NCPC_Penn Ave RFP 1_Implementation Program_Revised_2023_09_25.pdf

A New

PENNSYLVANIA

AVENUE PLAN

REQUEST FOR PROPOSAL Phase 1 :: Implementation Program

PUBLISHED SEPTEMBER 15, 2023

REVISED SEPTEMBER 25, 2023

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 2

OVERVIEW OF PROJECT AND PROJECT PHASES

Overview of Project 6

• Boundary Map 8

Overview of Project Phases 9

• Phasing Diagram 10

• RFP 1 — Implementation Program 11

• RFP 2 — Public Space Master Plan and Concept Design 12

• RFP 3 — Final Design 13

• Project Timeline and Period of Performance 14

PHASE 1 — IMPLEMENTATION PROGRAM

I. A New Pennsylvania Avenue Plan — Setting the Stage 18

II. Phase 1 — Scope of Work 32

• Phase 1a — Scope of Work

» Task 1 :: Project Approach and Management 33

» Task 2 :: Facilitation and Communications Strategy 33

» Task 3 :: Public Space Master Plan Program of Requirements and 34

» Task 3 — Comprehensive Physical Needs Program

» Task 4 :: Economic Modeling and Initial Business Case 36

» Task 5 :: Implementation Program Strategies 37

TABLE OF CONTENTS

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 3

» Phase 1a — Required Deliverables 38

• Preliminary Outline for NEPA / NHPA Section 106 — Option Phases 1b and 1c 40

• Potential Future Scope of Work — Option Phase 1b (Pre-NEPA) 45

• Potential Future Scope of Work — Option Phase 1c (NEPA) 46

• Potential Future Scope of Work — Option Phase 1d 47

• Phase 1 — Responsibilities 48

III. Proposal Submission Requirements 50

• Technical Proposal — Submission Document 1 52

• Fee Proposal — Submission Document 2 54

IV. Resource Lists 56

V. Selection Process 60

VI. RFP Summary Submission Information 64

VII. Terms, Conditions, and Provisions 68

APPENDIX

Terms and Definitions 81

4A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP

Photo credits are a vital aspect of respecting the intellectual property rights of photographers and creators. NCPC abides by this practice to ensure transparency, credibility, and ethical use of visual content. The images in this RFP are for internal use only, are for discussion and example purposes only, and will not be published or reproduced in any way or in any form be made public. Within this context, attribution, although encouraged, is not mandatory.

OVERVIEW OF

PROJECT AND

PROJECT PHASES

OVERVIEW OF PROJECT

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 6

The National Capital Planning Commission (NCPC), 401 9th Street, NW, Suite 500, Washington, DC 20004, through a Full and Open Competition, is seeking a qualified consultant team, under NAICS Industry Code 541611

Administrative Management and General Management Consulting

Services, to prepare the New Pennsylvania Avenue Plan (New PA Plan).

Federal and District agencies have come together and agree that now is the time to update the antiquated Pennsylvania Avenue Plan 1974 (1974

Plan) to guide physical improvements and operations for the next 50 years.

Building on the vision, early concepts, and studies1 completed to date, the

NCPC in collaboration with federal and District partners, seeks a qualified consultant team to prepare the New PA Plan that considers the

Pennsylvania Avenue Historic Site. The New PA Plan will include a Public

Space Master Plan and an Implementation Program for the

Pennsylvania Avenue corridor.

The New PA Plan will be developed through three (3) phases, each with a

Request for Proposal (RFP). Each will be contracted separately with the first two coordinated through concurrent periods of performance. The work contracted through each RFP will inform successive phases of work.

This RFP addresses the Implementation Program.

The 1974 Plan focuses on an approximately 116-acre area that encompasses Pennsylvania Avenue from 3rd Street, NW to 15th Street, NW, and several blocks to the north along its length.2 Federal law and a

Memorandum of Agreement established the 1974 Plan and its jurisdictional and regulatory framework that is also defined by General

Guidelines and specific Square Guidelines for each block.

1 See Section 4: Resource Lists 2 See page 8: Boundary Map, PADC Boundary

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP

The New PA Plan should be a usable and comprehensive document that will guide decision making on planning, design, development, operations, and programming into the coming decades. It should include:

• An Implementation Program, including a funding strategy to administer and / or coordinate the future operations, maintenance, and programming of the Avenue.

• A new stewardship entity or partnership to implement the New

PA Plan.

• A Public Space Master Plan to guide urban form, public space, roadway, security, and infrastructure improvements.

• An updated regulatory framework, including Square Guidelines, to ensure that urban form, land uses, and any new or modified site or building development, modifications, or redevelopment reflect best urban development practices commensurate with the importance of

Pennsylvania Avenue’s location, role, and symbolism.

This work will entail obtaining required jurisdictional approvals and potentially assisting with any future legislative actions necessary to implement the New PA Plan.

OVERVIEW OF PROJECT (continued)

The Pennsylvania Avenue, NW corridor extends west from 3rd Street, NW at the U.S. Capitol grounds to 15th Street, NW near the east side of the White

House. However, it is also important to consider the relationship of the Avenue to neighboring areas that extend south on 4th Street, NW and east of 3rd

Street, NW.

The corridor consists of the cartway (roadway), adjoining sidewalks, and a series of plazas and parks, including Pershing Park (U.S. Reservation 617), Freedom Plaza (U.S. Reservations 32 and 33), Market Square Park (U.S. Reservations 35 and 36), Indiana Plaza (U.S. Reservation 36A), Mellon Park (U.S.

Reservation 546), John Marshall Park, and Meade Plaza (U.S. Reservation 553). The corridor and surrounding blocks are historic sites.

The United States owns the roadway itself and the above-described features and structures. However, the roadway is administered by the District of

Columbia Department of Transportation, and most of the sidewalks along it, and most of the adjacent parks and plazas, are administered by the

National Park Service (NPS). Several federal agency headquarters managed by the General Services Administration (GSA) are located on the south side of the Avenue in the Federal Triangle Historic District. The area east of 3rd Street, NW is part of the U.S. Capitol grounds, under the jurisdiction of the

Architect of the Capitol.

Boundary Map

OVERVIEW OF PROJECT PHASES

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 9

The Scope of Work (SOW) to prepare the New Pennsylvania Avenue Plan (New PA Plan) entails two primary phases that will be contracted separately through two Request for Proposals (RFPs) that must be closely coordinated. The first RFP (Phase 1) will focus on the Implementation Program (IP);

the second RFP (Phase 2) will focus on a Public Space Master Plan (MP).

A future RFP for the third phase will include implementation of the New PA Plan, including preparation of design and construction documents. This last phase will be scoped, solicited, and procured by the new stewardship entity after the New PA Plan is accepted by the required congressional subcommittees.

A diagram on page 10 of the SOW provides an overview of the sequence and relationship among these primary phases. The phases are as follows:

• Phase 1 :: This Implementation Program (IP) RFP focuses on tasks to develop the Implementation

Program. It involves Phase 1a, and option Phases 1b, 1c, and 1d. Together, this work includes defining the potential public space program of requirements; developing the business case for the New PA Plan; determining a stewardship and implementing entity; addressing administrative matters such as operations, maintenance, funding, activity programming and a regulatory framework; and obtaining approval of relevant components of the New PA Plan.

• Phase 2 :: A Public Space Master Plan and Concept Design (MP) RFP will be released in the 1st quarter of FY 2024 and procured and awarded as a separate contract. It will focus on planning and design tasks related to public space, infrastructure, and approval of the physical plan.

• Phase 3 :: Following completion and approval of Phases 1 and 2, a new stewardship entity may issue an RFP(s) for Phase 3 — Final Design (FD). Timing and details for Phase 3 RFP will be defined in Phases 1 and 2.

The work procured and developed through each of these RFPs will use and build upon the Executive

Committee’s completed work to date, with updates and modifications as needed.3

3 See Section 4: Resource Lists

Phasing Diagram

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 10

* NCPC is collaborating with Federal Highway Administration to prepare a preliminary cost estimate for the early concepts.

RFP 1

Implementation Program (IP)

This RFP includes Phase 1a; however, Phases 1b and 1c may be awarded as option phases4 following completion of Phase 1a. Phases 1b and 1c are intended to be an iterative process in collaboration with work developed under the MP RFP in Phase 2. Phase 1d may be awarded as an additional option phase to advance following approval of the New PA

Plan.5

Phase 1a :: Public Space Master Plan Program of Requirements and Implementation Program Strategies

Develop the following:

• Event and public space program of requirements to inform concept development in Phase 2;

• Develop a baseline economic model(s) to build the initial business case for the vision;

• Develop the Implementation Program strategies that include a potential new stewardship entity with budget estimates;

• Develop strategies for regulatory review and development standards (Square Guidelines), operation and maintenance, daily and event programming, and funding.

4 An option phase is a “unilateral right in a contract by which, for a specified time, the Government may elect to purchase additional supplies or services called for by the contract, or may elect to extend the term of the contract“

5 See Appendix: Terms and Definitions

Option Phase 1b :: Update Business Case and Implementation Program Framework

In coordination with development of preferred alternative(s) under

Phase 2 — MP, refine the economic models to update the business case, and to inform the Implementation Framework.

Option Phase 1c :: New Pennsylvania Avenue Plan

In coordination with development of the Public Space Master Plan under

Phase 2 — MP, prepare the New PA Plan and manage the National

Environmental Policy Act (NEPA) and the National Historic Preservation

Act (NHPA), and Agency approvals to include:

• An Implementation Program that will address regulatory review and development standards (Square Guidelines), operations and maintenance, daily and event programming, and funding. It will also include a new steward — a governance entity or partnership — to implement the Public Space Master Plan and administer the

Implementation Program.

• The Public Space Master Plan and Concept Design to guide physical infrastructure, urban design and public space, and roadway improvements.

Option Phase 1d :: Legislative and Regulatory Changes

If deemed necessary by Project Partners, assist in preparing materials required for legislative changes to implement the New PA Plan and associated jurisdictional and regulatory provisions.

https://www.acquisition.gov/far/17.207

RFP 2

Public Space Master Plan and Concept Design (MP)

NCPC will issue the MP RFP in the 1st quarter of FY 2024; it will be procured and awarded as a separate contract. The Phase 2 — MP will focus on design with an emphasis on developing the Public Space

Master Plan in coordination with and based on findings of Phase 1 — IP, and in compliance with the National Environmental Policy Act (NEPA), the National Historic Preservation Act (NHPA), and agency approvals.6

The Public Space Master Plan is defined as physical design of the right-of-way, parks, building yards, and infrastructure.

Phase 2a :: Concept Design Alternatives

Development of a preferred conceptual design alternative(s) as informed by Phase 1a.

Phase 2b :: Concept Design and Environmental and Historic Resource Analysis

In coordination with Phases 1b and 1c, development of the concept design in compliance with federal regulatory and approval processes to be incorporated into the New PA Plan.

6 See Appendix: Federal Regulatory Processes

RFP 3

Final Design (FD)

The FD RFP(s) will be procured and awarded as a separate contract after

Phase 1 — IP and Phase 2 — MP work is successfully completed. The

Scope of Work for Phase 3 will use the Public Space Master Plan as the basis to complete design development through final design and construction. Phase 3 will be determined based on the IP and MP findings, including programming, phasing, funding, and stewardship.

Teams involved with Phase 1 — IP and Phase 2 — MP efforts will not be precluded from submitting proposals on Phase 3 — FD RFP(s).

Project Timeline and Period of Performance

Phase 1 :: Implementation Program (IP)

• Release of IP RFP Friday, September 15, 2023

• Phase 1a

» Online Pre-Bid Meeting Wednesday, September 20, 2023 at 1:00 PM Eastern Time

» Submission of Questions Monday, September 25, 2023 at 4:00 PM Eastern Time

» NCPC Responses to Questions Friday, September 29, 2023

» Submission Deadline Friday, October 20, 2023 at 12:00 PM Eastern Time

» In-Person Interviews Monday, December 4 and Tuesday, December 5, 2023

» Consultant Selection and Award February 2024

» Kick-Off Meeting March 2024

» Period of Performance Kick-Off + 6 Months

• Option Phase 1b Following Completion of Phase 1a, Concurrent with Phase 2a

Period of Performance: About 12 Months

• Option Phase 1c Following Completion of Phase 1b, Concurrent with Phase 2b

Period of Performance: About 12-15 Months

• Option Phase 1d Following Completion of Phases 1c and 2b

Period of Performance: TBD

Project Timeline and Period of Performance (continued)

Phase 2 :: Public Space Master Plan and Concept Design (MP)

• Release of MP RFP 1st Quarter of FY2024

• Phases 2a and 2b Period of Performance: About 24-27 Months

Phase 3 :: Final Design (FD)

• Release of FD RFP(s) Following Completion of Phases 1 and 2

16A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP

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PHASE 1 ::

IMPLEMENTATION

PROGRAM

SECTIONS I-VII

I

A NEW PENNSYLVANIA

AVENUE PLAN

Setting the Stage

Overview

Pennsylvania Avenue, NW between the U.S.

Capitol and the White House is the nation’s most iconic ceremonial boulevard and one of the most important places in the city where the District of

Columbia and federal governments share many interests. It is an important city asset, a one-of-a-kind national destination, and is instantly recognized worldwide.

The Pennsylvania Avenue corridor and several blocks around it are designated as the

Pennsylvania Avenue National Historic Site.

Framed by a grand, architecturally significant building wall and distinct tree canopy, the

Avenue’s urban form offers spectacular views of the U.S. Capitol and a continuous pedestrian allee’ along its corridor, linking the Executive and

Legislative branches of government as envisioned by Pierre L’Enfant in his 1791 plan for the nation’s capital.

Pennsylvania Avenue is the northern border of the

Federal Triangle and the southern border of the eastern portion of the city’s downtown eastern commercial core. Here, Pennsylvania Avenue serves important national and local roles. Its location and civic use have elevated the Avenue’s national symbolic role and importance.

SECTION I :: SETTING THE STAGE

Pennsylvania Avenue Significance https://planning.dc.gov/publication/pennsylvania-avenue-national-historic-site

Historically, it is the nation’s place to celebrate, commemorate, and recognize America’s rich social, cultural, and political moments and events. The Avenue has been the location of the presidential inaugural parade since 1805 and the site of the first protest march on Washington by Coxey’s Army in 1894. It continues to be a prominent and important place for the public to assemble to mourn, celebrate, and exercise free speech.

The use and character of Pennsylvania Avenue has evolved over time.

Once a bustling commercial corridor, today the Avenue supports a mix of public and private offices, as well as cultural and educational institutions. The corridor is unified by a consistent streetscape that mitigates an undulating building wall with diverse architecture character between the north and south sides of the street. Home to the District’s executive and legislative branches of government, this highly visible location commands some of the highest rents in the city. It also hosts many local and regional festivals and events each year.

• The Avenue spans 1.2 miles between the White House and U.S.

Capitol and features 40 acres of public space and a cohesive streetscape (e.g. paving, street furnishings, plantings) that links its parks and plazas and unifies its varied sidewalk and building conditions.

• The Avenue’s iconic urban form and character offers a spectacular vista, monumental scale, generous paved areas, and a sequence of public spaces that provide flexible space for daily use and multiple stage settings for events.

• The location and surrounding land use mix is conducive for events, given its low traffic volumes and great access to transit. The concentration of office use means the Avenue is least populated during typical event times.

• The Avenue hosts the quadrennial Inaugural Parade and is a nationally important place for public assembly.

• Pre-pandemic, the Avenue hosted an average of 150 mostly local and regional permitted events per year. It is a viable alternative to the National Mall for hosting large scale events and has the potential to capture local, regional, national, and international audiences.

SECTION I :: SETTING THE STAGE

Pennsylvania Avenue Significance (continued)

Background

Through the Pennsylvania Avenue Development Corporation Act of 1972, Public Law 92-578, 86 Stat. 1266, Congress created the Pennsylvania

Avenue Development Corporation (PADC) and found and declared:

a) that it is in the national interest that the area adjacent to Pennsylvania

Avenue between the U.S. Capitol and the White House, most of which was designated on September 30, 1965, as a national historic site under the Historic Sites Act of August 21, 1935 (54 U.S.C. §§ 320101 et seq.) “be developed, maintained, and used in a manner suitable to its ceremonial, physical, and historic relationship to the legislative and executive branches of the federal government, and to the governmental buildings, monuments, memorials, and parks in or adjacent to the area.

b) that the area adjacent to Pennsylvania Avenue between the U.S. Capitol and the White House, because of its blighted character, imposes severe public, economic, and social liabilities upon the District of Columbia as the seat of the government of the United States, thereby impeding its sound growth and development and constituting a serious and growing threat to the public health, safety, morals, and welfare of its inhabitants.

c) that to ensure suitable development, maintenance, and use of the area and the elimination of blight, it is essential that there be developed and carried out as an entirety plans for this area which will specify the uses, both public and private, to which property is to be put, the programing and financing of necessary acquisitions, construction, reconstruction, and other activities.

SECTION I :: SETTING THE STAGE

Pennsylvania Avenue Development Corporation History https://www.govinfo.gov/content/pkg/COMPS-1731/pdf/COMPS-1731.pdf

d) that such duties and responsibilities can best be developed and carried out by vesting the requisite powers in a federal corporation which can take maximum advantage of the private as well as the public resources which will be necessary.”

Congress granted the PADC certain powers to develop and implement a plan to redevelop Pennsylvania Avenue and several surrounding blocks. PADC authority included planning, real estate development and asset management, regulatory, administration, operations, maintenance, and programming.

In 1974, the PADC completed the Pennsylvania Avenue Plan (1974 Plan).

Legislation that enabled a unique regulatory structure, including general and site-specific Square Guidelines, led to the implementation of this plan.

It focused on redevelopment of the north side of the corridor, diversifying and increasing the mix of uses, and substantially improving the public realm to elevate the Avenue’s identity and improve its economic health.

While redevelopment of the corridor was substantially completed by the mid-1990s, the 1974 Plan remained a catalyst for revitalizing the surrounding downtown as a live-work central business district through the early 2000s.

In 1996, Congress dissolved the PADC and transferred all of its rights, title, and interest in carrying out its powers and duties under the Pennsylvania

Avenue Development Corporation Act7 and the Federal Triangle

Development Act.8 Congress delegated real estate planning, development

7 (40 U.S.C. 871-885) 8 (40 U.S.C. 1101-1109)

SECTION I :: SETTING THE STAGE

Pennsylvania Avenue Development Corporation History (continued) https://www.nps.gov/nationalmallplan/Documents/Penn/PADC_PennAvePlan1974.pdf https://www.ncpc.gov/docs/Public_Law_104_134_Dissolved_PADC.pdf and management to the General Services Administration (GSA);

maintenance and programming of the sidewalks and parks to the National

Park Service (NPS); and plan review compliance to the National Capital

Planning Commission (NCPC), with the District Government retaining responsibility for the roadway between the curbs.

Pennsylvania Avenue Today

The Avenue is currently guided by the outdated congressionally mandated

49-year-old 1974 Plan. Over time, changing economic, physical, and land use conditions have significantly impacted the Avenue’s function and character, reducing its utility as a street. No longer a primary thoroughfare, it is now an empty and lackluster space. Its infrastructure is aging and its physical condition is declining. It has become less economically competitive and has struggled to support retail and sustain activity, which has been compounded by the pandemic.

For more than 25 years each agency has fulfilled its responsibilities — in accordance with a Memorandum of Agreement (1996 MOA). However, no one entity is in charge, nor is there an established body to adequately coordinate and make decisions for Avenue’s greater good.

SECTION I :: SETTING THE STAGE

Pennsylvania Avenue Development Corporation History (continued)

Credit: Washington Post https://www.gsa.gov/ https://www.nps.gov/index.htm https://www.nps.gov/index.htm https://www.ncpc.gov/ https://www.ncpc.gov/ https://dc.gov/ https://www.ncpc.gov/docs/PADC_MOA_1996.pdf

Overview of Planning to Date

To address the lack of a single stewarding entity for the Avenue, NCPC, GSA, NPS, and the District

Government’s Deputy Mayor for Planning and Economic Development (DMPED) and Department of Transportation (DDOT), in collaboration with the District Office of Planning (DCOP) and the U.S.

Commission of Fine Arts (CFA), formed an Executive Committee to focus agency coordination on the Pennsylvania Avenue Initiative (Initiative).

The Executive Committee focused on the public space and how to address the Avenue’s declining physical conditions, its aging infrastructure, its complex regulatory and operational structures, and loss of economic competitiveness.

Between 2016 and 2018, several expert technical studies were completed, including the Pedestrian

Life Study, Cultural Landscape Report, Economic and Real Estate Market Analysis, Urban Design

Analysis, Transportation Study, and Programming Report.9 In response, the Executive Committee released a Findings and Strategies Summary of near-, mid-, and long-term actions to improve the

Avenue. After obtaining input from subject matter experts, the Executive Committee concluded:

• The Avenue is well-connected to transit but designed for cars. It is no longer a vehicular thoroughfare and should prioritize people first.

• The Avenue no longer possesses the characteristics of a successful retail street, and its primary role is that of a unifying destination.

• Improvements should capitalize on the Avenue’s strengths: elevate the experience of the Capitol vista and enhance the public realm and programming with flexible infrastructure to become a dedicated venue, a location for preeminent activities.

9 See Section 4: Resource Lists

SECTION I :: SETTING THE STAGE

The Pennsylvania Avenue Initiative https://dmped.dc.gov/ https://ddot.dc.gov/ https://ddot.dc.gov/ https://planning.dc.gov/ https://www.cfa.gov/ https://www.cfa.gov/ https://www.ncpc.gov/initiatives/pennave/ https://www.ncpc.gov/docs/A_Penn_Ave_Ped_Life_Study_April2016.pdf https://www.ncpc.gov/docs/A_Penn_Ave_Ped_Life_Study_April2016.pdf https://parkplanning.nps.gov/document.cfm?parkID=427&projectID=58434&documentID=75152 https://www.ncpc.gov/docs/Pennsylvania_Ave_Market_Analysis_March2016.pdf https://www.ncpc.gov/docs/Pennsylvania_Ave_Urban_Design_Analysis_September2017.pdf https://www.ncpc.gov/docs/Pennsylvania_Ave_Urban_Design_Analysis_September2017.pdf https://www.ncpc.gov/docs/C_PennAve_Transportation_Study_DDOT.pdf https://www.ncpc.gov/docs/Pennsylvania_Avenue_Action_Plan_Summary_May2018.pdf

In 2019, NCPC collaborated with Events DC and consultants to examine public space and programming to explore the potential for increasing the scale of events hosted on the Avenue.

During Covid, a 2020 ULI report examined how the District could recover from pandemic impacts on the economy. The report found that the pandemic revealed the demand for civic infrastructure and high-quality outdoor public space, focusing on the importance of using public space, placemaking, design, and civic infrastructure to revitalize downtown — which is consistent with the Initiative’s goals.

Between 2020 and 2022, the Executive Committee developed a new vision and three early concepts to explore how to transform the public space to address the Avenue’s declining physical condition and outdated infrastructure, and how the Avenue can become an inspiring destination and contribute to downtown’s economic health. This vision aligns with the District’s efforts to revive its economy by attracting people back downtown.

SECTION I :: SETTING THE STAGE

The Pennsylvania Avenue Initiative (continued) https://www.eventsdc.com/ https://www.ncpc.gov/docs/B_ULI-ASP_WashingtonDC_2020.pdf https://storymaps.arcgis.com/stories/e9729ec86bef49ef96164d1253ae472e

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 27

The Pennsylvania Avenue Initiative (continued)

The Vision — The Avenue as a Venue

The Project Partners envision the Avenue as:

• A signature venue for hosting significant regional, national, and international events that generate tourism and street life. A destination that engages, entertains, and inspires participants to expand their imagination and create enduring collective memories.

• A street that prioritizes people, accommodates and provides access to multiple transportation modes, and offers modernized infrastructure. A welcoming destination with an inspiring public realm for downtown residents, workers, and visitors.

• A ceremonial corridor that honors its historic, symbolic, and physical relationships to the nation’s adjoining governing and cultural institutions and commemorative spaces.

• An inclusive civic space, reflecting America’s democratic values, where everyone is welcome to gather, meet up, relax, celebrate, mourn, and exercise free speech.

Revitalizing Pennsylvania Avenue as an everyday street for people and as a one-of-a-kind venue to host major national and international events will benefit both downtown and the District. It will:

• Provide the infrastructure and public space to successfully compete and attract national and international events.

• Provide high quality public spaces and amenities for visitors, workers returning to their offices, and current and future residents that live downtown, in the city, and around the region.

• Stimulate tourism to generate direct and indirect visitor spending on hotels, restaurants, and retail citywide.

• Inspire redevelopment / economic activities that elevate Washington as a world-class capital city.

• Support tenant attraction and retention efforts downtown, enhance property values for owners, create more attractive assets for investors, and increase the local tax base.

Three Early Concepts

Three early concepts propose ideas to right-size and reconfigure the street and the public spaces in different ways. The purpose is to enhance the Avenue’s iconic setting and increase its usability and flexibility to reach its potential as a world-class event venue and a more welcoming and enjoyable place for everyday use.

Each concept proposes ideas to uniquely prioritize pedestrians, bicycles, transit, and cars; enhance daily use; achieve sustainability goals; address gaps in equity and access; and support a range of programming opportunities:

• Urban Capital: Establishes a “complete street” with comfort amenities and services that create a go-to place and respite for locals and visitors.

• Linear Green: Prioritizes transit, people, and bikes and creates a unique destination for outdoor gatherings and connection to nature.

• Civic Stage: Centers pedestrians within a large median promenade with flexible spaces and infrastructure for a range of special events.

Urban Capital Concept

Linear Green Concept

Civic Stage Concept

The Pennsylvania Avenue Initiative (continued)

Urban Capital Concept Linear Green Concept Civic Stage Concept

2022 Public Engagement

On March 16, 2022, NCPC released the vision and three early concepts for a 136-day public comment period that closed on July 29, 2022. NCPC held three online public meetings, conducted more than 70 briefings, and attended events to listen and learn from stakeholders, including federal partners, District agencies, property owners, business leaders, mission-driven organizations, neighborhood groups, those that work and live on or near the Avenue, and frequent visitors.

NCPC received more than 450 thought-provoking written comments, expressing staunch support and specific concerns shaped by the diversity of personal and professional experiences, cultures, and points of view. Ideas ranged from minute streetscape details to grand aspirations for a majestic boulevard in a modern capital city. Some people even shared precedents from across the country and abroad.

SECTION I :: SETTING THE STAGE

The Pennsylvania Avenue Initiative (continued) https://storymaps.arcgis.com/stories/e9729ec86bef49ef96164d1253ae472e https://www.ncpc.gov/videos/597/ https://www.ncpc.gov/docs/Penn_Ave_Comments_July_29_2022.pdf

The Opportunity

Federal and District agencies agree on the need to rethink how to use Pennsylvania Avenue; how to improve the stewardship of, and ensure equitable access to, this high-profile public space; and how to reposition it as a local and national asset and elevate its role as a place for civic activities in the

United States of America’s capital city.

Pennsylvania Avenue can become a spectacular regional and national destination by leveraging on its one-of-a-kind location, setting, scale, character, and symbolic role. These attributes are the foundation to create great public spaces that everyone can enjoy and make the Avenue a signature outdoor venue. As a key component of the city’s civic infrastructure, the Avenue can become an enduring public space and an extraordinary special event destination.

Improving its public spaces and scaling up programming can elevate and spotlight Washington on the national and international stage while providing an alternative venue to the National Mall, thus lessening the demand to over program it. This work is timely because by making the Avenue a more desirable and accessible destination to live, work, and visit, it can fulfill a critical role in the District’s post-pandemic recovery goals and aligns with the Mayor’s 5-year economic development strategy

(DC Comeback Plan) and the Downtown Action Plan to generate tourism, revive the local economy, and bring people back downtown.

There is no better time than now to leverage the Avenue’s assets to benefit the entire city and reclaim its important role in the city and the nation. Tourists, workers, and residents from all 8 Wards will get to enjoy a new public space amenity worthy of its history. A place where Americans can celebrate our diversity and culture, tell our stories, honor our past, and aspire to our future. The

Avenue can be a beacon for the nation’s capital — a place that all Americans can be proud of.

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 31

SECTION I :: SETTING THE STAGE

The Pennsylvania Avenue Initiative (continued)

“The Avenue should be a place for ambitious ephemeral events that live in people’s memory, transforming lives by the way we see the world.”

— Helen Marriage https://www.obviouslydc.com/dcs-comeback-plan/home

PHASE 1

Scope of WorkII

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 33

SECTION II :: SCOPE OF WORK

Phase 1a

Task 1 :: Project Approach and Management

1.1 Project Management

• Propose the approach, schedule, milestones, and refine in collaboration with NCPC.

1.2 Anticipated Project Meetings

• Project Partners – Two group meetings

• Project Team – Minimum bi-weekly

» NCPC and Lead Consultant(s), with Project Partner representatives and Sub-consultants as needed.

• Potential Technical Committees / Focus Groups

» May include, but are not limited to, security, infrastructure, emergency management, event production, project partners technical staff (as detailed in Appendix: Stakeholders and Focus

Groups).

• NCPC, with Project Partners support, will be responsible for setting up meetings.

1.3 Stakeholders Engagement

• Stakeholders engagement will commence with the start of Task 2.

Task 1 will be informed by the previous and extensive public outreach performed by NCPC during the earlier phase of study.

Summaries of past public outreach will be provided to the selected consultant.

Task 2 :: Facilitation and Communication Strategy

• For Phase 1a — The work will primarily be an internal effort with

Project Partners and potential key stakeholders. While there will not be any public outreach, there will be selective public communications. The focus for this task will be:

» To develop an approach and facilitate discussions with Project

Partners to identify a preliminary range of implementation strategies, including governance (stewardship) and milestones for success; and

» To advise and assist NCPC staff on public communications strategy(ies) to continue to grow project support.

• For Phases 1b, 1c, and 2 — Based on findings during Phase 1a, develop and execute a facilitation and communication strategy to include internal team and external project communications, and the organization and facilitation for Project Partners engagement and public outreach with the diverse range of stakeholders required to grow support and develop of the New PA Plan.

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 34

Task 3 :: Public Space Master Plan Program of Requirements and Comprehensive Physical Needs Program (PR)

The PR is intended to define the range of spatial use and operational requirements for special events and public space use to support

Pennsylvania Avenue in becoming a venue and an active daily environment. The PR will be used for Phase 1 — IP, Task 4 – Economic

Modeling and Draft Business Case, and Phase 2 — MP to test-fit the three early concepts (Urban Capital, Linear Green, Civic Stage) toward developing the preferred alternative(s).

3.1 The Program of Requirements should be inclusive of, but

not limited, to:

• A variety of daily public space uses.10

• National and local events of ranging sizes and types such as cultural, civic, entertainment, performance, art, ceremonial, celebrations, and select commercial activities like farmers and night markets.

• PR should consider:

» Times and durations of public space uses and events: seasonal, multi-day, weekly, daily, or recurring uses and events.

» Range of event participants such as civic institutions, cultural groups, and vendors that reflect a priority for diversity, equity, and inclusion in the activation of the public space.

» Spatial requirements for daily use, small and large events, and activities based on location such as on the sidewalk, a park or plaza, within the cartway, or some combination thereof.

» Exploring extending ground-floor uses for both government and privately-owned buildings to activate public spaces to enliven street life.

d

3.2 Expected Work includes:

• Interview with focus groups that include stakeholders such as security planners, emergency responders, and property owners.

• Interviews with potential event organizers, sponsors, and past event participants such as vendors and cultural entities. Interviews should include federal, District, civic, cultural, ceremonial, and private entities to develop a summary of a range of past and potential event types for Pennsylvania Avenue and adjacent public spaces.

» Information on previous studies by the Project Partners will be provided to the selected consultant.

» Consultant should anticipate up to 20 interviews and consultations and propose an approach(s) for efficiently organizing individual and / or group interviews to best collect a comprehensive list of potential activities.

» To supplement the Consultant’s research and analysis, obtain additional data and insights related to event revenue and costs

(federal and District) from the interviews to refine methodology and assumptions for economic modeling and the impacts assessment used to develop the business case in Task 4.

10 See Appendix: Key Terms and Definitions

Phase 1a (continued)

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 35

• Document the range of programming and physical needs for public space programming such as:

» Potential size and space requirements and anticipated attendance.

» Infrastructure requirements such as telecommunications, audio / visual framework, food and beverage service, sanitary / comfort stations, and medical aid stations, as well as temporary and permanent security requirements.

» Operational requirements such as staging areas, set-up / take-down periods, security, and vehicular and pedestrian / crowd control.

• Develop a high level cultural narrative to inform a recommended approach to curate a variety of programs of local, regional, and national significance that are authentic, inclusive, and uplifting.

Cultural programming should identify potential approaches to curation and address equity and access to participation.

• Draft and Final Program of Requirements will be used as a basis to refine the economic modeling in Task 4 to develop the business case as well as the implementation strategies in Task 5. The PR should include a projection of events for a calendar year, including special events such as the Inauguration and the U.S. Semiquincentennial

(America’s 250th anniversary) in 2026.

Task 4 :: Economic Modeling and Initial Business Case

This task is intended to define the basis for establishing the business case of Pennsylvania Avenue as a unique venue and a place that prioritizes people every day. This task includes baseline economic modeling, impacts analysis, and evaluations of potential programming:

4.1 Baseline Economic Model

• Baseline economic model for the Avenue as it is today. Quantify current economic costs and benefits generated by Pennsylvania

Avenue activities, and potential mid- and long-term projections without any additional future improvements, investments, or incentives.

4.2 Economic Projections for Program of Requirements

• Based on Task 3 findings, assess the economic and fiscal impacts that includes development of an economic model with preliminary estimates for hard and soft PR costs, related benefits and potential impacts for the different types, scales, frequency, and duration of activities identified in the PR.

• This information will be used iteratively with Task 3 (PR) and Task 5

(Implementation Program Strategies) to define the range of preferred programming and activities to be used in developing the

Phase 2 — MP and the New PA Plan.

Task 4 :: Economic Modeling and Initial Business Case

4.3 Initial Business Case

• Initial Business Case for Project Partners to demonstrate the value of the preferred Program of Requirements and the New PA Plan.

• The Initial Business Case should include quantifiable metrics and relevant national and international precedents that demonstrate the value of investments in public space development and stewardship.

The metrics should illustrate, at a minimum:

» Implementation Costs and Benefits: The potential implementation costs and direct financial benefits to the respective entities, including the value add to the federal and

District tax bases.

» Real Estate Impact Analysis: Use post-Covid assumptions to project incremental changes in land use, rent growth, property value, leasing transactions, and commercial occupancy; hotel occupancy; retail development and sales; tourism attraction;

institutional properties such as the Smithsonian Institution or

National Galleries; and public ground floor uses of government buildings.

» Influence and value of a new Pennsylvania Avenue within the context of downtown revitalization post-Covid.

The baseline economic models, findings, and Initial Business Case from

Phase 1a are expected to be refined in Phases 1b and 1c, in coordination with the design concept alternatives in Phase 2 — MP.

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 36

Task 5 :: Implementation Program Strategies

5.1 This task includes defining Implementation Program

Strategies for Project Partner concurrence:

• A potential Program of Requirements as defined in Task 3.

• The strategies for establishing a stewardship entity for Pennsylvania

Avenue that include a scenario(s) for:

» Entities responsible for administration, operations and maintenance, and programming of events and activities, which may be a partnership or subsidiary of federal, District, institutional, civic, and private organizations.

» Regulatory responsibilities; and

» Budget estimates with 5- and 10-year projections for establishing a stewardship entity and administration of the Implementation

Program.

• Startup and long-term funding mechanisms for the Implementation

Program.

• The Implementation Framework will continue to be developed through Phases 1b.

Note: This RFP provides the basic SOW. Upon award, NCPC and the selected consultant will review specific details and make necessary scope adjustments based on the submitted approach.

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 37

Task 1

Project Work Plan that addresses the Project Approach and management for Tasks 2-5. Draft to be developed prior to Kick-Off

Meeting. Final to be submitted within first 30 days of Notice to Proceed.

• The Project Work Plan should identify all key milestones and support an interactive development process with NCPC.

• Meetings with NCPC and Project Partners should include defined agendas, action item approach, and summaries.

Tasks 2-5

Compile the Deliverables for the following Tasks:

• Task 2: A Facilitation and Communication plan for Phases 1b, 1c, and 2, and summaries of communications, activities, and outcomes in Phase 1a.

• Task 3: The Preliminary Master Plan Program of Requirements and

Comprehensive Physical Needs Program.

• Task 4: The Baseline Economic Model and Initial Business Case.

• Task 5: The Implementation Program Strategies, including the budget estimates and potential funding mechanisms for the stewardship entity and implementation.

The Deliverables for each Task should include:

• Summary Report(s) with meeting summaries and documentation of all assumptions for findings, strategies, and recommendations.

• An Executive Summary, including a set of talking points and relevant fact sheets.

• Summary Presentations with all images and text in digital format for use in stakeholder and public presentations, on websites, and printed documents.

• Development of Deliverables for each phase will be digital with select hard copies and four submissions, including an outline, draft, pre-final, and final document. Each submission shall include a minimum two-week review period for a consolidated Project Partner review and comment. NCPC will be responsible for consolidating comments from Project Partners. Completion of each Deliverable submission requires approval from NCPC.

SECTION II :: SCOPE OF WORK

Phase 1a — Required Deliverables

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 38

This preliminary outline provides a basis for responding to RFP 1 and to clarify the collaboration between Phase 1 — IP Consultant Team and future Phase 2 — MP Consultant Team. The NEPA / NHPA Section 106 process is identified as Task 6 in Option Phases 1b and 1c Potential

Future Scope of Work on pages 45-46.

A. Project Management

• Roles:

» IP Team — NEPA / NHPA Section 106 Process Lead

» MP Team — NEPA / NHPA Section 106 Technical Support

• Tasks and Deliverables: IP Team will be lead on the NEPA Approach, Process, and Requirements and Documentation, including coordination with Lead Agency, Project Partners, and MP Team’s

Technical Deliverables.

B. Communications and Public / Stakeholders Engagement

• Roles:

» IP Team — Facilitation and Communications Lead

» MP Team — Technical Support

• Tasks and Deliverables:

» Coordination with Lead Agency

» Project communications and branding

• Public / Stakeholders Engagement

» Coordination with Lead Agency on contact lists as required by potential action

» Public meetings

» Stakeholders engagement

» Communication tools, including but not limited to web-based and traditional media

» Interagency coordination, as required

» Documentation of all engagement activities

C. Scoping / Purpose and Need

• Roles:

» IP Team — Lead

» MP Team — Technical Support

• Tasks and Deliverables:

» Coordination with Lead / Cooperating Agencies and

Determination of Potential Action. The Potential Action (EA or

EIS).

» Scoping Requirements, Draft and Final Purpose and Need

Documents

SECTION II :: SCOPE OF WORK OPTION PHASES 1B AND 1C

Preliminary Outline for NEPA / NHPA Section 106

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 40

D. Environmental Data Collection / Analysis and Mitigation

• Roles:

» MP Team — Lead on Development of Design and Technical

Information

» IP Team — Coordination with NEPA Process Requirements

• Tasks and Deliverables:

Collection, Analysis and Potential Mitigation for the elements listed below. Specific requirements will be determined based on Potential

Action (EA or EIS). Documentation will include Existing Conditions and Impact / Analysis Reports as required by Potential Action.

» Physical Environment, including but not limited to:

‒ Land use and planning policies, consistency with applicable plans / policies for the area

‒ Multi-modal transportation, including public transit, pedestrian / bicycle circulation, vehicular traffic, and parking

‒ Parks and recreational areas

‒ Utilities and infrastructure

» Social-Cultural Resources, including but not limited to:

‒ Socially or economically disadvantaged populations

‒ Environmental justice / equity issues

‒ Important scientific, archeological, and other cultural resources, including historic properties listed or eligible for the National Register of Historic Places

» Natural Resources, including but not limited to:

‒ Visual resources

‒ Water resources analysis shall address current water usage and projected water usage, stormwater management, surface water, and groundwater

‒ Soils

‒ Vegetation and landscaping, including tree canopy cover

‒ Wetlands

» Environmental Issues, including but not limited to:

‒ Sustainability

‒ Air quality

‒ Energy requirements and conservation potential

‒ Climate change analysis should be developed in accordance with latest guidance from CEQ regarding climate change analysis in NEPA documents

‒ Noise

‒ Solid waste disposal, hazardous waste / materials

SECTION II :: SCOPE OF WORK OPTION PHASES 1B AND 1C

Preliminary Outline for NEPA / NHPA Section 106 (continued)

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 41

E. Concept Development and Alternative Analysis

» MP Team — Lead on Design and Technical Analysis

» IP Team — Coordination and Advise on NEPA / NHPA Section 106

Requirements

• Tasks and Deliverables:

» Preferred Alternative Development – Specific Tasks and

Deliverables will be detailed in RFP 2. The following provides a general overview of Deliverables to be determined by potential action:

‒ Physical Master Plan: Public Space / ROW / Adjacent

Development

+ Programming and Design

+ Infrastructure, Phasing

+ Sustainability Opportunities

‒ Multimodal Transportation: Forecasting and Analysis

+ Multimodal Network Existing Conditions Analysis (Pre-and Post-Pandemic)

+ Multimodal Network Forecasting Modeling and

Evaluation of Typical Daily and Special Events Circulation

Opportunities and Impacts

» Alternatives Screening

» Cost and Financial Analysis

‒ Capital Costs (MP Team)

‒ Financial Analysis (IP Team)

F. NEPA Document

• Roles:

» IP Team — Lead

» MP Team — Technical Support

• Tasks and Deliverables:

» Technical Reports as required by Potential Action to address above listed resources including Physical, Social-Cultural, Natural and Environmental. Preliminary elements that will be required include, but are not be limited to: Noise, Air Quality, Stormwater

Management Plan, Transportation Management Plan, Historic and Cultural Resources.

» NEPA Document — Draft, Preliminary, Summary, Decision

Document

SECTION II :: SCOPE OF WORK OPTION PHASES 1B AND 1C

Preliminary Outline for NEPA / NHPA Section 106 (continued)

A New Pennsylvania Avenue Plan / Phase 1 :: Implementation Program RFP 42

G. NHPA…