Prior to 1845, the urban transport network consisted primarily of a large number of omnibus lines, consolidated by the French government into a regulated system with fixed and unconflicting routes and schedules. The first concrete proposal for an urban rail system in Paris was put forward by civil engineer Florence de Kérizouet. This plan called for a surface cable car system. In 1855, civil engineers Edouard Brame and Eugène Flachat proposed an underground freight urban railroad, due to the high rate of accidents on surface rail lines. On 19 November 1871 the General Council of the Seine commissioned a team of 40 engineers to plan an urban rail network. This team proposed a network with a pattern of routes "resembling a cross enclosed in a circle" with axial routes following large boulevards. On 11 May 1872 the Council endorsed the plan, but the French government turned down the plan. After this point, a serious debate occurred over whether the new system should consist of elevated lines or of mostly underground lines; this debate involved numerous parties in France, including Victor Hugo, Guy de Maupassant, and the Eiffel Society of Gustave Eiffel, and continued until 1892. Eventually the underground option emerged as the preferred solution because of the high cost of buying land for rights-of-way in central Paris required for elevated lines, estimated at 70,000 francs per metre of line for a 20-metre-wide railroad.