Information Presentation Commission Meeting: May 3, 2018

PROJECT Monumental Core Streetscape Project SUBMITTED BY National Capital Planning Commission PRESENTER Meghan Spigle

NCPC FILE NUMBER 7886 NCPC MAP FILE NUMBER 00:00(41.00)44561

Purpose The purpose of this Information Presentation is to update the Commission on the background of the Streetscape Manual and current direction of the Monumental Core Streetscape Project. Background In 1991, the Secretary of Transportation initiated the National Mall Road Improvement Program. By 1992, a Working Group formed to oversee and coordinate roadway improvements within and around the National Mall. A memorandum of understanding (MOU) established the Working Group, originally comprised of the Architect of the Capitol (AOC), the District Department of Transportation (DDOT), the Federal Highway Administration (FHWA), and the National Park Service (NPS). In 2005, the Working Group updated the MOU to include several endorsers: the U.S. Commission of Fine Arts (CFA), the General Services Administration (GSA), the National Capital Planning Commission (NCPC), the National Gallery of Art (NGA), and the Smithsonian Institution (SI). The Working Group prepared the 1992 Streetscape Manual, a construction guide for all agencies to use when designing and constructing roadway improvements. The purpose of the Streetscape Manual was “to provide guidelines for a coordinated and consistent streetscape treatment for roadways in the central area of the city in the vicinity of the National Mall.” The Streetscape Manual consists of details and specifications for elements within the roadway including: roadway, curb and gutter, and sidewalk; street furnishings including streetlights, benches, trash and recycling receptacles, bicycle racks, and pedestrian barriers. The Streetscape Manual was well used by the Working Group over the course of the roadway improvement program and evolved over time. In 2013, the Working Group: (1) updated the Streetscape Manual with minor amendments to reflect existing conditions; and (2) identified the need for a more substantive amendment to address emerging issues (such as incorporating new technologies and stormwater management), as well as the Working Group’s evolving function. The Streetscape Manual’s original intent was to coordinate and implement roadway construction projects, which were largely completed in 2012. Since then, and without any substantive roadway projects planned, the Working Group continues to meet, but in a coordination role, making now a good time to complete the planning work necessary in anticipation of future construction cycles.

Information Presentation Page 2 NCPC File No. 7886

Proposed Scope of Work In response to the Working Group’s request, NCPC staff developed a draft Scope of Work for the Monumental Core Streetscape Project, which includes four primary tasks:

1. Update the MOU 2. Develop an Urban Design Streetscape Framework (a high-level street hierarchy map

and character area map for the monumental core) 3. Prepare Streetscape Design Guidelines (guidelines addressing emerging issues and

other streetscape elements, as appropriate) 4. Update the Streetscape Construction Manual (update the specification manual as

needed and make it more user friendly) Once these tasks are complete, they will be packaged into a user friendly Monumental Core Streetscape Guide. NCPC staff is seeking the Commission’s comments on the proposed Scope of Work, including the general approach and tasks as outlined above. NCPC staff will also provide an Information Presentation to the U.S. Commission of Fine Arts (CFA). Next Steps Next steps include renewing the MOU, finalizing the Scope of Work, and developing the Urban Design Streetscape Framework as defined above, which must be complete by late fall 2018. This framework will inform an update to a conceptual 1992 Street Lighting Framework for the monumental core prepared by CFA. It is necessary to update the Street Lighting Framework to coordinate with the District of Columbia’s Smart Street Lighting Project. Judah Gluckman, Deputy Director and Counsel of OP3 and Kathryn Roos, DDOT’s project manager, will brief the Commission on the Smart Street Lighting Project during the May Commission meeting. ATTACHED:

• Streetscape Manual (1992/2013) Boundary Map

• Streetscape Manual (1992/2013) Excerpt

• Example of Streetscape Guidelines

• Sources for the Urban Design Streetscape Framework

• Final Issues Statement (2018)

PROJECT TIMELINE

Remaining actions (anticipated)

– Review of the Urban Design Streetscape Framework

Streetscape Manual (1992/2013) Boundary Map

Streetscape Manual (1992/2013) Excerpt

Example of Streetscape Guidelines

Source: Downtown DC Business Improvement District Streetscape Enhancement Notebook, August 1999

Sources for the Urban Design Streetscape Framework

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Final Issues Summary

NCPC staff analyzed the 2013 version of the Streetscape Manual and relevant policy and planning documents to assess if the Manual’s content is current and consistent with those documents. NCPC staff also analyzed existing site and design conditions to assess application of the Manual and quality of streetscapes. In addition, NCPC staff individually met with Working Group agencies to collect input on potential updates to the Manual. The policy and planning, site and design analysis, and agency input reveals the following key issues, organized into five categories:

1. Policy & Planning 2. Manual Application 3. Precincts & Transitions 4. Function 5. Coordination

1. Policy & Planning: assesses where there are policy and planning discrepancies and gaps.

A. The existing Streetscape Manual was created to address coordination during a significant construction program instead of providing long-term streetscape design guidance within the Monumental Core.

B. The existing “Streetscape Manual Interagency Initiative for the National Mall Road Improvement Program” title does not accurately describe the geographic area covered in the Manual.

C. The existing Manual did not clearly identify when and which other standards apply, therefore discrepancies and gaps exist between federal and local streetscape policy and planning guidance.

D. There is no clear federal guidance or framework for streetscape design that: (1) Reconciles function and character; (2) Reinforces the historic and design character of precincts (Executive, Legislative, National

Mall, and Office); and (3) Addresses transitions between the National Mall and monumental core, including federal

and local areas. E. The Streetscape Manual lacks adequate guidance on street character and new and emerging

elements. 2. Manual Application: assesses application of the Streetscape Manual.

A. Overall, agencies succeed in applying the Streetscape Manual more consistently on the National Mall than off it. The Manual applies to areas beyond the National Mall, but is not being applied there.

B. Agencies do not consistently administer the Streetscape Manual because each agency implements the Manual using different levels of details, specifications, and forms of coordination.

C. The current Streetscape Manual has content gaps. D. The Streetscape Manual limits flexibility because it uses prescriptive details and specifications

for all the elements. This may be appropriate for some elements, such as street lampposts that

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contribute to historic character. Performance details and specifications may be more appropriate for other elements, such as streetlight lamps/bulbs that change with technological advances.

3. Precincts & Transitions: assesses how materials are used within and connect precincts (Executive, Legislative, National Mall, and Office) and how materials transition between the National Mall and monumental core, including federal and local areas. A. The existing Streetscape Manual did not adapt to the unique character of different precincts

(Executive, Legislative, National Mall, and Office) or clearly define elements applying to all precincts.

B. Generally, streetscape materials inconsistently transition across precincts, which have their own unique character.

C. Generally, streetscape materials inconsistently transition between the National Mall and monumental core, including federal and local areas, which have their own character.

D. Streetscape materials and elements transition differently. 4. Function: assesses how streetscapes serve environmental needs such as stormwater infrastructure,

and provide human services such as transportation, walkability, wayfinding, and other amenities. The Streetscape Manual does not currently address the following functional issues: A. Stormwater management facilities are implemented site-by-site, resulting in a piecemeal

solution that is neither comprehensive nor consistent. B. Changing and sustainable technologies (such as LED lights, parking meters, and car-charging

stations) are changing the way streetscapes look and function. C. Expanding transportation options, such as dockless bicycles and segways, and their

infrastructure needs, such as cycle tracks and bike boxes, are not controlled or well coordinated with current infrastructure.

D. Walkability is challenged for pedestrians, because of temporary perimeter security elements, vehicle barriers, long crosswalks, disconnected street walls and streetscape treatments, and lack of universal accessibility.

E. Wayfinding challenges visitor orientation, because of the streetscape materials and placement and coordination of multiple wayfinding signs.

F. Security for federal facilities will remain a need within the monumental core.

5. Coordination: assesses interagency collaboration on streetscape planning, design, maintenance, and operations. A. Right-of-way jurisdiction is unclear and enforcement of jurisdiction for maintenance and repair

work is inconsistent. B. The Streetscape Manual specifications are not always kept up-to-date or used to plan, design,

and construct utilities, repair work, and improvements. C. Maintenance is inconsistent among the various jurisdictions. D. Intra-agency coordination of Manual use is inconsistent. E. The Manual and local standards are not coordinated.

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F. There is no process to continuously review, assess, and update the Manual to address emerging issues.

G. The Streetscape Manual does not have an administrative section with (1) coordination contacts, (2) review authorities, processes, and checklists, (3) maintenance responsibilities, (4) permitting for utility and repair work, and (4) partnership agreements.