Impacts of Alternative 2, Cumulative Impacts

Irreversible and Irretrievable Commitments of Resources

As described for the proposed plan, the implementation of this alternative would result in commitments of a range of natural, physical, human, and fiscal resources. Land used for the construction of proposed facilities would be irreversibly committed during the period a facility was in place. 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. The onetime expenditure of public funds would not be retrievable.

Construction activities, particularly on the north grounds of the White House, could result in the irretrievable loss of commemorative trees associated with certain presidents.

The Relationship of Short-term Uses of the Environment and the
Maintenance and Enhancement of Long-term Productivity

As described for the proposed plan, short-term displacements or disruptions to vistas, traffic to the White House complex, pedestrian movements, the visitor experience, and site operations (such as deliveries) would result from underground construction projects throughout President's Park. However, upon completion these facilities would serve to improve all the functions temporarily disrupted, as well as overall visual quality. Experiences for pedestrians and visitors would be improve, and White House operations would be enhanced. At no time would important functions necessary to executive operations of the government be impeded.

Tunneling E Street would require this street to be temporarily closed, resulting in increased congestion on surrounding streets (approximately one to two years). However, once the tunnel was completed, four traffic lanes would be restored, providing some additional traffic capacity to the downtown area.

Cumulative Impacts

Construction-related losses of American elms on the Ellipse in addition to the loss of other elms on the National Mall would contribute to the continued decline of these trees throughout the city.

As previously described, the alternatives for the long-term design of Pennsylvania Avenue and for the northside and southside barrier replacement projects (including a new alignment for a section of South Executive Avenue on the west side of the First Division Monument) have been coordinated with the overall goals of this Comprehensive Design Plan and Draft Environmental Impact Statement. As these efforts are implemented, they should foster the consistent use of designs and materials throughout President's Park.

As described for the proposed plan and alternative 1, the National Park Service is continually seeking to provide an exceptional experience for visitors to the Monumental Core. Future changes at existing sites, the addition of new sites, and improved transit systems and parking options would all enhance the visitor experience. A positive visitor experience would benefit the city because visitors would be more likely to return in the future or encourage others to visit.

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Relationship to Other Plans

Tunneling E Street would support the objectives of many of the plans listed in the "Relationship of this Document to Other Plans and Efforts." In particular, this action would enhance the historic landscape, other cultural resources, and the pedestrian experiences

E Street as a four-lane roadway would be consistent with NCPC's 1996 plan, Extending the Legacy, which identifies E Street as a secondary connector in the transportation system. However, placing the roadway in a tunnel would not be consistent with this plan's objective to recapture vistas.

Other elements such as support for public transit, a system of shuttles and outlying parking areas for visitors, visitor services, open space, and consistency in design elements would also be provided in the alternative. elements of the Comprehensive Plan Amendments Act of 1994 and the 1997 Transportation Plan would also support components of this alternative. Improved Metrorail hours and outlying parking as a result of a District transportation plan would help meet White House and visitor needs. Vendors would be removed from the park, which would conflict with some D.C. goals.

Not providing additional parking for White House staff would be consistent with the Long-Range Transportation Plan for the National Capital Region, which encourages the parking supply to be managed to help improve air quality, reduce traffic congestion, and support public transportation. The Comprehensive Plan for the National Capital recommends maximizing the use of public transportation and high-occupancy vehicles, specifically in the central employment area. However, long- term leased parking for White House staff could further constrain available short-term and business patron parking in public garages. This effect would continue beyond the life of the plan.

All NPS planning initiatives would be supported.

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IMPACTS OF ALTERNATIVE 3

Cultural Resources

Impacts on the Cultural Landscape

Analysis

Removing surface parking throughout President's Park and the White House complex, removing E Street, and moving special events from the Ellipse to other sites in the metropolitan area would greatly improve views from the White House across the Ellipse area to the Washington Monument and the Jefferson Memorial. pedestrian pathways would be designed in place of E Street, visually linking the White House grounds and the Ellipse area. Moving special events, other than First Amendment activities, offsite would also protect the turf and other resources, further contributing to the appearance of the area.

Implementing Design Guidelines for the site would help ensure the use of consistent design elements and materials, creating a unified character for the White House and President's Park. Individual areas would retain their special ambience, but the use of integrated design elements would reinforce the site's formal setting.

Establishing pedestrian entryways would introduce new landscape elements and concentrate visitor traffic at these areas. Existing memorials would be retained, but not encouraging additional memorials would minimize new intrusions on views

Under this alternative the emphasis on using existing buildings would minimize new structural intrusions on the historical scene and views. Views to and from the south side of the White House would be temporarily affected while E Street was being replaced with pedestrian walkways. Views to and from the north side of the White House would be affected during construction of the northside garage. The storage of construction equipment, supplies, and structures for meeting and news media facilities in the north courtyard of the Old Executive Office Building would temporarily affect the setting of that national historic landmark.

Home and Office of the President. Building a meeting facility above- or belowground in the north courtyard of the Old Executive Office Building would not affect the setting this historic structure, although it could affect the integrity of the building (see "Impacts on Historic Buildings and Structures").

As described for the proposed plan and alternative 1, an entrance portal on West Executive Avenue to the northside parking garage would be a new intrusion in the landscape. West Executive Avenue would be redesigned to retain its general character as a roadway. Constructing a staff circulation corridor along the north side of the White House would put two fern-leaf beeches near the west wing (one planted by President Johnson in 1968, and one by President Nixon in 1972) at risk. Redesigning the present NPS White House grounds maintenance facility would affect the surrounding landscape during construction, but proper design would mitigate any adverse visual effects.

Visitor Use and Services. Expanding the visitor center in the Commerce Building, with new construction belowgrade as described for the proposed plan, would have minimal long term impacts on the settings of the adjacent Fifteenth Street Financial Historic District, the

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Pennsylvania Avenue National Historic Site, and the Federal Triangle Historic District.

Constructing an access tunnel under 15th Street for visitors taking the White House public tour would funnel up to 5,000 visitors during the morning tour period onto the Ellipse, similar to what happens now. Alternatively, providing an access corridor directly to the visitor entrance building would reduce the daily assembly of people on the Ellipse.

If visitors entered the White House visitor entrance building directly from the visitor center, the entrance building would have to be redesigned to accommodate an escalator, a stairway, and an elevator (as described for alternatives 1 and 2). Any redesign would need to ensure that design complemented the present site character.

Similar to alternative 1, discouraging active recreation (such as softball) on the Ellipse would help create a space more suited to passive activities, contributing to the park's formal setting

Special Events. Moving large-scale events to other sites would diminish physical resource impacts, helping protect formal vistas and enhancing the setting. However, eliminating special public events would be somewhat contrary to the intent of early designers who saw this area as a point of public assembly.

Transportation. Closing E Street, thereby removing traffic that has become increasingly intrusive over the last 60 years, and replacing the roadway with wide pedestrian paths, would improve the ambience of this area and help unify the site. These efforts would enhance resource protection and reinforce the original design intent for wide, uninterrupted approaches to the President's House. The appearance of Ellipse Drive would be maintained, with curblines, sidewalks, and other roadway amenities. The absence of traffic noise would complement the formal setting.

Conclusion

Alternative 3 would have perhaps the most positive effects on the cultural landscape of the White House and President's Park by removing surface parking, closing E Street, and relocating special events on the Ellipse to other sites in the city. Without the intrusion of traffic on E Street, the south grounds of the White House and the Ellipse area could be visually linked, unifying President's Park and complementing the formal setting. Relocating special events on the Ellipse to other sites would further reduce visual intrusions. Two commemorative trees on the White House grounds could be damaged or lost as a result of construction.

Impacts on Archeological Resources

Analysis

As described for the other action alternatives, archeological resources would be protected through (1) surveying, testing, and recording resources, (2) preparing a survey for the property, and (3) making the collection available for study by scholars.

Potential impacts on archeological resources under this alternative would result from (1) constructing a 290-space parking facility under Pennsylvania Avenue and a parking garage expansion either under Pennsylvania Avenue or at the Office of Thrift Supervision, (2) potential belowgrade meeting and press facilities in the north courtyard of the Old Executive Office Building, (3) a belowground expansion of the visitor center in the Commerce Building (the same as the proposed plan), (4) four pedestrian and service corridors (a pedestrian corridor for White House tours

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would either extend from the visitor center at the Commerce Building to the Whit Hoiuse Visitor entrance building, or jsut under 15th Street to the Ellipse), and (5) a rerouted steamline (the same as the other alternatives). Any potential impacts could be mitigated through surveys, monitoring, and recordation.

Conclusion

As described for the other action alternatives, ongoing impacts on historic resources in the White House complex caused by inappropriate uses would be relieved by providing new facilities. However' accommodating meeting and news media functions in the interior north courtyard of the Old Executive Office Building, unless entirely belowground, would interfere with the original design of this national historic landmark, constituting an adverse effect that could not be mitigated. Any effects on the integrity of the building with the development of an underground facility would have to mitigated through design.

Impacts on Fine and Decorative Arts

Providing proper emergency storage and stabilization facilities would help ensure the protection of the museum collection. This facility would also allow some pieces to be kept onsite, reducing the potential for damage during shipment.

Natural Resources

As described for the other action alternatives, the construction of belowground facilities could affect and be affected by subsoil and groundwater conditions. Appendix E lists the proposed construction method (cut/cover or tunneling) for each such structure. Vegetation and soil mitigation measures that would be employed during construction to protect vegetation are outlined in the "Mitigating Measures" section.

Also as described for the other action alternatives, many of the proposed actions have only been conceptually designed. When final designs were undertaken (once a proposed plan has been approved and funding acquired), an environmental assessment would be conducted in order to (1) analyze site-specific impacts, (2) ensure that all facilities and design details are in concurrence with the proposals and guidelines presented in this document, and (3) identify measures to minimize or mitigate impacts to all resources and site activities.

Geotechnical Considerations: Subsoils and Groundwater

Geotechnical site constraints and construction issues would be generally the same as those outlined for the proposed plan. The pedestrian corridor from the visitor center to the visitor entrance building at the White House would he of particular concern. As noted for all the alternatives, site-specific investigations would be needed for all underground structures.

Impacts on Water Resources

Impacts on surface and groundwater would be similar to the proposed plan, including the reduction of oil, gas, and other waste contaminants in runoff from surface parking areas around the Ellipse and on West Executive Avenue.

Impacts on Vegetation and Soils

Analysis

As discussed for the action alternatives, vegetation could be changed as a result of constructing underground structures. Trees or shrubs removed or lost during construction would be replaced in kind with stock from an NPS nursery or other cooperating horticultural institutions; however, the plants would likely be smaller than existing vegetation. Some trees would be permanently lost and not replaced. Damage to commemorative trees would be avoided where possible.

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Impacts of Alternative 3: Home and Office of the President

White House Grounds and West Executive Avenue. As described for the other alternatives, constructing an east/west staff circulation corridor from the Old Executive Office Building to the Treasury Building would affect vegetation north of the White House. Constructing a pedestrian corridor from the northside parking facility to the White House complex would result in the loss of nine oaks along the northern end of West Executive Avenue.

Ellipse. Eliminating special events from the Ellipse area would reduce repeated impacts on vegetation and turf caused both by large crowds and the installation of infrastructure. First Amendment events would continue, along with some ongoing damage to soils, turf, and other vegetation.

Relocating the steamline away from the Ellipse would eliminate conditions causing dead turf throughout much of the year.

Sherman Park. A pedestrian corridor from the visitor center to the White House visitor entrance building would be tunneled around Sherman Park to avoid impacts to as many mature willow oaks as possible. Tunneling would also ensure that Sherman Park retained its present appearance. Outside Sherman Park, some oaks and other species along South Executive Avenue and East Executive Park would be removed for the construction of the rest of the pedestrian corridor.

Conclusion

Vegetation and soil impacts would be less under alternative 3 than under the other alternatives. Many Executive Office functions, such as meeting space, staff parking, and general storage, would be provided within existing buildings, and new development would be limited.

Home and Office of the President

Impacts on Executive Residence Operations

Analysis

As described for the other action alternatives, noise from construction and the visibility of construction activities could intrude on peace and quiet for the first family. Measures to minimize disruptions would be identified before any construction was initiated.

Indoor Recreation Space. Approximately 2,400 square feet on the upper and lower levels of the west colonnade would be returned to the use of the first family for recreation, a historical use of this area. The space is directly accessible from the Executive Residence, making it convenient, providing flexibility for future needs, and offering a greater sense of normal living for both children and adults.

Storage. Storage areas would be developed in two locations: an 8,000-square-foot area west of the White House complex in the lower levels of the Office of Thrift Supervision, and a 2,000-square-foot area under West Executive Avenue. Materials and supplies would be stored in the OTS space and transported to Old Executive Office Building and the rest of the White House by way of underground service corridors.

As described for the other alternatives, these storage areas would eliminate the repeated movement of furnishings, equipment, and supplies from offsite locations, as well as continuous security checks as materials are brought into the complex. Compared to other alternatives, storage space at the Office of Thrift Supervision would be less convenient and farther from the Executive Residence, potentially reducing the usefulness of the

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ENVIRONMENTAL CONSEQUENCES

space. However, 2,000 square feet of space under West Executive Avenue could be used to store more frequently used items. Spaces in the White House now used for storage could be returned to more appropriate uses. The proposed storage area would replace existing uses within the basement level of the Office Thrift Supervision. A space utilization study would be undertaken in conjunction with OTS building management to determine where current uses could be relocated.

Public Access. As described for the other alternatives, the various functions associated with the White House would have to be balanced, including meeting presidential needs, providing public tours, and ensuring privacy for the first family. Presidential business or state functions would continue to preclude public access at certain times.

Conclusion

Providing indoor recreation space for the first family in the west colonnade would be desirable because it is private space directly connected and easily accessible to the Executive Residence. As described for the other alternatives, a separate staff circulation corridor would provide additional privacy for the first family. Also, the first family's need for privacy would continue to be balanced with the public's need for access to the White House.

New storage space would increase the efficiency of Executive Residence operations and allow existing space being used for temporary storage to be returned to more appropriate uses. Storage locations in the Office of Thrift Supervision and under West Executive Avenue would not be as convenient or accessible to residence staff and could interfere with other functions such as deliveries because a common corridor would be used.

Impacts on Executive Office Support Services

Analysis

Visitor Arrivals. Arrivals of diplomatic and business visitors and guests to the White House would continue in existing locations. As described for the proposed plan, diplomats and business visitors would also be able to enter the White House complex directly from the northside parking facility.

Meeting/Conference Space. Under this alternative new development within the White House complex would be minimized, and meeting space would be provided in the north courtyard of the Old Executive Office Building. This would make the facility farther from the West Wing, as well as the northside parking facility, and less convenient for staff operations.

Parking. As described for the other alternatives, surface parking would be eliminated. A total of 1,140 parking spaces would be provided by (1 ) constructing a 290-space facility under Pennsylvania Avenue for motorcades, diplomatic and business visitors, senior staff, and some security vehicles, (2) either expanding the northside garage or the garage at the Office of Thrift Supervision by 200 spaces, and (3) either leasing 650 spaces or constructing a new facility for that many vehicles within a 1 0-minute walk of the White House. During the construction of parking facilities, staff parking would be leased offsite.

As described in the proposed plan, two portals into the northside facility would allow for uses to be separated as needed. Motorcades, diplomats, and business visitors could use the West Executive Avenue entrance, while senior staff could use the NEOB entrance.

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Impacts of Alternative 3: Home and Office of the President

Access to an expanded parking facility (either in the two lower levels of the Office of Thrift Supervision or under Pennsylvania Avenue) would be by way of F Street through the Office of Thrift Supervision; cars would exit onto C} Street. (If 200 spaces were added under Pennsylvania Avenue, they would be separate from the 290 spaces for senior staff and motorcades, and they would not be accessible from the New Executive Office Building or West Executive Avenue; a belowground access corridor would be built from the Office of Thrift Supervision.) Traffic constraints on adjacent streets preclude the addition of parking at both locations.

A total of 650 parking spaces would be provided in a new facility nearby or leased offsite. As previously discussed, leased parking is available within a 10-minute walk of the White House complex and is currently being used by the public. Some form of security would be needed for any new facility.

As described for alternative 2, parking in a secure facility would reduce theft and damage that have occurred to cars parked on the Ellipse. Some staff would perceive parking outside President's Park as being farther away and less safe. An expanded northside garage could alleviate some of these concerns because the White House complex would be accessible by way of underground corridors. Using spaces in the Office of Thrift Supervision might also alleviate staff concerns because of its proximity to the Old Executive Office Building. For parking offsite escorts or shuttle services would have to be provided after business hours to ensure staff safety. The use of leased spaces would also allow the number of spaces to be adjusted to fit future needs, whereas no additional surface parking can be provided.

Similar to the other alternatives, providing parking for White House staff (either in leased parking spaces or a new federal facility) would likely increase parking costs for employees beginning the fourth year after the plan is approved. In accordance with current federal policies, parking costs are paid by employees. Monthly leased parking rates for the downtown D.C. area in 1996 averaged $146.

Expanding the parking garage in the Office of Thrift Supervision would result in temporary impacts at this structure as well as on adjacent streets. For the duration of the construction period, approximately 40 OTS parking spaces would be temporarily moved offsite to leased spaces because, depending on the construction technique, the space would be needed for construction vehicle access. The movement of construction vehicles through OTS would affect the current operation of the facility, including occasionally restricting access to the garage. Construction at this site could also require lane closures on adjacent streets. Major utility relocations could also be required for the expansion of the parking garage. Belowgrade walls adjacent to the OTS building have collapsed in the recent past due to excessive water and unstable fill. Any parking expansion would have to address these factors to prevent potential damage to the OTS building.

Deliveries. Deliveries on the west side of the complex would be made through three loading docks at the existing Office of Thrift Supervision, with deliveries throughout the complex handled through an underground service corridor. Such a facility would have the same advantages described under the other alternatives, and it would be about the same distance from the White House as the NEOB facility (as in the proposed plan). Because of the offsite location, additional security measures and staff would be required at the Office of Thrift Supervision. As in all alternatives, some surface deliveries would continue throughout President's Park.

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ENVIRONMENTAL CONSEQUENCES

Providing White House deliveries through the OTS delivery facility would require the docks to be shared with the tenants of the building (the Office of Thrift Supervision, plus a child care center and two restaurants). Currently 350 to 400 deliveries are received each month. A distribution/capacity study for deliveries would be undertaken to determine how additional deliveries could be handled between the docks and the first lower level. Additional modifications to the building could be required to increase delivery capacity.

Staff Functions. As described for the other alternatives, providing underground pedestrian and service corridors would reduce conflicts with other activities and eliminate the need to use the ground floor of the White House as an access corridor. Providing better information and orientation for visitors as they enter President's Park would reduce the time spent by personnel at the gatehouses answering questions.

Conclusion

As described for the other action alternatives, new facilities for meetings, parking, deliveries, and staff circulation would benefit Executive Office support functions by meeting current and future needs, while protecting and preserving significant cultural resources. A total of 1,140 replacement parking spaces would be provided. The location of facilities? unless noted below, would not affect the type or magnitude of the beneficial impact.

* Meeting space would be farther from the West Wing.

* As described for the proposed plan and alternative 1, 290 spaces would be provided under Pennsylvania Avenue for motorcades, diplomatic and business visitors, and senior staff. Staff parking for an additional X50 vehicles would be provided by (1) adding 200 parking spaces either under Pennsylvania Avenue (with access by way of a tunnel from the Office of Thrift Supervision) or at the Office of Thrift Supervision, and (2) providing 650 other spaces within a 10 minute walk of the White House complex, either in leased facilities or a new federal parking garage. Offsite spaces could be perceived as being farther away and less safe.

* Deliveries through the Office of Thrift Supervision would require additional security measures.

News Media Facilities

Analysis

Approximately 10,900 square feet of media space would be provided in the Old Executive Office Building, with all amenities provided in the other alternatives, including presidential briefing space, storage, work space, and modern infrastructure. As described for the proposed plan, providing adequate space for the media would eliminate overcrowding and safety problems. However, this location would lengthen the access route to the press secretary in the West Wing.

Conclusion

News media facilities in the Old Executive Office Building would be farther from the West Wing than under the other alternatives, lengthening the access route to the White House press secretary in the West Wing.

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Impacts of Alternative 3: Visitor Experience

Visitor Experience

As described for the other action alternatives, the overall experience for visitors to the White House and President's Park would be improved as a result of implementing the Design Guidelines, which would help ensure that all parts of President's Park are perceived of as a unit.

Impacts on Diplomatic and Business Visitors

Diplomatic and business visitors to the White House would 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 of vehicles being parked on the surface. Visitors could continue to enter the West Wing on the surface, while their vehicles would be parked underground. An underground entrance on West Executive Avenue would be used primarily by business visitors and persons attending conferences.

Impacts on Public Visitors

Analysis

Initial Impressions. As described for the other alternatives, pedestrian entryways to President's Park 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. A future tour bus management plan would provide offsite tour bus parking, thus eliminating bus noise and air pollution, and opening up sight lines to the White House.

For visitors on the south side of the site, closing E Street and creating wide pedestrian paths would unite the Ellipse area with the White House grounds and the rest of President's Park. Views of the south side of the White House from automobiles and tour buses on E Street would be eliminated and would only be available from Constitution Avenue.

Information/Orientation. Pedestrian entryways would be equipped with facilities to orient and inform the public. As described for the other alternatives, entryways on the north and east sides of President's Park would be able to meet the needs of the highest numbers of users. Signs, brochures, and other orientation materials, including information in other languages, would be easily available to visitors to enhance their overall experience.

Visitor Center. As described for the proposed plan, the visitor experience would be improved by expanding the visitor center in the Commerce Building, with full information/ orientation services, educational/interpretive opportunities, ticketing and staging for White House tours, personal visitor services, and White House Historical Association sales of educational materials. An indoor location for most activities would protect visitors from inclement weather while they waited for their tours.

Interpretation and Education. Interpretive and educational opportunities for visitors would be focused at the visitor center, with few outdoor exhibits. Specialized programs about various site resources would be offered, along with offsite interpretive programs.

Visitor center museum displays would allow visitors to learn more about the history of the White House and President's Park and to see exhibits of items from the White House collection. Visitor understanding of the history of the site could be improved by displaying and interpreting archeological artifacts recovered from the site.

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ENVIRONMENTAL CONSEQUENCES

White House Tours. Similar to the other alternatives, visitors would pick up free tour tickets indoors at the visitor center. Future means to allow visitors to make tour arrangements in advance would give visitors greater flexibility in arranging to take White House tours.

After seeing an orientation film visitors would either use a pedestrian tunnel beneath 15th Street to the Ellipse and then walk to the White House visitor entrance building, or they would pass through a well-lit, secure, belowground corridor with moving walkways directly to the visitor entrance building. The abovegrade option would allow visitors to catch glimpses of the White House as they made their way to the entrance building, as they do now, but they would continue to be exposed to inclement weather while waiting to enter the White House. In a belowground corridor visitors would use two moving walkways that would take about three minutes to get to the visitor entrance building, representing a significant reduction in the time people wait to enter the White House. Video monitors linked to surface cameras along the route would help orient visitors as they approached the entrance building, providing an experience similar to walking toward the White House on the surface. This corridor would also protect visitors during poor weather.

Public Amenities. No commercial vending would be allowed on the sidewalks or curb lanes immediately adjacent to President's Park. Local restaurants in adjoining areas would be encouraged to provide food service. As described for alternative 1, site amenities would be provided throughout the park, but they would be limited to water fountains, benches' and trash receptacles.

Conclusion

Similar to the other alternatives, the experience of visitors coming to the White House and President's Park would be substantially improved. Visitors would be more aware of entering a special, historic district. Closing E Street and creating wide pedestrian paths would unite the Ellipse area with the White House grounds and the rest of President's Park, allowing visitors to appreciate the original design intent. Visitor information would be more readily available, White House public tour procedures would be more efficient, and educational opportunities to learn about the history of the site and the presidency would be expanded by providing a museum function at the visitor center.

Impacts on Pedestrians

Within President's Park pedestrians would be able to move with relative ease through Lafayette Park, East Executive Park, and the Ellipse area without interference from traffic or the clutter of parked cars. (Only delivery and official use vehicles would be allowed in these areas.) E Street would be replaced with wide pedestrian walkways that would connect Sherman Park, the First Division Monument, and the Ellipse. West Executive Avenue would remain restricted to public access. As described for the proposed plan and alternative 1, a portal to the northside 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.

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Impacts of Alternative 3: 2 Special Events

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 would be provided.

Noise Impacts

Analysis

Noise impacts on visitors, as well as workers in nearby buildings, would be primarily related to construction and the operation of mechanical equipment for underground facilities, as described fur the other alternatives. Noise levels along E Street midway between 15th and 17th Streets (where visitors often stand to view the White House) would be lower than existing levels due to the closure of E Street to traffic. Compared to the other alternatives, noise on E Street east and west of President's Park would also be reduced.

Under alternative 3 pedestrians and occupants of nearby buildings (the Old Executive Office Building, the New Executive Office Building, the Office of Thrift Supervision, buildings on Pennsylvania Avenue west of Lafayette Park, and the Commerce Building) could hear construction noise. As described for the other alternatives, prior to each stage of construction, potentially affected parties would be notified, and measures to mitigate noise impacts would be included in contractor specifications. Design considerations for mechanical systems could address any additional noise intrusions.

Conclusion

With the closure of E Street, noise impacts in the center of President's Park south of the White House would be reduced, similar to alternative 2, but noise would also be reduced east and west of the park. New noise sources resulting from the operation of mechanical equipment for underground facilities would be addressed as described in the proposed plan.

Special Events

There would be no changes to the location and type of First Amendment demonstrations. No impacts on presidential inaugural parades are anticipated because any work under Pennsylvania Avenue would be finished before any future inaugural.

Impacts on Public Events

Analysis

Under alternative 3 all public special events would be removed from the Ellipse. This action would cause major changes for all event organizers who stage events on the Ellipse, particularly annual events such as the Pageant of Peace. Many events might be moved to the National Mall or to other sites within the metropolitan area; as new sites were selected, further evaluation, potentially including compliance with the National Environmental Policy Act, could be required. Without a physical connection to the White House, some events might not be viable at another location.

Removing the Pageant of Peace from the Ellipse would break the event's historical association with the president and the White House. Even though the pageant would be moved, the president and first family could still participate in the program.

Conclusion

Removing special events from the Ellipse (other than First Amendment demonstrations)

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ENVIRONMENTAL CONSEQUENCES

would cause major changes for all event organizers. Without a physical connection to the White House, some events might not be viable at another location.

Impacts on White House Events

Analysis

As described for the proposed plan, events on the White House grounds could be more efficiently staged as a result of onsite storage space, upgraded infrastructure, and the ability to use the visitor center to stage special tours.

The egg roll would continue on the Monday after Easter; however, all activities would take place on the White House grounds and would not extend to the Ellipse. Conditions on the south lawn would be quite crowded during the event.

Conclusion

Impacts would be similar to those for the proposed plan except all activities associated with the egg roll would take place on the White House grounds and would not extend to the Ellipse.

Transportation

Impacts on Access and Circulation

Analysis

Access to the White House Complex. For diplomatic and business visitors to the White House complex, access would be limited to one entrance, by way of 17th Street and State Place. In general, access would not be provided from the Ellipse, which would be closed to traffic except for official and emergency vehicles.

Access to the 290-space parking facility under Pennsylvania Avenue would be by H Street through the NEOB parking garage entrance or from West Executive Avenue by way of 17th Street to State Place; the removal of E Street would eliminate this roadway as another way of access. Vehicles entering by way of West Executive Avenue would compound existing traffic problems at the intersection of 17th Street / State Place / New York Avenue, which operates either at or over capacity during morning and afternoon rush hours. This alternative would only add to existing problems at this intersection because State Place would have to operate as a two-way street, adding turn movements from 17th Street that are not currently allowed. This impact could not be mitigated and would be more severe than under the proposed plan (where State Place would operate as one way westbound). As described in the proposed plan, access by way of the New Executive Office Building should be limited to less than 100 vehicles during the morning peak hour to ensure an LOS E on H Street was not exceeded.

Access to 200 additional staff parking spaces in either the northside garage or the Office of Thrift Supervision would be from F Street, with traffic exiting onto G Street (access to parking under Pennsylvania Avenue would be by means of a tunnel from the OTS garage). F and G Streets, which operate as a one-way pair (F Street eastbound, G Street westbound)' both have four travel lanes and operate under capacity during weekday peak periods. This alternative would add 120 vehicles during the morning and afternoon rush hours, assuming that not all staff would arrive and leave at the same time. Each street appears to have adequate capacity to accommodate this new traffic, with little or no change in operating conditions.

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Impacts of Alternative 3: Transportation

Deliveries. Deliveries to the White House complex would be made through the street level loading docks at the Office of Thrift Supervision, with access from F Street.

E Street. E Street would be permanently closed to general traffic between 15th and 17th Streets under alternative 3. This closure would divert 12,000 vehicles per day to other eastbound streets in the downtown area. Currently, H. K, and L Streets operate either close to or at capacity during the morning peak and midday periods; during the afternoon peak period, all of these streets operate either at or over capacity. I Street operates over capacity during the morning and afternoon peak hours. Constitution Avenue is the only east-west street that consistently operates at acceptable levels of service throughout the day. Any traffic diversion to the east-west streets would compound existing problems throughout most of this area.

During arrival ceremonies for foreign heads of state, as many as 23 buses have double parked along E Street to provide personnel for the ceremonies. These buses could either continue to park on the pedestrian pathways on the Ellipse or move to Constitution Avenue during the event. In the latter case, the loss of traffic lanes on Constitution Avenue would compound traffic problems on this street.

Conclusion

Access to the northside parking garage would be from 17th Street and State Place to West Executive Avenue and from H Street through the NEOB garage. 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 State Place because E Street would be closed. Existing traffic problems would be exacerbated at the 17th Street / New York Avenue / State Place intersection, which already operates either at or over capacity. Access to additional parking by way of the Office of Thrift Supervision would be through existing portals onto streets with adequate capacity to handle the additional traffic.

Closing and removing E Street would result in 12,000 eastbound vehicles per day being diverted to other east/west streets, which would compound existing traffic problems in this area during peak periods.

Impacts on Public Parking

As described for the proposed plan, 103 on street, short-term parking spaces would be eliminated, plus 506 spaces within President's Park that are currently available to the public during evenings or weekend days, further constraining the limited on-street parking supply in this area.

Impacts on Public Transit

None of the Metrobus routes are located on E Street between 15th and 17th Streets, so there would be no effect from closing E Street. As described for the proposed plan, neither Metrorail stations nor lines would be affected.

Impacts on Tour Buses

A future citywide tour bus management plan, which would be developed in cooperation with the District and National Capital Planning Commission, would identify offsite parking locations. Existing short-term tour bus parking would be eliminated in President's Park. Impacts associated with dropoff and pickup points for tour bus passengers would be analyzed when these sites were selected.

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ENVIRONMENTAL CONSEQUENCES

As described for alternative 2, the closure of E Street would prevent tour bus operators from offering drive-by views of the south side of the White House and its grounds.

Impacts on the Tourmobile

Closing E Street and Ellipse Drive to general traffic would require the existing Tourmobile route to be changed and a stop for the visitor center at the Commerce Building identified. One alternative route under this alternative would be for the Tourmobile to turn north from Constitution Avenue to 17th Street, east on H Street, south on 15th Street, and back to Constitution Avenue. Service would be affected because any future route would be in general traffic and would not have the existing dedicated loading area.

Impacts on Bicyclists

The closure of E Street and the Ellipse roadways to general traffic would improve safety for bicyclists, who would likely continue to have access to surface paths.

Socioeconomic Environment

Impacts on D.C. Revenues

Analysis

Parking Meter Revenue. The effect on D.C. parking meter revenues would be the same as for the proposed plan: a total of 37 metered parking spaces would be removed, resulting in a loss of $70,328 per year for metered and time-limited spaces, plus $100,116 in ticket revenues, for a total loss of $170,444. Over the 20-year life of the plan, total revenue losses would amount to $3.4 million.

Leased Parking Revenue. Under alternative 3 a total of 650 parking spaces for White House staff would either be leased in private parking garages or provided in a new parking structure within a 10-minute walk of the White House. If spaces were leased from private operators, the estimated loss in D.C. parking tax revenue would be $189,521 in the fourth year of the plan, and $4.5 million over the 20-year life of the plan (see table 27).

TABLE 27:
PROJECTED D.C. REVENUE LOSSES FROM
LEASED PARKING TAXES
ALTERNATIVE 3
. Space/Month 650 Spaces per Year
D.C. Lease Tax Revenue Loss
Year 4
* Market rate $202.48 $1,579,344
Tax loss at 12% $24.30 189,521
Years 4-20
* Total tax loss $4,491,084
SOURCE: General Services Administration; BRW, Inc.
NOTE: Based on 650 leased spaces, with leasing beginning the fourth year of the plan. Costs are inflated by 4% annually

Property Tax. One option to leasing the 650 permit parking spaces would be to construct a new 650-space parking facility within a 10 minute walk of the White House. It is assumed that this four-level parking facility is 200,300 square feet, with a footprint of 52,500 square feet of land. Using a current estimate of $ 100 to $ 120 per square foot, the property value of a 200,300-square-foot building ranges from $20 million to $24 million.

Assessed values for commercial property are required to be at 100% of current market value. Therefore, the property tax losses to the District can be estimated by multiplying the estimated property value by the current tax rate for commercial property. The current assessed value for the property would be equal to the land acquisition costs. Based on a current tax rate of $2.15 per $ 100, the property tax losses are estimated to be $430,645 to $516,770 for 200,300 square feet of commercial development (see table 28).


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Impacts of Alternative 3: Socioeconomic Environment

TABLE 28:
PROJECTED D.C. PROPERTY TAX LOSSES
ALTERNATIVE 3
Size 200,300 sq. ft.  
Value $100-$120/sq. ft.  
Tax Rate $2.15/$100  
Annual Tax Loss $430,645-$516,770  
SOURCE: BRW.  

Vendor Revenue. Impacts on vendor revenues would be the same as under the proposed plan. Unless vendors were relocated to other spaces in the downtown area, D.C. revenues could be reduced by $42,068 annually and by $841,360 over the 20-year life of the plan.

Conclusion

Annual D.C. revenue losses by the fourth year of the plan would total an estimated $402,033 from parking meters, parking violations, leased parking taxes, and vendor licenses and sales taxes. Over the 20-year life of the plan, the total estimated loss could be $8.7 million, compared to $ 10.1 million under the proposed plan. If vendors were located to another area, these impacts would not be as great.

If 650 replacement parking spaces were provided in a new federal facility rather than being leased, annual D.C. revenues would be reduced between $643,157 and $729,282.

Impacts on Vendors

As described for the other alternatives, removing 26 vendor spaces adjacent to President's Park could result in annual losses of $14.2 million in business volume and $1.4 million in profits for the affected vendors. Over the 20 year life of the plan, the loss of profits would total an estimated $28.5 million in constant dollar terms. However, if vendors were relocated to other spaces in the downtown area, this impact would not be as great.

Impacts on Local Businesses

Analysis

The local business impacts associated with the removal of 50 time-limited and metered parking spaces on 17th Street and of Ellipse spaces after hours and on weekends would be the same as for the proposed plan.

The impacts of the reduction in 650 leased parking spaces on area businesses is difficult to measure. A 1996 informal field survey by GSA personnel indicated a total of 4,500 spaces in 26 public parking garages in the area. The federal lease of 650 spaces, which would represent 14% of the public parking spaces within a 10-minute walk of the study area, could have an impact on the overall attractiveness of these buildings for the private rental market. If the 650 offsite spaces were provided in a new federal structure rather than being leased from private operators, there would be no reduction in the parking supply for local businesses.

The closure of E Street would create additional traffic congestion during the morning peak period, which could diminish the attractiveness of downtown office space.

Conclusion

Impacts to local businesses related to the loss of 50 on-street, metered and time-limited parking spaces would be the same as the proposed plan. Leasing 650 parking spaces for employees would result in a 14% reduction of

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ENVIRONMENTAL CONSEQUENCES

public parking within one to two blocks of the study area (slightly less than alternative 2). Alternatively, a federal parking structure offsite would affect the leased parking supply. Additional traffic congestion as a result of E Street being closed could make nearby office space less attractive to tenants.

Construction and Operation Impacts

Analysis

Construction Impacts. l he construction budget for alternative 3 is estimated to be approximately $219.6 million (which includes a pedestrian corridor directly from the visitor center to the White House visitor entrance building, but not a new offsite parking garage). As described for the other alternatives, construction would take place in four 5 year phases over a 20-year period, with the construction impacts estimated to occur in equal increments by year within each phase.

Direct and indirect effects on jobs and earnings in the metropolitan area and the District of Columbia are shown in table 29. Based on standard regional input/output modeling system multipliers, overall construction-related employment would range from 105 to 441 direct and indirect jobs per phase in the metropolitan area, and from 21 to 87 in the District. Overall earnings are estimated to range from $2.4 million to $10.3 million for the metropolitan area, and $500,000 to $2.3 million for the District. (The greatest impacts would be created during the first and second five-year phases, when parking was provided for 490 employees and the visitor center was remodeled and expanded.) As explained for the other alternatives, the District could increase direct employment and earnings by requiring that a certain percentage of jobs be filled by D.C. residents.]

Table 29:
Construction Impacts
Alternative 3
. 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 200 $5.1 198 $5.0 151 $3.8 48 $1.2
Indirect Jobs 241 5.2 240 5.2 182 3.9 57 1.2
Total Jobs 441 $10.3 438 $10.2 333 $7.7 105 $2.4
District
Direct Jobs 70 $1.8 69 $1.7 53 $1.3 17 $0.4
Indirect Jobs 17 0.5 17 0.5 13 0.4 4 0.1
Total Jobs 87 $2.3 86 $2.2 66 $1.7 21 $0.5
Total Construction Value per Phase** $73.3 $73.2 $55.3 $17.6
Total Construction Value per Year $14.7 $14.6 $11.1 $3.5
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 = $271.8 million (With construction of a belowground corridor from the visitor ceter to the White House visitor entrance building; does not include a new offsite parking garage; See appendix E).

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Impacts of Alternative 3: Site Management and Operations

 

Long-Term Impacts. No significant gains in long-term employment are anticipated under alternative 3. The visitor center could increase employment by one or two jobs due to the proposed expansion.

Conclusion

Estimated construction costs for alternative 3 would total approximately $219.6 million over the 20-year life of the plan. As described for the other action alternatives, other than the creation of short-term, construction-related jobs throughout the life of the plan, there would be no significant gains in long-term employment.

Site Management and Operations

Impacts on Site Operations

As described for the proposed plan, site operations would continue to be affected by visitor arrivals for special events or ceremonial functions because of the additional human resources required. Additional staff could be required to implement proposed actions, including landscape maintenance and visitor center operations. As described for the other alternatives, a comprehensive landscape management plan would help ensure a consistent level of maintenance for all areas of President's Park.

Impacts on Maintenance

Moving special events out of the Ellipse area would reduce staff time spent rehabilitating disturbed turf and garden areas. However, this impact could be transferred to another NPS administrative division if events were moved to the National Mall, where the Park Service would continue to be responsible for maintenance activities.

As described for alternative 2, the development of a nearby satellite maintenance facility would provide additional equipment and storage needs. Present travel times would be reduced; however, workers would still have to drive from the facility to the work site.

Closing E Street to vehicle traffic would allow the Ellipse to be more closely tied with the rest of President's Park. Creating more informal garden areas on the Ellipse, as described for the other action alternatives' would increase site maintenance activities. However, the absence of traffic on E Street and improved infrastructure and nearby maintenance facilities would enhance operations.

Impacts on Utilities

Analysis

Utility impacts under alternative 3 would be related to a 290-space parking garage beneath Pennsylvania Avenue, providing 200 additional spaces either at the Office of Thrift Supervision or under Pennsylvania Avenue, and belowgrade pedestrian/service corridors from the Old Executive Office Building to the Treasury Building, a tunnel beneath 17th Street from the Office of Thrift Supervision to the Old Executive Office Building, and a belowground pedestrian corridor from the existing visitor center to the visitor entrance building (option 1 ) or a 15th Street underpass (option 2).

When design development for underground structures was started, onsite utility surveys would be conducted to precisely identify

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ENVIRONMENTAL CONSEQUENCES

utility locations. Discussions with utility owners and the District of Columbia would also be initiated to determine relocation plans and costs.

Public Utilities. Impacts on electric lines, gaslines, and telephone lines beneath Pennsylvania Avenue and other locations as a result of underground construction would be the same as under the proposed plan. In addition, proposed vehicular and pedestrian service corridors under 17th Street from the Office of Thrift Supervision would cross an 1 X-conduit telephone line, 1 8-conduit and 1 2-conduit electric ductbanks, and an 8 " gasline. It might be possible to leave these lines alone if a boring technique was used under the street section. Otherwise the lines would need to be temporarily supported or relocated.

Waterlines. Impacts on a 12" waterline along Pennsylvania Avenue and a 24" waterline along E Street would be similar to those described for the proposed plan. These lines would probably require temporary support or relocation during construction. However, if the 15th Street underpass for visitor access to the Ellipse and the White House was selected instead of a tunnel to the visitor entrance building, any impact to the 24" waterline discussed under the proposed plan would be avoided. Constructing a pedestrian tunnel from the visitor center to the White House visitor entrance building and crossing under Hamilton Place and East Executive Park could affect a waterline. The proposed delivery tunnel from the Office of Thrift Supervision under 17th Street could affect a 6" waterline in the street. These impacts would be fairly insignificant and could be mitigated during the final design at a moderate cost.

Sewers. Impacts on sewers (particularly the 9'8" sewer beneath the Ellipse) would be similar to the proposed plan. However, a 15th Street pedestrian underpass from the visitor center to the Ellipse would avoid any impact on this sewer. Two sewers (approximately 30", x 42") within 17th Street could be affected by expanding the OTS parking facility and constructing an access tunnel to the Old Executive Office Building, or by the constructing a vehicular tunnel between the Office of Thrift Supervision and a northside garage expansion. Further information and coordination between the tunnel alignments/ depths and sewer depths is needed to develop the optimal solutions.

Other sewer conflicts include a 21" storm sewer in 15th Street, which would conflict with the visitor center corridor; a 27" x 45"' sewer in Pennsylvania Avenue, which would conflict with the delivery corridor; and an 18 " storm sewer beneath Jackson Place, which would conflict with the parking garage. These smaller diameter sewers could probably remain in place after construction but would need to be temporarily supported or relocated during construction. The construction materials for these sewers is unknown, although tunneling under them might be possible. Additional coordination and design information would be necessary to define impacts.

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

Conclusion

Impacts would be similar to those described for the proposed plan: electric, gas, telephone, and water services under Pennsylvania Avenue would be bored beneath or temporarily relocated during construction of the northside parking garage and pedestrian corridors. Sewers under 17th Street, E Street, and the Ellipse would also require relocation, potentially including the 9'8" combined

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Impacts of Alternative 3: Cumulative Impacts

storm/sanitary sewer under the Ellipse and Sherman Park.

Irreversible and Irretrievable Commitments of Resources

As described for the other alternatives, this alternative would result in commitments of a range of natural, physical, human, and fiscal resources. Land used for the construction of proposed facilities would be irreversibly committed during the period a facility was in place. 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. The one-time expenditure of public funds would not be retrievable.

Construction activities, particularly on the north grounds, could result in the irretrievable loss of commemorative trees associated with particular presidents.

The Relationship of Short-term Uses of the Environment and the
Maintenance and Enhancement of Long-term Productivity

As described for the proposed plan, short-term disruptions to vistas, White House traffic, pedestrian movements, the visitor experience, and site operations (such as deliveries) would occur as underground facilities were built throughout the White House complex and President's Park. However, the completed facilities would improve all these functions over the long term, as well as overall visual quality. Experiences for pedestrians and visitors would be improved, and White House complex operations would be enhanced. At no time would important functions necessary to executive operations of the government be impeded.

Cumulative Impacts

Future changes at existing sites within the Memorial Core, the addition of new sites, and improvements in transit systems and parking options would help enhance the visitor experience. A positive visitor experience would also benefit the city because visitors would be more likely to return in the future or encourage others to visit.

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ENVIRONMENTAL CONSEQUENCES

Relationship to Other Plans and Efforts

The actions in alternative 3, similar to those in alternative 2 would generally promote the objectives and elements of the plans listed in the "Relationship of this Document to Other Plans and Efforts." Closing E Street to general traffic would provide the same benefits as listed for the alternative 2 tunnel.

Removing special events from President's Park would not support the visitor programs and special events element of the Comprehensive Plan for the National Capital. Rather than an active area for visitors and residents, President's Park would provide a quieter experience. Elements of the Comprehensive Plan Amendments Act of 1994 and the 1997 Transportation Plan would also support components of this alternative. Improved Metrorail hours and outlying parking as a result of a D.C. transportation plan would help meet White House staff and visitor needs. Vendors would be removed from the park, which would be in conflict with some D.C. goals.

Alternative 3 would address the pedestrian and transit policies as discussed in detail for the proposed plan. D.C. policies to reduce pedestrian and vehicle conflicts and to improve pedestrian movements would be complemented by providing a visitor center underpass of 15th Street or a visitor pedestrian tunnel from the visitor center to the White House and by closing E Street.

Closing E Street to general traffic would not be consistent with NCPC's Extending the Legacy plan, which identifies E Street as functioning as a secondary connector (NCPC 1996). Long term leased parking for white House staff could further constrain available short-term and business patron parking in public garages. This effect would continue beyond the life of the plan.

All NPS planning initiatives would be supported.

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Comprehensive Design Plan Continued