Comprehensive Design Plan and Final Environmental Impact Statement... The White House & President's Park

552 Pages·1998·53.3 MB·English

by  Department of the Interior

Comprehensive Design P lan
and Final Envirorimental Impact Statement
The WhiteH ose
& President's Park
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& President’s Park
Washington, D.C.
Thrs document presents a proposed plan and three alternatives for a comprehensive design plan for the White House
and President's Park. The overall purpose of such a pian is tc provide a framework for future management that will respect
the history and traditions of thrs special place A comprehensive plan 1s needed because most problems over the last 200
Certain assumptons have guided the development of alternatives the White House will continue to serve as the
executive residence and office of the president. safety and security for the president and first family will not be
compromised. the Whde House will continue to de open to the general public for tours on a regular basis free of charge.
improve the dignity and character of the site. Criteria would be established for special events (other than First Amendment
activities) that would be allowed within President's Park A permanent events plaza with utilities would be developed in
the northeast quadrant of the Ellipse to reduce impacts on turf and adjacent resources caused by large-scale events. The
other alternatives would address these needs in various ways. ranging from accommodating al! major support operations
and facilites within the White House complex and President's Park to deceniralizing and moving functions to adjacent
areas. A no-action alternative. which would continue existing management trends. is also considered.
Environmental consequences under the proposed plan and the alternatives would generally be positive Significant
cultural landscape elements, including historical views. would be protected. along with archeological resources. historic
buildings and structures, and the White House fine and decorative arts collection. Natural resources would not be
adversely affected. Factors such as a high water table. the presence of nationally significant historic resources. the potential
for archeological resources. and presidential commemorative plantings would have implications for nc 4 construction. For
future first families additional privacy and facilities would be provided. For staff. official vistors. and the news media
improved and new facilities would allow functions related to the Executive Office of the President to be conducted more
efficiently and without intruding on the dignity and appearance of the site. For public visitors additional interpretive
programs and museum exhibits would enhance opportunities to learn about the history of the White Mouse and the
presidency. Local traffic circulation patterns would be somewhat affected by various alternatives for E Street. however,
a long-term solution to traffic congestion in the core area would need to be developed in cooperation with D.C.
transportation agencies. Local vendors would be affected by the removal of vending spaces along sidewalks and adjacent
curb lanes within the area. Site operations and management would be improved.
The Draft Environmental Impact Statement was on public review from December 2. 19t9o M8arc,h | |, |999. Public
forums on the document were held at the White House visitor center on February 27 and 28. 1999. A totoaf l10 0
commweere nrecteivsed — 29 from governmental agencies, businesses, and organizations, 2 from students at educational
institutions, and 69 from individuals. All substantive comments are addressed in this document. The release of this F inal
Environmental Impact Statement will be followed by a 30-day no-action period: if no substantive comments are received
during that period, the alternative or actions constituting the approved plan will be documented in a record of decision.
For additional informcaonttaict oJanme,s |. McDaniel, Director, White House Liaison, National Park Service. 1100 Ohio
Dr., SW, WashingtDCo 2n02,42 ; [phone], fax [phone].
United States Department of the Interior + National Park Service
Prepared in cooperation with the following agencies and federally chartered organizations, which have stewardship
and oversight responsibilities at the White House and President's Park:
Executive Office of the President + Executive Residence at the White House * White House MilitaOfrfyic e
U.S. Department of the Treasury * U.S. Secret Service * General Services Administration
District of Columbia * Commission of Fine Arts + National Capital Planning Commission
Advisory Councilo n Historic Preserv* aPetnnsiylovanni a Avenue Development Corporation (until 1996)
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This Final Environmental impact Statement has been organized to meet the requirements of the
Nationa! Environmental Policy Act. as described below:
The Semmury, beginning on the following page. briefly describes the context for the pian. the
The first part of thes document — Pwrpese of and Need for the Plan — begins on page 5 and de-
scribes why a plan ts being prepared. the purpose and significance of this site. and what citizens
should be able to learn and experience here. This section also levks at what thes site should look
itke mm 20 years, referred to as desired future conditions. The problems. issues. and concerns that
are conside:ed im this document are i:sted starting on page 20. Finally. how thrs documerenlatte s
to other planning efforts in the Washingtor. ).C . area is described beginning on page 33.
The second part — Alternatives, Inctuding the Proposed Plan — presents the planning assump-
tions that have guided the development of the pian and its alternatives. The proposed plan is
described on pages 49 through 66. followeu by a no-action alternative (which ts used as a baseline
Actions that would be taken to mitigate adverse effects. as well as other actions that were consid-
ered but rejected. are also described. Beginning on page | 02 are tables that summarize the pro-
posed plan and alternatives. as well as thei environmental consequences. These tables highlight
the differences between the proposed pian and the alternatives and give a quick overview of the
impacts.
The third part — The Affected Environment — starts on page |27 and describes the setting of
the White House and President's Park, with particular attention given to elements that would be
impacted by implementing any of the alternatives — cultural resources (including the landscape.
wore and histori " ’ (actading soils,
and vegetation), facilities and functions related to the Executive Office of the President (such as
meeting facilities, access and parking. deliveries, and circulation). visiter use, special events and
The fourth part — Environmental Consequences —- analyzes the impacts of implementing each
alternative on the topics described im the affected environment. Beginning on page 201. the
information presented in this part is summarized in table 2 (page | | 2).
The Compliance chapter, beginning on page 325, lists actions that must be taken once a plan has
been approved. The Consultation and Coordination in the Development of the Plan chapter
organizations, and individuals on the draft document: responses to substantive comments are also
inclinu thdis esecdtio n.
The Appendixes, starting on page 445, provide supporting information for the document,
(page 504) defines terms used in this document, as well as terms with special meanings for
environimmpacet nsttateamelnts .
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SUMMARY
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his ComprehDeesnigsn iPlvan ean d * mot enough space or facilites, or facilites
Final Environmental Impact Siate- that are not of the nght type or im the nght
ment reprtehe fsirset ncomtpreshen - location. to accommothde achtangein g
sive plan for the White House and President's functions of the Executive Office of the
Park since the site was designated in 1791 by President
George Washington as the residence for the
¢ a lack of privacy and indoor recreation
president. The plan ident(i1)f nieedes san d
space for the first family
functions that will have to be accommodated
at the site over the next 20 years. including the
needs of the presidency. as well as of visitors
and other site users. (2) means to ensure the
protofe impcorttanti reosounrce s. including
the White House itself, and (3) ways to solve
logistical and management problems that have
develovoer pthee ydear s. On May20 , 199t5he ,U. S. Departmeofn tth e
Treasury restricted public vehicular waffic on
Today, the White House and PresidentP'asrk
Pennsylvamia Avenue and several other city
are a manifoef msoret tahant 20i0 oyeanrs of
streets and park roads. These changes have heen
incremental change. Most problems have been
incoasr parpt oof thre exaistitng econdditi ons
addressed as they have arisen. while some for the purposes of this document. A long-term
have not been addressed at all. The lack of a
design for PennsyAvlenuve ais nbeiing aco n-
comprpelan hhase gennersallyi revsuleted in
sidered in a separate planning effort but is con-
a piecemeal approach to problem solving and
sistent with proposed actions in this document.
development. Also, surrounding urban ijand
uses continue to encroach on PresidentP'asr k
and threaten its dignity and character. Alternatives, Including the
Proposed Plan
Some of the critical concerns facing the White
House and President's Park today include the
The proposed plan and three alternativeasr e
following:
presented in this documenast w,el l as a no-
* the inconusse oif dsesitgnse annd tmat e- action alternative that analyzes existing condi-
rials throughout the area, creating a hap- tions and trends and serves as a baseline for
hazard appearance analyzing the other alternaAtltiernvateivses. | .
2, and 3 were shared with the public at forums
¢ adverse effects on the dignity and visual
at the White House visitor center during the
quality of the White House and Presi-
spring of 1995 and in a newsletter released at
dent's Park as a result of vehicles parking
the same time. Following public review, addi-
throughout the site, temporary structures
tional information was collected to determine
(such as bleachers) that look out of place,
the feasibility or suitability of some options
and other activities that create a disor-
that are considered. The proposed plan includes
ganized appearance
elements from all these alternatives.
SUMMARY
Planning Assumptions
The following planning assumptifoormn sth e
framework for future actions at President's
Park and the White House and relate to all the The White House will continue to serve as
alternatives being considered (except the no-
action alternative).
* CompreDehsigen n— sFutiurev deesig ns
and actions on the White House grounds
and within President's Park will be in
accordance with the significant elements of
past landscape designs. Facilities and
maintenance operations will reflect the
dignity. signifanid hcisatorny ocf ethe, si te
and the presiQudaliety nmatceriyals. w ill
be used to reflect the importaanndc deig -
nity of the White House. Design Guide-
lines that have been developed for archi- House will be provided.
Facilities will be provided for the news
White House and PresidePanrkt w'ills b e media to maintain direct access to the
followed. press secretary and staff so that journalists
can provide coverage of, and maintain
¢ Resource Conservation and Management proximity to, the operations of the Office
— Cultural and natural resources will con- of the President.
tinue to receive high-qucaarel aindt pyro -
tection. All federal agencies currentlyman- ° Visitor Use and Services — The White
aging vanous cultural resource programs at House will continue to be open to the gen-
the site will continue to do so. The Na- eral public on a regular basis free of
tional Park Service will cooperate with charge. To ensure adequate visitor orienta-
these agencies to foster the exchange of tion to the White House and President's
infoandr thme daeveltopmiento ofn coo p- Park and to provide ticketing and staging
erative appraonda prcogrhamse fosr r e- for White House tours, a visitor center and
source protection. All memorials estab- museum will be provided within easy
lished by legiswilll abet reitaionedn; no access of the White House.
new memowirll ibe aencloursage d. All
Special Events — All First Amendment ac-
programs and facilities will be designed
tivities will be accommodated in com-
and managed in an environmentalsoluynd
pliwiath ncurcrente la w. Special events of
manner.
varying size, intensity, and significance
* Home and Office of the President — The will continue in the public portions of the
White House will continue to serve as the study area and on the White House
home of the presidaned noftfic,ia l func- grounds.
tions will continue to be held at the White
amSY —=
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SUMMARY
* Transpo— Trhe tNaatiotnali Paork nSe r- A comprehensive archeological program, based
vice will enter into discusswiitoh nlosca l on a completed preliminary survey, would be
and reg:onal planning agencies to compre- developed to help ensure the conservatioannd
hensively address traffic concerns in the protof aerchceolotgicial oresonurce s.
WashDi.C.n, dgownttowno arnea., Mad i-
Storage space for fine and decorative arts
son. Jackson, State, and Hamilton Places
will remain restricted to public vehicular would be provided within or immediatealdjya -
cent to the White House so that items could be
properly prepared for shipment to offsite stor-
Streets; no vehicle parking will be allowed
age facilities, or so that damaged items could
on these streets, on the Ellipse roadways,
be fully assessed before transportattoi oconn -
or along the curb lanes surroundPirnesgi -
denParkt (1’5th sStre et, 17th Street, Con- servatThoisr fasci.lit y would also be used to
stitution Avenue, and H Street). The use of temporarily store artifacts during events.
mass trabny vissitiorst a nd staff will be
Home and Office of the President. Mult-
actively encouraged.
purpose, informal indoor recreation space for
future first families would be provided. To
Proposed Plan accommodate existing needs, new meeting/
conference space would be constructed under
Comprehensive Design. The proposed plan West Executive Avenue. This location would
includes those actions that would best meet be immediately accessible to White House
the needs of the Executive Residence, the staff.
Office of the President, the multiple agencies
Staging for motorcades and parking for senior
involved in stewardship or management roles
staff would be provided in a 290-space park-
within President's Park, anc visitors. The his-
ing garage beneath Pennsylvania Avenue,
toric elements and character of President's
with a belowground access corridor to the
Park and the White House as a formal setting
White House complex. Over the long term
for staie events would continue to be
parking for other staff would be provided by
respected.
constructing an 850-space garage beneath the
President's Park would become a pedestrian- Ellipse; pending the completion of this facility
oriented space, with eight entryways (two (in the last phase of plan implementation),
each on H Street, Pennsylvania Avenue, E parking would be leased in private parking
Street, and Constitution Avenue) to signify for garages within about a 10-minute walk of the
visitors a special place. (Formal entryways on White House complex.
H Street and PennsylAvevnuae nwoiulda b e
To facilitate staff circulation and deliveries
part of the long-term design for the avenue.)
throughout the site and to minimize conflicts
Resource Conservation and Management. with Executive Residence operations, a
Cyclical maintenance programs, including belowground corridor would connect the Old
regular condition assessments and program Executive Office Building, the White House,
development for conservation and preserva- and the Treasury Building. Deliveries would
tion, would be developed for all resources by be made at docks in the New Executive Office
each agency. Building and distributed throughout the site
by way of underground service corridors.
General storage space for items frequently
aY h <=
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Summary Alternatives
used at the Executive Residence would be TranspoE rStrteeta wtoulid boe rnet.ain ed
provided as part of the northside garage. as a two-lane, eastbound street. Because se-
vere traffic problems exist in the downtown
Facilities for the news media would be area, temporary interim measures involving E
upgraded on the first floar of the west colon-
Street within President's Park might be under-
nade, with additional new facilities under taken to help alleviate these problems. Re-
WeWsing tDri ve. ducing surface traffic within President's Park
would remain a long-tegroaml .
Visitor Use and Services. Complete informa-
tion and onentation for visitors would be pro-
The roadways on the Ellipse would be closed
vided at entryways to the park, using staff and
to vehicular traffic except for limited access
interactive computer monitors.
by emergency and authorized traffic. The
roads” historic configuration and character
The White House visitor center in the Com-
would be retained for use as wide pedestrian
merce Building would be expanded to 60,000
paths leading to adjacent gardens in the side
square feet belowground in existing and new
panels.
space to provide theaters, a museum, and ex-
hibit and program areas. Expanded interpre-
Site Managaned mOpeeratnionts. [o make
tive programs about the White House and the
park operations more efficient, a satellite
presidency would be offered, with specially
maintenance facility woube dlevedlop ed near
designed programs for visitors and scliool-
President’s Park. The steamline under the
children. Visitors taking a public tour of the
center of the Ellipse would be relocated,
White House would watch a short onentation
subject to criteria to protect park resources.
film and then walk through a naturally lighted
pedestrian corridor to “Lily Tnangle.” near
the southeast portion of the White House The No-Action Alternative
grounds. From here they would walk on the
surface to the visitor entrance building. Comprehensive Design. [he no-action alter-
native would continue current management
To improve the appearance and dignity of Strategies. Management decisions regarding
President's Park, no commercial vending the development and appropriate design of
would be allowed along adjacent sidewalks elements within the park (e.g.. monuments,
and curb lanes. Informal recreational activities paving materials, fences and barriers. and
would continue on the Ellipse. infrastructure for special events) would be
made on a project-by-project basis. Construc-
Special Events. For special events on the
tion and development would be undertaken to
Ellipse, a new plaza/performance area would
address immediate needs and pressures. No
be constructed in the northeast quadrant
coordinated efforts by agencies would be
(where the current visitor pavilion is). The
undertaken to minimize impacts from overuse.
plaza would provide permanent infrastructure
oiede
to reduce impacts associated with staging an Home and Office of the President. No addi-
event. Events would need to reflect the pur- tional recreation space would be provided for
eee ae,
_ pose and dignity of the site, be small scale and future first families. Meetings and conferences
a: of short duration, involve minimal commer- would continue to be held in available spaces
OilApea l
cialism, and include multiple cultures. Any throughout the complex, ‘including historic
temporary facilities used for staging events rooms that are not equipped for such
would have to be promptly removed.
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SUMMARY
functions. Frequently used materials within destrian entryways would signify to visitors
the White House complex would be stored that they were coming into PresidentP'arsk .
offsite and brought in as needed. Deliveries
would be made at various surface locations. Under alternative | traditional patterns of use
and site relatiwouoldn bse rhespiectped.s A ll
Facilities for the news media would remain in
major support operations would be accommo-
the west colonnade. Staff vehicles would be
parked in curreunsedt alreyas .
comandp Prlesideent'sx Pa rk.
Visitor Use and Services. Informatioannd
Under alternative 2 major support operations
orientation sources would be scattered
throughout President’s Park; visitors would
the Office of the President would be accom-
continue to stop at security guard booths for
modated as much as possible within the White
infoTrhe vmisitaor tcentier owounld .rema in
House complex and President's Park. Ail
in the Commerce Building. After picking up
elements of President's Park would be
same-day public tour tickets at the visitor
visually unified by emphasizing north’south
center, visitors would queue up for tours on
views along East Executive Park and West
the Ellipse during the summer and along the
White House fence the rest of the year, as they Executive Avenue, with pedestnan plazas on
the eastern and western portions of South
do now. Commercial vending would continue
Executive Avenue. E Street would be tun-
along sidewalks and curb lanes adjacent to
neled, providing unobstructed views to and
President's Park.
from the White House and allowing the
Special Events. Special events on the Ellipse Ellipse to be linked with the rest of
and within the White House grounds would President's Park.
continue to be accommodated, with no
Under alternative3 }o perations and support
controls on growth.
faciwlouild tbei semalsler , decentralizeda,n d
Transportation. E Street would remain as dispersed away from the White House
two lanes eastbound across President's Park. grounds and President's Park as much as
possible. Only those operations that must
Site Manaagnd eOpemratieonsn. Mtain te- occur within or near the White House would
nance operations would be based at an exist- remain. The use of existing structures would
ing facility about 1.5 miles away. be emphwiath ass liittlez newe facdilit,y c on-
strucast piososibnle . A historical ambience
would be evident throughout President's Park,
Alternat1,i 2v, eansd 3
and E Street would be removed, helping link
the Ellipse with the rest of President's Park.
As previously mentioned, alternatives 1, 2,
and 3 were presented to the public during the
Resource Conservation and Management.
spriofn 1g995 . The proppolans inecldude s
Under each alternative resources would be
elements from all these alternativaneds t,h e
managed as described for the proposed plan.
following discussion focoun tshe deiffsere nt
apprbeot acen ctheh alteernastive s. Home and Office of the President. Facilities
under each alternative would be similar to
CompreDeshigne. Unndesr eiachv aletern a-
those under the proposed plan, but locations
tiavs deesc,rib ed for the propopslane, dpe -
would differ.
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Nemmary ilermatives
Under alternative | indoor recreation space ties, would be provided in the Office of Thrift
for future first families. storage space, and Supeorr undver iPennssylivanioa Anven ue.
facilities for the news media would be pro- and another 650 parking spaces would be
vided beneath West Executive Avenue, in leased or provided in a new facility nearby.
facilities would be provided onsite. In addi- Visitor Use and Services. \ isitor information
tion to a 290-space parking facility under and onentation functions would be provided
PennsAvenyue landv ana 850n-spiace afac il- at park entryways under each alternative, as
ity under the northern part of the Ellipse. described for the proposed plan. No com-
belopawrkingg wrouldo alsuo bne prdovi ded mercial vending would be allowed along side-
walokr scur b lanes adjacent to President's
south of the Treasury Building (170 spaces).
Deliveries would be accommodated at the Park under any alternative.
facility southo f Treasuarsy w,el l as through
Under alternative | a new 66,000-square-foot
the New Executive Office Building.
visitor center and museum would be built
undeinr theg norrtheaost uquadnrantd of the
Under alter2n inadootr irecvreaetio n space
for future first families would be provided Ellipse. Visitors would have additioonpapolr -
belonowrth gof trhe roesiduencne. Ad me et- tunities to learn about the presidency and the
ing and conference facility, plus general stor- White House through interpreprtoigrvames ,
age space, would be constructed beneath Wesi including living history, conducted throughout
Executive Avenue; a motorcade staging area the park. Visitors on public tours of the White
and parking for diplomanad btusiincess visi- House would move thrao buelogwgrhoun d
tors (290 spaces) would be provided below- cormdor from the visitor center directly to the
visitor entrance building.
ground south of the Old Executive Office
Building. Parking for other staff (850 spaces)
Under alternative2 a 40,000-square-foot visi-
would be leased or provided in a new facility
tor center would be constructed belowground
within about a 10-minute walk of the com-
to the south and west of the U.S. Treasury
plex. For news media facilities, either existing
Building. Visitorson public touorfs t he White
facilities in the west colonnade would be
House would take escalators, elevators, or
upgraded or the first floor of the colonnade
stairs directly up to the visitor entrance build-
would be upgraded and additional facilities
ing. In lieu of interpretive exhibanid atctsivi -
constundrer uWesct tWineg Ddriv e.
ties at this smaller visiter center, numerous in-
terpretive and educational experiences would
Under alternative3 recreation space for future
first families would be provided within the be provided throughout the site. (This pro-
west colonnade where press facilities are now. posal could conflict with utility work recently
Facilities for meetings and conferences and being planned south of the Treasury
Building.)
the news media would be developed within
the north courtyard of the Old Executive
Under altemative 3i nterprpreogtraimsv ean d
Office Building rather than below West
exhibits would be focused at an expanded
Executive Avenue. As described for the pro-
visitor center and museum in the Commerce
posed plan, a 290-space parking facility for
Building (60,000 square feet), asd escribed for
motorcades, diplomatic and business visitors,
the proposed plan.
and some senior staff would be constructed
under Pennsylvania Avenue. An additional
Special Events. Criteria would be established
200 parking spaces, as well as delivery facili-
for special events in President’s Park (other
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cility would be built in conjunctwiitho nth e
Ellipse parking facility, while under alterna-
uves 2 and 3 would be provided nearby. As
would have to be worthy of attendance by the descnbed for the proposed plan. the steamline
first family ard reflect the site's dignity. under the Ellipse would be relocated, based on
Existing special events on the Ellipse wou 'd criteria to protect park resources.
be reduced in scale and duration. and they
would be dispersed around the site to allo«
Environmental! Consequences
sufficient time for turf and garden areas to
recover. Under alternative 2 a special events
Even though the White House and the 18
plaza. as described for the proposed pian.
acres immeadrouind ait atre eexelmpty fr om
would be built in the Ellipse area. Under
compliance with the National Historic Preser-
alternative 3 all special events currently held
vation Act, resource impacts have been ana-
within PresPiarkd weoulnd tbe 'movsed to
lyzed to help public officials make decisions
that are based on a full understanding of the
Under each altemative recommendations
would be developed for events on the White
House grounds to protect resources.
Transportation. As described for the pro-
posed plan, Ellipse Drive and the adjacent Impof athe cProptosesd P lan
roadways would be closed to vehicular traffic.
Cultural Resource Impacts. /mpacts on the
although access would still be allowed for
Cultural Landscape — A unitied character for
emergency and authorized traffic. The road-
the White House and President's Park would
ways would be redesigned as pedestrian
be created by implementing the Design
walkways, with pathways leading to gardens
Guidelines, removing surface parking, and
and sitting areas in the side panels.
providing mew facilites underground. Five
Under alte|r En Stareett wioulvd bee w i- commemorative trees planted by presidents on
dened to four lanes (two lanes in each direc- the White House grounds would be subject to
tion) across President's Park and between loss or damage. A permanent events plaza on
17th and 18th Streets. A pedestrian underpass the Ellipse would add a new element to the
would be provideneda r 1 Sth Street. landscape, potentially attracting adcitional
events but reducing the impacts of current
Under alternative 2 E Street would be tun- ones. The effect of this proposed plaza on the
neled as a four-lane, two-way street through landscape would be mitigated through careful
President's Park. design and event administration.
Under alternative 3 E Street would be closed Ventilation systems and access points to the
to traffic and replaced with a broad walkway. Ellipse parking facility, as well as emergency
exits, would need to be designed to minimize
Site Managande Opmeraetionns. tUn der
any additional adverse effects on the formal
each alternative a satellite maintenance facil-
landscape. Potential impacts of new surface
ity would be developed to allow more effi-
elements (such as entrance portals to under-
cient maintenance operations throughout
ground facilities) on the settings of adjacent
President's Park. Under alternat|i vthei s fa-
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{0