ENVIRONMENTAL CONSEQUENCES

Impacts on the News Media

Analysts

Remodeled news media facilities in the west colonnade and new facilities under West Wing Drive would allow the press to continue to have immediate access to the press secretary and would also provide additional space and technologically up-to-date equipment for news broadcasts. Presidential briefings would be held in a setting that would accommodate greater numbers of domestic and foreign press correspondents without the present over-crowding and safety concerns.

Expanded facilities would be comparable to those provided for the news media at the U.S. Capitol and the Pentagon. Providing appropriate storage space for camera equipment would reduce repeated clearance operations as equipment was brought into the complex and safety hazards caused by the stacking of equipment. The work space would be functional and would be intended to house only a small portion of the White House press corps.

Conclusion

Upgraded news media facilities would provide press representatives additional space and state--of-the-art infrastructure for broadcasts.

Visitor Experience

Overall the experience for visitors to the White House and President's Park would be improved as a result of following Design Guidelines and ensuring that all parts of the area are perceived of as a unit. Visitors would benefit from expanded orientation information and educational opportunities. The experience of visiting the White House would be greatly improved by expanding the current visitor center, with a traffic-free connection to the visitor entrance building, and developing a White House museum to broaden opportunities for visitors to learn about this unique place.

Impacts on Diplomatic and Business Visitors

Diplomatic and business visitors to the White House would basically find no change in their experience, other than an improvement to the ambience as a result of the consistent use of design elements throughout the site and a lack vehicles being parked on the surface. Visitors could continue to enter the West Wing on the surface while their vehicles would be Barked

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Impacts of Proposed Plan: Visitor Experience

underground. An underground entrance on West Executive Avenue could be used as an optional entry/exit point by business visitors and persons attending conferences.

Impacts on Public Visitors

Analysis

Initial Impressions. Eight formal entryways to President's Park (two each on H Street, Pennsylvania Avenue, E Street, and Constitution Avenue) would signify for visitors that they were within a special, historic place. This sense would be enhanced by the absence of parked vehicles and public vendors along sidewalks and immediately adjacent streets, and by public traffic restrictions on Jackson and Madison Places and the Ellipse roadways. Removing parking on the site would also help reduce noise and air pollution, open up formal sight lines to the White House, and enhance the site's formal appearance. Traffic on E Street would continue to divide the Ellipse from the White House grounds, making it somewhat difficult for visitors to appreciate L'Enfant's original design intent. However, only two lanes of traffic on E Street would make traffic conditions somewhat safer for pedestrians.

Information/Orientation. Pedestrian data indicate that many visitors enter President's Park from Metro stops to the north and east of the park. Providing information and orientation at entryways at 15th and E Streets, 15th and 17th Streets on Pennsylvania Avenue, and at Jackson and Madison Places on H Street would help meet the needs of high numbers of pedestrians and visitors who enter the site through these points. In addition, providing ranger services at key points of access would make it easier for visitors to find out what opportunities are available and where, allowing them to make the most efficient use of their time at the site. Full information and orientation services would be focused at the visitor center.

Improved information systems would make it easier for individuals to plan their visits by making well-designed and adequate signs, brochures, and other orientation materials readily available. Information would be provided in other languages.

Visitor Center and Museum. An expanded visitor center in the Commerce Building would significantly improve the experience for individuals taking the public White House tours and for those wanting to learn more about the White House and the presidency. Orientation programs for public tours would help prepare visitors' expectations for what they would see inside the White House. An indoor location for most activities would protect visitors from inclement weather. Vastly improved opportunities for visitors to see items from the White House collection would complement the role of the White House as a dynamic, living museum. The museum could become a major educational facility related to the presidency. Coordinating its functions with other museum institutions in the D (I. area would prevent the duplication of programs and services. Sales by the White House Historical Association would continue in the visitor center, making it easy for visitors to buy educational materials.

Interpretation and Education. Interpretive and educational opportunities in President's Park would be enhanced by outdoor exhibits, specialized programs focusing on the various resources at the site, and additional onsite and offsite interpretive programs. Internet access to information about the White House, President's Park, and the history of the presidency would greatly enhance national and international learning opportunities. Additional educational partnership activities would result in a synergy benefiting all persons

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ENVIRONMENTAL CONSEQUENCES

interested in learning more about the site's many themes. A complete ethnographic study of visitors would help identify what subject matter and objects associated with the White House would be most meaningful to a broad cross section of visitors.

Theaters would provide improved settings for interpretive lectures and other programs, including cultural activities. Visitor understanding of the history of the site could be improved by displaying and interpreting archeological artifacts recovered from the site.

White House Tours. The logistics of taking tours of the White House would be greatly simplified for visitors. Visitors would pick up tour tickets at the visitor center, watch an orientation film in one of four theaters in the lower level of the center, then move through a wide, naturally lighted, attractive, and secure belowground passageway to Lily Triangle near the south fence of the White House. Walking at ground level to the visitor entrance building would still give visitors a sense of excitement about entering the White House as they caught glimpses of the mansion and its grounds. Visitors with special needs would be more easily accommodated, and all visitors would be more protected from inclement weather while waiting for tours. Mobility-impaired visitors would continue to use the northeast gate and enter the White House through the north door, separating them from the general tourist line.

Within the White House the quality of the tour would be improved by eliminating current exhibits in the East Wing that diminish the dignity of the mansion and its ambience as a home. Additional visitor management and interpretive approaches within the White House would allow more visitors to learn about the site's many themes.

Public Amenities. Commercial vending would not be allowed on the sidewalks or curb lanes immediately adjacent to President's Park, and no food facilities would be provided within the park. Local restaurants in adjoining areas would be encouraged to provide this service benches and trash receptacles would be provided, along with amenities such as restrooms, water fountains, and telephones at certain entryways.

Conclusion

All aspects of the proposed plan would in-crease the visitors' sense of being in a special, historic place. Visitor information would be more readily available and procedures for public tours of the White House would be more efficient. Educational opportunities relating to all interpretive themes for the White House and President's Park would be in-creased and more comprehensive. The museum function at the visitor center would provide opportunities to learn more about the history of the presidency and first families, as well as of the site. Traffic on E Street would continue to divide the park, making it some-what difficult for visitors to appreciate the original design intent for the site as a whole, but removing parking would open up sight lines to the White House.

Impacts on Pedestrians

Analysis

The restriction of public vehicular traffic along both Jackson and Madison Places would improve pedestrian access from the north. Removing all vehicles along East and West Executive Avenues, the eastern portion of South Executive Avenue, and Hamilton and State Places would allow pedestrians to move freely about the site without intrusions from

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Impacts of the Proposed Plan: Visitor Experience

vehicles (only delivery and official use vehicles would be allowed in these areas).

West Executive Avenue would remain restricted to public access. A portal to the north-side parking garage at the north end of West Executive Avenue would be used by about 160 vehicles per day (55% of the parking garage's capacity), this use is not expected to impede the pedestrian experience on West Executive Avenue, which would otherwise be improved.

Existing pedestrian conditions along E street south of the White House would continue. Approximately two-thirds of the pedestrian crossings would occur at the two signalized crosswalks and one-third at unprotected locations away from the crosswalks' primarily at the top of the Ellipse on E Street. Pedestrian conflicts with E Street traffic would continue at this location because of visitors crossing to get a better view of the White House from the midpoint of the south fence. Strategies to address conflicts between pedestrians and vehicles could reduce hazards for both.

Pedestrian safety for people taking the public White House tours would be greatly improved with the development of an underground pedestrian corridor from the visitor center to Lily Triangle on the north side of E Street. This would eliminate large tour groups having to cross E Street traffic lanes at midblock.

The Ellipse would become a total pedestrian environment with the removal of all traffic and parked vehicles, except for authorized and emergency vehicle access. Informal gardens? landscaped pathways, and seating areas would complement the experience for people walking through this area.

Conclusion

Eliminating vehicle parking and undertaking various management strategies on E Street would help reduce pedestrian/traffic conflicts. A pedestrian corridor for public tour groups from the visitor center to Lily Triangle would create a safer situation. Unless management strategies were implemented, illegal crossings of E Street between the top of the Ellipse and the south fence of the White House would continue, causing traffic conflicts and safety concerns.

The roadways on the Ellipse would be used as wide pedestrian paths leading to gardens and meandering paths, allowing visitors to walk at their leisure or relax.

Staff would benefit from the pedestrian--friendly design on West Executive Avenue.

Impacts on Local Residents

Passive and active recreational uses would be allowed to continue on the Ellipse, although passive uses would be encouraged. No permanent infrastructure (such as backstops for softball and baseball) would be provided.

Noise Impacts

Analysis

The main noise source within the study area would continue to be traffic.. However, the operation of electrical and mechanical equipment associated with underground facilities would introduce new noise sources. Most of the proposed underground facilities would be near a major roadway; consequently, the noise produced by mechanical equipment would be masked by traffic noise. For underground facilities not near major roadways, a person standing at-grade might hear the equipment

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ENVIRONMENTAL CONSEQUENCES

noise. Even though mechanical systems would comply with local ordinances, building codes, and GSA specifications, the noise and drafts aboveground could be of concern given the special nature of this site. Examples of design considerations to attenuate ventilation noise include limiting the face velocity at intake and exhaust locations or limiting the size and speed of exhaust fans in sensitive areas.

Due to the park-like quality of some of the study area, there are concerns about equipment noise, even though those levels would not violate GSA specifications for machine noise in federal buildings or the D.C. Noise Control Act of 1977. With regard to mechanical equipment, the District of Columbia prohibits noise from air-conditioning, refrigeration, heat pumps, fans, or other mechanical equipment in excess of 60 dB(A) as measured at the property line. (For reference, 60 dB(A) is the sound of a person's voice.) During de-tailed design, any noise concerns pertaining to proposed facilities could be addressed by specific design measures to either attenuate or mask the noise, which could include moving the noise source.

Noise levels around the Ellipse Drive would be lower than existing noise levels because traffic would be prohibited on this roadway. For all other areas general noise levels would be similar under all alternatives, including the no-action alternative. The District of Columbia has in place a noise control ordinance (No. 2-53, adopted March 23, 1978), which applies to vehicle-generated noise.

Construction noise in the study area is regulated by the D.C. Noise Control Act and GSA regulations. The D.C. Noise Control Act specifies that from 7 A.M. to 7 P.M., Monday through Saturday, noise levels from construction, excluding pile drivers, should not exceed 80 dB(A) for a one-hour period. The act further states that measurements for construction noise levels should be taken 25' from the outermost limit of the construction site. The District will not issue a permit for building construction until there is assurance in writing that the noise from the planned construction will comply with these requirements.

During construction the main noise sources would be diesel engines on heavy equipment. Heavy construction vehicles such as earth-moving equipment generate noise levels from 73 dB(A) to more than 90 dB(A) at 50'. Stationary equipment, such as generators, range from 70 dB(A) to 80 dB(A) at 50'. Drilling and cutting machinery such as jack hammers and rock drills are between 80 to 100 dB(A) at 50', with pile driver noise exceeding these levels. Although noise impacts due to construction would be temporary, visitors and workers in nearby office buildings (the Office of Thrift Supervision, the Old Executive Office Building, the New Executive Office Building, buildings west of Lafayette Park, and the Commerce Building) would hear construction noise. Prior to each stage of construction, potentially impacted parties would be notified, and measures to mitigate noise impacts would be included in contractor specifications.

Conclusion

Traffic noise along E Street would continue, while noise along Ellipse roadways would be reduced with the removal of traffic.. Noise within the study area would temporarily in-crease during construction. After construction the operation of mechanical equipment for underground facilities could create new noise sources, but this noise would tend to be masked by traffic on nearby roadways. In other areas designs would attenuate noise levels, so there would be no additional impact on the experiences of people onsite.

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Impacts of the Proposed Plan Special Events

Special Events

Special events within President's Park would be affected by various actions, including the establishment of criteria for special events, the construction of a permanent events plaza in the northeast quadrant of the Ellipse, new underground structures, and an expanded visitor center and visitor entryways. No proposed actions would affect First Amendment demonstrations or their locations because they are regulated by existing laws, regulations, and judicial decisions. No impacts on the presidential inaugural parade are anticipated because construction activities under Pennsylvania Avenue would be scheduled so as to be finished before any future inaugural.

Programs and special events on the site would be conducted in a manner that reflects the dignity of the site, heightening for visitors the sense of being in a special place. For example, all temporary installations for special events would have to be removed within a specific period of time. Special events would be reduced in scale and duration in order to maintain a quality visitor experience within President's Park.

Impacts on Public Events

Analysis

Requiring that special events reflect the purpose and dignity of President's Park, be small in scale and short in duration, have minimal commercial aspects, and include multiple cultures would help increase the quality of these occasions. These criteria would affect the types of activities offered, the amount of development, the number of people attending, and the length of each event. Organizers and participants could perceive these criteria positively or negatively. Even though these criteria would help protect cultural and natural resources and improve park aesthetics, they could also reduce the availability of the event to current participants, prevent some sponsors from taking part, and provide fewer activities or opportunities during events (such as some activities on the Ellipse during the egg roll).

Ongoing resource monitoring activities could also affect the size and type of events. Excessive damage to vegetation and soils after an event would be indicative that the carrying capacity of the park had been exceeded, so changes in the event's size and layout might be appropriate.

Removing visitor seating on the Ellipse (currently used for visitors waiting to take public tours) would affect visitors at other special events, such as the Twilight Tattoo, the Hispanic Festival, the National Feis (Irish folk dancing), and the National K-9 Competition, because they would have to sit on the grass or provide their own seating.

Removing vehicle parking throughout the Ellipse would allow attendees, as well as demonstrators, to easily move through the site. However, the lack of onsite parking spaces would further exacerbate an already difficult parking situation for some attendees.

The special events plaza proposed in the northeast panel of the Ellipse would change the setup of many events and demonstrations. Through proper design, the plaza should increase the overall efficiency of events and provide an aesthetically pleasing setting for attendees. Up-to-date infrastructure would allow event organizers to use state-of-the-art audio and visual equipment.

Former roadway surfaces could be used to accommodate chairs and stands needed for special events, thus reducing impacts on turf. Landscaped medians on E Street would provide a more pleasing backdrop for events;

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ENVIRONMENTAL CONSEQUENCES

however, continued traffic on E Street would still intrude on the setting.

The location of the events plain to the visitor center, along with the installation of entryways, would help provide needed information for event attendees, including information about President's Park.

The Ellipse pavilion would be removed to accommodate the special events plaza, eliminating the only permanent restroom and food concession facilities within this portion of the park. Additional portable toilets would have to be brought in for events. Vendors would also be removed from 15th and 17th Streets, thus event attendees would have to seek food and refreshments outside the park

Although some new infrastructure would be provided (primarily utilities), the storage of event-related equipment and staging would remain offsite and have to be brought in for each event.

Moving the Pageant of Peace to the events plaza, with seating arranged along Ellipse Drive (which would be converted to pedestrian use), would slightly change the orientation of that event. The National Christmas Tree would remain in its same location, but the view to the White House would be blocked for the audience. However, opportunities to view the White House would be available before and after the performances and during daily events.

Changes in the pageant layout should not negatively affect the lighting of the tree, the many programs associated with the pageant, or the enjoyment of the event by participants and general visitors. There could be some cost implications in changing the layout-new types of equipment to stage the pageant could be required, which would be an added cost to the National Park Service and other sponsors.

The events plaza would reduce setup and takedown time, as well as site restoration needed within the Ellipse. Faster dismantling of pageant infrastructure would also allow other events to take place soon after the first of each year.

Conclusion

Requiring special events on the Ellipse to meet certain criteria would help protect cultural and natural resources (such as scenic vistas). These changes could reduce the avail-ability of events to current participants, restrict sponsors from participating in events, or result in fewer activities during events. A permanent events plaza with utilities would in-crease the overall efficiency for staging events and provide an aesthetically pleasing setting. Removing vehicle parking and traffic from the Ellipse roadways would improve the setting for special events and allow the roadways to be used during events, but background traffic noise on E Street would continue to intrude.

Impacts on White House Events

Analysis

Events on the White House Grounds. Preparations and staging for many of the events that occur within the White House and on the grounds would be facilitated with new delivery facilities in the New Executive Office Building, storage space under Pennsylvania Avenue, and underground service corridors. Items commonly used for special events, such as chairs, could be stored onsite without using inappropriate storage locations and crowding, thus reducing safety concerns. Also, with new storage facilities, it might be possible to make better use of existing spaces for pre-event activities, such as food preparation and flower arranging. Providing separate staff and service

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Impacts Proposed Plan: Transportation

corridors would allow supplies and staff to move throughout the White House complex without conflicts.

Upgraded utilities on the White House grounds would improve special event functions by replacing and updating deteriorating systems and by providing additional electrical and communication services where needed. If the grounds maintenance facility was redesigned to allow some storage of materials used for outdoor events, event setup and removal would be facilitated, as well as sub-sequent restoration activities.

Garden and Candlelight Tours. An expanded visitor center, with theaters for tour orientation films, and a pedestrian corridor from the visitor center to the north side of E Street could help facilitate the staging of events such as the White House garden and Christmas candlelight tours, as well as provide shelter for visitors waiting for tours.

Egg Roll. The Ellipse would continue to be available for staging activities associated with this annual event.

Conclusion

Events currently sponsored by the White House on the grounds would continue. New storage space, circulation corridors, and up-graded utilities would allow all events to be more efficiently staged.

The staging of garden and Christmas candle-light tours would be easier because participants could be oriented at the visitor center and protected from poor weather while waiting.

Transportation

Impacts on Access and Circulation

Analysis

Access to the White House Complex. Multiple points of access into the White House complex would continue to be available for all official guests and business visitors, and no adverse effects on traffic would be experienced. The security lane on E Street for official White House traffic would continue to be available at all times.

Access to the nourished parking structure for motorcades, diplomatic and business visitors, and senior staff (290 spaces) would be either from H Street through the NEOB parking garage entrance or from West Executive Avenue by way of E Street.

* To ensure that traffic on H Street would not exceed LOS E (at capacity) and that further congestion would not be created during the morning, fewer than 100 vehicles during the peak hour should use the NEOB entrance. For this size facility, this would result in 45% of the vehicles accessing the garage by way of the New Executive Office Building and the remainder coming in by way of West Executive Avenue.

*The intersection of 17th Street / State Place / New York Avenue operates at LOS E and F during both the morning and afternoon peak periods, indicating heavy congestion. Due to the existing poor level of service at this intersection, all entering traffic would have to continue to use the restricted lane on E Street and would exit on State Place (which would operate as a one-way street westbound).

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ENVIRONMENTAL CONSEQUENCES

Access to a new 850-space garage under the Ellipse would be by way of Constitution Avenue at 16th Street, with an estimated 550 cars entering and exiting the garage during the morning and afternoon peak hours. Constitution Avenue currently operates at good levels of service throughout the day in both directions between 12th and 23rd Streets, suggesting that this avenue could handle the additional parking traffic.. The critical element, however' would be how well the Constitution Avenue / 16th Street intersection operated. Based on an intersection capacity analysis, this intersection would operate over capacity during the morning peak hour with the addition of traffic entering the parking structure. Any intersection changes to improve access would adversely impact the overall operating characteristics of Constitution Avenue.

Access for deliveries to the Executive Residence, Executive Office, and Old Executive Office Building would be by way of existing facilities at the New Executive Office Building and the Treasury Annex. The amount of new traffic during the midday period would not affect the operating characteristics of either H Street or 15th Street.

E Street. Under the proposed plan E Street would continue to operate with two lanes of eastbound traffic and a restricted access lane for official White House traffic No changes are anticipated to the downtown street system as a result of this plan. Thus, existing traffic conditions would not be altered.

Official White House events and motorcades would continue to require random closures of E Street. During such closures, drivers would seek alternate east- and westbound routes, potentially creating traffic congestion.

The future of the E Street corridor is currently being discussed among transportation agencies. As a result of these discussions, the National Park Service recognizes that some temporary interim measures could be taken to improve traffic flow in the area. If any interim measures were formally proposed, they would be addressed by the agency proposing the action and analyzed during a separate planning process. The impacts of such potential interim measures are beyond the scope of this plan.

Conclusion

Access to the nourished parking facility would be from H Street through the NEOB garage and from West Executive Avenue. To prevent further congestion on H Street, NEOB access should be limited to fewer than 100 vehicles during the peak hour. For access by way of West Executive Avenue traffic would use the restricted access lane on E Street, with State Place operating as one-way westbound for exiting traffic to avoid additional impacts to the 17th Street / New York Avenue / State Place intersection. Access to the Ellipse parking garage from Constitution Avenue at 16th Street would cause this intersection to operate over capacity during the morning peak hour as vehicles turned onto 16th Street; Constitution Avenue is now operating under capacity.

E Street would remain a one-way eastbound street' and no changes are anticipated to the downtown street system. The proposed plan for E Street is not contrary to the long-term goal of reducing surface traffic within President's Park. Continued temporal closures of E Street for official White House events and motorcades would potentially create congestion on adjacent streets.

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Impacts of the Proposed Plan: Transportation

Impacts on Public Parking

Analysis

A total of 103 on-street parking spaces avail-able to the public would be eliminated under the proposed plan, including 37 metered spaces (on the east side of 17th Street between State Place and Constitution Avenue) and 66 time-limited spaces (along the north side of Constitution Avenue between 15th and 17th Streets and the east side of 17th Street between State Place and Constitution Avenue; see table 17). (Eight parking spaces on the 15th Street end of Pennsylvania Avenue would not be affected.) On-street parking spaces are for short-term use only, and most are restricted during rush hours. In addition, 506 other spaces in President's Park, including permit and official sightseer spaces avail-able to the public during evenings and/or weekend days, would no longer be available.

Visitors, shoppers, commuters, business people, and others compete for available on-street metered and time-limited spaces. These drivers would have to look for other available on- and off-street parking in the area. Most people are only willing to walk one to three blocks from their short-term parking space to their destinations. Because of this, the impact of the eliminated on-street public spaces was assessed within three blocks of the parking that would be eliminated. Within this three -block area the impacts on the weekday on-street parking supply are as follows:

* Metered spaces: 799 spaces total; 37 spaces (4.6%) would be removed
* Time-limited spaces: 343 spaces total; 66 (19.2%) would be removed
* Total public spaces in this area: 1,142 spaces total; 103 (9%) would be removed

Table 17:
ONSTREET PUBLIC PARKING
ELIMINATED-PROPOSED PLAN
Parking Spaces Spaces
Public Metered Parking
17th St. (east side) 37
Public Time-Limited Parking
17th St (east side) 13
Constitution Avenue (north side) 53
Total Public Spaces 103
Additional Parking Space. Available Evenings and/or Weekends
Permit 498
Official Sightseer-15th St. (west side) 8
Total Additional Spaces 506
SOURCE: BRW, Inc., parking inventories, Nov. 1994, July 1996, Aug. 1997.

It is assumed that people would be willing to walk up to three blocks to find replacement parking. Removing 103 on-street spaces on 17th Street and Constitution Avenue would result in only a 9% reduction of the on-street public parking supply within three blocks of the removed spaces.

The economic impacts associated with the removal of these parking spaces are presented in detail in the impacts on the socioeconomic environment.

Some intermittent public parking could potentially be provided on weekends and evenings in the Ellipse parking facility if a study under-taken during design development determined that such parking would be compatible with staff use and site parking strategies.

Conclusion

A total of 103 on-street, short-term parking spaces would be eliminated, which represents 9% of the weekday, on-street parking supply within three blocks of the parking that would be eliminated. An additional 506 spaces in President's Park that are available to the

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ENVIRONMENTAL CONSEQUENCES

public during evenings or weekend days would also be eliminated, further constraining the limited on-street parking supply in this area.

Impacts on Public Transit

Analysis

The Metrorail Red Line crosses the study area under Lafayette Park and north of the Treasury Building, including the area intersected by Pennsylvania Avenue, East Executive Park, and Madison Place. However, no development is proposed in this area, and there would be no effects. Existing Metrobus stops on H Street and Constitution Avenue would not be affected by proposed actions.

Even though the number of visitors on public White House tours (a maximum of 5,000 per day) would not change, more visitors could be attracted by an expanded White House visitor center. If more visitors came to the President's Park area, public transit ridership might increase. Currently, the most common mode of transportation for White House tour groups is Metrorail, with 27% to 34% arriving by this mode; only 4% arrive by Metrobus. Most of these visitors would not be traveling during the morning or evening peak period, and the capacity of existing stations and routes would be sufficient to absorb these additional trips during nonpeak periods.

Promoting the use of the public transportation system, including Metrorail stops at Federal Triangle, Farragut Square, and McPherson Square, by both employees and visitors would help reduce vehicular congestion.

Conclusion

The use of the various Metrorail stations and Metrobus routes in the vicinity would not be Adversely affected as a result of visitors coming to the President's Park area. The proposed plan would not physically impact Metrorail or Metrobus operations.

Impacts on Tour Buses

Analysis

Future planning by both the District of Columbia and the National Capital Planning Commission to coordinate mass transit proposals and centralized tour bus parking locations outside the downtown area could have beneficial effects by removing tour buses that idle on streets adjacent to President's Park. The National Park Service would have to coordinate dropoff and pickup locations within or near President's Park for tour bus passengers with such a plan. Short-term tour bus parking (maximum of two hours) would be eliminated adjacent to President's Park on 15th Street, and tour buses would need to find other parking.

Tour buses would continue to drop off visitors in the no-parking zone in front of the White House visitor center on Pennsylvania Avenue South, and on the west side of 15th Street between Pennsylvania Avenue South and Constitution Avenue. Impacts associated with different dropoff and pickup locations would be assessed when these sites were designated.

Tour buses would continue to use E Street for drive-try views of the White House and grounds.

Conclusion

Parking locations for tour buses outside the downtown area would be determined through a citywide tour bus management plan to be developed by the National Capital Planning Commission and the District of Columbia.

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Impacts of the Proposed Plan: Socioeconomic Environment

Impacts of passenger dropoff and pickup locations within President's Park for tour groups would be assessed when specific locations were determined. Short-term bus parking on 15th Street would be eliminated. Tour bus operators could continue to provide drive-by views of the White House on E Street.

Impacts on the Tourmobile

Under the proposed plan Ellipse roadways would be closed to traffic, and the Tour mobile would be rerouted. When the Ellipse is occasionally closed at present, the Tour mobile turns north from Constitution Avenue to 17th Street, east on E Street, and south on 15th Street, back to Constitution Avenue. Alternative routes could result in less consistent service because the Tour mobile would be operating in general traffic.

Impacts on Bicyclists

Bicyclists would continue to ride in general traffic lanes on E Street and adjacent to President's Park. Bicyclists would also continue to use streets closed to motorized traffic, such as Pennsylvania Avenue. Closing the Ellipse roadways to general traffic would also improve the bicycling experience in this area.

Socioeconomic Environment

Impacts on D.C. Revenues

Analysis

Parking Revenue. The proposed plan would result in a loss of 37 D.C. parking meters along 17th Street. These meters charge 75¢ per hour from 7 A.M. to 6:30 P.M. six days a week, except where reduced by morning and evening rush hour restrictions (7-9:30 A.M., 4-6:30 P.M.). The meters are in heavy demand and are generally occupied full time. Based on 100% use (with the exception of 10 federal holidays per year), these spaces generate a total of $70,328 in annual parking meter revenues (see table 18). Total annual D.C. parking meter revenues range from $12 million to $14.5 million ($12.8 million in 1995). Based on an annual average of $13.25 million, the total loss from these spaces would be less than 0.5% of parking meter revenue. Over the 20-year life of this plan, losses in D.C. parking revenue would total an estimated $ 1.4 million.

Parking meters and time-limited spaces also generate revenue from tickets for parking violations. According to the D.C. Parking Services Division, an average of three parking tickets per space are given each month. Based on a fine of $27 per ticket, this would represent an annual loss of $100,116, or approximately 0.25% of the $39.1 million in 1995 D.C. revenues from parking violations. Total parking related losses would then equal $170,444 per year (see table 18). Over 20 years the total revenue loss would amount to an estimated $3.4 million.

An average parking enforcement officer generates $600,000 in annual revenues. The estimated loss of ticket revenues would be the equivalent of 0.16 full-time equivalent employee on a dollar cost basis. Given the over-all shortage of parking enforcement officers, this reduction in spaces is not expected to result in employment reductions.

Leased Parking Revenue. Pending the completion of the Ellipse parking facility (scheduled for years 16-20 of the plan, with leasing starting in the fourth year), a total of 850 parking spaces for White House staff would be leased in parking facilities within a 10-minute walk of the White House. Because of the extended period that these spaces would be leased, associated impacts have been

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ENVIRONMENTAL CONSEQUENCES

analyzed. (Interim leasing would also be done while the northside garage was being constructed; however, this project would be undertaken in the first phase of plan implementation and the leases would be short term, so the impacts have not been analyzed.)

Table 18:
Projected Annual D.C. Revenue Losses from Parking Meters
Proposed Plan
Location Spaces Rate/Space Hours Days/Week Annual Revenue 20-Year Total
Revenues from Metered Spaces
17th St. (east side) 9 $0.75/hr 9:30 A.M. - 4 P.M. 6* $13,250 $265,000
17th St. (east side) 28 $0.75/hr 9:30 A.M. - 6:30 P.M. 6* 57,078 1,141,560
Subtotal 37 . $70,328 $1,406,560
Revenues from Parking Tickets**
37 metered spaces $972/Yr** 35,964 719,280
66 time-limited spaces $972/yr** 64,152 1,283,040
Subtotal . $100,116 $2,002,320
Total Parking Revenue Losses $170,444 $3,408,880
SOURCE: D.C. Department of Public Works, Parking Services Division; BRW, Inc.
* Assumes 52 weeks per year and 10 holidays.
** Assumes 36 tickets per space per year at $27 per ticket.

There are 69 parking garages within a 10-minute walk of the White House, each with 50 to 600 spaces (average of 250 spaces per garage). Parking rates range from $145 to $20X per month (average of $ 180).

According to field studies by GSA staff in 1996, the federal government would be able to bulk lease spaces on a long-term basis in two or more garages within the study area. The 1996 estimated rate was $146 per month per space or $1,753 per year, based on a bulk lease discount of 10% and deducting the 12% D.C. parking tax, which does not apply to the federal government.

If the federal government negotiated a long-term lease for these spaces, this would reduce D.C. parking tax revenue. Based on the public monthly average of $ 180 per space and assuming an average of a 4% annual increase in rates, the market rate for parking is expected to be $202 per month by year four when these spaces are proposed to be leased.

The loss of parking tax revenue to the District would be 12% of the monthly rental rate ($202), which equals $24.30 per month or $292 per year (see table 19). The annual parking tax losses in year four for 850 spaces are estimated at $247,836. Parking tax losses over the life of this plan (years 4 through 20) are estimated at $5.9 million, based on a 4% annual increase in parking rates over this period, as shown in table 19.

TABLE 19:
PROJECTED D.C. REVENUE LOSSES FROM
LEASED PARKING TAXES-PROPOSED PLAN
. Space Month 850 Spaces per Year
D.C. Lease Tax Revenue Loss
Year 4
* Market rate $202.48 $2,065,296
* Tax loss at 12% $24.30 247,836
Years 4-20
* Total tax loss $5,872,955
SOURCE: General Services Administration; BRW, Inc.
NOTE: Based on 850 leased spaces, with leasing beginning the fourth year of the plan. Costs are inflated by 4% annually.

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Impacts of the Proposed Plan: Socioeconomic Environment

The estimated lease cost to employees for these parking spaces would be $ 164 per month or $1,972 per year in year four. The total lease rate over the life of this plan (years 4 through 20) is estimated at $46,734 per space or $39.7 million for the 850 spaces. As noted previously, individual lease rates would most likely be borne by employees (in accordance with federal policies). Therefore, this $39.7 million would not be a federal expense, unless individual agencies chose to pay the costs for their employees.

Vendor Revenue. Removing 16 vendor spaces from the west side of 15th Street and 10 spaces from the east side of 17th Street facing the Ellipse could result in a small loss of D.C. business license and sales tax revenue if replacement spaces were not relocated in the downtown area. Food vendors pay a license fee of $130 per year, and merchandise vendors $106 per year. Assuming an even mix of vendors, the loss of business license revenues would be $3,068 per year. Each vendor license holder also pays a flat sales tax fee of $ 1,500 per year. The loss of sales [ax revenues is estimated at $39,000 per year.

The estimated reduction in annual revenue to the District of Columbia is $42,068, as shown in table 20. Over 20 years vendor revenue losses are estimated at $841,360. The National Park Service would work with the District of Columbia to evaluate the feasibility of providing other vendor locations within the city.

Conclusion

Annual D.C. revenue losses (by year four of the plan) from parking meters, parking violations, leased parking taxes for 850 spaces, vendor licenses, and sales taxes would total an estimated $460,348. Over the 20-year life of this plan, the total estimated loss would be $ 10.1 million.

Each annual source of revenue loss is in itself minor and in aggregate represents only 0.02% of the District's fiscal year 1996 General Fund tax revenues of $2.3 billion. However, these impacts would contribute to the larger problem of D.C. revenue decline occurring primarily as a result of population and employment losses unrelated to this proposed federal action. The loss could be reduced if vendor spaces were relocated within the downtown core area.

Impacts on Vendors

Analysis

For the purposes of this analysis it was assumed that only one vendor occupies each vendor space daily. This was based on NPS staff and contractor observations during 1997 and on conversations with staff of the D.C. Department of Regulatory Affairs.

TABLE 20:
PROJECTED D.C. REVENUE LOSSES FROM VENDORS
PROPOSED PLAN
Annual D.C.Revenues Spaces Vendors Annual 20-Year Total
Food License at $130 per Year 13 13 $1,690 $33,800
Merchandise License at $106 per Year 13 13 $1,378 27,560
Subtotal 26 26 $3,068 $61,360
Sales Tax at $1,500 per Year per Vendor 26 26 $39,000 $780,000
Total Revenue Loss . $42,068 $841,360
Source: D.C. Department of Regulatory Affairs, BRW, Inc.

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ENVIRONMENTAL CONSEQUENCES

Removing 26 vendor spaces, unless relocated to other downtown areas, would affect opportunities for private business persons. Based on an estimated average of $2,000 per day per space for the peak season and $1,000 per day per space for the off-season, removing these 26 spaces would cause a $14.2 million loss in business volume (see table 21). Based on average profits of 10% of gross sales, this could result in a total loss of $1.4 million in profits to the affected business owners. The loss of profits over the 20-year life of this plan is estimated at $28.5 million. Translated into employment, the potential loss of spaces for 26 vendors would be comparable to the loss of 26 full-time equivalent (FTE) jobs.

Conclusion

A total of 26 of the 76 roadside vendor spaces available in the President's Park / Monumental Core area could be lost. This would amount to an annual loss of $1.4 million in profits, or $28.5 million over a 20-year period. If these spaces were relocated to other down-town areas, the losses would be reduced.

Impacts on Local Businesses

Analysis

Local businesses might be concerned about any changes in the public parking supply, which includes on-street parking and off-street commercial facilities. The 103 on-street, time-limited and metered public parking spaces that would be eliminated under this alternative are on Constitution Avenue between 15th and 17th Streets and on 17th Street between Constitution Avenue and State Place. These spaces represent 9% of the 1,142 parking spaces available within a three block radius (the assumed distance that people would be willing to walk to find replacement parking).

The eliminated parking spaces are not in front of any businesses. However, there are several institutions on 17th Street, including the Organization of American States, the Daughters of the American Revolution Memorial and Constitution Hall, and the American Red Cross. Of the 103 spaces removed, 50 are on the east side of 17th Street, across the street from these institutions; 29 spaces would remain on the west side of 17th Street directly in front of these buildings. Some of these institutions have their own off-street parking; therefore, the loss of on-street parking would represent only a small portion of their overall parking needs. Patrons and staff can also use commercial parking facilities in the area.

In addition to the reduction in on-street parking spaces, weekend parking on the Ellipse roadways would be eliminated. The types of users (visitors, local residents, shoppers, etc.) who park in Ellipse parking places on weekday evenings and during weekends have yet to be determined. A survey has been pro-posed to identify the users and their destinations to ensure that the removal of Ellipse parking would not impact local businesses.

Table 21:
Potential Vendor Revenue Losses
Proposed Plan
Business Losses Spaces Vendors Annual Revenues 20-Year Total
Six months at $2,000 per day 26 26 $9,490,000 $189,800,000
Six months at $1,000 per day 26 26 4,745,000 94,900,000
Total Gross Sales 26 26 $14,235,000 $284,700,000
Profits at 10% of Gross Sales $1,423,500 $28,470,000
Source: D.C. Department of Regulatory Affairs, BRW, Inc.

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Impacts of the Proposed Plan: Socioeconomic Environment

Additionally, the amount and duration of visitor parking would be identified.

The impact on area businesses of a reduction of 850 leased public parking spaces is difficult to measure. According to a 1996 informal field study by GSA personnel, 26 parking garages in the area are accessible to the general public with a total of 4,500 spaces. A loss of 850 of these 4,500 spaces would represent 19% of the public parking spaces within a 1 0-minute walk of the study area. This loss could have some impact on the overall attractiveness of these buildings for the private rental market. The degree of impact would be a function of the available supply of public parking at the time of lease. For example, at the time of the field survey (1996) a major organization was bulk leasing parking permits provided by parking companies in several locations in the market. Since then, the organization has constructed a new building with employee parking and those previously leased spaces may have again become available.

Conclusion

The loss of 50 time-limited and metered parking spaces on the east side of 17th Street next to President's Park would result in minor in-conveniences to nearby institutions relying on these spaces for employees, tenants, and patrons. Visitors and local users on weekends would also be affected. The possible reallocation of 850 leased parking spaces to the federal government would represent a 19% reduction in available public spaces, potentially affecting area businesses and offices.

Construction and Operation Impacts

Analysis

The economic impacts of the proposed plan include both (1) short-term effects that flow from construction activities and would be limited by the value and the time period of construction, and (2) long-term effects that derive from the operation of facilities after construction and recurring annually.

Construction Impacts. The construction bud-get is separated into labor and materials in order to estimate direct employment and pay-roll. These impacts would be affected by the ability of contractors, suppliers' and labor resources in the District as well as the metropolitan area to contract for this work. The indirect effect of these expenditures would be determined by the ability of the local and area economy to retain and recycle these direct outlays. Standard employment and payroll multipliers developed by the U.S. Bureau of Economic Analysis were used to measure spin-off effects of employment and expenditures.

The construction budget for the proposed plan is estimated to be approximately $276.2 million. Construction is expected to take place in four five-year phases over a 20-year period; it is assumed that construction-related impacts would occur in equal yearly increments for each phase (see appendix E).

Direct and indirect effects on jobs and earnings in the metropolitan area and the District of Columbia are shown in table 22. Based on standard regional input/output modeling system multipliers, overall construction-related employment would range from 267 to 531 direct and indirect jobs per phase in the metro area and from 52 to 104 jobs in the District (the greatest impact would be created during phase 4 as a result of constructing the Ellipse parking facility). Overall earnings by phase are estimated to range from $6.3 million to $12.4 million for the metro area and from $1.4 million to $2.8 million for the District. The D.C. capture of direct employment and earnings could be increased with specific hiring practices requiring a certain percentage of jobs be filled by D.C. residents.

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ENVIRONMENTAL CONSEQUENCES

Table 22:
Construction-Related Impacts
Proposed Plan
. PHASE 1
(YEARS 1-5)		 PHASE 2
(YEARS 6-10)		 PHASE 3
(YEARS 11-15)		 PHASE 4
(YEARS 16-20)
Jobs Earnings* Jobs Earnings* Jobs Earnings* Jobs Earnings*
Metro Area
Direct Jobs 208 $5.3 182 $4.6 121 $3.1 240 $6.1
Indirect Jobs 251 5.4 220 4.8 146 3.2 291 6.3
Total Jobs 459 $10.7 402 $9.4 267 $6.3 531 $12.4
District
Direct Jobs 73 $1.8 64 $1.6 42 $1.1 84 $2.1
Indirect Jobs 17 0.6 15 0.5 10 0.3 20 0.7
Total Jobs 90 $2.4 79 $2.1 52 $1.4 104 $2.8
Total Construction Value per Phase** $76.4 $67.1 $44.4 $88.4
Total Construction Value per Year $15.3 $13.4 $8.9 $17.7
NOTES: Metro Area D.C.
. Overall employment: 30.0 per million dollars 5.9 per million dollars
Employment multipliers: 2.21 1.24
Overall earnings: 0.70 x construction value 0.156 x construction value
Earnings multipliers: 2.03 1.31
* Earnings shown in millions of dollars.
** Total estimated construction = $276.2 million (See appendix E).

Long-Term Impacts. No significant gains in long-term employment are anticipated under the proposed plan. One or two jobs could be added at the visitor center as a result of the proposed expansion.

Conclusion

Estimated construction for the proposed plan would total approximately $276.2 million over 20 years and would be divided into four phases. Other than the creation of short-term, construction-related jobs in both the metropolitan area and the District of Columbia throughout the life of the plan, there would be no significant gains in long-term employment.

Site Management and Operations

Impacts on Site Operations

Analysis

New meeting/conference space would allow site operations to be handled more efficiently, reducing the need to frequently move equipment and furnishings around the site in preparation for meetings.

There would be no additional effects on site operations and management by visitor arrivals for special events or ceremonial functions. Residence and business arrivals would have minimal effects on site operations.

Additional staff could be required to implement proposed actions, including trained staff

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Impacts of the Proposed Plan: Site Management and Operations

to monitor new programs. Developing a comprehensive landscape management plan would help ensure a consistent level of maintenance for all areas of President's Park.

An expanded visitor center would require additional personnel and work space for managerial, administrative, and maintenance functions.

Conclusion

New facilities and programs would require additional staff; however, operations could be handled more efficiently overall. A comprehensive landscape management plan would help ensure a consistent level of maintenance for all areas of President's Park.

Impacts on Maintenance

Analysis

Major improvements to the roadways, walk-ways, and other key areas within President's Park would require routine maintenance. However, using durable materials in redesigns, incorporating technological advances in utilities and other infrastructure, and taking measures to prevent repetitive impacts to turf and garden areas would offset the need for frequent, intensive maintenance.

Maintenance operations within President's Park would be facilitated by constructing a 4,000-square-foot maintenance facility as part of the Ellipse parking facility for storing equipment and supplies, by using smaller maintenance vehicles to maximize onsite storage and utilization capabilities, and by developing a mobile maintenance unit. An onsite maintenance facility would make key pieces of equipment and bulk material supplies readily available, reducing downtime for staff while transporting or waiting for supplies. To make this space as efficient as possible, key pieces of equipment would be scaled down in size to reduce onsite storage needs. Developing a mobile maintenance unit would allow many day-to-day site operations to be handled by this one unit.

Removing all surface parking within President's Park would allow more efficient maintenance operations because parked vehicles would no longer be obstacles to the movement of equipment and supplies. More informal garden areas on the Ellipse would increase site maintenance work, but onsite facilities would allow for more efficient operations.

Providing an events plaza and permanent infrastructure on the Ellipse for special events would make setup and breakdown activities more efficient and reduce impacts on turf areas. Spending less time to restore damaged areas would allow maintenance staff to concentrate on other activities.

Security requirements would continue to affect site operations in terms of having to clear equipment and supplies brought into the White House complex. To the extent that equipment and materials could be stored onsite, clearance procedures and maintenance operations would be more efficient.

Conclusion

Maintenance activities would be more efficient with a maintenance facility as part of the Ellipse parking facility, with the removal of parking on the Ellipse, and with the development of a special events plaza. An onsite maintenance facility would reduce drive times. More informal garden areas on the Ellipse would increase site maintenance work.

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ENVIRONMENTAL CONSEQUENCES

Impacts on Utilities

Analysis

The pedestrian corridor connecting the Old Executive Office Building with the Treasury Building would pose potential conflicts to utilities beneath East and West Executive Avenues. These utility lines would have to be either temporarily relocated during construction, supported, or bored beneath.

Several combined storm/sanitary sewers in the area would be impacted to varying degrees by proposed projects. Even though these facilities are of adequate capacity, the D.C. Public Works Department has a general policy that when these combined facilities are disrupted, the replacement services are to be separated within the project area. This would probably require a structure at either end to transition from separate to combined facilities.

In addition, major utility impacts would be associated with the nourished parking facility and the pedestrian tunnel beneath 15th Street from the visitor center to the north side of E Street at Lily Triangle. Pennsylvania Avenue is a major utility corridor for electric, gas, telephone and water services; 15th Street is also a major sewer corridor.

Onsite utility surveys would be conducted during design development to identify specific utility locations. Relocation plans, capacity issues, and costs would be discussed with utility owners and the District of Columbia.

Public Utilities. The following public utilities are known in the area:

* Electric lines that could be affected include 24-conduit and 1 9-conduit duct-banks along the center of Pennsylvania Avenue and a 2-conduit ductbank along 15th Street in the area of the visitor center tunnel. Several smaller electric ducts and conduits extend throughout the area.

* Potentially impacted gaslines include a 20" diameter line along the south side of Pennsylvania and a 12" diameter line along 15th Street near the visitor tunnel.

* Telephone ductbanks include a 16-conduit facility along the north side of Pennsylvania Avenue.

These public utilities may be governed under the provisions of franchise agreements with the District of Columbia, which may require the specific utility owner to relocate their facilities at little or no cost to the project. Early discussions with each utility company would be needed to program relocations and to determine funding arrangements.

Waterlines. A 24" diameter water main crosses the project area roughly parallel to E Street. This line could interfere with the pro-posed alignment of pedestrian corridors from the visitor center and the Ellipse parking garage; temporary support or relocation during construction would probably be required. A 12" diameter waterline runs along both Pennsylvania Avenue and 15th Street; additional coordination would be required to determine if domestic and fire service could be handled if this line was interrupted during construction. After construction the waterline could inmost likely be replaced above or along-side the new underground structures. Costs associated with water system modifications, under the jurisdiction of D. C. Public Works Department would be assigned to the President's Park improvement project.

Sewers. The major impact to the sewer system would be crossing the 9'8" diameter combined storm/sanitary sewer on the south side of the Ellipse, from D Street and 17th Street to just north of Pennsylvania Avenue South and 15th Street. Pedestrian corridors associated with the

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Impacts of the Proposed Plan: Irreversible and Irretrievable Commitments of Resources

visitor center and the Ellipse parking garage would cross this sewer at an unknown depth (the sewer is 5' to 17' belowground). Replacing a portion of this sewer, possibly with two or more smaller diameter pipes, could help avoid conflicts This solution could lend itself to the eventual separation of storm and sanitary flows in the area.

Other sewer conflicts include a 21 " diameter storm sewer in 15th Street, which would conflict with the visitor center tunnel; a 27" x 45" sewer in Pennsylvania Avenue, which would conflict with the delivery tunnel; and an 18" diameter storm sewer beneath Jackson Place, which would conflict with the parking garage access corridor. These smaller sewers could probably remain in place after construction but would need to be temporarily supported or relocated during construction.

The 42" brick sewer that runs north and south through the Ellipse has been abandoned and would have to be removed to accommodate the Ellipse parking structure. If this sewer is historic, it would be documented in accordance with HABS/HAER standards.

Costs associated with sewer system modifications, under the jurisdiction of D.C. Public Works Department, would be assigned to the President's Park improvement project.

Steamline. Impacts associated with relocating the Ellipse steamline, in compliance with the criteria established to ensure the protection of the historic elements of the site design (including viewsheds), natural and cultural resources' and the visitor experience would be analyzed when that project was undertaken.

Conclusion

Electric, gas, telephone, and water lines under Pennsylvania Avenue would be bored beneath or temporarily relocated during construction of the northside parking garage and associated pedestrian corridors. Sewers under 1 5th Street and the Ellipse would also require relocation; if storm and sanitary sewers were combined, separate lines would be required for the length of the replacement. The largest line to be crossed would be the 9'8" combined storm/ sanitary line that bisects the northwest corner of the Ellipse.

Irreversible and Irretrievable Commitments of Resources

Implementing the proposed plan would involve a range of natural, physical, human, and fiscal resources. Land used for the construction of facilities is considered an irreversible commitment during the period a facility is in place. Currently, no evidence suggests that a better use could be found for lands within the White House grounds and President's Park, or that such other uses would be necessary or desirable. This statement assumes that surface restoration after underground construction would remove any sign of disturbance.

Construction activities, particularly on the north grounds, could result in the irretrievable loss of commemorative trees planted by particular presidents. Once these trees were lost, a bit of living history, although documented, would also be lost. The loss of American elms on the Ellipse as a result of constructing the underground parking facility would be a permanent loss. Excavations for an Ellipse parking facility would irreversibly alter the stratigraphy of any archeological resources that might be discovered.

Fossil fuels (oil, gasoline), labor, and construction materials used for proposed facilities and infrastructure are generally not retrievable. These materials are not scarce, and their use would not affect their current availability or supply. Constructing new facilities or implementing other major proposals could also require a substantial one-time. irretrievable expenditure of public funds.

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Comprehensive Design Plan Continued