AN EVALUATION 0‘? THE 19129 GENERAL VEMGE ”JAN
OF THE CITY OF BIRMINGHAMg'MSC-HiGAN: A CASE STUDY

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MICHIGAN STATE .UNNEKSJTY

Herbert Dougias Maizer
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ABSTRACT

AN EVALUATION OF THE 1929 GENERAL VILLAGE PLAN OF THE

CITY OF BIRMINGHAM, MICHIGAN: A CASE STUDY

By Herbert Douglas Maier

Within the short history of comprehensive urban planning, new factors
concerning socio-economic research have been introduced. into the ever
broadening scope of planning investigation. These areas under examina-
tion, considered as part of the urban planning programs, are becoming
an integral part of the search for greater understanding of the
community and its complex interlocking socio—economic factors. A
prescribed task within the defined scope of urban planning is to
synthesize from described factors a set of goals and purposes suit»
able to guide the creation of an urban development plan. The basic
concept is one that will, in the final analysis, create a plan that

recognizes the individuality of each community.

Conceptualization and presentation of this thesis has been developed
upon a plan being prepared for a community following an established
set of principals, goals and objectives. The programs so developed
should be recorded as a part of the plan. The objective was to deter-
mine from the Birmingham, Michigan, 1929 General Village Plan emerging
trends and indications of growth patterns, and city administrative
programs within the community that could be recognized as having
originated with the 1929 Plan. The thesis conclusions were drawn

by considering the worth of the plan, the degree of its effectiveness

Herbert Douglas Meier

and guidance provided for decision making, and the principle persons

or bodies providing the leadership in utilization of the plan.

To make this evaluation, a plan that had been created for Birmingham,
Michigan, a suburban community of Detroit, was secured and examined.
This General Village Plan of 1929 was utilized by Birmingham for
approximately 20 years as the continuing information system for public
decision making in the community's physical development and administra-
tive programs. Because of the extended use of the 1929 Plan as an
effective instrument in decision making it lent itself well to an
evaluation. Data to aid in the evaluation of the 1929 Plan was
gathered from a selected list of other general city plans, technical
planning publications, from city administrative records and newspaper
records of the 'Birmingham Eccentric. Because of the brevity of the
official city records they were useful only when they were correlated
with interviews of persons having an intimate knowledge of the commu-

nity during the plans‘ utilization.

The methodology utilized in this thesis includes a consideration of
the basic relationships and values of the plan to the community, its
feasibility, completeness, and the resultant community actions and re-
actions. This thesis is concluded by presenting results from.examina-
tion of completed community representations of the 1929 Plan, an
analysis and synthesis of the causal factors and relationships, and

the implied values of the Plan and planning process to Birmingham.

Significant is the finding that reiterates a conclusion stated by

Herbert Douglas Maier

Robert A.‘Walker that..."[planning] commissions are not doing the
job which they were expected to do - namely, to prepare a long-

time comprehensive physical plan..."1

It is noted that although the
planning commission did not function for a number of years, many
parts of the plan were successfully implemented. The use of zoning

as an effective administrative tool to aid in the implementation of

the plan was a decisive factor in making this part of the plan

successful.

 

1Robert A.Twalker;_The Planning Function in Urban Government, 2d ed.
revised. Chicago: University offlChicago Press, 1950, p. 163.

AN EVALUATION OF THE 1929 GENERAL VILLAGE PLAN OF THE

CITY OF BIRMINGHAM, MICHIGAN: A CASE STUDY

AN EXAMINATION OF THE DEVELOPMENT AND EFFECTIVENESS

OF THE PLAN AND THE PARTS IMPLEMENTED

By

Herbert Douglas Maier

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER IN URBAN PLANNING

School of Urban Planning and Landscape Architecture

196a

ACKNOWLEDGEMENT

The contents of this evaluation are the results of the help of

many persons who gave generously of their time and assistance in

its preparation. Accordingly,.there are many whose names will

not appear but whose assistance I could not have done'without. In
addition to these I wish to acknowledge a special debt of gratitude

to Professor Charles w; Barr who drew upon his extensive experience

and knowledge of planning to give me invaluable guidance, inspiration
and understanding in the completion of this study; I wish to also
thank Associate Professors Sanford S. Farness who provided immeasur-
able aid in time of need, Carl Goldschmidt and Stewart D. Marquis,

all of Michigan State University for their valuable comments and
suggestions. To others not connected with the University, I also

owe a debt of gratitude. Among the many that aided during the pre-
paration of various stages of this study are: Miss Irene Hanley,
Birmingham City Clerkg‘William Brownfield, Birmingham City Planner;
Donald C. Egbert, former City Manager, new Director of the_South
Eastern Oakland County Water Authority and the various staff members

of the Birmingham Eccentric newspaper. I would like to thank those
persons that read parts of the paper during its preparation and offered
the benefit of their comments. A very special debt of gratitude is due
my wife whose patience, help and generous understanding made this study

possible. Her efforts are visible throughout the entire thesis.

ii

TABLE OF CONTENTS

LIST OF TABLES. . . .
LIST OF PLATES. . . . .
LIST OF APPENDICES. . .
INTRODUCTION. . . . .
CHAPTER

I. COMMUNITY PERSPECTIVE.
Settlement Activity.
Areal Characteristics.
Planning History . . .

Planning Commission Activity
12019291331). 0 o o a '0'.

II. TIEVEIAGEPIANOF 1929 . ..
vmue man 0 O O O I O 0
Plan Goals and Objectives.
Plan Evaluation. . . . . .
Public Interest. . .. . . .

Comparisons

n4

WHEN OF THE VILLAGE PLAN
Development Sequence . .. . .
Plan Achievements

5....
'1

66000.

The 1929 Plan and Present Land Use
Other Achievements . . . . . .

IV. ZONING MEAN

Development Sequence . .. . .. .

Zoning District Map C

hanges. .

Zoning Relation to the 1929 Plan

V. SUCCEEDING PLANNING DEVELDHIENI‘S
Studies Updating the 1929 Plan
Current Planning . . .. .. . .. ..

VI. CONCLUSIONS AND RECOMNDATIONS.

Summary. . ..
Proposals. .

BIBLIOGRAPHY. . . . . .
APPENDIX

‘ O O O O C O 0

iii

LIST OF TABLES

TABLE TITLE ' PAGE
1. Population Growth, Birmingham, Michigan . . . . . 10

2. Comparative Tax.Levies, City of Birmingham,
MiChj-gan O O O O O O O O O O O O O O O O O O 1 1

3. Selected Detroit Area Community Comparisons . . . 13

4. Report Contents: An Evaluation of Selected
Community Plans. . . . . . . . . . . . . . . . 31

5. Plan Report Elements: A Comparison of
Selected Communities . . . . . . . . . . . . . 33

6. Selected Activity for Comparison of Plan
completenes S C C O O C O O O O C O O O O O O 0 31+

iv

LIST OF PLATES

PLATE TITLE PAGE

I. Regional Location . . . . . . . . . . . . . . . 6
II. General Village Plan Map. . . . . . . . . . . . 22
III. Existing Land Use - 1962 . . . . . . . . . . . 43
IV. Developed Areas of 1929 Plan. . . . . . . . . . #5
V. 1937‘Zone District Map. . . . . . . . . . . . . 51
VI. 1945 Zone District Map. . . . . . . . . . . . . 52

VII. 1963 Zone District Map. . . . . . . . . . . . . 63

LIST OF APPENDICES

APPENDIX PAGE

I. Biography of Arthur C. Comey. . . . . . . . . 67
II. Ordinance Creating City Planning Board. . . . 70
III. Resume of 1937 Zoning Ordinance . . . . . . . 73

IV. Report of the Village Plan Commission . . . . 77
(The 1929 Plan)

vi

INTRODUCTION

City Planning is centuries old and known to be changing. City Planning
to be considered adequate in the current period must be comprehensive.
Comprehensive planning, as it is popularly referred to has, through a
process of evolution, been given many connotations. However, for the
purpose of this paper the term "general plan" or "comprehensive develop-
ment plan" will be used to include all forms of total community planning
considerations. ‘Whatever the name, it is intended to provide a plan for
necessary capital expenditures, specific land developments related to

the public and private sectors of the community.

Some plans are indeed comprehensive in scope and consideration, yet
others are piecemeal or project plans. Despite the scope of a plan,
if it is not used, the community is no better off than if nothing had
been done. Although many plans were thought to be adequate, they were
found not to be so, and attempted implementation completely failed due

to inadequate measures contained therein.

Recent comprehensive plans created in relation to the values of the
community'have principally focused on determinating purposes, goals
and objectives. This step and process has been implemented to enable
the plan to better fulfill its function as continuing system of

public information. Many of the plans being being prepared today are
related to the community and dedicated to growth; defining growth as
being both good and desirable. However, the great American dream of
wealth, growth, and satisfaction all contained in a comprehensive plan

may be entirely false for many communities. Many municipal officials

were prompted by the idea that all communities should experience
extensive growth and so have helped create goals and objectives

toward this end.

Proper planning consideration was given by some communities to the
formulation of the goals by consulting with persons representing many
levels of interest and cross-sections of the basic value structure of
the community; Although there was an attempt to build a form of ob-
jectiveness into the community goals, there was reasonable doubt in
the author's mind, based upon approximately ten years of practice in
the planning field, prompted the author to doubt that many goals did
not represent the combined thinking of the community. An outgrowth
of this doubt was a desire to examine a number of plans to ascertain
if goals and objectives had been developed and, if so, by what means.
An attempt to establish criteria for verification of goals and ob-
jectives contained in a comprehensive plan indicated that an in-
sufficient number of plans had been prepared in this manner. The
realization and cognizance of this lack of material for the selected
topic prompted a closer examination and narrowing of the field of

interest.

Because of the desire to examine factors enveloped in this area of
city planning, it was felt necessary to consider the general scope
of public acceptance of a plan and the resultant planning process.
The Village of Birmingham, Michigan's General Village Plan pre-
pared in 1929 that provided for future development made such an

analySis possible. The fact that the 1929 Plan was used as a guide

for implementation principally by the city manager and the Planning
Commission for a number of years afforded opportunities to examine

its value in providing guidance to the community.

The intent of this thesis is to examine and evaluate the 1929 Plan, the
implementation of it, its goals and objectives and its subsequent effect
on the change and growth of Birmingham. The following procedures were
considered in preparing this evaluation and securing the necessary
documentation:

Examine the technical completeness of the report in
a reference to the time period in which it was prepared.

To evaluate the plan's goals and objectives which may
have been stated or implied.

To determine to what degree there was provided by the

plan a useful measure of guidance and influence during

the life of the plan.

To compare the plan with the current land use and inspect

city administrative records to determine what parts of the

plan had been implemented.

To evaluate the total effect of the planning process upon

the community, the planning commission and the administrative

procedures.
To help achieve objectives of this paper, many sources of information
were used. Plans prepared during this same time period were selected
from the Michigan State University library resources to make an
evaluation of technical completeness. Using this procedure, it was
possible to make a valid comparison of the 1929 Birmingham Plan to its
contemporary plans and standards rather than to current standards.
Background and historical data were obtained from various planning
agencies in the Detroit area, from interviews with local municipal

employees, other persons who had served as consultants for Birmingham,

and from a member of the Planning Commission who had served on the charter

commission at the time the 1929 Plan was presented. Data drawn from
these sources places the community in proper development perspective
and establishes its relation to the Detroit area. The former City
Manager also provided much information concerning the implementation
of the plan and helped considerably in filling serious voids found in

the Planning Commission records.

Every effort was made to obtain authentic data at all times. However,
there were times when it was impossible or impractical to obtain it
because of brevity and occasional inconclusiveness of both Commissions'
records. They often contained only the citation and final motions for
adoption of current issues. Because of these voids in the city records,
the documentation contained in this report is at times supplemented with
certain inferences and the author's judgments. There were occasions
when assumptions were based on sketchy facts and related incidents.
Some representations contained herein are also based upon many seemingly
related bits of data. Certain voids have been filled with these in-
ferences to develop a continuity and/or relation of facts. The
Birmingham Egcegtzig's files of past issues provided much of the in-
formation needed to supplement data and create a sound platform for

these necessary inferences and assumptions.

This thesis contains an evaluation of the 1929 Plan for Birmingham and
is as complete as time and resources permitted. It sets forth the
technical completeness of the plan, how it was used, the areas and parts
of it that were utilized, and other related accomplishments including
administrative procedures. The zoning program is considered separately

from the administrative procedures although it is a very important and

integral part of the planning process.

The circumstances surrounding the national economy following the presenta-
tion of the 1929 Plan caused the Planning Commission to cease its normal
historical function for an extended period. This event set the stage for
the City Manager to use the plan in the absence of the Planning Commission.
The usefulness of the 1929 Plan is measured in relation to the goals and
objectives of the plan and how closely they were tailored to the needs

of the community. The achievements of the 1929 Plan have been measured

in the amount of public properties acquired that can be given locational
relationship to the Plan, and the administrative programs instigated by

the plan or that can be traced to it.

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CHAPTER I

COMMUNITY PERSPECTIVE

A brief examination is made of the historical, physical, and
locational characteristics of Birmingham, their relation to the
immediate surrounding area and to the Detroit region. The historic
perspective of Birmingham is presented to show the milestones in its
past growth from a settlement, a Village and to a City; Also, to
determine the sequence and significance of events in Birmingham's
growth that caused the shaping of its socio-economic communityu

The planning activity prior to the 1929 Plan is examined to determine
the sequence of events that caused this Village to have a General

Village Plan prepared in 1929.

Settlement Activity. - Birmingham's history can be traced back to the
early 1820's when the first settlers located upon a rise of ground on
the Saginaw Trail. This trail was used by Indians traveling between

what is now Detroit and Saginaw. It is alleged that Chief Pontiac, a
famous and fierce leader of Algonquin Tribes, once traveled this trail

that extended from Indian settlements on the Detroit River.

The topography of Birmingham and vicinity is gently rolling. The City
is located upon a gently sloping hill bisected by the Rouge River valley
in a northeast-southwest direction and by Quarton Lake extending from the
center northward. Elevation difference from the high to low points is

about 60 feet.

Beginning with the early settlement of the 1920's, there were many

occurrences that caused the community to develop as it is today.

Following are some of the events which in passing helped to shape the
7

community:

In 1819 the area between Detroit and Birmingham was a flat plain

that was covered by extensive swamps. Many accounts
of the Saginaw Trail relate that it was impossible
for the settlers to travel upon it most of the year.
This caused the early settlers, including John W.
Hunter, Birmingham's first settler, to use the inland
waterways of Mt. Clemens and Clinton Rivers to get 1
close to this area.

In 1819 and 1822 acts were passed by the Michigan legislature

In 1824 a

to establish a road on the site of the Saginaw Trail
between Detroit and Pentiac. However, both acts
failed to effect completion of the road.

third act was approved by the legislature that
allowed the Pontiac and Paint Creek Turnpike Company
to incorporate. A.plank toll road was then come
pleted between Detroit and Pontiac and remained in
use for some time and Served Birmingham.adequately.
As the planks became worn and impassable the surface
was graveled and graded.

Until 1830, other roads between antiac and Detroit were in-

adequate and impassable at certain seasons of the year.

In 1832, according to an early story, following a meeting of

the townspeople attempting to name the town, to which
none could agree, a foundry man named Merrill hung up
the sign "Birmingham.” This was selected because of
the industrial activity and how much it reminded him
of his old home in Birmingham, England. The name of
Birmingham, however, was not yet official and it
apparently became fixed by acceptance rather than
choice.

In the middle 1800's, Birmingham was a community of bustling

industry and manufacturing enterprise. Although no
specific records were kept, the industrial activity
diminished over a short period of years. It is re-
ported that after the industries became incapacitated
one at a time by some occurrence, they were never
rebuilt.

In 1839, the first rail line came to the community and was a-

milestone in the progress of Birmingham. This was
prompted by the growing importance of nearby Pontiac
and Detroit as industrial towns. It'wasnFt until
1839, however that the track was extended to
Birmingham and the first steam engine made a trip
to Birmingham from Detroit.

In 1861+, the Village was incorporated and contained an area
of one square mile.

In 1881+, one of Birmingham's leading citizens, the late
Martha Baldwin, helped organize the Village Improve-
ment Society. This was perhaps the earliest civic
planning effort in Birmingham, unconsciously made in
her determination to keep the Village clean and
orderly. According to The Bir__mingham Eccegfirig, the
community's newspaper, she was influential in having
the Town Board pass several ordinances relative to
the enhancement of the Village, assure its clean-
liness, upkeep and natural beauty. The so called
Village Improvement Society was still in existence in
1913 at the time of her death.

In 1885, a new Village charter was prepared, providing for six
commissioners .

In the early 1900's much of the public transportation between
points in southern Michigan was by the electric inter-
urban system. One such line, linking Detroit and
Pontiac, helped to open the area around Birmingham for
settlement . The natural rolling fields of Birmingham
and vicinity produced a pleasing contrast to the flat
area of Detroit, inducing many people to immigrate.

Attesting to the importance of the area, ThW
Eccentric stated in 1929 that the late Mr. Mrs.

Henry Ford. . ."who rarely made public appearances ,". . .
were present at the laying of the cornerstone for the
community center.

In the 1910 - 1920 decade the Village population increased by
2,087 persons. The following decade showed an even
greater increase which, without doubt, was an important
factor in the attitude toward creating a Plan in 1929.
(See Table No. 1, Population, page 10.)

In 1913, another Village charter was adopted providing for a
three commissioner type of government.

From 1920 to 1930 there was also recorded a large growth in the
population of Birmingham of about 4,845 persons.

By 1925, the expanding use of the motor bus ani other economic
troubles caused the inter-urban system to fall into
receivership. In 1928, it was reorganized and operated

until 1931 when the line running through Birmingham was
discontinued.

In 1927, a charter amendment was put into effect, re-establishing
the previous six man commission and mayor, a seven man
board.

10

In the late 1920's, communities were eager to grow and develop.
Many communities aided developers by financing public
improvements by issuing bonds against the property for
work completed and financed by the community. Birming-
ham thus found itself in the development business durirg
this period by following this practice. (See Table No.
2, page 11, for tax levy and debt structure.)

By 1928 the area of Birmingham had increased in pivsical size
from the 640 acres in 1864 to an area of 2,600 acres.

In 1931, the year which seemed to be particularly bad for the
inter-urban bus transport companies, a high point was
reached for the railroad. In August of this year the
Grand Trunk Railroad celebrated its new conmuter service.
This service brought the north Woodward Avenue ccmuni-
ties , including Birmingham, closer to Detroit in travel

- time.

In 1933, Birmingham became a city and retainedthe previous seven
commissioners, one of which was elected mayor.

In 1947, the comuunity had elevated its credit rating according
to Moody's Investor Services, to "BAA." Prior to this
it was ”BA,” not enough to qualify for general bank
investments.

In 1955 the credit rating reached a high of ”A."

TABLE 1
Population Growth, Birmingham, Michigan

W

 

 

 

Decade Population 4 final Increases J Increase
1860 520 -- ~-
1870 628 108 21
1880 733 105 17
1890 899 166 23
1900 1,170 271 30
1910 1,607 437 37
1920 3 , 694 2,087 130
1930 9 9539 5 98% 153
1940 11,196 1,657 17
1950 15 3467 ”1271 38
1960 25,525 10,058 65

goal Characteristics. - Detroit's and Pontiac's industrialization had a

 

marked impact upon Birmingham' 5 character. With increased mobility

brought about by the automobile, managerial and professional people were

11

 

 

 

 

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13

TABLE 3

Selected Detroit area community comparisons

 

 

 

 

 

 

 

 

Median Median
Family Income Population Home Value
1959 1954 1960 1950 1960 1950
1. Birmingham 10,800 9,500 25,525 15,467 20,200 13,640
2. Bloomfield Hills 20,000 20,000 2,378 1,468 35,000 52,259
3 . Troy 6,500 19,058 14,200
4. Royal Oak 8,000 7,800 80,612 46,898 14,200 9,516
5. Beverly Hills 11,200 8,633 27,700
6. Lathrup'Village 13,000 3,556 31,400
7. Pleasant Ridge 12,100 11,800 3,807 3,594 18,300 15,054
8. Huntington Woods 12,900 12,800 8,746 4,949 23,200 17,779
9. Grosse Pointe
Farms 13,000 10,900 12,172 9,410 31,000 20,000
10. Grosse Points 12,200 12,000 6,631 6,283 26,300 19,100
11. Grosse Pointe
'Woods 11,600 10,700 18,580 10,381 29,800 16,248
Sources: 1960 U.S. Census; Detroit Metropolitan Area Regional Planning

Commission.

14

able to live in a country estate atmosphere, yet retain offices and
places of employment in the employment centers. This desire and
trend aided communities, such as Birmingham to become predominantly
residential, although at first this privilege was extended only to the
managerial and professional classes who could afford, financially and

through work conditions, to reside in the early suburban communities.

The Detroit metropolitan area is still experiencing this trend. There
is a changing emphasis in employment patterns however, as shown by
studies completed by the Detroit Metropolitan Area Regional Planning
Commission's studies of the shifting industrial patterns.1 Between
1937 - 1949, 83 plans were relocated north of the City of Detroit.
Between 1950 - 1960, 151 shifted to the segment of the metropolitan

area containing Birmingham. The trend has now'become a pattern of
industrial decentralization, favoring suburban communities. Principle

industries involved in this shift were maching and tool making companies,

metal fabricating shops, and chemical firms.

The first five communities listed on Table No. 3 are those adjacent

to Birmingham and comprise that segment of the metropolitan area having
Birmingham as the designated center. Their relative importance to the
entire metropolitan area can be seen by comparing them.to other high
income areas of the Detroit region. (Communities numbered 6 through 11
on Table No. 3) The general land use characteristics of all the communi-
ties except Royal oak and Troy are predominantlv residential. They con-
tain very little industry and most of them.have shopping facilities of
major significance within their corporate limits.

Plann Histo . - The Planning Commission was created'by'Village

Commission ordinance in January, 1926. Its beginning activity“was
quite dynamic and somewhat startling. In a little more than.two weeks

The Chgggipg‘Pattern of Manufactyzing Plants and.Emplgyment
1250-12 0 in the Detzoit Begign, Detroit Metropolitan-Area

Regional Planning Commission, April, 1961.

 

1

15

after adoption of the ordinance, the Planning Commission at its first
official meeting, are considering a civic center plan prepared for them
'which was advanced in design enough to recommend to the Village Comp
mission by a unanimous vote. The citizens of the commission were un-
doubtedly highly regarded, because after they reaffirmed their recom-
mendation of the civic center plan, the Village Commission proceeded

to follow, at least in principle, their recommendations.

After a somewhat brilliang start and some good committee organization
the interest seemed to lag. (Examine Chapter II's chronological list
of planning commission activities excerpted from the minutes of their
meetings for detail of the committees). For the largest part of the
following year the commission was either unable to assemble a quorum
or to conduct meetings whose agenda contained only items concerned
with day to day business. The early interest and work of the Planning
Commission generated high goals, ideals and aims which are apparent in
the committee structure it established. Its' structure also indicated
what the commission felt should be accomplished within the city plan-
ning framework. Judging from the material available, the commission
had a person or persons who were aware of certain planning principles

of that time.

After a two year incubation period, the Planning Commission realized
the magnitude of the task of preparing a plan and turned to Arthur
C. Comey for technical, professional assistance in preparing a General

Village Plan.

16

gaming Commission Act‘ivitgv Prior to the 92.9 Plan. - The following
items were selected from Flaming Commission mimutes to indicate
planning activity prior to employment of Arthur Comey and the sub-
sequent Village Plan. These activities are set forth below in a
chronological sequence:

18 January, 1926. The Village Commission establishes the
Flaming Commission.

3 February, 1926. The organizational meeting of the Planning
Commission was held. At this meeting the Flaming
Commission recommends a site plan to the Village
Commission for the municipal buildings. The plan
recommended a civic center», indicating a close
physical relationship of the proposed buildings for
the center. After their first meeting and realizing
their responsibilities the commission members obliga-
"tions caused them to develop committees to discharge
their duties more effectively. Each member assumed
a committee chairmanship with the committees members
to be selected from the community's citizenry.

The following committees were formed to provide for:

1. Developing a plan for protecting existing and
increasing street tree planting;

2. Publicity and education work;
3. Traffic study and regulation;
1+. Provisions of adequate parks;
5

. Development of a civic and community center and
other public buildings; and

6. Supervision over projects within and without the
corporate limits.

5 June, 1926. The Planning Commission reaffirmed the original
recommendation on the civic center plan.

1 July, 1926. The zoning ordinance was adopted. A petition
from Birmingham's citizens was received by Village
Commission to hold a referendum within 90 days on
the zoning ordinance.

Lb August, 1926. The Planning Commission's park committee presented

17

comprehensive report on park conditions and measures
necessary to make them.sanitary and safe. The Planning
Commission recommends that the zoning ordinance be
adopted and presented to the people for a vote.

7 September, 1927. The Planning Commission begins investigation
for a full time planner to be hired.

5 October, 1927. The Commission recommended that Merrill St. be
opened and property necessary for the right-of-way be
acquired at a cost of $100,000.00

7 March, 1928. 7A representative of John Nolen 00., Planning
Consultants appeared at the meeting to discuss a proposal
for city planning for Birmingham.

9 April, 1928. Village Commission council accepts resignation
of Planning Commission en toto. The reason is not
apparent although indications point to the Planning
Commission's objection to Village Commission selec-
tions of.a planning consultant. (No record of Plan-
ning Commission taking action in their meetings re-
garding resignations, nor did the personnel of Plan-
ning Commission change following this.)

18 July, 1928. The Planning Commission recommends that the city
install ornamental street lighting on certain streets.

13 October, 1928. The Planning Commission requested authoriza-
tion to employ a village planner at a cost not to
exceed $5,000.00.

7 November, 1928. -After an extensive investigation concerning
prospective city planners, a report was made to the
Planning Commission about Arthur C. Comey'and the
John Nolen Co. A discussion was held with interested
citizen groups concerning the‘Woodward Avenue beautis
fication project.

The Commission members indicated they would like to
increase contact with school board to be in a better
position to correlate planning between the two groups.
.It was suggested that a member of the school board be
appointed to fill the vacancy on the Planning Commission.

20 November, 1928. Arthur Comey appeared to discuss his proposal
for a ”path finders survey."

5 December, 1928. The Commission recommends to Village Council
that Arthur C. Comey'be appointed to prepare a village
rplan for Birmingham.

18

17 April, 1929. Arthur C. Comey'indicated he would have a
tentative plan ready by May 16, 1929.

17 May, 1929. The Comey plan was discussed with adjoining
Bloomfield Township, the Birmingham School Board
and the Village Commission.

15 July, 1929. Arthur C. Comey submitted a General Village
Plan Report; no action was taken.

17 July, 1929. The Planning Commission sought $750. to
print a formal version of the Comey report for
general distribution. A letter of transmittal
for the Village Plan was adopted.

2 October, 1929. Printed reports of the General Village Plan

are received to be distributed as follows: 1000
copies to be mailed to a selected mailing; 1000
copies to be placed at convenient places within
City Hall for general distribution, and 1000 copies
to be placed in the vault of the City Clerk for
future use.

The Planning Commission minutes are not discontinued upon retaining

Mr. Comey. Instead, they are extended as the Commission's activity

increased until the depressed economy of the early 1930's when

Planning Commission activity ceased for about ten years. The

Planning Commission minutes from the above concluding data fol-

lowing the completion of the 1929 Plan will be utilized in Chapter

III, "Implementation of the Village Plan."

CHAPTER II

THE VIILAGE PLAN OF 1929

The General Village Plan prepared for Birmingham followed by a few
years the achievements in city planning made by the Chicago Plan.
Aided by the nations expanding economy, the city planning efforts
such as these began to grow. Most of the plans developed in the
early 1920's stressed the "city beautiful" rather than an economic
functioning unit. At the beginning of the 1930's, however, the
emphasis was shifting to economic considerations. The city was
being considered as a functioning unit interrelated by economic

forces.

Arthur C. Comey prepared the plan for Birmingham during the transi-
tion period and it reflects some of both eras. 'Thus,'the General
Village Plan for Birmingham, Michigan, was prepared, reflecting both

.the "city beautiful" and the economic” concepts.

As noted from a biographical sketch in the Appendix, one of the con-
sulting jobs Mr. Comey had was with Detroit, Michigan during the 1915-
1920 period and later in the 1920's. It can be reasonably speculated
that someone from the Birmingham area, or connected with the village,
knew of Mr. Comey and his work in Detroit. From this it can be deduced
that Mr. Comey's invitation to plan Birmingham came because of his work
in the Detroit area. I i i I A

Village Plan. - The General Village Plan of Birmingham, Michigan, a
report to the Village Planning Commission was submitted in July of

20

21

1929.2 The general plan was submitted to the Planning Commission
which in turn submitted it to the Village Commission. Letters of
transmittal covered each presentation. The physical plan consisted
of three parts, two parts which were bound together forming the
report, and the General Village Plan Map (a copy of the General
Village Plan Map is on Plate II, page 22) and the "preliminary
zoning study map" which was placed in the municipal building for
review by interested persons. A copy of this part is no longer

available for review for this study.

The Village Plan Report discusses various elements not shown on the
General Village Plan Map. This may be the type of plan which was
contracted for and referred to in the informal correspondence between
Mr. Comey and the Birmingham Planning Commission as a "Path Finders
Survey." This has been construed to mean only sufficient detail of
the plan needed to develop only the basic elements of a plan and to
organize a planning program. This conclusion was arrived at only

after studying the Village Plan.

Some elements in the 1929 Plan are listed as items for consideration
in the growth of the community which would be needing attention at a
later date. These items are discussed by noting that the "...plan

must pay due regard..." and then describing the activity briefly in a

short paragraph.

The descriptive material of the plan is contained within twentyenine

 

2A copy of the plan is a part of the Appendix.

 

 

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23

pages of text, graphics and photographs. It is divided into the
following major parts:
A. Introduction

Planning Limitations, Desirable Village Limits, and Needed Legis-

lation. '
B. Regional Aspects

Detroit - Pontiac Regional Plans, Super Highways, Intervening High-

ways and Regional Park System
C. General Plan

I Circulation - The Highway System, Platting Control and Transit

II Park System

III Zoning

IV Public Functions

V Private Property
The General Village Plan Map is attached to the back cover and in-
dicates general location of playgrounds, parks and parkways, road-

way extensions and some highway locations.

Elan Goals and Objectives. - The primary reason for establishing goals
and objectives is to recognize the values of the community and to in-
corporate them in the planning process. Today, these goals and ob-
jectives are made an integral part of most planning reports. However,
during the period when this plan was prepared stated goals and ob-
jectives were generally not included in the planning reports.3 This

is true of the General Village Plan of Birmingham. However, When ‘

 

The lack of goals in this period was discovered when a number of plan
reports were examined to determine technical completeness later in this
chapter on pp. 30-34;-

24

the report was evaluated, there seemed to be a series of implied

goals and objectives in the introduction of the plan report.

L.

They were assumed to be goals and objectives, for theyiappear to be

the guides by which the author developed the plan and framed the

proposals.

The implied goals set forth in the text of the 1929 Plan are:

1.

"...ninety to one-hundred and twenty thousand people

will eventually be living within the present area of
Birmingham."

Acknowledging the change in population: "Will this

change occur without destroying the present attractive-
ness of the village."

Can this growth be so utilized as to result in enhancing
Birmingham's high standards.

The prospect of "... indefinite expansion of Birmingham

in area does not at present appear particularly desirable."
”... a possible future village corporate line is indicated
on the Plan of Birmingham and Vicinity, utilizing the
natural or artificial barriers where feasible to separate
Birmingham physically from surrounding municipalities."
The zoning plan should be adopted as soon as possible to
harmonize the private sector of the economy with the public
sector. An evaluation in greater depth shall be made in a

later chapter using these goals and objectives.

 

L.
Arthur C. Comey, General Village Plan of Birmingham, Michigan,
1929, p- 7-9-

’3

‘1.

Plan Evaluation. - An evaluation of the 1929 Plan will help determine

 

if the report and models are representative of the community and
whether or not the purposes, that is, either stated or implied, are
achieved. Invariably, some of ones' values are bound to appear which

makes the critique less objective than would be desired.

In this evaluation, the letter of transmittal becomes important
because it lists the major plan considerations of the plan. These
"main features" are offered in the following four parts of the
Village Plan;
1. A regional plan showing Birmingham's relation to the
surrounding area.
2. A general village plan - emphasizing general location
and widths of major streets, systems of parks and play-
grounds.
3. A general zoning plan prepared as part of the village
plan - presented separately.
4. A report accompanying and explaining briefly the plan
and a brief survey of all principal aspects of village
planning.
If the report and subsequently, the general plan are to be evaluated
there must be some framework, some factors about the community which
will be the guide for the plan preparation. The causal relationships
which structure the compre1cnsive plan are the given facts about the
community. They can be physical relationships or social and economic
considerations, but each has a marked influence upon the ultimate

design proposed for the community. Mr. Comey has stated some of the

26

more obvious causal factors and alludes to others in the plan report.
Those which are stated in the report under the Introduction are:5
1.) "Birmingham is an integral part of the Detroit - Pontiac
region;" and 2.) "It is ... more or less a self contained
residential community. "

The following items are included in the 1929 Plan Report under the
"Planning Limintations" section.6
1.) The past physical development has caused the pattern of

the community to become established for future growth; 2.) A
majority of the existing area within and some outside the
Village has been subdivided and the streets surfaced and graded;
and 3.) Scattered home development within the existing sub-
divisions retards realignment of the street system.

An inference is made to the factors listed below without actually

identifying them as planning limitations.
1.) Growth direction is limited to the east, west, northeast,
and southwest because of existing communities to the southeast
and northwest of Birmingham along Woodward Ave;7 2.) The
"superhighways," section line roads and nuarter section roads
will be keyed in with the plan adopted by the township authori-
ties;8 and 3.) The Village has some existing community center
buildings and a planned nucleus for a civic center.9

The 1929 Plan was examined to determine if it had been realistically

prepared by considering the goals and objectives discussed earlier.

 

5Ibid., p. 7
6mm.
7Ibid., p
8Ibid., p. 11
91bid., p

27

To do this, the author examined various concepts and implications and

tested their application within the established parameters of the

1929 Plan. Listed below are some statements about the plan developed

out of this examination.

1.

l\)

A program of controlled expenditures was proposed to
regulate the improvements within the village's means to expand.
The growth factors are examined recognizing regional impli-
cations of highways and parks.

Economic considerations which were felt to be influential

in the growth of the community were recognized and noted.

a. The plan proposed development of the Village-as a
residential community in relation to the outside
economic factors dominating the employment base.

b. Certain types of industry needed to serve the basic
needs of Birmingham are recommended.

0. All other industries over a certain size shall be
subject to a public hearing relative to the "welfare
of the village."

In view of the rapidly expanding residential areas, a recom-

mendation to acquire land in advance of needs was quite

realistic.

The recommendation that parts of the Rouge River Valley be

used for open spaces to help develop and enhance residential

areas of "high character" was of real value. This topography
and its suitability for homesites undoubtedly attracted many
people to the area.

Perhaps the greatest inconsistency was in the zoning and

 

 

 

 

 

28

population proposals. The plan acknowledged the pleasant
character of the Village and its unique atmosphere, yet
implied that the existing community would expand to a

high density and a population of over 90,000 people.

Public Interest. - The awareness of the public can very seldom be
measured with any degree of accuracy. This is especially true when
trying to determine public reaction to a historic event after a period

of years.

One way of reflecting the interest of the community is through a local

7“
J

newspaper. The Birmingham accentric has been a very reliable source
with its fingers on the pulse of the community for many years. Granted,
the reporting and editorial policies may be subjective; but, by and
large the Eccentric is judged to have been quite objective in its re-

porting. This is especially true during the period when the 1929 General

Village Plan was prepared and presented.

The newspaper had little or no personal interest in the hiring of a
planning consultant and did not carry any stories or editorials prior
to the presentation of the plan to the community. However, the
Eccentric did carry a short news story about the plan on the third of
July and each succeeding week as the newspaper was published as follows:
11 July, 1929. The plan was given a front page news story
complete with a picture of Arthur Comey.
The news story indicated there we e no radical proposals
but that the report sets forth practical methods pri-
marily to achieve growth and prevent the setting in of

"degenerating elements" within the Village.

1 August, 1929. Another front page news story indicated the
plan will be reviewed by the Village Commission.

29

12 September, 1929. An editorial appeared concerning the growth
of Birmingham dwells on the enjoyable community aspect
despite its predicted growth. (Seems to be similar to
some aspects of the Comey plan).

10 October, 1929. Again, the Eccentric carried a front page news
story about the Village Plan. The story gave information
on the printing of the report, mailing procedure and its
availability to the citizens of Birmingham. Accompanying
this was a lengthy story discussing the elements of the
plan in some detail.

17 October, 1929. A short news story appeared about the work of
Comey, the plan and the fee paid for developing the plan.
An editorial favorably supporting the plan, stated
"...not 100 percent correct for Birmingham, but does
contain many practical suggestions."

2M October, 1929. A story about Village Manager Parry addressing
the Rotary Club on the aspects of the Village Plan. The
news coverage again relates details of the plan and its
potential.

31 October, 1929. An editorial posed the question of limited
industry and asked the people what they desired concerning
the industrial expansion.

14 November, 1929. A personalized article written by a Village
Commissioner, a regular feature of the paper, showed the
influence of Comey's report in predictions for the Village,
taxing and industrial attitudes.

Interest in the Village Plan may be judged to have been quite high at
the time of its presentation. If this is not true the newspaper went

to rather unexpected lengths to keep it before the public. The stories

were carried for approximately five months.

Another way to determine how well the plan was received is the way in
which it is implemented. If the plan is realistic and well recpived
chances are, the financing of most projects will be smooth with limited
adverse public reaction. The true test of a plan is in its implementa-
tion. It is at this point the people choose to spend or not to spend

their money according to what they f,el will be best for the community.

30

Implementation of the Village Plan is considered in Chapter III.

Comparisons. - To be of real value, a comparison involving the 1929
Plan must be made which will keep to a minimum, a subjective evalua-
tion based on current standards. To do this and to measure the
technical completeness, standards and criteria were also established.
The criteria were established and developed by securing a number of
plans completed about the same time as the 1929 Plan. (The five
plans and their full titles are listed in the Bibliography.) To
obtain a relatively representative sample of the limited number of
available technical reports and plans the five were selected from
different parts of the United States and were each prepared by a
different consultant. The following criteria were developed to
determine the selected plans, technical completeness:

1. The individual or individuals providing the technical
assistance, and the methodology used for preparing the
plan and report;

2. The completeness of research and presentation;

3. were the proposals related to reality, and did they hold
promise of being implemented;

4. The elements considered and included in the plan.

To facilitate plan comparison various factors were combined into two
tables. The first three criteria are shown on Table 4, page 31; the
fourth one is contained in Table 5, page 33. Table 6, page 34 is
presented to examine and compare the physical elements of the

selected plans and the Birmingham 1929 Plan.

Report contents :

 

 

Selected Communities
and Plan Prepared by:

31

TABLE 4

An evaluation of selected community plans*

Evaluation

 

Birmingham, Michigan
1929, Arthur C. Comey

The relation to true aspects of life and to
regional elements was done with meaning.
Elements were well defined and adequately pre-
sented. The number of elements indicate the
research was adequate. Graphics were adequate
and readable.

 

Cincinnati, Ohio
1925; Technical
Advisory Corp.,
Consulting Engineers

The economic development, relation to areal and
regional factors label this plan as quite real
and sensitive to the community setting. Accom-
panying the report is an overwhelming abundance
of statistics indicating extensive research.
Perhaps a shortcoming is in having so many facts
and figures in the report. It is the only re-
port of the six that does contain related re—
search material.

 

Columbia, Missouri
1935; Hare and Hare,
Consultants

lg

The report was in touch with the academic popu-
lation but was not related to other areas of
economic base. Primarily concerned with physical
relations and esthetics. The presentation could
have been better, the maps were small scale,
difficult to read and there was not a complete
plan relating all of the concepts and features.
The University of Missouri and two other educa-
tional institutions are located here.

 

Cedar Rapids, Iowa
1931; Harland
Bartholomew and
Associates

Developed around physical relationships, movement
of people and goods and is concerned with physical
and economic being of the community. Number of
elements and presentation indicate substantial re-
search related to the regional context. Adequate
maps and graphics made the presentation successful.
A section dealt with parking and traffic problems.

 

Melrose, Massachusetts
1938; Eva G. Osgood,
Consultant

 

The setting of this plan may have been out of
touch with reality as the town was considered in
isolation, not a part of a large area. Basic
philosophy was to develop a residential town yet
the economic aspect, either in or out of town,

was ignored. Research completeness can be
questioned due to many different persons involved;
board members, high school students and depart-
ment heads were all involved. The presentation
was adequate with photographs, graphs and plan maps.

 

32

TABLE 4 (Continued)

Report contents: An evaluation of selected community plans*

W

Selected Communities
and Plan Prepared by:

Evaluation

 

‘Winnetka, Illinois
1921; Edward H. Bennett

 

The report was drawn with an awareness and a
sensitivity to the larger context of metro-
politan Chicago. Considering the number of
elements and treatment the research was a
little on the brief side. There were many
photographs of situations in other cities
cited as good solutions to problems here.
Graphics were good and well presented and come
plete. This plan was selected due to proximity
to Chicago and possible influence of Chicago
plan.

 

* Evaluation based on list of criteria as presented on page 30.

Plan report elements:

33

TABLE 5

.A comparison of selected communities

w

Selected communities

 

Plan
elements

Birmingham

1

Cincin-
nati

Columbia

Cedar
Rapids

Mblrose

 

aning

X

 

Park and
Recreation

>4

>4

>4

>4

>4

 

 

Thoroughfares

>4

>4

>4

 

Public and
Semi-Public

 

Schools

 

Transportation

 

Transit

>4>4>4>4

>4>4>4>4

>4>4>4>4

 

Regulations
Subdivision

>4

>4

>4

 

Regional
Relations

{:4

 

waterways

 

Public Utilities

 

Building Code

>4>4>4>4

>4>4>4>4

 

Downtown
Traffic

>4

 

Plan
Program

 

Street Structur

 

Finances

 

Flood Plains

 

Citizens Plan

 

Administration

 

>4>4>4>4>4>4

 

 

 

 

 

 

X Indicates the plan considered these items in the report.

34

TABLE 6
Selected activity for comparison of plan completeness

TABLE 1 * Type of planning activity

 

 

Type of Activity Number of Cities

 

Zoning ordinance . . . . . . . . . . . . . . . r . . . 1,322
Control of plats (mandatory) . . . . . . . . . . . . . 275
Comprehensive plan . . . . . . . . . . . . . . . . . . 217
Thoroughfare plan . . . . . . . . . . . . . . . . . . 205

Park and parkway plan . . . . . . . . . . . . . . . . 168

Playground plan . . . . . . . . . . . . . . . . . . 150
Public building plan . . . . . . . . . . . . . . . . . 99
Drainage and sewerage plan . . . . . . . . . . , . . . 97
School and library plan . . . . . . . . . . . . . . . 97
Transit plan . . . . . . . . . . . . . . . . . . . . 86
'Water supply plan . . . . . . . . . . . . . . . . . . 61
Transportation plan . . . . . . . . . . . . . . . . . 29
Long range financial plan . . . . . . . . . . . . . . 8

 

* Compiled from National Resources Committee, Circular X, Appen.
B, p. 11. (Survey completed in 1936.)

Source: Robert A.'Walker, The Planning Function in Urban Government,
2d ed. revised. Chicago: University of Chicago Press, 1950, p. 32.

 

CHAPTER III

IMPLEMENTATION OF THE VILLAGE PLAN

The degree of implementation of the Village Plan could not be deter-
mined by utilizing the minutes from either the Planning Commission or
the Village Commission because the Village Commission minutes were too
brief to be very valuable. The Planning Commission minutes did prove

to be of some value, although they also were somewhat sketchy.

As an alternative to city record examination to determine degree of
implementation, a 1963 existing land use map was compared with parts
of the original plan. The comparison was reinforced by interviews
with the former City Manager, Mr. Donald Egbert, and the Planning
Commission secretary and City Clerk, Miss Irene Henley, who has

served the Planning Commission for many years.

This first Village Plan was contracted for and prepared when the
economy of Birmingham and the nation was developing and increasing.
It was presented in July of 1929 to the Planning Commission and
introduced to the community in October of 1929. When the eronomlc
chaos settled upon the nation the following year, capital improve-
ments began to be dropped from the Village program. Thus, the plan
at the most could have had only a year or two of effective operation
before the depressed economy forced pr.*ponment or removal of many

capital improvement prograye.

The Village had extended its financial obligations prior to the
recession by assuming two types of large debts: 1) The general
obligation bonds for the development of the civic center and other

Village improvements; and 2) Special assessment-bonds in the name of

35

36

the city against special districts. ‘While the Second debt was not
actually a part of the Village's obligation, it did affect the
Village's tax structure. Some development during the 1920's against
which the city had assumed part of the debt, became tax delinquent
during the early 1930's when tax revenues decreased by approximately
fifty percent and other revenues by approximately sixty percent. An
ensuing debt rate effectively prohibited the city from issuing bonds

for further improvements. (See Table 2, page 11.)

In the seventeen year period from 1931 to 1948 only $90,000 in
general obligation bonds were sold for capital improvements. In
fact, between 1930 and 1937 there were no utilities or pavement con—
structed. The relatively small amount of capital improvements made
during the seventeen year period were financed primarily'out of tax
revenues. From 1948 to 1952 a policy was adopted for concentrating
on reaching a sound financial plateau rather than developing an ex-
tensive capital improvements program. Prior to that, in 1933, a
charter amendment prohibiting special assessment bonds was passed
in 1933 to prevent defaulting such as occurred in the early 1930's.
At that time, nearly $100,000 of special assessment bonds were de-

faulted. By 1955 the credit rating of the city was restored to "A”.

The situation was not as dark as it appeared, however, for a basic
policy on delinquent taxes helped developed some reserves. Following
the period of low tax revenues when the citizens began paying delin-
quent taxes, the rax rate was not reduced. The delinquent'taxes being
paid were put into a reserve account to be used for capital improve-

ments and other uses, while the current taxes being paid were used to

provide current operating funds. Tax delinquent lands were obtained
by the city for parks and +he site of the present high school was

tax delinquent land.

nevelopment Sequence. - It can be correctly assumed that very few

 

physical improvements were completed during the period of the depressed
economy. However, the report section of the plan was being utilized by
both the Village Commission and the Planning Commission. Although the
Planning Commission records are somewhat sketchv they do provide an in-
sight into the activities of the commission between 1930 and 1951. The
activity of the Planning Commission during the 20 year period is in-
dicated by excerpts taken from the commission minutes. (An asterisk
will preceed excerpts from the minutes that can be related to the 1929
Plan.) Although these items can be traced to and related to the plan
there is no evidence available to correlate their occurance to Plan-

ning Commission action guided by the 1929 Plan.

The excerpts are listed below in a chronological sequence:

16 April, 1930, 7 May, 1930, 14 May, 1930. A continuing discussion
about the future of a major highway presently called
Hunter Boulevard is to be constructed on the old Grand
Trunk right—of~way and whether or not the highway should
be a grade separation at +he iniersection of Maple
Avenue.

*4 June, 1930. Discussed the possibility of acquiring Quarton
Lake for a public park site.
*Recommends that a board of architects be established
to aid the building inspector in approving building
plans.

*2 July, 1930. Conference held with Village attorney to draft an
ordinance establishing the architectural advisory board,
the same to be submitted when finished to the Planning
Commission for their review.

*8 October, 1930. The Village attorney suggested the architectural

38

advisory board be written into an appropriate section
of the Building Code.

*5 November, 1930. Discussed proposed zoning maps.

*10 December, 1930. Recommended the tree ordinance be referred
to the Village Manager to be put into final form.
Resulting copies are to be submitted to the Planning
Commission. Mr. Comey to be asked to submit cost of
drafting zoning proposals.

*7 January, 1931. Proposed division of the community into
districts to hold zoning ordinance hearings in each
district before drafting final regulations for recom-
mendation to the Village Commission.

*Recommend a form and text of tree ordinance to the
Village Commission.

4 March, 1931. through 26 January, 1932. Held hearings on the
zoning map. (Author's note: The Planning Commission
seemed to be tailoring the regulations to the wishes
of the people because the commission recommended many
changes in the districts during the course of the
hearings.)

*6 May, 1931. First formal record of a plat submission to the
Commission and its subsequent favorable recommendation
to the Village Commission.

*9 December, 1931. First draft of proposed zoning ordinance as
presented by the Building Inspector, D. C. Egbert.

*23 November, 1933. A proposal was discussed for a C.W3A.
project for beautification of parks and boulevards.
Those areas to be included if the city should acquire
them are: Rouge Valley, Quarton Take and Bloomfield
Township Park and Woodward Avenue.

No further official recorded meetings for almost a ten vear
period; until October 11, 1943.

23 February, 19¢4. ‘The Planning Commission was reorganized-

29 March. 19u4. Discussed the possibility of a comprehensive
study of the community and its coordination with
Pontiac and Royal Oak.

3 May, l9u4. Recommends to City Commission that consultants of
'Wilcox and Laird, Landscape Architects be retained for
six months at $1,000.

*30 August, 1944. Recommended to the Citv Commission that playh
ground space be acquired in the Birmingham4Woodward

39

Subdivision. The recommendation was adopted.

29 November, 1944. Discussed the development of Smith-Poppleton
Park. (Area "F" shown on Plate IV.)

14 March, 1945. Recommended that one-half mill be earmarked from
the 1945-46 budget for planning activities. (Request
granted.) Discussed ways to improve and fill Quarton
Lake Park.

14 April, 1945. Planning Commission and school board agreed to
school plans. Commission agreed to study street
pattern and to try and make it safer for children.

30 January, 1946. Requested one-half mill for planning operation.

26 June, 1946. A proposal and report prepared by consultants to
add off-street parking requirements for residential and
business structures to the zoning ordinance was submitted
to the City Commission.

26 August, 1946. The Planning Commission received an invitation
from the City Commission to attend its meeting September
3, 1946. Primary topic for discussion will be policy
considerations. Single project plans are submitted to
Planning Commission by consultants Wilcox and Laird.

28 January, 1947. The meeting with City Commission on Policy was
held. Discussion centered on plans for procedure,
zoning, off-street parking and Planning Commission reports.

2 September, 1948. New members were appointed to the Planning
Commission.

13 October, 1948. The Planning Commission was reorganized
according to city ordinance #372 upon recommendation
of the City Manager.

13 January, 1949. The Planning Commission recommended that it
review all plans for construction in zoning districts
Business "A" and "B" before permits are issued by the
building inspect or .

27 January, 1949. City Manager reported adoption of ordinance
#377 requiring plans be submitted to Planning Com-
mission for review.

10 March, 1949. Citizens committees interested in planning
submitted reports to the Planning Commission on various
problems.

23 June, 1949. A report for a park program was submitted to the
City Commission.

4O

13 October, 1949. Planning consultant C. W. Barr is to be
retained for preliminary study and master plan
report.

24 September, 1950. Preliminary study and master plan was
completed by C.'W- Barr. He was to be retained
further to prepare zoning ordinance revisions.

25 January, 1951. The master plan. prepared by C.‘W. Barr
was publically presented for the first time for
Planning Commission adoption.

29 May. 1951. On this date the last meeting of the Planning
Commission was held following several meetings and
discussion concerning the possibility that an
adopted master plan creates a cloud on property
titles. (A more complete discussion on this
matter will be presented in Chapter V.)

Plan Achievements. - There is some evidence, as is presented in the
chronological sequence of excerpts from the Planning Commission minutes,
that the plan report had some influences upon the thinking of the
Planning Commission. It also exerted a certain influence upon the
former City Manager, Donald C. Egbert. In an interview with him he
indicated +hat he kept a copy upon his desk for reference and guidance.
Mr. Egbert, no doubt. developed a certain sensitivity toward the
planning process while serving as Building Inspector, City Assessor

and other jobs prior to becoming City Manager. As Building Inspector
he was associated with the Planning Commission while he prepared the first
zoning ordinance. Pollowing are a series of occurances Which Mr. Egbert
relates to the plan or the plan report.

1. The building and housing codes were combined in one ordinance.

2. The 1931 zoning map was recommended by Mr. Comey and the

ordinance by Mr. Egbert, even though it failed to get popular
approval.

3. The 1937 zoning ordinance was passed.

41

4. A tree planting guide was established.

5. A billboard and sign ordinance was developed. The sign
ordinance allowed flat signs only upon buildings in the
business district.

6. Followed the recommendation that sanitary'water be secured
from the Detroit system.

7. Even though the sewage treatment system was designed before
the plan was it did help in securing development of the

sewerage system.

Another element mentioned in the report and one that gained prominence
was the civic center. Although the civic center plan was completed
before the hiring of Mr. Comey, he mentions it in the plan report. He
said "The present attractiveness and dignity of the new village center
may be materially enhanced if future private buildings on each side
facing it is in keeping." The Planning Commission and city officials
must have kept this very statement in mind while encouraging the proper
development in the civic center area. There is no doubt that placement
of the new post office building located in the civic center and dedicated

on May 18, 1940 was affected by this policy.

The 1929 Plan also recommends that other buildings of a quasi-public
nature be located near the civic center. ("...it is the natural
location for various quasi-public edifices such as churches, clubs and

other community buildings,...")

In its 75th anniversary edition, the Birmingham Eccentric alludes to
early developers of the civic center plan. It described the post

office dedication, ”...climaxed many years of hopeful dreaming and

42.

intensive planning by the original founders of Birmingham..." The
paper further indicates that the civic center is as complete as will
be found in a city of Birmingham's size. The center includes the
post office, municipal building, public library, the Community House,

old Baldwin High School, and a city park.

The 1929 Plan and Present Land Use. - To determine what influence the

 

1929 Plan had on the community's land use pattern from 1929 to the
present, the elements of the 1929 Plan and the 1962 existing land use
were compared. (See Plate III, p 43.) This comparison indicated the
physical elements of the community that can be related to the 1929 Plan
or that may have been developed from it and the resultant resemblance
between plan elements and the city as it has developed. The resem-
blance was remarkable where public property was involved and where
those elements relegated to the public sector were able to be in—

fluenced by city administration measures and decisions and action.

To further analyze the 1929 Plan the following three additional areas
affecting the plan and its implementation were examined:
1. The expansion of the corporate limits;
2. The subdivision pattern and street arrangement that was
existing in 1929, and;
3. The land that was under Village ownership in 1929, and

use of it as described by the plan.

The first factor indicated that although the corporate limits have
changed since the 1929 Plan, the changes are not significant enough

to have affected the application of the plan.

 

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Analysis of the second factor indicated the street arrangement has not
changed since it was developed in 1929, showing there was little
activity'in the subdivision of land or physical rearrangement of the

street pattern.

The third criteria was used to determine if there have been changes in
the ownership and use of public lands. The determination of use of
lands was also again made by comparing the 1929 Plan Map and the 1962
existing Land Use Map. Because extensive change had occurred, further

analysis was made to record the specific areas and changes.

If ownership changed from private to municipal, near the recommended
location of the 1929 Plan, it was construed as fulfillment of the plan
requirements. This is also based on Mr. Egbert's comments that the

plan was used primarily as a guide and not for specific locations.

These changes from priyate to public property and areas conforming to
the 1929 Plan are listed below: The numbers correspond to numbered
areas on Plate No. IV, page 45.

1. Part of the area needed to form an extended parkway as
indicated on the regional plan.

2. & 3. Part of the area around Quarton Lake recommended as
part of the Rouge River parkway; shown on the General
Village Plan.

4. Part of large proposed park to help provide recreation in
this area where a majority of the homes are located upon
smaller lots. (Part of the General Village Plan.)

5. This area appears to be in lieu of the large area directly

west as mentioned under 4 above, recommended in the plan but

 

 

 

  

      

      

 

 

 

 

 

   

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46

not acquired. It is also intended to help provide
recreation in the area subdivided into smaller lots.

6. The area along Maple Avenue used to widen the roadway at
this point.

7. To include the new high school site may be stretching the
point but it is near a proposed location and the site does
contain a new elementary school as recommended by the 1929
Plan.

8. This area is much larger than indicated but is certainly a
part of a proposed green belt intended to surround the
community as it is shown on the Regional Plan.

9. A pank, another area near a recommended location as shown
on the General Village Plan.

10. A park area exactly where it was recommended in the General
Village Plan.

11. & 12. These areas may be considered as part of the green belt
recommended on the east side of Birmingham and shown on the
regional map.

13. Although it may be again stretching a point, this area may
be considered a substitute for the site to the east of and
outside the corporate limits at this point.

14. A substitute for the large park area recommended to the east

of Adams Road.

Other Achievements. - Additional areas have also been acquired by the
community which are not a part of the Village Plan. These areas set

forth below in letter sequence correspond to the letters on Plate IV,

page #5.

47

A. Several areas around the central business district utilized
for parking.
B. An extension of the school grounds.
C. A.park area unrelated to the 1929 plan.
D. & E. Additional extensions to school and recreation areas.
- F. An open space unrelated to anything except perhaps part of

the Rouge River parkway, which is not likely.

As mentioned in the 1929 Plan Report, the municipal property is only
part of the community picture. The private sector of the community
must also be considered. It is necessary to correlate and harmonize the
two if a successful plan is to be fulfilled. The zoning regulations, an

integral part of any plan, are analyzed in the next chapter.

CHAPTER IV

ZONING PROGRAM

The Village of Birmingham has a long, turbulent history of zoning
provisions with the results not always coinciding with zoning pro-
posals. People residing within the community did not see zoning as
an acceptable solution for solving problems of mixed land use for

quite some time.

After the first proposed ordinance of 1926 there was enough agitation
by the local real estate people to cause a referendum concerning the
adoption of the ordinance. The zoning ordinance was defeated by

1,h82 votes against 588 in favor.

Development Seguence. - There were other ordinances proposed and
adopted by the Village Commission before one was finally accepted
by the community. For a quick perspective of the zoning ordinance
progression the following list has been prepared from the minutes

of the Planning Commission.

24 May, 1926. The first ordinance was presented to the
Village Commission and was held for 30 days for
a public hearing. T. Glenn Phillip prepared
this first zoning proposal.

23 June, 1926. A public hearing was held on the zoning
proposal.

1 July, 1926. The first zoning proposal, Ordinance No. 126
was adopted. Following this adoption, a petition
was presented asking for a referendum on the zoning
ordinance. The referendum was to be held within 90
days.

23 August, 1926. .A referendum was held on the ordinance, re-
sulting in a decisive defeat for the ordinance.

17 July, 1929. A zoning proposal was presented as a part of
the General Village Plan of Birmingham.

48

49

4 March, 1931. Public hearings begin on zoning proposals
and continued until January, 1932. Following the
hearings, the entire matter remained inactive
until 1937.

18 February, 1937. The zoning proposal was adopted and enacted
into Ordinance No. 221 following public hearing by the
City Commission.

The following items are amendments to Ordinance No. 221.
30 January, 1939. Use and height of fences were limited.

16 August, 1943. Public hearings on all amendments and a 15 day
notice in the official newspaper were to be required.
A three-fourth vote of the commission was also required
to override a protest of abutting property owners.

23 July, 19h5. Building lines in all residential zones were
changes. The depth was increased for front, side,
rear and the number of stories was limited.

5 August, 1946. Uses allowed in the Business A Zone were
broadened to allow some additional uses.

b August, 1947. Home occupation and professional office use
were clarified. Greater restrictions were placed on
those uses located in the single family zone.

8 December, 1947. A new section was added, defining and re-
quiring off-street parking facilities for all
buildings. A provision for public parking facili-
ties was created and extending the powers of the
Board of Appeals in matters of assessment of cost
for public parking areas.

21 November, 1949. Home occupations were eliminated from single
family zones and greater restrictions were placed on
professional offices in the single family zone.

11 September, 1950. General requirements were raised for the lot
area per family of the Income Bungalow, Terrace or
Attached Residence and the Multiple Family Zones. (See
Appendix for original figures and changes.)

8 June, 1953. Professional offices were eliminated from all
residential zones except the Multiple Family Zone.

2 July, 1953. A "Parking "A" district was established for non-
commercial parking areas where no fee is charged.

3 May, 1954. A "Parking "B" district was created for commercial
parking where a fee is charged.

 

 

 

 

 

 

5o

10 January, 1955. Off-street parking and loading facilities
were defined and required. The Board of Appeals was
granted power to hear parking grievances.

5 December, 1955. A "Business "C" Professional Office district
was established.

' There were no further changes of major importance until the current

zoning ordinance was enacted and adopted on March 31, 1958.

Zone District Map Changes. - As indicated above, a zoning ordinance
was finally adopted in 1937. It came eleven years after the original
proposal. Such a proposal was submitted with the 1929 Plan. (A copy

of the 1937 District Map is presented on Plate V, page 51.)

The Zone Dfistrict Map, part of the first zoning ordinance, was not
amended until 1945 when an up-dated map was prepared. The new map
incorporated all of the intervening years' amendments concerning
zoning district changes. In a comparison between the 1937 Zoning
District Map and the 1945 Zoning District Map, it was noted that
there were only minor alterations in the boundaries of the later map.
This was also true of the text which was only slightly altered. (A

copy of the 1945 Zoning District Map is presented on Plate VI, page 52.)

A series of zone boundary changes and amendments from 1945 to 1956
rendered the previous 1945 map obsolete. When the 1956 map was amended
there were again only minor variations found in the district boundaries
as compared to the previously amended 1945 Zoning District Map. Major
changes were necessary in the zoning ordinance text to meet the
shifting values in residential standards from:small lots and higher

densities to larger lots and lower densities.

 

 

 

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53

Two business zones were also added to accommodate the new trend in
urban living influenced by the automobile. In the residence zone
districts an extension was made in the "Terrace" catagory. The
"Income Bungalow” was practically eliminated from the Zone District
Map except for isolated areas. In the commercial section, "Business

C" and ”Parking B" were added to the Zone District Map.

Two years later, in 1958, need for a new zoning was indicated from
regular and frequent amendments to the 1937 ordinance. The previous
ordinance was repealed and Ordinance Number 527 was adopted as the

new zoning ordinance.

The 1958 Zoning District Map reflects the changes made in the text.

In the amended 1937 ordinance, there were eleven catagories or zones

and in ordinance number 527 there are thirteen districts. The greatest
change is in the residential use district which now contains seven
catagories where previously there were four. (A copy of the 1958 map is
not shown as the current 1963 District Map is the same except for minor
variations. The 1963 map is on Plate VII, page 54. Very little change
can be noted on the 1963 map'when compared to the 1958 map. There are
only minor variations in the zone districts of the multiple family and

the public property districts.

Zoning Relation to 1929 Elan. - The zoning program for the Village was
based upon the 1929 Plan. The first district map of "preliminary zoning
study map" was presented by Mr. A, C. Comey as a part of the 1929 Plan.
The text adopted for the 1937 ordinance was prepared by Mr. D. C. Egbert,
then Building Inspector. There are parts of the zoning ordinance that

reflect the goals and purposes taken from the 1929 Plan report and out-

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55

lined in previous chapters of this thesis.

In the Zoning section of the 1929 Plan Report, page 25, the discussion
is related to the economic base and the need for industry to be located
in Birmingham "...serving chiefly Birmingham's needs itself..." Even
with this stipulation it was further'stated that only industry below

a certain size shall be allowed, to be regulated by horsepower and
number of operatives. "All business should be highly localized..."
principally along the two major streets, Wbodward Avenue and Hunter
Boulevard. "...and including enough side streets to make ample pro-
visions for the needs for a number of years ahead." All other business
outside of the main district was required to be in "small local
business centers." It was further recommended that the remainder

of the Village should be zoned permanently residential.

Upon reviewing the zoning section and comparing the zoning maps,

it is immediately apparent that the latest map, the 1963 District
Map, bears a remarkable resemblance to the 1937 Zoning District Map.
It is even more remarkable that both of the zoning maps, the 1937 and
1963, bear a marked resemblance to the existing land spatial develop-

ment pattern of Birmingham.

The zoning ordinance as a tool to be used in effectuating a compre-
hensive plan is a good one if used properly. In Birmingham it has
been used efficiently and expertly in developing the goals of the

zoning plan as outlined in the 1929 Plan.

CHAPTER V

SUCCEEDING PLANNING DEVELOPMENTS

Studies Updating the 1929 Plan. - When the Planning Commission was
reorganized early in 1944 the members also recognized the need to

have parts of the 1929 Plan up~dated. At this date early in 19M4, the
Planning Commission was considering another comprehensive study of the
community to supplement the 1929 Plan. Along with a community planning
study they were concerned about the relationship of Birmingham to
Pontiac and Royal Oak. The latter community, is a contigious suburb of
Detroit and Pontiac is a satellite type city in the Detroit region.
However, for more than two years, Laird and'Wilcox, landscape architects,
worked with the Planning Commission to aid in revisions of segments of

the plan.

Judging from available records, their work was not comprehensive but
consisted of unrelated supplemental studies. For example, a study

was made of off-street parking regulations for residential and business
areas to be included in the text of the zoning ordinance. Also, piece-
meal parking regulations were to be instituted for West Maple, Hunter
Boulevard and certain other streets, all unrelated to a plan or compre-

hensive traffic studies.

The Planning Commission could not realize its ambition to complete a
comprehensive study and Birmingham's relation to the region until 1944
when the City Commission agreed to retain Mr. Charles W: Barr, Planning
Consultant. By September of 1950 the study was completed. The study

was presented to the Planning Commission and the first public hearing

56

57

held by January, 1951. However, unexpected opposition arose during

the public hearings. George Cram, a lawyer and a resident of Pontiac
and a property owner in Birmingham challenged the validity of the
Planning Commission to adopt and record the master plan. He premised
his attack on the belief that if the master plan were adopted and then
recorded by the County Registrar of Deeds, it would place a cloud on the
legal property titles and that this cloud would seriously restrict the
constitutionally guaranteed rights of use and marketability of property.
(He made specific reference to the areas designated on the master plan
for public use.) Mr. Cram contended that the master plan became a legal
document when it was adopted and recorded in the office of the County
Register of Deeds, according to the state statutes. He further con-
tended that property so established would be eventually acquired by

the city at a future date, unknown to either the city or the private
property holder. This action or lack of it would place a cloud upon
that title, making the property unsaleable or at best, very difficult
to sell. George Cram continued his attack by writing articles about
the situation and having them published.10 Such a furor was created
over this issue that the Michigan Chapter of the American Institute

of Planners and others challenged his contention.11 Although an ex—
cellent rebuttal was presented by the Michigan A.I.P-. the issue

was never legally resolved. A test for a solution was perhaps avoided

by the withdrawal of the master plan, and the dissolution of the

 

10One such article was published in the Michigan State Bar Journal,
V- 35 #4, April, 1956, pp 9-16-

11A series of articles and selected pertinent material, including the
Cram article, have been printed in a publication entitled, Master
£3anning_and the Law, Detroit Metropolitan Area Regional Planning
Commission, July, 1957.

 

58

Birmingham Planning Commission, and the formation of a Planning
Board by city ordinance. (A copy of the Planning Board ordinance

is included in the Appendix.)

The Planning Board was established on a limited basis, allowing it
to function solely on matters referred to it by the City Commission.
By diligent effort, the board managed to regain the confidence of
the commission and is now functioning much as they did before the

Planning Commission was discontinued.

Current Planning. - That the citizens of Birmingham have long felt a
need for city planning is evident even in 1929. That the planning
program has been a continuing effort is testified to and reinforced by
periodic studies and the continuous employment of full time planning

technicians since 1952.

Special studies recently completed by private planning consultants
are the ”Central Business District" in 1961 and the "Population,
Existing Land Use and Neighborhood Unit Plan" in 1962. The latter
is the first part of a two year study of a comprehensive development

plan. The plan is expected to be completed in approximately two years.

‘Williaanrownfield, the current City Planner of Birmingham, indicated
in a recent interview that future plans may involve urban renewal.

This will follow the comprehensive plan and will depend upon specific
reports and recommenda+ions in that plan. It is possible that a central
business district project and some residential rehabilitation work will

be started.

CHAPTER VI

CONCLUSIONS AND RECOMMENDATIONS

Forces shaping or mis-shaping the community are always present. That
these forces need directing is the basic premise of need for a community
development plan. For just such a purpose, a plan was created in 1929
for the Village of Birmingham. A comparative examination of other

plans of this period revealed the Birmingham Plan to be as technically
complete as some, and more so than others. This is also true for the

concepts and scope of the Plan.

The 1929 Plan was used by the Birmingham Planning Commission and the
City Manager for the benefit of the community during the life of the
Plan. The fact that their use of +he Plan was for only a few years
does not detract from its value. The true worth of the Plan and the
value that was added by the Planning Commission lies not in its recom-
mendations for implementation, but in the careful way the plan was com-
posed, the faith that the Planning Commission and Council had in Mr»
Comey, and the necessary guidance given to him in its development.
Conversely, the City Manager's efforts in implementing the plan

demonstrated its value to the citizens of the village.

In implementing the plan, Mr. Donald C. Egbert used his position as
City Manager and his awareness and knowledge of city planning pro-
cedures to effectively use the 1929 Plan's basic principles,
standards, proposals and concepts. He was more effective than the
Planning Commission could have been because there are indications that
imply the City Commission had more confidence in the manager than in
the Planning Commission. This is true even though the Planning

59

60

Commission is neither a legislative or administrative agency, but a
body whose primary defined responsibility is creating and recommending

a comprehensive development plan and program.

The usefulness of the 1929 Plan can be measured by whether or not the
goals and objectives were satisfactorily tailored to the future needs
and desires of the community. Most of the objectives were appropriate
for Birmingham and the community did develop according to the proposals
set forth in the 1929 Plan. Some objectives fulfilled are apparent
today in the almost village-like atmosphere retained in the residential
areas, around the "village square" and, to some extent, the character
of retail stores of the central business district. The longevity of
the 1929 Plan objectives can be explained by the high education level
and the economic strata of the managerial and professional people

that influenced the objectives. People of this same socio—economic

level continue to reside in Birmingham.

When the location of existing public properties is compared with the
1929 Plan recommendations, it is evident that community development

in the public sector was given substantial guidance by the Plan. The
City Manager, guided by the basic concepts of the 1929 Plan, made
recommendations to the City Commission for capital improvement programs.
As a part of this program, Mr. Donald C. Egbert recommended the acquisi-
tion of a number of tax delinquent properties which proved to be useful
to the city. He was given direction both in acquisition and retention
of property by the 1929 Plan. Adequate parks and playgrounds have

been established according to the 1929 Plan objectives and proposals.

It can be assumed the original civic center plan was an appropriate

O

61

one and that its subsequent growth according to the 1929 Plan

qualified as another achievement.

The administrative codes are an indirect force in community develop-
ment. The Planning Commission, before it atrophied, was instrumental
in securing adoption of codes necessary to aid guidance of the
community's growth. The first general zoning district plan presented
by Mr. Comey was influential in guiding development of the private
sector of the community. Zoning districts were established according
to the 1929 Plan ”objectives" and the zoning program was extended
over the years to satisfy these requirements. While the community
grew from a Village to a City, the location and extent of commercial
growth recommended in the 1929 Plan was substantially maintained.
During this process and growth there were only minor variations in
zoning districts and text changes to meet changing conditions and
community values. To a limited degree this zoning stability in-
dicated the satisfaction of the community with the zoning program.
This satisfaction is more or less determined through the actions

of elected and appointed representatives.

The positive influence and effectiveness of the 1929 Plan is also
conclusively shown by the type of community that has developed.

The regulated industry, the well contained, orderly business districts,
and the residential areas of "high character” all fulfilled "objectives"

of the 1929 General Village Plan.

A prevailing conservative attitude in the community also had a part

in retaining the plan and making it effective. This attitude even

62

today reflects and maintains the community's aesthetic values and

design concepts expressed in the 1929 Plan.
SUMMARY

When assessing the total growth of the community with the effective-
ness of the 1929 Plan, it can be concluded that the plan provided a
significant measure of guidance. This can be more readily accepted
by examining the elements of development that are relegated to the
public sector of the community and those designated specifically to
the planning function. Those elements with which the city planning
Process is concerned were contained in the 1929 Plan. That these
elements were developed primarily from the 1929 Plan, can be attested
to by the only comprehensive development plan that has guided Birming-
ham. Guidance in the development of the public sector has been pro-
vided for public facilities, public improvements and administrative
procedures and codes, of which the zoning code is extremely impor-
tant. The zoning has kept pace with the community's growth, yet
maintained the original guide lines established for and by the

1929 Plan.

From this evaluation I can only conclude that the 1929 Plan provided

a concrete measure of guidance. Birmingham's use of the 1929 Plan
substantiates the basic premise that a comprehensive plan does provide

a means to orderly community development. The realization of achievement
can be had by carefully preparing the community goals and purposes with—

in that comprehensive plan. The planning process in evidence in Birming-

63

ham is one that is marked by substantial achievement. This planning
process closely followed the real goals of the community as the
decision making body determines in the face of public opinion what

course to follow.

PROPOSALS

Some proposals or recommendations that came from an examination of
Birmingham's process and an evaluation of the 1929 Plan may be sub-
jective because of the peculiar circumstances under which the plan
was presented and the manner in which it was implemented during its
useful life. However, the findings indicate the need for a greater
understanding between the administrators, the legislative body and
the professional planner involved. Guidance toward a better under-
standing should be provided by a comprehensive plan program; by im-
plementation of that plan and by professional planners. Even though
the circumstances involved in plan implementation were peculiar the
author believes the following recommendations have validity:
1. The public administrator of the community should be

involved in the comprehensive plan formulation, its

goals and objectives, and the standards responsible for

its form;

4. There should be a more direct relation between the ad—

 

ministrator, the technical aspect of the plan, and the

agplication of planning principles, concepts and programs;
3. Formulation of goals and objectives shculd be an important

factor in establishing the basic framework and prcgram of

a comprehensive plan;

64

u. The zoning program should be carefully developed and
kgygd to goals and objectives of the comprehensive plan
to help stabilize the zoning administration;

5. The Planning Commission's role can be transferred to a
citizen advisory committee to provide the citizen's
reaction required in a complex and changing urban
community. This would be a special committee for the
specific purpose of formulating goals and objectives
which would then be used by them as guides in creating
a comprehensive development plan. A new committee
would be appointed each time that a programmed major

revision would be scheduled.

Although recommendations 1 through 4 are generally accepted

theories of planning procedure and implementation of plans, they

are rarely practiced in the actual operation of a public agency.

In the practice the administration of zoning and rezoning decisions
by the decision making body are determined by short range goals
based on nebulous policy, rather than on firm long range goals of the

comprehensive plan.

This evaluation further strengthens the case and need. and plausi-
bility of creating a department of planning. Such a planning depart-
ment should be an operating agency working closely with the city
officials who should be reasonably familiar with the purposes, goals

and objectives of the comprehensive plan.

BIBLIOGRAPHY

Reports

Bennett, Edward H. Preliminary Plan of Detroit, Detroit City Plan
and Improvement Commission, 19l5.

Comey, Arthur C. Detroit Suburban Planning, Detroit City Plan and
Improvement Commission, 1915.

 

Changing_Pattern of Manufacturing Plants and Employment 1950-1960 in
the Detroit Region, The, A Report Prepared by the Detroit Metropolitan
Area Regional Planning Commission, Detroit, 1961.

Master Planning and the Law. Selected Materials in the Current Legal
Status of the Master—Plan, A Report Prepared by the Detroit
Metropolitan Area Regional Planning Commission with the Coopera-
tion of the Michigan Chapter of the American Institute of Planners.
Detroit, 1957.

Population and chupiengwelling Units, Detroit Region, A Report Pre-
pared by the Detroit Metropolitan Regional Plan Commission, Detroit,
1962.

 

Proposed Planning Districts, A Report Prepared by the Detroit Metropolitan
Area Regional Plan Commission. Detroit, 1959.

 

Birmingham, Michigan. General Village Plan of Birmingham, Michigan
Arthur C. Comey, Birmingham, Michigan. 19?9.

 

Cedar Rapids, Iowa. A City Plan for Cedar Rapids, Harland Bartholomew,
Cedar Rapids, Iowa. 1931.

 

Columbia, Missouri. A City Plan for Columbia, Missouri, Hare and Hare,
Columbia, Missouri, 1935. '—

 

Cincinnati, Ohio. Official Plan of the City of Cincinnati, Technical
Advisory Corporation, Cincinnati, Ohio, 1925.

Melrose, Massachusetts. The Collaborative Plan of Mglrose, Melrose
Planning Board, Melrose Mass., 1935.

 

Books

Chapin Jr-a F. Stuart, Urban Land Use_Planning, New York: Harper
& Bros., 1957.

 

Mace, Ruth L., Municipal Cost~Revenue Research in_the_Uni+ed States,
Chapel Hill, N.C.: Institute of Government, University of North
Carolina.

65

66

Perloff, Harvey 8., Education for Plannigg: City, State and
Regional, Baltimore: John Hopkins Press, 1957.

walker, Robert A., The Plannigg Function in Urban Government,
2d ed. revised, Chicago: The UniversiEy of Chicago Press, 1950.

Other Sources

Birmingham City Planning Commission Minutes, The Official Recorded
Minutes in the City Clerks Offices: Records Used for the Period
1926 to 1963.

Birmingham City Commission and Village Commission Minutes, The Official
‘Recorded Minutes in the City Clerks Office: Records Used'Were for
the Period 1923 to 1935.

. Personal interview with Miss Irene Hanley, City Clerk,
Birmingham, Michigan. May, 1963.

 

. Personal interview with‘Wm. Brownfield, Director of City
Planning, Birmingham, Michigan. April, May, 1963.

. Personal interview with Welter Blucher, City Planning
Consultant. March, 1963.

 

. Personal interview with Donald C. Egbert, Director of
the Southeastern Oakland County water Authority; March, May, 1963.

APPENDIX I

Biographical Sketch of Arthur C. Comey
(Creator of the 1929 General Village Plan)

APPENDIX I

Village Plan Consultant. - Arthur C. Comey, creator of the General Village
Plan of Birmingham was well known throughout the United States as an
urban planner and landscape architect. He was a graduate, in 1907,of
Harvard University with a degree in Landscape Architecture. Later, he
served on the faculty as an assistant professor in the Harvard School of
City Planning, as an associate professor in the Harvard Department of
Regional Planning and was a lecturer in the Harvard School of Landscape
Architecture. During this time he was author of several books, among

them ”Transition Zoning" of the now famous Harvard City Planning Series.

The activities of Mr. Comey included service in many professional
societies, some of which he served in important capacities. He was a
charter member of the American Institute of Planners, and his name
may'be found in nearly all early issues of the A.I.P. Journal. He

also served on the Board of Governors, performed on panels and reviewed
books for the membership. He was also a member of the following organi-
zations: American Society of Civil Engineers; American Society of Land—
scape Architects; Massachusetts Homestead Commission; American Institute
of Construction Engineers and American Planning and Civic Association.
Included in the various activities was service to local, state and federal
boards and commissions. Some of those he served upon are: Trustee of
Public Reservations; Massachusetts Governor's Commission on Open Spaces;
Federal Planning Boards and the President's Conference on Home Building

and Home Ownership.

Before getting involved in the many responsibilities outlined above,
Mr. Comey'worked for the municipalities of Dixon, Illinois; Ithaca, New

York; Milwaukee County,'Wisconsin; and Boston, Massachusetts. Somewhere

68

69

in between he managed to win two competitions; one in Richmond,

California and the other in Chicago, Illinois.

'With Mr. Comey's great depth and wide range of knowledge he served in
still another capacity, that of consultant where he served many
villages, cities, state and national agencies. The cities include,
among others: Portland, Maine; Boston, Massachusetts: Dover, New
Jersey; Detroit, Michigan; Milwaukee,‘Wisconsin; and Houston, Texas.
National and regional organizations were: United Nations Head-
quarters Commission; Natural Resources Planning Board; Maine State

Planning Board and New England Regional Planning Commission.

APPENDIX II

Copy of Ordinance Creating the Birmingham
City Planning Board

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APPENDIX III

Resume of the 1937 Zoning Ordinance
(The First One Adopted in Birmingham)

APPENDIX III
RESUME OF 1937 ZONING ORDINANCE

#221 CITY OF BIRMINGHM'I, MICHIGAN

The only available copies of the original zoning ordinance in 1937 are
documents which neither the City Clerk nor the Planning Director will
allow to leave the city hall. Because of this, a resume’ has been
made of the use sections and is presented in abbreviated form in

this appendix.

The zoning districts are: SINGLE FAMILY; INCOME BUNGALOW; TERRACE OR
ATTACHED RESIDENCE; MULTIPLE FAMTLY; BUSINESS A; BUSINESS B; and
INDUSTRIAL.

The text for each of the above districts is as follows:

SINGLE FAMILY: This use district provides primarily for single
family dwellings

Other uses allowedzi Professional offices and home occupations,
boarding schools, churches, and colleges. Accessory uses: Shall
not provide a storage space for more than one motor vehicle for
each 2000 square feet of ground area of a lot. Such use may also
contain living quarters. .

INCOME BUNGALOW: This use district is primarily for a two family
dwelling upon one lot. Specifically this zone is for not more than
two families in a single residence and one which must resemble a
single family dwelling.

Any of the uses listed in the previous section are permitted. Other
uses that are allowed: Hospitals or sanitariums, other than for
insane and feeble minded, which shall not cover more than 25% of the
lot; philanthropic or elemosynary institutions; children's nursery;
and accessory uses which shall be the same as single family except
the motor vehicle storage ratio is limited to one vehicle for each
1,500 sq. ft. of lot area.

TERRACE OR ATTACHED RESIDENCE: All uses listed in the previous
section are permitted, including terrace and attached or row houses.
(A definition for this type of dwelling is attached single residence
buildings built in groups of three or more.)

MULTIPLE FAMILY: All uses listed in the previous section are per-
mitted, including multiple residence dwellings, hotels and apartment

71+

75

hotels. Any of these may'be the principle building, as part of such
building or as an accessory building. Other uses that are allowed:
Passenger stations, clubs, social-recreation and community center
buildings, except activity as a service or as a business, such as
public dance hall or a public bowling alley or non-commercial storage
or motor vehicles, dining room, restaurant, barber shop, florist or
confectionary which are customarily located within an apartment hotel
or club, provided it shall be located wholly within a building occupied
as permitted within the multiple family district and be an accessory
use with no exterior advertising.

BUSINESSA: This use district is primarily intended to serve as a
retail function that is now associated with a neighborhood retail
center or service stores.

All of the uses contained in the previous section are permitted,
including (There is a listing of retail convenience and service
stores.) any similar uses to those listed above. (Meaning the
list of retail and service stores under this section.)

BUSINESS B: This district is primarily intended to serve as the zone
for the heavier commercial and some manufacturing and fabricating uses.
All of the uses contained in the previous section are permitted.

In addition to a list of permitted uses, 20% of the floor area may be
used for industrial purposes. However, in the operation of such uses
it shall be restricted to 10 mechanics or workers, and use not more
than 25 horsepower.

-(A list of uses permitted is contained under this section which is
comparable to extensive industrial and fabrication of material and
foodstuffs.)

(This list is followed by one of prohibited uses of more intensive
industries.)

INDUSTRIAL DISTRICT: This use district is intended to permit the
heaviest industrial uses.

All of the uses contained in the previous section are permitted.
.Any other uses of mercantile, commercial or industrial activity or
establishment, except: (There is contained in the ordinance an
extensive list of some 37 prohibited uses.)

A section on the interpretation and application of the ordinance
was included within. It stipulated, "...the provisions of this
ordinance shall be held to be the minimum requirements adopted

for the promotion of the public health, safety and general welfare."

POWERS OF BOARD OF APPEALS: Specifically stated to mean they shall
not be allowed to change classifications of any property on the
zoning maps, only to interpret the ordinance and authorize variations
in accordance to this section.

76

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APPENDIX IV

Report of the Village Plan Commission
(This Copy of the 1929 Plan was Secured From the Present
City Clerk and is One of the Original Copies Produced
by the Plan Commission for General Distribution.)

 

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GENERAL VILLAGE PLAN
01‘
BIRMINGHAM, MICHIGAN

quport to the

VILLAGE PLANNING
COMMISSION

by

ARTHUR C. COMEY
Consul/Mg CH)" Planner

JULY,1929

2 REPORT OF THE VILLAGE PLANNING COMMISSION

"The plan is not a call for great immediate expenditures, but
rather a program by which those exjn-mlitures u'hich will be made
in any erent may be most effective and much wasteful expendi-
lll re a l '()lt/(’(l.”

Gjtifl) IPIE‘W’O IINil

URING the past 10 years Birmingham has grown from a quiet

village community of 2,500 to a metropolitan suburb of
12,000. Realizing that this growth would continue at the same rapid
rate, a Planning Commission was appointed and they, after careful
investigations, employed Mr. Arthur C. Comey, a national authority on
city planning, to study the situation and needs in Birmingham with the
idea of preserving and protecting the natural beauty of this village and
making it a highly desirable residential community. This study has been
made and we hereby submit the report and maps prepared by Mr. Carney
to the Village Commission.

VILLAGE PLANNING COMMISSION.
H. N. Davock, Chairman

Chas. E. Lewis R. J. Coryell
J. A. Wendorph H. T. Ellerby
Mrs. S. F. Wilson J. W. Parry

"While no close estimates are, in the nature of the situation,
possible, even without counting on a much expanded apart-
ment house population at the center, ninety to, one hundred and
twenty thousand people will ezr'entually be living within the
present area of Birmingham. No planning can prevent this in-
flux however undesirable this may be deemed by the majority
of the citizens. Will this change occur without destroying the
present attractiveness of the Village?”

#.

REPORT OF THE VILLAGE PLANNING COM MISSION 3

OFFICES OF THE

VILLAGE PLANNING COMMISSION
BIRMINGHAM. MICHIGAN

July 26, 1929.
The Honorable Village Commission,

Birmingham, Michigan.

Gentlemen:

We are forwarding to you a copy of the report of Mr. Arthur C. Comey, expert
village planner employed by the Village Planning Commission on authority of the Vil-
lage Commission.

The Village Planning Commission, after various meetings with Mr. Comey and
careful study of his report, recommend at this time that action be taken in a reasonable
time on the following items embodied in Mr. Comey’s report:

lst. That land be acquired so that future east and west trafiic may be passed
through the center of the Village by a plan approximating that submitted by Mr. Comey.

That land be acquired to provide a future traflie way to parallel the new Grand
Trunk Railroad in a way approximating the plan submitted by Mr. Comey.

2nd. That land be acquired to provide for parks and play grounds under the guid-
ance of a definite plan approximating the suggestions as made in Mr. Comey’s maps.

3rd. That this Village Commission decide on definite village limits so that the
municipal service systems may be logically planned and developed, and the Village Plan-
ning Commission recommend the limits as outlined by Mr. Comey.

4th. In order to preserve and enhance the high standards of Birmingham as they
now exist, we recommend the preparation of a zoning ordinance for study and adoption.
and that Mr. Comey be employed to assist in drafting this ordinance.

5th. That the Village Commission draft and adopt Ordinances that will protect
the high standards of a residential community with specific respect to street tree plant-
ing, sign control and the architecture of commercial buildings approximating the recom-
mendations of Mr. Comey’s report.

Very truly yours,
VILLAGE PLANNING COMMISSION.

By MYRTLE E. CARSON,

MliC:BG Secretary.

4 REPORT OF THE VILLAGE PLANNING COMMISSION

ARTH U R C. CONT BY
CITY PLANNER
Fellow, American Society of Landscape Architects

'1'

HARVARD SQUARE, CAMBRIDGE, MAss.

Abbot Building

8 July, 1929

Village Planning Commission
Birmingham, Michigan

Gentlemen:

I beg to submit herewith a general village plan for Birmingham, comprising four
main features—(1) a regional plan showing the relation of Birmingham to the sur-
rounding district, especially in regard to major highways; (2) a general village plan,
emphasizing general location and widths of major streets, system of parks, and the
general location of playgrounds; (3) a general zoning plan, prepared. as part of the
village plan but presented separately; and (4) a report accompanying and explaining
briefly the plan and including a brief survey of all the principal aspects of village
planning.

Certain supplementary material has also been filed for your future use in the custody
of the Village Engineer, Mr. H. H. Corson. May I state that his cooperation, as well
as that of Mr. J. W. Parry, the Village Manager, and numerous other village and
township officials, has been most hearty and has contributed much to the progress of
the plan. I also received cordial assistance from Mr. Walter Blucher, Executive Secretary
of the Detroit City Plan Commission, Mr. John P. Hallihan, Chief Engineer of the
Detroit Rapid Transit Commission, Mr. T. Glenn Phillips and staff, in charge of
Pontiac city planning, and several county officials and others active in the region,
all of which helped to make my task a congenial one.

Respectfully submitted,

ARTHUR C. COMEY.

Contents o/lnd Illustrations

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Foreword - ............ 2
Letter of Transmittal- 3
Letter from Mr. Arthur C. Comey 4
Aerial View of Birmingham ____________ 6
Introduction ...... . ............................................................... 7
Municipal Building .................................................................................... 8
Baldwin Library .................................................................................... 9
Regional Aspects (Map)- -- ........................ 10
Regional Aspects ............................................................... 11
Regional Park System (Map) 12
General Plan for Birmingham ............................................................... 13
Highway System ................................................................ . ____________________ 13
View of Rouge Valley ............................................................. . ............... l4
Platting Control .................. .................................. 17
View of Pennsylvania Avenue, Washington, D. C 18
View of Lamp Post in Washington, D. C ............................................... 19
Transit.----_-------__---_-___-__-_-_ ,, _ 2.1
Diagram of Street Crossing , 21
Park System ............................ _ ...... . ................................... . .................. ....... 23_
View of Play Grounds ...... . ________________________ 24
Zoning ....... _ 25
Street Scene ............................................................................ - 26
Public Functions ................................... 27
Private Property 29

 

 

Aerial View of Birmingham

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REPORT OF THE VILLAGE PLANNING COMMISSION 7

A. INTRODUCTION

IRMINGHAM is an integral part of the Detroit-Pontiac Region. It is also
a more or less self-contained residential community. Neither of these two
aspects can be slighted: their harmonizing presents the greatest problem of
the plan of the village.

GROWTH

Birmingham is as yet a young community; its population of ten or twelve thousand
is but a tithe of that which it is likely to have within a few decades. Situated on a
super-highway connecting the great industrial metropolis of Detroit, eighteen miles
southeast, with the thriving new industrial center of Pontiac, seven miles northwest, it
is in the direct line to receive the full effect of the growth of the region as a whole.
If southeastern Michigan continues to grow at all in population, Birmingham seems
sure to develop. With even a portion of the continued growth that all expect, Birming-
ham should grow rapidly until substantially all its area is built upon.

While no close estimates are, in the nature of the situation, possible, even without
counting on a much expanded apartment house population at the center, ninety to one
hundred and twenty thousand people will eventually be living within the present area
of Birmingham.

No planning can prevent this influx, however undesirable it may be deemed by the
majority of the citizens. Will this change occur without destroying the present attrac-
tiveness of the village?

Further, can this growth be so utilized as to result in enhancing Birmingham’s high
standards? These are the major problems a village plan must solve.

I’LA N NING LIMITATIONS

Now is the time and the opportunity to so plan as to care adequately for the
future population. On the other hand, the planning that has already taken place, or
the growth that has occurred without planning, seriously interferes with any idealistic
scheme for the future city and, in fact, has, to a large degree, stamped the physical
arrangement of many of its main features, particularly its shopping centers and street
system. Practically the entire area within the present village limits and most of the
land just outside of the village is already platted. While many of these subdivisions are
as yet but little built upon, nearly all have the streets graded and surfaced, with scat-
tered houses already built and the majority of the lots sold to individual owners, thus
rendering practically impossible any radical departure from the existing plats. While
most of the earlier subdivisions were on a rigid grid-iron system, the more recent ones
have departed more or less from the rectangular blocks and straight streets, so that
much of the village is now laid out in a charming manner designed to give each block
and in lesser degree each lot some individuality of its own.

DESIRABLE VILLAGE LIMITS

The village government has today a certain amount of authority in regard to any
future plats within the village limits. If these limits are extended to include farm
land before plats are filed, this may in some cases be efl’eCtive in assuring thereafter

As Birmingham becomes more urban the need for parks and other public
recreation areas will develop rapidly. During the same period the opportunities

to establish such areas will practically disappear.

8 REPORT OF THE VILLAGE PLANNING COMMISSION

 

Birmingham bus just romp/eta] an ewe/lent (hit (enter, with administrative oflit‘rs,
ventral [)()ft(‘(’ and fire departments under one roof.

proper safeguarding of community interests. In Michigan, cities have control of plats
for three miles outside their limits. Thus if Birmingham became a city it could control
the platting of extensive areas that might at some future time be taken into its corporate
area. However, the indefinite expansion of Birmingham in area does not at present
appear particularly desirable. Either some regional or metropolitan form of government
satisfactory to all portions of the region should be found, or else its local government
areas should continue to comprise neighborhoods with considerable common interest.
Along the principal radial highway, \Woodward Avenue to the southeast and northwest,
this subject is now of merely academic interest, as at both ends of the present village
other municipalities already exist. East and west as well as northeast and southwest,
on the contrary, the village may advantageously be extended a half mile to a mile to
include areas likely-to be sufficiently similar to the general high type of suburban resi-
dential development that characterizes Birmingham's present tendencies. Such a possible
future village line is indicated on the Plan of Birmingham and Vicinity, utilizing natural
or artificial barriers where feasible to separate Birmingham physically from surrounding
municipalities.

NEEDED LEGISLATION

New plats are now made to conform in regard to widths for main highways and
(Q ' ,‘ - a
superhighways to the standards recently adopted by most of the townships In the
three counties embracing the region. Many mistakes were, however, made in the

 

REPORT OF THE VILLAGE PLANNING COMMISSION 9

   

'0, - . . I

Beyond a block destined for park treatment lies the new library.

past. Under present laws, to remedy these would often prove tedious and unduly . .
expensive. The United States Department of Commerce under Secretary Hoover’s
guidance in 1928 promulgated a model planning enabling act, which among other
things would authorize the establishment of an authoritative city or village plan, effec-
tively preventing buildings hereafter from being erected so as to block the future
widening of those main highways now seen to be too narrow for future needs. This
principle may also be extended to protect the locations of future park lands. It is
recommended that a similar enabling act be secured for Birmingham. Doubtless other
municipalities in Michigan can be brought to cooperate in securing this legislation.

-.. _- '—- .—-~——__._ .

The official village plan should also be an effective guide to the location of future l
municipal buildings, schools, and playgrounds. Further legislation along the lines of the
"Hoover” act would prevent hasty action overturning the plan. One part of the
general scheme, the zoning plan, may and should be adopted at an early date, so that
private activity may not be out of harmony with the needs of the community as a
whole. After considering certain inter-relations between Birmingham and the surround- l
ing region which vitally affect Birmingham itself, the plan for its future will be i
considered in some detail under the specific elements that go to make it up: highways .
and other means of circulation. park system, zoning, various public functions, and the ‘
proper development of private property.

The plan is not a call for great immediate expenditures, but rather a program 5
by which those expenditures which will be made in any event may be most effective ‘
and much wasteful expenditure avoided.

In the quality of the appearance of its street improvements Birmingham has
an opportunity to retain and enhance its well-deserved reputation as a suburb of
distinction. High grade pavements not too wide for the traffic that will use
them, well constructed curbs with broad curves at intersections, ample park l
strips for trees and in some cases sfirubbery, uniformly placed concrete walks, . :
again of a width that is needed for t e pedestrian travel, all go to stamp a com- 2 l
munity as a desirable one in which to live.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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Regional Aspects—In order to plan intelligently for [be village itself some attention must first be

given to its relation to the region wit/gin 'w/Jiel) It lies. Only after efleetii'ely meeting the problems of

regional origin that occur wit/yin t/Je Il'illage limits ran a sound and enduring solution to the local village
problems t/aemselt'es be found

 

 

REPORT OF THE VILLAGE PLANNING COMMISSION II

B. REGIONAL ASPECTS

DETROIT—PONTIAC REGIONAL PLANS

In order to plan intelligently for the village itself some attention must first be given
to its relation to the region within which it lies. Only after effectively meeting the
problems of regional origin that occur within the village limits can a sound and enduring
solution to the local village problems themselves be found. Working from the larger
area to the smaller the foundations of the plan may be well laid. Much excellent
planning work has already been done in the region. As a result of early efforts of the
Detroit City Plan Commission, including a report on Suburban Planning by the present
author in 1915, and later amplified and carried over a larger area by the Detroit Rapid
Transit Commission, a Detroit regional highway plan has been promulgated, relating
Birmingham on the edge of this region to Detroit. The Detroit City Plan Commission
has also prepared a preliminary parkway plan covering an even larger area, but this
has never been followed up to any degree. Quite recently the Pontiac City Plan Com-
mission has had a Pontiac regional plan prepared as a part of its city planning studies,
again relating Birmingham, which appears on the edge of this smaller region, to
Pontiac. Hitherto, however, no plan has expressed the relationships of the portions of
the region of which Birmingham is the approximate center to one another. A pre-
liminary skeleton of such a regional plan is presented herewith as a necessary basis
for Birmingham’s village plan. It would be very desirable if a regional plan conference
of all municipalities, townships and counties interested could work out such a plan
more completely, or, better yet, a larger group develop a comprehensive plan for all
southeastern Michigan.

SUPERHIGHWAYS

Township authorities have in most instances adopted the Detroit superhighway
plan and now require new plats to dedicate the full width of 204 feet thereon indicated
for superhighways. The plan herewith presented extends this superhighway system and
articulates it with the Pontiac regional plan. Between the two regions it indicates such
additional superhighways as are needed to afford a complete system throughout the
region. These will be discussed more in detail under the chapter on the highway system.

INTERVENING HIGHWAYS

The same authorities incorporated as part of their plan and platting requirement
the proposition that in general all section-line roads should be 120 feet wide, thus fitting
in between the supherhighways with a rectangular net of wide thoroughfares one mile
apart. We see no reason for departing from this standard except in an occasional in-
stance where local conditions make it inappropriate. They likewise established the
width for highways on quarter-section lines at 86 feet. These we have also incorporated
in the plan wherever a fairly close ultimate building development is anticipated. On the

west side of the village, however, the very open development on large lots makes some
of these Intermediate thoroughfares unnecessary.

East and west as well as northeast and southwest, on the contrary, the
village may advantageously be extended a half mile to a mile to include areas
likely to be sufficiently similar to the general high type of suburban residential

development that characterizes Birmingham’s present tendencies.

Such a pos-

sible future village line is indicated on the Plan of Birmingham and Vicinity,
utilizing natural or artificial barriers where feasible to separate Birmingham

physically from surrounding municipalities.

J‘c- __._.—._-

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12 REPORT OF THE VILLAGE PLANNING COMMISSION

REGIONAL PARK SYSTEM

In the matter of parks, the village system is so planned that it may later become
part of a comprehensive park system for the region. Until such time as the latter is
developed the village parks will continue to serve local needs. There is a law in Michigan
under which inter-county park commissions may operate. It is recommended that the
possibilities of action by such a commission in the region about Birmingham be
studied. Several of the other elements of the comprehensive village plan having re-
gional aspects will be alluded to as each is taken up in subsequent chapters.

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Plan of Birmingham and V icim't )‘—T/J€ shaded areas indicate proposed future par/aways some of which will
form artificial barriers to separate Birmingham from surrounding municipalities.

 

 

REPORT OF THE VILLAGE PLANNING COLIMISSION 13

C. GENERAL PLAN

For convenience, the village plan may be divided into component parts according
to function, but in practice no complete separation can ever be made. The inter-relation
of these parts is the essence of the plan itself. In the order of their importance, there
arise problems of circulation by highway and otherwise, the park system, zoning, public
functions, and the use of private property.

I. Circulation

Means of movement have been likened to the arterial system of the body, giving it
its life blood. Circulation of persons and goods may be by highway—by far the most
important part today—by rail, by water where available, or by air.

THE HIGHWAY SYSTEM

INCREASE OF SUPERHIGHWAY EFFECTIVENESS

To secure efficiency it is essential to classify the highways of a community ac-
cording to the type and volume of service. The greater Detroit superhighway system
calls for a network of great roads about three miles apart and two hundred and four
feet wide. These are at present being constructed with two forty-foot pavements at
grade and a forty-foot reserve strip in the center. Local streets enter these through
traffic pavements wherever platted, and in built-up sections there are direct crossings
of the central reservation at frequent intervals, with as a rule a stop and go control
system of traffic lights. As a relatively inexpensive initial development these methods
are reasonably effective. By synchronizing the lights progressively, speed may be main-
tained, even though traffic capacity is reduced, and the number of vehicles turning on
or off from side streets or parked along the edge of the main thoroughfare is as yet so
small as to constitute little hindrance to through traffic. The ultimate ideal may be a
single or even a pair of roadways separated entirely from other roads in grade, but this
will be so extremely expensive that some intermediate design should be found which
will permit through traffic to flow practically uninterruptedly, even after the region is
fully built up. As this problem is common to all superhighways in the district, a
solution acceptable to all authorities should be found before being put into effect in
Birmingham or elsewhere.

ALTERNATE ROUTES

The superhighway with heaviest traffic in the vicinity of Birmingham will doubt-
less continue to be Woodward Avenue. Most fortunately, the state is now planning
to complete this 204 foot route (1) by relocating the Grand Trunk Railway about
one mile to the east and merging its present right-of-way with Woodward Avenue
where it is adjacent to it, and (2) by widening this right-of-way as it by-passes the
center of the village. This route may then be made capable of handling an enormous
traffic. In addition, however, means for through traffic not destined for local points
along its course to completely by-pass the Woodward Superhighway will be very de-

On the east no topographic features serve as a basis for large parks,
except several scattered groves of fine trees. On the other hand, this district
will stand in even greater need of such recreation facilities than that along the
River Rouge, as a more intensive residential development is already beginning

and likely to continue, particularly if the Grand Trunk rapid transit is
inaugurated.

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REPORT OF THE VILLAGE PLANNING COMMISSION 15

sirable, thus not only relieving Woodward Avenue but also preventing congestion on
those routes that feed into Woodward Avenue. On the southwest the new Northwestern
Superhighway is too far away to be of much benefit, but nearer to Birmingham Sunset
Superhighway has recently been authorized from the Eight-Mile Road to the Eleven-
Mile Road. It is very desirable from Birmingham’s point of view that this should be
extended as far as W. Maple Road, for it would then constitute, in conjunction with
Telegraph Road, now opened 150 feet wide, a complete by-pass on the west of Birming-
ham. Similarly on the northeast the Northeastern Superhighway project from Stephen-
son Superhighway to the outskirts of Pontiac would form another great by-pass.

EAST-WEST SUPERHIGHWAYS

Running east and west, Eleven-Mile Road, four miles to the south of the village
center, is already adopted as a superhighway and Square Lake Road, four miles to the
north, is definitely projected as a Similar route under the Pontiac plan. The logical
location for a superhighway between these is Maple Road. A diversion to any other
through route involves complications that would be likely to defeat the purpose in
view and would harm the village more than help it. Maple Road should be 200 feet
wide where feasible and at least 150 feet wide throughout, except in the village center
where present building interferes with widening. Here a new route following Merrill
Street and extending it through to rejoin Maple Road near Elm Street will be a less
expensive and more efficient solution. Ultimately a broad roadway should pass under
Southfield Avenue and over both Woodward Avenue and the new Grand Trunk Super-
highway. To compensate for the land taken from the Hill School lot, Martin Street
may be turned over to the School District between Chester Street and Southfield
Avenue. Opposite the village center the total width of the thoroughfare may be reduced
without reducing its capacity, and also between Woodward Avenue and the Grand
Trunk, where a two-level street will give full capacity for through traffic.

NORTH-SOUTH SUPERHIGHWAYS

Running from south to north are Telegraph Road on the west and Stephenson
Superhighway on the east. Between them lies Southfield Superhighway, a very im-
portant by-pass route, though the completion of Telegraph Road will relieve it some-
what for a time. Its present northern terminus at Lincoln Avenue presents the village
with a serious prospCCtive traffic problem. It is recommended that the northbound
commercial traffic be routed by Southfield Avenue, widened to 86 feet, and Merrill
Street as extended to W’oodward Avenue or the Grand Trunk Superhighway, and south-
bound by way of Maple Road at its present width into Southfield Avenue, and that
eventually for passenger cars a park road be provided in the Rouge Valley park, with a
broad connection from Southfield Superhighway at Lincoln Avenue. This will by-pass
the village center and form an attractive route through the village, where automobiles
will be adequately provided for, and will not destroy the charm of the village land-
scape. Similar park roads along ”Muddy River” in the Fens in Boston and Brookline,
along small Streams in Westchester County, New York, and elsewhere have proven the
value of this type of improvement in enhancing both aesthetic and financial values. To
the north the Pontiac plan calls for developing Opdyke Road as a superhighway, one
branch by-passing Pontiac, the other swinging over to the Dodge Road at a point
several miles north. Taken in conjunction with the Northeastern Superhighway, this
constitutes a sufficient traffic net and obviates any necessity of deveIOping Adams Ave-
nue as a superhighway.

No time should be lost in putting zoning into effect, now that its general
scheme has been related to the comprehensive village plan. On the basis of the
present or a similar tentative plan an ordinance should be drawn up and hear-
ings held prior to the adoption of a “final" plan and ordinance. Such plan itself,
it should be remembered, is in no sense crystallized, but by the state law may be
changed after suitable procedure to meet new requirements.

I, ~r‘--—e__-.

I6 REPORT OF THE VILLAGE PLANNING COMI‘VIISSION

SECTIONLINE ROADS

Between the superhighways practically every sectionline road should be 120 feet
wide. In the vicinity of Birmingham, running east and west these will be, on the south,
Fourteen-Mile or Clawson Road and, on the north, Big Beaver Road, which should
be extended through to connect with Quarton Road, the latter also extended northwest
and west at its westerly end to regain and then follow the section-line. Running north
and south, on the east the 120 foot highways will be Crooks Road, Coolidge Highway,
Berwick-Adams Avenue connected via Cummings Street, and, on the west, Evergreen
Road as far north as Maple Road and Lasher Road. One other important 120 foot con—
necting and distributing avenue should be opened by widening Kensington Avenue and
extending it along the New Grand Trunk Railway through from the southern edge of
Pontiac to Crooks Road in Royal Oak. With the development sure to come along this
new railroad route, especially if rapid transit service is provided, this possibility of secur-
ing direct communication among neighborhoods on its east side without crossing and re-
crossing should not be lost.

QUARTERSECTION ROADS

Within the village, 86 foot east and west qiiartcrsection roads should be established
on Lincoln Avenue and Derby Road. The latter should be extended via Mohegan Ave—
nue to the Grand Trunk Superhighway. Oak Street extended should be 86 feet wide
from the superhighway to Woodward Avenue, but owing to the open type of develop-
ment need be made only 66 feet wide west from Woodward Avenue. North and south
the 86-foot roads will be Eton Road and Pierce Street. Chesterfield Avenue Should be
uniformly 80 feet wide north of Maple Road and at least 66 feet wide from Maple Road
to Lincoln Avenue. Cranbrook Road should be 86 feet wide in extension of the 120-
foot Evergreen Road.

LOCAL STREETS

While little change can be made in existing system of local streets, near the village
center several minor Streets should be so extended as to facilitate local circulation of
traffic on the west side of Woodward Avenue. Ann Street should be extended 60 feet
wide north to the extended Merrill Street; Henrietta Street should be extended 60 feet
wide to Willets Street; and Bates Street should be extended at least 50 feet wide by a
curving road along the proposed river park to W’oodward Avenue.

ALLEYS

Wherever detached houses are to be the standard type, alleys are probably not worth
their expense nor the usual attendant evils of unkemptness. Rear lot-line easements
will meet sufficiently the requirements. In apartment house areas alleys may or may
not be incorporated according to the type of service provided within the block. In
business blocks, however, the alley is more likely to prove its worth for service access
and should be included in the plats for such areas. The subsequent provision of business
alleys in plats where none exist is a matter of determination of relative cost and benefit
in each case.

PASSENGER DRIVES
In addition to the principal system of highways serving all types of traffic—passen-
ger and commercial—such a region as this will find it .ulvantageous to develop a partial

A further step should be taken in a progressive community such as

Birmingham.

Whenever a building is proposed to be erected unsuited to its

site it will be worth while to sit down with the designer and owner and suggest
how to improve the design. Elsewhere this is successfully done by committees
of architects, by fine arts commissions, or by the planning commissions them-

selves.

REPORT OF THE VILLAGE PLANNING COMNIISSION 17

secondary system of passenger drives of more attractive type in conjunction with the
park system, utilizing natural topographic features where they exist. Provision should
be made for a continuous drive through park lands along the entire River Rouge north
from the present large park within Detroit city limits. In connection with a series of
border parks on the east Side of Birmingham a less important but nevertheless valuable
circuit drive may be established from the River Rouge on the north to the bounds of
Clover Hill Cemetery at Clawson'Road on the southeast, thence by Beechwood Avenue
and the "Parkway" across Woodward Avenue and along Beverly Road, all much
widened, to Dodge State Park No. 6. A short parkway connection will then bring this
drive back to River Rouge, making a complete circuit. Other aspects of these park
drives will be considered in the section devoted to the park system.

PLATTING CONTROL

Reference has already been made to the desirability of exercising greater control
over plats despite the fact that the "horse is stolen"——nearly all the land within the
large limits being already platted. Plats for the remaining farm land in the vicinity
should require approval by the Village Plan Commission before being recorded.
Standards should be adopted by the Plan Commission as a guide for such work.
Fortunately, the Detroit City Plan Commission has already adopted a code of
principles and Standards eminently suited for this locality, so that, using this as a prece-
dent, little or no change need be made before a similar adoption for Birmingham.

STREET TREATMENT

In the quality of the appearance of its street improvements Birmingham has
an opportunity to retain and enhance its well—deserved reputation as a suburb of
distinction. High grade pavements not too wide for the traffic that will use them,
well constructed curbs and broad curves at intersections, ample park Strips for
trees and in some cases shrubbery, uniformly placed concrete walks, again of a width
that is needed for the pedestrian travel, all go to Stamp a community as a desir-
able one in which to live.

ROADWAY TYPES

For the main highway system the widths of pavement at first constructed will be
narrower than those ultimately needed. Curbs, trees, poles, etc., should be placed,
however, so far as possible, in their permanent position, and the remaining width grassed
over until needed. Each superhighway is a problem in itself. Woodward Superhighway
will be constructed by the State of Michigan. Its cross-section in Birmingham should
doubtless be uniform with that elsewhere. Whether the present double roadway type
is the best adapted to heavy traffic through built-up regions is a moot point. It may
prove that a system of virtually four roadways—two one'pvay express ways with one-
way local roadways on the Sides—will pass a larger voluine of traffic. Further study
should be given to this by all authorities concerned, local and regional.

The lZO-foot highways should probably be as a rule ultimately of the two one-way
roadways type, local traffic mingling with the stream of through traffic, weaving across
it, and turning in the central reserved area into the opposite stream of traffic in order to

The “superhighways” themselves, and particularly the Woodward Super-
highway, soon to be completed through Birmingham, should be planted with
some larger species of tree, such as the American Elm, so that the present hide-
ous perspective of lines of telegraph poles may be replaced with great vistas of
massive foliage.

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18 REPORT OF THE VILLAGE PLANNING COMMISSION

reach a point on the opposite side of the highway. Here again, however, more com-
plete study of the great region is necessary for a positive determination. The 86-foot
intermediate thoroughfares will be developed with a single wide roadway, 40 or even 60
feet across according to the traffic actually using each particular portion. On 66-foot
streets when carrying considerably more than local traffic there will be needed a 40-foot
pavement. Purely local streets, on the other hand, need never be constructed with
more than a 32-foot pavement, and short stretches may be but 24 feet wide. Side-
walks on local Streets need be but 4% to 5 feet wide, leaving ample space, preferably 6
feet or more, for tree planting Strips.

TREE PLANTING

Trees, signs, lights and wires are all capable of being handled in a way to increase
the beauty and interest of the village. Hitherto only two or three of the species of trees
that will grow well in this latitude have been planted. While the rule of planting but
one species on a street is an excellent one a much greater variety of trees can be used
to advantage on different Streets. The Detroit City Plan Commission has published an
authoritative document (now on file with the Birmingham Planning Commission) set-
ting forth succinctly the opportunities in this direction, listing a wide range of species,
some of them suited to certain special types of streets only, and also outlining the
best schemes of spacing as well as methods of growing trees for street use. In the near
future it will be desirable to replace the present part-time forester with one on full
time within the Park Department and having charge of the trees both in the parks and
on the streets.

 

 

 

 

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The irregular line of upper stories will be masked and yet the business entrances and show
windows will not be shut of. In this way Birmingham may regain its distinctive a ppear-
ance of an attractive suburban community. (Pennsylvania Avenue, Washington, D. C.)

--

‘—

~—‘

REPORT OF THE VILLAGE PLANNING COMMISSION I9

Woodward Avenue running through the heart of the village presents a special
problem and a special opportunity in the use of street trees. The one thing of prime
value that attracts people to Birmingham and makes them prefer to stay is the getting
away from the intensive city conditions of Detroit. Yet Woodward Avenue today, with
its wide pavement adorned only by "white-way” light poles and flanked by a heterogene-
ous collection of stores and other business buildings, some good, some bad in facade, but
none harmonizing with another—this Woodward Avenue is but a small-town copy of
Woodward Avenue in down-town Detroit minus the dignity of the great buildings
of the latter Street.

Birmingham should indicate on its main street that it is distinctly an open com-
munity with tree-lined streets. The most appropriate treatment for such a business
street, however, will not be spreading or dense shade but trees used more formally in
the nature of a high hedge along the curb, as is common in many European cities and
occasionally seen in this country. Only a few species are really well adapted to such
treatment, notably the Horse Chestnut, the Plane, certain Lindens, certain types of
Elms and the Hornbeam. Some of these do not do well under such artificial conditions
in the Detroit region. While the Hornbeam grows slowly, it may prove to be the best
in the end, or experiment may demonstrate that some other well-known species may be
adapted to this type of use. Such trees, spaced rather close together, will soon be high
enough to permit clear trunks for the first ten or fifteen feet, thus in no way impeding
the view or access to the first floor business frontage. They will also be kept (by clip-
ping, etc.) well away from the buildings themselves and should not be allowed to spread
over the center of the street. Eventually the effect will be of a great vista between
high walls of foliage, with the store windows Showing between the trunks below. The
inevitably inconsequential irregular line of upper
stories willbe masked and yet the business entrances
and show windows will not be shut off. In this .
way Birmingham may regain its distinctive ap—
pearance of an attractive suburban community.

The "superhighways" themselves, and particul-
arly the Woodward Superhighway. soon to be com-
pleted through Birmingham, should be planted with
some larger species,“ such as the American Elm, so
that the present hideous perspectives of lines of tele-
graph poles may be replaced with great vistas of
massive foliage.

ORNAMENTAL FIXTURES

Other Street furnishings should receive equal at-
tentin. Street signs, lighting poles and fixtures are
already to a large degree standardized. Special
types will doubtless, be needed in certain locations,
as for instance a few years after the new trees are
planted on Woodward Avenue, when a light held . .
farther out from the curb than the present ones Zr?“ "3’” “"‘1. “m" m’ “u. ”Nb!" of

. . emg handled m a way to increase thi
Will be more effective. Ornamental posts should beauty and imam, of ”u, WNW,- (Wis-
gradually be installed throughout the village. [aria growing 0,, lamppost, Washington,

D. C.)

 

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The United States Department of Commerce under Secretary Hoover’s
guidance in 1928 promulgated a model planning enabling act, which among
other things would authorize the establishment of an authoritative city or vil-
lage plan, effectively preventing buildings hereafter from being erected so as to
block the future widening of those main highways now seen to be too narrow
for future needs. This principle may also be extended to protect the locations
of future park land.

‘ ._.__..

'4

20 REPORT OF THE VILLAGE PLANNING COMIVHSSION

WIRES

Overhead wires are an unmitigated eye-sore. They should be placed underground
as fast as financial circumstances permit, particularly where concentrated on main
streets. Elsewhere the present Standard of a pole line on an easement along the rear
lot line Should be insisted upon if at all possible.

BILLBOARDS AND STREET SIGNS

Advertising signs have, of course, value where placed on premises to which they
relate. Billboards advertising things not carried on the same premises have less reason
for existence. They should certainly be excluded from all residential areas and placed
under reasonable control in business areas. Birmingham cannot afford to lose its attrac-
tive suburban character through the occupying of the landscape by numerous large
advertising signs, whether billboards or not. All signs should be limited in height
and in length. If any signs are allowed over the street they should not in any case
be permitted to project more than two feet. This will permit all forms of signs flat
against the building otherwise acceptable, and also permit vertical signs standing out
at right angles to the building. The passer—by can then see a series of such signs
along the Street, none obscuring the next, and this may be considered an added conven-
ience and attraction, particularly if all projecting signs are required to be electrically
lighted. Such signs as are frequently found on business streets projecting five or even ten
feet out over the sidewalk soon defeat their own end by obscuring one another, besides
destroying whatever beauty the business facade may have and constituting a potential
danger to pedestrians. The placing of signs over the sidewalk is a revocable right which
a municipality may at any time cancel.

i vb.“

 

The present hideous perspectives of lines of telegraph poles may be replaced with great
vistas of massive foliage

REPORT OF THE VILLAGE PLANNING COMMISSION 21

Transit

AUTOMOBILE BUSES

While today the private automobile is the largest factor in transportation in
the Birmingham region, as population densities increase some one or more forms
of mass transportation will become more and more important. Today bus and
electric street car travel is practically limited to Woodward Avenue. Electric street cars
do not seem likely to regain their former place in such suburban regions as this and may
safely be disregarded, except insofar as they approximate rapid transit service. Buses
will doubtless increase a great deal in numbers, and eventually in number of routes
operating, but, as they are free-moving vehicles, from the point of view of city planning
they constitute simply one of the many elements that go to make up the mixed vehicular
traffic on the thoroughfares and do not require separate provision in the plan. The
precise routing of future lateral feeder bus lines cannot now be foreseen, but they will
as a rule naturally run along the major highways, which are designed on the general plan
to be of ample width to include such traffic. The principal local bus route will
remain along Woodward Avenue, with long-distance buses operating by the new super-
highway along the Grand Trunk Railway.

RAPID TRANSIT

Likewise, rapid transit by rail, when the passenger traffic becomes dense enough
to support it, will be chiefly along the Woodward Superhighway, with possible routes
in the distant future along certain of the other superhighways. The great width of
these has been designed with a view to providing for such rapid transit on the central
reserved strip. On the other hand, large cities elsewhere are providing rapid transit
along the existing steam railroad rights-of-way. Only one such possibility occurs with-
in the Birmingham region, but, especially in view of the fact that proposals are again
being made by the railroad company, the possibility of electric rapid transit along the

 

The 120-foot highways should be of the two one-way roadways type. Local traflii'

m-ingles with the stream of through traflic, weaving across it, and turns in the central

reserved area into the opposite stream of traflic in order to reach a point on the opposite
side of the highway.

-_‘—.——__——.—. __

.-.A—lur—U-‘r~*‘——_-_g .

22 REPORT OF THE VILLAGE PLANNING COMMISSION

Grand Trunk Railway between Detroit and Pontiac Should be kept in view. W’ith
one or more stations within the Birmingham village limits this would revolutionize com—
muting conditions and permit a stream of population to pour into Birmingham now held
in Detroit by the length of time necessary to reach the down-town office or store.
Stations on this route are recommended to be at Clawson Road or Coolidge Highway,
East Maple Road. and Big Beaver Road or Adams Avenue. If this rapid transit on the
Grand Trunk Railway comes before conditions for fast trolley service along Woodward
Avenue are materially improved—as for example by a subway from down-town Detroit
out to the Six-Mile Road—it is likely to shift some of the emphasis of the growth of
Birmingham for the time being at least to the east side.

THROUGH RAILROADS

With the removal of the Grand Trunk Railway to its new right-of-way modern
freight yards may be developed near E. Maple ROad, with space for expansion as the
region grows in population. No Other facilities for car-load rail freight appear likely
ever to be provided within the village. Trucking will, of course, bring much of the
freight destined for the village, both from other railroads and from the nearest water
terminals in Detroit.

AIR TRANSPORT

With airplanes increasing in number and mileage flown, attention should be
paid to their convenient use by peOple residing or doing business in Birmingham.
At present outside of sight-seeing and similar recreational uses their greatest value
seems likely to be in long-distance trips. It is, therefore, not essential to have
terminals distributed at close intervals throughout the region. These at present involve
large areas of land and are an unmitigated nuisance to residential areas nearby. Advances
in the art may at any time reduce the areas needed for landing fields, and much of the
noise may be obviated. However, that caused by the beat of the propellors on the air
may not be readily susceptible of elimination. Therefore, for Birmingham’s best interest
an airport should be within a few miles but not close in to its center. Moreover, a
study of the southeastern Michigan region as a whole shows four airports within twelve
to sixteen miles of Birmingham: to the south, southeast, east and northwest, respectively.
In the future a single new airport located just east of Birmingham, in the general loca-
tion recently proposed for one, would be almost midway between these four and bring
every point in the region within seven or eight miles of a port. This is not too great
a distance for local automobile travel to and from the port in surburban communities of
this type. Until the time when such a new airport can be supported presumably as a com-
mon venture by several municipalities, the new Pontiac field will serve Birmingham’s local
needs. For regular long-distance service air travel Detroit’s fields are not unduly far
away. Meanwhile it would appear wise to set aside the land for a local landing field
before it is all subdivided. (Note: A landing Field was dedicated in July, 1929, at approxi-
mately the above recommended location.)

"‘I f‘. >—..—.._

n—JHTI

Birmingham cannot afford to lose its attractive suburban character through
the occupying of the landscape by numerous large advertising signs, whether
billboards or not.

REPORT OF THE VILLAGE PLANNING COMMISSION 23

II. Park System

As Birmingham becomes more urban the need for parks and other public recreation
areas will develop rapidly. During the same period the opportunities to establish such
areas will practically disappear. It is therefore essential that Birmingham secure most of
its park lands well in advance of building, which means at a very early date indeed,
and that wherever acquisition is at the moment impracticable some means be found of
preventing buildings and similar expensive improvements within the limits of future
parks.

Recreation areas may for convenience be classified under four main types: state
parks, landscape parks, local parks, and playgrounds.

STATE PARKS

No large wilderness areas—true state parks—can readily be located within the
actual bounds of the Birmingham region, but should be provided by the state not far
away and within easy access for the greater Detroit population.

ROUGE VALLEY PARKWAY

On the other hand, Birmingham has within its limits the first real landscape
unit other than the flat plain that one meets in coming out from Detroit—the valley of
the River Rouge, nearly 60 feet deep in spots, and now for the most part a delightful
tangle of natural vegetation. This valley should be preserved and enhanced in attrac-
tiveness by being made a park for its entire length north of the present River Rouge
Park in Detroit. Takings should be wide enough to have property on the upland as a
rule facing the park across a boundary street, and there should be provision for a future
scenic park drive which will form a really attractive entrance to Birmingham worthy
to herald its charming character, and in itself perhaps the most beautiful feature of the
village.

A branch of this park should connect with Quarton Lake and the stream to its
north, perhaps only reserving a future park right here until such time as a more intensive
development of dwellings supplants the present expensive estates, particularly in Bloom-
field Hills. In this way the fine tree grOWth would be preserved without interfering
with the present use of the land. Ultimately this park strip would meet near Long
Lake Road the belt parkway designed as a part of the Pontiac plan.

EASTERN INTER-MUNICIPAL PARK

On the east no topographic features serve as a basis for large parks, except several
scattered groves of fine trees. On the other hand, this district will stand in even
greater need of such recreation facilities than that along the River Rouge, as a more
intensive residential development is already beginning and likely to continue, particular-
ly if the Grand Trunk rapid transit is inaugurated. However, the way is at present
opened for acquiring a large tract, or a continuous series of tracts, which might be
managed as a joint undertaking with other municipalities, this park serving as a separat-
ing buffer between them and Birmingham. Where gravel is at present being excavated this
might be allowed to continue for a considerable period, as the holes thus produced in
the plain will make interesting lakes with sloping shores in an otherwise flat country.
The important thing is to get these tracts set aside before platting and sales render it

Jfi—a—.._.—E

It is therefore essential that Birmingham secure most of its park lands well
in advance of building, which means at a very early date indeed, and that wher-
ever acquistion is at the moment impracticable some means he found of prevent-
ingkbuildings and similar expensive improvement within the limits of future
par s.

24 REPORT OF THE VILLAGE PLANNING COMMISSION

difficult and expensive to acquire title. If this is not done the eastern part of Birming-
ham is likely to become as monotonous an unbroken waste of buildings as much of the
city of Detroit already is. A possible parkway connection between this eastern park and
the River Rouge both north and south of the village has already been mentioned.

GOLF COURSES

One element in the program for large parks deserves special mention. The numer-
our private golf courses of the region afford extensive areas of attractive open landscape
besides providing recreation to a portion of the community. History elsewhere has
proven, however, that they are apt to be temporary in duration and are likely to be cut
up for house lots just when their open space value becames greatest. Every golf ground
now existing in the Birmingham Region should become a permanent part of the park
system. This may probably be accomplished by an agreement remitting taxes while they
are under private management or by taking an easement against subdividing or building.

LOCAL PARKS

Within the village there is need of providing additional local parks particularly
in those sections where lots are small. Suitable locations for these are now available to
serve every section not sufficiently near any of the proposed large parks. Unless they
are taken quickly these sites, or any sites at all close by, are likely to be lost.

PLAYGROUNDS

Organized recreation requires playgrounds. The precise locations of these can-
not be determined in advance of acquisition, as they usually have to be carved out of
the subdivided areas suited for building. Fortunately the problem of school and play-

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As outlying sections dPl’l’lop, new schools and playgrounds—wills an area of five to ten
acres each—must be located centrally to each district to be served.

REPORT OI" THE VILLAGE PLANNING CONIIMISSION 25

ground is simplified in Birmingham by being under a single School District. All except
one of the newer schools have sufficient space for playground adjoining, with corre-
sponding effectiveness in service. The Adams School playground is small and separated
from the school by a fairly important street, which is now closed to traffic when the
ground is in use. A much larger site can at present be Obtained to the northeast and
might be connected with the school by pedestrian subways beneath Adams Avenue.
One of these playgrounds, or a special site, should be large enough to accommodate a
high school athletic field.

As outlying sections develop, new schools and playgrounds—with an area of five
to ten acres each—must be located centrally to each district to be served. Elsewhere the
tendency is developing to consider section and quarter-section highways as the boundaries
of neighborhoods, with a school near the center of each quarter-section. \Vhether
this distribution will meet school requirements in Birmingham depends somewhat on
the type of school plant. It would make an ideal system of distribution for playgrounds.
Seven such playground sites are proposed and the general locations indicated on the
plan.

III. Zoning 5“
DESIRABILI'I‘Y

Birmingham is a residential community. To keep it so, zoning is essential. It is a
high class residential community. Zoning is even more vitally needed for it to retain and
enhance this superior quality. Industry in general has no place within the village limits.
If an industrial belt is eventually due to arise joining the industrial areas of Detroit
with those of Pontiac, it should be entirely to the east of Birmingham.

INDUSTRIAL NEEDS

On the Other hand, small local industries, sgrving chiefly Birmingham’s needs itself,
must be given space, as in every community of similar Size. A commerical district along
the new Grand Trunk Railway and a smaller area near the present Grand Trunk south
of E. Maple Road will provide ample room for all such industries, warehousing, coal,
lumber and building material storage, and the like. Any industry employing more
than, say, five Operatives or using more than a small specified number of horsepower
should be required by the zoning ordinance to seek from the Board of Review a special
permit after a public hearing relative to its effect on the welfare of the village.

BUSINESS NEEDS

All business should be highly localized, with the principal area along Woodward
Avenue and the new Grand Trunk Superhighway, and including enough side streets to
make ample provision for the needs for a number of years ahead. Outside this main
business center only such small local business centers should be provided as may, with
the expected lot deveIOpment, stand a fair chance of sufficient patronage to be successful.
Six such centers are proposed on the tentative zoning plan submitted.

Should intensive development later indicate the feasibility and desirability of. addi-
tional local business areas they should be created at that future time.

°N()'I'E: A preliminary zoningr study map is on file in the Municipal Hull and may be consulted
at. any time.

—/\
One part of the general scheme, the zoning plan, may and should be
adopted at an early date, so that private activity may not be out of harmony
with the needs of the community as a whole.

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26 REPORT OF THE VILLAGE PLANNING COMMISSION

RESIDENTIAL NEEDS

The remainder of the village should be permanently residential. When a substantial
portion of all the building lots in the village are taken up there will be a demand for
a considerable number of apartments. Ample open spaces around such suburban apart-
ments as these should be made the rule. They should be localized chiefly near the
village center, where high grade apartments may be successful. In most outlying sec-
tions they should be permitted in local business areas only, where an attractive type of
rambling terrace with a few stores will be a distinct addition to the neighborhood.

Two FAMILY APARTMENTS

In Birmingham two-family or duplex houses need not be specially provided for.
New two-family houses have no place in the extensive recent subdivisonis nor in the
earlier cottage developments, except perhaps in the same area as is proposed to be thrown
open to apartments of all types. The conversion of single-family dwelling to accommo- -.
date two-families should likewise be restricted to these apartment house areas.

OPEN DEVELOPMENT PRESERVATION

The major portion of the village will be for single-family detached dwellings and
the usual accompanying buildings such as churches and schools. Fairly large yards on all
sides of each building and a somewhat generous minimum lot area and lot width may be
insisted upon; but for much of the village private restrictions will still be very important
to establish and maintain the degree of Openness of development which recent plats

it

 

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......

Mlle/J of {be Village is new ldltl out in a r/Jarmiug manner designer! to giu' MIC/J blur/c
and in lesser degree ear/.7 lot some individuality of its own.

REPORT OF THE VILLAGE PLANNING CONIINIISSION 27

anticipate. It is recommended that Birmingham should not at first try any radical de-
parture in zoning practice from those already proven effective and legal elsewhere.
At some future time, after zoning is longer established in Michigan, one or more munic-
ipalities including perhaps Detroit itself, provided it is then zoned, may well test
out the extent to which zoning may go in replacing and backing gup private restrictions
with the police power so— —called of the community.

IMMEDIATE NEED

No time Should be lost in putting zoning into effect, now that its general scheme
has been related to the comprehensive village plan. On the basis of the present or a
Similar tentative plan an ordinance should be drawn up and hearings held prior to the
adoption of a "final" plan and ordinance. Such plan itself, it should be remembered, is
in no sense crystallized, but by the state law may be changed after suitable procedure
to meet new requirements.

IV. Public Functions

CIVIC CENTER

Birmingham has just completed an excellent civic center, with administrative
offices, central police and fire departments under one roof. Beyond a block destined for
park treatment lies the new library and the central High School. The proposed devel-
opment of Merrill Street for a cross-town thoroughfare, as outlined elsewhere in this
report, will materially enhance the accessibility and prominence of this group. Like-
wise the closing of Martin Street west of Chester Street and the rounding out of the
school tract by acquiring all land west to Southfield Avenue as a part of this improve-
ment will greatly increase the effCCtive area and serviceability of this site.

The present attractiveness and dignity of the new village center may be materially
enhanced if future private building on each side facing it is in keeping. While no
absolute control may be practical much may be. done in the way of assistance and
persuasion in getting harmonious buildings as they are built from time to time. More-
over, it is the natural location for various quasi-public edifices, such as churches, clubs
and other community buildings, which may more readily be brought into harmony with
the municipal buildings than might be the case with a row of small stores for example.
Ultimately the village itself will require more floor space for its offices, but it can
scarcely be expected to acquire any more land now for such relatively remote needs.

ADDITIONAL CIVIC BUILDINGS

In addition to the civic center certain public administrative buildings will need to
be placed so as to meet more local needs or to be near other special facilities. Thus, with
the development of Woodward Superhighway and of a larger population to the east,
another fire station will eventually be needed near E. Maple Road. The village will
also require a modern warehouse and storage yard for construction supplies and the

  

l ter, and In itself perhaps the most beautiful feature of the Village.

There should he provision for a future scenic park drive which will form a
really attractive entrance to Birmingham worthy to herald its charming charac-

. I ,._’-—v—h__—.-4

.-.. .r- iv; __.__-f

28 REPORT OF THE VILLAGE PLANNING COMMISSION

like, undoubtedly to be located with spur track facilities from the new Grand Trunk
Railway. The precise sites for such buildings cannot advantageously be fixed long in
advance of their acquisition.

SCHOOL SITES

The present school system serves the village well and is keeping abreast of
its needs. New sites of adequate size are already being acquired in advance of the
time of building. This policy should be continued and developed. Whether the school
district will eventually approximate the standard of one school to each quarter-section
or not it is now too early in its history to state. The advantages in accessibility, safety
and community spirit engendered by such a plan are obvious, yet these may be offset
by undue operating costs in given instances. The plan presented indicates the general
locations of playgrounds, normally as adjuncts of schools, as already discussed. It is
none too soon to determine which of these, if not all, are likely eventually to carry
a school, and to secure them adequate in size for such combined use.

Whether the School District should continue an independent governmental body
with an area larger than that of the village or not is an administrative governmental
problem which this plan cannot determine.

PUBLIC UTILITIES

The plan must pay due regard to the inter-relation of various public utilities
with its other components. As these are all virtually special forms of circulation systems
it is natural that they should be closely bound up with the plan of the highway system.
Their capacities, however, will depend chiefly on the zoning and the expected densities
of population.

SEWERAGE

The sewerage system—now proposed to be hereafter of the combined storm water
drainage and sanitary sewage type—requires larger and larger outlets as the village grows,
with interceptors along the few shallow valleys and storm relief through the natural
channels. It is therefore a factor of considerable economy to link its planning up with
the park system plan for preserving these open valley courses in public ownership. A
sewerage plan is already contemplated for caring for the several drainage areas of the
village and its vicinity.

WATER SUPPLY

The water supply is at present adequate and planned to accommodate a con-
siderably larger population. Should it eventually prove incapable of being increased
enough to meet the needs of a large community, Detroit’s own ample supply from
Lake St. Clair may then be tapped, so that this problem appears to be settled.

OTHER UTILITIES

Other Utilities such as gas and electricity may readily be expanded as the village
grows. Location for supply lines for all these utilities will almost invariably be in the
street or alleys or on back yard easements, so that they do not constitute a special
problem.

Such signs as are frequently found on business streets projecting five or
even ten feet out over the sidewalk soon defeat their own end by obscuring one
another, besides destroying whatever beauty the business facade may have and
constituting a potential danger to pedestrians.

REPORT OI“ THE VILLAGE PLANNING COMMISSION 29

V. Private Property

In any community, equally important with the proper provision of means of cir-
culation and public services is the use of the remaining property in private hands. Bir-
mingham particularly should safeguard this use to assure the high quality and general
attractiveness of the village in the future. This may be done both by direct regulation
and by indirect means.

BUILDING CODE

The negative control of zoning on the nature of use and the location and bulk
of building has already been dealt with in this report. Similar in method, the building
code controls the type of construction. factors of fire safety, sanitation and the like.
The code enacted six years ago should soon be revamped or replaced by a code more
effective to control building in communities of ten to twenty thousand on the border
of a great metropolis.

HOUSING CODE

The housing code, which pays special attention to conditions around multiple
and other rented dwellings, is in Michigan a state-wide law binding upon every
portion of it. This code should be treated as a part of the building code in en-
forcing its provisions, which fortunately now require reasonably high standards of con-
struction and maintenance. To secure the adequate enforcement of the three codes—
building, housing and zoning—the new full time building inspector is a long step ahead.

ARCHITECTURAL CONTROL

Fully as great benefits to Birmingham will, however, arise entirely outside the
present exercise of the police power so-called, through education and moral suasion
as to proper architectural treatment of all structures. Today on most of the better
grade subdivisions able architects are engaged to design dwellings, churches, clubs
and other buildings, though sometimes their sense of fitness of the scheme with
the neighborhood has to be sub—ordinated to the owner’s wishes. In business buildings
particularly, on the other hand, there is the greatest range between the well designed
building fitting its site and either the ugly strictly utilitarian or the blatant type so often
erected. Taste in these things is rising gradually. It may be stimulated indirectly by
education and more directly by example. One well-designed building goes far to raise
the standard of an entire neighborhood.

A further step should be taken in a progressive community such as Birmingham.
Whenever a building is proposed to be erected unsuited to its site it will be worth while
to sit down with the designer and owner and suggest how to improve the design. Else-
where this is successfully done by committees of architects, by fine arts commissions, or
by the planning commission themselves. The total number of new buildings or exten-
sive alterations involving the outside appearance is not so great for any one period but
that some group can examine every design and thus sort out those where improvement
needs to be sought. In the large city of W'ashington, D. C., three architects sit once a
week, one retiring each week and a new one coming in, thus assuring continuity of effort
without unduly burdening any individual citizen with this civic duty.

CO-ORDINATION

All work of a public character should, of course, be zealously Studied to see that it
fits in with the general scheme of the village plan. By such methods the tone of the
village may be kept up and the plan justify itself to its fullest capacity.

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Printed by

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BIRMINGHAM. MICHIGAN

 

 

 

  
 

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