Executive Director’s Recommendation Commission Meeting: September 8, 2016

PROJECT NCPC FILE NUMBER Perimeter Security Improvements 6541 Harry S Truman Federal Building United States Department of State NCPC MAP FILE NUMBER 2201 C Street, NW 1.34(38.40)44409 Washington, DC APPLICANT’S REQUEST

SUBMITTED BY Final approval of site and building United States Department of State plans

PROPOSED ACTION REVIEW AUTHORITY Approve with comments Federal Projects in the District per 40 U.S.C. § 8722(b)(1) and (d) ACTION ITEM TYPE Staff Presentation

PROJECT SUMMARY The United States Department of State (DOS) has submitted final site and building plans for the perimeter security improvements at the Harry S Truman (HST) Building, located at 2201 C Street, NW. The Commission reviewed and approved the preliminary site and building plans at its October 1, 2015 meeting. The current submission addresses previous comments and develops further details associated with the stormwater management and landscape plan, refines the 23rd Street pocket park design and includes materials selection for hardscape, streetscape, the exterior of the D Street pavilion and guard booths. The final submission reflects the extensive coordination process that has taken place since 2004 between district and federal government agencies and the end result is an improved project that balances landscape, stormwater management, urban design, and strict perimeter security requirements to enhance the public space, and provide an attractive and welcoming pedestrian experience.

The HST Building is the 2.5 million square-foot headquarters of the DOS, located on an 11.8-acre site. The site is bounded by 21st Street to the east, C Street to the south, 23rd Street to the west, D Street, the E Street Expressway ramp and Virginia Avenue to the north. The HST building was constructed in two separate phases, twenty years apart. The original portion, referred to as the “Marshall Wing,” was built in 1941 in a Stripped Classical architectural style to serve the War Department and encompasses the northeast quadrant of the HST Building. A significant L-shaped building expansion was completed in 1960 following the principles of the International Style. The expansion, referred to as the “New State,” occupies the remainder of the four-square-block site and wraps around the original building. The HST building is eligible for the National Register of Historic Places and is a contributing element to the Northwest Rectangle Historic District. The American Pharmacist Association and the National Academy of Sciences are located directly to the south; the Old Naval Observatory is located to the west; the Federal Reserve Martin Building is located to the east; the Pan American Health Organization and the Retired Foreign Services

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Officers Club are located to the north. The site is located in the Foggy Bottom neighborhood within close proximity to George Washington University Campus, and adjacent to the National Mall.

As an Interagency Security Committee (ISC) Level 5 facility, the HST building requires an increased level of protection. The plan’s objectives are to secure the building, protect employees and visitors, and improve the streetscape. The project entails relocating employee and visitor screening from the interior of the building to new security pavilions at four of the building entrances; providing guard booths for vehicular security screening; increasing the sidewalk width; developing a protective barrier system; relocating the existing truck inspection facility; realigning curbs to address vehicular standoff distances and significant landscape improvements, including low impact development (LID) features. The proposed perimeter security will replace temporary security barriers with permanent security measures to enhance the aesthetic appearance and reinforce the civic character of the context.

The project will be implemented in two phases. The current submission includes final plans for Phase I of the project, which consists of a 4,935 square-foot staff and visitor security pavilion along D Street; perimeter security and landscape improvements throughout the site, including D, 21st, C, and 23rd Streets; an 8,564 square-foot pocket park for public use; and nine guard booths. Phase I construction is estimated to begin in the Spring of 2017 and completed in 2019. Phase II, which will be submitted at a future date, includes additional security pavilions at the 23rd Street, C Street, and 21st Street entrances; and restoration of adjacent lobbies to their original condition. Phase II is estimated to be completed in the Fall of 2022. The project incorporates sustainable stormwater management strategies to comply with federal requirements to the maximum extent technically feasible under Section 438 of the Energy Independence and Security act (EISA) of 2007, and local regulations contained in the District Department of Energy and Environment (DOEE) Stormwater Management Guidebook of 2013.

KEY INFORMATION  On October 1, 2015, the Commission approved the preliminary site and building plans for the perimeter security improvements at the HST building and provided recommendations regarding landscape elements, protective barrier system, streetscape elements, and the 23rd Street pocket park.  The final submission addresses the Commission’s recommendations and develops further details associated with stormwater management; landscape; public amenities; and identifies a materials palette for hardscape, streetscape, the exterior of D Street pavilion and guard booths.  At its May 5, 2016 meeting, the Commission reviewed and approved the Transfer of Jurisdiction of Reservation 104 from the National Park Service to the Department of State for the purpose of relocating the existing truck inspection activities from 21st Street, NW to the proposed location at D Street, NW as noted during preliminary review.  At its October 1, 2015 meeting, the Commission adopted the Department of State Finding of No Significant Impact for the Harry S Truman Building Perimeter Security Improvements Final Environmental Assessment; signed by DOS on August 27, 2015.

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 A Programmatic Agreement (PA) among the DOS, GSA, DC SHPO, ACHP, NCPC and NPS was developed and executed on December 22, 2015. The purpose of the PA was to identify adverse effects on historic resources, stipulate mitigation measures, and prescribe a review process for all phases to ensure compliance with the concept plan. NCPC participated in five consulting parties meetings held between January 15, 2013 and June 19, 2015 which focused on the development of the PA and the recent changes to the design.  The Commission of Fine Arts (CFA) reviewed and approved the final design at its meeting on July 21, 2016. With its recommendation, CFA expressed no objection to the final design for the proposed perimeter security barriers, north screening pavilion, and streetscapes for the DOS headquarters in the HST building. CFA indicated that the final design conformed to the Commission’s previous approvals and recommendations.  The final submission is the culmination of ongoing design efforts by the DOS to improve security and streetscape at the HST building and reflects years of coordination among district and federal agencies. The project will be one of the largest federal perimeter security with low impact development installations within the urban context in the district.  The plan will significantly improve landscaping, streetscape amenities, and hydrology by reducing impervious areas by approximately 7 percent (0.31 acres), and replacing pavement with new planting areas.  Unlike other Interagency Security Committee (ISC) Level 5 facilities, the proposed perimeter security would not restrict pedestrian and bicyclists from using the public space surrounding the HST Building.  The proposed perimeter security and site improvements will protect a sensitive facility that houses the Office of the Secretary of State, foreign dignitaries, over 8,000 employees and 1,000 visitors each day.

RECOMMENDATION Approves the final site and building plans for the perimeter security improvements at the Harry S Truman Building, located at 2201 C Street, NW.

Commends the applicant for working closely with NCPC, the U.S. Commission of Fine Arts, the General Service Administration and other federal and local government agencies to develop a design solution that balances strict perimeter security, landscape and stormwater management requirements to improve the public realm.

Notes that any substantial changes to the perimeter security and site improvements plan, including but not limited to changes in the stormwater management, landscape, and streetscape plan are required to be submitted to the Commission for review in accordance with the National Capital Planning Act and NCPC’s Submission Guidelines.

Notes that any improvements located in public space will require a public space permit and coordination with the District of Columbia Department of Transportation (DDOT) Office of Public Space Management, and therefore recommends that the Department of State (DOS) further

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coordinate with DDOT’s Public Space Committee to ensure that the proposed streetscape elements are consistent with the standards of the associated area.

PROJECT REVIEW TIMELINE Previous actions December 2, 2004 – Approval of comments on the concept design for the perimeter security improvements at Harry S Truman Building. January 8, 2009 – Executive Director approval of preliminary and final site and building plans for the exterior alterations, primarily the replacement of windows to improve security, associated with the Phase IB Modernization of the U.S. Department of State’s Harry S Truman Building. (NCPC File # 6901) January 8, 2015 – Information presentation for the perimeter security improvements at Harry S Truman Building. October 1, 2015 – Approval of preliminary site and building plans for the perimeter security improvements at Harry S Truman Building. May 5, 2016 – Chairman approval of transfer of jurisdiction of Reservation 104 from the National Park Service to the US Department of State, located near the northeast corner of the HST Building, for the relocation of the existing truck inspection station from 21st Street to D Street, NW. (NCPC File # 7771)

Remaining actions Preliminary and Final Review of Phase 2 (23rd Street, C Street (anticipated) and 21st Street – Jogger’s Entrance security pavilions)

PROJECT ANALYSIS

Executive Summary

The staff analysis evaluates how the final design addresses the Commission’s comments from the October 1, 2015 preliminary review for the perimeter security improvements at the Harry S Truman Building. The comments were organized into four topic areas including landscape elements, protective barrier system, streetscape elements, and the 23rd Street pocket park. In addition, the recommendation included notes pertaining the environmental review process, compliance with federal and local stormwater management regulations, and the transfer of jurisdiction of Reservation 104. Although the design has not changed significantly since preliminary review, the final plan considers key planning issues and is responsive to previous Commission recommendations.

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The final design incorporates the Commission’s suggested plan modifications, refines the stormwater management and landscape plan, provides material selections for hardscape, streetscape, the exterior of the D Street pavilion and guard booths. The design and materials of the security barriers, guard booths and D Street pavilion are compatible with the existing architecture and enhance the civic character of the HST building and the Northwest Rectangle Historic District.

Overall, the proposed perimeter security and site improvements are consistent with the Federal Elements of the Comprehensive Plan of the National Capital. While the placement and location of the security barriers, street furniture and low impact development features are located within public space, the perimeter security elements are integrated into the streetscape in a manner that minimizes their visual impact. The site improvements enhance pedestrian circulation by providing a continuous ten-foot sidewalk around the building. The final plan reflects the culmination of years of coordination with local and federal government agencies. Lastly, the project will replace unattractive temporary security measures, enhance the public realm and transform this federal facility into a more desirable workplace and destination for visitors and residents. The perimeter security system and streetscape improvements will weave the distinct architectural styles that compose the Harry S Truman Building, including the Marshall Wing, New State and the new US Diplomacy Center into a cohesive complex. Therefore, staff recommends the Commission approve the final site and building plans for the proposed perimeter security and site improvements at the Harry S Truman Building.

Analysis

Staff notes that DOS has incorporated the Commission’s October 2015 comments on the preliminary design of the HST building. In addition, the applicant has coordinated extensively with applicable local and federal agencies regarding the proposed LID system, compliance with local and federal stormwater management standards, landscape plan, material finishes, and pocket park refinements.

The perimeter security improvements at the HST Building has been coordinated with two related but separate projects previously reviewed by the Commission. These include the addition of the United States Diplomacy Center (USDC) at the 21st Street entrance of the Marshall Wing, approved in October, 2011, currently under construction; and the Perimeter Security and Site Improvements at the American Pharmacists Association (APhA) Headquarters Building, located directly to the south across C Street, for which preliminary plans were approved in April, 2014. The USDC will house a publicly-accessible museum and educational exhibits to showcase the practice of diplomacy and will accommodate security screening functions for visitors and employees. Although the USDC project did not include any permanent security measures, the perimeter security has been incorporated as part of the current HST perimeter security improvements plan. The APhA project included perimeter security and site improvements along 22nd, and 23rd Streets, NW. While the applicant has not submitted the APhA Perimeter Security and Site Improvements for final review, staff understands that the perimeter security project will be submitted in the near future and when it is submitted the security elements at APhA property will also satisfy perimeter security requirements for HST. Similarly, the current HST final

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submission includes security elements at the north of the APhA property, along C Street, fulfilling part of the perimeter security requirements for APhA.

On October 23, 2015, the DOS provided a letter to NCPC responding to the Commission recommendations during preliminary approval. Subsequently, as outlined in the Section 106 Programmatic Agreement, Stipulation III.A.2.a pertaining to the design review process, the DOS submitted 65% Construction Drawings to the Signatories for review and comment. NCPC submitted comments on January 11, 2016. The current submission addresses NCPC and other agencies feedback and results in an improved project. Consistent with NCPC submission guidelines, the DOS has resolved all outstanding planning and design issues with affected local and federal agencies prior to the submission of final site and building plans as shown in table 1. Therefore, staff recommends the Commission commends the applicant for working closely with NCPC, the U.S. Commission of Fine Arts, the General Service Administration and other federal and local government agencies to develop a design solution that balances strict perimeter security requirements, landscape and stormwater management to improve the public realm.

Additional Coordination with Government Agencies Date NCPC and DOS – Preliminary Commission Recommendations October 29, 2015 and DOS Responses Meeting NCPC – Comment Letter on the 65% Construction Documents January 11, 2016 NCPC, DOS, DCOP, DDOT, DOEE, GSA March 8, 2016 Proposed LID Design & Details Meeting DOS, CFA, NCPC – Final Design Submission, Bollard Cover June 27, 2016 Options, Rail Connections, Pocket Park Meeting Table 1: Summary of agency coordination since preliminary review (as of August 26, 2016)

Further, the applicant has responded to the Commission’s suggested plan modifications made during preliminary review as summarized below:

1. Landscape Elements The plan introduces significant landscape elements and low impact development practices. The overall approach to the planting concept respects the formal character of the context, including the National Mall, the historic HST building and the new U.S. Diplomacy Center. The planting along the street edge is formally arranged to create a rhythm, while softening and layering the sidewalk with a diverse, rich, and ecologically vibrant plant palette. The plan includes informal and exuberant plantings within special areas, such as the pocket park, to provide seasonal interest and a softer, park-like character.

Tree planting throughout the site incorporates a diverse palette, while maintaining the tree-lined street design typical of the surrounding context. The design provides eighteen different species of trees, including street trees along the sidewalk, understory trees in the building yard, as well as trees in the new pocket park and stand-alone planters.

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The landscape plan includes American Elm trees along 23rd Street to continue the existing trees planted south of the project. Willow Oaks will also be planted on both sides of C Street in order to continue the tree-lined street design that is installed at the Federal Reserve to the east. Swamp White Oaks will add canopy diversity on both sides of 21st Street. Informal groups of trees will extend the character of the park along D Street. Trees compatible with the existing species and spacing will continue along Virginia Avenue. In addition, the plan includes understory, flowering trees, with flowers tending to be white or soft in color and texture, for the building yard and park areas. The proposed planting includes a total of 205 new trees, including 85 street trees and 120 garden trees. In addition, based on overall health and construction impacts, 79 trees will be removed and 55 trees will remain. The planting program strives to provide as many trees as possible where appropriate.

The tree selection process included review of the Casey Trees standards and the District of Columbia’s Urban Forestry Administration maps which illustrate the existing tree species along adjacent streets. In addition, the design team included the District’s Department of Transportation (DDOT) bio-retention plant recommendation list and comments from the General Service Administration Horticulturalist concerning plant diversity.

In compliance with local stormwater regulations (discussed in greater detail on pg. 11), the plan includes bioretention planters along the site perimeter. The planters will include and a mix of low evergreen shrubs, and grasses to add visual interest, and variety. As many of the planters contain new perimeter security elements, the purpose of the planting is not to hide the security elements, but to soften and create a green and textured edge for pedestrian along the sidewalk. In addition, the plan includes pollinator-friendly species throughout the site.

Last fall, the Commission provided two comments regarding landscape elements. The first comment was related to soil volume: “Ensure sufficient planting space for proposed and mature trees by evaluating the placement of security element foundations within planting areas in an effort to maintain healthy root systems.” The applicant acknowledges that the footing for the perimeter security bollard system presents challenges for street trees. Given that the security perimeter is pushed as far away as possible from the building, the LID planter holds both the bollard footing and the trees. In general, street trees are located between the curb and the bollard footing to frame the streets. In order to facilitate root development, increase the available soil volume, and allow proposed trees to thrive, the final design includes two strategies to mitigate the challenges posed by the security element foundations:

 Barrier footing breaks for tree root passage are provided where trees are between curb and footing. At the surface the footing is veneered with decorative stone and has a section of reinforced concrete connecting the footings. Below that connection, the footings are separated, and filled with uncompacted soil to allow roots to access additional soil volume on the opposite side of the barrier.  Structural cells support the sidewalk allowing uncompacted soil to promote tree roots to grow below and access water. This strategy is beneficial to both the street trees planted between the curb and barrier, along 21st and 23rd Streets, as well as the trees planted adjacent to the sidewalk along D and C Streets.

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In general, the footing breaks correspond to street tree locations, and are approximately 24” wide, depending on the specific location and the structural requirements of the barrier system. The proposed footing breaks are provided wherever a street tree may benefit from the additional soil volume on the building-side of the barrier system. They coexist with structural cells under the adjacent sidewalks and are connected to the building yard to provide additional root growth area. Every run of bollards has a beginning and an end, the footing break strategy is basically taking a single run of continuous bollards and breaking them at the tree locations so that two adjacent ends can create an opening for root growth. This is a unique solution to balance tree health without compromising the bollard foundation. In addition, the design team has revised the street tree selection to ensure that the selected species can thrive in the available soils, including tough, vigorous plant species.

The second comment entailed additional shade trees at the Diplomacy Center entry: “Consider placing trees in the proposed planting areas on both sides of the Diplomacy Center entry to provide shade for the proposed benches, if feasible.” The applicant has stated that the glass that flanks the Diplomacy Center entrance incorporates signage and the architecture itself is a major aesthetic statement along 21st Street. Therefore, the DOS considers that the plantings in this area should be kept low to avoid blocking the building signage. As a result, the planters flanking the entrance to the Diplomacy Center will be framed with two clusters of low branched understory trees (paperbark maples) behind the monumental stone benches with formally arranged shrubs and perennials. These plants will be selected in consultation with the GSA horticulturalist. Furthermore, the benches flanking the diplomacy center entrance provide an opportunity to catch sun during spring, summer and fall. NCPC staff endorses the landscape design approach given the solar orientation of the proposed benches facing east.

In an effort to develop the landscape in a more comprehensive way, NCPC staff encouraged the applicant during 65% construction document review, to include the raised planting beds to the north and south of the Diplomacy Center. In response, the applicant stated that this area is not included in the HST project scope as they are currently being constructed in coordination with the Diplomacy Center project. These planting beds will be reserved for possible landscape gifts from diplomatic partners such as Japan. In the interim, the planting beds will be maintained by GSA, who is responsible for other planting beds that surrounding HST.

2. Protective Barrier System Recognizing the challenge of securing a large building within an existing urban setting, and after evaluating existing conditions and threat level; the DOS developed a strategy that includes two elements: building security and perimeter security improvements. The replacement of windows and reinforcement of walls to meet blast protection standards has been implemented in the Marshall Wing, and the applicant is in the process of renovating the remainder of the HST building. The perimeter security improvements include extending and reinforcing the site perimeter through a series of security barriers using a contextually sensitive design and materials palette; relocating the 21st truck inspection station to D Street and adding four security screening pavilions at building entrances. As mentioned above, the final plan in front of the Commission includes perimeter security and streetscape improvements around the site and the D Street screening pavilion, Phase 1. Construction of the screening pavilions at the other three entrances will be submitted as Phase

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2 in the future. Phase 2 will likely be submitted in three different packages (23rd Street, C Street and Jogger’s Entrance).

The addition of four new pavilions would remove all screening from within the protected hardline, eliminate the need for the existing temporary screening vestibules installed since 2006 and permit the lobbies to be restored to original conditions and function. The perimeter security bollard design was carefully considered. The design team did not want bollards to overwhelm the exterior of the building. Therefore, the design includes a combination of solids and open portions.

The project includes the following protective barrier system:  The protective barrier system is setback from the curb on 21st and 23rd Streets to allow street trees along the curb.  Bollards and barriers within 24” of the curb, along C and D Streets, are reduced in height from 39” to 33” to relate more to the human scale while allowing car doors to open.  The perimeter security system includes bollards, bollards with protective railings and walls.  Barrier railings provide more open views along the street and sidewalk, while discouraging pedestrian traffic flow through the LID tree pits. The placement of walls is minimized to mark the building entrances and corners.  Some walls incorporate public seating along the sidewalks.

During preliminary review, the Commission provided three comments regarding the protective barrier system. First, the Commission recommended that the applicant “promote pedestrian flow by aligning bollards consistently with architectural elements to minimize disruption of pedestrian circulation and achieve a graceful transition between different security and architectural elements.” During 65% review, NCPC clarified that this comment referred to specific conditions along 21s Street on each side of the loading entrance. NCPC staff recognized that aligning bollards in both directions with the existing granite coping along the building yard was not feasible due to security and circulation constraints. However, NCPC encouraged the design team to look for opportunities to minimize the number of bollards and provide a more graceful transition with the existing architectural features where possible. As a result, the final plan includes minor adjustments of the bollard line along 21st Street loading dock entrance for pedestrian safety considerations. The previous layout aligned the bollards with the adjacent two-man guard booth, but created a dog-leg configuration in order to tie-in with the vehicle barrier.

Second, the Commission recommended the applicant to “further develop the design for the proposed benches, bollards and railings to ensure a seamless integration of streetscape and security elements.” In response to this comment, NCPC was invited to the June 27, 2016 meeting to discuss bollard cover options, stone finishes, and rail connections with CFA staff in preparation for the final submission package. In addition, a complete selection of streetscape elements and materials has been included in the final submission package. The bollard design includes a low rounded top and entasis metal decorative cover, and the centerline rail connection will be in the same type of metal. The barrier wall will be covered with charcoal granite, which is darker than the existing HST limestone façade. The design intent is that the security elements appear to be more part of the public space and not the building in response to DDOT’s feedback. NCPC staff

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finds that the final materials palette is compatible with the existing building, and the proposed materials are durable, and provide an attractive urban landscape.

Lastly, the Commission recommended the applicant to “consider the design and integration of the proposed perimeter security elements, particularly at corner conditions, to avoid constricting pedestrian circulation.” In response, the applicant stated that the corner conditions are challenging because more than 75% attacks take place at intersections. At corner locations where perimeter security makes a 90 degree turn and becomes perpendicular to the sidewalk, the set of bollards that crosses the sidewalk is set in a stone band to differentiate it from the typical scored concrete for sidewalk paving material. In general, the typical bollard at corner conditions is space at 4’-11” on center. The building’s main ceremonial entrance, principal lobby and major departmental offices, including the office of the Secretary of State, are located along C Street; therefore, this is the most sensitive area of the building and the most important facade; as such NCPC acknowledges the security restrictions at the corners of C and 21st Streets and C and 23rd Streets and supports the final design.

3. Streetscape Elements The project includes new amenities near entry pavilions and pedestrian gathering areas to improve the streetscape. The proposal includes benches along sidewalks and at entrances, additional street lighting consistent with DC standards, and bike racks to promote bicycle use. There are currently a total of 37 bike racks, which accommodate 77 bikes, and the proposed design will provide a total of 77 bike racks, which can accommodate 138 parking spaces. The proposal includes three types of benches: bench on granite plinth wall, monumental stone bench at the diplomacy center and free standing bench. There is currently a total of 119 linear feet of benches, accommodating 59 people, and the proposed plan will include 612 linear feet of benches, accommodating approximately 306 people.

With regards to streetscape amenities, the Commission offered two comments. First, the Commission recommended that the applicant “provide additional seating to enhance the pedestrian experience, including outside of the jogger’s entrance.” In response to this comment, the final submission includes two seat walls with benches that flank both sides of the 21st Street Jogger’s Entrance. The proposed bike rack at this location has been reconfigured due to conflicts with underground fuel tanks.

Second, the Commission recommended the applicant to “integrate wayfinding and interpretive signage throughout the site to express the agency’s diplomatic mission, and highlight the history of the building.” In response, the applicant stated that the design team will identify opportunities for interpretive and wayfinding signage during Phase II under Section 106 mitigation. Opportunities might include engraved messages on site walls, vertical freestanding signage, signage incorporated into security barriers, paving markings or other similar techniques integrated into the streetscape and softscape.

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4. Pocket Park The project includes a pocket park for public use at the intersection of D and 23rd Streets, the pocket park will include special concrete scoring, street trees and site furnishings according to district standards.

With regards to the pocket park, the Commission provided three comments. The Commission recommended that the applicant “Further explore the function and character of the proposed pocket park as a major gateway along 23rd Street and consider amenities, such as sculptural elements, to celebrate the mission of the agency.” The final design includes adjustment to the pocket park to reflect NCPC comments. The DOS discussed the placement of sculptural elements in the pocket park with GSA as part of the Design Excellence and Art in Architecture Program, due to funding constraints, the final plan includes two potential locations for sculptural elements to the east of the 23rd Street sidewalk for a later addition. In case GSA, DOS or the District propose an exterior piece of art in the future. As these locations are in the public space, any sculptural elements would be coordinated with the District.

With its comments, the Commission recommended to “explore a more interesting and intimate seating arrangement, and consider relocating the bicycle rack facility in order make the corner more visible and inviting.” As a result, the applicant revised the seating arrangement to include 90-degree seating. In addition, the plan includes slightly enlarged planting areas with exuberant landscape to create an attractive area, balancing hardscape and landscape at this significant intersection without compromising pedestrian flow. The applicant agreed that replacing the bike rack with benches at the pocket park minimizes clutter, improves efficiency and allows more views into the park. Therefore, the bicycle storage located within the pocket park during preliminary review, has been removed and replaced with benches. In order to maintain capacity, additional bicycle parking has been added along D Street, adjacent to the truck inspection station, which meets the DOS security criteria for observation, given its proximity to the guard booth. Additional bicycle racks are located near the Jogger’s Entrance at 21st Street, adjacent to the parking entry along C Street, and between the D Street entrance pavilion and guard booth. In order to reinforce the significant vista toward Washington Circle and the Lincoln Memorial, the plan does not include bike racks along 23rd Street to avoid clutter, instead it includes an increased capacity of benches. The DOS has considered the location of bike racks and located them near guard booths, closer to building entrances and away from pedestrian intersections.

Lastly, the Commission recommended to “explore an alternative security treatment around the northwest planting area to avoid redundant layers of solid walls that obstruct visibility.” The design team pulled back the wall extensions to a minimum extension beyond the internal bollards aligning with the bollard footing below. The design includes a change in the wall at the 23rd and D Street inspection booth to bollard/rail to minimize the visual impact.

Stormwater Management The Commission requested “a stormwater management plan, prepared in accordance with the Commission submission guidelines, that addresses compliance with the District Department of Energy and Environment (DOEE) and Section 438 of the Energy Independence and Security Act (EISA) regulations.” Since preliminary review, the applicant has developed a stormwater

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management plan with calculations as part of the 65% construction documents included in the final submission package. The project incorporates sustainable stormwater management strategies with the goal to comply with federal requirements under Section 438 of the Energy Independence and Security act (EISA) of 2007, and local regulations contained in the District Department of Energy and Environment (DOEE) Stormwater Management Guidebook of 2013.

The project includes two methods of Best Management Practices (BMP’s) or Low Impact Development (LID) to manage stormwater runoff: bioretention and tree planting. In addition, the design introduces two different types of bioretention facilities: bioretention open areas and bioretention tree planters. Furthermore, the plan will significantly improve the hydrology around the HST site by reducing impervious areas by approximately 7 percent (0.31 acres); and replacing pavement with new planting areas. Large areas of pavement will be replaced with new planting areas, street trees and understory plantings.

LID strategies will include cell-type supports for tree pit soil under sidewalks, capture of roadway runoff through curb slots, capture of sidewalk runoff through control of grades and slopes, and lower soil elevations with absorptive soils in planted areas.

Summary: District Department of Energy and Environment (DOEE) Regulations As the project will disturb more than 5,000 square feet of land, it will trigger the requirements included in the DOEE Stormwater Management Guidebook of 2013. For all disturbance that falls inside the project property boundary or private space, the final stormwater management design must treat the full stormwater retention volume requirement of 1.2” of rainfall. Similarly, for all disturbance that falls outside the project property boundary or public space, the project will also be required to treat the full stormwater retention volume of 1.2”. Typically, disturbed area located in “public space” is only required to treat stormwater to the Maximum Extent Possible (MEP). However, since the stormwater management facilities are located in public space, the project will be required to treat the full volume for both public and private space, which is equivalent to 23,054 cubic feet / 172,443 gallons. Both public and private space will be met using Best Management Practices located in public space. The project does not intend to utilize off-site stormwater retention credits to offset any portion of the 1.2” DOEE requirement.

Initially, the applicant explored the possibility of achieving offsite retention volume for a portion of the required volume to comply with local stormwater regulations. According to DOEE regulations, there are two options to achieve offsite volume: Stormwater Retention Credit (SRC) or payment of in-lieu fee (ILF). Since both of these options are on-going obligations (i.e. on an annual basis), the DOS found that this approach was not feasible at this time due to a lack of federal installations with DDOE-certified credits available in the SRC market, overall cost, and legal concerns regarding the appropriation of funds. These are issues that NCPC, GSA and other federal agencies are currently studying. Instead, the applicant modified the profile of the bioretention areas to increase on-site retention. The applicant plans to submit a stormwater management plan to DOEE in November 2016.

In order to generate SRCs and use off-site retention during Phase 2, which includes pavilions at 23rd, C Streets and 21st Street-Jogger’s Entrance, without changing the landscape design, the

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applicant is currently installing two 10,000 gallon tanks for rainwater harvesting for non-potable use as part of the HST Phase 1C Modernization project. In addition, the DOS plans to remove existing asphalt, and replace unused parking and service roads with bioretention areas at Potomac Annex.

Summary: Federal Regulations The federal stormwater regulation that applies to the project is found in Section 438 of the Energy Independence and Security Act of 2007 (EISA) which requires that “the sponsor of any development or redevelopment project involving a federal facility with a footprint that exceeds 5,000 square feet shall use site planning, design, construction, and maintenance strategies for the property to maintain or restore, to the maximum extent technically feasible, the predevelopment hydrology of the property with regard to the temperature, rate, volume, and duration of flow.” To meet EISA requirement the site must meet the retention standard of 1.7” which is equivalent to 32,660 cubic feet /244,294 gallons for the HST site or prove that the stormwater strategy was designed to the maximum extent technically feasible.

Due to the limited space around the site, the applicant has determined that the total storage volume of 1.7” required per EISA standards is not attainable on this project without impacting the main goals of security and landscape quality. Both, security elements and stormwater management facilities are gracefully integrated into the design without creating the appearance of a moat surrounding the building. The sidewalk, curb and security line locations have been reviewed and approved by the DOS and DDOT, therefore, the stormwater facilities are fixed in size, causing the 1.7” retention volume to be technically infeasible. The site constraints limit the size of the stormwater facilities and the full EISA volume cannot be met. However, the project satisfies the EISA requirements, since the proposed stormwater management measures have been designed to the maximum extent technically feasible.

Transfer of Jurisdiction of Reservation 104 As part of the perimeter security improvements, the project includes the relocation of the existing truck inspection station from 21st to D Street, and new guard booths to provide better organization and control of security screening of delivery trucks entering either the HST 21st Street garage or requiring access to C Street including the National Academy of Sciences loading dock. This relocation will improve vehicular traffic flow and rehabilitate part of the streetscape along the northeast side of 21 Street. The applicant anticipates that the D Street truck inspection station may be used to screen trucks bound for other DOS locations such as Potomac Annex and Navy Hill.

During preliminary review, the Commission noted “that the relocation of the truck inspection activities from 21st Street, NW to the proposed location at D Street, NW requires a Transfer of Jurisdiction from the National Park Service for the use of Reservation 104. The Transfer of Jurisdiction will be submitted to the Commission at a later date.” As mentioned above, the transfer of jurisdiction was approved by the Commission at its May 5, 2016 meeting as a Delegated Action of the Chairman.

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Recommendation Summary

The applicant has addressed all outstanding comments provided by the Commission. The project will create a more pleasant pedestrian experience, respect the significance of the building and established view corridors. The proposed streetscape along 23rd Street will enhance the view and pedestrian connection from Washington Circle, the Foggy Bottom metro and the Lincoln Memorial, while pedestrian circulation along D Street will be more convenient and safe. The integration of perimeter security, landscape, low impact development, architectural elements and the addition of the pocket park will improve the public realm. Lastly, the project will successfully achieve the applicant’s objectives to secure the building, protect employees and visitors and improve the streetscape.

CONFORMANCE TO EXISTING PLANS, POLICIES AND RELATED GUIDANCE

Comprehensive Plan for the National Capital

As noted above, the perimeter security improvements at the HST Building is consistent with the policies in the Federal Elements of the Comprehensive Plan for the National Capital. In particular, the project meets the objectives of the Federal Workplace, Urban Design, and Preservation and Historic Features Elements.

The Federal Workplace encourage the incorporation of building hardening and blast-resistant glazing into new and existing construction to minimize the impact of perimeter security on the public realm. The exterior walls and windows of the “Marshall Wing” have been renovated to meet blast protection standards, this modernization project was approved by the Commission in 2009, and the DOS is in the process of renovating the “New State” as well. In addition, the Federal Workplace promotes coordinating the planning, design, and construction of building perimeter security for neighboring federal buildings that share frontage on a street. The HST perimeter security improvements has been coordinated with the proposed perimeter security at APhA and the USDC. Lastly, the proposal is consistent with the policies that encourage the incorporation of security needs into the streetscape in a manner that enhances the public realm, resulting in coherent and welcoming streetscape, that does not restrict or impede operational use of sidewalks or pedestrian, handicap, and vehicular mobility.

The Preservation and Historic Features includes policies to protect and enhance vistas and views that are an integral part of the national capital’s image, encourage the practice of good design principles throughout the region to continuously strengthen the image of the nation’s capital. The proposal is consistent with those policies by removing temporary concrete planters that had a negative presence along the HST complex and replacing them with a permanent barrier system that creates a more open appearance and complements the architecture.

In addition, the Preservation and Historic Features includes policies to construct building facades to the street right-of-way lines to reinforce the spatial definition of the historic street plan; take into account the historic spatial significance of the L’Enfant right-of-way and reservations when

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designing and locating physical security measures along L’Enfant streets and reservations; and provide and maintain street trees to help frame axial views and reinforce the historic green character of the nation’s capital. The proposal is generally consistent with these policies by keeping the majority of pavilions and guard booths out of public space. However, due to strict standoff requirements, the protective barrier systems (bollards, rails and solid walls) are located within public space, as well as the security pavilion and guard booths along D Street. The proposed guard booths along C Street are located in the center of the road to control road access. The applicant has coordinated extensively with district and federal agencies to avoid and mitigate adverse effects on the rights-of-way of five streets that contribute to the significance of the L’Enfant-Mc Millan Plan. Finally, the proposal includes street trees along the curb, and an integration of barriers and planting areas.

The project is consistent with the Urban Design Element. The proposed HST Building perimeter security improvements integrates the security barriers into the urban landscape in a manner that minimizes the visual impact and physical intrusion of the security barriers in the urban landscape. In order to satisfy strict security requirements at the HST Building, DOS plans to reconfigure 21st, 23rd, C and D Street lane widths, while installing new curbs and providing a wider and continuous sidewalk around the site. The plan minimizes the physical and visual intrusions of security barriers into the right-of-way to the maximum extent practicable, however due to complex security requirements, the protective barrier system is located along the public space while maintaining a consistent tree canopy along the curb. The protective barrier system is set back from the curb along 21st and 23rd to allow street trees along the curb and soften the perception of security elements. The protective barriers will be setback two feet from the curb along C and D Street to comply with minimum DDOT standards to allow for opening car doors, unloading and loading of passengers and ease of access to public space. The project achieves a balance between physical perimeter security and the vitality of the public realm by providing amenities such as benches, bike racks, trees, wider sidewalks and a pocket park, to improve the overall character of the streetscape. Lastly, the proposed pavilion and guard booths are compatible with the existing architecture.

Monumental Core Framework Plan

The project site is located within the Northwest Rectangle precinct of the Monumental Core Framework Plan. The Northwest Rectangle is an enclave of major government headquarters and monumental institutions adjacent to the National Mall. One of the plan’s key goals within this area is to establish a series of connected parks centered on E Street and Virginia Avenues between the Kennedy Center on the west and the White House on the east. The proposed perimeter improvements project would not impede this vision from moving forward and will provide a pocket park along D Street and significant streetscape enhancements. The project is also consistent with the Framework plan’s strategy of improving pedestrian movement between the Foggy Bottom Metro station and the National Mall along Virginia Avenue, 21st, and 23rd Streets, through street and park beautification, and improved signage and wayfinding. The HST perimeter security improvements will encourage pedestrians to move easily between the Northwest Rectangle and the National Mall by strengthening the public realm, improving the sidewalk and open space. Furthermore, the proposed project is consistent with some of the strategies included in the Framework Plan, such as improving stormwater management, promoting bicycle use, designing

Executive Director’s Recommendation Page 16 NCPC File No. 6541

great streets, eliminating visual obstructions, restoring corridors, removing psychological barriers and reestablishing the tree urban canopy.

National Historic Preservation Act

NCPC and DOS each have an independent responsibility to comply with the National Historic Preservation Act (NHPA); NCPC’s responsibility stems from its review and approval authority over the project. NCPC designated DOS as lead agency to fulfill its obligation for Section 106 consultation.

The DOS completed consultation with the District of Columbia State Historic Preservation Officer (DC SHPO). The HST building is individually eligible for the National Register of Historic Places and is a contributor to the Northwest Rectangle Historic District. DOS, in consultation with the SHPO, determined that the Perimeter Security Improvements at the HST Building would result in adverse effects on historic properties. NCPC has been an active participant in the project’s Section 106 consultation process and has been working with the consulting parties to avoid and minimize potential adverse effects on historic properties. Adverse effects include: include removal of or alterations to original design elements of the building, including the canopies, vestibules, paving, planters, and other features of its five entrances; narrowing the roadways and constructing security features in the rights of way of five streets that contribute to the significance of the L’Enfant- McMillan Plan of the City of Washington National Register documentation; and additions to or alteration of character-defining features that interrupt or interfere with views of the HST building and views along L’Enfant-McMillan Plan streets. A Programmatic Agreement (PA) among the DOS, GSA, DC SHPO, ACHP, NCPC and NPS was developed to identify the adverse effects, stipulate measures to mitigate those effects, prescribe a process for review of each phase and ensure compliance with the concept plan. The PA was executed on December 22, 2015.

As part of mitigation measures, the PA included the stipulation that DOS would revise and update the National Register Nomination for the Northwest Rectangle Historic District during Phase I. Other mitigation during Phase II included developing interpretive signage for incorporation into the perimeter security elements along 23rd Street, retaining in place the historic stone paving at each entrance pavilion and reusing it in the new entrances to the maximum extent possible.

National Environmental Policy Act

NCPC and DOS each have an independent responsibility to comply with the National Environmental Policy Act (NEPA); NCPC’s responsibility stems from its approval authority over the project. In accordance with the Council on Environmental Quality’s rules for implementing NEPA, and the Commission’s Environmental and Historic Preservation Policies and Procedures, DOS prepared an Environmental Assessment (EA) for the project. NCPC and GSA were cooperating agencies on the EA. The EA analyzed a “Build Alternative” and “No Build Alternative;” the preferred alternative was identified as the “Build Alternative.” Topics analyzed in the EA included: transportation and parking, public safety, utilities, community facilities, historic resources, archeological resources, land use and ownership, local and regional planning context, public space, population, economy and employment, visual resources, noise, solid waste,

Executive Director’s Recommendation Page 17 NCPC File No. 6541

hazardous waste, topography, geology, soils, wetlands and floodplain, stormwater/groundwater, air quality, vegetation, wildlife, threatened or endangered species, and environmental justice. DOS issued a Finding of No Significant Impact (FONSI).

NCPC staff reviewed the EA and FONSI and determined that the information and analysis provided meets the standards for an adequate EA as set forth in NCPC’s Environmental and Historic Preservation Policies and Procedures and that a FONSI is warranted based on the information contained in the EA. Therefore, at its meeting on October 1, 2015, the Commission adopted DOS’s finding of No Significant Impact for the Harry S Truman Building Perimeter Security Improvements; signed by DOS on August 27, 2015.

CONSULTATION

Coordinating Committee

The Coordinating Committee reviewed the proposal at its August 17, 2016 meeting. Without objection, the Committee forwarded the proposed final site and building plans to the Commission with the statement that the proposal has been coordinated with all participating agencies. The participating agencies were: NCPC; the District of Columbia Office of Planning; the State Historic Preservation Officer; the District of Columbia Department of Transportation, the General Services Administration; the National Park Service and the Washington Metropolitan Area Transit Authority.

U.S. Commission of Fine Arts

At its meeting on July 21, 2016, the Commission of Fine Arts (CFA) reviewed and approved the project on the Consent Calendar. With its recommendation, CFA staff expressed no objection to the final design for the proposed perimeter security barriers, north screening pavilion, and streetscapes for the Department of State headquarters in the Harry S Truman Building. CFA noted that the final design conformed to the Commission's previous approvals and recommendations.

On November 20, 2014, CFA reviewed and approved the updated concept. In their approval, CFA commented that the plan was responsive to its previous comments and requested further refinement of details. At the time, CFA requested additional study of the public space elements, such as benches. In addition, CFA recommended to modify the awkward detail of the horizontal rail as it attaches to the cylindrical bollards, possibly using shrubbery instead of rails to discourage walking through the planted areas. Acknowledging the contemporary best practices of low-impact design, CFA suggested that the planted areas along the curb support the formal character of the State Department complex.

On November 18, 2004, CFA approved the Perimeter Security Improvements concept. Due to the time lapse since the original approval, the concept was resubmitted on October 29, 2010 for renewal of its original approval. However, further negotiations between DOS and the District of

Executive Director’s Recommendation Page 18 NCPC File No. 6541

Columbia related to street alignments and public space encroachments of security elements resulted in another time lapse. The current plan is the final result of those negotiations.

Coordination with local agencies

The District of Columbia Public Space Committee (PSC) reviewed and approved the concept design on June 24, 2014. Within its comments, the PSC requested that any special paving must comply with general DC standards, tree canopy must be consistently maintained along C Street, 21st Street, and 23rd Street. The PSC requested that security elements be predominantly open in design (fewer walls, more bollards and fencing) and recommended incorporating more landscape at the entrance to the Diplomacy Center on 21st Street to reduce the amount of paving, but allowing an additional amount wider than the sidewalk appropriate for the entrance of a large facility. The PSC recommended that the curb cut on C Street could be maintained and requested further design of security elements to appear to be more a part of the public space and not the building. Additional items to be worked out include LID infrastructure, location, materials and specific street trees prior to issuance of the public space permit. The applicant has incorporated these comments into the current design. Following NCPC final approval, DOS plans to apply for a Public Space Permit in accordance with the procedures established by DDOT prior to expected construction in Spring of 2017.

ONLINE REFERENCE

The following supporting documents for this project are available online:

 Submission Package

Prepared by Vivian Lee 09/01/2016

POWERPOINT (ATTACHED)

NCPC File #: 6541 Harry S Truman Building (DoS Headquarters) Perimeter Security Improvements

2201 C Street, NW

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United States Department of State

Final Site and Building Plans Historic District Boundaries and Contributing Elements

2 Existing Conditions

3 Existing Conditions

4 Proposed Phasing Plan

5 Proposed Site Plan

6 LID Scheme Plan

7 LID Section – Tree Root Path

8 21st Street Plan and Elevation

9 21st Street Section – Diplomacy Center Entrance

10 21st Street Section – Flowering Trees and Rail

11 21st Street Diplomacy Center Entrance

12 21st Street Axonometric

13 C Street Plan and Elevation

14 Guard Booths

15 C Street and 21st Street – Guard Booth Perspective

16 23rd Street Plan and Elevation

17 23rd Street – Typical Plan Enlargement

18 23rd Street – Sections

23rd Section – Rail and Bench 23rd Section – Bump out wall and bench

19 23rd Street – Streetscape Axonometric

20 D Street – Plan and Elevations

21 D Street – Pocket Park

Pocket Park D Street Elevation Pocket Park Enlarged Plan – D and 23rd Street Intersection

22 D Street – Pocket Park

23 D Street Section - Pocket Park

24 D Street Section – Truck Inspection Area

25 D Street Pavilion Floor Plan

26 D Street Pavilion Perspective - Final

27 Security Elements Diagram

28 Typical Bollard Layout

29 Typical Bollard and Rail Layout

30 Typical Wall Layout

31 Proposed Amenities - Benches

32 Proposed Amenities – Bike Racks

33 Proposed Amenities – Pocket Park

34 Planting Diagram – Trees to remain and to be removed

35 Planting Diagram – Proposed Trees

36 Tree Context Diagram – Existing and Proposed

Willow Oak

Swamp white oak

Black gum

American Yellowwood

American Linden

Bald Cypress

Star Magnolia

Southern Magnolia

Japanese Snowbell

American Elm

37 Planting Images – Trees

38 Planting Images – Trees

39 Planting Images – Shrubs and Groundcovers

40