Report of Marsden Manson to the Mayor and Committee on Reconstruction on those portions of the Burnham plans which meet our commercial necessities : and an estimate of the cost of the same : fire avenues and thoroughfares, lowering Rincon Hill, auxiliary fire system, water front improvements, Oct. 1906

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588190

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REPORT

OP

MARSDEN MANSON

TO THE

MAYOR AND COMMITTEE
ON RECONSTRUCTION

ON THE

IMPROVEMENTS

Now Necessary to Execute

AND

An Estimate of the Cost of the Same

FIRE AVENUES AND THOROUGHFARES
LOWERING RINCON HILL
AUXILIARY FIRE SYSTEM *

WATER FRONT IMPROVEMENTS

OCTOBER 1906

REPORT

OF

MARSDEN MANSON

TO THE

MAYOR AND COMMITTEE
ON RECONSTRUCTION

ON THOSE

Portions of the Burnham Plans

WHICH MEET OUR COMMERCIAL NECESSITIES

AND

An Estimate of the Cost of the Same

FIRE AVENUES AND THOROUGHFARES

LOWERING RINCON HILL

AUXILIARY FIRE SYSTEM

WATER FRONT IMPROVEMENTS

OCTOBER 1906

To the Public : —

I have carefully examined the plans
submitted by Mr. Manson for the widening
and extension of streets and also for better-
ing the harbor front for better shipping
facilities. They are in line with what I
have been planning since the fire and if
adopted by the people will make San
Francisco what we expect her to be, one
of the best and most progressive cities on
this continent.

The plans have my hearty endorsement
and I sincerely hope they will be realized
at a very early date.

(Signed) E. E. SCHMITZ,

Xnu Mayor.

Sept. 28, 1906. ^5*2^

588190

September 25, 1906.
HON. E. E. SCHMITZ,

Mayor and Chairman of the Committee on
Reconstruction.
My dear Sir: —

The Committee on the Reconstruction of San
Francisco, with your approval, directed me to make
an examination of the reports of the several com-
mittees. I was instructed to study the plans and
simplify them, also to make estimates of the cost of
the more important improvements suggested.

After several months of careful study I unhesi-
tatingly recommend to the Mayor and the People
the carrying out immediately of the following work:

(a) Widen Folsom street from East to Tenth
street, and lower the grade from Spear to Third
street ;

(b) Extend Montgomery avenue from Wash-
ington street to Market street ;

(bi) Widen Fremont street and lower its grade
as hereinafter named;

(c) Extend Eighth street to Mariposa street and
widen this latter street to Illinois street;

(d) Open a new avenue from the Ferry to Fol-
som and Fremont streets;

(e) Close Commercial street and add its width
to Sacramento and Clay streets;

(f) Widen Pacific street;

(g) Widen Sansome street by setting curbs back
and pass it under Broadway, as recommended by the
Board of Public Works in 1902-3 ;

(h) Lower Rincon Hill to a plane sloping from
Third street to the waterfront ;

(i) Auxiliary Fire System Salt Water. Con-
struct fire cisterns as recommended by the Chief of
the Fire Department, and build one or more pumping
stations for bay connections with distributing mains.

Nearly all of these improvements have, with many
others, been recommended try the Committee on Re-
construction, and I have selected them by reason of
their vital relation to the protective commercial and
industrial needs of the city.

The relation of these improvements to the future
growth of the city will appear from Map "A" accom-
panying this report. I estimate the cost of all the
lands required to open or to widen the streets named
above at the sum of $4,695,330.00 I estimate the
cost of grading and paving all the new oblique
streets named at $526,250.00; for grading streets
through Rincon Hill at the sum of $1,100,000.00;
and for fire cisterns, etc., $1,500,000.00. Total,
$7,821,580.00. This will make an expenditure of
less than $7,900,000.00, and will secure all the land
required and make all the improvements necessary to
give San Francisco reasonable protection and enable
her to expand commercially and to achieve her des-
tiny as the chief city of the Pacific. Such an expen-
diture made now, should add not less than $75,000,-
000 to the assessed valuation of city property in ten
or fifteen years. Five or ten years from now it will
be absolutely impossible to make these improve-
ments; they must be made now or they will never be
made.

It is evident that the property-owners unassisted
cannot make these improvements. The plans
recommended affect the whole city. Fire barriers are
created which, with existing wide thoroughfares,
will restrict great fires to the district in which the)'
originate, and they also serve as adequate and direct
thoroughfares between the water-front and manu-
facturing and commercial districts, as well as relieve
the congested condition of the Ferry and Market
street.

And it will be noted that the fire avenues or high-
ways herein outlined, together with Market street,
Van Ness avenue, Channel street and Dolores street,
divide the city into areas within which conflagra-
tions can be controlled, and that by systematically

disposing the auxiliary fire system along these lines
the areas within them can be subdivided for a more
detailed distribution ot tire protection.

The only way to pay for these improvements is
for the city to authorize a bond issue, the bonds to
be at least 40-year bonds and bear not more than 4
per cent interest. These bonds can be readily sold
and should command a premium. It is evident that
all the suggestions recommended by the Committee
on the Reconstruction of San Francisco cannot be
carried into effect now. Let us commence to carry
out the improvements that are vital. Other recom-
mendations by Mr. Burnham and the Committee on
Reconstruction can be carried into effect at a later
date.

Before presenting in more detail the principles
upon which the above improvements were selected
it is best to present an outline of all the projects
and the order of their development, as reported by
the Committee on Reconstruction. These are repro-
duced on Map "B" of this report.

There were collected from the Assessor's
office diagrams of each block cut directly or
obliquely by the proposed improvements showing
the area and extent that the property of each owner
will be affected or cut by these oblique streets; also
the values of each piece of this property and the
assessed values of each block on the streets which
are to be widened. These values are generally about
60 per cent of the market values, and thus form a
definite basis on which to determine costs and
benefits.

The plans recommended by the Committee of
Forty are divided by them into four subdivisions,
rated in accordance to their importance and to the
date or time they should be carried out and paid
for. They are:

FIRST : The work to be carried out immediately
(designated in blue).

SECOND: That to be carried out in five years
(designated in red) .

THIRD: That to be carried out in ten years
(designated in green).

All of these are to be paid for by the City through
taxes or bonds.

FOURTH : Those improvements which are to
be carried out at once by the property-holders, desig-
nated in yellow.

Now before considering these plans as essential
elements in the growth and prosperity of San Fran-
cisco, it will be necessary to consider those great
functions which San Francisco must discharge to
the State, to the country and to the world at large.
These great functions are commercial. By virtue
of her geographic position, San Francisco is essen-
tially a commercial city. Therefore, all develop-
ments should meet these essential and prime
requirements first, and next those which are sec-
ondary. When these essentials shall be ade-
quately met, the others will take care of themselves.

It has therefore been found necessary to recast
these four propositions in their relation to our com-
mercial development, but to do this it is first
necessary to bring into the scheme some plan of
waterfront development.

RELATION OF PROPOSED IMPROVE-
MENTS TO THE WATER-FRONT

The facilities upon our waterfront were utterly
inadequate before the catastrophe. They are more
so now. A plan for their betterment and develop-
ment will be first blocked out.

It is manifest that the great deficiencies in our
commercial facilities are:

(1) Inadequate areas, means and appliances for
receiving and handling foreign and coastwise freight,
both in cargoes and carloads.

(2) Deficient areas and means for handling
grain, fruit and other domestic products, involving

direct transfer to and from canneries and factories;
and to retailers and consumers.

It is also necessary to note that the mode of pay-
ing for and administering our present inadequate
waterfront facilities is radically wrong. We tax
the commerce of the port not only for the use, main-
tenance and administration of these facilities, but
also for their original construction. We lay the
burden of building and maintaining these structures,
through a very expensive system of administration,
upon the commerce of the port; thereby driving
commerce and shipping to more favorably inclined
ports instead of offering them every possible induce-
ment.

Furthermore, the prosperity of the entire State is
dependent upon the extent and manner these facili-
ties are provided and used and upon the part which
San Francisco plays in the world's commerce. This
has been made so manifest by the late catastrophe
and by our inadequate commercial facilities that
throughout the State it is recognized that every
industry must directly or indirectly suffer loss until
the commercial requirements of this port are
adequately met.

The first group of works which should be done is :

(a) To construct two sections of the seawall
from Section 14, at the Mail Dock, northerly to the
foot of Main street, and to fill the seawall lots
adjacent thereto.

(b) To provide adequate wharf facilities and
means for handling fruit and produce adjacent to
the foot of Jackson street and a fruit market area
commensurate with the importance and require-
ments of this industry.

(c) In conjunction with the city, to provide
better approaches to the great flat area between
Third, Mission, Ninth and Channel streets.

(d) To provide more piers on which rapid trans-
fer of cargoes can be made.

(e) To inaugurate seawall building and the pro-
vision of dockage room in Islais and India basins.

Secondly, to follow these works with the exten-
sion of the seawall from Main street to Mission
street, and to extend the Islais and India basin work
to completion; and to co-operate with the city and
with existing and projected railroads in providing
for rapid handling of freight into and from ware-
houses and factories.

The need of these improvements has been made
so manifest that it is recognized throughout the
State that until the State can provide the improve-
ments which she controls, every industry within her
borders must suffer, and in a measure the commerce
of the world will be forced to seek other marts.

These conditions are so evident that upon a proper
presentation of the conditions the State will be war-
ranted in making provision for improving the water-
front and will make such changes in the
administration of this great work as experience has
amply demonstrated to be necessary.

I estimate that there should be made available for
these works in the next ten years the sum
of $15,000,000, in sums of $1,500,000 each fiscal
year, commencing with 1907-8.

This sum the State should provide by a bond
issue The assessment roll of the State is now over
$1,300,000,000. A tax of four and sixty-two one-
hundredths mills ($00.00462) per $100 of as-
sessed valuation will pay the interest on each year's
issue; and, without any increase in the assessment
roll in the decade following 1907-8 will call for a
maximum increase in the tax rate of only four and
sixty-two one hundredths cents ($00.0462) per
$100 in 1917-18.

The plan of waterfront development having been
outlined and the means of its accomplishment indi-
cated, we can now consider those portions of the
plans of the Committee of Forty which bear directly
upon this commercial development.

These, with minor exceptions, are based on the

BURN HAM PLANS.

(a) The widening and lowering of the
grade of Folsom street and its conversion into a great

thoroughfare parallel to Market street.

(b) The extension of Montgomery avenue and
widening and lowering the grade of Fremont street
as a great thoroughfare parallel to the waterfront.

(c) The extension of Eighth street to Mariposa
street, and the widening of this latter street thence
to Kentucky street as a great thoroughfare west of
the Railroad yards into the center of the city.

(d) The opening of a wide thoroughfare from
East and Market streets diagonally to Folsom street
and Fremont street.

(e) The closing of Commercial street and ad-
ding its width to Clay street and to Sacramento
street.

(f) The widening of Pacific street.

(g) The widening of Sansome street by setting
curbs back and lowering its grade to pass under
Broadway, as recommended by the Board of Public
Works in 1902-3.

(h) Lowering the grades on Rincon Hill as has
been long discussed and open direct lines of com-
munication between the water-front from the Ferry
to Channel street to the great manufacturing and
commercial area bounded by tfhird, Mission, tfenth
and Brannan streets.

All of these thoroughfares should be kept free of
tracks; and the roadways of other important streets
should be widened by setting back the cuibs five (5)
feet, as was done in the case of Third street in 1903.

LOWERING OF GRADES ON RINCON HILL
ESSENTIAL TO THESE IMPROVE-
MENTS.

It will be noted that three of these improvements
recommended by the Committee of Forty depend
upon lowering the grades of Rincon Hill, namely:
Widening Folsom street and lowering the gradients
from Main street to Third street; (2) widening
Fremont street and lowering its gradients from

10

Howard street to Brannan street; (3) the oblique
avenue from East and Market streets to Folsom
and Fremont will reach this latter intersection ad-
vantageously only after it shall be lowered from
20 down to 5 feet. Moreover, upon lowering the
two great avenues, Fremont Street and Folsom
street, to reasonable gradients, the remaining streets
over Rincon Hill must be lowered.

This long contemplated improvement is the key
to the great improvements of the commercial facili-
ties of the city in two ways :

1st. The area to be lowered is 120 acres, adja-
cent to the waterfront, but now useless for commer-
cial purposes.

2nd. To the west of this area, as far as Ninth
street, is about twice this area of level lands now
deprived of direct approach to the waterfront.

If this hill be removed, there will then be four
great and direct streets parallel to Market, Mission
and Howard streets, of equal or greater importance
in the growth and development of the city. These
will be Folsom, Harrison, Bryant and Brannan,
which, after passing through 120 acres of greatly
improved blocks will extend into an area of 220
acres exclusive of streets. These four streets will be
upon lighter and better gradients than the three first
named streets, and develop and give access to an
area a mile long by half a mile wide.

In order to present a definite proposition of the
possibilities, investment and returns which can be
secured by grading the whole of Rincon Hill to a
plane sloping from Third street between Townsend
and Howard to Spear street, the area to be lowered
is outlined in yellow on the accompanying map, and
the present and proposed grades at each street inter-
section are given.

The following comparison of values, based on
the assessments of 1905-6, gives a conservative esti-
mate of the costs and results of this work: Area
affected by a change of grade (yellow border),

11

4,443' 25° square feet, or over 120 acres, exclusive
of streets, assessed value $3,241,520.00.

Four million three hundred and eighty-four
thousand square feet of surrounding and adjoining
property are assessed at $5,859,890.00, or an excess
of $2,618,370.00 in assessed value for a slightly
smaller area.

To grade Rincon Hill to the mean plane just
indicated, will require the moving of about
6,000,000 cubic yards, much of which is suitable for
seawall building and the remainder for filling sea-
wall roadway, streets and lots. This can be moved
at a cost of 35c per cubic yard, or $2,100,000.00,
leaving a profit, on the basis of assessed values, of
$518,370.00, which, on a commercial or sale valua-
tion of the lots, and without the appreciation due
to the locality, is more than $1,250,000.00.

There will then be a clear sweep of practically
level land from the waterfront, between Market and
Channel streets, to Ninth street, and an extension
southwesterly to Nineteenth street, a total area of
more than \TA square miles, and with direct and
uninterrupted approaches to a half mile of the best
frontage on the Bay.

The commercial and industrial values of such an
area in the heart of the city and with such approaches
and frontage are inestimable.

The rights of way necessary to open these streets,
upon the basis of the assessed value per square foot
are given below, this basis being the same as that
used by me for estimating the work recommended by
the sub-committee on extending and widening streets,
etc., of the Committee of Forty. Where oblique
streets are opened the estimated cost is on the market
or sale value of each lot which value is estimated
upon the basis that the assessed value is 60 per cent
of the market value.

In opening new oblique streets it is considered
desirable that the city should bear the cost of grad-
ing, paving, and sewering these streets, and an esti-
mate of the cost of this is added. In repaving streets

12

which are only widened, or the roadways of which
are to be widened by setting curbs back, it is recom-
mended that this work be done, as has previously
been the case, by annual provisions in the budget.
Some of these streets are already provided for under
the $17,000,000.00 bond issue adopted in 1904,
and the remainder of the widened streets can be pro-
vided for as above suggested.

(a) Widening Folsom Street from

East to Tenth Street $ 196,630.00

(b) Extending Montgomery Avenue 1,997,000.00

(b) Widening Fremont Street 170,400.00

(c) Extension of Eighth Street and

widening Mariposa Street 675,000.00

(d) Avenue from Ferry to Folsom

Street and Fremont Street 1,060,700.00

(e) Widening Sacramento and Clay
streets by closing Commercial

Street* 150,000.00

(f) Widening Pacific Street 445,600.00

(g) Setting back curbs and carrying Sansome
Street under Broadway is work

for budget,
(h) Grading streets through Rincon

Hill to plane of Third and

Spear Streets 1,100,000.00

Grading, sewering and paving oblique

streets above mentioned 526,250.00

Total $6,321,580.00

With the tax roll at $5'oo,ooo,ooo.oo four per
cent interest on the above cost is less than six and

*Note. — The value of the area occupied by Com-
mercial street is greater than the assessed value of
the lots which have a frontage only upon this street.
A just and equitable adjustment of costs and bene-
fits of this solution should accomplish this improve-
ment without much cost to the city and add seven-
teen and one-half (17J/2) feet to the widths of Sac-
ramento and Clay streets, thus making them ade-
quate for the traffic which now obstructs them.

13

three-tenths cents on the one hundred dollars of as-
sessed valuation, and on property assessed at $5,000
will call for an annual tax levy of less than $3.15.

Tnese improvements, coupled with those outlined
for State work, would make the waterfront a far
more efficient factor in the development of the
wealth of the State, and under proper administration
would make San Francisco supreme in the develop-
ment of the commerce of the Pacific Ocean. I
earnestly recommend that these improvements be
inaugurated at once and pushed to an early com-
pletion, so that San Francisco may at least stand
forth as ready and able to hold her commercial
supremacy on the Pacific Coast of the two Americas.
for this is the great duty which confronts her in this,
the most critical period of her existence.

This being done she will be in a better position to
carry out the rest of the great plans evolved through
the labors of Mr. Burnham, aided by the best thoughts
and energies of this community.

14

ESTIMATE OF COSTS OF RIGHT OF WAY
TO CARRY OUT THE PLANS FOR
WIDENING AND EXTENDING

STREETS RECOMMENDED FOR IM-
MEDIATE ADOPTION BY THE COM-
MITTEE OF FORTY.

PRINCIPLES CONSIDERED IN DETERMINING THE COST
OF WIDENING AND OPENING NEW STREETS.

Relations of Ozvners and General Public 'thereto.
WIDENING STREETS.

Widening a street adds materially to the value of
abutting property* in two ways: First, it affords
better fire protection, and, second, the advantage of
fronting on a more commodious and serviceable
highway. The general public shares in these better-
ments and should bear its proportion of their cost,
either in paying in part for the rights of way or in
contributing in whole or in part for the improvement
with sewers and pavements. The object of this
study is to outline the general principles upon which
a just and equitable division of these costs and bet-
terments can be reached.

A local and notable instance will be first cited: In
1901-2 it became apparent that the roadway of
Third Street, between Mission and Channel Streets,
was too narrow to meet the demands of growing
traffic. The curbstones were therefore set back 5
feet towards the building lines. Some of the prop-

* Unless the widening reduces (he area of a lot to too small
a size or shape to be useful, which cases have been consid-
ered separately in each particular street.

15

erty holders persistently opposed and delayed this
improvement, which as soon as the scope of the im-
provement became apparent, added more than
double its cost to the value of the properties, and
upon completion added far more; and owners on
other streets clamored for similar improvements.

In most instances the rights of way for wider
streets should be donated, provided the city assumes
the cost of grading, sewering and paving. In order,
however, to present the maximum cost to the city I
have assumed that in widening a street the basis of
cost to the city for the additional rights of way shall
be the proportionate assessed value of the property
required, the owners to contribute as their share of
the improvement the difference between the assessed
and market value, which is generally about 40 per
cent. In the case of widening by taking a strip only
on one side of a street, the opposite propeity to con-
tribute one-half of the 40 per cent, the city to bear
by general tax levy or bond issue the cost? of sewer-
ing and paving.

OPENING NEW AND OBLIQUE STREETS.

On opening new and oblique streets it frequently
happens that lots are cut into disadvantageous
shapes or left too small for practical use. In these
instances I have taken the market value of the lot
on the basis that the assessed value is 60 per cent of
the market value.

In widening certain streets, like Commercial and
Powell, in which a nearby parallel street or inter-
vening property lessens the depth of a shallow lot, so
as to render it practically useless, the market value
of the lot enters into the estimated cost of the right
of way, in which case the surplus can be sold by the
city to an adjacent owner or his property bought by
the city and the whole then sold upon equitable
terms.

16

Upon these principles, which I consider sound and
just, the maximum costs have been estimated of the
necessary rights of way for carrying out the first
group of improvements recommended bv the Sub-
Committee on Widening and Extending Streets, etc.,
for immediate construction and approved by the
Committee of Forty. These are designated in blue
on the maps prepared under their direction and on
the map accompanying this report. It is manifest
that unless sdme such broad and equitable basis for
this work be the foundation of these improvements
the work will go for naught to the eternal loss, dis-
advantage and disgrace to the city.

The maps which accompany this report are re-
productions of the sewer grade map, prepared under
direction of the Board of Public Works in 1902-3.
The proposed improvements are shown in full on
shaded blue lines and are those adopted by the
Committee of Forty.

The improvements in alignments and grades, to
be undertaken 5 years hence, are shown in red ; those
to be undertaken 10 years hence are shown in green;
those to be executed by property holders are shown
in yellow.

Estimated Cost of Rights of Way for Carry-
ing out Improvements Recommended by
the Committee of Forty for Immediate
Construction. Blue Scheme.

N. B. — Benefits arc not estimated; those in wid-
ening streets are nearly if not quite equal to the
value of the additional rights of way, provided the

17

city assumes the cost of grading, sewering and

paving.

(l)a Montgomery Avenue extension (a) $1,168,000

(l)b Widening Fremont Street 170,400

(2) Widening Pacific Street 445,600

(3) Widening Commercial Street *8 17,300

(4a) Widening North Point Street. . . 46,400
(4b) Widening Bay Street 17,500

(5) Widening Powell Street, Pacific to

Pine 99,700

(6) Oblique winding avenue, Block 164,
California, Pine, Powell, Mason. . (a) 230,000

(7) Oblique winding avenue, Block 117,

Pine, Bush, Stockton, Grant (a) 225,000

(8) Oblique avenue from Kearny and
Commercial, to Taylor and Pacific (a) 157,500

(9) Widening Pine Street, Stockton to

Van Ness 106,600

(10) Lowering grades to be done at cost
of budget

(11) Widening Folsom Street, East to
Seventh 156,630

(12) Extend Van Ness Avenue to
Twelfth and Mission (a) 286,570

(13) Extension of Sansome Street, (a) 1,115,000
(14a) Extension of Seventh Street to

Leavenworth (a) 713,500

(14b) Widen Golden Gate Avenue. . . . 507,600

(15) Diagonal Street, Market and Van

Ness to Seventh (a) 727,900

(16) Diagonal Street from Market and

East to Fremont and Folsom .... (a) 636,400
(18) Semi-circular space foot of Mar-
ket (a) 879,400

Widening Eleventh Street 305.500

$8,814,500

* Note if Commercial Street be closed and its width (35
feet) added to Clay and to Sacramento Streets the assessed
value of lots cut off from frontage by reason of fronting only
on Commercial Street is $346,420 and the value of Commercial
Street as lots is about $406,000.

18

I. have not included in the above the cost of widen-
ing Dupont Street, as, in my opinion, this improve-
ment can be made to subserve property interests
and traffic better by a slight change as follows : Di-
vert the alignment from Grant Avenue and Bush
Street slightly easterly and reach California and Du-
pont Streets on a three and one-half per cent grade ;
thence diagonally through Block 115 to the south
end of Waverly Place, and widen same to Washing-
ton Street; thence diagonally through Block 112
to Stockton and Jackson; thence along Stockton and
Green to Powell and Green (making a court or
circle at Stockton and Green and Montgomery
Avenue) ; thence diagonally through Blocks 155,
154, 181, 180, 208 and 207 to junction of Jones
and Lombard and to Lombard and Chestnut; thence
diagonally through Blocks 234 and 233 to Leaven-
worth and Bay Streets, crossing the former at ele-
vation 82 and widening the latter street to Bay and
Hyde. This thoroughfare will at no point exceed
4 per cent gradient and will connect the junction of
Grant Avenue and Market Streets with the Presidio
upon very light gradients.

Another slight modification is to make Bush
Street, from Stockton and Bush westwardly the main
avenue to the Western Addition, instead of Pine
Street, and to reach this intersection by an oblique
street on a 5 per cent gradient from Dupont and
California Street through Blocks Nos. 1 16 and 1 17;
then to reach the top of the California Street hill at
Mason and California Streets, from Bush and
Leavenworth upon a gradient of 6 per cent.

From Mason and California Streets Taylor Street
affords an easy gradient to the saddle at Pacific and
Jones Street by a diagonal street through Block 214,
and also to the splendid property on Russian Hill by
the green line scheme of the Committee. A long
familiarity with the situation leads me to consider
these slight modifications more serviceable than the
plan proposed; they are outlined in dotted blue on
the map.

19

There appears to be some difference of opinion
among property holders as to the best location and
gradients upon which to rise to the splendid resi-
dence properties on California and Russian hills. I
have therefore suggested, in dotted blue lines on
Map B, what I consider the most desirable. These
gradients do not exceed six per cent (6%), the
curves are gentle and the alignment adds to the
values of abutting property. These grades and
alignments bring into full use, via existing streets
of light gradients, the excellent system of new streets
laid out by the sub-committee for Russian Hill and
indicated in green lines on Map B.

The suggested extension of Grant Avenue as in-
dicated in dotted blue lines makes use of Bush Street
as a boulevard, with light gradients, and connects
the Presidio with Market and O'Farrell Streets via
Grant Avenue, upon gradients less than three and
one-half per cent (3^4%) except on the existing
gradient on Grant Avenue, between Sutter and Bush
Streets, which is about five per cent (5%).

Whatever may be finally agreed upon, it must be
recognized that grade contour streets must be
adopted in the place of some of our present impracti-
cable rectangular streets; and I recommend that
money be raised by bond issue, direct taxation and
subscription for this purpose as soon as the best
alignments for all interests can be agreed upon.

Of the above there are ten (10) projects marked
(a), amounting to $6,138,770 which are oblique
streets and will require full market values for the
rights of way. On the basis that the assessed values
are 60 per cent of the market values, these projects
represent $10,231,300. The other projects foot up
$2,675,730, or a total of $12,907,030.

If bonds for the full amount named above, or
$12,907,030 at 4 per cent and an assessment roll ot
$500,000,000 a levy of a little over 10c, or five two-
cent stamps per year per $100 of assessed valuation
will pay the interest.

20

WIDENING MONTGOMERY STREET.

COSTS OF RIGHTS OF WAY ON THE BASIS
OF ASSESSED VALUES.

The committee having the widening of streets
under consideration recommended that Montgomery
street be widened 20 feet on the west side from
Market to Washington streets, and included this
work in the list of improvements to be done by the
property owners.

The following data regarding this work may be of
service to the property holders on that street and
vitally interested in its improvement:

ESTIMATED COST OF LAND REQUIRED
FOR RIGHT OF WAY TO WIDEN
MONTGOMERY 5T. BY 20 FELT ON
THE WE5T SIDE.

BLK NO. BOUNDED BY ASSESSED VALUE OF

RIGHT OF WAY.

76 Montgomery, Post, Kearny, Market $ 21,000.00

75 " Sutter, Kearny, Post 126,600.00

74 " Bush, Kearny, Sutter 187,000.00

73 " Pine, Kearny, Bush 110,000.00

72 California, Kearny, Pine 114,300.00

71 Sacramento, Kearny, California 71,500.00

70 " Clay, Kearny, Sacramento 57,300.00

69 " Washington, Kearny, Clay 39,200.00

Total, $726,900.00
The assessed value of real property fronting on
Montgomery street between Washington and Market
streets and one-half way to Kearny and Sansome
streets is $10,605,000.00. The right of way for wid-
ening on this basis is about 7°/o of the value of the real
estate directly benefited. The widening will undoubt-
edly add far more than 7°/o to the abutting property, and
I recommend that steps be at once taken to execute
this important improvement.

In the preparation of this report I have conferred
from time to time with the City Engineer, Mr. Thos.
B. Woodward, and desire to express my obligations
for the suggestions and assistance he has given me, and
for data furnished from his office.

21

AUXILIARY FIRE SYSTEM (SALT WATER
SYSTEM).

It is essential that San Francisco should have an
Auxiliary Fire System; both for her own safety and
protection and to give investors confidence in their
investments in property and industries.

The maximum amount of water used in a year
for fire purposes is less than one-third of one per cent
of the annual consumption; or, about one day's sup-
ply for domestic and industrial purposes. Therefore
at least this volume of water should be available
inside of the closely built up portions of the city in
well-located and securely constructed reservoirs and
fire cisterns. They should be so grouped that, inde-
pendent of hydrants on the distributing pipe system,
a sufficient volume of water could be concentrated
upon any given area to control a serious fire.

Moreover, through important districts it should
be possible to promptly open connections between
the distributing pipe system and pumping stations
and fire tugs on the Bay, as outlined in the report of
the Sub-committee on Water Supply and Fire Pro-
tection of the Committee on Reconstruction.

I have therefore included the sum of
$1,500,000.00 for the purpose of repairing and con-
structing the system of fire cisterns recommended by
the Chief of the Fire Department and estimated by
the City Engineer to cost $1,137,418.00, the ad-
ditional amount to be expended in large reservoirs
within the limits named and in building and equip-
ping the auxiliary pumping stations and mains for
valuable and hazardous districts.

SUMMARY.

For work now needed, namely :

( 1 ) Opening and widening fire avenues, which
will also serve as thoroughfares to serve industrial
and commercial needs ;

(2) For grading, paving and sewering those
which cut property obliquely;

(3) For grading streets through Rincon Hill,

22

which will bring into direct communication with
the central portion of the waterfront one and one-
half square miles of the heart of the city; and

(4) For constructing an auxiliary fire system,
as above outlined, I recommend the issuance of
$7,900,000.00 in four per cent 40-year bonds, the
specific items of this expenditure being —

(a) Widening Folsom Street from
East to Tenth Streets, as a great
thoroughfare parallel to Market

Street $ 196,630.00

(b) Extending Montgomery Ave., 1,997,000.00
(bi) Widening Fremont Street as a

great thoroughfare parallel to

the waterfront 170,400.00

(c) Extending and widening Eighth
Street and widening Mariposa
Street as a great thoroughfare
west of the railroad yards, and
connecting the center of the city

with the Potrero 675,000.00

(d) Avenue from Ferry to Folsom

Street and Fremont Avenue. . . 1,060,700.00

(e) Widening Sacramento and Clay

Streets by closing Commercial St. 150,000.00

(f) Widening Pacific Street as a fire

avenue and thoroughfare
through the district north of
Market Street 449,600.00

Total for rights of way $4,695,330.00

For grading streets through Rincon
Hill, bringing ljA square miles
of valuable property into direct
communication with the water-
front $1,100,000.00

For grading, sewering and paving
oblique streets under (b), (c)
and (d) 926,290.00

For auxiliary fire cisterns and system 1,900,000.00

Total $7,821,580.00

23

These figures are based on the principle that a
broad and generous spirit will actuate property-
holders in view of the benefits which will accrue to
them by the opening of these fire avenues and high-
ways, and that normal values for rights of way will
be accepted.

Respectfully submitted,

MARSDEN MANSON.

24

LETTER FROM MR. WALTER J. BARTNETT.

After every great fire elaborate plans are prepared
for the construction of a new and greater city. This
was the case in London. After the great fire of Lon-
don, Sir Christopher Wren prepared plans for a
greater London. Lack of concerted action on the
part of the people resulted in the city being rebuilt
on the old lines. The same was true in Baltimore,
and will be true in San Francisco unless our authori-
ties speedily adopt some plan and proceed to carry
it out.

Mr. Manson has carefuly reviewed all the plans
submitted by the Committee on the Reconstruction
of San Francisco. The result of his studies is a
plan which should meet the approval of the com-
munity. It should be evident to all that no public
improvements of any magnitude can be made now
unless the same be financed by means of a bond
issue. In our opinion, steps should be taken immedi-
ately to authorize an issue of bonds for an amount
sufficient to carry into effect the improvements rec-
ommended by Mr. Manson.

PROPOSED CONSTITUTIONAL
AMENDMENTS.

To enable the reconstruction of San Francisco to
be carried out on broad lines, it is essential that cer-
tain of the proposed Constitutional Amendments be
adopted by the people at the coming election.

Amendment No. g authorizes the deposit of State,
county and municipal funds in national and State
banks, the banks to secure such deposits by bonds
of the United States, of the State of California, or
of counties, municipalities and school districts within
the State; the bonds to be of a value at least ten per
cent in excess of the deposits, and the banks to pay
not less than two per cent per annum interest on
daily balances. This amendment should meet the
approval of all voters. Each year millions of public
funds are locked up in the treasuries of the State,

25

counties and municipalities. Under the proposed
amendment these funds can be deposited in the
national and State banks of California and will be
properly safeguarded. This amendment will also
make a market for our State, county and municipal
bonds, for our bankers, in order to secure the deposit
of public funds, would be required to deposit State,
county, municipal, or school district securities.

Amendment No. ij proposes to repeal the mort-
gage tax. This will enable anyone who may desire
to borrow on mortgage to agree to pay the tax on the
property subject to the mortgage. It is impossible
under our present law to get capital from without
the State to loan on mortgages in California. The
present law fails to protect the borrower; it is of no
benefit to him. San Francisco will require many
millions of Eastern or foreign capital, if it is to be
reconstructed on broad lines. Under our present
system of laws, Eastern and foreign capitalists are
unwilling to lend money here on mortgages. This
law prevents the sale of bonds of industrial and
commercial corporations. This has had the effect of
checking the industrial development of the State.
This amendment should be supported by all who
have the welfare of the State at heart.

Amendment No. 14 authorizes San Francisco and
San Jose to issue municipal bonds which will run 75
years instead of 40 years. This will diminish the
burden on taxpayers.

Amendment No. 4 authorizes bonds of the State
and of its political subdivisions to be made payable
at any place within the United States. The object
is to make the bonds more salable.

Amendment No. 11 confers on the Board of
Supervisors of the City and County of San Francisco
for the period of two years certain powers and rights
relating to streets, parks and boulevards. This
amendment was framed to facilitate the acquisition
of property required for street widening and street
improvement purposes. It requires a two-thirds'
vote of the Board of Supervisors and the approval of

26

the Mayor. The present charter provisions of San
Francisco are inadequate to meet the existing con-
ditions. For this reason it is advisable to confer
these powers on the Board of Supervisors. This
amendment simply provides machinery whereby
property needed for street widening and street im-
provement purposes can be acquired. The amend-
ment is a useful one and should be approved.

Other constitutional amendments have been pro-
posed, but the foregoing are the principal ones that
affect the reconstruction of San Francisco. The
Judiciary Committee of the Committee of Forty on
Reconstruction of San Francisco, and the Legislature
of the State have given much study and considera-
tion to these amendments. If the amendments re-
ferred to above are approved by the people, the work
of reconstruction of San Francisco will be materially
advanced.

W. J. BARTNETT.

27

Letter from Potrero Commercial and Manu-
facturers' Association.

San Francisco, October 26, 1906.
To the Committee on Reconstruction,

City,
Dear Sirs — We have had submitted to us the
plans proposed by Mr. Marsden Manson for the
benefit of the future commercial and protective de-
velopment of this city, and we most heartily endorse
everything that he proposes. We believe that now
is the time for action, and it will be a shame and dis-
grace that will reflect seriously on the future welfare
and prosperity of this city and State and retard its
development if the plans proposed are not adopted
and made effective. It is admitted by all that the
future development of this city and State depends
upon the improvement in its trade and commerce,
and with this object in view we urge and recommend
city and State authorities to take prompt and imme-
diate action in this matter that means so much to this
city's and State's future, and is absolutely essential
to its growth and development.

Yours respectfully,
Potrero Commercial and Manufacturers'
Association,

By Isidor Jacobs, President.

28

THE SAN FRANCISCO REAL ESTATE
BOARD.

J. R. Howell, President; John T. Harmes, Vice-
President; Samuel G. Buckbee, Treasurer; B. L.
Cadwalader, Secretary.

Board of Directors — Samuel G. Buckbee, Samuel
Center, John T. Harmes, E. L. Hoag, J. R. Howell,
Frederic E. Magee, David Rich, John H. Speck,
George D. Toy.

San Francisco, October 26, 1906.
VIEWS OF THE SAN FRANCISCO REAL ES-
TATE BOARD UPON THE PLAN SUB-
MITTED BY MR. MARSDEN MANSON
FOR THE RECONSTRUCTION OF SAN
FRANCISCO.

The San Francisco Real Estate Board heartily en-
dorses the plan submitted by Mr. Marsden Manson
for the reconstruction of San Francisco, and respect-
fully recommends to his Honor, the Mayor, to the
Honorable Board of Supervisors and the Board of
Public Works, the adoption and execution of the
plan at the earliest possible moment.

The most vital question which confronts the peo-
ple of the city of San Francisco at the present mo-
ment is that which might in general come under the
head of "street improvement." That this subject
was considered a vital one, years before the great
fire, is shown by the fact that the eminent city
builder, Mr. D. H. Burnham, was requested to pre-
pare a comprehensive plan for the improvement and
adornment of San Francisco. Mr. Burnham's ad-
mirable plan, completed shortly before the fire, con-
cerned itself in large part with this same question of
"street improvement." His plan, however, consid-
ered the subject both from its commercial and
esthetic standpoint. The occurrence oi the greatest
conflagration in history rendered it necessary that
a more modest, and utilitarian plan should be pro-

29

posed. This was done by a sub-committee of the
Committee of Forty, appointed by his Honor,
Mayor E. E. Schmitz. The able plan evolved by
this Committee, and adopted and approved by the
Board of Supervisors, still contained many beauti-
fication features not strictly necessary. At the re-
quest of the Committee Mr. Marsden Manson then
drew up the plan now in question, which contains
no beautiflcation featuies, but calls only for those
improvements which are of strict commercial value
and which will immediately aid in the reconstruction
of the city from a business standpoint. It is on the
last grounds that the San Francisco Real Estate
Board so emphatically endorses Mr. Marsden
Manson's plans.

The burned area of four square miles was essen-
tially the business section. Without the speedy re-
construction of this section the prestige and pros-
perity of San Francisco will never recover during the
present generation. How may this be avoided1?
San Francisco, like all cities of natural growth, was
laid out without systematic plan in reference to
topography, and without consideration for the fu-
ture interests of the city. One of the exceptions is
Market street, the original road from the water-
front to the Mission, which was then formerly the
chief settlement. This street, by becoming the main
artery for traffic, because it was laid out with strict
regard for the public use, both in direction and
width, has shown, by contrast, the faults in the rest
of the city's ground plan.

San Francisco is a city with great variation of
topography, such as steep hills, deep valleys, swamps,
inlets, etc., which can only expand on the south and
on the west, except by projection of population
across the Bay, which, of course, removes it to an-
other jurisdiction. The chief defect in our city is
the ground plan which runs streets at right angles,
over steep hills and through deep valleys. The chief
necessity at the present moment is the widening of
streets, both to facilitate traffic and as barriers to

30

prevent the reoccurrence of any great conflagration;
the cutting of diagonal streets to shorten distances;
and the removal of grades which render certain sec-
tions of the city inaccessible, which sections would
otherwise be of the highest commercial importance.
The fire has removed all improvements, which
might otherwise bar the contemplated changes in
Mr. Manson's plans. London, Baltimore and
Chicago have bitterly regretted, since their great
fires, that they did not improve their streets. Are
we to fail to take advantage of their mistakes'? The
benefit of Mr. Manson's plans will be immediate
and their cost will be strictly within the city's fiscal
capacity.

Mr. Manson's plan is made with special reference
to the water-front, as this is naturally the focus of
our commercial greatness. He suggests, first, that
the State should issue bonds in the next ten years in
the sum of $15,000,000, in sums of $1,500,000 each
fiscal year, commencing with 1907-08. With this
money he would extend the seawall from the Mail
Dock to the foot of Mission Street, and would fill
the seawall lots adjacent thereto. He would make
provision for the better handling of fruit and
produce at the foot of Jackson Street, together with
a fruit market area; he would add additional piers
and would complete the Islais and India Basin work.
This work would be done by the State. For the
city's share he proposes the following, which bears
a harmonious relation to the work to be done by the
State.

1st. The widening and lowering of the grade of
Folsom Street from Tenth Street to the water-
front. This creates a great thoroughfare from the
water-front into the South-of-Market-Street dis-
trict, which will also relieve much of the congestion
on Market Street.

2d. The extension of Montgomery Avenue
across Market Street into Fremont Street, and the
widening of the latter as a great thoroughfare paral-
lel to the water-front. This will create a direct
approach to the North Beach District from the foot

of Market Street, and the Mail Dock, the lack of
which has always been keenly felt.

3d. The extension of Eighth Street to Mariposa
Street, and the widening of this latter street; thence
to Kentucky Street as a great highway from South
San Francisco into the center of the city, west of
the railroad yards.

4th. The opening of a wide diagonal thorough-
fare from the Union Ferry Station, at East and Mar-
ket Streets, to the intersection of Folsom and Fre-
mont Streets. This is one of the most important
projects, as it will accomplish wonders in relieving
the congestion of Market Street; and as it is con-
templated to widen both Folsom and Fremont
Streets, their meeting will form a focus whence five
great streets will radiate in star shape.

5th. The closing of Commercial Street and the
addition of its width to Clay Street and to Sacra-
mento Street. This is an improvement sorely needed
and will create two large streets traversing the heart
of the fruit and produce section.

6th. The widening of Pacific Street. This cre-
ates a suitable avenue for travel from the central
portion of the water-front to North Beach, and as
Pacific Street has the lowest grades north of Sutter
Street, it will create a thoroughfare from the Pacific
heights to North Beach and the water-front.

7th. The widening of Sansome Street and the
lowering of its grades to pass under Broadway by
bridge. This will render the northern portion of
the seawall accessible.

8th. Removing Rincon Hill, so that this great
obstacle to the commercial development of the dis-
trict bounded by Third, Mission, Tenth and Bran-
nan Streets may be removed and that portion of the
water-front rendered accessible, which it now
isolates.

It will be noted that three of the improvements
already suggested involve the removal of Rincon
Hill, namely, the improvement of Folsom and Fre-
mont Streets and the cutting of the diagonal from

32

the Terry to their intersection. The removal of this
great hill, which is useless commercially, is the most
important of the projects. It is essential to the de-
velopment of our water-front. It is, of course, in-
tended that the city should onty lower the grades of
the streets, but it is shown to be to the interest of
the propertyowners to grade their lots, as they will
more than recoup by the increase in their value. Mr.
Manson suggests that the streets herein mentioned
should have no street railroads, and that the side-
walks of all important streets should be lessened in
width, as has been done with such success on Third
and Fourth Streets. It will be seen that Mr. Man-
son's plan also contemplates fire barriers, as it will
be seen that his great thoroughfares divide the
burned section into ten fire districts. Mr. Manson
adduces detailed figures to show that the contem-
plated improvements could be met by the issuance
of $7,821,580 in city bonds, the bonds to be at least
40-year bonds and to bear not more than 4 per cent
interest. This figure also includes an auxiliary fire
cistern and system, as laid out by the late able Chief
of the Fire Department, Dennis Sullivan, to cost
$1,500,000. This cost is well within the financial
ability of the city and would add no great burden to
the tax roll. The land demanded by the city for
the purpose of street cutting and widening would
be paid for on the basis of the assessment of 1905-
1906. Where diagonal streets create badly shaped
lots the city will buy these lots and after shaping
them up will reimburse itself by selling them. By
these improvements an immense increase in the
value of real estate will result. Mr. Manson esti-
mates not less than $75,000,000 will be added to
the assessed value of city real property in ten or
fifteen years. These vital improvements cannot be
accomplished by individuals, but must be clone by
the State and the city, and that speedily, as in a few
years the opportunity to prosecute them to a suc-
cessful conclusion will have disappeared. Certain
constitutional amendments are absolutely necessary

to enable this plan to be carried out, to wit:

1. The amendment authorizing the depositing
of State, county and municipal funds in national
and State banks, to be secured by deposit of United
States, California, county, municipal and school dis-
trict bonds of the State. This will secure interest
for funds otherwise locked up in treasuries, and will
create a market for our local bonds, as bankers will
have to purchase them in order to have the necessary
security.

2. The amendment repealing the mortgage tax,
which tax keeps Eastern and foreign capital out of
California and prevents the selling of industrial and
commercial bonds.

3. The amendment authorizing San Francisco
to issue bonds running 75 years instead of 40 years.
This will diminish the burden on taxpayers.

4. The amendment authorizing bonds of the
State and its political subdivisions to be made pay-
able any place in the United States, which will make
the bonds more salable.

5. The amendment conferring power on the Board
of Supervisors of the City and County of San Fran-
cisco to buy and sell land for a period of two years.
This amendment is absolutely necessary for the pur-
pose of street cutting and widening. It contains
sufficient safeguards to prevent the will of the peo-
ple from being abused and should by all means be
embodied in the Constitution.

Every elector in the City and County of San
Francisco should be in favor of the above-named
Constitutional amendments, and should use his best
efforts to bring about favorable action throughout
the State.

The San Francisco Real Estate Board compli-
ments Mr. Manson upon his able and feasible plan
and heartily endorses it, and calls upon all public
officials, civic bodies and individuals to give the
same their strong support.

Now is the time to bring about these improve-
ments, so that our city may speedily be reconstructed,

34

and forever hold a benign commercial domain over
the western shores of the Pacific Ocean.
SAN FRANCISCO REAL ESTATE BOARD
J. R. Howell, President.
B. L. Cadwalader, Secretary.

37

Realizing that without unity of action nothing
can be done, the undersigned citizens, firms, corpora-
tions and associations recommend to His Honor the
Mayor, to the Honorable Board of Supervisors of
the City and County of San Francisco, and to the
Board of Public Works, the adoption of the plans
suggested by Mr. Marsden Manson, which appear on
Map "A," acompanying Mr. Manson's report.

We do further recommend that the cost of the
improvements be defrayed by a bond issue to be
made by the City and County of San Francisco,
said bonds to be payable in not less than forty years
and to bear interest at a rate not exceeding four
per cent.

We do further petition all the authorities and
officers of the City and County of San Francisco to
take steps to carry said plans into force and effect
at the earliest date possible.