The confluence of tracks to the north of Grand Central was considered to be the city's "most fearful death-trap" by "The New York Times" in 1872, and large meetings were held to protest the deaths caused by collisions between trains and pedestrians. The New York State Legislature passed legislation in 1872, requiring that of NY&H tracks between Grand Central and the Harlem River be placed underground. The law set up a Board of Engineers to manage the project, which was known as the Fourth Avenue Improvement. The law stated that the authorization for two additional tracks was given "for the purpose of facilitating rapid transit and accommodating local traffic": these tracks were built on the same level, and as part of the project, four local stations were built.