reported on "skulls and feet, arms and legs sticking out of the crumbling bank in the wildest disorder". Edwin G. Burrows described the skulls on the coast "as thick as pumpkins in an autumn cornfield". During construction at the Naval Yards, workers were not sure what to do with the bones, and they started to fill casks and boxes. They were reburied on the grounds of the nearby John Jackson estate. Eventually, "near twenty hogsheads full of bones were collected by the indefatigable industry of John Jackson, esq. the committee of Tammany Society, and other citizens, to be interred in the vault." The monument's dedication plaque estimates that 11,500 prisoners of war died in the prison ships, but others estimate the number to be as high as 18,000. Political resolve The movement to commemorate the dead only took off when political differences between Federalists and Democratic-Republicans deepened in the last years of the eighteenth century and the latter took up the question of a memorial in response to the Federalist erection of a statue of George Washington in 1803. The Tammany Society, headed by Benjamin Romaine was created and grew into a Republican organization. On February 10, 1803 Republican Congressman Samuel L. Mitchill asked the federal government to erect a monument to the fallen, but had no success They then turned their efforts to a grand ceremonial re-interment of the prisoners' remains, emphasizing less the construction of a monument than something more suited to the common man. Tammany formed the Wallabout Committee in January 1808. Their efforts took strength from renewed anti-British feeling stemming from British incidents in 1806 and 1807. Finally, when President Thomas Jefferson enacted the Embargo Act of 1808, Tammany and the Republicans used their plans for a re-interment as part of their campaign to bolster anti-British sentiment. Precursor vaults and monuments First vault and monument On April 13, 1808, there was a ceremony to lay the cornerstone of a planned vault. A grand ceremony of re-interment followed on May 26, 1808. The state voted to provide the Tammany Society $1,000 to build a monument. The Society pocketed the money and the monument was never built. A small square building stood above the 1808 vault with an eagle mounted at the point of the roof. It was located on a triangular plot of land near the Brooklyn Navy Yard waterfront (Wallabout Bay) in what is now called