Regional Planning.—Of late much has been written and something done, in the way of the survey of the needs and resources of regions much larger than a single city or town. This idea has now spread to city planning. In planning, as in other fields, the unit varies with the purposes and scope of the undertaking; for some purposes the city, for others a district of which the city is the focus, a larger district embracing many cities, or even the state, the nation or the continent itself, being chosen. The object of the regional plan, as in all planning, is to bring about as efficient and unified a physical development of the unit as possible. A regional plan supplements, rather than supplants, the plans of the individual communities in the region selected.

City Planning Distinguished from City Construction.City planning, as its name indicates, deals with the planning of communities rather than with their construction. The importance before doing the work of making the plan and following it except as deliberately varied or supplemented, is more or less self-evident, and will be shown more fully later. Certain phases of the law and practice of city construction, however, are so closely related to the planning of that construction that they should be considered in connection with it, and are, therefore, to be regarded as a part of city planning, to be taken up in treatises on that subject, such as this.

Scope of City Planning.—Since the purpose of city planning is the attainment of unity in city construction, it includes not only the planning of the community as a whole but of any portion or detail of it, viewed as a part of the entirety. Thus the location of a park, and of its transverse drives, walks, etc., in their relation to the thoroughfare system of the city, and the determination of the general character of the park as a part of the entire recreation system of the city, are functions of city planning no less than of landscape architecture;. the determination of details of the scheme of planting, of scenic drives and walks, etc., are matters of landscape architecture into which the city plan cannot afford to go without risk of dissipating energy and failing to accomplish its larger object of general coördination. Similarly, a scheme of main trunk

sewers, their controlling grades, capacities and points of outfall, as related to street locations, etc., is a matter of city planning no less than of sanitary engineering; the detailed design of these sewers and the design of local laterals, etc., is an important matter of sanitary engineering but of minor concern in city planning.

Building Regulation and Zoning.-City planning is sometimes thought of as the planning only of the public features of a city, such as its streets, parks and public buildings. Most of the land within the limits of a modern city, however, is privately owned and used; and if the entire city is to be planned, the development of this land must also be guided. For the most part city land in private use is employed or destined for employment as the site of buildings. Almost invariably the construction of buildings in cities is governed by a voluminous and detailed building code, most of which consists of rules with regard to stresses and strains, the choice of materials for fire proof and semi-fire proof buildings, the minimum width of stairs, plumbing, height of rooms, etc. This is a science in itself, into which city planning cannot go with profit either to building construction or to city planning. It can deal, however, with those aspects of building which more directly affect the use of other properties, such as the height and area of structures and their general use, especially when these rules vary in different parts of a city, thus establishing districts each to some extent with a character of its

own.

Housing and City Planning. Of the buildings of the modern city, erected for all the many purposes for which buildings in cities are needed, residences are by far the most numerous. In the construction of these buildings, city planning may regulate the more general aspects, but cannot go into detail. For the good of both, housing and city planning as sciences should remain distinct. Nevertheless, the difficulty of the housing problem, and the importance of planning in its solution, has often resulted in legislation dealing with both subjects within the limits of the same law.

Other Phases of City Planning.-Recent city planning

literature abounds in pleas for planning activities variously called rural or country, metropolitan, county, state, national, interstate and international, planning. These expressions have never as yet been clearly defined or distinguished, and are often used by different writers with different meanings. On analysis they will, it is believed, be found to signify: (1) planning of territory of a particular character; or (2) planning within the limits of a particular governmental unit; or (3) planning under the jurisdiction of a particular governmental unit; or (4) more than one of these activities.

Rural Planning; Country Planning.-Rural planning may have one or more of the following interpretations: (1) planning of territory, rural in character, for farming and similar rural uses. Important as this is for national life, obviously it is not city planning; (2) planning for urban use of those parts of a district, prevailingly rural in character, which are, or are likely to be, built up with any degree of concentration, such as present or prospective villages and smaller and more amorphous aggregations. Such planning comes within the scope of city planning as defined and discussed in this work; (3) planning in territory, rural in character, of roads, parks, drainage systems, etc. In so far as such roads and other features are entirely for rural use, this is not city planning; in other cases it may properly be regarded as within the scope of city or regional planning and is so treated in this work; (4) planning within the limits of, or under the authority of, a non-urban local governmental unit. The territory may be urban or rural in character. This expression is used in this sense, at times, in England and Canada, but not in the United States.

Country planning has the same meaning as rural planning, (1), (2) and (3).

There is a growing tendency to treat as an entity the various phases of rural or country planning, both those which may be considered as city planning and those which cannot be so i considered. This tendency is the result of the recognition of the fact that both rural and city planning are parts of the more inclusive task of community organization, between which no sharp line can be drawn.

Metropolitan Planning.-Metropolitan planning is the planning with a view to the conservation both of their diverse and of their common interests, of a city or group of cities and the outside territory within its sphere of more immediate influence. In the accomplishment of this result, it is the division of this district by jurisdictional lines that creates the administrative difficulty. In a number of foreign countries, in cases where the district is entirely within the limits of a larger local government, this government is given the necessary jurisdiction; and where the national or the state government has assumed supervision over local planning, it has often undertaken this task. In this country, as a partial solution of this problem, a number of states have given the city a limited planning jurisdiction outside its legal boundaries; and as a more complete solution, in one case, have created an inclusive planning authority, leaving jurisdiction in other matters to the various local authorities. Where the lines dividing the city or district are provincial or state, or are national, the administrative problem is still more difficult. These questions will be taken up hereafter.

All metropolitan planning is a species of regional planning, a proper distinction between the two being perhaps that metropolitan planning concerns itself with the more distinctively urban problems, and regional planning to a greater extent with the development, conservation, and utilization of natural re

sources.

County Planning.-County planning may have one or more of the following meanings: (1) the city planning under county authority or otherwise of the more populous parts of the county; (2) the regional planning of the county or of some of its main features, such as principal roads, parks, drainage systems, etc.; (3) the administrative supervision of local planning in the county.

State Planning.-State planning may have one or more of the following meanings: (1) the planning by the state of its capital city, or such parts or features of it as are within the direct planning jurisdiction of the state government; (2) the coöperation of the state with the city and other local authorities

in the planning of the state capital and the neighboring territory; (3) the administration and supervision by the state of planning by local authority; (4) the direct planning of localities by the state; (5) the promulgation and enforcement of certain planning rules applicable throughout the state in all cases or in all cases of the same class or character, as for instance minimum requirements as to the space to be left around the dwellings, to be found in state housing and tenement house laws; (6) the regional planning of the state. Such planning may be (a) the more or less complete regional planning of certain portions of the state, or of all the territory within it; (b) the planning, for all or a portion of the state, of certain features properly part of a complete regional plan, such as certain systems of roads, parks, drainage, etc.; (c) the conservation, development, and apportionment of the resources of the state, or one or more of them, as is done in many states to some extent by state boards of conservation, etc.; (d) the distribution of industries and population throughout the state with relation to agricultural and other resources. This might be done to a very considerable extent by regulating the location of railroads and fixing passenger and especially freight rates, upon which industry, and the distribution of population, are so largely dependent.

National Planning.-The distinction between state and national planning exists in countries which are federations of states or similar units, like Canada or the United States, and has no place in countries with a centralized government, like England and France. The scope of state and national planning, respectively, in federations, depends upon the federal constitution of the country in question. The jurisdiction of the states and the nation in the United States, under our Constitution, will be taken up in that part of this work devoted to administration. In brief this jurisdiction is as follows:

The United States has (a) full planning power over those portions of the country which are not within the limits of any state, except in so far as it has delegated this power to local governments; (b) planning power over areas within the states, acquired for special federal purposes, such as forts, sites of