New-Yorker Staats-Zeitung, June 30, 1895, p. 24

The Rapid Transit System. Commissioner William Steinway on the solution to the problem. -

The necessity for quicker connection between the lower and upper city was felt already a few years ago. Without hesitation one could insist that New York has suffered incalculable losses with this neglect. Neither Brooklyn nor New Jersey would have increased its population so quickly as it has done if it had been possible early on to go from the business district to the northern part of Manhattan Island in ways other than the slow and uncomfortable horse railroad. The first step for the creation of rapid transit occurred in 1875-78 with the construction of the elevated train, which after years of fighting with property owners and horse rail roads began operation seventeen years ago. Those who have lived in New York since then and have followed the development of the upper city know how quickly the areas through which the elevated trains traveled were occupied by houses. For the moment all needs seem to have been met and the question solved. But only for a moment and people with extended vision recognized even then that the elevated had to become insufficient and in time would have to think of better traveling methods.

This condition soon appeared. Hardly a few years had passed since the opening of the elevated trains when the steadily increasing traffic could not be handled without inconveniences. All sorts of plans have appeared to create real and sufficient rapid transit.

[Map of planned Tunnel and Elevated Train lines]

Mayor Hewitt, elected in 1886, suggested an extension of the “NY Central Railroad” to the vicinity of City Hall. The Vanderbilt, owners of the railroad were ready to execute the plan but permission from the legislature could not be obtained. In part the legislative body and the citizens were not ready to put this important matter into the hands of a corporation which unfortunately did not display any interest in the common good but had gained very important privileges from the City without coming close to performing any comparable compensation. Without a doubt public opinion was opposed to the granting of such a valuable monopoly to the Vanderbilt. Furthermore, the fact that professional politicians would gain neither offices nor money, contributed to the failure of the plan.

Of the numerous plans the “Arcade Railroad” also has to be mentioned, which was to be constructed under Broadway, since its execution not only seemed possible at the time but was seen by many as possible. The entrepreneurs wanted to build a tunnel for passenger trains while the sides were constructed with sidewalks and stores (arcades). Notable capitalists (also some French) were interest in the project and had already created proposals. The capital was totally signed for when suddenly the Upper-Appellate Court of the State of New York decided that the charter of the association was unconstitutional in that the character of the charter was not sufficiently expressed through the title of the affected law. Now a further attempt was made under the old Rapid Transit Act (Rapid Transit Law) of 1875 in that Mayor Grans appointed the following five new commissioners in April 1890: August Belmont, Orlando B. Potter, John H. Starin and Woodbury Langdon. [picture – William Steinway]

But soon the absolute inadequacy of the law became apparent. Almost all useful streets had been excluded over time from the effectiveness of the law with amendments to the stated law. And then the Commission discovered that an amendment accepted by the legislature in 1881, hidden among countless words, prohibiting it to build an express train over, under, crossing above or under 42nd St, which led to the end of any inclination for action by the commission.

It was now decided to aim for a totally new law and to name a commission of practical and disinterested men who were to thoroughly investigate and formulate plans for a solution. After the latter had already taken place through Mayor Grant this Commission was entrusted with the necessary all inclusive power through a law signed on January 31, 1891. The commissioners were William Steinway, John H. Starin, John H. Inman, Eugene L. Bushe and Samuel Spencer. The office went to work immediately. The overwhelming amount of work can only be imagined after attending any number of meetings. First all the presented plans had to be examined. Some appeared at first view as adventurous and impracticable, many however appeared to be practical enough to have to be examined thoroughly. Where ever there was so much as a valuable thought present it was mentioned with meticulous conscientiousness and evaluated from all angles. Tunnels and viaducts, columns and underground trains were evaluated for their advantages and disadvantages.

At the same time the Commission had to occupy itself with the lines to be identified. And this was perhaps the greatest difficulty to be overcome. The Commission meetings were visited by countless citizen delegations and committees. In addition individual property owners appeared and representatives with special interests in order to protest against one route in favor of another. Unanimity was as good as totally absent. The citizens of the upper city seemed to be united on only one point: Everyone wanted to have the train as close as possible to his property but under no circumstances on the street surface itself where his house or building plot was located. In other words: Everyone wanted the advantage from the improvement but not one wanted to accept any disadvantages. It was not easy to somehow even slightly equalize these objections. A ton of work was necessary to find the cornel of truth in separating the presented arguments infused with personal interests from those which would have to be useable for common welfare. In the end the Commissioners were able to formulate a plan and the date for the sale of the permit for the tunnel railroad to be built was planned for December 29, 1892 at City Hall.

The date passed without any result. Only one offer was made but could not be accepted since the bidder could not deliver any form of guaranty for his capability to execute the contract. Negotiations with capitalists and financiers who could have come up with the necessary funds dissolved since in every single case financial assistance by the City was demanded. There was no doubt that private capital could not be obtained in sufficient amounts for the construction of the railroad.

Yet the Commissioners didn’t step away from the suffered failure. The circumstance of having given for so many years of its valuable time and energy without any compensation being provided had earned it also all sorts of attacks in return. (The year before the NY Supreme Court had assigned every Commissioner $6,259 for his work. Mr. Wm. Steinway immediately transferred it to welfare institutions in Germany). And the fact that the established plans created under such enormous difficulties seemed to be in-executable did not cause them to throw down the work as maybe nine out of ten would have done. To the contrary: The Rapid Transit Commission declared itself ready for new sacrifices and decided not to give up its exhausting activities until all alternatives had been examined. The Commission considered it its duty to deliver the assigned task and to provide to the city the so necessary urgent relief.

Since for the moment the construction of a permanent rapid transit line, sufficiently meeting all requirements for the foreseeable time, seemed to be impossible, the Commission decided to create at least a temporary improvement in travel means through the expansion of the existing elevated trains. Again the Commission went to work. Again attention was paid to opinions of interested parties, subject experts and the inevitable professional know-it-all. Again a plan was created with much effort which would have given the city an elevated train network for the needs of the moment and the near future. But the selfishness of the “Manhattan Railroad Co.” had been under estimated. This company not only didn’t want to pay anything for the offered, very important and valuable privileges but believed to be entitled to very special compensation for the building of the new lines. It seems the company based its argument on the idea that the operation of the planned lines under someone else’s direction would be able to pay for itself and would only be possible in connection with the existing railroads. The ‘Manhattan Company’ refused to obligate itself to expand its rail net to the north of 190Th St. on the West side within twelve years so that the Commission had to break off the negotiations in July 1893. With that this plan too was a failure.

And so only one solution remained: namely that the City with its credit, support the entrepreneurs. Many offers to construct the railroad had arrived from various areas, this should happen. Here it was not about the demand to receive money from the City but only about the desire to secure a low interest rate for the necessary funds. An undertaking that requires fifty million dollars can only be possible if the company which executes the contract distributes obligations and in return receives cash from the public. A private company has to pay significantly higher interest rates for such bonds than the City since its payment promises are not as secure as that of the City. If the City thus either guarantees the company bonds or would want to issue its own bonds the difference between the two interest rates could be saved. Without exception the entrepreneurs were of the opinion that this saving would be large enough to make the ability for payment of the train system possible.

Guided by these opinions a draft law was created in 1894 which permitted the City to issue bonds of up to 50 million dollars for the construction of a west and easterly tunnel train. A new Rapid Transit Commission was elected in agreement with the legislature itself consisting of eight members instead of the former five. Members of the new Commission were: Mayor of the City William L. Strong, the Comptroller Ashbel P. Fitch and Seth Low, William Steinway, John Claflin, John H. Starin, John H. Inman and Chamber of Commerce President Alexander E. Orr. This new Commission held its first meeting on June 1, 1894 and started its work immediately.

According to this new law the entrepreneur was to obligate himself to operate the trains after their completion and to pay 3.5% interest on the construction costs plus another 1% for amortization. The contract was to be awarded to the entrepreneur who would be able to offer the highest lease prize in the form of the stated percentages. In addition the successful bidder was to deposit a million dollars in cash as guaranty for the execution of the contract. The law further required that the construction was to be first approved by the citizens of the City of New York. The latter took place at the November 6, 1894, an election in which the public with 132,647 vs. 42,916 decided to use the City’s credit as described above. When later the sum of 50 million dollars stated in the original draft proved to be insufficient the upper limit of the construction cost was set at 55 million dollars in the law as accepted by that legislature.

This was the preamble in short form of the rapid transit plan now close to its actuality and we can look at it in greater detail. At first it has to be mentioned that the 1894 law required a new Rapid Transit Commission. As stated earlier William Steinway, John H. Starin and John H. Inman with their vast experience belonged to this new commission joined by Seth Low, President of Columbia College, who had gained an excellent reputation while Mayor of Brooklyn and recently directed attention to himself by giving one million dollars for the library at his college. And Alexander E. Orr, as President of the Chamber of Commerce, which as a body had energetically worked for the new plan. John Claflin was also an important addition.

The new Commission set to work and had to re-do much of the work done earlier. Particularly the intention to build a viaduct at the Boulevard i.e. 11th Ave. between 91 and 111 St. and between 123 and 159 St. in order to reduce the costs. This caused such opposition from the property owners that it was decided to also build tunnels at these points even though that would increase the costs. That was the reason for the mentioned law which pushed the cost limit from 50 to 55 million dollars. The last sum is high enough to make the construction of the planned lines a certainty. According to the suggestions by experts the splendid work could even be built for less money. Here follows a plan and detailed description of the routes:

One route begins on the West side from Whitehall near South St. in the form of a bow [loop like a bow] which leads over Battery Place, Battery Park, State and Whitehall St near South Ferry. From there the line leads under Broadway and Union Square to 59th, then under the Boulevard to 123rd and from there via a viaduct along Boulevard to 134th and from there under Boulevard and 11th Ave. to 185th St.

Another bow is to be installed at City Hall Park and lead from Broadway over Mail St., City Hall Park, Park Row and Chambers St. and connect to the Broadway tunnel at Chambers St. From Park Row near Mail St another connection with the Broadway tunnel near Fulton St. will be constructed.

Starting at Broadway or near 14th St. a line under Union Square to 4th Ave up to 96th St. From there a viaduct leads through Park Ave. to Harlem River, construct a bridge over it, and then a viaduct leading left to Walton Ave and 138th and then along it to 146th St.

The bows at Battery Park and City Hall Park and the route on State St. under Broadway up to Park Place are to have parallel tracks from Park Place to 14th and from 14th to 135th; on the West side four parallel tracks which should be at the same elevation as far as possible. From 135th to 185th two parallel tracks are to be installed.

For the route on the East side from 14th to 44th four tracks are to be built under the same conditions as on the West side; From 44th to 146th and Walton Ave. two tracks are to be enough; for the connection under Park Row three tracks. These tracks are to have the usual width of 4 feet 8.5 inches and distance from the center of one to the center of the adjoining track 12.5 ft. The tracks are to run in the center of the street as much as possible except for Park Ave. between 44th St and Harlem River. There the tracks can be installed on each side of the railroad tunnel and the already existing viaduct.

In all cases the tracks are to lie in tunnels, except for the West side line at Boulevard and 128th since from there to 134th a viaduct is to be built. On the East side line a viaduct is to be built from 96th to Harlem River and from there to 146th St. On Park Ave. above 96th a viaduct already exists there the two tracks are to be laid on separate viaduct over the street i.e. one track each on each side of the now existing viaduct.

The roof of the tunnel is to be as close as possible to the street surface and the tunnel should be no less than 12 feet high. The width of the tunnel varies from 25 ft. at Battery Park to 37.5 feet at Park Row and up to 70 feet between 33rd to 34th St. On the entire length of the line pedestrian walk ways with safety corners are to be located. The viaducts are to have 12.5 ft width for each track in addition to a three foot wide walkway. A turning bridge no less than 24 feet above the river is to lead across Harlem River.

Under Broadway from Park Place to 14th and from 14th to 34th the tubing, wires, exhaust canals and other underground installations are to be located in the tunnel and outside of the tracks. In places where the tunnel is less than 6 feet wide these tubes etc. can be installed underneath the tracks. The tubing is to be installed in such a way that they can be freely accessed in case of repairs and provide a connection between them and the opposite lying houses. Where the various tracks converge under Union Square, one is to lie higher than the other so that trains from opposite direction do not cross one another at the same level. All entrances to the stations are to lie as much as possible on street corners and the stations below the street possibly provided with access through private property. Only on Boulevard is it possible to position the access to the stations in the middle of the street.

In the middle of the street on Boulevard fenced in openings for lighting and ventilation purposes are to be positioned, which should be 20 ft. wide and 50 ft. long and may not be installed so that they come in contact with cross streets; between two streets there may not be more than two of such openings.

For energy electricity or another power source which does not produce residue should be used and the motors should be able to move trains at a speed of no less than 40 miles per hour over longer distances.

In order to be constitutional and to protect all rights the rapid transit law imposed a number of duties and time consuming work on the Commission, which led to a lot of stand still.

After the Commission had determined the route and general plan it had to be presented to the Common Council for evaluation and receive approval from this body as well as from the mayor, the Park Commission and Commissioner Haffen for the district above the Harlem River. All these approvals have now been received. Now so-called ‘canvassers’ had to be sent out to obtain approval or disapproval from the adjoining property owners along the train beds. According to the new constitution half of the estimated tax revenue is necessary for approval. The property owners on Boulevard from 59th up to the northern end of the line as well as on 4th Ave. from 45th to 100th St. have almost all unanimously given their consent; the property owners on Broadway however have rejected it by a large majority.

Now the Commission was forced to appear at a general date of the Supreme Court so that a Commission could be established to give its approval instead of the property owners. But it was determined that the new State constitution says that in case of the non-agreement by the property owners an application to the Appellate Section of the Supreme Court is to be made. This department however does not meet until after January 1, 1896 and thus more delay is created by that. In the meantime the RTC will proceed energetically to do all the other work and produce all details and work plans so that the above mentioned delay will have little effect on its work.

This discussion would not be complete unless we consider the many told objections which have been raised against this project and possibly counter them. All sides admit that the city needs rapid transit and the opinions only vary in regard to the type of solution and this is largely only the case because of the generally unfounded and not entitled opposition to underground trains. Many of our citizens consider a tunnel inconvenient, unhealthy and abhorring – one almost wants to say: this superstition is grounded in ignorance. One has to admit that the tunnels used in this country are highly aggravating for the passengers. All one has to think about is the badly ventilated, hot and almost always foul smelling tunnel of the NY Central railroad! But one can’t! For one, in the meantime enormous progress in tunnel construction has been made. We don’t even want to talk about the London Underground railroad or the new tunnel which leads under the Mersey near Liverpool and meets all requirements and is by no means a nuisance to the passengers. And there fresh air can only be added at the end stations while here air shafts and openings with ventilation machines can be installed in abundance.

In the meantime the importance lies in the progress science has made in the usage of new larger propulsion and electricity. In the past only steam energy could be used for railroads and almost nine tenth of all aggravations which passengers endured in tunnels can be traced to the occurring dense smoke the locomotives produce. It is specifically prescribed in the law that the NY Underground railroad can only use electricity or another source which does not produce combustion. With that all rebukes and perceived deficits are conquered. One is not entitled to declare that New Yorkers don’t want a tunnel and would not ride in such. The citizens have voted with a large majority for the building of an underground railroad and without a doubt will use it when finished. It can hardly be denied that a ride in a tunnel, well lit, well ventilated, cool and free of hot steam has to be infinitely more comfortable than a trip in the over crowded and in every respect uncomfortable elevated train cars.

The objection that the railroad cannot be constructed for the lawfully determined sum has already been answered with facts: well-known capitalists and authorities in the areas of finance and technology have already declared to execute the plan. Since this support has now been secured the construction of the railroad can be seen as assured. Of course such a large undertaking cannot be completed quickly. Litigation with property owners and other project opponents is still to be carried out but these too will be overcome as already many of these types of oppositions have been defused in the past years. Large reforms, important innovations and newly discovered truths have to make their way through the thick wall of prejudices, faintheartedness, antagonistic thoughts and self interest met on the way to all progress.

Until now the Rapid Transit Commissioners (each of whom has to also manage a large private business) have found solace in the words of Schopenhauer: “The self awareness to have done any good is the highest reward of noble men.” The applause of the masses is secondary. These men have been severely attacked from all sides and there actions have been renounced often enough without even knowing them. These men who provided their service without any compensation to the City had over a hundred times reason to give up their duties for which they encountered only pain and ingratitude. They endured everything because they knew that under the circumstances no one could be found who would be willing to continue their work and therefore the whole plan would fall apart. They were willing to sacrifice themselves and to withdraw when their work was totally and completely done. The awareness of loyal dutifulness permitted them to look beyond the attacks and accusations hurled at them. They wait with calm confidence for the recognition which cannot fail to appear as soon as the first train runs through the tunnel and New York finally owns what it has aspired to for so long without success: a truly sufficient rapid transit system that adequately meets all requirements.
W i l l i a m S t e i n w a y

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