3 ee pe ds eydh sf a ond t, rye ay ‘ Py ¥ hon a ’ . ‘ ‘ wee j ' sie ts kee fe Ri | an ’ 5 ‘ see / ‘ trney Vw bee peng. ae Sh 7 Pals Ly ‘ Fite Pian tew fpe t } i M hrhed dedi geucip a ars “belly gel 3 eted rat NILE ‘ LAO ice f f ens Pyare jay 1 i 1 RY Ha ee Ve puisaveis pr ache F { Z PR eUS _ —, ie ae —a ee ee t = a =a) nearer frre tt az i easton pu aaa meee | HRRFROG Yanonly mA AH ECT | eee rere ee == qnamnnnn D3 a lallall : a = : oe : i x la! Port ie La 7 Hed : “'r ; ; A FEE 1 f at fl i : : = = a: H i = ra co eI ‘ : => sean “a sss ents oo EPRRRE i gee ease, = 734 SZ a) a a x= > far m = D 25 Ht ea me o |e Te LO a | 5 | Pes | |ace | Tay ls AL TO TH ERE AS AN INDICATION OF eee ae WHAT MAY REASONABLY BE] EXPECTED PHIS. IN ING YEARS 8 2 ! 7 }ROCHESTER ~ ad ~ ~~ = fe is : 4 Ee = - a : [O weekase INCRREASE x/ / i 3 BN S i | [VA —f-— sales ae Lia Ve \ INJI873 THE! YELLOW HEVER EPID A EDUCED THE POPULATION TO e a 8 9 TIME VIN, “DECADES POPULATION GROWTH OF MEMPHIS TENNESSEE Plate Nd. 5. The population increase suggested above argues for anticipatory planning. Eee Nieeage BE HO, de Oy dak. Ab The Memphis Terminal Corporation. which gave quicker transportation between the city and its growing suburbs. Prior to 1890 the railroads entering Memphis from the west used steam transfer boats to ferry their trains across the river. But in 1889 work on a great steel cantilever bridge to span the Mississippi was commenced. This was completed in 1892 at a cost of $3,000,000.00. It is the first bridge above the mouth of the river. It was considered a masterpiece of engineering at that time. Between 1890 and 1900 Memphis had perhaps her greatest growth. The city limits had not been extended since the dismal days of the sev- enties. Memphis had far outgrown her con- stricted limits, so in 1899 the most generous and most regular of all her annexations was accom- plished, and in 1900 Memphis entered the class of cities of over 100,000 population. At all times, keeping pace with the development of the city, was the increase in its volume of busi- ness and taxable values, and of the expansion of its industrial, business and residential dis- tricts. In one respect particularly did Memphis fail to build properly. From the laying out of the original town in 1819 to 1899 little thought seems ‘to have been given to the need of additional areas for parks and public recreational purposes. Much of the ground that had been set apart by the original proprietors for recreational purposes was put to other uses. Railroads were permitted [ 26 ] to aequire rights-of-way under long leases for the entire length of the public river front. An industrial district consequently grew up on land which should have been reserved for public buildings and for recreation. Fortunately, how- ever, some of the original ‘‘promenade’’ was de-. voted to public buildings, i.e., the Custom House and Post Office, Cossitt Library, and the Central Fire Station, and some has been converted into small parks, i.e., Confederate Park and Chicka- saw Park. Eventually, but not within the next generation, all the public grounds on the river front, excepting the Cossitt Library and Custom House sites, will revert to the city and can then be devoted to the public use. Towards the close of the nineteenth century there was considerable agitation for the purchase of ground for more public parks. This resulted in the Act cf 1899 authorizing Memphis to issue $250,000.00 in bonds for the purpose of acquir- ing grounds for park purposes. With this and other money and through donations, Overton and Riverside Parks and the Parkway connect- ing these two areas were acquired and the devel- opment of the park system which Memphis now enjoys was undertaken. During the decade between 1890 and 1900 Memphis had so far recovered from her financial difficulties as to feel justified in asking for the restoration of its autonomy, which was granted by the Legislature, and in 1891 Memphis again became a city. Ce ae ee Pei ea NeN LN G COR SMa Sm Saale OPEN The great cotton warehouse. Thereafter, for nineteen years, the city was governed by a mayor and legislative council. During the last four years of this period, viz., from 1905 to 1909, the legislative council was divided into an upper and lower board, sitting separately, according to the Federal plan. Pur- suant to a demand of its citizens for a change in the form of municipal government, the Legis- lature of 1909 passed an act giving Memphis a commission form of government. On January 1, 1910, this form of government went into effect, the City Commission being composed of a mayor and four other commissioners. This form of government proved eminently successful and it has been in operation continuously since, and is the form of government today. The beginning of the World War found Mem- phis in a most prosperous and thriving condi- tion. During the war, however, there was little building development in this community other than that necessitated by war conditions. The city experienced the business depressions which were common to most cities at the time. When restrictions were removed, however, Memphis at onee, with confidence in her future, began to renew building activity, and today the city is experiencing the most marked development in all its history. There have been certain developments of a general public nature, not strictly local to Mem- phis, which have contributed materially to its growth during the past twenty-five years. The territory opposite Memphis is level alluvial ground, unsurpassed anywhere in the world for fertility. In times past the annual over- flows of the Mississippi River inundated these lands and greatly reduced their value for agri- culture. Occasionally the watery expanse oppo- site Memphis would be forty miles in width. The citizens of eastern Arkansas recognized the need of reclaiming these lands. The St. Francis Levee District was organized and about 1895 a levee was built, which now protects the vast St. Francis basin from this menace. The security which these lands now enjoy has been of inesti- mable benefit to Memphis. In recent years many counties of eastern Arkansas have entered upon ambitious programs of drainage and road improvement. Drainage ditches were cut through lowlands and roads were constructed and hard-surfaced to make these lands aecessible. Many of these improve- ments have been completed, and the physical condition of that territory is directly reflected to a considerable degree in the present pros- perity of Memphis. About the same time another great railroad bridge was commenced across the Mississippi River, and this bridge was constructed with a free wagon way, thus giving vehicles the first direct means of aecess to Memphis and joining the city more firmly to the great alluvial trade territory of Arkansas. Just prior to the war, through traffic upon the [27] F IN A-L Anil Je), 12% tO). Nake Ik MEMPHIS # TENNES SALON Fel PLAN SHOWING PRESENT VACANT PROPERTY 1923 HARLAND BARTHOLOMEW CITY PLAN ENGINEER CITY PLANNING COMMISSION BLACKENED AREAS — \\\ DENOTE VACANT PROPER) ST Mike Plate No. 6. Considerable areas within the city limits remain available for development. Mississippi River had practically ceased, except for a few local packets, as the great number of steamboats which, twenty and more years ago, navigated this river and its tributaries were no more. The great inland waterway was of little practical use. Its service as a carrier had been undermined by the widespread construction of railroads in the valley. Moreover, the belief had grown that only a sternwheel or sidewheel steam- boat could successfully navigate this river, as conditions were against a screw-propelled vessel. But the Federal government, through stress of war conditions, realized the absolute necessity of utilizing this great waterway for transporta- tion. A government barge line was therefore established and tradition was defied by the de- termination to operate towboats with screw pro- pellers. These boats and also others of the old type but modernized in design were put in serv- [ 28 ] ice, moving freight in huge quantities on the river. The government barge line on the Mississippi has been continued and is proving a success. Memphis has completed a river terminal cost- ing over $1,500,000.00. Barges are there moored alongside railroad tracks for exchange of freight. Foreign shipments coming into New Orleans in seagoing. vessels are transferred to the river barges and brought to Memphis for transfer to and further haul by railroad. Many tons of pipe and structural steel are received here by boats from the Pittsburgh district and are re- shipped by rail to inland points principally south and -west. Tobacco and tobacco products from Tennessee and adjoining states find an out- let through Memphis’ river terminal to almost every seaport in the world. Canned goods from the Pacifie coast, via the Panama Canal and New (Gio ae Ne Pe eA Ne INS LNs G CROP Mee Sas a lekOneN The two great bridges that link Tennessee and Arkansas. Orleans, are carried by water the entire route to Memphis. All these shipments consigned to inland points in this trade territory pass through the river terminal to the railroads for further transportation. The ten railroads radiating from Memphis have thus been linked with the great river for this transportation service. In its early history the contest between Mem- phis and other nearby towns was so vigorous that the supremacy of this community hung in the balance until the railroads assured its su- premacy. The city today is remarkably well supplied with railroad facilities. For the past twenty years the city has followed a consistent policy in dealing with the carriers, and has re- duced conflicts by a separation of grade cross- ings and systematic development of terminals. Memphis also has not neglected its interest in cotton. In South Memphis is the great concrete plant of the Memphis Terminal Corporation for the storage of cotton, one of the largest enter- prises of its kind in existence. Until the estab- lishment of this plant the vast amount of cotton that came to Memphis was stored in the city in open areas protected only by brick walls. In the cotton season these warehouses would be filled and the excess bales would be stacked high on the sidewalks. This was a great fire menace and placed a heavy burden of traffic on the streets in draying the cotton to and from the warehouses. The new cotton terminal has now corrected all this and placed Memphis at the very front of Southern cities as a cotton center. The progressiveness of Memphis is further illustrated by the accomplishment in recent years of certain general municipal improvements that are almost unique. The protection of the St. Francis basin along the west side of the Mississippi River opposite Tennessee caused the flood plane in the river to be raised at Memphis approximately ten feet. In 1897 the spring rise in the river, which estab- lished a height record, caused little inconven- ience in the city, as only a small amount of ter- ritory was overflowed, and this was near the mouth of Bayou Gayoso, the main natural drain for the city’s surface water. In 1912 and 1913, the flood height of the river having been greatly [ 29 ] eee Ne Ag Hy 1a, Ae Oy Tay IR increased, the great floods of those years caused backwater from the Mississippi to rise high in Bayou Gayoso and to extend well into the low- lands bordering the bayou. Many acres of these lowlands were flooded, causing great inconven- ience to the inhabitants of those sections and also interrupting street traffic for several weeks in the district affected. So, with characteristic energy, Memphis im- mediately made plans to protect itself against this menace. The waters of Bayou Gayoso were diverted into the river at two points by long tunnels under the business district, thus leav- ing but little water to find an outlet through the mouth of the bayou. In addition a levee was built along the river front in the neighbor- hood of the bayou’s mouth, and the bayou itself was protected by flood-gates, thus preventing water from the Mississippi River entering the city. To eare for the water draining through the mouth of the bayou during flood stage, im- mense pumps were installed to lift this water into the river. This entire work cost $1,500,000, which was defrayed by a bond issue. The situation of Memphis on the Mississippi River opposite the State of Arkansas, and the great floods which pass down that river annually, present another situation that is peculiar to this city. Memphis, being built upon a bluff, is fully seventy-five feet above the level alluvial ground on the Arkansas shore. The St. Francis levee opposite Memphis is far back from the river and this vast intervening area is subject to annual overflow to a depth of ten feet or more. From Wooden viaduct spanning Arkansas lowlands between river and levee, to be replaced with concrete viaduct. [ 30 ] the end of the Harahan bridge wagonway where it reaches the level in Arkansas to the levee is about two miles. To connect its concrete road system behind the levee with the Harahan bridge, Crittenden County, Arkansas, some years ago built a wooden viaduct well above over- flow stage, and this viaduct carries an immense amount of traffic. Being the most southerly crossing by bridge of the Mississippi River, four national highways are planned to cross the river here. The wooden viaduct has about lived its day and plans are now well under way to re- place it with a concrete viaduct that will cost $1,000,000. Memphis, fully appreciating the great benefit this permanent structure will be to it commercially, under legislative authority has voted to stand one-fourth its cost, although it will be entirely in Arkansas. One-half the cost is to be borne by Federal aid and the re- maining one-fourth by the citizens of Arkansas in some manner. Mention must be made of the Tri-State Fair held every fall in Memphis. This city is the center of a great trade territory comprised of West Tennessee, North Mississippi and East Arkansas. The fair has been held for years in what was old Montgomery Park, where running horse races were held in the days of the legality of that sport in Tennessee. In 1912 this tract of 115 acres, with a large steel grandstand, was purchased by the city and was made a part of its park system, but without displacing its use for the fair. Recently Shelby County and the city both obtained legislative authority to issue Concrete road at end of wooden viaduct in Arkansas. Clay. Pee AN Ne LaeN G, (CWE ACS BS Uk OD il DISTRIBUTION OF POPULATION HARLAND BARTHOLOMEW = CITY PLAN ENGINEER 1923 NOTE =- EACH DOT REPRESENTS TWENTYFIVE PERSONS. Plate No. 7. The uneven distribution of population can become a serious menace to the welfare of the city. bonds for the erection of permanent buildings for the use of the fair, and these very commodi- ous buildings have now been built and are in actual use. In addition this property through- out the year is used as a recreation center. -In the period following 1910 and prior to the World War much prestige was added to Mem- phis by the building of two handsome union railroad stations, which serve all the railroads entering the city, and by the location of the West Tennessee Normal School, a state institu- tion, just beyond the eastern limits of the city. The dream of its early citizens that Memphis should become a gateway to the Pacific coast finally became a reality on December 29, 1923, when through passenger service was commenced between that city and Los Angeles, California, via the Rock Island and Southern Pacifie Rail- roads. The hope of Memphis today is for a ~ through passenger service from the Atlantic sea- board to the West coast via the Memphis gate- way, this route being the most direct one to Southern California and being practically free of winter snows. The future for Memphis is filled with promise. The railroads centering here will always insure her a great commerce. The revival of freight transportation upon the Mississippi River will materially add to this activity. The drainage and road development in the territory contigu- ous to Memphis will add greatly to her trade. With her transportation facilities and her cen- tral location, Memphis is being recognized as a strategie distribution center. In view of the location of Memphis and the material resources of its adjoining territory, it is reasonable to assume that the city will con- [ 31 } He DaNge sgl Int J5, Te) tay Ab tinue to enjoy a steady and substantial growth. Obviously, greater Memphis cannot for long be contained within the boundaries of the present city. The future should be anticipated and a broader view of the city’s possibilities should be taken. The city must plan to correct its physi- eal deficiencies and co-ordinate its future devel- opment and expansion in accordance with a comprehensive and thoroughly studied scheme. A definite policy for all future development should be adopted and adhered to. All publie work should be done in accordance with a city plan, which should make ample provisions for the expansion of commerce, industry and resi- dences, without waste, undue expense and de- preciation of property values. Only by such far-sighted and comprehensive planning can the city hope to enjoy a systematic and economical growth and promote the comfort and conven- ience of all its citizens. ye ae The Memphis wharf. Coe ae Ley: le AGN NGL eNG Gr CC; (OY AME AE A Sy Sy Le K@ any MAJOR STREETS ern city, is increasing in volume and importance beyond all expectations. The dependence of the city upon this flow is becoming more and more There is a realization of the impor- NE of the primary responsibilities of any city that expects to grow and prosper is to develop opportunities for better circu- lation. Traffic, the life flow of the mod- pronounced. MEMPHIS TENNESSEE EVOLUTION OF THE MAJOR STREET PLAN HARLAND BARTHOLOMEW CITY PLAN ENGINEER SAINT LOUIS , MO. PLAN SHOWING . nit : i = ie PLAN SHOWING EXISTING STREETS HW on | ) EXISTING STREETS iil rs j J USED AS MAJOR } STREETS PLAN SHOWING \ - T | I PROPOSED oo = Lar ! PLAN SHOWING MAJOR STREET = MAJOR STREETS AND EXTENSIONS OF | 2M - me / \ wre \ | Od j SYSTEM ITT m\eN Ty He Plate No. 8. Showing the manner in which the existing street arrangement has been systematized. [33 ] TIN Sea R Eee OTR! tance of circulation in Memphis and a desire to improve and modernize the traffic arteries of the city. The streets of Memphis, generally speaking, were not built for the service that is demanded of them today. Their common faults are: Lack of system. Unsatisfactory crosstown routes. Inadequate width on strategic thoroughfares. Jogs and dead ends on should be ‘tthrough’’ streets. what The effect of these deficiencies is to handicap and retard that free flow of vehicles which is Ee al SCALE VARIATIONS IN TRAFFIC CAPACITY ON ‘ EXISTING RADIAL STREETS HARLAND BARTHOLOMEW < 9 a E| z Plate No. 9. MADISON UNION The irregularity of street development:in the past cannot be better shown. essential to the upbuilding of a larger, stronger city. Lack of system prevents approach with equal facility to all parts of the city. The streets of the first original town (Plate No. 3) now serving the central business district are the only ones which form a co-ordinated system. This fact is responsible in large measure for the continued ability of these traffic ways of early origin to serve the needs of present-day Memphis. More recently laid out streets are unusually haphazard in arrangement. Absence of good erosstown routes likewise pre- vents proper intercourse between districts. Memphis suffers particularly from this handi- LEGEND - THREE LINES OF VEHICLES. ~ FOUR LINES OF VEHICLES - SIX LINES OF VEHICLES. -EIGHT LINES OF VEHICLES These arteries should all be wider. [ 34 ] Calatvey: BSLSACNGNeIEN G COMMIS STON STREETS SIXTY-SIX FEET WIDE AND OVER HARLAND BARTHOLOMEV CITY PLAN ENGINEERL LEGEND ) STREETS 66 FEET WIDE =——> }}\\ STREETS OVER 66FEET WIDE mmm |})) com fi PARJOVAY JOGS ° | DEAD ENDS . p) Plate No. 10. Another illustration of the disregard of traffic needs in determining street widths. cap. The city has not a single north and south thoroughfare that is both continuous and ade- quate in width. MeLean Boulevard, which is generally considered to be the most satisfactory, is three miles east of Main Street and is fifty feet wide throughout a considerable portion of its length. The lack of suitable east and west crosstown streets above and below the business center is equally serious. Inadequacies of width further lessen the value of the streets of Memphis. The routes of old roads and trails which in the early days con- nected the settlement with the surrounding coun- try have fortunately been fairly well preserved. They appear as radiating arteries in the street plan, affording practically direct approach to what is now the heart of the city. Instead of being commodious traffic ways, however, these radial arteries are mostly nar- row, with many angles. Several carry car lines. The variations in their traffic-carrying capacity may be seen in Plate No. 9. Lamar Boulevard, or Pigeon Roost Road, is the only one that shows marked uniformity in width. The capacity of Jackson Avenue and Mississippi Avenue varies often within the city limits. Sim- ilar inadequacies and variations in width occur also on many other streets of major importance in the city. The haphazard location of the few wide streets is well shown in Plate No. 10. Jogs or offsets in streets and abrupt endings further retard traffic movement. Plate No. 10 shows the prevalence of these obstacles. Their effect upon the development of the city would [ 35 ] r He ieeN AR perhaps be favorable if they always came upon local or minor residential streets, for they would then tend to preserve the character of these dis- tricts. As the plate referred to above shows, however, they occur upon traffie ways of all types. Many streets that should be thorough- fares in every sense of the word have numerous jogs throughout their length and end ultimately at a cross street, railroad yard or other obstacle. Practically all the faulty streets with which Memphis today finds itself provided and trying to grow upon have developed through short- sightedness. City officials and citizens generally in the past have failed notably to appreciate the city’s opportunities for future growth. Those who have laid out land subdivisions have been particularly negligent in considering the inter- ests of the community at large. Immediate re- turns from sale of the land was the main con- sideration, and the city had no guiding plan which might be followed even if a land sub- divider did evince an interest in the larger community. Land has been subdivided accord- ing to the owner’s ideas, and streets as opened, whether wide or narrow, continuous or broken, have been forced to serve any and all purposes. The consequences of this haphazard, irresponsi- ble method of building up the street system are seen in: (1) Unsymmetrical city growth. (2) Abnormal property values. (3) Improper street car routings. (4) Congestion. (5) Retarded traffic movement. (6) Aeceidents. (7) Abuse of pavements. Wide, direct thoroughfares like Poplar Boule- vard and Union and Peabody Avenues are en- Jay 15; 12 20 IR th couraging the dominant growth eastward. Lack ot similar streets has diverted development from other sections none the less suitable for residen- tial use. The differences which prevail between property values upon the streets mentioned and others just as favorably situated, but narrower and less active, prove the disadvantages of hap- hazard determination of street widths. The proper routing of street cars likewise becomes difficult where an unsystematie street layout must be used. The ear lines of Memphis have been placed upon the most suitable streets avail- able for purposes of reaching certain districts, regardless of the traffic capacity of the streets or the consequent effect upon vehicular traffic. Evidences of congestion and retarded traffic movement, due to other causes, need not be fur- ther detailed here. The hazards of the streets likewise are apparent to anyone who walks or drives. Sharp turns, narrow roadways and ob- structed vision all contribute to the number of accidents occurring upon the highways in the city. The lack of wide, direct arteries to certain sections also causes a shifting of vehicular flow and consequent abuse of pavements on streets not designed to carry a ‘‘through’’ movement. These faulty traffie ways undoubtedly retard the progress of Memphis and reduce its effec- tiveness as a commercial and industrial center. The defects of its streets are not generally superficial. They are basic weaknesses in the street structure. They introduce uncertainties into the upbuilding of the city. They handicap the flow of traffic, which in turn affects prop- erty values, business and industrial development, and practically every other phase of city life. In order to be assured of more effective future growth, Memphis must systematically correct these deficiencies of its streets. Memphis as seen from the Mississippi River. The river early influenced the development of the city. [ 36 ] St a ST Sapna FE ee “+9 > , ri " A —— = | — la won} RR. : ipa eae ANE — MEMPHIS TENN E-S'S ee pet SIDEWALK AND TREE SPACE. SUCK A LINE aie: ee is STREET ALSO CAN BE CONVERTED INTO | we = rand A “CAR LINE "THOROUGHFARE IF NECESSARY THOROUGH- Se 4 Sete ACAR LINE” CROWDS THE 6G FOOT FARES Tees i oe STRECT pe at tay THE 80 FOOT STREET 1S ECONOMICAL C Bs F OF SPACE YET WIDE ENOUGH TO CARRY ; ene: EITHER 4 OR G LINES OF TRAFFIC INCLUD- ING STREET CAR. IN ALL NEW PLANNING ans CAR LINE STREETS SHOULD NOT BE LESS THAN 80 FEET WIDE. a, ae THE 1OO FOOT STREET IS A SPLENDID ee ee ae 6 LINE STREET CAR THOROUGHFARE. IN ee Pee Ae aa RESIDENTIAL DISTRICTS ITS WIDTH GIVES Rene =< Peay pa sy IT GREATER DIGNITY AND CHARACTER. j kev) ears gem | SY é FOR BUSINESS USE THE ROADWAY CAN BE IN- SIX Si aE Sa Tel, ~~ CREASED TO CARE FOR ANGULAR PARKING LINE é 6 S20 WITHOUT RESTRICTING SIDEWALK WIDTH THOROUGH pe ae FARES i al a a THE 120 FOOT STRELT IS A CONVERT! BLE RESIDENTIAL ees oe ee eee GORSLINE THOROUGHFARE. IT HAS A QMO eS a tf ee BOULEVARD ASPECT IN RESIDENTIAL NCIGII- Pat laleed | i) BORHOODS AND MAY BECOME A BUSI- a vob nnn te NESS STRECT OF UNLIMITED USEFULNESS. —18 Sp 5 tet THE IOO-FOOT STREET MAY BE DEVELOPED AS AN &-LINE THOROUGH- FARE BUT IT IS SCARCELY WIDE ENOUGH! FOR G-LINES AND ANGULAR PARKING EIGHT LINE THOROUGH FARES BUSINESS THE 120 FOOT STREET IS BETTER AS AN 8-LINE BUSINESS THOROUGHFARE. ANGULAR PARKING IS POSSIBLE AND SIDEWALKS ARE MORE COMMODIOUS. MAJOR STREETS SCALE IN FEET. Plate No. 21. Suggestions for street widths based upon lines of vehicles. Celera y Paw Nee Nee Le NGG: CeO Me Me le Sa Siete OeN eastern part of the city and the area just east of the city limits. The territory through which most of these streets and their connections pass is at present undeveloped and a width of eighty feet could be easily obtained. Beyond the city limits the general system of major streets, radial arteries and co-ordinated erosstown thoroughfares has been continued. The problem of developing the system in out- lying territory is chiefly that of controlling the future subdivisions of land. Many short lengths of streets already laid out have been incorpor- ated in the plan and suggested for widening. It should be possible to secure additional width for these favored streets without cost to the city. DISTINCTION BETWEEN MaAJorR STREETS AND PLEASURE DRIVES It is pertinent to emphasize here the particu- lar necessity of opening major streets parallel to the Parkway. FEET) GREATER? WIDTH OF ALLY WASTED UNLESS THE ULL OLINE THOROUGHFARE RES A S4FOOT PAVEMENT Mek) PROHBIED WI WRetLy ROADWAY ZeFT SIDEWALKS (SFT 2 WITH CouBLE ( CAR TRACK NG - NO PARKING SONNE afer EACH FOU! Z ROADWAY SS FEET SID 3 AS ABOVE ONE TRACK REMOVED OWE WAY STRET-TWO LINES MOUNG - PARALLEL PARKING OV AH SOE ROBDWAY SSTEET SIDEWALKS IS FEET Lit ta IE A ee ee El ea eer Plate No. 22. 4 SINGLE CAR TRACK IN CENTER FIVE LINES TWO STANDING /HRALLEL JO CURB- THREE MOVING - ROKDWAY 44 FEET SIDEWALKS 11 FEET 5 VARIATION OF NUMBER { OWE LINE PARKED AT 45-ONE LINE (HRALLEL- TWO MOVING ROWDWAY 41 FEET SIDEWALKS 12% FEET HARLAND BAITHOLOMEW City Plan Engineer SrlouisMo 1923 An analysis of the principles of street design. be adequate for either single or dou- ble-track car line. In preliminary stages the 80-foot street, developed with only a four-line roadway, offers a more satisfactory planting space for trees and otherwise adds dignity to residential districts. Siz-Line Streets [54] No transit thoroughfare should be less than a six-line street. The mini- mum width for this type should be 80 feet. This permits a roadway of 54 feet without street cars and 56 feet with them. The sidewalks are ample, but cannot be reduced to permit fur- ther widening of roadway for angular parking. One hundred feet is a more suitable width for a six-line street. It is commodious and readily converti- ble. It can even be made an eight- line thoroughfare with transit facili- ties, if necessary. In residential dis- tricts, before the growth of the city Bee PIO Mik. warrants intensive development, the 100-foot street can be made very im- pressive. Hight-Line Streets In The eight-line street should be 120 feet wide. One hundred feet will suf- fice, but this width will be insufficient to permit the angular parking, which is commonly desired. In general an- ticipation of future growth, a width of one hundred and twenty feet on arte- rial thoroughfares will not be found excessive. Minor streets and special service streets may have such widths as will satisfy the requirements of local traf- fic. If a special effort is made to place wide streets where wide streets belong, minor streets may be made correspondingly conservative of space. The width of an eight-line thorough- fare is largely wasted on a_ short, local byway. If impressiveness is de- sired on a narrow street, it can be secured by enforcing a building line that will keep the houses back and permit the planting of trees along street lines. Minor streets of residen- tial character often need only a two- or three-line roadway.. The width of minor streets, however, should seldom be less than fifty feet. Properly designed roadway. designing the roadway the specific traffic rules to be applied to the street in question should be kept in mind. Paving should be definitely related to parking rules. (See Plate No. 22.) (1) The unit width of roadway for moving vehicles should be nine feet; for standing, parallel to the curb, eight feet; for parking at thirty de- grees, twelve feet; forty-five degrees and at right angles to curb, fifteen feet. (2) Roadways should be paved for the most economical accommodation of vehicles. In the downtown district, where parking space is greatly need- ed, the paving on each street should be of sufficient width to care for ve- hicles standing at a certain angle on either side and a definite number of moving lines in the center. Extra width merely contributes to the traffic hazard. Once the roadway width is determined by presumption of parking at a certain angle, traffic regulations should be devised to insure the use of the street in this way. A roadway planned for forty-five degree parking Cr tA Be pee ree NN Nee Ge CROP M eee Sa Sele One N on either side and two moving lines, with parking lines painted on the pave- ment, is a safe street. If parking be- comes irregular, the variable extra roadway space so released invites dangerous driving. Streets are made safe by being used under definite reg- ulations, Note the following roadways for specified uses: Four parallel lines, vehicles moving or standing, no street CATS ie Ai ete see Bee os 36 feet Four parallel lines and one center car lineseeeeeee sae 46 feet Two lines moving vehicles and parking at 45 degrees on bothssid esac. =e woe 48 feet Four parallel lines, vehicles moving or standing, and dou- DlSTCarglin Gm ce see ee ee nee. 56 feet Two lines moving vehicles, two standing at 45 degrees, dou- DICE CATAline 2 Se. een 68 feet Four lines moving vehicles, two standing at 45 degrees, Coublesca tli eye ee 86 feet (3) The placing and routing of street car lines should be thoroughly in accord with the major street sys- tem and traffic regulations. The tran- sit facilities of Memphis today have been disposed with little regard for major traffic ways. (e) Commodious, but no unnecessarily wide sidewalks. (f{) Easy gradients and curves. (g) Attractive and durable paving. (h) Suitable curb radii. (i) Safety features—platforms, proper light- ing, vision clearance at hazardous cor- ners, etc. Obviously it will not always be possible in reconditioning old streets in the interior of the city to apply all the above standards. Outside the city, however, the major street plan may be executed with full effectiveness. Land subdivi- sion practice, the primary source of past mis- takes in street planning, should be modified im- mediately to meet the requirements of the city’s new street development policy. Adherence to the major street plan and the principles of modern street design embodied therein will benefit the land subdivider as well as the city. A great deal of property in Mem- phis today is low in value because of the dis- regard of community interests. The lack of municipal control has invited narrow, dead-end streets, lots of improper size and similar abnor- malities which failed to serve selfish ends as expected. It is apparent now that standards for land subdivision are needed and that the city is justified in enforcing these standards as it seeks to carry out its major street plan. The welfare of the general public and the interests of those who will own or live upon land in all new sub- divisions demand: First, that circulation requirements be met by preserving the continuity of major streets. If this principle is followed and the integrity of the major street plan is preserved, no lots in any subdivision need be much more than a quar- ter of a mile from a wide, direct traffie way. The selfish subdivider, however, cannot expect to be permitted to ignore the major street plan as it affects his holdings, yet enjoy the advantages of thoroughfares developed through observance of the plan elsewhere. The laws of Tennessee have given the City Commission authority to enforce its major street plan if necessary. (See Appendix ‘‘A.’’) Second, that all streets be laid out with proper regard for topography. If the land which is being developed is rolling or rugged in character, the opportunity for varying the rectangular method of platting should be welcomed. Major streets only need be carried directly through the subdivision and in certain cases even they may be made more useful by curves and easier gradients. So long as the major street plan is followed there is no necessity for the minor streets of one district to have the same pattern and alignment as another. The chief requirement to be made of the minor street layout is that it provide for the normal flow of vehicles toward the thoroughfares. Third, that the accepted standards of modern land platting be observed in the determination of lot and block sizes. The widening use of automobiles, the inereas- ing size of cities, the cost of paving and similar factors all urge the reduction of unnecessary street spaces. Cross streets can be reduced in number without detriment to circulation and with notable saving to property owners. Block lengths, therefore, may run as high as 1,000 feet, provided cross-walks are introduced. Lot depths and block widths may also be decreased. The normal lot requirements of a single family home are well provided for by a lot 125 feet [55 ] Ne Aw 1 By 12 @) AR Vb F ‘g1qvsofus puB [NJYIVeY IT] A}IO VYBUL YOIYM SoaTpTIOVJ JO JUS}Xe YUeSeud eYL “ES “ON 9}¥Id =| IE i iy AALYM 9 SAAMAS saamas AAaLYM AG daAdaS SvYAaY BS SLAAALS CAAVd =. ~aNA9A1~_ |_| i ltl LaaA NI ATYDS / : j .SINOT LNIVS ee NV1d ALID y = ; Phe | |. MIWOTOHLAYE GNYTAVH - : f/)) Ag GaAdas SvaAdy ANY SLaaaLS daAvd AdaSSHNNAL SS SSS SSS SSS SSS Ss (Cr ge Al Je) Ab, A ANE IN) AL Nh 1G; CeOLMeMe LES Sei ON deep. Blocks, therefore, should be approximate- ly 250 feet in width. The width of lots should be determined by the character of the subdivi- sion, but should not fall below 40 feet. In no ease, whether lots be of rectangular or irregular shape, ‘should the total area fall below 5,000 square feet. All lots should bear a building line, this line on corner lots carrying around the side so as to preserve the full setback on the side street if any is required. Side lines of lots should be at right angles to the street. Hase- ments for utilities should be reserved along proper lines and alleys eliminated except in the rear of commercial property. Fourth, that in so far as possible the complete development of the new subdivision as a part of the city should be provided for at the time of platting. If a local store group is anticipated in the area being subdivided, the layout of streets and lots should be modified accordingly. The re- quirements of business are different from those of residences and should be recognized. This same rule applies to platting for schools, parks, churehes, institutions and similar special inter- ests. The residential advantages of a subdivi- sion may be materially improved by adapting streets and lots in design to all these require- ments. In carrying out the subdivision project, grad- ing should be done according to plans prepared at the time the layout is made. Trees should be planted and, if possible, sidewalks and pavements laid before the newly-platted property is placed upon the market. The principles stated above are exemplified in Plate No. 24 and are incorporated in the rules by which subdivisions will be judged hereafter by the City Planning Commission. Realty agents of Memphis should co-operate in carrying out {{N. [A DIAGRAM TO ILLUSTRATE PRINCIPLES OF LAND SUBDIVISION 1 MAJOR STREETS SHOULD BE RESPECTED © RESERVE RUGGED AREA AS PARK 2 STREETS SHOULD FIT CONTOURS 7 INDICATE SCHOOL AND CHURCH SITES 3 TRAFFIC SHOULD FLOW TOWARD THOROUGHFARES. 8 AVOID SHARP-ANGLED LOTS 4,Maxc mNOR STREETS UNSUITABLE AS THOROUGHFARES 9 LOT LINES SHOULD BE PERPENDICULAR TO STREET 5 PLAN COMMERCIAL SITES AT IMPORTANT INTERSECTIONS 10 OMIT ALLEYS | NOTE RELANVE WIDTH OF STREETS LOTSNOT ORAWNTO ScALE THREE TYPES OF ‘STREET,LAYOUT Harrano Bartiotomew Gry Pian Encincer Saint Louis Plate No. 24. A brief statement of the formula by which suitable land subdivisions may be prepared. the new land subdivision policies of the city. Every piece of property that is subdivided with- in five miles of Memphis is related to the city. It cannot be ignored because it happens today to seem remote. They should appreciate the concern of the city in what they are doing and lend every effort toward improving land subdi- vision practice. The city is spending consider- able sums correcting mistakes made in the past; by properly guiding land subdivision in the fu- ture these expenses will be avoided and all Mem- phis will benefit. [57 ] a) 7 a oa by have SEN oe THON ey ft fa fe wie MEMPHIS a TENNESSEE eas SCALES (N)FEET SITY Limits _ Sea PRESENT & PROPOSED = ae TRACK ARRANGEMENT AREAS SERVED AND DISTRIBUTION OF POPULATION CITY PLANNING COMMISSION COPYRIGHT 1922 / \ // | eel eh RS \ LIMITS —_ Oe ee ee ae gf \ 3 / ~S / oe ° —— . . o . ane . Se ee ene Su ae can on . . . se S ‘\ / en LEGEND Present Track To Be Usep PRESENT TRACK TO BE ABANDONED PROPOSED CONNECTIONS & EXTENSIONS 2a ee s&4] UNSERVED AREAS Note - One Quarter Mile Walking Distance to Gr Lines taken as Basis of Service. Ne wy Each Dot - REPRESENTS 25 PERSONS. city! Lit Plate No. 25. Transit facilities should be extended in such a way as to encourage a balanced urban development. ie Tee ren, Pe ANeN Le G COR Vie Mae Saar te ON — TRANSIT SATISFACTORY transit system is de- pendent upon a number of equally im- W(Gey portant and inter-related elements. Aside from the legal and financial phases, good transit service requires efficient and economical operation. As most transit systems are the re- sult of a consolidation of numerous competing lines, their physical plans are usually deficient and consequently costly of operation. The lack of systematic street design providing direct thor- oughfares of sufficient width is also responsible to some degree for poorly arranged lines. These matters are all involved in a comprehensive transit system, and no satisfactory scheme of urban transportation can be evolved without the consideration and intelligent solution of each and every one of them. The transit study under the city plan, however, deals primarily with the rerouting and extension of lines in accordance with a predetermined and carefully prepared plan. Mempuis TRAFFIC SURVEY Just prior to the inauguration of the city planning studies in Memphis, the Railroad and Public Utilities Commission of Tennessee, in its reply to an application for the approval of in- crease in fares, ordered the Receivers of the Memphis Street Railway Company, among other things to be done, to have a traffic survey made to the end that ‘‘more satisfactory service may be provided in the City of Memphis at less cost to the public than is at present maintained. ees. This order, however, shall not become effective unless and until the City of Memphis shall elect to have such traffic survey made.”’ In accordance with the order of the Railroad and Public Utilities Commission, dated March 15th, 1920, Mr. Ross W. Harris of Madison, Wisconsin, was retained jointly by the Board of Commissioners of the City of Memphis and the Receivers of the Memphis Street Railway Com- pany (which receivership has since been termi- nated). Mr. Harris made a eomplete and ex- haustive study of the existing operating condi- tions and made numerous valuable suggestions for improving the service and effecting economy in operation. Among some of the more impor- tant improvements recommended were the relief of street car congestion on Main Street and a more intensive use of Third Street. Also the removal of lines from Front Street, which re- sulted in alternate north and south streets in the business district being used for transit facilities, and left Front Street and Second Street free for vehicular traffic. This arrangement has already proved advantageous in that it has expedited both vehicular and street car traffic and has served to encourage the natural expansion of the downtown district. Notwithstanding the fact that Memphis at the time of the survey had reached a population of 162,000, it continued, like many other growing cities, to be a one-street city so far as its busi- ness district was concerned. Car lines from all sections of the city centered upon Main Street to the practical exclusion of all other streets. Although the plan finally accepted and now in effect has greatly relieved this situation, it is evident that it will not prove adequate to meet the growth of Memphis many years hence. Unfortunately Mr. Harris did not have the benefit of the city plan studies, which followed his survey. The major street plan would have been of particular value, even though his survey was concerned primarily with reducing the cost of operation and of relieving traffic, yet involv- ing as little change as possible in the existing system. These city planning studies emphasize the need of anticipating an even greater expan- sion of the business district than is now provided for under the present loop plan. They, too, exemplify the necessity of certain extensions in the outlying districts, which phase of the plan was not treated under the traffic survey. TRANSIT RECOMMENDATIONS INCLUDED IN THE City PLAN Inasmuch as the purpose of the city plan is to suggest and co-ordinate all of the physical [59 ] Fie iGeN ee Age, Te 1B TP. TO) 1k Th improvements of the city many years in advance, the plan of Memphis would not be complete with- out definite recommendations for the gradual adjustment of the present layout and a future program for the extension of transit service. Such a scheme has been prepared. Its study was greatly simplified by the major street plan des- ignating all present and proposed main thor- oughfares. See Plate No. 25, showing present and proposed track arrangement, areas served and distribution of population. With this plan as a guide for all new improvements, it should be possible ultimately to attain a systematic and economic transit layout. In addition to the plan which was submitted in a preliminary transit report as a part of the city plan, the following suggestions were also made for simplifying and accelerating street car and vehicular traffic movements: 1. Reduction of the number of left-hand turns by street cars in the business district. 2. Removal of car tracks from Union Avenue as far west as Main Street so as to free this thor- oughfare of car tracks for its entire length. 3. The abandonment of tracks on Linden Avenue so as better to serve vehicular traffic. 4. Create a crosstown line by extending the Cleveland line south on Bellevue to McLemore, thence west to Florida. Such a line would di- vert considerable traffic around the business dis- trict and thereby relieve congestion in the cen- tral part of the city. In compliance with the above recommenda- tions, car tracks on Union Avenue have been removed except for that part between Third and Main Streets. The tracks on Linden Ave- nue have been removed. Considerable progress has been made toward accomplishing the exten- sion of the crosstown line. The operation of this line has been dependent upon the construction of two railroad grade separations, one on Me- Lemore Avenue and the other on Bellevue Boule- vard. The McLemore Avenue viaduct has been completed for more than a year and it was pro- vided with car tracks for this line. The Bellevue Boulevard subway has been designed to carry ear tracks and construction work is now under way. Upon its completion the crosstown line will be continuous from MeLemore Avenue to Poplar Boulevard. [ 60 ] Future ExtTENSIONS Transit facilities must necessarily precede de- velopment. Experience shows that people will not live in any appreciable number in unserved areas, while, on the other hand, to extend the electric lines into new territory in advance of population would place a tremendous financial burden upon the entire system, for which all the ear riders would ultimately have to pay. The problem, therefore, is to find a means of provid- ing reasonable service in new districts prior to the time when the cost of constructing electric lines would be justified. The use of motor buses as auxiliaries and feeders to the electric lines is the most satisfactory and economical solution of this problem. Electric lines have proved to be the most practical and cheapest way of handling the masses of people, but up to a certain density the bus lines have been found to be more economical because of low cost of installation compared with the initial cost of constructing tracks for electrie lines. The satisfactory use of the bus, however, is dependent upon several important conditions. The buses must be operated by the transit com- pany under a unified scheme in order that sched- ules can be synchronized and transfers inter- changed. The use of all private buses in com- petition with the transit company should be pro- hibited. The street railway system is a natural monopoly subject to regulation, and all forms of urban transportation should come under its con- trol; this for the obvious reason that it is com- pelled, as a matter of public convenience, to ~ provide service in certain unremunerative dis- tricts, and in order to maintain a uniform rate of fare, the more profitable lines must help sup- port the less remunerative ones. Consequently any reduction in revenue on the heavy lines nat- urally affects the fare for the whole system. Several years ago many so-called ‘‘jitneys’’ appeared upon city streets, creating a problem of traffic regulation and so added to the difficulties of maintaining public safety that state legisla- tion and local ordinances were passed, which are still in effect, declaring jitneys to be common carriers, fixing certain routes of operation and requiring a bond of $5,000.00 for each vehicle operated. Thus restricted to a responsible form of service, these vehicles soon ceased to function effectively, never having helped to carry any substantial proportion of the riding publie. (Gy DE ko ng rege eae NN Lee N Gr GeOSMeMBLES SSsl OF uN The city’s growth, to be economical and effi- cient, should be symmetrical, and the population should be uniformly distributed. This requires that new districts be opened from time to time and that carfare be uniform throughout the city. . It is recommended, therefore, that modern buses be used as feeders to the main electric lines, that transfers be interchanged between the two carriers, and a uniform rate of fare be main- tained, all under a unified system operated by the transit company. SUBURBAN AND INTERURBAN SERVICE The territory about Memphis contains many small communities, but of such limited popula- tion that no electric interurban lines have been or are likely soon to be established. In recent years these communities have been brought into closer touch with Memphis, however, by the de- velopment of a number of motor bus lines. They perform an effective service, operating only be- tween these communities and the business dis- trict of Memphis, where a terminal for them has been established on Front Street near Court Avenue. So long as they perform no local serv- ice and ereate no particular traffic problem in the business district, such service should be en- couraged. The routes and daily trips made are as follows: Name of Company No. of Round Destination Trips Daily Gregory Bus Line Gregory Bus Line Rosemark Bus Line Rosemark Bus Line Ellis Bros. Bus Line Independent Bus Line Pleasant Ridge Bus Line Munford Bus Line tregory Bus Line tregory Bus Line Gregory Bus Line Gregory Bus Line Gregory Bus Line Gregory Bus Line Gregory Bus Line Collierville, Tenn.. Olive Branch, Miss. Rosemark, Tenn... Collierville, Tenn.. Kerrville, Tenn.... Kerrville, Tenn.... Pleasant Ridge ... Munford, Tenn.... Forrest City, Ark.. Marked Tree, Ark.. Wynne, Arkin. Holly Sp’gs, Miss.. Cockrum, Miss. ... Hernando, Miss.... Tunica Missa... NwrPrR ER KENYON KPENNM DY BLO [ 61 } R-EPP TORT Bel oN GAS ‘[BULWI9} JYUSI9IJ OSvyoed [VdOluNny/L [ 62 | Ce ele, Pee Ne Neel NGS G CEOs MoIMALSS 25 21; 0; aN TRANSPORTATION EMPHIS is well favored as to its trans- portation facilities, and has few equals Mey 2Mong cities of similar size. The railroads have been remarkably influential in de- veloping Memphis industrially, especially during the past ten years. They radiate from Memphis in every direction, and for this reason the city is particularly well known as a distributing and receiving point for shipments originating in and consigned to the Southern and Southwestern states. In order to eare properly for the normal increase in traffic, there will soon be required some expansion in facilities and a revision of operating methods. The present is an eminently proper time for both the railroads and the city to combine their efforts in formulating a logical and systematic program of development that will provide in detail for both immediate and future transporta- tion requirements. PRESENT RAILROAD FACILITIES AND OPERATING MetTHops Memphis is served by the following railroads: The Southern Railway (including Mobile & Ohio Railroad), Louisville & Nashville Railroad, Nashville, Chattanooga & St. Louis Railway, St. Louis & San Francisco Railroad, Mlinois Central Railroad, Yazoo & Mississippi Valley Railroad, Chicago, Rock Island & Pacific Railroad, St. Louis-Southwestern Railroad, Missouri Pacific Railway and the Union Railway. (See Plates No. 26 and No. 29.)* The facilities and operating methods of the various railroads may be summarized as follows: THE ILLINOIS CENTRAL AND YAzOO & MISSISSIPPI VALLEY RAILROADS The principal freight yards of the I. C. and Y. & M. V. Railroads, the Nonconnah Yards, are about a mile south of Mallory Avenue. They are well be- yond the city limits, and their development will not *Previous reports. made to the City Planning Com- Mission contain information in detail concerning the capacity of facilities, methods of operation, etc. be interfered with by industrial growth in the vicinity. Nonconnah Yard is a double hump yard with a capacity of about 5,000 cars. It is equipped with shops, roundhouse, coal pockets, ice plant and water plant, It is an efficient layout, modern in every respect, and the largest and most complete of all yards in Memphis. The west end of the yard con- nects by a wye into the Y. & M. V. R. R., and the east end into the I. C. R. R. All freight trains that enter and leave Memphis are classified and made up in the Nonconnah Yard. South Yard, located between Iowa Avenue and McLemore Avenue, has a capacity of 1,170 cars, and is used as a terminal for passenger trains and as an assembly yard for freight destined to and from Memphis, and connecting line interchange cars. The North Yard of the I. C. R. R. is located just east of Wolf River at the north city limits. It has a capacity of 850 cars, and is used principally for storage and to assemble cars to serve this increas- ingly important industrial district. The freight stations of the Illinois Central and Yazoo & Mississippi Valley Railroads are located one on Calhoun Avenue at South Front Street and one on Beale Avenue. The foregoing covers the main facilities of the I. C. and the Y. & M. V. Railroads, which are oper- ated as one company. The general method of ter- minal operation within Memphis is as follows: Beginning at Nonconnah Yard, the system divides into two branches, a double track belt line for freight traffic following the eastern border of the city and another line paralleling the river front, both lines joining at Woodstock, 11.5 miles north of Memphis. The east branch carries all through freight and the river line all passenger traffic. From Nonconnah Yard to Memphis, the Y. & M. V. is used only for passenger trains and switch engines, while the I. C. is used for both. All passenger trains enter and leave Grand Central Station, which station is owned and operated by the I, C. Traffic on the Y. & M. V. consists of ten freight trains out and twelve inbound daily, and a total of fourteen passenger trains daily. The I. C., south, has two freight trains in and out daily, a total of four, and five passenger trains in and out, or a total of ten. The I. C., north, handles twelve scheduled freight trains in and out daily, total twenty-four, and six passenger trains in and out, total of twelve. All freight trains entering Nonconnah Yard are classified over the hump for points north and south, freight houses on Calhoun Avenue and Beale Ave- [ 63 ] Ee leN eave Rye PEO ORD nue, team tracks, local industries and for connecting lines. Those for Memphis delivery are sent to South Yard and from there distributed to destination. THe Str. Louris & SAN FRANCISCO RAILROAD Memphis is on the main line of the St. Louis & San Francisco Railroad between Kansas City and Birmingham. It also operates a line between Mem- phis and St. Louis. On the northern and western divisions a total of twelve passenger and twenty- four freight trains enter and leave the city daily. On the southern division there are four passenger and six freight trains each way daily. All passenger trains enter and leave from Grand Central Station, at Calhoun Avenue and South Main Street. The Frisco Railroad operates three freight yards within and near Memphis: The Harvard Yard, which is about thirteen miles northwest of Memphis in Arkansas; the Calhoun Avenue Yard, lying along the river at the foot of Calhoun Avenue; and the Yale Yard southeast of Memphis, one mile beyond the city limits and about five miles from the Calhoun Avenue Yard. All freight trains are handled from and to these yards by terminal crews. Southbound freight trains entering Harvard Yard are broken up and classified for Memphis delivery and points south. These are made up into solid trains and brought into the Calhoun Avenue Yard. The same crew picks up all cars for delivery to Union, Southern and M. & O. Railroads, and sets them out at K. C. Junction, and picks up the L. & N. cars, which are taken to Yale Yard. Northbound trains entering Yale Yard set out L. & N. interchange cars and take the remainder to Calhoun Avenue Yard. From here northbound cars are made up in solid trains and moved by a terminal crew to the Harvard Yard. From Yale Yard to Cal- houn Yard the train is handled by a terminal crew, the road crew leaving the train at Yale Yard and putting up at the Calhoun Avenue terminal. The Frisco freight house, located along Kentucky Street between Calhoun and East Georgia Avenues, is well situated. It has a track capacity of 125 cars in five lines. Cuicaco, Rock Isuanp & Paciric RAILROAD The Memphis terminal of the Rock Island Railroad is located at Hulbert, Arkansas, about eight miles west of Memphis. At the Hulbert Yard trains are made up of cars destined for Memphis and connecting lines in Mem- phis, and are brought to the yard of the Rock Island at Fourth Street and Calhoun Avenue by transfer crews. From here the cars are distributed to con- necting lines and to the Rock Island freight house and team tracks, which are also located at Fourth Street and Calhoun Avenue. The passenger trains enter Grand Central Station and equipment is cared for in a small yard adjacent to the bridge approach. Present traffic of the C., R. I. & P. Railroad con- [ 64 ] sists of four passenger and three freight trains each way daily. THe Missourrt Pacitric RAILROAD COMPANY AND Union Rattway (BELT LINE) The Memphis branch of the Missouri Pacific Rail- road terminates in Memphis and taps the main line of the system at Bald Knob, Arkansas. It also makes a junction at Wynne, Arkansas, with the Helena, Arkansas, branch, and by the cut-off near Bridge Junction, Arkansas, a few miles west of Memphis, connects again with this same branch at Marianna, Arkansas, thus giving Memphis exceptionally good communication to points in eastern Arkansas. The present traffic in and out of Memphis consists of five freight and six passenger trains each way daily. The passenger trains enter the Union Station and passenger equipment is cared for by the Union Railway. Freight trains are run directly to Sargent Yard just east of K. C. Junction, where they are classified for delivery within the city. All freight trains leav- ing Memphis are made up in this yard. In addition to the passenger terminal, the Union Railway operates the Sargent Yard, North Yard, and Belt Line, which, with trackage rights along the river, practically circumscribes the city. Its numer- ous spurs and branches reach all important indus- trial districts. Besides serving directly the Missouri Pacific Rail- road, the Union Railway acts as a switching line between industries and all other railroads in Mem- phis. : Sargent Yard has a capacity of about 1,200 cars, and contains shops, roundhouse and repair tracks. It occupies fairly expensive land and has reached its limit of development. Its location is uncomfort- ably close to K. C. Junction, which adds to the con- gestion at this point. ; The freight station of the Missouri Pacific Rail- road is on Calhoun Avenue near Kentucky Street. The general arrangement is suitable for present needs, and when conditions warrant the site is adaptable to further development. LOUISVILLE & NASHVILLE RAILROAD The lL. & N. Railroad, the Memphis division of which terminates in Memphis, has its principal yard, the Leewood Yard, located northeast of the city, about one and one-half miles from the city limits. Its capacity is only about 450 cars, but there is ample room for expansion. Six scheduled freight trains are handled in and six out by the L. & N. daily. The passenger trains, five each way daily, enter the Union Station. Freight house facilities at Cal- houn Avenue are shared with the N., C. & St. L. Railroad. (This road also owns the right-of-way from Aulon Junction to Leewood, now used by the Illinois Central Railroad.) Ca les lay: BeleAauwn N LENG Co Ome Mee Mee ls SS le Oss THE NASHVILLE, CHATTANOOGA & St. Louis RAILROAD The N., C. & St. L. Railway enters Memphis at Aulon near Union Avenue and the east city limits, and terminates at Union Station. The freight house is on Calhoun Avenue at the end of Mulberry Street and along Michigan Street. It is used jointly with the L. & N. R. R. The freight traffic of the N., C. & St. L. Railway amounts to five regular trains out and four in, a total of nine daily. They have four passenger trains each way daily, which use the Union Station. St. Lovis SOUTHWESTERN RAILWAY CoMPANY (Corton BELT) Memphis is an eastern terminus of the Cotton MEMPHIS TENNESSEE , EXISTING & DROPOSED l; er ae IMPROVEMENTS IN a i . TRANSPORTATION FACILITIES 1922 HARLAND BARTHOLOMEW CITY PLAN ENGINEER SAINT LOUIS SCALE IN FEET 3yo00__ 2000 Belt, using the Rock Island’s tracks from Brinkley, Arkansas, to Memphis. Its traffic consists of two passenger trains daily each way, which enter and leave from Union Station, and two freight trains daily each way. Within Memphis the Cotton Belt uses the freight facilities of the Illinois Central Railroad and its freight cars are handled by that road. Freight trains are brought directly into the South Yards and Nonconnah Yard, and are there broken up and the cars are distributed to the Illinois Central freight house, connecting lines and local industries. This work is performed by Illinois Central crews. SOUTHERN RAILWAY Memphis is a western terminus of the Southern Railway. Its classification yard, Forrest Yard, is fy lluwion SS 5 IGE Ho | a. I LU LC-UNION ELEN RRINTERCHANGE ii a exe — @STLYords J Kes oa wporesent Terds || NCE Site | See : | SS T HuTHeR BR INTER : \\ f-SOUTHERNELEN. NGE = G Pas: = BFreigh® c RIVERSIDE PARK SS Present Yole Yaris ISS Plate No. 26. FREIGHT HOUSES AMO TEAM TRACKS 1FRISCORR LEGEND 2 MO.PAC RQ (INBOUND) 3 MO. PAC.2R (OUTBOUND) 4 1C-YEMY 6 COTTON BELT aR SLEN-NCéSTLRE Ocerieper 7LENRR 6 icre (BEALE st) 9 SOUTHERN RE. OP FDISCO | pROPOSID) 10 15 PASSENGER SIA and railroad yards. O EXISTING SUBWAYS @ PROPOSED SUBWAYS = EXISTING VIADUCTS mms PROPOSED VIADUCTS = PROPOSED TRACK ELEVATION ——-PROPOSED TRACKS A Showing methods of eliminating grade crossings, and proposed new track TO BIRM) BaeN as Mavs, Ge (OW Tayo At = MEMPHIS * TENNESSEE PLAN SHOWING RAILROAD PROPERTY UWS ears est eet Lesh A LY | Plate No. 27. The portion in solid black indicates the extent of land owned by the steam railroads. located in the southeastern corner of the city, partly within and partly beyond the city limits. Here all incoming freight trains are broken up and classified for delivery to connecting lines, the Lauderdale Street freight house, and to industries. All outgoing or southbound freight trains are made up in For- rest Yard. Passenger trains, four each way daily, make use of the Union Station. Mosite & Onto RAILROAD The M. & O. Railroad has no track or other facili- ties in Memphis. Its business, exclusively freight, is handled by the Southern Railway. INTERCHANGE METHODS The interchange of cars between the various railroads within Memphis is accomplished at the following general localities: Kast Iowa and the I. C. R. R. and vicinity. Kansas City Junction. Yale Yard. [ 66 ] Crossing of L. & N., I. C. and Union R. R., northeast of the city (Leewood). Navy Yard and vicinity. North Yard of I. C. and Union Railway. Aulon Junetion. Forrest Yard of Southern. Union Railway and I. C. Junction near Non- connah Yard. At Iowa Avenue and the I. C. R. R. inter- change is effected between the I. C. R. R. and the C. R. I. & P., Cotton Belt, Missouri Pacific, N., C. & St. L., Frisco, and the Southern. The last delivers to the I. C. only at this point. Other interchange in the vicinity, which ne- cessitates the use of those tracks in Railroad Avenue, is as follows: The N., C. & St. L. delivers to and receives ' from the Frisco at Georgia Street; the C. R. I. & P. and N., C. & St. L. interchange ears in ul Ar ee » feel TENNESSEE 7 fupess // S & > /f ih fi i TENNESSEE PLAN SHOWING ff MGS Ry ( g SSS ts A APROPOSED REVISIONS - ae ISE) | | a a Renton eae OF RAILROADS | ys ene (Cw __|| | es ee He ae ie IC a A) Ee teoraso hx it =~ ff E DISTRI PRESENT YARDS AND TRACKS .——— OPQRED PROPOSED YARDS AND JRACKS ------— ; * Se = = CANONS av fl 4)."[PResent STATION &! Evi ] | {j-eeoposen apoio AL & | -PROPOSED_ ADI ea | ae ae | STATION TRacks |i > mer H\\|t0. ACCOMMODATE || sma! St pau HARLAND BARTHOLOMEW ST LOUIS, MO CITY PLAN ENCINEERL HARLAND BARTHOLOMEW ST. LOUIS, MO. cen CITY PLAN ENGIN 2 [ALL RAILROADS a t 2 ee —— pT SPE >= See a aaa KANSAS CITY JUNCTION ‘One Inch Equals Two Hundred Feet Plate No. 29. An intricate track layout. Nine companies independently operate in this district. One derailment can block the movements of all roads. Plate No. 28. The elevated track, new connections and exchanges of facilities indicated will greatly simplify operations in this district. Cle Le Sy, BAL AON UNe TN. G GF OIMeM Iles, S2L ON their freight house yards; the L. & N. delivers to the N., C. & St. L. freight house yard; the Union Railway delivers to the N., C. & St. L. freight house yard. The Frisco receives and delivers to the I. C., and also to the N., C. & St. L. and Cotton Belt, at the Calhoun Avenue yard. C. R. I. & P. de- liveries are made to its freight house. Kansas City Junction is an interchange point for the Southern, Union Railway and Frisco. The I. C. also delivers to the Southern at Kansas City Junction. At Yale yard of the Frisco cars are inter- changed between the L. & N. and Frisco by a transfer track connecting these yards with the Illinois Central belt line. Near the L. & N. crossing of the Union Rail- way, at Leewood yards, the Union Railway and L. & N. Railroad interchange. The Navy Yard and vicinity is an interchange point for the Frisco, I. C. and C., R. I. & P. to the L. & N., especially of perishable freight. North yards of I. C. and Union Railway are used for interchange of cars picked up from industries in the northern part of the city. At Aulon Junction the L. & N. and N., C. & St. L. interchange carload freight. The Union Railway delivers to the Southern at Horrest yards; the C., R. I. & P. in alternate months delivers and receives at this yard and at the C., R. I. & P. freight house. In the preliminary transportation report it was recommended that the Union Railway and Illinois Central interchange at their junction in the vicinity of the Memphis Terminal Corpora- tion Compress near Noneonnah yard. This is now being done. With some variations, depending upon the amount of business handled, the above method of interchanging carload freight is in general closely followed. RECOMMENDED CHANGES IN RAILROAD FACILITIES AND OPERATING METHODS It is commonly estimated that transportation requirements increase at the rate of from six to ten per cent per year, measured by volume of freight handled. This growth is taken care of in various ways, such as adding to the capacity of cars and length of trains, utilizing more powerful locomotives, reducing grades, re- routing, and inaugurating traffic agreements with other roads. Making allowance for the various methods of increasing traffic-handling capacity, it is reason- able to suppose that existing facilities within Memphis will within, say, fifty years have to eare for at least three times the volume of freight now moving. Referring to Plate No. 30, show- ing routing and volume of freight car move- ments, it is not difficult to foresee the intense congestion that will exist if present operating methods are continued. It is obvious that the traffic interference in Railroad Avenue, particularly at the Illinois Central intersection, will have attained unen- durable proportions long before the suggested fifty-year period has been reached. The Frisco Railroad particularly will be called upon to enlarge its facilities, as its direct route is through Memphis, with no opportunity to by- pass traffic. Passenger traffic requirements will not in- erease so rapidly as freight, due to the use of the auto and interurban ears. The growth will be taken care of for some time by using trains of greater length and increasing speed. Freight stations generally can be much more intensively used than at present. It may be ex- pected that expansion of freight station facilities will take the form of augmented team trackage, warehouse room, and more frequent working of houses. Strictly transfer freight will be taken from the houses and handled at designated transfer stations beyond the congested district. Other instances of future excessive congestion in freight movement are readily discernible from the diagram above referred to. For instance, the unbalanced use of tracks in Railroad Avenue will become more pronounced and operations as now conducted at Kansas City Junction entirely impracticable. Briefly stated, the present and future prob- lems in railroad operation involve the following changes: 1. The elimination of interference between north-south and east-west movements in the vicinity of Railroad Avenue and the Illinois Central tracks. 2. Reduction in interference between freight and passenger movements. 9 3. Reduction in interference at Kansas City Junction. [ 67 ] tate (Dy 12) {Oe Iai dk 4. Inereased capacity of freight stations. 5. Removal of the Southern Railroad freight house to the Calhoun Avenue district. 6. Classification yards to be enlarged and in some instances relocated. No solution is practicable that will remove every vestige of interference, nor can a plan be devised that will completely satisfy so many rail- roads in this highly competitive territory. It is believed that the following scheme is feasible and will produce satisfactory results. The proposed plan (see Plates No. 26 and No. 28) is based upon the following changes: (a) Construction of double-track elevated line, starting from near the Frisco Bridge, fol- MEMPHIS | TENNESSEE | | DIAGRAM SHOWING },ROUTING AND VOLUME OF FREIGHT CAR MOVEMENT OF ALL RAILROADS FOR MONTH OF OCTOBER 1922 BARTHOLOMEW HARLAND S Xr &, CRIEP vy NCE&STL_ SOUTHERN : IC RR, | MO PAC me lowing Virginia Avenue and coming to grade in Railroad Avenue in the vicinity of Fourth Street. All through Frisco freight will use this elevated line; a connection to the Harahan Bridge to be also provided. (b) Abandonment of the Calhoun Avenue yard and freight station by the Frisco Railroad and its joint use by the Missouri Pacific, St. L. & S. W. and C., R. I. & P. Railroads. (ec) Abandonment of the Missouri Pacifie freight station, and its use by the Frisco Rail- road. (d) Southern freight house to be abandoned and C., R. I. & P. freight station to be occupied by the Southern Railway. RR INION wa a Sas MoO. PAC. RR SOUTHERN eae TFORREST YARD FREIGHT CAR MOVEMENT INDICATED BY SOLID BLACK ARCAS aus | mee cans SCALE IN CARS Note ~ Base Map Not To Scale Plate No. 30. The comparative volume of freight car movement is indicated by the width of line. [ 68 ] Ce Lee Tay. Lae Lae N NG LEN G Co Oy ME NI WS Se @y de MEMPHIS TENNESSEE DIAGRAM SHOWING EFFECT UPON TRAFFIC MOVEMENTS OF PROPOSED REVISIONS IN OPERATING METHODS HARLAND BARTHOLOMEW CITY PLAN ENGINEER 1922 PRESENT SOUTHERN FREIGHT STATION TO BE ABANDONED PROPOSED ST.L.ES.F. YARD «FRISCO ELEVATED S SOUTH YARD Plate No. 31. (e) Freight stations to be enlarged. (f) Construction of a small freight yard by the Frisco Railroad between its bridge and Kan- sas Street. (g) Sargent Yard to be used chiefly as a collecting yard for industrial ears for Union Railway, St. L. & S. W., N., C. & St. L. and L. & N. Railroads. (h) Construction of yard and shops for use of Union Railway, C., R. I. & P. and St. L. & S. W. north of the city to relieve Sargent Yard. (i) Construct a three-track elevated line (with provision for a fourth track later) along the waterfront, eliminating all existing grade Contrast with Plate No. 30. SARGENT YD FORREST YO : INTERCHANGE POINTS ® MO. PAC-1.C.- CRA.EP.-ST.LS.W. ®@ MO. PAC-ST.L.ESF.-C.RIEP.-STLS.W. @ STLESF.-LC ) ST.L.E SF.- SOUTHERN-N.C.EST.L ) SOUTHERN-L.EN. ® |.C.- SOUTHERN UNION-LC. ) M.\W. S.- UNION ELEN @ L.EN.- ST.L.ESF. FREIGHT INDICATED Bi AOVEMENT BLACK AREAS SCALE IN CAR N CARS Note — Base Map Not To Scale Interference is practically eliminated. crossings from Beale Avenue to and including Jefferson Avenue. (j) Revise interchange methods. (k) Unification and joint use of tracks in Railroad Avenue. (1) Miscellaneous yards. EFFECT OF PROPOSED CHANGES (a) Elevated Freight Line: The construction of a double-track elevated through freight line is of prime importance to the complete plan, as by this means interference with Illinois Central freight and passenger traf- fie is avoided. This one piece of work is most [ 69 J Ble Nea Rete Om heel MEMPHIS TENNESSEE Jie- Mo. Daciric Yy FON OB if DIAGRAM SHOWING. ROUTING AND VOLUME OF FREIGHT CAR MOVEMENT OF THE SOUTHERN RAILROAD IONTH OF OCTORER “1922 Plate No. 32. Illustrating present routing and methods of interchanging cars of individual railroads. Cm eee y, Bae Age NN eNG: CROP M MAF Ss Sk OeN desirable and could well be undertaken now. One feature of this project is the improved grade that will result, it being practicable to obtain a maximum of 0.6%, as against the pres- ent grade of about 1%. If used exclusively by the Frisco Railroad, the elevated freight line will be effective in relieving congestion, but a connec- tion should be provided to make the elevated accessible to those roads using the Harahan Bridge. Frisco passenger trains would not take the elevated, but would continue to operate on the surface as at present. (b) Calhoun Avenue Yard: It is clear from Plates No. 28 and No. 31 that —TO_ CINCINNATI CHICAGO & ST.LOUIS — the abandonment of this yard by the Frisco and its use by the M. P., C., R. I. & P. and the St. L. & S. W. will do away with a large amount of traffic interference, as both passenger and freight trains of these roads at present cross the very considerable Frisco traffic into and out of Cal- houn Yards. With the removal of the shops the entire area can be used for yard and freight station purposes. (ec) Missouri Pacifie and Frisco Freight Sta- tions: The exchange of Missouri Pacific and Frisco freight stations will eliminate interference in their working and provide both roads with the DIAGRAM SHOWING ROUTING AND VOLUME OF PASSENGER TRAIN MOVEMENT HARLAND BARTHOLOMEW 1922 —TO ST.LOUIS CHICAGO & WEST x (UNION STATION, . LEN RR a % \ TO ST.LOUIS & KANSAS CITY _ CITY LIMITS _ Fo vickseuRG R DAY !O TRAINS DEI TO SHEFFIELD- TO BIRMINGHAM >> Plate No. 33. The width of line indicates the comparative density of passenger train movements. Note reverse movements and interference. PLN. Regs ber Olriae dl area needed for expansion. If an equitable ex- change of these properties cannot be effected, it is suggested that the Frisco locate its freight station on Calhoun Avenue between Fourth Street and Rayburn Avenue. (d) Southern Freight Station: One of the chief objections to the Southern Railway locating its freight station within the Calhoun Avenue district is the difficulty in reach- ing and operating such a station on account of track congestion within that district. Should the elevated line be built and the Southern Rail- way take over the present C., R. I. & P. station or develop their own property in the vicinity, this objection will be removed. The elimination of the Southern freight house and team tracks from the Adams Avenue area is not only necessary to relieve conditions at Union Avenue and to permit of a develop- ment nearby commensurate with the importance of this location, but it is also desirable from an operating standpoint, as the interests of both the railroad and the shippers generally can be better served by moving these facilities to the freight house district along Calhoun Avenue. (e) Freight Stations: The freight stations of all roads but the South- ern are grouped together in one location, front- ing on Calhoun Avenue from South Fourth Street to Kentucky Street, conveniently close to the warehouse, wholesale and retail districts, and easily reached from any direction. Unfortunate- ly both the Grand Central and Union Passenger Stations are also in the same locality about 1,000 feet from each other and sandwiched in, so to speak, among the several freight stations. So far as service to their patrons is concerned, the arrangement is extremely advantageous, but from an operating standpoint the situation is unsatisfactory, and as a matter of fact could scarcely have been intentionally devised to cause more congestion by interference with through freight, switching, and passenger movements. From a glance at the network of tracks in Railroad Avenue (Plates Nos. 28, 29, 30 and 33), particularly at the Illinois Central inter- section, and with a realization of the amount of traffic passing here one can understand the con- fusion that exists. The exchange of properties by the Frisco and Missouri Pacific, together with the joint use of [72 ] the latter’s freight station by the Rock Island and Cotton Belt lines, would contribute material- ly toward the elimination of congestion within the district. Other freight stations, particularly the N., C. & St. L. (L. & N. joint) and the Illinois Central, will soon require enlargement. The team and truck driveway of the N., C. & St. L. freight house is much too narrow, and the entire layout is cramped. It is evident that additional room will shortly be necessary. It is especially desira- ble to secure a better approach to the yard from the main line in Railroad Avenue. A transfer platform elsewhere would relieve conditions somewhat, this work now being performed with- in the freight house proper. The Ilnois Central freight house would ob- tain some relief through the withdrawal of the Cotton Belt. If additional room is needed, its extension across Calhoun Avenue will be necessary. If the Rock Island continues to use its pres- ent freight house, there is space in its vicinity to eare for future requirements. A special study was made to show the origin and destination of L. C. L., or less than earload freight, handled through the railroad freight houses, and transported by teams and trucks over city streets. The specific purposes of this investigation were: 1. To determine the suitability of location of the present freight stations. 2. To determine whether a different distri-— bution of freight stations might be necessary or desirable. 3. To indicate the intensity of use of streets by this class of traffic. In the preparation of this study it was neces- sary to examine and copy the data from about 100,000 dray tickets, which represented one week’s business through all freight houses. This work was performed by the clerical forces of the railroads under the direction of the City Planning Commission. The total L. C. L. freight tonnage handled by all lines for one week amounted to 9,870 tons, divided into outbound 7,020 tons and inbound 2,850 tons. From the information secured, three diagramatiec plans were made to illustrate graph- ically the origin, destination and distribution of this tonnage. Gila oe ee Ne Nee NEG Ce Oe eMac Sala O uN MEMPHIS ENN RS is) a PLAN SHOWING ORIGIN AND DESTINATION OF LCL. FREIGHT 1923 HARLAND BARTHOLOMEW CITY PLAN ENGINEER. CITY PLANNING COMMISSION NOTE:— EACH DOT REPRESENTS THE POINT SHIPMENTS \ IN THE FREIGHT STATION DISTRICT ARE}! | RAILROADS } , ai (A = = {= j / £ / Xo a p L_é = \ 7 , é mine AP A=::=——- a=——— eva ion du Plate No. 34. Each dot represents the point of origin or destination of one or more L. C. L. shipments during a representative week of 1923. The first diagram, Plate No. 34, was drawn to indicate, as closely as could be plotted, the actual origin and destination of the shipments, and is really the location of the various estab- lishments receiving and shipping in less than carload lots. For convenience the city was di- vided into zones numbering 1 to 40. On refer- ring to Plate 34, it will be at once apparent that zones 5 to 10, inclusive, contain the greatest number of individual shippers, and that the concentration is particularly dense in the vicin- ity of Union Avenue and Main Street, or, say, from Gayoso Avenue northward to slightly be- yond Jefferson Avenue. This is typically a re- tail district and it is characteristic of it that inbound shipments greatly exceed the outbound in number. This will be noted from diagram, Plate No. 35, which also shows that the zone distribution of tonnage does not coincide with the number of establishments. Diagram, Plate No. 35, indicates by zones the percentage distribution of L. C. L. tonnage and also carries a statement of inbound and out- bound tonnage separately of each zone. From an examination of this diagram it will be ob- served that from the standpoint of tonnage, zones 1, 3, 6, 2, 8 and 16, in the order named, are the heaviest contributors to freight house business. The firms in these zones are predomi- nantly wholesalers and distributors of heavy merchandise, and the outbound greatly exceeds the inbound freight movement. The center of all L. C. L. freight tonnage, as is indicated on the plan, is at Third Street and Pontotoe Avenue, only about 1,200 feet from the general freight station district and 5,500 feet, or slightly over one mile, from the South- ern Railway’s freight station. Plate No. 36, diagram showing distribution and movement of L. C. L. freight, is designed [73 ] Fe IaNvA Si Roper 20 er oo to show graphically the amount of tonnage flow- ing to and from the various zones. No attempt was made to determine the extent of use of individual streets, but the importance of Front, Main, Second and Third Streets as approaches to the freight stations is forcefully illustrated. In order to avoid showing the operations of individual railroads, freight destined to and from the Mobile & Ohio and Southern Railways was included in that for the general freight sta- tion district along Calhoun Avenue. It will be noted from this diagram that the district producing the most tonnage is that area bounded by the Mississippi River, Main Street, Union Avenue and Broadway. Practically sixty- five per cent of all L. C. L. freight tonnage orig- inates from or is destined to points within about one mile of the freight house district, or an area bounded by the river to the west, Union Ave- nue, Manassas Street, Colorado and Walker Streets. Within an area enclosed by the river, Poplar Boulevard, Bellevue Boulevard and Trigg Ave- nue, ninety-three per cent of all L. C. L. freight tonnage originates. Outside of the area only about seven per cent originates. In conclusion, it is at once apparent from this study that the freight station district along Cal- houn Avenue is as conveniently located as it is practicable to make it, taking into consideration both the needs of the great majority of shippers and the position the railroads occupy. About two-thirds of all tonnage is outbound, for which present location provides a down-grade truck haul for the shipper. Other than some re-arrangement of existing freight stations and the removal of the Southern Railway station to Calhoun Avenue, recommend- PLAN AND TABLE ‘SHOWING | DISTRIBUTION BY ZONES OF LCL. FREIGHT TONNAGE | 1923 HARLAND BARTHOLOMEW CITY PLAN ENGINEER CITY PLANNING COMMISSION OF L.C.L FREIGHT, BOTH INBOUND AND OUTBOUND Fi RGE LIN} FOR RAIL-RIVER FRET RMINAL FEDERAL Ba aS i +s N, - Ih “this Sass ss “Ai City _LiniTS | 4688) Plate No. 35. Note the closeness of the center of tonnage to the freight station district. Cela SLY. By LAr NeN LEN G COR hice Maal Sa San OmeN ed in the foregoing paragraphs, no change in the distribution of freight stations is suggested. At some future time, as the city develops, it is probable that one or two other stations designed to provide more direct service to North Memphis and East Memphis will be required. The pres- ent grouping of freight stations closely approxi- mates in effect that of a single union station, but is much more efficient in operation. The widening of South Front Street, Second Street, Rayburn Boulevard and Calhoun Ave- nue, provided by the major street plan, will ereatly benefit the freight station district and make it still more accessible to shippers of freight. The heavy concentration of this traffic from about Union Avenue to the freight station district is shown by Plate No. 36. The fact that DIAGRAM. SHOWING DISTRIBUTION AND MOVEMENT OF LCL. FREIGHT FOR ONE YEAR 1923 HARLAND BARTHOLOMEW CITY PLAN ENGINEER CITY PLANNING COMMISSION this concentration is outside of and beyond the influence of uptown traffic is particularly for- tunate, as no confusion is caused by eross-eur- rents of traffic, such as would exist if the freight stations and their patrons were, for example, at opposite ends of Main Street. (f) Frisco Yard: This proposed yard at the bridge end is main- ly for the purpose of working the Frisco freight station in its new location, for collecting cars from various industries and for some inter- change. Its capacity would be about 300 ears, but other available land in the vicinity could, if used, bring it to 700 or 800 ears. The ar- rangement would be such that the high-speed through freight would follow the outside tracks } MHDS WW AY A|—93% OF ALL - LCL. FREIGHT T Js@ | \ MSLEMORE AL BARGE RAIL-RiVER Tee ERMINAL ER, TRIGG FED __FOR 69) LIMITS WO BELLEVUE ONLY 7% REIGHT TONNAG ‘ E BEYOND THIS BORDER ® EAST PARK Way OF ALL L.c.L, UNION MSLEAN NOTE: WIOTH OF LINE REPRESENTS TO SCALE ESTIMATED TOTAL TONS OF INBOUND AND OUTBOUND L.C.L,.FREIGHTs THUS 100,000 TONS = i IN ORDER NOT TO SHOW OPERATIONS OF INDIVIDUAL LINES THE FREIGHT OF SOUTHERN AND M&O, RAILROADS IS INCLUDEO IN THAT OF GENERAL FREIGHT STATION DISTRICT. IN THE FREIGHT STATION DISTRICT ARE THE On BEAT (3 US @INDICATES ZONE NUMBER. Plate No. 36. The freight station district is conveniently close to its patrons. The interchange of L. C. L. freight among the eight railroads within the district is accomplished with a minimum of trucking. by Nal Roe OF heel, on the south side of the yard, and the passenger trains the inside tracks, north side. (g) Sargent Yard for Local Freight: For the L. & N. and N., C. & St. L. Railroads no better location than Sargent Yard and vicin- ity could be found for assembling cars to and from industries and the freight houses of these roads. With the addition of other tracks be- tween Kansas City Junction and Aulon, a very efficient yard ean be developed for this purpose. A considerable amount of interchange might still take place here. (h) Sargent Yard has reached its limit in capac- ity and is not well suited for the purpose for which it is used. The most suitable location in Memphis for a general yard and shops to relieve Sargent Yard is believed to be in the vicinity of North Yard of the Union Railway. Whether this location or another is adopted, the purpose sought should be to remove the necessity of bringing all Missouri Pacifie freight through the most congested district in Memphis for classifi- eation and disposal. (1) An elevated line along the river front, con- sisting of the three existing tracks and ultimate- ly four tracks, is a necessity to industrial Mem- phis, and provision should be made for it in any plan adopted. Its purpose will be fourfold, viz: To furnish a high-speed passenger line for I. C. trains; to reach the proposed yards and shops in North Memphis; to afford better access to North Memphis, thereby encouraging an in- Replacement of Sargent Yard: River Elevated Line: tensive industrial development there; and to eliminate several grade crossings. The form which this proposed elevated line may take will be dependent upon the ultimate scheme of treatment adopted for the river front. A conerete trestle of ornamental design and noiseless in character might be constructed at onee. If the plan shown by Plate No. 37 is fol- lowed there might be either a solid fill or trestle structure, depending upon whether the space be- neath the tracks might be sufficiently valuable to reclaim for some commercial purpose. It is estimated that a four-track structure would cover an area 58 feet wide for a distance of 2,600 feet (Beale Avenue to Jefferson Avenue), equivalent to 150,000 square feet, or 314 acres. Any treatment of the levee tracks must take into consideration the needs of navigation, and no project should be considered that will in any way interfere with or impede river traffic as now earried on by the packets. (j) Interchange Methods: It is to be noted that the greatest volume of interchange business takes place in the vicinity of Railroad Avenue and the approaches to the passenger stations and freight stations, and at kK. C. Junction, the two places in Memphis most unsuitably arranged for this purpose. This is especially true of Railroad Avenue and the Ilh- nois Central intersection, where the stalling of a single train can block practically the entire transportation system of Memphis. At K. C. Junction a serious condition is caused | by the crossing at grade of the Frisco and Southern, and the Union, Southern and N., C. & St. L. The situation here is also complicated VE A ASHING TON, AVE CHANGE PPNTQTGC AYE ia | | BEALY p = TO CHICAGO f . ej \ 1 oe a oe Se st fe} -_—,— PROFILE OF PROPOSED FOUR TRACK ELEVATED LINE ALONG LEVEE UNION, STL.eS.F &1.C. RAILROADS HARLAND BARTHOLOMEW CITY PLAN ENGINEER APRIL-1923 SCALE 1 200FT. V.I= 20FT Plate No. 37. [ 76 ] By elevating the levee tracks, the railroad grade will be decreased. Care ils y: 12) Wy Ak IN INE GE INT 6; COMM SMe las Se le OmeN CHART SHOWING INTERCHANGE OF CARS OF VARIOUS RAILROADS FOR MONTH OF OCT. 1922. ILL. CENT. _—— 7 ret ee 4 saa ome ae Souris ee ob cee aRGELINE] | 180 All interchange with the Barge Line is handled by Frisco. 382 883 1268 33) Individual Railroads are not shown. Plate No. 38. Memphis is an important interchange point. by the yard switching operations of the Union Railway and the Southern, the latter using that portion of their right-of-way north of K. C. Junction as a yard. Passenger trains of the Frisco, Southern, L. & N. and N., C. & St. L. all make this junction. A certain amount of interchange is unavoid- able both at K. C. Junction and within the freight and passenger terminal district, but practically all of the cars now received and de- livered at K.‘C. Junction and a large propor- tion of those similarly exchanged in the vicinity of the Illinois Central Railroad and Railroad Avenue can with advantage be taken care of at other points in outlying districts where freer movement is possible. A widely used and universally approved method of relieving terminal congestion, where the interchange of cars among various railroads forms a large proportion of terminal movement, is for each road to establish adequate classifica- tion yards beyond the confines of the city, these yards to be connected by track used exclusively for common communication. The situation of the railroads in Memphis is favorably adapted to this plan, at least so far as the Y. & M. V., I. C., Frisco, Southern, Union, N., C. & St. L., and L. & N. roads are concerned. Each of these lines, with the exception of the N., C. & St. L. and Union Railways, have yards to the south and east of the city limits which can be made intercommunicating by means of an additional track along the present belt line of the Illinois Central. The construction of a yard near Aulon by the N., C. & St. L. and possibly also of a small one at the same place by the Union Railway would complete a belt of yards and track. It is practicable to make connections with the Illinois Central at points near to the various outer yards as has been done at Yale Yard of the Frisco, and the Illinois Central should, with the addition of another track or of a few passing sidings, be capable of handling the interchange traffic among the roads mentioned. (See Plates No. 26 and No. 38.) As a result of negotiations with the railroads, the city administration has recently secured a re-arrangement of tracks in Railroad Avenue in the vicinity of Florida Street that will materially relieve congestion due to switching movements, besides providing good connections between the city’s river terminal and the railroads entering Memphis. (k) Unification : Railroad Avenue: Joint Use of Tracks in From an economic standpoint the joint use of tracks and even of other facilities, such as freight houses, yards, engine houses, shops and repair tracks is usually justified if for no other reason than the consequent reduction in the overhead expense entailed by the maintenance of so many different establishments performing the same functions. In order that benefit may be derived from the common use of facilities, it is necessary that all parties participating therein work together in [77 ] The Memphis Union Station. The Grand Central Station is two blocks west. peace and harmony. This is a condition often difficult to fulfill, particularly in the case of lines highly competitive and of those whose working characteristics are essentially different or according to widely diverse standards. Such obstacles to close agreement exist, of course, among the railroads entering Memphis. As all but two terminate there, however, they are gen- erally dependent upon one another for business, particularly that of through freight, and it is therefore of interest to them to see that the interchange of freight is accomplished in the quickest possible time. For this reason closer co-operation is greatly to be desired and may in the future be expected. An important instance in which the principle of unification or joint use of facilities is appli- eable relates to the tracks in Railroad Avenue from the I. C. intersection to K. C. Junction. ° The seven lines of track in this street are owned and operated by four railroads. (See Plate No. 29.) The trackage is sufficient. to meet all needs so far as the total amount of traffic is concerned, yet each road finds itself hampered at certain [ 78 ] periods by an overload of traffic on its own tracks, and this during a time when other tracks are not in use. In order to obviate this condition and to pro- vide a more flexible movement through this im- portant traffic thoroughfare, it is recommended | that a portion or all of the tracks in Railroad Avenue be thrown open to common use. Prac- tically all the new construction work required would be a few additional switches and inter- locking devices at K. C. Junction and the I. C. intersection. (1) Miscellaneous Yards: Increased yard capacity is needed in the im- mediate vicinity of the freight houses in order that the houses can be more conveniently and quickly worked and ears destined to and from other lines readily sorted and stored, ready for disposition. This mainly applies to the C., R. I. & P., L. & N. and’ N., C. & St. Lo Railreaae and to a lesser extent to the Union Railway, Cotton Belt and the I. C. Railroads. The enlargement of the Noneonnah Yard of Ce Te ey: Pela wN ON Lene G Ca One View Nie lee San Sie le Onn the Illinois Central is restricted lengthwise by its location between the I. C. and Y. & M. V. main lines, but it ean be extended laterally to advantage. Its further development will proba- bly consist in construction of a separate yard for storage purposes, and departure tracks just east and south of the wye connections to the I. C. and Y. & M. V., respectively. The Yale Yard has a capacity of 950 cars, or about a third more than the Calhoun Avenue Yard. It has ample room for expansion and is conveniently located. It may be expected that as business increases or if the proposed through elevated freight line is constructed, the Yale Yard will be developed into a complete termi- nal. It is now used principally for the storage and repair of bad order ears. In order to secure more efficient handling of freight, both locally and to connecting lines, it is essential that the N., C. & St. L. construct near Memphis a modern classification yard, en- gine terminal and shops. A suitable location has been secured at a point somewhat beyond the city limits. As a terminal the Jackson Avenue Yard of the L. & N. Railroad is very unsatisfactory, prin- cipally on account of its proximity to Jackson Avenue and Seventh Street, two heavily trav- eled thoroughfares. These being across the throat of the yards, switching operations neces- sarily interfere seriously with street traffic. It is recommended that the Jackson Avenue Yard be abandoned and that Leewood Yard be en- larged and equipped with terminal facilities. It is understood that this development has been de- eided upon by this railroad and that the work is under way. This will result in the elimina- tion of the constant switching across Jackson Avenue, and there should be left across this thoroughfare only one track to accommodate interchange switching movement. The Rock Island Railroad has no terminal facilities in Memphis aside from its freight sta- tion and yard on Calhoun Avenue. There is sufficient space available near the end of the Harahan Bridge for a small yard with round- house, but it is believed that a yard here would be too small to serve the purpose after a few Illinois Central Railroad crossing, Broadway. (Railroad Avenue.) [79 ] EU LNe Ae Re Je 1? Oe Tay 1h years. ) [GRAIN MMe af 1,00C [IRON & STEEL eee | YS U | | | | | | spring beds, beverages, ice, harness and saddles, paints, each of which constitutes about 2% of the total in value of output. The remaining in- dustries are engaged generally in the production of automobile bodies and parts, bags, carriage and wagon materials, railroad ears, light machin- ery, castings, cooperage, furniture, extracts, to- bacco and snuff, and door screens, amounting in all to about 7% of the total. During the period from 1914 to 1919 the greatest increase in value of products took place in the lumber and timber industries, amounting to almost 500%. It is evident that much more of the lumber and logs now passing through Memphis to other centers of industry, notably Chicago, could be worked up in Memphis into furniture, auto bodies, vehicle parts, barrels and other finished articles. Every effort should be made to encourage the location in Memphis of industries using wood and veneers. The manufacture of carbonated beverages has MAP OF THE UNITED STATES SHOWING ORIGIN & APPROXIMATE AMOUNT OF PRINCIPAL RAW MATERIALS USED AT MEMPHIS - TENNESSEE HARLAND GBARTHOLOMEW” CITY PLAN ENGINEER [J INDIANA Ot af 16 | CN of! VA) ! Plate No. 40. It will be noted how favorably Memphis is situated with relation to its sources of supply. [ 89 } 1g) LING AN, i, Ia A) 1k) CO) IRL OM PRODUCTS _ IS Si PRODUCTS [FEE v eee Pp ODUCTS TONS NEI c MAP OF THE UNITED STATES SHOWING DESTINATION & APPROXIMATE AMOUNT OF VARIOUS FINISHED PRODUCTS SHIPPED FROM MEMPHIS - TENNESSEE rf OMING TFURNITURE MOLASSES HANCLES MACHINERY _ CASTINGS 500 ae HARLAND BARTHOLOMEW” 1922 fac YR ad Plate No. 41. A great diversity of manufactures and a wide field of distribution are indicated. also shown a remarkable increase, almost 400%, during the period from 1914 to 1919. Memphis is a logical place for this industry on account of the tremendous quantities of sugar brought into and through the city, and also of the great ton- nage of grain that is imported for various pur- poses. The manufacture of food preparations and cotton seed oil products together is accountable for about 46% of the total output value of all industries in the city, and of the entire state Memphis produces almost 60% of these prod- ucts. The city is so well situated with reference to raw materials used in the manufacture of food preparations and cotton seed products that its continued prestige in these two lines of en- deavor is assured. INpustrRIES ‘Not Now REPRESENTED Many industries now located in Memphis or vicinity are there by reason of the city’s stra- tegic value as a distributing center and its near- [90 ] ness to the source of raw materials. There are, however, several varieties of industries that would be equally favored yet are not repre- sented, notably cotton mills and shoe factories. Cotton mills should be sought for Memphis, the special inducements being availability of raw material, good transportation facilities, equable climatic conditions and the stability of labor. There appears to be no good reason why Mem- phis should not become the greatest cotton mill center in the United States, as it is now the most important distributing point for raw cotton. The commodity diagrams show that many tons of hides are transported into and through Mem- phis, yet the city has no shoe factory. Other industries, either not at all represented or insufficiently so, are those for the manufac- ture of tin cans, glassware, furniture, cement, auto parts, rubber tires, bagging, cigarettes, to- bacco, lubricants and refined oil. Cee GE ee Pe eaeeN, ONG ee Nis Gy COMM Me lesa Sale Omen VOCATIONAL SCHOOLS With the growing scarcity of specialized, high- elass labor, the vocational school is assuming a tremendous importance. One of the great draw- backs to intensive industrial development is the lack of dependable, skilled help, and no public investment pays greater returns than that of having schools capable of filling this need. The vocational school established a few years ago is growing in use and will increasingly operate to fill this need. Through the generosity of one of the former leading citizens of Memphis, Mr. Wm. R. Moore, a considerable fund has been made available for the development of a School of Technology. THE DEVELOPMENT OF INDUSTRIAL DISTRICTS The vacant areas suitable for industrial de- velopment within and adjacent to the city con- stitute one of its most important assets and its best guarantee against stagnation. It is, there- fore, of the utmost consequence to make the most of such tracts of land by carefully planning the extent to which they may be utilized for factory and commercial purposes. Considerations such as cost, fire hazard, water supply, transportation facilities, direction of pre- vailing winds and proximity of residential sec- tions usually determine what parts of a city shall be devoted to industrial purposes, and the kind of an enterprise that will be tolerated there. In the actual laying out of an industrial dis- trict too much care cannot be taken in the man- ner in which railroad transportation service is provided. The tendency is for each railroad to ‘endeavor to serve the district independently, with a view, of course, to securing as much as possible of the traffic for its own lines. An essential feature is the establishment of small yards or sidings within or very near the district to act as reservoirs for the temporary storage of loads and empties which have been collected for delivery to or received from nearby industries. Streets should be sufficiently wide to accom- modate railroad tracks for switching only, as it is generally unavoidable that they be used for this purpose sooner or later. By no means, how- ever, should such tracks be used for through or main line traffic or, in fact, any other business that does not directly concern the industries within the immediate district. Grade crossings may be minimized in number and importance by a careful study of the proba- ble amount of cross traffic that may arise due to residential or other development on either side of a given area. The exact locations where sepa- ration of grades will be required should be fixed as soon as possible in order that buildings and other improvements in the vicinity may be planned to conform to the permanent lines and erades. Where a city has already developed along well- established lines and there still remains within and near its boundaries vacant tracts of land, such as is the case in Memphis, it is entirely feasible to so control the use of such vacant areas that little or no congestion will occur and the maximum of benefits will result. This calls for the enactment of well-considered legislation and the exercise of a high degree of municipal patriotism. The following general rules for laying out and controlling the use of industrial areas are of- fered as applicable to Memphis: 1. Industries of like nature should be con- fined to the same district so far as is possible. 2. Industrial districts should be made up of as large blocks or parcels of land as it is prac- ticable to keep intact. 3. Industrial districts should be protected from the encroachment of residential develop- ment and the consequential restrictions pertain- ing thereto. 4. Streets through industrial areas should be wide and well paved and, so far as possible, free from through traffie or traffic not directly con- cerned with that area. 5. Sewer and water lines serving an indus- trial district should be of ample size in order to meet the special requirements imposed. 6. A certain proportion of the area adjacent to an industrial district, within walking dis- tance, should be reserved for the homes of the mass of the employes. 7. Adequate street car service should be pro- vided. 8. Free access to the River Terminal and the river front generally by team and truck is es- sential. 9. Sufficient right-of-way for railroads serv- [91] Pele Nee tai; Jey 12 (Oy abe Ak ing the district should be reserved so that their future growth will be unrestricted. 10. Each industry should have track and platform space to care for at least a day’s run, with some additional room for future require- ments. 11. The district should be accessible to all railroads on equal terms. 12. As requirements demand, common freight houses, receiving and loading platforms and team tracks should be provided by the railroads. 13. It is particularly desirable in Memphis to establish one or more industrial terminals, or ‘‘industry ineubators,’’ which consist of large, fireproof, multiple-story buildings, capable of housing a number of firms, all sharing in com- mon the facilities provided. The foregoing remarks and general rules might well be applied to that area immediately south of Railroad Avenue, which is well suited [92 ] to warehouse development, light manufacturing establishments and self-contained industrial ter- minals. That district extending along Wolf River from Jefferson Avenue to the north city limits and beyond is also most advantageously situated for both light and heavy industries re- quiring considerable individual space and access to the river. This section of the city and that lying north of the north city limits and paral- leling the Union Railway, offer opportunities for large industries seldom equaled in any city. An industrial district planned and laid out in a logical, systematic manner, with assurance that conditions therein will remain stable to a rea- sonable degree, will unquestionably prove attrae- tive to capital seeking investment. Memphis is peculiarly fortunate in having these potential areas available, and this fact, in combination with the accessibility of raw materials, is suffi- cient to insure her continued growth and pros- perity. Cm Tae yes 7 Ee AG NG EN eel NG: EO) IM WM, IS) Sw Oy RECREATION FACILITIES IN MEMPHIS HE history of the development of the Memphis park system is of special inter- est and significance. It is illustrative of what Memphis can do in good city build- ing through the exercise of initiative and fore- sight. The first park board was organized but twenty-two years ago. Previous to 1900 the city had shown only a casual interest in parks. Practically no funds were appropriated for such purposes. The several squares, Auction, Court, Market and Exchange, and Forrest and Bickford Parks, for many years constituted the total park area. In 1900, when the city had a population of over one hundred thousand people, it had scarcely twenty acres of park property. All these parks were gifts; the city had purchased none. There were a few citizens, however, who fore- | saw the ultimate effects of this inadequacy. The praiseworthy Memphis park and parkway sys- tem is a memorial to men like Robert Galloway, L. B. MeFarland and John R. Godwin. They constituted the first park board. They were the leaders in the long fight to secure for their city the benefits and advantages of adequate public tleasure grounds. Judge McFarland voiced the ereed of this group when he onee said: ‘‘No city will be greatly populous or truly great without proper provision for the pleasur- able and the esthetic. Pleasure grounds and places of amusement are as much of a necessity to the health and happiness of a people as pave- ments and sewers.’’ Under the leadership of this first park board, and with the guidance of Mr. Geo. Kessler, land- scape architect, Memphis purchased almost im- mediately Overton Park, 335 acres, and secured by purchase and gift Riverside Park, 427 acres, and later a parkway 11.11 miles long, containing 183.23 aeres of land. To acquire these three properties, today the most important features of the park system, the city had to issue $250,000 in bonds. Their true value now is beyond com- putation; the land alone is conservatively esti- mated to be worth nearly four million dollars. The full story of what the initiative of these men has done to stimulate the growth of Mem- phis can never be told. It is important to note, however, that today, twenty-three years after Memphis began to make park history, the city possesses two superb large parks, as well im- proved and as beautiful as any in the country. Within these parks and in the parkway connect- ing them are over twenty-four miles of inviting hard-surfaced drives. Supplementing these fa- cilities are also numerous other smaller parks and playgrounds, all constituting an extraordi- nary recreation system. The fondest hopes of the early park enthusiasts have been surpassed. The parks are not only beautiful but have a usefulness today far beyond the satisfaction they afford the eye. The early interest in these parks was funda- mentally esthetic. They were desired chiefly because of the effect they would have upon the appearance of the city. The delights and pleas- ures of visiting them and of driving leisurely over the roadways were considered justification for their purchase and development. For a number of years the Memphis parks were main- tained in this spirit. The full contribution which they could make toward satisfying all the varied recreational needs of the city were only faintly perceived. The essential purpose of parks and similar facilities has only recently been recog- nized. Today it is apparent that there is a vast store of recreational interests in the city which the parks have heretofore only slightly touched. The park department is no longer merely an agency for the production of beauty spots. To develop parks and maintain them principally to beautify the city is now seen to be an extravagant use of publie funds. It has been demonstrated in Mem- phis that parks properly designed can render a wide and varied service, no small part of which is accomplished through their appeal to the eye. The Memphis park department has lately been reorganized to build parks for the fullest use and to teach people how to enjoy them. [93 ] Tie LN gers 1, Neve LO) Dea Jab ae Memphis, under this new plan of operation, is having unusual success in developing the serviceability of its park system. Recreational values are being discovered in the parks that, without impairing their high esthetic standards, double their worth to the city. During the past season 24 soccer teams, 121 basketball teams, 23 indoor and 175 outdoor baseball teams came forth to use the recreation facilities of Mem- phis. Over fourteen thousand persons used the tennis courts in the month of July. Playground attendance approached a quarter of a million. The golf courses were always popular. The number of visitors to the parks exceeded all previous records. Never before has the city re- vealed such a lively interest in recreation. NEED OF RECREATION There are reasons for this interest. Parks are now numbered among the primary necessities in progressive cities. The conditions which make recreation and recreation grounds vital needs in the city are the direct result of growth. Growth means the utilization of space, more intensive development, concentration of interests, congestion. Vacant areas are one by one absorbed until eventually blocks become solidly built up. In these closely packed areas normal play instincts and desires are thwarted or repressed unless the city has reserved here and there suitable open spaces to be used for recreation. Parks alone will not serve all interests. A complete system of recreation facilities is needed. The recreational interests of all ages and classes must be anticipated. 1. Community centers will be ineluded in the recreation system because they answer the de- sire for a common, unrestricted meeting place, a neighborhood home devoted to the establish- ment and maintenance of wholesome social con- tacts. 2. Playgrounds will be included because they serve especially the natural play activities of children. 3. Playfields, swimming pools and similar re- lated features will be developed because they have power to draw the youth of the city into healthful outdoor sports. 4. Small parks have a part in the system, not because they satisfy active recreational needs, [ 94 ] but for the contribution they make to civie pride and the amenities of city life. 5. Neighborhood parks are included because they satisfy the recreational needs of those who must find their facilities close at hand. 6. Large outlying parks are included because it is possible therein to preserve sights and sounds indispensable in counteracting the op- pression of the modern city. 7. Specially designed drives should tie the system together and afford the citizen distine- tive and inviting routes for pleasure drives. One is not to be considered more important than another. Each type of recreation facility noted above has a certain service to render in the city. The degree of usefulness which characterizes these various facilities, community centers, play- grounds, neighborhood parks and the like de- pends, first, upon location; second, upon the manner of development; and, third, upon direc- tion, with no clear lines separating these factors. It is obviously essential, if playgrounds are to deliver their maximum service to the commu- nity, that they be placed where the largest num- ber of children can reach them. First-class ap- paratus or the skill of experienced playground instructors cannot overcome the handicap of in- accessibility or inconvenience. All other features of the recreation system are likewise amenable to this principle. Because of the importance of location, there- fore, recreation facilities must have a place in - Wading pool. in Overton Park. CG (7 WOM 1S SW @ de Ee N TNS GONE G Coe een Ye ‘SP “ON 97¥[d UJIM oIBduUI0D pusB ‘SpunorsAe[d pue syuvd JO 9oueSqe 9} OJON ‘ZH ON 9}¥T || loe| i TSCA AAS 226) LHOIBAGOD Poti He Wl GGDH NOISSINWOD ONINNYId ALIS N/GISODOYM guosasa sz sinas3ad30 10a INO i \\ —— rE ‘ j Tal i | ‘ = 3 if 1 [Se Hh i Ste = sae 2 4 =o j ff Ee =) - He oe re /NOILNGIALSIG) Nec] COOFRIOSHARK i r MI | eee aap Ly | FAO NN NOS )\ se are [Tin JO SILIMNDVI NOILVIDII mT etltET Hh) Pea 7) a ho Ee i oH [} {I ; a SSS ee Lea f 4334 Nt 39s, [95 | Peele NGA: gt l, 1 (OY Day Ag the city plan. There is no longer any question as to the potential usefulness of parks, play- grounds and similar recreation advantages. They have demonstrated their value in the modern. city. There is an insistent demand that their number be increased. The city will answer this demand as well as its financial resources will permit. The extravagance of haphazard loca- tion must be avoided. The needs of the city must be accurately estimated and embodied in a studied development plan. A SYSTEM OF RECREATION FACILITIES FOR MrEmpPHIs The problem of providing Memphis with ade- quate recreation facilities has two phases. Un- satisfactory conditions of the existing city must be corrected, and future needs must be antici- pated in new growth. In brief, the deficiencies of the present city may be corrected by the following means: 1. Establishing clear responsibility for the provision of recreation facilities of the various types and for directing their use. 2. Making wider use of school buildings as community centers. 5. Developing playgrounds in with publie schools. 4. Creating additional neighborhood parks in all sections where need of such facilities will justify the cost. 5. Amplifying the existing parkway system by bringing it into closer relationship with the heart of the city. 6. Developing park properties already owned for wider and more effective service. connection In order to carry out this or any other simi- lar program it is essential that the recreational needs of the city be thoroughly understood and that the responsibility of satisfying these needs be assumed by the proper agencies. The most pressing recreation problem in Mem- phis is found in the district surrounding the business center. The praiseworthy acquisitions of the first park board did much to elevate the standing of Memphis in the possession of public pleasure grounds, but the pronounced recrea- tional needs of the heart of the city still remain essentially unserved. Within a circle on one mile radius drawn about Court Square live 33,000 people, 20.51 per cent of the total population, living upon 9.02 [ 96 ] per cent of the city’s area. (Plate No. 42.) This is the equivalent of 13,134 persons per square mile, a trifle over 20 persons per gross acre.* Considering the large street area of the section and the proportion of space devoted to uses other than residential, this is indicative of congestion. Within the circle in question are found but two areas devoted to supervised community. reec- reation, Brinkley playground and the colored community center, called Churech’s Park. The former is an adaptation of Market Square, one of the city’s oldest small parks. It is only one acre in extent, but is accessible (within one- quarter of a mile walking distance) to a larger number of white children than any other estab- lished playground. The negro recreation center is the only one of the sort in Memphis. It is accessible to large numbers of negroes and rep- resents a very commendable step toward offering this race the proper sort of leisure time activities. There are no neighborhood parks of adequate size available for either whites or negroes. The public schools serving this area, Christine, Leath and Fowlkes (white) and Grant and Kortrecht (colored) all have extremely inadequate recrea- tion space. It is important to note further that 203 eases of juvenile delinquency were found within one mile of Court Square during the year ending June 1, 1922. (Plate No. 43.) A dis- trict containing but 9 per cent of the city’s area and 20 per cent of the population furnished 33 per cent of the city’s delinquency. The conditions which prevail in the first mile- about Court Square are practically duplicated in the second mile. In this annular ring one mile wide, embracing 23.74 per cent of the total city’s area, live 61,400 people. This is 37.81 per cent of the total population, or an equivalent of 16,806 persons per square mile. Considering railroad yards, vacant area (see Plate No. 6), streets and space devoted to uses other than residential there is congestion here as notable as that found in the first mile circle. In this second mile there are no community centers for either white or colored. There is one splendid neighborhood park, Forrest Park, 10 acres, containing comfort station, playground and floral displays; and two other parks, Gaston Park, containing 5 acres, and Bickford Park, *The population statistics presented have been taken from the transit report of Mr. Ross W. Harris. M Mal Sse Sale OLN Cc O ‘UOT}IPUOD SITY} 1OJ V[QISUOdSeI veIsep UTe}190 B 0} oie 9OVdS ABI 9IQeJINS JO you] puv uoljsesuo0d uoTVeINdoOg ‘gf ‘ON 9}¥Iq | \ = aw \ I eee | \ p) Vif pe V { ot ) 7) 4 R V/A I) | / e; " | ] / i t =~ C, 8 S JE Mt ISS 28 ] pars [ Iai | tt r= eat tac [97 ] N G eee Nea Nee | 12 Celie tes Y: i (| ili [ i {J 7 | | / ly i/ J | [I f ly / \ 2261 ANOMADOD NOISSIWWWOD ONINNVId ALID PUD 2BUO Syucsoudar @ 7Z61 ze1 INN OL 1261 el INN LANOD TINIAN FHL qwOs3d GINOIWAAV NiIaaiHoO 1 Te Ih AN 1 Hee I jes CO) dat. “ae 21% acres, all for whites. The latter two parks are of ample size for playgrounds and are largely so used. They cannot be considered in the neigh- borhood park class. In addition to the play- erounds at the three parks named, there is avail- able the playfield known as Hodges Field, leased by the Memphis Amateur Athletic Association and not a public possession, and the new Beau- regard Field nearby, containing at present a baseball diamond and tennis courts. There are eight white and five colored schools in this area. Of these none has recreation space commensu- rate with its enrollment. The grounds of the colored schools are particularly cramped and un- satisfactory. In the whole central area comprised within a circle two miles in radius about Court Square lives nearly 60 per cent of the population of the city. Here the recreation division of the park department finds conditions which eall forth its best efforts. Two-thirds of the child delinquency and, it is safe to say, well over half the crime, immorality and viciousness of the city originate within two miles of Court Square. The yearly cost of combatting these conditions is enormous. But courts and police methods, costly as they are, are not preventive. Recreation is. The proper value has not yet been placed upon the splendid work which the park com- mission has recently undertaken in stimulating interest in recreation. The results will fall be- low expectations if proper facilities are not pro- vided in the heart of the city. At least two white and one colored recreation center are needed to serve these congested districts. Over- ton and Riverside Parks will not answer. Neither will the public schools. A wholly new type of recreation unit must be added to the Memphis system. Conditions suggest the development of com- plete recreation centers, in which a community center building would be the dominant feature. These centers would also partake of the nature of neighborhood parks and playgrounds. In their design as many recreation interests as pos- sible should be provided for. Suggested sites for these units are shown on Plate No. 42. There is a serious need for a close-in reerea- tion center for whites « tes convenient a the business district. The busin eastward, will Siva be iharaien with recrea- tional desires. To the east is a large area now [ 98 | thickly settled and by the provisions of the zone ordinance proposed as an apartment district. The residents of this section will need a recrea- tion center nearby. Opportunity exists for the establishment of colored recreation centers to- ere is a dense negro population living in “tite low areas along the DeSoto Bayou. The section be- tween Mississippi Boulevard and the Southern Railway, south of Vance Avenue, is particularly in need of a recreation center. An area is avail- able in the interior of the block between Orleans Street and Lauderdale Street south of St. Paul Avenue. This property, being low, is not costly, but so far as service possibilities are concerned could not be better situated. Another white recreation center is also sug- gested for Winchester-Cemetery. A plan show- ‘ing the possibilities of this area and the general form of the recreation center proposed for the other two sites appears in Plate No. 44. There is serious need for still another recrea- tion center in the neighborhood of the Christine School, but suitable property is apparently not | [aoa | 32 SUGGESTED: || io Ae. - PLAN ~ for. |] ne ‘RECREATION: | ie) WINCHESTER: ‘PARK. ~~~] een eee eNO -MEMPUIS ~~~ er Ie -~\~ TENNESSEE: | a a ESS SEs SEN act ce “HARLAND BARTHOLOMEW “BASEBALL | \e 5e)e) *CITY PLAN ENGINE Ee ©) | 5 * SAINT LOUIS ~ MISSOURI - be las eng tamer -. 1923- RK 3) { 3) Cre) © gl? -One Inch Equals uy: teet- TP Pat a | Ys a # = tt a Plate No. 44. This area renders no service to the city in its present condition. Col ailery, eee Nee Nee Lge Ne Gr CO) IME AYE ANS) Sy 1 @) oN now available. If this school, as determined by a school survey, is to be rebuilt, property for a eombined school and playground should then be acquired. A new school building upon the site should be planned for community center service. By developing the negro center near_the Por- ter Schoot-and making Winchester Cemetery a genuine reereation- center, the park board-wil go a long way toward d_satisfying the immediate recr Perera needs of the heart of the eity. Hach of these units should serve as community center, playground, playfield and neighborhood park. Beneficial results can be promised Memphis through expenditures upon all-round facilities such as these. Their cost will be more than jus- tified. They should be placed and built for wide service. COMMUNITY CENTERS Neighborhood recreation buildings similar to those which have been proposed for each of the three sites mentioned above should be found in other sections of Memphis. These buildings, ealled community centers, serve both adults and children. They are year-’round recreation cen- ters. Community centers operated by the mu- nicipality usually contain meeting rooms for clubs and societies, gymnasium, auditorium, branch library, game rooms and other recrea- tion features attractive to both young and old. . Generally speaking, such institutions need have no special relationship to parks or playgrounds; they were suggested for the recreation centers in the central section of the city in order to sat- isfy the needs of that district and make the facilities provided there as complete as possible. Strictly speaking, there are at present no true community centers in Memphis. It is only when a city has reached a considerable size that it finds ability to support such specialized institu- tions. This is perhaps chiefly responsible for the fact that there are so few community center activities. It has been the experience of large cities that the social spirit of the neighborhood is latent and needs only the facilities through which it may express itself to become active. Progress in the development of community social activities, however, is usually slow. Pub- lie provision of facilities for the accommodation of neighborhood activities cannot at once take the form of complete and fully developed com- munity center buildings. Such structures, while quite ideal, are generally not built until the social interests of a neighborhood are fully aroused and demand such a specialized struc- ture. The public school, consequently, is com- monly the most available center for the early development of community interests. In cities where a distinction is made between schools, the junior high school buildings have been found extremely adaptable to community center uses. Their interior plan is generally such that the central wing of the building can be opened independently of the rest. Near the main entrance and on well-lighted corridors should be found gymnasium, swimming pool, auditorium with stage built for amateur dra- matics, woodworking and domestic science rooms, branch library and similar features. In buildings of this sort may center a great many interests of the people which it is advantageous for the city to cultivate. The Board of Educa- tion can satisfy a vital recreational need if its new school buildings are designed for wider use. In Memphis several of the older school build- ings have already been brought into the recrea- tion system. They are opened in evenings for local clubs and societies, and those which have auditoriums are often in demand. The Board of Education has shown a commendable spirit in thus helping to satisfy the new recreational de- sires of the- city. PLAYGROUNDS A playground, first, should be convenient to children. They should not have to walk much more than a quarter of a mile to reach a play- ground. Secondly, the playground ought to be of adequate size. The rule is to provide not less than 100 square feet of unobstructed play space per child, with the minimum area not less than two acres. Third, to secure for the community the greatest usefulness of playgrounds, they should be placed under responsible management. Provision of space is a prime essential, but su- pervision and direction are equally vital to the success of any system of playgrounds. No en- thusiasm for the conversion of small parks and easual vacant spaces into so-called playgrounds should obscure the fact that real playgrounds should be placed where they can render service, should be adequate in size, and should be prop- erly managed. The recreation division of the park commis- [99] FolaN AA Rela POR aa sion is making a determined effort to look after children of playground age during the summer months. In assuming the responsibility, how- ever, it invades a field which authorities agree belongs to the educational department. The park department is developing space and train- ing a personnel to conduct playground activities for a small proportion of the school children for a very brief period. Inasmuch as first-class playground work is essentially a form of out- door education, this arrangement is manifestly uneconomical. Accordingly it is recommended that henceforth the following principle be fol- lowed: (1) The Board of Edueation should plan to acquire enough space for each new school build- ing, and near as many old ones as are to be preserved, to give the children within half a mile an all-year playground of suitable size. The purchase of ground should be based upon a computation of the maximum anticipated en- rollment of the district. The play area around no school building should be less than two full acres. Many progressive cities are purchasing five, fifteen and twenty-acre tracts as school sites. Their foresight in this respect will be more fully appreciated as the population mounts and the residential blocks in the school district become solidly built up. By assuming this obli- gation of providing ample play space about the public schools, the Board of Education makes a distinet contribution to the building of a more serviceable and efficient city. Within reach of the children of every section of the city there will be at least one well-known space upon which they may freely release natural play impulses. They can jump and run and play games under proper guidance without fear of street traffic or the abuse of unsympathetic neighbors. (2) The responsibility of directing play- ground activities properly belongs to the Board of Education, and eventually should be assumed by this body. The following advantages will acerue to the city: (a) School grounds will be more widely used, thus better justifying their cost. (b) Playgrounds at school will always be so spaced as to be readily accessible, provided schools are located in accordance with a definite program based upon the city plan. (ec) Duplication of playgrounds need not occur, as will frequently happen when there is [ 100 | no clear understanding as to which municipal agency has playground responsibility. (d) The organization of a playground per- sonnel will be easier under the school authorities. (e) Playground interests may readily be correlated with social center activities, the publie schools being well adapted to the latter. (f) The playground and school will then be- come an all-day, all-year recreational and edu- cational center for children. (g) The benefits and advantages of first- class playground activities will be extended to all children rather than to a few who voluntarily come forth. (3) The park department and all other agen- cies interested in recreation in Memphis should assist the school board, wherever possible, in the development of playgrounds for children. Help may be extended through provision of space, the erection of apparatus, the organiza- tion of play festivals in the larger parks, and similar means. It is not expected that the Board of Education, with its heavy burdens, will be able at once to take over this new interest. The park department for some time, perhaps, will have to continue its playground service and seek to reach larger numbers of children. It should be a policy of the park department, however, in all new land purchases for playgrounds, to ac- quire tracts adjacent to school property. By following this plan, the children of Memphis will be afforded adequate play space where such is most seriously needed. The park department in its playground work thus far has but slightly touched the needs of the city in its eight centers. While the summer attendance totaled 202,474, the average daily at- tendance was only 2,442 for white playgrounds and 336 for colored. But 15 per cent of the white children of playground age (six to fifteen years) and 3 per cent of the colored were thus eared for on such playgrounds during the sum- mer of 1922. Two factors affected this showing. The park department was forced to find playground sites chiefly on properties already owned. Bickford Park, Gaston Park, Market Square and other small park areas were turned into playgrounds. _ These were not always closely related to the school population. In the second place, practi- cally all available playground locations were Mit Sasee le Ome Cc OM Nel NeG Ee LaAg Ni Cal la sY9 0) 54 ‘9h ‘ON pue sty} sv sdvul yons uodn peseq eq pinoys udseapltyd 10J spunoasAvid jo uoleo0] eYT, “Gh “ON O7¥IG OW Sino1 1s UFINIONY NW] ALT ~ MINQIOHLOVE ONVIQIVH SIHOIIH NOSIGVAN © pnwisid Suwa SAW AUTO -INO NIHIIM NIBDIUHD JO AIGNNN ONIMOH {LANIANIOSNI OL OYIGYOSIV ILS SIGDHDS ISS J") . < i } ae) pI 9, SF rh 2 = + i Ao / FAs ro BR \ : i Z | | ie on ih ane Af eH: F , : l y < | : dalla J Hi 5 ABEL! : fi “4 5) iy f — } arc f oa : St t zi ae ‘ 5 3 =u ee at kis Cee / CARN le feed. LE Ree 7 ey RY N3eCTIHD IGDHDS ‘= aes 5 : Be Ra NA EL Pp Se EA Ea tes alo ee i OS WIHDOaV GNV AWA = th Bae ft] 7S me | eee J Nae aL ey WN Sas NIAID IGDHDS DNNd = a << Siam NP STE a Beep RI -; see ee Sl ky \ GIGIIN SONNOIOAVIG = +7 : aD ies Sia) [et if aL. Ne tel EEE F car Te sa [YL SGNNOSDAVId ONUISIKG = 7 =! —— SN AWS Thc Vee PN. Ca, : ONION Uy — ONNOYDAVA Uh JOOHDS OL JONVISIG ONINIWM FIIW ie /=NO MHLIM SY3NV SSOTDNI S315 2 oJ 726) LMOIWADOD NOISSIWWOD ONINNYId ALID FT) = SALIS GNNOUDAVI GsSOdOUd { NOILWVIMNdOd TOOHS IHM 40 NONARILSI ONIMOHS dV [101] He AE IY sk 1, (ee AB deY 0) Ih Gb utilized; the lack of more sites handicapped the service. With the exception of the Brinkley playground (Market Square), which had the best opportunities for service because of the proximity of a dense school population, all grounds were adequate in size. They were all well managed. It is manifest now, however, that if the park department is to carry on this important phase of its work, it must inerease its facilities. It is pertinent to ask where new playground sites will be found. Playground activities in the modern city are too important to be spotted here and there over the city in response to merely local demands. The playground program should be city-wide. Units should be located first in the congested centers and later in more outlying sections. The distribution of school population is the guide by which playground service should be distributed. The Memphis playgrounds so far have been located chiefly with reference to the availability of small park areas. The new sites which will have to be secured should bear a dis- tinet relation to the public schools. Plates No. 45 and No. 46 are included to show the districts in which playgrounds are now most seriously needed. Three of these districts, two white and one colored, can be served by the de- velopment of the complete recreation centers such as has previously been suggested. These units should all include playgrounds for chil- dren. The grounds of the Merrill and Porter Schools, which serve the latter two districts, are wholly inadequate for playground work. The tabulations on the plates referred to show how far these schools come from the standard of 100 square feet per child. Three public school playgrounds are suggested for immediate development in this central sec- tion of the city. The A. B. Hill School is located in an extremely populous district. It is a large school with a yard which formerly showed only 47 square feet per child, but the yard facilities were recently increased by the purchase of ade- quate ground. *Across the street from the Hill *This ratio is obtained by subtracting the area covered by buildings from the total area of plot and dividing this remainder by the enrollment figures, a method manifestly favorable to the school because it includes front yard, which should be a landscape setting for the building, and side yards, which are useless for active games and sports. { 102 J School is a large open area which should be made available as a playground for the children of this district. Playgrounds should also be established at the following schools, enough additional property being acquired to provide the children adequate space, viz.: Peabody, Cummings, Rozelle, Guth- rie, Madison Heights and Gordon. Two of the negro schools—old LaRose, one of the most congested schools in the city, and Carnes Avenue—are seriously in need of addi- tional playground facilities. The grounds at these schools are pitifully inadequate. Condi- tions at the Carnes Avenue School are particu- larly deplorable and the surroundings are most undesirable. A new LaRose Street School has recently been constructed near the old one, which has relieved somewhat the school condi- tions in that negro neighborhood. Both LaRose Street Schools can be equipped with suitable playgrounds only by the purchase of nearby improved property. The likelihood that this district will always remain a negro community warrants acquisition of ample ground for play space for each of these schools. The playground locations proposed above are chiefly those which the population and the con- ditions of the various districts suggest. Needs elsewhere may seem equally urgent. If play- ground management is in charge of public school authorities these needs may be answered in the school system. The enlargement of school grounds all over the city should be carried for- ward progressively in anticipation of the estab- lishment of a city-wide playground system. The policy of the Board of Education should be to purchase all new school sites with playground needs fully appreciated. PLAYFIELDS Playfields are essentially a form of play- ground, but because of specialization they should be considered separately. Where play- grounds chiefly attract and serve children, play- fields serve young men. Above the age of fifteen years the interests of boys particularly are cen- tered in more active, competitive games and sports. They wish detachment from the ‘‘kids’’ who frequent playgrounds. They seek advance- ment from the playground ball leagues to the leagues playing league baseball. They greatly need playfields with running track, football and baseball areas and similar spaces. These recrea- NS San Seek Ome Cc OM OV7 “Woey} SN JOUUBD UsIp[TYO I1oYM pooeld o1e ACY} JI ON[VA podjyIUIIT Jo o1e SpunoasAv[g ‘OF ‘ON 21°RId OW Sino? is ~~ TIINIDNA Wig WD MIWOIOHIAVE GNVIdI L 0 SHaVHD —___| $02 | Maik ONINIOW [11 == $608 | OF [ibe] inv NODS [urs 066 | IST [ye | TaMdW> ris —_ _ | Ole [995 YIONOIA [ibs s22 9% | 9Z 1957 | GOOMNIISD vS | SOR SOIT 09 | 216 yao [== GLO | Ze | ee | AV ViNISein [== sil | S20 [220i] india LaiOH ++ S859I | Siz} S201 UNIOd uk sezez | Bol | a ’ Nhat [ZZ TENNESSEE 7 (LN Ps) AS SCALE IN MILES MILE {MILE As 2 PROPOSED PARK & BOULEVARD Ny \ | AND MAJOR STREETS _ BEYOND CITY LIMITS _! IW \ \ f WSS CO \ Ki sf NSS KW Ss | SSINESRSs AS SSE a SIN RN \\ SSS x SSS SN \ N \ \N Na ‘ AAG Wh, Cops Z WW» c a is \\ UM GY "fy Yy Yyyyy a f hacds Vly M@bj 2A wyllley ays > \ ‘\ \ Sg SN S SSS DAY \ = RS . =. S SS i S iS SS S SQV } ~ SS ye S S SS aa Si WN Ss : SS S SS s KR SS S S S Wy WN RR \N SSN IS ‘ \ WW Di \ Wl, = OY) YU. A aD > ak Fanta N s ze l maaan ig ae D REA GICUEe.. NT | LOUIS MISSOURI Se Plate No. 47. Nearly twenty-five years have passed since the present Parkway was established. The city should commence the development of a new chain of such drives Cats Usa Y: Ee ee ae NN ae LeN ae Cr CeO EMe Les Sa le OroN This is believed to be the most splendid oppor- tunity that has ever been furnished Memphis to acquire a park of large acreage virtually at the city’s front door. It is true that in its present condition it is unusable, inaccessible and of doubtful stability because of the shifting eur- rents of the Mississippi River. Here its a poten- tial recreation area, however, to create the like of which other cities are spending several mil- lion dollars each. The possibilities of the devel- opment of this island can best be visualized by comparing this area with the famous Belle Isle, Detroit’s most cherished park possession, or with the waterfront park areas already developed and now being extended in Chicago, representing total expenditures of more than a hundred mil- lion dollars. While no estimate of cost has been made of the character and amount of work neces- sary to preserve the island and to furnish such additional fill as may be necessary to make it useful, it is confidently stated that whatever the cost its result would probably be more than jus- tified. Plate No. 1 gives a suggestion of the manner in which this island might be developed as a park property. It is not intended that conver- sion of the island into a park property should be a hasty procedure, but the necessary protec- tive work should be initiated. Ten or even twenty years might be given to the gradual fill- ing of all or part of the island. Much of this fill could be secured from the dredgings neces- sary in Wolf River. An ornamental and pro- tective wall could then be constructed and a bridge built at Court Avenue, as shown on Plate No. 1. Later other bridges should be built to tie the island to the mainland, one at Auction Ave- nue, connecting directly with the North Park- way, and eventually one north of the city limits to connect with the outer Parkway. The island should then be developed as a large park, with drives and wooded areas and with some formal treatment at its southern extremity. Opportunity should also be afforded for recreational areas for the use of the people living in the central por- tion of the city. NEIGHBORHOOD PARKS In the development of a system of recreation facilities, a distinction, based upon service ren- dered, must be made between parks. Of pri- mary importance are neighborhood parks. These pleasure grounds, while not differing greatly in size from the small parks of limited value, stand at the opposite pole in potential usefulness. In the modern city they are indispensable. Their incorporation in the urban structure has become as essential as the provision of sewers, water sup- ply and pavements. Neighborhood parks are precisely what the name indicates. They are intimate community recreation areas. Their great value depends chiefly upon their accessibility. A neighborhood park should be within walking distance of prac- tically every person in the city—one-half mile is generally considered a fair radius of the service area. The far-sighted city will aim to reserve space for one such park for each square mile of new territory that is absorbed. The intensive usefulness of neighborhood parks makes their design a serious problem. They cannot be mere uncouth open spaces in the midst of thickly built-up neighborhoods. Their design must reflect in a measure the na- ture of their surroundings. A close-knit layout is needed. No waste portions should appear. Every section of the area must perform some service, must offer some attraction to the diverse classes who will live around the park. Automo- bile driveways are wholly out of place, except perhaps for approach to a parking space near a concert court or some such feature. Walks should invite promenading and also provide short-cuts through the area. There should be a formal display of flowers for those who enjoy colors, water in a fountain and pools, a shelter, benches under trees, suitable shrub plantings, trees and lawns, play areas for children, perhaps tennis courts, and, if possible, a band pavilion and well-proportioned concert court. The whole layout of the park should be trim and neat and well adapted to interior city conditions. Plate No. 42 shows the distribution of popu- lation in Memphis. It also shows those few parks which may be classified as neighborhood parks. The proportion of population served by facilities of this sort is very small. Memphis has overlooked the need of these local pleasure grounds. The city should have more parks like Forrest and DeSoto Parks. Douglass Park, when it is fully improved, will be a splendid neighborhood recreation area. One has been proposed near the business district, another on the site of Win- [ 105 ] ele NGA ie Ih Jo Ne) KOY Jae IE Mississippi River from Riverside Park. [ 106 ] Cin DE Als NG Paes NS Nem ie Ne Gy CW WL AYE Ut SS if ry ay chester Cemetery, and a third for negroes near Railroad Avenue. The areas previously mentioned will quite adequately care for the park needs of the cen- tral portion of the city. In the more outlying districts where neigh- borhood recreational needs are not yet so pro- nounced, additional acquisitions should be planned. A neighborhood park ean be secured in the large vacant tract south of North Park- way near the end of Galloway Avenue. Another is available on the South Parkway at the end of Wellington Street. The Leath Orphans’ Home may some day be available for park purposes. It should not be allowed to pass into other hands without being considered by the Park Board. The section of North Memphis which a park at this point would serve is in need of just such a recreation area as could be developed on these grounds. Beyond the city limits the purchase of neigh- borhood park areas should be systematic. As stated above, at least one twenty-acre park should be aequired for each square mile of resi- dential territory added to the city. At the rate at which Memphis is now growing, 6,000 people or more are added to the population each year, which implies full use of a square mile of net residential area every four years. The Park Board should plan to acquire at least one cheap out- lying neighborhood park tract in the line of dom- inant growth, therefore, every four years. These areas should be spaced approximately a mile apart, and with particular reference to residen- Landscape in Overton Park. tial development. The attractions of topography should not weigh against location, as neighbor- hood parks can be created on practically any terrain. They should be placed for maximum service. LARGE PARKS The modern city should be encircled by a series of large outlying natural parks. These areas, linked by a chain of pleasure drives, should offer wholesome retreat from the noisy, oppressive city. Their general treatment should be highly naturalistic. They should embrace and preserve for the city dweller all types of native topography. Woods and hills and lakes and the valleys of streams suggest themselves as public reservations. They afford the contacts with wild nature so necessary in this age of con- finement and artificiality. The city should set aside choice bits of such country for later use. Memphis has two excellent large parks. Their usefulness is increasing yearly. They have be- come the city’s most highly prized assets. Overton and Riverside Parks were acquired twenty years ago. Since that time the resources of the city have been spent chiefly in improving these parks and in making them more service- able. Until the last few years there has been no noticeable demand for the development of more parks of this sort. It is realized now, however, that Memphis can not always be satisfied with Overton and River- side Parks as its only large parks. Sites for similar parks outside the city should be under Glimpse of public golf course, Overton Park. [ 107 } Suggested park tract immediately south of the city. review. Donations of lands for such parks should be sought and favorable prices should be called forth by consideration of numerous sites. A broad plan for surrounding the city with a system of large parks should be constantly be- fore the Park Board. The aim should be to aequire the raw property while it is available. Improvement can come later. Plate No. 47 is included to show the possibili- ties and form of a system of large parks for Memphis. This scheme is based upon the topog- raphy of the city and its environs. It takes ac- count of probable tendencies of growth. It is drawn with a view toward equipping the city with an adequate number of recreation grounds of this sort, distributed and arranged so as to render the largest possible service for the least cost. By skillful property acquisition the whole system shown on this plate could be acquired without seriously involving the resources of the city. The proposed large parks are eleven in num- ber. As shown on the accompanying plate, they total approximately 3,200 acres. It should be emphasized, however, that neither area nor loca- tion is fixed on the plan noted. The scheme should be considered more in the nature of a diagram. It is intended to be chiefly suggestive and to lead to more accurate surveys and more detailed plans. The park areas marked have suggested them- selves by reason of tree growth, natural rugged- ness, relation to one another, the possibilities of connecting parkways and boulevards and similar factors. Without an estimate of land values it is practically impossible to arrange these pro- posed parks according to their importance. { 108 ] North Memphis would be greatly benefited by the establishment of a large park. Whenever the driving park comes upon the market it should be aequired for public use. In considering the park possibilities of the areas shown on Plate No. 47, it should be remem- bered that the essential purpose and use of parks has changed. The conception of park planning has likewise changed. Each unit of the large park system proposed should have a definite function. One should be a woodland park, wholly natural, an area full of delights for those who would lose the sights and sounds of the city. Another should be predominantly the animal park, a zoological garden worthy of a large and prosperous city. The zoo is certain to gradually become more objectionable in Over- ton Park and plans should be laid now for its transference to a more suitable area. In the system should also be a floral park, where green- houses and flower displays surpass in interest every other feature. There might also be a golf park or a water park featuring fountains, pools, lakes and water gardens; a botanical park; an Raleigh Springs, one of the suggested new outer park areas. AG be Pela aes NT LONG GeO MoM I-38 8 1 0 4 arboretum; and an amusement park, with pleas- ure concessions the chief attraction. Each area, if the system were well planned, would have special attractions and interests. Going to one park would not be like going to every other one. The citizens of Memphis would make much greater use of these outlying reservations as a consequence of this diversification. PLEASURE DRIVES In the development of the recreation facilities of the future city, the aim should be to bring all features into a harmonious, connected system. There should be traffic ways, bearing something of the character of the parks themselves, by which the outlying recreation grounds may be reached. Pleasure drives are no longer to be considered expensive luxuries in the city. The comfortable, smooth-riding automobile has become a pleasure- giving device of great importance. Its use is constantly being extended. Definite routes over which such vehicles may move are urgent needs in the modern city. To be essentially what the name implies, pleas- ure drives must afford the user distinct pleasur- able sensations. The views ahead and alongside ought to be of a higher order than those found on ordinary streets. Pavements should facilitate smooth, comfortable driving. These thorough- fares, moreover, should have width and conti- nuity for traffic-carrying purposes and a digni- fied, impressive appearance. It is manifest that when pleasure drives are not planned before- hand and laid out as successive portions of the city are platted, the possibility of securing the distinctive characteristics noted above is consid- erably lessened. If a system of connecting pleasure drives can be anticipated in the platting of land they can be made practically to pay for themselves. Mem- phis should be able to encircle the present city with a chain of beautiful parkways and _ boule- vards. It ean do this if it makes the proper plans and adopts a forward-looking policy. It is suggested that: (1) A eontinuous pleasure route should be planned to encircle the city through territory at present unplatted or subject to replatting or modification. (2) This route should be located so as to prove advantageous to the property through which it passes. Three views of the Parkway, established twenty years ago. [ 109 ] Eee Nee Rees Peo eho (3) Through civic interest, supported inci- dentally by proof of the influence of such a system upon property values, the realty owners affected by the proposed pleasure drive route should incorporate their portions of the drive in their subdivisions. Needless to say, the willingness of realty own- ers to accept this scheme will depend upon (1) the ability of the city to assure continuity for the route; (2) the selection of a right-of-way line which will confer benefits upon abutting private property; and (3) the preparation of satisfactory detail plans for the improvement of the system. Isolated sections of a pleasure route are of little value. The city must act in good faith and see the scheme completed, once it pro- mulgates plans. This route should take prece- dence over all except major streets in determin- ing the frontage of lots. No homes should be allowed to turn sides or backs on pleasure drives. The drive should not be monotonous; there should be a variation in the treatment wherever topographic conditions permit. In accordance with the principles outlined above, there has been prepared a plan for giving Memphis a system of modern pleasure drives. This scheme contemplates development of a new parkway system surpassing the one aequired about 1900. Its details are shown on Plate No. 47. The following features of the proposed outer parkway system are to be noted: 1. Routes are continuous. North Parkway before extension to Jackson Avenue. [ 110 ] 2. The whole system is tied to the heart of the city. 3. There are five arterial approaches to the city. 4. Existing highways form a large part of the system. od 5. The system has been properly correlated with major streets. Sections of parkway likely to be favorable to general traffic circulation are paralleled by major streets on which utilitarian traffic may be required to move. 6. The system is composed of formal and in- formal boulevards and naturalistic parkways. 7. Parkways have been chosen along the lines of water courses. 8. Practically every section indicated is ar- ranged to contribute to values of property through which it passes. As planned, the new system originates in the very heart of the city. One of the fundamental defects of the existing parkway is that visitors in the business section of Memphis have no hint of its existence. They cannot become acquainted with its charms and attractions except by a journey of some distance over ordinary streets. The recent extension of the North Parkway makes the Parkway somewhat more accessible, but does not bring the distinctive drive into the business district. The plan accompanying pro- poses a rectification of this condition. Court Avenue is made the axis of the future business district. Court Avenue is planned to North Parkway connection with Jackson Avenue. (Incomplete.) CHESS Pee N NG (Ci OD WE GE SS) Ih ON View toward the business district on Court Avenue. be 100 feet wide instead of 60 feet. On the axis of this widened avenue should stand two fea- tures—one, a tall shaft in Court Square, and the other a monument at Court Avenue and Lauderdale Street. From a cirele at the latter point should radi- ate three arteries leading to the more distant system of pleasure drives. (See Plate No. 12.) Over Marshall Avenue, Union Avenue may be reached, and Union Avenue, if extended to meet Walnut Grove Road, becomes the backbone of the pleasure drive system. Over a new street constructed northwardly along the line of High Street, as shown in Plate No. 12, the North Parkway would be reached. Woodlawn Street should be extended to the North Parkway to afford an outlet to the north. To the south Court Avenue, looking east from Court Square. Wellington Street seems most suitable as a pleas- ure drive. The development of this thorough- fare should include correction of jogs, uniform paving, removal of car lines and eventual widen- ing. Such a route southward would do a great deal to inerease the usefulness of Riverside Park. The new lengths of the proposed outer park- way are chiefly in territory not yet platted. In the development of these sections lies the city’s greatest opportunity. By enlisting the support of the real estate interests who will plat the land through which these lines run, the city would secure a boulevard system of great attrac- tiveness. The types of boulevards recommended for these are listed below and are shown on Plate No. 48. An indication of the landscape along the suggested new Parkway north of Wolf River. Ri; 1 Uh 2 A: BePwORk ———— SCALE OF CIROSS SECTIONS 10 5 0 5 19 15 2075 30 ONE INCH EQUALS TEN FEET. (922 MEMPHIS SUGGESTED CROSS SECTIONS OF PLEASURE DRIVES TENNESSEE MARLAND BARTHOLOMEW CITY PLAN ENGINEER SAINT LOUIS MISSOUe! ¥ “/=30 FOOT ser Back UNE SINGLE ROADWAY BOULEVARDS ay, SIX LINES ay w ig é = = je ers. re ea SET BACK LINES 6 eT re A BUILDING SET BACK OF 30 FELT OR MORE ADDS Cl GREATLY TO THE DIGNITY OF THE STREET- PROPER! ---— TREE PLANTING WILL GIVE IT CHARACTER. FS 6+ —— Sepearrae: STN THE FOUR LINE BOULEVARD CAN BE REDUCED TO A MINIMUM OF 8OFEET IF NECESSARY BUT THIS WIDTH BODES NOT PROVIDE FOR A FIRST-CIASS TREE PLANTING. | DOUBLE ROADWAY BOULEVARDS sae 4 Po | ec =) ae OY } hae oe L | I EIGHT LINES é- 8 36 = te] THE CENTER STRIP = OF DOUBLE ROADWAY eae ey eee : —_ Se Se ee os E GENEROUS. SIX LINES Pes reer 59 oe ete A THOROUGHFARE OF THIS TYPE SHOULD FOUR LINES -! ars vee oe 100 FEET WIDE | Pierre i ———— tal {OO FEET WIDE. | DOUBLE ROADWAY BOULEVARDS WITH STREET CAR LINE EIGHO WINES: 7 gigas Sg eee ee IF STREET CARS = ARE TO BE AC- east Ls A DUBLE ROAD | SIX LINES ys ROG meer sears GE daw tsar | WAY BOULEVARD | THEY SHOULD BE IN See Pee Oe ec | 7 = ; << ta et tf ciezere eran i SIX LINES (ne = otst—e: omer BY PLANTING VARIABLE VARIABLE NOTE ARRANGEMENT OF LOTS TO TAKE ADVANTAGE OF PARKWAY VARIABLE 76 ike a me \ e LOTS SHOULD ALL FACE PARKWAY AT RIGHT ANGLES TO STREET LINE. ———-VARIABLE. Plate No. 48. might take. [112] A suggestion of the various forms which a new system of. pleasure drives Cm eee lia Y, 12 Ab AN IN INE IE DNC 4G Ce ORM Mel SSIs Ol oN TYPES oF PLEASUREWAYS AND MINIMUM STANDARDS Roadway in Center—No Street Cars The minimum should be a four-line vehicular roadway, 36 feet. Two rows trees in each side parking. Building setback, 30 feet. Minimum width, 80 feet. Double Roadway—No Street Cars The minimum ean be two-line roadway each side, 20 feet and 20 feet; total, 40 feet. Center parking not less than the total width of road- way, 40 feet. One row trees in each side park- ing. Minimum width, 130 feet. This type ean be converted into a six-line thoroughfare by widening each two-line road- way six feet, the widening to be from the side parking. A four-line roadway on each side of a center parking requires a minimum width of 200 feet. Double Roadway—Double Car Line For ears, 20 feet. Planting either side tracks, minimum, 6 feet; total, 12 feet. Three-line roadway each side, 26 feet and 26 feet; total, 52 feet. Double row trees in parking. Muni- mum width, 150 feet. Triple Roadway—Vchicular Center roadway, four lines, 36 feet. Double row trees each side, 70 feet. Side roadways, two lines, minimum 140 feet. Minimum over all width, 200 feet. These proposals are not entirely inflexible. A closer study of existing conditions at the time of making detailed plans will doubtless suggest modifications of proportions and general treat- ment. The fundamental principles to be fol- lowed in the design of the system may be sum- marized as follows: Boulevards and parkways are to be created for a distinct purpose—pleasure. This pleasure may come from living upon them or driving or walking on them. The pleasurable effect is to be secured by special treatment and attention to matters not usually considered in the develop- ment of ordinary streets. (1) Pleasure drives should be wide, which insures dignity, impressiveness, comfort. (2) ‘Traffic should be restricted—to preserve the street scene from incongruous, disturbing notes. (3) Paving should especially contribute to the pleasure of using these thoroughfares. (4) Private building development should be regulated—to secure unity and harmony. (5) Planting should be of the highest type, for upon this one feature depends a consider- able portion of the effectiveness of either formal or informal pleasure drives. (6) Special eare should be given the lawn areas, and planting and proper maintenance of roadway should be assured. (7) } ih if MC 3 ‘° | Rn pH) 7 he = / Y ZH j ; ee Sic : # ; OVERTON panic. ra ase < : Vat aS Ly ; Pp fe ae ay: i y, vee aH 4 Q oe f | Aj ail hes : th ” . ci S = / ao BE ae A RESIDENTIAL DISTRICT "BY RESIDENTIAL DISTRICT i. ’ 'C COMMERCIAL DISTRICT 'D INDUSTRIAL DISTRICT E UNRESTRICTED DISTRICT § tle: /e! olefi_le 8. Oxer dyene race elope in —§——loasle docelecedle colpecee elle of eo te o Mm mm fle die Pf Geese] ese eee SS Keren nec elie coe doa le do cope cede cope secs liner e He MMT sist geese) lf = 2 eer ABD oes aera ei i® PG e fe eo] fe ee 0 0 @ eel fee 1) ANN Sy SAR = We Gj te \ D> es 3) a oe 7 aaa) Pease eA EA NS SSS: ENN > = el Ace — E : rk ~ 1 WON IZA FZZ78 ie NIN “Vg ggg 2 . 7 i | oe. RO) OR hy aa = z te fe AN. NS N VA S are, VG f i 7. cee! ° cen % * dle s| ——S : Alon it 7 ! hh. . \ % " R a 0 Ry o\e eeee o © ele leap « : Z adds ° / i AS : MSINNAY bof a ag £900 Pd ee sls ted be a if = sflellefle Gee ol be s- y} aur ‘ . oe 2 * * ee * oe * . Ds Ntin AXE en PAs Cm ha (M0, fay, Se | es se a Mee YS a Hm bee ee tne 8 8 ee oe ee ean dn c olete th 0) ee etd co olp oe eee frye wlc + + ele 4 2 MB eelele times!) be eee wee ee ee eee ee ie . a \ AN TS AS beth Oe eel eee) beceememmed | ae ce prem th tee ee peeemen ogo 6 STA |} (|) @ ee 8 @ © © wrere: ONS Hi olin iff eee ener @ < a = <= > : = om ‘ ‘i : s ‘i % es) “~ ° sche ss an) ~ 4 AN ; i , x \ ~ VA : ey bt TF NN of J as a: e/ a y : : > : F t i je PEG Sea RR = ~~ « er ea 7 =< ZA sreis ee 7 a: z I . NAN b it a ayy ~~! ~SAS : Sie ta Z Ae = ss | 4 wucitaie oe eoede ow { 2 ——a Fi : i, i te. c= & ‘ . \ ~X = ; ys ~AG R e 7 U os ve eeteve .. ie ote eh 4 FAL Wu es aa aa [-) N ue we ma ” 1 Aah . ; % 7 eC CLLLIL Ne ‘ 4 tl A ! =< - = at \! ae Sn ps = sata : A . a AN a] | ‘ Ress SS : N. : . GO i : \ be i} } 1Z VA eeecel|lee on -2 ite 2 | / igA) esl bt & Ss \: . SINS NY 8 SE Yh aN % WAS = 7 ss oe Laie se if y ; ni ; 2 Wieees = at G rhe EB . NX ; Wy <27) | ==="| RS a: Re | lA y, Y a GA COUNTRY CLUB omer” Sui WA GY \G?: ed yeaa chee Waal LG We GOI are el L i ; I fs \ RN: WUD DT, x : : ON ft Z Z a 3 : ae AG, b j : ey IZ: : GoW GLE, YU, \ WR @YAGAGAD Aaa & “pale n Ma. ; LILA i Zi Lee \ ‘ OZ Y fl Mi NZ a ‘ 4 F - Shecevaliishe rigs ck Zi y Y Y g fa K 7 ole oe oe ee es ae we ees eieoe eeseee ee cag A LLL ABO CL eat MAN WANA 27 VAE UGUAG ATG: ¢ cron. bss 4 BA AWARE G ay , BAZ Ppt yt rt an i SLOMAN STILE ee re JHBell. LBC. Plate No. 50. Use district map. Gols lay, Bai AON N= WN G Ce Oe Vee Sa Sa le OeN ZONING ONING, which regulates the location, use and size of all buildings and premises, is the natural result of modern eity condi- tions. Until recent years one could erect a building of any size, for any use, in any loca- tion, regardless of its injurious effect upon his neighbor’s property or the immediate district. Some measure of protection has been obtained through ordinanees limiting the heights of build- ings, through tenement house regulations, and by private restrictions. While some of these regulations have served as good expedients, they are essentially temporary measures affecting only certain districts or classes of buildings. There was no comprehensive plan for regulating and segregating the various types of buildings, and consequently city building was left largely to the whims of individuals and to the exploita- tion of speculators. The incongruity of garages next to schools, factories and filling stations in residence dis- tricts, and the intermingling of apartments and residences is obvious. Such uses, nevertheless, have been permitted in practically every city as the right of an individual to do as he may see fit with his own property. Happily, however, just as the courts have recognized the necessity of health, fire and building laws for the welfare of community growth, they have now come to recognize that zoning is but an amplification of these regulations and essential to orderly city growth. Zoning is now admitted to be a legal exercise of the state police power under which all regu- latory measures of a community are authorized. This power is necessarily broad in scope in order to meet the ever-changing conditions resulting from city growth. This fact is well set forth in the epochal zoning case (Hadacheck vs. Los Angeles), decided by the United States Supreme Court, affirming the Supreme Court of Cali- fornia: ‘Tt is to be remembered that we are dealing with one of the most essential powers of govern- ment, one that is the least limitable. It may, indeed, seem harsh in its exercise, usually is on some individual, but the imperative necessity for its existence precludes any limitation upon it when not exerted arbitrarily. A vested interest cannot be asserted against it beeause of condi- tions once obtaining. To so hold would preclude development and fix a city forever in its primi- tive conditions. There must be progress, and if in its march private interests are in the way they must yield to the good of the community.’’ (239 U. S., pp. 394, 410.) That cities have been appreciative of the ne- eessity of regulating the development of private property is best evidenced by the sudden and continued popularity of the zoning movement in this country. Since the adoption of the first comprehensive zone ordinance, that of New York City, July 25, 1916, there have been recorded to date nearly two hundred zoned cities. An in- teresting point in this connection is that this great movement is not being carried on by any particular class or size of city—ranging in size from Idlewild, Ohio, with a population of 131, to New York City, with approximately 6,000,000. ZONING IN MEMPHIS Memphis is the first city in Tennessee to adopt a comprehensive zoning ordinanee. At the 1921 session of the Tennessee Legislature this city was successful in securing, among other city planning acts, the passage of a comprehensive zone law. Though this was a local act, pertain- ing only to the city of Memphis, it embodied all the essentials necessary to good zoning. Imme- diately after securing the passage of this act, work was begun toward the end of securing the adoption of a comprehensive zoning ordinance, which necessarily entailed considerable prelim- inary study. In order to impose appropriate zoning regu- lations upon the development of all property, it was first necessary to obtain an intimate knowl- edge of all existing building development within Gpbileey the city. This necessarily required extensive field surveys and the preparation of numerous maps to illustrate the characteristics of the city’s present growth and future tendencies. In Mem- phis a complete and exhaustive study was made of the present development and all information was recorded on a series of study maps. Stupy Mars New City Map The nature of the zoning studies to be made previous to the preparation of the zoning ordi- hance required a corrected map of sufficient scale to insure legibility of the various indica- tions. No such map being available, it was nec- essary to prepare a new one, which was made in four sections at a scale of 500 feet to 1 inch. Mal Vo) 12) OY a Ab Use Map The first zone study map to be made showed by different color indications the use of every piece of property within the city. Differentia- tion was made between buildings used as one- family dwellings, two-family dwellings, apart- ment houses, commercial or retail stores, indus- trial enterprises, public and semi-public build- ings, and also city, railroad and vacant prop- erty, parks, cemeteries and the like. Height Map On this map was shown the variations in height of all existing buildings according to stories, a different color being used to indicate the following heights: 21% stories or less, 3 stories, 4 to 6, 7 to 8, 9 to 10; 11 to 12.33 toma: and 16 to 19 stories, inclusive. er 2 2 = = = = } cal A characteristic invasion which zoning is designed to prevent. [ 118 ]} ae Lee Ne Ngee Nie Gr CHOeMe Mees Salto N Area Map The percentage of the area of each lot occu- pied by a building, including accessory build- ings, was indicated on this map. Different colors were used to show all buildings occupying not more than 40% of the lot area, 41 to 60, 61 to 80, 81 to 90, 91 to 99, and buildings occupying the entire lot or 100%. Density Map In order to determine the intensity of the use of land, a study was made showing the number of square feet of lot area per family for all dis- tricts used for habitation. The different indica- tions showed areas having less than 625 square feet of lot area per family, 625 to 1,249, 1,250 to 2,499, 2,500 to 4,999, and 5,000 square feet or more. Assessed Land Value Map The assessed value of land was also illustrated WIND ROSES MEMPHIS TENNESSEE HARLAND BARTHOLOMEW CiTY PLAN ENGINEER 1922 " & N " we fy ye ww - tov soy : SS aS 0 Se ov Ne ai Se t 3 3 3 WINTER 1918 SPRING 1918 AUTUMN 1918, N N N n ww we nw Ne NW NE Nw Ne me y> fw ew Lome ac & NS \ aw se oS 3k w se s 3 $ SPRING 1919 SUMMER 1919 AUTUMN 1919 ” N N Me nw ye nw ne ON ue N A ew row c od 3e sw 3e 5 SUMMER 1920 AUTUMN 1920 YEAR 1918 N nw ne Ne v © oa % ‘ > SUMMER 1921 AUTUMN 1921 RAPHICALLY THE DIRECTION OF THE WIND R CF TIME THE WIND BLEW FROM Plate No. 50. One of the factors taken into account in planning industrial districts. by different color indications—the map showed the various values ranging from $25 a front foot or less, $26 to $50, $51 to $100, $101 to $250, $251 to $500, $501 to $1,000, $1,001 to $2,500, $2,501 to $5,000. Railroad-Industrial Map The locations of all railroads and industries were shown on this map, and distinction was made between different types of industries, un- objectionable and those which are offensive by reason of smoke, dust, noise or odor. Wind Rose Chart This chart represents graphically the direction of the winds for the various seasons throughout the year for the years 1918 to 1921, inclusive. SPECIAL STUDIES Non-Conforming Use Map Following the preparation of the two use maps, one showing present use of all property and the other the use districts as proposed under the zoning plan, a ‘‘non-conforming use’’ map was prepared to show all existing uses which did not conform to the regulations of the dis- trict in which they were situated. This map served as a check against the possibility of over- looking development and conditions already existing and which were deserving of consid- eration. Percentages of Different Uses A careful computation was made of the per- centage of the city’s area used for different pur- poses, i.e., residential, commercial and industrial. Upon the completion of the zoning plan a simi- lar estimate was made of the areas allotted to all uses. These two estimates are as follows: Use Present Under Zone Plan Industrial (and = un- PESLTICLEU NG wg... 22 o 3.6% 15.4% Commercialin. ats at 1.2% 6.3% Resid Cntial Wace nce 32.2% 40.3% Streets, parks, ceme- CePICS CLO toons 38.0% 38.0% Vacant property ..... 29.0% 100.0% 100.0% From these figures it is to be seen that com- merece and industry can both expand approxi- mately 800%, while there is still room for an [119 ] J» VE IN| AN 1D; RE sO) Oh aa increase in residential development of 25%. Thus under the zoning plan Memphis ean ac- commodate within its present boundaries a con- siderable inerease in commerce and industry, and on the basis of present intensity of residen- tial development an increase in population of approximately 40,000. At the present rate of growth, however, Memphis will soon absorb all the available residential areas within the pres- ent city, and the need of extending the city’s boundaries will become pressing. PREPARATION OF ZONING ORDINANCE After these and other preliminary studies were completed, tentative zoning plans were prepared dividing the city into districts and recommending certain restrictions upon the use, height and area of buildings to be erected in each district. Two maps were prepared, one showing proposed use districts—residence, com- mercial and industrial—and the other the height and area districts in which were limited the maximum height to which buildings may be erected, size of yards, courts, setbacks, and the minimum number of square feet of lot area per family. These maps were reproduced and pub- lished in tentative form, together with the pro- posed zoning regulations for each district. Fol- lowing the distribution of copies of the proposed ordinanee it received considerable publicity, and after several public hearings the zoning ordi- nance was approved by the City Planning Com- mission and transmitted to the Board of City Commissioners for its consideration and adop- Parkview Hotel at entrance to Overton Park. Zoning will prevent the recurrence of such anomalies. [ 120 ] YONG 7 Ie (OE ge Z, pf f fit rea a LA LALE Le 4, a= + Mame fame eng ree pe ae hae y ’ a es Fe ae ae ON Pe {i Pare ROO vr“ | PL lL ol ig : Z : UNION | RR ee | H IL ES = . ee ae ee ee il 1600 Z400 SCALE IN FEET. OUNTY POOR FARM co EICHT AND AREA | Bf sag +3 LS CITY PLANNING COMMISSION LEGEND G A HEIGHT & AREA DISTRICT Y B WEIGHT & AREA DISTRICT . . SN C HEIGHT & AREA DISTRICT WN BD HEIGHT & AREA DISTRICT E HEIGHT & AREA DISTRICT kof : & IZ iA Ss ELMWGOD 3 ry CEMETERY Se e- ah jamie a we |S a fs CigQgcAl PZLLWL ZZ (Z27NZZZAY TA 4 EXEARTS ret d FRISCO RAR FRISCO RR JEWISH CEMETERY eestor ——————-v1 Plate No. 51. Height and area district map. Ga? Tay PIL AwN Nel oN? G China M Ale S@eels ON tion. The ordinance was passed on November 7, 1922, and became effective immediately. MerempuHis ZONING ORDINANCE In defining the different districts and impos- ing the various regulations therein, considera- tion was given to all existing uses and to proba- ble future growth. The provisions of the ordi- nance as adopted are not retroactive. Any build- ing used for a specific purpose at the time of the passage of the ordinance and located in a district restricted against its use, may be con- tinued, but no structural alterations are permit- ted which would tend to perpetuate it as a non- conforming use. The ordinance further provides for an administrative board to interpret its pro- visions so as to carry out the spirit of the regu- lations where the enforcement of the strict letter of the law would work an unnecessary hardship upon an owner. This board, however, does not have the authority to make any changes in the ordinance, as this power must necessarily rest in the hands of the legislative body. Provision is made for the necessary flexibility to adjust the zoning plan to meet changes in conditions by reserving the right to the Board of City Commissioners to amend, supplement or change the ordinance after public notice and hearing. Thus the ordinance insures protection and at the same time is elastic enough to permit of amendments in order that it will not become restrictive as conditions change. No zoning ordi- nance could be made practicable or legal that did not provide for amendments, as cities must grow, and growth implies change; while, on the other hand, promiscuous changes should not be permitted lest the stability of the zoning ordi- nance be destroyed. The ordinance, therefore, provides certain precautionary measures to pre- vent unwarranted changes. SuMMARY OF ZONING ORDINANCE The zoning regulations are classified under five subdivisions: (1) Definitions, (2) Use Dis- trict Regulations, (3) Height and Area District Regulations, (4) Administrative Board, and (5) General Provisions. The ordinance is accom- panied by two maps, namely, ‘‘Use District Map,’’ Plate No. 49, and ‘‘Height and Area District Map,’’ Plate No. 51, which show the boundaries of the different districts. The vari- ous regulations of the zoning ordinance are summarized below. Zoning Ordinance. ) (See Appendix ‘‘F’”’ for User District REGULATIONS As shown on the ‘‘Use District Map,’’ the city is divided into five (5) kinds of use dis- tricts: ‘‘A’’ Residence, ‘‘B’’ Residence, Com- mercial, Industrial and Unrestricted Districts. Existing uses which do not conform with the provisions of the zoning ordinance are permitted to remain, but any change in use must be toward conformity. The following is a resume of the uses permitted in each use district: oe Nea Residence District : One-family and two-family dwellings, churches, schools, libra- ries, farming, and accessory uses incidental to the main use. ““B’’ Residence District : Any use permitted in the ‘‘A’’ Residence District; also apartment houses, hotels, clubs, boarding and_ lodging houses, hospitals, institutions, nurseries and green houses; accessory uses incidental to the main use, and public garages upon certain con- ditions. Commercial District: Any use permitted in the “‘B”’ Residence District; also retail stores and light manufacturing which is incidental to the retail business. Industrial District: Any use permitted in the Commercial District and any kind of indus- try other than that which ig noxious or objee- tionable by reason of the emission of odor, fumes, dust, smoke or noise. Unrestricted District: Any use permitted in the Industrial District and any other industrial use not excluded from the city by ordinances regulating the location of nuisances. HericguHt anp ArrEA Distrricr REGULATIONS As shown on the ‘‘Height and Area District Map,’’ the city is also divided into five (5) dif- ferent kinds of Height and Area Districts: pec eC eal) cand. Hi Heiehteand Area Districts. In each district provisions are made for controlling the maximum height of buildings and the minimum dimensions of yards, courts and setbacks, and the minimum lot area required for each family. Towers for oecu- paney, ornamental towers, monuments, spires, grain elevators and similar structures are not limited in height under the zoning ordinance. Certain exceptions are made for existing lots [121 } FeLaN@ay i: Reve SOmne. which are inadequate in size and could not rea- sonably comply with the area provisions. The following are, in part, the height and area regu- lations for the various districts: ‘‘A’’ Height and Area District Height: 385 feet, or 2% stories. Rear Yard: 25 feet. Side Yards: Two—5 feet wide on lots 40 feet wide or more; two—s feet wide on existing lots less than 40 feet in width. Setback: 380 feet, except that where twenty- five (25) per cent or more of the buildings on one side of a street have observed a minimum setback such existing setback shall be main- tained. Lot Area Per Family: 3,750 square feet; but existing lots having a smaller area held under a separate and distinct ownership are excepted. ““B”’ Height and Area District Height: 45 feet, or 3 stories. Rear Yard: 25 feet. Side Yards: Two—5 feet wide on lots 40 feet wide or more; two—38 feet wide on existing lots less than 40 feet in width. Setback: 30 feet, except that where twenty- five (25) per cent or more of the buildings on one side of a street have observed a minimum setback such existing setback shall be main- tained. Lot Area Per Family: 1,000 square feet. “OC”? Height and Area District Height: 90 feet, or 8 stories. Rear Yard: 25 feet. Side Yards: Two—6 feet wide. Setback: 30 feet, except that where twenty- five (25) per cent or more of the buildings on one side of a street have observed a minimum setback such existing setback shall be main- tained. Lot Area Per Family: 625 square feet. ““D” Height and Area District Height: 90 feet, or 8 stories. Rear Yard: 10 feet. Side Yards: Not required, but 5 feet wide if provided. Note: Buildings erected in this dis- trict for residential purposes shall comply with the regulations of the ‘‘C’’ Height and Area District. [122] “iy”? Height and Area District Height: 150 feet, or 12 stories. Side Yards: Not required, but 5 feet wide if provided. Note: Buildings erected in this district for residential purposes shall comply with the area regulations of the ‘‘C’’ Height and Area Dis- trict. Height and Area Exceptions In the “‘A’’ and ‘‘B”’ Height and Area Dis- triets public or semi-public buildings may be erected 75 feet in height by providing additional open spaces. In the ‘‘A’’ Height and Area Districts dwell- ings may be erected 45 feet, or three stories, in height by providing additional open spaces. In the ‘“‘E’’ Height and Area Districts a tower not exceeding one-quarter of the area of the lot nor 60 feet in its greatest horizontal dimension is not limited in height. Where a side or rear yard opens onto an alley or street, one-half of such alley or street may be treated as a portion of the yard. GENERAL PROVISIONS The Zoning Ordinance is enforced by the Com- missioner of Public Utilities, Grounds and Build- ings. Certificates for occupancy are required before a new building or a building to be struc- turally altered is occupied, or before any change is made in the class of use of an existing build- ing. In the case of a new building or the altera- tion of an existing building a certificate of occu- paney and compliance shall be applied for coin- cident with the application for a building per- mit and will be issued within ten (10) days after the completion of building if building com- plies with ordinance. No charge will be made for the original certificate. Under the provisions of the ordinance, any- one aggrieved at the ruling of the Commissioner of Buildings has the right of appeal to the Ad- ministrative Board, which is composed of the members of the City Planning Commission, and all appeals are promptly heard by it. Where private restrictions on property are more stringent than the provisions of the zoning ordinance, the private restrictions shall prevail. Where the provisions of this ordinance are more stringent than private restrictions, then this or- dinance shall prevail, or, in other words, the b Cae le Y: Pe Aw Ne Ne LeNeG GLO SM eMITS Sl ON provisions of this ordinance shall be held to be the minimum requirements for the promotion of the publie safety, health and general welfare. The ordinance may be amended by the City Commission from time to time, after public hearings and recommendation by the City Plan- ning Commission, but if the property owners in the neighborhood protest against such change, then it will require a four-fifths vote of the City Commission to effect a change. Use DISTRICTS As disclosed by the use study maps, Memphis is largely a city of single-family homes. In the older sections there is a pronounced tendency toward the two-family dwelling and a consider- able number of rear dwellings. The latter is no doubt a result of poor land subdivision in the early days when lots were made large and un- usually deep. This condition, however, obtains almost entirely in the older central districts. The apartment house development has not been concentrated in any particular section of the city. From the present use map it can be seen that these buildings have been located some- what promiscuously in that area bounded by the business district, Cooper Street, Peabody Avenue and Overton Park Avenue. The commercial and industrial growth of Memphis has also been hap- hazard. While there can be found considerable business logically located along the main thor- oughfares and industries along the railroads, there is a strong tendency evident for business to encroach upon all the residence sections. It is particularly to be regretted that Mem- phis did not possess control of the development along its parkway, which has been marred in certain places by a number of makeshift com- mercial structures. This is a striking example of the need of placing the community’s interest above that of the individual. Here the citizens of Memphis voted bonds to create a parkway which would be an asset to the whole commu- nity and at the same time enhance the value of abutting and surrounding property without cost to the owners. The land immediately adjoining was naturally most benefited, and it is unfortu- nate that the improvements by individuals were not made commensurate with the importance of the project. To the contrary and notwithstand- ing the fact that the city at large paid to create the values along the parkway, the individual owners retained unrestricted liberty in the use of their land and many abortions have resulted. Under the zoning plan there will result a natural segregation of the various types of build- ings in Memphis. Those areas best suited for residential use have been reserved for one- and two-family dwellings, and sufficient areas have been allotted for multiple dwellings and apart- ment houses. Those areas somewhat remote from the busi- ness center which are used or are well adapted for residential purposes because of topography, reasonable land values, the absence of traffic and the like, have been designated for residential uses, while the high apartment district is lim- ited to a large area immediately adjacent to the business district and well suited to this type of development. The very reason for the apartment house is efficiency and convenience, and this applies not only to its design but to its location as well. A study of city growth will show that a central location between the downtown business district and the outlying residential sections is not only the most convenient for apartment dwellers, but is the best location from the standpoint of or- derly and efficient community growth. In every growing city there is a transitional district be- tween the business center and the outlying resi- dential areas. Very often parts of such areas are used for industrial purposes, but the older residential sections, where traffic and land values have increased because of their proximity to the business district, usually become blighted. These districts are fully developed with public utili- ties, streets and transit facilities, but neverthe- less they usually remain idle for the want of proper development. This condition ean in part be attributed to the lack of zoning regulations to fix the character of these transitional dis- tricts. With the character of development once established and values stabilized under the zon- ing ordinance, the older, close-in residential see- tions should logically become the tall apartment districts.. When one considers the problem and cost of providing public utilities, streets, transit facilities and schools, the reason for concentrat- ing these buildings near the central business dis- trict becomes plainly apparent. In Memphis a large district, which is particularly well suited to this use, has been designated between Lauder- dale Street and Bellevue Boulevard, and Poplar Boulevard and Union Avenue. [ 123 ] ER leeNewAG: REESE OR SL As a matter of convenience to residents, ample commerce has been provided along the main thoroughfares and at their intersections. Con- siderable industry has been provided for along the railroads and the river, and the central busi- ness district is zoned for light industry, which permits of some types of manufacture. In the downtown district the lower floors of buildings are used almost exclusively for retail purposes, but the upper floors in some of the loft build- ings are usually used for light manufacturing purposes. Obviously, to exclude these would work a hardship on certain kinds of business. Inasmuch as it is difficult to classify industries of a like nature into different classes, together with the fact that land values control the type of use in the high value district, it was neces- sary and practicable to zone this area to permit of light manufacturing. Unrestricted industry has been permitted along the railroads to the southwest and north. Memphis has a very small proportion of what is termed unrestricted or objectionable industry which is offensive because of the emission of smoke, odor, dust or noise. It will be found on the Use District Map that the districts allotted to this purpose are somewhat limited in size. This is due to the fact that the present city areas adapted to this sort of use are now mostly built up with buildings which would be affected injuriously by such use. Furthermore, the most logical place for such development is to the northeast beyond the city limits. This district is now being used for industrial purposes and is well adapted to further development. It would have the added advantage of being well located in reference to the prevailing winds, which are from the south and southwest. All smoke, odor and dust would be carried away from the city rather than across it. Hericutr Districts The prevailing height of buildings in Mem- phis, as in most cities, is two and one-half stories, or less. This ineludes a considerable portion of the business structures and most all of the resi- deneces. The existing apartment houses vary in height from three to six stories, and with the exception of the high office building district practically all buildings are six stories or less. Including all tall buildings heretofore erected and those nearing completion, Memphis will have [124] but seven structures which will exceed the height limit of 150 feet (twelve stories). Under the height limitations of the zoning ordinanee the general character of residential development is preserved by limiting the build- ings to two and one-half stories, while greater heights are permitted for apartments and busi- ness, the greatest height naturally being permit- ted in the central business district. In the large industrial and high apartment house districts buildings are permitted of ninety feet, or eight stories. In the central business district the lim- itation is 150 feet, or twelve stories. In spite of the fact that experience has proved that skyscrapers of unlimited height are not only uneconomical but injurious to the commu- nity, there still can be found some sentiment in favor of them. Fortunately, however, the desire for high buildings gradually disappears when the resultant problems are fully understood. Aside from the necessity of limiting the height of buildings for the purpose of obtaining sufficient light and air, the congestion of traffic on both sidewalk and street presents a serious problem. This can only be solved by limiting the maximum height of buildings and spreading out the development in the congested area. The business district of Memphis, which is true of nearly every city, is the original town site. Its streets were laid out primarily to pro- vide access to the abutting property. In addi- tion to this the streets accommodated vehicles and provided light and air to the low buildings which lined them. With scarcely any change in either the plan or width, these same streets are now expected to serve the occupants of tall buildings and to accommodate much more pedes- trian and vehicular traffic than they can reason- ably carry with freedom and safety. It is generally admitted by those who are qualified to speak that there is no financial jus- tification for very tall buildings. On the other hand, there is every good reason, from a stand- point of health, safety and general welfare, for limiting buildings to a reasonable height. It is often argued that height limitation retards city growth. This is exactly contrary to the facts evidenced by experience. For example, Los An- geles has an ordinance limiting the heights of buildings to twelve stories, yet it is the fastest srowing city of the West. As a matter of fact, Memphis, with its height limitation of twelve a ores, is etre tin & ; f ying one i) A Hee stoiningxe fabsteubal sot witinsitegao gatwode 188 bs ” aN ‘a See i —— ee “gts eee ~ = Ce ir J ig! es, ; > : 3 4 Ba eS 7 ) ; om . ‘ , - : til : ai el — * 2 - 7 ‘ " e ame % “9 7 , P MEMPHIS TENNESSEE INDUSTRIAL AREAS CITY PLANNING COMMISSION COPYRIGHT 1922 © LEGEND PRESENT AREAS. USED FOR INDUSTRIAL PURPOSES _UNDEVELOPED “AREAS AVAILABLE FOR INDUSTRIAL PURPOSES DEVELOPED AREAS USED Vib ae WG FoR OTHER PURPOSES AND ZONED FOR INDUSTRY INDUSTRIAL ZONES AS OUTLINED ON. ZONE PLAN a os | i : ee ee | ee | Se Noe TS A ce fn = CIT WL sh S| NJ = = A ! Z | go> i] aja ae ANP ; = = soos sear HARLAND BARTHOLOMEW ste ts H CITY PLAN ENGINEER — aes ST. Louls missount Plate No. 52. Showing opportunities for industrial expansion. Craplae Leys Ee eA sone NG TooNe} G CRORM MeisS Se lO = N stories, is enjoying one of the greatest building activities in the business district that it has ever experienced, and the zoning ordinance has been in effect over a year. AREA DISTRICTS The area of the lots occupied by buildings with their accessory buildings varies from 40% or less in the residence areas to 100% in the downtown district. The setbacks, side and rear yards, and courts vary considerably, depending upon the district. In the newer residential see- tions, where the typical lot is 50x150 feet, good standards have been observed for providing open spaces about the buildings. This is further illus- trated on the density map, which shows, with the exception of the older districts, that the ee ee \ \ MEMPHIS \ \/t TENNESSEE 4 AREAS SUITABLE [OR OUTSIDE OF PRES 17 SCALE IN MILES ° aMILE R INDUSTRIAL ala AREAS BEYOND SUITABLE FOR INDUSTRIAL USES}\ == MAIOR STREETS IN AREAS BEYO PRESENT CITY LIMITS. sams PARKWAYS AND BOULEVARDS IN AREAS BEYOND CITY LIMITS. residences generally have a lot area of 5,000 square feet or more per family. In the older districts the lot area per family varies greatly because of poor land subdivision and consequent haphazard development. Instances of a peculiar practice abound in the old residential sections. There the blocks usually are large and of irregu- lar sizes. Houses were originally built fairly close to the streets bounding the block, thus leaving a large, unoccupied area in the center. At a later date this undeveloped land in the interior of the block was utilized for smaller structures, which resulted in a conglomeration of rear lot buildings without street frontage. Typical examples of this type of development are illustrated on Plate No. 54, showine the overcrowding of land. a avenue Ba . 3[Whites}—— Poe ‘\ | ) |rcsvcan sous} ioe ee { —_HARLAND( BARTHOLOMEW. —~_ CITY | PHAN ENGINEER “4 SAINT | Lous MISSOURI / —s i H ) Plate No. 53. Suggesting the logical uses of property beyond the present boundaries. [ 125 ] PoeleN eA E: While the zoning ordinance must take cogni- zance of all these existing conditions, its opera- tion must also prevent all such deformities in the future. In order, therefore, to obtain certain minimum requirements necessary and conducive to good living conditions and at the same time not be confiseatory, the ordinance contains mini- mum setbacks, yards, courts and lot area per family provisions, and excepts, under certain conditions, those small lots which cannot reason- ably comply with the regulations. It is also well in imposing area regulations to take into account present customs and practices in each community. In Memphis, for instance, it was decided to permit two-family dwellings in the ‘‘A’’ residence district, and in order to be consistent this type of building is permitted on a typical lot of 50x150 feet, or an area of 7,500 square feet. Hence the lot area provision in the most restricted district requires 3,750 square feet per family. The lot area require- ment is reduced for multiple dwelling and apart- ment districts, depending upon the location and height of buildings; the requirement in the high apartment district being 625 square feet per family, which is equivalent to nearly seventy families per acre. It is generally admitted that the apartment house has a logical place in the larger cities at least, and that the present cost of building con- struction necessitates the maximum amount of economy. The so-called efficiency apartment, however, is presenting a problem which should concern every growing community. Not only are these buildings being permitted to exceed reasonable height and area regulations, but they are attempting to house a far greater number of families on a limited lot area than is econom- ically necessary. And inasmuch as the primary purpose of city planning and zoning is to regu- late and distribute the population of a city for the protection of health, safety and general wel- fare, the surest and safest way to accomplish this is by density regulation. In the majority of cities where the efficiency apartment is just beginning to be exploited and where land is reasonable and plentiful, it is dis- astrous for the community to permit high densi- ties in apartments. This not only has its reac- tion in the disruption of property values, but makes it utterly impossible to forecast with any degree of accuracy the needs of certain districts [126] TYPICAL EXAMPLES OF POOR LAND SUBDIVISION & ~~ OVERCROWDING OF LAND MEMPHIS TENNESSEE CITY PLAN COMMISSION SCALE IN FEET WHEL “WH a 3 ES WIS GIS NASK SUUNN is Plate No. 54. Lack of zoning regulations and subdivision rules has permitted certain abuses of property within the present city. in the way of public utilities, transit facilities, schools and streets. Density regulations, if well eoneeived and reasonably applied, will insure better living conditions and make it possible to build a city to meet its ultimate needs. LAND VALUES Land values are the result of a number of influences, important among which might be mentioned accessibility, traffic conditions and character of use. Accessibility in a sense is ben- eficial to all land, while, on the other hand, traffie affects various districts in different ways. Business values, for example, are enhanced by the presence of traffic. Conversely, in residen- tial sections values are appreciated by the ab- sence of traffic. The need of well-defined thor- oughfares to segregate traffic on certain streets and the lack of zoning regulations are reflected in the land values of Memphis. In the residen- tial sections the values are fairly uniform, while there is a noticeable variation along some of the business thoroughfares. No doubt the latter can, in many instances, be attributed to poor street Ci ae Lae Ys 1B Ab ANOINTING; COR Vie Mae les SiS len OmeN development, as, for example, Union Avenue. The values were higher on this street for a stretch of several blocks east of East Street, which is more than one mile distant from the business district, than they were just east of DeSoto Bayou, only a few blocks from the busi- ness area. This general condition, of course, is unnatural, but it has been largely readjusted as to Union Avenue by its present widening. The same condition as to values is true of Second Street, Third Street and Jefferson Avenue, but this will be corrected by the improvement of each now progressing. With proper street im- provement and the character of all districts fixed under the zoning ordinance, there should result a more uniform distribution and stabilization of property values. The Memphis zoning ordinance has now been in operation one year and there are already in- dications of its beneficial influence. Business which has heretofore scattered haphazardly throughout the city is now finding its logical place in those areas best adapted to and set aside for that purpose. Moreover, the argument so commonly and mistakenly used that zoning restrains city growth is nowhere refuted more conclusively than in Memphis. This city, with its zoning ordinance in effect, is enjoying one of its most prosperous years in building activity. The ordinance has been in effect since Novem- ber 7, 1922, and for the twelve months succeed- ing there have been issued 5,236 building per- mits, aggregating in cost $20,720,169. These permits have been issued and construction begun on the great majority of the buildings without a single change having been made in the text or plans of the ordinance as adopted. Several cases, however, have come before the Adminis- trative Board for interpretation where the ordi- nance might have worked a hardship on the owner, but these required only minor adjust- ments due to peculiar conditions. The changing skyline. { 127] natn mbna ART Mos et oie pel tt 23 a eNOS Mn yarear BE RE NA. LITEM NT EMail IBElh—(B EC S~ sea) | Forrest monument in Forrest Park. There should be many other monuments of this character in Memphis. [ 128 ] Carlee y, Pie Awe N ee Nea La Nia G Ca OmM~ MeleSeS ly ON CIVIC ART HE economie and social significance of the plan for the betterment of Memphis is well revealed in preceding pages. Street improvements are proposed for the pur- pose of stimulating circulation and making in- tercourse between districts easier and more eco- nomical. Street railway plans are offered as means of lessening congestion, with its attend- ant costs. Transportation changes are suggested to reduce the expense of duplicated effort and unnecessary conflict between carriers. Complete provision for all recreational needs is recom- mended as a means of preserving and improving public health. A zone plan has been prepared and adopted to advance the public welfare gen- erally through conservation of property values and direction of an orderly, healthful building development. The accomplishment of the aims set forth will noticeably increase the attractiveness of Mem- phis. Any improvement which tends to help the city to function properly will add to its drawing power. But to preserve its standing among pro- gressive cities, Memphis must do more than merely increase efficiency and preserve health. The appeal to the eye is not to be ignored in a betterment plan. This phase of civic development likewise has attractive possibilities. The pride of the citizen is stirred as his city rises above the common- place. The interest of the visitor is won by the dignity and distinction of the city as revealed in its appearance. A Memphis proud of its commercial or industrial supremacy could no better express the fact than through an enliv- ened interest in civic art. It is a notable fact that American cities gen- erally have neglected opportunities in this field. Ugliness has been accepted as if it were un- avoidable. Positive, determined municipal ef- forts in the encouragement of beauty are rare. With the exception of Washington, D. C., there is no city which stands as a praiseworthy exam- ple, influencing, as Paris does, the improvement a a of appearances in all cities around. There are no accepted standards and few public works of merit by which tastes may be elevated. Memphis, by comparison, has done well in developing its attractions. Its leading citizens have always had a high regard for cultural values. They have urged. their city to create beautiful parks, impressive public buildings and other features. Memphis, despite the hardships of war and pestilence and virtual bankruptcy, has been able in a measure to satisfy these de- sires. Here and there the city has risen above a mere materialistic existence and created civic monuments that splendidly typify the idealism of the old South. The city has resisted the pressure of expand- ing business interests and preserved Court Square. The open space makes the business dis- trict attractive, and Memphis is pleasantly re- membered by many visitors because of this one feature. The river front parks, Confederate and Chick- asaw, also give character and distinction to Memphis. While today they are but mere hints of what the founders intended them to be, their service in improving the appearance of the waterfront is by no means negligible. The pride of Memphis, however, is in the outer parks and parkway, acquired about 1902. These grounds, despite the fact that they serve a great variety of recreational interests and are intensively used, contribute notably to the charms and attractions of Memphis. Forrest Park, though small, has been designed and developed for maximum effectiveness. It provides an appropriate setting for the Forrest monument, which in itself is one of the city’s artistic treasures, and at the same time affords play space for the children of the neighborhood. This park, useful as it is, retains a dignified and impressive appearance. Improvements in the Fair Grounds, further- more, show excellent taste. This area is being developed in an orderly manner; the buildings are harmonious. This institution, unlike many [ 129 J 1M INE Te 1b, Int Ie; 127 (@) Any “ah Shelby County Court House, a building which deserves a better setting. (Police Station on left; Municipal Auditorium under construction in background.) others elsewhere, will not be a hodge-podge, mis- cellaneous assortment of shabby structures, neg- lected during the greater part of the year. It will be in use and will be attractive at all times. The investment, as a consequence, will bring greater returns in recreation and pleasure. Other public works in Memphis are of high standard. The Shelby County Court House, which also contains the executive offices of the city, is a building of surpassing dignity and beauty. It derives as much advantage as pos- sible from its setting on a small plot, but needs an open space in front for the full display of the superb architecture. The Central Police Building erected by the city is a worthy companion of the Court House. The new Criminal Courts and Jail, which will be located on the block immediately north of the Court House, will round out the group extremely well. The Brooks Memorial Art Museum, in Overton Park, has,a charm which its park loca- tion greatly accentuates. These structures give Memphis distinction. They are far above the average in ability to delight the eye. In private works the citizens of Memphis have [ 130 ] freely recognized the appeal of things beautiful. Many old homes have been preserved. Their stately magnificence greatly adds to the char- acter of the city today. The newer homes, both large and small, are likewise of exceptional merit. Memphis abounds in bungalow districts - that are unusually attractive. On its residential streets there are many homes, both large and small, that cannot but create favorable impres- sions of the city. Every feature that adds to the attractiveness of Memphis, however, has come into existence without reference to a city-wide plan. Only the early squares and promenades, shown in Plate No. 38, were econeeived as integral, functional parts of the city’s structure. But they lost significance when, many years ago, the city failed to take advantage of the opportunities presented. Today the river front as a whole is far from attractive to the eye. The Parkway is damaged by utilitarian traffic, which was not provided for elsewhere. The magnificence of the Court House and Police Building is to a degree lost through inappropriate surroundings. Other public buildings, such as Cossitt Library and Cae lea: eer se Nie Noe Le Nie Gr CeOe MEM ae S aoe le Os N the Auditorium, suffer similarly from restricted sites. The shorteomings of the features noted might have been obviated if Memphis had looked ahead. The river front promenades should have been preserved and extended. Parallel utilitarian streets should have been developed along with the Parkway. Public buildings should have been grouped on sites provided for them. No extra expense would have been involved. By follow- ing well-prepared plans and anticipating growth and expansion the city would merely have pre- served and enhanced the value of its work. It is still possible to devise a program for the improvement of the city’s appearance. The city plan, though dealing principally with more fun- damental problems, nevertheless recognizes the usefulness and need of proper civie adornment. An anticipatory plan for the guidance of such work, therefore, is linked with street, transit, transportation and zoning plans. Merely by taking advantage of opportunities and favorable conditions resulting from improvements in these latter fields the city can develop a more distine- tive and attractive character. The chief require- ment is an acceptance of the principle that civie art is a civic necessity, and that this phase of the city’s development ean be planned in ad- vanee and systematically carried forward with- out necessarily involving extravagance or waste of public funds. A Civic Art PRoGRAM In the development of a serviceable and effi- cient street system Memphis will have many op- re | a ” x z < x 4 “\| aTeN§i0" COMPLETED T i HARLAND BARTHOLOMEW - City PLAN ENGINEER. portunities to combat ugliness and to create new and more pleasing street pictures. The exten- sion of such streets as Lauderdale, Gayoso and Mississippi will tend to brighten up and rehabili- tate districts that now are no credit to the eity. In such instances also a careful regard for curves and intersections will increase the attrac- tiveness of the new thoroughfares. The inter- section of the North Parkway and Jackson Ave- nue is again presented as an illustration of the opportunities which street improvements offer for civie art. When Jackson Avenue is widened and High Street developed as a part of the parkway system, the intersection plan shown in Plate No. 55 should be carried out. Comprehen- sive planning implies an acceptance of all such chances to improve the character and appear- ance of the city. The plan for widening Court Avenue and making it a part of the parkway system is essen- tially related to civie art. There are inspiring possibilities in the view down this street from either end. = APPENDICES A—City PLANNING AcT B—Zonine Act C—APPROVAL OF SUBDIVISION ACT D—Buiitpine LINE Act E—Crity PLANNING CoMMISSION ORDINANCE F'—ZoNING ORDINANCE G—-RvuLEs ror LAND SUBDIVISION [149 ] Balen ASE RrESh SO PRL Applies to Memphis Commission Ex Officio Members Term of Office Removal from Office Meetings Duties Co-operation [ 150] APPENDIX A CITY PLANNING LAW HOUSE BILL NO. 427—CHAPTER 162—PRIVATE ACTS: 1921 AN ACT to empower all municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any subsequent Federal census, to provide for the establishment, government and maintenance of a City Planning Commission in such municipalities: 'To prescribe the powers and duties of such Planning Commission, and to vest in such commissions jurisdiction over all new subdivisions or re-subdivisions of land within the corporate limits of such municipalities. SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, that the legislative body of all incorporated municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any subsequent Federal census, are hereby authorized and empowered by ordi- nance, duly passed, to create City Planning Commissions for such municipalities. SECTION 2. BE IT FURTHER ENACTED, that such City Planning Commission shall consist of eight citizen members, to be appointed by the Mayor, subject to the approval of the legislative body of the municipality, and four members ex officio. The Commissioner of Streets, Bridges and Sewers, the Commissioner of Public Utilities, Grounds and Buildings, the Chairman of the Park Board and the City Engi- neer shall be ex officio members of the Commission, and, in addition, there shall be a Secretary, to be likewise appointed by the Mayor. The Secretary shall have custody of the books and records of the Commission, but he shall have no vote. The term of the Chairman shall be for one year, and he shall be elected by the City Planning Com- mission and shall hold office until his successor is elected. The citizen members of the Commission first appointed shall serve, respectively, two for one year, three for two years, and three for three years. Thereafter members shall be appointed for terms of three years each. Vacancies shall be filled by appointment for the unexpired term only. All members may be removed at any time, by a majority vote of the legislative body of the municipality, for cause. The Secretary shall hold office at the will and pleasure of the Mayor. Neither the members of the Commission nor the Secretary shall receive compensation for their services, but allowances for actual expenses in connection with duties performed may be made. SECTION 3. BE IT FURTHER ENACTED, that the members of the City Planning Commission shall meet, at least once a month, at such times and places as they may fix by resolution. Special meetings may be called, from time to time, by the Chairman. Five members of the Commission shall constitute a quorum, for the transaction of busi- ness, The Commission shall cause proper record to be kept of its proceedings. SECTION 4. BE IT FURTHER ENACTED, that it shall be the duty of the City Planning Commission to collect data and to keep itself informed as to the best prac- tices, and the advancement made generally, in the art of City Planning, to the end that it may be qualified to act on matters that effect the present and future movement of traffic, the convenience, the safety of persons and property, the health, the recrea- tion and the general welfare and amenities and all other needs of the municipality, which are dependent upon the city plan. SECTION 5. BE IT FURTHER ENACTED, that it shall be the duty of all city departments to render assistance to the Planning Commission in the way of informa- tion, advice and co-operation. However, it is not intended to supplant nor impair the power of any existing board, bureau or commission, already in existence and operating under charter provisions and ordinances, except that matters coming within the purview of the Planning Commission shall be referred to that body, to the end that there shall be a proper correlation of thought and the furtherance of comprehensive plans for all betterments carried out by the city. Caley meee Nee Ni Lae Gr Gr OFM Mere Ss Sale ON Plans and Maps Recommenda- tions Improvements to be approved New subdivision submitted for - approval Sewers, Water and Gas Mains May employ architects, engineers and clerical help SECTION 6. BE IT FURTHER ENACTED, that it shall be within the further powers and dealings of the Commission to make plans and maps of the whole or any portion of the municipality or any land outside of the municipality, which, in the opin- ion of the Commission, bears a relation to the planning of the municipality, and to make changes in such plans or maps when it deems same advisable. Such plans shall show the Commission’s recommendations for any streets, alleys, ways, viaducts, bridges, subways, railroads, terminals, transit lines, parkways, parks, playgrounds or any other public grounds or public improvements, and the removal, relocation, widening or exten- sion of such public work then existing. The Commission shall have authority to recom- mend provisions for the preservation and care of historical landmarks, control in the manner provided by ordinance, the design and location of statuary, and other works of art which are, or may become, the property of the municipality, and the removal, relocation and alteration of such works belonging to the municipality and the design and location of harbors, bridges, viaducts, street fixtures and other public structures and appurtenances. SECTION 7. BE IT FURTHER ENACTED, that whenever the Legislative body of the municipality shall have adopted a city plan recommended by the City Planning Commission, no public buildings, streets, alleys, ways, viaducts, bridges, subways, rail- roads, terminals, transit lines, parkways, parks, playgrounds or any other public grounds or public improvement or part thereof, shall be constructed until and unless the loca- tion thereof shall be approved by the City Planning Commission; provided, however, that in case of its disapproval, the City Planning Commission shall communicate its reasons for disapproval to the legislative body of the municipality, and thereupon, by majority vote of such legislative body, it shall have the power of overruling such dis- approval. The widening, narrowing, ornamentation, vacancies, or change in the use of streets and other public ways, public grounds or other public improvements, appearing on the adopted plan, shall be subject to similar approval by the Planning Commission and upon disapproval by the Planning Commission may be similarly overruled. The Planning Commission may make recommendations to any public authorities, or to any corporations or individuals in such municipality, or in the territory contiguous thereto, concerning relocation of any building, structures or works to be erected or constructed by them. SECTION 8. BE IT FURTHER ENACTED, that all plans, plots or replots of lands laid out in building lots, into streets, alleys or other portions of the same, intended to be dedicated to public use, or for the use of purchasers or owners of lots fronting on or adjoining, and located within the corporate limits of the municipality, shall be sub- mitted to the City Planning Commission for approval; provided, however, that in case of its disapproval, the City Planning Commission shall communicate its reasons for disapproval to the legislative body of the municipality, and thereupon, by majority vote of such legislative body, it shall have the power of overruling such disapproval. The approval of the City Planning Commission or legislative body shall be deemed an acceptance of the proposed dedication, but this shall not impose any duty upon the municipality, concerning the maintenance or improvement of such dedicated parts, until the proper municipal authority shall have made an actual appropriation of same, by entry, use or improvement. No sewer, water or gaS main, or pipes or other improvements, shall be voted or made, nor shall any public money be expended for the benefit of any such purchaser or owner; nor shall any permit for connection with, or other use of any such improvement existing, or for any other reason, be given to any such purchasers or owners until such plan is so approved by the City Planning Commission or legislative body. No sewer, water or gas main or pipe or other improvements shall be voted or made, nor shall any public money be expended within any lands laid out in building lots, streets and alleys, until the plan, plot or replot of such lands shall have been approved by the City Planning Commission or legislative body. SECTION 9. BE IT FURTHER ENACTED, that the City Planning Commission shall have power to control, appoint or employ such architects, engineers, and other professional services, and to appoint such clerks, draftsmen, and other subordinates as it shall deem necessary, for the performance of its functions, the expenditures for such service and employment to be within the amounts appropriated for the use of the City Planning Commission. [151] Fol oNnr ack R2EGR.O ORS Annual report [ 152 ] SECTION 10. BE IT FURTHER ENACTED, that the City Planning Commission shall make to the legislative body of the municipality an annual report, giving a resume of its work during the preceding year. In such report it shall also make recommenda- tions as to future projects to be undertaken, and, from time to time, they shall also make like recommendations for public improvements which, in its judgment, should be undertaken. SECTION 11. BE IT FURTHER ENACTED, that should any section hereof be declared unconstitutional by a court of competent jurisdiction, such holdings shall not invalidate the remaining sections hereof, but they shall remain in full force and effect. SECTION 12. BE IT FURTHER ENACTED, that this act shall take effect from and after its passage, the public welfare requiring it. Cela ii y Pa eae NaN eN® G COM MISS. )b.0 -N APPENDIX B ZONING LAW HOUSE BILL NO. 124—CHAPTER NO. 165—PRIVATE ACTS: 1921 AN ACT to empower all municipalities having a population in excess of one hun- dred and sixty thousand inhabitants by the Federal census of 1920, or by any subse- quent Federal census, to provide for the establishment of districts or zones within the corporate limits, and to empower such municipalities, by ordinance, to regulate within such zones or districts the use or uses of land, the height, the area, the size and the location of buildings, the required open spaces for the light and ventilation of such buildings and the density of population; to provide for a board of appeals, and for the carrying out of such ordinances, and to provide a penalty for the violation thereof. Applies to SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, Memphis that the legislative body of all municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any sub- sequent Federal census, may regulate and restrict, by ordinance, the location of trades and industries and the location of buildings designed for specified uses, and, for said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. Barbs For each of such districts, regulations may be imposed by ordinance, designating District h f hich buildi ; 3 , be Ronan the uses for whic uildings may or may not be erected or altered, and designating 9 the trades and industries that shall be excluded or subjected to special regulations. Such regulations shall be in accordance with a plan designed to lessen congestion on the public streets, to promote the public health, safety, convenience and general wel- fare, and shall be made with reasonable consideration, among other things, to the character of the district, its peculiar suitability for particular uses, the conservation of property values, and the direction of building development. SECTION 2. BE IT FURTHER ENACTED, that such legislative hody may regulate by ordinance and limit the height, the bulk of buildings hereafter erected or altered, and regulate and determine the percentage of land area to be devoted to yards, courts, and other open spaces, and, for said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. Such regulations shall be uniform for each class of buildings through- out each district, but the regulations in one or more districts may differ from those in other districts. Such regulations shall be designed to lessen congestion on the public streets, to secure safety from fire and other dangers, to promote the public health and welfare, including provisions for adequate light, air and convenience of access, and shall be made with reasonable regard to the character of buildings erected in each district, the value of land and the use to which it may be put, to the end that such regulations will promote the public health, safety and welfare, the most desirable use for which the land of each district may be adapted, and tend to conserve the value of buildings and to stabilize the value of land throughout such districts. Dwelling and SECTION 3. BE IT FURTHER ENACTED, that the legislative body of such munici- T t palities may, by ordinance, limit and restrict the maximum number of families which eer may be housed in dwellings or tenement houses hereafter erected or altered, and, for Houses said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. The regulations adopted for one or more districts may differ from those adopted for other districts. Such regulations shall be designed to limit the overcrowding of land and to avoid undue congestion of population, to facilitate adequate provision of transit, water, sewage disposal, education, recreation and other public requirements, and to promote the public health, morals, safety, convenience and general welfare. [ 153 ] dt Ne AYe ib Rita ORR aL District Boundaries Regulations, Adoption of Amendments Protests Administrative Board Buildings and lots, size of Lawful use of premises [ 154 ] SECTION 4. BE IT FURTHER ENACTED, that in a municipality having a city planning commission appointed pursuant to a statute or local charter or ordinance, the legislative body shall require such commission to recommend the boundaries or districts and appropriate regulations to be enforced therein. Such commission shall make a tentative report and hold public hearings thereon, at such times and places and upon such notice as said legislative body shall require, before submitting its final report. The legislative body shall not determine the boundaries of any district, nor impose any regulations until after the final report of such city planning commission. After such final report is submitted to the legislative body, and final adoption of regulations by ordinance, the legislative body may, from time to time, amend, supple- ment or change by ordinance the boundaries or regulations so adopted. Notice of the adoption of such amendment, supplement or change in the ordinance shall be given by publishing such notice three (3) times in some daily newspaper of general circulation in such municipality. Such notice shall state the time and place, not earlier than ten days from the last date of such publication, at which the legislative body of such municipality shall meet, to hear remonstrances or protests against the making of such amendment, supplement or change. At the time and place thus appointed, the legislative body shall meet and all per- sons whose property will be affected by such amendment, supplement or change, may appear in person, or by attorney or by petition, and protest against making of such amendment, supplement or change, and after hearing such protests, if any, said legis- lative body may confirm, modify or rescind such ordinance in whole or in part. If, however, a protest against such amendment, supplement or change be presented in writing to the City Clerk, within ten days from date of last publication, duly signed and acknowledged by the owners of 20% or more of any frontage proposed to be altered, or by the owners of 20% of the frontage immediately in the rear thereof, or by the owners of 20% of the frontage directly opposite the frontage proposed to be altered, such amendment, supplement or change shall not be passed except by a four- fifths vote of the legislative body. SECTION 5. BE IT FURTHER ENACTED, that the legislative body may create an administrative board to administer the details of the applications of the ordinance and regulations, and may delegate to such board, in accordance with provisions set forth in the regulations, the power to hear and determine appeals from the refusal of building permits by building commissioners or other officers and to exercise jurisdictional pow- ers with respect to the administration of the regulations as specified therein; or these administrative powers and functions may be delegated by the legislative body to the city planning commission. SECTION 6. BE IT FURTHER ENACTED, that wherever the provisions of any ordinance or regulation adopted by the legislative body under the provisions of this act impose requirements for lower height of buildings, or a less percentage of a lot that may be occupied, or require wider or larger courts or deeper yards than are imposed or required by existing provision of law or ordinance, the provision of this act shall govern. Where, however, the provisions of the building code or other ordinance or regulation of any municipality impose requirements for lower height of buildings, or less percentage of lot that may be occupied, or require wider or larger courts or deeper yards than are required by any ordinance or regulation which may be adopted by the legislative body under the provision of this act, the provision of said building code or other ordinance or regulation shall govern. SECTION 7. BE IT FURTHER ENACTED, that the lawful use of a building exist- ing at the time of adoption of an ordinance under the provisions of this act, although such use does not conform to the provisions of such ordinance, may be extended throughout the building, provided no structural alterations, except those required by law or ordinance, are made therein. Where no structural alterations are made in a building of a non-conforming use, such use may be changed to a use of a similar or higher classification, according to the provisions of ordinances and regulations adopted under the authority of this act. The lawful use of a premises existing at the time of adoption of an ordinance under the provisions of this act, although such use does not conform to the provisions of such ordinance, may be continued; but if such non-conforming use is discontinued, any future use of said premises shall be in conformity with the provisions of ordinances and regulations adopted under the authority of this act. Gi Whe ARs NG Fp oe Aan NeeN © LeeNGG Ce OUMEM ErSsS oO N Change in Buildings Building Permits Where structural alterations are made in a building of non-conforming use, such building shall be changed in conformity with the provisions of ordinances and regula- tions adopted under the authority of this act for the district in which such building is located. When the boundary line of any use district divides a parcel of ground in common ownership, at the time of the adoption of the ordinance, under the provisions of this act, nothing herein shall be construed to prevent the extension of the use existing on either portion of such parcel of ground to the entire parcel, but for a distance of not greater than twenty-five (25) feet. Nothing in this act shall be taken to prevent: (a) the erection of a building for which a permit shall have been issued previous to the passage of an ordinance under the provisions of this act; (b) the restoration of a building destroyed to the extent of not more than 75% of its reasonable value, by fire, explosion, an act of God, or the public enemy, and the occupancy or use of such building or part thereof, if such use existed at the time of such partial destruction; (c) the restoration of a wall declared unsafe by the Building Inspector. SECTION 8. BE IT FURTHER ENACTED, that should any section or provision of this act be held to be unconstitutional or invalid, the same shall not affect the validity of the act as a whole or any part thereof, other than the part so held to be uncon- stitutional. SECTION 9. BE IT FURTHER ENACTED, that this act shall take effect from and after its passage, the public welfare requiring it. [ 155 ] Bel oN ASL Re ESPROF RT APPENDIX C APPROVAL OF SUBDIVISIONS LAW HOUSE BILL NO. 425—CHAPTER 164, PRIVATE ACTS: 1921 A BILL to be entitled, “An Act to provide for the approval by municipal authorities, before filing, and for the filing, of plans, plots or replots of lands lying in cities having a population of one hundred and sixty thousand (160,000) or over, according to the Federal census; to define the duties of County Reg- isters in counties in which such cities may be situ- ated, with reference to filing and recording plans, plots or replots of lands in such cities. To regulate the filing of plans, plots or replots of lands lying in such cities; and to make it a mis- demeanor in office for any County Register to vio- late the provisions of this Act. SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, that in all cities having a population of one hundred and sixty thou- sand (160,000) or over, according to the Federal cen- sus of 1920, or any subsequent Federal census, all plans, plots or replots of land lying within the limits of such city, laid out in building lots, and streets, alleys, squares, parks, or other portions of same, in- tended to be dedicated to public use, or for the use of purchasers or owners of lots fronting upon any such square, park, street, alley or boulevard, or ad- jacent thereto, or lying or being within the boun- dary of the said tract or parcel of land, and located within the limits of any such city, shall be submitted to the Board of Commissioners, or other legislative body having general charge and supervision of the design, construction and maintenance of city streets; and all such plans, plots or replots shall be approved by such Board of Commissioners or other legislative body before they shall be tendered for record to the County Register. Said plans, plots or replots shall be examined by such Board with a view of ascer- taining whether such plans, plots or replots conform to the general laws relating to plots within the city, and that streets, alleys, boulevards, parks and public ways or places shall conform to the general plan of the city, and not conflict or interfere with rights-of- way of streets, or alleys, already established. If such plans, plots or replots shall conform to the laws of the state and ordinances of such city; and if they [ 156 j shall fall within the general plan for the extension of such city, regards being had for public streets, sewer connections, water service, and service of other utilities, then it shall be the duty of said Board, or other legislative body, to endorse its ap- proval upon the plan, plot or replot submitted to it. The approval of such Board, or other legislative body, shall be deemed an acceptance of the proposed dedication for public or private use, as the case may be; but shall not impose any duty upon the city con-. cerning the maintenance or improvement of any such dedicated parts until the proper authorities of the city shall have made actual appropriation of the same by entry, use or improvement, and owners and purchasers shall be deemed to have notice of the public plans, maps and reports of such Board or body having charge of the design, construction and maintenance of the city streets affecting such prop- erty within the jurisdiction of the cities of the class hereinbefore set out. SECTION 2. BE IT FURTHER ENACTED, that if any such plan, plot or replot of land is tendered for registration in the office of a County Register of any county in which any city of the above class may be situated, it shall be the duty of such County Reg- ister to examine such plan, plot or replot, to ascer- tain whether the endorsement of the Commissioners, or legislative body provided for in the next preced- ing section, shall appear thereon. If it shall, and the plan, plot or replot otherwise conforms to the pro- visions of law, he shall accept same for registration. If such endorsement does not appear thereon, the Register shall refuse and decline to accept such plan, plot or replot. Any failure to observe the pro- visions of this section on the part of any County Register shall constitute a misdemeanor in office. SECTION 8. BE IT FURTHER ENACTED, that all Acts or part of Acts in conflict with this Act be, and the same is hereby, repealed. SECTION 4. BE IT FURTHER ENACTED, that this Act take effect from and after its passage, the public welfare requiring it. Cele Teey PL AAaN, (Na raNe'G COs MaM TISs.S. TOS N APPENDIX D BUILDING LINE LAW HOUSE BILL NO, 1066—CHAPTER 415, PRIVATE ACTS: 1923 A BILL to be entitled, “An Act to authorize and empower the municipalities in this state having a population in excess of 160,000 inhabitants under the Federal census of 1920, or any subsequent Federal census, to establish a building line or lines on any street in such municipality; to define the word ‘street’; to fix the procedure for the establishment of such line or lines, and the rights of the owners of any property affected thereby to damages from such municipality, and to fix the measure thereof; and to limit the time within which such actions for damages shall be brought; and to provide for the widening of streets and the line or lines so estab- lished at the expiration of the time provided in such ordinance for the widening of such street; and to provide how such damages, when assessed, shall be paid by such municipalities.” SECTION 1. BE-IT ENACTED by the General Assembly of the State of Tennessee, that the word “street,” as used in this Act, shall mean any public highway, esplanade, boulevard, parkway, square or street, or any part or side, or part of side of any of the same, within the limits of any incorporated mu- nicipality having a population in excess of 160,000 inhabitants by the Federal census of 1920, or by any subsequent Federal census. SECTION 2. BE IT FURTHER ENACTED, that it shall be lawful for any municipality having a population in excess of 160,000 inhabitants by the Federal census of 1920, or by any subsequent Fed- eral census, to provide by ordinance for the estab- lishment of a building line, or lines, on any street. After the establishment of any such line, or lines, no building or other structures shall be erected and no existing buildings reconstructed or repaired to the extent of more than seventy-five per cent of its value, and no building or other structure shall be re-erected, within the line or lines so established, except subject to the rights of the municipality ac- quired under any such building line ordinance. Such line or lines may be established on one or both sides of any street for the total length of any street or any part thereof. The ordinance establish- ing such line or lines shall set forth the name of the street and the part or parts thereof to which said line or lines shall apply, and shall provide that the owners of property abutting on said street within the part affected by such line, or lines, shall take notice of and be bound by the provisions of such ordinance. SECTION 3. BE IT FURTHER ENACTED, that upon the final passage of such ordinance the munici- pality passing the same shall be conclusively held to have taken an easement of way over all lands abut- ting the part or parts of the street to which such building line ordinance is applied, and the owners of such lands shall thereupon be entitled to all the benefits accruing to owners of lands or other prop- erty taken by the public for public use, under the laws of eminent domain of the State of Tennessee. No notice of the taking of such easement to the Owner of any property affected thereby shall be re- quired other than the passage of an ordinance in conformity with the charter provisions of any mu- nicipality passing such ordinance. Such ordinance shall also provide that at a future time to be therein specified, not later than twenty-five (25) years after the passage of such ordinance, the municipal cor- poration shall widen the street to the line or lines established in such ordinance; but between the time of the passage of such ordinance and the time fixed therein at which the street shall be widened to such a line, or lines, the owners of the lands over which the municipality has acquired the easement afore- said shall have the right to make any use of such land not inconsistent with the right of such munici- pality under its easement, or inconsistent with the provisions of this Act, including the right to main- -tain upon such land any building, structure or ap- purtenances existing thereon at the time of the pas- sage of such ordinance. SECTION 4. BE IT FURTHER ENACTED, that the municipality passing such ordinance may pro- ceed to the assessment of damages to the owners of lands affected thereby under the law relating to eminent domain; and the owners of such land shall likewise have the right to institute in any court of competent jurisdiction their actions to have assessed the damages sustained by them; but no action shall be brought by any owner of property affected by such ordinance for damages by reason of the taking of such easement, unless the action shall have been brought within twelve months of the final passage of the ordinance establishing such line or lines; pro- vided, however, that this shall not apply to any per- son under disability whose right to bring an action is regulated or governed by any other Act or law of the State of Tennessee. The measure of damage for the taking of such easement under any such ordinance shall be the difference between the value of the land at the time of the taking, without the easement, and the value [ 157 ] 1 1G Nha Ab Re 1d, 12) (6) Wah Ah of the land at the time of the taking, subject to the easement of the municipality acquiring it under the ordinance; provided, however, that should this pro- vision of this Act relating to the rule of the dam- ages be held invalid, that the owners of any prop- erty affected by the taking of such easement by the municipality shall be entitled to such damages as may be awarded them under the law of the land. Nothing herein contained shall be held to give any municipality passing an ordinance under the provi- sions hereof, any right, title or interest in or to any building or improvement now or hereafter erected on any land over which the city acquires the ease- ment hereinbefore provided for, or to the use or possession of any land within the line or lines so established until the acquisition of the land as here- inafter provided for. SECTION 5. BE IT FURTHER ENACTED, that at the end of the period designated in such ordinance the municipality passing it shall proceed to widen the street named therein, and to that end shall there- upon proceed to acquire by purchase, condemnation, or otherwise, the land necessary to be taken for such widening, and the owner thereof shall be entitled to such damages as he may then be entitled to under the law where private property is taken for public use. Such widening and improving shall be done under any law then existing relating to the widening and improving of any street in any such municipal- ity, and the cost thereof shall be borne in the man- ner then provided by law. SECTION 6. BE IT FURTHER ENACTED, that if, between the time of the passage of any such ordinance and the widening of such street under the ordinance, the owners of land abutting such build- [ 158 ] ing line, or lines, are damaged by the passage of such ordinance in any manner otherwise than by the taking of such easement in the land, each shall have a right of action against the municipality pass- ing such ordinance for any damages legally recover- able for such injury; provided, however, that any such action shall be brought within one year from the time it shall accrue, saving, however, to persons under any legal disability the right to bring such action within such time as may be provided by law. SECTION 7. BE IT FURTHER ENACTED, that damages for the easement taken or damages to any owner hereinbefore provided for, may be paid by the municipality out of any general or special fund which may be provided for that purpose under the general law of the State of Tennessee, or any char- ter provision of any such municipality. SECTION 8. BE IT FURTHER ENACTED, that this act shall not limit or abridge any power now or hereafter conferred by law on any municipality to establish building lines, whether under the police power, by eminent domain, or otherwise. SECTION 9. BE IT FURTHER ENACTED, that if any section, clause, paragraph, or part thereof, shall be held to be invalid or unconstitutional, such invalid part shall not affect the validity of the bal- ance of the Act, as this Act would have been passed by the General Assembly, notwithstanding that such invalid part is elided. SECTION 10. BE IT FURTHER ENACTED, that this Act take effect from and after its passage, the public welfare requiring it. Cale lary: Py LaAeN Ne Leen G CEOR MEMES Sob OPN APPENDIX E CITY PLANNING ORDINANCE TO PROVIDE for the establishment of a City Planning Commission under the provisions of Chap- ter 162 of the Private Acts of the General Assembly of the State of Tennessee for the year 1921; to pre- scribe the powers and duties of such Commission; and vest in such Commission jurisdiction over all new subdivisions or resubdivisions of land within the corporate limits of the City of Memphis. SECTION 1. Be it ordained by the Board of Com- missioners of the City of Memphis, that there shall be and is hereby created a City Planning Commis- sion for and in the City of Memphis. SECTION 2. Be it further ordained, that such City Planning Commission shall consist of eight citi- zen members, to be appointed by the Mayor, subject to the approval of the Board of Commissioners, and four members ex officio. The Commissioner of Streets, Bridges and Sewers, the Commissioner of Public Utilities, Grounds and Buildings, the Chair- man of the Park Board and the City Engineer shall be ex officio members of the Planning Commission, and, in addition, there shall be a secretary, to be likewise appointed by the Mayor. The secretary shall have custody of the books and records of the Commission, but he shall have no vote. The term of the chairman shall be for one year, and he shall be elected by the Planning Commission and shall hold office until his successor is elected. The citizen members of the Planning Commission first appointed shall serve, respectively, two for one year, three for two years, and three for three years, computed from January 1, 1921. Thereafter mem- bers shall be appointed for terms of three years each. Vacancies shall be filled by appointment for the unexpired term only. All members may be re- moved at any time, by a majority vote of the Board of Commissioners, for cause. The secretary shall hold office at the will and pleasure of the Mayor. Neither the members of the Planning Commission nor the secretary shall receive compensation for their services, but allowances for actual expenses in connection with duties performed may be made. SECTION 3. Be it further ordained, that the members of the Planning Commission shall meet at least once a month at such times and places as they may fix by resolution. Special meetings may be called, from time to time, by the chairman. Five members of the Planning Commission shall consti- tute a quorum for the transaction of business. The Planning Commission shall cause proper record to be kept of its proceedings. SECTION 4. Be it further ordained, that it shall be the duty of the Planning Commission to collect data and to keep itself informed as to the best prac- tices, and the advancement made generally, in the art of city planning, to the end that it may be quali- fied to act on matters that affect the present and future movements of traffic, the convenience, the safety of persons and property, the health, the rec- reation and the general welfare and amenities and all other needs of the municipality, which are de- pendent upon the city plan. SECTION 5. Bt it further ordained, that it shall be the duty of all city departments to render assist- ance to the Planning Commission in the way of in- formation, advice and co-operation. However, it is not intended to supplant nor impair the power of any existing board, bureau or commission already in existence and operating under charter provisions and ordinances, except that matters coming within the purview of the Planning Commission shall be re- ferred to that body, to the end that there shall be a proper correlation of thought and the furtherance of comprehensive plans for all betterments carried out by the city. SECTION 6. Be it further ordained, that it shall be within the further powers and duties of the Plan- ning Commission to make plans and maps of the whole or any portion of the municipality, or any land outside of the municipality which, in the opinion of the Commission, bears a relation to the planning of the municipality, and to make changes in such plans or maps when it deems same advisable. Such plans shall show the Planning Commission’s recommenda: tions for any streets, alleys, ways, viaducts, bridges, subways, railroads, terminals, transit lines, park- ways, parks, playgrounds, or any other public grounds or public improvements, and the removal, relocation, widening or extension of such public work then existing. The Planning Commission shall have au- thority to recommend provisions for the preservation and care of historical landmarks, control in the man- ner provided by ordinance the design and location of statuary and other works of art which are, or may become, the property of the municipality, and the removal, relocation and alteration of such works be- longing to the municipality, and the design and loca- tion of harbors, bridges, viaducts, street fixtures and other public structures and appurtenances. SECTION 7. Be it further ordained, that when- ever the Board of Commissioners shall have adopted a city plan recommended by the Planning Commis- sion, no public buildings, streets, alleys, ways, via- [ 159 J FINGAL RECs Oenee a = ducts, bridges, subways, railroads, terminals, transit lines, parkways, parks, playgrounds, or any other public grounds or public improvements, or part there- of, shall be constructed until and unless the location thereof shall be approved by the Planning Commis- sion; provided, however, that in case of its disap proval, the Planning Commission shall communicate its reasons for disapproval to the Board of Commis- sioners, and thereupon, by majority vote of the Board of Commissioners, it shall have the power of overruling such disapproval. The widening, narrow- ing, ornamentation, vacancies, or change in the use of streets and other public ways, public grounds or other public improvements appearing on the adopted plan shall be subject to similar approval by the Planning Commission, and upon disapproval by the Planning Commission may be similarly overruled. The Planning Commission may make recommenda- tions to any public authorities or to any corporations or individuals in such municipality, or in the terri- tory contiguous thereto, concerning the relocation of any buildings, structures or works to be erected or constructed by them. SECTION 8. Be it further ordained, that all plans, plots or replots of lands laid out in building lots, into streets, alleys, or other portions of the same, intended to be dedicated to public use, or for the use of purchasers or owners of lots fronting on or adjoining and located within the corporate limits of the municipality, shall be submitted to the Planning Commission for approval; provided, however, that in case of its disapproval, the Planning Commission shall communicate its reasons for disapproval to the Board of Commissioners, and thereupon, by majority vote of the Board of Commissioners, it shall have the power of overruling such disapproval. The approval of the Planning Commission or the Board of Commissioners shall be deemed an accept- ance of the proposed dedication, but this shall not impose any duty upon the city concerning the main- tenance or improvement of such dedicated parts, until the Board of Commissioners shall have made an actual appropriation of same, by entry, use or improvement. No sewer, water or gas main or pipes, or other improvements, shall be voted or made, nor shall any { 160 ] public money be expended for the benefit of any such purchaser or owner; nor shall any permit for connection with, or other use of any such improve- ment existing, or, for any other reason, be given to any such purchasers or owners until such plan is so approved by the Planning Commission or the Board of Commissioners. No sewer, water or gas main or pipe or other improvements shall be voted or made, nor shall any public money be expended within any lands laid out in building lots, streets and alleys, until the plan, plot or replot of such lands shall have been approved by the Planning Commis- sion or by the Board of Commissioners. SECTION 9. Be it further ordained, that the Plan- ning Commission shall have power to control, ap- point or employ such architects, engineers and other professional service, and to appoint such clerks, draftsmen and other subordinates as it shall deem necessary for the performance of its functions, the expenditures for such service and employment to be within the amounts appropriated for the use of the Planning Commission. » SECTION 10. Be it further ordained, that the Planning Commission shall make the Board of Com- missioners an annual report, giving a resume of its work during the preceding year. In such report it shall also make recommendations as to future proj- ects to be undertaken, and from time to time it shall also make like recommendations for public improvements which, in its judgment, should be undertaken. SECTION 11. Be it further ordained, that all or- dinances and parts of ordinances in conflict here- with are hereby repealed. SECTION 12. Be it further ordained, that this ordinance shall go into effect from and after its pas- sage, the public welfare requiring it. Passed March 29, 1921. Approved: ROWLETT PAINE, Mayor. Attest: CA CAPASHBYs City Clerk. a Oy UE Ab yg PaleAuNeN lf NeG CeO MOM eS” Sal Or N BOND ISSUES IN MEMPHIS By C. C. PASHBY, Crry CurrK HE position of Memphis is almost unique in the history of its bonded indebtedness as the same stands in relation to public improvements. At the beginning of the present century, aside from a small indebtedness for school buildings secured by a mortgage on the school properties and a market house issue, payable out of the earnings of that institution, there were but ap- proximately $3,000,000 of general liability bonds outstanding. Those general liability bonds could not be allocated to any improvements then existing. They had come down from a period of weird finaneing three decades earlier, through a Fed- eral receivership, a surrender of the city charter, litigation, compromises, funding and refunding of judgments, old bonds, open accounts, ete. It was not until the 1909 session of the Gen- eral Assembly of the state that any new general liability bonds for improvements were author- ized. A small issue of $250,000 of park bonds, secured by a blanket mortgage on several parks, had been put out in 1901, but these are declared in terms to be not a general liability. The water bonds of 1903 were also secured by a mortgage. It will thus be seen that a reason existed for the rather belated program of public improve- ment, except those which were paid for by a direct tax levy. In 1907 there was enacted the special assess- ment law, which, in brief, required that a peti- tion by 60% of the frontage affected be a pre- requisite to the passage of an improvement ordinance. Owing to the difficulty of securing petitions for the most needed improvements and the fur- ther difficulty of establishing the authenticity and validity of signatures, the procedure was changed in 1909 by giving the city the initiative in making the improvement and by validating all prior proceedings, although the rights as to hearings and protests were continued. Under the altered conditions the bonds sold e105. against the deferred payments of the abutting property and running one to five years have found a ready market. The 1909 Legislature authorized $1,000,000 of bonds for public work (approximately $140,000 going to fund an overdraft), and of which $425,- 000 was sold in 1909 and $575,000 in 1910. In 1911 an issue of $750,000 was authorized and sold for streets, sewers and the separation of grades of streets and railways; $250,000 was allocated to grade separation work, and about $500,000 to the city’s share of street improve- ments. In 1919 $200,000 was authorized and sold for improvements, divided between the city’s share of front foot assessment work, general street improvement and sewers and drains. In 1921 hospital bonds in the amount of $250,- 000 were authorized and have since been sold. In 1921, $250,000 of bonds were authorized to be issued by the city and an equal amount by Shelby County to develop the Tri-State Fair Grounds for amusement and fair purposes. Both of these issues have been sold. In 1921 there was an authorization of $1,750,- 000, of which there has been sold $1,745,000, being allocated as follows: SPV Fae cic Ree eae $1,199,000 398,000 148,000 In 1923 there was authorized $750,000, of which $650,000 has been sold, being allocated: Streets under front i00t........<. $450,000 Streets not under front foot....... 50,000 Sewersranc. (rains aye aa ack: ot 200,000 Of a funding and improvement issue author- ized in 1917, $483,000 has been sold, being al- located : MARE secu DUO Gee) waa eyes oe ot oe $ 31,000 Mississippi River bridge approach. 25,000 Gradessepard Ole tee aie eerar oe 88,500 ronpRroote work sete oe eet ee 36,500 Ranching yo verdraltsmane aac et 302,000 { 145 J FRI NGAG Ini da} es CO) ORY ah Sag or en age [ 146 ] SAAS aR RYT MN) | i a : ~- : fot sy 5 a ee a hashed Hn wae PRU eciR tet vieys huycaoemtage ingieeeeein. ue re ee meerrenieminiet, innlnmpiey ee aad tin a: The Post Office from Cossitt Library. eis HES AB Mieeisieor AES CCP (Cr de dks 36 Be Lee AN Ne LeeNeG: CHOSMEMaieSeS ela Oe N The city has shared with the County of Shelby in constructing and maintaining an auditorium and market and a tuberculosis sanitarium, both of which have required bond issues in the agegre- gate to date of $1,800,000, while an additional $100,000 was authorized by both the city and Shelby County for additions to the hospital. In 1923 the city was authorized to issue $150,- 000 of bonds for an addition to the Cossitt Library, a quasi publie institution endowed but supported by a special tax levy. These bonds are to be retired out of the revenues of the Library. In the development of parks and recreation facilities the city has issued $1,273,000. In the development of transportation facilities $1,000,000 of bonds for river-rail terminals have been issued. There have been certain amendments to the front foot assessment laws, but the fundamental principles of its financing have remained. Cau- tion has been learned through experience in overestimating the bond-retiring capacity of the streets when assessed. During 1915 and 1916 deficits had aeccumu- lated until it was necessary to refund $745,000 of bonds sold against the owners’ share of the cost of improvements. These deficits were caused by including in bills of cost items which could not be collected, exemptions for legal causes, and the fact that less interest was collected from owners than was required to carry the outstand- ing bonds. In fact, the shrinkage is such that instead of a nominal division of 33 1/3% and 66 2/3%, as between city and owners, the actual amount re- eovered from the owners is seareely more than 55% of the vouchered cost of the improvement ; and it has been found safe to bond no more than the closely estimated voucher cost of the streets, although a statutory 10% has been authorized to cover the city’s expense not strictly allocated to specific improvements. There have been issued since 1908 one Series ‘*A”’ of certificates and thirteen series of bonds, all aggregating $4,115,500. Of these $745,000 were refunded into general liability serial bonds, which are being liquidated and will disappear in 1928. Two million five hundred and twelve thousand and five hundred dollars have been retired, leaving on September 2, 1923, $858,000. On September 2, 1923, the gross bonded debt of the city was $23,221,200. This debt can be classified somewhat as follows: City Planning Project Bonds: Amusement and recreation........$1,123,000 Transportation—River terminal ... 990,000 DLT CCiSta ew iag tee a ee te 4,115,500 CALYsSe Shave seer $3,257,500 Owners’ share ....... 858,000 DOW Chet anC nc LalniG: waeraeeere ee oe 616,000 Etoodepreventiona shes oe 1,500,000 Grad easeparationmuste sea ene 486,500 ube Dut aan een ae ee 890,000 Dridseeapproaclie en tae he ete 25,000 Total Planning Projects...... $9,746,000 This leaves issues not so closely related to City Planning for various purposes: pcucolsrandsNoriialin eases. abe4.c00,000 WWHAGer WOE KGa. cnet tye oO ie 5,040,000 TOLIGERSLATION == qu asees hap eee 260,000 Genera lr OSDi Aline. s rasan Ce 250,000 HE EORCUA LION Somirran ie itt takes ts 100,000 Oldgimarketar see sn eee se 20,000 . Jstiale; TeTORWAY O} ONO Rae veer eeonO Gere nae 31,000 ELUNOILS MSSUCKINE tase os ee 3,011,200 BLO Gal Mamet ecey Ce aint. ee Pee $13,475,200 There can be no hard and fast rule set down to govern the financing of public improvements. In a general way it is considered safe practice if the bonded indebtedness (after allowing for sinking funds in hand and after deducting those bonds that are self-liquidating—bonds issued for self-supporting monopolies) is not in excess of 10% of assessed values as assessments are gen- erally made in our cities. It is generally recognized as questionable to issue bonds running longer than the life of the improvement they make possible; however, there have been some gravel streets built in Memphis with 35-year bonds, and it was undoubtedly good economy at the time. Over a long period of years there will be on an average approximately as many bonds retired each year as there are issued. Each issue is jus- tified by the assumption that the improvement will be worth as much to the community as the principal plus the charge for its use while the issue is outstanding. The interest charge, and [ 147 ] FIgN AL REPRO ne ultimately the principal as well, is taken out of the year-to-year earnings or income of the com- munity, and finally the investment belongs to the community, subject to depreciation, obso- lescence, ete. It is generally recognized that a community should not thus anticipate its earnings beyond the point which will require, say, 20% to 25% of its revenues for interest on the debt and the annual maturities of principal. Every community exercises judgment in these matters, weighing the values of proposed proj- ects and determining the relation of the load imposed to the ability of the community to earry it. It is probable that the total wealth of Mem- phis is, on a fair appraisal, $300,000,000, and this is increasing more than $20,000,000 per year. The annual income of the community is approximately $90,000,000. Roughly, 5% of this income, or about $4,500,000, is taken for [148] various city purposes, and of this approximately one-fourth, or 25%, of the total income is being used for debt service, i.e., for interest and sink- ing fund requirements. This showing compares very favorably with conditions in other cities and with the country at large. It is frequently stated that about one-sixth of the total income of the country is being used to support government in the proportion of ap- proximately $30, $5 and $50, respectively, per capita for city, state and national governments. It appears that Memphis is well within con- servative limits and can afford a further expan- sion of well-chosen permanent improvements to be undertaken at the rate of about $1,000,000 per year, in addition to self-supporting enter- prises and also in addition to special assessment work. This can be done without increasing the per capita bonded debt and without increasing the ratio of debt to assessed values. Cy Da Tey: 1) Ib BA IN INE IE NG; COR M eM Sia Se om lO me N = APPENDICES A—City PLANNING AcT B—ZonineG Act C—APPROVAL OF SUBDIVISION ACT D—Buitpine LINE Act K—City PLANNING COMMISSION ORDINANCE E—ZonING ORDINANCE G—-RvULEs ror LAND SUBDIVISION [ 149 ] J At INS a 1b R#E RAO gH YT Applies to Memphis Commission Ex Officio Members Term of Office Removal from Office Meetings Duties Co-operation [ 150 J APPENDIX A CITY PLANNING LAW HOUSE BILL NO. 427—CHAPTER 162—PRIVATE ACTS: 1921 AN ACT to empower all municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any subsequent Federal census, to provide for the establishment, government and maintenance of a City Planning Commission in such municipalities: To prescribe the powers and duties of such Planning Commission, and to vest in such commissions jurisdiction over all new subdivisions or re-subdivisions of land within the corporate limits of such municipalities. SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, that the legislative body of all incorporated municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any subsequent Federal census, are hereby authorized and empowered by ordi- nance, duly passed, to create City Planning Commissions for such municipalities. SECTION 2. BE IT FURTHER ENACTED, that such City Planning Commission shall consist of eight citizen members, to be appointed by the Mayor, subject to the approval of the legislative body of the municipality, and four members ex officio. The Commissioner of Streets, Bridges and Sewers, the Commissioner of Public Utilities, Grounds and Buildings, the Chairman of the Park Board and the City Engi- neer shall be ex officio members of the Commission, and, in addition, there shall be a Secretary, to be likewise appointed by the Mayor. The Secretary shall have custody of the books and records of the Commission, but he shall have no vote. The term of the Chairman shall be for one year, and he shall be elected by the City Planning Com- mission and shall hold office until his successor is elected. The citizen members of the Commission first appointed shall serve, respectively, two for one year, three for two years, and three for three years. Thereafter members shall be appointed for terms of three years each. Vacancies shall be filled by appointment for the unexpired term only. All members may be removed at any time, by a majority vote of the legislative body of the municipality, for cause. The Secretary shall hold office at the will and pleasure of the Mayor. Neither the members of the Commission nor the Secretary shall receive compensation for their services, but allowances for actual expenses in connection with duties performed may be made. SECTION 3. BE IT FURTHER ENACTED, that the members of the City Planning Commission shall meet, at least once a month, at such times and places as they may fix by resolution. Special meetings may be called, from time to time, by the Chairman. Five members of the Commission shall constitute a quorum, for the transaction of busi- ness. The Commission shall cause proper record to be kept of its proceedings. SECTION 4. BE IT FURTHER ENACTED, that it shall be the duty of the City Planning Commission to collect data and to keep itself informed as to the best prac- tices, and the advancement made generally, in the art of City Planning, to the end that it may be qualified to act on matters that effect the present and future movement of traffic, the convenience, the safety of persons and property, the health, the recrea- tion and the general welfare and amenities and all other needs of the municipality, which are dependent upon the city plan. SECTION 5. BE IT FURTHER ENACTED, that it shall be the duty of all city departments to render assistance to the Planning Commission in the way of informa- _ tion, advice and co-operation. However, it is not intended to supplant nor impair the power of any existing board, bureau or commission, already in existence and operating under charter provisions and ordinances, except that matters coming within the purview of the Planning Commission shall be referred to that body, to the end that there shall be a proper correlation of thought and the furtherance of comprehensive plans for all betterments carried out by the city. . (Er Mh ah we jee Abe Jee TNE AN) AL INE 6; ClOTM M-IeS"S"1°O2N Plans and Maps Recommenda- tions Improvements to be approved New subdivision submitted for -approval Sewers, Water and Gas Mains May employ architects, engineers and clerical help SECTION 6. BE IT FURTHER ENACTED, that it shall be within the further powers and dealings of the Commission to make plans and maps of the whole or any portion of the municipality or any land outside of the municipality, which, in the opin- ion of the Commission, bears a relation to the planning of the municipality, and to make changes in such plans or maps when it deems same advisable. Such plans shall show the Commission’s recommendations for any streets, alleys, ways, viaducts, bridges, subways, railroads, terminals, transit lines, parkways, parks, playgrounds or any other public grounds or public improvements, and the removal, relocation, widening or exten- sion of such public work then existing. The Commission shall have authority to recom- mend provisions for the preservation and care of historical landmarks, control in the manner provided by ordinance, the design and location of statuary, and other works of art which are, or may become, the property of the municipality, and the removal, relocation and alteration of such works belonging to the municipality and the design and location of harbors, bridges, viaducts, street fixtures and other public structures and appurtenances. SECTION 7. BE IT FURTHER ENACTED, that whenever the Legislative body of the municipality shall have adopted a city plan recommended by the City Planning Commission, no public buildings, streets, alleys, ways, viaducts, bridges, subways, rail- roads, terminals, transit lines, parkways, parks, playgrounds or any other public grounds or public improvement or part thereof, shall be constructed until and unless the loca- tion thereof shall be approved by the City Planning Commission; provided, however, that in case of its disapproval, the City Planning Commission shall communicate its reasons for disapproval to the legislative body of the municipality, and thereupon, by majority vote of such legislative body, it shall have the power of overruling such dis- approval. The widening, narrowing, ornamentation, vacancies, or change in the use of streets and other public ways, public grounds or other public improvements, appearing on the adopted plan, shall be subject to similar approval by the Planning Commission and upon disapproval by the Planning Commission may be similarly overruled. The Planning Commission may make recommendations to any public authorities, or to any corporations or individuals in such municipality, or in the territory contiguous thereto, concerning relocation of any building, structures or works to be erected or constructed by them. SECTION 8. BE IT FURTHER ENACTED, that all plans, plots or replots of lands laid out in building lots, into streets, alleys or other portions of the same, intended to be dedicated to public use, or for the use of purchasers or owners of lots fronting on or adjoining, and located within the corporate limits of the municipality, shall be sub- mitted to the City Planning Commission for approval; provided, however, that in case of its disapproval, the City Planning Commission shall communicate its reasons for disapproval to the legislative body of the municipality, and thereupon, by majority vote of such legislative body, it shall have the power of overruling such disapproval. The approval of the City Planning Commission or legislative body shall be deemed an acceptance of the proposed dedication, but this shall not impose any duty upon the municipality, concerning the maintenance or improvement of such dedicated parts, until the proper municipal authority shall have made an actual appropriation of same, by entry, use or improvement. No sewer, water or gas main, or pipes or other improvements, shall be voted or made, nor shall any public money be expended for the benefit of any such purchaser or owner; nor shall any permit for connection with, or other use of any such improvement existing, or for any other reason, be given to any such purchasers or owners until such plan is so approved by the City Planning Commission or legislative body. No sewer, water or gas main or pipe or other improvements shall be voted or made, nor shall any public money be expended within any lands laid out in building lots, streets and alleys, until the plan, plot or replot of such lands shall have been approved by the City Planning Commission or legislative body. SECTION 9. BE IT FURTHER ENACTED, that the City Planning Commission shall have power to control, appoint or employ such architects, engineers, and other professional services, and to appoint such clerks, draftsmen, and other subordinates as it shall deem necessary, for the performance of its functions, the expenditures for such service and employment to be within the amounts appropriated for the use of the City Planning Commission. [ 151 ] FIN AL Reb PLO RT Annual report [ 152 ] SECTION 10. BE IT FURTHER ENACTED, that the City Planning Commission shall make to the legislative body of the municipality an annual report, giving a resume of its work during the preceding year. In such report it shall also make recommenda- tions as to future projects to be undertaken, and, from time to time, they shall also make like recommendations for public improvements which, in its judgment, should be undertaken. SECTION 11. BE IT FURTHER ENACTED, that should any section hereof be declared unconstitutional by a court of competent jurisdiction, such holdings shall not invalidate the remaining sections hereof, but they shall remain in full force and effect. SECTION 12. BE IT FURTHER ENACTED, that this act shall take effect from and after its passage, the public welfare requiring it. Cie Lae lee x ELLE awn: Neko N -G Ce OP Me M ITS Sol. OoN APPENDIX B ZONING LAW HOUSE BILL NO, 124—CHAPTER NO. 165—PRIVATE ACTS: 1921 AN ACT to empower all municipalities having a population in excess of one hun- dred and sixty thousand inhabitants by the Federal census of 1920, or by any subse- quent Federal census, to provide for the establishment of districts or zones within the corporate limits, and to empower such municipalities, by ordinance, to regulate within such zones or districts the use or uses of land, the height, the area, the size and the location of buildings, the required open spaces for the light and ventilation of such buildings and the density of population; to provide for a board of appeals, and for the carrying out of such ordinances, and to provide a penalty for the violation thereof. Applies to SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, Memphis that the legislative body of all municipalities having a population in excess of one hundred and sixty thousand inhabitants by the Federal census of 1920, or by any sub- sequent Federal census, may regulate and restrict, by ordinance, the location of trades and industries and the location of buildings designed for specified uses, and, for said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. ee For each of such districts, regulations may be imposed by ordinance, designating District h ‘ch buildi : ; oiiaiione the uses for which buildings may or may not be erected or altered, and designating g the trades and industries that shall be excluded or subjected to special regulations. Such regulations shall be in accordance with a plan designed to lessen congestion on the public streets, to promote the public health, safety, convenience and general wel- fare, and shall be made with reasonable consideration, among other things, to the character of the district, its peculiar suitability for particular uses, the conservation of property values, and the direction of building development. SECTION 2. BE IT FURTHER ENACTED, that such legislative body may regulate by ordinance and limit the height, the buik of buildings hereafter erected or altered, and regulate and determine the percentage of land area to be devoted to yards, courts, and other open spaces, and, for said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. Such regulations shall be uniform for each class of buildings through- out each district, but the regulations in one or more districts may differ from those in other districts. Such regulations shall be designed to lessen congestion on the public streets, to secure safety from fire and other dangers, to promote the public health and welfare, including provisions for adequate light, air and convenience of access, and shall be made with reasonable regard to the character of buildings erected in each district, the value of land and the use to which it may be put, to the end that such regulations will promote the public health, safety and welfare, the most desirable use for which the land of each district may be adapted, and tend to conserve the value of buildings and to stabilize the value of land throughout such districts. Dwelling and SECTION 3. BE IT FURTHER ENACTED, that the legislative body of such munici- Tenement palities may, by ordinance, limit and restrict the maximum number of families which may be housed in dwellings or tenement houses hereafter erected or altered, and, for Houses said purposes, divide the municipality into districts of such number, shape and area as may be deemed best suited to carry out the purposes of this section. The regulations adopted for one or more districts may differ from those adopted for other districts. Such regulations shall be designed to limit the overcrowding of land and to avoid undue congestion of population, to facilitate adequate provision of transit, water, sewage disposal, education, recreation and other public requirements, and to promote the public health, morals, safety, convenience and general welfare. [ 153 ] Bale Ne Ag Tae 1d) 12 @ Tay aD District Boundaries Regulations, Adoption of Amendments Protests Administrative Board Buildings and lots, size of Lawful use of premises [ 154 ] SECTION 4. BE IT FURTHER ENACTED, that in a municipality having a city planning commission appointed pursuant to a statute or local charter or ordinance, the legislative body shall require such commission to recommend the boundaries or districts and appropriate regulations to be enforced therein. Such commission shall make a tentative report and hold public hearings thereon, at such times and places and upon such notice as said legislative body shall require, before submitting its final report. The legislative body shall not determine the boundaries of any district, nor impose any regulations until after the final report of such city planning commission. After such final report is submitted to the legislative body, and final adoption of regulations by ordinance, the legislative body may, from time to time, amend, supple- ment or change by ordinance the boundaries or regulations so adopted. Notice of the adoption of such amendment, supplement or change in the ordinance shall be given by publishing such notice three (3) times in some daily newspaper of general circulation in such municipality. Such notice shall state the time and place, not earlier than ten days from the last date of such publication, at which the legislative body of such municipality shall meet, to hear remonstrances or protests against the making of such amendment, supplement or change. At the time and place thus appointed, the legislative body shall meet and all per- sons whose property will be affected by such amendment, supplement or change, may appear in person, or by attorney or by petition, and protest against making of such amendment, supplement or change, and after hearing such protests, if any, said legis- lative body may confirm, modify or rescind such ordinance in whole or in part. If, however, a protest against such amendment, supplement or change be presented in writing to the City Clerk, within ten days from date of last publication, duly signed and acknowledged by the owners of 20% or more of any frontage proposed to be altered, or by the owners of 20% of the frontage immediately in the rear thereof, or by the owners of 20% of the frontage directly opposite the frontage proposed to be altered, such amendment, supplement or change shall not be passed except by a four- fifths vote of the legislative body. SECTION 5. BE IT FURTHER ENACTED, that the legislative body may create an administrative board to administer the details of the applications of the ordinance and regulations, and may delegate to such board, in accordance with provisions set forth in the regulations, the power to hear and determine appeals from the refusal of building permits by building commissioners or other officers and to exercise jurisdictional pow- ers with respect to the administration of the regulations as specified therein; or these administrative powers and functions may be delegated by the legislative body to the city planning commission. SECTION 6. BE IT FURTHER ENACTED, that wherever the provisions of any ordinance or regulation adopted by the legislative body under the provisions of this act impose requirements for lower height of buildings, or a less percentage of a lot that may be occupied, or require wider or larger courts or deeper yards than are imposed or required by existing provision of law or ordinance, the provision of this act shall govern. Where, however, the provisions of the building code or other ordinance or regulation of any municipality impose requirements for lower height of buildings, or less percentage of lot that may be occupied, or require wider or larger courts or deeper yards than are required by any ordinance or regulation which may be adopted by the legislative body under the provision of this act, the provision of said building code or other ordinance or regulation shall govern. SECTION 7. BE IT FURTHER ENACTED, that the lawful use of a building exist- ing at the time of adoption of an ordinance under the provisions of this act, although such use does not conform to the provisions of such ordinance, may be extended throughout the building, provided no structural alterations, except those required by law or ordinance, are made therein. Where no structural alterations are made in a building of a non-conforming use, such use may be changed to a use of a similar or higher classification, according to the _ provisions of ordinances and regulations adopted under the authority of this act. The lawful use of a premises existing at the time of adoption of an ordinance under the provisions of this act, although such use does not conform to the provisions of such ordinance, may be continued; but if such non-conforming use is discontinued, any future use of said premises shall be in conformity with the provisions of ordinances and regulations adopted under the authority of this act. (6) ab AW ON" Pre Aen Nt len. G CeOeMy Me has S415 O oN Change in Buildings Building Permits Where structural alterations are made in a building of non-conforming use, such building shall be changed in conformity with the provisions of ordinances and regula- tions adopted under the authority of this act for the district in which such building is located. When the boundary line of any use district divides a parcel of ground in common ownership, at the time of the adoption of the ordinance, under the provisions of this act, nothing herein shall be construed to prevent the extension of the use existing on either portion of such parcel of ground to the entire parcel, but for a distance of not greater than twenty-five (25) feet. Nothing in this act shall be taken to prevent: (a) the erection of a building for which a permit shall have been issued previous to the passage of an ordinance under the provisions of this act; (b) the restoration of a building destroyed to the extent of not more than 75% of its reasonable value, by fire, explosion, an act of God, or the public enemy, and the occupancy or use of such building or part thereof, if such use existed at the time of such partial destruction; (c) the restoration of a wall declared unsafe by the Building Inspector. SECTION 8. BE IT FURTHER ENACTED, that should any section or provision of this act be held to be unconstitutional or invalid, the same shall not affect the validity of the act as a whole or any part thereof, other than the part so held to be uncon- stitutional. SECTION 9. BE IT FURTHER ENACTED, that this act shall take effect from and after its passage, the public welfare requiring it. { 155 ] LO INE AN ay Jay 1 de CO) Jay UE APPENDIX C APPROVAL OF SUBDIVISIONS LAW HOUSE BILL NO. 425—CHAPTER 164, PRIVATE ACTS: 1921 A BILL to be entitled, “An Act to provide for the approval by municipal authorities, before filing, and for the filing, of plans, plots or replots of lands lying in cities having a population of one hundred and sixty thousand (160,000) or over, according to the Federal census; to define the duties of County Reg- isters in counties in which such cities may be situ- ated, with reference to filing and recording plans, plots or replots of lands in such cities. To regulate the filing of plans, plots or replots of lands lying in such cities; and to make it a mis- demeanor in office for any County Register to vio- late the provisions of this Act. SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, that in all cities having a population of one hundred and sixty thou- sand (160,000) or over, according to the Federal cen- sus of 1920, or any subsequent Federal census, all plans, plots or replots of land lying within the limits of such city, laid out in building lots, and streets, alleys, squares, parks, or other portions of same, in- tended to be dedicated to public use, or for the use of purchasers or owners of lots fronting upon any such square, park, street, alley or boulevard, or ad- jacent thereto, or lying or being within the boun- dary of the said tract or parcel of land, and located within the limits of any such city, shall be submitted to the Board of Commissioners, or other legislative body having general charge and supervision of the design, construction and maintenance of city streets; and all such plans, plots or replots shall be approved by such Board of Commissioners or other legislative body before they shall be tendered for record to the County Register. Said plans, plots or replots shall be examined by such Board with a view of ascer- taining whether such plans, plots or replots conform to the general laws relating to plots within the city, and that streets, alleys, boulevards, parks and public ways or places shall conform to the general plan of the city, and not conflict or interfere with rights-of- way of streets, or alleys, already established. If such plans, plots or replots shall conform to the laws of the state and ordinances of such city; and if they [ 156 ] shall fall within the general plan for the extension of such city, regards being had for public streets, sewer connections, water service, and service of other utilities, then it shall be the duty of said Board, or other legislative body, to endorse its ap- proval upon the plan, plot or replot submitted to it. The approval of such Board, or other legislative body, shall be deemed an acceptance of the proposed dedication for public or private use, as the case may be; but shall not impose any duty upon the city con- cerning the maintenance or improvement of any such dedicated parts until the proper authorities of the city shall have made actual appropriation of the same by entry, use or improvement, and owners and purchasers shall be deemed to have notice of the public plans, maps and reports of such Board or body having charge of the design, construction and maintenance of the city streets affecting such prop- erty within the jurisdiction of the cities of the class hereinbefore set out. SECTION 2. BE IT FURTHER ENACTED, that if any such plan, plot or replot of land is tendered for registration in the office of a County Register of any county in which any city of the above class may be situated, it shall be the duty of such County Reg- ister to examine such plan, plot or replot, to ascer- tain whether the endorsement of the Commissioners, or legislative body provided for in the next preced- ing section, shall appear thereon. If it shall, and the plan, plot or replot otherwise conforms to the pro- visions of law, he shall accept same for registration. If such endorsement does not appear thereon, the Register shall refuse and decline to accept such plan, plot or replot. Any failure to observe the pro- visions of this section on the part of any County Register shall constitute a misdemeanor in office. SECTION 3. BE IT FURTHER ENACTED, that all Acts or part of Acts in conflict with this Act be, and the same is hereby, repealed. SECTION 4. BE IT FURTHER ENACTED, that this Act take effect from and after its passage, the public welfare requiring it. Cole bey, Pale ANGCN TENS G C2 Os Mem Is s°-S> iO) N APPENDIX D BUILDING LINE LAW HOUSE BILL NO, 1066—CHAPTER 415, PRIVATE ACTS: 1923 A BILL to be entitled, “An Act to authorize and empower the municipalities in this state having a population in excess of 160,000 inhabitants under the federal census of 1920, or any subsequent Federal census, to establish a building line or lines on any street in such municipality; to define the word ‘street’; to fix the procedure for the establishment of such line or lines, and the rights of the owners of any property affected thereby to damages from such municipality, and to fix the measure thereof; and to limit the time within which such actions for damages shall be brought; and to provide for the widening of streets and the line or lines so estab- lished at the expiration of the time provided in such ordinance for the widening of such street; and to provide how such damages, when assessed, shall be paid by such municipalities.” SECTION 1. BE IT ENACTED by the General Assembly of the State of Tennessee, that the word “street,” as used in this Act, shall mean any public highway, esplanade, boulevard, parkway, square or street, or any part or side, or part of side of any of the same, within the limits of any incorporated mu- nicipality having a population in excess of 160,000 inhabitants by the Federal census of 1920, or by any subsequent Federal census. SECTION 2. BE IT FURTHER ENACTED, that it shall be lawful for any municipality having a population in excess of 160,000 inhabitants by the Federal census of 1920, or by any subsequent Fed- eral census, to provide by ordinance for the estab- lishment of a building line, or lines, on any street. After the establishment of any such line, or lines, no building or other structures shall be erected and no existing buildings reconstructed or repaired to the extent of more than seventy-five per cent of its value, and no building or other structure shall be re-erected, within the line or lines so established, except subject to the rights of the municipality ac- quired under any such building line ordinance. Such line or lines may be established on one or both sides of any street for the total length of any street or any part thereof. The ordinance establish- ing such line or lines shall set forth the name of the street and the part or parts thereof to which said line or lines shall apply, and shall provide that the owners of property abutting on said street within the part affected by such line, or lines, shall take notice of and be bound by the provisions of such ordinance. SECTION 3. BE IT FURTHER ENACTED, that upon the final passage of such ordinance the munici- pality passing the same shall be conclusively held to have taken an easement of way over all lands abut- ting the part or parts of the street to which such building line ordinance is applied, and the owners of such lands shall thereupon be entitled to all the benefits accruing to owners of lands or other prop- erty taken by the public for public use, under the laws of eminent domain of the State of Tennessee. No notice of the taking of such easement to the owner of any property affected thereby shall be re- quired other than the passage of an ordinance in conformity with the charter provisions of any mu- nicipality passing such ordinance. Such ordinance shall also provide that at a future time to be therein specified, not later than twenty-five (25) years after the passage of such ordinance, the municipal cor- poration shall widen the street to the line or lines established in such ordinance; but between the time of the passage of such ordinance and the time fixed therein at which the street shall be widened to such a line, or lines, the owners of the lands over which the municipality has acquired the easement afore- said shall have the right to make any use of such land not inconsistent with the right of such munici- pality under its easement, or inconsistent with the provisions of this Act, including the right to main- tain upon such land any building, structure or ap- purtenances existing thereon at the time of the pas- sage of such ordinance. SECTION 4. BE IT FURTHER ENACTED, that the municipality passing such ordinance may pro- ceed to the assessment of damages to the owners of lands affected thereby under the law relating to eminent domain; and the owners of such land shall likewise have the right to institute in any court of competent jurisdiction their actions to have assessed the damages sustained by them; but no action shall be brought by any owner of property affected by such ordinance for damages by reason of the taking of such easement, unless the action shall have been brought within twelve months of the final passage of the ordinance establishing such line or lines; pro- vided, however, that this shall not apply to any per- son under disability whose right to bring an action is regulated or governed by any other Act or law of the State of Tennessee. The measure of damage for the taking of such easement under any such ordinance shall be the difference between the value of the land at the time of the taking, without the easement, and the value { 157 J BeleNeAs tz Ee a ba ae ely of the land at the time of the taking, subject to the easement of the municipality acquiring it under the ordinance; provided, however, that should this pro- vision of this Act relating to the rule of the dam- ages be held invalid, that the owners of any prop- erty affected by the taking of such easement by the municipality shall be entitled to such damages as may be awarded them under the law of the land. Nothing herein contained shall be held to give any municipality passing an ordinance under the provi- sions hereof, any right, title or interest in or to any building or improvement now or hereafter erected on any land over which the city acquires the ease- ment hereinbefore provided for, or to the use or possession of any land within the line or lines so established until the acquisition of the land as here- inafter provided for. SECTION 5. BE IT FURTHER ENACTED, that at the end of the period designated in such ordinance the municipality passing it shall proceed to widen the street named therein, and to that end shall there- upon proceed to acquire by purchase, condemnation, or otherwise, the land necessary to be taken for such widening, and the owner thereof shall be entitled to such damages as he may then be entitled to under the law where private property is taken for public use. Such widening and improving shall be done under any law then existing relating to the widening and improving of any street in any such municipal- ity, and the cost thereof shall be borne in the man- ner then provided by law. SECTION 6. BE IT FURTHER ENACTED, that if, between the time of the passage of any such ordinance and the widening of such street under the ordinance, the owners of land abutting such build- [ 158 ] ing line, or lines, are damaged by the passage of such ordinance in any manner otherwise than by the taking of such easement in the land, each shall have a right of action against the municipality pass- ing such ordinance for any damages legally recover- able for such injury; provided, however, that any such action shall be brought within one year from the time it shall accrue, saving, however, to persons under any legal disability the right to bring such action within such time as may be provided by law. SECTION:-7. BE IT FURTHER ENACTED, that damages for the easement taken or damages to any owner hereinbefore provided for, may be paid by the municipality out of any general or special fund which may be provided for that purpose under the general law of the State of Tennessee, or any char- ter provision of any such municipality. SECTION 8. BE IT FURTHER ENACTED, that this act shall not limit or abridge any power now or hereafter conferred by law on any municipality to establish building lines, whether under the police power, by eminent domain, or otherwise. SECTION 9. BE IT FURTHER ENACTED, that if any section, clause, paragraph, or part thereof, shall be held to be invalid or unconstitutional, such invalid part shall not affect the validity of the bal- ance of the Act, as this Act would have been passed by the General Assembly, notwithstanding that such invalid part is elided. SECTION 10. BE IT FURTHER ENACTED, that this Act take effect from and after its passage, the public welfare requiring it. Crh Ak Ae PelLearNaN TENeG CeOn Me Males 2S" OAN APPENDIX E CITY PLANNING ORDINANCE TO PROVIDE for the establishment of a City Planning Commission under the provisions of Chap- ter 162 of the Private Acts of the General Assembly of the State of Tennessee for the year 1921; to pre- scribe the powers and duties of such Commission; and vest in such Commission jurisdiction over all new subdivisions or resubdivisions of land within the corporate limits of the City of Memphis. SECTION 1. Be it ordained by the Board of.Com- missioners of the City of Memphis, that there shall be and is hereby created a City Planning Commis- sion for and in the City of Memphis. SECTION 2. Be it further ordained, that such City Planning Commission shall consist of eight citi- zen members, to be appointed by the Mayor, subject to the approval of the Board of Commissioners, and four members ex officio. The Commissioner of Streets, Bridges and Sewers, the Commissioner of Public Utilities, Grounds and Buildings, the Chair- man of the Park Board and the City Engineer shall be ex officio members of the Planning Commission, and, in addition, there shall be a secretary, to be likewise appointed by the Mayor. The secretary shall have custody of the books and records of the Commission, but he shall have no vote. The term of the chairman shall be for one year, and he shall be elected by the Planning Commission and shall hold office until his successor is elected. The citizen members of the Planning Commission first appointed shall serve, respectively, two for one year, three for two years, and three for three years, computed from January 1, 1921. Thereafter mem- bers shall be appointed for terms of three years each. Vacancies shall be filled by appointment for the unexpired term only. All members may be re- moved at any time, by a majority vote of the Board of Commissioners, for cause. The secretary shall hold office at the will and pleasure of the Mayor. Neither the members of the Planning Commission nor the secretary shall receive compensation for their services, but allowances for actual expenses in connection with duties performed may be made. SECTION 38. Be it further ordained, that the members of the Planning Commission shall meet at least once a month at such times and places as they may fix by resolution. Special meetings may be ealled, from time to time, by the chairman. Five members of the Planning Commission shall consti- tute a quorum for the transaction of business. The Planning Commission shall cause proper record to be kept of its proceedings. SECTION 4. Be it further ordained, that it shall be the duty of the Planning Commission to collect data and to keep itself informed as to the best prac- tices, and the advancement made generally, in the art of city planning, to the end that it may be quali- fied to act on matters that affect the present and future movements of traffic, the convenience, the safety of persons and property, the health, the rec- reation and the general welfare and amenities and all other needs of the municipality, which are de- pendent upon the city plan. SECTION 5. Bt it further ordained, that it shall be the duty of all city departments to render assist- ance to the Planning Commission in the way of in- formation, advice and co-operation. However, it is not intended to supplant nor impair the power of any existing board, bureau or commission already in existence and operating under charter provisions and ordinances, except that matters coming within the purview of the Planning Commission shall be re- ferred to that body, to the end that there shall be a proper correlation of thought and the furtherance of comprehensive plans for all betterments carried out by the city. SECTION 6. Be it further ordained, that it shall be within the further powers and duties of the Plan- ning Commission to make plans and maps of the whole or any portion of the municipality, or any land outside of the municipality which, in the opinion of the Commission, bears a relation to the planning of the municipality, and to make changes in such plans or maps when it deems same advisable. Such plans shall show the Planning Commission’s recommenda: tions for any streets, alleys, ways, viaducts, bridges, subways, railroads, terminals, transit lines, park- ways, parks, playgrounds, or any other public grounds or public improvements, and the removal, relocation, widening or extension of such public work then existing. The Planning Commission shall have au- thority to recommend provisions for the preservation and care of historical landmarks, control in the man- ner provided by ordinance the design and location of statuary and other works of art which are, or may become, the property of the municipality, and the removal, relocation and alteration of such works be- longing to the municipality, and the design and loca- tion of harbors, bridges, viaducts, street fixtures and other public structures and appurtenances. SECTION 7. Be it further ordained, that when- ever the Board of Commissioners shall have adopted a city plan recommended by the Planning Commis- sion, no public buildings, streets, alleys, ways, via- [ 159 ] FoR NeALL ROESP +0 Rat ducts, bridges, subways, railroads, terminals, transit lines, parkways, parks, playgrounds, or any other public grounds or public improvements, or part there- of, shall be constructed until and unless the location thereof shall be approved by the Planning Commis- sion; provided, however, that in case of its disap proval, the Planning Commission shall communicate its reasons for disapproval to the Board of Commis- sioners, and thereupon, by majority vote of the Board of Commissioners, it shall have the power of overruling such disapproval. The widening, narrow- ing, ornamentation, vacancies, or change in the use of streets and other public ways, public grounds or other public improvements appearing on the adopted plan shall be subject to similar approval by the Planning Commission, and upon disapproval by the Planning Commission may be similarly overruled. The Planning Commission may make recommenda- tions to any public authorities or to any corporations or individuals in such municipality, or in the terri- tory contiguous thereto, concerning the relocation of any buildings, structures or works to be erected or constructed by them. SECTION 8. Be it further ordained, that all plans, plots or replots of lands laid out in building lots, into streets, alleys, or other portions of the same, intended to be dedicated to public use, or for the use of purchasers or owners of lots fronting on or adjoining and located within the corporate limits of the municipality, shall be submitted to the Planning Commission for approval; provided, however, that in case of its disapproval, the Planning Commission shall communicate its reasons for disapproval to the Board of Commissioners, and thereupon, by majority vote of the Board of Commissioners, it shall have the power of overruling such disapproval. The approval of the Planning Commission or the Board of Commissioners shall be deemed an accept- ance of the proposed dedication, but this shall not impose any duty upon the city concerning the main- tenance or improvement of such dedicated parts, until the Board of Commissioners shall have made an actual appropriation of same, by entry, use or improvement. No sewer, water or gas main or pipes, or other improvements, shall be voted or made, nor shall any [ 160 } public money be expended for the benefit of any such purchaser or owner; nor shall any permit for connection with, or other use of any such improve- ment existing, or, for any other reason, be given to any such purchasers or owners until such plan is so approved by the Planning Commission or the Board of Commissioners. No sewer, water or gas main or pipe or other improvements shall be voted or made, nor shall any public money be expended within any lands laid out in building lots, streets and alleys, until the plan, plot or replot of such lands shall have been approved by the Planning Commis- sion or by the Board of Commissioners. SECTION 9. Be it further ordained, that the Plan- ning Commission shall have power to control, ap- point or employ such architects, engineers and other professional service, and to appoint such clerks, draftsmen and other subordinates as it shall deem necessary for the performance of its functions, the | expenditures for such service and employment to be within the amounts appropriated for the use of the Planning Commission. SECTION 10. Be it further ordained, that the Planning Commission shall make the Board of Com- missioners an annual report, giving a resume of its work during the preceding year. In such report it shall also make recommendations as to future proj- ects to be undertaken, and from time to time it shall also make like recommendations for public improvements which, in its judgment, should be undertaken. SECTION 11. Be it further ordained, that all or- dinances and parts of ordinances in conflict here- with are hereby repealed. SECTION 12. Be it further ordained, that this ordinance shall go into effect from and after its pas- sage, the public welfare requiring it. Passed March 29, 1921. Approved: ROWLETT PAINH, Mayor. Attest: CyCGPASHBY, City Clerk. Cle aey, a aa Nise Noe eee Nt G; Ce Or MONS spa LeOo IN APPENDIX F ZONING ORDINANCE (As Passed November 7, 1922.) AN ORDINANCE to regulate and restrict the loca- tion of trades and industries and the location of buildings designed for specified uses, to regulate and limit the height and bulk of buildings hereafter erected or altered, to regulate and determine the area of yards, courts and other open spaces sur- rounding buildings, to regulate and limit the density of population, and for said purpose to divide the city into districts and prescribe penalties for the violation of its provisions and to provide for its en- forcement. WHEREAS, by the provisions of Chapter 165 of the Private Acts of the General Assembly of the State of Tennessee for the year 1921, authority is conferred upon the City of Memphis to establish districts or zones within its corporate limits for the purpose of better regulating the use of land and controlling the density of population to the end that congestion upon the public streets may be lessened, the public health, safety, convenience and general welfare promoted; and, WHEREAS, the City Planning Commission, crea- ated under the provisions of Chapter 162 of the Pri- vate Acts of 1921, pursuant to the provisions of Sec- tion 4 of said Chapter 165 and resolutions of the Board of Commissioners of the City of Memphis duly adopted, has recommended boundaries or dis- tricts, and appropriate regulations to be enforced therein, and public hearings having been held, at which all owners of property affected were given ample opportunity, after public notice by advertise- ment, to file their protests or criticisms, if any they had; and, WHEREAS, the passage, promulgation and en- forcement of the provisions hereinafter contained are deemed to be necessary to the carrying out of the governmental powers delegated to and possessed by the City of Memphis for securing the objects here- inbefore expressed; therefore: SECTION 1 DEFINITIONS Be it ordained by the Board of Commissioners of the City of Memphis, that for the purpose of this ordinance certain terms and words are herewith de- fined, as follows: Words used in the present tense include the fu- ture; words in the singular number include the plu- ral number, and words in the plural number include the singular number; the word “building” includes Sy [ [== the word ‘structure’; the word “shall” is manda- tory and not directory. Any words not herein de- fined shall be construed as defined in the building code. ALLEY: A public thoroughfare not over twenty (20) feet wide. APARTMENT HOUSE: A building or portion thereof used or intended to be used as the home of three or more families or households living inde- pendently of each other. BASEMENT: A story partly under ground, which, if not occupied for living purposes by other than the janitor or his family, shall not be included as a story for purpose of height measurements. BOARDING HOUSE: A building, other than a hotel, where lodging and meals, for five or more persons, are served for compensation. BUILDING: A structure having a roof supported by columns or walls for the shelter, support or en- closure of persons, animals or chattels; and when separated by division walls from the ground up, and without openings, each portion of such building shall be deemed a separate building except as provided in Section 16. CURB LEVEL: The mean level of the established curb in front of the building. DEPTH OF REAR YARD: The minimum horizon- tal distance between the rear line of a building other than a building for an accessory use, and the center line of the alley, where an alley exists, otherwise the rear lot line. DEPTH OF LOT: The mean horizontal distance between the front and rear lot lines. HEIGHT OF BUILDING: The vertical distance measured from the curb level to the highest point of the roof surface, if a flat roof; to the deck line of mansard roofs, and to the mean height level be- tween eaves and ridge for gable, hip and gambrel roofs, For buildings set back from the street line the height of the building may be measured from the average elevation of the finished grade along the front of the building, provided its distance from the street line is not less than the height of such grade above the established curb level. HEIGHT OF COURT OR YARD: The vertical distance from the lowest level of such court or yard to the highest point of any bounding wall. HOTEL: A building occupied as the more or less temporary abiding place of individuals who are lodged with or without meals, in which, as a rule, [ 161 ] Peg SNS ee ee OF ae the rooms are occupied singly for hire, in which provision is not made for cooking in any individual apartment, and in which there are more than twelve (12) sleeping rooms, a public dining room for the accommodation of more than twelve (12) guests, and a general kitchen. INNER COURT: An open, unoccupied space sur- rounded on all sides by walls, or by walls and a lot line. LENGTH OF OUTER COURT: The mean hori- zontal distance between the open and closed ends of the court. LODGING HOUSE: A building, other than a hotel, where lodging for five (5) or more persons is provided for compensation. LOT: Land occupied or to be occupied by a build- ing and its accessory buildings, and including such open spaces as are required under this ordinance, and having its principal frontage upon a public street or officially approved place. LOT, CORNER: A lot situated at the junction of two or more streets, and having a width not greater than fifty (50) feet. LOT, INTERIOR: A lot other than a corner lot. LOT, THROUGH: An interior lot having frontage on two streets. LOT LINES: herein. NON-CONFORMING USE: A building or premises occupied by a use that does not conform with the regulations of the use district in which it is situated. ONE-FAMILY DWELLING: A detached building having accommodations for and occupied by only one family. OUTER COURT: An open reserved space on the same lot with a building, extending to and opening upon a Street, alley or yard. PLACE: An open unoccupied space reserved for purposes of access for abutting property. PORCH: A roofed space open on three sides; one or two stories in height. PRIVATE GARAGE: A garage with capacity for not more than three (3) steam or motor-driven ve- hicles, for storage only, for private use and not more than one space in which shall be rented to persons not occupants of the premises. Of the vehicles al- lowed not more than one shall be a commercial motor-driven vehicle. A private garage may exceed a three (3) vehicle capacity, provided the area of the lot whereon such a private garage is to be lo- cated shall contain not less than twenty-five hundred (2,500) square feet for each vehicle stored. PUBLIC GARAGE: Any premises, except those described as a private garage, used for housing or care of more than three (3) steam or motor-driven vehicles, or where any such vehicles are equipped for operation, repaired, or kept for remuneration, hire or sale. PRIVATE STABLE: A stable with a capacity for not more than four horses or mules. The lines bounding a lot as defined { 162 ] PUBLIC STABLE: A stable with a capacity for more than four horses or mules. REAR YARD: A space, unoccupied except by a building of accessory use as hereinafter permitted, extending for the full width of the lot between a building other than a building of accessory use and the rear lot line. ROW HOUSE: A row of attached dwellings erect- ed simultaneously, each dwelling having accommo- dations for one family only. SETBACK: The minimum horizontal distance be- tween the front line or any projection of the build- ing, excluding steps and unenclosed porches, and the street line. SIDE YARD: An open, unoccupied space on the same lot with a building between the building and the side line of the lot and extending from the street line to the rear yard. STREET: A public thoroughfare more than twen- ty (20) feet wide. STORY: That portion of a building included be- tween the surface of any floor and the surface of the floor next above it, or if there be no floor above it, then the space between such floor and the ceiling next above it. STORY, HALF: That portion of a building, in the “A” Height and Area District, between the sur- face of the floor above the second story and the finished ceiling line underneath the roof. This half story shall not have an average height of more than eight feet covering a floor area of more than seventy- five (75) per cent of the area of the floor on the first story below. STRUCTURAL ALTERATIONS: Any change in the supporting members of a building, such as bear- ing walls, columns, beams or girders. TENEMENT HOUSE: See “Apartment House.” TWO-FAMILY DWELLING: A detached or semi- detached building having separate accommodations for and occupied as a dwelling by two (2) families. . SECTION 2 USE DISTRICT REGULATIONS Be it further ordained, that in order to regulate and restrict the location of trades and industries and the location of buildings erected or altered for speci- fied uses, the City of Memphis is hereby divided into “USE DISTRICTS,” of which there shall be five, known as: “A” Residence District. “B” Residence District. “C” Commercial District. “D” Industrial District. “HY” Unrestricted District. The City of Memphis is hereby divided into five (5) districts, aforesaid, and the boundaries of such districts are shown upon the map attached hereto and made a part of this ordinance, being designated as the “USE DISTRICT MAP,” and said map and all the notations, references and other things shown thereon shall be as much a part of this ordinance as CAL Tay: Pe Le tNN Loon, Ha G. ©) Wy Wil WR Sy A as if the matters and things set forth by said map were all fully described herein. Except as hereinafter provided, no building shall be erected or altered, nor shall any building or prem- ises be used for any purpose other than is permitted in the Use District in which such building or prem- ises is located. SECTION 3 “A” RESIDENCE DISTRICT Be it further ordained, that in the “A” Residence District no building or premises shall be used and no building shall be hereafter erected or structurally altered, unless otherwise provided in this ordinance, except for one or more of the following uses: Farming and Truck Gardening. Accessory buildings, including one private ga- rage or private stable when located not less than 60 feet from the front lot line, or a private garage in a (fireproof) compartment as a part of the main building. 8. Uses customarily incident to any of the above uses when located on the same lot ana not involving the conduct of a business; including also home occu- pations engaged in by the occupants of a dwelling not involving the conduct of a business on the prem- ises, and including also the office of a physician, surgeon, dentist, musician or artist, when situated in the same dwelling used by such physician, sur- geon, dentist, musician or artist as his or her pri- vate dwelling: provided no name plate exceeding one (1) square foot in area, containing the name and occupation of the occupant of the premises, nor a sign exceeding eight (8) square feet in area apper- taining to the lease, hire or sale of a building or premises, nor advertising sign of any other charac- ter shall be permitted in any “A” residence district. SECTION 4 “B” RESIDENCE DISTRICT 1. One-Family Dwellings. 2. Two-Family Dwellings. 3. Churches. 4. Schools. 5. Libraries. 6. is Be it further ordained, that in the “B” Residence District no building or premises shall be used and no building shall be hereafter erected or structurally altered unless otherwise provided in this ordinance, except for one or more of the following uses: 1. Any use permitted in the “A” Residence Dis- trict. 2. Apartment Houses. 3. Hotels. 4. Private Clubs, Fraternities, Lodges, excepting those the chief activity of which is a service cus- tomarily carried on as a business. 5. Boarding and Lodging Houses. 6. Hospitals and Clinics. 7. Institutions of an educational, philanthropic or eleemosynary nature. 8. Nurseries and Greenhouses for the propagating and cultivation and growing of plants only. 9. Accessory buildings and uses customarily inci- dent to any of the above uses when located on the same lot and not involving the conduct of a business. 10. Public garages, for storage purposes only, and where no repair facilities are maintained, when lo- cated not Jess than sixty (60) feet from the front lot line, and not less than thirty (30) feet from any other street line on which the property faces; pro- vided that before permit is issued there are on file in the office of the Commissioner of Public Utilities, Grounds and Buildings the written consents of the owners of seventy-five (75) per cent of the property within five hundred (500) feet of any part of the premises whereon such public garage is to be estab- lished, and not separated therefrom by more than one (1) street or one (1) alley; provided, further, that no public garage shall have an entrance or exit for motor vehicles within two hundred (200) feet of an entrance or exit of a public or private school, playground, public library, church, hospital, chil- dren’s or old people’s home, or other similar public or semi-public institutions. SECTION 5 “C” COMMERCIAL DISTRICT Be it further ordained, that in the “C’” Commercial District, all buildings and premises, except as other- wise provided in this ordinance, may be used for any use permitted in the “B” Residence District or for any other use except the following: Bakery (employing more than five (5) persons). Blacksmith or Horseshoeing Shop. Bottling Works. Building material storage yard. Carting, express, hauling or storage yard. Contractor’s plant or storage yard. Coal, coke or wood yard. Cooperage works. 9. Dyeing and cleaning works (employing more than five (5) persons). 10. Ice Plant or Storage House of more than five (5) tons capacity. 11. Laundry (employing more than five (5) per- sons). 12. Livery Stable. 13. Lumber Yard. 14. Machine Shop. 15. Milk Distributing Station. 16. Stone Yard or Monument Works. 17. Storage Warehouse. 18. All uses excluded from the “D” Industrial District. 19. Any kind of manufacture or treatment other than the manufacture or treatment of products clear- ly incidental to the conduct of a retail business con- ducted on the premises. 20. Public Garages: Provided, however, that spe- cial permits for the location and maintenance of public garages shall be granted by the Commissioner of Public Utilities, Grounds and Buildings, when [ 163 ] 1) We NE ek ab Ink dd) EY Oa there shall be on file with said Commissioner the written consents of the owners of 75 per cent of the area of all the property within two hundred (200) feet of any part of the premises whereon such public garage is to be established, erected or enlarged. Provided, further, that no public garage shall have an entrance or exit for motor vehicles within two hundred (200) feet of an entrance or exit of a pub- lic or private school, playground, public library, church, hospital, children’s or old people’s home, or other similar public or semi-public institutions. SECTION 6 “D” INDUSTRIAL DISTRICT Be it further ordained, that in the “D” Industrial District all buildings and premises except as other- wise provided in this ordinance may be used for any use permitted in the “C” Commercial District or for any other use except the following: 1. Abattoirs. 2. Acetylene gas manufacture. 3. Acid manufacture. 4, Ammonia, Bleaching Powder or Chlorine man- ufacture. 5. Arsenal. 6. Asphalt manufacture or refining. 7. Blast Furnace. 8. Boiler Works. 9. Brick, Tile or Terra Cotta manufacture. 10. Candle manufacture. 11. Bag cleaning. 12. Celluloid manufacture. 13. Coke Ovens. 14. .Cotton Gin. 15. Crematory. 16. Creosote treatment or manufacture. 17. Disinfectants manufacture. 18. Distillation of Bones, Coal or Wood. 19. Dyestuff manufacture. 20. Exterminator and Insect Poison manufacture. 21. Emery Cloth and Sand Paper manufacture. 22. Fat Rendering. 23. Fertilizer manufacture. 24. Fireworks or Explosive manufacture or stor- 25. Fish Smoking and Curing. 26. Forge Plant. 27. Gas (illuminating or heating) manufacture. 28. Glue, Size or Gelatine manufacture. 29. Gunpowder manufacture or storage. 30. Incineration or Reduction of Garbage, Dead Animals, Offal or Refuse. 31. Iron, Steel, Brass or Copper Foundry. 32. Lamp Black manufacture. 33. Oilcloth or Linoleum manufacture. 34. Oiled, Rubber or Leather Goods manufacture. 35. Ore Reduction, 36. Paint, Oil, Shellac, Turpentine or Varnish manufacture. 37. Paper and Pulp manufacture. 38. Petroleum Products, refining or storage of Petroleum. wholesale [ 164 ] 39. Plating Works. 40. Potash Works. 41. Printing Ink manufacture. 42. Pyroxlin manufacture. 43. Rock Crusher. 44. Rolling Mill. 45. Rubber or Gutta Percha manufacture or treat- 46. Salt Works. 47. Sauer Kraut manufacture. 48. Sausage manufacture. 49. Ship Yard. 50. Shoe Blacking manufacture. 51. Smelters. 52. Soap manufacture. 53. Soda and Compound manufacture. 54. Stock Yards. 55. Stone Mill or Quarry. 56. Storage or Baling of Scrap Paper, Iron, Bot- tles, Rags or Junk. 57. Stove Polish manufacture. 58. Sulphuric, Nitric, or Hydrochloric Acid manu- facture. 59. Tallow, Grease or Lard manufacture or refin- ing from animal fat. 60. Tanning, Curing or Storage of Rawhides or Skins. 61. Tar Distillation or manufacture. 62. Tar Roofing or Water Proofing manufacture. 68. Tobacco (chewing) manufacture or treatment. 64. Vinegar manufacture. 65. Wool Pulling or Scouring. 66. Yeast plant. 67. And in general those uses which have been declared a nuisance in any court of record, or which may be obnoxious, or otfensive by reason of the emission of odor, dust, smoke, gas or noise. SECTION 7 “E” UNRESTRICTED DISTRICT Be it further ordained, that in the “EK” Unrestricted District buildings and premises may be used for any purposes whatsoever, not in conflict with any ordi- nance of the City of Memphis regulating nuisances. SECTION 8 NON-CONFORMING USES Be it further ordained, that the lawful use of land existing at the time of adoption of this ordinance, although such use does not conform to the provisions hereof, may be continued, but if such non-conform- ing use is discontinued, any future use of said prem- ises shall be in conformity with the provisions of this ordinance. The lawful use of a building existing at the time of the adoption of this ordinance may be continued. although such use does not conform with the pro- visions hereof, and such use may be extended throughout the building, provided no structural alter- ations, except those required by law or ordinance, are made therein. If no structural alterations are ani Cie BED YON Dae Ae Ngee Ne LN Gr CF OPM eM le Sis fb Oan made, a non-conforming use of a building may be changed to any use permitted in the same use dis- trict as that in which the use existing at the time of the adoption of this ordinance is permitted, ac- cording to the provisions of this ordinance. When- ever a use district shall be hereafter changed, any then existing non-conforming use in such changed district may be continued or changed to a use per- mitted in the same use district as that in which the existing use is permitted, provided all other regula- tions governing the new use are complied with. Whenever a non-conforming use of a building has been changed to a more restricted use or to a con- forming use, such use shall not thereafter be changed to a less restricted use. SECTION 9 BILL BOARDS AND SIGN BOARDS Be it further ordained, that it shall be unlawful for any person, firm or corporation to erect or con- struct any bill board or sign board in the “A” Resi- dence District as defined in this ordinance. It shall be unlawful for any person, firm or corporation to erect or construct any Dill board or sign board in the “B” Residence District as defined in this ordi- nance, without first obtaining the consent in writing from the owners or duly authorized agents of said owners owning at least seventy-five per cent of the frontage of the property on both sides of the street in the block in which said bill board or sign board shall be erected, constructed or located. It shall be unlawful for any person, firm or corporation to erect or construct any bill board or sign board in the “C” Commercial District as defined in this ordinance, without first obtaining the consent in writing from the owners or duly authorized agents of said owners owning the majority frontage of the property on both sides of the street in the block in which said bill board or sign board shall be erected, constructed or located. The written consent required in the “B” Residence District and the “C’’ Commercial District shall be filed with the Commissioner of Publie Utilities, Grounds and Buildings before a permit shall be issued for the erection, construction or location of such bill board or sign board. SECTION 10 HEIGHT AND AREA DISTRICT REGULATIONS Be it further ordained, that in order to regulate and limit the height and bulk of buildings hereafter erected or altered; to regulate and determine the area of yards, courts and other open spaces sur- rounding buildings, and to regulate and limit the density of population, the City of Memphis is hereby divided into districts, of which there shall be five (5), known as: “A” Height and Area District. “B” Height and Area District. “C” Height and Area District. “D” Height and Area District. “KE” Height and Area District. The boundaries of such districts, shown upon the map attached hereto and made a part of this ordi- nance, are hereby established, said map being desig- nated as the “Height and Area District Map,” and said map and all the notations, references and other information shown thereon shall be as much a part of this ordinance as if the matters and information set forth by said map were all fully described herein. Except as hereinafter provided, no building shall be erected or structurally altered except in conform- ity with the regulations herein established for the height and area district in which such building is located. No lot area shall be so reduced or diminished that the yards or open spaces shall be smaller than pre- scribed by this ordinance. SECTION 11 “A” HEIGHT AND AREA DISTRICT Be it further ordained, that in the “A” Height and Area District the height of buildings, the minimum dimensions of yards and courts, and the minimum lot area per family shall be as follows: HEIGHT: No building hereafter erected or struc- turally altered shall exceed thirty-five (35) feet or two and one-half (2%) stories. See Section 16 (a) and (b). REAR YARD: There shall be a rear yard having a minimum depth of twenty-five (25) feet. See Sec- tion 16 (i). SIDE YARD: There shall be a side yard on each side of a building of not less than five (5) feet in width, provided, however, that on a lot having a width of less than forty (40) feet and held under a distinct ownership from adjacent lots, and of record at the time of the passage of this ordinance, there shall be a side yard on each side of a building of not less than three (38) feet in width. See Section ils) GS)) Bum! (Gd)- OUTER COURT: The least dimension of an outer court shall be not less than five (5) feet, nor less than two (2) inches for each foot of height of such court, nor less than two (2) inches for each foot of length of such court from the closed end. See Section 16 (i). INNER COURT: The least dimension of an inner court shall not be less than six (6) feet, nor less than two and one-half (2%) inches for each foot of height of such court, nor shall its area be less than twice the square of its required least dimension. SETBACK: There shall be a setback line of not less than thirty (30) feet for the building line and a minimum of twenty (20) feet for the front line of any porch, provided that when twenty-five (25) per cent or more of all the frontage on one side of a street between two intersecting streets at the time of the passage of this ordinance has been built up with buildings having a minimum setback line of more, or of less, than thirty (30) feet from the street line, no building hereafter erected or structurally altered shall project beyond the minimum setback [ 165 J Hae leeNeAw lee 1, le? (@). 1gy dk line so established; provided, further, that this regu- lation shall not be so interpreted as to reduce the buildable width of a corner lot facing an intersecting street, held under a separate and distinct ownership from adjacent lots and of record at the time of the passage of this ordinance, to less than thirty-four (34) feet. LOT AREA PER FAMILY: Every building here- after erected or structurally altered which is located in the “A” Residence District and the “A” Height and Area District shall provide a lot area of not less than three thousand seven hundred and fifty (3,750) square feet per family; provided, however, that where a lot held under a distinct ownership from adjacent lots and of record at the time of the pas- sage of this ordinance has less area than herein re- quired, this regulation shall not apply. Every building hereafter erected or structurally altered which is located in the ‘“B” Residence Dis- trict and the “A” Height and Area District shall provide a lot area of not less than two thousand (2,000) square feet per family. SECTION 12 “RB” HEIGHT AND AREA DISTRICT Be it further ordained, that in the “B” Height and Area District the height of buildings, the minimum dimensions of yards and courts, and the minimum lot area per family shall be as follows: HEIGHT: No building hereafter erected or struc- turally altered shall exceed forty-five (45) feet or three stories. See Section 16 (a). REAR YARD: There shall be a rear yard having a depth of not less than twenty-five (25) feet. See Section 16 (i). SIDE YARD: There shall be a side yard on each side of a building of not less than five (5) feet in width, provided, however, that on a lot having a width of less than forty (40) feet and held under a distinct ownership from adjacent lots, and of record at the time of the adoption of this ordinance, there shall be a side yard on each side of a building of not less than three (3) feet in width. A side yard shall in no case be less than one (1) inch in width for each foot of building length. See Section 16 (g) and (i). OUTER COURT: The least dimension of an outer court shall be not less than five (5) feet, nor less than two (2) inches for each foot of height of such court, nor less than two (2) inches for each foot of length of such court from the closed end. See Sec- tion 16 (1). INNER COURT: The least dimension of an inner court shall not be less than six (6) feet, nor less than two and one-half (21%) inches for each foot of height of such court, nor shall its area be less than twice the square of its required least dimension. SETBACK: There shall be a setback line of not less than thirty (30) feet for the building line and a minimum of twenty (20) feet for the front line of any porch; provided, that when twenty-five (25) per [ 166 ] cent or more of all the frontage on one side of a street between two intersecting streets at the time of the passage of this ordinance has been built up with buildings having a minimum setback line of more, or of less, than thirty (30) feet from the street line, no building hereafter erected or structurally altered shall project beyond the minimum setback line so established; provided, that no building shall be required to set back more than forty (40) feet in any case; and provided further, that this regula- tion shall not be so interpreted as to reduce the buildable width of a corner lot facing an intersecting street, held under a separate and distinct ownership from adjacent lots and of record at the time of the passage of this ordinance, to less than thirty-four (34) feet. Where all the frontage on one side of a street between two intersecting streets is located in a “C” Commercial, ‘“D” Industrial, or “EK” Unre- stricted District, and a “B” Height and Area Dis- trict, the setback regulations may be waived. LOT AREA PER FAMILY: Every building here- after erected or altered shall provide a lot area of not less than one thousand (1,000) square feet per family. SECTION 138 “C” HEIGHT AND AREA DISTRICT Be it further ordained, that in the “C” Height and Area District the height of buildings, the minimum dimensions of yards and courts, and the minimum lot area per family shall be as follows: HEIGHT: No building hereafter erected or struc- turally altered shall exceed ninety (90) feet or eight (8) stories. REAR YARD: There shall be a rear yard of not less than twenty-five (25) feet. See Section 16 (i). SIDE YARD: There shall be a side yard on each side of the building having a width of not less than six (6) feet. A side yard shall in no case be less than one (1) inch wide for each foot of building height nor less than one and one-half (14%) inches wide for each foot of building length. See Section 16 (g) and (i). OUTER COURT: The least dimension of an outer court shall not be less than five (5) feet, nor less than two (2) inches for each foot of height of such court, nor less than two (2) inches for each foot of length of such court from the closed end. See Sec- tion 16 (i). INNER COURT: The least dimension of an inner court shall not be less than six (6) feet, nor less than two and one-half (2%) inches for each foot of height of such court, nor shall its area be less than twice the square of its required least dimension. SETBACK: There shall be a setback line of not less than thirty (30) feet for the building line and a minimum of twenty (20) feet for the front line of any porch, provided that when twenty-five (25) per cent or more of all the frontage on one side of a street between two intersecting streets at the time of the passage of this ordinance has been built up with buildings having a minimum setback line of (Cre ele nY) eae ame a NN Loe Ni Cx CRO VMasiee Se Si leOt aN more, or less, than twenty (20) feet from the street line, no building hereafter erected or structurally altered shall project beyond the minimum setback line so established; provided, that no building shall be required to set back more than forty (40) feet in any case; and provided further, that this regulation shall not be so interpreted as to reduce the build- able width of a corner lot facing an intersecting street, held under a separate and distinct ownership from adjacent lots and of record at the time of the passage of this ordinance, to less than thirty-four (34) feet; provided, however, when all the frontage on one side of a street between two intersecting streets is located in a “C”’ Commercial, “D’” Indus- trial, or ‘“E”’ Unrestricted District, and a “C” Height and Area District, the setback regulations may be waived. LOT AREA PER FAMILY: Every building here- after erected or structurally altered shall provide a lot area of not less than six hundred twenty-five (625) square feet per family. SECTION 14 “D” HEIGHT AND AREA DISTRICT Be it further ordained, that in the “D” Height and Area District the height of buildings and the mini- mum dimensions of yards and courts shall be as follows, provided, however, all buildings or parts of buildings hereafter erected or structurally altered for residential purposes shall conform to the regu- lations of the “C” Height and Area District (Sec- tion 18). HEIGHT: No building hereafter erected or struc- turally altered shall exceed ninety (90) feet or eight (8) stories. REAR YARD: There shall be a rear yard of not less than ten (10) feet. Section 16 (i). SIDE YARD: A side yard, if provided, shall be not less than five (5) feet. See Section 16 (i). OUTER COURT: The least dimension of an outer court shall be not less than five (5) feet wide, nor less than two (2) inches wide for each foot of height of such court, and not less than two (2) inches wide ‘for each foot of length of such court from the en- closed end. See Section 16 (i). INNER COURT: The least dimension of an inner court shall be not less than six (6) feet wide, nor less than two (2) inches wide for each foot of height of such court, nor shall its area be less than twice the square of its required least dimension. SECTION 15 “EK” HEIGHT AND AREA DISTRICT Be it further ordained, that in the “EH” Height and Area District the height of buildings and the mini- mum dimensions of yards and courts shall be as follows; provided, however, all buildings, or parts of buildings, hereafter erected or structurally altered for residential purposes shall conform to the regu- lations of the “C” Height and Area District (Sec- tion 18). HEIGHT: No building hereafter erected or struc- turally altered shall exceed one hundred and fifty (150) feet or twelve (12) stories. SIDE YARD: A side yard, if provided, shall be not less than five (5) feet wide. See Section 16 (i). OUTER COURT: The least dimension of an outer court shall be not less than five (5) feet wide, nor less than two (2) inches wide for each foot of height of such court, nor less than two (2) inches wide for each foot of length of such court from the enclosed end. See Section 16 (i). INNER COURT: The least dimension of an inner court shall be not less than six (6) feet wide, nor less than two (2) inches wide for each foot of height of such court, nor shall its area be less than twice the square of its required least dimension. SECTION 16 HEIGHT AND AREA DISTRICT EXCEPTIONS Be it further ordained, that the foregoing require- ments in the height and area districts shall be sub- ject to the following exceptions and regulations: ELA G EVES (a) eh ine then ACweande: Bae tleie ht and Area Districts, public or semi-public buildings, hospitals, sanitariums or schools may be erected to a height not exceeding seventy-five (75) feet, when set back from all lot lines not less than one foot for each foot such buildings exceed thirty-five (35) and forty-five (45) feet, respectively, in height. (b) One- and two-family dwellings in the “A” Height and Area District may be increased in height by not more than ten (10) feet when two (2) side yards of not less than fifteen (15) feet each are pro- vided. Such dwellings, however, shall not exceed three (3) stories in height. (c) Parapet walls not exceeding tour feet in height, chimneys, cooling towers, elevator bulkheads, fire towers, gas tanks, grain elevators, pent houses, stacks, stage towers or scenery lofts, sugar refin- eries, tanks, water towers, radio towers, ornamental towers, monuments, cupolas, domes and spires and necessary mechanical appurtenances may be erected as to their height in accordance with existing or hereafter adopted ordinances of the City of Memphis. (d) In the one hundred fifty (150) foot height dis- trict, towers for occupancy may be erected above the height limit herein established, provided the largest horizontal dimension of any such tower shall not exceed sixty (60) feet, provided the total area shall not exceed twenty-five (25) per cent of the area of the lot, and provided that each such tower shall be removed at least twenty-five (25) feet from every lot line other than a street line, and at least fifty feet from any other tower. (e) On through lots one hundred (100) feet or less in depth the height of a building may be measured from the curb level on either street. On through lots more than one hundred (100) feet in depth the height regulations and basis of height measurements for the street permitting the greater height shall apply to a depth of not more than one hundred (100) feet from that street. [ 167 ] Eel NAS RoE PT OT RST AREA: (f) For purposes of the area regulations a semi-detached dwelling, or row house, in the “B” Residence District may be considered as one build- ing and occupying one lot. (g) A commercial building in the “A,” “B” and “Cc” Height and Area Districts may waive the re- quirements for side yards, but if a side yard be provided it shall have a minimum width as required. (h) Buildings on through lots and running through from street to street may waive the requirements for a rear yard by furnishing an equivalent open space in lieu of such required rear yard. (i) In computing the depth of a rear yard or the width of a side yard or outer court for any building where such yard or court opens onto an alley or street, one-half of such alley or street may be as- sumed to be a portion of the yard or court. (j) Every part of a required yard or court shall be open from its lowest point to the sky unobstruct- ed, except for the ordinary projections of skylight above the bottom of such yard or court, and except for the projection of sills, belt courses, cornices and ornamental features not to exceed four (4) inches. (k) No cornice shall project over the street line more than five (5) per cent of the width of such street, and shall in no case project more than four (4) feet. (1) Open or lattice enclosed fire escapes, fireproof outside stairways and balconies opening upon fire towers, projecting into a yard not more than five (5) feet or into a court not more than three and one-half (3144) feet, and the ordinary projections of chimneys and flues, may be permitted by the Com- missioner of Public Utilities, Grounds and Buildings, where same are so placed as not to obstruct the light and ventilation. SECTION 17 ADMINISTRATIVE BOARD Be it further ordained, that an Administrative Board is hereby established. The word “Board” when used in this section shall be construed to mean the Administrative Board. The City Planning Commission shall be the Administrative Board. MEETINGS: Meetings of the Board shall be held at least once a month. There shall be a fixed place of meeting and all meetings shall be open to the public. The Board shall adopt its own rules of pro- cedure, and keep a record of its proceedings, show- ing the action of the Board and the vote of each member upon each question considered. The pres- ence of five (5) members shall be necessary to con- stitute a quorum. APPEAL: Appeal from the ruling of the Commis- sioner of Public Utilities, Grounds and Buildings concerning the enforcement of the provisions of this ordinance may be made to the Administrative Board within such time as shall be prescribed by the Board by general rule. The appellant shall file with the Commissioner of Public Utilities, Grounds and Build- ings and with the Administrative Board a notice of appeal, specifying the grounds thereof. The Com- missioner of Public Utilities, Grounds and Buildings { 168 ] shall forthwith transmit to the Administrative Board all the papers constituting the record upon which the action appealed from was taken. JURISDICTION: In specific cases the Adminis- trative Board may authorize by permit a variation of the application of the use, height and area dis- trict regulations herein established in harmony with their general purpose and intent, as follows: (1) Grant a permit for a temporary building for commerce or industry in a residence district which is incidental to the residential development, such permit to be issued for a period of not more than one (1) year. (2) Grant a permit for the reconstruction, within twelve months, of a building located in a district restricted against its use, which has been destroyed by fire or other calamity, to the extent of not more than seventy-five (75) per cent of its assessed value. (3) Grant a permit for the extension of a use or height and area district for a distance of not more than twenty-five (25) feet, where the boundary line of a district divides a lot in a single ownership at the time of the adoption of this ordinance. (4) Grant a permit for the alteration or enlarge- ment of an existing building located in a district restricted against its use, where such alteration or enlargement is a necessary incident to the business existing at the time of the adoption of this ordi- nance; provided, however, that such alteration shall not unduly prolong the life of the building, and pro- vided further, that any such enlargement shall be in no case more than fifty (50) feet from an existing structure and on property in the same ownership as the existing structure at the time of the passage of this ordinance. (5) Grant a permit for the erection and use of a building or the use of a premises in any location to a public service corporation or for public utility pur- poses which the Board admits reasonably necessary for the public convenience or welfare. (6) Grant a permit in an industrial district for a building or use otherwise excluded from such dis- trict, provided such building or use is distinctly in- cidental and essential to a use permitted in an indus- trial district, provided such incidental building or use occupies not more than ten per cent of the lot, provided that not more than ten per cent of the employes of the building or plant are engaged there- in, and provided that such building or use is not located within fifty feet of any street or lot line. (7) Interpret the provisions of this ordinance in such a way as to carry out the intent and purpose of the plan, as shown upon the maps fixing the sev- eral districts accompanying and made a part of this ordinance where the street layout actually on the ground varies from the street layout as shown on the maps aforesaid. (8) Interpret the provisions of this ordinance in harmony with their fundamental purpose and intent where practical difficulties or unnecessary hardships occur. (9) Adopt from time to time such rules and regu- lations as may be deemed necessary to carry into effect the provisions of this ordinance. i Gees las y: Pan Leese Ne Non lle N G (Gy Wl WL US) le Oh aN SECTION 18 CERTIFICATE OF OCCUPANCY AND COMPLIANCE Be it further ordained, that no building hereafter erected or altered shall be occupied, used or changed in use until a certificate of occupancy and compli- ance shall have been issued by the Commissioner of Fublie Utilities, Grounds and Buildings, stating that the building or proposed use of a building, or prem- ises, complies with all the building and health laws and ordinances and with the provisions of these regulations. Certificates of occupancy and compliance shall be applied for coincident with the application for a building permit and shall be issued within ten (10) days after the erection or structural alteration of such buildings shall have been completed in con- formity with the provisions of these regulations. A record of all certificates shall be kept on file in the office of the Commissioner of Public Utilities, Grounds and Buildings, and copies shall be furnished, on request, to any person having a proprietary or tenancy interest in the building affected. No fee shall be charged for an original certificate, but for copies of any original certificate there shall be a charge of fifty cents each. No permit for excavation for any building shall be issued before application has been made for cer- tificate of occupancy and compliance. The use of no building already erected at the pas- sage of this ordinance shall be changed from one class of use to another unless and until a certificate of occupancy and compliance with the provisions of this ordinance shall have been obtained from the Commissioner of Public Utilities, Grounds and Build- ings. SECTION 19 PLATS Be it further ordained, that all applications for building permits shall be accompanied by a plat in duplicate drawn to scale, showing the actual dimen- sions of the lot to be built upon, the size of the building to be erected, and such other information as may be necessary to provide for the enforcement of these regulations. A careful record of such ap- plications and plats shall be kept in the office of the Commissioner of Public Utilities, Grounds and Buildings. No yard, court or other open space pro- vided about any building for the purpose of comply- ing with the provisions of these regulations shall again be used as a yard, court or other open space for another building. SECTION 20 INTERPRETATION, PURPOSE AND CONFLICT Be it further ordained, that in interpreting and applying the provisions of this ordinance, they shall be held to be the minimum requirements for the promotion of the public safety, health, convenience, comfort, prosperity and general welfare. It is not intended by this ordinance to interfere with or abro- gate or annul any easements, covenants or other agreements between parties; provided, however, that where this ordinance imposes a greater restriction upon the use of building or premises or upon height of building, or requires larger open spaces than are imposed or required by other ordinances, rules, reg- ulations or permits, or by easements, covenants or agreements, the provisions of this ordinance shall control. SECTION 21 VIOLATION, PENALTY Be it further ordained, that any person, firm or corporation who violates, disobeys, omits, neglects or refuses to comply with or who resists the enforce- ment of any of the provisions of this ordinance shall be fined not less than five (5) dollars or more than fifty (50) dollars for each offense. Each day that a violation is permitted to exist shall constitute a separate offense. SECTION 22 BOUNDARIES OF DISTRICTS Be it further ordained, that where uncertainty exists with respect to the boundaries of the various districts as shown on the maps accompanying and made a part of this ordinance, the following rules shall apply: (a) The district boundaries are either streets or alleys, unless otherwise shown, and where the desig- nation on the maps accompanying and made a part of this ordinance indicating the various districts are approximately bounded by street or alley line, said street or alley shall be construed to be the boundary of such district. (b) Where the district boundaries are not other- wise indicated and where the property has been or may hereafter be divided into blocks and lots, the district boundaries shall be construed to be lot lines, and where the designations on the maps accompany- ing and made a part of this ordinance indicating the various districts are approximately bounded by lot lines, said lot line shall be construed to be the boundary of such district, unless said boundaries are otherwise indicated on the maps. (c) In unsubdivided property the district bound- ary lines on the maps accompanying and made a part of this ordinance shall be determined by use of the scale contained on such maps. SECTION 23 VALIDITY Be it further ordained, that should any section, clause or provision of this ordinance be declared by the courts to be invalid, the same shall not affect the validity of the ordinance as a whole or any part thereof, other than the part so declared to be in- valid. { 169 ] ele Nie ee le Wave ds, 12) (0) ay Ab SECTION 24 CHANGES AND AMENDMENTS Be it further ordained, that the Board of Commis- sioners of the City of Memphis may, from time to time, amend, supplement or change by ordinance the boundaries of districts or regulations herein estab- lished. Any proposed amendment, supplement or change shall first be submitted to the City Planning Commission for its recommendation and report. A public hearing shall be held by the Board of Commissioners before adoption of any proposed amendment, supplement or change, notice of which hearing shall be given by publishing three (3) times in some daily newspaper of general circulation, stat- ing the time and place of such hearing, not earlier than ten (10) days from the last date of such pub- lication. If a protest against any proposed amendment, sup- plement or change be presented in writing to the city clerk, within ten days from date of last pub- lication, duly signed and acknowledged by the own- ers of twenty (20) per cent or more of any frontage proposed to be altered, or by the owners of twenty (20) per cent of the frontage immediately in the rear thereof, or by the owners of twenty (20) per cent of the frontage directly opposite the frontage proposed to be altered, such amendment, supplement [170 ] or change shall not be passed except by a four-fifths vote of the Board of Commissioners. SECTION 25 ENFORCEMENT Be it further ordained, that it shall be the duty of the Commissioner of Public Utilities, Grounds and Buildings to see that this ordinance is enforced through the proper legal channels. Appeal from the decision of the Commissioner of Public Utilities, Grounds and Buildings may be made to the Admin- istrative Board, as provided by Section 17. SECTION 26 CONFLICTING PROVISIONS REPEALED Be it further ordained, that all ordinances or parts of ordinances in conflict with any of the provisions © of this ordinance are hereby repealed. SECTION 27 WHEN EFFECTIVE Be it further ordained, that this ordinance shall be in effect from and after its passage, the public welfare requiring it. COW Ana's jet AB, ly INE INE AE IE 6, COR Ma Vi Sars le OmN APPENDIX G LAND SUBDIVISION RULES 1. PRELIMINARY PLAN: In seeking to subdivide land into building lots and to dedicate streets, alleys or other lanas for public use, the owner shall submit two copies of a prelim- inary sketch plan to the City Planning Commission before submission of final plan. The preliminary plan shall be at 100 feet to the inch, or larger scale, and shall show: (a) The location of property lines, buildings, water courses and other existing features. (b) The proposed location and width of existing streets, alleys, lots and building lines, and similar facts regarding property immediately adjacent. (c) The title under which the proposed subdivi- sion is to be recorded, with the name of the allotter. (d) The names of all adjoining subdivisions. (e) The location of existing sewers and water mains. (f) The Commission may require a contour map, showing contour intervals of not less than three (3) feet. The approval of the preliminary plan does not constitute an acceptance of the subdivision. (g) The use district or districts and the height and area district or districts in which the land to be subdivided falls according to the zoning ordinance. 2. FINAL PLAN: The original and two copies of the final plan shall be submitted to the City Planning Commission. This plan shall be made from an accurate survey drawn on Imperial 22”x30”. The final plan shall show: (a) The title under which the subdivision is to be recorded, with the name of the allotter, the sell- ‘ing agent, and the engineers or landscape architects responsible for the design. (b) The boundaries of the property; the lines of all proposed streets and alleys and any other por- tions intended to be dedicated to the public use. It shall also show the lines of all adjoining streets and alleys, with their names. (c) All lot lines shall be shown and lots and blocks numbered. Building lines and easements shall be shown and determined by measurements. All streets shall be named, and in the case of branching streets, the line of departure from one street to an- other shall be indicated. (d) All the necessary dimensions, both linear and angular, shall be shown. The linear dimensions shall be expressed in feet and decimals of a foot. The description and location of all monuments shall be shown. (e) Profiles shall be shown of all streets and al- leys (40 feet horizontal scale and six feet vertical scale recommended). Streets shall, in so far as pos- sible, conform to the contours to avoid grades in excess of three per cent. (f) The use district or districts and the height and area district or districts in which the land to be subdivided falls according to the zoning ordi- nance. 3. ACRE SUBDIVISIONS: Where the parcel is subdivided into larger tracts than for building lots such parcels shall be divided so as to allow for the opening of major streets and the ultimate extension of adjacent minor streets. 4. RELATION TO ADJOINING STREET SYSTEM: The arrangement of streets in a new subdivision shall make provision for the continuation of the principal existing streets in adjoining allotment (or their proper projection where adjoining property is not subdivided) in so far as they may be necessary for public requirements. In general, such streets shall be of a width at least as great as the existing streets, and in no case shall they be less than the minimum required below. The street and alley ar- rangement must also be such as to provide oppor- tunity for access and use by adjoining property own- ers. Streets that are continuous shall bear the same name throughout. 5. STREET AND ALLEY WIDTHS: (a) The widths for major streets shall conform to the widths designated on the major street plan. (b) The minimum width for minor streets shall be fifty (50) feet, except that in cases where the topography or special conditions make a street of less width more practical, the City Planning Com- mission may waive the above requirement. When adjoining undeveloped property, a half street may be dedicated. (c) The minimum width of any alley shall be twenty (20) feet, except that where both sides abut residential property a fifteen (15) foot alley may be used, with an easement and building line on both sides of at least two and one-half (2%) feet and a five-foot cut-off at all acute corners. (d) Where alleys are not provided, easements of not less than four (4) feet in width shall be pro- vided on each side of all rear lot lines and side lines where necessary, for poles, wires, conduits, storm and sanitary sewers, gas, water and heat mains. Easements of greater width may be required along lines or across lots where necessary for the exten- sion of main sewers and similar utilities. fie 70a HY Ue aN ANE [ey Teh PCO) dae Ae 6. BLOCKS: (a) No blocks shall be longer than one thousand (1,000) feet between street lines. Blocks over seven hundred fifty (750) feet in length shall have a cross walk not less than ten (10) feet in width, situated near the center of the block. (b) Where it is desired to subdivide a parcel of land which, because of size or location, does not permit an allotment directly related to a normal street arrangement, there may be established a “Place.” Such a place may be in the form of a court, a non-connecting street or other arrangement, provided, however, that proper access shall be given to all of the lots from a dedicated place (street or court), and the minimum size of each allotment shall be permanently established so as to assure a build- ing arrangement commensurate with the foregoing requirements for normal allotments. (c) In new subdivisions at a distance from prop- erty already platted, block widths shall be estab- lished at approximately two hundred and fifty (250) feet. 1 WACOM ye (a) In all rectangular lots and, so far as possible, all other lots, the side lines shall be at right angles to the street on which the lot faces: Lots with dou- ble frontage shall be avoided. (b) Unless otherwise approved by the City Plan- ning Commission for particular and appropriate rea- sons, the minimum dimensions for lots shall be forty (40) feet for width and one hundred (100) feet for depth, and in no case shall a rectangular or irregu- larly shaped lot contain less than five thousand (5,000) square feet. (c) Corner lots shall have extra width, sufficient to permit the maintenance of adequate building lines on both front and side. In normal cases the width required will be not less than the amount of the established building line on the side street, plus the irreducible buildable width and side yard require- ments of lots as determined by the zoning ordinance. (d) Lots on major street intersections and at all other points likely to be dangerous shall have a radius of not less than 15 feet at the street corner. 8. BUILDING LINES: Building lines shall be shown on all lots intended for residential use of any character, and they shall not be less than required by the zoning ordinance. 9. GRADING OF STREETS: A grading plan shall be prepared and submitted to the City Planning Commission with the final plan, showing grades approved by the city engineer. Be- fore the final plat can be approved, the grading of all streets and alleys and other areas to be devoted to the public use shall be completed to approved grades or suitable bond given for compliance with this provision. The amount of the bond and the time limit allowed for the completion of grading shall be determined by the Board of City Commis- sioners. 10. SEWERS AND WATER: No allotment or subdivision will be approved un- [ 172 ] less it is possible, without unreasonable delay, to supply proper water and sewerage facilities. When the proper outlet for sewers is available and the necessary sewers can be constructed by the owner, the work shall be done at once in accordance with plans approved by the City Planning Commis-— sion and under the supervision of the City Engineer- ing Department, and the sewers will be accepted as a part of the permanent sewer system of the city. 11. PARKS, SCHOOL SITES, ETC.: In subdividing property, due consideration shall be given to the dedication of suitable sites for schools, parks and playgrounds. Such provision should be indicated on the preliminary plan in order that it may be determined when and in what manner such areas will be dedicated to the city. 12. DEED OF DEDICATION: There shall be a deed of dedication conveying to the City of Memphis title to all property intended for public use, stated free and clear of all encum-— brances. Such deed of dedication shall include the following: (a) The conveyance of the fee. (b) A waiver of the claim for all damages occa- sioned by the establishment of grades as approved, or the alteration of the surface of any portion of the streets and alleys dedicated to conform to the grade so established. (c) A recital of the building line restrictions and the classification of the property under the Zoning Law. Building line restrictions for residential property shall provide that all enclosed portions of any and all buildings shall be set back from the street line a distance at least equal to the minimum required hereinbefore. Wherever property is subdivided with the inten- tion that it shall have a use higher than that desig- nated on the zone plan, such use shall be stated and the building lines and other rules affecting such higher use shall be shown and noted on the plat. Such designation shall also constitute a petition to the city to change the use designation for such property on the zone plan. 13. CERTIFICATE OF TITLE: The final plat shall be accompanied by a certifi- cate of title showing the ownership of all property to be dedicated to the city. 14. GENERAL: The Board of City Commissioners shall be the judge in all cases regarding the application of the above rules, and particularly where the extent of “necessary” public or private requirements is in question. Approved: (Signed) ROWLETT PAINE, Mayor. Attest: (Signed) 3¢: €; PASHBY, City Clerk. Ra gh Gepeper Gh WV Ci Mk AP NG a WARNING oT Na G COMM SMe LS S= le Oren INDEX Adams Avenue, 46. Adams, Fort, 18. Accomplishments in city planning, 6. Administrative agencies, co-operating, 139. Adoption of city plan, 139. Apartment house development, 123. Area districts, 125. Assessment districts in city planning, 141. Assumption, Fort, 18. Attractiveness of parks, 131. Auction Avenue, 48. Avalon Street, 51. Beale Avenue, 45. Bellevue Boulevard, 51. Benefit assessments in city planning, 141. Bill boards, 138. Board of Aldermen, first elected, 21. Board of Education and playgrounds, 100. Bond issues in city planning, 140. Bond issues of Memphis, 145. Bond retirement, 147. Bridge, first over river, 26. Broad Avenue, 47. Building lines on streets, 143. Busses in city development, 60. Butler Avenue, 45. Calhoun Avenue Yard, Frisco R. R., 64. Calhoun Avenue yard improvement, 71. Calhoun Street, 45. Carload freight terminal, river, 83. Carnes Avenue, 44. Carolina Avenue, 45. Carr Avenue, 45. Castex Street, 49. Castalia Street, 51. Central Avenue, 44. Central Police Building, 130. Central section of city, juvenile delinquency in, 96. Central section of city, recreation facilities in, 96. Central section, proposed recreation facilities of, 98. Characteristics of modern pleasure drives, 109. -Chelsea Avenue, 38. Chicago, Rock Island & Pacific R. R., 64. Chickasaw Indians, 17. Chickasaws, suggested monument to, 136. Chisea, 17. City forester, need of, 135. City limits, extension of, 143. City plan, adoption of, 139. City plan, execution of, 137. City plan, fundamental elements of, 11. City planning accomplishments, 6. City Planning Commission, constitution of, 137. City Planning Commission, duties and functions, 137, 138. City planning, definition of, 11. City planning project bonds, 147. City planning studies proposed, 138. Civic art program, 131. Civie art, relationship to city plan, 129. Classification yards outside city, 76. Cleveland Street, 51. Colorado Avenue, 44. Commercial districts, 124. Community centers, 99. Community centers, definition of, 99. Condemnation, excess, 141. Cooper Street, 51. Cossitt Library bonds, 147. Cotton Belt (St. Louis Southwestern Ry Co.), 65. County-seat removed, 21. Court Avenue, 131. Court Avenue, pleasure drive system, 110. Crosstown streets, inadequacy of, 34. Crosstown traffic ways individually described, 42. Current revenues in city planning, 140. David Street, 51. Deadrick Avenue, 44. Decatur Street, 51. Decision regarding 142. Deficiencies of existing legislation, 141. Deficiencies of existing recreation facilities, 96. Deficiencies of river transportation, 85. Delaware Street, 49. Design of neighborhood parks, 105. Design of pleasure drive system, 113. DeSoto, 17. Development of industrial districts, 90. Development of large parks, 108. Development of recreation facilities according plan, 118. Districts, apartment, 123. Dunn Avenue, 43. Dwelling types in Memphis, 128. Knoxville special assessments, to Harly park development, 93. Educational character of playground activities, 100. Effect of faulty streets, 36. Kiffects of proposed railroad changes, 69. Effect of zoning ordinance to date, 127. Efficiency apartments and zoning, 126. Hlevated freight line, 69. Elevated line along river, 76. Esperanza, Post, 18. Excess condemnation, 141. Exchange of freight stations, Frisco, 71. Existing civic art in Memphis, 129. Extension of city limits, 143. Missouri Pacific and Fair Grounds, 129. Fair Grounds as a recreation center, 104. Faxon Avenue, 48. Features of proposed pleasure drive system, 110. Ferdinand, Fort, 17. Financial stability of Memphis, 148. Financing improvements, 140. Finished products of Memphis, 89. First park board, 93. Fizer Avenue, 43. Florida Street, 41. Flood protection, 29. Forester, need of, 135. Formula for neighborhood park acquisition, 105. [173 ] Fal aN AS Re ee Oe Ree Forrest, Gen. Nathan Bedford, 24. Forrest Yard, Southern Railway, 65. Fort Adams, 18. Fort Assumption, 18. Fort Ferdinand, 17. Fort Pickering, 18. Fort Pike, 18. Fourth Street, 50. Freight classification, Illinois Central R. R., 63. Freight classification, Yazoo & Mississippi Valley Reo: Freight house, Frisco R. R., 64. Freight house, Nashville, Chattanooga & St. Louis IR, Rt (se Hreichin bee Co leestuays OLw2e Freight stations, convenience of, 74. Freight stations, Illinois Central R. R., 63. Freight stations, improvement of, 72. Freight station, Missouri Pacific R. R., 64. Freight station, Yazoo & Mississippi Valley R. R., 63. HrISCOn iver kien CSCCr pine lem on sen Lua Eun emscu Frisco Yard improvement, 75. Front Street, 41. Future river terminal requirements, 87. Future work of Planning Commission, 138. Gayoso Avenue, 45. Gayoso, Governor, 17. General provisions of zoning ordinance, 122. Georgia Avenue, 45. Government barge line, 28. Government, reorganization of city, 27. Government of city restored, 26. Grade crossing elimination, 79. Grade crossing, miscellaneous, 81. Grand Central Station, 80. Greenlaw Avenue, 48. Hanauer Street, 49. Harris, Ross W., 59. Harvard Yard, Frisco R. R., 64. Height and area district regulations summarized, 121. Height of buildings in Memphis, 124. High buildings injurious to community, 124. Holmes Avenue, 46. Home grounds, 136. Hulbert, Ark., terminal of Rock Island R. R., 64. Hulbert Yard, Rock Island R. R., 64. Illinois Central R. R., 63. Illinois Central R. R. grade crossing elimination, 80. Illinois Central track elevation along river, 76. Improvement of passenger terminals, 78. Improvement of Southern freight station, 72. Improvement plan for river front, 133. Indians, Chickasaw, 17. Industrial districts, 124. Information obtained in zoning, 118. Initiation of city planning work, 137. Indebtedness, outstanding, 145. Industrial districts, principles affecting develop- ment, 90. Industrial expansion, 88. Industries not represented in Memphis, 90. Interchange methods, 66, 76. Interurban bus routes, 61. Iowa Avenue, 44. Island, development of, for park purposes, 104. Jackson Avenue, 39. Jackson, Gen. Andrew, 18. [174 ] Jefferson Avenue, 46. Jitney, experiences with, 60. Jogs and offsets, 35. Joint use of tracks in Railroad Avenue, 77. Kansas City junction, 76. Keel Avenue, 48. Kerr Avenue, 44. Knoxville special improvement district, 142. Lamar Avenue, 39. Land subdivision, improper, 125. Land subdivision, poles and wires in, 135. Land subdivision principles, 55. Land values, 126. Lane Avenue, 46. Large park development, 108. Large parks, 107. Large parks proposed, 108. Latham Street, 50. Lauderdale Street, 40. Lawrence’s plan of city, 19. L. C, L. freight, special study of, 72. Leewood Yard, Louisville & Nashville R. R., 64. Legislation, deficiencies of, 141. Legislation proposed, 141. Lights, street, 133. Limitation of building heights, 124. Linden Avenue, 39. Location of recreation facilities, importance of, 94. Lot area requirements, 126. Louisville & Nashville R. R., 64. Louisville & Nashville R. R. grade crossing elimina- tion, 80. Louisiana Street, 49. McGehee Avenue, 43. McLean Boulevard, 51. McLemore Avenue, 44. Madison Avenue, 46. Main Street, 50. Main Street, signs, 135. Major streets, characteristics of, 53. Major streets, classification of, 37. Major street plan, general description of, 39. Major street plan, means of executing, 53. Major streets, types of, 53. Mallory Avenue, 43. Manassas Street, 51. Manufactured products of Mertehie 89. Maple Avenue, 48. Maps for zoning studies, 118. Materials, raw, required in Memphis, 89. May Street, 51. Memphis & Charleston R. R., 22. Memphis & LaGrange R. R., 22. Memphis, Battle of, 24. Memphis, bonded debt of, 145. Memphis, description of site, 19. Memphis, early names suggested, 19. Memphis Terminal Corporation, 29. Memphis, total wealth of, 148. Methods of financing improvements, 140. Mississippi Avenue, 40. Missouri Pacific and Frisco freight stations, ex- change of, 71. - Missouri Pacific Railroad Co., 64. Mobile & Ohio Railroad, 66. Monroe Avenue, 46. Moore, William R., Vocational School, 91. Monuments, 136. Gel ary Nashville, Chattanooga & St. Louis R. R., 65. Navy Yard established, 22. Neighborhood parks, 105. Neighborhood park acquisition in future, 105. Neighborhood park, definition of, 105. Neighborhood park design, 105. Neighborhood parks, existing, 105. Neighborhood parks, proposed, 105. Need of recreation, 94. Negro recreation centers proposed, 98. Neptune Street, 51. Non-conforming use map, 119. Nonconnah Yard, Illinois Central R. R., 63. Nonconnah Yard, Yazoo & Mississippi Valley R. R., 63. North Yard, llinois Central R. R., 63. North Yard, Yazoo & Mississippi Valley R. R., 63. Objections to river transportation service, 85. Obstructions on sidewalks, 135. Operating methods, Illinois Central R. R., 63. Operating methods, Frisco R. R., 64. Operating methods, Missouri Pacific R. R., 64. Operating methods, Rock Island R. R., 64. Operating methods, St. Louis Southwestern Ry., 65. Operating methods, Southern Railway, 65. Operating methods, Yazoo & Mississippi Valley R. Ia (Pa Operation and trackage, Union Railway, 64. Operation of zoning ordinance, 127. Ordinance, Memphis zoning, details of, 121. Origin of pleasure drive system, 111. Orleans Street, 50. Otey Street, 51. Overcrowding of land, 125. Overhanging signs, 135. Overton, Judge John, 19. Overton Park, 93, 107. Overton Park Avenue, 46. Oxford Avenue, 46. Package freight terminal, 83. Packet terminals, 86. Park Avenue, 44. Park bond issue, 145. Park department and playgrounds, 100. Park development and special assessments, 143. Parkway and zoning, 123. Peabody Avenue, 45. Pennsylvania Street, 50. Percentages of different property uses, 119. Person Avenue, 43. Personnel of Planning Commission, 5. Pickering, Fort, 18. Pike, Fort, 18. Pine Street, 51. Planning Commission personnel, 5. Planning for civic art, 130. Play fields, 102. Play fields, definition of, 102. Play facilities, existing, 104. Playground activities, educational character of, 100. Playground activities of park department, 100. Playground areas at public schools, 102. Playgrounds, 99. Playgrounds defined, 99. Playgrounds, proposed, 102. Pleasure drives, 109. Pleasure drives, characteristics of, 109. Pleasure drives in heart of city, 110. Pleasure drives, types of, 113. Ca OM Ma Mele Sao le OnmN Pleasure drive system, features of, proposed, 110. Pleasure drive system, importance of design, 113. Poles and wires, 135. Police power in zoning, 117. Policy proposed for pleasure drive development, 109. Policy recommended for playground development, 100. Poplar Boulevard, 39. Popular support, need of, for city planning, 137. Porter Street, 51. Post Esperanza, 18. Preparation of zoning ordinance, 120. Private buildings, 132. Products, finished, shipped from Memphis, 89. Program of park and pleasure drive development, dos Projects recommended, 7. Proposed legislative improvements, 141. Proposed recreation facilities in central section, 98. Provision for growth under zoning, 120. Public buildings, 132. Public buildings in Memphis, 130. Radial streets, inadequate, 35. Radial streets, individually described, 38. Ragan Street, 51. Railroad Avenue grade crossings, 81. Railroad Avenue interference, 76. Railroad connections to river terminal, 83. Railroad facilities and operating methods, 63. Railroad facilities and operating methods, recom- mended changes, 67. Railroad, first into Memphis, 22. Railroad operation, problem of, 67. Railroad passenger stations, 78, 80. Railroad yards, miscellaneous improvements in, 77. Railroads serving Memphis, 68. Raleigh, county-seat, 21. Ramsey Grant, 19. Raw materials used in Memphis, 89. Rayburn Boulevard, 50. Realtors and pleasure drive development, 110. Recommended changes in railroad facilities and oper- ating methods, 67. Recreation centers proposed, 98. Recreation facilities, deficiencies of existing, 96. Recreation facilities for Memphis, proposed system. 96. Recreation facilities in central section, 96. Recreation facilities, types of, 14. Recreation park on island, 104. Regulation of private property by zoning, 117. Responsibility for children’s playgrounds, 100. Responsibility for execution of city plan, 138. Rice. John, grant of, 18. River front appearance, 132. River front track e’evation, 76. Riverside Boulevard, 49. Riverside Park, 93, 107. River terminals, future requirements, 87. River-to-rail terminal (carload freight), 84. River-to-rail terminal (package freight), 83. River transportation, 83. River transportation, present deficiencies, 85. Roadway design, 54. Rules for development of industrial districts, 91. Sargent Yard improvement, 76. Sargent Yard, Missouri Pacific R. R., 64. Sargent Yard replacement, 76. School architecture, 132. Schools as community centers, 99. [ 175 ] BF OISNSAT i Re SP Osha Schools which should have playgrounds, 102. Second Street, 38. Seventh Street, 40. Shelby, Col. Isaac, 18. Shelby County Court House, 130. Shelby County Court House bonds, 147. Shelby County, establishment of, 19. Sidewalks, abuse of, 135. Signs on Main Street, 135. Sledge Avenue, 44. Somerville Street, 39, 51. Southern Avenue, 44. Southern freight station, improvement of, 72. Southern Railway Co., 65. Southern Railway grade crossing elimination, 81. South yard, Illinois Central R. R., 68. South yard, Yazoo & Mississippi Valley R. R., 63. Special assessments in Memphis, 142. Spottswood Street, 51. Springdale Street, 51. St. Francis Basin, 27. St. Louis & San Francisco R. R., 64. St. Louis & San Francisco R. R. grade crossing elim- ination, 82. St. Louis Southwestern Railway Co. (Cotton Belt), 65. St. Paul Avenue, 45. Street improvements and L. C. L. freight movement, oe Street trees, 135. Streets and pleasure drives, co-ordination 7f, 53. Streets, parallel to Parkway, 58. Street system, faults of, 34. Streets, types of, 11. Street width, unsystematic, 35. Study maps in zoning, 118. Subdivisions, approval of plans required, 143. Suburban and interurban service, 61. Summary, duties and functions of Planning Commis- sion, 139. Summary of zoning ordinance, 121. Summer Avenue, 47. Supreme Court decision affecting Knoxville, 142. System of recreation facilities, 94. System of recreation facilities, features of, 94. System of recreation facilities for Memphis, 96. System, lack of, in streets, 34. Taxing district, creation of, 24. Tennessee, admission asa state, 17. Terminal of Rock Island R. R., 64. Terminal for carload freight, river-to-rail, 84. Terminals, packet, 86, 87. Third Street, 50. Thomas Street, 40. Tracks in Railroad Avenue, joint use of, 77. Tracks in Railroad Avenue, rearrangement of, 77. Traffic circle, plan proposed, 131. Traffic for barge lines, present and prospective, 85. Traffic, Illinois Central R. R., 63. Traffic, Louisville & Nashville R. R., 64. [ 176 ] Traffic, Missouri Pacific R. R., 64. Traffic, Nashville, Chattanooga & St. Louis R. R., 65. Traffic, Rock Island R. R., 64. Traffic, Southern Railway, 65. Traffic, St. Louis & San Francisco R. R., 64. Traffic, St. Louis Southwestern Railway Co., 65. Traffic, Yazoo & Mississippi Valley R. R., 63. Trails into early Memphis, 19. Transit and city growth, 61. Transit extensions, 60. Transit facilities, types of, 12. Transit recommendations, 60. Transportation facilities, classes of traffic using, 13. Transportation, river, 83. Tree planting, 135. Trigg Avenue, 44. Tri-State Fair, 30. Tri-State Fair Grounds bond issue, 145. Tutwiler Avenue, 48. Two-family dwellings, 126. Types of pleasure drives, 113. Unification of transportation facilities, 77. Union Avenue, 39. Union Railway, 64. Union Railway grade crossing elimination, 80, 81. Union Station, 80. Use districts analyzed, 123. Use district regulations summarized, 121. Usefulness of recreation facilities, 94. Uses of property in city, percentages, 119. Vance Avenue, 45. Vocational schools, 91. Vollentine Avenue, 48. Walker Avenue, 44. Walnut Street, 51. Washington Avenue, 46. Wealth of Memphis, 148. Wharf, description of, 87. Willett Street, 51. Work of Planning Commission in future, 138. Yale Yard, Frisco R. R., 64. ey Yazoo & Mississippi Valley R. R., 63. Fi Yazoo & Mississippi Valley R. R. grade crossing elim- : ination, 82. ' Young Avenue, 44. | 4 Zoning and jand values, 126. Zoning in Memphis, 117. Zoning maps, 118. Zoning on the Parkway, 128. Zoning ordinance, details of, 121. Zoning ordinance, general provisions, 122. Zoning ordinance in operation, 127. ' Zoning ordinance, preparation of, 120. i Zoning ordinance, provision for growth, 120. t Zoning principles, 117. i MEMPHIS LINOTYPE PRINTING CO, | . oes) al ork UNIVERSITY OF ILLINOIS-URBANA UTNIINATA 3 0112 122878595