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Comprehensive City Plan Prepared for the Planning and Zoning Commission 1932COPEHENSIVE CITY PLAN DUBU UE , I O VA 1932 Prepared for THE PLANNING AND ZONING COMMISSION of the CITY OF DU U UE JOHN NOLEEN___ ____CITY PLANNER JUSTIN R. HARTZOG, ASSOCIATE Harvard Square, Cambridge, Mass GOlartiiliaTSITE CITY PLAN :SU,U., IC A 1932 Prepared. for THE PINING AND Zt314'IIG COMMISSION of the CITY OF 3uJ 1 JOHN NV ---o- -sir S PLANNER R JUSTIN R. HART ZOG, AS3OC LATE Harvard Square, Cambridge, Mass. TABLE Or Cowl!' - obspter PRINCIPAL RECOMMIDATIONS OF ' 4 I' AN Page I. INTROW ZION II • CITY PLANTING 6 UI. czvr; sURYZY 9 rr. THOROUGHFARE SYSTEM 13 V. PARK AND RZOREATIONAL AREA3 OF DUBUqUE 30 VI. SCHOOLS 36 VII. PUBLIC BUILDINGS AND PUBLIC AREAS OF DUBU=. 43 VIII. JUSINESS DISTAICT3 48 IX. INDUS TaY 56 TRANSPORTATION FACILITIES 60 Xl. DEVELOPMLNT OF WATERFRONT 64 III., CIVIC AESTR-4TICS 69 XIII. ZONING II DUBUqUE V3 XIV. REGIONAL PLAN 78 IT. LAND SUBDIVISION 66 CONCLUSION 38 aaPpleallont FOLLOW-UP PROGRAN 09 MAPS , PLANS AND ILLUSTRATIONS OMITTED FROM THIS COPY MT OF 1.01.A13 ,N;) ?LARS MAST= ILAN rasTING CONTXC'S MAP NAJOR STRUTS -71rD HIG&AT3 Plar Proposed Street 3ectlme 70LIC PARK AND OION STZTEU PUBLIC =MIMS AND GROUNDS PLAN Intersection of Hill Street and Julien Avenue with gout 4ighth :Argot Union Trnsportation Terminal liNCIONAL PLAN MT or ILLILTRYfIONS &totem Approach to Dubuque (U. S. 20) •Stuffs and, the Downtown District Dokque'sIii School - tho nwlens of the Cultural Cantor Tracks or Throe Railroads Sailboards and What They Hide Frontispleoe 10 le 20 45 51 62 29 46 71 PRINCIPUs RECOMIONDATIO TS OF THE CITY PLAN Streets and Traffic 1. Development of a Thoroughfare System for the entire city to meet the needs of city circulation and handling of visiting traffic. 2. Development of street types and widths for speoific purposes to afford greatest convenience to pedestrians and vehicles. 3. Develop streets and thoroughfares in harmony with the areas through which they pass. 4. Improvement of approaches to city from the east and west. 5. Elimination of grade crossings at rRilroads on principal thoroughfares. Recreation 1. 1;?►ke stimulating recreational facilities available to persons of all ages. 2, Acquire and develop neighborhood playgrounds, parks and swimming pools in or near centers of population. 3. Expand the present park facilities through additions to present areas and acquisition of new areas. 4. Develop a coordinated system of pleasure drives, parkways and trails. 5.. Protection and preservation of the natural beauty of the bluffs within the city. ii Public Schools 1. Acquisition of school sites in advance of intensive land development. 2. Consolidation of certain schools no lodger advan- tageously serving separate areas. 3. Codirdination of school grounds with recreational grounds wherever possible. 4. ..Development of grounds to make them attractive by good landscape planting. Public Buildings 1. Acquisition and development of an Administrative Center to provide for City Hall, Court House, and. Federal Building. 2. Provision for the location and eonstruction of a Public Auditorium. 3. Development of a Cultural Center to include such institutions as the Public Library, a MUseum and an Art Gallery, near the present High School. 4. Landscaping of all public buildings, and provision for necessary parking spaces. Business Districts 1. Utilifsati an of the downtown streets for their normal purpose or movement of vehicles and pedestrians, and the elimination of parking except in direct connection with trading. 2. Development of Robinson Street as a by-pass between intersection of Hill .Street and 'u.lien Avenue and Bluff Street. 3. Conversion of downtown alleys into one way thoroughfares. 4. Concentration of local business into veil located centers, with provision of a. equa a strict width and ample facilities for parking to forestall ooneestion o n3 promote efficient trading conditions. 5. Provision of ample width for sidewalks. Industrial Areas 1. Provision for development of a portion of Ham's Island for Heavy Industry. 2. Relocation and development of a deep water channel through Lake Peosta, serving Ji m's Island and the present industrial area. 3. Development of industrial railroad and wharf facil- ities. 4. Canneetion of Hom's Island by a bride over the pro- posed Pepsis. channel at 14th Street. Transportation 1. Use of motor vehiolee as public transportation on the principal thoroughfares where conditions prohibit w►iden- i 1.: of right-of-way. 2. Elimination of the grade crossings at 4th Street and l'.ii.oklberg Avenue. 3. Development of Union Passenger Station, consolidating all railroads and bus line facilities. 4. Development of an airport on Ham.*s island, with alter- native location at Peru flits. iv cation of frontage for recreation, industry, Watsorf 1 and river commerce. 2. rake the river front more accessible and. 'useable for all purposes. 3. Building up of the lowlands at times when economical, through coOrdination with river improvements. 4. tend the waterfront hadk from the river through the development of Lake Peosta as a navigable channel. Civic Aesthotios 1. Improvement of architeote In public And private b 2. Creating an attractive Administrative Center for the oity. 3. Protection of natural and distinguished features. 4. Landscaping of all.publio grounds and open spaces. 5. Tree planting on solected streets. 6. Restraint in street equipment. 7. Removal -of unsightly features on streets. Zoning 1. Division of the city area into districts of like Property uses. 2. Prevention of blighted areas and economic depreciation by avoiding intrusion of undesirable uses into restricted areas 3. Securing coerdination between street capacity and denaity of land use. 4. Pzovision of ample light and air. 1.116.0221122velopment 1. Development of a systemati, hizhway system in, 005rdination wit), the oity thoroughfare system an the state highways. 9. Setting aside of areas for recre,-Ition. 3. Conservation and orotection of natural features 3nd scenic beauty in tha region. 4. Development of lend for neeto which best adapted, such as residence, industry and agriculture. Subdivision of Land. 1. Gulden-ae and control of lana for all uses. 2. CoOrdination with existing Z. Development of land in accordance with topography. 4. Provision of streets and utilities in accordance with needs of the type of development. DUT U; UT , I4tA Report on City Planning Proposals Of MP. se I. INTRODUCTION Location of the City A tri-state geographical location of a city invariably creates interest for the observer, even more than does crossing over a state line into a new set of problems ani influences, caused by difference in politioal history and outlook and legal enactments. Physically, the line which separates the state of Iowa and the city of Dubuque from her neighbors on the east is the Mississippi river, and it is at the junction of Iowa, Wisconsin and Illinois that the city of Dubuque stands. The Mississikpi River The Mississippi River here ranging from 1200 feet to 2000 fest wile in a course shaped like a gigantic inverted batter "S" , is sometimes a wild destructive Faroe carving out new land forms and piling up the old in new locations, but more often a mill and peacefully moving stream. These river characteristics have lstt their impress upon the site and upon the city. The river has influenced the topography, and it has served the people, 2 but always with seeming reservation to do as it chooses. Perhaps it will soon be effectively harnessed so that it may only murmur and no longer rage. Fording and ferrying were for a long time the only means of crossing but now bridges furnish passage over quickly and safely in a fraction of the former time. The authorized channel developments will provide relatively constant facilities fur river traffic. General Charaoteriatios of Terrain The terrain of this region is made up of a wide variety of topographical features. Generally the oond.i tions found an one bank of the river are in contrast with the oanditiona to be found on the opposite bank. Highlands overlook lowlands, and lowlands face bluffs. Dubuque's of ty area includes such variety. To the north is the high promontory Eagle Point now a public park, to the south is Mt. Carmel, a similar promontory, but privately owned, while between lies the river plain, an elongated strip of land varying only slightly in level, and from a few hundred yards to more tran a mile in width. A line of precipitous sliffa form a picturesque wall for the rice r plain on the west, cut here and there by ravines which give aoeees to the hills and plateau above, in all creating a stately town site. Early History The Iadian inhabitants of this area and the eur- rounding region were the Saes and Foxes, when the white men first came on their adventurous explorations. Fol- lowing the explorers came one Juliet Jubi sue, a French trader, seemingly a man of resource and adaptability, for he became friendly with the Indians, wining their confi- dence, r►arrying Pe osta, the daughter of their caie f, and assuming gradually a position which made hi. not curly a personage among the Indians, but a factor to be recognized by the French and Spanish in their oontrol of the vast territory claimed by them in the aississippi valley ypd to the west. Dubu€iue traded up and down the river, and in the woods to the east and west. He received a grant of land i'rora the council of (-ace and Foxes and was known among them by the name of "Le Petit Nuit." Later he received another grant of land from the Spanish Governor. Establishment of a "ettlement Julien Dubu,.;ue, along with °there, in 1788 established a settlement be this area near the mouth, of the stream now known as Catfish Creek, which has come down in history as the "first white settlement" in the present state of Iowa. Lead was discovered in the cliffs and hills, ant became a profitable miming venture, eo the little community was attractive to the hardy, adven- turous pioneer. Dubuque died in 1810 at an early age, being only forty-five years old. After his death conflicts arose between ' the Indians and the settlers which culminated in the Black Hawk -:ar.In 183Z the elaek Hawk, Purchase ?reaty was effected by the 'Jetted States, which opened up a atrip of land fifty miles wideoei the west bank of the ::iseiseippi River, and gave the "white' the privilege of taking up land. First Town Site In the fall of 1833 a survey was made for the town site by the United rlates Government. This town site was laid out in rectangular blocks on tee river plain, with the eorth and soeth streets euralleliag the general course of the river. r•troets in general were given a width of sixty-four feat, and certain of the blocks were reserved for park and other public purposee. The settlement continued to thrive, and more stores and houses were built, along with such institutions as are needed by communities of people. By 1860 :Xibuque had reached a population of 13,000 inhabitants, and in the fo'lowing twenty year almost doubled its poeulation. Thi e raeid growth led to expansion beyond the original town site borders. Lumbering waB a great Industry, manu- facturing had come, agriculture was prosperous, besinees was fleurishing. Citizens bean to bail& homee beyond the town lines. Streets were pushed up the several ravines, and the mineral land claims with their compli- cated boundaries were eubdivided. Land was reelaimed (1) Black Y:awk ar 1832-33 5 from the sloughs along the river. Railroads came. rtreet eailways were eeastructed and the lower part of the town was conneeted xith the plateau above by inolined railwaye. People lived in single family houses ana home ewnerehip was general. Public buildings were erected, bride were thrown over the Mississippi, numerous academiee, schoo/s, and several colleges, and a conaiuerable rance of other valuable institutions were added to the city's physical oompositioa. Dubueue became known as the "Key City." iier name, influence and producte were familiar in a widely growing field. neracter of Growth There wne, however, s eeficienoy in all this growth and progrees. Personal amibition and enterprise produced much, but in the wave of accomplishment there WAS a decide& lack of uordination and 3otnt action to foster a compre- heneive development for the city as a whole. It was largely the individual action on the part of persons in erojeets which has left its eark upon the city. As a xesult, the city has 3rown far in some fields, and has lagged in others. This disjointed growth has thrown many problems upon the present city ae a heritage which must now be solved, to keep Dubuque_in the front ranks of cities of her class. The opportunities are present, and ability andenergy are here in abundance. The three must be coordinated. 6 IT. CITY PLANNING What is the City plan? Looking forward ten, twenty, twenty-five or fifty years, and contemplating what those yearn may bring to the community, there is concern in the minds of many as to how the city will meet the demands that will be made upon it. Reviewing the past we see that the city has stumbled through many difficult situations without any sort of preaonoeived and coordinated action. noan_ning the horizon we nee the errors of the past, those decisions for whivh we daily have to pay dearly, anC the problems of the future waiting to be adec uately solved to avoid a repetition of costly mistakes. %lying problems as you is only part of the job. Isolated solutions are only a hand to mouth ,method. Action must be taken not only at the right time, but the solutions of problems must meet the whole needs of the present day, function jointly, and look to the provision of good condit its for tomorrow. The city plan views the city in this li;it, never as a passive organism, but as one which is constantly changing. It is doubtful if there exists a static city, for those that are apparently standing still are already impregnated with the deadly disease of disintegration. It is not within the :roviuce of the City Plan to attempt directly to make a con :unity grow, but it is the c anecrn of the Ci4y plan to provide that growth shall be for the health, eun;ren- ienoe, safety aaa general welfare of its ei tize ns. Basis for the City Plan You may logically ask on what basis does a city plan propose to reach solutions for problems confronting the community. "Main Street" does not seem to handle the traffic desiring to trade in the stores lining its course. What is the city plan's answer to that situation? It may be suggested that there is a greater and growing desire an the part of the public to trade in these stores, and that the street pavement and sidewalks should be widen- ed to carry this increased trading traffic. The city plan through its study may bring to light that this may not be either the situation or the sulution. kany times the real reason for the congestion is the misuse of the street. by unrelated traffic, and the real solution is arrived at by putting the proper use upon the street once More. 2roblems of coesaualtiee usually are quite involved. To bring about tne reotifioation of these difficulties requires study into many community elements—inot eingly, but in varying group combinations. In Dubwiue, the following factors are consiaered. Thoroughfare ystem Parks and Parkways Reereatlonal facilities Public Buildings and areas Business Districts Transportation faeilitiee Industry Aousing Civic Lathetics Public Conveniencee tad =Leienities Luising Land 7-ubdivision teat of City Planninf in the United States City.Planning has long been recognized as a esir- (1) able function for a city to perform, and in some states it is obligatory .for certain classes of cities and toms to prepare city planning studies looking toward their future development. It is obvious to all that with the proper facts in hand a city may very soundly adjust its capital improvements and. expendi- tures to its annual budget, in accordance with a preconceived program worked out on the knowledge that certain improvements and replacements are going to be nee'.e . In January, 1931, there were official city planning commissions working on future planning programs in 786 cities in the United ,States, with an additional 38 communities having unofficial planning bodies. Of the cities from 25,000 population to 100,000 population, 61A are now actively engaged in studying the future. Zoning,, which is an integral part of city planning, already is in ef- fect for 67 m of the urban population of the oountry distributed in 9.81 communities. These communities range from iTew York City (2) to villages of less than 100 population. "City Planning is simply the exercise of such foresight as will promote the orderly and sightly development of a city and its environs along rational lines with due regard for health, amenity and convenience and for its commercial and ) industrial advancement." (3) 2. Lewis (1) Massachusetts cities over 10,000 populatio �P r©aatte1_ a planning board. and make plans r the opment. General laws Chap, 41, Sec. 70. (2) U. 3. Department of Coerce, 3ureau of Standards, Division of Building and Housing. Survey of City planning and related Laws in 1930,April, 1931 Survey of Zoning Laws and ordinances during 1930b'6 d1931(3) Chief 'Engineer, hoard of -Astimate, New York City l 9 iii. civic suoiix Purpose of the Civic Survey The City Plan, a very hishly organize& struotare with many ramificatians leading to the roots of civics interests and problems, must be based upon adequate and accurate informatioa assembled for demonstrating tae caliber of the eity in various lines of activity. With all the fond of data and statistical detail eollected reflecting tbe status of the city, it is &till highly teperative that the city planner become thoroughly familiar, pereenally, with ths city from every angle. rlithout this intlate cortaet, it is impractical to formulate sound lodgment upon the import of any data that mav be ool- lected. Thee contacts with tbe city, if they arc to be most beneficial, should include observation of the city during all eeasons of the calendar year. This is particularly true in cities where there are aistinct seasonal variations. ioope of the Arvey The acope of the Civic Survey ie determined very largely uy the ceracter of the city, and the eroblems encountered. her problems can be euickly dia&nosele., the cearch for causes is oftentimee eimp/ified, and data obtained in relatively short periode. DI Dutueue, the Civic Survey involved a program of itevesti atioa covering the following phases of municipal aetivity. 10 Street traffic Transportation facilities Commerce and Industry Residential Property Public Utilities Public Conveniences and Amenities Public Nuisances Civic Aesthetics Public Property and its Uses Educational facilities Recreation "ocial Conditions and Custom ; Finan c ialC and i t in, ae Legal Factors History Geology, Topography and Climatology With the knowledge mined by such close association it was possible to view the problems of the city in detail, and yet have a broad conception of the civic structure to serve as both guide and cheek in coordinating and adjusting the needs of the various portions of the city. Diagnosis of kxistints Conditions Simultaneous with the Civic Survey a diagnosis was parried on, analyzing the eity strnoture, to learn its constructive qualities and its deficiencies and needs. Me diagnosis brought out the following as outstanding and praiseworthy featured of the city. 1. Eagle Point Park and Grandview Park, located in the north and south sections of the city, respectively, both situated in high commanding locations overlooking the Mississippi Diver and much of the city. 2. Grandview avenue, a stria ing residential boulevard. 5. The Dubuque Cascade :Road, skirtinz Grandview Park. 4. The accomplishments of the city in reclamation of lowlands and sloughs leading off from the isiBtPPi River. 5. The activity of the city in promotiag river development and the provision of docking facilities. 6. The concentration of practically all railroad tracks generally in one belt in the older part of the city. 7 The water supply system. S. The general cleanlinese of tie city, in both public and private property, Including streets acid alleys. 9. The exceptional High l'ohool building and ataletic field. 10. An excellent Public Library. 11. Unusual facilities in colleges, academies and schools in and about the city. 12. The notable progress made in the architectural merit of recent private business structures. Likewise this diagnosis brought out the following as outstanding needs of the city. 1. An appropriate and adequate thoroughfare system, based on the expansion and development of the present facilitiea. 2. A gradual improvement in the grales and alignment of streets to avtrcome the handicaps brought about by the haphazard subdivision of land in the past. 3. A pros program of cooperation between the city and railroads, for ttie elimination of grade crossings on main tnoroughfares. 4. Improvement of the entranoe approaches to the city, particularly from the east and west. 5. The development of an administrative center, to include murioipal, county and federal buildings, along with other semi-public structures. 6. Determination of the beet use to be made in the future of Ham's Island. 7. on adequate system of public recreation through the development of neighborhood playgroundand dietrict athletic fields for persons of all ages. 3. A municipal 3o1f eourse. 9. Nnlargement and oontinued appropriate park development. 10. Definite allocation of the r1v3r front to industry, coenerce and recreation in the proper ratio. 11. Protection and development of etream courses, the bluffs, andother outstanding natural features. 12. Improvement of school grounds and planning ahead to secure adequate grounds in advance of residential devel- o p men t • 13. Ajustment of the public transportation aystem to the changing times. 1:6 IV. THOROUGHFARE FYSTES The ?treet System of the Cit7 Fundamental to the convenience and safety of any community is a well designed, properly constructed and well maintained system of streets. The very nature of our community life demands that there be adequate ways and ;wane of maintaining contact among the citizens. It must be possible for persons to go about and goods to be readily traasferred from one part of the city to another. 4e hove found ways whereby a larGe percentae of our commu-Acations can be specially transmitted, thus eliminating a portion of the street use. Atness the economic benefits of the telephone. Itowever, in movement of persons and of goods there still remains no satisfactory alternative to the public way and its use. So we must go on each year finding more efficient means of utilizing a channel which has physical limitations au to capacity and development. Efficiency must come in the improvement and proper use of the channel iteelf, in tile vehicles employed and in the management of both. 7treet Layout of the Old Town Area Dubuque was favored with a town plan from the start. The Federal Government laid out a regular gridiron street arrangement which included all of the present downtown section. The main street wao oriented about 270 14 west of north parallel to the line of bluffs, and to the general course of the eUssissippi River. The width of streets wae generally 64', and the alleys through each block 20 to 30 feet wide and the bloeks eenerally measured 220' x 256' with the long dimension in the northerly direction. Telrectangular scheme of street arraneement was continued but in a eore irregular fashion wherever the topography permitted streets to be laid out. Apparently no very great differentiation was made in the standard streets except poesibly in the width of the roadwaya. A few streets were made narrower becauee of topographica1 limitations, and a few were made wider perhapa beoauae of speciel opportunity or functional demand. Streets in the ..editions and. Annexations o- erea P.s the citizens felt the need ef going beyond the old city area, the platting of land was strongly influenced by what had already 'esen done. The result was often in conflict with the topography. an steep streeta and shallow or odd shaped lots are illustrative of the outcome. The old thoroughfares of these periods in general have followed the toeography; for example, Dodge 'tlaet, Julien Avenue and Kaufman Avenue follow tne natural ravines. The fact that there has been continuity in these thoroughfares has been a very valuable aset to the community. 15 Zxistingliain Traffic Routes The existing thoroughfares of Dubuque said to be natural routes; that is, they have may be casually developed aver a long period of time more from everyday causes rather than. any very distinctplanning for future needs. The streets which in 1930 were the main thorough- fares are the obvious routes as conditions exist. The fo11owin8 31.,; list, with the directional function which they sErve. North -south Shiras Street Jackson Avenue Windsor Avenue Oentral ,Wenue (1J.3. 5) Main Street L-,)oust Street Cascade Road (U.(. 61-161) Bryant Street Hill Street Grandview Avenw East -Pest Twenty-second FAreet Rhomberg Avenue (U.. 614 Twentieth Street Seminary '.treet West Locust Street Fourteenth Street Julien Avenue Delhi Street (U.S. 20) Asbury Street Eighth Street Fourth Street Rnd Extension Seoond Street Dodge Street (The groups are arranged in to south) Width ar-71.avement Right-of-W 64' 64' 501-60' 64' 64' 64' 100' 60' 100' 64' 501-641 60' 501-601 64' 64' 54' 64' 64' (U.S. 20) 64' 76' 72' 40' 40' 341-401 401-441 40' 40' 18' 36' 30' 651 40' 441-401 30' 261-301--40, 40' 40' 40' 531--36, 30' 401 40' 62' 501 geographical order from north 16 Relatioaehip Between trete and laud Use If the oitizens are to obtain full use of their properties then there must be street acese commensurate with the need e of the abutting property. There muet oe also a recognition of the variation in property uses, and of the censeeeent neceesity for variation in tee oearacter of streets and tbe service they render. It is obvious that the denser the population in a residential district, the greater will be the Le made of the etreet by pedestrians and. vehicles; likewise, tee greater the intensity of use MbiliA of property for commerce and industry, the greeter will be the proportion of tracking vehicles of larger size and weight, ae well as the increase in the volume of traffio. Related to teeeee two situations, ethical illueteate tee local function of streets, are the thorougefare channels, by means of weieh the residential areas are linked with comeeroial and industrial area for mutual ocavenience. simple relation, when elaborated by more residential an coreeeroial areas and of greater intensity of develop- ment, rings about a network of channels. e find that certain of the ohannels erow more importart by reason of their ability to shorten the distance are ti,e between pointe, oe because they are the natural or only availahle ways be which people from tie surrounding region or other ooruaL,ities enter er leave. In brief, then, there are three olarekee ef streets employed daily by the public. Minor streets —serving only the abutting property econdary thoroughfares—joiaing up looal areas ain thoroughfares—oollecting and distributing trkaiio over t;is city as a whole and connecting with the highwsys aeyond the city Qharacteristics of Thoromhfares The thoroughfaxe as a major channel traffic is characterized by specific features. (a) it must be well located to serve a definite geographical section of the city (b) It must aave directness and freedom from excessive grades. (0) it must be designed to provide adequte width and capacity for all types of traffic which flow to and ire its geographical section. (d) It should have ae few interatotious with other streets as practicable. (e) It should have no grade interseotions with railroads. A Thorou0fars System The success of any type of system depends upon a tacrough understanding of its purpose structure and method of operatidu. The trallio of cities i4 the result of the expressed intentions and desires Lb' thousands of individuals more or less acting independeittly. Of late, regulations aireeting tiie manner in which use may be made of streets have been set up, and etringent control is exerciaed to see that we conform. These regulations apply to both vehicular and pedestrian traffic. The control of traffic by regulation is the logical first etep, since it can be put into effect under and make the most of the existing facilities. The control syetem, however, is not constructive to a very grest degree, and does not seek et the underlying CRUS08 of difficulty and susgest the remediee for congestion and inconvenience. It has been discovered that the causes of traffic difficelties are oftentimes quite remote from the actual pinta ol con- gestion. Consequently. improvements mede without a compre- hensive study of the etty, not only from a traf-oic point of view, bet a eze of land ard recreational facilities, are oftentimes very limited in permanent value. :eub-aeue has already installed a traffic 000trol system. The next logioal step, after traffic hew 'eeen carried to its highest point of efficiency unC,er the aistem of control of existing conditeons, ie the study and devel- opment of orreetVe measures. The elimination of the muses of traffic congestion has tne effect of rejuvenating many exietiog facilities by affordlote opportunity for taeir natural functioning; for exmmle, some residential streets now used illogically as main thoroughfares may again become secondary thorouhfares, or even minor streete--thus per- forming their logical functioll, In tne caee uf both resi- dential area and connercial areas, this ia a permanent relief, affording the desirable quietnees to the district, or the opportunity to commerce and industry to conduct their business an a convenient and economic basis. Other causes of con estion are an insufficient number of thoroughfares, inadequate cross section of the street, excessive grades and the abuse of roadways for improper parking of vehicles. Congestion never brinks financial gain --it is an unnecessary co-nunity overhead. 3ecommendations Types of Thoroughfares To effectively handle traffic Dubuque should. employ these types of main thoroughfares. (a) The radial. Thoroughfare whioli diverges from the oentralarea of the city to the adjacent and surrounding areas of residence, industry and the region beyond. (b) The Circumferential Thoroughfare which toads to encircle the city at str=itegie distances from the central district and provide ready access between the adjacent and surrounding areas without entrance to the downtown or central area. (e) The By-pass Thoroughfare which is specifically a route designed to supplement the thoroughfares by carry- ing traffic around areas with which it is not concerned. Each of these types are employed in the proposed thoroughfare system for Dubuque and also in tie Regional plan. 20 Permanent Imovements The permanent improvements of constructive measures are widenings, and extensions of old streets and thorough- fares, and the laying out of entirely new streets designed distinctly for their purpose. The standard uaed in deter- mining the width of such improvements is the modern highway motor vehicle. Thee roadway must be on a unit basis accom- modating lanes of vehicles. The details of proposed cross - sections so designed are included in this report. The width of lane for each file of vesicles it based upon the character € nd speed of traffic. It is obvious that minor streets do not require the space of roadway rewired for fast moving traffic of main thoroughfares. This graduation corks for economy in cost of road construction and pleasant- ness of the appearance of the street. .'proposed Thoroughfare System Forth -South geographical order) Shiras Street Roosevelt -Wabash Streets Windsor Avenue : den.-Crove1and-Bru.nswak Streets Sheridan -Lowther Streets Peru ::4oa Sycamore Street Mower Street 1m Street Jackson Streit White Street Central Avenue Iowa Street KAi+w Street Madison Street Locust Street (1) �upc.3ed Width of ight-of-way 84' 84' 64' 60' 60'-64' 84' 84' 64' 64' 64, 64' 64'-84' -110' 64' 64' 60' 64' (1) Th.s is the width between property lines. 21 South Locust Street 84' Dubuque -Cascade -?oad 1001 Granger Creek Road 641 Rowan Street 64' Bluff Street 501641 Southern Avenue 64' Alta Pieta Street 70' Bryant Street 84' Grandview :avenue 841-100 Fremont Street 641-66,-84' Stetmore Street 84' McCormick -Collins Streets 84' Avoca Street 641 Bunker Hill )rive 84.' Asbury Street 841 St.Anbro6e :Street 84' Finley Street 64' Pennsylvania Street 110, McPoland Street 841 Marquette -Carter =toed 841 East-West (ingeographical order) North Roar 84' Cemetery Road. 64' Lucretia street o41 _With Street 601 Lincoln Avenue 64, Rhos b rg Avenue 60'-64, eatur Street 64' Farley Street 60, Market -Channel Streets 100' Davis Street 64' a illville Road 841 Muntz Road. 84e Saunuers `Street 64 v Diagonal Street-3roadw -Muscatine Street 64' Monroe ^treat 64' Kane Street ! wenty Second Street 641 Kaufman Avenue 84' 'twentieth 'Street 60' Bineteenth Street 841 Seminary Street 641 West Locust Street 64' Hazel Street 64' Rosedale Avenue 841 Kirkwood Street 641 Seventeenth ;;treat 641-841 21 Cherry Street 64' Delhi Street 84,-1101 Fourteenth Street 84' Grace -Nest Streets 64' Eleventh Street 64' Ninth -Robinson Streets 64' Julien Avenue 641-841 Eighth Straet 64' Hill Street 551-641 Sixth Street 64' (variab1-1 Fourth Street 64' Second Street 86' First Street 64' Doe Street 64,-110' Ridgway Avenue 110' Middle load 110' Sisters Street 841 Plymoath Boulevard 84' North Fork road 64' Coates Street 64' aailroad Street 64' Kelly Lane 84' North Caseade load 34' Julien Dubwtue Drive 84' Eton Street ::AGES 22--27 INCLUSIVE ARE PHOTOSTAT INSERTS. SEE OFFIC 'AL C OPY. 28 The proposal advancel prior to the preparation of the city plan for the elimination of the grade crossing over the C. : . SP & P.,I. C. ,and C. B. c Q. R. R. on the principle approach to the city from the east is endorsed. This approach to the city is of special importance since it is not only the thoroughfare connection with Last Dubuque (Illinois) but is also U. S. Route 20, a transcontinental highway. The oro sing consists of tracks of the three railroads and while well guarded constitutes a decided handicap to the street traffic of the city by reason of the necessity of frequent closiu s. The question of tee elimination of the crossing aas been .tidied as a part of the City Plea. In 1907 (1) a proposal was made that the railroad tracks should be elevated since they could not well be depressed on account of the proximity of the tracks to tee elasiseippi River. The utlook for such a generous solution of the difficulty is of daubtful realization. ?here zeta to be four prase tical possibilities. 1. Maintain the present approach route via the Illinois :ridge,Foxrth treet Extension, and Fourth Street and provide an underpass beneath the tracks for the street. 2. Laintain the saw approach and provide an overpass or viadu.Ct over the tracks. 3. ;:maintain the sane route as far as earket Street, then utilize sixth Street Extension and ` ixth ?treet with a viaduct over the tracks. (1) Report on the rovement of the City of Dubuque, 1907. C. M . Robinson 4. Depart radically from the present approach route and develop a new eastern approach by a bride over the river leading directly from ;fast Dubuque into Dodge' :`treat and including in connection an overpass aver the Illinois Central and L.ilwaukce tracks. The question of this grade Crossing elimination ination is not an isolated problem but is one related to the larger problem of the improvement of the approach to Dubuque from the east. The present entrance to the city is unattractive and not without elementa of hazard in the immediate a eroachcs to tie existing bride cm both eider; of the river but more particularly an the Illinois Bide. It is not unreaoOnable to consider the eventual, reelaeement of tie bridge ae nece: ear r a e.t that true a new ecation for a bridge should be eiected and a new approach to Dubuque developed. k proposal has been incor- porated in the Lajor vreete attci Highwaye Ilan for the. location of the new bridge at the foot of sixth street Lxtensiea and the development of th t street as the new aepeoaci.; with a t 'ade crossing elimination over the railroad tracks at "ixtiz Street. This route would. give direct approaoh free from all hazards and an attractive one with the development of a parked waterfront on either side of the bridge head on the Iowa side. The project lends itaeli readily to execution in stages with the grade eraseing elimination as the first section. 30 PAR AND RECREATIONAL AREAS OF DUBU DE Recreational Facilities a Llodern Need More and more are !Lmerican municipalities becoming concerned with the provisims of adequate recreational facilities for their citizens. Recreation is no longer considered one of life luxuries --to be enjoyed by a few-- but a necessity for all, regardless of their economic statue. And so as our American cities increase in size and popnlatian, they need proe rtionally greater recrea- tional facilities --greater In numbers as well as greater in area. Existing Farks and Playrounds Dubuque is confronted now with the recreational problems that some cities have faced, that others are fading, and those which still others ought to faoe. Dubuque is in great need of more parks and playgrounds. In fact, Ler existing parks and playgrounds provide only one-third of the area needed in a city of her size. There are in the city fifteen parks and playgrounds with a total area of only two hundred and eight acres. The largest of these are Eagle "Point Park, containing; one hundred and sixty-seven acitea, and Grandview Park, with twenty-six acres. The other thirteen tracts are surprisingly inade- quate, amounting to but a total of fifteen acres. 3i Playground bounded by Washington, Jackson 24th and 25th S.trcets acres Cleveland Park -- AO --.--_.z-""•5 " ' da ak s a lark - - - _ �. _ _ _ 2.1 to Washington Park- _ - - ,. - - �. _ _ - w - - 1.4 i: Madis on Park - _ _ - 1.3 " Bluff Side Park- - - - - 1.0 '` Playground, corner Dodge and Booth Streets- .8 " Playground on l2th reet at Central Avenue and :White Street - - - - - - - - - - - - .46 Library Park at Bluff and llth Streets - - .41 it Caledonia Park - ---- --- - -_ .40 Ft West Fifteenth Street Park - - - - - - - - .40 31 ?ark------* ---- w..,. - - -- ..26 e Grant Park - - _ _ _ - �- - - .17 " FrithPark- -_ -- Park--------------- .45 ss These areas are not only in aae quate iri size, but also are not well dietributed to serve the public needs. The residential area of Dubuque is not adequately provided with neighborhood park and playground areas. in the area west of Grandview ,`:venue there are no parks or ;layrounds; neither is that part of the city north of 25th Street provided with recreational areas. There and no existing playgrounds for children under five years, no swimming 1 pools(l', no athletic fields(2), and no connecting parkways coordinating the varieue areas into a park system for the city as a whole. Provision of Park Facilities for Pereone of All Ages A modern park and recreational system should provide adequate recreational facilities for people of all ages, and then the various parks should be ;joined by connecting parkways to form a related system. `+e Teel that every city should provide not only playgrounds for children between (1) A Bathing Beach is naintained of the :ississippi River near the Water :'orks by the City. (2) The High K'ehool has an athletic field and the city owns �hr�1 f P, rk the ages of five and twelve, but that there should be playgrounds for children under five years of age, as wall as athletio fields, tennis carts, Wi. pools, and neighborhood parks for older boys and girls and young men and women. The area to be set aside for park purposes is determined bj lecal canditions, population density and dietribatian, land use cunditions, traffic circulation, publio resources, and available areas suitable fol: reoroa- tional puroosee. it is, therefore, necessary to play today, that we may Ilave recreation tomorrow. Before ocnsidering the recomeendationc for Dubuque note the park statictios of cities in the same population claes: City o.Area Persons Area —67— per Acre 757 rks or paiF Crty La Crosse, Wis. 39,614 518.7 a. Council Bluffs, Iowa 42,648 977.6 Decatur, Ill. 57,510 731.0 Colorado L'prings, 'el- 33,237 at 76.3 6364.8 a. 43.6 10560.0 78e6 5996.8 703.14" 42.1 5740.4 Petersburg, fa. 28,564 506.6 eriden, Conn. 38,480 1344.5 Beaumont, Tele, 57,632 689.4 DITIWIE, LA. 41,679 208.2 " 4! ft ft 56.3 25604 28.6 83.7 6464,0 200.1 6080.0 n !I n Relation of :lark to City Area 841 .1 9.2 12.2% 13.7 % 19.7 10.6 % 3.4 % It is quite evident that Dubuque ie very much in need of more park area. Of tnese eight cities, Dubuque has the smallest park area, and the dreatest number of people per acre. The reasonable inimwn ark area for a city the size of Dubuque is ten per cent. of tne city's area, which would be approximately six hundred acres. the present time, as the above table shows, Dubuque has only two hundred and eight acres devotee to recreational facil- itiee. Dubuque needs at least three ties its present facilities to meet the minimum requirements. Recommendations After carefully considering Dubuquele topographical oondition, population density and trends, and traffic condi- tions, we propose the following recommendations for parks and, playgrounds —a long term program. Parks heservation between Kauiman .Avenue Sxteneion and illville Road at Carter Road. Park opposite the e'enior High School °connecting with the proposed Juniaipal Golf Course (unker Hill Course) a -le Point Park Exteneion Park between Garfield and Rhomberg 4venuee, Shiras and rAanton Streets Park Reservation between titer Works and Roosevelt Street Park Reservation on northern end o. .Am's Island • }Lunicipal Golf Course on site of present Bunker Hill - Coif Course Park area an Cemetery Road Park area at 14th Street 'rxtension aa both sides of proposed Peoata Channel Park area east of Tower '-treet, and bordering on ilississippi River extension of et 15th ntreot Park ilxteneion of Graadview itark Playgrounds 21ayground bounded by nd, idebe and. Jackaon 7treets Playground at3sunders and Crawford *-treets Playground north of .Aiddle Road near XoPoland Street Extension Playground north of Columbia College at Kirkwood and. Cox Streets Playground wet of University of Dubuque Athletic Field Playground north of Dodge fYGreet,extensinn of existing playground ilaygrouud laygrouud Garfield. Playground playground Playground adjacent and south of Dubaque Country Club between Z4ittier, Hamilton, Rhomberg and Avenues aa Rush Street Rt Bryantschool an Southern Avenue at uinn Street on Kaufman Avenue at Dubuque Water Works Other play8rounds are designated in connection with the ubiioechool oroperties Parkways mouth kway between Middle Road and zartburg Seminary Catfish Creek Parkway along Catfish Creek between Delhi treat and. Freemoat Street Catfish Creek Parkway between Freemont Street and. Dubuque Cascade Road southward from Kelly Lane Catfish Creek Parkway between Dubuque Cascade Road and. Mt. Carmel Road Shires Parkway betwasa Sageville Road Park Reservation an Milivilis Road In Dubuque there are no street or boulevard devel- opments which might be classified as parkways, with the possible ex4eption of Grandview Avenue. 4Jarkways are valuable in controlling land development; they increase land values, preserve local scenic conditions, and prevent Etre= pollution and insanitary conditions, Prked Streets ..."...." onab There are certain of the city streetthat should, by- reasoa of thearea served and their partioular location, be classified aa parked streets and receive special attention and care in the planting of trees and in maintenanee. These streets are desigaated in green on the Public aid Reservatioa j :21an.o. ybe Bluffs One of the most outstanding features of the City of Dubuque and reeion is Vie line of bluffs which mark the transition frog the downtown zection to the plateau. above. This natural felture is distinctive and from its top many fine views c,f the river are en;oyed. It is recommended that thee bluffs between Cleveland Park and. Eighth Street, and at -jest lbth treet be acquired by the city as a measure of protection and preservation of natural beauty for tae future. VI. fCHOOLS Role of the ''cleool in the Community The schools play a very important role in every city's composition. They inn -Jenne the life of the eeild between the ages of five and sixteen, the most impress - /enable period of life. They, more than any other factor with the exception of the home environment, determine tee character of the citizens of tomorrow. Ladireetly tieey keep the parents abreast of the changing conditions of iife throneh the ever widening and develoeing inereets of the child. Modern Repiremente in -School Facilities Not only should school buildings be adequate be size and well equipped, but tee grounds must provide auf- fielent play area for all the pueila. There ehould be no overcrowding. Larger plants are deoirable in these daye to warrant the development of the modern oehool plant with its many desirnble ramifications and wide field. of training. There is a erowteg reed of economy in school management whioh oan be met by careful planning and administration. Of prinary importanceis the physical loeation of the echool and its relation to population density aud thv dietributien of school population. Elementary fohopls The grade schools are designed to serve an area of approximately one seuare mile, which, of oouree, places them 37 about one mile apart, and within easy walking limits for the pupils. Fohools should be located away from main thoroughfares, but should, nevertheless, be directly accessible by minor streets. The land should be topo- graphically nearly level so that all parts o the property may be used to an Intensive degree for building, setting, landscaping and play. Elementary Eoboo1s and Playgrounds The size of the school site ic important. Toecause it le desirable to have both schools and playgreunde within one mile of one another, it seems logical in providing odequnte areas about schools to combine the two wherever practiooble. If land can be purcaased reaeono.bly, it is advisable to eeoure it and establish playgrounee within the sohool property. It has not beer fourd practicable to com- bine these when the area ia Less than four acres of land. -choole should be bounded oreferably by stoeets or public ways, perks, or other public property, but never by private property if it is possible to avoid it. The nigh F.ohools A Junior High F,ohool should have at least ten sores in its site, and a 7enior High -chool twenty acres, to perform adeeuately t'esir functions and provide well-rounded facilitioe. :-'ince these echools serve an older group of children, the walking distance and safety factors are not v$ of so much concern. The Senior and Junior High Schools ;should be RP centrally located for the sohool population as possible. Ls Dubuque there are two Junior High Schools -- namely, the Jefferson Junior High School and the Washington Junior High school --along with the Senior High School an West Looust c'treet. The Wahington Junior High School is located as Grandview Avenue is the southwest :section, ant the Jefferson Juniosi High School in Linwood, the northeastern part of the city. The :'enior High School is very well sit- uated and well et ;quipped. Existing School Statistics The following school dvesent facilities in number the size of their grounds: Llementary Schools Audubon Bryant-- ....--------- statistics are given to indicate of schools, enrollment, and :enrollment Franklin Fulton -- Iry ing-__-_ Jackson-� Lincoln tarshall-....------ -- , Peter Cooper--(2) Prescott Total------m.- 288 166 202 336 339 218 304 158 51 350 2,412 es eaea Approximate Area of Grounds 1.5 acres 1.3 1.7 1.7 1.5 3.6 2.5 2.75 .60 17.38 YY 17 fi it Yf YY it YY Y: (1) 1930. (2) Now abandoned. Junior High Schools Approximate Enrollment Area of Grounds Jefferson Junior 4614.02 acres Washington Junior 598 4.4 Total -_..___..,. 1, 059 8.42 Senior ]high School Part Time School 844 19.00 central.-....ow,..,..._..._....0. 161 .50 Totals 4,446 -- 45.04 Renal, of Sizes ofSchool Grounds Under two acres---------- 7 Two to three acres 4 Three to five agree 2 Over five aores 1 14 sites If n It will be noticed that seven of the fourteen sohoole have an area of leas than two acres. This is inadequate for the needs of the pupils. We have carefully considered the existing school conditions, and we feel that the following recommendations are advisable from an economic as well as a geographical point of view. Recommendations 1. We advise that Irving School be abandoned eventually, because of its 1ocati n on a busy thoroughfare in a Potential business center. r;e suggest that an area 40 of about four cares be set aside for a new school site north of the intersection between Middle Road and Asbury Road. 2. In view of residential trends, we suggest that six acres be acquired for future development north of Coates Street and.. south of Dodge Street Extension. 3. With the development of property along Catfish Creek, we anticipate a tendency to develop residential prop- erty in the southeast part of the city. For this reasaa, we suggest that six acres be reserved between Dubuque-Caeoade hoed and Rowan Street. 4. We suggest that Bryant School be enlarged to twice its pre sent size as a school property for expansion, or that the additional area be acquired as a public play- ground. 5. Likewise we suest that Lincoln School be en- larged to include the whole of the block between Forst Late and Vest Fifth Street and Nevada and. Spring Streets. 6. Inasmuch as the area about Audubon aad Fulton Schools is tending toward light industrial development, these schools will eventually be unnecessary. It is there- fore recommended that provision be made for the ,pupils in the residential district in the northern part of the city. And for this p rpu a we eug a at that two blocks be set aside on Lowther Street, and that six acres shall be secured on the south e,ide of Saunders Street to provide educational facilities for this part of the city. 7. Because of the dangerous location -of Marshall School between two main thoroughfares, and the impractieabil- ity of enlarging the grounds about it, we suggest that six acres be Bemired south of Emerson Street, so that eventually the Marshall School may be shaadcaed, and the new school site may be ready to take its place. Sug ,ated Coordinated Uae of School Grotmds a P1 ygrourcde The location and character of certain of the school properties lend themselves to coordinated use. Prokoaed School Areas Saunders Street Emerson Street Lawthe.r :street Middle Road, 1 oPoland and Asbury Road site (develop in oonjnnotian with adjacent playgrounds) Dodge Street, and Coates Street Rowan Street i xisting School Areas Jefferson. Junior nigh iahington Junior High Audubon Jackson Playground Use Children's playground Children's playground Baseball fiela Athletic field Children'a playground Children's playground Baseball field Athletic field Tennis courts Swimming. pool Children's playground Baseball field Athletic field, Children's playground Baseball field Playground Use Athletic field Tennis courts Children's playground It N Existin4 School Areas Wont.) Playground Use Central Children's playground Prasoott �: H Lincoln f Franklin Bryant (playground proposed adjacent, or extension of school property) Tennis courts Children's playground Y II . PUBLIC BUILDINGS AND PUBLIC AREAS OF DUBUQUE Character of Present Public Buildings The present geographical dietributian of the public buildings in general in Dubu ue is unfavorable economically and aesthetically. The only exception, ,posibly, to this condition is the "'ublio _eibrary. Located as the southeast corner of Eleventh h tract and Bluff, the :eibrary is practical- ly on the fringe of the downtown business district, and un- like the existing, City Hall, Post Office and. Court house, it has oontrol of adjacent property. aka wo.old suggest, how- ever, that the trustees of the Library take advantage of this fact and keep within their control the development of the surrounding area so that the Library shall always have the best possible setting. The City Hall, Post Office and Court House are not so fortunate. Their buildings are obsolete, their set ,in; inadequate, and their lack of unity and coordina- tion with one another ?,.Kea them uneconomical from a civic standpoint. They are scattered over the business section of the city. The City Hall is ioeated. on Thirteenth "treet between Central ..Come and Iowa Ctreet, the Court House an Central Avenue between Seventh and Eighth ,treats five blocks south of the City Hall, and the Post Office occupies the northeast corner of Ninth and Locust Streets, three blooke southeast of the City Hall and three bl0eks northwest of the Court Nouse . All are relatively close together, 44 but have none of the desirable relationships for either public convenience or civic appearance. To group these principal munioipal buildings of Dubuque is manifestly advantageous for convenience in the transaction of the business of the city. Careful oonaider- atian has been liven to various locations for the develop- ment of a central administrative group, sad as a result the area between Fourth and Sixth treete, and. Bluff aad Locust flreets, has been chosen as being the most favorable economically as well as aesthetically. This location eoonomically and 2eographically favorable because it is central, anA because of its situation at the edge of the Bustnens District, and yet distinctly a part of it. it is easily accessible by way of Fourth, Fifth, Sixth, Bluff and Lcust r,treete. Aesthetically it is favorable because, it has as a background the picturesque bluffs of Dubuque, and because it overlooks the attractive Washin3ton Park. Recommendations Municikal Administrative Center That the three blocks between Fourth and Sixth and Locust and Bluff .treets be aoquired for an Administrative Center, consistiag of a City Ilan, Court .douse, and Federal Building. 'hat the area fronting an .'ourth Street between Bluff and leomazt be reserred for the Court aouse, That the (entral seotion be reserved for the City Hall, and that Fifth Street be closed or spanned by the building, so that it will be an the axis of the street. That the area an Sixth Street, Bluff and Locust Streets be reserved for the Federal Atilding.(l) The grouping of the three buildings at one loea- tion, in a oodrdinated arrangement, will not only develop an attraotive central area in the city, but it will also facilitate buziness aad afford greater convenience to the public at laree. It iv also recommended that the bleak between Third and. Fourth rtreets and. Bluff and. Lecust be aceuired for park purposes as a setting for the uourt ou.ae, aad to aid in creatia a center of eoma distinction by balancing Washington Park ou the north site oi toeproposed Adminis- trative Center wail completing the symmetrioal plan. The downtowa section, now without oentrai open space, will find thee breathing spaces ol growing value, especial- ly if they can be made more engagingly useful. it is only a question of time before Dabueue will require an Auditorium to meet the needle ot ier eiUzena. We feel that the time has come to plan definitely for this facility. The black between Second and Third, Locust and. Bluff ttreete, south of the proposed park, ia reoommended tor the Auditorium. The purposes and functiou of an Auditorium (1) Thia site has been acquired since the preparation of the Administrative Center Plan, by the U. S. Government, for the new Federal Building. 46 require free amass mad spaciouenees about the building. The proposed park and the frontaee on Second. Street (86' wide), along with Bluff aad Locust treets (both 64' wide), meet these needs. It is recoeeended that the* areas be -acquired E400n as poeeible, Cultural Center fbe poeeibility of the creation of a Cultural Jen- ter for Dubulue has been studied. .'"uch a centex would in - elude the Public Library, a Museum, an Art Gallery, and ouch related institatians as might later be advisable. The eite should be oommandin ta elevation, eel:7 of EL3COZki, eloeely related to the park and parkway eystem, and in a seetion of the city that will remain residential in chaxacter for u long period of years. A enter of this nature would be a valuable asset to Dubuque, which already has a strong array of intellectual inetitutione. Az a aite letving the deaired valificetiams we recommend the area edjeceat ani northeast of the High 'cool. This Bite would allow the incorporation of the splendid High School into the eroup. The eventual need for expareeion or rebuilding of the preeent ?ubiic 3ibrary builtling will present the opportunity of ueinc that inetitue tic= ae the nucleus for the center. The Fire Stations are ouffieiaat La nualber, and they are, well distributed over the city. Likewise, the Public 47 Water Worka are in good condition, and any need for additional structures oan logically be developed on the present Lana. holdin03. 48 VIII. BUSINESS DISTRICTS The downtown Business District is a compact seo- tion of the city, and. while it has ample opportunity for expansion, there are rather definite boundaries which re- strict its growth as a unit. The absorption of the area suitable for business, however, will be a long time in prowess, so that this limitation am the district is not of important concern. But there are two problems which must occupy more and more the public mind, and particularly the business man, in conneotion with this area. These are the problems put in questic*a form every day by hundreds of people as they travel downtown. First, how to get into the business district quick- ly and conveniently. Seoond, what to do after getting in. The Entrance Problem Access to the downtown section is provided by name thorou,hfares, o that entrance may be made from all sides. Unfortunately each of these access thoroughfares has some restricting limitation which prevents it, from serving its purpose to the best advantage. The elimination of these handicaps by improvement in the thoroughfare itself by better organization of the thoroughfare system, or by relief measures, such as parallel: traffic streets and by-pass routes, eon- stitute the first problem. How to get about, end where to park the oar, are representative of the everyday conflicts which confront the shopper downtown. It is a psychological situation --one bearing chiefly upon the volume of trade of the stores. People in a happy mood are larger buyers than those in an irritated frame of mind. For this reason alone there is sufficient cause for making the shopping and business dis- tricts attractive, convenient and safe for the buyer and the business house. These two problem apply also in varying degree and form to the local business district. Generally the situation for the local district is one to be met by preventive measures, such as securing in advance or along with store construction, ample street widths, facilities for parking of customers' cars, and the handling of service trucking. Ma other words, it is the elimination, at the souroe, of the handicaps which cost money year after year in the older parts of the city. Recommendations In the downtown distriot Dubuque must build in accordance with the present basic facilities. The plan laid down one hundred years ago fixed the width of street rights -of -way, and each succeeding period of business growth and expansion retained this width, until there has now been imposed a wall of brick and stone and steel at the property lines on the principal business streets. Dubuque is not IA) in a position to blast out these permanent boundary markers and reconstruct on new lines. Main r'treet, in bat a few blocks, coUld provide facilities for transacting the total business of the city, if the stores and office buildings were built high enough, but the congestion of the street would increase by leaps and bound: and choke off access to the buildings. The present inability andinadvisability of widen- ing the downtown streets, such as Main Street and Central Avenue, at an enormous cost, makes necessary the adoption of a policy of building id accordance with the oa4aoity of the existing streets. Phs pr o blecn of the sound development of the central area is not a queetion of the merits or disadvantages of the skyscrapers in contrast with the buildi dgs of lower height, but one of working harmoniously with both, where the condi- tions warrant the employment of both. Each type gat be co- ordinated with the width and capacity of the street upon which it abuts, if oon;estion end overbuilding are to be avoided. No reoommendations for the widening of the prin- cipal streets in this area have been nnade. Three factors -- the opportunity of general business u a to expand over a wider downtown area, the proportionately high cost of such improvements, and the decentralizatiaa into local or neigh- borhood centers of specialized retail business --make suet Im- provements urdesiraele. It ie at the border of the downtown district, however, that improvements are urged so that unimpeded aocees can be obtained to the district. A most important step is the itaprovoment of the thoroughfare connection with the res- idential area immediately to the west. ffill Street and Julien Avenue converge into nest Eighth Street, wad thus foroe the traffic of both streets into a single entrance way, forming what is often termed a "bottle neolc" ia traffic flow. It is proposed that this situation be relieved by the development of a parallel connection for the length of this congested section of Eighth Streel. Robinson Street woeld be utilized for this purpose, and would be widened between Bluff Street and Julien Avenue. The effeot of the parallel would be to allow Eighth street to be used as a one way street between Hill and. Bluff Streets for traffic inbound to the business district, and Robinson Street to be reserved for outbound traffic. The present intersections of hill Street and Julien Avenue would be enlarged, and a small open space provided, about which the traffic would flow. Another important boundary improvement is the elim- ination of the railroad grade creasing on Fourth treet, which is dismissed in connection with the chapter an the Thoroughfare System. The development of Garfield Avenue as a thoroughfare parallel to Rhomberg Avenue, with the elimination of the grade crossing over the Chicago Great *astern Railroad, will 52 provide a dire t and uninterrupted approach to tha downtown area from the northeast section of the pity and from eiecoasin. Fourteenth street ohould eventually be widened as one of the principal thoroudlifares, and as the only one that can be made to extend directly from the banks of the Mississippi across the city to connect with regional highwaye. Central Aveuus north of Twenty-second Street will always be the prinoipal route of access from the north, and widening is suct;ested. Special Development of Certain Alley Within the downtown distriot, the wide alleys located between Main -treet and Central Avenue, and between liain t-treet and Locust 'treet, offer an opportunity for securing additional traffic circulation by their improvement through the elimina- tion of all protruding structures and poles, ant adaptation of the alleys as one way streets. This would in no way eliminate thew from use as service ways, since they need not have side- walks for pedeatrians. Vehicle Parking uch of the congestion in the downtown district of Dubuque arises from the unwarraated use of the street for vehicle palking. This portion ol the city depend a upon expeditious movement of persons and doods for its welfare MST* than any other sectioa. It is not desirable or econ- omically practicable to utilize streets as long period park- ing areae. It is me or the outstanding requirements of the 5, present day that a high degree of mobility be maintained. liaane of transportation hew developed high speed, but if the channels in which movement le neaessary are clogged, then a oodiy percentage of the inorease in value from this source is lest. Street pavements have been improved in design and construotion to meet the improvement In tranoporta- tion facilities. This advance has brought about incre aed cost not only or iaitial conetructian, but for replacements. It le illogical that vehicle's parked for extended perieds should oocupy not only the limited apace of etreets, but also the costly pavement. ihe parking privileep in congested streets ehoald oe extended only to those vehicles employed in active traneactian of busineee. ell other vehicles should be parked in off street areas or in garages. The U40 of the streets ie the right of all eieizens, under such regulations as will insure eeual privileges. The permitted parking of vehicles should be'eecmadary to the principal ties of streets, as ohannels of circulation. The aeraneement of parked cars on a street will depend upon the pace needed for the movine vehicles, .end the width oe the roadways. Under normal conditions where there is a eingle roadway and traffic ie moving in two directions, there should ordinarily be parking only parallel to the curb, unless the width of the pavement exceeds 50', ehere there are trolley tracks, nine to ten feet must be al owed tor each treek. Iii general, where practicable, parking at 45° angle increases the number of vehicles about Sid A important factor in the business street la the side wa3 . ` raotiaal1y all stores traneaot the greater per- oente of their business with people who are pedestrians, and in Daly a few oases is it possible for a person employing a motor vehiels to pass directly from the street to the atore. ?he and upon the sidewalk spas. is varied, street lighting standards, fire hydrants and other fixtures re4.nirs about two fest of spaoe, the chow windows of stores attract people who oaeugy E "eaa able standing spa o of two to three feet, and the passing individuate e 4 ire about two fact a soh. Yor a principal bus ea st*set a sidewalk to handle tie menial traifio houid have a mini AM width of not less than twelve .t t ,,ri.th of a .roadway p*vet at the expense of n sod aidavalk in -h :tree feet. It is u 000nowia t Nbighborhood Stave Center As , buiue ; 3n in p op u1., t i on and built- area there dsve oped. a need for certain type o bopp and trading facilities nearer to the home than thc downtown die- triot. This need created a desxid :nor tha corner grocery and dri; ,stared. At first thece stores were 3icattmred rather indiscriminately in tie reeideatial ar ss, but have now eons to seek loeatioae on to thcro rya. It la iu the interest t7 both the house cif sad store that. tee stores O. located in c rautp/e coo; �iontiy ale `t►rtbut d ♦throuw;,ii- out the �i. a w iden si.iait di d3 �i�1. io s ♦ �L pux? oae V .. thet3.e oeu t w L5 is only realized when they offer convenience of aocesa and freedom from traffic conestion. 1-toe s developiad in these centers should provide ample parking faoilities off the road- way pavement as a means of a oiding repetition of the down town conditions of congestion. hese groups should provide grocery stores, drud stores, small garage and fillina sta- tions, opportunity for a moving picture theatre, barber shops, aad the like. All attractive and convenient. 56 IX.. I?DUvTRY Industries of the City Dubuque has been noted for the large wood working industries which beg-.n business in the early history of the city, when timber abounded in the region and was floated down the river on high rafts. The immense sawmills =are no longer needed, but the various types of special snood manu- focturing still furnish employment for a large proportion of the population. -,.eet 1 working, clothing mrnufaature, candy, chemicals, shoes and hardware are other outstanding industries. Railroad shops also have been large employers of skilled, mechanics. There is a reasonable diversity of industrial operations. General Industrial ::.reas Industrial operations are located most generally in the area of the original town, with the lighter forms of manufacturing closer to the downtown section particularly between 6th and llth Streets east of White Street. Generally the heavier types of industry are situated along the rail- roads. t vrious times in the past the city or private interests have reclaimed considerable acreage of slough and low land along the river, which has materially adivaiced the welf=:re of the community. These areas have been absorbed to some extent by new industries. The greatest need, however, is for acreage to attract large industries. These areas should be so located that they can be made extremely attrac- tive from the point of view of proximity to the housing; sections of the community, and transportation facilities -- both rail and wrter. East of the central section of the city is llarn's Island, of some 750 acres, with varying elevation from 590' to 600'. This island and adjacent land along Lake Peosta Channel give Dubuque a very considerable opportunity to attract industries, particnlrly of a heavy character, whose raw materirtls A.nd, products can be handled by barges on the river, and by the railroads. Leoommends tions am'sa Island s a part of the isaster Plan this potential indus trial property has been studied in its relationship to the city as a whole. The proposal for the development of Ram'ss Island primarily for industrial purposes is linked up with the idea of bringing river transportation service further into the present industrial section of the city by the re- location, 7 idening and deepening; of Like £e`osta Channel. It will be necessary to raise the general elev.:tilr. of Ha m's Island to above 6001, so that there may be a cure favor- able permanent relation to the river in flood stage. It is proposed that the fill from the new channel will be used largely to effect this new elevation. The land east of the proposed channel should be allocated to primarily industry, certain areas being reserved for bridge heads at the cross- ings of the channel and for the required. streets. The circulation system of the area is based on the extension of Last 14th Street to the island at the width of 100', crowing the channel over a bridge of the bascule type. Other crossings would eventually be needed to bring about necessary connection at Est 17th Street, Decatur Street and Roosevelt Street, with perhaps a connection at Farley Street. belt line railroad connection is proposed from (1) the railroads at Pine Street to an industrial railwey system on the island via Est l8th Street with a drawbridge at the channel. ,11 of these crossings are at grade, and will logically continue so until such time as conditions would warrant separation. East 14th Street would terminate in a traffic circle which would be the distributing center to the street system of the island. The blocks of the indus- tri:=l section are generally quite large, ranging about 500' x 1000'. The belt line system is designed to oonneet with and serve all blocks. At the river terminus of all streets a reservation 200' wide has been set aside to provide access to the water for public use. mere are approximately 215 acres in this industrial portion of the island. To the north of the industrial section is a tract of about 220 acres tentatively designed for an airport site, which would have useable dimen- sions of 3000' x 34001, providing an opportunity of an A (1) Chicago Get atestern , and Chicago, Milwaukee , St. Paul and Pacific R.R. 59 rating under the U. S. Department of Z;ommerce area regula- tions. The tip of the northern end. af the island at the upper entrance to reosta Channel is recommended as u river pnrk reservation. X. IMEETALEELLEPALLEE alder the general heading of Transportation will be included all forms of publics transportation --railroads street railway and motor bus, air transport, andriver transportatian. The latter, however, is discussed more fully in oonnection with waterfront development. Railroads --------- Dnbuque is me of the relatively few railroad cross- ings over the Mississippi River. At this point three trunk line railroads enter Iowa from the east -,-the Illinois Central Railroads -the Chicago Great Western Railroad, and the Chicago, Burlington andQuincy Railroad —using jointly one bridge. The Chicago, Milwaukee, St. Paul and Pacific Railroad panes through Dubuque an the west bank. Physically all of these railroads are closely asociated, in joint trackage or ad3a- cent or generally parallel righte-of-way. -Passenger and freisht statians, however, occupy separate locations. There are a few serious grade erosLings. Yards and shops of the Illinois Central are located south of its passenger station and Jones Street, eat of ,,oeth Aain Street. Chicago Great Western yards are between 8th and 9th. Streeta. The Allwaukee Road. shops and yards are north of 19th Street. The close proximity of all tracks to each other, and generally puraliel- ing the north and south etreets is a most favorable condition for both the railroads and the city, especially in facilitat- ing the elimination of the grade crossings in the east an 61 west thoroughfares. The service to Dubueue by these roada is maintained on convenient schedules by both steam and motor trains. Recommendations Grade Crossing Eliminations There are two looations in the city where grades should be separated at an early date. First and of ohief importance is the orossing of the higeway from the east (U.e. 20) over the tracks of three railroads! It is recom- mended that this approach to the city be made over a via- duct at 6th Street, with a four lane pavement and two pedes- (1) trian ways. he se00144 grade elimination would provide un- interrupted acoees to tkie section oast of the Chicago Great ;eastern Railroad tracks. la thee case the proposed route is via east etreet to Garfield avenue, approaches to begin at eashington Street and just east of Kniest etreet. It will be imporeant that the intersection of east 14th Street with the Great ,eavern, and the eillwaakee traoke be eepae rated when the former becoues a main artery to Industrial areas along Peosta Channel and to Ham's Leland. The state law regulates the frequency of grade crossing separation Oy limiting railroad cooperation in eliminations to every thirdstreet. Union Passenger Station The four railroads entering Dubuque now maintain separate pasenger stations. Three stations are within a (1) On U.S. 61. quarter -mile radius of each other, and the fourth not more than a half -mile distant. None of these stations is of modern character, and it is recommended —in the event of reasonable justification that there be a censolidation of stations of all railroads and terminal facilities of bus lines. A location on the site of the present Milwaukee static is reoommended. Buse Transporttion This form of transportation beeauae of its ready adaptability to traffic needs ad freedom from a fixed track will be more and nore a factor in the transportation system of the city. Residential development nolonger fellows the caxetrack for the motor vehicle., both public and private, has made areas accessible. The present tranepertation routes based on the thorouehfare system are well adapted to serve the various actione of the city from the doantown district. Consideration shoeld be given to the elimination of trolley cars on Main Street einem the street is too narrow to operate successfully the necessary double ‘traokaere in the faee of the growing private motor vehicle density and congestien. Track - lose trolly cars might readily be adapted to this main line of the public transportation eyetem. Bus Station It is recommeaded that a union terminal for the motor bus lines entering Dubueue be included in the proposed union passenger station as a means of increasing the public conven- Vence and coordination with rail transportation. Airport Dubuque should have a permanent airport.. located north of the established transcontinental airway, the field of aerial transport is still in a rapidly grow, inn stage and an airplane conneetion should be made with the nearby ,air mail, paeoenger and express routes. The possibility of the extension of the preeent air mail and patsenger route ,f the Mississippi valley Should be tailor-, tant to Dubuque. The use of airplanes for private use is - Constantly incraaAng an& becoming a factor to be recog- nized by all enterprising cities. Two sites have -teen studied, one in Peru and the other at Ratite Island. The former whilo enjoying some particular advantages arieing from location away from the river on higher land is about five miles from tbe city. Ham's Island site within Vac city would be approximtely one and one half Idles from the post office, the downtown district and the 'proposed union railroad and bus station. This latter site is favorsd for the airport if the proposed industrial devel- opment of aam' s Island,is undertaken, otkiarwise the 2eru aite would be advisable. i. DVLL�TENT •0 • r?..7TRFROXT Dubuque has at the present time about six mad a half miles of waterfront along the Iississippi Elver, rorighly divided. into three classifications: Induetrial and Commercial 2.0 miles Recreational .1 Undeveloped 4.4 Total C.6 a This fronta.se from the northern to th6 southern city includes the ice harbor end the south side cf the channel paralleling lommerPial .oreet. The recreation front- age is in the vicinity of th-ater Works. In this section the waterfront is oonsidered prima- rily from the industrial and commercial point of view, but coordinated generally with the oityte need for recreational water frontage discussed in another section of this report. The 11182issiopi River ha aerved Dubtviut well in the pat and the city is strategioally situated to capital- ize the revival of commerce on the river. The proposed. nine foot ohannel will mean a most favorable position for Dubuque from an operating point of view. lath a greater depth of water, eaore(zenerally maintained, it is poesible to operate bars more eontinuously and of larger tonnaze which means ultimately greater economy and more ousines6. Municipal River Terminal and. Lanuetrial 7sterfront Dubuque alreadj nee an up-to-date terminal with all modern equipment, consisting of a warehouse and float- ing dock connected by a ramp. This terminal is reached by Janes 3treet, a well paved industrial street and by rail- road connection. ;list nort14 of the river terminal 16 the ola oze ona Ice Uarbor with apkaioximately me half mile of fraat- an which is located a omutruction dard for towboats barges. This harbor is used extensively for lviagw river craft durine the winter months and for small pleasure boats in summer. About a thousuad fe1,4 of froutae an tbe river just north of the out of the ice Narbor ia uied for aild gravel storage. North of Commercial ;;treet is another inlet parallel to the ice :iarbor which leads to the foot of East 3th %relit on which are located the Interstte liower Plant 4.nc. =4.Nr Itr Gas Company. -'7.outh of the e eoniu .iricAee is a small stretch of frontage used for sand and gravel yards. Control o Rirerfron The control Knd doveloprr_ent of.the river -front is lodged in the Dock Commission, ccmposc:d of three plembeks. The riverfront iimi re in the main now,in private owner- ship although there is some question re4-trdine the title to a large portion of the rivrfront. Recommendations Park Reservations In the general allocation of riverfront for various future purposes, tbs oobrdinAtion of uses and needs ia a controlling factor. it is logical that certain very suitable areas should be designated for park and recrea- tion purpose: so that the public may have access to the water at all times. An important st,etch for this purpose is that from the Illinois Central railroad bridge south- ward,. a distance of about 1500'. This park would create a pleasant entrance to Dubuque in keeping with the size and aharaeter of the city. The designation of ans3ther- park location has been made in connection with industrial allocations, on Ham's Island, where the northern end of the island, containing 30 acres is well fitted for a water- front reservation. This area is opposite the present 4.ter orks. It is recommended that these two park proposals be included in the development of the river- frontage it a.odord- ance with Joint needs, commercial and industrial. Industry and Coerce The Biverfrct from the proposed part at the north F> i'• 7..am' Island to the southern end of the island would eye ellocated or industrial and commercial purposes, most desirably those of heavy type. ., further °description GI the development of Bs Island is given in the section on Industry. north of the Jisconsin Bridge the river banks, fur. a distance of more than 3000' and extending beyond the city limits, are aaruupt with only space enough between the water and bluff to accomodate the Milwaukee Railroad tracks. This frontage can best serve the city as scenic in quality in eonnection with Lagle Point Park. The riverfront south of the .aunicipal terminal is paralleled very closely by railroad yards aad tracks and thee are fixed in their location both by function and nec- essity. The narrow strip of land eat of the tracks might conceivably be raised to above flood stage to accomeloaate certain types of industry but such service probably will not be neceseary or desirable. Peosta . Channel 4••••ma.,•.***.— The present Lake coma is not navigable, being par- tially filled by flood action and. dammed for indaatriel uses. The proposed Feosta Chennel would create some 19,000 feet of additional frontage which,with the exception of 1:ew reeer- vetians for street and bridge crossings end smell open spaces, would be industrial. Streets would parallel this industrial frontage on both sides of the channel. Channel Ftreet and the industrial streets are recommended to have a right-of- way width of 100' which would allow an ultimate pavement of 56' and access to private property or space for vehicle park- ing of 22' on each aide of the street. General The recommendations as set forth in this eection would add 6.2 miles of industrial and commercial waterfront on the river and channel, and 1.3 miles of recreational waterfront to the present facilitiee. The reminding front- .;tom would be scenic or private institution property. It is not recommended that 1Pir,se scale improvement operations be entered into for the immediate accomplishment of the pro- posals. It is, however, urged that all developments, as undertaken, be completely coerdi.uated with the comprehen- sive .plan. 69 XII. CIVIC Ar,STRZTICS Cities, in addition to being orderly and efficient in their business and industrial affairs, must be attractive in their physical structure. Lore and more it is becoming recognized that factors which are highly productive in in- fluencing sales and in increasing industrial output are dis- tinguished by a certain pleasantness in color, form and style. The same is true in civic development. A city may have all the qualities which go to make up an ordinarily satisfactory civic structure, but if deficient in the qualities of agree7 ableness and pleasantness to the senses, then it falls short of true accomplishment and. service. Without hesitation we immediately take steps to overcome foul odors--iritations to the sense of smell, and excessively loud and continuously prolonged noises --irritations to the ear, and gradually more and more each year is the knowledge gaining ground through- out the country areas that offense to sight is a parallel detriment to a community. We are in the stage of civic development where we must recognize the place of civic taste In many communi- ties the produces standard of individual taste is high, which in turn a high civic standard. In other communities this quality may be noticeably absent in the expressions of both the individual and the city. It is to architecture and land- scape architecture, along with engineering, that we may turn for guidance; but for the full realization and accomplish- ment of a fine city, the responsibility rests upon ech individual citizen. What are some of the specific features in the city which should be influenced by taste? They are of three categories: private, semi-public and public. The first Is generally a personal problem of the individual in the devel- opment of his home. In the semi-public group are the stores, office buildings, churches, theatres, factories, railroad stations, etc., which are the expression of corporations or groups of people. The third group is composed of the physical structures of the city, county, and other governmental classes. It is with the 1;st two categories --and particularly the last -- that we are most concerned. The charaoter of the streets, -lid their equipment, tree planting, the public buildings, parks, playgrounds and open spaces, are the responsibility of the public at large. These features are the means of expressing our collective ideas of beauty, convenience and efficiency, and by them the city is judged. Dubuque in many respects possesses an atmosphere of individuality. Some of the streets of the older parts of the city are distinctive because of the tree planting end the character of the houses. The bluffs have a stalwart charac- ter, the river leads a majestic air when viewed from many vantage points, and the natural terrain is inviting. It is upon all of these that the heavy hand of man has fallen, though sometimes softened in its effect by an inherent but dulled sense of beauty. mar NMI • Leoommendat The appearance and condition of the streets of a city, taken as a whole, are an index of the character of a community. Their function is to provide channels of circula- tion; all other uses are secondary. The condition of pave- ments, curbs and sidewalks is one of management and finance; their appearance is a matter of aesthetics. The streets of Dubuque compare very favorably when judged by many cities of her class, in the extent and condition of pavement, and in general cleanliness. ;very effort should be continued to keep all streets free from unsightly poles and direction signs, and heterogeneous advertising. In some sections of the city a vqst improvement ooula be made by the planting of street truss. Rhomberg Avenue in part is a splendid ex- ample of the effectiveness and value of tress to a street. Billboards, particularly in residential sections and in close contact with or cutting off saenio views, should be removed. There are not many offensive business signs in the downtown section, and in many cases the signs are parallel to the building front. This method is recom- mended to .::void the contusing and unintelligible condition resulting; from signs overhanging the sidewalks. It is recommended that some of the historic st - tures be acquired from tie to time, either by the city or by the public spirited societies, so that those spots 72 associated with local achievement may be preserved for the future. The old cabin in Eagle 'oint park is an example of a worth while step in this direction. One of the great handicaps to Dubuque's ue's public and semi-public buildings is the lack of setting. The block size, which 1s so standardized, bring: the problem to the front in conneetian with each new building of this type. It is recommended that those institutions requiring new structures look tc locations outside of the downtown section, so that they may develop an harmonious setting. The High School and its grounds fully demonstr tes the dvantage of this procedure. The improvement in the appearance the business distriet during the pEst two years is worthy of special commendation, both in the character of new structures and in the reconstruction of some of the older buildings. The business section has many shabby structures that should be torn down and replaced by up-to-date modern buildings of good architecture.. There are splendid locations in the downtown districts Alich should be ' sorbed in reconstruc- tion before the district is expanded to' inclu€ie a wider area. The two downtown parks should be developed for more intensive use by the public. This is particularly true of Washington Park, -in the heart of the city. 73 .III. ZWIUG III DUBUQU. Purpose The pu.` eose of oning is to encourage the right use of land and the erection of the right buildings and structures in the right Iodation, and to promote health, safety, oonvenience and general welfare through actability of use and value. Zoning protects the man who develops his property along proper lines from the man who does not. If zoning is rightly carried out, it means the substitu- tion of an economic, scientific and efficient program of city building for was,, inefficient, selfish and hap- hazard development. Meat of Zoning in the United. :Mates Zoning began in the United States in 1916. Since that time there iss been rapid reeognition of the merits of the zone plan in making our municipalities better ply;ces in which to live and work. To dtxte, nine hundred and twenty communities, which include over thirty-nine million people, (1) have been zoned. How is Zoning affected in the City? The Jtate of Iowa in 1923 pawed the zoning enabling (2) law which delegr tes authority to municipalities to secure the benefits of this type of community action. Under thi; authority the city is authorized to enact certain regulation: (1) U.a. Department of Commerce, 1931. (2) State of Iowa, Chapter 134. Laws of the Fortieth General .assembly. 74 for the guidance of the entire city. These regulations give the city the right to gavern the following: The height, number of stories, and the size of buildings and other structures. The percentage of the lot that may be occupied. The size of yards, courts, and other open spices. The density of population. The location and use of buildings, structures and land for trade, industry, residence or other purpose. The law specifically says that the regulation shall be made in accordance with a comprehensive plan and de- signed to -- Lessen congestion in the streets. :eeure safety from fire, panic and other dangers. Promote health and the general welfaere. rovide adequate light and air. Prevent overcrowding of land. avoid undue concentration of .population. Facilitate adequate provision of transporta- tion, water, sewerage, schools, parks and other public requirements. The city may divide itself into as mart districts of sue)]. shape and area as may be deemed desirable, but suited to acoomplieh the purpose of the zoning authority conferred upon it. Within these districts it may regulate 75 in the manner and for the reasons just enumerated. These regulations must be uniform throughout each district, but regulations of one district may vary from those of another district. Reco <-; le2th tions I .b ique has been divided in accordance with the state law into districts for the foi1owinc uses: 1. Sin 10 2ami1y Residence 2. General Residence 3. Special Residence 4. Local Business 5. Business 6. Light Industr • 7. Heavy Industry In a Single Family 8esidence Distriot provision is made for single-family dwellings, eduoational and religious structures, public buildings, parks arcd playgrounds, and the customary minor structures which go with each of these `aces. A General Residence District includes two-family dwellings, as well as the uses allawed in the Single Family Residence District. A. Special Residence Iis triat makes provision for more in enee use of land for residential purposes, permitting all dwellings of the other districts and multiple -family dwellings of all types, apartment houses, hotels_, clubs, lodging and boarding houses, sanitariums and garages not used for repair work. 76 Besides those uses permitted in ssy residence district, a ',octal Business District allows retail stores, barber shops, moving picture theatres and other.amusement places, oil and gasoline service stations and public garages, and the like. These districts are not large in area, but are strategically located. fide Bum -Jives, District provides for the customary retail stares, theatres, office buildings, eta. , normally found in the downtown business areas. Manufacturing which offers no public nuisance may "ee located in a ,while all industry and manufacturing may be .placed in a fie -ivy industrial Distriot except such uses as stockyards, refineries, reduction plants and the like, where emitting odor, dust, smoke and noise. These latter mast be taken care of in this location en the merits of each specific ease to protect the interests of the publie. Mich of these seven zoning districts has area and height regulations. Under the area regulation, the sizes of front yards, rear yards, courts and. building areas are determined. The size of the lot to be occupied depends upon the use to be made of the land. finder the height reg- ulation,, the height of all buildings is determined. The principle involved in regulating the height is that the height of the structures shall have close relationship to the width of the street or open space upon which they are treated, to secure adequate light and air and to provide against overcrowding of the street and land. 77" 4oning determines the right use of land, and pro- tects tri,?. use of land for that purpose, which means that the present loontion of stores and other uses outside of their proper district is not affected —except that they are classed as nonconforming uses, and may not be changed to ary other use, except to become a conforming use. Provision is made in the ordinance for changes in building and land use, for the restoration ef destroyed buildings, use of signs, extension of a use of one district into another district, the amendment or change of the ordinance, the establishment of a Board of Appeals, and ways and means of enforcement. 7® ZdaTIONAL PL4 tiye ;iovziL1 Center Politically, Dubuque must be definitely set off from the adjacent territory. From almost every other ar , however, there is but little reason fora barrier. The city in the trading center for a large area, some sixty to one hundred miles in radius. People are constantly coming and doing. Produce is bein6 boat;ht and sold. Merchandise is transferred. The re idents of the city seek relaxation in the country, and the people of the country and adjacent towns come to Dubuque to make purchases and for entertain- ment. There is a community of interests. City Problems Dubuque has opportunity for comparison of planned and unplanned area: right within her borders. The original town area was planned, and suffers only from density of we, while many sections in the extensions have fundamental problems. The errors of these extensions have been handed down for years to the extent that they are no longer recog- nized as wasteful of convenience, time and money, and to some extent dangerous to human life. It is to correct these errors and ,provide for the future that the City Plan is made. :chile the trading area of the city of Dubuque is widespread, the region with which she should be most seriously concerned is the immediate environs. In this ad jaoent 79 territory, the city has direct interest in the circulation system of roads and highways, in the areas suitable for recreation end which the people naturally seek, and al in the development of land, particularly where this development has, or tends toward urban character, such as residence or business purposes. Primarily this interest centers in the areas which are potential additions to the city in the next ten or twenty years. There are now some 2,000(1)people liv- ing just outside of the city limits, primarily on and between the main thoroughfares --Asbury :goad, Middle Road and Delhi Road. There are various reasons why this section is build- ing up, and reference has been made to recommendations for thin type of fringe under the heading of Land Subdivision control. The Re ;ionel Plan Area The 'water Plan extends beyond the city limits for a distance of one mile, as a means of codrdinating in detail the near -by sections where most of the suburban development is now taking place. The environs have been construed to include the territory within five milesof the limits of the city. It is this area which has been incorporated in the Regional elan for Dubuque --an area including some ninety square miles. Character of the segyjii�on The character ofthe region varies from rich farm land to more or less unusable land, from upland to river (1) U.3.Cenew, 1930. 80 bottoms, and from pietvreapuely rolling country to the more abrupt and sometimes precipitous bluffs. Purpose of the Regional Plan The great purpose of the Regional Plan is to dis- cover in advance of any urgent demand, the ways and means of best making the region suitable for human use, how it some day may support a denser population without running counter to natural conditions and to the improvements that may already have been made. We may scrap our improvements, but to do so without having fully realized upon the investment is only to pile up an ever increasing debt without any relatively permanent contribution to the convenience or safety of the people. Recommendations There are three fundamental factors in the develop- ment of the regional area surrounding the city. Zech of these factors must be planned in a broad comprehensive man- ner, if the environs are not to repeat and perpetuate the problems of the city itself. To prepare the skeleton system upon which to build for the future is the province of the Regional .flan. The throe factors ore: 1. Thoroughfares. 2. Use of land. 3. Oper, apnoea. 81 All develaements will eome under these three head- ings. They Are not isolated factors, but closely related ones, and mast be earefully coftdinated. Much the same principles apply here as in the city area, but the freedom and latitude for development -to meet present day conditions are much greater. It is here that opportunities exist. Thoroughfares The highway system of the region is well favored in the number and loeation of radial arteries. The Regional Plan shows that these highways reach out and bring practimil- ly all of the surrounding towns, villages and farm diztricts into direct conneetion with. the city. The problems that will arise in the future with thee highways will be those of adequate width of right-of-way and the character of devel- opment. It is important that such arteries as the .U.goville Road, Asbury oad, Middle Road, Delhi oad, north Cascade Road and. Casoade Road Should have 1101 rights -of -way in the region. It is not reeommended that there be general land acquisition for this purpose, but that it be made a systematic and definite program of coordinated effort with the tate, County and%ty. Circumferential highways are needed in the region, as in the city. There is a distinct absence of this type of encircling or enclosing highway which brings all the sur- rounding communities into direct contact with each other. 82 These outlying centers in the region are potentially the sub - centers of the future city, and it should not be necessary to travel over indirect thoroughfares, or to the heart of the city, if the destination is laterally to some other local community. As a means of meeting the future needs these cir- cumferential highway routes are recommended for the region. The first is within the city and the one mile zone, and con- silts of Bellevue Road, Kelly Lane, liarqustte Road (new) , G aster Road (new), Gardeners Lane (in part) , cnd. Shires Street with extension. The second circumferential is shown on the Regional elan as the Dubuque intermediate highway extending from the Julien Dubuque Reservations and encircling the region at about two miles from the city limits. The third route, the Dubuque Outer Highway, is locate& clear the outer edge of the five mile zone and at the boundary of the regf.on. In all cases, where pra,etioable, oxiating roads have been utilized as portions of the routes, so improving the transportation facilities of the existing farms throughout the region. This system of highways is proposed as the basic sys- tem of the future and as the guide for the intermediate roads and streets which will be developed as land is more intensively used. These roads must *11 be developed accordire to their own peculiar traffics needs from period to period, and there should be individuality in their oharacter. The recommenda- tion is repeated. --that adequate width be acquired for richt- of-way, for which 110' is considered reasonable. 83 The growth of the city of Dubuque into the region sees to ind.ioate a primary tender for residential expan- sion out Asbury Raed, Middle Road and Delhi Road to the west, and southward out the Dubu ee-Cascade Road. The former for smaller home properties, end the latter for larger properties. For industry, there is now no marked tendency in the region, since there are still large areas to be absorbed in the city and on Fiam's Island, and along, the Eeosta Channel and the areas ' ee' aimed in the southern portion of the city, for this purpose. There is, however, lana along the .river in the vicinity of Peru that lends iteelf to large scale inane - trial development. The larger portions of the regions logically will best remain, for many gears, farm land wad small, scattered oonmunities. Dubuque and the environs have so much soenie beauty that there ire two problems of major importance: first, to determine what should be designated for permanent preservation; and secondly, with so much to enjoy, there will be a tendency to ignore the need for ac airing portions for public reservations, against the time when such ac.+,isi- tions will be difficult. We have undertaken to make the selection of areas to be set aeid_e for permanent reserva- tions. the selection the aim h_s been to include representa- tive features, such as Mississippi frontage highlands, creek courses, slleys end geological formations. 84 These have been linked together by parkways and other connections so that there may be cobrdinr;tion into a comprehensive system. In some cases it is proposed that the eanneotions be made by rather narrow strips along creeks through which only trails are to be provided; these connec- tions have been designated "Trailways," and would be restrict- ed to the use of persona on foot, and to the necessary vehicles used in maintenance. Where these trailway strips terminate in parks and reservations there is always means of accede by highways of special character. A scenic River- view Parkway is suggested on the highland level from the proposed Julien Dubuque Reservation to, the Dodge Branch Rand where it connects with the Dubuque tauter Highway. Outer < ighway would link up all the parkways and 'railways in the southern and western portions of the region, and finally with the Little Llaquoketa River i?arkway and ltieserva- tion on the north. FLAW reservations for park use are reconiended., based on geographical distribution and variety of scenic qualities: the Julien 'Dubuque Reservation in..the southeast, overlooking the Mississippi River; jwiss Valley Reservation in the southwest; ©aCwills Reservation in the west; and the Little Maquoketa Reservation in the northern portion. Oertairs of the thoroughfares occupying scenic locations and prominent portions of the highway system, while not part of the parkway system, should be specially developed 85 by tree planting. These highways are designated On the Regional 23ati. These recommendations may seem extreme, and beyond the needs of the city and the environs, but many metropol- itan areas are involved in intensive studies trying to are what little remains of the once pleasant surroundings, an. trying to create from waste land. what Dubuque now has in abundance. :XV. LAND SUBDIVISION The eotual preparation of land for some type of urban use requires considerable thought and skill, if it is to be q successful and an eoonomiaalIy profitable under- taking for both the developer and purchaser. The character of the finished development, its relationship to ;hat has gore before, and its adaptability to the trends of the future, are all fundamental. factors. If the city is to expect the mature to be better than the pest,. there must be ways and means set up to bring about the necessary coordination. What are some of the elements that eust be aoSrdinated't Fundamentally the subdivision must be properly located to - suit its purpose. for example, residential property intend- ed to be ultimately low priced mnst be located on land that will not require large expenditures for preparation --grading of lots and streets, instillation of utilities, and the other indispensable items. Secondly, the property must be adjusted to codrdinate with the neihboring street system. Thirdly, the development must contain or be provided with convenient access, locations for nei :hbor1iood stores and schools, and facilities for recreation. Fourthly, the util- ities ueces:,ary for the welfsre ane sefety of the purehs sera must be planted intelligently end econo!icel1y to link up with the city systems. ose of Lend Platting Control rho purpose of coOrdinated land subdivision is to ftrnish a common basis ;or all parties to assist in build - in up the community and to seoure the home owner and pur- chaser a security for the future. The control of land subdivision is also a means of affording definite economies to land developers. 3y setting forth in advance the coOrdinatin requirements, the conflicts are avoided whioh foree difficult situations upon publio spirited citizens. The State of Iowa (1) in 192? provided for the 000rdination of land 91att1ng with the city layout by requiring that before a plat may be filed with the County Auditor or Recorder, it must bear the approval of the City Council and the City Plan Commission. This juris- diction extends to any tra t of land within the city and for a distance of ono mile beyond the city limits. No land may be divided into lots or blocks or dedicated for streets or other public use, and recorded, without this official approval. Land 3ubdivieion Aegulations In order to faoilitate the work of apy?oval and to furnish all lend developers with the besie for proper platting, reemlations have bean drafted setting forth the general require- ments for: streets and alleys; blocks; lot; building lines; parks, playgrounds an. school sites; acreage subdivision; the preparation of the piers; and the procedure of filing plans for approval with the city authorities. (1) Chapter al, Gode of Iowa, 6278-131. JONCLU.sION We wish to express our appreciation at this time to members of tilt) Planning and Zoning Commission and the Council of the City of Dubuque, to the city officials, and to the large number of seml-publie agencies, to corporations, and citizens at large in their various capacities, for the hearty cooperation and valved assist9nce in the preparation of the City Plan. As a means of realization of this wioe program, we would urge that the same broad, hearty and vorageous endeavor which has chara.cterized the citizens of Dubuque in the p7,st, be directed toward the accompli hment aid fulfill- ment af this fer the future City. AWL UM TO CITY PLAN REPORT ?OLLOW-UP PROGR_A The execution of the City Plan and the accomplish- ment of a well rounded city, ordered on sound basic prin- ciples, is now in the hands of the citizens of Dubuque. The action required to bring about this situation is the responsi- bility and duty of all citizens. For about two yearn careful study has been given by the Commission and its Consultants to the needs and the formulation of ways and means of bringing about a coOrdin.ta . plan. The application of the plan is not a function of the city government for only the next year or the next five years, but one to extend for twenty years or more. s each year brings situations calling for capital im- provements, the opportunity is always present for building according to preconceived plans, the net result of which should be the execution of the Master Plan. The results of each year should not be measured., necessarily, by the ex- penditure of funds, but by the consistency with which the improvements are executed and coardlnated toward the ac- complishment of the Plan. The foll€ w-up on the City Plan to bring about the desired accomplishment means definite action alon four im- portant lines of activity: 1. Planning as a permanent municipal activity. 2. Financing. 3. Administration. 4. Publicity. 5. Construction. 90 Experience has shown that results cannot be obtained comuensurate with the energy, thought and funds expended un- less there is close co[irdination of these supplementary ac- tivities. The fallowing detailed program of follow-up is gested as the procedure ad;^pted to bring results from the City plan. 1. Adoption of the Plan by the planning and Zoning Commission, :after holding a public hearing, and presentation to Council for its official recognition. 2. publication of the City plan and eeport, in the fora of an attrective booklet, for widespread distribution among the citizens of Dubuque, to acquaint the public with the purposes of the City 21an, the needs of the city, and the ways and means devised of meeting; those needs. 3. Exhibition of the Plans in the Public Library, Chamber of Commerce, meeting places of various organizations, schools, etc., to •ether with an explanation of the purposes and .ai.s of City Planning andof the City Plan of Dubuque in particular. 4. ;special newspaper publicity fea,tuxing projects most urgently needed for the welfare of the citizens. 5. Organization of methods for carrying on thede- tails of the wore of the planning and mooning Commission under a reasonable animal budget appropriation in close co- operation with the city departments. sue- 1 (a) Prepay tior of detail ,plans for the zon- ing districts. (b) Preparation of plus showing building lines. (e) Detail studies for improvement projects. (3) 7sopin; maps, plans Em4 data up to date. (This. work oan be done most economically and satis- factorily by a person with citb planning training employed- as a secreti r,plann ng en :,ineer, .aided at Ti rteriy intervals by advice and counsel with the planning consultant) . 6. Adoption of the Zone Plan and Zoning Ordinance. 7. Preparation of a Budgeted ;Tanning Program for improvements for a period of five to ten years. 8.. Periodic review of the Budgeted 21anning Program, to keep it up to d 1,te in view of ahaoging conditions. 9. Preparation or an Annual Schedule of detailed planning for the projects scheduled for the year, to include the thoroughfares and streets, parka, schools, playgrounds, waterfront. etc. 10. Adoption of Land Subdivision regulations. 11. Develop public relations thtough encouragement of citizens to make suggestions regarding improvements and econ- omies in execution. 12. P.ssist the city departments wherever possible in their problems of construction and maintenance. 13. Aid land owners and developers in their oblefilz land. subdivision. 14. Aid home owners -2nd prospective builders to get the best results from their properties. 15. Foster Local Improvement Associations in resi- dential areas and assist them in their progrqms. 16. Oofirdinste the city plan Radgeted Program with unemployment needs in the city whenever such conditions arise. 17. Active fanctioning of the 21anning and. Zoning Commi3sion as a Municipal Art (;ommission. ORDINANCE NO. 26-29 AN ORDINANCEPROVIDING FOR THE APPOINTMENT. OF A CITY PLANNING AND ZONING COMMISSION AND DEFINING ITS POWERS AND DUTIES. WHEREAS, Chgpters 294-Al and 324 of the Code of Iowa, 1927, authorize oities to make provisions for the establishment and appointment of a city planning and zoning commission for the purpose of promoting the health, safety, morals or the general welfare of the same and to that end establish regulations in accordance with a comprehensive plan designed to lessen congestion, secure safety from fire, panio and other dangers; provide adequate light and air; prevent the overcrowding of land, avoid undue concentration of population; facilitate the adequate provision of transportion, water sewerage, schools, parks and other public requirements and, generally, to make provision for the uniform development of such cities; and the city council of the city of Dubuque, deeming it necessary and advisable to appoint a city planning and zoning com- mission in order to carry out the provisions of law relating to the matters above referred tot Now, therefore Be It Ordained by the City Council of the City of Dubuque: PLANNING AND ZONING COMMISSION. Section 1. That there be and there is hereby oreated a city planning and zoning commission, the members of which shall consist of seven citizens of the City of Dubuque who shall be qualified by knowledge and experience to act in matters pertaining to the development of city planning and zoning, none of whom shall hold any elective position in said city. Such members shall be appointed by the city council. TENURE OF OFFICE. Section 2. The term of office of said members shall be five (5) years, except that the members first named shall hold office for such terms, not exceeding five years, that the terms of not more than one- third of the members will expire in any one year. Vacancies occurring on the oonnnission caused by resignation or otherwise shall be filled by the council for the unexpired term. All members of such commission shall serve without compensation except their actual expenses which shall be subject to the approval of the council. ORGANIZATION. Section 3. Such commission shall chose annually, at its first regular meeting, one of its members to act as chairman, and another of its members as vice-ohairman, who shall perform all of the duties of the chair- man during his absence or disability. The commission shall adopt suoh rules. and regulations g$verning its organization and procedure as may be deemed necessary, and it shall make an annual report to the city council on or before the 1st day of March in each year, such report to contain its proceedings with a full statement of its receipts, disbursements and the progress of its work for the preceding fiscal year. It shall be empowered to appoint and employ suoh assistants as may be necessary and presoribe and define their duties and fix their compensation. APPROP3IATION. Section 4. The council shall annually appropriate a sum of money from the general funds for the payment of the expense of such com- mission. The commission shall have full, complete and exclusive authority to expend for and on behalf of such city all sums of money so appropriated. Gifts, donations, or payments whioh are received by such city for city planning and zoning purposes shall be placed in suoh fund, to be used by the commission in a manner appropriate for its purposes. Said commission shall have no power to contract debts beyond the amount of its income for the current year. POWERS Section 5. Said commission shall have and possess the following powers, and such other powers as may be incidental to the successful carrying out of the powers vested in it herein or such as may be expressly conferred upon it by law: 1st. To make such surveys, studies, maps, plans or plats of the whole or any portion of the city and of any land outside thereof, which in the opinion of such commission bears relation to a comprehensive plan, and shall submit such plan to the council with its studies and recommendations and it may pub- lish the same. 2nd. To recommendations for the location or erection of statuary, memorial or work of art in public places; public buildings, bridges, viaducts, street fixtures, public structures or appurtenances and the sites therefor. 3rd. To make recommendations upon plans, plats, or replats of subdivi- sions or resubdivisions in suoh city whioh show streets, alleys or other portions of the same intended to be dedicated for public use. 4th. To make recommendations for street, park,parkway, boulevard, traffic way or other public improvements. 5th. To carry on comprehensive studies of present conditions and the future growth of such city in order to guide and accomplish a co-ordinated, adjusted and harmonious development of suoh city in accordance with the pres- ent and future needs thereof to the end that the health, safety, morals, order, convenience, prosperity and general welfare may be best promoted. 6th. To conduct public hearing upon the adoption of such comprehensive plan or any amendment thereto. 7th. To prepare a comprehensive plan regulating the heighth, number of stories and size of buildings and other sLowtLures; the percentage of ground that may be occupied; the size of yards, courts and other open spaces; the density of population; and the location and use of buildings, structures, and land for trade, industry, residence, or other purposes and to this end shall prepare a preliminary report and hold public hearings thereon and after such hearings have been held, to submit its final report and recommendations to the oity council. 8th. To recommend to the city council, from time to time, as conditions require, amendments, supplements, ohanges or modifications in the comprehen- sive plan prepared by it. 9th. To do all things necessary or advisable in order to carry out the intent and purpose of this ordinanoe and all other ordinances relating to this sub3eat and to the laws of the state of Iowa as they now exist or as the same may be hereafter amended or supplemented. Section 6. This ordinance being deemed urgent and in the interest of public health, safety and general welfare shall be in force and effect from and after its final passage and adoption by the city council and publication as provided by law. Passed upon first reading this 18th day of March, 1929. Passed upon second reading this 22nd day of March, 1929. Passed, adopted and approved upon final reading this 29th day of March, 1929. JOHN H. MACLAY, Mayor. H. F. SCHUCKERT. 11(. H. MEUSER, ED. MoEVOY, EARL YOUNT, Councilmen. Attest: J. J. Shea, City Clerk Pro Tem. Published officially in the Telegraph -Herald and Times -Journal newspaper April lst, 1929. J. J. SHEA, City Clerk Pro Tem. 4-1-it. 0 STATE OF IOWA COUNTY OF DUBUQUE ) CERTIFICATE OF CITY CLERK ss: I, Mary A. Davis, do hereby certify that I am the duly appointed, qualified, and acting Clerk of the City of Dubuque in the County aforesaid, and as such Clerk I have in my possession or have access to the records of the proceedings of the City Council. I do further state that the hereto attached "Code of Ordinances, City of Dubuque, Iowa" consisting of Chapters 1 through 38 plus Appendix "A" and Appendix "B" and including codes adopted by references and subdivision cf the same, the same being designated as the "Code of Ordinances, City of Dubuque, Iowa" is in full force and effect from, and after the passage and publication of these ordinances, according to law, and the "Code of Ordinances, City of Dubuque; Towa", shah be in full force and affect from and after November 17, 1986. IN Testimony Whereof, I hereunto set my hand and official seal of the City of Dubuque. Dated at Dubuque, Iowa this 10th day of February, 1988. Marv/ A. Davis Clerk of the City of Dubuque, Iowa (SEAL) STATE OF IOWA CITY PLANNING COMMISSION Chapter 294-Al Code of Iowa, 1927 5829-Al. Appointment. The Counoil of each city and town, including com- mission governed cities and special charter cities, may by ordi- nance provide for the establishment of a city plan commission for such munioipality, consisting of not less than seven members, who shall be citizens of such municipality, and who shall be qualified by knowledge or experience to act in hatters pertaining to devel- opment of a city plan, and who shall not hold any bleotive offioe in the municipal government, and who shall be appointed by the Mayor, subject to the approval of the Council (41 G.A., eh. 117, P. 5829-A2. Tenure. The term of office of said members shall be five years, except that the members first named shall have office for such terms, not exceeding five years, that the terms of not more than one-third of the membership will expire in any one year. (41 G.A., ch. 117, p.2). 5829-A3. Vacancies. If any vacancy shall exist on said commission caused by resignation, or otherwise, the Mayor shall appoint a successor for the residue of said term. (41 G. A., ch. 117, p. 2). 5409-A4. Compensation Expenses. All members of the commission shall serve without compensation except their actual expenses, which shall be subjeot to the approval of the Council. (41 G.A., ch. 117, p. 2). 5829-A5. Organization. Suoh city plan commission shall choose, annually, at its first regular meeting, one of its members to act as chair- man of the commission, and another of its members as vioe chairman, who shall perform all the duties of the chairman during his absence or disability (41 G.A., oh. 117, p. 3). 5829-A6. Rules and Regulations. The commission shall adopt rules and regu- lations giverning its organization and procedure as may be deemed necessary (41 G.A. oh. 117, p.3). 5829-A7. Annual Report. The commission each year shall make a report to the Mayor and Council of its proceedings with a full statement of its receipts, disbursements, and the progress of its work for the pre- ceding fiscal year (41 G.A., ch. 117, p.3; 42 G.A., ch. 260, p. 1; Annual fiscal report pp. 5676-Al, 5676-A2.) 5829-A8. Assistants. Subject to the limitations contained in this chapter as to the expenditure of funds, it may appoint such assistants as it may deem necessary and prescribe and define their respective duties and fix and regulate the compensation to be paid to the several persons employed by it (41 G.A., eh. 117, p. 3). 5829-A9. Powers. Such city plan commission shall have full power and author- ity to make or cause to be made such surveys, studies, maps, plans, or charts of the whole or any portion of such municipality and of any land outside thereof which in the opinion of such commission bears relation to a comprehensive plan, and shall bring to the atten- tion of the Council and may publish its studies and recommendations (41 G.A., ch. 117, p. 4). 5829-Ale Recommendations as to Improvements. No statuary, memorial, or or work of art in a public plaoe, and no public building, bridge, viaduot, street fixture, public structure or appurtenance, shall be located or erected or site thereof obtained, nor shall any permit be issued by any department of the municipal government for the erection or location thereof, until and unless the design and proposed location of any such improvement shall have been sub- mitted to the city plan commission and its recommendations thereon obtained (41 G.A., ch. 117, p. 10m 5829- ll. Exceptions. Such requirement for recommendations shall not act as a stay upon action for any such improvement where such com- mission after thirty days' written notice requesting such recom- mendations shall have failed to file same. Said reoorlmendations shall not be necessary as to statuary, memor- ials, or works of art in municipalities where municipal art com- missions have been established (41 G.A., oh. 117, p. 5). 5829-Al2. Approval of Plats. Where such city plan commission exists all plans, plats, or replats of subdivisions or re -subdivisions of land embraced in said municipality or adjacent thereto, Laic. out in lots or plats with the streets, alleys, or other portions of the same intended to be dedicated to the public in such municipal- ity shall first be submitted to the city plan commission and its recommendation obtained before approval by the city council. (41 G.A., ch. 117, p. 6). 5829-A13. Approval of Street or Park Improvement. No plan for any street, park, parkway, boulevard, traffic -way, river -front, or other public improvement affecting the city plan shall be finally ap- proved by the municipality, or the character or location thereof determined, unless such proposal shall first have been submitted to the city plan commission and the latter shall have had thirty days within whichto file its recommendations thereon. (41 G.A., ch. 117, p.7). 5829-A14. Appropriation of Funds. The council of any such municipality, when it shallhave passed an ordinance creating a city plan .come mission, may annually appropriate a sum of money from the general funds for the payment of the expense of such commission. (41 G.A., ch. 1.17, p. 8). 5829-A15. Expenditure of Funds. The said commission. shall have full, com- plete, and exclusive authority to expend for and on behalf of such municipality all sums of money so appropriated (41 G.A., ch. 117,P.8). 5829-A16. Gifts. All gifts, donations, or payment whatsoever which are re- ceived by such municipality for city plan purposes shall be placed in the city plan commissionfund, to be used by the said commission in the same manner as hereinbefore stated (41 G.A., ch. 117, p. 8). 5829-A17. Debt -contracting Powers. The said commission shall have no power to oontraot debts beyond the amount of its income for the current year. (41 G.A., oh. 117, p.L). 5829-b1. Plan--Adoption--Conditions. For the purpose of making a comprehen- sive plan for the physical development of the municipality, the city plan commission shall make careful and comprehensive studies of present conditions and future growth of the municipality and with due regard to its relation to neighboring territory. The plan shall be made with the general purpose of guiding and accom- plishing a coordinated, adjusted, and harmonious development of the municipality and its environs which will, in accordance with present and future needs, best promote health, safety, morals, order, convenience, prosperity, and general welfare, es well as effioi€ncy and economy in the process of development. (42 G.A. oh. 261, p. 1). 5829-b2. Hearin s. Before adopting the said comprehensive plan, or any part of it, or any substantial amendment thereof, the commission. shall hold at least one public hearing thereon, notice of the time whichshall be given by one publication in a newspaper of generalcirculation in the municipality, not less than ten nor more than twenty days before the date of hearing. The adoption. of the plan or part of amendment thereof shall be by resolution of the commission carried by the affirmative vote of not less than two-thirds of the members of the commission. After adop- tion of said plan by the commission, an attested copy thereof shall be certified to the council of said municipality and the council may approve the same, and when said planor any modifica- tion or amendment thereof shall receive the approval of the council, the said plan until subsequently modified or amended as authorized by sections 5829-b1 to 5829-b3, inolusive, shall constitute the official city plan of the said municipality. (42 G.A., eh. 261, p. 2). 5829-b3. Amendment of Plan. When such comprehensive plan has been adopted as above provided for, no substantial amendment or modification thereof shall be made without such proposed change being first referred to the city plan commission for its recommendation. If the city plan commission disapproves the proposed change, it may be adopted by the city council only by the affirmative vote of at least three - fourths of all the membership of such council. (42 G.A., ch. 261, p. 3).