Underground Space. Vol. 3, No. 3, pp. 99-115. Pergamon Press 1978. Printed in Great Britain.

City Planning and the Urban Underground

BIRGER JANSSON

Chief Consultant Architect, VBB ( Vattenbyggnadsbyr&n), Gothenberg, Sweden

2 THE CITY is the buildings, the streets, the shape, the

organism and the people within. The city is how we

experience living, working, mixing. (Fig. 1)

People and activities fight to be on top of the city,

in the sun, in the fresh air, able to overlook the urban

landscape. (Fig. 2)

*Originally presented at the A UA Conference, Going Under to Stay on Top, in Minneapolis, October 14-15, 1977.

99

100 Birger Jansson

3 4

At ground level, people and activities fight to be in

the best position for commercial exchange, for

moving quickly, for space to store cars and goods,

and to find a place where they can relax. (Figs. 3, 4,

5)

Under the ground, you will find the foundations,

pipes, cables, sewers, and, in basements, storage of

the things most necessary for the city. Another battle

is going on there between the owners of facilities

beneath the surface to break through the pavement

for maintenance and repair. (Figs. 6, 7)

5

6 7

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, '_··.· . City Planning and the Urban Underground 101

WHAT CAME OF THE VISION?

The city pattern was overwhelmed by unbelievable

urban extension. The city itself was rapidly

"" overcrowded with buildings, in attractive sites, in

limited areas leaving completely insufficient space on

the ground for the increasing traffic and parking.

Noise, air pollution, crowding and the lack of ground

space forced people to live outside the city. (Fig. 9)

8

The city has been developed over generations of

people from the original conditions, from demands

and wishes for and visions of a better urban life.

A visionary of specific interest was Monsieur

Henard of 1900. He lived in a period of great

expectation regarding technical innovations and

increasing welfare resultig from the new machines.

He was convinced that people in the city structured

through the late 19th century would be exclusively

served by the new techniques. (Fig. 8)

His vision consisted of trams for local traffic in the

street on a second level below the service street for

fuel and goods going in and for waste coming out. In

between, there were pipes of different kinds.

On a third level, underground, room for sewers

and long distance trains. In basements, storage space

for automobiles and small aeroplanes served by a

common lift. He was concerned for a safe, noiseless

and pleasant city.

9

Inexpensive transport by car facilitated settling in

the open landscape close to nature and recreation

areas. (Fig. 10)

10

102 Birger Jansson

r

13

14

'

11

The increasing traffic made its way through the

urban area on highways often separated from the

original pattern of streets. Horizontal differentiation

has taken place. (Fig. 11)

12

-r-.

In fact the city has been reduced to an area for

certain kinds of work and commerce, used only to a

marginal extent for living in, mainly by the poor.

(Fig. 12)

WHAT ABOUT VERTICAL

DIFFERENTIATION?

To some extent the vision of Monsieur Henard has

been realized. Chicago is one of the towns in which

tunnels have been constructed under the streets for

coal distribution and transport of ash. The tunnel

system was used for indoor ventilation of buildings.

The muck excavated from the tunnels was filled out

on the shore of the lake - today a valuable city park.

(Fig. 13)

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However, you do not find streets for loading and

unloading under ground. In many big cities you can

find a metro system. The almost unchecked erection

of buildings in blocks has forced mass transportation

of people into tunnels below the street surface in the

most exploited areas. (Fig. 14)

Most cities can today be recognized as incomplete

and unequally renewed town districts, each fighting

for its economy, environment and its social

reputation.

In addition, you are aware of a more and more

expensive and energy-demanding urban pattern of

urgent transport within the urban body. People in

areas of recent urbanization suffer from the

inconvenient and meaningless movement between the

differentiated areas of activity.

The city is in visual and social disharmony. Nor is

the city in harmony with the suburbs. We have run

into the city dilemma of today.

City Planning and the Urban Underground 103

WHAT IS THE WAY OUT OF THE DILEMMA?

I have the impression that there is a demand for a

new Utopia where the current demands on economy,

energy and ecology must be considered. I am

convinced that the subsurface offers possibilities

which so far have been all too little recognized.

The relationship between the parties involved in

urban development has however changed since the

beginning of the century. The new Utopia must be a

political rather than a technical one. When trying to

convince the decision-makers of our recent and future

society that the subsurface is there and offers new

solutions, you must consider: we have urbanization -

we have the city - we have the population.

The new Utopia has to be developed in the living

room of the existing society. The city planner has the

task of examining the conditions for changes towards

better city life. My experience is that there are three

groups of problems which restrict the wider use of

the subsurface.

These are: legal constraint, technical hesitation,

and psychological impact.

LEGAL CONSTRAINT IS RELATED TO THE RIGHT OF OWNERSHIP AND THE

RIGHT OF DISPOSITION OF UNDERGROUND SPACE

The right of ownership goes from the surface to

the centre of the earth. In many countries the right of

disposition of the underground strictly follows the

right of ownership. In city blocks the owner has

disposition of the underground used for basements

and foundations of buildings. The only space left for

public amenities such as pipes, cables, and tunnels is

below the streets and the parks. (Fig. 15)

15

However, somewhere deep down the possibilities

for private disposition end. Here there is an endless

space which could be available for public use. (Fig.

16)

16

In Sweden, legal and administrative practice has

been developed which allows the owner of an

establishment to expropriate the right to pass his

neighbours' properties under ground. The practice has

brought about simple administrative routines to

obtain permission and to have the right recorded.

This is very important for rational, economic, and

feasible use of the underground. Our Lord lacked

foresight when he created the geology of the earth

not in accordance with the city pattern. The

economy and ecology in use of the underground are

decisively dependent on sensitive obedience to

geological formations.

Stockholm is located on islands, and the built-up

areas on the mainland around the flow from Lake

Miilaren out to the Baltic are affected by spatial

limitations caused by many waterfronts. (Fig. 17)

17

104 Birger Jansson

18

Various generations of tunnel have been con­

structed for railways, different metro lines, sewage

and telecommunications directly under blocks of old

and picturesque buildings. The green area contains a

parking garage which can also be used as a

bomb-shelter. Geological conditions in the area are

favou rable and this has caused crowding in the

underground. (Figs. 18, 19)

20

The renewal of the most important part of the city

centre with the main station for the Stockholm metro

was carried out with many underground levels as cut

and cover work. These involve metro lines, a through

pass for street traffic, loading streets, parking garage

and storage - all underground. (Fig. 20)

On top, we have a new shopping area,

administration buildings and the new parliament

building.

The right of disposition has been distributed

vertically according to the practice mentioned above.

By regulations in town planning, the owners right of

disposition of the underground is limited to 7,

sometimes 10, metres below the surface in most of

the blocks within the inner city. A general right is

also given to use the space beneath this boundary for

tunnels. I can imagine that unprejudiced considera­

tion of the subsurface and the deficiencies of the city

could bring forth new demands and new suggestions.

By vertical differentiation of conflicting activities the

ground level could become more attractive for living.

An underground tunnel system for rational trans­

portation of goods - developed in the deep free zone

- may be just the support the city requires. (Fig. 21)

21

-

City Planning and the Urban Underground 105

NOW WE COME TO

TECHNICAL HESITATION

Great efforts have been expended on the

development of surface construction. The whole

construction industry concentrates on solving

problems on the surface or just under the surface.

Deep subsurface constructions have been used to

avoid severe conflicts in very specific areas and have

been carried out by a comparatively small group of

contractors. Experience of underground works is

limited and the construction industry is conserva·

tively bound to the surface - with some exceptions:

The mining industry and companies specializing in

tunnelling have reached a very high level of

competence in underground coostruction.

The conservatism concerning subsurface construc­

tion also rules the responsible clients - the builders.

Knowledge of the geology underlying the city is

for this reason sparsely recorded and analysis of the

conditions for underground construction is as a rule

lacking. .

You should know what kind of structure you have

below your feet, problem-full or problem-free.

Which area is most suitable for underground

construction? Where are the faults and crush zones?

(Figs. 22, 23)

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23

How will the ground water level be influenced by

an underground installation? (Fig. 24)

24

22

bOilHH)

PIC·C)fOullng boltmg boltmg

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.. ,..,.

•qng

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,....._ ,,, pre·groutmg

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bol11n9

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Birger Jansson 106

tl

rcl.1trv e

c o s t s 10 -15 3-4 10 -1 5

s ht eld - dnvc n tunne l rock tunn e l " c ut cnd cove r ' > unktunne l

l )

- s heet prle

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25

The cost of construction varies greatly in different

geological formations. According to Scandinavian

experience, a cut and cover tunnel in soft ground is 3

to 4 times more expensive than a hard rock tunnel. A

shield tunnel or an immersed tube tunnel will cost 10

to 15 times more than a hard rock tunnel. (Fig. 25)

In a more or less homogeneous formation you can

quite easily calculate the cost of construction by

using an adequate investigation of the geological

conditions. You put together the excavation cost, the

strengthening and sealing cost and add the cost for

administration, planning, inspection and main­

tenance, together 25-35%. (Fig. 26)

26

A . Costs of rock blasting

Tat ar A 0

1 Rock chamber

2 Ad1ta

Rarse

C kr/m

B. Costs of handlmg or blasted r ock

Total B D

C. Co t of str engthening and sealing

Tot al C D

TOTAl TUNNEl COS T

Sum 1 01111 A• H•C

Plannrng ,,<Jnurustr r to on

In p <.loon mr c. t1.1neoull

flO fO T A COS T

City Planning and the Urban Underground

1": ·· ... 1· f/ 107

SHOTCRE TE

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ROCKBOLTS

28 A telecommunications exchange in Stockholm. (Fig. 28)

29

USf,llt

27

PREGROUTING SYSTEMATIC ROCI<SOLTING

POSTGROUTH G CASI 1N PlACE CONCRETE

Excavation, strengthening and sealing costs are

related to the width of the tunnel or the rock cavity

and the rock discontinuities. A detailed geological

survey and cost calculation based on it are a necessity

for planners, local authorities, potential clients, and

contractors to be able to consider the realistic

underground location .of a function . (Fig. 27)

A cold store in the same area - the rock cavern saving energy and offering a stable low temperature. (Fig. 29)

30

An attractive recreation centre in Norway with a swimming pool. (Figs. 30, 31) (See UNDER· GROUND SPACE Vol. I No. 2 for a detailed discussion of this centre.)

31

EXAMPLES OF USES OF THE

URBAN UNDERGROUND

We will now review a range of projects which have

been located underground in Scandinavian countries,

often within the boundary of the city.

108 Birger Jansson

I

34

An oil-fired electric power station of considerable size planned as a peak ·toad station within the national supply net located on the west coast of Sweden. (Figs. 34, 35)

35

Budding tor e lec t ric boiler. hea t e x changer umt . etc

depth 210m -Pipe shaft

36

Oil storage in several areas located directly under the city. (Fig. 36)

38

<;A,jl,.(;.llr 1·,0 M ft• 7•2.i0Wllf

,,,ull IIP$1fii'10Wl \IOLUIII(_ llll _,l

{o(lllfiiUIO!o 100 lH(Jit.ti'S

)._.]"'.....f"\ .{ Rock chamber

! I I \ reservoir 200000m3

c 37

Rock chamber hea1

storage reservoir

SUBTERRA

PUMPED STORAGE PCmER PLANT

Subterra hydro-electric pumped storage could be located right under Manhattan. A peak load station of

Within the field of energy conservation, we should consider energy storage underground, in this case a hot water reservoir connected to a town and to a thermal power station. (Fig. 37)

considerable size will provide a safety margin to prevent electric power failure. The tremendous volume of excavated rock provides a supply of crushed material for many years. (Fig. 38)

: .·

•

i

I

DISTRICT HEATING PLAN

City Planning and the Urban Underground 109

39 32

District heating served underground located in distribution. (Figs. 32, 33)

33

by the

a heating station best position for

40

The Kappala sewage treatment plant outside Stock­ holm. Close to a pleasant residential area, the sewage treatment plant is located underground, serving up to 1 million people in the northern suburbs. (Figs. 39, 40, 41)

'i

r

In this diagram the cost of different subsurface

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Vallent una

( -r '\

( )

sewage treatment plants is compared with the cost of conventional surface plants. The cost is about the same. (Fig. 42)

1....,, I

-.-l i..>

: \_.

• Tl:lby

Sw. Crs/person

1000

Loudden (Sub.I

-Normal above

surface installation

Lake at arc n

500 r-------------------- --. - .

Ballrc Sc;

Henriksdal (Sub.) The

Eolshiill (Sub.)• • Kappala (Sub.)

10Km

41

sewage treatment plant

100 ---------r---,---------,------

10000 50000 100 000 500 000 Size (number of persons

42 served)

110 Birger Jansson

,:r

u.. :1) ... 1

Q

-

WD.TER

HEATING

43

Multi-purpose tunnels have been used to a large

extent in the cities. (Fig. 43)

44

Tunnels Surface conduits

A :lH' l

Newly built Town

areas centre

Would you hesitate to enter this temple of Abu

Simbel? I would not. (Fig. 45)

The entrance fills me with great expectation; there is

really something inside. (Fig. 46}

0

6J LlliLj Sw Crs/M Sw Crs/M Sw Crs/M Sw Crs/M

District

heating 500 3 300 300 3 400

Water 900 1 000 600 1) 900

Cable I 500 I 500 600 1) 1 500

Total 4 900 800 j 500 800

Table 1. The cost comparison in this table shows the same

cost for surface and subsurface installations in the town centre but higher cost for multi-purpose tunnels in

new areas. As a rule multi-purpose tunnels are chosen because of better availability and safer

maintenance (Fig. 44)

Reviewing the above examples of what has been

done, and the costs of doing it, there is seen to be

little if any justification for technical hesitation as far

as subsurface use is concerned.

WHAT ABOUT PSYCHOLOGICAL IMPACT THEN?

Human reactions during time spent underground

have not been scientifically investigated. I would

prefer to make my personal comments. Three aspects

should be considered: the entrance , what is inside,

and what will happen to me when I am there.

46 This is a rat hole , whatever may be hiding inside. (Fig

47)

.. . ,,...... .. .

------------------------------------------------------------------------------------.

City Planning and the Urban Underground 111

51

The majority of people faced with this drawing react in a negative way. They do not accept this entrance to their home. (Fig. 48)

49

Behind the pretty marguerites you find a nice entrance to a dirty activity, a sewage treatment plant. (Fig. 49)

The entrance gives confidence to the activity inside, developed into a good working environment. ( Fig. 50)

50

Visitors to the Swedish wines and spirits monopoly in Stockholm enter the building and meet an artistic corridor. (Figs. 51, 52)

52

They lose every sense of being in a rock cavity, and not only on account of the wine. (Fig. 53)

53

112 Birger Jansson

ST·

54

A nuclear power station located underground a few kilometres from the centre of Stockholm has been in operation for ten years. The station is used for district heating and met no objections , to a great extent because of the friendly exterior. (Fig. 54)

Another sketch - this one of a business centre in Kansas City, and much more realistic. In spite of the more complex vertical transport to the surface, it consists of differentiated activities and possibilities for varied working environments on the surface and in the subsurface. (Fig. 57)

55

At the moment, no design, even if carried out by the

, ._'tR:

----------.-

..,1 , r /--.\T.i\J": _ ',!.'.!ON

58

most gifted architect, will have any influence on the objections against the storage of nuclear waste, even if located under ground. (Fig. 55)

A futuristic sketch of a city in rock contains industry deep down in the subsurface. As a working environment, this would not be accepted today, as it is, interpreted as being at the bottom of the social ladder. (Fig. 56 )

The new metro line to the north of Stockholm caused a big debate as to whether it should be located partly or completely under the surface. (Fig. 58)

The protest against deep location has today given way to successful acceptance. (Fig. 59) The Stockholm metro in operation is pleasant and colourful and emphasizes the natural cavern appear­ ance.

City Planning and the Urban Underground

113

60

Metro stations have been designed in different ways. The new Paris metro reminds one of the atmosphere in outer space. (Fig. 60)

Both of these design features have been readily accepted by the public. (Fig. 61)

61

Original protests against deep location have now

given way to ready public acceptance, in large part

due to the aesthetic treatment in the stations.

For those who work permanently underground,

conventional failures such as loss of light and

ventilation and outbreak of fire are the most

worrying factors.

Summarizing the comments on psychological

impact, I would like to say: Careful design, observing

both ordinary human behaviour and possible risk of

conventional failure will effectively reduce psycho­

logical objections to underground use.

THE SWEDISH R&D REPORT

The Swedish R&D report "Planning of Subsurface

Use" is a comprehensive investigation of planning

procedures, especially in Sweden. There are, however,

many features that are universal in application.

Subsurface planning must take into consideration

a series of fields of specific knowledge: (Fig. 63)

63

demand for

subsurface

space

,......------, \

connection

to surface

planning

tunneling

technology

' cost benefit ' analysis

geology

soil mechanics

62

The rock itself has achieved congenial integration in this rock church in Helsinki. The church is excavated in rock, and the altar piece is intact. (Fig. 62)

liability

indemnity

laws

adm.rules

I

internal

environment

hydrogeology

ecology

registration of

subsurface

establishments

Birger Jansson 114

Demand for subsurface space must be based on .-------- - -- -- -- - ---------- ,

P!,/\ NING OF

specific statistics and investigatory studies.

Cost benefit analysis, as well as liability and

indemnity, are general considerations for all kinds of

llVL:IUILL

P!.r\NN ING

HJ : GISTER OF

GEN RAL P LA NNING

P/I,RTlCULAR

rUNC TIONS

HOUSING SUPPLY

land use planning.

The law and administrative rules should be

recognized in a way which avoids unnecessary

restriction of underground use, but which gives

reasonable regulations for safe and rational use.

CONDITIONS INDUSTRIAL

ACTIVITIES

CCON01I CS SERVICES

SOCIAL RECREATION

TRANSPORTS PHYSJC/\L

The following five fields require specific know­

ledge of subsurface construction and subsurface use.

They are:

• internal environment

• registration of subsurface establishments

• hydrogeology ecology

Ni\ T li R/\L

I'!<SOtll"lCE.:S

65

STORAGE

UTILITIES

DEFENCE

• geology, soil mechanics

• tunneling technology

The conclusion of the Swedish report is that

subsurface planning should be seen as integrated

planning within society's planning as a whole, that is,

in close connection with surface planning.

An exchange of conditions and demands is required between authorities responsible for overall planning and bodies responsible for the planning of particular functions. The valuable result of such an exchange depends on the level of knowledge and understanding obtained. (Fig. 65)

NATIONAL

LOCAL AUTHORITY RESPONSIBILITY

PARTICULAR FUNCTION RESPONSIBILITY

PLANNING GOVERN MENTAL

ARE ...

OVERALL PLANNING

FUNCTION

PLANNING

IN GOV. AREA

$TIIAlE(lV A l SYSTUII$

LOCAL AREA DETAil

PLANNING

IMPLEMEN· TAllON

PL ANNING

REGIONAL PLANNING

----0--- --0--- DECISION ON IMPLEMENTATION

DIRECTIVES DESIGN

MEANS LEGALISATION

COMMUNITY - --- -- -- - DECISION ON CONSTRUCTION

PLANNING

PROJECT

PLANNING

64

EXAMINATION CONSTRUCTION

CONTROL

66

Subsurface use must be considered in

national planning: e.g. strategic oil storage

regional planning: e.g. water transport for water

supply

community planning: e.g. local sewerage and in

project planning.

Step-by-step development of integrated planning procedure is listed .

Overall planning is need.cd to arrive at decisions on investigations into underground conditions.

District planning is needed for decisions on detailed studies.

Local area planning is needed for a decision on implementation.

The final design can then be developed, and should take into account directives by regulatory authorities, legal sanction and consideration of alternative means. The final design provides the basis for decision on construction. (Fig. 66)

68

City Planning and the Urban Underground 115

The Swedish Report contains the following major

recommendations to government authorities.

Legislation or directions from the National Board

of Urban Planning should include the requirements

of:

67

Swedish law does not require a building permit for a tunnel or a rock cavity. (Fig. 67)

The present legal processes for dealing with underground construction are unnecessarily complex . A wide variety of regulations cover different kinds of functions and activities contained in tunnels and cavities. We recommend that tunnels and subsurface cavities be officially considered as build ings. (Fig. 68)

Water Legtsla!ton

Env uonmen t Dec re e

J Legtslat •on Concerntng Ele ctrtcal Ins t allations

l. Registration of subsurface establishments

2. Registration of geo-information from pre­

investigations and from completed construction

3. Planning of subsurface construction, comprising

outline planning, partial planning and detail

planning

4. Obligatory building permit for subsurface

building

5. Obligatory geo-analysis, description of conse­

quences and cost-benefit analysis in all

preparatory examination of subsurface con­

struction

6. Continuous checking and control of subsurface

establishments

It is also recommended that there be established:

7. A department with responsibility for subsurface

construction

8. An official expert institute, to which issues of

subsurface construction are referred for con­

sideration.

In conclusion it should be emphasized that: the

city planner alone can have limited influence only in

urging the wider use of the subsurface.

A co-ordinated co-operative effort is needed

between planners, contractors, clients, and

authorities.

Through sound co-operation, we will be able to

develop the existing city into the new Utopia. (Figs.

70, 71)

Leg•slat •on Conce rntng Highly Inflammable Goods