Federal Real Property: Property Conveyances between the District
of Columbia and the Federal Government Await Completion, and
Development Will Take Many Years (13-JUN-08, GAO-08-684).
The Federal and District of Columbia Government Real Property Act
of 2006 (Public Law 109-396) mandated GAO's review of the
property exchange between the District and the federal
government. None of the conveyances had occurred by the beginning
of GAO's audit phase. After consulting with the congressional
committees specified in the law, GAO developed research questions
that reflect an assessment of property exchanges and development
progress to date. GAO's objectives were to determine (1) the
status of the conveyances and transfers of the properties
identified in the law; (2) what steps the District and the
federal government have taken toward completing the conveyances,
what factors have affected their completion, and what additional
steps remain; (3)what preliminary development has occurred on the
properties exchanged between the District and the federal
government, and what are the current plans for use of these
properties; and (4)what development challenges the District and
federal government face going forward. GAO analyzed planning and
property documents; conducted site visits; and interviewed senior
officials from the District and the Department of the Interior
(DOI) among others. DOI and the General Services Administration
agreed with our findings, while the District and the Architect of
the Capitol (AOC) did not comment on our overall findings. All
provided technical clarifications which we incorporated as
appropriate.
-------------------------Indexing Terms-------------------------
REPORTNUM: GAO-08-684
ACCNO: A82357
TITLE: Federal Real Property: Property Conveyances between the
District of Columbia and the Federal Government Await Completion,
and Development Will Take Many Years
DATE: 06/13/2008
SUBJECT: Environmental cleanups
Environmental impact statements
Environmental monitoring
Federal agencies
Federal property
Federal property management
Federal regulations
Federal/state relations
Land management
Land use
Land use agreements
Policy evaluation
Program evaluation
Program management
Property disposal
Real estate transfers
Real property
Real property acquisition
Strategic planning
District of Columbia
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GAO-08-684
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Report to Congressional Committees:
United States Government Accountability Office:
GAO:
June 2008:
Federal Real Property:
Property Conveyances between the District of Columbia and the Federal
Government Await Completion, and Development Will Take Many Years:
GAO-08-684:
GAO Highlights:
Highlights of GAO-08-684, a report to congressional committees.
Why GAO Did This Study:
The Federal and District of Columbia Government Real Property Act of
2006 (Public Law 109-396) mandated GAO’s review of the property
exchange between the District and the federal government. None of the
conveyances had occurred by the beginning of GAO’s audit phase. After
consulting with the congressional committees specified in the law, GAO
developed research questions that reflect an assessment of property
exchanges and development progress to date. GAO’s objectives were to
determine (1) the status of the conveyances and transfers of the
properties identified in the law; (2) what steps the District and the
federal government have taken toward completing the conveyances, what
factors have affected their completion, and what additional steps
remain; (3)what preliminary development has occurred on the properties
exchanged between the District and the federal government, and what are
the current plans for use of these properties; and (4)what development
challenges the District and federal government face going forward. GAO
analyzed planning and property documents; conducted site visits; and
interviewed senior officials from the District and the Department of
the Interior (DOI) among others. DOI and the General Services
Administration agreed with our findings, while the District and the
Architect of the Capitol (AOC) did not comment on our overall findings.
All provided technical clarifications which we incorporated as
appropriate.
What GAO Found:
No property conveyances between the District and the federal government
have occurred as of June 6, 2008. All transfers of administrative
jurisdiction, which do not involve the transfer of title, became
effective the day (Dec. 15, 2006) that the President signed the Federal
and District of Columbia Government Real Property Act of 2006. Nine
conveyances between the Secretary of the Interior and the District,
excluding Poplar Point, are planned to be completed by the end of
summer 2008. The District intends to complete the conveyance of Poplar
Point by the fall of 2009, if it is able to meet several conditions in
the law, including developing a Secretary of the Interior-approved land-
use plan. The date for the completion of the conveyances of title
between the General Services Administration and the District is
uncertain and depends on an agreement between the District and the AOC
on the District conveying not more than 12 acres of District property
to the AOC.
Although the District and the federal government have taken several
steps to complete the conveyances, several factors have affected their
efforts, and additional steps must be taken to complete the
conveyances. The District and the National Park Service formed working
groups as a first step toward completing the conveyances. However,
negotiations about cleanup; testing properties for contamination;
disagreement over land to be conveyed as part of the Boathouse Row
properties, two properties along the western shores of the Anacostia
River; and decision changes about environmental impact statement
development for Poplar Point have slowed the completion of the
conveyances between the District and Secretary of the Interior.
Limited development has occurred on property already transferred or to
be conveyed between the District and the federal government.
Development will take many years to complete because the District must
first develop plans for most of these sites. For example, commercial
and residential development of Poplar Point is not likely to begin
until 2011 because of the steps, such as the development of a land-use
plan, which must be completed before the conveyance can occur.
Development may take over a decade to complete at Poplar Point.
The District and the federal government face several challenges as they
move forward to develop or manage the exchanged properties. For
example, some cleanup and development uncertainties, such as the extent
and location of the cleanup required, will likely affect the timeliness
of property development at Poplar Point. Other challenges facing the
District include (1) transitioning the Deputy Mayor’s Office from
policymaking and oversight roles to the lead in coordinating
development, a function that has not been the Deputy Mayor’s Office
core business, and (2) reaching community agreement about development
at Poplar Point.
To view the full product, including the scope and methodology, click on
[hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-08-684]. For more
information, contact Terrell Dorn at (202) 512-6923 or [email protected].
[End of section]
Contents:
Letter:
Results in Brief:
Background:
No Property Conveyances between the District of Columbia and the
Federal Government Have Occurred to Date:
Although the District of Columbia and the Federal Government Have Taken
Several Steps toward Completing the Conveyances, Additional Steps
Remain:
Limited Development Has Occurred on Properties Exchanged between the
District of Columbia and the Federal Government:
The District of Columbia and the Federal Government Face Challenges
Going Forward as the District Begins Development:
Agency Comments and Our Evaluation:
Appendix I: The Federal Government and the District of Columbia
Property Conveyances and Transfers in Public Law 109-396:
Appendix II: Description of Properties to Be Conveyed and Transferred
between the District of Columbia and Federal Government:
Appendix III: Comments from the Department of the Interior:
Appendix IV: GAO Contact and Staff Acknowledgments:
Tables:
Table 1: Summary of Property Status and Use by Receiving Entity:
Table 2: Proposed Land Uses of Properties Going to the District
(Includes Poplar Point and Reservation 13):
Figures:
Figure 1: Properties Exchanged between the District of Columbia and the
Federal Government:
Figure 2: Aerial View of the Poplar Point Property:
Figure 3: Master Developer's Vision of Poplar Point:
Figure 4: Aerial View of the Reservation 13 Property:
Figure 5: Aerial View of the Potomac Avenue Triangles Properties
(Reservations 243, 244, 245, 247, and 248):
Figure 6: Aerial View of the Boathouse Row Properties (Portions of
Reservations 343D and 343E):
Figure 7: Aerial View of the Eastern Market Properties (Reservations 44
to 49):
Figure 8: The Old Naval Hospital Property:
Figure 9: Aerial View of the Mount Vernon Square Property (Reservation
8):
Figure 10: Aerial View of the Audubon Terrace Property (Reservation
402):
Figure 11: Aerial View of the Poplar Point Property:
Figure 12: Aerial View of the U.S. Reservation 13 Property (Hill East
Waterfront):
Figure 13: Aerial View of the Old Naval Hospital Property (Lot 802,
Square 948):
Figure 14: Aerial View of the St. Elizabeths West Campus: Building
Numbers 16, 37, 38, 118, and 118A:
Figure 15: Aerial View of the U.S. Reservation 17A Property (Trash
Transfer Station):
Figure 16: Aerial View of the U.S. Reservation 484 Property (Randall
Recreation Center):
Figure 17: Aerial View of U.S. Reservations 243, 244, 245, 247, and 248
(Potomac Avenue Triangles):
Figure 18: Aerial View of U.S. Reservations 128, 129, 130, 298, and 299
(Virginia Avenue Triangles):
Figure 19: Aerial View of Portions of U.S. Reservations 343D and 343E
(Boathouse Row):
Figure 20: Aerial View of U.S. Reservations 721, 722, and 723
(Waterside Mall):
Figure 21: Aerial View of the U.S. Reservation 174 Property (Old
Convention Center; Lot 849, Square 374):
Figure 22: Aerial View of the Lovers Lane, NW, Property:
Figure 23: Aerial View of Needwood, Niagara, and Pitt Streets, NW (C&O
Canal National Historic Park):
Figure 24: Aerial View of a Portion of the U.S. Reservation 451
Property:
Figure 25: Aerial View of a Portion of the U.S. Reservation 404
Property (Canal Road, NW):
Figure 26: Aerial View of U.S. Reservations 44, 45, 46, 47, 48, and 49
(Eastern Market):
Figure 27: Aerial View of the U.S. Reservation 251 Property:
Figure 28: Aerial View of the U.S. Reservation 8 Property (Mount Vernon
Square):
Figure 29: Aerial View of U.S. Reservations 277A and 277C:
Figure 30: Aerial View of Portions of U.S. Reservation 470 (Fort Reno
Park):
Figure 31: Aerial View of the Audubon Terrace, NW, Property:
Figure 32: Aerial View of the Barnaby Street, NW, Property:
Figure 33: Aerial View of the Canal Street, SW, and V Street, SW,
Property:
Figure 34: Aerial View of the Streets and Alleys at the Fort Circle
Park Property:
Figure 35: Aerial View of the Western Avenue, NW, Property:
Figure 36: Aerial View of the 17th Street, NW, Property:
Figure 37: Aerial View of the 30th Street, NW, Property:
Figure 38: Aerial View of Land over I-395 (Including additional land
along/above I-395):
Figure 39: Aerial View of the Whitehaven Parkway, NW, Property:
Figure 40: Aerial View of the Remaining Land over I-395 (AOC):
Abbreviations:
AOC: Architect of the Capitol:
AWC: Anacostia Waterfront Corporation:
CERCLA: Comprehensive Environmental Response, Compensation, and
Liability Act:
CSOSA: Court Services and Offender Supervision Agency:
DHS: Department of Homeland Security:
DMPED: Office of Deputy Mayor for Planning and Economic Development:
DOI: Department of the Interior:
EIS: Environmental Impact Statement:
GSA: General Services Administration:
NCRC: National Capital Revitalization Corporation:
NEPA: National Environmental Policy Act:
NPS: National Park Service:
RFEI: Request for Expressions of Interest:
RFP: Request for Proposals:
USPP: United States Park Police:
United States Government Accountability Office:
Washington, DC 20548:
June 13, 2008:
Congressional Committees:
On December 15, 2006, Congress directed the conveyances of title or
transfers of administrative jurisdiction[Footnote 1] of 30
properties[Footnote 2] within the District of Columbia between the
federal government and the District of Columbia government.[Footnote 3]
The exchange was primarily intended to provide the District with
property for economic development to help expand its tax base and
reduce the District's structural fiscal imbalance--that is, the
difference between the District's costs to provide services and its
ability to raise revenue. The exchange was also intended to decrease
the District's financial dependence on the federal government. In May
2003, we reported that the District's structural imbalance, which stems
partly from the District's public service costs that far exceeded that
of the average state fiscal system, likely exceeded $470 million
annually and could have been as high as $1.1 billion, depending on the
assumptions used.[Footnote 4] The two largest properties to be
conveyed--both to the District--are Poplar Point, a 110-acre property
east of the Anacostia River administered by the Department of the
Interior's (DOI) National Park Service (NPS), and Reservation 13 (Hill
East), a 67-acre property along the western shores of the Anacostia
River at the southeastern end of Capitol Hill administered by the
General Services Administration (GSA). As the largest properties to be
conveyed, Poplar Point and Reservation 13 are planned to have the most
development and, thus, are likely to generate most of the new tax
revenue that would be available to reduce the District's structural
fiscal imbalance. Some of the property conveyances and transfers
involve underutilized federal and District property, thus potentially
providing management and efficiency benefits to both governments.
Although the statute conveys the largest properties to the District,
the federal government, including agencies such as NPS, GSA, and the
Architect of the Capitol (AOC), receives some property. For example, as
part of the exchange, GSA receives property that includes buildings on
the West Campus of St. Elizabeths, facilitating plans to consolidate
the Department of Homeland Security's headquarters on the property.
The law authorizing the conveyances and transfers of the properties
mandates that we report periodically over a 10-year period about (1)
how the properties are used and developed and (2) how this use and
development comply with the Anacostia Waterfront Framework Plan, which
is the District's guiding document for the Anacostia River's
restoration and revitalization. None of the conveyances had occurred by
the beginning of our audit phase. After consulting with the
congressional committees specified in the law, we developed research
questions that reflect an assessment of land conveyances and
development progress to date.[Footnote 5] In the future, we plan to
report periodically on the questions mandated in the law. The research
questions for this report are as follows:
1. What is the status of the conveyances and transfers of the
properties identified in Public Law 109-396?
2. What steps have the District and the federal government taken toward
completing the conveyances, what factors have affected their
completion, and what additional steps remain?
3. What preliminary development has occurred on the properties to be
exchanged between the District and the federal government, and what are
the current plans for use of these properties?
4. What development challenges do the District and federal government
face going forward?
To answer each of the four questions, we reviewed and analyzed
documents showing basic property data--such as maps, agency reports and
Public Law 109-396--and conducted site visits to key properties. We
also reviewed and analyzed planning documents, such as a summary of the
properties created by the District government; area master plans; and
development proposals. We interviewed senior officials from the
District government, NPS, the U.S. Park Police (USPP), GSA, and the AOC
as well as members of stakeholder groups, including Advisory
Neighborhood Commission 6, the Capitol Hill Restoration Society, the
Earth Conservation Corps, the Anacostia Economic Development
Corporation, the National Capital Planning Commission, and the U.S.
Commission of Fine Arts. We conducted this performance audit from
August 2007 through June 2008 in accordance with generally accepted
government auditing standards. Those standards require that we plan and
perform the audit to obtain sufficient, appropriate evidence to provide
a reasonable basis for our findings and conclusions based on our audit
objectives. We believe that the evidence obtained provides a reasonable
basis for our findings and conclusions based on our audit objectives.
Results in Brief:
No property conveyances between the District and the federal government
had occurred as of June 6, 2008. All transfers of administrative
jurisdiction, which do not involve the transfer of title, became
effective the day (Dec. 15, 2006) that the President signed the Federal
and District of Columbia Government Real Property Act of 2006. The
legislation directs the following exchanges:
* Property to the District government:
- Conveyances of eight NPS properties.
- Conveyances of two GSA properties.
- Transfers of administrative jurisdiction of seven NPS properties.
* Property to the federal government:
- Conveyances of two District properties to the Secretary of the
Interior.
- Conveyances of five buildings on the West Campus of St. Elizabeths
from the District to the Administrator of General Services.
- Conveyance of not more than 12 acres from the District to the AOC.
- Transfers of administrative jurisdiction of nine District-controlled
properties to the Secretary of the Interior for administration by the
NPS Director (a portion of one property (land over I-395) transfers to
the AOC) (See table 1 of this report.)
All conveyances between the District and the Secretary of the Interior,
except for Poplar Point, were planned to be completed by the end of
summer 2008. The District intends to complete the conveyance of Poplar
Point in the fall of 2009, if it can meet several conditions in the law
including developing a Secretary of the Interior-approved land-use
plan. The date for the completion of the conveyances of title between
the District and GSA is uncertain. The completion date depends on
agreement between the District and the AOC on conveying not more than
12 acres of District property to the AOC.
Although the District and the federal government have taken several
steps toward completing the conveyances, several factors have affected
their efforts, and additional steps must be taken to complete the
conveyances. According to District and NPS officials, the District and
NPS formed working groups to complete the conveyances between them.
However, negotiations about cleanup, testing properties for
contamination, disagreement over land to be conveyed as part of the
Boathouse Row properties, and decision changes about environmental
impact statement (EIS) development for Poplar Point have slowed the
completion of conveyances between the District and the Secretary of the
Interior. For example, the time frame for the conveyance of Poplar
Point was extended up to 2 years, when the District and NPS decided in
the summer of 2007 to develop an EIS for this property to avert
potential lawsuits and to address the concern that decisions made by
the Secretary of the Interior about Poplar Point might be considered a
major federal action that would significantly affect the environment.
District and GSA conveyances await agreement between the District and
the AOC on a District property, which must convey to the AOC before
Reservation 13--a 67-acre property along the western shores of the
Anacostia River at the southeastern end of Capitol Hill administered by
GSA--can convey to the District. Under an exchange agreement signed
between the District and GSA on January 2008, the Old Naval Hospital's
conveyance also awaits agreement on a District property of not more
than 12 acres for the AOC. Lastly, the District and the federal
government must complete several steps to complete the conveyance of
Poplar Point. Most of these steps pertain to meeting conditions within
the 2006 Act that transferred and will convey these properties. For
example, the District must complete a Secretary of the Interior-
approved land-use plan. In addition, facilities and property on Poplar
Point that are currently used by NPS will not be conveyed to the
District until the NPS Director certifies that replacement facilities,
which the District is responsible for preparing, are ready to be
occupied.
Limited development has occurred on property transferred or to be
conveyed between the District and the federal government. Development
will take many years to complete because the District must first
develop plans for most of these sites. As the largest conveyed
properties, Poplar Point and Reservation 13 are likely to have most of
the commercial and residential development and, thus, will likely
generate most of the new tax revenue to potentially reduce the
District's structural fiscal imbalance.
* Poplar Point - In February 2008, the District began the process for
developing an EIS to help devise alternative development scenarios for
the site. District officials expect the conveyance of Poplar Point to
occur in the fall of 2009. However, relocation of NPS and USPP
facilities will likely take 18 to 24 months, thus commercial and
residential development of Poplar Point is not likely to begin until
2011 and may take up to a decade to complete. The District selected a
Master Developer for Poplar Point in February 2008. This Master
Developer's vision for Poplar Point includes 1.5 million square feet of
office space, 3.8 million square feet of residential units, 405,000
square feet of retail space, 70 acres of parks, a waterfront
entertainment district, a deck over I-295 to connect the site with
Historic Downtown Anacostia, and an option for a soccer stadium.
* Reservation 13 - District officials expect the conveyance of
Reservation 13, the second-largest property to be conveyed at 67 acres,
to occur at an uncertain date in 2008. The District has administrative
authority over this property, and it has remediated and is preparing to
demolish Building 25. It has also begun constructing an interim plaza
adjacent to a nearby metro station and planning for the extension of
Massachusetts Avenue and other infrastructure improvements. Current
District plans call for Reservation 13 to be transformed into an urban
multiuse waterfront district that is in accordance with the Anacostia
Waterfront Framework Plan and the Hill East Master Plan approved by the
D.C. Council in 2002. Once complete, the mayor expects the site can
accommodate about 3,000 new units of housing for residents at all
income levels; nearly 5.5 million square feet of mixed-use development;
new public park spaces; and more than $80 million in new infrastructure
upgrades. While initial construction on Reservation 13 may begin in the
fall of 2008, District officials say that construction may take as long
as a decade.
* Other Transferred or Conveyed Properties - The District plans to
develop some transferred or conveyed properties commercially and
residentially, while using other properties for parks, recreation, or
other public uses. Development of the other exchanged properties, to
the extent applicable, is also in its early stages. The District has
commercial or residential redevelopment plans for at least part of two
of these properties beyond Poplar Point and Reservation 13. For
example, some of the Potomac Avenue triangles (Reservations 243, 244,
and 245) are properties targeted for commercial and residential
development in conjunction with the new major league baseball stadium,
while Reservation 247 is part of the new baseball stadium.
The District and the federal government face challenges as the District
moves forward to develop or manage the transferred or to be conveyed
properties. For example, some cleanup and development uncertainties
will likely affect the timeliness of property development at Poplar
Point. These uncertainties include the:
* extent and location of cleanup required,
* cost of environmental cleanup,
* determination of responsibility for paying for the environmental
cleanup,
* potential complications of relocating USPP facilities, and:
* amount of construction that is allowed prior to the Secretary of the
Interior's determination that NPS and USPP facilities are ready to be
occupied.
According to a senior NPS official and a senior USPP official,
relocating U.S. Park Police facilities may be complicated and might
affect the timeliness of the conveyance of the Poplar Point site to the
District, which in turn will affect when development on the site
begins. USPP needs space for helicopter landings and a firing range.
These facilities have flight space, noise, and safety implications that
will affect neighbors substantially; therefore USPP will require
community input that could make identifying a site difficult and could
lengthen the process. These issues will be examined as part of the EIS
process for Poplar Point. Other challenges facing the District include
(1) transitioning the Deputy Mayor's Office, which has assumed the
functions of the recently dissolved Anacostia Waterfront Corporation
and the National Capital Revitalization Corporation, from policymaking
and oversight roles to the lead in coordinating development, a function
that has not been the Deputy Mayor's Office core business, and (2)
reaching community agreement about development at Poplar Point.
DOI and GSA agreed with our findings and provided technical
clarifications which we incorporated as appropriate. The District and
the AOC did not comment on our overall findings and provided technical
clarifications which we incorporated as appropriate.
Background:
The Federal and District of Columbia Government Real Property Act of
2006 was intended to provide the District with property for economic
development to help expand its tax base and decrease the District's
financial dependence on the federal government. Expanding the
District's tax base should help reduce the District's structural fiscal
imbalance. A structural fiscal imbalance exists when the cost of
providing an average level of public services exceeds the amount of
revenue a government raises by applying average tax rates. We
highlighted this structural imbalance in a 2003 report, finding that
the District's public service costs far exceeded that of the average
state fiscal system, and these costs were largely beyond its control,
due to factors such as its large low-income population.[Footnote 6] The
report estimated that the imbalance likely exceeded $470 million
annually and could have been as high as $1.1 billion, depending on the
assumptions used. Our analysis indicated that the cost of delivering an
average level of services per capita in the District exceeded that of
the average state fiscal system by approximately 75 percent (or $2.3
billion more annually than if it faced average cost circumstances) and
was over one third more than the second-highest cost fiscal system, New
York. We found that even if the District addressed its underlying
management problems, such as inadequate financial management, billing
systems, and internal controls, such actions would not be enough to
offset the structural imbalance because the imbalance is determined by
other factors, as previously mentioned, largely beyond the District's
direct control. We also stated that addressing the imbalance may
require changes to federal policies to expand the District's tax base
or to provide additional financial support. If the assumptions
underlying this structural imbalance analysis change, then estimates of
the amount of the structural imbalance could change in either
direction. Development of the properties conveyed or transferred from
the federal government to the District through Public Law 109-396 is
intended to enable the District to expand its tax base.
The federal government and the District must comply with environmental
laws when completing the transfers and conveyances. Two environmental
laws relevant to the properties involved are the National Environmental
Policy Act (NEPA) and the Comprehensive Environmental Response,
Compensation, and Liability Act (CERCLA). NEPA requires federal
agencies to assess the likely environmental effects of the projects
that they propose. Federal agencies must prepare EISs for proposed
major actions significantly affecting the quality of the human
environment. Upon completing the EIS, a federal agency prepares a
public record of its decision addressing how it incorporated the
findings of the EIS, including consideration of alternatives into its
decision-making process. The NEPA process is designed to involve the
public and gather the best available information so that decision
makers can be fully informed when making their choices. The public may
participate in the NEPA process by attending NEPA-related hearings or
public meetings and by submitting comments directly to the lead agency.
The lead agency must take into consideration all comments received from
the public and other parties on NEPA documents during the comment
period. The entire NEPA process can take several years to complete.
CERCLA was enacted in 1980 to clean up highly contaminated hazardous
waste sites across the country. CERCLA requires that parties
statutorily responsible for cleaning up pollution bear the costs of
cleaning up contaminated sites. CERCLA established that past owners or
operators of contaminated property, including the U.S. government, may
be held responsible for the contamination.
No Property Conveyances between the District of Columbia and the
Federal Government Have Occurred to Date:
No property conveyances between the District, GSA, and NPS had occurred
as of June 6, 2008. However, all transfers of administrative
jurisdiction, which do not involve the transfer of title, became
effective the day (Dec. 15, 2006) that the President signed the Federal
and District of Columbia Government Real Property Act of 2006. (See
fig. 1 and table 1 for information on all conveyances of title and
transfers of administrative jurisdiction.) The legislation directs the
following exchanges:
Property to the District government:
* Conveyances of eight NPS properties.
* Conveyances of two GSA properties.
* Transfers of administrative jurisdiction of seven NPS properties.
Property to the federal government:
* Conveyances of two District properties to the Secretary of the
Interior.
* Conveyances of five buildings on the West Campus of St. Elizabeths
from the District to the Administrator of General Services.
* Conveyance of up to 12 acres from the District to AOC.
* Transfers of administrative jurisdiction of nine District-controlled
properties to the Secretary of the Interior for administration by the
NPS Director (a portion of one property (land over I-395) transfers to
the AOC).
All conveyances between the District and the Secretary of the Interior,
except for Poplar Point, are expected to be completed by the end of
summer 2008. For the conveyance of Poplar Point to occur in the fall of
2009 as intended, the District must complete a number of tasks to meet
conditions in the law including development of a Secretary-approved
land-use plan (see fig. 2.) The date for the completion of conveyances
of title between GSA and the District is uncertain and depends on
agreement between the District and the AOC on not more than 12 acres of
District property for the AOC. The AOC's current proposed use for the
up to 12 acre property is an offsite delivery facility.[Footnote 7]
Figure 1: Properties Exchanged between the District of Columbia and the
Federal Government:
This figure is a map of the properties exchanged between the District
of Columbia and the Federal Government.
[See PDF for image]
Source: GAO and the National Park Service.
[End of figure]
Table 1: Summary of Property Status and Use by Receiving Entity:
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: Poplar Point;
Acreage[H]: 110.0 (approx.);
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Fall 2009;
Proposed use: Parks, Recreation and Open Space[A];
Local Public Facilities[B]; and High Density Residential[C] and
Commercial[D].
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservation 17A;
Acreage[H]: Receiving entity: 1.273;
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: High Density Commercial;
Road realignment.
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservation 484;
Acreage[H]: Receiving entity: 8.508;
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: Parks, Recreation, and Open Space.
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservations 243, 244, 245, 247, and 248;
Acreage[H]: Receiving entity: 2.69;
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: High and Medium Density Commercial and
Residential[EF]; Local Public Facilities (baseball stadium).
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservations 128, 129, 130, 298, and 299;
Acreage[H]: 0.96;
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: Parks, Recreation, and Open Space (in
conjunction with adjacent development).
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: Portion[A] of U.S. Reservations 343D and 343E;
Acreage[H]: 19.0 (approx.);
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: Parks, Recreation, and Open Space
(Boathouse Row--marina/recreation).
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservations 721, 722, and 723;
Acreage[H]: Receiving entity: 3.248;
Status: Receiving entity: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: End of summer 2008;
Proposed use: Receiving entity: Parks, Recreation, and Open Space;
Road realignment.
Receiving entity: District of Columbia: Conveyances from the Department
of the Interior (DOI), National Park Service (NPS);
Property name: U.S. Reservation 174;
Acreage[H]: 0.31;
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: End of summer
2008;
Proposed use: Parks, Recreation, and Open Space (part of High Density
Development).
Receiving entity: District of Columbia: Conveyances from the General
Services Administration (GSA);
Property name: U.S. Reservation 13;
Acreage[H]: 67.0 (approx.);
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Uncertain;
Proposed use: Medium Density Commercial;
Local Public Facilities, Road Extension.
Receiving entity: District of Columbia: Conveyances from the General
Services Administration (GSA);
Property name: Old Naval Hospital (Square 948);
Acreage[H]: Transfers of administrative jurisdiction from DOI/NPS:
0.705;
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Uncertain;
Proposed use: Local Public Facility (Community Center).
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: A portion of U.S. Reservation 451;
Acreage[H]: 0.475;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Road/Access to Local Public Facility.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: A portion of U.S. Reservation 404;
Acreage[H]: Survey pending;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: December 15, 2006;
Proposed use: Parks, Recreation, and Open Space;
Road.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: U.S. Reservations 44, 45, 46, 47, 48, and 49;
Acreage[H]: 1.114;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: Receiving
entity: December 15, 2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: U.S. Reservation 251;
Acreage[H]: 0.151;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: U.S. Reservation 8;
Acreage[H]: 2.748;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: U.S. Reservations 277A and 277C;
Acreage[H]: 0.131;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: District of Columbia: Transfers of administrative
jurisdiction from DOI/ NPS;
Property name: Portions of U.S. Reservation 470;
Acreage[H]: 1.556;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: DOI/NPS: Conveyances from the District of Columbia;
Property name: Lovers Lane, NW (abuts U.S. Reservation 324);
Acreage[H]: 0.52;
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: End of summer
2008;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: DOI/NPS: Conveyances from the District of Columbia;
Property name: Transfers of administrative jurisdiction from the
District of Columbia: Needwood, Niagara, and Pitt Streets, NW (within
the C&O Canal National Historic Park);
Acreage[H]: 1.35;
Status: Transfers of administrative jurisdiction from the District of
Columbia: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: End of summer
2008;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Audubon Terrace, NW (within U.S. Reservation 402);
Acreage[H]: 0.381;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Barnaby Street, NW (abuts U.S. Reservation 545);
Acreage[H]: 0.436;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Canal Street, SW, and V Street, SW (abuts U.S.
Reservation 467);
Acreage[H]: 3.732;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Streets and alleys at Fort Circle Park (within U.S.
Reservation 497);
Acreage[H]: 4.35;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Western Avenue, NW (abuts U.S. Reservation 339);
Acreage[H]: 1.081;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: 17th Street, NW (abuts U.S. Reservation 339);
Acreage[H]: 0.268;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: 30th Street, NW (within U.S. Reservation 515);
Acreage[H]: 0.343;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: Land over I-395;
Acreage[H]: 1.69;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Memorial to disabled veterans;
Parking.
Receiving entity: Transfers of administrative jurisdiction from the
District of Columbia;
Property name: GSA: Whitehaven Parkway, NW (portion of U.S. Reservation
357;
Acreage[H]: GSA: 1.80;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parks, Recreation, and Open Space.
Receiving entity: GSA;
Property name: St. Elizabeths' Building Numbers 16, 37, 38, 118, and
118A;
Acreage[H]: 6.55;
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Uncertain;
Proposed use: Part of proposed Department of Homeland Security
headquarters.
Receiving entity: The Architect of the Capitol;
Property name: Not more than 12 acres of District of Columbia property;
Acreage[H]: 12.0;
Status: Conveyance awaits completion;
Estimated conveyance/ Actual transfer completion date: Uncertain;
Proposed use: Offsite delivery facility.
Receiving entity: The Architect of the Capitol;
Property name: Additional land over;
I-395;
Acreage[H]: 0.504;
Status: Transfer completed;
Estimated conveyance/ Actual transfer completion date: December 15,
2006;
Proposed use: Parking and Open Space.
Source: District of Columbia.
[A] "Parks, Recreation, and Open Space" is a land use designation that
includes federal and District park systems, including circles and
squares of the city, and permanent open spaces, such as the open spaces
along highways.
[B] "Local Public Facilities" is a land use designation that includes
land and facilities occupied and used by the District government or
other local government agencies, excluding parks and open spaces.
[C] "High Density Residential" is a land use designation used to define
neighborhoods and corridors where high-rise (eight stories or more)
apartment buildings are the predominant use.
[D] "High Density Commercial" is a land use designation characterized
by office and mixed office/retail buildings more than eight stories,
although many lower-scale buildings are interspersed.
[E] "Medium Density Residential" is a land use designation used to
define neighborhoods or areas where midrise (four-seven stories)
apartment buildings are the predominant use.
[F] "Medium Density Commercial" is a land use designation that defines
shopping and service areas in which buildings are generally more than
five stories, but generally do not exceed eight stories.
[G] Although "Parks, Recreation, and Open Space" is a District
classification, we believe that properties transferred or conveyed from
the District to the Secretary of the Interior also could be classified
as such.
[H] The basis for many of these acreage estimates are recent surveys
conducted by a surveyor hired by the District of Columbia.
[End of table]
Although the District of Columbia and the Federal Government Have Taken
Several Steps toward Completing the Conveyances, Additional Steps
Remain:
Although the District and the federal government have taken several
steps toward completing the conveyances, several factors have affected
their efforts, and additional steps must be taken to complete the
conveyances. The District and NPS formed working groups as a first step
toward completing the conveyances. However, negotiations about cleanup,
testing properties for contamination, and disagreement over land to be
conveyed as part of the Boathouse Row properties have slowed the
completion of District and NPS conveyances. The District and GSA have
completed a property exchange agreement, but the agreement is
contingent on the key step of conveying up to 12 acres of District
property to the AOC. In addition, the District must complete several
steps to complete the conveyance of Poplar Point by the fall of 2009.
The District and NPS Formed Working Groups as a First Step toward
Completing the Conveyances:
According to District and NPS officials, the two parties are working
cooperatively and formed four working groups to complete the
conveyances.
* A NPS and USPP Facilities Replacement team has been established to
discuss various aspects of the pending relocation of existing
facilities at Poplar Point.
* A Planning for Poplar Point team has been established to develop a
land-use plan for the site and produce this plan as a document in
accordance with NEPA as a way for (1) the District to consider a
variety of options for developing Poplar Point and satisfying the
District's Environmental Policy Act and (2) the District and NPS to use
in making decisions about NPS and USPP facilities at Poplar Point and
their possible relocation.
* A Environmental Compliance team has been established to ensure
compliance with the provisions of CERCLA that govern the transfer of
property by federal agencies.
* A Conveyance Documents team has been established to complete the
deeds by which the District and United States will convey properties.
The staffs of the District government and NPS also cooperated to
complete preparatory work, including drafting conveyance documents,
assessing property conditions, completing land-use plans, and
identifying potential new facilities for NPS and USPP. In addition,
both the District and NPS independently conducted environmental site
characterizations for each of the conveyed properties. GSA and District
staffs also worked cooperatively to complete preparatory work,
including drafting conveyance documents.
Several Factors Have Slowed District and NPS Conveyances:
Several factors have affected efforts to complete the conveyances
between the District and NPS. For example, the time frame for conveying
Poplar Point was extended when the District and NPS determined in
summer 2007 to develop an EIS for this property to (1) avert potential
lawsuits and (2) address the concern that decisions made by the
Secretary of the Interior about Poplar Point might be considered a
major federal action. According to District and NPS officials, they had
mutually agreed in early discussions that a full NEPA process involving
development of an EIS would not be required before the conveyance;
however, once they moved into more details of the transfer and proposed
development of Poplar Point, both parties agreed that meeting NEPA
requirements by developing an EIS appeared to be the most prudent
course.
Despite the extended time frame for Poplar Point, the District and NPS
originally hoped to have the other conveyances completed by the fall of
2007. However, NPS's desire to conduct soil sample tests to determine
property contamination levels, as well as negotiations over
environmental elements of the exchange agreement for Boathouse Row,
have lengthened the time needed to complete these conveyances. In
October 2007, NPS tested soil and groundwater samples taken from
Waterside Mall (Reservations 721, 722, and 723) and Virginia Avenue
properties (Reservations 128, 129, 130, and 299) for potential
contamination. The analysis of the collected samples did not indicate
the presence of contamination as defined by CERCLA.
The District and Secretary of the Interior have completed agreements
called a Finding of Suitability for Early Transfer (FOSET) and a Site
Specific Memorandum of Agreement for Reservations 343D and 343E (the
Boathouse Row properties) and Reservation 298. According to senior
District and NPS officials, the agreements for Reservations 298 and
343D outline how the Washington Gas remediation plan for Reservations
343D and 298 will be modified to meet the requirements of applicable
law and take into account the District's proposed changes in land use.
According to senior District and NPS officials, the District and NPS
agreed to identify a new cleanup plan before going jointly to
Washington Gas to negotiate its agreement (or compel it) to undertake
the necessary cleanup. These officials also stated that Reservation
343E, which is contaminated as a result of the prior operations of a
NPS concessioner, is covered in the FOSET agreement. The District and
NPS will identify and agree on a remediation plan for portions of
Reservations 343D and 343E and Reservation 298 after completion of a
land use plan, the development of which began in the spring of 2008 and
is scheduled to be complete by the fall of 2008. In short, the District
and DOI have come to an agreement about the process for reaching
cleanup agreements for these properties. The District and DOI agree
that in doing so they are meeting the requirements of CERCLA, Section
120(h) applicable to property transferred by federal agencies,
including use of a "deferral" of certain actions until after the
properties are transferred to the District.[Footnote 8]
An additional factor affecting the exchange agreement between the
District and NPS involves disagreement between the District and the
U.S. Army Corps of Engineers (the Corps) over a small land parcel
currently administered by the Corps on the Boathouse Row property. From
a docking area within Reservation 343D, the Corps operates a debris
removal facility that helps remove trash from the Anacostia River.
According to NPS and the Corps, although this property was mistakenly
included in an aerial photograph sent to the District at one point,
this land was never intended to be part of the conveyance. Prior to the
enactment of Public Law 109-396, the Corps and NPS attempted to
complete a transfer of jurisdiction through the District of Columbia
Office of the Surveyor transferring a small parcel of additional land
from NPS to the Corps to facilitate their existing operation. However,
according to a senior District official, NPS and the Corps were unable
to secure the approval for the proposed transfer from the District
Office of the Surveyor. The Corps will have to be temporarily relocated
from the existing site during part of the Washington Gas cleanup
efforts. The District disagrees with NPS's and the Corps' position and
has stated (1) that there is no documentary evidence showing that the
Corps has interest in the property and (2) that, therefore, it should
be conveyed to the District. The District and the Corps are currently
negotiating to devise a solution that is acceptable to both parties.
According to the District, the Corps' current location is not a good
spot because it would disrupt the Riverwalk Trail, a proposed trail
that runs along the Anacostia River and passes through the Boathouse
Row property, hinder the value and desirability of surrounding
boathouses and marinas, and is incompatible with the planned use of the
site.
A Change in Mayoral Administrations and Dissolution of the District's
Development Corporations Are Other Factors That Have Affected
Conveyance Timelines:
Other factors affecting the completion of the conveyances between the
District and the Secretary of the Interior, according to stakeholders,
was the change in mayoral administrations in the District at the
beginning of 2007 and the dissolution of the District's development
corporations later that year. The change of mayoral administrations
brought new personnel into city departments and put interaction with
the federal agencies briefly on hold, according to senior NPS
officials. Also, the new administration dissolved the Anacostia
Waterfront Corporation (AWC) and the National Capital Revitalization
Corporation (NCRC) and transferred their duties to the Office of the
Deputy Mayor for Planning and Economic Development (DMPED) in September
2007. AWC and NCRC were quasigovernment entities tasked with managing a
variety of economic development projects, with AWC focusing on the
Anacostia Waterfront Initiative area and NCRC covering the rest of the
city. The mayor and D.C. Council cited a number of reasons for the
dissolution. The mayor and D.C. Council wanted more direct control of
development activities, because the quasigovernment entities were seen
as less accountable. In particular, city officials were frustrated by
the disagreement between the two corporations over control of
properties along the Southwest Waterfront. In addition, the District
wanted to improve management by reducing redundancies in staff and
improving effectiveness. The ultimate goal of direct control and
streamlined management is to speed-up delivery of the projects, while
reducing costs, according to District officials. The dissolution
resulted in staff changes and attrition. According to a senior District
official, the staff of DMPED has increased from 33 full-time
equivalents (FTEs) in September 2007 to 63 FTEs in June 2008 and is
expected to grow to a total of 73 FTEs by August 2008 which is allowing
the agency to increase its capacity and more effectively respond to its
increased mission. According to senior NPS officials, the inevitable
transition time that the District needed for restructuring and
reorganization appears to have resulted in delays to the process of
completing the conveyances.
The District and GSA Have Completed a Property Exchange Agreement, but
the Agreement Is Contingent on the Key Step of Conveying Not More Than
12 Acres of District Property to the AOC:
On January 17, 2008, the District government and GSA executed an
agreement that established the terms and conditions of the property
conveyance between the two parties. Under the terms of the agreement,
GSA will convey Reservation 13 and the Old Naval Hospital to the
District in exchange for five buildings on the West Campus of St.
Elizabeths. However, the conveyance of Reservation 13 from GSA to the
District government is conditioned on the District's conveyance of not
more than 12 acres of District property to the AOC, which the AOC
currently intends to use for an offsite delivery facility. The
completion of the District-GSA exchange agreement was slightly delayed
by negotiations over conditions for the Court Services and Offender
Supervision Agency (CSOSA) remaining on Reservation 13. The issues
concerning the length of an extended CSOSA lease and the location of
parking spaces were resolved in a supplemental lease agreement signed
on January 8, 2008.
According to District and GSA officials, the conveyance of properties
between the District and GSA has been delayed by the need to agree upon
this site of not more than 12 acres for the AOC. After months of
researching possible sites, the District proposed four options in
August 2007. The two parties met in October 2007 to further discuss
these options: that is, three options in the D.C Village area at the
extreme southern tip of the District of Columbia and one option in
Beltsville, Maryland. In May 2008, an AOC letter to the District stated
that three of these options did not meet the AOC's needs, while a
fourth option is still subject to further investigation as the AOC
requested geotechnical, utility, and other information on the
District's 12 acre wooded parcel at the southernmost edge of the DC
village complex. According to AOC officials, the Beltsville site is too
far away and has entry through small roads that will make access by
large trucks difficult. These officials said that two options at D.C.
Village will not work because the AOC already has plans for the 10.8
unused acres at their current interim location that the District
suggested be combined with additional land offered by the District.
Negotiations to find agreement on a property of not more than 12 acres
are ongoing. As part of the exchange agreement signed with GSA on
January 17, the District must use its best efforts to complete the
conveyance within 6 months. According to AOC officials, the
identification and conveyance of a 12-acre District property to the AOC
is not close to completion, and therefore the date of the District-GSA
property conveyances is uncertain.
The District and the Federal Government Must Complete Several Steps to
Complete the Conveyances:
The District Must Complete a Poplar Point Land-Use Plan before
Conveyance:
For the conveyance of Poplar Point to occur by the fall of 2009 as
planned, the District must complete several steps to meet conditions in
Public Law 109-396. For example, before Poplar Point can be conveyed,
the District must complete a land-use plan that receives the approval
of the Secretary of the Interior. The statute requires a land-use plan
that:
* reserves no fewer than 70 acres for park purposes;
* identifies existing facilities and related property used by NPS, and
provides for relocation to other suitable facilities and related
property;
* sets aside at least two sites within the designated parkland for
commemorative works; and:
* is consistent with the Anacostia Waterfront Framework Plan, to the
greatest extent practicable.
The District must consult with the NPS Director about the
identification of existing and replacement facilities and properties
for NPS. The Secretary of the Interior must certify that the statute's
requirements for the land-use plan are met.
The District and DOI Must Meet the Environmental Requirements of NEPA
and CERCLA:
The District and DOI must also meet all requirements of NEPA by
considering the environmental impacts of their proposed actions at
Poplar Point and reasonable alternatives to those actions. The NEPA
process is designed to involve the public and gather the best available
information so that decision makers can be fully informed when making
their choices. At the end of the NEPA process, DOI will issue a record
of decision selecting a preferred alternative at Poplar Point. District
officials said that meeting NEPA requirements will likely take 12 to15
months, which means that this process will not be completed until about
the fall of 2009. In addition, the District anticipates that all CERCLA
requirements will be fully explored during the NEPA process. The
District issued a request for proposal (RFP) for NEPA consultants in
the fall of 2007 and received three proposals on November 30. The
District selected a NEPA consultant in February 2008.
The District and the federal government must also meet the requirements
of CERCLA. For contaminated DOI property, such as Reservations 343D,
343E, and 298, the District and DOI have come to agreement about the
process for reaching cleanup agreements for these properties, which
they believe meets applicable requirements set forth in CERCLA
governing the transfer of property by federal agencies. According to a
senior NPS official and a senior District official, these cleanup
agreements, once completed, will allow conveyances of the property from
the Secretary of the Interior to the District before the property is
remediated pursuant to the use of the so-called "deferral" or "early
transfer alternative" set forth in CERCLA at 42 U.S.C. §9620(h)(3)(C).
According to these officials, use of this option requires that the
transferring federal agency, here the DOI, remain responsible for
cleanup costs incurred post transfer. In addition, these officials also
say that the District may recoup cleanup costs from other responsible
parties, where appropriate, in the future.
Property Currently Used by NPS Will Not Be Conveyed Until the NPS
Director Certifies That Replacement Facilities Are Ready to Be
Occupied:
The facilities and related property currently used by NPS will not be
conveyed until the NPS Director certifies that replacement facilities
and related property are ready to be occupied or used by NPS. The NEPA
and relocation processes together could take almost 3 years, according
to the District government, NPS, and USPP, in part because construction
of these facilities must wait for the aforementioned Secretary-approved
land-use plan for the site. The current facilities encompass 100,000
square feet; sit on approximately 18 acres; and include NPS National
Capital Parks East Headquarters, the USPP Anacostia Operations
Facility, and the USPP Aviation Unit. The District and NPS are still
determining relocation plans for the facilities. Perhaps the most
likely option, according to District and NPS officials, is to relocate
the NPS offices; the offices for USPP District 5; and the other USPP
facilities, including the canine unit and shooting range to the
northern end of Poplar Point near the 11th Street Bridge. The USPP
aviation unit would move to a yet-to-be identified site that meets the
5-acre landing area and 10-acre safety zone requirement for their
helicopter pad. The District reissued a request for proposals (RFP) for
architecture and engineering firms for the facilities on December 3,
2007, after an initial RFP in November received no responses. The
District selected a firm in March 2008 to begin the design process. The
selected contractor will work with NPS and USPP to design replacements
for the NPS and USPP facilities currently located at Poplar Point. The
District anticipates construction will take at least 18 to 24 months
after the site is secured. Therefore, the relocation will not likely be
complete until 2011. The District is restricted from initiating other
construction until the NPS Director certifies that the facilities and
associated property to which NPS is to be relocated are ready to
occupy. Therefore, private development of Poplar Point is not likely to
begin until 2011. NPS was evaluating the definition of what constitutes
a "construction project" under the statute to determine which types of
preconstruction work may be done prior to the completion of the
replacement facilities.
Limited Development Has Occurred on Properties Exchanged between the
District of Columbia and the Federal Government:
Limited development has occurred on property transferred or to be
conveyed between the District and the federal government. Development
of the two largest properties, Poplar Point and Reservation 13, to be
conveyed between the District and the federal government is in its
early stages and will likely take up to a decade to complete. As the
largest properties to be conveyed, Poplar Point and Reservation 13 are
planned to have the most development and, thus, are likely to generate
most of the tax revenue to reduce the District's structural fiscal
imbalance. Development of the other exchanged properties, to the extent
applicable, is also in its early stages and will take many years to
complete as the District and the federal government develop plans for
use of each property.
Commercial and Residential Development of Poplar Point Will Not Likely
Begin until 2011:
Poplar Point is the most significant development opportunity involved
in the land exchange with the federal government and on the District's
waterfront. The District government envisions Poplar Point, which is a
110-acre DOI/NPS property east of the Anacostia River (see fig. 2), as
a mixed-use development that features a 70-acre waterfront park serving
as a green gateway to the Anacostia River and a series of river parks.
District plans envision residential development at Poplar Point to help
reconnect the historic Anacostia neighborhood back to the river that
shares its name. The District says that the Anacostia Waterfront
Framework Plan guides its vision for the site. As we have previously
discussed, Poplar Point's conveyance is not likely to occur until the
fall of 2009 because a number of conditions, such as the development of
a Secretary-approved land-use plan, must be met before the entire
conveyance can occur.
Figure 2: Aerial View of the Poplar Point Property:
This figure is a picture of an aerial view of the Poplar Point
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
To develop the vision for Poplar Point's future and help devise
alternative development scenarios for the NEPA process, the District
selected a Master Developer for the site in February 2008. The Master
Developer's vision for Poplar Point includes 1.5 million square feet of
office space, 3.8 million square feet of residential units, 405,000
square feet of retail space, 70 acres of parks, a waterfront
entertainment district, a deck over I-295 to connect the site with
Historic Downtown Anacostia, and an option for a soccer stadium (see
fig. 3). The District has required that at least 51 percent of the new
jobs created as a part of the development go to District residents. In
addition, the project must include affordable housing, and 35 percent
of the contracting dollars must be awarded to small and local
businesses. This Master Developer will be part of a long-term
collaborative planning and development process with the community,
according to the District. An EIS consultant will work with the
District, the Master Developer, and NPS to create a stakeholder
engagement process that will comply with the requirements of NEPA. The
District worked with NPS and USPP to select an architectural and
engineering firm in March 2008 to design replacement facilities for the
NPS and USPP facilities located on Poplar Point. According to a senior
District official, commercial and residential construction will not
likely begin on the site until 2011, and development will take many
years, perhaps up to a decade.
Figure 3: Master Developer's Vision of Poplar Point:
This figure is a picture of a master developer's vision of Poplar
Point.
[See PDF for image]
Source: Clark Realty Capital (artist's rendering).
[End of figure]
The District Envisions Mixed-Use Development for Reservation 13 in
Accordance with the Master Plan for the Site:
Current plans call for Reservation 13, a 67-acre property along the
shores of the Anacostia River at the southeastern end of Capitol Hill,
to be transformed into an urban multiuse waterfront district that is in
accordance with the Anacostia Waterfront Framework Plan and the Hill
East Master Plan approved by the D.C. Council in 2002 (see fig.
4).[Footnote 9] Once complete, DMPED expects that the site can
accommodate about 3,000 new units of housing for residents at all
income levels, nearly 5.5 million square feet of mixed-use development,
new public park spaces, and more than $80 million in new infrastructure
upgrades. The District intends for the project to create thousands of
new permanent jobs and construction jobs. The District's correctional
facilities will remain on the site, along with Anne Archbold Hall,
which was recently made a historic landmark.[Footnote 10]
Figure 4: Aerial View of the Reservation 13 Property:
This figure is a picture of an aerial view of the Reservation 13
property.
[See PDF for image]
Source: GSA.
[End of figure]
The District has completed or is in the process of completing a number
of development activities at Reservation 13, even though the site has
yet to convey. For example, the District has completed several design
activities for the site, including 100 percent of the interim plaza and
90 percent of Phase I infrastructure design drawings. Over the last few
months, the District has begun construction on an interim plaza
adjacent to the southern Stadium/Armory Metrorail Station and planning
for the extension of Massachusetts Avenue. The District has remediated
and selected a contractor to demolish Building 25, but the bulk of the
buildings will be remediated and demolished by the Master Developer.
The District issued a request for expressions of interest (RFEI) for a
Master Developer in May 2008 and expects to select one for Reservation
13 by the end of 2008. Completion of 100 percent of Phase I
infrastructure design is expected by August 2008, and construction
should begin in the fall of 2008. Development of Reservation 13 may
take as long as a decade.
The District Plans to Develop Other Exchanged Properties Commercially
and Residentially, While Using Some of These Properties for Parks,
Recreation, or Other Public Uses:
Development of the other exchanged properties, to the extent
applicable, is also in its early stages. The District has commercial or
residential redevelopment plans for at least part of two conveyed NPS
and GSA properties beyond Poplar Point and Reservation 13 (see table
2). For example, some of the Potomac Avenue triangles (Reservations
243, 244, and 245) are properties targeted for commercial and
residential development in conjunction with the baseball stadium, while
Reservation 247 is part of the new baseball stadium. Also, Reservation
248, just east of the Nationals baseball stadium, will be developed by
the group currently redeveloping the Southeast Federal Center and will
include the proposed Diamond Teague Park, which is part of the
Anacostia Riverwalk Trail (see fig. 5). Construction of residential and
office space is expected to begin within 2 years of the conveyance of
this property.
Table 2: Proposed Land Uses of Properties Going to the District
(Includes Poplar Point and Reservation 13):
Proposed use: Residential and/or commercial development;
Number of properties with this use as a component: 4.
Proposed use: Local public facility;
Number of properties with this use as a component: 4.
Proposed use: Parks, recreation, and open space;
Number of properties with this use as a component: 12.
Proposed use: Road construction/realignment;
Number of properties with this use as a component: 5.
Source: GAO analysis of District data.
Note: Some properties' plans propose multiple uses and are counted more
than once. See table 1 for a list of the individual properties and
their proposed uses.
[End of table]
Figure 5: Aerial View of the Potomac Avenue Triangles Properties
(Reservations 243, 244, 245, 247, and 248):
This figure is an aerial view of the Potomac Avenue Triangles
properties (Reservations 243, 244, 245, 247, and 248).
[See PDF for image]
Source: National Park Service.
[End of figure]
Twelve properties will be used as open space, parks, or for
recreational uses. For example, the Boathouse Row properties (portions
of Reservations 343D and 343E), 12-and 6-acre properties located on the
western shores of the Anacostia River, will be used for recreational
uses (see fig. 6). Currently classified as land with a light industrial
use, according to District and NPS officials, portions of Reservation
334D required a more stringent cleanup agreement than previously
existed between Washington Gas and NPS because the District intends to
change the land use from light industrial to recreational. The District
issued a request for proposals in December 2007 to select a firm to
assist in the creation of a master plan for these properties with the
goal of increasing use of and access to the Anacostia River, while
expanding opportunities for maritime development. The District selected
a planning firm in April 2008. This planning effort is under way and
expected to be completed by the end of September 2008. In addition,
construction of the Riverwalk Trail is under way and the portions along
Boathouse Row are expected to be completed in late 2008.
Figure 6: Aerial View of the Boathouse Row Properties (Portions of
Reservations 343D and 343E):
This figure is picture of an aerial view of the Boathouse Row
properties (portions of Reservations 343D and 343E).
[See PDF for image]
Source: National Park Service.
Note: This photo of the Boathouse Row properties captures NPS's version
of the property to be conveyed as the unhighlighted notch along the
Anacostia River is the current site of the Corps debris removal
facility. According to a senior District official, the exact boundaries
of the property to be conveyed have not been resolved.
[End of figure]
In addition, the Eastern Market properties (Reservations 44 to 49),
located next to the Eastern Market metro station, will be rehabilitated
and enhanced to create a gateway and link to a recently renovated
commercial strip along 8th Street, SE, called Barracks Row (see fig.
7). Reservations 721, 722, and 723 will be reconfigured as parks or
streets for the Waterside Mall redevelopment, which is currently under
way. Reservation 174 is a 0.25 acre property located at New York Avenue
and 11th Street, NW, to be conveyed from the Secretary of the Interior
to the District, whose conveyance is conditioned on the District's
enacting a final plan for the development of the former Convention
Center Site. The plan must be developed through a public process and
set aside no fewer than 1.25 acres of the former Convention Center Site
as open space. The Reservation 174 triangle will remain open space to
complement the surrounding residential and commercial development.
Reservations 128, 129, 130, 298, and 299 are triangles located on
Virginia Avenue that will be reconfigured into usable open space in
conjunction with the redevelopment of adjacent private property, in
accordance with the Anacostia Waterfront Framework Plan.
Figure 7: Aerial View of the Eastern Market Properties (Reservations 44
to 49):
This figure is picture of an aerial view of the Easter Market
properties (Reservations 44 to 49).
[See PDF for image]
Source: National Park Service.
[End of figure]
The District will use at least part of four conveyed properties for
other public uses. For example, the Old Naval Hospital, an almost 0.75
acre property in southeast D.C. near Capitol Hill conveyed from GSA to
the District, will be developed into a community center to be used for
educational classes, lectures, recitals, art shows, and community
events and will be operated by the Hill Center/Old Naval Hospital
Foundation (see fig. 8).
Figure 8: The Old Naval Hospital Property:
This figure is a picture of the Old Naval Hospital property.
[See PDF for image]
Source: GAO.
[End of figure]
The community center is scheduled for opening in early 2010. Also, GSA
plans to use the five buildings on the St. Elizabeths campus for
federal use, as part of the proposed Department of Homeland Security
(DHS) headquarters. For example, Building 37 Hitchcock Hall, will be
used as a DHS conference center. All of the exchanged properties are
discussed in more detail in appendix II.
Some Land Transfers Provided Management Efficiency Benefits to both the
District and the Federal Government:
The transfer of many properties between the District and the federal
government provided management efficiencies for both parties. The
Secretary of the Interior transferred the jurisdiction of Reservations
277A and 277C (North Capitol, Florida, and Lincoln Streets); 404 (Canal
Road); portions of 470 (Fort Reno Park); and 8 (Mount Vernon Square),
which were underutilized properties under NPS management, to provide
the District with continuity of management benefits or the interest to
properly maintain them. For example, Reservation 8, which the United
States continues to own although jurisdiction has been transferred to
the District, surrounds the City Museum (Carnegie Library), which the
District owns (see fig. 9). This transfer provides uniform
administration and more efficient management of the entire square by
the District. The District, on the other hand, transferred properties,
such as portions of Audubon Terrace, NW (Reservation 402), and Barnaby
Street, NW (Reservation 545), to the Secretary of the Interior for
administration by the NPS Director to ensure that planned streets that
were originally contemplated to bisect NPS parkland will never be built
(see fig. 10). Senior NPS officials commented that these transfers can
be seen as improving management efficiency, since most surrounding land
is NPS parkland and NPS would no longer have to be concerned about the
construction of new streets.
Figure 9: Aerial View of the Mount Vernon Square Property (Reservation
8):
This figure is a picture of an aerial view of the Mount Vernon Square
property (Reservation 8).
[See PDF for image]
Source: National Park Service.
[End of figure]
Figure 10: Aerial View of the Audubon Terrace Property (Reservation
402):
This figure is an aerial view of the Audobon Terrace property
(Reservation 402).
[See PDF for image]
Source: National Park Service.
[End of figure]
The District of Columbia and the Federal Government Face Challenges
Going Forward as the District Begins Development:
The District and the federal government face challenges as the District
moves forward to develop or manage the transferred or to be conveyed
properties. For example, cleanup and development uncertainties will
likely affect the timeliness of property development at Poplar Point.
Other challenges facing the District include (1) transitioning the
Deputy Mayor's Office from policymaking and oversight roles to the lead
in coordinating development, a function that has not been the Deputy
Mayor's Office core business, and (2) reaching community agreement
about development at Poplar Point.
Cleanup and Development Uncertainties May Affect the Timeliness of the
Development of Poplar Point:
Cleanup and development uncertainties may affect the timeliness of the
development of Poplar Point. These uncertainties include the:
* extent and location of cleanup required,[Footnote 11]
* cost of environmental cleanup,
* determination of responsibility for paying for the environmental
cleanup,[Footnote 12]
* potential complications of relocating U.S. Park Police facilities on
Poplar Point, and:
* amount of construction that is allowed prior to the Secretary of the
Interior's determination that NPS facilities are ready to be occupied.
The District is conducting a series of environmental assessments on the
Poplar Point site, the completion of which should begin to clarify the
cleanup issues. One senior NPS official said that multiple government
agencies could be responsible for contamination on the site. The
District's current plan is to complete the necessary cleanup and then
seek reimbursement from the responsible federal agencies. According to
District and NPS officials, the federal government is potentially
responsible for the majority of the costs of the cleanup on Poplar
Point, the scope of which is still in the process of being determined.
Any contamination that is found in areas where residential construction
is planned could delay the progress of construction until the cleanup
is finished or construction plans are modified. If cleanup costs for
the site are higher than expected, delays could result if funding is
not available. In addition, if significant federal funding is needed by
the District to complete the cleanup, a negative impact on future
agency budgets is possible. The quicker the District is able to develop
property such as Poplar Point, the more quickly the District will
potentially be able to reduce the structural fiscal imbalance that it
faces.
According to a senior NPS official and a senior USPP official,
replacing U.S. Park Police facilities may be complicated and might
affect the timeliness of the conveyance of the Poplar Point site to the
District, which in turn will affect when development on the site
begins. Replacing the NPS National Capital Parks Headquarters East
facilities should be relatively straightforward because the building is
an ordinary office building, but the replacement of USPP facilities
will be more challenging. For example, according to a senior NPS
official and a senior USPP official, USPP needs space for helicopter
landings and a firing range. These facilities have flight space, noise,
and safety implications that will affect neighbors substantially,
therefore the District and DOI will require community input. The
process could make identifying a site difficult and delay the
conveyance. In addition, a senior USPP official said that USPP prefers
that the motorcycle and special event units remain close to downtown
because even a mile or two difference can affect response times. USPP's
preference could complicate site identification.
The timeliness of the conveyance of the Poplar Point site to the
District for development may also be affected by the legal
interpretation of the statute's restriction on the initiation of
construction projects on Poplar Point. Under the statute, existing NPS
facilities and properties must be withheld from conveyance until the
NPS Director certifies that the facilities and related property to
which NPS is to be relocated are ready to be used and occupied by NPS.
The District may not initiate any construction project on Poplar Point,
except for any required to prepare facilities for occupation by NPS,
until the NPS Director makes this certification. However, what
qualifies as a "construction project" and what various types of
preconstruction work, utility relocation, soil-boring, or environmental
remediation would be allowed, is unclear, according to a senior NPS
official. NPS lawyers were examining this issue at the time of our
review. Therefore, the definition of "construction project" that is
ultimately decided upon will impact the speed of development and what
could be completed concurrently. A senior NPS official stated that NPS
wants to ensure that NPS and USPP have no disruption of operations
while they remain at their current facilities, which may further limit
activities on-site before the relocation. For example, he said that he
would not be comfortable with the District's working on the utilities
on which NPS and USPP currently rely.
The Office of Deputy Mayor for Planning and Economic Development is
Transitioning from Policy-making and Oversight Roles to the Lead in
Coordinating Development:
With the dissolution of AWC and NCRC and the transfer of their
functions to DMPED, this office faces the challenge of moving from
policy-making and oversight roles to the lead in coordinating
development--taking on responsibilities that had not been DMPED's core
business. For example, DMPED is moving from overseeing the activities
of AWC and NCRC to actually being responsible for hiring master
developers, NEPA consultants, and architecture and engineering firms
and for managing their work. District officials told us that they
believe they can succeed because the transition has included the
integration of many former AWC and NCRC employees. NPS officials also
spoke positively about interactions with senior District officials and
their seeming ability to achieve results. Some stakeholders, including
local community groups, one D.C. Council member, and a Ward 8 economic
development organization, have expressed concern about whether the
District has enough personnel to efficiently manage the District's
development projects given all of the construction projects under way
throughout the city. For example, a community group and an economic
development organization said that DMPED, as a result of the AWC
dissolution, has over 100 development projects to manage across the
city, and they expressed concern that some projects would end up
receiving less priority and be delayed as other development projects
progressed. A D.C. Council member expressed concern that putting $10
billion worth of development under the direct purview of the mayor may
be overwhelming, given all of the mayor's other responsibilities. Other
stakeholders, including a representative for a D.C. Council member and
an environmental community group, noted that the District had recently
dissolved two development authorities, AWC and NCRC, because they were
generally considered to be ineffective. These stakeholders maintained
that it was probably too early to tell whether the District's current
structure to manage development and construction throughout the city
would be effective.[Footnote 13]
Reaching Community Agreement about How to Develop Poplar Point and
Other Properties Could Be a Challenge:
Another challenge could be reaching community agreement about how to
develop some of the properties. Reaching community agreement at any of
the sites could be a challenge, but particularly at Poplar Point
because of the size of the potential development and the millions of
dollars at stake. According to most stakeholders, including several
community groups and the D.C. Council's Ward 8 representative, Ward 8
residents want affordable housing; commercial amenities, such as retail
stores, restaurants, and grocery stores; and community benefit packages
for Ward 8, such as jobs and business preferences. However, opinion is
divided on whether a soccer stadium should be a part of Poplar Point's
development. Some stakeholders, including the District community groups
One D.C. and the D.C. Association of Community Organizations for Reform
Now, believe that the stadium is not a priority for members of the Ward
8 community. Others, including the Ward 7 and Ward 8 D.C. Council
members and a President of an Anacostia economic development
organization, disagree and believe that the survey is not indicative of
the true sentiment of Ward 8 residents. Some maintain that a stadium
has community support and could transform Anacostia in a way that
retail amenities could not, by bringing in citizens who would not
otherwise travel to and spend money in the area. As a result of these
varying views, incorporating community input such that development at
Poplar Point meets the needs and concerns of much of the community in
an equitable and timely manner will be a challenge as the District
develops the largest unimproved property currently remaining in the
District.
Agency Comments and Our Evaluation:
We provided a draft of this report to the District of Columbia, DOI,
GSA, and the AOC for review and comment. DOI and GSA agreed with our
major findings and provided technical comments and clarifications,
which we incorporated as appropriate. DOI's comments are contained in
appendix III. The District and AOC did not comment on our overall
findings, but provided technical comments and clarifications via e-mail
which we incorporated as appropriate. AOC officials also expressed
concern that even though all transfers of administrative jurisdiction
occurred on December 15, 2006, the AOC has not received supporting
instruments (deeds) of transfer, including surveys and legal
descriptions, from the District.
We are sending copies of this report to the congressional committees
identified in the mandate, the Administrator of General Services, the
Architect of the Capitol, the Secretary of the Interior, and the Mayor
of the District of Columbia. We will also make copies available to
others upon request. In addition, the report will be available at no
charge on GAO's Web site at [hyperlink, http://www.gao.gov].
If you or your staffs have any questions about this report, please
contact me at (202) 512-6923 or [email protected]. Contact points for our
Offices of Congressional Relations and Public Affairs may be found on
the last page of this report. GAO staff who made key contributions to
this report are listed in appendix IV.
Terrell Dorn Director, Physical Infrastructure Issues:
List of Congressional Committees:
The Honorable Joseph I. Lieberman:
Chairman:
The Honorable Susan M. Collins:
Ranking Member:
Committee on Homeland Security and Governmental Affairs:
United States Senate:
The Honorable Henry A. Waxman:
Chairman:
The Honorable Tom Davis:
Ranking Member:
Committee on Oversight and Government Reform:
House of Representatives:
The Honorable John D. Dingell:
Chairman:
The Honorable Joe Barton:
Ranking Member:
Committee on Energy and Commerce:
House of Representatives:
The Honorable Nick Rahall:
Chairman:
The Honorable Don Young:
Ranking Member:
Committee on Natural Resources:
House of Representatives:
The Honorable James L. Oberstar:
Chairman:
The Honorable John L. Mica:
Ranking Member:
Committee on Transportation and Infrastructure:
House of Representatives:
[End of section]
Appendix I: The Federal Government and the District of Columbia
Property Conveyances and Transfers in Public Law 109-396:
Conveyances from the General Services Administration (GSA) to the
District of Columbia (District) (Section 101(a)(1)):
1. U.S. Reservation 13:
2. Old Naval Hospital:
Conveyance from the District to GSA (Section 101(c)):
1. Building Numbers 16, 37, 38, 118, and 118A (and underlying real
property) on the West Campus of St. Elizabeths:
Transfers of Administrative Jurisdiction from the District to the
Secretary of the Interior (Section 201(a)(1)):
1. An unimproved portion of Audubon Terrace, NW (within U.S.
Reservation 402):
2. An unimproved portion of Barnaby Street, NW (abuts U.S. Reservation
545):
3. A portion of Canal Street, SW, and V St., SW (abuts U.S. Reservation
467):
4. Unimproved streets and Alleys at Fort Circle Park (within U.S.
Reservation 497):
5. An unimproved portion of Western Avenue, NW (abuts U.S. Reservation
339):
6. An unimproved portion of 17th Street, NW (abuts U.S. Reservation
339):
7. An unimproved portion of 30th Street, NW (within U.S. Reservation
515):
8. Land over I-395 bounded by Washington Avenue, SW, 2nd Street, SW,
and the C Street, SW, ramps to I-295 (for Memorial to Disabled
Veterans):
9. A portion of U.S. Reservation 357 at Whitehaven Parkway, NW:
Transfer of Administrative Jurisdiction from the District to the
Architect of the Capitol (AOC) (Section 201(a)(3)(A)):
1. Additional land over I-395 (see #8 above) a. Northernmost 0.249
acres to NPS with approval of the AOC (for special needs parking) b.
Remaining portion to the AOC:
Transfers of Administrative Jurisdiction from the Secretary of the
Interior to the District (Section 201(b)):
1. A portion of U.S. Reservation 451:
2. A portion of U.S. Reservation 404:
3. U.S. Reservations 44, 45, 46, 47, 48, and 49:
4. U.S. Reservation 251:
5. U.S. Reservation 8:
6. U.S. Reservations 277A and 277C:
7. Portions of U.S. Reservation 470:
Conveyances from the District to the Secretary of the Interior (Section
202(b)):
1. Lovers Lane, NW (abuts U.S. Reservation 324):
2. Needwood, Niagara, and Pitt Sts., NW (within C&O Canal National
Historic Park):
Conveyances from the Secretary of the Interior to the District (Section
202(c)(1-6), 203, and 301)):
1. U.S. Reservation 17A:
2. U.S. Reservation 484:
3. U.S. Reservations 243, 244, 245, 247, and 248:
4. U.S. Reservations 128, 129, 130, 298, and 299:
5. Portions of U.S. Reservations 343D and 343E:
6. U.S. Reservations 721, 722, and 723:
7. U.S. Reservation 174 (former Convention Center Site):
8. Poplar Point (The District must find new sites for NPS facilities or
those facilities stay):
Conveyance from the District to the AOC (Section 204):
1. Not more than 12 acres of property chosen by the District and
approved by the AOC; if selected property is held by the Department of
the Interior, the Secretary of the Interior must approve:
[End of section]
Appendix II: Description of Properties to Be Conveyed and Transferred
between the District of Columbia and Federal Government:
Property Name: Poplar Point:
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service (NPS):
Property Acreage: Approximately 110 acres:
Property Location: East side of the Anacostia River across from the
Washington Naval Yard and the site of the new baseball stadium. The
property is bounded on the north by the Anacostia River, on the
northeast by and inclusive of the southeast approaches of the 11th
Street bridges, on the southeast by and inclusive of I-295, and on the
northwest by and inclusive of the Frederick Douglass Memorial Bridge
approaches to Suitland Parkway.
Ward: 8:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 301:
Property Status: Conveyance awaits completion:
Property Description: NPS currently manages this property as part of
Anacostia Park. In addition to 60 acres of managed meadow and several
sports fields, the site also includes the U.S .Park Police Aviation
Section Facility, the U.S. Park Police Anacostia Operations Facility,
and the National Capital Parks-East Headquarters. Poplar Point also
contains an area formerly occupied from 1927 to1993 by two nurseries,
the D.C. Lanham Tree Nursery and the Architect of the Capitol Nursery,
which left behind pesticides and other pollutants. Lastly,
infrastructure for the 11th Street and Frederick Douglass bridges
covers portions of the site on the perimeter of Poplar Point. The
District has a long-range plan to move the Frederick Douglass Bridge,
freeing-up additional land on Poplar Point, by about 2015. Conveyance
of title to the District will permit redevelopment of the property by
the District consistent with the November 2003 Anacostia Waterfront
Framework Plan. The conveyance is subject to a number of terms,
including those related to a deed restriction that 70 acres be used for
park purposes, the completion of a land-use plan, the setting aside of
sites for potential memorials, and the relocation of existing NPS and
USPP facilities.
Estimated Conveyance Completion: Fall 2009 (excluding NPS and USPP
facilities):
Proposed Use: Parks, Recreation, and Open Space; Local Public
Facilities; High Density Residential and Commercial:
Estimated Development Completion: Yet to be determined, but likely up
to a decade:
Figure 11: Aerial View of the Poplar Point Property:
This figure is a picture of the aerial view of the Poplar Point
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservation 13 (Hill East Waterfront):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: General Services Administration (GSA):
Property Acreage: Approximately 67 acres:
Property Location: Along western shore of Anacostia River, south of RFK
stadium. This property is bounded by Independence Avenue, SE, to the
north; 19th Street, SE, to the west; G Street, SE, to the south; and
U.S. Reservation 343 to the east.
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 101(a)(1)(A):
Property Status: Conveyance awaits completion:
Property Description: Reservation 13 has been occupied by District of
Columbia institutional uses since the 1850s and currently includes the
D.C. Jail, the Court Services and Offender Supervision Agency (CSOSA),
the remains of D.C. General Hospital, and several active health-care
agency functions. GSA transferred administrative jurisdiction to the
District in 2002 with a number of conditions, including reserving the
right-of-way to continue Massachusetts Avenue to the waterfront;
maintaining the presence of CSOSA; and stipulating that if the District
wanted to lease a portion of land for 15 years or longer, the city must
verify the lease with GSA. Conveyance of title will give the District
flexibility that it does not presently have, in land use and multi-use
development, as well as private development. Over the last few months,
the District has begun construction on an interim plaza adjacent to the
southern Stadium/Armory Metrorail Station and planning for the
extension of Massachusetts Avenue. The District has also remediated and
selected a contractor to demolish Building 25; however, the other
buildings will be remediated and demolished by the Master Developer.
The District expects to issue a request for expressions of interest for
a Master Developer in May 2008 and select one by the end of 2008. While
initial construction on Reservation 13 may begin by the end of 2008,
construction may not be completed until 2018. The conveyance is
included in the exchange agreement signed by the District and GSA on
January 17, 2008, and awaits resolution of the AOC conveyance for the
deal to be complete.
Estimated Conveyance Completion: Uncertain:
Proposed Use: Medium Density Commercial; Local Public Facilities; Road
Extension:
Estimated Development Completion: Approximately 2018:
Figure 12: Aerial View of the U.S. Reservation 13 Property (Hill East
Waterfront):
This figure is a picture of an aerial view of the U.S. Reservation 13
property (Hill East Waterfront).
[See PDF for image]
Source: General Services Administration.
[End of figure]
Property Name: Old Naval Hospital (Lot 802, Square 948):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: General Services Administration:
Property Acreage: 0.705 acres:
Property Location: 921 Pennsylvania Avenue, SE:
Ward: 6:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 101(a)(1)(B):
Property Status: Uncertain:
Property Description: Built in 1864, this site, known as Old Naval
Hospital served as a Navy hospital until 1911, then a boarding house
for veterans pursuing pension claims. GSA transferred administrative
jurisdiction of the property, together with the 15,187 square foot
antebellum brick house and 2,200 square foot carriage house to the
District in 1962. The District neglected the building to the point of
decay. Conveyance of title will allow the District to obtain capital
investment to renovate the property for adaptive reuse. In August 2007,
the District selected the Old Naval Hospital Foundation's plan for the
Hill Center, a community center that will offer a variety of lifelong
learning opportunities, as well as providing meeting and performance
space for community groups and office space for neighborhood
nonprofits. The D.C. Office of Property Management is currently
negotiating a long-term ground lease with the Hill Center/Old Naval
Hospital Foundation, and the center is scheduled to open in early 2010.
Community groups have expressed support for the project. The conveyance
is included in the exchange agreement signed by the District and GSA on
January 17, 2008, and awaits resolution of the AOC conveyance for the
deal to be complete.
Estimated Conveyance Completion: Uncertain date in 2008:
Proposed Use: Community Center:
Estimated Development Completion: 2010 - Hill Center opens:
Figure 13: Aerial View of the Old Naval Hospital Property (Lot 802,
Square 948):
This figure is a picture of an aerial view of the Old Navy Hospital
property (Lot 802, Square 948).
[See PDF for image]
Source: General Services Administration.
[End of figure]
Property Name: St. Elizabeths West Campus: Buildings Numbers 16, 37,
38, 118, and 118A:
Type of Exchange: Conveyance of title:
Entity Receiving Property: General Services Administration:
Entity Conveying Property: District of Columbia Government:
Property Acreage: 6.55 acres:
Property Location: Buildings are scattered throughout the site. St.
Elizabeths is bounded by Martin Luther King Avenue on the east, South
Capitol Street and I-295 on the west, the Barry Farm residential
community on the north, and National Park Service Shepherd Parkway land
and the Congress Heights residential community on the south.
Ward: 8:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 101(c):
Property Status: Conveyance pending:
Property Description: Building numbers 16, 37, 38, 118, and 118A,
located on the 176-acre, 61 building, St. Elizabeths West Campus in
Anacostia are to be conveyed from the District to the Administrator of
GSA. Ownership of the five buildings will give GSA the ability to
comprehensively reuse and develop the site for the planned Department
of Homeland Security (DHS) headquarters consolidation. The District
vacated the buildings in 2004. Building 16, the Pumping Station, will
be needed until the water service is upgraded, after which it will
likely be demolished to fit the needs of the site master plan. Building
37, Hitchcock Hall, will be renovated and used as a DHS conference
center. Building 38, Hagen Hall, will also be renovated for campus-wide
use, likely related to the conference and training center at
neighboring Building 37. Buildings 118 and 118a, known as the
Warehouse, are to be demolished as part of the site for a new Coast
Guard Headquarters building. The conveyance of title is included in the
exchange agreement signed by the District and GSA on January 17, 2008,
and awaits resolution of the Architect of the Capitol conveyance for
the deal to be complete.
Estimated Conveyance Completion: Uncertain:
Proposed Use: Part of proposed Department of Homeland Security
Headquarters:
Estimated Development Completion: 2015:
Figure 14: Aerial View of the St. Elizabeths West Campus: Building
Numbers 16, 37, 38, 118, and 118A:
This figure is a picture of an aerial view of the St. Elizabeths West
Campus: Building Numbers 16, 37, 38, 118, and 118A.
[See PDF for image]
Source: General Services Administration.
[End of figure]
Property Name: U.S. Reservation 17A (Trash Transfer Station):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 1.273 acres:
Property Location: This property is bounded by New Jersey Avenue, Canal
Street and 2nd Street SE:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(1):
Property Status: Conveyance awaits completion:
Property Description: The site was transferred to the District for
trash disposal purposes in 1947. Conveyance of title will permit the
District to implement redevelopment plans for a high density commercial
and residential use, as well as reinstitute the street grid of I
Street. This development would complement the neighboring redevelopment
of the former Capper/Carrollsburg public housing project. The District
plans to complete all underground storm drainage and utilities work
within 12 months after conveyance and commence construction of
residential and office space within 24 months after conveyance.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: High Density Commercial; Road Realignment:
Estimated Development Completion: Yet to be determined:
Figure 15: Aerial View of the U.S. Reservation 17A Property (Trash
Transfer Station):
This figure is a picture of an aerial view of the U.S. Reservation 17A
property (Trash Transfer Station).
[See PDF for image]
National Park Service.
[End of figure]
Property Name: U.S. Reservation 484 (Randall Recreation Center):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 8.508 acres:
Property Location: 65 I Street, SW:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(2):
Property Status: Conveyance awaits completion:
Property Description: This property at Randall Recreation Center and
park was transferred to the District for recreation purposes in 1973.
The District intends to use the land for park, recreation, and open
space uses. The property adjoins the Randall School purchased by the
Corcoran Gallery of Art for development of art studios, classrooms, and
residential units.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: Yet to be determined:
Figure 16: Aerial View of the U.S. Reservation 484 Property (Randall
Recreation Center):
This figure is a picture of an aerial view of the U.S. Reservation 484
property (Randall Recreation Center).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservations 243, 244, 245, 247, and 248 (Potomac
Avenue Triangles):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 2.69 acres (243 - 0.47; 244 - 0.48; 245 - 0.55; 247 -
0.51; 248 - 0.68):
Property Location: Along Potomac Avenue, SW and SE, between 2nd Street,
SW, and 2nd Street, SE:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(3):
Property Status: Conveyance awaits completion:
Property Description: These five triangles along Potomac Avenue were
transferred to the District for highway purposes in 1944. Reservations
243 and 245 are currently open space. A salt dome currently occupies
Reservation 244. A WASA storage facility occupies Reservation 248.
Reservation 247 is under the new baseball stadium and, thus, has
already been redeveloped. According to D.C. government plans, the rest
of the triangles will be part of the commercial and residential
redevelopment around the baseball stadium. Reservation 248 will include
part of the Anacostia Riverwalk.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: High and Medium Density Commercial and Residential; Local
Public Facilities (Baseball Stadium):
Estimated Development Estimated Development Completion: In March 2008,
Nationals' Baseball Stadium, partly located on Reservation 247, opened.
Development completion dates on the other reservations are yet to be
determined.
Figure 17: Aerial View of U.S. Reservations 243, 244, 245, 247, and 248
(Potomac Avenue Triangles):
This figure is a picture of an aerial view of the U.S. Reservations
243, 244, 245, 247, and 248 (Potomac Avenue Triangles).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservations 128, 129, 130, 298, and 299 (Virginia
Avenue Triangles):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 0.96 acre (128 - 0.21; 129 - 0.35; 130 - 0.12; 298 -
0.10; 299 - 0.18):
Property Location: Along M Street and Water Street, SE, where Virginia
Avenue would extend:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(4):
Property Status: Conveyance awaits completion:
Property Description: Conveyance of title will allow the District to
reconfigure these small triangles into useable open space in
conjunction with the redevelopment of adjacent private property in
accordance with the Anacostia Waterfront Framework Plan. Reservation
298 contains contamination from a neighboring property formerly
occupied by a coal to liquid facility operated by Washington Gas.
Because the District desires a future recreational use requiring a more
stringent clean-up, the District and NPS recently agreed on the process
of how to come to a cleanup agreement with Washington Gas to modify the
previous environmental remediation efforts.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space (in conjunction with
adjacent development):
Estimated Development Completion: Yet to be determined:
Figure 18: Aerial View of U.S. Reservations 128, 129, 130, 298, and 299
(Virginia Avenue Triangles):
This figure is a picture of an aerial view of the U.S. Reservations
128, 129, 130, 298, and 299 (Virginia Avenue Triangles).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Portions of U.S. Reservations 343D and 343E (Boathouse
Row):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: Approximately 19 acres (343D - 13 acres; 343E - 6.34
acres):
Property Location: This property is bordered by the Anacostia River on
the east; Water Street, SE, and M Street, SE, to the west; 11th Street,
SE, and 11th Street Bridges to the south; and the Anacostia River and
CSX Railroad Bridge to the north.
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(5):
Property Status: Conveyance awaits completion:
Property Description: A narrow stretch of Anacostia Park along the
western shore of the Anacostia River, these properties are currently
occupied by District Public Works facilities; U.S. Army Corps of
Engineers (Corps) facilities; District Water and Sewer facilities;
Anacostia Community Boathouse Association, Inc; Washington Yacht Club;
District Yacht Club; Eastern Power Boat Club; Seafarers Boat Club; and
the Anacostia Marina. The District plans to enhance the park qualities
of the properties to become a "Boathouse Row," which would accommodate
various waterfront recreation activities, including boating, and a
portion of the Anacostia Riverwalk trail. Conveyance of title to the
District will provide the opportunity for the District to redevelop and
enhance the marina, which cannot be achieved under NPS authorities.
Portions of both parcels contain environmental contamination, 343D from
a neighboring property formerly occupied by a coal-to-liquid facility
operated by Washington Gas and Reservation 343E as a result of the
prior operations of the Anacostia Marina. Because the District wants a
future recreational use requiring a more stringent cleanup, recent
District and NPS agreements for Reservations 298 and 343D outline how
the Washington Gas remediation plan for Reservations 343D and 298 will
be modified to meet the requirements of applicable law and take into
account the District's proposed changes in land use. The inclusion in
the conveyance of a small notch within Reservation 343D, occupied by
the Corps facilities is the subject of disagreement between the
District, NPS, and the Corps.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: 2011:
Figure 19: Aerial View of Portions of U.S. Reservations 343D and 343E
(Boathouse Row):
This figure is a picture of an aerial view of portions of the U.S.
Reservations 343D and 343E (Boathouse Row).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservations 721, 722, and 723 (Waterside Mall):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 3.248 acres (721 - 1.132; 722 - 1.490; 723 - 0.626):
Property Location: This property is bordered by I Street, SW, to the
north; 3rd Street, SW, to the east: K Street, SW, to the south; and 6th
Street, SW, to the west.
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 202(c)(6):
Property Status: Conveyance awaits completion:
Property Description: Three reservations at Waterside Mall were created
as urban parks as part of the southwest urban renewal in the 1970s.
Conveyance of title will provide the District with an opportunity to
reconfigure the property in association with the private redevelopment
of Waterside Mall. Reservations 721 and 723 will be used as parks,
while Reservation 722 will include the extension of 4th Street, SW.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space; Road Realignment:
Estimated Development Completion: Yet to be determined:
Figure 20: Aerial View of U.S. Reservations 721, 722, and 723
(Waterside Mall):
This figure is a picture of an aerial view of the U.S. Reservations
721, 722, and 723 (Waterside Mall).
[See PDF for image]
Source National Park Service.
[End of figure]
Property Name: U.S. Reservation 174 (Old Convention Center; Lot 849,
Square 374):
Type of Exchange: Conveyance of title:
Entity Receiving Property: District of Columbia Government:
Entity Conveying Property: National Park Service:
Property Acreage: 0.31 acre:
Property Location: Northwest corner of the Old Convention Center site.
This property is bordered by New York Avenue, NW, to the north; 10th
St., NW, (to be built) to the east; I Street, NW, (to be built) to the
south; and 11th St., NW, to the west.
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 203:
Property Status: Conveyance awaits completion:
Property Description: A 13,500 square foot reservation at New York
Avenue and 11th Street, NW, NPS transferred Reservation 174 to the
District in the 1970s as part of the site for the Old Convention
Center, with the condition that it was to remain as open space adjacent
to the structure. The law conditions conveyance of title to the
District upon completion of a final plan for the Old Convention Center
site through a public planning process, the consideration of an
alternative that maintains Reservation 174 as open space, and the final
plans inclusion of 1.25 acres of open space. In compliance with these
conditions, the District proposed a triangular-shaped park on
Reservation 174. This new park will be created in conjunction with the
reopening of 10th and I Streets which border the property. In May 2007,
the National Capital Planning Commission commented favorably on the
concept design for the new park. The District expects conveyance of
this property to occur shortly and separately, as permitted under the
law, from the other conveyances between the District and DOI.
Estimated Conveyance Completion: June 2008:
Proposed Use: Parks, Recreation, and Open Space (part of High Density
Development):
Estimated Development Completion: Yet to be determined:
Figure 21: Aerial View of the U.S. Reservation 174 Property (Old
Convention Center; Lot 849, Square 374):
This figure is a picture of an aerial view of the U.S. U.S. Reservation
174 Property (Old Convention Center; Lot 849, Square 374).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Lovers Lane, NW:
Type of Exchange: Conveyance of title:
Entity Receiving Property: National Park Service:
Entity Conveying Property: District of Columbia Government:
Property Acreage: 0.52 acre:
Property Location: North of R Street, NW; between Dumbarton Oaks and
Reservation 324 (Montrose Park):
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 202(b)(1):
Property Status: Conveyance awaits completion:
Property Description: This property is a one-block-long former roadway
located adjacent to Montrose Park and Dumbarton Oaks, owned by Harvard
University. The conveyance will facilitate elimination of the unused
roadbed and would provide NPS and Dumbarton Oaks with sufficient
interests to perform maintenance along walls and other park facilities
adjacent to the roadway.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 22: Aerial View of the Lovers Lane, NW, Property:
This figure is a picture of an aerial view of the Lovers Lane, NW,
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Needwood, Niagara, and Pitt Streets, NW (C&O Canal
National Historic Park):
Type of Exchange: Conveyance of title:
Entity Receiving Property: National Park Service:
Entity Conveying Property: District of Columbia Government:
Property Acreage: 1.350 acres (Needwood - 0.670; Niagara - 0.449; Pitt
- 0.231):
Property Location: North side of the C&O Canal in Georgetown; Needwood
is at 29th Street, NW; Niagara is between 31st and Wisconsin Avenue,
NW; and Pitt is at 33rd Street, NW:
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 202(b)(2):
Property Status: Conveyance awaits completion:
Property Description: These properties include three former street
rights-of-way and have been occupied by the C&O Canal since the 19th
century. The conveyance will provide NPS with sufficient interests to
manage these heretofore District-owned portions of the C&O Canal
National Historical Park in Georgetown.
Estimated Conveyance Completion: End of summer 2008:
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 23: Aerial View of Needwood, Niagara, and Pitt Streets, NW (C&O
Canal National Historic Park):
This figure is a picture of an aerial view of Needwood, Niagra, and
Pitt Streets, NW (C&O Canal National Historic Park).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: A portion of U.S. Reservation 451:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 0.475 acre:
Property Location: Along the north edge of Gallatin Street, NE, west of
South Dakota Avenue:
Ward: 5:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(1):
Property Status: Transfer completed December 15, 2006:
Property Description: This parkland was encumbered with a one-block
section of Gallatin Street, NW, which provides access to an existing
District public works facility.
Proposed Use: Road/Access to local public facilities:
Estimated Development Completion: No development planned:
Figure 24: Aerial View of a Portion of the U.S. Reservation 451
Property:
This figure is a picture of an aerial view of a portion of the U.S.
Reservation 451 property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: A portion of U.S. Reservation 404 (Canal Road, NW):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: Survey pending:
Property Location: Canal Road, NW, from Foxhall Road to the Chain
Bridge (North Glebe Road):
Ward: 3:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(2):
Property Status: Transfer completed December 15, 2006:
Property Description: This property is beneath Canal Road, NW, and was
the subject of a right-of-way permit to the District. This transfer
provides the District with the requisite interest to adequately operate
and maintain the existing roadway.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 25: Aerial View of a Portion of the U.S. Reservation 404
Property (Canal Road, NW):
This figure is a picture of an aerial view of a portion of the U.S.
Reservation 404 property (Canal Road, NW).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservations 44, 45, 46, 47, 48, and 49 (Eastern
Market):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 1.114 acres (44: 0.243; 45: 0.186; 46: 0.032; 47:
0.020; 48: 0.261; 49: 0.372):
Property Location: Along Pennsylvania Avenue between 7th and 9th
Streets, SE:
Ward: 6:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(3):
Property Status: Transfer completed December 15, 2006:
Property Description: This transfer includes six reservations of
parkland around the Eastern Market Metro stop. Community leaders, led
by Barracks Row Main Street (BRMS) and backed by local businesses, want
to redesign the parks into a town center square for Capitol Hill.
According to a member of Barracks Row Main Street's Board of Directors,
the plans have the support of District officials and the financial
backing of BRMS and the local businesses. These redesigned parks would
link the revitalized areas of 8th Street, SE; "Barracks Row"; and 7th
Street, SE, "Market Row," and would serve as a gateway to the community
with unique neighborhood markers and kiosks around the Metro. A
complementary gateway park will also be created at the southern end of
8th Street, SE, on Reservation 251. The transfer of administrative
jurisdiction was needed to allow the kiosks, since commercial
transactions are not allowed on NPS land, as well as to facilitate the
redesign of the parks. BRMS has commissioned a design study, which
should be completed by August or September 2008, and will provide
design alternatives for community input. BRMS anticipates that
construction could begin by the end of 2008.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: 2009 - 2010:
Figure 26: Aerial View of U.S. Reservations 44, 45, 46, 47, 48, and 49
(Eastern Market):
This figure is a picture of an aerial view of the U.S. Reservations 44,
45, 46, 47, 48, and 49 (Eastern Market).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservation 251:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 0.151 acre:
Property Location: M Street, SE, between 8th and 9th Streets, SE:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 201(b)(4):
Property Status: Transfer completed December 15, 2006:
Property Description: This property is a triangle at the southern end
of the Barracks Row commercial strip. Community leaders and local
businesses want to redevelop it as an urban park to serve as a gateway
to the commercial strip known as Barracks Row and to complement similar
development at the northern end around the Eastern Market Metro. The
park will likely feature a sculpture.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: 2009 - 2010:
Figure 27: Aerial View of the U.S. Reservation 251 Property:
This figure is a picture of an aerial view of the U.S. Reservation
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservation 8 (Mount Vernon Square):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 2.748 acres:
Property Location: Mount Vernon Square; between 7th and 9th Streets,
NW:
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(5):
Property Status: Transfer completed December 15, 2006:
Property Description: This park property at Mount Vernon Square
surrounds the City Museum (Carnegie Library), which is owned by the
District. The transfer provides uniform administration and more
efficient management of the entire square by the District.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 28: Aerial View of the U.S. Reservation 8 Property (Mount Vernon
Square):
This figure is an aerial view of the U.S. Reservation 8 property (Mount
Vernon Square).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: U.S. Reservations 277A and 277C:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 0.131 acre:
Property Location: Reservation 277A at North Capitol Street and Florida
Avenue, NW; and Reservation 277C at North Capitol Street and Lincoln
Road, NE:
Ward: 5:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(6):
Property Status: Transfer completed December 15, 2006:
Property Description: These two properties are located along North
Capitol Street. Through a misunderstanding, the District issued permits
to local community groups authorizing the landscaping of these
properties. The transfer provides continuity of management for the
District.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 29: Aerial View of U.S. Reservations 277A and 277C:
This figure is an aerial view of the U.S. Reservations 277A and 277C.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Portions of U.S. Reservation 470 (Fort Reno Park):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: District of Columbia Government:
Entity Transferring Property: National Park Service:
Property Acreage: 1.556 acres:
Property Location: In Fort Reno Park along Donaldson Place, NW:
Ward: 3:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(b)(7):
Property Status: Transfer completed December 15, 2006:
Property Description: This property contains a salt dome and leaf
collection and storage operation that the District has operated under
permits from NPS for many years. The transfer provides the District
with the proper interest in the property to administer and maintain new
facilities at this location.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 30: Aerial View of Portions of U.S. Reservation 470 (Fort Reno
Park):
This figure is an aerial view of portions of U.S. Reservation 470 (Fort
Reno Park).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Audubon Terrace, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 0.381 acre:
Property Location: East of Linnean Avenue, NW, within Reservation 402:
Ward: 3:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(A):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved wooded property was encumbered by
an unbuilt street right-of-way surrounded by NPS parkland. The transfer
provides continuity of management by NPS. The property will remain
parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 31: Aerial View of the Audubon Terrace, NW, Property:
This figure is a picture of an aerial view of the Audobon Terrace, NW,
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Barnaby Street, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 0.436 acre:
Property Location: North of Aberfoyle Place, NW; abuts Reservation 545:
Ward: 4:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(B):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved wooded property was encumbered by
an unbuilt street right-of-way surrounded by NPS parkland. The transfer
provides continuity of management by NPS. The property will remain
parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 32: Aerial View of the Barnaby Street, NW, Property:
This figure is a picture of an aerial view of the Barnaby Street, NW,
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Canal Street, SW, and V Street, SW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 3.732 acres:
Property Location: Portions of Canal Street, SW and V Street, SW, each
of which abuts Reservation 467 along the Anacostia River:
Ward: 6:
Anacostia Waterfront Framework Plan Area: Yes:
Section of Public Law 109-396: 201(a)(1)(C):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved property is comprised of portions
of unbuilt street rights-of-way that abut NPS parkland. The transfer
facilitates implementation of an approved plan to enhance an existing
NPS concession-operated marina.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: Yet to be determined:
Figure 33: Aerial View of the Canal Street, SW, and V Street, SW,
Property:
This figure is a picture of an aerial view of the Canal Street, SW, and
V Street, SW, property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Streets and Alleys at Fort Circle Park:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 4.35 acres:
Property Location: Within Fort Circle Park/Reservation 497:
Ward: 4:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(D):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved wooded property was encumbered by
several contiguous unbuilt street rights-of-way within NPS parkland.
The transfer provides continuity of management by NPS. The property
will remain parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 34: Aerial View of the Streets and Alleys at the Fort Circle
Park Property:
This figure is picture of an aerial view of the streets and alleys at
the Fort Circle Park property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Western Avenue, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 1.081 acres:
Property Location: Western Avenue, NW, north of Oregon Avenue, NW,
abuts Reservation 339:
Ward: 4:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(E):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved property was encumbered by an
unbuilt street right-of-way surrounded by NPS parkland. The transfer
provides continuity of management by NPS. The property will remain
parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 35: Aerial View of the Western Avenue, NW, Property:
This figure is an aerial view of the Western Avenue, NW, property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: 17th Street, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 0.268 acre:
Property Location: 17th Street, NW, south of Shepherd Street, NW, abuts
Reservation 339:
Ward: 4:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(F):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved wooded property was encumbered by
an unbuilt street right-of-way abutting NPS parkland. The transfer
provides continuity of management by NPS. The property will remain
parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 36: Aerial View of the 17th Street, NW, Property:
This figure is a picture of an aerial view of the 17th Street, NW,
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: 30th Street, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 0.343 acre:
Property Location: 30th Street, NW, north of Broad Branch Road, NW,
within Reservation 515:
Ward: 4:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(G):
Property Status: Transfer completed December 15, 2006:
Property Description: This unimproved wooded property was encumbered by
an unbuilt street right-of-way surrounded by NPS parkland. The transfer
provides continuity of management by NPS. The property will remain
parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 37: Aerial View of the 30th Street, NW, Property:
This figure is a picture of an aerial view of the 30th Street, NW,
property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Land over I-395 (Including additional land along/above I-
395):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 1.69 acres:
Property Location: This property is bounded by Washington Avenue, SW,
2nd Street, SW; and the C Street, SW, ramps to I-295.
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(H):
Property Status: Transfer completed December 15, 2006:
Property Description: This property includes landscaped traffic islands
and ramps above I-395 in the vicinity of the Rayburn House Office
Building. The transfer provides for the establishment of the Memorial
to American Veterans Disabled for Life, which will be managed by NPS.
The District retains jurisdiction of the subsurface area beneath the
memorial for the tunnel, walls, footings and related facilities. An
additional 0.249 acre of an adjoining parcel was transferred to NPS
and, subject to AOC approval, will be landscaped or used for special-
needs parking associated with the proposed memorial. The Disabled
Veterans Life Memorial Foundation, which is responsible for developing
and fund-raising and constructing the memorial, hopes to seek
preliminary design approval from the U.S. Commission of Fine Arts and
the National Capital Planning Commission this summer, with final
approval following in early 2009. Some street realignments and
utilities relocation will be involved. The street realignment will take
about 12 months and the Memorial construction will take 18 months.
Currently, the memorial foundation anticipates a possible dedication on
Memorial Day 2011.
Proposed Use: Memorial for Disabled Veterans; Parking for Memorial:
Estimated Development Completion: May 2011:
Figure 38: Aerial View of Land over I-395 (Including additional land
along/above I-395):
This figure is a picture of an aerial view of land over I-395
(including additional land along/above I-395).
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Whitehaven Parkway, NW:
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: National Park Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 1.80 acres:
Property Location: Portion of Reservation 357 at Whitehaven Parkway,
NW, and Foxhall Road, NW:
Ward: 3:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(1)(I):
Property Status: Transfer completed December 15, 2006:
Property Description: This property was previously transferred to the
District for a proposed mayoral residence at this location, which was
never built. The transfer provides continuity of management by NPS. The
property will remain parkland.
Proposed Use: Parks, Recreation, and Open Space:
Estimated Development Completion: No development planned:
Figure 39: Aerial View of the Whitehaven Parkway, NW, Property:
This figure is a picture of an aerial view of the Whitehaven Parkway,
NW, property.
[See PDF for image]
Source: National Park Service.
[End of figure]
Property Name: Remaining land over I-395 (AOC):
Type of Exchange: Transfer of administrative jurisdiction:
Entity Receiving Property: Architect of the Capitol, National Park
Service:
Entity Transferring Property: District of Columbia Government:
Property Acreage: 0.504 acre:
Property Location: This property is bounded by 2nd Street, SW; C
Street, SW, ramp to I-295; the D Street, SW ramp to I-395; and I-295.
Ward: 2:
Anacostia Waterfront Framework Plan Area: No:
Section of Public Law 109-396: 201(a)(3)(A):
Property Status: Transfer completed December 15, 2006:
Property Description: These additional lands above and along I-395 are
next to the site for the American Veterans Disabled for Life Memorial.
The northernmost 0.249 acre was transferred to NPS and is subject to
AOC approval as to whether the property is landscaped or used for
special-needs parking associated with the memorial. The remaining
portion was transferred to the AOC. (See "Lands over I-395 (for
Memorial to Disabled Veterans)" to NPS). The District retains
jurisdiction of the subsurface area beneath the memorial for the
tunnel, walls, footings, and related facilities.
Proposed Use: Parking and Open Space:
Estimated Development Completion: Yet to be determined:
Figure 40: Aerial View of the Remaining Land over I-395 (AOC):
This figure is a picture of an aerial view of the remaining land over I-
395 (AOC).
[See PDF for image]
Source: National Park Service.
[End of figure]
[End of section]
Appendix III: Comments from the Department of the Interior:
United States Department Of The Interior:
Office Of The Secretary:
Washington D.C. 20240:
June 4, 2008:
Terrell Dorn:
Director, Physical Infrastructure Issues:
U.S. Government Accountability Office:
441 G Street, N.W.:
Washington, D.C. 20548
Dear Mr. Dorn:
Thank you for providing the National Park Service of the Department of
the Interior the opportunity to review and comment on the draft
Government Accountability Office Report entitled, "Federal Real
Property Conveyances between the District of Columbia and Federal
Government Await Completion and Development Will Take Many Years" (GAO-
08-684).
We appreciate the diligent work of the team that prepared the report
and the large amount of data collected, In general, we believe the GAO
has produced an informative summation of the complex issues associated
with the transfers of land and associated projects and we concur with
the major findings and recommendations included in the report. We are
also committed to working with the District of Columbia to utilize the
report to guide and inform our decisions and actions on this joint
endeavor going forward.
The enclosure provides comments from the Service. We hope these
comments will assist you in preparing the final report. If you have any
questions or need additional information, contact Joe Cook, Realty
Specialist, at 202-619-7034.
Sincerely,
Signed by:
Mitch Butler:
Deputy Assistant Secretary for Fish. and Wildlife and Parks:
Enclosure:
[End of section]
Appendix IV: GAO Contact and Staff Acknowledgments:
GAO Contact:
Terrell Dorn, 202-512-6923 or [email protected]:
Staff Acknowledgments:
In addition to the individual listed above, David Sausville, Assistant
Director; Colin Fallon; Ryan Gottschall; Kathleen Gilhooly; Kieran
McCarthy; and Joshua Ormond made significant contributions to this
report.
[End of section]
Footnotes:
[1] A "conveyance" is defined as the transfer of a property title from
one party to another. In general, title allows the owner to possess,
control, and assert all rights over that property. Under a "transfer of
administrative jurisdiction," the transferor retains ownership of the
property, while the transferee is given authority to administer and
maintain the property.
[2] The law groups some properties together and counts others as
individual properties, so our total property count includes some
properties that are grouped together in the statute but are counted as
one (see App. I.)
[3] The Federal and District of Columbia Government Real Property Act
of 2006 (Pub. L. No. 109-396).
[4] GAO, District of Columbia: Structural Imbalance and Management
Issues, GAO-03-666 (Washington, D.C.: May 22, 2003).
If the assumptions underlying this structural imbalance analysis
change, then estimates of the amount of the structural imbalance could
change in either direction. It is beyond the scope of this report to
update our estimate of the District's structural fiscal imbalance.
[5] In this report, we define "development" as the act of making an
area of land more useful. This definition is intended to include a
broad range of activities, including commercial and residential
development, realignment of roadways, and improvement of a park or open
space.
[6] GAO-03-666.
[7] If the Architect of the Capitol decides to construct a mail
screening facility on the District property conveyed to them, it must
complete a study that meets certain requirements in Public Law 109-396
before construction begins.
[8] See 42 U.S.C. §9620(h)(3)(C), which allows the transfer of federal
property to nonfederal users, under certain conditions, before all
remedial actions are complete. We did not evaluate whether these
conditions have been met.
[9] Reservation 13 will be renamed Hill East Waterfront upon its
conveyance to the District. Reservation 13 consists of 42 acres
excluding the District jail property, which will remain at its current
location.
[10] Anne Archbold Hall is a brick building that housed the Capital
City School of Nursing until 1972. More recently, the hall housed the
D.C. Department of Health.
[11] The extent of environmental cleanup is also unknown at a number of
other conveyed properties, including Reservation 13, the Randall School
site, Reservation 248, Reservation 17A, and Reservation 298 (Virginia
Avenue), and could also potentially delay development of the property.
[12] According to a senior NPS official, NPS, as the current landowner,
is also a potentially responsible party for the cleanup of the
Boathouse Row property beyond Washington Gas who contaminated the site
and has begun remedial cleanup action.
[13] It is not the focus of this review to assess whether the
District's current organizational structure to manage economic
development is likely to succeed. Our intention is simply to convey the
views of the stakeholders that we either interviewed or heard express
their views at public hearings.
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*** End of document. ***