A06_Full_NPS_ShepherdPkwy_ConceptPlan_Final_508_08252020_(1)_0001.pdf

Shepherd Parkway Concept Plan

July 2020

National Capital Parks-East Washington, DC

National Park Service U.S. Department of the Interior

The Shepherd Parkway Concept Plan outlines potential improvements within the park that would improve visitor access, enhance visitor experiences, increase public safety, and improve overall conditions. Shepherd Parkway is a long, narrow portion of National Park Service (NPS) land in southeast and southwest Washington, DC. The park is part of, and administered by, the National Capital Parks-East (NACE) unit of the

NPS.

Shepherd Parkway is a predominately wooded landscape extending approximately between the St.

Elizabeths campus to the north and Bald Eagle Hill to south. Open space and views to the Potomac and Anacostia Rivers punctuate the park corridor. The park also includes the highly-frequented area known as Parkland and the remains of Civil War-era Fort Carroll and Fort Greble. Within Shepherd Parkway, challenges include the park’s lack of identity and limited public awareness of Shepherd Parkway as part of the NPS system, underappreciated cultural and natural resources, illegal dumping and litter, and safety concerns, including emergency support needs at Parkland.

At the outset of the planning process, the NPS developed the following broad goals for the Concept Plan:

Goal 1: Enrich existing and explore new uses and programming opportunities

Goal 2: Improve the health of Shepherd Parkway, ecologically and for the surrounding community

Goal 3: Address safety and maintenance concerns

Concept Plan Recommendations The Shepherd Parkway Concept Plan addresses these goals by enhancing internal links between the park’s resources and amenities, improving connectivity with local neighborhoods, contributing to a regional trail network, and elevating the quality of park areas.

Overall, the concept plan presents a linear trail system along the park with nodes of activities, ranging from enjoying views of rivers and eagles to learning about the history of the neighborhoods. Specific concept plan elements include the following:

• A series of trails, with options for a natural or more urban trail experience

• A blazed trail within the park’s wooded area connecting to the under-construction I-295 shared-use path

• Improved signage, communication, and security measures to prevent dumping

• Enhanced scenic views

• Enhanced interpretation of Civil War forts, emphasized by improved trail connections

• Flexible open green space for community gatherings, picnics, and play

For Parkland, two concept plan options create zones for different activities, including an expanded children’s play area for a range of ages, a flexible event space, pavilions of varying sizes, and a defined gateway to the park.

Moving Forward The concept plan outlines both existing conditions and the steps needed to achieve implementation. The document describes current conditions; considers the operational challenges associated with the park;

and identifies environmental constraints. Finally, the concept plan identifies potential funding sources, potential partnerships, and the regulatory framework for implementation.

EXECUTIVE SUMMARY

Table of Contents Executive Summary

I . Introduction Project Background Planning Goals Public & Stakeholder Engagement Process

II . Current Conditions Existing Facilities and Recreation Opportunities Nearby Recreation Opportunities Policies and Park Management and Operations Operational, Maintenance, and Environmental Challenges

III . Concept Plan Recommendations Overall Shepherd Parkway Concept Plan Parkland Concept Plan

IV . Moving Forward Priority Steps to Realizing Concept Plan Funding Opportunities Partnerships Regulatory Requirements

V . References

Appendix Appendix A: Public and Stakeholder Engagement . . . . . . . . . . . . . . . . . .A-1

Appendix B: Visitor Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . B-1

Appendix C: Overall Shepherd Parkway Concept Plan . . . . . . . . . . . . . .C-1

Appendix D: Cost Estimates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .D-1

3 | Shepherd Parkway Concept Plan

I. INTRODUCTION

The National Park Service seeks to enhance Shepherd

Parkway as a natural, recreational, and historic resource in southeast and southwest Washington, DC.

Introduction | 4

Shepherd Parkway is located approximately between the St. Elizabeths campus to the north and Bald Eagle Hill to the south and is bound by Interstate 295 to the west and the Congress Heights and Bellevue neighborhoods to the east. While primarily used by local residents, Shepherd Parkway is owned and managed by the National Park Service (NPS). It is listed on the NPS inventory as Reservation 421 and administered by the National Capital Parks-East (NACE) unit of the NPS (see Figure 1).

Shepherd Parkway encompasses forested scenery, intermittent open space, and the remains of forts that secured the Nation’s Capital during the Civil War.

However, the park currently offers limited recreational and educational programming opportunities for neighboring communities.

This concept plan presents ideas for the future use and enjoyment of Shepherd Parkway. The concept plan is the first step in the overall decision-making process for the future of Shepherd Parkway. Certain proposed actions in this concept plan would require additional environmental and historical preservation compliance prior to implementation. Furthermore, implementation may occur over time as funds become available.

PROJECT BACKGROUND

Early in the 20th century, the Nation’s Capital adopted the McMillan Plan (1902), which called for a series of parks throughout the National Capital Area. The proposed “Fort Drive” through a landscaped corridor connected the circle of Civil War forts and earthen fortifications surrounding Washington, DC, including Fort Carroll and Fort Greble, which are now components of Shepherd Parkway. The fort sites came under the jurisdiction of the NPS under the authority of the Capper-Cramton Act of 1930, which provided for “the acquisition of lands in the District of Columbia and the States of Maryland and Virginia requisite to the comprehensive park, parkway, and playground system of the National Capital.” The Great Depression resulted in drying up funds for the Fort Drive undertaking and by 1933 the project was no longer actively pursued. The idea of the Fort Drive was never realized (NPS 2004, 2016a).

Additional planning efforts for the properties known as the Fort Circle Parks over the years include the 1968 Fort Circle Parks Master Plan, the 2004 Fort Circle Parks Final Management Plan, and the 2010 CapitalSpace Plan. Today, Shepherd Parkway is an approximately 205-acre linear park consisting of mature trees along a ridgeline, steep slopes, and intermittent grassy fields. Three busy roadways divide the park: Malcolm X Avenue SE, South Capitol Street, and Chesapeake Street SW. Adjacent neighborhoods have multiple access points to the park, but the park provides very few improved areas for visitor use. In 2018, the NPS began conducting public and stakeholder engagement efforts regarding improvements to Shepherd Parkway.

Today, Shepherd Parkway is also part of the Civil War Defenses of Washington (CWDW), one of the many sites administered by the National Capital Parks- East. As identified in the National Capital Parks-East Foundation Document (2016), the CWDW park purpose (i.e., the specific reason(s) for establishment of the park) is to protect and interpret the remnants of historic Civil War forts while preserving a corridor of forest and natural scenery as part of a comprehensive system of parks for preservation of substantial tracts of forests, protection of source water, and recreation in and around the nation’s capital. The CWDW is significant for the following reasons:

• The scale, inventive design, and speed of construction of the CWDW resulted in a system of forts, batteries, and rifle trenches that effectively deterred the invasion of the nation’s capital by the Confederate Army during the Civil War, and are a tangible reminder of the capital city’s rich Civil War history.

• The defensive position of the forts on hills surrounding the city provides an outstanding opportunity to explore and understand the strategic interaction between the environment and cultural history.

• The significant natural features and processes preserved by the CWDW provide viable corridors for both plant and wildlife diversity and exceptional recreational opportunities, which help create a healthier natural and human environment in the nation’s capital.

INTRODUCTION

5 | Shepherd Parkway Concept Plan5 | Shepherd Parkway Concept Plan

Figure 1 Shepherd Parkway LocationFigure 1 Shepherd Parkway Location

Introduction | 6

• The CWDW were havens of safety for the many contrabands and formerly enslaved Africans who fled to Washington during the Civil War and influenced African American settlement patterns in the nation’s capital. (“Contraband” is a historical term that refers to individuals who escaped slavery and sought refuge behind Union lines).

• The McMillan Commission’s 1902 plan, as realized when the acquisition of fort sites began in the 1920s, represented visionary urban planning efforts for public recreation and preserved a scenic backdrop for the nation’s capital.

• The green space and extensive trail network protected by the CWDW help to shape, strengthen, and provide identity for communities in the city through recreation, cultural events, and neighborhood activities.

PLANNING GOALS

The NPS developed the following broad goals for the concept plan at the beginning of the planning process.

Goal 1: Enrich existing and explore new uses and programming opportunities

Goal 2: Improve the health of Shepherd Parkway, ecologically and for the surrounding community

Goal 3: Address safety and maintenance concerns

PUBLIC & STAKEHOLDER

ENGAGEMENT PROCESS

The NPS provided multiple opportunities for public and stakeholder participation in the development of the Shepherd Parkway Concept Plan. The NPS solicited input from the public and stakeholders at the beginning and middle of the planning process to identify the public’s vision for the park and receive feedback on an initial range of concept plan options, respectively. Outreach for this plan built upon a Rapid Ethnographic Assessment Procedure (REAP) study conducted by Howard University and the NPS in 2017- 2018.

Figure 2 Public Meeting 1 Comment Board

Comment Period 1 The NPS held a 30-day public comment period (June 26, 2019-July 26, 2019), including one public meeting and one stakeholder meeting. This comment period provided an opportunity for the public and stakeholders to share their vision for the park’s future and identify any issues or concerns they might have with the project (see Figure 2). During the meetings, the NPS outlined the plan goals and asked commenters to share ideas on the following:

• How and where do you currently use the open spaces of the park?

• How do you currently access the park?

• Are you comfortable walking in the wooded areas?

• How would you like to use the park in the future?

• Where would you like to see new connections to and within the park’s open spaces?

• How would you prevent dumping and litter?

• What do you think should be done with Fort Carroll and Fort Greble?

Additional information about Comment Period 1, including a summary of comments received, is available in Appendix A.

7 | Shepherd Parkway Concept Plan

Comment Period 2 The NPS held a second 46-day public comment period (November 7, 2019-December 21, 2019), including one public meeting and one stakeholder meeting, to present initial concept plan options for the park.

The concept plan options considered the comments received during the first public comment period and outlined the physical improvements for potential implementation and the potential activities in which visitors could engage.

The NPS considered the comments received during the second public comment period in preparation of the revised concept plans included in this document.

Additional information about Comment Period 2, including a summary of comments received is available in Appendix A.

Figure 3 Public Meeting 2

Compilation of Public Comments NPS staff worked with contractors to compile all comments affixed to the public meeting boards and submitted at the public meetings, via mail, or via the PEPC website during the public comment periods.

More than thirty pieces of correspondence regarding the Plan were recorded, including twenty-three and eight pieces of correspondence during Comment Periods 1 and 2, respectively. NPS staff made the final determinations about the recommendations in this plan based on applicable laws and policies, as well as the comments made by the public.

Current Conditions | 8

II. CURRENT CONDITIONS

Shepherd Parkway contains forested area, open spaces, and sensitive ecological and cultural resource areas with few visitor amenities and multiple safety and maintenance concerns.

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Shepherd Parkway can be characterized as predominately forested open space located next to residential neighborhoods. The park is an ecologically sensitive site, including steep slopes, contains cultural resources, and includes limited open or improved areas for active or passive recreation. The public, stakeholders, and the NPS have expressed concerns regarding safety, illegal dumping, and abundant litter within the park.

EXISTING FACILITIES AND

RECREATION OPPORTUNITIES

Shepherd Parkway consists of a wooded landscape with a few basic amenities and open lawns located along the eastern edge of the park. The park contains a few picnic tables, benches, and a horseshoe court at select locations. Trash cans are present throughout the eastern edge of the park. The area known as Parkland contains picnic tables, benches, planters, trash cans, a fenced playground, a grill, and interspersed mature trees. Open space is available at Parkland, Highland Place SE, along Raleigh Street SE, along Brothers Place SE, along Xenia Street SW, along 2nd Street SW, and at Fort Greble.

Two U.S. Park Police facilities are also located within the park: an Internal Affairs facility at 3801 South Capitol Street and a K-9 unit on Raleigh Street SE.

Open space is present at both facilities, but the space at the Internal Affairs facility is not currently accessible to the public.

Stakeholders and the public were asked how they currently use Shepherd Parkway during Comment Period 1. Respondents stated that they host or attend events at the area known as Parkland and participate in hiking, clean-up, and invasive vegetation removal events. Several respondents stated that they do not currently use the park.

Parkland Parkland is a narrow, relatively flat, improved open space which is commonly used by the community and for events. Parkland is bordered by Malcolm X Avenue SE to the north, Martin Luther King Jr. Avenue SE to the east, Parkland Place SE to the south, and a wooded area to the west.

Figure 4 Existing Conditions at Parkland

Parkland’s ground cover consists mostly of patchy grass and compacted soil with a small brick plaza near Martin Luther King Jr. Avenue SE. Efforts to restore Parkland’s lawn have failed over the years.

Formally-defined pathways include a paved path to the playground and a compacted soil path connecting Malcolm X Avenue SE and Parkland Place SE at the western end of the park.

CURRENT CONDITIONS

Current Conditions | 10

In 2017-2018, Howard University partnered with the NPS to conduct a REAP study to understand the historical, contemporary, and potential uses of Parkland. Interviews, community conversations, and historical and socio-demographic research were conducted to understand perspectives on activities visitors engage in, safety concerns, fond memories, and park significance, as well as how the park could be improved and how REAP participants view their role in the upkeep of the park and the natural environment.

In general, the REAP revealed the deep significance of Parkland to the community and the importance of access to green space. Parkland is commonly used for weekly church visits (e.g., food and clothing donations, worship services) and communal gatherings. The park is also used for recreation, to connect with neighbors, old friends and neighborhood happenings, and to learn about community events, employment opportunities, and benefits from social services.

REAP participants mainly expressed concerns regarding a larger play area for children and visibility in the wooded area. Other concerns included the park appearance, litter, and the lack of space for recreational activities. Some participants felt that Parkland was a safe place because they were well-known or had friends in the neighborhood, whereas other participants felt that Parkland suffers from criminal activity and is unsafe for families. REAP participants noted that it is common to witness drug use in Parkland, about which stakeholders and the U.S. Park Police have also expressed concerns.

Cultural Resources Further south, Shepherd Parkway contains the remains of Fort Carroll and Fort Greble. These forts were constructed by the Union Army and African Americans in the 1860s as part of a ring of fortifications surrounding Washington, DC to protect the city during the Civil War (Figure 5) (NPS 2004). Most of Fort Carroll has been demolished over the years from agriculture and street and building construction. The surviving features of Fort Carroll are today concealed by undergrowth, invasive vines, and litter in Shepherd Parkway (Fort Carroll CRGIS GPS Survey n.d.). Most of Fort Greble was leveled in the late 19th century when the area was occupied by a farm and dwelling. Little visible evidence of the fort remains today. The site is currently an open lawn with trees along the edge and evidence of mounding and swales (Fort Greble CRGIS GPS Survey n.d., NPS 2015).

Figure 5 Shepherd Parkway and the Civil War Defenses of Washington

Figure 6 Site of Main Fort at Fort Greble

Signage Signage identifying Shepherd Parkway by name or recognizing the open space as federal park land is very limited. The park contains only one large NPS welcome sign that includes Shepherd Parkway’s name, located at the intersection of Chesapeake Street SW and 2nd Street SW. Other signage at the park includes

11 | Shepherd Parkway Concept Plan large welcome signs at Fort Carroll and Fort Greble, an interpretive sign at Fort Carroll, signs located throughout the park stating dumping and littering is prohibited and/or illegal, and signs at Parkland notifying visitors to clean up after their pets, the park closes at dark, and alcohol is prohibited.

NEARBY RECREATION

OPPORTUNITIES

Several schools, recreation centers, parks, and playgrounds, which offer multiple active and passive recreation opportunities, are located within the vicinity of Shepherd Parkway (Figure 7). Nearby outdoor facilities include a spray park, pavilion, pool, green space, trails, basketball courts, baseball and softball diamonds, and tennis courts. Nearby indoor facilities include multi-purpose rooms, dance studio, fitness center, gym/basketball court, and tennis courts.

The Well at Oxon Run, an outdoor community space being planned in partnership with the District, will be located to the east of Shepherd Parkway at Oxon Run Park. The space will feature a community garden, a covered classroom, fruit tree apiary, performance space, a small free library, art displays, and a memory forest honoring the victims of gun violence. The garden’s first planting season is targeted for the fall of 2020 (Hayes 2020).

Several proposed trails in the vicinity of Shepherd Parkway, some of which will connect directly to the park, will provide missing connections between existing trails and create opportunities for future trail connections. The existing and proposed trails that will make up the trail network adjacent in the vicinity of Shepherd Parkway include the following:

• Oxon Cove Multi-Use Biker Trail (existing trail and proposed extension): Multi-use trail connecting Oxon Hill Farm and Oxon Cove to Shepherd Parkway SW, the proposed South Capitol Street Trail, and the proposed Oxon Run Trail extension (NPS 2016b)

• Oxon Run Trail (existing trail and proposed extension): Multi-use trail extending through Oxon Run Park and connecting 13th Street SE to the existing Oxon Cove Multi-Use Biker Trail

• I-295 Shared-Use Path (under construction):

Path connecting the existing trail at the Department of Homeland Security Headquarters to the South Capitol Street and Martin Luther King

Jr. Avenue intersection; anticipate construction completed in summer 2022 (DDOT 2020)

• South Capitol Street Trail (proposed): Multi-use trail extending the Anacostia Riverwalk trail to the southernmost areas of the District by connecting the South Capitol Street and Firth Sterling Avenue SE intersection to the existing Oxon Cove Multi-Use Biker Trail (AWI n.d.)

• Suitland Parkway Trail (existing): Multi-use trail along Suitland Parkway connecting Southern Avenue to Pomeroy Road SE

POLICIES AND PARK

MANAGEMENT AND OPERATIONS

Several policies and documents, ranging from national laws to park-specific plans, guide the management and operation of the National Capital Parks-East and accordingly, Shepherd Parkway. The overall policies, laws, regulations, and NPS Director’s Orders (DO) that govern Shepherd Parkway management and operations are outlined in Table 1.

OPERATIONAL, MAINTENANCE,

AND ENVIRONMENTAL

CHALLENGES

The planning for Shepherd Parkway presents new opportunities for visitor experiences and facilities.

However, under-appreciated cultural and natural resources, illegal dumping and litter, and ongoing safety concerns at the park present challenges. The following items summarize some of the issues and obstacles facing the Shepherd Parkway concept plan.

Note that this is not intended to be an exhaustive list of resources present at the park; instead it is included to provide an outline of the challenges in managing Shepherd Parkway.

Resources that could potentially be affected and the associated environmental consequences, or “impacts” of concept plan implementation on those resources, would be identified in the future through the National Environmental Policy Act (NEPA) process. Where appropriate, the NEPA process would also identify mitigation measures for adverse impacts.

Historic properties and the potential for adverse effects on historic properties as a result of concept plan implementation would be identified in the future through the National Historic Preservation Act (NHPA) process. Where appropriate, the NHPA process would also seek to avoid, minimize, and mitigate potential adverse effects.

Current Conditions | 12

Figure 7 Recreation Opportunities near Shepherd Parkway

13 | Shepherd Parkway Concept Plan

Policies and Guidelines Summary

National Capital Parks-East Foundation Document (2016)

Provides basic guidance for planning and management decisions. Fundamental resource and values for the CWDW include the fortifications, the natural and scenic features of the green space corridor, recreational opportunities, cultural landscapes, and archeological resources. Interpretive themes identified for the CWDW include:

• The CWDW effectively deterred the advance of the Confederate Army and the invasion of the capital, and served as a proving ground for military innovation.

• Individuals who escaped slavery and sought refuge behind Union lines sought the freedom and security of the CWDW. They contributed to the construction of the defenses of Washington, founded many of Washington’s historically African American communities, inspired their own and future generations, and helped to redefine the citizenry of the United States.

• The preservation of the CWDW created significant natural corridors that provide exceptional views of the city, offer opportunities to learn about nature in an urban setting, support species and habitat diversity, and enhance environmental quality.

Fort Circle Parks Final Management Plan (2004)

Provide a unified management concept for significant historic resources associated with the CWDW that will allow these resources to be preserved for future generations and interpreted in a coherent, easily understandable manner.

Designates Shepherd Parkway primarily as a “natural resource zone” with “cultural resource zones” at Fort Carroll and Fort Greble.

Natural resource zones comprise areas that are managed primarily to maintain forests and natural scenery. Appropriate visitor activities include birding, walking, jogging, and nature study. Trails will be mostly unpaved. Scenic quality and natural sound will be essential. Some natural areas (stream valleys, topographically challenging areas) will remain free of new trails or development.

Cultural resource zones are to be managed primarily for the preservation, protection, and interpretation of cultural resource values. Visitors will have the opportunity to learn about and contemplate the Civil War resources in parks and gain a sense of their significance. Archeological and historic features will be protected and preserved to the extent possible.

NPS Management Policies (2006)

Service-wide policies establishing a broad framework and prescribing parameters for management decisions. Key policy implications are included for natural resource management, cultural resource management, interpretation and education, visitor use, special park uses, and park facilities.

36 CFR Part 2 – Resource Protection, Public Use and Recreation

Picnicking is allowed. The superintendent may establish conditions for picnicking.

Special events are allowed, provided that there is a meaningful association between the park area and the events, and the observance contributes to the visitor understanding of the significance of the park area, and a permit has been issued by the superintendent.

National Capital Region Invasive Plant Management Plan and Environmental Assessment (2015)

Ensures that all National Capital Region parks, including the National Capital Parks-East, have access to a range of methods used for the treatment of non-native invasive plant species. Such methods include chemical, biological, manual, mechanical, physical, and cultural treatments.

Table 1 Summary of Policies and Planning Guidance for Shepherd Parkway

Current Conditions | 14

P olicies and Guidelines Summary

National Environmental Policy Act (NEPA), 1969, as Amended

NEPA provides the tools to implement intended goals by requiring that every federal agency prepare a study of the impacts of “major federal actions having a significant effect on the environment and alternatives to those actions.” It required that each agency make that information an integral part of its decisions.

NEPA also requires that agencies make a diligent effort to involve the interested and affected public before they make decisions affecting the environment.

National Historic Preservation Act (NHPA), as amended through 2000

NHPA of 1966, as amended through 2000, protects buildings, sites, districts, structures, and objects that have significant scientific, historic, or cultural value.

The act established affirmative responsibilities of federal agencies to preserve historic and prehistoric resources.

Archeological Resources Protection Act (ARPA), 1979

ARPA preserves the archeological resources that are key to the history of America.

Architectural Barriers Act Accessibility Standards

(ABAAS)

Standards guiding design to provide universal access for people of all ages and backgrounds to trails, picnic and camping areas, viewing areas, beach access routes and other components of outdoor developed areas on federal sites when newly built or altered.

DO-6: Interpretation and Education

Sets forth operational policies and procedures necessary to maintain effective, high-quality interpretive and educational programs.

DO-7: Volunteers-in-Parks Provides direction to NPS personnel who are responsible for, and/or involved in, implementing the Volunteers-in-Parks program.

DO-12: Conservation Planning Environmental Impact Analysis, and Decision-Making

Directs the way the NPS complies with NEPA, including all aspects of environmental analysis, public involvement, and resource-based decisions.

DO-20: Agreements Establishes NPS policies and procedures for administering agreements and identifies the types of agreements NPS may enter.

DO-22: Recreation Fees Sets forth policies and procedures for administering a fee program.

DO-28: Cultural Resource Management

Provides guidelines for the management of cultural resources, including cultural landscapes, archeological resources, historic and prehistoric structures, museum objects, and ethnographic resources.

DO-28A: Archeology Promotes a common management framework for planning, review, and undertaking archeological activities and other activities that may affect archeological resources within the NPS.

DO-42: Accessibility for Visitors with Disabilities

Establishes a framework for the effective implementation of actions necessary to achieve the highest level of accessibility that is reasonable.

DO-52C: Park Signs Establishes and implements standards for the planning, design, fabrication, installation, inventory, and maintenance of outdoors signs for national parks.

DO-53: Special Park Uses Sets forth policies and procedures for administering special park uses.

DO-77: Natural Resource Protection

Provides information necessary to design, implement, and evaluate a comprehensive natural resources management program.

DO-77-1: Wetland Protection Establishes policies, requirements, and standards to protect and preserve wetlands.

Table 1 Summary of Policies and Planning Guidance for Shepherd Parkway (Continued)

15 | Shepherd Parkway Concept Plan

Figure 8 Tires and Other Debris Collected Near Lebaum Street SE in Shepherd Parkway

Cultural Resources As part of the CWDW (Fort Circle Parks), Fort Carroll and Fort Greble were originally listed in the National Register of Historic Places (NRHP) in 1974, with a boundary increase in 1978. Fort Carroll and Fort Greble are also included in the draft 2015 update and boundary increase to the NRHP listing. Shepherd Parkway is also a cultural landscape, which can be further broken down to Parkland, Fort Carroll, and Fort Greble. The Shepherd Parkway cultural landscape has not yet been documented. Archeological sites have been recorded within Shepherd Parkway.

Other portions of the park are also likely to contain archeological resources (GSA 2009, 2010).

Natural Resources Shepherd Parkway is a heavily-wooded early successional habitat with an understory composed largely of invasive species. Portions of the park contain habitat identified as highly or extremely significant for biodiversity conservation as defined in the 2015 District of Columbia Wildlife Action Plan (Government of the District of Columbia 2015). The park also contains several steep slopes (see Figure 9). Elevations within the park range from 22 feet to 182 feet; the park generally slopes downward towards Interstate 295 on the west (Open Data DC 2019).

Multiple seeps, or areas where water percolates slowly to the land surface, are also present throughout the park. Some of these seeps contain rare groundwater invertebrates. Wetlands are also present throughout the park. Shepherd Parkway lies entirely outside of the 100-year and 500-year floodplains (FEMA 2017).

Several pairs of Bald Eagles have nested in Shepherd Parkway. Nests have been located in the southern portion of the park north of the Metropolitan Police Department training academy and in the northern portion of the park south of St. Elizabeths West Campus. Twenty-five bird species that are protected under the Migratory Bird Treaty Act or Bald and Golden Eagle Protection Act, or occur on the U.S. Fish and Wildlife Service Birds of Conservation Concern list may be present at Shepherd Parkway. Federally threatened and endangered species that are protected under the Endangered Species Act and potentially may also be present at the park include the threatened Northern Long-eared Bat (Myotis septentrionalis) (GSA 2008, USFWS n.d.).

Dumping and Litter Litter and illegal dumping, including furniture and tires, are currently an eyesore and major concern at Shepherd Parkway. Although tires are primarily dumped along the roadways, they appear in places where individuals have access to Shepherd Parkway, but little visibility from nearby residences. Dumping hot spots identified by the public at Public Meeting 1 are presented in Figure 9. Signs stating that dumping and littering is prohibited and/or illegal with a phone number to report violations are present along the edges of the park. Stakeholders have indicated that these signs contain an incorrect phone number and results in confusion regarding the appropriate agency to contact about dumping concerns.

The NPS is currently collaborating with the DC Department of Energy and Environment’s Dumpbusters program at other NPS-managed parks within the District. This program identifies illegal dumping hot spots, installs enforcement cameras and signs, and retrieves evidence to arrest and prosecute offenders. The NPS has identified Shepherd Parkway as part of their future work with this program.

Safety In addition to the concerns related to drug activity at Parkland, some stakeholders and members of the public expressed other safety concerns during the comment periods. Specifically, a number of residents expressed their level of discomfort in using trails by themselves, particularly trails located deep within wooded areas. Additionally, a REAP for the users and neighbors of the CWDW conducted in 1996-1997 identified safety and crime concerns specifically at Fort Greble (NPS 1997).

Current Conditions | 16

Figure 9 Dumping Hot Spots and Steep Slopes

17 | Shepherd Parkway Concept Plan

III. CONCEPT PLAN

RECOMMENDATIONS

The Shepherd Parkway concept plan would introduce new ways for visitors to access and experience the park while improving safety and park conditions and protecting the park’s sensitive and unique natural resources.

Concept Plan Recommendations | 18

The concept plan focuses on linking resources and amenities within Shepherd Parkway via north-south pathways, improving connectivity with local neighborhoods and the regional trail network, and enhancing specific activity nodes along the park (Figure 10). The concept plan presents two options for a trail network and two options for Parkland.

The concept plan does not preclude future NPS coordination regarding Shepherd Parkway near the U.S.

Park Police Internal Affairs facility or potential future improvements at the South Capitol Street and Martin Luther King Jr. Avenue intersection to establish a traffic circle.

The concept plan would involve building upon existing park resources and installing new recreational amenities. No new buildings would be constructed.

New recreation facilities would be carefully situated and designed to avoid large tree removal and impacts to cultural resources, seeps, sensitive habitats, steep and unsustainable slopes, as well as protect other resources identified in the future through the NEPA and NHPA processes.

Examples of organized activities and events identified in the concept plan do not represent an exhaustive list, but rather identify the types of activities and events possible in select areas of the park. Activities and events would comply with applicable NPS policies, laws, and regulations.

OVERALL SHEPHERD PARKWAY

CONCEPT PLAN

The overall Shepherd Parkway concept plan would allow visitors to wander through forested habitat, host a family or neighborhood event, and learn about the virtually hidden Circle Forts and their role in the community’s history (Figure 11). These connections will foster a better appreciation of Shepherd Parkway as both a community and NPS asset.

This section first describes activity opportunities the concept plan would offer to visitors, followed by new facilities and actions that would enable these activities.

This description is followed by Figure 14 through Figure 18, which present where these facilities and actions would be located.

CONCEPT PLAN RECOMMENDATIONS

Walk and Experience Nature An enhanced Shepherd Parkway would provide opportunities for visitors to access and explore the park’s natural and cultural resources. Visitors would be able to:

• Walk, hike, run, or bike along street-side trails on the edge of the park and natural trails within the park

• Enjoy views of or enter the park’s wooded landscape

• Visit the key activity nodes and points of interest

• View flora and fauna

• Attend NPS ranger-led interpretive talks and tours

To facilitate these activities, the NPS could create a new trail system that extends the length of Shepherd Parkway and provides connections to existing sidewalks and proposed trails. The trail system would be designed, constructed, and maintained according to appropriate trail design standards. Seating along the trail system could provide places for rest, relaxation, and observation. The NPS has not determined the trail surface at this stage in the planning process.

Between the northern park boundary and Malcolm X Avenue SE, the trail system could extend along the park and street edge. An informal trail linking Lebaum Street SE to the under-construction I-295 shared-use path could also be created via blazes through the park’s woods.

Between Malcolm X Avenue SE and the southern park boundary, the trail system could be implemented in one of two ways: as a natural trail or as a street-side trail.

Natural Trail Experience Option A A natural trail experience option could create a trail that generally extends along the tree line around open green space and meanders through woods around Fort Carroll and Fort Greble. In certain segments, the trail system would extend along the park and closer to the street to avoid sensitive resource areas (see Figure 12, Figure 15, and Figure 17). Under the Natural Trail Experience (Option A), the Shepherd Parkway trail system would contain a total of approximately 3.3 miles of trails.

19 | Shepherd Parkway Concept Plan

Figure 10 Overview of Overall Shepherd Parkway Concept Plan - Key Features

Concept Plan Recommendations | 20

Figure 11 Overall Shepherd Parkway Concept Plan - Detailed Features The yellow-highlighted areas indicating trails, existing vegetation maintenance, and open space shown in Figure 11 and Figure 14 through Figure 18 are illustrative and not intended to reflect specific limits of disturbance. Examples of existing vegetation maintenance could include mowing, trimming, and removing unhealthy or dead vegetation where appropriate.

21 | Shepherd Parkway Concept Plan

City Trail Experience Option B A city trail experience option could create a trail that generally extends along the street edge (see Figure 12, Figure 16, and Figure 18). This would allow users to see into and enjoy the park without having to enter the woods. The trail would also connect to Fort Carroll and Fort Greble. Under the City Trail Experience (Option B), the Shepherd Parkway trail system would contain a total of approximately 3.1 miles of trails.

Based on existing topography, specific trail sections in the City Trail Experience (Option B) could be constructed according to the 2015 Architectural Barriers Act Accessibility Standards (ABAAS) to provide universal access for visitors with physical disabilities.

Accessible trails could include the trail along 2nd Street SW from Xenia Street SW to Chesapeake Street SW and the trail to the east of Fort Greble for a total length of approximately 0.5 miles.

In both options, the NPS could coordinate with the District of Columbia to establish a trail connection between Chesapeake Street SW and Elmira Street SW on District property to provide a direct connection to Fort Greble from Chesapeake Street SW while avoiding impacts on natural resources. This trail connection could also be constructed according to the ABAAS.

Play Shepherd Parkway would provide several flexible spaces where visitors could participate in informal pick-up games, let children play, and engage in other active recreation activities (Figure 12). Flexible open green space could be established at select existing open

Figure 12 Trail and Flexible Open Green Space at 2nd Street SW The trail surfaces shown are for illustrative purposes only. The NPS has not determined the trail surface at this stage in the planning process.

Natural Trail Experience Option A

Existing

Concept Plan Recommendations | 22 areas in the park. The NPS could perform selective existing vegetation maintenance and invasive removal at these locations to maximize, to a reasonable extent without impacting natural resources, and maintain flexible space available for visitor use. Selective invasive removal would be performed in compliance with the NPS National Capital Region Invasive Plant Management Plan (IPMP) (2015).

Host Picnics and Gatherings The park would provide opportunities for friends, families, and other groups to picnic, host informal gatherings, socialize, and enjoy Shepherd Parkway’s landscape together (Figure 12). The NPS could install picnic tables and perform selective existing vegetation maintenance at select existing open areas to provide comfortable and well-maintained places for picnics and gatherings in the park.

Enjoy Scenic Views The park would provide designated places where visitors could take in scenic views across the Potomac River and beyond (Figure 13). Topographic high points could be utilized to create overlooks. The NPS could create filtered views at these overlooks through selective vegetation maintenance, which avoids removing trees, and invasive vegetation removal performed in compliance with the IPMP. The 2nd Street SE overlook could be constructed according to the ABAAS to provide universal access for visitors with physical disabilities.

Learn about Civil War Defenses Shepherd Parkway would offer opportunities for visitors to:

• View the remnants of Civil War-era forts

• Learn how these forts protected the Nation’s Capital during the Civil War and their larger connection to the ring of fortifications surrounding the city

• Understand how the forts shaped the development of the neighboring community

• Learn how these forts were havens of safety for contraband communities

• Attend NPS Ranger-led interpretive talks and tours

Figure 13 2nd Street SE Overlook

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New and updated interpretive signage could be installed at Fort Carroll and Fort Greble to increase public awareness and understanding of these forts and their significance. Treatments that help interpret, yet preserve, fort remnants could also be applied to the forts. Treatments would follow recommendations included in the future NPS National Capital Area Earthworks Management Plan. Selective invasive vegetation removal would also be consistent with these recommendations and performed in compliance with the IPMP. Invasive vegetation removal at Fort Carroll and Fort Greble would not occur until the Earthworks Management Plan is completed.

Identify and Inform NPS signage with Shepherd Parkway’s name and a prominent display of the NPS arrowhead would increase public awareness of the park’s name, designation as federal park land, and connection to the larger NPS system, as well as deter illegal dumping and litter. Signs could be placed at Parkland, at key activity nodes, at dumping and litter hot spots, and where streets end at the park to enhance the park’s recognition among passing vehicles, pedestrians, and bicyclists.

Trash receptacles, no dumping signs, and monitoring cameras would help prevent illegal dumping and litter and enhance the park’s appearance and ecological health. These features could be placed at Parkland, at key activity nodes (including picnic/family gathering areas), and at dumping and litter hot spots. No dumping signs could state that dumping and littering on federal parkland is prohibited and illegal, provide accurate contact information to report dumping, advertise the District’s 311 contact number for scheduling bulk pick-up and the U.S. Park Police contact number, and note that the area is under video surveillance.

Concept Plan Recommendations | 24 Concept Plan Recommendations | 24

See Figure 13

Figure 14 Northern Park Boundary to Malcolm X Avenue SE Concept PlanFigure 14 Northern Park Boundary to Malcolm X Avenue SE Concept Plan

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Figure 15 Malcolm X Avenue SE to South Capitol Street Concept Plan – Natural Trail Experience Option A

25 | Shepherd Parkway Concept Plan

Figure 15 Malcolm X Avenue SE to South Capitol Street Concept Plan – Natural Trail Experience Option A

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Figure 16 Malcolm X Avenue SE to South Capitol Street Concept Plan – City Trail Experience Option B

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Figure 16 Malcolm X Avenue SE to South Capitol Street Concept Plan –

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Figure 17 South Capitol Street to Southern Park Boundary Concept Plan – Natural Trail Experience Option A

27 | Shepherd Parkway Concept Plan

Figure 17 South Capitol Street to Southern Park Boundary Concept Plan – Natural Trail Experience Option A

Figure 12

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Figure 18 South Capitol Street to Southern Park Boundary Concept Plan – City Trail Experience Option B

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Figure 18 South Capitol Street to Southern Park Boundary Concept Plan – City Trail Experience Option B

Figure 12

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Existing Figure 19 Family-Oriented Outdoor Space in the Flexible Recreation Areas Option A

PARKLAND CONCEPT PLAN

The concept plan options for Parkland would offer opportunities for a range of uses, from informal activities to official programming. Each of the concept plan options would help define Parkland as a gateway to NPS lands. The concept plan options build upon the existing mature tree canopy and adapts the existing bare, hardpacked soil to a surface better suited for high-traffic areas.

Both concept plan options for Parkland would accommodate a wide range of events and programming and offer space for active and passive recreation for local communities. Visitors could:

• Attend movie nights, youth programs, small concerts or performances, festivals, or pop-up events

• Hold events to meet neighbors and support the community

• Organize family and friend gatherings (e.g., picnics and birthday parties)

• Participate in outdoor classes (e.g., fitness classes)

• Let children connect, play, and learn in nature at age-appropriate playgrounds

Each option generally divides Parkland into three zones: 1) an entry plaza, 2) a family-oriented outdoor space, and 3) an expanded children’s play area, but they differ in terms of priority and amount of space.

Pedestrian pathways could connect the three zones to provide circulation within Parkland and protect ground cover and existing tree roots from foot traffic.

Native vegetation would also be used in Parkland’s landscaping. The three zones would not extend beyond Parkland’s existing open space.

Flexible Recreation Areas Option A In the flexible recreation areas option, the three zones could be distinctly located within the eastern, center, and western portions of Parkland. An entry plaza, located at the eastern end of Parkland by Martin Luther King Jr. Avenue SE, could create a welcoming entrance to the park. The plaza could include a large NPS entrance sign and a gateway feature, such as an outdoor sculpture.

A large family-oriented outdoor space, located in the center portion of Parkland, could provide a relatively formal yet flexible space for picnics, gatherings, and organized events and programs (Figure 19). The space could include pavilions, picnic tables and chairs, and a

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Figure 20 Parkland Concept Plan – Flexible Recreation Areas Option A The photographs shown illustrate the kind of facilities and activities that could take place in Parkland under this option. The extent of the three zones shown are illustrative and not intended to reflect specific limits of disturbance.

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Figure 20 Parkland Concept Plan – Flexible Recreation Areas Option A The photographs shown illustrate the kind of facilities and activities that could take place in Parkland under this option. The extent of the three zones shown are illustrative and not intended to reflect specific limits of disturbance.

See Figure 19

31 | Shepherd Parkway Concept Plan

Figure 21 Parkland Concept Plan – Focused Recreation Areas Option B The photographs shown illustrate the kind of facilities and activities that could take place in Parkland under this option. The extent of the three zones shown are illustrative and not intended to reflect specific limits of disturbance.

31 | Shepherd Parkway Concept Plan

Figure 21 Parkland Concept Plan – Focused Recreation Areas Option B The photographs shown illustrate the kind of facilities and activities that could take place in Parkland under this option. The extent of the three zones shown are illustrative and not intended to reflect specific limits of disturbance.

See Figure 22

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Figure 22 Family-Oriented Outdoor Space and Expanded Children’s Play Area in the Focused Recreation Areas Option B small performance stage. A kid’s garden could provide hands-on opportunities for children to learn how food and other plants are grown and provide hands-on experience with gardening practices.

The children’s play area could build off the existing playground, located in the western portion of Parkland, to create an expanded space designated for children to play. Inclusive play design and a single perimeter fence could create a safe play environment for children of all ages and abilities.