i. ExEcutivE Summary - GSA Development of St. Elizabeths Campus

ProgramThe DHS Headquarters Consolidation at St. ElizabethsMaster Plan incorporates the programmatic need forthe core components of DHS into the NHL campus. Thecore elements of DHS on the campus include leadership,operations coordination, program management, andpolicy. As a campus for the headquarters functions ofDHS, the site is planned as a secure campus providingDHS with an ISC level V security environment.The program total for both campuses together is 4.5 millionGSF of space together with 4234 parking spaces, orapproximately 1.5 million GSF for a total of approximately6 million GSF. The program accommodating 14,000employees consists of 3.8 million GSF of operationaland shared services functions will be located on the St.Elizabeths West Campus, along with 3,459 structuredparking spaces, or approximately 1.2 million GSF for atotal of 5 million GSF, accommodating 10,900 personnel.The East Campus of St. Elizabeths will house one unit ofthe DHS program plus support functions, accommodating3,100 personnel in .72-.75 million GSF of operational andsupport spaces with 775 structured parking spaces, or .27million GSF for a total of approximately 1.02 million GSF.Barry FarmBarry FarmCedar Dr.Gate 1Hemlock St.Gate 2Cedar Dr.St. Elizabeths East CampusPedestrian Connectionto East CampusMartin Luther King Jr. Ave.Plum St..Redwood Dr.Spruce St.ProposedGate 3Existing Conditions AnalysisA detailed analysis of the existing conditions at the St.Elizabeths West Campus was conducted to gain a thoroughunderstanding of the site, its historic buildings, landscaperesources and views, its organization, infrastructure andurban design, as well as its natural environment. Thisanalysis helped determine the opportunities for andconstraints to redevelopment on the site. It shapes thePlanning Principles that form the basis of the MasterPlan. A detailed Existing Conditions Analysis for the EastCampus will be developed at a later stage.Sweetgum Ln.Cedar Dr.Holly St.Ash St.Ash St.CongressHeightsShepherdParkwayI-295LegendExisting BuildingsProposed BuildingsParking StructuresGreen RoofsBelow Grade Parking StructureCommand CenterHSecurity FenceEagle ZoneProperty LineHelipadSatellite DishNaval Support Facility AnacostiaProposedGate 4The DHS Headquarters Consolidation atSt. Elizabeths Final Master PlanFigure 1.2 – Illustrative Master PlanSource: Site Engineering Survey by Greenhorne & O’Mara (2005); Landscape Elements Data - St. Elizabeths Hospital West Campus Cultural Landscape Report by Heritage Landscapes and Robinson &Associates. (2007); Laser Scan Survey by Optira (2006).NOVEMBER 10, 2008 – NCPC SubmissionIntroduction | 5

Planning PrinciplesBased on the site analysis and consultation process, theteam developed a set of Planning Principles to informthe development of the Master Plan. These PlanningPrinciples describe the major defining characteristics ofthe site and guide the location, orientation, and massingof new development. The Planning Principles call forthe protection, preservation and reuse of the historicresources on site; for the integration of both the historiclandscape and natural features into the Master Plan; andfor the preservation and enhancement of site elementsand spaces that define the existing site character.• Historic Resources – Building Reuse: Protect, preserveand reuse the historic resources of the National HistoricLandmark.• Planning Relationships - Organize programmaticelements on site to maximize operational efficiencyand effectiveness.• Parking: Locate parking at the site perimeter topreserve a pedestrian-oriented site, consistent withhistoric precedent.Figure 1.5 – Historic Resources - Building ReuseFigure 1.8 – Planning RelationshipsFigure 1.11 – Parking• Site Parcels: Respect the individual and uniquecharacter and history of each site parcel in makingredevelopment decisions.• Historic Resources – Landscapes: Integrate historiclandscape and natural features into the Master Plan.• Density: Locate new development density on site torespect the character of and relationships among thehistoric resources.• Site Environment: Develop landscape responses thatrespect the inherent distinctions between differentzones of the site while preserving the historic contextand restoring ecological functions.Figure 1.3 – Site ParcelsFigure 1.6 – Historic Resources - LandscapeFigure 1.9 – DensityFigure 1.12 – Site Environment• Campus Structure and Organization: Retain, preserveand enhance site elements and spaces that define theexisting site character.• Historic Resources – Views: Maintain and enhancehistoric views both from outside and from within thesite.• Access and Circulation: Respect and reinforce thehistoric address for the site on Martin Luther King Jr.Avenue. Use historic roadways and paths to reinforcespatial continuity.• Site Habitat: Restore the ecosystem potential of theWest Campus environs allowing organisms within theirbiological communities to live and reproduce.• Site Hydrology: Accommodate new developmentwhile restoring site hydrology by maximizing pervioussurfaces, managing rainfall where it falls, usingsurface water conveyance and seeking campus-wideopportunities.• Building Water: Optimize the use of potable waterprimarily for uses related to human health.• Green Buildings: Orient and collect buildings intoclusters to maximize their environmental effectiveness.Figure 1.4 – Campus Structure and OrganizationsFigure 1.7 Historic Resources - ViewsFigure 1.10 – Access and Circulation6 | Introduction NOVEMBer 10, 2008 – NCPC Submission The DHS Headquarters Consolidation atSt. Elizabeths Final Master Plan

• Infrastructure and Utilities: Utilize centralized siteutilities for security, redundancy and operationalefficiency. Consolidate site utilities and below gradedistribution to minimize impact to the historic landscape.Figure 1.13 – Infrastructure and Utilities• Security: Assure the safety and security of the site’soccupants and activities while maintaining the site’shistoric appearance. Accommodate limited controlledpublic access to the historic and culturally importantaspects of the site.Figure 1.14 – SecurityMaster PlanThe Master Plan is based on a strategy of preserving,largely intact, the historic core of buildings, spaces,ornamental vegetation and site elements. In addition,those portions of the site that have traditionally beenvegetated, specifically the slopes from the upper plateaudown to the Anacostia River floodplain on the west,are largely maintained and enhanced through habitatmanagement strategies.The result is a restored core of renewed historic buildingsand spaces put to new and useful purposes, surroundedby those program elements that best fit in buildings oflarger footprints. These program elements are housed innew buildings that sit outside of the historic core and arelimited to building heights that respect the historic fabric.To facilitate the location and description of the campus,the site is divided into five numbered Site Parcels. Parcel1 is the primary gateway to the campus. The historicgates lead to new security screening and undergroundparking facilities. Dominating this portion of the site is theiconic Center Building with the open landscape reachingout to “The Point” to the north. Significant views towardWashington, D.C. and Virginia from “The Point” remainintact. No development will happen at this location. Newdevelopment is located on previously-developed sites tothe southwest of the Center Building, adjacent to existingbuilding clusters on the site between the two gates, and insmall additions to the existing structures to accommodatemodern office space through vertical circulation, servicesand connections.Site Parcel 2 is defined by the row of historic buildingsfacing across the formal southern open space. Theunderground connection from the West Campus to theEast Campus will be located in this Site Parcel. Newdevelopment will be interspersed between the historicstructures to the west of the parcel at the top of the slopesinto the south ravine. The scale of this new developmenthonors the existing building fabric along the existingopen space, then rises in both height and bulk toward thewestern edge of the parcel.Site Parcel 3 is a largely undeveloped portion of the site.This parcel spans across the entire northern boundary fromthe grassy site of the Greenhouses to the successionalwoodland growth on the western slopes. A new belowgradeparking structure is located on the site of the formerGreenhouses at the northeast corner of the site. The onlyother new facility in this parcel is the warehouse anddelivery facility, located along the western boundary of thesite at a low elevation with access from the new westernroad. In response to the agricultural uses of the northwestslope during the period of significance, a portion of thesuccessional woodlands will be removed and replacedwith meadow plantings. The meadow will extend onto theroof of the warehouse facility. This will serve to replicatethe historic view from the Point.The greatest density of new construction is located in SiteParcel 4, on the sites of the non-contributing warehousebuildings and the industrial landscape of the ravine. Newdevelopment, a terraced group of buildings connectedthrough sunken courtyards, steps down the slope froman entrance adjacent to the Center Building, negotiatingsome of the steepest slopes of the campus and benefitingfrom the substantial opportunities for views across tothe monumental core of the city of Washington, DC.The ravine to the south of the parcel continues to housethe historic Power House, whose stacks dominate theskyline of the site. These buildings, with new additions,will be reused to house the co-generation plant and utilityinfrastructure. West of the Power House, partially buriedparking structures follow the form of the land, steppingdown toward the western property line.Sloping from the western lip of the upper plateau of SiteParcel 2 to the lower elevations of the Anacostia Riverflood plain, Site Parcel 5 remains largely in successionalwoodland. A new access road will be located along thatedge of the site, in Site Parcels 3 and 5, connecting theMalcolm X interchange at Rt. 295, through ShepherdParkway, across the site to Firth Sterling Avenue. Atthe southwest corner of the site, a new site entranceand security screening area gives access to the parkingstructures that climb up into the ravine in Site Parcel 4.Of the program defined above for the West Campus,approximately 3.7 million GSF of buildings and parkingwill be located above grade, while approximately 1.3million GSF will be located below grade.The DHS Consolidation at St. Elizabeths Master Plan,which includes the Master Plan report, the Preservation,Design and Development Guidelines, and theTransportation Management Plan, has been developedto provide the programmatic requirements and functionaland operational efficiency required by the Departmentof Homeland Security, while rehabilitating the NHL of St.Elizabeths to the maximum extent possible. The MasterPlan utilizes strategies that minimize impacts to theexisting historic resources of the campus. These strategiesinclude reuse and rehabilitation of new buildings, theorganization, layout, and massing of new buildings tobe in scale and compatible with the site itself, existinghistoric building, retention of existing historic roadwaysand paths, rehabilitation and improvement of landscapesand cultural resources of the site, retention on views inand minimization of impacts on views to the site from theregion and surroundings, transportation managementstrategies that minimize impacts to surrounding roadways,while creating a pedestrian-focused campus throughlimited vehicular access. The result is a Master Plan thathonors both the needs of the Department of HomelandSecurity and the NHL of St. Elizabeths.The DHS Headquarters Consolidation atSt. Elizabeths Final Master PlanNOVEMBER 10, 2008 – NCPC SubmissionIntroduction | 7

ii. Introduction

II. IntroductionProject OverviewThe DHS Consolidation at St. Elizabeths Master Plan isa guide for the redevelopment of the West Campus ofSt. Elizabeths into a secure federal campus for elementsof the Department of Homeland Security. The entireSt. Elizabeths campus is a National Historic Landmark(NHL). The Master Plan sets up the framework fora total development of 4.5 million gross square feet(GSF) on both the West and East Campuses, includingadministrative and operations space, and shared usessuch as a cafeteria, child care center and others.The redevelopment will consist of the reuse of existinghistoric buildings together with new construction on thecampus, and parking. The program accommodates14,000 employees. The program total for both campusestogether is 4.5 million GSF of space together with 4,234parking spaces, or 1.5 million GSF for a grand total ofapproximately 6 million GSF. It consists of 3.8 million GSFof operational and support functions that will be locatedon the St. Elizabeths West Campus, along with 3,459structured parking spaces, or 1.2 million GSF for a total of5 million GSF, accommodating 10,900 of the employees.The East Campus of St. Elizabeths will house one unit ofthe DHS program plus support functions, accommodating3,100 personnel in 0.72-0.75 million GSF of operationaland support spaces with 775 structured parking spaces,or 0.27 million GSF for a total of 1.02 million GSF.The Master Plan is the result of a planning processthat takes into consideration numerous site conditions,issues and constraints, as well as program and securityrequirements. The plan addresses the location of majorareas of new development and parking, reuse of existinghistoric buildings, transportation access to and from thesite, pedestrian and vehicular circulation within the site,environmental issues including stormwater management,and infrastructure improvements required to supportdevelopment.The Master Plan builds on the assets of the existingcampus. It allows for the rehabilitation and reuse ofexisting buildings while creating areas of infill and newdevelopment. The plan creates a secure, operationallyefficient, and cohesive campus for employees of andvisitors to the Department of Homeland Security.Purpose and Goals of the MPThe creation of the Department of Homeland Securityin 2002 brought together 22 separate agencies intoone department. In order to facilitate communication,Barry FarmI-295Naval Support Facility AnacostiaFigure 2.0 – Existing ConditionsSource: Site Engineering Survey by Greenhorne & O’Mara (2005); “St. Elizabeths Hospital West Campus Cultural Landscape Report”CLR, (2007); Laser Scan Survey by Optira (2006).coordination and cooperation across the Department, andachieve operational efficiency, DHS identified the mostcritical components of the Department’s agencies thatneed to be co-located in one functional campus.The goals of the St. Elizabeths West Campus MasterPlan are to:• Achieve the maximum build-out of the site for federaluse, while maintaining the historic character of theWest Campus;• Provide facilities that meet the programmatic needs ofDHS.• Provide a workplace of world-class design created bythe nation’s leading architects;Martin Luther King Jr. Ave.St. Elizabeths East CampusShepherdParkway• Use federal development in ways that considercommunity development goals and efforts;• Satisfy federal security requirements in a manner thatremains sensitive to neighboring communities;• Preserve, to a practicable extent, the natural context ofthe site;• Promote sustainable development by achieving a“Silver” Leadership in Energy and EnvironmentalDesign (LEED) rating;• Facilitate an open and inclusive process;• Improve transportation access to the campus; and• Optimize the federal investment.All goals described above are also part of GSA’s DesignExcellence Program.Design Process & MethodologyThe Master Plan for St. Elizabeths West Campuswas developed through a collaborative multidisciplinaryplanning process. GSA engaged a team ofurban designers/planners, architects, preservationand landscape architects, architectural historians,environmental scientists, civil engineers, transportationplanners, community engagement, economicconsultants, and project managers. The plan wasdeveloped concurrently with, and is informed by, theNational Environmental Policy Act Environmental ImpactStatement (NEPA EIS) and National Historic PreservationAct (NHPA) Section 106 and 110 processes. The resultof this effort are the Master Plan documents consistingof the Master Plan report, a Security Master Plan, thePreservation, Design and Development Guidelines,and Transportation Management Plan, together with anEnvironmental Impact Statement.The Master Plan was developed in an inclusive processinvolving the client, GSA; the tenant, the US Departmentof Homeland Security (DHS) and the US Coast Guard(USCG); the design team; officials from local Districtof Columbia and Federal agencies; the Section 106Consulting Parties, made up of local and nationalorganizations; and representatives of the local community.These entities came together in numerous scoping,stakeholder, and public meetings. These includedmeetings with local Advisory Neighborhood Commissions(ANCs), the general public, and the consulting partiesunder the Section 106 process.GSA is employing a tiered approach in the developmentof the Master Plan for the Consolidation of the DHSHeadquarters at St. Elizabeths. As a result, this documentfocuses in detail on the Master Plan for the West Campusof St. Elizabeths, while providing some information on theEast Campus. In order to provide operational efficiencyand functionality for DHS, the two sides of the campus willbe connected by a pedestrian tunnel to be located underMartin Luther King Jr., Avenue.Existing Conditions AnalysisThe planning process began with a thorough investigationof the West Campus site. GSA conducted numerousdetailed studies of different aspects of the site andbuildings before and during the planning process. Thedesign team collected and studied all the pertinentcurrent and previous available studies on the site. Sitesurveys and field inspections were conducted to providean understanding of site conditions and context. PleaseThe DHS Headquarters Consolidation atSt. Elizabeths Final Master PlanNOVEMBER 10, 2008 – NCPC SubmissionIntroduction | 11

efer to the Appendix for a full list of studies regarding theSt. Elizabeths West Campus. The team also developedphysical and 3-dimensional computer models of the site.The site research and studies gave the design team adetailed understanding of the opportunities and constraintsof the existing conditions of the site including the historicand cultural resources of the NHL. This thorough analysisis documented in the Existing Conditions Analysis Sectionof this Report.Planning PrinciplesFrom the results of the site analysis, the design teamdeveloped a set of Planning Principles to inform thedevelopment of the Master Plan. These PlanningPrinciples describe the major defining characteristics ofthe site and guide the location, orientation, and massingof new development. The Planning Principles call forthe protection, preservation, and reuse of the historicresources on the site; for the integration of both the historiclandscape and natural features into the Master Plan; andfor the preservation and enhancement of site elementsand spaces that define the existing site character.Concept AlternativesWith the existing conditions information, programinformation from DHS and the framework of the PlanningPrinciples, a number of concept alternatives weredeveloped by the design team. These alternatives weretested against program, functional organization, andimpact to the historic and cultural resources of the NHL.Three-dimensional massing models of the alternativeswere created in order to test the various alternatives andlook at views from the neighboring community, larger cityand within the campus. The various alternatives wererevised and refined, resulting in the three alternatives thatare analyzed in the Environmental Impact Statement.Master PlanGSA selected the alternative described in this Master Planreport as its preferred Alternative for the West Campus.Detailed information about this Illustrative Master planand its component elements is found in the Master Plansection of this report.Barry FarmI-295Martin Luther King Jr. Ave.St. Elizabeths East CampusCongressHeightsNaval Support Facility AnacostiaShepherdParkwayFigure 2.1 – Illustrative Plan - St. Elizabeths West CampusSource: Site Engineering Survey by Greenhorne & O’Mara (2005); “St. Elizabeths Hospital West Campus Cultural Landscape Report” CLR, (2007); Laser Scan Survey by Optira (2006); Aerial Photo by WGIS –National Capital Planning Commission12 | Introduction NOVEMBer 10, 2008 – NCPC Submission The DHS Headquarters Consolidation atSt. Elizabeths Final Master Plan

Relationship to Comprehensive PlansOverviewThe District of Columbia (D.C.) is the Nation’s Capital,housing the Federal government, a grand monumentalcore, museums, monuments and memorials aboutpeople and events that are part of the American heritage.At the same time, D.C. is also a city with a downtown andneighborhoods with numerous residents who call it theirhometown. Washington D.C.’s physical developmentis guided simultaneously by two ComprehensivePlans, the National Capital Planning Commission’s2004 Comprehensive Plan for the National Capital:Federal Elements, and the District of Columbia’s 2006Comprehensive Plan: District Elements.The National Capital Planning Commission’s 2004Comprehensive Plan for the National Capital: FederalElements is the “…blueprint for the long-term developmentof the national capital and is the decision-making frameworkfor Commission actions on plans and proposals submittedfor its review.” It guides proposed Federal developmentin the Nation’s Capital. The development of districts andneighborhoods in the city is guided by the D.C. Office ofPlanning’s 2006 Comprehensive Plan for the NationalCapital: District Elements. This document guides thegrowth and development of the city’s neighborhoods.Relationship to the National Capital PlanningCommission’s 2004 Comprehensive Plan forthe National Capital: Federal ElementsThe Master Plan for the Department of HomelandSecurity’s Consolidation at St. Elizabeths has beendeveloped in support of the National Capital PlanningCommission’s 2004 Comprehensive Plan for the NationalCapital: Federal Elements. The principles and policiesoutlined in the Federal Elements document guide thelocation, growth and development of federal propertiesand federal interests in the National Capital region. Thissection of the report summarizes the relationship of theMaster Plan to the Comprehensive Plan.Plan PrinciplesThe Comprehensive Plan contains three overarchingPlan Principles. The Master Plan supports the AccommodateFederal and National Capital Activities planprinciple by promoting excellence in design, preservinga National Historic Landmark, and locating the DHSheadquarters consolidation in the Nation’s Capital. Inaddition, the Master Plan supports the plan principleto Reinforce “Smart Growth” and Sustainable DevelopmentPlanning Principles by preserving the historicopen space, natural beauty, and critical environ-mentalareas on the St. Elizabeths west campus; by creating acampus that is pedestrian-oriented, with limited vehicularcirculation; and by promoting non-automotive means oftransportation though the Transportation ManagementPlan. Furthermore, the Master Plan supports the planprinciple, Support Local and Regional Planning andDevelopment Objectives through the location and designof the DHS Headquarters consolidation in the CongressHeights neighborhood at St. Elizabeths; by promotingintergovernmental coordination through the masterplanning process and through the NEPA documentationand Section 106 consulting party processes.Federal Workplace: Location, Impact and theCommunityThe location of federal workplaces in the District ofColumbia and their relationship to the surroundingcommunity are important factors in the planningprocess. The result should help strengthen the localeconomy, enhance the productivity, and promote a strongpublic image for the federal government. Locating theDepartment of Homeland Security’s Consolidation at St.Elizabeths is a particularly important element in achievingthis objective.The Master Plan supports the policy of locating federalworkplaces in the District of Columbia by locating theDHS Headquarters consolidation at St. Elizabeths. Withregard to the policies related to The District of Columbiaand the Monumental Core, the location of this Departmentat St. Elizabeths will reinforce the preeminence of themonumental core by remaining in the District of Columbia,by supporting the implementation of the St. ElizabethsEast Campus initiative, as well as the redevelopmentand revitalization of the Congress Heights neighborhood.Additionally, through design strategies proposed in theMaster Plan, impacts to views of the topographic bowlwill be minimized.The Master Plan supports the Comprehensive Plan’spolicies with regard to Existing Facilities and Resourcesby locating the DHS Consolidation in an establishedurban area with infrastructure and services in place;and by supporting the efforts of local governmentalagencies with regard to coordinating land use withavailable transportation and transit, as described in theTransportation Management Plan. In addition, by utilizingand making more efficient the St. Elizabeths WestCampus, an available federally-owned piece of land, bymodernizing the campus, reusing and rehabilitating thehistoric buildings and restoring historic open spacesand landscapes on the campus, the Master Plan furthersupports the policies regarding Existing Facilities AndResources.The policies regarding Regional Distribution of FederalWorkplaces are supported through this Master Plan, bythe location of the DHS Headquarters Consolidation on acampus which can satisfy the agency and employee colocationand security requirements of this Department.The detailed process which this Master Plan hasundergone supports the policies of the ComprehensivePlan with regard to Coordination with the Community. Theprocess has involved coordination and discussions withthe Consulting Parties, local agencies, and communitycivic associations. The location of the DHS Headquartersconsolidation at St. Elizabeths supports the revitalizationof the local Congress Heights neighborhood including theEast Campus.Community access to the West Campus is also possiblethrough the Master Plan. Regular public access to theWest Campus’ historic cemetery has been made possibleby routing the security fence so as to keep the cemeteryoutside the perimeter fence. The public will be allowedlimited controlled access to the historic and culturallyimportant aspects of the site. By reusing and rehabilitatingthe historic St. Elizabeths West Campus, and allowing forarchitecturally compatible infill buildings, the Master Planfurther supports the Coordination with the Communitypolicies.The Master Plan project supports the ComprehensivePlan’s policies with regard to Business Development bybeing a catalyst for the creation of jobs and promotingeconomic growth in the Congress Heights neighborhoodof the District of Columbia.The West Campus Master Plan is designed to promotegreen building and site design techniques through theoverall siting of new buildings for energy efficiency,through the use of stormwater management strategiessuch as green roofs, maximizing pervious surfaces, grassinfiltration or bioretention swales, as well as through GSA’srequirement of LEED-certified buildings, in support ofthe Comprehensive Plan’s Energy Efficiency policy.The Master Plan supports the Working Environmentpolicy by locating the DHS Consolidation in an area whereavailable amenities such as restaurants, retail and otherservices exist outside the campus within walking distance.In addition, the campus itself will provide shared usesfor employees, such as food service, a daycare center,a fitness center and so on. Through the TransportationManagement Plan, the campus will provide employeeswith a system of access to transit and public transportationand will encourage employees to use ridesharingstrategies including carpools and vanpools, considerationfor tele-work and variable work schedules.The Master Plan takes into consideration and minimizesimpacts to the historic resources and landscapes of thecampus in the design of the security elements, in supportof the Security policies of the Comprehensive Plan. Theperimeter security fence system incorporates and utilizesthe existing historic campus wall. By utilizing the existinghistoric wall as part of the security fencing system, theMaster Plan preserves this historic feature along MartinLuther King Jr. Avenue. Where the historic wall does notexist, the double security fence runs along the perimeterof the campus along the western and northern edges ofthe site. Along the southern edge of the site, the fenceruns partially along the perimeter, avoids to the extentpossible the no-build zone set aside for protected specieshabitat, while navigating the topography and steep slopesin that area.The final location of the security fence and perimetersecurity elements will be determined in the more detaileddesign phases of the project. Security barriers at vehicularentry points will be designed to complement and be incharacter with the NHL to the extent possible and to avoidadverse effects on adjacent public roadway operationsand safety. A Security Plan has been prepared for the DHSConsolidation at St. Elizabeths Master Plan in accordancewith the Security policies of the Comprehensive Plan. Seethe Security Master Plan for detailed information.Federal Elements: TransportationThe DHS Headquarters Consolidation at St. ElizabethsMaster Plan’s supports the Comprehensive Plan byestablishing a pedestrian-oriented campus, limiting thenumber of parking spaces available on campus, andencouraging the use of transit and alternative modes oftransportation. In addition, a Transportation ManagementPlan was prepared for the Master Plan in accordancewith the Transportation Management Plans policies of theComprehensive Plan.The Master Plan supports the Parking policies of theComprehensive Plan. The plan gives priority to employeeswho are disabled, or otherwise unable to useother travel modes, and to employees who serve in themost security-critical positions on the campus. A significantnumber of the parking spaces are located below groundin order to minimize visual impact to the historic landmarkincluding all the parking spaces on the east side of thecampus along Martin Luther King, Jr. Avenue. Parkingstructures are located at the perimeter of the campus onThe DHS Headquarters Consolidation atSt. Elizabeths Final Master PlanNOVEMBER 10, 2008 – NCPC SubmissionIntroduction | 13

the east side of the campus, and in the ravine on the westside of the campus so as to minimize driving on campus.Employees and visitors will park immediately upon entryto the campus.The Master Plan supports the policies of the NCPCComprehensive Plan with regard to Parking Ratios tothe maximum extent possible. While the total number ofemployees on the campus (inclusive of the East Campus)will be 14,000, the plan provides parking spaces at a ratioof for 1:3 (1 parking space per 3 employees) for 1,13724/7 shift employees, and at a ratio of 1:4 ratio (1 parkingspace per 4 employees) for the remaining employees. Inaddition, the plan provides 640 parking spaces for visitors,entirely on the west campus.As a result, there will be 379 spaces at the 1:3 ratio forthe 1,137 24/7 employees; 3,215 spaces at the 1:4 ratiofor the remaining 12,863 employees, as well as 640parking spaces for visitors. The total number of spaces tobe provided is 4,234. 3,100 employees and 775 parkingspaces at the 1:4 ratio will be will be located on theEast campus. 3,459 spaces will be located on the WestCampus.A Transportation Management Plan was prepared forthe Master Plan in accordance with the TransportationDemand Management Plans (TDMs) policies of theComprehensive Plan. The objectives of the strategiesfor Transportation Demand Management for the DHSHeadquarters Consolidation at St. Elizabeths are toreduce the number of Single Occupant Vehicles, increasethe percentage of employees using Metrorail, increasethe percentage of participating carpoolers, increase theaverage number of daily telecommuting participants,increase the average “carpool” vehicle occupancy rateand increase the average “all” vehicle occupancy (AVO)rate.DHS is committed to the strategies proposed in this TMP;however, it is anticipated that the TMP will be updatedas the project further develops and the East Campusis planned. These updates may identify additional and/or different strategies that can be implemented to helpfurther achieve DHS’ goals. DHS will continue to workwith transit and transportation agencies to help identifyfurther modal opportunities.One TDM strategy in the Master Plan provides shuttles totransport employees from transit stations to the campusand also provides shuttles to transport employees aroundthe campus so that private vehicles are not neededthroughout the day. The TDM strategy in the Master Planregarding bicycle facilities is to provide maps identifyingbike routes/walking paths, bicycle racks, lockers, andshower facilities near bicycle parking. In addition, it callsfor providing adequate covered and secured bicycleparking adjacent to buildings.Parks and Open Space ElementThe objectives of the Parks and Opens Space Elementof the Comprehensive Plan are preserving the keynatural resources of the region as permanent openspace; providing sufficient parks and recreation areasto meet the needs of residents and visitors; preservingfor posterity the nature and diversity of our natural andcultural heritage; and using open space to help guideurban growth. The element also fosters cooperation andpartnership among federal agencies, local governmentagencies, and nongovernmental or-ganizations entrustedwith the stewardship of the region’s parks and openspace.The historic resources of the West Campus of St.Elizabeths include significant open green spaces suchas The Point, the wooded slopes, the former agriculturalareas near the Greenhouses, and the southern lawn.While, due to the secure nature of the DHS Headquarters,and in keeping with the historic use of the site, the MasterPlan will not create new public park space, the plan willpreserve, rehabilitate, enhance and steward the significantexisting open spaces on the campus. In addition, throughthe Master Plan, a no-build buffer zone is establishedaround the protected species habitat area in the woodedareas on the southern portion of the site.The Master Plan supports the Terrain Features andTopographic Bowl policies of the Comprehensive Plan.The West Campus of St. Elizabeths is an important partof the topographic bowl which surrounds the central cityof Washington. The Master Plan minimizes impacts to theviews and vistas to and from the topographic bowl andto intrusions through the forested ridge of the Anacostiaridge to the extent possible through the use of the followingstrategies:• Integrating building masses with the natural topography,especially in the built areas on the slopes of the site, bysinking built forms into the hillside and terracing themdown with the slope;• Limiting heights of buildings on the sloped areas in theareas of the topographic bowl which are visible fromthe surrounding region;• Planning for buildings with footprints and widths whichare in keeping with existing buildings to the extentpossible;• Modulating building massing so that long walls areavoided;• Encouraging building design and landscapingtechniques that allow buildings to blend in with theirsettings; and• Avoiding satellite dish stations in areas which wouldmake them visible along the topographic bowl.The guidelines for preservation, design and developmentof the St. Elizabeths West Campus describe appropriatemeasures for treatment of existing and new buildings andlandscapes. These guidelines will further promote theminimization of impacts to the topographic bowl.The Master Plan for the DHS Headquarters Consolidationat St. Elizabeths proposes landscape strategies insupport of the Greenways and Greenbelts policies of theComprehensive Plan. The plan maintains the existingsignificant green areas on the campus, while improving andenhancing their quality. Large tree areas, wooded buffers,and tree canopies are maintained. Invasive species willbe removed and replanted with native species.Federal Environment ElementWith regard to the Federal Environment Element of theComprehensive Plan, the Master Plan takes an approachthat balances the needs of protecting the National HistoricLandmark with environmental and sustainability goalsand the functional requirements of new construction andsite users.The Master Plan supports the Air Quality policies of theFederal Environment Element by encouraging the use ofpublic transportation, decreasing use of single-occupantemployee vehicles, through the Transportation DemandManagement Strategies. In addition, the plan proposescogeneration of energy, and utilizing green buildingsystems and technologies including requiring LEEDratedbuildings.The Master Plan supports the Water Quality policiesof the Comprehensive Plan by accommodating newdevelopment while restoring site hydrology. Techniquessuch as maximizing pervious paving, managing rainfallwhere it falls, using surface water conveyance, andseeking campus-wide opportunities for managing waterquantity and quality including green roofs and rain gardenswill be utilized and are discussed in further detail in theMaster Plan report.The Master Plan supports the Water Supply policies ofthe Comprehensive Plan by establishing as a PlanningPrinciple regarding building water, optimizing the use ofpotable water primarily for uses related to human health.The Master Plan proposes to integrate the historiclandscape and natural features into the campus design.It supports the Vegetation policies of the Land Resourcessection of the Comprehensive Plan by preserving to theextent possible, existing vegetation, especially largestands of trees, incorporating new trees and plantings,maintaining, enhancing, and preserving meadows,woodlands and forested areas on the campus includingthe slopes, and encouraging the use of native plantspecies.The Master Plan supports the Wildlife Habitats policiesby restoring the ecosystem potential of the West Campusenvirons. Support includes preservation and enhancementof most of the wooded slopes, ravine restoration, andestablishment of native vegetation allowing plant andanimal organisms to live and reproduce within theirbiological communities.Preservation and Historic Features ElementThe Master Plan supports the National Capital Imagepolicies of expressing the dignity befitting the image of thefederal government in the national capital, and adheringto the high aesthetic standards through GSA’s DesignExcellence program, and the Preservation, Design andDevelopment Guidelines prepared for this Master Plan.The standards called for in the Preservation, Design andDevelopment Guidelines will ensure that existing historicresources will be stewarded, and that new developmentand construction on this NHL will be compatible withthe existing historic resources to the maximum extentpossible. GSA’s Design Excellence program will ensurethat the highest quality of architecture and design will beallowed for new construc-tion on the campus.As described above in relationship to the Terrain Featurespolicies, the Master Plan contains strategies to minimizeimpacts to and protect the skyline formed by the region’snatural features, particularly the topographic bowl aroundcentral Washington from intrusions. In addition, the MasterPlan was designed to protect the vistas and views that area part of the historic resources of the NHL, and contributeto the National Capital’s image.The Master Plan stewards the National Historic Landmarkof St. Elizabeths by providing standards for preservingand rehabilitating the existing historic buildings andlandscapes on the campus, and by promoting measuresfor minimizing the impacts of new development. Throughthe design of the campus, and the Preservation, Designand Development Guidelines prepared for this MasterPlan, new construction will be compatible with the qualitiesand character of historic buildings and their settings.14 | Introduction NOVEMBer 10, 2008 – NCPC Submission The DHS Headquarters Consolidation atSt. Elizabeths Final Master Plan

the cemetery, the public will be able to regularly accessthe historic cemetery.Policy FSS-2.2.3: Relationship To Nearby UsesFuture development on the St. Elizabeths West Campuswill enhance the surrounding neighborhood by providingthe presence of a new population to activate the area andsupport local businesses.FSS-2.5 Congress Heights Commercial DistrictThe Master Plan for St. Elizabeths will bring a work forcepopulation to the area which could help support therevitalization of the present and future businesses of theCongress Heights Commercial District.Related LegislationThere are a variety of recent legislative actions dealingwith the St. Elizabeths West Campus and DHS. Thoseactions are discussed briefly below.AppropriationsGSA has received the following appropriations inconnection with the St. Elizabeths West Campus:• Design Prospectus for $24,900,000 for the UnitedStates Coast Guard Headquarters at St. ElizabethsWest Campus; authorized by the Senate on July 20,2005, authorized by the House on October 26, 2005,and appropriated by PL 109-115 on November 30,2005.• $13,095,000 was appropriated for infrastructure workon the St. Elizabeths West Campus by PL 109-115,passed November 30, 2005.• Consistent with PL 110-5, (the full year ContinuingAppropriations Resolution for FY ’07), GSA will expend$6,440,000 on infrastructure work at the St. ElizabethsWest Campus appropriated by the Resolution.• As part of the Consolidated Security, DisasterAssistance, and Continuing Appropriations Act, 2009(PL110-309) enacted on September 30, 2008, DHSwas appropriated $97.5 million for the Coast Guard/DHS Headquarters.Other Legislative ActivityOn July 11, 2006, the Coast Guard Maritime andTransportation Act of 2006 (P.L. 109-241) was enacted.That Act prohibits the Commandant of the Coast Guardfrom moving any Coast Guard personnel, property,or other assets to the West Campus of St. Elizabethsuntil the Administrator of General Services submits tothe Committee on Transportation and Infrastructure ofthe House of Representatives and the Committee onCommerce, Science, Transportation, and the Committeeon Environment and Public Works of the Senate a planaddressing a variety of issues including road accessto the site from Interstate Route 295 and the design offacilities for at least one Federal Agency other than theCoast Guard that would house no fewer than 2,000employees at such location. GSA has prepared plandocumentation responsive to the provisions of the CoastGuard Maritime and Transportation Act, and has submittedthat documentation to the relevant Committees.Under PL 109-295 (FY 2007 Homeland SecurityAppropriations Act, passed October 4, 2006) DHS wasrequired to prepare and submit to Congress the DHSNational Capital Region Housing Master Plan. This plan,submitted to Congress in October 2006, details DHS’requirements for housing its headquarters and operatingcomponents in the D.C. area. The Plan identifies aneed for DHS to consolidate executive leadership andoperational management in a secure setting. DHS alsoneeds to reduce significantly the total number of locationsthat house DHS components to lower overall costs.Under PL 109-396, (the Federal and District of ColumbiaReal Property Act of 2006, enacted on December 15,2006), the District of Columbia is directed to transfer fivebuildings and related land it owns (totaling less than 10acres) on the St. Elizabeths West Campus to GSA. Oncethe transfer is completed, GSA will have care and custodyof the entire 176-acre West Campus.The President’s Budget for FY’09On February 4, 2008, the President transmitted hisBudget for fiscal year 2009 to the Congress. That budgetrequested the following funds for new construction forGSA, including funds for site acquisition, infrastructureexpenses, and associated design and construction asfollows:• $331,390,000 DHS Consolidation and development ofSt. Elizabeths campus• $8,249,000 St. Elizabeths West Campus Infrastructure• $7,000,000 St. Elizabeths West Campus (Ancillary)Site Acquisition (Needed to accommodate vehicularaccess to the site.)Availability of Affordable HousingWard 8 exceeds all other wards in terms of the number ofaffordable housing units, the number of housing choicevoucher holders, and those on the District HousingAuthority’s (DCHA) waiting list for housing. Affordablehousing refers to a combination of deeply subsidizedunits and units priced for the work force. More than 9,000affordable and special needs housing units exist in theward, with approximately 4,100 units in the developmentpipeline. Anacostia and Washington Highlands exhibitedthe largest totals of existing affordable and special needshousing units among the NIF areas, with WashingtonHighlands having the largest share of such housing unitsin the development pipeline.Community InvolvementOverviewAs part of its comprehensive Community InvolvementPlan, GSA has and continues to conduct strategic publicoutreach to inform key elected and appointed stakeholders,the Ward 8 community and the general public about theMaster Plan and EIS processes and status. In addition tothe required Scoping meeting, and the establishment of aproject specific website, over the past three years, GSAhas made presentations and participated in numerousmeetings in Ward 8 to provide periodic updates, identifyissues and solicit support.In particular, presentations to each of the Ward 8 AdvisoryNeighborhood Commissions (ANCs) and the AnacostiaCoordinating Council are scheduled at key projectmilestones. ANCs are made up of Commissioners electedby the residents and ensure input from neighborhoodsthat are directly affected by government and economicdevelopment activities. The Anacostia CoordinatingCouncil (ACC) is a volunteer consortium of organizationsand individuals concerned with the revitalization of theAnacostia and its neighboring communities east of theAnacostia River.GSA presented project related information at regularlyscheduled meetings, providing project specific informationand updates through PowerPoint presentations, projectfact sheet brochures, FAQs, and maps. Presenters fieldedquestions and comments from the audience which werebrought back to the Master Plan Team for considerationin the decision making process. All collateral materialsincluded contact information for project phone, emailand website mechanisms to capture and respond tocommunity questions and comments.Since project inception, additional outreach and updatesin Ward 8 have included:• Sponsoring a presentation of the GSA Master Plan toresidents of the Ward 8 community as well as District,16 | Introduction NOVEMBer 10, 2008 – NCPC Submission The DHS Headquarters Consolidation atSt. Elizabeths Final Master Plan

egional and federal stakeholders. GSA’s notificationprocess included invitation letters to key federal andlocal stakeholders and public outreach via electronicand door-to-door distribution of flyers, phone calls,ads in local print media, and utilization of communitybased organizations and institutions.• Participation in the DDOT sponsored South CapitolStreet Corridor Community Update Meetings wherethe St. Elizabeths Team informed Ward 8 residentsand stakeholders of the latest project updates andanswered questions posed by attendees.• Participation in Congresswoman Eleanor HolmesNorton’s Town Hall Meeting, where GSA presentedimportant, up-to-date information about the first everfederal development east of the Anacostia River.Additionally, GSA coordinated with USCG and DHSto provide information and answers to residents aboutthe upcoming redevelopment of the West Campus.• Participation in DDOT Anacostia Transportation andDevelopment Information Fair, providing informationon the process and status of development of the WestCampus as well as bus tours of the West Campus.PurposeThe purposes of community involvement in this MasterPlan are: to conduct public outreach that conveys GSA’sintent to redevelop the property as a location for theoffices of federal agencies; to inform key stakeholders,the Ward 8 community and the general public about theMaster Plan and EIS processes and status; and to complywith NEPA and Section 106 requirements, identify issues,solicit support as well as provide periodic updates.Methodology• Identify, meet with and brief key government and privatesector stakeholders;• Sponsor public meetings at key junctures;• Attend meetings of affected Ward 8 communityorganizations and present/update the project tomembership and residents.Actions to Date in Ward 810/22/08 – Briefing of Ward 8 Business CouncilCongresswoman Eleanor Holmes Norton hosted aWard 8 town hall meeting. Participants included: GSA,DHS, DCOP, and DMPED. GSA provided updates ondevelopment alternatives and results of environmentaldue diligence. DCOP and DMPED provided informationof the Small Area Plan for the East Campus.7/15/08 – Briefing of Ward 8 Business CouncilGSA met with the Ward 8 Business Council to provideinformation on GSA’s plans for developing the St.Elizabeths West Campus that included responding to theWard 8 Business Council’s goals related to the following:1. Engaging CBEs (certified business enterprises) andgetting them on your schedule;2. Identifying prospective job opportunities for Ward 8residents;3. Ensuring historical preservation;4. Ensuring public access to the Point;5. Conducting an impact statement on transportation andjobs;6. Encouraging employees to patronize businesses onthe MLK Jr. Corridor;7. Absorbing additional costs for infrastructure;8. Encouraging the use of public transportation to protectthe air quality in Ward 8.3/6/08 – GSA Tour of White Oak for the Ward 8Business CouncilGSA and several members of the Ward 8 Business Council,ACC’s and ANC visited White Oak. Question and answersession was provided on community involvement.10/18/07 – DEIS Public HearingGSA held a public hearing on the Draft EnvironmentalImpact Statement (EIS) at the Petey Greene CommunityCenter. The hearing was an opportunity for GSA to presentthe impacts of the redevelopment of St. Elizabeths WestCampus to the community and for the community to testifyon the record its comments/concerns related to GSA’saction. GSA will address all comments in the Final EISscheduled for release at the end of October 2008.10/16/07 – Dioxin Briefing for CommunityGSA is committed to being a “Good Neighbor” and willensure proper consideration is given to any issues thatmight impact the community. GSA took a proactive role toidentify any contamination risks.9/18/07 – Doing Business with GSA PresentationIn response to the specific request for information onSt. Elizabeths West Campus business contractingopportunities, GSA hosted a Business OpportunityForum in the Ward 8 Anacostia community. The Forumwas co-hosted with the Washington, DC Small BusinessDevelopment Center at the Anacostia EconomicDevelopment Corporation (DC-SBDC/AEDC), a technicalresource created by a cooperative agreement between theU.S. Small Business Administration, Howard Universityand AEDC and located in Ward 8 a short distance fromSt. Elizabeths West Campus. The Forum introducedbusinesses to potential contracting opportunities inconstruction and goods and services that will be availablethrough GSA and future St. Elizabeths West Campustenants DHS and USCG. GSA presented requirementsfor doing business with the federal government and PrimeContractors were on hand to discuss their subcontractingneeds and processes.6/10/06 – GSA Master Plan PresentationGSA conducted a public presentation of its Draft Masterplan alternatives for redevelopment of St ElizabethsWest Campus to residents of the Ward 8 communityas well as District, regional and federal stakeholders.The presentation provided background information onthe site, the master planning process, the alternativesbeing analyzed and project milestones. It also describedthe Section 106 process to evaluate the effects of theproposed re-development on the historic structures andlandscape. Representatives of the General ServicesAdministration, Coast Guard, and Homeland Securityanswered questions from the audience.5/4/06 – South Capitol Street Corridor CommunityUpdate MeetingMembers of the GSA Master Plan team participatedin the meeting hosted by the District Department ofTransportation (DDOT) to provide updates on DDOTprojects in the South Capitol Street Corridor as well asother development projects in the area. The St. ElizabethsTeam informed Ward 8 residents and stakeholders of thelatest project updates and answered questions posed byattendees.4/5/06 – Congresswoman Eleanor Holmes Norton -Town Hall MeetingGSA worked with Congresswoman Eleanor Holmes Norton(D-DC) to present important, up-to-date information aboutthe first ever federal development east of the AnacostiaRiver. GSA, USCG and DHS provided information andanswers to residents about the upcoming developmentof the west campus of St. Elizabeths Hospital for federaloffice space beginning with the $300 million Coast Guardheadquarters. Representatives of the D.C. Departmentof Transportation, D.C. Office of Planning, and NationalThe DHS Headquarters Consolidation atSt. Elizabeths Final Master PlanNOVEMBER 10, 2008 – NCPC SubmissionIntroduction | 17

Capital Planning Commission also described their rolesin the development. Mayor Anthony Williams, Ward 8Councilmember Marion Barry and ANC 8C Chair MaryCuthbert offered brief remarks.2/25/06 – Anacostia Transportation and DevelopmentInformation FairMembers of the GSA St. Elizabeths West Campus MasterPlan team participated in the Information Fair sponsoredby the District of Columbia Department of Transportation(DDOT) which highlighted transportation and developmentprojects planned for Anacostia. GSA’s information on theprocess and status of development of the West Campuswas included and the Fair provided the opportunityfor participants to take bus tours of the neighborhoodincluding the West Campus of St. Elizabeths.6/14/05 – GSA Public Scoping MeetingGSA sponsored the Scoping Meeting to facilitate an earlyand open mechanism for developing the scope of issuesto be addressed in the EIS and Section 106 process. Itallowed the public to help define, prioritize and conveystakeholder and community issues to the agency throughoral and written comments which comments and concernswere officially documented.Ward 8 Community Organization MeetingsGSA contacted Neighborhood Based Organizationsand requested the opportunity to present project relatedinformation at regularly scheduled meetings. Uponaddition to meeting agendas, GSA provided projectspecific information and updates through its presentationand handouts such as project fact sheets and brochures,FAQs, and maps. Directions for project phone, e-mail andwebsite contacts were supplied and presenters fieldedquestions and comments from the audience which werebrought back to the Master Plan Team.Advisory Neighborhood CommissionsANCs are made up of Commissioners elected by theresidents of Small Member Districts (SMDs) in each ofthe city’s Wards. The ANCs meet monthly to considera wide range of policies and programs affecting theirneighborhoods. The intent is to ensure input froman advisory board that is made up of residents ofneighborhoods directly affected by government or privatesector action. ANCs are the body of government with theclosest official ties to the people in a neighborhood.ANC presentations were made at meetings on thefollowing dates:ANC 2007 2006 20058A 9/4/07 6/06/06 1/03/06 10/04/058B 9/18/07 5/16/06 1/17/06 9/20/058C 9/7/07 9/12/07 6/07/06 1/11/06 9/07/058D 9/20/07 5/25/06 1/26/06 9/22/058E 9/18/07 5/16/06 1/17/06 9/20/05Anacostia Coordinating CouncilACC is a volunteer, membership consortium oforganizations, neighborhood businesses and individualcommunity activists concerned with the revitalization ofAnacostia and its neighboring communities east of theAnacostia River (see attached).ACC presentations were made on the following dates:• September 25, 2007• May 23, 2006• February 28, 2006• January 31, 2006• September 27, 2005Economic Development CommunityBenefits• $2.9B total construction expenditures;• 26,000 direct employment opportunities;• $931M payroll earnings expenditures duringconstruction;• $18M annual sales and use taxes;• Bringing 14,000 DHS employees into the Ward 8community with retail and amenities needs will provideopportunities for expanding existing businesses andcreating new ones;• Of the total of 4.5M square feet of space plus parkingrequires, GSA will be the anchor tenant on the EastCampus, leasing 750,000 square feet of space plusparking, which will be a catalyst for development.18 | Introduction NOVEMBer 10, 2008 – NCPC Submission The DHS Headquarters Consolidation atSt. Elizabeths Final Master Plan