Dudley Square Municipal Center Study

DUDLEY STREET MUNICIPAL CENTER STUDY

PREPARED FOR:

DEPARTMENT OF NEIGHBORHOOD DEVELOPMENT

CITY OF BOSTON

THOMAS M. MENINO, MAYOR CHARLOTTE GOLAR RICHIE, CHIEF AND DIRECTOR

BY:

PRIMARY GROUP, INC.

APRIL, 2000

DND PROJECT # 6614

PALLADIO HALL

MBTA BUS STATION

DUDLEY MURAL

RESURRECTION

LUTHERAN CHURCH

PROJECT SITE

POLICE

STATION

LIBRARY


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TABLE OF CONTENTS

PHASE 3: Final Recommendations Page Chapter 1 Executive Summary

• Introduction 3 • Study Process 4 • Findings 5 • Recommendations 6 • Development Options 9 • Conclusions 11

Chapter 2 Project Team

• Agencies 12 • Community Groups 13

Chapter 3 Project Background

• Community Process 14 • Current Dudley Square Development Projects 16 • Coordination of Study 17

Chapter 4 Project Goals & Objectives

• Goals & Objectives 19 • Existing Conditions 20

Chapter 5 Project Methodology

• Community Process & Meeting Content 23 Chapter 6 Project Scope

• Opportunities 24 • Improvement Concepts 27 • General Improvements 29

o Site 29 o Library 31 o Police Station 32


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Chapter 7 Options

• Methodology 33 • Options 34

o Urban Context 42 o Historical/Cultural Entities 42 o Access – Pedestrian & Auto 43 o Building Function/Improvements 46 o New Construction 49 o Entrances/Building Image 50 o Signage 52 o Handicap Accessibility 53

Chapter 8 Impacts

• Methodology 54 • Pros./Cons. 54 • Phasing 58

o Short Term 59 o Long Term 59

Chapter 9 Project Cost Review

• Introduction 60 • Basis for Pricing 60 • Soft Costs 61 • Estimate 65

Chapter 10 Appendix

• A - Transportation / Air Quality Study Recommendations 68 • B - Meeting Minutes 69


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CHAPTER 1 EXECUTIVE SUMMARY

INTRODUCTION

The intent of this Study is to provide Master Plan options for the Dudley Street Municipal Center. Included are issues of image, pedestrian experience, amenities, traffic/parking, building function and systems.

This final phase of the Study focuses on providing physical, programmatic, and symbolic options for change that would create a more defined, and inviting Municipal Center. The existing conditions review including the a History of how the Dudley Street Municipal Center was established revealed the nature of the current urban context which is an important resource for forming the content of improvement Options. The second phase Options for change, addresses issues of building function, pedestrian accessibility, flow within the Site, vehicular traffic/parking issues, and cultural amenities. User and community input along with guidance from various City agencies including coordination with the Transportation/Air Quality Study and Modern Electroplating Site Development have been significant contributors to the content addressed in the Option development process.

The Dudley Street Municipal Center is comprised of the following facilities and spaces (see figure 1):

• Roxbury District Courthouse • Boston Public Library Dudley Branch • Boston Police Department Station B-2 • 3 Public Plazas • An upper plaza connecting to the Courthouse • A Courtyard between the Library and Courthouse

(Figure 1 – Aerial View of Project Site)


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The Dudley Street Municipal Center is in a desirable part of the City of Boston that is emerging as an area of opportunity for development. Although the Municipal Center is poorly laid out and unattractive, the Site offers the type of institutions and amenities that are essential for every community and are well placed to serve the Roxbury community. With the proper modifications the Municipal Center can be dramatically improved and become a major cornerstone of the overall revitalization of the Dudley Square area. STUDY PROCESS The Municipal Center Study process focuses on community, user group, and various city agency input. This guidance and feedback has been ongoing throughout the process and is critical for each phase. User group information has been relied upon to establish how the buildings function, community group input has identified issues that affect image and pedestrian experience, and agency input has been critical in formulating a cohesive approach for the development of options for change of the Municipal Center in the Dudley Square area. The Study was placed on hold for a period of time during the summer of 2001 to allow for the Dudley Square Transportation/Air Quality Study to develop findings and the Modern Electroplating Site Development to finalize its schedule. Members of the Municipal Center Study team actively participated in the Transportation/Air Quality Study ensuring that coordination between the two planning efforts was constant and were updated continually as to the development of the Modern Electroplating project. This coordination along with the previously mentioned user and community input process are examples of the open and inclusive process that defines the Municipal Center Study. This high level of coordination has served to better inform both projects producing clear and focused findings responsive to community and user needs. The Study is segmented into three distinct phases:

• Phase 1 starting in February 2000 and concluding in April 2000 focused on the existing condition assessment of the project site and buildings. The Site image, pedestrian experience, amenities, transportation/parking, and urban context were evaluated, as was the Police Station and Library’s image, function, and, access.

• Phase 2 starting in April 2000 and concluding in June 2001, drawing from

information collected during Phase 1, focused on Master Plan opportunities for change and from the Transportation/Air Quality Study. The identification of opportunities and development of Options has served as a menu of recommendations. A review of these options by the users and community guided the study to the recommendations phase.

• Phase 3 starting in July 2001 and concluding in October 2001 has focused on

final recommendations in the form of three options and includes cost estimates. The final recommendations incorporate changes that were noted during Phase 2 review and includes planning goals identified in the Phase 1 existing conditions evaluation. The cost estimates establish general costs for the options.


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FINDINGS The Dudley Square Municipal Center Study has developed some significant findings. The existing conditions portion of the study resulted in a broader knowledge of the diverse cultural and historical aspects of the area as well as establishing the positive and negative elements that the Municipal Center has to offer. The master planning of Phases 1 and 2 along with coordination efforts with the Transportation/Air Quality Study established community and user group needs, which identified the issues to be addressed, and shaped the form and direction of recommendations for change. Both portions of the study were integral to the overall process, which led to identifying opportunities for change of the Municipal Center and the creation of options that would make that change possible. The following are significant findings of each Phase: Phase 1 has identified several deficiencies in the Municipal Center that need to be corrected for improvement in the appearance and functionality of the Center:

• The Police Station was designed for nearly one half of its present occupants creating an overcrowding condition.

• The Police Station overcrowding has created a Site parking problem that needs to be resolved for any improvement initiatives to be successful.

• Although the Library floor area is close to meeting its needs, the spaces are disconnected and not organized efficiently.

• The removal of the Courthouse parking from the City’s inventory has contributed to the Site parking shortage, resulting in parking on Public Plaza space.

• Public Plaza spaces within the Site are harsh, uninviting, and unkept posing safety hazards.

• The overall introverted design and layout of the Municipal Center prevents continual maintenance and a sense of ownership of exterior spaces.

• Exterior building facades are fortress-like and unfriendly. The Study also identified Site advantages that need to be maintained and enhanced:

• The Center’s location is ideal for a public plaza because of its proximity to Roxbury’s transportation and commercial centers.

• The Police Station and Library are the anchors of the Municipal Center and are important components of the Community.

• The Site is an adequate size to accommodate the space required for the Library and Police to provide the current level of services expected.

Phase 2 identified opportunities for improvement that correct the deficiencies noted in Phase 1 and build on the Site advantages. This portion of the Study coordinated with the Transportation/Air Quality Study, which also formed a set of improvement opportunities. The following are opportunities for improvement noted in both Studies:

• A substantial change to the Police Station’s image and usable space is required. • In addition to needing a significant improvement to the existing Police Station the

concept of a new building on the current site is a consideration.


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• Improved identity, including improved visibility of the entrance and more efficient use of space for the Library is needed. As is handicap accessibility.

• A significant addition of parking is needed as part of all proposed changes. It is critical that parked cars are removed from the public plaza.

• The Municipal Center’s plaza areas must have improved edges, strengthened pedestrian access, strengthened connection to upper plaza, removal of small non-functioning shaded areas, coordination with building entrances, and the development of the plazas to support public events.

• Opportunities to create cultural and historical exhibition and retail spaces that increase daily use by the public is needed.

• Coordination with the Modern Electroplating Site Development provides an opportunity to correct some of the Municipal Center’s deficiencies, such as; access to the Site and Site parking.

• A clearly defined Public Plaza facing Dudley Street connecting to the Upper Plaza could provide a unifying element that supports the entries to the Library and Police Station.

Transportation/Air Quality Study Issues:

• The current Police parking entry location creates a pedestrian hazard allowing vehicles to cross pedestrian access paths and adds to the congestion of the intersection.

• Development nodes within the Site could strengthen pedestrian crossings. • The pedestrian experience along Dudley Street could be improved with the

removal of the angled parking and general streetscape enhancements. • Mid-Block crossings around the Site need to be prevented through streetscape

enhancements. • Pedestrian and vehicular access points need to be coordinated with streetscape

improvements and the proposed Parking Garage adjacent to the Site. Phase 3 identifies specific recommendations and created incorporated these recommendations into three development options. The recommendations outlined in Phase 3 are as follows: RECOMMENDATIONS

• A defined Municipal Plaza in addition to extensive streetscape enhancements is required to improve pedestrian access and activity and to create a clear identity. Providing clear access and a warm and inviting environment around and within the public avenues of the Municipal Center is critical for achieving a new identity of accessibility and vibrancy. Enhancements of the public spaces within the Site and its overall streetscape environment were major issues identified by the community and have been revealed as the first aspect of the Site that the general public experiences. It is crucial that this threshold to the Municipal Center is changed to provide an inviting and accessible image.


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• Partnerships with the Courthouse and the developer of the adjacent Modern Electroplating Site that consolidates back of the house functions and provides parking for Municipal vehicles is important in creating an improved identity. Municipal parking has the most significant negative effect on the current Site and needs to be resolved for any improvements to be possible. All three of the options for change are dependent on Municipal parking being provided through a partnership between the Municipal Center and its future neighbor.

• A connecting road for Municipal traffic only that would provide a connection

between Washington and Warren Streets is needed to achieve proper access of Municipal vehicles to and from the Site. It is assumed that the proposed parking garage on the Modern Electroplating Site would have an entrance/exit off of Washington Street, if an agreement is reached to allow Police vehicles to park at the garage along with a connection to Warren Street, the Police would have access to their new parking from two points removing their presence from the intersection of Dudley and Washington Streets currently creating a pedestrian hazard, divide the volume of Municipal vehicles entering the Site between two points, and allow Police vehicles to exit in unabated condition.

• A significant change to the entrance sequence to the Library in the form of a building addition is important in establishing an improved identity for the building. Possible locations for the addition are presented in the options for change. Another change needed for the Library to improve building function is a new elevator to provide handicap accessibility to the second floor.

• A significant increase of space for the Police Station is necessary for the

facility to meet its current obligations. Expanded office space, improved public space, and conference rooms for community and department meetings is critical for the Station to function. This added space could be in the form of a large addition and renovation to the existing structure or a new facility on the current Site. The layout for each option is presented in the impacts portion of the Study.

• Removal of parked cars on public space throughout the Municipal Center is

critical for any improvements to be successful. The parking problem on the Site is one of the key components of the Center’s improvements and any improvement project cannot be implemented until the parking problem is resolved.

• An exhibition space for local historical and cultural entities is needed within the

Site. This space would provide a venue for local artist to display their work and communicate with the community and allow for many historic artifacts to be displayed by residents and visitors. This space could be within the Library or its proposed entry addition or it could be a separate entity within the Site in the form of a new building. The options for change explore the potential scenarios for this element. The exhibit space could include a café that would provide an additional attraction to justify the creation of a building within the Site.


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• Identification of and coordination with various development projects ongoing in Dudley Square will be noted as will overlap between those initiatives and the Municipal Center Study including potential opportunities that coordination between efforts could develop. Although the Study will produce recommendations for the future development of the Dudley Street Municipal Center to the extent the City controls the property or can influence positive change, several development projects and other initiatives have been identified and it is important that the Study recognizes these initiatives and notes overlap of intent. It is critical that a consensus is reached between initiatives that have similar objectives so that resources and effort are not wasted.

• Attracting some kind of retail entity to the Municipal Center is important in creating diversity of use that attracts the general public an improves the level of vitality for the area. Diversifying the attractions offered at the Municipal Center will improve its identify and promote use. The options for change offer a variety of ways to introduce retail to the Site from the creation of a new building to allowing pushcart vending on the proposed plaza space.

• Defining a small green pocket park off of Warren Street is recommended to

soften the streetscape and provide a setting for the display of public art. Performance art requires a larger Site, which the main plaza can accommodate. This pocket park can also be used by the general public throughout the day as a short-term rest area.

The recommendations presented offer a summary of the options proposed and are an outline of the content within the Study. The options, impacts, and cost review sections of the Study outline the specific elements of each recommendation and present the advantages, disadvantages, and cost considerations. The recommendations offer various options for each of the issues outlined in the findings. The project cost review provides funding information for choosing the most appropriate direction for change.


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DEVELOPMENT OPTIONS Three development options were created as part of Phase 3 of the Study. These options incorporate the recommendations and illustrate different approaches to achieve the Study’s recommendations. The following is a brief description of each option:

• Option A enhances existing elements within the Municipal Center with renovations and additions. The option expands and renovates the existing Police Station, adds a new entrance to the Library towards Warren Street, makes Site improvements to the Center’s plaza areas and pedestrian pathways, and creates a Winter Garden between the Police Station and Library to bring economic development and more public oriented venues to the Site.

• Option B has two

components. Option B1 creates new economic development opportunities within the Municipal Center. This option significantly alters the existing Site by moving the Police Station into a new building adjacent to the Modern Electroplating Site Development. This allows the existing Station to be converted to retail use. The option also improves the Site’s streetscapes and plazas.


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• Option B2 also builds a new Police Station adjacent to the Modern Electroplating Site. This option focuses on public space by removing the existing Police Station building for the creation of a large Municipal Plaza. An exhibit space adjacent to the Library is also created. Streetscape improvements are also made as part of this option similar to those in option B2

• Option C presents a direct coordination with the Modern Electroplating Site development by locating a newly constructed Police Station to the far end of the Modern Site and allowing the Modern Site to expand into the Municipal Center. This option wraps both sides of a large Municipal Plaza with uses that support public activity. A new entrance for the Library is created off of the Municipal Plaza.

The project cost review portion of the Study offers insight into the level of funding that will be required to implement any of the Options for change. Costs noted below are in 2003 dollars and include overhead, profit, and general condition. The cost review was separated into individual components to allow for improvements to be made incrementally if funding is not available to implement an entire Option. The following are significant findings from the project cost review:


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• Option A would cost approximately $12,154,000. Although this Option addresses the issues and opportunities noted within the Study it makes the least significant change to the physical character of the Center opting to preserve the existing structures and enhancing them with building additions and new amenities. This option does not make a bold change to the overall Site.

• Option B1 would cost approximately $11,707,500. This Option recommends

building a new Police Station, which would significantly change the character of the Center. The existing Police Station Site would become a future development opportunity. This cost does not include costs for transforming the existing Police Station into a mixed-use facility. That cost would be the responsibility of the developer.

• Option B2 would cost approximately $14,979,500 and is the most expensive

option recommending a new Police Station, Cultural building, and a large Municipal Plaza. This Option makes dramatic changes to the physical character of the Center and significant upgrades to the overall urban context and pedestrian experience. This Option recommends the most extensive changes to the Site.

• Option C would cost approximately $14,979,500 and offers a direct partnership

between the Municipal Center and the Modern Electroplating Site Development including a new Police Station on the Modern Electroplating Site, extension o the Modern Sit Development onto the Municipal Center, a Cultural building, and a large Municipal Plaza. This Option makes dramatic changes to the physical character of the Center and significant upgrades to the overall urban context and pedestrian experience. This Option recommends extensive changes to the Site.

The cost difference between a renovated and expanded Police Station proposed in Option A and a new Station proposed in Options B1, B2, and C is not significant when additional costs needed to renovate the existing structure are considered. Although a new Station is more extensive the additional cost noted in this Study provides more overall space and a more efficient type of space then can be achieved renovating the existing facility. The changes proposed for the Library are similar in cost between the three Options. Options B2 and C are slightly more expensive because a new Library entry is proposed facing Dudley Street, which requires more extensive interior changes. CONCLUSIONS The Municipal Center Study clearly reveals the methods for change. Minimal enhancements and large-scale changes are offered for review as potential improvements outlining all of the directions that could be taken. Along with specific improvement recommendations the Study places an emphasis on establishing guidelines for improvements so that all initiatives in the area follow a cohesive planning effort. Maximizing financial resources and minimizing wasteful duplication of effort is critical for the overall Dudley Square area to continue to experience revitalization.


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CHAPTER 2 PROJECT TEAM The Study has been initiated by the City of Boston’s Department of Neighborhood Development to address the issues and possible improvements to the project site. The following is a list of all agencies, building users, community groups, and residents involved in the support and guidance of the Study: AGENCIES

• Property and Construction Management Department Maureen Anderson Senior Project Manager Charles Worcester Assistant Director Hector Munguia Senior Review Architect Andrew Hudak Deputy Director Michael Galvin Commissioner and Chief

• Primary Group, Inc. – Project Consultants

Matthew Bluette Planner Kirk Sykes Managing Principal

• Shooshanian Engineering, Inc. – Architects Subconsultant

Joseph Puglisi Engineer

• Daedalus Projects – Architects Subconsultant Richard Marks Cost Estimator

• Boston Police Department

Mark Lynch Director of Facilities Captain Albert Goslin Commander Area B-2 Lieutenant Marcy Corwin Duty Supervisor Area B-2

• Boston Public Library

Worth Douglas Branch Capital Planning Elaine McLean James Dudley Branch Librarian Joe Sarro Building Superintendent

• Boston Redevelopment Authority

Noah Luskin Project Manager Tom Ahern Environmental Development

• DND – Office of Business Development

Charlotte Golar Richie Chief and Director Keith Hunt Project Manager Steven Rumpler Project Manager – Modern Electroplating Site


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• Boston Transportation Department Ralph DeNisco Transportation Planner

• Trust Office

Robert Fleming Director

• Mayor’s Office of Neighborhood Services Derric Small Coordinator

• Department of Capital Asset Management

Liz Minnis Court Facilities Director Bill Dulong Project Manager Warren Madden Project Manager

COMMUNITY GROUPS

• Dudley Square Main Streets Joyce Stanley Executive Director David Johnson Design Committee

• Friends of Dudley Library

Josephine Brown President Charles Dickerson Member Ronald Shelburn Member

• Dudley Square Merchants Association

Clayton Turnbull President

• Community Participants Joyce Stanley Executive Director Dudley Square Main Streets David Johnson Dudley Square Main Streets Clayton Turnbull President Dudley Merchants Jean Morgan Local Resident Tina Dent Urban League of Massachusetts D. Elaine Corbin Human Site Guide Josephine Brown President Friends of Dudley Library Charles Dickerson Friends of Dudley Library Edna Bynoe Orchard Gardens Resident Association Jean Pinado Director Madison Park Village Gloria Fox State Representative Ronald Shelburn Friends of Dudley Library Chuck Turner City Councilor Angela Yarde District Office of Chuck Turner Francine Morse Local Resident


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CHAPTER 3 PROJECT BACKGROUND COMMUNITY PROCESS The residents and business owners in the Dudley Square area are a well-represented and knowledgeable group of concerned residents and professionals. The community process for this Study has been a success in terms of the response from the community that has occurred. The final recommendations express the well thought out and articulated impressions and beliefs that the community offered on a regular basis throughout the process. Along with a strong presence of small businesses, Dudley Square is home to many municipal and community institutions such as (see figure 2):

• The Boy’s & Girl’s Club • Social Security Department • United States Postal Service • Morgan Memorial Goodwill • Urban League • Boston Public Library Dudley Branch • Boston Police Station B-2 • Roxbury District Courthouse

All reside in the area and are symbols of a strong community group and public agency presence. Dudley Square’s Municipal Center comprised of a Courthouse, Police Station, and Library are prominent services that the surrounding residential community benefit from. These institutions and services combined with a major bus station make Dudley Square the center of many activities for Roxbury. A strong growth of commercial, retail, and office space within Dudley Square is contributing to an overall improvement in the neighborhood. Current development initiatives such as the refurbishment of the historic Ferdinand building into new offices for the Commonwealth’s Department of Public Health and the development of the Modern Electroplating Site, adjacent to the Municipal Center, are examples of an ongoing growth within the Square. Coordination between the Municipal Center Study and the Modern Electroplating Site development is critical and could present opportunities that benefit the projects. Dudley Square’s location positions the area to be a vital link between Roxbury and Downtown Boston. New development along Melnea Cass Boulevard is emphasizing the connection and reinforcing the emergence of the Square. A new peace park across from the Modern Electroplating Site offers a green public space for the community. Proposed improvements to Washington Street as part of the Silver Line extension mass-transit project will strengthen the link between Dudley Square and Downtown Boston, further opening access and opportunity.


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(Figure 2 – Neighborhood Context Plan)

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CURRENT DUDLEY SQUARE DEVELOPMENT PROJECTS The current emphasis on renewal in Dudley Square reveals the emergence of development opportunities in the area. Several projects that are planned in the Square will have a significant affect on the changing image and revitalization of the Square. The recently completed refurbishment of the historic Palladio Hall is testament to the continuing focus on Dudley Square as a desirable and important part of the community. The Dudley Street Municipal Center Study will coordinate with these projects as part of an effort to put forth cohesive planning. Options for change which, are part of the Study, will incorporate information from other projects so that potential opportunities created through coordination between initiatives are noted. The various projects intended are in varying stages of planning and implementation. The different forms of development projects can be categorized into three distinct types based on their current state of progress. The three types are near future development projects already planned, planning studies underway, and anticipated future development projects not yet planned. The following is a list of the development projects intended for the Dudley Square area: Near Future Development Projects:

• Refurbishment of the historic Ferdinand building. • Refurbishment of the historic Dartmouth Hotel building. • Development of the Modern Electroplating Site - Garage. • Cultural Events Project in front of the Library. • The Silver Line Project. • Judge Edward O. Gourdine Peace Park. • Bartlett Housing Development. • 2201 Washington Street. • New Orchard Gardens K-8 School. • Silver Line - Streetscape improvements.

Planning Studies:

• Transportation & Air Quality Study. • Roxbury Master Plan.

Anticipated Future Developments:

• Elliot Square and Dudley Square Link. • Blair Lot • Bartlett Yard

These projects address individual opportunities in the Dudley Square area and are an indication of its potential. Entrepreneurs realize changes that are taking place and as a result an increasing tide of development projects is planned. It is critical that the projects intended along with any new developments proposed are all required to coordinate efforts with the various planning initiates that are under way. These planning initiatives provide a voice for the community and are establishing standards that planners and designers of new development projects need to be made aware of.


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COORDINATION OF STUDY A comprehensive approach to unified design and coordination between the Municipal Center and development projects in and around Dudley Square is critical for the successful implementation of improvements that work together to provide the area with a unified identity. Improvements in the quality of spaces and how the Municipal Center functions, combined with the creation of an image that reflects the diverse character of Dudley Square, can be achieved through the careful coordination of resources that will ensure initiatives for change are well implemented and avoid duplication of effort. This coordinated approach will also ensure that the new identity is esthetically appropriate and unified preventing a patchwork, disjointed appearance from developing. The following are projects that have a connection to the Municipal Center Site: The refurbishment of the historic Ferdinand building is part of a larger development project that will house the Commonwealth of Massachusetts’ Department of Public Health (DPH). Originally the start date for the project was July 2001. However, because of recent fiscal issues the project is being reviewed by the Governor’s office. When the project receives approval The Municipal Center Study has coordinated with the early planning initiatives for this project taking into consideration the projects eventual effect on the area. The development of the Modern Electroplating Site adjacent to the Dudley Police Station into an office building with a parking garage for DPH employees is planned. The project has been initiated by the Boston Redevelopment Authority and the Department of Neighborhood Development. The Municipal Center Study includes guidelines for several aspects of this future development such as:

• Building Mass. • Urban Edge. • Streetscape. • Public Spaces.

Options for change explore opportunities that development of the Modern Electroplating Site offer. Integrating Municipal parking into the proposed parking garage to alleviate congestion on the Municipal Center Site is a key component to the future development of the Center. A Transportation & Air Quality Study dealing with pedestrian safety, traffic congestion, public transportation, parking, and air quality for the Dudley Square area was conducted. The Boston Transportation Department initiated the project and after a lengthy process was completed in the Fall of 2001. The study was initiated to coordinate the various development projects and to rectify the existing traffic and pedestrian problems in the square. The Municipal Center Study has closely coordinated with this project on aspects of:

• Pedestrian Experience. • Streetscape Improvements.


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• Parking Issues. • Pedestrian Street Crossings. • Vehicular Access to the Site.

These overlapping issues between the Transportation/Air Quality Study and the Municipal Center have been coordinated so that concerns are addressed by the appropriate party responsible and to prevent redundancy and to promote a comprehensive design between initiatives. A cultural Events Project in front of the Library has been initiated by the Browne Fund and is intended to enhance the public space. No specific start time is scheduled. The Municipal Center Study will coordinate with this initiative so that it is included in proposed Library and streetscape improvements. Options for change presented in Phase 2 include defining various public plazas throughout the Site with specific program. This initiative could serve as a specific public use that defines the plaza in front of the Library. The Silver Line Project managed by the Boston Transportation Department is intended to restore to Dudley Square, a dedicated form of mass-transit. The first phase of the project has been completed. The Municipal Center Study will coordinate access between the Center and the Silver Line station in addition to coordinating streetscape improvements such as; signage, paving, lighting, and furniture. An emphasis on minimizing redundancy between projects and establishing a coherent image and pedestrian flow for the area is the focus of coordination between the Municipal Center and the Silver Line Project. An Elliot Square and Dudley Square Link is being planned. The link will be in the form of streetscape enhancements and signage. The Municipal Center Study will coordinate pedestrian access issues with this initiative. A focus on establishing a rhythm of activity along this link that flows into changes proposed for the Municipal Center Site is an important aspect of coordination between the initiatives. The Judge Edward O. Gourdine Peace Park initiated by the Boston Redevelopment Authority is a redevelopment of the island in front of the Modern Electroplating Site into a park space. This is a Browne Fund project that is slated to start construction in the Fall of 2000. The Municipal Center Study will review this project to explore opportunities that could link the plaza to other public spaces on the Municipal Center Site. A need to link areas of activity throughout Dudley Square is vital to creating an improved image for the Municipal Center and increased vitality to the overall area. Several proposed projects combined with recent renewal achievements signify the current period of change and growth in Dudley Square. The Municipal Center and Transportation/Air Quality Urban Studies are intended to provide the planning necessary to ensure the Square has a clear and coherent vision to guide the changes that will take place. The studies will also ensure that the community voices their concerns and needs and has a measure of control over the growth in the area.


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CHAPTER 4 PROJECT GOALS & OBJECTIVES GOALS & OBJECTIVES The Dudley Street Municipal Center Study includes two sets of components that are intended to guide the Center into a direction for positive change. The first set of components is the Study’s goals. The goals of the Study are conceptual in nature and are intended to provide a vision of what the Dudley Street Municipal Center can become. There are three major goals presented in the content of the Study:

1. Identify the character and main attributes of the Municipal Center as it is today – this includes identifying the positive and negative aspects and surrounding character of the area so that an overall image is developed.

2. Identify opportunities for the Development of a menu of potential changes that will improve deficiencies within the Center, add elements to enrich the Site, and develop ways to define the Municipal Center’s identity – this includes the creation of options for change that can be used as a whole or as a menu of individual pieces to be implemented as appropriate.

3. Identify the coordination and partnership opportunities that will most likely affect positive change to the Municipal Center through the making of recommendations – the recommendations are based on the results of the options creation process.

The Study objectives reflect the intricate and in-depth nature of the Study Process. The objectives are the physical aspects of the Study that form the content of the goals presented and informs the recommendation process. The need to establish the Municipal Center’s background and current status along with acknowledging the strong community interest in the Center has led to the following three objectives:

1. Conduct an existing conditions review to establish the positive and negative aspects of the Center – that provides necessary information for content of goal 1.

2. Conduct a community and user group review process to establish opportunities within the Center – this establishes the options developed in goal 2.

3. Establish partnership and coordination opportunities by analyzing other development projects and initiatives in the area that may effect the Municipal Center – this provides the background necessary for development of recommendations made in goal 3.

The Municipal Center Study is not intended as a single solution. The Study is a process of identifying and recommending. The Study identifies positive and negative existing attributes of the Site and compiles user group and community perceptions of the Center. This process will provide the necessary information for opportunities to be defined and improvement options created. This will allow for the formation of recommendations based on options for change and partnership possibilities that could lead to the implementation of improvements. Through the approach of creating conceptual goals that are based on material observations and analysis the overall process develops a sound direction for improvement of the Municipal Center.


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EXISTING CONDITIONS Although several aspects of the Municipal Center require improvement, some components of the site and buildings are welcoming assets to the Center and Dudley Square and will benefit from changes that enhance the overall identity of the site and facilities (see figure 3). The Municipal Center was designed and constructed during a different era in the City’s history when it was introverted and protective of public buildings. While they may have been appropriate at the time, the buildings and site should represent a more positive aspect of civic involvement, pride and service to the community.

(Figure 3 – Site Advantages and Disadvantages)

ADVANTAGES

• The three plaza areas and open space between the Library and Police Station are fairly large spaces that can be enhanced to provide an improved connection between the Municipal Center and public.

• The Library’s location on the Site is ideal for its function. • The Library has sufficient flexibility to improve interior organization in the building. • The Police Station is an important component of the Municipal Center that the

community values having in Dudley Square. • The overall Dudley Square area has valuable developable land that could be

utilized to improve issues of parking and space congestion.


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DISADVANTAGES

• The Municipal Center’s image is fortress-like with blank building facades that are unfriendly and uninviting.

• Pedestrian flow around and access to the Site is disconnected and confusing. • The plaza spaces are in shadow most of the day throughout the year. • Lack of parking is overwhelming the Site compromising pedestrian circulation. • The Library’s interior organization is disconnected and difficult to manage. • The Library lacks parking for staff and patrons and a space for trash disposal. • The Police Station lacks adequate space to provide the current services required. • The Police vehicles access entering/exiting the Site from the intersection of

Dudley and Washington Streets is difficult. • Building entrances are obscure and uninviting. The Police public entry is towards

the rear of the building while the staff entry is in the front. • Police parking access conflicts with pedestrians and intersection traffic flows.

The focus of the Municipal Center’s existing conditions assessment includes:

• The Dudley Branch of the Boston Public Library. • The Area B-2 Boston Police Station. • The Roxbury District Courthouse (minimal assessment).

The following supporting Site spaces are included as part of the focus:

• A taxi stand along Dudley Street in front of the Library. • Angled parking currently used by the Police Department on Dudley Street. • Three plaza areas along Dudley Street. • Police parking lot between the Station and the Modern Electroplating Plant Site. • Streetscape along Warren and Dudley Streets.

The Dudley Street Municipal Center Site is bound by Warren Street, Dudley Street, the Courthouse Site, and the Modern Electroplating Plant Site (see figure 3). The Dudley Branch Library is a two-story building with approximately 25,000 square feet of space. The Library was originally designed with a full second floor that would have been housed within the two story high volume of the central reading room. This original design positioned the main entry at the second floor level facing onto the courtyard between the Library and Courthouse with the current main entry serving as a separate secondary entrance for the community room on the first floor. The current second floor was originally intended to be a mini-City Hall and not space for Library use. A portion of it is currently used as a daycare center for the Courthouse. The remaining space is used for the Library’s Literacy Center. There is no elevator to the second floor or openings within the building interior for observation. The stair connecting the first and second floors is in a remote location of the building not under staff supervision. This lack of access to and control over the second floor space is a critical problem.


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Current problems that have a negative effect on how the Library functions include:

• Lack of sufficient parking for staff and patrons including handicap parking. • No designated space for the delivery and pick up of books or the pick up of trash. • The Library has sufficient interior space, however, the lack of an elevator and

visual connection to the second floor make operation of the facility problematic. The B-2 Boston Police Station is a two-story building with approximately 20,000 square feet of space. There are approximately 59 marked spaces for Police vehicles:

• 28 vehicles between the Station and Modern Electroplating Site. • 14 vehicles on angled parking along Dudley Street. • 17 vehicles on plaza 3 (originally intended for public use).

The space within the police Station is significantly insufficient to accommodate the current standard program of functions that the Boston Police Department requires in its Stations. The new South End D-4 Police Station under construction was designed to house a similar program as the Dudley Station and includes a significantly larger total square footage, approximately 27,000 square feet. The B-2 Police Station was originally designed to serve 120 staff members and 210 currently work out of the Station. This dramatic increase in personnel combined with an inefficient triangular building shape has led to a severe shortage of space at the B-2 Station. The increase in personnel has also led to a shortage in parking space for police vehicles. Currently there is a need for approximately 95 police vehicles and additional public parking spaces close to the main entry. The current parking situation is undesirable and lacks flexibility for improvement or expansion. The existing conditions of the Dudley Street Municipal Center, built in the late 1960’s, have revealed inefficiency and underutilization concerns that will be explored in detail in the following sections. Related issues that are affected by these concerns such as pedestrian experience, image, and access will also be defined. A separation of issues and their associated possible improvements into two categories, capital expenditures and general maintenance will follow. The Roxbury District Courthouse is presently controlled by the Commonwealth of Massachusetts and, is not part of this study. In 1993 land that the Library owned and used for parking was taken by the Courthouse. A renovation/addition to the courthouse occurring at that time included turning the Library parking into the current courtyard between the buildings. Approximately 12 parking spaces that the Library lost as part of the land taking and subsequent creation of the courtyard, were not accommodated by the Courthouse in some other manner leading to Library staff parking on the open plaza space between the Library and Police Station. The land taking also has left the Library without public and handicapped parking for its patrons. The Courthouse Site has a total of 106 parking spaces and an additional 26 spaces that are not defined for parking. These spaces are not currently accessible for use by the Library and Police Station, which, has contributed to a Site parking shortage.


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CHAPTER 5 PROJECT METHODOLOGY

COMMUNITY PROCESS AND MEETING CONTENT The Options portion of the Dudley Street Municipal Center Study presented opportunities for change based on a combination of user group, community advocate, and city agency information. Several meetings were held with each group. Feedback on the options presented was gathered. Subjective perceptions of potential changes to the Municipal Center were discussed by the people who are responsible for or interact with the facility on a regular basis. The following is an outline of the meetings that occurred since Phase 1 and includes the location, participants, and overall content reviewed. A copy of the meeting minutes for each meeting is included in Appendix A of the Study: Meeting 10 – April 19, 2000 at the Department of Neighborhood Development (DND)

Attendees City Agencies, User Groups, Architects. Meeting Content The meeting focused on coordinating material to be

presented at the Advisory Board meeting scheduled for April 25, 2000.

Meeting 11 – April 25, 2000 at the Boston Public Library – Dudley Branch

Attendees Advisory Board, DND, Architects. Meeting Content The purpose of the meeting was to review Phase 1 findings

of the Municipal Center Study with the Advisory Board and present options for change as part of Phase 2.

Meeting 12 – August 7, 2001 at the Department of Neighborhood Development (DND) Attendees City Agencies, User Groups, Architects.

Meeting Content The meeting focused on the content of recommended options and to update all parties as to the Study’s schedule and the Modern Electroplating Development’s progress.

Meeting 13–September 6, 2001 at the Department of neighborhood Development(DND) Attendees City Agencies, User Groups, Architects.

Meeting Content The meeting focused on the User Groups impressions of the final recommended options for the Study.


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CHAPTER 6 PROJECT SCOPE

OPPORTUNITIES The findings from Phase 1 and Phase 2 of the Municipal Center study reveal that there are several opportunities to improve the image and enhance the public and user experiences of the Center. Although significant change in a large-scale form is needed in some aspects, smaller scale opportunities for change that address issues and concerns exist throughout the Site. This portion of the Study identifies small scale and large scale areas of potential that could be utilized to address the concerns noted (see figure 4). These opportunities include suggestions from the Transportation & Air Quality Study. The following is a list of opportunities for change based on the Site as it presently exists: Various public spaces around the Site could be used to enhance several aspects of the Municipal Center (see 1-8 figure 4).

• Plaza 1 in front of the Library could be used to provide an expanded Library entrance and bring the facility to the street helping to clarify the Library’s image.

• Plaza 2 in front of the Police Station could be utilized to connect the Station to

the streetscape through a building addition developing a connection between the public and the building functions that presently does not exist.

• Plaza 3 between the Police Station and the Modern Electroplating Site could

provide space for a needed expansion of the Police Station. The plaza could also be redefined to improve the identity of the main entry.

• The open space between the Library and Police Station could be used to

create a physical connection between buildings in the form of a building addition or new entrances for the buildings.

• The streetscape along Warren Street in front of the Library could be

reorganized to remove mechanical boxes that obstruct pedestrian access and create new landscaping elements that integrate the building with the sidewalk.

• The streetscape along Dudley Street could be improved to remove the angled

parking including the Police parking entrance and changed into a more pedestrian usable zone with the addition of amenities such as furniture.

• Overall streetscape improvements such as signage, improved lighting, and

friendlier materials would improve pedestrian experience and image.

• The Warren/Washington Street Connector would help alleviate traffic in the Dudley/Washington Street intersection.


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Various changes to the Library and Police Station could be made to improve the Municipal Center’s image and its facilities’ use.

• The exterior of the Library and Police Station could be modified to add windows, which would provide views into the buildings establishing an image that identifies the functions within.

• The central reading room volume could provide space for an elevator that

would establish a connection between the first and second floors as well as provide handicap accessibility.

• The conference room area of the Library could be moved to the second floor

to allow for a new main entry on Dudley Street through an interior reorganization of space.

Larger scale changes and partnerships with development projects and resources around Dudley Square could offer opportunities that benefit the Municipal Center.

• The parking garage proposed as part of the Modern Electroplating Site development could include parking for Municipal vehicles. This would alleviate the parking demand and free the plaza areas for pedestrian use.

• A connecting road from Warren Street to Washington Street could be created to

allow for police vehicles to enter and exit the Center safely and not onto Dudley Street in the unsafe manner currently used.

• Road and Sidewalk Improvements around Dudley Square offer the opportunity

to coordinate streetscape improvements so that a cohesive image is attained.

• A new Police Station could be built on the current Police parking lot that would provide the Police with a modern and appropriately sized facility and open the existing Station site up to private development or the creation of an expanded public plaza.

These opportunities address the issues and concerns noted by the user groups and community. The Municipal Center appears to possess the necessary space to support changes for improvement. Issues such as expanding the Police Station and increasing parking will require exploring other opportunities such as the Modern Electroplating Site development and the Courthouse parking lot. Larger scale opportunities will require partnerships with entities adjacent to the Site through coordination of resources.


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Figure 4 – Opportunities for change Site Plan


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IMPROVEMENT CONCEPTS Phase 2 of the Study has revealed several opportunities for change and with community and user group input improvement concepts with specific components that address each opportunity. The improvement concepts serve as the base for options developed to change the image and accessibility of the Dudley Street Municipal Center. A need to prioritize the various aspects of the Study is important in establishing appropriate options for change. The following organizes findings from Phase 1 and Phase 2 into specific components that need to be addressed for change to occur. The improvement categories outline the areas of opportunity and serve as the base for the options for change described in Chapter 7. The improvement concepts are: Improvement Concepts

• Improved Pedestrian Experience will involve a significant change in materials throughout the Project Site including reducing the amount of concrete on surfaces in favor of human scale components such as brick and other paving materials. Amenities that promote use and attract people are needed.

• Defined Public Plaza is needed to establish a specific zone for public use. The

space needs to include amenities that attract use and be programmed with components such as art, push cart vending, and cultural events to ensure that the space projects a vibrant and open image.

• Improvement of Project Site Transportation/Parking issues will require a

more efficient arrangement and creation of parking spaces and vehicular access throughout the Site. The existing site does not have sufficient space for the current parking demand requiring a significant change in Site parking. Existing parking on the plaza areas needs to be removed. New parking needs to be provided at the proposed parking garage on the Modern Electroplating Site or another off-site facility.

• Removal of Dysfunctional and Poorly Designed Site Aspects would address

the need to improve dimly lit, uninviting spaces such as the alley between the Library and Police Station. The addition of an enclosed “four seasons” public space within the Project Site and the addition of a canopy structure within the plaza area are examples of improvements that could be made to resolve these site deficiencies.

• Economic Development Opportunities can provide an important new

component to the Municipal Center. Retail and Cafes encourage public activity and enhance the public’s experience. Economic Development adds to the diversity of the Center by allowing for facilities that have a more positive influence on the public space by promoting use. The economic development should be


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included in a manner that does not change the perception of the Municipal Center and Plaza areas as public spaces. It should serve as an additional layer of activity supporting the public use of the Center.

• Improvement of the Project Site’s image will involve a substantial change in

the building exteriors and entrances as well as improved signage throughout the Site to promote access.

• Improving building function for the Library and Police Station will be

comprehensive and require a significant change through more efficient use of space in the Library and the addition of space at the Police Station. The Police Station’s building function would be the more extensive of the two and may require a new facility within the Site.

• Improved pedestrian circulation around the Project Site and Dudley Square

will require significant definition of existing pathways and a unified aesthetic of materials and amenities to reinforce clear and easily understandable travel through and around the Site. Street crossings bringing people to the Municipal Center also need to be defined to promote safe crossings at designated points.

• Improved building entrances needs to be extensive to facilitate the needed

change in improved access and building entry sequence that are required to bring an improved image to the Municipal Center and its buildings.

• Code compliance in some cases will require substantial changes such as

elevators to connect the first and second floors of each building and grade level access to the second floor of the Police Station from the upper plaza area.

• Coordinated Design Efforts with neighboring developments such as the

Modern Electroplating Site is needed to ensure that appropriate planning and design occurs and to take advantage of potential partnership opportunities.

• Coordination with Planning Efforts is needed to ensure that community input

is included in planning and design decisions and to promote a unified approach to improving the Dudley Square area. Initiatives such as the Dudley Square Air & Transportation Study and Municipal Center Study will produce findings that future developments can use as a base for planning and design of their projects.

Concerns that were noted during the Phase 1 process by users that are considered regular site and building maintenance issues are for the most part not aspects that directly affect the larger concerns that the Municipal Center Study is focusing on. These issues do need to be noted and addressed. General issues such as; improving the Site’s maintenance and cleaning program, improvement of the Library’s acoustics, and some code compliance issues will not require significant changes or capital expenditures, however, they are important and require attention through programs that are currently in place.


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Several initiatives involving physical changes for Dudley Square along with various community and charitable entities interested in improving the areas image signify a unique opportunity for the implementation of positive changes. It is critical for the Dudley Street Municipal Center to work with these initiatives so that a cohesive planning effort maximizes financial resources and minimizes waste that could occur through a lack of coordination. An emphasis on establishing guidelines for physical elements that overlap between the Study and other projects is a key aspect that should guide proposals for change and prevent the duplication of efforts. GENERAL IMPROVEMENTS General improvements are changes to the Municipal Center Site and buildings that are needed regardless of the overall changes that are selected. The options for change outlined in Chapter 7 include various ways to significantly improve the Center based on opportunities and improvement concepts outlined previously. The General improvements are needed as part of any of the options for change that will eventually be chosen. The General improvements are separated into three categories, General Site improvements, General Library building improvements, and General Police Station building improvements: GENERAL SITE IMPROVEMENTS The Municipal Center Site is a large and varying amount of land that is currently unattractive and uninviting. The Site features obscure, unmaintained plazas and a streetscape environment that is cluttered with obstacles, paved in harsh materials, and lacking in amenities for public use. Although there are deficiencies that need to be addressed the Site does possess some positive aspects such as a transition zone between the sidewalk and building entrances, small manageable spaces that could be used to display art, and enough overall space for a larger, more defined and attractive plaza to be developed. The General Site improvements needed are: Clear delineation of pathway and plaza is essential to improve the pedestrian experience around the Site. The creation of wide sidewalk areas that connect; pedestrian crossing nodes, building entrances, and a new larger plaza will provide the Site with a clearly defined system of pedestrian access throughout the Site, which is critical to successfully improving access, safety, and public use of the Municipal Center. A defined and aesthetically unified Streetscape is critical to providing the Center with an improved image. The current streetscape along with being unattractive is not defined from other adjacent plaza spaces leading to a confusing pathway system. The pathways within and around the Site need to be shaped and reinforced to promote use and access. The following are components to be utilized to define and reinforce the Municipal Center’s streetscape (see figure 5):


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• Brick pavement that is human scale, warm, and can be matched with other improvement initiatives such as the Silver Line sidewalk upgrades to bring a clear and unified aesthetic to the area. Brick paving allows for markers to be placed that can denote a variety of community attributes such as historical and cultural entities and trails to local points of interest.

• Amenities that are warm and inviting such as wood benches, artwork, well located planters, light poles, signage, etc… that add a human scaled layer of elements that promote public use.

• Bicycle racks for people who use bicycles for transportation and need a place to secure their bike. The City of Boston is creating a bicycle lane network with major nodes and the Municipal Center should be a major node within the system.

A connecting road between Warren and Washington Streets is needed. This road would be for Municipal vehicle use and would allow Police vehicles to enter and exit the Site on less congested Streets instead of the current manner, into the intersection on Dudley Street, which creates an unsafe pedestrian situation (see figure 7). A partnership with the Modern Electroplating Development is needed. The partnership would allow for Municipal vehicles to park on the grade level of the proposed parking garage. This partnership would resolve the parking overflow issue that currently plagues the Site. Pedestrian access to the Site needs to be defined. Pedestrians crossing streets to the Municipal Center need more defined paths to prevent mid-block crossings. Elements such as decorative fencing need to be installed to guide pedestrians to defined crossing points that are safe (see figure 6 and #3 on figures 8,9, and 10). Book Drop-off area on Warren Street. The Library receives book deliveries on a regular basis and currently there is no defined zone within the Municipal Center Site for the delivery truck to stop. A stripped zone near the Courtyard is a safer area for delivery vehicles and is still close to the Library. The zone needs to be designated for delivery vehicles only to keep parked cars from blocking the space (see figure 7).

(Figure 6 – Decorative Fencing)

(Figure 5 – Inviting Streetscape)


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Figure 7 – Site Plan of Connecting Road between Warren and Washington Streets.

GENERAL LIBRARY BUILDING IMPROVEMENTS The Dudley Branch Library serves as an important educational and cultural institution within the community. The Library is in relatively decent shape however the original design did not allow for today’s code standards and the changing manner in which the Library provides services through computer based learning programs. Some General improvements need to be made to resolve problems that currently effect the way in which the Library functions. The General Building improvements needed are: The building entrances need to be improved. The current main entrance is obscure and uninviting and other entrances around the building lack control by staff creating a potential security problem. The main entrance needs to be expanded to bring it towards the street to improve visibility. A separate entrance for the community room should be considered to provide greater flexibility of the building and improve security. An elevator needs to be added within the building to provide an accessible connection between the first and second floors. The elevator should be located within


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the main reading room opposite the circulation desk to provide staff control over who accesses it to reach the second floor (see #8 on figures 8, 9, and 10). Ventilation within the main reading room needs to be reviewed. The current Automatic Temperature Control system is antiquated. This has lead to the pressurization of the building being unequal. As a result the doors from the reading room into the corridor and the main entry doors are constantly blown open by uncontrolled airflow throughout the building. Ventilation ductwork in the main reading room is unattractive. The current ductwork supplying the reading room with fresh air consists of large trunks that hang down and dominate the space. A more aesthetically pleasing way to provide the space with air and that is more appropriate to a Library, needs to be implemented. These ventilation drops are also inefficient adding to the need for a new means of distributing air to be implemented. Lighting within the main reading room needs to be replaced. The current lighting system within the main reading room is not original to the building and is an industrial fixture inappropriate for a Library. The quality of light currently distributed within the space is not of the quality expected for a Library due to the fixture type and its high location above the reading areas. The current lighting needs to be replaced with a system that is recommended by an interior lighting consultant and coordinated with Library staff and patrons. The fire alarm system’s pull stations are not ADA compliant. Fire alarm pull stations located throughout the building are not at the correct height to meet ADA requirements. This will need to be corrected if a significant portion of the building is renovated. The building is not fully sprinklered. A sprinkler system was installed to provide protection for the daycare center on the second floor. The rest of the building does not have a sprinkler system. If a significant renovation occurs a sprinkler system will need to be installed. The plumbing fixtures in toilet rooms do not meet efficiency code. The fixtures in the buildings bathrooms do not meet local water efficiency codes. These fixtures will need to be upgraded if the building undertakes a significant renovation. GENERAL POLICE STATION BUILDING IMPROVEMENTS The Police Station is currently insufficient to accommodate the level of service expected for the area it serves. Although significant changes are needed to improve the facility some general changes need to be made regardless of the larger alterations that will eventually occur.


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The General Building Improvements needed are: An elevator needs to be added within the building. An elevator to connect the first and second floors is required for code compliance. The elevator should be located within a central staff area as it is intended to be used for Police personnel and not for the general public. The buildings roof needs to be replaced. The existing roof needs replacement to prevent water leeks that occur in several areas of the building. This project will be implemented soon as part of a general building improvement project. The Ventilation system needs to be upgraded and replaced. Several components of the building’s ventilation system are at the end of their use-full life and need replacement. The heating system is scheduled to be replaced soon as part of a general building maintenance project. The remaining components of the system either need replacement or significant upgrades. The fire alarm system’s pull stations are not ADA compliant. Fire alarm pull stations located throughout the building are not at the correct height to meet ADA requirements. This will need to be corrected if a significant portion of the building is renovated. The building is not fully sprinklered. The building does not have a sprinkler system. If a significant renovation occurs a sprinkler system will need to be installed. The plumbing fixtures in toilet rooms do not meet efficiency code. The fixtures in the buildings bathrooms do not meet local water efficiency codes. These fixtures will need to be upgraded if the building undertakes a significant renovation.

CHAPTER 7 OPTIONS METHODOLOGY The development of the three options for change presented as part of this Study is the culmination of an extensive existing conditions, user group, and community evaluation process that contributed to identifying the issues and shaping the responses expressed in the three options. Although the Study is focused on the Municipal Center the options for change take broader issues into consideration and reveal a high level of coordination with other initiatives in the Dudley Square area. The coordination between initiatives has resulted in a more informed and diverse range of options for change. The options are different approaches that incorporate the goals and objectives noted throughout the study.


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OPTION A – ENHANCE / EXPAND EXISTING BUILDINGS Option A focuses on improving the current Municipal Center entities. The Option attempts to improve the existing buildings with additions and internal upgrades while changing the Site through the creation of a defined Municipal Plaza, pocket park, and a link between the upper plaza and the proposed garage adjacent to the Site. The following are descriptions of the specific elements within Option A that are numbered to correspond to the Site plan (see figure 8):

1. Proposed Winter Garden to be created with an addition to the existing Police Station. The Winter Garden provides a new public entrance for the Police Station, retail opportunities, and an aesthetic focal point for the Municipal Center.

2. Proposed Police Station addition and renovation, including expanded space

for operations, improved existing functions through renovations, and conference room space for staff meeting and Community interaction. Police parking would be in the garage proposed as part of the Modern Electroplating Development.

3. Streetscape improvement intended to dissuade unsafe mid-block crossings

and promote pedestrian use of intersections. The median will be widened and a decorative fence will be installed providing an aesthetically pleasing barrier.

4. Municipal Plaza intended to provide a public space for the community and users

while also providing the Municipal Center with a distinct central element within the Site. The plaza will include a canopy, space for art, and push cart vendors.

5. Connection between the upper plaza and proposed Modern Electroplating

Site Development. This link is intended to provide access from the upper plaza area to the proposed development while at the same time creating a visual screen of the Police Station maintenance area from the Municipal Plaza.

6. New main Library Entrance and exhibit Space. This addition to the existing

Library extends the building towards the street creating a more noticeable identity and provides exhibit space for Historical entities.

7. Pocket Park intended for public art. This landscaped space is intended to

provide a small-scale gathering place for public art installations.

8. Reprogrammed Library space. This reorganization of interior space provides room for an elevator to connect the first and second floors of the Library and improves the internal access to provide more control by staff.


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Figure 8 – Option A Site Plan


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OPTION B1 – MOVE POLICE STATION TO EXISTING POLICE PARKING LOT Option B1 focuses on increased economic development within the Municipal Center. The Option attempts to increase economic opportunities within the Center by creating a new Police Station and opening up the current Police Station land for a future private development. A Municipal Plaza, pocket park, and a link between the upper plaza and proposed garage adjacent to the Site would be created. The Library would receive a new main entry with exhibit space. The following are descriptions of Option B1 elements that correspond to the Site plan (see figure 9):

1. Proposed new two-story building including retail and office space. This would be a future private development project. It is assumed that a new building would be more cost efficient for future developers because the existing Police Station building would require a very expensive renovation and addition to transform it into a retail/office use and into an aesthetically pleasing structure.

2. Proposed new Police Station with access to parking in the adjacent garage

proposed as part of the Modern Electroplating Site Development. The new facility would include expanded space for Police operations and conference space for staff meetings and community interaction.


and promote pedestrian use of intersections. The median will be widened and a fence will be installed providing an aesthetically pleasing visual barrier.


while also providing the Site with a distinct Central element that encourages use and attracts people to the Center. The plaza will include a canopy, space for art by local artists, and push cart vendors.

5. Connection between upper plaza and proposed Modern Electroplating Site

Development. This link is intended to provide access from the upper plaza area to the proposed development and allow for the diagonal access through the Site to connect to the Municipal Plaza.

6. New main Library entrance and exhibit space. This addition to the existing

Library extends the building towards the street to create a more noticeable identity while at the same time adding exhibit space.

7. Pocket Park for Library use and public art. This is a landscaped space intended

to be a small area that could be used for public art installation.

8. Reprogrammed Library space including an elevator for handicap accessible access to the second floor. This reorganization of interior space is intended to improve the connection between the first and second floors of the building and provide staff with more visual control.


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Figure 9 – Option B1 Site Plan


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OPTION B2 – EXPAND PUBLIB PLAZA Option B2 focuses on increasing the amount of open space for public use on the Site placing a significant emphasis on the creation of a Municipal Plaza. Public space takes precedence in this option with retail being limited to push cart vending on the plaza and a café within a proposed exhibit facility. The Municipal functions stand-alone with the new exhibit space serving as a supporting component that would be associated with the library. A new Police Station would be built and located so that the Station and Library define the centrally located plaza. The Library main entrance is moved to face Dudley Street and have a connection to the plaza. The following are descriptions of the specific elements within Option B2 numbered to correspond to the Site plan (see figure 10):

1. Proposed Historical/Cultural exhibit space with a main entrance off of the upper plaza and a café on the lower level off of the Municipal Plaza. A secondary entrance into the Library could be included.

2. Proposed new Police Station with access to parking in the adjacent garage

proposed as part of the Modern Electroplating Site Development. The new facility includes expanded space for Police operations and community interaction.




while also providing the Municipal Center with a distinct central element within the Site intended to attract people. The plaza will include a canopy, space for art by local artists, and push cart vendors.

5. Connection between the upper plaza and Modern Electroplating Site

Development. This link is intended to provide access from the upper plaza to the proposed development and connect the upper plaza to the Municipal Plaza.

6. New main Library Entrance and Reading Garden. This addition to the existing

Library moves the buildings entrance to face Dudley Street creating a more defined identity. The Reading Garden located outside the entrance extends the Library’s presence into the proposed Municipal Plaza.

7. Pocket park for public art. This is a landscaped space adjacent to the Library

that could be used for public art installations.

8. Reprogrammed Library space including an elevator for handicap accessible access to the second floor. The reorganization of interior space provides a connection between the buildings first and second floors. A direct path from the new entrance off of Dudley Street to the circulation desk is also required. Conference room space on the first floor would be relocated to the second floor.


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Figure 10 – Option B2 Site Plan


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OPTION C – MOVE POLICE STATION TO MODERN ELECTROPLATING SITE Option C moves the Police Station to the far end of the Modern Electroplating Site allowing for the Modern Site Development to expand into the Municipal Center Site defining one edge of the new Municipal Plaza. The option focuses on supporting the public spaces with user-friendly functions such as the library and retail space. Pushcart vending on the plaza and a café within a proposed historical/cultural facility are part of the option. The Library main entrance would be moved to face Dudley Street and have a connection to the plaza. The following are descriptions of the specific elements within Option C that are numbered to correspond to the Site plan (see figure 11):

1. Proposed Historical/Cultural exhibit space with a main entrance off of the upper plaza and a café on the lower level off of the Municipal Plaza. A secondary entrance into the Library could be included.

2. Proposed new Police Station at the far end of the Modern Electroplating Site

with access to parking in the adjacent garage proposed as part of the Modern Site Development. The new facility would include expanded space for Police operations and community interaction.




while also providing the Municipal Center with a distinct central element within the Site intended to attract people. The plaza will include a canopy, space for art by local artists, and push cart vendors.

5. Connection between the upper plaza and Modern Electroplating Site

Development. This link is intended to provide access from the upper plaza to the proposed development and connects the upper plaza to the Municipal Plaza.

6. New main Library Entrance and Reading Garden. This addition to the existing

Library moves the buildings entrance to face Dudley Street creating a more defined identity. The Reading Garden located outside the entrance extends the Library’s presence into the proposed Municipal Plaza.

7. Pocket park for public art. This is a landscaped space adjacent to the Library

that could host public art installations.

8. Reprogrammed Library space including an elevator for handicap accessible access to the second floor. The reorganization of interior space provides a connection between the buildings first and second floors. A direct path from the new entrance off of Dudley Street to the circulation desk is also required. Conference room space on the first floor would be relocated to the second floor.


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Figure 11 – Option C Site Plan


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URBAN CONTEXT The Dudley Square area is an urban node emerging into a new period of expansion and prominence. As stated in Phase 1 of the Study Dudley Square is considered by many to be the center of cultural and community activity in Roxbury possessing a diverse heritage rich in pedestrian vitality and home to many municipal, community, and business services. As a major transportation center, Dudley Square is an important node within the City of Boston that is being rediscovered. This new wave of interest currently being experienced is leading to many of the existing buildings being upgraded for new businesses that want to move into the Square. As the Dudley Square area broadens its base of businesses infilling the voids that have long undermined the areas urban character, careful consideration must be made for the existing urban context that includes many fine examples of past design and planning phases. New projects need to respond to the areas existing context through their design along with respecting the historical charm and character that defines the area. The Options for change presented in this Study are intended to create an integration between the Municipal Center and the larger urban context of the Dudley Square Area. This integration was not part of the original design of the Municipal Center, which has created the current detached and introverted image that the Center conveys. Site and building improvements are intended to enhance the Center in a manner that acknowledges the surrounding urban context through design and planning. A major focus of the options is integrating economic development into the Center to serve as a catalyst for public use and to support other enhancements around the Site. The Study also seeks to coordinate with other initiatives to ensure that this unified approach is followed by other projects planned for the area. The Study is intended to be a guide for developers making them aware of the level of design and planning that is required for new projects. HISTORICAL/CULTURAL ENTITIES The Dudley Square area is home to many artists and cultural entities. Various performing arts groups and individual artists play an active role in the character that the area is known for. The cultural aspects of the area have an identity that needs to be included as part of new developments planned for the area. Institutions in Dudley Square also have numerous historical artifacts waiting to be displayed. The public spaces proposed within the Options for change include space for artistic and cultural venues. The exterior plaza spaces welcome sculpture and murals as deemed appropriate by the community. The building additions proposed include exhibit space for historical artifacts and for the display of artwork by local artists. Outdoor space for small performing arts productions is provided at some of the plaza spaces proposed. Historic and cultural entities play a major role in an areas identity and pride. The Municipal Center offers community services and the Center is an ideal place for artistic and historic entities to be displayed.


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ACCESS – PEDESTRIAN & AUTO Pedestrian and vehicular access to and within the Municipal Center Site is unclear and at times overlaps creating an unsafe situation. The Phase 1 findings noted that parking demands have a significant negative effect on the Site. A lack of adequate parking for the Library and Police Station has led to a number of public spaces being appropriated for parking on a regular basis (see figure 12). The parking problems are not merely a matter of enforcement being neglected. Since it was built approximately thirty years ago, the Police Station has undergone tremendous increases in personnel assigned to the building as noted in the existing conditions portion of the Study. This has increased the Police parking demand to approximately 90 spaces, which is almost double what the Site was originally planned for.

The Library and Police Department have needed to appropriate public space in front of their buildings for parking because of this dramatic increase. The Library parks approximately 12 vehicles on the open space between the Library and Police Station and 17 Police vehicles are parked on the plaza in front of their building. The inability of the Library and Police Station to use the Courthouse parking lot, approximately 106 official spaces, contributes to the inflexibility of Site parking and the overall parking shortage (see figure 13).

(Figure 13 – Site Parking)

Current Parking - Police Required Parking - Police

Police parking lot - 28 spaces Police Vehicles - 90

On Plaza 3 – 17 spaces Public parking - 10

Dudley Street angled parking – 14 spaces

Police Total: 59 spaces Police Total: 100 spaces

Current Parking - Library Required Parking - Library

Warren Street parallel parking – 10 spaces Library staff – 12 spaces

On space between buildings – 8 spaces Library Patrons – 15 spaces

Library Total: 18 spaces Library Total: 27 spaces

Existing Site Parking Total: 77 spaces Required Site Parking Total: 127 spaces

(Figure 12 – View of plaza 2 in front of Police Station)


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As noted in Phase 1 portions of existing parking are undesirable such as:

• 14 angled parking spaces on Dudley Street are inefficient. Vehicles back into traffic, which is undesirable.

• The Police Station parking lot of 28 spaces is an awkward shape that is not efficient for parking vehicles.

• A taxi stand along Warren Street takes up valuable space that could provide a drop-off/pick-up area in front of the Library.

As a result of the parking demands important issues are neglected such as: • Providing 2 handicapped parking spaces close to the building entrances. • A pick-up drop-off area for the Library. • Dedicated public parking for the Police Station, approximately 10 spaces needed. • Patron and staff parking for the Library, approximately 27 spaces needed. • Adequate parking for Police vehicles, approximately 90 spaces needed.

(Figure 14 – Transportation/Parking Site Plan)

In addition to the Silver Line Project the Boston Transportation Department is in the process of conducting their own Transportation Study for the Dudley Square area. Interaction between the Municipal Center Study and the Silver Line and Transportation Study initiatives has been ongoing as all three projects progress. As stated in Phase 1 of the Study the need for a cohesive transportation plan and vision for Dudley Square is critical for positive change to take place.


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Pedestrian access routes to the Municipal Center are also a concern that has been reviewed extensively as part of the Transportation Study. The current defined routes are at signal light locations within the square, however the location of the bus station in relation to the Municipal Center has created a situation where pedestrians cross Dudley Street at a point where there is no signal light (see figure 14). This is a dangerous situation that is addressed as part of the Options for change. As noted in the Phase 1 portion of the Study the following Community concerns about pedestrian paths around Dudley Square were noted:

• Crossing the streets is at best difficult, if not dangerous because of the high volume of vehicles passing through the square.

• The Police vehicle entry and exit point is through a pedestrian crossing area at Washington and Dudley Streets (see figure 14).

• A general concern for the safety of the high volume of children that pass through the Square is an issue.

• Vehicular parking on public plaza areas is dangerous and prevents pedestrians from distinguishing the difference between public space and parking areas.

The pedestrian experience around the Municipal Center and access to the Site’s buildings exhibit positive and negative aspects. The spaces between buildings and the streetscape around the Site are generous and provide the space necessary for the Options for change presented in this Study (see figure 14). This transition space between buildings and sidewalk is a positive aspect that is an important feature of the Center. This type of space offers the zone necessary for a connection between the facilities and the public. A clear separation between pedestrians and vehicles is currently lacking throughout the Project Site (see figure 12). This lack of separation undermines the pedestrian flow enforcing the sense of confusion one experiences while traveling through the Center. Vehicles are currently obstacles that pedestrians are forced to navigate around. Connecting from the Project Site to other parts of Dudley Square is also a confusing process because of the lack of crosswalks to facilities such as the bus station, which is a popular pedestrian destination (see figure 14). The overall access paths to and from the Project Site were not originally planned to maximize access and provide a positive pedestrian experience. The Options for change address these issues. The options for change deal with the issues presented above in similar ways. Each option focuses on providing an adequate amount of Municipal parking through a partnership with the Modern Electroplating Site Development. Issues of pedestrian flow are addressed through the resolution of the parking problem. Each option attempts to improve pedestrian access and safety through guiding the general public towards stripped crosswalks at intersections. The Phase 1 findings assessment noted that a clear separation between pedestrians and vehicles is needed. The options for change place an emphasis on this separation and the improved pedestrian experience it provides.


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BUILDING FUNCTION/IMPROVEMENTS - LIBRARY The existing Library is in relatively decent shape to provide the level of services required from the community. The building systems need to be reviewed and in some cases improved, however, for the most part the majority of the building is adequate. The deficiencies within the facility are in the form of some awkward interior relationships. The first and second floors lack a defined connection, the main entrance is set back from the street, the circulation desk does not have visual control over the main entrance, and a dedicated area for the storage of maintenance materials and trash is missing. The Library is approximately a total of 25,000 square feet and includes the following spaces (see figure 15):

• Reading areas. • Research areas. • Computer laboratories. • A circulation desk. • Conference rooms. • Children’s reading area. • Staff supports spaces.

The building also includes a separate community room. The majority of these spaces are contained on the first floor within the large volume of space in the central reading room and a separate second floor area. All three options for change address the interior deficiencies through the creation of a new main entrance that provides additional space for maintenance storage, creates new exhibition space for artifacts in the Library’s archive, and extends the building towards the surrounding streets creating a more visible and inviting image (see figures 8, 9, 10 and 11). The options also propose to reorganize some of the interior spaces on the first and second floors by creating a vertical connection in the form of an elevator and shifting some functions to create more efficiency. To improve staff control over the main entry the new entrances would include a staffed reception area and each option recommends that the walls surrounding the existing circulation desk be opened up to provide views in all directions. Although the building is fundamentally in good condition in terms of its structure and mechanical systems, its lack of adaptability is a concern that prevents Library functions from adapting to meet current needs. This inflexibility creates the need for an addition to be made that could be of warm and inviting materials to provide a flexible space that defines the buildings image and greets patrons.


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(Figure 15 – Library First and Second Floor Plans)

With the changes outlined in the options presented in this Study the building can be altered to provide the space required to satisfy expanding services such as technology training programs, cultural exhibit space, and after school events. One of the approaches outlined in the three options needs to be adopted so that the Library has a clear direction to proceed in and to ensure that future efforts to improve Library function are appropriate to the user and community needs documented in this Study. BUILDING FUNCTION/IMPROVEMENTS – POLICE STATION The Police Station currently lacks the amount of space appropriate for the level of services that the Station provides. The existing building systems are in poor condition and will need significant upgrades and replacements in the near future. The overall layout and organization of the building functions are no longer practical for the manner in which the Station needs to operate. The inefficiencies created because of the buildings layout impair the staff from providing services in the most efficient manner possible. The building lacks key interior spaces such as community meeting areas, public entrance space, and conference rooms for staff meetings. An overall lack of office and storage space also impairs the buildings functions. Two of the three distinct kinds of users of the facility, the general public and officers passing in and out cross paths in an inadequately sized public area causing an awkward and unsafe condition for the staff.


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The Station’s interior layout is comprised of the following spaces (see figures 16):

• A public lobby and circulation desk. • Conference rooms and offices. • Officer and patrolman’s locker rooms. • Prisoner unloading area and holding cells. • Guard room. • Support spaces.

The program is distributed between two floors with a total of approximately 20,000 square feet. The facility was originally designed to accommodate 120 personnel and now has 210 assigned to the Station. This dramatic increase in users has strained the ability for the Police Department to efficiently provide services that are required. The Police Station has several deficiencies in the building’s function. All of the options for change deal with the need for increased space for the Police Station. Only option A seeks to resolve the issue by keeping the existing facility (see figure 8). Option A calls for a large building addition and a complete renovation of the existing facilities interior. Although this would provide the additional space needed and provide an opportunity to improve the circulation within the building, as noted in the Existing Conditions portion of the Study, the shape and construction type of the existing building are not easily altered to accommodate a more efficient use of space and adapting the interior layout of the building would be expensive (see figure 16). Renovating an occupied Station would be extremely difficult. During a potential renovation and addition the existing building functions would be seriously impaired. A major construction project would adversely effect portions of the building and cause functions to shift and be temporarily relocated. The current lack of space makes shifting functions from area to area impossible requiring all Police Department activities to be temporarily relocated to another location. This temporary relocation adds cost to the project. Options B1, B2, and C propose new stations on the Site (see figures 8, 9, 10, and 11). This direction not only provides the amount and kind of spaces needed it also allows for the department to develop the interior layout they need to provide services in an efficient manner. A new Station allows for the arrangements of spaces and the interior flow within the building to be programmed to maximize space and separate functions as needed. The new station option also allows for the connection between interior and exterior spaces to be organized in a manner that is appropriate to the functions within the building and the adjacent parking and delivery services that require connection to the Station.


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(Figure 16 – Police Station First and Second Floor Plans)

Although an expanded and renovated Station could provide the increase in space needed. The improvement of spatial adjacencies, access, and interior flow are not improved significantly though this option. The options that feature a new Station offer the most significant of an improvement in all areas that have been identified by the users and community and offers the best opportunity to achieve an efficient layout. A new building also allows for a stronger connection to the proposed Municipal Plaza, which would improve access to the building

NEW CONSTRUCTION Each of the three options for change offer new construction as a means of improving the Municipal Center. New construction is defined as a new building on the Site that houses either a new entity or one of the original facilities of the Center. New construction provides the most dramatic of changes and requires the most significant planning and consensus for success to be achieved. Option A proposes new construction in the form of a Winter Garden that provides a four seasons public space for gathering. Some retail would be part of the new structure and would also provide a link between the upper plaza and Dudley Street. This would offer a public space within the Center and adds a retail component to the Municipal entities. This option attempts to improve the existing Municipal functions through the addition of a structure between existing buildings (see figure 8).


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Option B1 proposes to increase economic development within the Municipal Center by the creation of two new construction projects. A new Police Station constructed on Site and a new retail/office building to be constructed in the future in place of the existing Station are proposed in an attempt to increase economic opportunities within the Site. The new construction significantly alters the composition of the Center and creates the densest building mass out of the three Options for change. This option shifts the building massing to the edge of the Site filling most of the space available (see figure 9). Option B2 proposes to increase the open space within the Site through new construction by proposing a new Police Station be built to at the edge of the Site leaving the existing Station land as open space. This option dramatically changes the look and massing of the Center using the buildings to crate a large centralized open space and using new construction to provide a defining edge for the Site. The option also calls for the construction of a historical/cultural building to be built adding to the public amenities offered within the Municipal Center (see figure 10). Option C proposes to wrap a newly created municipal plaza with venues that support public use. The option moves the Police Station to the far end of the Modern Electroplating Site allowing for the retail development to expand into the Municipal Center defining one edge of the plaza. This option dramatically changes the look and massing of the Center using the buildings to crate a large centralized open space and using new construction to provide a defining edge for the Site. The option also calls for the construction of a historical/cultural building to be built adding to the public amenities offered within the Municipal Center (see figure 11). All of the options use new construction as a means to significantly change the Municipal Center. Each option recommends new construction that creates links between elements in an attempt to develop a cohesive appearance within the Center. New construction as it is used within these options serves as a unifying device that allows improvements to be made through the altering of massing within the Site. ENTRANCES/BUILDING IMAGE Entrances in an urban setting are critical to the overall image presented by a building. The entrance is the main point of interaction that the general public has with a structure and is the most noted element that defines a buildings use and the extent of access that the general publics has. Entrances are the transition point between the streetscape and the interior of the building making them a critical aspect of the pedestrian experience.

(Figure 17 - Existing Library Entrance)


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The Dudley Street Municipal Center was designed in a bunker like manner, which projects an introverted and uninviting image. The building entrances on the Site are the main elements that convey this negative image. The Library and Police Station entrances are hidden from the general public and lack any features that identify the buildings use (see figures - 17 and 19). The nondescript and poorly located entrances prevent an easy transition from the streetscape to the buildings. The introverted nature of the Site and its structures ignores the overall neighborhood context and more immediate streetscape environment adjacent to and within the Center. The building façade’s are designed as shields preventing visual contact between building inhabitants and the general public (see figure – 18). The buildings have no relationship to their surroundings and create an uninviting and at times unsafe condition at ground level. This negative image contributes to the existing plaza spaces adjacent to the buildings that are offered for public use, from being used. The design of the buildings prevents a sense of ownership of the spaces by the structures they are connected to. As noted in the Phase 1 portion of the Study the Municipal Center’s Image has been identified by users and the community as a significant issue. Some positive aspects of the current image were noted such as:

• The central location of the facilities.

• The strong grouping of municipal services.

• Commitment to a municipal presence in Dudley Square.

These are important aspects that can be enhanced. However the overall consensus is that the Center lacks a clear and inviting image that promotes access and interaction. Specific issues that convey this negative image have been noted by the community:

• A lack of windows on the building exteriors prevents a connection between the public and the functions within the facilities.

• The Library and Police Station are virtually unidentifiable because of their nondescript hidden entrances and blank facades.

(Figure 18–Police Station Dudley Street Façade)

(Figure 19 – Existing Police Station Entrance)


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• The surrounding plaza areas and streetscape do not clearly connect to the buildings and their functions and are not maintained and are unattractive.

• Clear and distinguishable signage is missing. These issues combine to convey an image that does not adequately reflect the services provided by the Municipal Center. The Center appears to turn its back on the public. The current image is one of disconnection between elements and undermines the intent of clustering functions that serve the public. This Study has revealed that the Library and Police Station are important anchors to the positive public image in the area. Changes proposed for the Municipal Center include building new entrance additions as a key component. The Options for change include significant entrance and facade improvements that address the user and community concerns that are geared towards establishing a more clear and inviting image for the Center and its buildings. As the Options were developed other Municipal facilities in the Boston Area that are considered by their communities as successes were reviewed for inspiration. The new South End Police Station is an example of a building that blends into its surrounding context establishing connections with the general public and the overall neighborhood (see figure 20). The Options for change attempt to establish a contextual identity that showcases activities and access to them. An image that highlights access and promotes interaction between the community, the plaza spaces, and City agencies is the desired identity for the Municipal Center. Each option focuses attention on the building functions and clarifies the general publics access to and within the Center. Each element is defined to prevent the confusing image that currently exists on the Site. The Options define the public and private zones as well as the spaces between to ensure that a more positive pedestrian experience is achieved. Building improvements focus on creating an inviting image and to establish connections with the surrounding streetscape environment. Changes that create a sense of ownership of public spaces are an important aspect of the Options. SIGNAGE Descriptive signage within and around the Municipal Center Site is needed as part of any option for change implemented. Signage added on and within buildings and throughout the streetscape that is clear and easily noticeable should be placed at important locations. The signage helps in guiding the visitors and the general public through the Site and within the buildings ensuring a clear and defined pedestrian experience is created.

(Figure 20 – New South End Police Station)


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Signage advertises cultural events to the general public informing the public of specific information about activities that are offered. Descriptive signage also signals the buildings functions creating an identifiable image that is currently lacking. Tourists new to the area will benefit from signage by discovering the important features that the Dudley Square area has to offer. Descriptive Signage allows the general public to navigate their way through the Site in a clear and efficient manner. The signage provides accessibility information to the handicap members of the community and general access rules to visitors. Local artists can use the signage as a venue to display the areas cultural attributes by designing the signage in a manner appropriate to the area HANDICAP ACCESSIBILITY The Phase 1 part of the Study revealed that some code compliance issues need to be addressed. The code issues were separated into two categories; Life Safety concerns that deal with egress and fire code requirements, and accessibility concerns that deal with handicap accessibility issues for patrons and staff. Any existing building improvement recommended within this Study includes all measures necessary to resolve the code issues noted in the Phase 1 portion of the Study and any new construction recommended must meet all applicable codes for new construction. Each option includes enough building improvement and new construction components to provide the code compliant facilities required of the Municipal Center. The Site improvements must also be code compliant the most significant of which is the connection between the upper plaza and the proposed Municipal Plaza. Signage that informs the general public as to how that connection is accessible needs to be part of any Site improvements implemented in the future. Any public amenity placed within the public zones of buildings and on plaza spaces also need to meet all codes applicable. Some other code concerns that were noted are the lack of handicapped parking located close to the main entrances of both buildings and clear interior signage that directs patrons within the facilities. Two dedicated handicap parking spaces close to the buildings main entrances are needed. Signage is critical in reducing confusion during a crises and assists patrons in being familiar with the layout and use of the buildings. The need for some handicapped parking spaces close to the main entrance is important in ensuring direct access to the Center for all visitors and staff.


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CHAPTER 8 IMPACTS METHODOLOGY The Options for change have been developed with a combination of small and large scale improvements appropriate for the concerns and opportunities that the Study has identified. Changes outlined are intended to improve specific aspects of the Center in various ways. Each component of any of the Options could be implemented as a way to improve the Center. The overall approach to each options focus on achieving various goals. The options do not have to be implemented as they are shown. Any combination of components from the options could be implemented and significantly improve the Center. However, implementing just one component from one option will not improve the overall Center as extensively as it needs to be. A combination of the improvements recommended in the options is needed to bring the significant level of change that is required to transform the Municipal Center into the vibrant and inviting Center that the community and its users want it to be. The options for change can be viewed as a menu of possible improvements that can be chosen as deemed appropriate by the community and users to affect the level of change desired. Each option raises positive and negative issues that need to be considered as part of the option selection process. PROS./CONS. The General Improvements and Options for change recommend significant changes to the Municipal Center through a combination of improvements that vary in size. These recommendations have impacts that are intended to be positive for the Center and the Dudley Square area. The Options also include some negative side effects that are usually in the form of the direction that an option steers the Center in. Some users and members of the community may like a component of an option but may not agree with the direction that the overall option would move the Municipal Center in. The following are Pros. And Cons. For each option (see figures 8, 9, and 10): General Site Improvements Pros.

• Streetscape improvements are proposed that significantly change the character of the site by adding a human layer of amenities and materials.

• A connecting road between Warren and Washington Streets is proposed to improve the manner in which Municipal vehicles enter and exit the Site.

• A partnership with the Modern Electroplating Site Development is identified as a way to resolve the parking problem on the Site by allowing Municipal vehicles to park in the development’s proposed parking garage.

• Pedestrian access to the Site is identified through the proposed improvement of pedestrian crossing conditions in the area.

• A drop-off area on Warren Street for Library book transfers is proposed providing a necessary zone for critical deliveries.


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General Site Improvements Cons.

• The proposed connecting road will require coordination with the Courthouse and Developer of the adjacent property. Entrance/exits to the proposed road will need to be planned to ensure the safe movement of pedestrians around the Site.

• The partnership between the developers of the Modern Electroplating Site Development will require time to create and needs to begin soon.

General Library Building Improvements Pros.

• Adding an elevator to the building provides handicap accessibility to the building and improves the connection between floors.

• Upgrading and in some cases replacing the buildings Mechanical improves the interior conditions for the staff and patrons.

General Library Building Improvements Cons.

• The proposed elevator will be difficult to construct within the existing building and will have a temporary negative impact on Library functions.

• Altering the systems will have a temporary negative impact on the Library functions requiring careful phasing of work that adds time and cost to the project.

General Police Station Building Improvements Pros.

• Adding an elevator to the facility provides handicap accessibility to the building and improves the connection between floors.

• Improved aesthetics will provide the Station with an image appropriate for a Municipal facility making the building more inviting and accessible.

General Police Station Building Improvements Cons.

• Investing in alterations to the building are not cost effective if it is decided that the structure will be replaced in the near future.

Option A Pros.

• Building entrances are enhanced through the construction of new entrances that expand the buildings towards the street and improve their image.

• An uninviting and unused public space between the buildings is enclosed with the proposed new winter garden creating a warm and usable public environment.

• The Police Station is expanded providing additional space and improving the Station’s connection to the community through the creation of meeting spaces.

• A Municipal Plaza is created with amenities that attract public use. The plaza creates a unifying central element within the Municipal Center.

• The Library’s interior is improved through reorganization of some interior spaces and the addition of an elevator making the Library handicap accessible and creating a connection between floors.

• Access to the Municipal Center is improved through the restripping of crosswalks, implementation of low barriers on medians, and the creation of public spaces within the Center at safe crossing points around the Site.


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• Cultural spaces are created by the inclusion of pocket park space for the display of artwork and the creation of exhibit space within the Library entrance addition.

Option A Cons.

• The location of the Municipal Plaza is not optimal in relation to the buildings on the Site. A connection to the Library and Winter Garden is not possible.

• The Police Station expansion includes using the existing structure, which will be difficult, time consuming, and increases costs. Using the existing building compromises the ability for the most efficient interior layout to be achieved.

Option B1 Pros.

• The Library’s entrance is enhanced through the construction of an entrance that expands the building towards the street and improves its image.


• A new Police Station is created at the edge of the Site allowing for a new identity to be established and the most efficient interior layout to be achieved.

• The current Police Station building is intended to be demolished to open up an opportunity for a future retail/office building to be constructed in its place.


• The Library’s interior is improved through reorganization of some interior spaces and the addition of an elevator. These improvements make the Library handicap accessible and creates a connection between floors.


• Cultural spaces is created by the inclusion of pocket park space for the display of artwork and the exhibit space created within the Library entrance addition.

Option B1 Cons.

• The shape of the Municipal Plaza is small and somewhat awkward. The Plaza is most likely in place before the new retail/office building is built requiring coordination that could dissuade potential developers interested in the Site.

• If the proposed new retail/office building is not built for a long period of time the empty space in the middle of the Municipal Center will potentially be an unattractive vacant piece of land undermining the intent of improving the Site. If the existing Police Station building remains as a vacant building is will also create an unattractive condition.

Option B2 Pros.

• A new Library entrance is created facing Dudley Street improving the buildings identity and expanding it towards the street. A reading garden is included outside the new entrance to connect the Library to the proposed Municipal Plaza.


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• A new Police Station is created at the edge of the Site allowing for a new identity to be established and the most efficient interior layout to be achieved.

• The current Police Station building is intended to be demolished to open up the space for the creation of a Municipal Plaza.




• Cultural spaces are created within the Site by the inclusion of pocket park space for the display of artwork and the creation of exhibit space within the Library entrance addition.

• An exhibit space is created adjacent to the Library for the display of historic artifacts and artwork. The building will include a ground floor café and upper level exhibit hall.

Option B2 Cons.

• The Size of the Municipal Plaza is large and will require careful programming of activities to attract people and create continual activity. The plaza will also require more maintenance.

• Moving the Library’s main entrance to Dudley Street will put greater emphasis on the proposed pocket park off of Warren Street to ensure that the Warren Street edge of the Site attracts use and is well maintained.

Option C Pros.

• A new Library entrance is created facing Dudley Street improving the buildings identity and expanding it towards the street. A reading garden is included outside the new entrance to connect the Library to the proposed Municipal Plaza.


• A new Police Station is created at the far end of the Modern Electroplating Site allowing for the Modern Site Development to extend into the Municipal Center wrapping the a new Municipal Plaza with uses that support public activity.

• The current Police Station building is intended to be demolished to open up the space for the creation of a Municipal Plaza.

• A Municipal Plaza is created with amenities that attract public use. The plaza creates a unifying central element within the Municipal Center. The plaza will benefit from being bordered by retail from the Modern Site Development extension and the Library expansion making the plaza more inviting.


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• Cultural spaces are created within the Site by the inclusion of pocket park space for the display of artwork and the creation of exhibit space within the Library entrance addition.

• An exhibit space is created adjacent to the Library for the display of historic artifacts and artwork. The building will include a ground floor café and upper level exhibit hall.

Option C Cons.

• The Size of the Municipal Plaza is large and will require careful programming of activities to attract people and create continual activity.

• Moving the Library’s main entrance to Dudley Street will put greater emphasis on the proposed pocket park off of Warren Street to ensure that the Warren Street edge of the Site attracts use and is well maintained.

• Placing the Police Station on the Modern Electroplating Site will require the projects to progress within the same time frame making for a more complex coordination between the city and developer.

PHASING The implementation of improvements recommended for the Site is dependent on phasing. The various improvements presented in this Study are separated into three types, Site, Library, and Police Station. These types are separated further into two categories, General Improvements and Options for change. The General improvements could be implemented as their own projects as could any improvements to the Library and Police Station. Implementing changes on an individual basis will improve the Municipal Center to some degree, however, for a significant change to occur a combination of improvements need to be implemented as a large project. If costs or time constraints are a concern some individual improvements could be made to take advantage of a specific condition or prevent a missed opportunity from occurring. Phasing the recommended changes into two categories offers a flexible method for the implementation of improvements in the event that one large project including all of the desired changes is not possible. The following two categories separate the improvements into realistic segments that provide a direction for the implementation of specific improvements:


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SHORT TERM The following General Improvements can be implemented in the short term as individual projects:

• Connecting road between Warren and Washington Streets. • Defined pedestrian access to the Site. • Book drop-off area on Warren Street. • Addition of an elevator to the Library. • Upgrading Police Station Mechanical Systems. • Adding an elevator to the Police Station.

These are stand-alone improvements that will change specific problems within the Site and do not require other components to be built or significantly altered. Although these projects do have a positive impact they are minor changes in relation to the overall improvements proposed in this Study and will not dramatically improve the image and character of the Municipal Center on their own. LONG TERM All other improvements previously noted are long-term projects due to their size and level of interconnectedness to each other. Some of these long-term projects such as Site, Library, and Police Station improvements could be implemented as separate changes. As an example a new Police Station could be built with adjacent Site improvements. The new Station would not require any alterations be made to the Library. The only recommended improvement that benefits from all of the changes being implemented, as one project is the Site improvements. The Site changes relate to all of the long-term changes and are interconnected to each. The Sit improvements could be phased as each long-term project is constructed, however, this will lead to temporary periods of the Site being in an unfinished state. Although all of the improvements recommended change the Site and resolve issues an overall improved identify and character will not be achieved for the Municipal Center until some combination of the improvements are implemented. No single improvement is capable of bring the Center the improved identity that is required by the users and community. Implementing only some changes as quick fixes will not resolve the overall issues and problems of the Center and will lead to worse condition in the long run by not taking advantage of the tremendous effort put forth in this Study by the users, community, city agencies, and consultants. This process has identified improvement opportunities, specific improvement concepts, partnerships, and implementation methods that need to be acted on immediately before the opportunity and interest is lost.


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CHAPTER 9 PROJECT COST REVIEW

INTRODUCTION

The cost analysis for the Dudley Street Municipal Center Study is intended to be conceptual costing that offers a range of the required funding levels to implement the various Options presented within the Study. Although the issues addressed are the same each Option presents a different way to change the Center. These differing approaches lead to a range of costs between Options that reflects their contents and the degree of change intended. There is also a difference between Options in associated costs that need to be considered in establishing a base line for funding.

Unit pricing within the cost analysis is based on market conditions and contractor surveys that relate to the scope of the project. Bid returns from comparable current construction industry projects verify that the cost analysis is within an acceptable 5% range of the actual construction costs. This Study offers a unique challenge to forming a cost analysis because the actual design of the proposed elements is not final and the program is still fluid. Costs offered within this Study are based on a moderate level of design aesthetic, detailing, and finishes. Depending on the final design and program chosen the costs could be higher or lower. All Options within the Study require off Site Municipal parking. The costs for this parking are not included in the estimate.

BASIS FOR PRICING Each Option for change offers a different approach for achieving an improved identity and function for the Municipal Center. The differing styles and content lead to different costs for each Option. The difference in cost is revealed in the degree that the Options propose to alter the existing elements within the Center and the scope of additional program that is added in each Option. The cost analysis breaks pricing down by option and again by unit prices to allow for components of options to be evaluated for funding individually. This method of separating the pricing provides flexibility in establishing cost levels if it is decided that implementation of improvements to the Site needs to be achieved through smaller separate projects rather than one large improvement project. Separating costs also allows for comparing individual components between options allowing decision makers to evaluate the cost differences between proposed improvements. In addition to assistance from an independent cost consultant and the costs being in 2003 dollars, the following criteria and assumptions were used in establishing the Cost Scope and Project Costs for each Option:

• The cost analysis does not include costs for environmental clean up as a separate environmental review of the Municipal Center Site is required to establish what if any action needs to be taken.

• The analysis does not include off site parking costs.


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• The size of the proposed Police Station on the various options is based on information from meetings with the Police Department and a review of the program for the recently completed D4 facility. These criteria established the Cost Scope to be priced. D4 cost information was also used as basis; however, time has passed since the completion of that project so the costs needed to be adjusted for inflation.

• Proposed alterations to the Library on the various options are based on meetings with Library staff and administration. Cost Scope is based on the changes noted by the users and administration as well as community input.

• Pricing for streetscape and general Site improvements is based on a Cost Scope established by comparable initiatives in the City, Municipal standards, community comments, and standard urban design practices.

• The Cost Analysis includes overhead, profit, and general conditions.

SOFT COSTS Soft costs are an important aspect to the overall total cost of a project. These costs are in many ways unknown until the contract drawings are completed. The costs noted as part of this analysis include scope and percentages hat may be reduced as the project is defined and drawings are completed. The cost analysis includes line items for three categories of soft costs:

1. Design Contingency – is required due to the schematic level of the drawings. As more defined drawings are generated more accurate costs, based on specific design components, can be conducted.

2. Construction Contingency – typically 10% of the construction cost. 3. Design Fees – architects fees and their consultants (electrical, plumbing,

mechanical, fire protection, structural, landscape architectural, interior design). The following are descriptions of the characteristics within each Option: OPTION A Option A maintains the majority of existing elements within the Municipal Center enhancing them with renovations and building additions. A Winter Garden is proposed as infill within the Site. Streetscape improvements are proposed, as are enhancements to the Center’s plaza spaces. Maintaining the existing Police Station building offers a unique challenge. Renovating the existing structure will be difficult because it is cast in place concrete, this also limits what the space can be used for making programming difficult. Because a complete renovation is needed the Police functions will have to be relocated for at least an eighteen-month period. The cost analysis basis its price for the temporary relocation on the need for seven trailers to be provided for that time period. Connecting the addition, which will be a different construction type to the existing building, poses difficulties. These issues are reflected in the cost analysis for Option A. The Winter Garden space also poses construction challenges because it needs to rest against the Library, which is also a cast in place concrete structure.


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(Figure 21 – Option A)

OPTION B1 Option B1 focuses on creating new economic development opportunities within the Municipal Center. This Option alters the existing Site by creating a new Police Station. The exiting Station is transformed into office/retail functions and is expanded adjacent to the Library as a future development. The costs for this Option will be influenced by the future development project, which will need to fit within a unique shape on the Site and be constructed adjacent to the Library in a structurally independent manner. The potential costs are additional costs that will be determined by the developer. The streetscape and plaza enhancements are comparable to those proposed in Option A with the only difference being in the overall scope due to the creation of the Municipal plaza in Option B1. If a new office/retail building is not built within the Site immediately after the completion of the other proposed improvements the Site will need to be temporarily landscaped which is an additional cost that is not included as part of this Study. New construction on the existing Police Station Site would be paid for by the developer. The City could lease or sell the City owned land to a potential developer.


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(Figure 22 – Option B1)

OPTION B2 Option B2 proposes increasing the amount of open space within the Site. Streetscape and plaza costs are increased with this Option with the larger open space. The new Police Station is comparable in terms of cost costs to those in Option B1. The Site is more dramatically affected by removal of the existing Police Station structure. This demolition is an added cost to the project. The Library enhancements are more extensive then Option A and B1 resulting in higher costs. The proposed Historic/Cultural exhibit space is a difficult construction because it is adjacent to and integrated with the existing Library structure. These unique aspects of Option B2 are reflected within the cost analysis. New construction of the exhibit space on the existing Police Station Site would be paid for by the developer. The City could lease or sell the City owned land to a potential developer.


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(Figure 23 – Option B2)

OPTION C Option C proposes moving the Police Station to the far end of the Modern Electroplating Site. The Modern Site Development would extend into the Municipal Center placing retail along the edge of the Municipal Plaza. The new Police Station and demolition of the existing Station are comparable in terms of cost costs to those in both versions of Option B. The Library enhancements are more extensive then Option A and B1 resulting in higher costs. The proposed Historic/Cultural exhibit space is a difficult construction because it is adjacent to and integrated with the existing Library structure. These unique aspects of Option C are reflected within the cost analysis. New construction on the existing Police parking Lot would be paid for by the developer. The City could lease or sell the City owned land to a potential developer.


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(Figure 24 – Option C)

ESTIMATE (All costs are in 2003 dollars) OPTION A

Quantity Unit Cost Total Police Station – renovation 20,000 sf $134 $2,680,000 Police Station – temp. space 5,040 sf $21 $105,840 Police Station – new addition - 2 10,000 sf $273 $2,730,000 Library – renovation - 8 3,000 sf $107 $321,000 Library – new entry addition - 6 2,500 sf $246 $615,000 Winter Garden - 1 12,000 sf $294 $3,528,000 Streetscape Improvements - 3 13,500 lf $43 $580,500 Connecting Road 1,000 lf $535 $535,000 Municipal Plaza - 4 45,000 sf $32 $1,440,000 Upper Plaza Link - 5 8,000 lf $35 $280,000 Library Plaza - 7 5,000 sf $37 $185,000 Option A Total Construction Cost $13,000,340 Design Contingency 15% $1,950,051 Construction Contingency 10% $1,300,034 Design Fees 15% $1,950,051 Option A Total Project Cost $18,200,476 + Off Site Parking


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OPTION B1

Quantity Unit Cost Total Police Station – new construction - 2 30,000 sf $273 $8,190,000 Library – renovation - 8 3,000 sf $134 $402,000 Library – new entry addition - 6 2,500 sf $283 $707,500 Streetscape Improvements - 3 13,500 lf $43 $580,500 Connecting Road 1,000 lf $535 $535,000 Municipal Plaza - 4 48,000 sf $32 $1,536,000 Upper Plaza Link - 5 10,000 lf $35 $350,000 Library Plaza - 7 6,000 sf $37 $222,000 Option B Total Construction Cost $12,523,000 Existing Police Station Demolition 20,000 sf $22 $440,000 Option B Potential Total Construction Cost $12,963,000 Design Contingency 15% $1,944,450 Construction Contingency 10% $1,296,300 Design Fees 15% $1,944,450 Option B Total Project Cost $18,148,200 + Off Site Parking OPTION B2

Quantity Unit Cost Total Police Station – new construction – 2 30,000 sf $273 $8,190,000 Existing Police Station Demolition 20,000 sf $14 $280,000 Library – renovation - 8 5,000 sf $134 $670,000 Library – new entry addition - 6 3,500 sf $283 $990,500 Historic Exhibit Space/Retail - 1 7,000 sf $321 $2,247,000 Streetscape Improvements - 3 13,500 lf $43 $580,500 Connecting Road 1,000 lf $535 $535,000 Municipal Plaza - 4 60,000 sf $32 $1,920,000 Upper Plaza Link - 5 9,000 lf $35 $315,000 Library Plaza - 7 8,000 sf $37 $296,000 Option C Total Construction Cost $16,024,000 Design Contingency 15% $2,403,600 Construction Contingency 10% $1,602,400 Design Fees 15% $2,403,600 Option A Total Project Cost $22,433,600 + Off Site Parking


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OPTION C

Quantity Unit Cost Total Police Station – new construction – 2 30,000 sf $273 $8,190,000 Existing Police Station Demolition 20,000 sf $14 $280,000 Library – renovation - 8 5,000 sf $134 $670,000 Library – new entry addition - 6 3,500 sf $283 $990,500 Historic Exhibit Space/Retail - 1 7,000 sf $321 $2,247,000 Streetscape Improvements - 3 13,500 lf $43 $580,500 Connecting Road 1,000 lf $535 $535,000 Municipal Plaza - 4 60,000 sf $32 $1,920,000 Upper Plaza Link - 5 9,000 lf $35 $315,000 Library Plaza - 7 8,000 sf $37 $296,000 Option C Total Construction Cost $16,024,000 Design Contingency 15% $2,403,600 Construction Contingency 10% $1,602,400 Design Fees 15% $2,403,600 Option A Total Project Cost $22,433,600 + Off Site Parking


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CHAPTER 10 APPENDIX A – TRANSPORTATION / AIR QUALITY RECOMMENDATIONS


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CHAPTER 10 APPENDIX B – MEETING MINUTES

Documents

Dudley Square Municipal Center Study