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Executive Director’s Recommendation Commission Meeting: October 4, 2012

PROJECT Parcel N Development (Southeast Federal Center) The Yards 4th Street, SE between Water Street, SE and Tingey Street, SE Washington, DC SUBMITTED BY United States General Services Administration REVIEW AUTHORITY Approval Per the Memorandum of Understanding, dated June 6, 2005, between the General Services Administration and the National Capital Planning Commission regarding the transfer by sale and/or long-term ground lease to Forest City SEFC, LLC and the mixed-use development of the Southeast Federal Center.

NCPC FILE NUMBER 7411 NCPC MAP FILE NUMBER 41.11(38.00)43634 APPLICANT’S REQUEST Preliminary and final approval of 35% site and building plans PROPOSED ACTION Approve as requested ACTION ITEM TYPE

Consent Calendar

PROJECT SUMMARY

This proposal is to construct an eleven story, mixed-use building at the Yards on the Parcel N development parcel which is part of The Yards development in Southeast Washington, DC. The streets abutting this development are Water Street, SE to the south, 4th Street, SE to the east and Tingey Street, SE to the north. Retail space is being developed on the ground floor of this building with residential above it. The buildings on either side of this project are residential - the one to the west of Parcel N is a redevelopment of an existing building (Foundry Lofts), while the development to the east will be new construction.

KEY INFORMATION

Conformity with the 2005 Memorandum of Understanding Design Guidelines

Conformity to the Height Act

RECOMMENDATION

The Commission: Approves the 35% design submission for the development plans for Parcel N, as shown on NCPC Map File No. 41.11(38.00)43634, as this design is consistent with the SEFC/Yards Master Plan and the design guidelines.

Executive Director’s Recommendation NCPC File No. 7411

I. PROJECT DESCRIPTION

Site

This project is located at The Yards development in Southeast Washington, DC. The Yards development, also referred to as the Southeast Federal Center, is a 55-acre site under the control of the General Services Administration. This site was once part of the Washington Navy Yard, but GSA gained control of it in the 1960s and it is currently being developed by Forest City Washington. The Yards is in a developing part of town and is sandwiched between the Washington Navy Yard and Washington Nationals Park. North of the site is M Street, SE and the recently relocated Department of Transportation Headquarters. The Anacostia River is also in close proximity to the Yards, and the development also included the construction of a segment of the Anacostia Riverwalk Trail which will be a block south of this project.

Each parcel in The Yards has a separate parcel designation and Parcel N is shown here in the middle of the Historic Zone, one of the two development zones included at the Yards. Parcel N is a 52,500-square-foot rectangular, gently sloping site that is situated between Tingey Street, SE (a 90 foot right of way), Water Street, SE (a 70 foot right of way) and 4th Street, SE (a 70 foot right of way). According to the development plan for the Yards, it will be a renovated Foundry

Figure 1: [Caption text for figure]


Lofts residential building which is to the west and as yet-to-be-built mixed-use building to the east across 4th Street.

Background

The Southeast Federal Center Public-Private Development Act of 2000 (Public Law 106-407, the Act) authorized GSA to enter into agreements with a private entity for the redevelopment of the SEFC, in consultation with the National Capital Planning Commission. GSA selected Forest City Washington as the developer. In January 2004, the Commission approved comments to GSA on the redevelopment plan, pursuant to Section 3(f) of the Act. The Commission also submitted its comments to the Zoning Commission in response to a referral of text and map amendments to add the Southeast Federal Center Overlay to the District of Columbia Zoning Regulations. In May 2004, the Commission approved the Southeast Federal Center Master Plan. GSA has executed a Programmatic Agreement (PA) for the treatment of the Navy Yard Annex Historic District and the remaining historic buildings. Design and treatment guidelines have been developed in consultation with the other signatories and with consulting parties including NCPC. Guidelines for development of the SEFC include the preservation of views and vistas to and from the waterfront, as well as to federal monumental buildings. High-density residential and

Figure 2: The Yards development and vicinity


mixed use is encouraged and plazas and open space destinations are an integral part of the site. The guidelines recommend an appropriate mix of neighborhood and waterfront-oriented retail, service and cultural uses located at ground level along major streets and buildings that face onto the Waterfront Park. The developers’ design approach is:

the creation of contemporary new architecture and site design, the adaptive use of historic buildings and site features where they exist, and the integration of compatible new construction and modifications with historic resources

in scale, materials, fenestration, and bay patterns.

Figure 3: The Yards development with Parcel N identified


Proposal

GSA has submitted a proposal for a building with 341,000 gross square feet of mixed-use to be developed on Parcel N at the Yards in Southeast Washington, DC. The height of this building will vary with a lower scale section to the west (83 feet) and higher scale development on the eastern portion of the site (110 feet). The buildings on either side of this project are residential - the one to the west of Parcel N is a redevelopment of an existing building (Foundry Lofts), while the development to the east will be new construction. GSA and the development team, Forest City Washington, brought in Robert A.M. Stern Architects, LLP to design this predominately residential building with retail on the ground floor. This proposal attempts to reference the industrial vernacular of existing nearby buildings as well as integrate existing building forms and reinforce the north-south alignment of the buildings that historically were located here. These images shown in Figure 4 were included in the submittal to show the relationship between the proposed building and the existing Foundry Lofts to the west.

Figure 4: Architectural Context


Site Plan The proposal includes a building in the shape of backwards “E” with a central spine along 4th Street, SE and three “pavilions” on the western portion of the parcel. The pavilions are intended as a transition from the Foundry Lofts, west of this parcel, to this building and the future Parcel O, a high-rise building being planned on the other side of 4th Street, SE. The pavilions are separated by two courtyards which have been included in the design as exterior space for tenants in this building. These courtyards would connect to a mews, or pedestrian walkway, that separates Parcel N from the Foundry Lofts, which are to the west. Sidewalks would surround the proposed building on the other three sides. A vehicle entrance to the below grade parking would be located along 4th Street, SE. The first floor plan of the building includes ground floor retail, building amenities like a lounge, fitness center, and game room. Also on this level would be the loading dock for the building. Each of the floor plans would be similar for floors two through eight, and the floors nine through eleven would be the same as well.

Figure 5: Plan for Parcel N


GSA states that the exterior building materials will be consistent with historic preservation design guidelines calling for industrial character, materials, color and textures. The materials for the base of the building include brick and operable windows. The materials for the “glass bar” portion includes operable aluminum window wall system with clear insulated low-e glass and integrated spandrel glass slab covers.

Figure 6: Perspective view from Tingey and 4th Street, SE looking southwest


Figure 7: East Façade – Parcel N

Figure 8: West Façade – Parcel N


II. PROJECT ANALYSIS/CONFORMANCE

Executive Summary

Staff finds that the development of Parcel N is consistent with the master plan as the proposed building will contain a residential use and have ground floor retail. Staff therefore recommends that the Commission approve the 35% design submission for the development plans for Parcel N, as shown on NCPC Map File No. 41.11(38.00)43634 as this design is consistent with the SEFC/Yards Master Plan and the design guidelines.

Analysis

Staff reviewed this project and has identified the federal interests as the project’s compliance with the 2005 Memorandum of Understanding (MOU) and the urban design guidelines established in them and compliance with the Height of Buildings Act of 1910, as amended. As part of the overall redevelopment agreement that was included the 2005 MOU for the Yards (formerly Southeast Federal Center), NCPC and GSA jointly established urban design guidelines to govern the development of this area. The urban design guidelines that Parcel N conforms to are as follows:

Height, bulk and siting of buildings shall provide open views and vistas to and from the waterfront and, where practical, maintain views of federal monumental buildings The building proposed for Parcel N is oriented to allow for views to the Anacostia River and does not obstruct views to or from federal monumental buildings.

Buildings, structures or uses proposed for the SEFC site should provide appropriate building and landscape treatment, in character with the street grid proposed for the SEFC… The building proposed for Parcel N is in keeping with the street grid for the Yards.

High density residential development is to be encouraged on the site. The building proposed for Parcel N is 110 feet in height which is what is allowed under the Height Act.

Landscaping which complements private development and the public streetscape and open space destinations shall be provided. The provision of plazas with appropriate landscaping and public uses at the intersection of major streets is encouraged. The site design includes wide sidewalk areas around this building creating an inviting pedestrian realm for people walking along 4th Street to the Anacostia River or to other buildings along Water and Tingey Streets.

On or above-grade parking adjacent to or visible from the street shall be limited. The building proposed for Parcel N includes underground parking.

Residential development shall have a variety of unit types and sizes. There are multiple types and sizes of units being proposed for this building

An appropriate mix of neighborhood and waterfront-oriented retail, service and cultural uses shall be considered at ground level along major streets, and for buildings which face onto the Waterfront Park.


The building proposed for Parcel N includes nearly 21,000 gross square feet of ground floor retail.

The MOU also contained performance design standards for this projects at the Yards that focused on sustainable design, pedestrian access, architectural design and urban design/planning. This proposal conforms to these design standards as it will be constructed to attain a LEED silver rating, provide ample sidewalks for pedestrians around the entire site, have explored the historic context and is in keeping with the height and bulk for buildings in its immediate vicinity.

Staff also explored the building’s compliance with the Height of Buildings Act of 1910. The Height Act includes, among other things, guidance on the location of rooftop penthouses. This proposed building includes multiple penthouses and all penthouses are set back from the exterior of the building facing the streets at a 1:1 height of penthouse to distance from the exterior wall as required by the Height Act.

Figure 9: Rooftop Plan – Parcel N


Staff notes that there are several penthouse on the rooftop that include a pool, mechanical equipment and a restroom that is above the limit of height; however, these are all set back appropriately from the edge of the roof facing a street. In 2008, the District of Columbia began an update of its zoning regulations. Included in this update will be an evaluation of human occupancy on rooftops and what type of uses are allowed. During the process, NCPC has submitted two letters to the District of Columbia regarding the proposed building height regulations. The first letter, dated January 5, 2009, discusses permitted rooftop structures how features, such as exercise areas and lounges, when at or above the height limit do not appear to be consistent with the Height Act. A second letter, dated September 14, 2010, to the Chairman of the Zoning Commission, was a response to possible language in the proposed zoning regulations that would allow structures to be built above street-based or zoning height limitations. One such rooftop structure outlined in the proposed zoning regulations included, “penthouses over accessory amenity features such as communal enclosed recreation space, and structures accessory to outdoor recreation space.” At the time, staff noted that this provision would allow for occupied space to be constructed above the limit of height permitted under the Height and recommended the Zoning Commission remove the language. Staff reviewed the restrooms and pool against the Height Act’s provision of human occupancy and the letters sent to the Zoning Commission and has determined that in this case the uses do not violate the Height Act as: the use is a small auxiliary use to the pool, the use is not the main function of the penthouses, everything is set back appropriately, and restrooms are for a short time use only.

Comprehensive Plan for the National Capital

The staff has determined that policies in the Comprehensive Plan for the National Capital: Federal Elements apply, in particular the following policies in the Preservation and Historic Features Element.

Express the dignity befitting the image of the federal government in the national capital.

Federal development should adhere to the high aesthetic standards already established by the planning and design legacy of the nation’s capital. This legacy encompasses both the old and the new—the capital’s rich architectural heritage, continually augmented by the design contributions of each generation. (National Capital Image: #1)

Use historic properties for their original purpose or, if no longer feasible, for an adaptive use

that is appropriate for the context and consistent with the significance and character of the property. (Stewardship of Historic Properties: #9)

Ensure the continued preservation of federal historic properties through ongoing maintenance

and transfer to an appropriate new steward with when disposal of historic properties is appropriate. (Stewardship of Historic Properties: #10)


CapitalSpace

While the Yards was not specifically identified in CapitalSpace Initiative, the inclusion of some outdoor space is welcomed in this part of the District of Columbia because historically there has not been much parkland here in this industrial part of the city. This has improved in the recent past with the opening of Diamond Teague Park, the Yards Park, Canal Park, and a portion of the Anacostia Riverwalk Trail.

National Environmental Policy Act (NEPA)

Pursuant to Section 3(f) of the Southeast Federal Center Public-Private Development Act of 2000 (Public Law 106-407), the Commission is acting in its capacity to comment on a proposal involving the Southeast Federal Center. Since NCPC comments are to advise only for proposals at the Southeast Federal Center, the Commission has no NEPA obligation regarding this review.

National Historic Preservation Act (NHPA)

GSA executed a Programmatic Agreement (PA) with the D.C. State Historic Preservation Office (DC SHPO) and with the Advisory Council on Historic Preservation. The PA guides review of proposals for the historic buildings on the site and for treatment of archaeological features and other site conditions and characteristics of the setting, which is a historic district eligible for listing in the National Register of Historic Places.

III. CONSULTATION

Coordinating Committee

The Coordinating Committee reviewed the proposal at its September 12, 2012 meeting and forwarded the proposal to the Commission with the statement that the proposal was coordinated with all participating agencies. The participating agencies were the NCPC; the General Services Administration; the District of Columbia Office of Planning; the National Park Service; and the Washington Metropolitan Area Transit Authority.

U.S. Commission of Fine Arts

The Commission of Fine Arts included this proposal on its regularly scheduled monthly meeting on September 20, 2012. CFA provide comments to GSA about the architectural style of the building. The overall building bulk and mass were approved and further design enhancements of the building materials was discussed. If GSA proposes significant changes to the design in the future, this project should be resubmitted to NCPC for review.

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