TOWN PLANNING SCHEMES

Nelson Evening Mail, Volume LXIII, 30 March 1929, Page 11

TOWN PLANNING SCHEMES

"I am very glad to have this opportunity of addressing the citizens of Nelson, beeauso it enables me to do two tilings—firstly, to remove certain nfiseonceptkms which have grown up around the subject of town planning, and, secondiyj to tell you what, in my opinion, town planning really is.

Firstly, there is the idea that town planning is a new thing, concerned with problems unknown to our forefathers. What are the facts? Since the very earliest dawn of civilisation, man has been engaged in the planning and remodelling of towns according to the needs and circumstances of his day. There are remains of towns dating back as far as 2500 B.C. which show clear evidence of deliberate planning with due regard to traffic, circulation and the health of the inhabitants.

To apply town planning principles or to work out new principles obviously needs a period in which towns are being freely built or extended. There is no precedent in history for the rate at vhich new towns have sprung into being and old towns have been remodelled and extended during the past quarter of a century; and it is the present growth of urban population, even here in New Zealand, which makes town planning such a vital and urgent matter. Then there is the man who argues that town planning is premature in New Zealand. What can this mean? That we have not yet made sufficient mistakes lo warrant us in providing the machinery for undoing them? Or is it possible that there are members of the community who fear that town planning will put a stop to land speculation and the profits to be derived from it?

Others again argue that it is now too late to plan many of our towns or deduce from this that if existing towns are re-plaaujed it necessarily means the destruction of buildings and the re-lay-ing out of the streets system at enormous cost to the community. Anything more fallacious or more mischievous cannot be conceived.

Admittedly the opportunities for town planning are greater in the case of a new town than in an existing town; but to argue that nothing can be done to improve an existing town is to be blind to the lessons of history and the recent experience of other countries. Just reflect for a moment upon the changes which have taken place and are still taking place in Nelson. How many buildings nave been' re-built or substantially altered in the last twenty years? How many streets can you think of which have changed their character say from purely residential streets to shop ping and business streets? If we plan for the improvement of the physical features of a town it does not necessarily mean that we are called upon to destroy any buildings, or to damage anybody's business. We prepare our plan, showing what, in our opinion, are the desirable or necessary improvements, and then wait till, by a process of evolution, the old buildings are destroyed to give way to new; and then we require these new buildings to conform to our plan. Town planning is concerned with the life and work of the community, and touches the individual at every point. But do not jump to the conclusion that town planning schemes can make towns. Dynamic forces, the energies of man, the enterprise associated with industry, the pressure of population lured to a centre by powerful forces of attraction — these are the only things that can make a town. The most that we can do is to so organise, control and direct these forces that the resultant, physical growth will add to the efficiency, convenience, health and amenity of life and to our own material prosperity. And it is really with these,matters that the techniquo of town planning is concerned. Generally speaking, the principles of town planning relate to the planning and development of land intended for human use and enjoyment, so as to secure ppoper sartitajry conditions, efficiency and convenience in industry, and social and physical amenities. I want you to dismiss from your minds any idea "that town planning is primarily a matter for experts or technicians. In all the things which really matter the initiative and the final responsibility rests with the community. The destiny of your city and the well-being of its inhabitants is in your own hands. It is no use blaming our forefathers for all the ills and inconveniences we suffer to-day, or may suffer to-morrow, by accusing them of a lack of vision for the way in which they planned our streets and buildings. If sanitary conveniences were unknown in their day, it is no reason why we should not install them now. If some of our streets are too narrow, and we have to widen them to meet modern traffic conditions, it is not their fault, for they could not possibly have anticipated the coming of the motor car and the problems which it has created. It is our job so to build or remodel our towns in the light of our present knowledge, that they will adequately and efficiently serve our needs to-day and make some provision for tomorrow, so that our children shall not be able to reprove us with a lack of vision and enterprise. The first principle is that before we can even begin to prepare a town planning scheme we must know what the character and functions of our town are, or are to be. I am referring primarily to the industries or occupations from which the majority of the inhabitants win their livelihood, and the part the town plays in the national or regional organisation. In our national or regional 6rganisation we must have central administration, industries, markets, collecting and 'distributing points for international commerce, business and financial centres, universities and other educational facilities, and possibly also purely residential and recreational centres.

The capital city of a country or province will usually also be the principal business, financial and educational centre; while secondary industries usually take advantage of the transport facilities connected with iulernation.il commerce. Without industry a town cau neither corao into being nor continue to exist; and, therefore, having determined the nature of the industry or industries which form, or are to form, our principal sources of livelihood it is of first importance that we should so plan our town that it will not only be a healthy and pleasant place in which to live, but will permit of these industries being carried on as efficiently and economically as possible. Our first concern must be to select and set aside the areas best suited for the industries now being carried on, or which, we hope to encourage in the future. It is of particular importance that these industries which involve handling of largo quantities of raw materials or manufactured products should be located

THE UNDERLYING PRINCIPLES REMOVING SOME MISCONCEPTIONS PAPER READ BY MR MAWSON The following is an extended summary of a paper on townplanning under the Town Planning Act read by Mr Mawson, Director of Town Planning at the Council Chamber on Wednesday night.

in close proximity to deep water or railway transportation facilities, even though this should mean the disturbance or removal of buildings now used for light industries or other purposes. Warehousing facilities should also be planned on the same principle. There are other factors m connection with what I might describe as heavy industries to bo considered, such as topography of the ground, {he area available for expansion, the accessibility by road, the disposal of effluent, the supply of water, and the direction of the prevailing wind. Having provided facilities for our heavy industries, we may then turn to the light industries, and other functions of our town, such as municipal administration, commerce and finance, retail shopping facilities, recreational facilities —mental and physical—and our residential areas. The municipal administrative or civic centre should be located and designed lo oxpress order and the dignity and status of our town. ;\ll buildings of a civic character, such as the town hall, municipal offices, art gallery, museum, public library and municipal theatre should be grouped, both for the general convenience of the public and because such buildings gain aesthetically by being grouped. The commercial and financial activities, which are of course largely dependent upon one another and upon other forms of industry, should also be centrally located and grouped, and the streets so arranged that/advantago can be taken of the opportunity they present for fine architectural expression. The public markets and the principal shops may form part of the business area, provided the streets are of sufficient capacity and conveniently situated in relation to other transport facilities. For the purpose of convenience it is some'times desirable to have subsidiary shopping centres serving the outlying residential districts. This, of coure, will depend upon the size of the town. Generally speaking, the housewife should not have to go more than a quarter of a mile to do her shopping. Now, I have left the residential districts to the last, not because they are the least important, but because they are the most adaptable and seldom conflict with the requirements of industry or business. In other words, it is usually found that those areas which arc so situated in relation to transport facilities oi- the topography of the ground as to render them peculiarly suitable for industrial or business purposes, are not suitable for residential areas. Now, we have arranged our town, broadly speaking, into three zones—industrial, business and residential. Our next point is, that having selected and set aside areas most suitable for the different functions of our town, we must then proceed to weld these together by an efficient system of streets which will permit of the freest possible movement of pedestrian and vehicular traffic from any given point to another with the minimum of time and effort. This supposes that in laying out the streets due regard must bo paid to the contours of the ground in order to avoid heavy gradients and uneconomical construction; and, above, all, that the width or- capacity of the streets shall bear a proper relation to the volume and weight of traffic likely ..to use them. It is not sufficient to fix the width of a street unless we also regulate the use and size of the buildings abutting on it. In principle there is the same relation between the use and size of buildings and the capacity of the streets on which they front, as there is between the size and use of the buildings and the capacity of the sewers into which thoy drain. We must either regulate use and size of buildings, so that they will conform to the capacity of our existing or proposed streets, 'or allow uncontrolled development, and adjust our street capacity from time to 'time to suit the convenience of the owners or occupiers of these buildings. We cannot have it both ways; and since it is usually the community which has to pay for these street improvements, it is surely not unreasonable to place restrictions upon the individual property owners. If we know definitely the maximum use of the land abutting on a street which is to be permitted, our problem is greatly simplified. If we further regulate tne density, that is to say, the number of buildings, or their cubic contents, which can be erected on these lands, we shall have reached a point that we can plan our street widths with almost mathematical precision. Secondly, we plan our towns to secure proper sanitary conditions, that is to say, everything affecting the health of the inhabitants. , I do not want you to supnose that this is something to be superimposed on a town after the street svstem and zoning has been completed. The three things are inseparably bound together, and must be planned simultaneously. We take efficieint drainage and water supply systems, now-a-days as a matter of course, but the streets should always be planned to facilitate the carriage of this and other public services. In fact that is one of the primary functions of a street. The site of a town, or rather the topography of the ground, has much to do with its general sanitary condition, particularly from the point of view of drainage, and must closely affect our zoning proposals. Efficient drainage, for instance, is of much more importance to a residential than to a business or industrial area, and for that reason houses should as far as possible be kept on the Higher ground. From what I have said, too, you will have gathered that the regulation of the use and density of the buildings in any given area has a definite reaction upon the capacity of the various services. The two things are interdependent. T3v regulating the use of the land we" can estimate with a reasonable degree of precision the capacity of the services which will be required for many years to come. there are other matters, however, of equal if not greater importance than drainage and water supply in relation to public health, namely, sunshine and fresh air.

It is of vital importance that we should so plan our towns and arrange our buildings in relation one to the other as to permit of the free circulation of air and the maximum amount of direct sunshine penetrating to each habitable room when the sun is at its lowest altitude during the winter. The width of streets, or rather the height of the buildings in relation (o the width oi' a street, is also an important health factor.

We cannot lay down arbitrary standards for all buildings, regardless of their use or location. We must, of course, strive to obtain the highest possible standards fur our residential areas, for that is where we spend the. greater part of our lives. In industrial and

business areas, however, (.lie necessity, of concentration and the consequent high land values calls for more intensive development, ami we -have to be satisfied with lower standards. What 1 want to point mil is that these standards are imposed by zoning, that is (o say, by applying them over considerable areas of land rather Uian lo the individual buildings. For iustiwico. in our business area wo may require a certain maximum height of buildings in relation to the street width, and a minimum space A the roar of the buildings. For residential areas we may regulate the size and frontage or sections, the number of buildings which may bo eroded and the area of each section which may be covered by buildings. Wo may also limit; the height of these buildings so that they shall not interfere with one another's light and air.

You will remember that in talking about the location of industries, or rather factories, J referred to consideration being given to tho direction of 'he prevailing wind. This is a matter affecting health, because certain industries give rise to smoke, dust, noise and smells. These are all matters which can bo dealt v.dth in a town planning scheme. Now, the provision of recreational facilities may be regarded partly as a health matter and partly as one'of the amenities of town life.

We need mental as well as physical recreation. This may take the form of various kinds of amusements or entertainments, but includes places in which wo can rest or enjoy the beauties of nature. Amusements and entertainments are usually left to private enterprise, and ni'iy bo permitted in the business zone; but open spaces for public parks and gardens, sports grounds and "children's playgrounds have to bo provided by the community, and should form an integral part of every town planning scheme. Now, if these open spaces are to serve the maximum of utility, they must be located according to the functions they are l to perforin, and bear some relation in area to the population they have to serve. It may mean very little from a health point of view for a town to boast that it has a large percentage of its area in permanent open spaces. The open spaces which reaily count from a health point of view are those which are readily accessible from our homes. Parks, with or without recreational facilities, should not be more than half a mile, and children's playgrounds more than a quarter of a mile from any home. That is to say, a mile and half a mile apart respectively, and they should be sufficient in area to serve the population wy'lhin these radii.

Athletic, football, cricket and other sports grounds which serve a town as a whole, should of course be centrally situated and with duo regard to transport facilities.

The standard of open spaces per 1000 of population will vary according to rhe size and character of each tow„ and the density of population per acre in anv given district; but five acres per 1000 should be regarded as the minimum, and ol this extent 1| acres per 1000 of the population should be set aside for parks and gardens, acres per 1000 for adult inn^x 1011 ' 1 , 1 .P" r P oses > lmd one acre per IUOO tor children's playgrounds. Finally, we plan for amenity." Practically everything that ministers to our pleasure or tends to make life morn agreeable can be classified under the heading of amenities. For town planrung purposes, however, it can be"said to relate primarily to the character of physical environment, or as providing a setting and the facilities for the ordinary amenities of social life. By the latter 1 mean convenient sites for educa. tional and other institutions, art galleries, museums, libraries and other civic buildings, recreation—mental and physical, and spaces in which social gatherings can be held.

Tne effect of a growing population in a town m the provision of amenities is cumulative. We may start with the minor things, such as cinemas, secondclass theatrical companies and small shops; but these in themselves are suf. ficienfc to attract new population, which in the course of time, justifies still greater amenities, and so on in a neverending progression.

Amenities for town planning purposes tall under three headings: Firstly the amenities of nature, such as beautiful scenery, climate, thermal waters and recreational facilities such as boating, swimming or even sandy beaches; secondly, the amenities provided by man with the help of nature, such as public and private parks and gardens or grass verges, trees and shrubs in our streets; and thirdly, architectural amenities such as ths harmonious grouping and design of our public and private buildings. With all these things, except perhaps climate, town planning is intimately concerned. In our scheme we may schedule places of historical interest'or natural beauty in order to safeguard them from desecration by unsightly buildings, advertisements, or the cutting of trees. Particular attention should always be paid to the approaches to a .town) either by water, rail or road—particularly thosa towns which rely in any degree upon the income to be derived from visitors or tourists. First impressions count for more than we consciously realise; and a. visitor may be badly prejudiced against a town from the outset, 'if his first impression is one of ugliness or disorderliness. We should regard the approaches of oar town as our front door.

If we are planning a new town or a new suburb it must be our care to preserve and enhance every point of natural beauty, even though it be but a single tree. Certain sitss at once sug gest themselves as suitable for park purposes; banks of streams, shores of lakes or the sea front should alwavs be'preserved to the public. It is by taking early advantage of the natural features of a site tlmt the individuality of a town is established for all time.

Then there is the question of creating or safeguarding the amenity of particular areas, especially residential areas, whether in existing or new towns. The valus of land for residential purposes depends almost entirely upon its amenities. Shops, offices and other industries may be an economic necessity, and be so designed and located as to be inoffensive in themselves; but we would not for preference seek to live with them at our front door. In any case, for purposes of efficiency, convenience and economy, as I have shown you, it is always desirable that such buildings should be segregated into areas specially suitable and set aside for the purpose. One of the most acute questions which will arise in the administration of town planning schemes is the location of shops. At the present time as you know, with the exception of certain safeguards in the interests of public health and safety, a property owner can erect almost any kind of building, and use it for any purpose he pleases; and the most cursory examination of any of our large towns shows that advantage is taken of this liberty, regardless of the interests or convenience of the community. This is absolutely wrong in principle. Nevertheless, there will be a big outcry when definite restrictions are on the use of land, and we shall hear a good

deal about claims for injury. A man may never have had the slightest intention of building a shop On a particular section, until he finds that he is provented from doing so; and then he will come along and say that .the section is worth £IOOO as a'shop site, but only £SOO as a residential site, and that therefore he is entitled to £SOO compensation. Well, we shall have to deal with each case on its merits, but generally speaking no compensation should be payable for. preventing a man from doing something which would injure his neighbour's property; and there can be no question that the erection of a shop or industrial building in a desirable residential street would immedhteij depreciate the value of the adjoining land and buildings. Finally, there is the all-mport.ant question of architectural amenity. » In no sphere of our community Jife rs S there greater opportunity for Uie faercise of good or bad manners than in the design and maintenance of our private buildings and grounds. Fortunately, we can rely upon the good taste and restraint of the great majority of the citizens: at the least; they, will have some regard to public opinion. But one really badly designed or' dilapidated building can rum the amenity of a whole street. I think you will agree therefore that some measure of restraint or control over tho design of buildings should' bo exercised m the public interest, and that the well mannered majority would not object to this any.more than they object to ih« traffic regulations.