South Capitol Street Corridor And Frederick Douglass Memorial Bridge .
Executive Director’s RecommendationCommission Meeting: February 7, 2019PROJECTNCPC FILE NUMBERSouth Capitol Street Corridor andFrederick Douglass Memorial BridgeProject Landscape DesignSouthwest and Southeast Quadrants of theDistrict of Columbia from I-295 SuitlandParkway Interchange to P StreetWashington, DC7529SUBMITTED BYDistrict of Columbia Department ofTransportationREVIEW AUTHORITYDistrict Projects Outside the Central Areaper 40 U.S.C. § 8722(b)(1)NCPC MAP FILE NUMBER8.10(38.00)44859APPLICANT’S REQUESTApprove final site developmentplansPROPOSED ACTIONApprove final site developmentplans with commentsACTION ITEM TYPEStaff PresentationPROJECT SUMMARYThe District Department of Transportation (DDOT) has submitted the final site development plansfor the proposed landscape design for the South Capitol Street Corridor. The project includes thereplacement of the Frederick Douglass Memorial Bridge, rehabilitation of several parks along withthe I-295 Interchange, and the development of new open spaces (“the ovals and esplanades”) onboth sides of the bridge. The Commission reviewed and approved the preliminary and final plansfor the bridge at the April 2018 meeting. In July 2018, the Commission approved the preliminarysite development plans for the landscape design, with additional comments to be considered priorto the final review. DDOT has since updated the landscape design.The new triple-arched Frederick Douglass Memorial Bridge will include six travel lanes forvehicles, a dedicated bike path, a pedestrian path, and four overlooks. The east and west ovals willconnect to esplanades on both sides of the Anacostia River via pedestrian and bicycle paths. Theovals, esplanades, and adjacent open spaces are the focus of this review. NCPC staff havecoordinated with DDOT, the District of Columbia State Historic Preservation Office (DCSHPO)and the U.S. Commission of Fine Arts (CFA) on the design of the bridge and the ovals over thelast several years.KEY INFORMATION The proposal includes the replacement of the Frederick Douglass Memorial Bridge, therehabilitation of several parks along with the I-295 Interchange, the development of two newopen spaces (“the ovals”) that will serve as gateways on both sides of the bridge, and thecreation of esplanades that connect to the Anacostia River.
Executive Director’s RecommendationNCPC File No. 7529Page 2 These ovals will be part of the gateway sequence to the downtown, the U.S. Capitol and theneighborhoods on both sides of the Anacostia River for both foreign dignitaries arriving atJoint Base Andrews as well as District residents and visitors. There is significant local and federal interest in the project because of its location on axis withthe U.S. Capitol and its connection to neighborhoods on both sides of the Anacostia River thatare undergoing major transformations. Over the past 20 years, NCPC and the District government have developed several plans andstudies, contemplating a new vision and uses for the South Capitol corridor. These plansinclude: Extending the Legacy; the Memorials and Museums Master Plan; the AnacostiaWaterfront Initiative; and the South Capitol Street Land Use Study. The District of Columbia controls the land that comprises the east and west ovals. It is underthe jurisdiction of DDOT. In 2014, DDOT developed an Aesthetic Review Committee (ARC) that consisted of arepresentative from the U.S. Commission of Fine Arts (CFA), the District of Columbia StateHistoric Preservation Office (DC SHPO) and the National Capital Planning Commission toconsult on the project during the request for proposal process. DDOT and the ARC jointly developed 15 overarching goals to guide the design anddevelopment of the project as a significant gateway into the city. NCPC reviewed the proposed bridge design as a concept in November 2013 and approved thepreliminary and final plans for the bridge in April 2018. The Commission approved thepreliminary site development plans for the landscape design in July 2018, with comments tobe considered prior to the final review. CFA reviewed and gave final approval to the proposed corridor improvements and landscapedesign at its November 15, 2018 meeting, with final comments to be addressed in coordinationwith staff.RECOMMENDATIONThe Commission:Approves the final site development plans for the South Capitol Street Corridor landscape and siteimprovements.East OvalNotes the applicant has identified opportunities for interpretation and programming that can serveas an amenity to the surrounding community.
Executive Director’s RecommendationNCPC File No. 7529Page 3Requests that the District continue to coordinate with the National Park Service regarding the useof any adjacent federal lands, including Poplar Point, for events and other activities.West OvalNotes that additional trees and plantings have been added at the southern end of the oval toterminate the view of South Capitol Street, and help frame the view of the new bridge, per theCommission’s previous request.Supports retaining the center of the oval as an open lawn with views toward the U.S. CapitolBuilding, and as a potential site for a future memorial or art element.Other ElementsFinds that DDOT has provided additional information regarding lighting, signage andinterpretation, consistent with the Commission’s previous request.Recommends DDOT further evaluate the proposed lighting for the ovals and esplanades to ensurethat illumination levels are appropriate for pedestrian movement and safety, while considering thesetting and surrounding context.Notes white architectural lighting is appropriate for illuminating the bridge at night, and DDOTshould continue to work with Commission staff, the U.S. Commission of Fine Arts, the NationalPark Service, and other relevant stakeholders regarding any temporary lighting displays.Notes that if any changes are made to the Frederick Douglass Bridge or landscape design, theyshould be submitted to the Commission for review.PROJECT REVIEW TIMELINEPrevious actionsNovember 2013 – Comments on concept designApril 2018 – Approval of preliminary and final bridge design,and comments on concept design for corridor improvementsJuly 2018 – Approval of preliminary site development plans forcorridor improvements and landscapeRemaining actions(anticipated)– None
Executive Director’s RecommendationNCPC File No. 7529Page 4PROJECT ANALYSISExecutive SummaryAs a direct axial extension from the U.S. Capitol, South Capitol Street is one of the most importantviewsheds in the city. After crossing the Anacostia River, it connects to Suitland Parkway, whichwas originally constructed in the mid-1940s to provide a connection between Andrews Air ForceBase and Washington, DC. Today, South Capitol Street provides an important connection forvisitors, residents and commuters. It also represents a foundational element in the recent andcurrent revival occurring along the Anacostia River Waterfront, serving both as an anchor to thesouthern end of South Capitol Street and as a gateway for rapidly changing areas on both sides ofthe river. As such, the South Capitol Street Corridor is both a symbolic gateway and home to oneof the fastest growing, high-density neighborhoods in the District.The project includes two major components: the Frederick Douglass Memorial Bridge and theSouth Capitol Street corridor improvements. The Commission reviewed and approved thepreliminary and final plans for the bridge at the April 2018 meeting. The Commission approvedthe preliminary site development plans for the corridor landscape improvements, including the twoovals, esplanades, and the I-295/Suitland Parkway interchange, in July 2018. Staff’s analysisfocuses on the Commission’s previous comments and the changes to the design that have occurredsince the last review.AnalysisThe District Department of Transportation submission is comprised of several components thatinclude the Frederick Douglass Memorial Bridge, two traffic ovals owned by the District on bothsides of the bridge, and landscape improvements from the east oval south to the I-295/SuitlandParkway interchange. The Commission reviewed and approved the preliminary and final plans forthe bridge at its April 2018 meeting. The current submission focuses on the site and landscapeimprovements associated with the South Capitol Street corridor, and changes to the design thathave occurred since the preliminary review in July 2018.Frederick Douglass BridgeAs a reminder, the bridge design consists of a triple-arched form and includes six travel lanes forvehicles, a dedicated bike path, a pedestrian path, and four overlooks. The bridge has been thesubject of numerous consultations and agency discussions, and if any changes to the design areproposed, they will need to be submitted to the Commission for review.In July 2018, the Commission also reviewed the pedestrian and bicycle circulation on andapproaching the bridge. Several other comparable bridges were also reviewed. As a result of thatdiscussion, the Commission requested that, after the bridge is completed and in use, DDOTevaluate whether changes to pedestrian and bicycle operations are necessary, and further thatDDOT report back to the Commission on this issue at that time. Regarding access to the ovals,
Executive Director’s RecommendationNCPC File No. 7529Page 5DDOT has indicated that all pedestrian crossing are signalized and signal timing will accommodateaccess to these open spaces. Additional unsignalized crossings were not found to be safe orfeasible.East Oval and EsplanadeThe proposed ovals, bridge, and esplanades create an experiential sequence for travelers, residentsand visitors entering and departing the Monumental Core, while connecting neighborhoods onboth sides of the Anacostia River. The eastern oval, located east of the Anacostia River is designedas a more passive space with natural plantings. For diplomats arriving at Joint Base Andrews andfor District residents entering downtown, the east oval is the first opportunity in the sequence ofpark spaces that frame the bridge and mark the entrance of the South Capitol Street gateway to theU.S. Capitol. In addition, as one travels southbound on South Capitol Street, the east oval willserve as the gateway into Anacostia, one of the District’s most historic neighborhoods.The east oval is generally surrounded by open spaces and low-density development as it bordersPoplar Point/Anacostia Park owned by the National Park Service (NPS) and Joint Base AnacostiaBolling. Portions of Poplar Point and nearby Howard Road could redevelop in the future, althoughthe general setting will likely remain more open as compared to the high-density developmentoccurring around the west oval. As such, the setting of the east oval could provide an opportunityto develop a larger-scale local memorial or public art to create a more dramatic gateway to thebridge and South Capitol Street corridor. In this location, it would not compete directly with viewsof the U.S. Capitol, and could provide a gateway to Anacostia. A gateway element, futurememorial or public art installation could be appropriate for the site.The Commission previously recommended the applicant consider additional opportunities forinterpretation and programming that could serve as an amenity to the surrounding community. Inresponse, DDOT has included a series of diagrams and studies that show how the Esplanade, EastOval and surrounding areas might be used for a variety of passive and active activities. Newgathering areas have been added int the oval, while a performance space and amphitheater areproposed for the esplanade. In general, given the project area is much larger on the east side ofthe bridge, and the adjacent Poplar Point, the site could support a significant range of activities.Staff notes that some diagrams show activities that could also utilize NPS land. While it may beappropriate to hold such events and activities on these adjacent areas, staff recommends theCommission request that the District continue to coordinate with the National Park Serviceregarding the use of any adjacent federal lands, including Poplar Point, for events and otheractivities.Previously, the Commission had recommended incorporating additional trees and plantings wherepossible to help buffer pedestrians from the noise and views of traffic, particularly in the south endof the east oval. The applicant has continued to develop the landscape plan to provide a variety ofplantings to create a more ecologically-friendly landscape. A butterfly garden has been added tothe south end of the oval, and additional plantings are provided throughout the area. As notedpreviously, the site still has the potential to be the location of a gateway element, future memorialor public art installation that would draw visitors to the area.
Executive Director’s RecommendationNCPC File No. 7529Page 6West Oval and EsplanadeThe west oval is located west of the Anacostia River and affords a direct view toward the U.S.Capitol. The area is rapidly changing, with a significant amount of investment currently on-goingin the area. Today, the South Capitol Street corridor is a vibrant entertainment area/neighborhoodanchored by the Nationals Park Stadium. The DC United Stadium (Audi Field) in nearby BuzzardPoint is also nearing completion. Given the surrounding context, the west oval is proposed to beprogrammed for active recreation, play spaces, and seating.Previously, the Commission requested the applicant consider additional trees and plantings at thesouthern end of the oval to terminate South Capitol Street, better frame the public space, improvethe setting for any future memorial or public art, and help reinforce the visual connection betweenthe bridge and west oval. Staff had noted that while the other sides of the oval were clearly definedthrough tree plantings and hardscape elements, the southern end of the oval had a more diffuseedge. Improving this edge and the landscape to the south would provide a better terminus to theoval and South Capitol Street and would help visually connect the oval to the bridge.In response to this request, additional trees and plantings were added at the southern end of theoval, to terminate the view of South Capitol Street, and help frame the view of the new bridge.Additional renderings have been provided that show the trees and planting that help to “pivot” theview corridor from the Capitol to the new bridge. Overall, staff believes the updated design is moresuccessful.Finally, the interior of the west oval is a lawn area that is flexible and will allow for different typesof programming, as well as the potential for an art element or memorial. At the same time, thisopenness preserves views to the Capitol Building, which is prominent from the site. In general,other open spaces with similar critical viewsheds within the L’Enfant Plan remain unobstructed,except for memorials or public art. Trees and other vertical plantings which disrupt this view wouldnot be appropriate. As such, staff recommends the Commission support retaining the center ofthe oval as an open lawn with views toward the U.S. Capitol Building, and as a potential sitefor a future memorial or art element.Other Project ElementsA preliminary review, the Commission requested additional information regarding signage,lighting and the elements and details regarding how the cultural legacy of Frederick Douglasswould be incorporated into the project, consistent with the visual design goals described in theSupplemental Final Environmental Impact Statement. The applicant has provided additioninformation regarding each of these topics. Signage is generally functional and consistent withDistrict roadway standards. Roadway lighting is also generally consistent with District standards,including the use of Washington Globe street lights. Within the ovals, DDOT has stated thatstandard upright poles will be provided along the pedestrian paths. While this lighting may beappropriate, staff suggests the Commission recommend DDOT further evaluate the proposedlighting for the ovals and esplanades to ensure that illumination levels are appropriate for
Executive Director’s RecommendationNCPC File No. 7529Page 7pedestrian movement and safety, while considering the setting and surrounding context. TheCommission previously noted that white architectural lighting is appropriate for illuminating thebridge at night. DDOT should continue to work with Commission staff, the U.S. Commission ofFine Arts, the National Park Service, and other relevant stakeholders regarding any temporarylighting displays.Finally, four interpretive plaques have been integrated into the bridge belvederes. These plaquesspeak to various aspects of Frederick Douglass’ legacy. Each includes a unique quote andrendering that speaks to his life and the surrounding setting. Overall, staff supports the integrationof such interpretative elements reflecting the bridge’s namesake. While other locations have beenidentified for interpretation, including along the river and within the esplanades, the belvederesprovide prominent locations along pedestrian and bicycle paths. They also benefit from theexpansive views that will be afforded from the bridge deck, looking out across both banks of theAnacostia River.CONFORMANCE TO EXISTING PLANS, POLICIES AND RELATED GUIDANCEComprehensive Plan for the National CapitalThe project was reviewed for conformance with the policies contained within the ComprehensivePlan for the National Capital, including those related to the Urban Design, Transportation, Visitorsand Commemoration, and Historic Preservation Elements. A number of policies support theprotection of important views and vistas; creating transportation infrastructure that is consistentwith the pedestrian character of the L’Enfant City and developing the monumental core inaccordance with the principles of the Extending the Legacy Plan and the Memorials and MuseumsMaster Plan.Memorials and Museums Master PlanNCPC’s Memorials and Museums Master Plan (2001) built on the 1997 Extending the LegacyPlan by defining a long-range plan for new museums, memorials, and other public buildings,strategically distributed to all quadrants of the city. The 2001 master plan identified 100 potentialsites for future memorials and museums, including the South Capitol Street terminus at theAnacostia River, the Southeast-Southwest (SE-SW) Freeway, and the south shore of the AnacostiaRiver in Anacostia Park, SE as prime sites. In the plan, prime sites were defined as those of thehighest order. Because of high visibility and strong axial relationships with the U.S. Capitol andthe White House, the plan proposed that these sites be reserved for subjects of lasting historicaland national importance.Site 8 is identified in the Memorials and Museums Master Plan as being on private property southof where the Frederick Douglass Memorial Bridge connects to South Capitol Street. South CapitolStreet is depicted in the plan as a grand boulevard with grass panels and landscaping, reminiscentof the National Mall. The DDOT proposal general meets or supports the intent of this plan. A
Executive Director’s RecommendationNCPC File No. 7529Page 8major memorial is not included in this proposal as it is not in the project scope, however the DDOTdesign does not preclude one from being developed in the future.Anacostia Waterfront Initiative Framework PlanIn 2003, the District published the Anacostia Waterfront Initiative Framework Plan (AWI). Thisinitiative was created to outline “ a powerful vision for the future of the Anacostia waterfront.”It had five major goals that established a framework for the future development of this longneglected area of the city. NCPC, along with other federal agencies, signed onto this forwardlooking plan and have been supported its goals of creating a vibrant waterfront area.The South Capitol Street Corridor was identified as a key planning area that the plan noted was a“ significant gateway to the Capitol.” The plan also described the vision for this corridor as a“great boulevard that includes retail activities and cultural destinations, and provides a graciouscivic environment for pedestrians and bicyclists.” This description is very similar to the one fromthe Memorials and Museums Master Plan. In addition to this, the AWI went further and describedthe many areas along the Anacostia River including making South Capitol Street into a ” reconfigured corridor [that] will facility access to - and connection between – Buzzard Point,Poplar Point, the near Southeast, Southwest, and Historic Anacostia neighborhoods.” The AWIhad a larger scope and was more detailed than the previous planning efforts had been. It alsodeveloped several concepts for reconfiguring the South Capitol Street Corridor, that includedaccording to the plan reconfiguring “ the existing highway ramps for better access todevelopment areas and to introduce impressive civic architecture, forming a worthy gateway tothe Capitol.”This DDOT proposal to reconstruct South Capitol Street Corridor generally fulfills this vision.The proposed design accomplishes this by including bicycle and pedestrian amenities, creating agrand boulevard, re-aligning the roadway and including several large open spaces. Futuredevelopment around the project will coordinate and support the proposed alignment and amenities.National Historic Preservation ActPursuant to Section 106 of the National Historic Preservation Act (NHPA), a Memorandum ofAgreement (MOA) under was executed for the project in July 2011. Since then, the bridgealignment has been changed and is now parallel to the existing bridge and incorporates two ovalson either side of the bridge. Due to these changes, DDOT reopened consultation, and followingrevisions to the plan, concluded the consultation process with the execution of an amended MOAin June 15, 2015. As NCPC has an advisory role, it does not have an independent obligation tocomply with Section 106 of the NHPA for this project.National Environmental Policy ActA Final Environmental Impact Statement (FEIS) for the project was published in March of 2011.Agency. Since that time, revisions to the project design warranted an additional environmental
Executive Director’s RecommendationNCPC File No. 7529Page 9review. In July 2013, FHWA and DDOT initiated a Supplemental EIS process to evaluate theenvironmental benefits and impacts of the revised design of the project. The Final SupplementalEIS was completed in 2015 and the Record of Decision was signed on August 13, 2015. As NCPChas an advisory role, it does not have an independent obligation to comply with NEPA for thisproject.CONSULTATIONCoordinating CommitteeThe Coordinating Committee reviewed the proposal at its November 12, 2018 meeting. Withoutobjection, the Committee forwarded the proposed to the Commission with the statement that theproposal has been coordinated with all participating agencies. The participating agencies were:NCPC, the District of Columbia State Historic Preservation Office (SHPO); DDOT, the DistrictDepartment of Energy and the Environment, the National Park Service; the General ServicesAdministration and the Washington Metropolitan Area Transit Authority (WMATA). WMATArequested additional information from DDOT regarding the access and relationship to the nearbyAnacostia Metro Station. The SHPO noted their coordination subject to ongoing consultation inaccordance with the project MOA.U.S. Commission of Fine ArtsThe U.S. Commission of Fine Arts reviewed and gave final approval to the proposed corridorimprovements and landscape design at its November 15, 2018 meeting, with final comments to beaddressed in coordination with staff.ONLINE REFERENCEThe following supporting documents for this project are available online at www.ncpc.gov: Submission PackagePrepared by Matthew Flis12/20/2018ATTACHMENTS Powerpoint Commission of Fine Arts Letter
South Capitol Street CorridorLandscape DesignWashington, DCFinal ReviewDistrict Department of Transportation1January 10,2019Planning NCPC #7529NationalCapitalCommission
Site LocationPennsylvania Ave NWLocation Map3National Capital Planning Commission
Bridge Background and Context4National Capital Planning Commission
Approved Bridge5National Capital Planning Commission
What Applicant Heard – July 20186National Capital Planning Commission
Future Project Setting7National Capital Planning Commission
Future Context and Connections8National Capital Planning Commission
Open Space Diagram9National Capital Planning Commission
Landscape Connectivity10National Capital Planning Commission
East Oval and Esplanade - Framework11National Capital Planning Commission
East Oval - Plan12National Capital Planning Commission
East Oval – Hardscape Elements and Features13National Capital Planning Commission
East Oval Analysis14National Capital Planning Commission
Butterfly Garden15National Capital Planning Commission
Meadow Walkway16National Capital Planning Commission
North Gathering Area17National Capital Planning Commission
East Esplanade Plan18National Capital Planning Commission
East Esplanade - Materials19National Capital Planning Commission
Landing Area – Repurposed Materials20National Capital Planning Commission
East Esplanade Amphitheater21National Capital Planning Commission
East Esplanade – Anacostia Riverwalk22National Capital Planning Commission
East Oval and Esplanade23National Capital Planning Commission
East - Everyday Programming24National Capital Planning Commission
East – Weekend Programming25National Capital Planning Commission
East – Special Events26National Capital Planning Commission
West Oval and Esplanade Plan27National Capital Planning Commission
West Oval Plan28National Capital Planning Commission
West Oval – Materials29National Capital Planning Commission
West Oval Analysis30National Capital Planning Commission
West Oval – Central Plaza31National Capital Planning Commission
West Oval – View to Capitol32National Capital Planning Commission
West Oval – View to Bridge33National Capital Planning Commission
West Oval – Future Programming34National Capital Planning Commission
West Esplanade - Plan35National Capital Planning Commission
West Esplanade - Materials36National Capital Planning Commission
West Esplanade – View to River37National Capital Planning Commission
West Esplanade - Riverwalk38National Capital Planning Commission
Interpretation39National Capital Planning Commission
Interpretation40National Capital Planning Commission
Interpretation41National Capital Planning Commission
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