Record of Decision for the Comprehensive Design Plan for the
White House and President's Park and Final Environmental Impact
Statement
[Federal Register: May 3, 2000 (Volume 65, Number 86)]
[Notices]
[Page 25747-25755]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr03my00-97]
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DEPARTMENT OF THE INTERIOR
National Park Service
Record of Decision for the Comprehensive Design Plan for the
White House and President's Park and Final Environmental Impact
Statement
AGENCY: National Park Service, Department of the Interior.
ACTION: Notice.
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SUMMARY: The Department of the Interior, National Park Service has
prepared the following Record of
[[Page 25748]]
Decision on the Final Comprehensive Design Plan for the White House and
President's Park and Environmental Impact Statement. This Record of
Decision is a statement of the background of the project, what
decisions were made, the basis for the decision, what alternatives were
considered, the environmentally preferred alternative, the measures to
minimize environmental harm and the public involvement in the planning
process.
Background of the Project
Need for the Plan
The White House and President's Park are located in our nation's
capital, Washington D.C., where the White House serves as the home and
office of the President of the United States. The overall purpose of a
Comprehensive Design Plan for the White House and President's Park is
to provide a framework for future management of the area that will
respect past traditions and meet the needs of tomorrow. This effort
represents the first comprehensive plan for the property since George
Washington designated the site in 1791 as the residence for the
President.
The White House and President's Park are a manifestation of more
than 200 years of incremental change. Most problems have been addressed
as they have arisen, while some have not been addressed at all. The
lack of a comprehensive plan has generally resulted in a piecemeal
approach to problem solving and development. Also, surrounding urban
land uses continue to encroach on President's Park and threaten its
dignity and character.
Some of the critical concerns facing the White House and
President's Park include:
Not enough space or facilities, or facilities that are not
of the right type or in the right location, to accommodate the changing
functions of the Executive Office of the President.
Insufficient informational and educational programs and
support facilities for visitors.
A lack of privacy and indoor recreation space for the
first family.
The inconsistent use of designs and materials throughout
the area, creating a haphazard appearance.
Adverse effects on the dignity and visual quality of the
White House and President's Park as a result of vehicles parking
throughout the site, temporary structures (such as bleachers) that look
out of place, and other activities that create a disorganized
appearance.
Inadequate maintenance storage and equipment; poorly
located and worn-out utilities.
The following agencies, which serve as members of the project's
Executive Committee, helped develop the Comprehensive Design Plan for
the White House and President's Park: Advisory Council on Historic
Preservation, Commission of Fine Arts, District of Columbia, Executive
Office of the President, Executive Residence at the White House,
General Services Administration, National Capital Planning Commission,
National Park Service, Pennsylvania Avenue Development Corporation
(until April 1996), U.S. Department of the Treasury, U.S. Secret
Service, White House Military Office.
Park Purpose
The White House has been the official residence of every president
since November 1, 1800 when the first residents--John and Abigail
Adams--moved in. The White House is a classic Georgian manor house that
is one of the most important buildings in the history of the United
States.
The White House was created and set aside as an important national
treasure to: (1) Provide a residence that offers privacy, protection
and recreational opportunities for the first family; (2) Provide a
suitable location for the official functions and activities of the
presidency; (3) Provide office facilities for the president and
immediate staff; and to (4) Preserve and interpret the museum character
of the White House; provide public access to the principal corridor on
the ground floor and to the state rooms on the first floor.
President's Park was created and set aside to: (1) Preserve the
cultural resources of the White House--its architecture, artifacts,
landscape design, gardens and grounds and the surrounding parklands--in
ways that foster and preserve dignity and respect for the office of the
presidency while still allowing for their use; (2) Provide a dignified
transition area from an urban environment to the White House environs;
(3) Interpret the history and significance of the presidency, the White
House, and President's Park, including their relationship to the
American public, our republican form of government, and the growth of
Washington, DC; (4) Preserve existing historic memorials as examples of
memorial art; (5) Provide a large open area associated with the White
House for freedom public expression and assembly activities, as well as
for public use and enjoyment; (6) Protect and enhance views to and from
the White House and provide a setting for viewing the White House; (7)
Preserve Lafayette Park as open public space in the foreground of the
White House as a setting for passive activities (reflecting, observing,
making a personal connection with the presidency), First Amendment
activities within legal limitation, and as a support area for
presidential inaugural activities; (8) Preserve and interpret Lafayette
Park as one element of the oldest planned federal reservation in the
nation, an example of early American landscape design, and the 19th
century neighborhood of the president; and to (9) Provide a setting for
viewing the White House and elements of the Lafayette Square National
Historic Landmark District.
Planning Assumptions
The following planning assumptions form the framework for future
actions at President's Park and the White House and were used in
development of the proposed action and the alternatives. The
alternatives, draft and final plans were measured against these
assumptions to guide the choice of actions.
Comprehensive Design
Future designs and actions on the White House grounds and within
President's Park will respect the significant elements of past
landscape designs. Elements may be carefully redesigned to serve modern
functions, but their original context will be preserved. The vistas,
viewsheds, buildings, roadway and walkway systems, fencelines,
plantings, and all other elements that combine to create a ceremonial
landscape for state functions will be respected in the design and
construction of new facilities. President's Park will continue to be an
open area that is visually linked to the National Mall; the traditional
vistas to and from the north and south will be maintained. No new
surface facilities will be constructed within primary and secondary
views with President's Park. Facilities and maintenance operations will
reflect the dignity, significance, and history of the site and the
presidency.
Design Guidelines that have been developed for architecture,
landscape architecture, design elements, signs, and temporary
facilities at the White House and President's Park will be followed.
Quality materials will be used to reflect the importance and dignity of
the White House.
Resource Conservation and Management
Cultural and natural resources will continue to receive high-
quality care and protection. All federal agencies managing cultural
resource programs at
[[Page 25749]]
the site will continue to do so. The National Park Service will
cooperate with these agencies to foster the exchange of information and
the development of cooperative approaches and programs for resource
protection. All memorials established by legislation will be retained.
All programs and facilities will be designed and managed in an
environmentally sound manner.
Executive Residence
The White House will continue to serve as the executive residence
of the President of the United States. The plan will not address the
second and third floors of the White House. Official functions will
continue to be held at the White House and on its grounds. Vehicular
arrivals and departures by the president and official visitors will
continue at multiple entry and exit points. The south lawn of the White
House, and on occasion the Ellipse, will be used for air transport.
Safety and security for the president and the first family will not be
compromised. Business visitors, guests for official functions and staff
will be cleared at entrances that are convenient to their meetings or
events, or their work places. West Executive Avenue will continue to be
within the secured portion of the White House complex and closed to
public pedestrian traffic. New utility systems will be energy
efficient, environmentally sensitive, and easy to maintain and upgrade.
Executive Office Support Services
The White House will continue to serve as the president's official
office. Multiple points of access into the White House complex will
continue to be available for all presidential guests and visitors.
Space for essential White House administrative and operational
functions will be provided within or adjacent to the White House;
existing spaces within President's Park may be used. Staff parking on
the Ellipse and adjacent roadways, East Executive Park, West Executive
Avenue, and Hamilton, State, Jackson, and Madison Places will be
provided elsewhere in order to improve aesthetics and to reestablish
the dignity and character of the site. Replacement parking with easy
access to the White House will be provided.
News Media Facilities
Facilities will be provided for the news media to maintain direct
access to the press secretary and the press staff. Such facilities are
in the long tradition of chief executives providing space for the news
media so they can provide coverage of, and maintain proximity to, the
operations of the Executive Office of the President.
Visitor Use and Services
The White House and President's Park are integral to the total
visitor experience of Washington DC. The White House will continue to
be open to the general public on a regular basis free of charge. The
present White House tour will not change dramatically and will continue
to feature rooms on the ground and state floors. Because access to the
White House is the most important objective of most visitors to
President's Park, this experience will be made as pleasant and
convenient as possible. To ensure adequate visitor orientation to the
White House and President's Park and to provide ticketing and staging
for White House tours, a White House visitor center and museum will be
provided within easy access of the White House.
Special Events
Special events of varying size, intensity, and significance will
continue in President's Park, as well as on the White House grounds.
All First Amendment activities will be accommodated in compliance with
current law.
Transportation
The National Park Service will enter into discussions with local
and regional planning agencies to address traffic concerns in the
Washington, DC, downtown area in a comprehensive fashion, while
ensuring the protection and preservation of national resources as
represented by the White House and President's Park. Access to the
White House and President's Park will be maintained for operational
support and emergency vehicles. Madison, Jackson, State, and Hamilton
Places will remain restricted to public vehicular traffic and will
become pedestrian-oriented streets. No vehicle parking will be provided
on Jackson, Madison, State, or Hamilton Place; on the Ellipse roadways,
or along the curb lanes surrounding President's Park (15th Street, 17th
Street, Constitution Avenue, and H Street). A future long-term design
for Pennsylvania Avenue, as well as Lafayette Park, will be considered
in a separate planning document. The use of mass transit by visitors
and staff will be actively encouraged through policy and design.
Agencies will work with the Washington Metropolitan Area Transit
Authority to promote staff and visitor use of mass transit.
Site Management and Operations
The White House and President's Park will continue to be managed
through interagency cooperation. All buildings and grounds within the
White House complex will be managed by the responsible agency or
through interagency agreements. Sites or structures outside the
boundaries of President's Park may have to be used in order to meet
needs identified in the plan.
Decision (Selected Action)
Comprehensive Design
The plan includes those actions that will best meet the needs of
the Executive Residence, the Office of the President, the multiple
agencies involved in stewardship or management roles within President's
Park, and visitors. The historic elements and character of President's
Park and the White House, including roadways, boulevards, and walkways,
will continue to be respected. This area will still serve as a
ceremonial landscape for state events. A comprehensive landscape plan
will be developed for the White House and President's Park, including
guidelines for maintenance practices. The landscape plan will update
the existing Olmsted Plan (1935) for the White House grounds and create
a guide for landscaping in the remainder of President's Park.
President's Park will become a pedestrian-oriented space. While
pedestrians can enter from any point around the site, entryways would
be created at intersections with the highest pedestrian volumes. These
entryways will signal visitors that they are coming into a special
place and also will provide visitor information. A total of 8 entryways
will be provided (two each on H Street, Pennsylvania Avenue, E Street,
and Constitution Avenue).
Design Guidelines for the White House and President's Park,
approved in 1995, provide a framework to guide future development. The
guidelines identify principles for architecture, landscape
architecture, design elements, signs and temporary facilities. They are
based on existing designs in and around President's Park and the White
House.
Two objectives were considered in locating all proposed facilities:
(1) Where possible, use existing buildings (if they meet desired future
conditions and program requirements) in order to protect resources,
enhance the site character, and minimize new development. (2) Where new
facilities are needed, relocate as many functions as possible to new
underground structures to minimize any new
[[Page 25750]]
intrusions on the surface; optimize the use of new facilities in order
to avoid the creation of numerous small facilities and increased costs.
Resource Conservation and Management
All cultural resource documentation will be kept current. All
monuments and memorials within President's Park will receive
conservation/preservation treatment on a regular schedule and be kept
in the best possible condition. All historically significant trees and
specimen plants will be identified, physically assessed, inventoried,
maintained and replaced with similar plant materials, as needed.
A comprehensive landscape plan will be developed for the White
House and President's Park, including guidelines for maintenance
practices. The landscape plan also will update the existing Olmsted
Plan (1935) for the White House grounds.
A comprehensive archeological program, based on a completed
preliminary survey, will be developed to help ensure the conservation,
protection and proper administration of archeological resources.
Storage space for fine and decorative arts will be provided within
or immediately adjacent to the White House so that items can be
properly prepared for shipment to offsite storage facilities, or so
that damaged items can be fully assessed before transportation to
conservators. This facility will also be used to temporarily store
artifacts during events.
Executive Residence
Secure, indoor, informal recreation space for future first families
will be provided outside of the White House itself, but immediately
adjacent to the residence. General storage space for items frequently
used at the Executive Residence will be provided below ground
underneath Pennsylvania Avenue. An underground corridor will connect
the storage area and the Executive Residence. Other storage will also
be provided in the lower level of the west colonnade. The maintenance
facility on the south grounds of the White House will be redesigned for
efficiency within the footprint of the current structure.
Executive Office Support Services
Official visitors and White House guests will continue to use
multiple entry points. West Executive Avenue will be redesigned to
appear similar to East Executive Park. Utility systems will be replaced
and relocated to meet the changing and expanding needs of the White
House complex and grounds.
Staging for motorcades and parking for senior staff will be
provided in a 290-space parking garage beneath Pennsylvania Avenue,
with a belowground access corridor to the White House complex. Parking
for other staff will be provided by constructing an 850-space garage
beneath the Ellipse. Pending the completion of this facility, parking
will be leased in private parking garages within about a 10-minute walk
of the White House complex.
To accommodate existing needs, new meeting/conference space will be
constructed under West Executive Avenue. To facilitate staff
circulation and deliveries throughout the site and to minimize
conflicts with Executive Residence operations, a belowground corridor
will connect the Dwight D. Eisenhower Executive Office Building, the
White House and the Treasury Building. Deliveries will be made at docks
in the New Executive Office Building and distributed throughout the
site by way of underground service corridors. Facilities for the news
media will be upgraded on the first floor of the west colonnade, with
additional new facilities provided beneath West Wing Drive.
Visitor Use and Services
Complete information and orientation for visitors will be provided
at entryways to the park, using staff and interactive computer
monitors.
The White House Visitor Center in the Commerce Building will be
expanded below ground in existing and new space to provide small
theaters for staging the public tour, a museum, and exhibit, program
and educational areas. Expanded interpretive programs about the White
House and the presidency will be offered, with specially designed
programs for visitors and schoolchildren. Visitors taking a public tour
of the White House will watch a short orientation film and then move
through a naturally lighted pedestrian corridor to just outside the
fenced portion of the White House grounds. From there they will walk on
the surface sidewalk to the existing visitor entrance building.
To improve the appearance and dignity of President's Park, no
commercial vending will be allowed along adjacent sidewalks and curb
lanes. Informal recreational activities will continue on the Ellipse.
Special Events
For special events, a new plaza/performance area will be
constructed in the panel just northeast of the Ellipse. The plaza will
provide permanent infrastructure to reduce impacts associated with
staging events. Events will need to reflect the purpose and dignity of
the site, be small scale and of short duration, involve minimal
commercialism, and reflect multiple cultures. Any temporary facilities
used for staging events will be promptly removed.
Transportation
In the long term, the plan seeks to reduce the pedestrian vehicle
conflicts in President's Park and thus calls for E Street to be two
lanes eastbound with an access lane for official White House traffic
and a landscaped median to create a more parklike atmosphere. Long term
major improvements will be made to enhance E Street's appearance,
including changing the shape of some medians, planting along medians
and pavement and other material changes along the roadway to create a
more parklike setting. The intent of all such improvements will be to
help blend the road into the vista and minimize its intrusion. Changes
in paving pattern or materials will signify a special place for all
vehicles entering the park.
However, the plan recognizes that severe traffic problems exist in
the downtown District of Columbia street system. Further, the plan
recognizes that interim measures involving E Street within President's
Park must be taken to help alleviate these problems. The Federal
Highway Administration, with the cooperation of the District of
Columbia and the National Park Service, will complete a project during
2000 to restore westbound traffic between 15th and 17th Streets, thus
re-opening two-way traffic on E Street.
Proposals have also been introduced for the E Street area, such as
tunnels, which are beyond the scope of this plan, but that may be
considered in the future. Reducing surface traffic within President's
Park remains a long-term goal of the plan. To enhance the pedestrian
experience and safety, the National Park Service may experiment with
options such as timed access and crossing assistance.
The roadways on the Ellipse will be closed to vehicular traffic
except for limited access by emergency and authorized traffic. The
roads' historic configuration and character will be retained for use as
wide pedestrian paths leading to adjacent gardens in the side panels.
Site Management and Operations
To make park operations more efficient, a satellite maintenance
facility will be developed near President's Park.
[[Page 25751]]
The steam line under the center of the Ellipse will be relocated,
subject to criteria to protect park resources.
Other Alternatives Considered
The No Action Alternative
Comprehensive Design
The no-action alternative would continue current management
strategies. Management decisions regarding the development and
appropriate design of elements within the park (e.g., monuments, paving
materials, fences and barriers, and infrastructure for special events)
would be made on a project-by-project basis. Construction and
development would be undertaken to address immediate needs and
pressures. No coordinated efforts by agencies would be undertaken to
minimize impacts from overuse.
Home and Office of the President
No additional recreation space would be provided for future first
families. Meetings and conferences would continue to be held in
available spaces throughout the complex, including historic rooms that
are not equipped for such functions. Frequently used materials within
the White House complex would be stored offsite and brought in as
needed. Deliveries would be made at various surface locations.
Facilities for the news media would remain in the west colonnade. Staff
vehicles would be parked in currently used areas.
Visitor Use and Services
Information and orientation sources would be scattered throughout
President's Park; visitors would continue to stop at security guard
booths for information. The visitor center would remain in the Commerce
Building. After picking up same-day public tour tickets at the visitor
center, visitors would queue up for tours on the Ellipse during the
summer and along the White House fence the rest of the year, as they do
now. Commercial vending would continue along sidewalks and curb lanes
adjacent to President's Park.
Special Events
Special events on the Ellipse and within the White House grounds
would continue to be accommodated, with no controls on growth.
Transportation
E Street would remain as two lanes eastbound across President's
Park.
Site Management and Operations
Maintenance operations would be based at an existing facility about
1.5 miles away.
Alternatives 1, 2 and 3
As previously mentioned, alternatives 1, 2, and 3 were presented to
the public during the spring of 1995. The proposed plan includes
elements from all these alternatives, and the following discussion
focuses on the different approaches between the alternatives.
Comprehensive Design
Under each alternative, as described for the proposed plan,
pedestrian entryways would signify to visitors that they were coming
into President's Park.
Under alternative 1 traditional patterns of use and site
relationships would be respected. All major support operations would be
accommodated below ground within the White House complex and
President's Park.
Under alternative 2 major support operations and facilities for the
Executive Residence and the Office of the President would be
accommodated as much as possible within the White House complex and
President's Park. All elements of President's Park would be visually
unified by emphasizing north/south views along East Executive Park and
West Executive Avenue, with pedestrian plazas on the eastern and
western portions of South Executive Avenue. E Street would be tunneled,
providing unobstructed views to and from the White House and allowing
the Ellipse to be linked with the rest of President's Park.
Under alternative 3 operations and support facilities would be
smaller, decentralized, and dispersed away from the White House grounds
and President's Park as much as possible. Only those operations that
must occur within or near the White House would remain. The use of
existing structures would be emphasized, with as little new facility
construction as possible. A historical ambience would be evident
through President's Park, and E Street would be removed, helping link
the Ellipse with the rest of President's Park.
Resource Conservation and Management
Under each alternative, resources would be managed as described for
the proposed plan.
Home and Office of the President
Facilities under each alternative would be similar to those under
the proposed plan, but locations would differ.
Under alternative 1 indoor recreation space for future first
families, storage space, and facilities for the news media would be
provided beneath West Executive Avenue, in conjunction with meeting
space. Staff parking facilities would be provided onsite. In addition
to a 290-space parking facility under Pennsylvania Avenue and an 850-
space facility under the northern part of the Ellipse, below ground
parking would also be provided south of the Treasury Building (170
spaces). Deliveries would be accommodated at the facility south of
Treasury, as well as through the New Executive Office Building.
Under alternative 2 indoor recreation space for future first
families would be provided below ground north of the residence. A
meeting and conference facility, plus general storage space, would be
constructed beneath West Executive Avenue; a motorcade staging area and
parking for diplomatic and business visitors (290) would be provided
below ground south of the Dwight D. Eisenhower Executive Office
Building. Parking for other staff (850 spaces) would be leased or
provided in a new facility within about a 10-minute walk of the
complex. For news media facilities, either existing facilities in the
west colonnade would be upgraded or the first floor of the colonnade
would be upgraded and additional facilities constructed under West Wing
Drive.
Under alternative 3 recreation space for future first families
would be provided within the west colonnade where press facilities are
now. Facilities for meetings and conferences and the news media would
be developed within the north courtyard of the Dwight D. Eisenhower
Executive Office Building rather than below West Executive Avenue. As
described for the proposed plan, a 290-space parking facility for
motorcades, diplomatic and business visitors, and some senior staff
would be constructed under Pennsylvania Avenue. An additional 200
parking spaces, as well as delivery facilities, would be provided in
the Office of Thrift Supervision or under Pennsylvania Avenue, and
another 650 parking spaces would be leased or provided in a new
facility nearby.
Visitor Use and Services
Visitor information and orientation functions would be provided at
park entryways under each alternative, as described for the proposed
plan. No commercial vending would be allowed along sidewalks or curb
lanes adjacent to President's Park under any alternative.
Under alternative 1 a new 66,000-square-foot visitor center and
museum would be built underground in the northeast quadrant of the
Ellipse.
[[Page 25752]]
Visitors would have additional opportunities to learn about the
presidency and the White House through interpretive programs, including
living history, conducted throughout the park. Visitors on public tours
of the White House would move through a below ground corridor from the
visitor center directly to the visitor entrance building.
Under alternative 2 a 40,000-square-foot visitor center would be
constructed below ground to the south and west of the U.S. Treasury
Building. Visitors on public tours of the White House would take
escalators, elevators, or stairs directly up to the visitor entrance
building. In lieu of interpretive exhibits and activities at this
smaller visitor center, numerous interpretive and educational
experiences would be provided throughout the site. (This proposal could
conflict with utility work recently being planned south of the Treasury
Building.)
Under alternative 3 interpretive programs and exhibits would be
focused at an expanded visitor center and museum in the Commerce
Building (60,000 square feet), as described for the proposed plan.
Special Events
Criteria would be established for special events in President's
Park (other than First Amendment demonstrations) under alternatives 1
and 2, similar to the proposed plan. Under alternative 1 all special
events would be worthy of attendance by the first family and reflect
the site's dignity. Existing special events on the Ellipse would be
reduced in scale and duration, and they would be dispersed around the
site to allow sufficient time for turf and garden areas to recover.
Under alternative 2 a special events plaza, as described for the
proposed plan, would be built in the Ellipse area. Under alternative 3
all special events currently held within President's Park would be
moved to other sites within the metropolitan area.
Under each alternative recommendations would be developed for
events on the White House grounds to protect resources.
Transportation
As described for the proposed plan, Ellipse Drive and the adjacent
roadways would be closed to vehicular traffic, although access would
still be allowed for emergency and authorized traffic. The roadways
would be redesigned as pedestrian walkways, with pathways leading to
gardens and sitting areas in the side panels.
Under alternative 1 E Street would be widened to four lanes (two
lanes in each direction) across President's Park and between 17th and
18th Streets. A pedestrian underpass would be provided near 15th
Street.
Under alternative 2 E Street would be tunneled as a four-lane, two-
way street through President's Park.
Under alternative 3 E Street would be closed to traffic and
replaced with a broad walkway.
Site Management and Operations
Under each alternative a satellite maintenance facility would be
developed to allow more efficient maintenance operations throughout
President's Park. Under alternative 1 this facility would be built in
conjunction with the Ellipse parking facility, while under alternatives
2 and 3 it would be provided nearby. As described for the proposed
plan, the steam line under the Ellipse would be relocated, based on
criteria to protect park resources.
Environmentally Preferred Alternative
The environmentally preferred alternative is defined as ``the one
that will promote National Environmental Policy as expressed in the
National Environmental Policy Act's, Section 101. Ordinarily, this
means the alternative that causes the least damage to the biological
and physical environment; it also means the alternative which best
protects, preserves, and enhances the historic, cultural and natural
resources in the area where the proposed action is to take place.''
(``Forty Most Asked Questions Concerning Council on Environmental
Quality's (CEQ) National Environmental Policy Act Regulations.'' 1981).
The no-action alternative would eventually result in the
deterioration or loss of significant cultural and natural resources as
site staff respond to immediate needs and pressures rather than a
coherent long term plan that minimizes impacts.
All action alternatives have varying cultural resources impacts
that may be considered adverse and they are identified in the
Environmental Impact Statement. Section 106 Memorandum of Agreements
would be developed for each project considered adverse and located
outside the area excluded by Section 107 of the Historic Preservation
Act of 1966, as amended.
The selected action will result in considerable ground disturbance
for construction of underground parking facilities, the storage area
and the news media and meeting facilities.
Alternative 1 would result in extensive ground disturbance for
construction of underground parking facilities, the eastside parking/
delivery area, the visitor center and museum, and the news media and
meeting facilities.
Alternative 2 would result in extensive ground disturbance for the
visitor center, the westside parking/delivery area, the news media and
meeting facilities, storage facilities and the tunneling of E Street.
Alternative 3 would result in ground disturbance for the visitor
center corridor, and the parking facilities and delivery access.
Alternative 3 has the least impact on vegetation and soils because
much of the new development would take place under existing streets.
However, elements of Alternative 3 have serious adverse effect upon the
historic Dwight D. Eisenhower Executive Office Building. Alternative 3
also would have significant impact upon the surrounding fabric and
existing functions of the city.
The selected action is the environmentally preferred alternative
because while it causes considerable disruption of soils and
vegetation, it does not have a serious adverse effect upon the historic
Dwight D. Eisenhower Executive Office Building and does not expand the
White House complex into new areas of the city beyond the present
security perimeter, thus minimizing additional intrusion by the
operational needs of the site into the surrounding fabric of the city.
The natural environment at the site, which is a series of historic
landscapes, has been affected by human design and presence since the
1790s. All areas where ground disturbance takes place will be restored
and replanted following construction. The selected action also provides
for maintenance of, and enhancement to, the historic landscape and
built environment through creation of an update to the Olmsted Plan and
implementing of design work based on that document.
Basis for Decision
The selected action was created based upon the ``Planning
Assumptions'', described in the foregoing material. In addition, public
involvement at the data collection, alternatives and draft and final
plan stages provided further insights as to how others saw the site and
its problems.
Many elements of the selected action were common to all
alternatives in order to meet the ``Planning Assumptions''. There are
some places where differences between the alternatives occur and in
those cases, the basis for the decision included:
[[Page 25753]]
Home and Office
For efficiency purposes, it is important to have storage of
commonly used items immediately accessible to the Executive Residence.
To be effective for future first families, the indoor recreation space
needs to be immediately adjacent to the historic White House structure.
Meeting space needs to be in immediate proximity to the West Wing
and the Dwight D. Eisenhower Executive Office Building, but not be
built within the courtyards of the historic building.
Motorcade and staff parking need to be consolidated into two
facilities in close proximity to the White House complex. The access
portals for the facilities should not expand the perimeter of the
secure complex.
The new delivery facility should not expand the perimeter of the
secure complex.
For the news media, new updated facilities need to be provided and
the existing ground floor of the west colonnade needs to be renovated.
Visitor Use and Services
The existing visitor center at the Commerce Department has the
appropriate large entry area for the numbers of people who take the
White House tours. The existing facility should be expanded rather than
impact historic structures and landscapes at the site with a new
visitor center structure.
A full visitor education program is needed for the White House and
President's Park.
White House tour visitors should spend a brief period of time along
the White House fence to experience the historic context and vistas of
the White House as they wait for their tour.
The historic landscape of the Ellipse needs to be maintained and
preserved, while providing traditional recreational uses, encouraging
passive recreation and providing no permanent infrastructure for active
sports.
Special Events
An events plaza needs to be constructed to provide the
infrastructure needed for special events at the site. Special events
are a part of the site's history and tradition. These need to be
continued while finding ways to minimize the impacts and damage to the
historic landscape.
Transportation
Reducing pedestrian/vehicle conflicts at the site, especially in
the E Street corridor, is the long-term goal of the plan. However, the
very difficult traffic congestion problems in the downtown area of the
District of Columbia mean that interim measures need to be taken to
improve traffic on E Street. The Federal Highway Administration, in
cooperation with the National Park Service and the District of
Columbia, will complete a project in 2000 to restore westbound traffic
to E Street between 15th and 17th Streets.
Site Management and Operations
For efficiency, the President's Park maintenance facility needs to
be included in the Ellipse parking facility.
Measures to Minimize Harm
All practical measures to avoid or minimize environmental impacts
that could result from implementation of the selected action have been
identified and incorporated.
Representatives of the District of Columbia and the Advisory
Council on Historic Preservation have been involved in the development
of the selected action. Further consultation will occur prior to
implementation of individual actions described within the plan.
Archeological evaluation and mitigation will precede all ground
disturbances, if required.
The final plan recommends a landscape management plan for the White
House and President's Park be undertaken to guide development and aid
preservation of significant historical features of the landscape. In
addition, site-specific vegetation management plans will be developed
to guide individual actions.
Site specific plans will be developed to prevent storm water runoff
in construction areas that could result in groundwater contamination.
Hazardous waste removal plans will be developed as necessary in
construction areas where the potential for contaminated materials
exists. In particular, studies for hazardous materials will be
conducted in the area of the Ellipse parking garage during the
preliminary design development stages of the project. Sampling will be
conducted as specified in the comments from the Environmental
Protection Agency, and additional test samples will be taken as
required.
Public and Interagency Involvement
Throughout the planning process for this Comprehensive Design for
the White House and President's Park, consultation and coordination
opportunities have been made available to other agencies,
organizations, visitors, and the general public, as described below. In
addition, presentations were made to a variety of organizations and
individuals interested in the status of planning for the White House
and President's Park.
Scoping Activities for the Plan
A Federal Register notice was published by the National Park
Service on March 19, 1993, announcing the start of the process for a
Comprehensive Design Plan for the White House and the preparation of a
draft environmental impact statement.
Beginning in March 1993 and throughout the spring and summer, issue
workshops were held to elicit the concerns of two audiences: (1)
Officials and staffs of the 12 stewardship and oversight agencies with
management responsibilities at the White House and within President's
Park, and (2) organizations, including adjacent businesses and
institutions, that have specific interest or concerns at the site.
Approximately 50 different agencies and organizations participated in
the workshops; more than 70 organizations were invited to attend.
Workshops continued into the fall of 1993.
From April 30 through May 3, 1993, an opportunity to hear from
visitors and the general public was provided on the eastern side-panel
of the Ellipse near 15th Street. Members of the planning team were on
the site to talk with local, national, and international visitors about
their time in the study area. The purpose of this activity was to
listen to concerns and comments from visitors, in addition to agency
concerns. Team members talked to people on Friday and Saturday, when
the White House was open for tours, and on Sunday and Monday, when the
White House is closed for tours. Approximately 1,100 visitors were
encouraged to provide information for a series of exhibits to find out
how visitors arrived at the site, what they saw while there, what they
wanted to know more about in relationship to the presidency and the
White House, and their suggestions for improvements in the area.
Desired Futures
In the fall of 1993 a total of 80 subject matter experts were
invited to workshops on October 27 and 28 to develop desired futures
for what the area should be like in the year 2015. Nine working groups
addressed support services for the Executive Residence, support
services for the Executive Office of the President, resource
conservation and protection, official functions, security, special
events, visitor use and services, transportation, and site character.
Individuals represented both the public and private sectors; some had a
long experience at the site, and others had expertise in a particular
field but no
[[Page 25754]]
experience with the White House and President's Park. The desired
futures developed at these workshops can be found on page 16, and a
list of the participants is included in Appendix G of the Final
Comprehensive Design Plan for the White House and President's Park and
Final Environmental Impact Statement.
Executive Committee
To help guide the development of the plan, the Director of the
National Park Service asked the leadership of governmental stewardship
and oversight agencies (those federally chartered organizations who
have official responsibilities within the study area) to serve on an
Executive Committee chaired by the National Park Service Director. The
intent was to create a forum for each member to be directly involved
and to be able to provide their expertise and that of their agencies
with regard to the White House and President's Park.
Agencies serving on the Executive Committee include:
Executive Office of the President--National Park Service
Executive Residence at the White House--District of Columbia
White House Military Office--Commission of Fine Arts
Department of the Treasury--National Capital Planning Commission
U.S. Secret Service--Advisory Council on Historic Preservation
General Services Administration--Pennsylvania Avenue Development
Corporation (until 4/96)
Beginning in spring 1993, the committee met at the following key
stages to guide the development of the plan: issue identification,
desired futures, conceptual alternatives, alternatives, development of
a preferred alternative and development of the final plan.
During its work the committee formed two subcommittees: one helped
develop design guidelines for the site (chaired by the National Park
Service), and a second helped develop a draft strategy for implementing
and financing the final plan (chaired by the Pennsylvania Avenue
Development Corporation).
Design Guidelines
The Design Guidelines Subcommittee held a workshop on August 3,
1994, with a cross section of professionals in landscape architecture,
urban planning, architecture, lighting, and land management. Ideas
generated during the workshop helped develop the foundations for the
Design Guidelines. The Design Guidelines can be found on page 15, and
the workshop participants are listed in Appendix G of the Final
Comprehensive Design Plan for the White House and President's Park and
Final Environmental Impact Statement.
Interpretive Themes Workshop
A workshop was held on March 2, 1994, to develop interpretive
themes for the White House and President's Park. Participants used
their expertise in interpretation and the history of the site, as well
as the results of the Ellipse public involvement from spring 1993 and
the earlier visitor surveys done at the site. The interpretive themes
developed at this workshop are described in Appendix D, and the
participants are listed in Appendix G of the Final Comprehensive Design
Plan for the White House and President's Park and Final Environmental
Impact Statement.
News Media Working Group
In March 1995 the National Park Service presented the alternative
concepts being considered for the site to the news media organizations
that cover the White House. At that time concerns were expressed about
proposals for spaces they use at the site. As a result, the Park
Service invited the White House Correspondents' Association, the White
House News Photographers' Association, and the Network Pool to join in
a news media working group. The group worked with the Park Service and
other agencies at the site to develop proposals for the space assigned
to the news media. The working group meetings included a news media
desired futures workshop in August 1995. The participants in the news
media working group can be found in Appendix G, and the news media
desired futures in Appendix H of the Final Comprehensive Design Plan
for the White House and President's Park and Final Environmental Impact
Statement.
Public Forum and Alternatives Newsletter
During April and May 1995 the alternative concepts being considered
for the White House and President's Park were made available for the
public review and comment. Copies of the planning newsletter were
mailed to approximately 5,000 persons and organizations on the project
mailing list. Included in the newsletter was a description of three
alternative concepts for the site plus a response form. The alternative
concepts were the subject of widespread radio and television news
coverage and were the focus of public forums held at the White House
Visitor Center in Washington, D.C., on April 10 and 11. During the
forums some 2,400 people saw exhibits and a video on the alternatives.
Copies of the alternative concepts and the newsletter response form
were available. Members of the National Park Service planning team were
available to discuss problems at the site and the three alternative
concepts. These concepts were the basis for the three alternatives
presented in the Final Comprehensive Design Plan for the White House
and President's Park and Final Environmental Impact Statement; the
final plan draws elements from each of the alternatives.
Development and Review of the Draft Plan
After public review of the conceptual alternatives further work was
done to refine the alternative elements. The draft plan was developed
in coordination with members of the Executive Committee.
The Draft Comprehensive Design Plan for the White House and
President's Park and Draft Environmental Impact Statement was made
available to the public for review and comment from December 2, 1998,
until March 11, 1999. Interested federal and local public agencies,
neighboring businesses and organizations, interested individuals, and
the cooperating agencies on the Executive Committee were provided an
opportunity to review and comment on the document.
During the comment period, the proposed plan was presented in many
media, including newspaper and magazine articles, television and radio
broadcasts, public summaries of the proposed plan (9,000 copies were
distributed), an Internet Web site, National Park Service presentations
to interested groups, and an exhibit at the White House Visitor Center.
Public forums were held on the draft document at the White House
Visitor Center on January 27 and 28, 1999.
Public and agency review of the Draft Comprehensive Design Plan for
the White House and President's Park and Draft Environmental Impact
Statement helped ensure that relevant issues and alternatives were
adequately considered and evaluated, and that all pertinent
implications of the alternatives were analyzed. The comments and
responses enabled interested parties to review and assess how other
agencies, organizations, and individuals responded to the proposed
action, the alternatives, and their potential impacts.
Summary of Comments
A total of 100 responses were received--14 from governmental
[[Page 25755]]
agencies, 15 from businesses and organizations, 2 from students at
educational institutions, and 69 from individuals. The responses
represented a wide geographic distribution, with 22% from the
Washington, D.C., area and 78% from the rest of the nation.
The comments came in various forms: 51 letters, 31 E-mails and Web
site responses, and 18 exhibit questionnaires. The most frequently
mentioned topics in the responses related to facilities, project cost
or funding, adjacent streets, parking, landscape design, and the
implementation schedule.
Facilities
Six responders were not in favor of improving White House
recreation facilities for the president. With regard to facilities for
the White House press corps, the White House Correspondents'
Association was concerned about space and access to the president (two
letters signed by nine individuals), while four public commenters
suggested removing or restricting press space. Other responses
suggested improving the Pageant of Peace location on the Ellipse (2
comments) and improving existing facilities and outdoor space at the
White House (2 comments).
Project Costs or Funding
Seventeen responders were concerned about how the project would be
financed or the total cost of the project.
Adjacent Streets
Both E Street and Pennsylvania Avenue were mentioned by several
responders. E Street comments included the following range, as
summarized below:
Tunnel E Street (5 comments).
Do not tunnel E Street (1 comment).
Eliminate/close E Street (2 comments).
Do not close E Street (1 comment).
Widen E Street to four lanes (2 comments).
Provide reversible lanes on E Street (1 comment).
Clarify the short-term versus the long-term action (1
comment).
Responders commented on Pennsylvania Avenue even though the draft
document stated that public vehicular access on the avenue had been
restricted by the U.S. Department of the Treasury and that a future
long-term design for Pennsylvania Avenue would be considered in a
separate planning document. The comments ranged from supporting the
permanent closure of Pennsylvania Avenue (3 comments) to objecting to
the closure or requesting that subsequent impacts on historic
buildings, traffic, and parking be addressed (3 comments).
Parking
Parking comments related to support for underground parking (4
comments), support for removing cars from the Ellipse (3 comments),
security concerns (4 comments), concerns about too much staff parking
(5 comments), a question about cumulative impacts on parking with a new
Washington Convention Center (1 comment), and a need to more adequately
assess the impacts of leasing parking space (1 comment).
Three responders expressed concern about security within an
underground parking garage beneath the Ellipse and access to the White
House. There were also concerns about vegetative impacts (2 comments),
potential landfill problems (1 comment), visual impacts of the portals
(1 comment), and traffic impacts on Constitution Avenue associated with
the Ellipse parking facility (1 comment). Three responders suggested
providing public parking under the Ellipse, and six others suggested
promoting public transportation instead of providing additional
parking.
Landscape Design
There were 13 comments either supporting specific design elements
or offering suggestions pertaining to the ``Greening of the White
House,'' memorial requests, the First Division Monument, the use of
native landscape materials within the White House grounds, and
architectural design features not provided in the framework of the
Design Guidelines for the White House and President's Park.
Implementation Schedule
Five individuals encouraged shortening the proposed 20-year
implementation schedule.
Final Plan and Environmental Impact Statement
Portions of the Draft Environmental Impact Statement (DEIS) were
clarified and expanded upon, based upon the comments received during
review of the draft plan and DEIS. The elements of the Draft
Comprehensive Design Plan for the White House and President's Park were
confirmed to be the elements of the final plan.
The Final Comprehensive Design Plan for the White House and
President's Park and Final Environmental Impact Statement (FEIS) was
released December 13, 1999. The Environmental Protection Agency 30-day
no action period closed January 21, 2000. A total of 351 copies of the
Final Plan/FEIS were distributed to all who commented on the Draft
Plan/DEIS, park neighbors, interested public and private organizations
and Members of Congress.
During the 30-day no action period, comments were received: (1)
from the Environmental Protection Agency stating that EPA has
determined that the National Park Service has adequately addressed its
comments within the FEIS, and (2) from the Washington Metropolitan Area
Transit Authority (METRO) complementing the plan and confirming that
the plan has no impacts upon the existing Metrorail Red Line tunnels
that traverse Lafayette Park and the northeast corner of the Treasury
Building. METRO stated that they are looking at potential rail transit
service from Georgetown to Mt. Vernon Square as well as other
enhancements to the capacity of their Core system. They requested that
as the project progresses into detailed design, they would appreciate
an opportunity to review the documents associated with the underground
parking and pedestrian connections along Pennsylvania Avenue between
West Executive Avenue/Jackson Place and Madison Place. The National
Park Service and the other agencies involved in the planning look
forward to working together with METRO as the project moves forward
through the implementation phase.
Conclusion
The National Park Service has determined that the preferred
alternative described in the Final Comprehensive Design Plan for the
White House and President's Park and Final Environmental Impact
Statement (and described in the foregoing as the ``Selected Action'')
best meets the future needs of the White House and President's Park
while protecting the natural and cultural resources located here and
the fabric of the city surrounding the site.
Dated: March 29, 2000.
Robert Stanton,
Director, National Park Service.
[FR Doc. 00-10951 Filed 5-2-00; 8:45 am]
BILLING CODE 4310-70-P
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