THE WHITE HOUSE
& President's Park

COMPREHENSIVE. DESIGN PLAN
AND DRAFT ENVIRONMENTAL IMPACT STATEMENT


Comprehensive Design Plan and
Draft Environmental Impact Statement

THE WHITE HOUSE
& President's Park
Washington,D.C

This 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 plan is to provide a framework for future management that will respect the history and traditions of this special place. A comprehensive plan is needed because most problems over the last 200 years have been addressed as they have arisen, or not at all, resulting in a piecemeal approach to implementing solutions. Also, problems occurring outside the area, such as surrounding urban land uses and traffic, are encroaching on the site, threatening its dignity and character.

Certain assumptions 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 White House will continue to be open to the general public for tours on a regular basis free of charge. all First Amendment activities will continue to be accommodated in compliance with current law, and all facilities and maintenance operations will reflect the dignity, significance, and history of the site and the presidency.

The proposed plan would emphasize a pedestrian-oriented experience within President's Park, with no surface parking and limited vehicular traffic.. To accommodate the changing functions of the Executive Office of the President and to make daily operations more efficient, facilities would be provided onsite for meetings and conferences, staff parking, deliveries. storage for frequently used items, first family indoor recreational activities, and the news media; these facilities would be provided belowground to limit new surface intrusions. The White House visitor center in the Commerce Building would be expanded to provide a full range of visitor services. including a museum function. No commercial vending or food concessions would be allowed on sidewalks or adjacent curb lanes within President's Park in order to 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 all major support operations and facilities within the White House complex and President's Park to decentralizing 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 new construction. For future first families additional privacy and facilities would be provided. For staff, official visitors, 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 House 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.

For additional information, contact James 1. McDaniel, Director, White House Liaison, National Park Service, 1 100 Ohio Dr., SW, Washington, DC 20242; (202) 619-6344. Comments on this document must be received by March 11. 1999, at the above address, by fax at (202) 219-1010, on the Internet at http://www.nps.gov/planning, or by e-mail at White_House_Liaison@nps.gov.
_____________________________________________________________

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 Military Office* 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 Council on Historic Preservation * Pennsylvania Avenue Development Corporation (until 1996)



HOW TO USE THIS DOCUMENT

This Draft Environmental Impact Statement has been organized to meet the requirements of the National Environmental Policy Act, as described below:

* The Summary, beginning on the following page, briefly describes the context for the plan, the proposed plan and alternatives being considered, and the environmental consequences.

* The first part of this document - Purpose of and Need for the Plan - begins on page 5 and de-scribes why a plan is being prepared, the purpose and significance of this site, and what citizens should be able to learn and experience here. This section also looks at what this site should look like in 20 years. referred to as desired future conditions. The problems, issues, and concerns that are considered in this document are listed starting on page 20. Finally, how this document relates to other planning efforts in the Washington, D.C., area is described beginning on page 33.

* The second part - Alternatives, Including the Proposed Plan - presents the planning assumptions that have guided the development of the plan and its alternatives. The proposed plan is described on pages 49 through 66, followed by a no-action alternative (which is used as a baseline for comparing the alternatives and their impacts), and the three other alternatives being considered. Actions that would be taken to mitigate adverse effects, as well as other actions that were considered but rejected, are also described. Beginning on page 102 are tables that summarize the pro-posed plan and alternatives, as well as their environmental consequences. These tables highlight the differences between the proposed plan and the alternatives and give a quick overview of the impacts.

* The third part - The Affected Environment - starts on page 127 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, archeological resources, and historic structures), natural resources (including soils, water resources, and vegetation). facilities and functions related to the Executive Office of the President (such as meeting facilities, access and parking deliveries, and circulation), visitor use, special events and demonstrations, the local transportation network, and the socioeconomic environment.

* The fourth part-Environmental Consequences-analyzes the impacts of implementing each alternative on the topics described in the affected environment. Beginning on page 201, the information presented in this part is summarized in table 2 (page I 12).

* 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 summarizes the history of this planning effort, including agencies and organizations that will be asked to review this Comprehensive Design Plan and Draft Environmental Impact Statement.

* The Appendixes, starting on page 335, provide supporting information for the document, including estimated construction costs for implementing the alternative actions. The Glossary (page 396) defines terms used in this document, as well as terms with special meanings for environmental impact statements.

--ii--


SUMMARY

This Comprehensive Design Plan and Draft Environmental Impact Statement represents the first comprehensive plan for the White House and President's Park since the site was designated in 1791 by George Washington as the residence for the president. The plan identifies (1) needs
and 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 protection of important resources, including the White House itself, and (3) ways to solve logistical and management problems that have developed over the years.

Today, 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 today include the following:

* 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

* 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

* a lack of privacy and indoor recreation space for the first family

* insufficient informational and educational programs and support facilities for visitors

* inadequate maintenance storage and equipment; poorly located and worn-out utilities

On May 20, 1995, the U.S. Department of the Treasury restricted public vehicular traffic on Pennsylvania Avenue and several other city streets and park roads. These changes have been incorporated as part of the existing conditions for the purposes of this document. A long-term design for Pennsylvania Avenue is being considered in a separate planning effort but is consistent with proposed actions in this document.

Alternatives, Including the Proposed Plan

The proposed plan and three alternatives are presented in this document, as well as a no- action alternative that analyzes existing conditions and trends and serves as a baseline for analyzing the other alternatives. Alternatives 1, 2, and 3 were shared with the public at forums at the White House visitor center during the spring of 1995 and in a newsletter released at the same time. Following public review, additional information was collected to determine the feasibility or suitability of some options that are considered. The proposed plan includes elements from all these alternatives.

-iii-

SUMMARY

Planning Assumptions

The following planning assumptions form the framework for future actions at President's Park and the White House and relate to all the alternatives being considered (except the no -action alternative).

* Comprehensive Design-Future designs 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, significance, and history of the site and the presidency. Quality materials will be used to reflect the importance and dignity of the White House. Design Guidelines that have been developed for architecture, landscape architecture, design elements, s and temporary facilities at the White House and President's Park will be followed.

* Resource Conservation and Management -Cultural and natural resources will continue to receive high-quality care and protection. All federal agencies currently man-aging various cultural resource programs at 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; no new memorials will be encouraged. All programs and facilities will be designed and managed in an environmentally sound manner.

* Home and Office of the President-The White House will continue to serve as the home of the president, and official functions will continue to be held at the White House and on its grounds. Safety and security for the president and the first family will not be compromised.

The White House will continue to serve as the Office of the President. Space for essential White House administrative and operational functions will be provided within or adjacent to the White House; existing spaces within the study area 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 no longer be allowed in order to improve aesthetics and to reestablish the dignity and character of the site. Replacement parking with easy access to the White T louse will be provided.

Facilities will be provided for the news media to maintain direct access to the press secretary and staff so that journalists can provide coverage of, and maintain proximity to, the operations of the Office of the President

* Visitor Use and Services-The White House will continue to be open to the general public on a regular basis free of charge. To ensure adequate visitor orientation to the White House and President's Park and to provide ticketing and staging for White House tours, a visitor center and museum will be provided within easy access of the White House.

* Special Events-All First Amendment activities will be accommodated in compliance with current law. Special events of varying size, intensity, and significance will continue in the public portions of the study area and on the White House grounds.

 

--iv--

--v--

SUMMARY

* Transportation -- The National Park Service will enter into discussions with local and regional planning agencies to comprehensively address traffic concerns in the Washington, D.C., downtown area. Madison, Jackson, State, and Hamilton Places will remain restricted to public vehicular traffic and will become pedestrian-oriented streets; no vehicle parking will be allowed on these streets, on the Ellipse roadways, or along the curb lanes surrounding President's Park ( I 5th Street, 17th Street, Constitution Avenue, and H Street). The use of mass transit by visitors and staff will be actively encouraged.

Proposed Plan

Comprehensive Design. The proposed plan includes those actions that would 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 as a formal setting for state events would continue to be respected.

President's Park would become a pedestrian -oriented space, with eight entryways (two each on H Street, Pennsylvania Avenue, E Street, and Constitution Avenue) to signify for visitors a special place. (Formal entryways on H Street and Pennsylvania Avenue would be part of the long-term design for the avenue.)

Resource Conservation and Management. Cyclical maintenance programs, including regular condition assessments and program development for conservation and preservation, would be developed for all resources by each agency.

A comprehensive archeological program, based on a completed preliminary survey, would be developed to help ensure the conservation and protection of archeological resources.

Storage space for fine and decorative arts would be provided within or immediately adjacent to the White House so that items could be properly prepared for shipment to offsite storage facilities, or so that damaged items could be fully assessed before transportation to conservators. This facility would also be used to temporarily store artifacts during events.

Home and Office of the President. Multi-purpose, informal indoor recreation space for future first families would be provided. To accommodate existing needs, new meeting/ conference space would be constructed under West Executive Avenue. This location would be immediately accessible to White House

Staging for motorcades and parking for senior staff would be provided in a 290-space parking garage beneath Pennsylvania Avenue, with a belowground access corridor to the White House complex. Over the long term parking for other staff would be provided by constructing an 850-space garage beneath the Ellipse; pending the completion of this facility (in the last phase of plan implementation)' parking would be leased in private parking garages within a 10-minute walk of the White House complex.

To facilitate staff circulation and deliveries throughout the site and to minimize conflicts with Executive Residence operations, a belowground corridor would connect the Old Executive Office Building, the White House, and the Treasury Building. Deliveries would be made at docks in the New Executive Office Building and distributed throughout the site by way of underground service corridors. General storage space for items frequentlyused at the Executive Residence would be provided as part of the northside garage.

--vi--

Summary Alternatives

Facilities for the news media would be upgraded on the first floor of the west colonnade, with additional new facilities under West Wing Drive.

Visitor Use and Services. Complete information and orientation for visitors would be provided at entryways to the park, using staff and interactive computer monitors.

The White House visitor center in the Commerce Building would be expanded to 60,000 square feet belowground in existing and new space to provide theaters, a museum, and exhibit and program areas. Expanded interpretive programs about the White House and the presidency would be offered, with specially designed programs for visitors and school-children. Visitors taking a public tour of the White House would watch a short orientation film and then walk through a naturally lighted pedestrian corridor to "Lily Triangle," near the southeast portion of the White House grounds. From here they would walk on the surface to the visitor entrance building.

To improve the appearance and dignity of President's Park, no commercial vending would be allowed along adjacent sidewalks and curb lanes. Informal recreational activities would continue on the Ellipse.

Special Events. For special events on the Ellipse, a new plaza/performance area would be constructed in the northeast quadrant (where the current visitor pavilion is). The plaza would provide permanent infrastructure to reduce impacts associated with staging an event. Events would need to reflect the purpose and dignity of the site, be small scale and of short duration, involve minimal commercialism, and include multiple cultures. Any temporary facilities used for staging events would have to be promptly removed.

Transportation. E Street would be retained as a two-lane, eastbound street. Because severe traffic problems exist in the downtown area, temporary interim measures involving E Street with President's Park might be under-taken to help alleviate these problems. Reducing surface traffic within President's Park would remain a long-term goal.

The roadways on the Ellipse would be closed to vehicular traffic except for limited access by emergency and authorized traffic. The roads' historic configuration and character would 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 would be developed near President's Park. The steamline under the center of the Ellipse would be relocated, subject to criteria to protect park resources.

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

- vii -

SUMMARY

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 I traditional patterns of use and site relationships would be respected. All major support operations would be accommodated belowground 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 throughout 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.

-viii-

Summary: Alternatives

Under alternative I 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, belowground facilities would also be built 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 belowground 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 spaces) would be provided belowground south of the Old Executive Office Building. Parking for other staff (850 spaces) would be leased or provided in a new facility within 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 Old Executive Office Building rather than below West Executive Avenue. As described for the pro-posed 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 side-walks or curb lanes adjacent to President's Park under any alternative.

Under alternative I a new 66,000-square-foot visitor center and museum would be built underground in the northeast quadrant of the Ellipse. 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 belowground corridor from the visitor center directly to the visitor entrance building.

Under alternative 2 a 40,000-square-foot visitor center would be constructed belowground 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

-ix-

SUMMARY

than First Amendment demonstrations) under alternatives I and 2, similar to the proposed plan. Under alternative 1 all special events would have to 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 pro-posed 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 road-ways 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 steamline under the Ellipse would be relocated, based on criteria to protect park resources.

Environmental Consequences

Even though the White House and the 18 acres immediately around it are exempt from compliance with the National Historic Preservation Act, resource impacts have been analyzed to help public officials make decisions that are based on a full understanding of the environmental consequences, and to take actions that would protect, restore, and enhance the environment.

Impacts of the Proposed Plan

Cultural Resource Impacts. Impacts on the Cultural Landscape -A unified character for the White House and President's Park would be created by implementing the Design Guidelines, removing surface parking, and providing new facilities underground. Five commemorative trees planted by presidents on the White House grounds would be subject to loss or damage. A permanent events plaza on the Ellipse would add a new element to the landscape, potentially attracting additional events but reducing the impacts of current ones. The effect of this proposed plaza on the landscape would be mitigated through careful design and event administration.

Ventilation systems and access points to the Ellipse parking facility, as well as emergency exits, would need to be designed to minimize any additional adverse effects on the formal landscape. Potential impacts of new surface elements (such as entrance portals to under-ground facilities) on the settings of adjacent

- x -

Summary: Environmental Consequences

national historic landmarks and districts would need to be mitigated through sensitive design. Traffic across the park on E Street would continue to intrude on views south of the White House.

Impacts on Archeological Resources - Excavations throughout the site would affect archeological resources? which would be mitigated through research, monitoring, and recordation.

Impacts on Historic Buildings and Structures -Developing new meeting facilities would help relieve the overuse of historic rooms throughout the site and any resulting deterioration of historic fabric.

Impacts on Fine and Decorative Arts - Onsite, short-term storage and curatorial facilities for fine and decorative arts would reduce the potential for damage. Also, damaged pieces could be fully evaluated before being transported to conservators.

Natural Resource Impacts. New construction would have little to no effect on surface or groundwater. Vegetated and paved surfaces on the north grounds of the White House, West Executive Avenue, and the Ellipse would be disturbed by the construction of underground facilities. Some trees would be lost. Removing parking on West Executive Avenue and the Ellipse would reduce runoff containing petroleum byproducts. Relocating major visitor activities would reduce soil compaction and turf maintenance. Relocating the steamline would eliminate the swath of dead grass across the Ellipse.

Impacts on the Home and Office of the President. Impacts on Executive Residence Operations-New indoor recreation space for future first families and staff circulation corridors would help meet needs for privacy and leisure.

New storage space would make staff operations more efficient and allow current ad hoc storage spaces to be used as they were in-tended, reducing safety hazards. An under-ground corridor between the Executive Residence and the new storage area would reduce interference with other residence functions.

Impacts on Executive Office Support Services -New facilities for meetings, parking, de-liveries, and staff circulation would meet cur-rent and future needs and reduce conflicts with Executive Residence operations.

A parking facility under Pennsylvania Avenue for motorcades, diplomatic and business visitors, and senior staff would be immediately accessible to the White House; would protect visitors, staff, and drivers from inclement weather; would facilitate the staging of motorcades; and would provide additional security. Providing additional staff replacement parking in a new Ellipse facility would be convenient for staff. Leasing interim parking spaces within a 10-minute walk of the site could be perceived as being farther away and less safe. The value of staff parking whether leased or new, could be taxed.

Providing deliveries through a secure, centralized facility would be safer and more efficient. Underground delivery corridors would minimize present conflicts on the surface between delivery trucks, pedestrians, and parked and moving vehicles.

Impacts on the News Media - Providing upgraded news media facilities would solve inadequate space problems and provide state--of-the-art broadcast infrastructure, similar to that available at other government facilities.

Impacts on the Visitor Experience. Impacts on Public Visitors - Visitor information would be more readily available, and White House tour procedures would be more efficient. The museum function at the visitor

-xi-


SUMMARY

center, along with expanded interpretive pro-grams, would provide opportunities for people to learn more about the history of the presidency and first families, as well as the White House and President's Park.

Eliminating vehicle parking and taking measures to improve pedestrian safety on E Street would allow visitors to safely enjoy the setting.

Noise Impacts - New noise sources would result from the operation of mechanical equipment for underground facilities. Most proposed facilities would be near roadways, so additional noise would be masked by traffic. In other areas designs would minimize any additional impact.

Impacts on Special Events. First Amendment activities would not be affected. No impacts on future presidential inaugural parades are anticipated because any construction under Pennsylvania Avenue would be phased to avoid conflicts with this event.

Impacts on Public Events - Criteria for special events to help protect cultural and natural resources (such as scenic vistas) could reduce the availability of events to participants, restrict sponsor participation, or result in fewer activities during events. A permanent plaza or performance area would increase overall efficiency and safety for setup and takedown activities, and it would provide an aesthetically pleasing setting, along with the removal of vehicle parking and traffic from Ellipse roadways. Traffic on E Street would intrude on the setting.

Impacts on White House Events - Events could be staged more efficiently and safely with the addition of storage space, circulation corridors, and upgraded utilities.

Transportation Impacts. Impacts on Access and Circulation - Existing streets would generally be able to accommodate traffic entering or leaving new belowground facilities. However, to maintain acceptable levels of service on H Street during the morning rush hour, additional vehicular entries through the New Executive Office Building would be limited to less than 100 vehicles during the peak hour. Traffic accessing the Ellipse parking facility would not affect service levels on Constitution Avenue, but the 16th Street intersection would operate over capacity during the morning peak hour.

There would be no changes to E Street other than aesthetic improvements. Continued closures for motorcades and official functions would cause temporary congestion on adjacent streets.

Impacts on Public Parking - A total of 103 on-street, short-term parking spaces would be eliminated, plus 506 spaces used for permit parking and vendors that are currently avail-able to the public during evenings or weekend days. While further constraining the limited on-street parking supply in this area, this action would be consistent with mass transit goals of the National Capital Planning Commission and the regional council of governments.

Socioeconomic Impacts. Impacts on D. C. Revenues - Annual D.C. revenue losses by the fourth year of the plan could total an estimated $460,348 due to reductions in revenue from parking meters, parking violations, leased parking taxes, and vendor licenses and sales taxes. The total estimated loss would be $10.1 million over the 20-year life of the plan. (If vendors were relocated to other downtown areas, the extent of these impacts could be reduced.) While each revenue source is minor, the combined loss would contribute to the larger problem of the District's overall revenue decline.

--xii--

Summary - Environmental Consequences

Impacts on Vendors - Vendors would be affected by the loss of 26 of the 76 roadside vendor spaces available in the vicinity of President's Park and the Memorial Core unless these spaces were relocated in the down-town area. This would potentially result in an annual loss of $1.4 million in profits and $28.5 million over a 20-year period.

Impacts on Local Businesses - The loss of 103 metered and time-limited parking spaces on Constitution Avenue and on 17th Street would result in minor inconveniences to adjacent business, as well as to visitors and local residents on weekends. Reallocating 850 leased parking spaces to the federal government for this life of this plan could affect area businesses and office buildings relying on these spaces for tenants and customers.

Construction and Operations Impacts - The plan would be implemented in four S-year phases. Construction expenditures over this 20-year period would total approximately $276 million. Construction would create direct and indirect jobs, and earnings. For each five-year phase of plan implementation, between 267 and 531 jobs would be created in the metropolitan area (with estimated earnings of $6.3 million to $12.4 million), and between 52 and 104 jobs in the D.C. area (with earnings of $1.4 million to $2.8 million). Other than the creation of short-term construction- related jobs, there would be no significant gains in long-term employment in Washing-ton, D.C.' or the metropolitan area.

Impacts on Site Management and Operations. Maintenance activities would be safer and more efficient as a result of developing a nearby maintenance facility for the storage of equipment, removing parking on the Ellipse, and constructing a special events plaza.

Impacts of the No-Action Alternative

Cultural Resource Impacts. Impacts on the Cultural Landscape - The dignity of the cultural landscape of the White House and President s Park would continue to be compromised by vehicle parking, traffic on E Street? hundreds of weekly deliveries that impart a disorganized appearance, and special events on the Ellipse that intrude on the scene, often for months at a time. Disparate elements in the landscape would detract from the site's decorum. Future development could further erode the overall dignity of the White House and President's Park. Not addressing impacts from overuse in a coordinated fashion could result in a further deterioration of resources over the long term.

Impacts on Historic Buildings and Structures - The historic fabric of buildings within the complex would continue to be subject to substantial deterioration because of the need to use historic rooms and furnishings for meetings and conferences, to continually move items back and forth to offsite storage facilities, and to store items in inappropriate locations, causing safety hazards. With limited indoor recreation spaces for future first families, requests for additional space could have a cumulative adverse effect on historic resources.

Impacts on Fine and Decorative Arts - Limited onsite storage and the transport of items to the White House as needed could result in damage. Any loss of museum items would be irretrievable.

Natural Resource Impacts. The number and location of special events and the operation of the current White House tour program would continue to stress trees and turf on the Ellipse. Turf above the steamline across the Ellipse would continue to be killed by heat.

-xiii-

SUMMARY

Impacts on the Home and Office of the President. Impacts on Executive Residence Operations - Privacy and onsite indoor recreation for the first family would remain inadequate. Because of insufficient storage space, existing spaces would be used where possible, and supplies and furnishings would be shuttled to the site as needed. Daily operations would be less efficient.

Impacts on Executive Office Support Services - Meetings would continue to be held in historic rooms at the site, which have poor acoustics and lack appropriate infrastructure. Deliveries and staff circulation would often interfere with other activities.

Impacts on the News Media - News media facilities would remain overcrowded.

Impacts on the Visitor Experience. Impacts on Public Visitors - Expectations of first- time visitors to President's Park would continue to be compromised by operations not reflecting the dignity of the site. Information about activities and White House tours would be difficult for visitors to find, especially after the visitor center had closed. While the visitor center would help meet some needs, space would be too small to stage public White House tours indoors or for extensive interpretation. Present barriers to pedestrian movements to and through the site, including traffic and parked vehicles, would remain.

Noise Impacts - No new permanent noise sources would be created.

Impacts on Special Events. Impacts on Public Events - A variety of special events would continue within President's Park, particularly on the Ellipse. Depending on the intensity of events and their duration, the time it takes the site to recover after events would be extended.

Impacts on White House Events - Storage and work space to prepare for White House events would continue to be limited. Multiple deliveries and inadequate work spaces would create logistical problems in preparing for and staging events.

Transportation Impacts. Impacts related to E Street would be the same as for the pro-posed plan. On-street public parking spaces would not be reduced.

Socioeconomic Impacts. There would be no additional socioeconomic effects.

Impacts on Site Management and Operations. The use of historic rooms for meetings and conferences would require additional staff time to set rooms up, to transport materials, and to put rooms back in order. Maintenance operations would be affected by the offsite location of key support services and storage.

Impacts of Alternatives 1, 2, and 3

Cultural Resource Impacts. Impacts on the Cultural Landscape - Two commemorative trees on the White House grounds would be subject to loss or damage under alternatives I and 3; five would be at risk under alternative 2.

Under alternative 1 new entrances to a below-ground visitor center on the Ellipse, portals to the E Street underpass, portals to a parking/ delivery facility south of the Treasury Building, and portals to an Ellipse parking/maintenance facility would be permanent intrusions on formal vistas. Ventilation systems and access points to the garage, as well as emergency exits, would need to be designed to minimize any additional adverse effects on the formal landscape. There would be more potential intrusions on the southern portion of President's Park under this alternative than any other. Making E Street a four-lane road-way would substantially compromise the character of President's Park, divide the Ellipse from the rest of park area, and destroy the unity of the site. Park lands would be used to widen the street.

-xiv-

Summary Environmental Consequences

Under alternative 2 cultural landscape impacts would be similar to the proposed plan except an E Street tunnel would remove traffic intrusions across the site, restoring a sense of unity by reconnecting all elements of President's Park. Tunnel portals east and west of the park would compromise the setting of adjacent historic structures and districts. A parking garage portal south of the Old Executive Office Building would be a new visual intrusion, and pedestrian plazas on the eastern and western portions of South Executive Avenue would change the area's character.

Impacts under alternative 3 related to closing E Street would be similar to alternative 2. Relocating special events on the Ellipse to other sites in the city would remove visual intrusions on the landscape.

Impacts on Archeological Resources - Impacts under all alternatives would be similar to the proposed plan, with the greatest amount of excavation under alternative 1. Impacts would be mitigated through research, monitoring, and recordation.

Impacts on Historic Buildings and Structures - As described for the proposed plan, providing new facilities under each alternative would help relieve the overuse of historic rooms and any resulting deterioration of historic fabric.

Under alternative l constructing a parking garage south of the Treasury Building could result in possible foundation dewatering or stability problems. The entrance to the visitor center in the northeast quadrant of the Ellipse would be a new intrusion, and impacts on the setting of nearby historic structures would have to be mitigated through sensitive design.

Under alternative 2 constructing a parking garage south of the Old Executive Of rice Building and a visitor center south of the Treasury Building could result in possible foundation dewatering or stability problems. To meet public access requirements for the visitor center, some historic fabric on the south approach to the Treasury Building would be altered. (A utility project being recently considered by the Treasury Department would interfere with proposals under both alternatives l and 2.)

Under alternative 3 an aboveground meeting and news media facility in the north courtyard of the Old Executive Office Building would interfere with the original design of this national historic landmark, constituting an adverse effect that could not be mitigated. Effects of an underground facility would have to be mitigated through design.

Impacts on Fine and Decorative Arts - Under all alternatives onsite storage and facilities for emergency curatorial actions would help ensure the protection of collection items.

Natural Resource Impacts. Under alternative 1 potential vegetation and soil impacts would be similar to the proposed plan, although slightly greater in magnitude because of the underground visitor center on the Ellipse.

Under alternative 2 potential impacts to existing vegetation and soils would be less than under alternative l and the proposed plan. The largest losses of vegetation due to construction would be along the eastern and western portions of South Executive Avenue and south of the Old Executive Of lice Building (including the loss of the magnolias in the south plaza).

Under alternative 3 vegetation and soil impacts would be minimal because new facilities would be within existing buildings, and new development would be limited.

-xv -

SUMMARY

Impacts on the Home and Office of the President. Impacts under each alternative would be beneficial, as described for the proposed plan.

Impacts on Executive Residence Operations - Providing indoor recreation space for future first families under each alternative would help meet needs for privacy and leisure. Providing space in the west colonnade under alternative 3 would be highly desirable be-cause it is private, at ground level, and is easily accessible to the Executive Residence.

Under alternatives 1. 2. and 3 the use of a storage facility under West Executive Avenue could interfere with daily operations because the same corridor would be used for all functions. Under alternative 3 additional storage in the Of rice of Thrift Supervision would not be as convenient or accessible to residence staff.

Impacts on Executive Office Support Services - Under alternative 3 meeting space in the Old Executive Office Building would be farther from the West Wing and less convenient.

Under alternative 1 providing a total of 1,310 onsite parking spaces (more than any alter-native) would be the most convenient for staff. A parking/delivery facility south of the Treasury Building would make daily operations more efficient by adding parking for diplomatic and business visitors, senior staff, and guests at special White House events. It would also provide flexibility for accommodating motorcades and deliveries on the east side of the site.

Under alternatives 2 and 3 providing a total of 1,140 parking spaces would meet current needs. Providing offsite parking (either 850 or 650 spaces, respectively) would require staff to walk up to 10 minutes; this parking could be perceived as being farther away and less safe. For entrance to the parking/delivery facility south of the Old Executive Office

Building under alternative 2, vehicles would have to make a 180° turn to access the portal, creating congestion for staff vehicles and delivery trucks entering at the same time.

Under alternative 3 providing deliveries through the Office of Thrift Supervision would require additional security measures.

Impacts on the News Media - Under alternative 1 relocating news media functions from the west colonnade to new facilities beneath West Executive Avenue would place members of the press farther from the press secretary. Under alternative 2 upgrading existing facilities in the west colonnade would not solve work space or infrastructure problems. Constructing a new facility and remodeling the first floor of the west colonnade under this alternative would provide both access to the press secretary and eliminate current space and equipment problems.
Under alternative 3 providing news media facilities in the Old Executive Office Building would put the press farther from the press secretary in the West Wing.

Impacts on the Visitor Experience. Each alternative would have positive impacts in terms of more readily available information/ orientation services, more efficient White House tour operations, and increased educational opportunities. Eliminating vehicle parking throughout President's Park would improve safety, visual quality, and the overall pedestrian experience.

Impacts on Public Visitors - Under alternative I a four-lane E Street would divide the Ellipse area from the rest of President's Park, creating a major safety hazard and making it difficult for visitors to appreciate the original design intent for the site. While an E Street underpass would be provided, many visitors would continue to cross E Street near the Zero Milestone to view the White House and take photos. A

-xvi-

Summary: Environmental Consequences

belowground corridor directly from the visitor center to the visitor entrance building for public tours of the White House would minimize any traffic conflicts for these visitors.

Under alternative 2 tunneling E Street would permanently remove traffic hazards, enhancing the overall visitor experience. Visitors on the White House public tour would enter the visitor entrance building directly from the visitor center.

Under alternative 3 closing E Street and creating wide pedestrian paths would unite the Ellipse area with the rest of President's Park.

Noise Impacts - Under alternative 1 noise levels along E Street between 15th and 17th Streets would be slightly higher because of four lanes of traffic. Under alternatives 2 and 3 noise levels at-grade along E Street in the center of the park would be reduced because traffic would be underground or eliminated. Noise east and west of the park on E Street under alternative 2 could be higher as a result of traffic entering or leaving the tunnel.

Impacts on Special Events. First Amendment activities and the presidential inaugural parade would not be affected (same as the proposed plan).

Impacts on Public Events - Criteria for special events under alternatives 1 and 2 would encourage quality events worthy of attendance by the first family and would limit event size and duration. Under alternative 1 rotating events around the Ellipse could require new infrastructure and utilities. Under alternative 2 a special events plaza would increase the efficiency of staging events; a tunneled E Street would allow for easy access by event attendees and provide a more pleasing background for events. Under alternative 3 new locations would have to be found for all events other than First Amendment demonstrations.

Impacts on White House Events - Better storage and infrastructure would allow events on the White House grounds to be staged more efficiently. Under alternative 1 the eastside parking facility could provide parking for guests, particularly for evening and state events.

Transportation Impacts. Impacts on Access and Circulation - Under alternative 1 preferred access to the northside parking garage would be by way of H Street (through the New Executive Office Building) or E Street to West Executive Avenue; access by way of 17th Street to State Place would add to existing traffic problems at the 17th Street / State Place / New York Avenue intersection. Traffic accessing the Ellipse parking facility would not affect service levels on Constitution Avenue, but the 16th Street intersection would operate over capacity during the morning peak hour.

Under alternative 2 access to the White House complex would be more restricted than under any other alternative, with the main access for motorcades, staff parking, and deliveries by way of 17th Street and State Place, creating unacceptable problems at the 17th Street / New York Avenue / State Place intersection.

Under alternative 3 access to the northside parking facility by way of 17th Street to State Place would add to existing traffic problems at the 17th Street / State Place / New York Avenue intersection because of two-way traffic on State Place.

Impacts on E Street - Widening E Street to four lanes under alternative 1 or constructing a tunnel under alternative 2 would remove on-street parking on E Street between 17th and 18th Streets and require driveways to be relocated. Under both alternatives about 13,000 westbound vehicles per day would use E Street, diverting some traffic from I Street (which operates over capacity) and other

-xvii-

Summary:

westbound streets (which operate under capacity). However, westbound travel lanes on E Street would not provide enough additional traffic flow to improve the level of service on I Street.

Removing E Street under alternative 3 would result in 12,000 eastbound vehicles per day being diverted to other east-west streets, compounding peak-period traffic problems.

Impacts on Public Parking - Impacts would be similar to the proposed plan except under alternatives 1 and 2 an additional 16 on-street spaces would be eliminated in the 1700 block of E Street.

Socioeconomic Impacts. Impacts on D. C. Revenues-Impacts on D.C. revenues under each alternative would range from an estimated $402,033 to $495,400 each year, and from $8.7 million to $10.8 million over the 20-year life of the plan. If an offsite parking garage was built under either alternative 2 or 3, property tax revenues would decrease. Building an 850-space offsite garage under alternative 2 would result in annual estimated D.C. revenue losses ranging from $791,514 to $900,304. Building a 650-space garage under alternative 3 would result in annual losses ranging from $643,157 to $729,282.

Impacts on Local Businesses - Impacts would be similar to the proposed plan. Under alternatives 1 and 2 the loss of an additional 16 metered parking spaces along E Street would result in minor inconveniences to adjacent institutions as well as visitors and local residents. Under alternative 2 the E Street tunnel would eliminate four access points along the 1700 block of E Street, affecting adjacent institutions, especially the Corcoran Gallery and the American Red Cross. Additional leased parking under alternatives 2 and 3 could create a slightly greater impact on businesses and office buildings relying on these spaces for the public.

Construction and Operations Impacts - Impacts would be similar to those described for the proposed plan. Construction-related expenditures under alternative 1 would total an estimated $318 million, under alternative 2 up to $272 million (depending on where news media facilities were provided), and under alternative 3 up to $220 million (depending on how visitors got to the White House visitor entrance building).

Construction-related jobs and earnings (both direct and indirect) would be created for the metropolitan and D.C. areas, as indicated be-low (the range shows the five-year phase with the lowest number of jobs and earnings and the highest):

***************************

Total Total
Alternative I Jobs Earnings*
* Metro Area 297-711 $6.9-16.6
* D.C. Area 58-140 $1.6-3.7
Alternative 2
* Metro Area 111 -870 $2.6-20.3
* D.C. Area 22-171 $0.5-4.6
Alternative 3
* Metro Area 105 441 $2.4-10.3
* D.C. Area 21-87 $0.5-2.3

* Earnings in millions of dollars.

***********************

Impacts on Site Management and Operations. A nearby maintenance facility would facilitate operations under each alternative. An Ellipse facility under alternative 1 would be the closest. Maintenance time would be reduced under alternative 2 by reducing the size and duration of special events and by rotating them around the Ellipse, and under alternative 3 by moving special events out of President's Park.

--xviii--


CONTENTS

THE WHITE HOUSE AND ITS SETTING-1

PURPOSE OF AND NEED FOR THE PLAN-5
Introduction-7
The Context for the Plan-12
Problems, Issues, and Concerns Considered in this Document-20
Relationship of this Document to Other Plans and Efforts-33

ALTERNATIVES INCLUDING THE PROPOSED PLAN-43
Overview of Alternatives-45
Planning Assumptions-46
Proposed Plan-49
No- Action Alternative-67
Alternative 1-72
Alternative 2-80
Alternative 3-88
Mitigating Measures Included in the Alternatives-95
Options Considered but Rejected-97
Comparison of Alternatives and Impacts-102

THE AFFECTED ENVIRONMENT-127
An Overview of the Site-129
Cultural and Natural Resources-135
Home and Office of the President-153
Visitor Use, Services, and Experience-160
Special Events and Demonstrations-169
Transportation-175 Socioeconomic
Environment-190
Site Management and Operations-196

ENVIRONMENTAL CONSEQUENCES-201
Impact Topics-203
Impacts of the Proposed Plan-205
Impacts of the No-Action Alternative-245
Impacts of Alternative 1-256
Impacts of Alternative 2-281
Impacts of Alternative 3-303

COMPLIANCE / CONSULTATION AND COORDINATION-323
Compliance with Laws and Regulations-325
Consultation and Coordination in the Development of the Plan-329

APPENDIXES-335
A: An Annotated Listing of Legislation Pertaining to the White House and President's Park-337
B: A Summary of Significant Plans and Projects at President's Park-342
C: An Inventory and Assessment of Structures and Memorials within and adjacent to President's Park-350
D: Primary Interpretive Themes for the White House and President's Park -361
E: Construction Techniques, Phasing, and Cost Estimates-366
F: Determination of Site Use Capacity-376
G: Planning Work Group Participants-378
H: Desired Futures-Media-382
I: E Street Diagrams-384
J: Letters of Consultation-393

GLOSSARY-396

SELECTED BIBLIOGRAPHY-398

PREPARERS AND CONSULTANTS-403

INDEX-405

-xix-

CONTENTS

Maps

Vicinity-8
Study Area-11
Existing Conditions-21
Proposed Plan-Aboveground-50
Proposed Plan-Belowground-51
No Action-68
Alternative 1-Aboveground-73
Alternative 1-Belowground-74
Alternative 2-Aboveground-81
Alternative 2-Belowground-82
Alternative 3-Aboveground-89
Alternative 3-Belowground-90
Historic Districts-138
Memorials / Monuments-140
White House Grounds: Commemorative Plantings and Gardens-142
Visitor Use and Services-165
1997 Pageant of Peace Layout-173
Special Events-174
Average Weekday Traffic Volumes-176
Street Levels of Service-A.M. Peak Hour-178
Street Levels of Service-Midday-179
Street Levels of Service-P.M. Peak Hour-180
Pedestrian Street Crossings-188
Project Area Zoning-195
Utilities-200

-xx-

Contents

Tables

1: Summary of Alternative Actions-102
2: Summary of Impacts-112
3: Potentially Affected Historic Structures, Sites, and Districts in and near President's Park-139
4: Fill and Underlayers in President's Park-144
5: Parking Supply for Staff in the President's Park Area-156
6: Numbers of Visitors on White House Tours-162
7: Special Events within President's Park ----- 170
8: Levels of Service on East / West Streets Adjacent to President's Park ---- 177
9: Mode of Arrival for White House Tour Visitors-181
10: On-Street Parking Supply by Regulation and Location in President's Park-183
11: Metrorail Stations-184
12: Weekday Pedestrian Volumes-186
13: Weekday Bicycle Volumes (Prior to the Closure of Pennsylvania Avenue)-189 14:
14: Total D.C. General Fund Revenues, FY 1995 and 1996-192
15: Project Area Land and Improvements by Land Use Classification-193
16: Project Area Land and Improvements by Zoning Classification-194
17: On-Street Public Parking Eliminated-Proposed Plan-231
18: Projected Annual D.C. Revenue Losses from Parking Meters-Proposed Plan-234
19: Projected D.C. Revenue Losses from Leased Parking Taxes-Proposed Plan-234
20: Projected D.C. Revenue Losses from Vendors-Proposed Plan-235
21: Potential Vendor Revenue Losses-Proposed Plan-236
22: Construction-Related Impacts-Proposed Plan-238
23: Projected Annual D.C. Revenue Losses from Parking Meters-Alternative 1-275
24: Construction Impacts-Alternative 1-277
25: Projected D.C. Property Tax Losses-Alternative 2-296
26: Construction Impacts-Alternative 2-298
27: Projected D.C Revenue Losses from Leased Parking Taxes-Alternative 3-316
28: Projected D.C. Property Tax Losses-Alternative 3-317
29: Construction Impacts-Alternative 3-318
30: Actions Requiring Further Consultation under the 1990 Programmatic Agreement-327

-xxi-



ABBREVIATIONS

CFR-Code of Federal Regulations
FHWA-Federal Highway Administration
NCPC-National Capital Planning Commission
NEOB-New Executive Of floe Building
NEPA-National Environmental Policy Act
NPS-National Park Service
OEOB-Old Executive Office Building
OTS-Of floe of Thrift Supervision
PL-Public Law
SCS-Soil Conservation Service

-xxii-

Comprehensive Design Plan Continued