Twentieth Century Town Halls

This is the first book to examine the development of the town hall during the twentieth
century and the way in which these civic buildings have responded to the dramatic politi-
cal, social and architectural changes which took place during the period. Following an
overview of the history of the town hall as a building type, it examines the key themes,
variations and lessons which emerged during the twentieth century. This is followed by 20
case studies from around the world which include plans, sections and full-colour illustra-
tions. Each of the case studies examines the town hall’s procurement, the selection of its
architect and the building design, and critically analyses its success and contribution to the
type’s development. The case studies include:

Copenhagen City Hall, Denmark, Martin Nyrop

Stockholm City Hall, Sweden, Ragnar Ostberg
Hilversum Town Hall, the Netherlands, Willem M. Dudok
Walthamstow Town Hall, UK, Philip Dalton Hepworth
Oslo City Hall, Norway, Arnstein Arneberg and Magnus Poulsson
Casa del Fascio, Como, Italy, Guiseppe Terragni
Aarhus Town Hall, Denmark, Arne Jacobsen with Eric Moller
Saynatsalo Town Hall, Finland, Alvar Aalto
Kurashiki City Hall, Japan, Kenzo Tange
Toronto City Hall, Canada, Viljo Revell
Boston City Hall, USA, Kallmann, McKinnell and Knowles
Dallas City Hall, USA, IM Pei
Mississauga City Hall, Canada, Ed Jones and Michael Kirkland
Borgoricco Town Hall, Italy, Aldo Rossi
Reykjavik City Hall, Iceland, Studio Granda
Valdelaguna Town Hall, Spain, Victor Lopez Cotelo and Carlos Puente Fernandez
The Hague City Hall, the Netherlands, Richard Meier
Iragna Town Hall, Switzerland, Raffaele Cavadini
Murcia City Hall, Spain, Jose Rafael Moneo
London City Hall, UK, Norman Foster

John Stewart is an architect and writer who until recently led one of the UK’s largest multi-
disciplinary architectural practices. In his architecture he specialised in major public building
projects such as schools, libraries, law courts and theatres. His own designs have won numer-
ous awards and been widely published and he was twice selected as one of the best 40
architects under forty in the UK. He has lectured, taught and examined at numerous Schools
of Architecture in the UK.
Twentieth Century Town Halls
Architecture of Democracy

John Stewart
First published 2019
by Routledge
2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN
and by Routledge
52 Vanderbilt Avenue, New York, NY 10017
Routledge is an imprint of the Taylor & Francis Group, an informa business
 2019 John Stewart
The right of John Stewart to be identified as author of this work has been
asserted by him in accordance with sections 77 and 78 of the Copyright,
Designs and Patents Act 1988.
All rights reserved. No part of this book may be reprinted or reproduced
or utilised in any form or by any electronic, mechanical, or other means,
now known or hereafter invented, including photocopying and recording,
or in any information storage or retrieval system, without permission in
writing from the publishers.
Trademark notice: Product or corporate names may be trademarks or
registered trademarks, and are used only for identification and explanation
without intent to infringe.
British Library Cataloguing-in-Publication Data
A catalogue record for this book is available from the British Library
Library of Congress Cataloging-in-Publication Data
Names: Stewart, John (Architect), author.
Title: Twentieth century town halls : architecture of democracy / John
Stewart.
Description: New York : Routledge, 2019. | Includes bibliographical
references.
Identifiers: LCCN 2018044659| ISBN 9781138312524 (hardback) | ISBN
9780429458163 (e-book)
Subjects: LCSH: City halls. | Architecture, Modern—20th century—Themes,
motives. | Democracy and architecture.
Classification: LCC NA4430 .S74 2019 | DDC 724/.6—dc23
LC record available at https://lccn.loc.gov/2018044659

ISBN: 978-1-138-31252-4 (hbk)

ISBN: 978-0-429-45816-3 (ebk)

Typeset in Avenir
by Swales & Willis Ltd, Exeter, Devon, UK
To Marie and Colin
Contents

Acknowledgements viii

Introduction 1
The history of the town hall 5
The development of the twentieth century town hall 20
The case studies: 67
Copenhagen City Hall 68
Stockholm City Hall 75
Hilversum Town Hall 82
Walthamstow Town Hall 91
Oslo City Hall 99
Casa del Fascio, Como 107
Aarhus Town Hall 118
Saynatsalo Town Hall 126
Kurashiki City Hall 134
Toronto City Hall 142
Boston City Hall 152
Dallas City Hall 160
Mississauga City Hall 169
Borgoricco Town Hall 177
Reykjavik City Hall 185
Valdelaguna Town Hall 193
The Hague City Hall 199
Iragna Town Hall 207
Murcia City Hall 213
London City Hall 221

Epilogue 230

Bibliography 232

Index 237
Acknowledgements

There are a number of people whose help with the research and production of this
book I would like to acknowledge.
Firstly, all the numerous photographers from around the globe who have con-
tributed their images to this book – without their help it would have lost much of
its value.
Secondly, the various town hall building users who have assisted me in provid-
ing access, answering questions and clarifying facts – in particular:

• Steve Myhill at the London Borough of Waltham Forest

• Vanna Agostini at the Comune di Borgoricco
• Jacqueline Lamme at the Municipality of The Hague
• Bjarni Brynjolfsson at Reykjavik City Council
• Marsha Prior at the City of Dallas
• Rosalynd Rupert at the City of Toronto

And finally – my wife Sue – for her constant support, encouragement, travel
companionship and compiling of the index.
Introduction

Traditionally, town or city halls have been the most important civic buildings within
democratic societies, often dominating a central public space, with their dome or
tower competing with church and cathedral spires for both supremacy of the urban
skyline and control of their citizens’ lives. They have been symbolic, not only of
devolved power, but also of their community’s wealth, status and aspirations, often
receiving generous public funding to communicate local achievements and ambi-
tion to both their citizens and their regional or national competitors. Many town or
city halls have themselves become icons for the societies which they serve, from the
historic Siena City Hall, which still dominates the Piazza del Campo, to Stockholm’s
more recent example, whose dramatic highly romantic City Hall, reflected in the
waters of Riddarfjarden, has become both the most recognised image of the city
and, in its case, arguably, of Sweden itself. They have been used as key assets in
civic competition since the Italian City States of the fourteenth and fifteenth centu-
ries, via the burghers of Brussels, Ghent or Bruges in the sixteenth century, to the
nineteenth century, when industrialists from Belfast, Glasgow and Manchester to
New York, Baltimore and Philadelphia, sought to impress and assert their superior-
ity over each other, via the scale and grandeur of their city’s principal building. For
the citizens of these communities, these buildings were, and in many cases remain,
repositories of civic pride and local identity. They chart our collective journey from
imperial absolutism to fully enfranchised democracy.
As a building type, for most of their history, they have been inextricably linked
with the merchant class and most of their activity was focussed on the encourage-
ment and support of local commercial activities and it is no coincidence that the
first town halls built in the eleventh century, served the communities of the two
great medieval trading blocks – the Hanseatic League in Northern Germany and
the Lombard League in northern Italy. In both cases, it was an increasingly wealthy
middle class who demanded and won a degree of autonomy and control over their
commercial activities from their rulers. The simple model of Como’s Broletto, of
1205, of a room at first floor which doubled as both council chamber and law court,
above a colonnaded market below, was to serve many communities throughout
Europe for many centuries to come and first established the hierarchical relation-
ship of the council chamber being raised above the level of the everyday life of
the town or city, which survives in almost every town or city hall to the present day.
By the fourteenth century, the market had often moved out of the ground floor,
further administrative offices and often a further civic hall had been added and
the first towers began to appear, in Siena for example where the Torre de Mangia
was added to its brick, fortress-like Palazzo Pubblico between 1325 and 1344 – at
exactly the same height as the tower of the city’s nearby Duomo, thus initiating a
dialogue between church and state which would continue for many years, until the
glass and concrete towers of commerce, finally dwarfed both institutions (1).

Introduction 1
Over the next few centuries, there was also a gradual separation of civic and judi-
cial proceedings by which time what we regard as the modern format of the town
hall building type was established – thus we have a civic building, usually fronted by
a large piazza, square, place, platz or plaza, with a suite of civic spaces, increasingly
including council chamber, a civic meeting/banqueting room and accommodation
for the Mayor, Podesta or Burgermeister raised up above street level on the first
floor, surrounded by administrative offices and surmounted by a tower or later –
often a dome.
By the late nineteenth century, while this model had been expressed at vari-
ous scales in an astonishing variety of architectural styles, there had been little
further fundamental development – courtyards, both internal and external, had
been introduced to provide light and ventilation to the increasing quantity of
internal spaces, entrance halls and staircases had become increasingly grand in
the cities in particular, but the basic parti was consistent. Indeed, with the advent
of the industrial revolution, the flow of wealth from distant empires and the
slow but resolute movement towards universal suffrage, this period represented
something of a golden age for town hall building. Cities and towns were growing
fast as their country’s economy and population shifted from agrarian produc-
tion to industrial and these new urban communities required both increased civic
accommodation for their effective management and civic symbols to reflect their
newfound local power, wealth and status. The twentieth century was to bring
even more radical change.
By the dawning of the new century, industrialised workers were becoming
increasingly organised and demanding social and political reform – communism
had emerged as an economic alternative to capitalism – women demanded their
right to vote and colonies sought independence from their imperial masters. In
architecture, the Revivalism of the nineteenth century was rejected among radical
circles in favour of various nationalist variations of a new Free Style, which ranged
from the sensuous twisted bones and sinews of Gaudi’s work in Barcelona to the
Calvinist restraint of National Romanticism in northern Europe. The pressure was
growing for cataclysmic change and the First World War and consequent Russian
Revolution, brought this about. Modern Architecture emerged from the ashes
offering a vision of a new, healthier, more egalitarian and rational future world. Like
the various Free Styles before it, it was initially adopted largely by the cognoscenti
until the Second World War prepared the way for a new age of social democracy
for which it appeared to be the perfect expression. It was adopted almost univer-
sally and its success was confirmed when it became known as ‘The International
Style’. By the latter part of the century, however, its dominance became increas-
ingly questioned, its failure in particular to deliver urban environments of quality
was increasingly evident and a re-evaluation of the traditional European city took
place. From the initial confusion of the early Post-Modern age there emerged a
number of competing styles – High-Tech, Rationalism, Contextualism and even
Revivalism once more.
Throughout it all, towns and cities built new town halls and they reflected
not just the changing architectural styles but, much more importantly, the
changes which were taking place in society throughout this period – the shifts

2   Introduction
 in power from the owners of business and property to their workers and from
men to women; local administration moving from controlling to supporting
and enabling; increasing demands for transparency in government; less defer-
ence and a declining respect for our institutions and their symbols, including
town halls.
This book charts these changes through 20 case studies of town halls
ranging chronologically from Martin Nyrop’s Copenhagen City Hall of 1905
(see page 68) to Norman Foster’s London City Hall of 2000 (see page 221).
For architects, the building type has always represented a major commission in
terms of its civic importance, the budget available and the potential for archi-
tectural expression, and the selected examples thus represent some of the
greatest architectural achievements of the century by many of its greatest archi-
tects including Alvar Aalto, Arne Jacobsen, Richard Meier, Kenzo Tange and
Aldo Rossi (Figure 1). They examine the various catalysts for construction in each
case and the politicians who promoted their funding, design and procurement –
men like Hieronymus Heyerdahl, who wanted Oslo to have a city hall to equal
Copenhagen and Stockholm or Erik Jonsson who was determined to create a new
forward-looking image for the city of Dallas, to assuage the city’s guilt, following
Kennedy’s assassination. They express the changing relationships between the
governing and the governed, the Councils and their constituents and between
the individual and their community and despite our increasing cynicism, largely
continue as important symbols of their communities – not least as a result of the
particular architectural quality of those selected.
At a time when civic pride is often mocked; when public expenditure is
unpopular and Councils investing in their own accommodation increasingly dif-
ficult to defend; when our institutions are constantly and rigorously questioned;
when security concerns are compromising public access and electronic commu-
nication removing the need for it; when many town halls are being sold and
converted into hotels, colleges or restaurants and local authorities are choosing

ffFigure 1
The Hague City Hall,
Netherlands
(Source: Bart van Dam)

Introduction 3
to rent, rather than build, it seems particularly timely to look back, to what in
retrospect may be the last great period of town hall building. This is not a cata-
logue of town halls during the twentieth century – it is an appreciation of the best
examples and the ambitious, developing, civic, social, political and architectural
ideas, which shaped them.

Note
(1) In Siena this truce was only sustained until 1352, when a marble loggia was added to
the Palazzo Pubblico’s tower, thus exceeding the height of the Duomo’s tower

4   Introduction
The history of the town hall
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Presses Universitaires de Rennes, 2006
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Copenhagen City Hall

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Stockholm City Hall
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Hilversum Town Hall

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Walthamstow Town Hall

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Oslo City Hall

Oslo, a Thousand-Year History, by Synnøve Veinan Hellerud , Jan Messel Aschehoug, Oslo, 2000
The City Hall in Oslo, by Ulf Gronvold , Nils Anker , Gunnar Soensen , H Aschehoug and Co, 2000
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2016
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Casa del Fascio, Como

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Press, 1991
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Corbusier’s early villas with those of Palladio)
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Press, 1991 p 77
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Press, 1991 p 48

Aarhus Town Hall

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Saynatsalo Town Hall

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Kurashiki City Hall

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Toronto City Hall

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Dallas City Hall

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Mississauga City Hall

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Borgoricco Town Hall

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30 January 2017
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Reykjavik City Hall

All information from the City of Reykjavik , reykjavik.is/en
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The Nature of Things, by Studio Granda, Reykjavik Municipal Art Museum, 1995
Casabella, July/August 1993
The 1998 John Dinkeloo Memorial Lecture, by Studio Granda, University of Michigan, 1998 p 17
The 1998 John Dinkeloo Memorial Lecture, by Studio Granda, University of Michigan, 1998 p 44
Monument, No. 98, 2010

Valdelaguna Town Hall

Arquitectura (Madrid), January/February 1986, pp 67–89
Twentieth Century Architecture in Spain, by Anton Capitel and Wilfried Wang , Tanais Ediciones, 2000
Twentieth Century Architecture in Spain, by Anton Capitel and Wilfried Wang , Tanais Ediciones, 2000 p 253
Architectural Review, June 1987 and May 1986
Quaderns April/September 1986, pp 108–119

The Hague City Hall

A City Hall for The Hague: Built in a Snake Pit, by Adri Duivesteijn , Nijmegen, Nederlands, 1994
Stadhuis/Bibliotheek: The City Hall/Library Complex by Richard Meier, by Richard Meier , Fred Feddes , Victor Freijser , Ed Melet , Peer
Noordanus , Olof Koekebakker , NAi Publishers, Rotterdam, 1996
Richard Meier, by Kenneth Frampton , Phaidon, London, 2002
richardmeier.com
Ivar Hagendoorn (blog), 17 July 2006
www.neutelings-riedijk.com

Iragna Town Hall

Casabella, November 1989, pp 38–39
Raffaele Cavadini Architetto, Catalogue, RIBA Library, London
Modern Architecture Since 1900, by William JR Curtis , Phaidon, London, 3rd Edition, 1996, p 624
Domus, April 1997, p 14
A+U (Tokyo), April 1998
Techniques + Architecture, September 1997, pp 52–57
Swiss Made, by Steven Spier and Martin Tschanz , Thames and Hudson, 2008, p 7 (Such is the quality of recent Swiss architecture, that
Cavadini’s designs were omitted from the book.)
Domus, April 1997, p 16

Murcia City Hall

A History of Medieval Spain, by Joseph F O’Callaghan , Cornell University Press, 2013
Key Contemporary Buildings, Plans, Sections and Elevations, by Rob Gregory , Lawrence King, 2008, p 184
‘Anexo Ayuntamiento Murcia’, Chueca Goitia , La Verdad, 14 February 1986
Twentieth Century Architecture in Spain, by Anton Capitel and Wilfried Wang , Raul Rispa, 2000
Rafael Moneo: Building, Teaching, Writing, by Francisco Gonzalez de Canales and Nicholas Ray , Yale University Press, 2015
Rafael Moneo: Remarks on 21 Works, by Laura Martinez de Guerena , Thames and Hudson, 2010 pp 439–441
22 City Halls, Anthony Eardley (blog), eardleydesign.com
North Africa: The Roman Coast, by Ethel Davies , Bradt Travel Guides, 2009

London City Hall

Explaining Local Government: Local Government in Britain Since 1800, by JA Chandler , Oxford University Press, 2013
Foster Catalogue 2001, by Norman Foster , Prestel Verlag, Munich, 2001
The Norman Foster Studio: Consistency through Diversity, by Malcolm Quantrill , E& FN Spon, 1999, p 228
22 City Halls, Blog by Anthony Eardley , eardleydesign.com
Public Building CO2 Footprints Revealed, The Guardian, 14 September 2015
Norman Foster: A Life in Architecture, by Deyan Sudjic , Orion Publishing, 2010, p 286
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