', . ....

MINISTRY OF HEALTH

GARDEN CITIES AND

SATELLITE TOWNS

REPORT
OF DEPARTMENTAL COMMITTEE

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LONDON
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 CONTENTS

PAGE

Report ... 4
Note A (SchAmes unde; 'l.'own and Country Planning Act, 1932) 16
Note B (Movement of Industry) 17
Note C (Duties of Minister of H ealth under Town and Country 18
Planning Act, 1932).
Note D (Provisions as to Garden Ci ties in Town and Country 19
Planning Act, 1932).
Note E (Ownership of Fee Simple) 20
Reservation 23
pissenting Note I 23
Dissenting Note II 24
Summary of Conclusions and Recommendations 25

Appendices:
I.-List of Witnesses 28
n .- Particulars in regard to
L etchworth 28
Welwyn 29
Wythenshawe 30

The estimated gross cost of the preparation of this Report of

the Committee (including the expenses of the Committee) is
.483 168. lld., of which .19 15s Od. represents the gross .cost of
the printing and publishing of the Report.
 REPORT

DEPARTMENTAL COMMITTEE ON GARDEN CITIES AND

SATELLITE TOWNS

Members.
The LORD MARLElY, D.S.C., D.L., J.P. (Chairman).
R. BELL, Esq., C.B .E., M.A.
J.,. C. BURLEIGH, Esq.
Sir THEODORE CHAMBERS, KB.E., J.P.
Sir ERNEST BAIN, KB.E., LL.D.
Alde=an ROSE DAVIES, M.B.E., J.P.
J. CHUTElR EDE, Esq., D.L ., J .P.
T. PE'IRSON FRANK, Esq., M.lnst.C.E., F.B.I.
Sir CHARLES GOTT, M. lnst .C.E., F.G.B . , F.S.I., F.A .I.
Alderman W. T. JAOKSON, J.P .
J. NORVAL , Esq., J.P., F.R.P.S .
Sir RAYMOND UNWIN, P.P.R.I.B.A.
'Sir WILLIAM WHYTE, O.B.E., J.P.
Mr. E. S. HILL (Secretary).*

TERMS OF REFERENCE.
To examine the experience already gained in regard to the estab-
lishment of garden cities and villages and satellite towns and to
make recommendations as to (a) the steps, if any, which should be
taken by the Government or local authorities to extend the pro-
vision of such garden cities, villages and satellite towns; (b) in
particular how the location of industries in them can be stimulated;
(c) the questions of finance and local government connected with
their establishment; and (d) what further measures, if any, can
and should be taken for securing that in the extension of existing
towns, industrial, residential and other development are properly
correlated.
* Mr. H. A. de Montmorency, was appointed Secretary to the Committee,
but was promoted after t he inquiry started, and Mr. E. S. Hill was appointed
in his place.
292 11.. A2
DEPARTMENT AL COMMITTEE ON GARDEN CITIES AND
SATELLITE TOWNS

To
The Right Hon. Sir E. HILTON YOUNG,
G.B.E., D.S.O., D.S.C . , M.P., Minister of Health ,
and
The Right Hon. Sir GODFREY F. COLLINS,
K.B.E., C.M.G., M.P., Secretary of State for Scotland.
GENTLEMEN,
1. We were appointed by your predeoessors, Mr. Arthur
Greenwood, M.P., and Mr. W. Adamson, on the 31st July, 1931,
with the following terms of reference : -
"To examine the experience already gained in regard to
the establishment of garden cities and villages and satellite
towns and to make l'ecommendations as to (a) the steps, if
any , which should be taken . by the Government or local
authorities to extend the provision of such garden cities and
villages and satellite towns, (b) in particular how the location
of industries in them can be stimulated, (c) the questions of
finance and local government connected with their establish-
ment and (d) what further measures, if any, can and should
be taken for securing that in the extension of existing town s
industrial, residential, and other development are properly
correlated.' ,
2. The proceedings of the Committee were, for reasons of
economy, held in aibeyance on the formation of the National
Government and accordingly we did not meet until the 15th June ,
1932. Since then we have met on 20 occasions, and have examined
three witnesses giving evidence on their own behalf a,nd witnesses
representing 16 bodies, of whom particulars are given in Appendix 1.
3. The Committee visited Letchworth Garden City, Welwyn
Garden City and the Wythenshawe Estate of the Manchester
Corporation, and have carefully studied the experience there
gained. Particulars regarding these Garden Cities and the
Wythenshawe Estate are given in Appendix II.
4. The first three sections of our terms of reference lay particular
stress upon " Garden Cities" " Garden Villages " and " Satellite
Towns " a,nd would appear to invite our consideration of them as a
detached an.d isolated problem. We deem it essential at the outset
of our report to state that our investigations have led us to view
" Garden Cities " and other developments of a similar kind rather
as elements in the wider sphere of regional and national planning
 5
than as constituting a problem apart, and we have formed the
impression from the evidence given before the Committee that it
is in this light that the witnesses have regarded the problems
before us.
n we view in correct perspective the ordered planning of the
whole country, which may be taken to be the fundamental purpose
of Town and RegionaI Planning, then the Garden City, the Satellite
Town, and the Garden Village fall into place as incidental items
in the general plan.
n is therefore mainly in relation to the proper and orderly
correlation of industrial, residential and other development specifi-
cally referred to in connection with the expansion of towns in the
fourth section of our terms of reference that we propose to consider
the problem involved in our terms of reference taken as a whole .
5. The "GaJ:'den City" mov ement originated with Howard's
advocacy of the principle of building new self-contained towns
surrounded by an agricultural or rural protective belt, such towns
to be designed and planned as a whole and to provide for industry
and residenoe with all other sections of a community, and adequate
cultural and recreational facilities. These new towns might be
built in any position which offered the necessary facilities, such as
advantageous rail and road connections, and where an adequate
supply of wat er and efficient drainage arrangements were, or could
be readily made, available. Such were deemed to be the essential
physical circumstances. Two other conditions of a sociological or
economic character were considered by Howard to be desirable.
The whole area selected for the site of the new tOWEl, including the
agricurtural belt, should be in the single ownership of the authority
undertaking the development; and the profits derived from the
ownership of the land after providing a certain maximum return
upon the capital involved should be used for the benefit of the
inhabitants.
The term " Satellite Town" was adopted at a later date to
describe a development on " Garden City " lines in the vicinity
of an existing population centre, with which it would in many
ways have social, cultural and commercial contact, and in the
existing services of which it might participate, as distinguished
from a Garden City at a considerable distance from any existing
centre of popUlation, dependent in most respects upon its own re-
sources and being mainly self-sufficient.
The term " Garden Village " has been used in a somewhat loose
sense as indicating a development of moderate dimensions. It
might be described as a village laid out on " Garden City" lines.
The terms "Garden City", "Satellite Town" or "Garden
Village " convey no clearly defined technical meaning. In fact,-
durmg the last two decades there has arisen considerable confusion
between the terms, and their use has been often indiscriminate
29211 A3
 6
and misleading. It is indeed questionable whether at th~s da~e
there is any great value in the maintenance of the expressIOns In
any definitive sense.
The broad principles of what may be called the " Garden City"
type of development have been generally accepted by Town Planners
throughout the world, and it would possibly be doing the best
service to planning as a whole if the expressions .were: no longer
used as having peculiar significance in regard to mdlvldual l~cal
ities. When all development generally ought to follow these lmes
it appears unnecessary to label particular places with a special
descriptive suffix which may carry with it both misunderstanding
a,nd prejudice.
6. It is in relation to the broader and more far reaching aspects
of Town and Regional Plarming that we ,"dvocate the fullest
adoption of that type of development usually associated with the
j,dea of a "Garden City ". It is on these lines that the vast
amount of new development now taking place should be directed.
Not only in the vicinity of the Metropolis and in the Home Counties,
but also to some extent throughout the country development is
continuing to be casual and haphazard. Large areas of the country-
side are being disfigured unnecessarily, while the resultant
agglomerations are usually unco-ordinated; that is to say one type
of development comes into being without relation to another. By
means of planning schemes under the Town and Country Planning
Act, 193'2, and the Town and Country Planning (Scotland) Act,
1932, badly located development can be prevented to a small ex-
tent, but the full value of planning powers can only be obtained
if , in those areas in which development is permitted, steps are
taken to see that there is proper co-ordination between the variou~
fo=s of development-residential, commercial and industrial-not
only on the plan but in actual fact. *
We have seen during the last decade the anomaly of the develop-
ment of large dormitory housing estates without provision for local
employment, and, during the same period, the development of
industrial areas without provision for the housing of the work-
people in their vicinity. Slum clearance schemes are being under-
t~ken with insufficient consideration of broad re-planning prin-
Clples; suburJ:>an development is extending without the provision
of adequate open spaces and playing fields, while " ribbon" de-
velopment--that is to say the building of continuous rows of houses
on each side of the main roads-is continuing without regard to
its effect upon their traffic carrying capacity or the cost to Local
Authorities of providing the necessary public services. It may,
further , be noted that the" ribbon" development that has taken
place has not only increased the dangers of the roads but has
already led to the introduction of drastic speed restrictions upon
* See Note A.
 7
the very roads that were built to carry traffic rapidly in and out
of our towns . It would be difficult to exaggerate the many evils
and dangers which this haphazard and unco-ordinated land develop-
ment brings in its train.
The growth of towns has hitherto taken place on the one hand
by more or less continuous, and generally haphazard, expansion
around the circumference much like the flowing of flood waters
over surrounding land, and on the other by the casmtl development
of building on detached areas of land scattered over the surrounding
region. At a later stage the gaps between the patches of suburban
01' scattered building are filled in from time to time by fresh develop-
ment which may hav.e no relation to that which ha;s preceded it.
Serious injury to the amenities and values of residential areas
hemmed in later by undesirable industrial or business development
has been a common result of the lack of a general plan.
The general sporadic extension of building is not only costly as
regards services but has also the effect of destroying the amenities
of the surrounding country, the area deteriorated being often far
greater than the area actually built upon.
With the closing up of development which follows this hap-
hazard intrusion into the country, open spaces which should have
been jealously guarded in order to provide adequate room for play-
ing fields and parks for the ever growing urban population, are lost
for ever. The result is that the working population, virtually im-
prisoned in the central districts, are unable without serious expendi-
ture of time and money to enjoy adequate healthy recreation in
their leisure hours .
The scattering of building patches, both on account of the
enormous area affected compared with that actually used for sites
of buildings, and of the extent to which the frontage of roads over
which people pass is occupied, has given the impression that the
area of land occupied by house sites is far more extensive than
is actually the case, and that there is insufficient space available
for the spread of the population outwards. Even on the extravagant
assumption that the whole population of the County of London
were to migrate into the outer area of Greater London and join
the existing popUlation already resident there, leaving the Connty
more empty of residents than the City is to-day, the whole of
these families of Greater London housed in cottages at ten to the
acre would only occupy 377 of the 1,729 square miles available
in Greater London outside the L.C .C. area. The occupied area
would represent' a belt only 6t miles wide added to the County
area, the radius of which is about six miles, leaving a belt of un-
occupied open country over 11! miles wide before the boundary
of Greater London would be reached. The problem in fact is not
one of the amount of space but of its proper utilisation.
Largely as the result of the conditions described a demand arises
for higher and yet higher buildings in the centre, and the growt.h
29211 .A. 4
 8
of population living in, or daily using, the city, renders the roads
which were designed in past times under different and far more
simple conditions inadequate for the increased traffic. As a result,
congestion becomes continually more serious and its economic dis-
advantages more deplorable.
At the same time the increase in the population raises the value
of land in the centre for commercial and trading purposes thereby
making its cost prohibitive for housing purposes without some form
of direct or indirect subsidy. The policy which has been tested of
building extensive and purely dormitory housing estates outside
our large towns for those working in those towns, has provided no
satisfactory solut-ion of the problem . Housing estates of this type
may be preferable to high tenements in the central areas, in that
they do not tend to the same degree to create central traffic conges-
tion, and they provide better living conditions for the families who
occupy them; but they again produce serious economic and
sociological problems. Waste of time and energy, together with
heavy outlay, are involved in taking large numbers of workers
daily to and from their work in the city; and the fares necessarily
form a drain on the family incomes. That the trouble and expense
can be saved by crowding the workers into high tenements in
central areas, and thus enable them to afford the higher rents there,
is often urged. The theory, however, supposes a general nearness
to employment enjoyed by the tenement dweller, and a degTee of
abstinence from use of the many means of transport in the town on
the part of the family, for which little evidence is forthcom ing;
indeed there is something to be said for the opposite contention.
7. In our opinion the time is ripe for serious consider ation of the
methods which should be adopted in regard to the planning of new
areas and the re-planning of the present built-up areas throughout
the country. We consider that the present time offers a favourable
opportunity for the introduction of carefully thought out plans of
development and reconstruction. The universal desire for a
vigorous slum clearance policy, the suggested adoption of methods
for the reconditioning of habitations which are not yet ripe for
demolition, the active use of planning powers hy the Local
Authorities, taken in conjunction with present price levels and
present rates of interest on capital, constitute factors favourable to
a far wider and fuller treatment of the subject. The time has come
to discontinue the haphaza;rd methods which were perhaps unavoid-
able in the nineteenth century. -
In place of the casual distribution of industry and popUlation and
the often belated introduction of transport facilities we advocate a
more definit~ly planned guidance of the distribution of industry
and populatIOn based on the fullest possible information. The
planning of roads , control of the location of factories, shops and
other commercial buildings , the provision of playing fields, parks
 9
and open spaces, the relationship of all these things to such services
as main drainage, water, gas, electricity, transport, and the like,
constitute a single problem, which should be conceived and dealt
with in its entirety, and not left to the chance adaptation
of conflicting circumstances.
Moreover a town should be the dwelling place of a community;
and the conception of a " Community" implies personal relations
and a proportional presence of all sections of the Community-
whether such classification be by difference of training, occupation,
or otherwise. Segregation of one class in a district, whether in high
tenements within the great cities or in one-class suburbs or housing
estates, must tend in the nature of things to lead to undesirable
social reactions .
8. Broadly speaking, we are of opinion that when a town reaches
a certain size (which must vary within wide limits) contiguous
growth round the fringe tends to create evils that outweigh any
advantages; and we therefore advocate a definite policy of outward
development taking the form of complete planned units with due
provision for industry, residence, social services and recreation, at
some distance from the original nucleus-a type of development for
which the term" Satellite Town" is not inappropriate .
A town may become overgrown as a single unit, just as may
happen t{) any other organism. The community links in such case
become weakened or lost. The remedy may well be found in
organizing growth beyond such limits by means of satellit-e units
having some independent local life but depending on the parent
town for those conveniences and amenities which only a large
population can support. Such organization to be effective must 00
provided for and expressed in the physical form of the town. The
units of development should themselves be organized on more or
less self-contained lines according to their distance from the parent
town.
The suggested form implies that there should be maintained
between such satellites and between them and the parent town
adequate open areas to separate them and to provide for all the
needs of both for open spaces. Experience shows that about
seven acres per thousand people is needed for recreation of all kinds.
When increasing average densities are considered it is seldom
realised how soon the limit is reached beyond which this supply
becomeR impossible . The belts of open land here proposed would
provide ample area for this and other purposes.
Immediately the question is viewed in this light it is possible to
consider many problems in their corred perspective: e.g. the rival
merits of high buildings in the form of ten~ments as a temporary
remedial measure at the present juncture, and the more far-sighted
 10
policy involving the decentralisation of industry and the opportunity
to provide individual cottage homes.
We do not suggest'tha,t there are no circumstances in which it
might be desirable to build relatively isolated and detached new
towns of the Garden City type. There may be economic justifica-
tion for such new towns in connection with the development of
mineral deposits as in the case of the Kent coalfield or the Northamp-
ton iron deposits, and in certain other cases, but we think that
normally it is in the direction of Satellite Towns having an economic
bond with existing centres of population that it will be found most
desirable to proceed.
As long ago as 19~O a Committee of which Mr. Neville Chamber-
lain was Chairman in reporting to the Minister 'of Health on the
principles to be followed in dealing with unhealthy areas said
" many of the factories now located in London might apparently
have been placed elsewhere without any disadvantage to them-
selves, and we are strongly of the opinion that side by side with the
restrictions upon factories in London, there should be encouraged
the starting of new industries and the removal of existing factories
to Garden Cities which should be founded in the country where
the inhabitants will live close to their work under the best possible
conditions. ,.
It was even represented to us as desira.ble that no business should
be carried on in the central areas of a great city that can be as
efficiently and economically carried on outside it.

9. We have given considerable thought to the question of the

machinery which should be established to give effect to the prin-
ciples we have enunciated. In the first place we are of opinion
that it is essential that the problem should be dealt with as a
natIonal problem affecting the country as a whole.
Weare of opinion that the first essential step is that the
Government should establish at the earliest date possible a
Planning Board appointed by the Minist~r of Health who would
answer questions in Parliament and be ultimately responsible for
it, under whose aegis should be brought the question of land
development throughout the country. By this means alone do we
see any possibility of an effective handling of the general situation
on broad lines. The Board should have relative permanence and
its personnel should not be liable to change with a change of Gov-
ernment. Its first task would be to make a complete study of the
problem as affecting the country as a whole, with a view par-
ticularly to determining by what broad distribution of popUlation
and industry the resources of the country could be most fully .
utilised, and how the inconvenience and waste which result bo th
nationa.lly and locally from a haphazard distribution could be
 11
avoided. We have been impressed by the absence of any adequate
organisation empowered to acquire statis.tics and other information
directed to the questions at issue.
There is much loose talk, ior example, about the movement of
industry from the North to the South." As far as our investigations
have gone, we are inclined to think that this movement has been
much exaggerated, if it can be said to exist at all. Owing to the
changes that are ta.ki.ngplace in our industrial life we ha.ve wit-
nessed during the last decade a diminution of employment in
connection with certain industries, located in various parts of the
country, followed by a movement of the population from such
areas, to the grave disa.dvantage of many of our older townE!. At
the same time we have witnessed the development of new industries
in and around the Metropolitan area, which industries have attracted
population to their vicinity. This is not a movement of industry
from the North to the South but rather a diminution of industry
in certain parts of the North and the establishment of new industries
in certain parts of the South. A further investigation of these
tendencies is desirable coupled with an examination a.s to how far
such tendencies are likely to be permanent or ephemera.l. A close
enquiry should be ma.de to a.scertain how far it may be possible
to attract new industry to the areas where unemployment is rife
owing to changed economic conditions, having regard to the fact
tha.t Buch areas have been already provided with adequate services
E!uch as wa.ter, gas and electrica.l power and have in existence
schools, institutions, churches a.nd a.11 the accessories of modern
life. Such a resear,c h reorganization, which would be part of the
machinery of the Planning Board, would also investigate from a
national sta.ndpoint the bearing on town development of the de-
clining birth rate, the diminishing size of the family units, the
migra.tion of popula.tion and the tendencies to self-contained
nationalism in production and consumption; and would study the
effect these tendencies may have upon the kind of production which
is likely to increase and the locations which will be found most
desirable for such production.
Having ascertained the essential requirements of the situation
the duty of the Board would accordingly be to guide development
as far as might prove practicable in the required direction whether
that development be by Local Authorities or by private enterprise.
It would be necessary that the Board should be notified of a.11
planning schemes submitted to the Ministry of Health for approv.al.
The aim of the Board would be to secure a proper distribution
of development, and, where neceooary, to bring about modification
in the proposals for developmeJDt to be carried out by Local Authori-
ties themselves and changes in the general direction of development
proposed by private enterprise through an appropriate exercise of
* See Note B.
 12
the powers of guidance given to it and those of control which Local
Authorities already possess. We think it is unnecessary and in-
appropriate for such a Board itself to undertake development.
In some cases it would only be necessary for the Board to induce
the Local Authoritie& to exercise those executive functions which
they already possess under statute, whether of action or control,
from a broad standpoint, and with a clear realisation of the essential
national, regional and local needs as seen by the Board after com-
prehen sive and impartial study. They could do much , too, by
promoting co-operation among Authorities and between land owners,
and by fostering a oo=on aim and outlook. We foresee, however,
that in some directions limitations would be discovered in the
effectiveness of the existing planning or executive machinery, and
i.t would be the duty of the Board to urge the appropriate Govern-
ment Departments to secure such legi.&lative or administrative
changes as might be necessary to perfect the machinery. The Board
would be entitled where necessary to make representat ions to the
Minister of Health for " default powers " to be put in operation.
10. Our investigations have convinced us that the question of
compensa:tion is one of the major stumbling blocks in the way of
securing a more advantageous distribution of population and in-
dustry; and we, 3ID.ticipate that one of the earliest tasks of the
Planning Board would be to work out, in relation to the problems
itefore them, some more equita:ble method of dealing with this
difficulty.
The essence of the problem is that good planning and wise dis-
tribution of building development do not diminish land values ;
on the contrary, so far as they are on sound lines they are likely
to increase their total. Any planning, however, must clearly result
in a distribution of values different from that which would have
been likely to result from haphazard building development. Con-
sequently though planning does not diminish the total sum of land
values, it certainly does redistribute them. The prospect of realisa-
tion is diminished in one place and increased in another. This
condition the Town and Country Planning Act seeks to meet by
recognising claims for betterment as well as for compensation.
Unfortunately, injury is more acutely felt and more readily located
than benefit; and compensation is more eagerly claimed than petter-
ment is acknowledged. None the less where a redistribution and
not a diminution of values is concerned, some fairer method of
securing that the losses in one place due to planning can be com-
pensated out of a fund drawn from the gains equally created in
some other places is obviously in the public interest; and it should
not be impossible to devise a scheme whereby 'p art of the increment
value accruing to owners of land should be made availabIe as a
fund out of which compensation for injurious affection might be
met. When they had evolved a suitable scheme the Board would
through the appropriate Government Department seek to obtain
 13
legisla,tive sa.nction for it. Some widening of the present objects
of phnning a,s defined in the statute would also appear to be neces-
sary, to enable a national, or even a regional, outlook to be a,pplied
in practice to questions of distribution; a,nd it would be for the
Boa,rd to recommend such cha,nges as appeared to be requisite
in the light of their study of the concrete problems.
11. It is obvious that the ma,gnitude of the task dema,nds that
the Board should be composed of persons of the highest capacity, .
commanding the respect and confidence both of Local Authorities
and of private undertakers a,nd selected with regard to no other
consideration tha,n their suitability for the work allotted to them.
The Board would be altogether different in character from an
Advisory Committee a,dvising on general principles arising out of
materials placed before them. The Planning Board would, to a,
large extent, be collecting its own materia,ls; a,nd, moreover, would
be engaged in activities of a very va,ried character in order to secure
the translation of its policy into pra,ctice. All the members must,
therefore, necessa,rily be in a, position to devote a substantial pro-
portion of their time to the work ; and the Chairman a,nd one or
twO members should probably be required to give their whole time
to the work of the Board.
The Boa,rd must be small, in our opinion, if it is to be effective,
a,nd we suggest that it should be composed of a Cha,irman and
not more tha,n four members. We recommend that there should
be power to pay salaries to members of the Board, since we doubt
whether it would ordinarily be practicable to form it wholly of
members willing to give sufficient of their time to the work and
suitable for the purpose. We do not , however, regard it as essential
tha,t all the members of the Boa,rd should be paid if suitable per-
sons a,re willing to give their services.
The Boa,rd must necessarily be in the closest possible relationship
to the va,rious Government DeparGments concerned, pa;rticula,rly the
Housing and Town Pla,nning Depa,rtment of . the Ministry of
Health and also the Board of Trade a,nd the Ministries of Agricul-
ture, Labour and Transport .
The essence of what is required is a,n organisation to think, in
vestigate a,ud correlate, and a,b1e to exercise driving power. Thl>
problem falls within the sphere. of no one Government Depa,rt-
ment; and for that reason alone new ma.chinery is necessa,ry to
focus the interest and action of the various Departments in relation
to it. Moreover there a,re obvious disadvantages of placing in the
same hands (which in view of their close concern with the matter
would ha,v,e to be the Ministry of Health) the function of exercis-
ing the necessa,ry driving power and at the sa,me time the function
of control on which private and public interests depend for pro-
tection. It is inherent in our suggestions that the Board should
endea,vour to secure the definite location of future development
 14
where deemed advantageous and its consequent exclusion from
other areas . It is inevitable that private interests might thus be
seriously affected. It appears to us that it would be an invidious
task for the Ministry of Health, who are charged with the duty
of adjudicating on objections mooe by owners to planning schemes,
to be engaged in promoting or encouraging schemes of this charac-
ter. An independent Board would for this reason be in a much
stronger position than the Ministry of Health* to formulate pro-
posals and apply the driving power, at least so long as the Ministry
continue to exercise their present powers of con trol.
Complete and energetic application of the Town and Country
Planning Act may do much to prevent haphazard development,
and, by zoning on broad lines, to check the senseless sca,t tering
of building, but the realisation of development in units, complete
enough to be socially healthy and economically efficient needs a
more positive and active agency than the mere making of a plan
on paper.
12. The Committee are of opinion that the financial and ad-
ministrative difficulties involved in an undertaking of the nature
of a Garden City renders it improbable that the future will see
m any independent developments of the character of Letchworth
and Welwyn Garden Cities, admirable as have been the physical
and social results. Letchworth and Welwyn have provided an
object lesson in garden city development for the whole world, and
the principles involved in their creation provide a practical guide
which in many ways is being followed everywhere. It would be
impossible to express in too strong terms the debt which is owed
to the pioneers who have been responsible for these two towns.
All that enthusiasm could supply was supplied by the keen in-
dividuals who embarked on these undertakings ; but credit terms
were necessary which were unavailable to private persons, and
far more force was required to make things happen by bringing
development rapidly to the growing towns that can ever be in
their hands.
H aving regard to the fact that we view the problem mainly in
its relationship to existing centres of population where congestion
already exists and where by slum clearance and replanning an
opportunity may be afforded for decentralisation and outward de-
velopment, we have come to the conclusion that it is the function
of the Local Authorities of the greater towns and cities to under-
take such development.
We see no serious difficulty in the setting up of an adequate
and efficient development organization under the aegis of the Coun-
cils of our great towns including London.
Section 35 of the Town and Country Planning Act, 1932, t which
repeats provisions that hav.e been on the Statute Book for more
* 'Rp.a ,Note C. t AM Note D.
 15
than a decade, contains all the necessary essentials to action. This
section empowers a Local Authority (including a County Council)
to acquire land either by agreement or compulsorily and to develop
It as a GaI'den City. What we propose is to instil life into these
provisions in order that they may be used.
We are convinced that if the fee simple'" of the projected area of
development is held by or on behalf of a Local Authority there will
be found to be no insuperable difficulties in administration, or in
contacts with other Local Authorities responsible for local govern-
ment administration in tlie case where the land is outside the
boundaries of the promoting Authority. While the view has been
strongly expressed to us that tIie Local Authority acquiring the
fee simple should become .t he administrative Authority over the
area we do not consider that such a change is necessarily involved.
Each case would no doubt require to be considered on its merits
when all the circumstances affecting a possible change of local
govemment administration would be brought under review.
It would', of course, be part of the duty of the Planning Boa.r d
to encourage, where necessary, the promotion of proposals under
Section 35 of the Town and Country Planning Act, 1932, and to
advise in detail on the formulation of the proposals. They would
also be in a position to advise the Minister of Health in regard to
any proposals under this Section submitted for his a,pproval.
13 . In section (b) of our terms of refer ence we are asked to
consider in particular how the location of industries in satellite
towns can be stimulated. In the main this location would follow
naturally from the definitely planned guidance of the distribution
of industry and popUlation which we envisage. In the future, as
in the past, we anticipate the development of industrial activities
and the establishment of many new industries. These would be
directed to satellites in common with other new development as
part of the general plan for securing sound and orderly location.
Substantial facilities can moreover be offered by those who may
be establishing satellites. The reservation of suitable land for
industrial areas where ample space is available for good lay-outs,
and where ground can be reserved for reasonable expa,h sion at low
cost; the proper location 'of these areas in relation toO all the avail-
a.b le means of transport; their equipment with the necessary
services and with suitable housing accommodation neal'by; and in
suitable cases the provision of factory buildings on the unit basis
in which enterprise starting on a modest scale can rent the needed
fioor space and power; these together offer advantages and oppor-
tunities for industry which have considerable attractive force, as
experience in such places as TraffoI'd Park, Slough, and indeed in
the Garden Cities of Letchworth and Welwyn proves.
* See Note E.
 16
14. It will he noted that,as regards Scotland, we have only
received representations from the Scottish National Development
Council. We enquired of the Association of County Councils and
the Convention of Royal Burghs as to whether they desired to
submit any evidence. The former body did not consider it necessary
to do so and the latter body have made no request to do so.
Probably the question is not of so great importance to Scotland in
view of the fact that it contains so few large towns and cities, and
the problems of d"istribution of the population and the like, are,
with the possible exception of the city of Glasgow, neither so
serious nor urgent. We have alrea,dy ma,de the general observation
that when a town reaches a certain size it appears to us to be desir-
able that, rather than that further extension should take place
around its circumference, the cr,eation of a satellite town should be
aimed at. We have not expressed any view on the size to which a
town might be restricted: that is probably a factor that should
vary with the circumstances, fiut there are, no doubt, severa.] towns
in .scotland to which this general principle might apply.
The question or national planning, and the need for enquiry as to
how the distressed areas can be assisted are equally important and
insisteht in Scotland.
Subject to these observations, our report aJ;ld our recommenda-
tions apply generally to Scotland in the same way as they apply to
England and Wales. We recommend , however, that a separate
Planning Board should be set up for Scotland.
15 . We desire to express our appreciation of the services rendered
to us by our Secretary, Mr. E . S. Hill, whose work has assisted us
both in connection with the Inquiry and in the preparation of our
Report.
NOTE A.
The limitations of Schemes under the Town and Country Planning
Act in relation to the cont1'ol of the nature and location of
,development.
We have considered how far lihe evils of the development which
has t~ken place in the past can be prevented in the future by the
exerCIse of powers under the T own and Country Planning Act,
1932 . We see no reason t{) doubt that by these powers, and par-
ticularly by the rapidly increasing use of the instrument of regional
planning, mixed development of an undesirable character can be
prevented. For example, the intrusion into residential areas of
factories likely to injure amenity would not be permissible :under
an adequate planning scheme, nor would the building of houses on
land unsuitajble for the purpose be a,llowed . Although, however,
the allocation of land under the scheme as between re,gidential,
commercial and industrial purposes may in this respect be sound
 17
and well-conceived, the housing development which the scheme
permits is likely to gi.ve rise to the same difficulties as have occurred
in the past, unless step by step with this growth industries are
established in those parts of the axea, of the scheme which are
alloca,ted for the purpos~. There is nothing in the mere making of
a, pla,nning scheme which affords any guarantee that factories will
in fact be built on the la,nd allocated for this purpose; or, con-
versely that, if factories ar e ouilt, houses will be built on the land
allocated for residentia,l purposes. A planning scheme, in other
words, secures that if development does ta,ke place, it shall take
place only in certain ways; it does not secure that in any pa,rticular
part of the area of the scheme it will in fact take place.
There is the further consideration tha,t a planning scheme is,
under the limitations of the sta,tute, necessarily loea,l a,nd not
national in its outlook. Its objects, so far as material to the present
issue, are to secure proper sanita,ry conditions, a,menity a,nd con-
venience, and it appears to us, therefore, tha,tunder a, pla,nning
scheme a, ban could not be p~aced on development if the only rea,son
aga,inst its ta,king place where proposed W;l.S that from the na,tional
standpoint its proper location wa,s elsewhere. The development of
land within the area of a scheme for industria,l purposes could be
prohibited if it was ullimita,ble for the purpose or da,ma,ging to the
amenity of the loca,lity. It a,ppears to us to be open to doubt
whether prohibition on the ground for exa,mple, tha,t in the national
interest the fact'ories proposed shouId ibe erected in a depressed area
could be said to be based on considera,tions of sanita,ry conditions,
a,menity or convenience .
NOTE B.
Movement 01 Industry.
In the " Survey of Industria,l Development for 1933 ", issued
by the Boaxd of Trade, it is stated (pa,ge 7) that of the new fa.ctories,
65 represent tra,nsfers from other a,reas. "Only six of these tra,ns-
fers are inter-regional, the rema,inder being transfers from one a,rea
to a,nother in the same Region. Of the six inter-regional transfers,
three are to Grea,ter London from the N .W., N.R., and S. and
S.W. Regions, two a,re tra,nsfers from Greater London to tbe
Eastern Counties and the sixth from the N.R. Region to the S.
and S.W. Region. Only three of these factories, therefore, can
be said to have moved from the North to the South of England
and in two of the three cases the factories were engaged in the
production of a,ircra,ft and the tra,nsfer was ' dictated by technical
rea,sons. This is the only evidence tha,t has been discovered of
, the drift of industry to the South ' in the sense that new fa,ctories
in the South are the results of transfers from the North."
Reference ma,y also be made to the sta,tement on page 171 of
" Industries of Greater London" by Mr. D. H. Smith-(P.S.
King & Son, 1933) : -
 18
" Of the twenty-seven provincial firms which have estab-
lished factories in this region, fourteen are from the Midlands
or the north of England, and thirteen from other counties
or from other parts of the London area. Most of the firms
whic;:h are recorded as coming from the Midlands or the north
of England have set up , assembly' factories, or branch ser-
vice stations in Greater London, and there is little evidence
to support the view (so far as this region is concerned) that
there is a southward trend of manufacturing industries from
the Midlands or. the industrial north. The weight of evidence
gathered during the period of research supports the assumption
that the manufacturing firms of this region are not encroach-
ing on the industrial activities of other parts of the country
so far as the types of industries are concerned."*

NOTE C.
J)uties of the Minister of Health under the Town and Country
Planning Act, 1932.
The Minister of Healtht has the following duties (among others)
under the Town and Country Planning Act, 1932 : -
(1) Under Section 6 the Minister has the duty of approv-
ing resolutions to prepare schemes, and he is under a statutory
obligation to consider any suggestions made for the inclusion
or exclusion of land .in or from the area of a proposed scheme.
(2) Under Section 8 the Minister has the duty of approv-
ing schemes, and is under a similar obligation to consider any
objections made to a scheme.
(3) Under Section 4 the Minister hs the duty of deciding
(after a loca;l inquiry if there is opposition) an application of
one or more Local Authorities or County Councils whether
an order (compulsory) should be made providing for the con-
stitution of a Joint Committee to discharge any of the functions
which any of the constituent members might exercise.
(4) Under Section 5 the Minister has the duty of deciding
whether an additional Authority should be added to an exist-
ing Joint Committee.
(5) Under Section 36 of the Act-
(i) the Minister may, if he is satisfied, after holding
a local Inquiry, that a scheme ought to be prepared, order
the Authority to prepare a scheme, and if the Authority
fail to prepare a scheme to his satisfaction within the time
specified in the order, may himself act in the place and
at the expense of the Authority, or in the case of the
council of a rural district or an urban district with a
* Acknowledgments are due to Messrs. P. S. King & Son, Ltd., for
permission to quote this paragraph.
t The Secretary of State for Scotland has similar . duties under the Town
and Country Planning (Scotland) Act, 1932.
 19
population of less than 20,000 may, after consultation
with the County Council, empower them to act;
(ii) similarly, the Minister may, if he is satisfied after
holding a local Inquiry that any Authority have failed to
adopt a scheme proposed by owners, in a case where a
scheme ought to be adopted, order the Authority to adopt
the scheme proposed or may adopt the scheme himself ;
(iii) if the Minister is satisfied after holding a local
Inquiry that the R esponsible Authority h ave failed to en-
force effectively the observance of a scheme which has come
into operation or any provision of such a scheme, or to
execute any works or do any things which, under the
scheme or t he Act, the Authority are required to execute
or do, the Minister may order them to do all things neces-
sary to remedy their default and for carrying into execu-
tion the scheme, or, if he thinks fit , he may himself act
in the place and at the expense of the Authority, or in
the case of a council of a rura,l district or urban district
with a population of less than 20,000 may, after consulta-
tion with the County Council, empower them to act;
(6) Under Section 10 (5) of the Act, the Minister has the
duty of deciding appeals in respect of applications under the
Town and Country Planning (General Interim Development)
Order, 1933, for 'permission to develop land.
NOTED.
Provisions in the Town and O()!Untry Planning Aot, 1932, and th e
Town and Country Planning (Scotland) Act , 1932, M to Garden
Oities. '
Section 35 of the Town and Country Planning Act , 1932 (Sec-
tion 34 of the Town and Country Planning (Scotland) Act, 1932)
reproduced with some modifications provisions which were con-
tained in Section 16 of the Town Planning Act, 1925, (Section 15
of the Town Planning (Scotland) Act, 1925), and Section 10 of the
Housing (Additional Powers) Act, 1919.
The Section provides tha,t where the Minister of Health is satis-
fied that any Local Authority (including a County Council) or two
or more Authorities or County Councils jointly, or any a,uthorised
association," are prepared to purchase land and develop it as a,
garden city (including a garden suburb or garden village) or as
.an extension of an existing garden city, and have funds available
for the purpose, he may with the consent of the ,T reasury and
after consultation with other Government Departments concerned,
* "Authorised association " includes any society, company or body approved
by the Minister, whose objects include the promotion, formation or manage-
ment of garden cities a nd the erection, improvement or management of
buildings for the working classes and others, and which does not trade for
profit, or whose constitution forbids the issue of any share or loan capital with
interest or dividend exceeding the rates for the time being fixed by the
Treasury.
 20
acquire the land on behalf of the Authority or Association either
by agreement or compulsorily, in any case in which it appears to
him necessary or expedient to do so for the purpose of securing
the development of the land as a garden city or an extension of
a garden city.
A Local Authority may for the same purpose acquire land either
by agreement or compulsorily in the same way as they can acquire
land which is required by a responsible authority for the purposes
of a planning scheme, that is to say, by compulsory purchase
order confirmed by the Minister of Health. The acquisition of
land compulsorily under the Section is accordingly subject to the
limitations contained in Part II of the Third Schedule to the
Town and Country Planning Act, and land cannot be purchased '
compulsorily if it belongs to any Local Authority within the mean-
ing of the Local Loans Act, 1875, or to any Statutory Undertakers,
unless the land is required for the widening of an existing highway
and the authority or undertakers consent, or the Minister, after
consultation with any Government Department concerned, decides
that consent has been unreasonably withheld. It appears to us
that this limitation might create difficulties and we consider that
the powers of compulsory acquisition should be widened in this
respect.
Any land so acquired, whether by agreement or compulsorily,
is required to be developed in accordance with proposals apI-royed
by the Minister.
The Public Works Loan Oommissioners are empowered to ad-
vance money by way of loan to any authorised association for the
purpose of developing the garden city in accordance with approved
proposals.
Money was advanced by the Public Works Loan Commissioners
to the Welwyn Gar.den City Company under the repealed enact-
ments corresponding to Section 35, but has since been repaid. We
understand that no land has yet been acquired under the Section
or the corresponding provisions of repealed enactments either by
the Minister on behalf of a Local Authority or authorised association
or by a Local Authority directly. An application was made by the
Manchester Corporation for the acquisition of land to consolidate the
Wythensha.we Estate, but was refused on grounds of economy.
It appears to us to be highly desirable that to facilitate the
operation of this section the most favourable terms on which money
is for the time being lent by the State to a.ny undertaking should
be available to Local Authorities or authorised associations carrying
out schemes under the Section.
NOTE E.
Owne1'ship ot fe e simple by the Authority undertaking
satellite development.
The importance of the ownership of the fee simple cannot be
exaggerated. It has been borne out by the experience of Letch-
 21
worth and Welwyn, and has been recognised generally by the
wItnesses who have appeared before us.
The ownership of the fee simple of the whole area enables the
most complete and favourable utilisation to be made of every part of
the area, and enables development to be controlled in the best
interests of t~e area ~s a whol,e. Difficult elements of compensation
are thus avoIded, WhICh are bound to be involved if limitations are
pl~ed~ :vhethe: by .a pla~ning scheme or otherwise, upon the user
of illd~Vldual SIt~S ill pnvate ownership, which, while they may
be desrra;ble and illdeed necessary in the interests of the whole area,
may at the same time be contrary to the interests of the individual.
Thus, for example , where land is acquired by the Authority at
agncultural value, the reservation of land on a large scale for open
spaces and recreational purposes is practicable, since it merely
results in the transfer of values from one part of the whole to the
other, while in a town of the same size developing with individual
ownerships, an equal reservation could be secured only at a cost
which places it :beyond practica;l realisation.
Ownership of the fee simple over the whole area becomes of even
more importance where the development undertaken is part of a
regional plan, as in the case of the Greater London region.
In essence, the control of future developmelJ1t, in our view,
requires two things (a) the restriction on further development at
least in certain parts of the inner areas ; and (b) the concentration
of development in selected parts of the outer area by means of
restrictions on development elsewhere than in those parts. We
make the assumption that, at any rate so long as the present
political system continues, these restrictions could not in all cases
be imposed without the payment of compensation by the respon-
sible authority. If, for instance, development of a central site is
prohibited for industrial purposes in order to secure better distr;ibu-
tion of industry over the region, it may happen that the value of
the particular site is wholly or partially destroyed, and in that case
we contemplate that compensation would be payable. If, however,
the Authority own the fee simple in the areas where the new
industrial development is to be permitted, then they would be
recouped for the cost of compensation in respect of the site in the
central area by the sale value of the equivalent site in the satellite.
In a similar way, they would be recouped by the sale of sites in the
satellite for any compensation they might be called on to pay for
restrictions on development imposed in the outer areas, with the
object of securing the necessary concentration of development.
'here land has a value for a special purpose compensation
would, if the land is in private ownership , often have to be paid
if its use for that purpose is prohibited. In practice this would
in many cases make it impossible to do other than allow its use
for that purpose, although it might be contrary to the best planning
of the area, e.g., the erection of a factory in an area which ought
to be restricted to residential use. It may happen too that land
 22
which is required for a special purpose, such as the erection
of factories, may not, if it is in private ownership, be in the market
for that purpose with the result that factories have to be erected
on less suitable land. Such difficulties are avoided if the whole of
the land is held by the Authority. A demand for sites for particular
pw-poses can at once be met.
A fm-ther difficulty which arises in practice if land is held in
individual ownerships, and would be obviated if the whole of the
area in question were held by the Authority, is tha,t there may be
no immediate demand for land for the purpose for which it ought
to he allocated in the interests of sound planning. There may, for
example, be no immediate demand for factories on land which has
special advantages for industrial development and which ought to
be reserved for that pw-pose. In such a ca.se it would in general
be unfair to the owner to debar him from disposing of the land
for residential purposes, unless compensation is paid. Local
Authorities cannot easily face claims for compensa,tion in such a
matt~r and as a result the land is used for a pm-pose for which it
is not best suited. If the whole of the land were owned by the
Authority, there woufd be no difficulty in holding land which is
speciallv suited for a particular purpose, until it is required for
that purpOse.
A further important benefit which would flow from the owner-
ship by the Authority of the fee simple is that increases in value
due to development which they carry out would accrue to them. If
they owned part only of the land, the r emainder being developed I:>y
private persons, the increase in va.lues due to works ca.r ried out by
the Authority would accrue, so far as the privately owned land is
concerned, not to them but to the owners. It is accordingly import-
ant that the Authority should acquire a.t the outset the whole of
the area over which their operations will Ultimately extend, and
not acquire it progressively as their operations are carried out.
We are, Gentlemen,
Yom- obedient Servants,
MARLEY (Chairman).
J. C.BURLEIGH.
THEODORE CHAMBERS ....
F. ROSE DAVIES.
J. CHUTER EDE.
T. PEIRSON FRANK.
CHARLES GOTT.
W. T. JAOKSON.
JAMES NORVAL.
RAYMOND UNWIN . "
W . E. WHYTE.
E. S. HILL (Secretary).
22nd December , 1934.
* Signatures subject to the following Reservation.
 23

RESERVATION.
While in complete agreement with the proposals in this Report,
we desire to make the following additional recommendation. That
in any legislation giving effect to these proposals power should be
given t.o the Local Authorities to delegate the duties to a suitably
constituted board or commission. .

THEODORE CHAMBEB.8 .
RAYMOND UNWIN.

DISSENTING NOTE I.
There will be geneml agreement with the criticisms passed in
the report on the haphazard development which has afflicted many
parts of the country. Admittedly grave mistakes have been made
and every member of the Committee felt the need for guiding
future development along sound lines. The strength of this feeling,
coupled with a keen desire to improve housing conditions, has
prompted the recommendations made in the R.eport, but I r.egret
that I cannot support these proposals.
The errors and abuses of the past are mainly due to bad planning
and would be corrected by good planning. The existing Planning
Acts should be applied vigorously, and such additional powers should
be given to the Ministry of Health or to Local Authorities as
experience shows to be needed for the efficient performance of their
work. Provided that a town is well planned, there are no valid
reasons for suggesting, as the Report does, that its expansion should
be restricted. The notion that future growth should take the form
of independent satellite towns is not based on convincing evidence,
and the actual trend of events contradicts any theoretical argument
in favour of the idea. Towns extend their limits gradllally as a rule
and " ribbon development" plays a great part in their expansion.
Certainly " ribbon development " should be controlled but that is
an easy matter in comparison with the substitution of a system of
founding satellite t~}J.1ns for the natural tendency of places to
expand at various points round their original boundaries . In reality
the formation of each "satellite" would raise a new set of
problems in regai-d to public services and transport facilities.
Apa.r t altogether from the question of the type of development
which is to be followed, the recommendation to constitute a
Planning Board is open to serious objections. The duties of the
Board would conflict with the functions of the Minist ry of Health
and of the Local Authorities and its existence might weaken the
sense of responsibility both of the Department and of the local
bodies. The Report assumes that a central board could do a great
deal to influence the distribution of population and industry, but
 24
population generally flows to places where new works are estab-
lished and their location is settled by such factors as the presence
of raw ma,teria,ls, the nature of the water supply, the vicinity of
markets a,nd the existence of good transport facilities. The collec-
tion of statistics and information in regard to popula,tion and
industry is in every way desirable, but this work could easily be
performed by the Board of Trade in conjunction with other Govern-
ment Departments, and with the help of organisations such as
Chambers of Commerce, Industria,l Development Committees and '
the Ra,ilway Companies.
To sum up, it should be possible to make great progress by means
of the existing machinery. If necessary the sections of the Ministry
of Health concerned in the application of the Planning Acts should
be reorganised and strengthened, but a case has not been made out
for establishing a separate Board. Everything possible should .be
done to encourage the Loca,l Authorities to be enterprising, and
the best hope for the future lies in the hearty co-operation of the
Ministry with these local bodies. .
R. BELL.

DISSENTING NOTE II.

While I agree with the views expressed in the Report as to the
general desirability of satellite towns, I feel bound to record my
view tha,t their esta,blishment is at the present time impractica,ble
for financial and industrial rea,sons. I should consider that it would
be inexpeaient to impose further restrictions in regard to the areas
in which new industrial undertakings may be established.
Further, I a,m strongly opposed to the a,ppointment of the
Planning .Board proposed in the Report. The Ministry of Health,
in my opinion, ha,ve sufficient power and authority to secure
through the Local Authorities such control of development as may
be necessary. If, however, the Ministry have not the necessary
!tuthority, the right solution, in my view, is to be found in
strengthening the powers of the Department and not in establishing
a Dew body.
A. ERNEST BAIN.
 25
SUMMARY OF CONCLUSIONS AND RECOMMENDATIONS.
1. Tha.t Ga.rden Cities a.nd other developments of a. similar kind
must be viewed not in isolation but rather as elements in the wider
sphere of regional and national planning.
(Paragraph 4, pa.ge 4.)
2. In relation to the broader aspects of Town and Regional
Planning, we advocate the fullest adoption of the type of develop-
ment usually associa.ted with the idea of a. Ga.rden City .
3. Tha.t the full va.lue of pla.nning powers ca.n only be obta.ined
if there is proper co-ordina.tion between the va.rious forms of develop-
ment, residentia.l, commercia.l a.nd industrial, not only on the plan
but in actua.l physica.l execution.
4. Tha.t the da.ngers and evils, economic and social, which follow
from haphazard, scattered and ribbon development can ha.rdly be
exa.ggera.ted.
5. That the finding of the necessary a.rea. of land for open de-
velopment outside the town presents no serious -difficulty even in
the case of la.rge towns. The evils spring from the much vaster
a.rea.s spoiled a.nd wasted by haphazard and scattered building.
6. That the present tendency to demand for general adoption
higher buildings and greater density of occupancy in central a.reas
is based upon existing concentrations and the absence of planning
in the past, accentuated by the disordered a.nd badly planned
suburban development which has taken place in recent yea.rs. We
do not believe that such arguments for higher buildings and in-
creased density ca.n be accepted as valid as applied to a planned
method of development of the centre and the periphery.
(Paragraph 6, pages 6-8.)
7. Tha.t the time is ripe, and is favourable, for the serious con-
sideration of more fundamental methods in rega.rd to the planning
of new areas and the replanning of the built up areas , including
a.reas cleared of slums.
8. That 'in place of the casua.l distribution of industry and popula-
tion, there should be definite guidance a.nd their distribution and
location should be planned and co-ordinated in the public interest.
9. That a town should not be regarded as a mere a,gglomeration
of population, but as the location of a community which implies
the inclusion of all sections and interests.
(Paragraph 7, pages 8 and 9.)
10. That when a town reaches a certain size, which may va.ry
within wide limits, continuous growth round the fringe may create
evils that outweigh any advantages; that at this sta.ge in its growth
 26
any further outward development should take the form of complete
planned units, each having due provision for industry, residence ,
social services and recreation.
11. That these units or satellites should be in definite connection
with the parent town though separated from it and from each other
by adequate areas of open land to serve the needs of both.
(Paragraph 8, page 9.)
12. That it is essential that the problem of future urban develop-
ment, which includes the distribution and location of indllStry and
residence, should be recognised and dealt with as a national and not
merely a local problem.
(Paragraph 9, page 10.)

13. We recommend that the Government should establish a

Planning Board, appointed by the Minister of Health, who would
answer questions in Parliament, and be ultimately responsible for it,
and that under its aegis should be brought land development and
redevelopment throughout the country. The Board would operate
. in close association with the Housing and Town Planning depart-
ment of the Ministry of Health and the supervisory and quasi
judicial functions of the Minister should be unaltered.
(Paragraphs 9 and 11, pages 10, 13 and 14.)

14. That this Board should make a careful survey and study of
the whole problem, and should be charged to guide development as
far as practicable on the lines determined upon.
15. That the Board should not itself undertake development , but
seek to secure proper distribution and co-ordination of development
to be promoted by Local Authorities themselves or in accordance
with their plans. -
16. That the Board should encourage and assist Local Authorities
to exercise the executive powers they possess and be entitled to make
representations to the Minister of Health for his" default " powers
to be put into operation where this should prove necessary.
(Paragraph 9, pages 10-12.)

17. That in view of the obstacle to securing better location and

distribution of development presented by the prospect of compensa-
tion, the Board should study this question, and try to devise a fair
method by which the gains due to planning distribution may be
made available to compensate for any losses.
(Paragraph 10, pages 12 and 13.)
18. That in view of the magnitude of the task the Board should
be composed of persons of the highest capacity.
 27
That the Board should be small, say five members, and that the
Chairman and one or two other members should devote their whole
time to the work.
19. That the Board should be in a position to obtain all necessary
information from all the Government Departments whose activities
have a bearing on the problems involved .
(Paragraph 11, page 13.)

20. That it is primarily the function of the Local Authorities, who

are already dealing with slum clearance and other branches of
replanning and planning, to undertake the type of development here
recommended.
21. That Section 35 of the Town and Country Planning Act and
Section 34 of the Town and Country Planning (Scotland) Act give
powers for the purpose, and that these provisions shall be fully
utilised and made effective.
22. While the view has been strongly expressed to us that the
Local Authority acquiring the fee simple should become the adminis-
trative Authority over the area to be developed we do not consider
that such a change is necessarily involved. Each case would no
doubt require to be considered on its merits when all the circum-
stances affecting a possible change of local government administra-
tion would be brought under review.
(Paragraph 12, pages 14 and 15.)

23 . We recognise that under present conditions it is not feasible

arbitrarily to locate industry; we believe however that the attractions
and facilities which can be offered to industry, together with the
general influence which could be exerted by the Board and by the
Local Authorities concerned, through their town and regional plan-
ning and other powers, would probably suffice to secure that industry
would adopt the locations desired.
(Paragraph 13, page 15.)

24. That the conclusions at which we have arrived apply generally

to Scotland and that a separate Planning Board be set up for
Scotland.
(Paragraph 14, page 16.)
 28

APPENDIX I.
I. Private Individuals.
Mr. K. Sutton Dodd.
Mr. S. A. ' Sadler-Forster.
Mr. Frank Pick.
II. Local Authorities and Associations of Local Authorities.
Hertfordshire County Council-Mr. P. E. Longmore.
Letohworth Urban District Council-Dr. Norman Macfadyen.
Welwyn Garden City Urban District Council- Councillor J. Gray,
Mr. B. H. Deamer and Captain W. E. J ames.
Rural District Councils' Association-Mr. Percival C. A. Slade.
Association of Municipal Corporations-Mr. F. E. Warbreck Howell.
County Councils' Association-Mr. Cemlyn Jones and Mr. F. Stead-
man.
London County Council-Sir Cecil Levita and Mr. Frank Hunt.
Greater London Regional Planning Committee-Alderman A. T. Pike
and Mr. Hardy Syms.
III. Other Organisations.
First Garden City Ltd.-Sir Edgar Bonham Carter.
Welwyn Garden City Ltd.-Capt. R. L. Reiss, Mr. F. J. Osborn and
Mr. J. F. Eccles.
Garden Cities and Town Planning Association-Mr. Barry Parker,
Alderman A. T. Pike, Mr. Cecil Harmsworth, Sir Edgar Bonham
Carter and Capt. R. L. Reiss.
Welwyn Garden City Chamber of Commerce-Major W. H. Close and
Mr. D. G. Petrie.
Town Planning Institute-Mr. T. Alwyn Lloyd.
National Association of Building Societies-Mr. W. Harvey and
Mr . G. E. Jackson.
National Federation of Building Trades Employers-Sir J onah
Walker-Smith.
National Federation of House Builders-Mr. R. W. Jennings, Mr.
Frank Williams and Mr. Norman McKellan.
Written representations were received from The Scottish National
Development Council.

APPENDIX II.
Letchworth.
Founded in 1903 by First Garden City Limited, with capital sufficient
to purchase the present site of the town, as the result of the enthusia8m
of Sir Ebenezer Howard.
The Estate oomprises some 4,500 acres (approximately 7 square miles);
its length from north to south is over 3 miles and its breadth from east
to west is 2 miles. When it was purchased it was purely agricultural land
and comprised three small villages with a population of only 400. 'rhe
population now exceeds 15,000 and is steadily increasing. The original
plan of the town contemplated an eventual population of about 32,000, on
an area of about 1,500 acres with a surrouuding agricultural belt. The
Company, who have not as a general rule undertaken buildings themselves,
have retained the freehold of the land and granted ' leases of 99, and in
certain cases, 999 years.
The Urban District Council, which was created in 1919, has taken over
the public services usually administered by Public Authorities, including
drainage of the town, and has constructed modern sewage works. The
Council has built 1,276 cottages since the War with the assistance of
Government subsidies, and prior . to the War 1,066 cottages were built
by Publio Utility Societies.
The Company owns and operates the Waterworks, the Gasworks and
the Electricity Supply Station, and in addition to Letchworth, supplies
water to the neighbouring town of Baldock and electricity in an area
of approximately 31 square miles extending to Biggleswade.
SHes are leased for shops and residential buildings generally for 99 years,
but also in certain cases for 999 years. Factory sites are leased for
999 years. There are 119 factories and workshops; 168 shops and 3,987
houses and cottages. There are five public elementary schools and a public
secondary school. The town has 49 public buildings, including a museum,
a cinema and a private theatre, together with numerous ' churches and
chapels.
The cost of the Estate and its development have been approximately
as follows :-

Original cost of land 160,378
Expenditure on land and buildings since to the
30th September, 1934 116,078
276,456
Cost of development, including highways anQ
sewers, to the 30th September, 1934 213,526
Cost of water, gas and electricity services to
the 30th September, 1934 530,651

1,020,633

The Urban District Council have expended a capital 01 approximately

1,115,356 :l.nd the estimated expenditure of the public on building is
from 3,000,000 to 4,000,000. The total cost can, therefore, be put at
over 5,000,000.
The full dividend of 5 per cent. has been paid on the Company's 8hm'es
since 1923 and a beginning has been made in payment of arrears of dividend,
which acorued previous to that date.
The rateable value of the Urban District is over 124,000 and the rate
for the half year to 31st March, 1935, is 58. 3d. in the .
The vital statistics for Letchworth for the year 1933 were:
Death rate: 9'8 per 1,000 as compared with general death rate for
England and Wales of 123.
Infant Mortality Rate: 29 'Per 1,000 as oompared with general death
rate for England and -W ales of 64.
The majority of the workers in the factories live in Letchworth at a
distance of less than 1 mile from the works, and every house has its garden,
in addition to which there ~re 23 acres leased to the Urban District Council
for allotments.
The town is laid out on spacious lines and is well supplied with public open
s!paces. Many of the factories have their own sports grounds and public
facilities are provided for sports and games.

Wel'wyn.
Welwyn Garden City Limited was registered in 1920 and development
began in the same year. Like Letchworth, it owes its foundation to Sir
Ebenezer Howard.
The tota.! acreage originally obtained was about ~ ,400 acr~s, at the
average price of about 50 per acre. There was no rallway statlOn on thE
Estate, the nearest being two miles away and almost inaccessible from the
 30
centre. There were very few roads, and those .bad; and there was no water
supply, drainage or other public services.
Like Letchworth, the plan in general outline was a town area surrounded
by an agricultural .b elt, the town area being allocated to industry, residential
and commercial development according to the position and suitability of
the various parts. Loans were made to the Com.pany by the Public Works
Loan Commissioners under the provisions of the Housing Act, 1921.
.A. temporary station on t!he Luton branch line was built in 1920; thE
main line station being 'completed in 1926. Originally, the passenger service
was infrequent, but t he Railway Company has steadily improved the service
as the demand has grown and the train service is now very good and
continually improving. .
The plan envisages a population of 40,000 to 50,000; the population at the
present time is 10,000. The total amount expended in connection with the
Estate on land and development up to 31st March, 1934, was 716,100. Unlike
Letchworth, wlbere building by the Company has been small in amount and
not characteristic of its policy, the policy of the directors of Welwyn has
been to undertake the building of factories, houses and shops and other
subsidiary enterprises if it seemed desirable for the purpose of stimulating
gener al development. The subsidiaries now in existence are 10 dealing
with electricity, factory and shop properties, housing (2), nursery gardening,
newspaper publication, brick and gra.vel production, cartage and haulage,
t!he Welwyn Theatre and building.
The rateable value of Walwyn is over 84,000 and the annual rates for
1934-35 amount to lIs. 6d. in the .
The vital statistics for Welwyn for the 7 years 1927-1933 were (on the
basis of a simple average of the official yearl'Y figures) :-
Birth Rate: 2076 per thousand as compared with general birth rate
for Elngland and W,ales of 1593.
Death Rate: 576 per thousand as compared with general death
rate for England and Wales of 122.
Infant M(lr tality Rate: 25 per thousand as compared with general
death rate for England and Wales of 66.
As in the case (If Letchworth, it was .a principle of the Company's activities
that the ft'eehold of the Estate should r emain in their ownership. The
disposal of the land has 'been effected by t!he granting of leases for 99 or 999
years. Only in excepti,onal circumstances-as in the case of the r ailway
land and of land required for churches-has the freehold .been conveyed.
There are four elementary schools, a library and a cottage hospital. A
secondary school is included in th" 1934-1936 building programme of the
Herts County Council. Various religious bodies have "rected their own
churches and there are numerous public hal1s and club-rooms. The Welwyn
Theatre is used mainly for cinema lPerf(lrmanees, but from time to time
dramatic and operatic societ ies give performances there. There is also a
smaller theatre devoted to amateur performances. The Council constructed
an open-air swimming ibath in 1933. Playing fields on a large seal" are
provided both by the Company and ,b y th" Council.
The first important factory (t!hat of t he Shredded Wheat Company)
was completed in 1926. Industrial development was at first slow, but wit h
the advent of each new ' factory, the negotiations for further factories
became easier. Of the 60 odd factories and workshop undertakings now
located in the town, 30 have leased land and purchased or constructed their
own factories or workships, the remainder having rented factories or work-
shops 'provided by a subsidiary company.
 31
Wythenshawe Estate.
This Estate (which formed part of the Tatton Estate) comprises 5,567
acres of land within the City which the Corporation of Manchester are
developing as a satellite ,town to the City, partly, but not wholly, to
assist in connection with the working-class housing needs of the City.
Since the Corporation first purchased part of the Tatton Estate in 1926,
their policy has been to purchase, by agreement, aduitional lands to round
off the Estate, but they have been unable to complete the purchase by
agreement. Approximately 66 per cent. of the area is in the ownership
of the Corporation.
The development of the Estate was hindered at the outset by difficulties
in connection with the provision of the necessary services, in view of the
fact that the land concerned was not within the City, and the Corporation
were not able to make the arrangements with the District Council for
their provision. Development was, however, begun at once on the small
area of land for which services were available, and the erection of 142
houses was commenced in 1929. The area was added to the City on the
1st April, 1931.
The Corporation have already erected approximately 5,000 houses and a
further 500 houses are in course of construotion or in contracts let.
When the Estate was added to the City, the Oorporation at once pro-
ceeded with the provision of main drainage facilities. A separate sewage
disposal works was not required because it was found possible to connect
the drainage of the Estate with the City's system. The Estate also benefits
by the other productive and non-productive services which can be offered by
the City, such as electricity, gas, water, public libraries, parks, hospitals,
education, cleansing, police and fire protection, etc.
The Estate is being planned to accommodate an ultimate population of
100,000 persons.
It is proposed to l'eserve 3,030 acres, i.e., 54 per cent. of the area, for
residential purposes to permit of the erection of some 28,000 houses.
Approximately 550 acres (10 pel' cent. of the area) are set a~ide for
non-residential buildings, and sites have been allocated for shops, business
and residential purposes and public buildings, with a proposed civic centre
near the centre of the estate. At the six shopping centres 70 shops have
been erected and a contract has recently been let for the erection of two
further blocks of shops at one of the centres. Leases of land in the eastern
industrial area have been taken by several firms and some of the works
are now in operation. The trades established or to be established include
the manufacture of electrical fittings, knitted goods, embroidery, sweets,
spices and pepper, and also a bakery and a milk depot. Two sites have
been leased for the erection of licensed premises and the buildings are now
in course of erection; negotiations are taking place for the leasing 6f a
third site.
It is proposed to secure the reservatio~ of. a b~lt between the City and
the Estate of open space about half a mIle m WIdth.

(4/36) (29211r.-1I) WI.lS7-mS 5004/35 P. St. G.335