Part 2
4. Municipal Building site at south-west corner of Court and Joralemon streets (title now vested in the city) ------------- Total $6,769,095.00
Like the Clinton Street site, this site would be so expensive that its purchase would probably preclude the opening of the bridge plaza. If the present court house should be retained, the new court house would be hidden and without any effective relation to Borough Hall Park. If it had outside court rooms they would be noisy. Schermerhorn Street would either need to be closed or else carried through the building by tunnel. In the former case one of the streets most needed for traffic would be lost, and in the latter case the street would need to be artificially lighted both night and day and even then would be troublesome to maintain. This plan is open to all of the objections of Plan 1. Indeed it is even less desirable as it interferes more with traffic.
FOURTH PLAN
LIVINGSTON STREET COURT HOUSE SITE
(See diagram marked Plan 4)
1. Cost of bridge changes and re-location of tracks as estimated by the Department of Bridges, and assessed value of additional property required for same $4,012,095.00
2. Assessed valuation of land and buildings between Washington and Fulton streets 1,249,100.00
3. Assessed valuation of land and buildings in block bounded by Boerum Place, Livingston, Court and Schermerhorn streets 881,900.00
4. Polytechnic Institute and buildings fronting on Court Street not taken by the city for new Municipal Building site 733,700.00 ------------- Total $6,876,795.00
This plan has been pressed by very competent persons and we have given a large amount of detailed study to its merits. It contemplates that the old court house and municipal building should be torn down, and that the new court house should be set far back from Joralemon Street, the open space in front of it being flanked by the Hall of Records on one side, and a building of corresponding design on the other, to be used for children's and women's courts. The court house would be built on both sides of Livingston Street, which would be double-decked so that the noise of surface cars and vehicular traffic could not reach the court rooms. This noise is now considerable on account of the slight grade from the Court Street to the Boerum Place level which requires the application of brakes on the down grade. On account of the widening of Livingston Street this block is only 160 feet deep. Any form of treatment would seem to be unduly expensive and even then the court house would not be quiet, as the court rooms would be subjected to the noise from the crossovers at the corners of Livingston Street with Court Street and Boerum Place. The municipal building would need to be placed on the plaza site or elsewhere. One of the main objections to this plan is that the arrangement of all the buildings must be on an axis that does not correspond with Borough Hall, the park, or Washington Street, and on this account the open place between the flanking buildings as well as the buildings themselves would stand awry.
FIFTH PLAN
WASHINGTON STREET SITE FOR COURT HOUSE
(See diagram marked Plan 5)
1. Cost of bridge changes and re-location of tracks as estimated by the Department of Bridges, and assessed value of additional property required for same $4,012,095.00
2. Assessed valuation of land and buildings between Washington and Fulton streets 1,249,100.00
3. Site for new court house takes part of last item.
4. Municipal Building site at south-west corner of Court and Joralemon streets (title now vested in the city) ------------- Total $5,261,195.00
This plan contemplates placing the new court house on Washington Street opposite the Post Office, and the new municipal building at the corner of Court and Joralemon on the site condemned for that purpose. It separates the court house from the Hall of Records. The chief objection, however, is that the available space is not sufficient. A court house of the size desired would be compelled to assume an awkward shape, and it would be so narrow that an inner court to light court rooms facing on it would be out of the question. Throughout our work we have kept in mind the desire of the judges for quiet rooms for the conduct of trials. Washington and Fulton streets are noisy on account of surface cars and vehicles and it would in our opinion be undesirable to have court rooms front on these streets. The court house is to be a much larger and more imposing building than the new municipal building, and it should not be placed on a contracted site.
SIXTH PLAN
PRESENT SITE FOR COURT HOUSE
(See diagram marked Plan 6)
1. Cost of bridge changes and re-location of tracks as estimated by the Department of Bridges, and assessed value of additional property required for same $4,012,095.00
2. Assessed valuation of land and buildings between Washington and Fulton streets 1,249,100.00
3. Site for Municipal Building takes part of last item.
4. Site for court house takes Polytechnic land and buildings, etc., in addition to land now owned by the city 733,700.00 ------------- Total $5,994,895.00
This plan contemplates that the court house would occupy all of the present court house block except the Hall of Records; that it should have a large inner court with court rooms opening upon it; and that the municipal building should be placed on the plaza site.
The available area for the court house would be 147,700 feet. The inner court could be 150 feet by 200 feet with a superficial area of 30,000 feet. The building, if six stories high, could easily have four floors devoted to court rooms. Each floor would afford space for nine court rooms, each forty feet by fifty feet, and one large court room for extraordinary trials, 50 feet by 65 feet. This would make forty court rooms in all and there would be ample space for a jury room and robing room in connection with each court room.
The street noises would be an objection to this site if the court rooms fronted the street. We are advised, however, that the fronting of the court rooms on the inner court would protect them entirely from street noise. Ventilation in so large a building as this would necessarily be furnished by a power system, and would be independent of the movement of outside air. Indeed, it seems to be conceded that a power system succeeds only when windows are not opened and shut at will. Moreover, trials are not held during the hot months of July, August and September. On account of these considerations we are of the opinion that inside court rooms can be fully as comfortable and as well ventilated as if they fronted on the streets. The inner court would be so large that there would be an abundance of sunlight. This would not be the case with the lower stories if the building were fifteen or twenty stories high, but our investigations have shown that with a building not over six stories in height, the sunlight will be abundant.
Careful consideration has been given to the subject of noise during construction. The first portion of the new court house built would be that fronting on Borough Hall Park between the present court house and Court Street. This would be followed in due course by the construction of the Livingston Street front after the Polytechnic Institute would be able to locate in a new place. Later the remaining portion of the new court house would be built where the old court house now stands. It cannot be denied that there would be some inconvenience to court work from construction noise while these successive portions were building, but if the new municipal building is erected within the next few months on the site selected for it adjoining the old court house, there will be the same degree of construction noise. Moreover, wherever the new court house is built, it is almost certain that it will be followed by some new construction in the immediate locality. The main thing is to obtain freedom from noise after construction is over, and we believe that the work of the courts could be conducted in inside court rooms on this site with more quiet than in outside rooms on any of the other sites that have been suggested. We find that the first wing of the new building could be built as a unit providing sixteen to twenty court rooms with all requisite minor rooms and facilities. These would be more court rooms than are now in use. This would afford the needed expansion in connection with the use of the old court house, which has fourteen court rooms. The later completion of the Livingston Street wing would furnish a total of thirty-two court rooms in the new building. This would permit the abandonment of the old court house so that the last wing could be built where the old court house now stands. If the money for the construction of the new court house is appropriated from time to time, as will probably be the case, it will be no disadvantage to have the different parts successively available for construction. Forty new court rooms will not be needed for some years, and there will be a saving of interest to the city if the entire expenditure is not made at one time. The county court now has four court rooms, the supreme court ten, the appellate division one, and the appellate term one--in all sixteen. The act empowering the judges to select a site and approve a court house does not contemplate that the county court will be provided for in the new building. If, however, a forty court room building should be erected, it is evident that the county court should be housed in it or else many of the court rooms would be idle for a long time.
The new court house in Manhattan will provide fifty to sixty court rooms. A new Brooklyn court house containing forty court rooms would provide as much space as is likely to be needed during the next forty years, and the city would hardly care to lose interest on unnecessary space for a longer period. When, however, the civil business transacted in the new court house should need all of the court rooms, the city would probably feel the need of a separate criminal court building in some other part of the borough. It is unlikely that the county court will continue both its civil and criminal terms indefinitely. The tendency in all large cities is to separate civil and criminal trials both as to judges and location.
The new court house in this location would be near the Hall of Records, a comparatively new, sound and dignified building. Both judges and trial lawyers are accommodated by having the real estate, surrogate's and county clerk's records and books near at hand. Part of the large space under the new court house could be used for moisture proof vaults for the storage of obsolete papers that are already crowding the county clerk's office.
The great advantages of this site to the borough are apparent. It holds the court business of the borough in the locality which has for generations become adapted to it. It preserves and improves the present office center. It is the most convenient spot in the city for judges, litigants, lawyers and jurors, and is also the most accessible from the court, municipal and financial centers of Manhattan. The new rapid transit lines will make it more accessible from every part of Greater New York.
The present location of the Polytechnic Institute is not well adapted for educational purposes. Its future growth is circumscribed and probably it is only a question of a few years when another location must be found for this growing institution.
The site for the municipal building on Washington Street, opposite the Post Office, would have an area of approximately 52,000 square feet--being an irregular plot 380 feet by 150 feet. It would be a moderately high office structure and would fit an irregular plot of ground better than the more monumental court house. It would also be adjustable to the site bounded by office buildings with the height of which it would harmonize. The distance of the new municipal building from Borough Hall would be 800 feet. In Manhattan the distance between City Hall and the new municipal building is 640 feet. A station of the new Interborough subway will be near the corner of Fulton and Clark streets. This will be the great Manhattan west side subway, running south from Times Square through Seventh Avenue, Park Place and William Street, thence under the East River at Old Slip, thence through Clark and Fulton streets to the junction with the two tracks under Borough Hall, not now used, but which when used will make Brooklyn's four track subway to Flatbush Avenue, Long Island station, Park Plaza and Eastern Parkway.
Not only will the placing of the municipal building on the Washington Street site allow the much needed widening of that street without extra cost, but the erection of the court house on the present site as provided in this plan will admit of the widening of the streets by which it is bounded, viz., Livingston, Court and Joralemon streets. This consideration is important in view of the concentration of street cars and other traffic at this center of street circulation.
No other plan presents equally good sites for the new court house and the new municipal building. This plan has the further merit that it harmonizes the four factors, i.e., court house, municipal building, bridge plaza and re-location of tracks, in a manner where each factor brings additional benefit to every other factor. The removal of the elevated tracks without opening up the bridge approach would be only a partial improvement. Placing the court house on the Clinton Street site or Flatbush Avenue Extension site would have no relation whatever to the other three factors. This plan logically, harmoniously, and at comparatively small expense paves the way for the improvement of the entire area between Brooklyn Bridge and the Hall of Records and furnishes frontages that will attract the construction of substantial and handsome business buildings.
For these reasons we recommend:
1. The removal of the elevated railroad tracks from Borough Hall Park and lower Fulton Street, pursuant to the permissive legislation passed by the last session of the legislature as an amendment to the Rapid Transit Act.
2. The acquirement by the city of the land not now owned by the city between Fulton Street and Liberty Street on the west and Washington Street on the east, also three lots in the small block opposite Clark Street.
3. The widening of Washington Street to 110 feet, which is the same width as the throat between the Mechanics' Bank Building and Myrtle Avenue.
4. The location of the new municipal building between Fulton and Washington streets approximately opposite the Post Office.
5. The location of the new court house on the present site of the old court house, such site to include the land intended for the new municipal building, and also the rest of the land in that block on Court and Livingston streets, all court rooms to front on a large interior court.
FREDERIC B. PRATT EDWARD M. BASSETT FRANK M. BROOKS ALEXANDER MCKINNY FRANK C. MUNSON JAMES H. POST CHARLES A. SCHIEREN ALFRED T. WHITE HOWARD O. WOOD EDWARD C. BLUM
Dated, June 21st, 1913
ADDITIONAL REPORT
BY A MINORITY OF THE COMMITTEE
We, the undersigned, while agreeing with Recommendation No. 2 of the foregoing report, believe that all of the three blocks between Fulton Street on the west and Liberty Street on the east, should be acquired by the City and not only the three lots opposite Clark Street. Our reasons for this belief stated briefly are, that the buildings erected upon these blocks are of poor construction and unsightly and their condition will not be improved by the bridge approach, nor will a better class of buildings be erected in their stead. They stand as a menace to the improvement of Fulton Street north of Clark and if not removed will carry upon their rear walls billboards and signs which will mar the effect of the new bridge approach. If they are not removed the traveler, approaching Brooklyn by means of the Bridge cars, will have but a momentary glimpse of the improved plaza and the new municipal building as the train swings around into Adams Street. If, on the contrary, the buildings are removed the effect of the improvement will be noticed as soon as Sands Street is reached. This will be the more noticeable to travelers by the trolley and to pedestrians using the bridge.
The assessed valuation of these blocks is $442,850. If they are acquired by the City it is our belief that the increase in the assessed value of property upon Fulton Street immediately opposite to the blocks in question will more than equal the assessed valuation of the property taken.
HOWARD O. WOOD FRANK C. MUNSON JAMES H. POST
SUPPLEMENTAL REPORT
SUBMITTED TO THE COMPTROLLER WITH THE PERSPECTIVE DRAWINGS
It was recognized from the beginning of the study of this problem that any recommendations must of necessity take into consideration existing conditions and must co-ordinate with any general plans for the development of the borough as a whole. A thorough study has been given this question and it may be stated with reasonable assurance that the proposed location and general arrangement of the court house and municipal building not only do not in any way conflict with future changes but contribute very largely to the accomplishment of further improvements.
An exhaustive argument has been made already on the location of these buildings. In addition to the reasons already given for the suggested locations, it may be stated that the plaza site is not well suited as a location for the court house. On such a location the interior light courts would be too small to successfully serve the court rooms, and the block too irregular. Furthermore, since the character of the municipal building is that of a high office structure, a less regular plot of ground is required as a site than is the case with the more monumental court house. This building is more adjustable to a site bounded by office buildings with the height of which it will harmonize.
The court house is the focal point of a system of arteries leading to various centers--Washington Street to the Brooklyn Bridge, Court Street to the docks, Fulton Street to the retail business center at its intersection with Flatbush Avenue, and finally, Willoughby Street to Fort Greene Park.
Willoughby Street, along its distance from the Borough Hall Square to Fort Greene Park, should at some time be used as a relief to Myrtle Avenue and for that distance should be the important and improved street. Furthermore, it will become, if developed, a strong factor in relieving that portion of Fulton Street below Flatbush Avenue of the traffic from the eastern section of the Borough, which has for its objective point Borough Hall Square. This artery, leading directly to Fort Greene Park, centers on the Martyrs' Monument. Since this monument has been carefully placed on the axis of Willoughby Street, it is not only desirable but economical to bring it into value. Willoughby Street crosses Flatbush Avenue at its highest point and from this intersection the facade of the proposed court house will come finely into view. There will be, therefore, strong reasons for developing Willoughby Street.
The location of the municipal building on the plaza site will allow of the widening of Washington Street. It will further the improvement of the approach to the Brooklyn Bridge.
The erection of the court house on the present site near Borough Hall will admit of the widening of the streets by which it is bounded, namely, Livingston Street, Court Street and Joralemon Street.
Improvements such as these are very important in view of the concentration of street cars and other traffic at this center. Further relief might be had by placing additional street car loops at the Bridge plaza where part of the cars that now crowd Borough Hall Square might be carried around the north end of the proposed Municipal Building.
The buildings located as proposed do not make a formal group in the strict sense of the word. They may be made, however, to count together. One's attention, immediately on crossing the Brooklyn Bridge, whether by the cars, by vehicle or on foot, will be controlled by the facade of the municipal building with its foreground of public space and on passing beyond this building into Washington Street, one's attention will be carried with interest to the facade of the court house which will frame the Borough Hall silhouette and dominate Borough Hall Square.
Owing to the location of the Borough Hall on the Washington Street axis, it is recommended that no central motif be used in the court house design. The facade of the court house must be designed as a foil to the broken silhouette of the Borough Hall and its cupola. Should the Borough Hall be ultimately removed, the axis may be controlled by a central feature of monumental or commemorative character. The converging lines of the lower cornice of the buildings, of the curbs and of the lamp posts, carry the eye forward to this motif and to the facade of the court house.
Co-operation between the architect selected for the municipal building and the United States Supervising Architect should be urged, so that this building and the Post Office will be harmonious in architectural character.
Various monuments and architectural details are suggested on the plans. They must all be in harmony and in scale with one another and with the buildings. Their setting must be carefully studied in detail. The placing and proportioning of balustrades, of pools of water, of grass plots and in particular of trees must be done in the finest way, as it is only by a careful attention to all these details that this group can be brought into harmony of high order in keeping with its importance.
The spaces surrounding the public buildings, where not needed for circulation, should be parked and trees should be planted wherever they will serve to enhance the buildings, screen undesirable objects, at the same time not interfering with business interests. The same variety of tree should be planted throughout and should not exceed 25 to 30 feet in height.
Of almost equal importance is the question of lamp posts--their height, design, spacing and fixtures. It is suggested that this be exhaustively studied in the light of modern invention so as to make of the streets and open spaces involved, a model for other parts of the city.
The paving of these streets and open spaces also should be perfect. Creosoted wood block is recommended for its all round qualities.