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United States Capitol Grounds

The United States Capitol Visitor Center – Changes to the Olmsted Landscape

NAOP trustees toured the grounds of the U.S. Capitol Grounds during the spring board meeting in Washington, DC, March 30-31. Led by Ted Bechtol, Superintendent of Grounds, Olmsted scholar Charles Beveridge, and Steve Livengood from the U.S. Capitol Historical Society, trustees reviewed the impact of the new Capitol Visitor Center on the historic Olmsted-designed landscape.

Following six years of construction, the Visitor Center opened on December 2, 2008. Built beneath the Olmsted-designed grounds, the 580,000 sq ft building is the largest addition to the Capitol since Congress commissioned Frederick Law Olmsted in 1874 to develop a comprehensive landscape plan for the Capitol grounds. Describing his plan in a letter to the editor of the New York Tribune in 1874, Olmsted wrote:

“The general design is very simple, and will be easily understood. It has two purposes: First, to provide convenient approaches to and standing room about the Capitol; second, to allow its imposing dimensions and the beauty of its architecture to have due effect…”

The 59-acre site surrounding the Capitol was small for such a large building, with a steep slope and 21 adjoining streets to be integrated. On the eastern section, Olmsted had to also provide access to the House and Senate chambers for arriving carriages, and space for large events and inaugurations. He responded by creating the spacious East Front Plaza and two large ovals of grass and scattered trees, giving a sense of openness while avoiding direct view of the Capitol from the streets. He extended East Capitol Street straight into the grounds, flanked by multiple rows of tulip poplar trees and, following the curve of the ovals, created entrance roads for street access to the houses of Congress. The overall effect was of a more naturally designed landscaped with open space amid paths passing through shading trees and masses of shrubs that gave obscured views of the Capitol until revealing the full façade of the building.

Image #1 shows Olmsted's 1874 plan for the Capitol Grounds (courtesy of the Architect of the Capitol).

For the construction of the Visitor Center, large portions of the East Plaza were excavated and the mature tulip poplars removed. To the left and right of the recreated East Capitol Street extension, long sets of stairs now descend to the Visitor Center entrance, lined by two rows of tulip poplars. Two Olmsted-designed curved access roads were replaced with sloping ramps to provide additional visitor center access. Many of the original Olmsted features – historic lanterns, lamp posts and seat walls – were restored and reinstalled in their original locations; and two large Olmsted oval fountains were made operable again.

While providing work space for Congress and enhancing visitor amenities, security and access for millions of people who visit the Capitol each year, the massive scale of the building, steep drop in elevation between the surrounding landscape and the below-ground building entrance, and changes in the plantings significantly alter Olmsted’s original intent for the landscape and visitors’ approach and experience of the Capitol building.

Images 2 and 3 show the deeply excavate landscape. Stairs descend toward the Visitor Center entrance, lined by rows of tulip poplars. (Image #2 courtesy of Eliza Davidson; image #3 courtesy of the Architect of the Capitol).

NAOP Continues Advocacy for the Capitol Grounds

In time for the opening of the Capitol Visitor Center, NAOP introduced its new Capitol Grounds brochure during a reception for Capitol Hill staffers and local partners at the Capitol Visitor Center on December 4. In addition, all 540 congressional offices received the brochure and letter introducing NAOP and its advocacy efforts on behalf of the Capitol grounds and the Olmsted legacy nationwide; 4,000 brochures were made available for distribution to constituents nationwide.
In partnership with the U.S. Capitol Historical Society and Cultural Tourism DC, guided walking tours of the Capitol Grounds were offered during WalkingTown, May 30&31, 2009. Join us for the next Walking Town, in September 2009.

NAOP continues to work closely with the office of the Architect of the Capitol (AOC), which is completing a master plan for the entire 223 acre Capitol Complex. In its November 2007 Landscape and Open Space Framework Plan, the AOC recognizes the need for a “landscape assessment and preservation plan” as “essential to understanding and prioritizing preservation and restoration of the Capitol grounds.” The plan calls for a “Cultural Landscape Plan that details restoration and preservation of Capitol Square [and for integrating] contemporary issues including sustainability and security in a way that minimizes the impacts on the Olmsted landscape.” NAOP hopes to be a partner and a resource in the process of creating a Cultural Landscape Report and, ultimately, in the long-term preservation of the Capitol grounds.

A New Visitor Guide to the Capitol Grounds

In December 2008, NAOP introduced a new Capitol Grounds Visitor Guide, The United States Capitol Grounds - Frederick Law Olmsted's Legacy in the Nation's Capital, providing an historical overview of the landscape design. With the brochure - and planned projects including a Capitol Grounds website and audio tour - NAOP hopes to raise awareness and help preserve the Olmsted-designed landscape, introducing Capitol Hill employees, residents and visitors to the beauty, visionary design and historic importance of this treasured work of landscape architecture. To download a copy of the brochure, please click Capitol Grounds Brochure 10-08 (this may take a few minutes).

NAOP WORK TO PRESERVE U.S. CAPITOL GROUNDS GAINS MOMENTUM (January 26, 2005)

As construction activity continues on the massive U.S. Capitol Visitor Center, NAOP brought together local and national stakeholders to talk about the future of the Capitol's historic landscape and to advocate for its preservation and restoration. "A Design for Democracy: An Olmsted Vision for the U.S. Capitol Grounds, 1874 - 2005," held June 14th at the National Building Museum, included presentations by renowned Olmsted scholars and longtime friends of NAOP, Charles Beveridge and Arleyn Levee, as well as insightful remarks by Richard Longstreth, professor, George Washington University; David Maloney, deputy state historic preservation officer, Historic Preservation Office (Washington, D.C.); Nellie Longsworth, government affairs consultant and former president of Preservation Action; and Charles Birnbaum, NAOP board member and director of the Historic Landscape Initiative of the National Park Service.

Participants included representatives from federal and capital region agencies such as the U.S. Commission of Fine Arts, scholars, national organizations including the American Society of Landscape Architects and the National Trust for Historic Preservation, and citizen advocates. Representatives of the Architect of the Capitol (AOC) and its consultants were also involved. The AOC is currently preparing a master plan for the entire U.S. Capitol Complex, which consists of the Capitol itself, House and Senate Office Buildings, the Supreme Court and the Library of Congress.

From the beginning of the master planning process, NAOP has been the leading voice for the preservation of the historic Capitol landscape. Although the Center is largely underground, it has precipitated significant changes to the historic design. On January 26, 2005, NAOP met with staff of the Architect of the Capitol (AOC) and representatives from its master plan consultants, HOK and Hargreaves Associates. The meeting offered NAOP an opportunity to make its case for the preservation of the historic Olmsted-designed landscape and for a comprehensive planning approach for the entire U.S. Capitol complex.

NAOP also prepared a written statement, "The United States Capitol Complex: An Approach to Preserving and Protecting the Landscape Legacy." In the statement, NAOP urged the AOC to prepare a detailed historic study of the entire complex, develop a statement of philosophy and a program plan against which all design and program elements could be measured, include a conservation plan as part of the final masterplan, and engage the public to the greatest extent possible. Now it is joined in its advocacy by other stakeholder groups.

The United States Capitol Complex:

An Approach to Preserving and Protecting the Landscape Legacy

Prepared by the National Association for Olmsted Parks

The National Association for Olmsted Parks (NAOP) believes that applying the principles outlined below to the 'Vision of the U.S. Capitol in 2025' will help the Architect of the Capitol (AOC) guide appropriate future use and development of this treasured work of landscape architecture. NAOP is fully committed to working with the AOC to help promote careful stewardship and protection of this most important work of Olmsted's design legacy and the facilities and lands surrounding it in the U.S. Capitol Complex.

The United States Capitol and its surrounding complex of institutions, offices and open space is a powerful and enduring center and symbol of the United States Government. It also contains an unmatched collection of internationally important works of architectural and landscape architectural design. In particular, the Capitol Grounds, conceived and executed by Frederick Law Olmsted over 130 years ago, is a hallmark of his design legacy and one of his greatest artistic achievements. As a direct result of Olmsted's design genius, the Grounds today are a working place of government, a renowned cultural landscape, and, for employees, citizens of the District of Columbia and tourists, a modern-day park.

The National Association for Olmsted Parks (NAOP) applauds the Architect of the Capitol (AOC) for establishing the 'Workshop Series to Discuss the Master Plan for the U.S. Capitol'. We have read the 'Project Brief' outlining the program and we look forward to participating in the discussions. NAOP believes the treatment of the landscape of the U.S. Capitol in the master plan can represent not only a vision for the future, but a national model of how to foster stewardship and appropriate planning for other historic working landscapes as well. Indeed, the complexity of issues facing the site, its historic credentials, and the national and international profile it enjoys make it ideally suited and deserving of the utmost public attention, scholarship and expert involvement.

Toward that end, we respectfully suggest that the following components be made part of the master planning process. These will ensure that the master plan for the entire U.S. Capitol Complex will meet its myriad of needs while at the same time protecting and celebrating the historic Olmsted-designed landscape.

For the purposes of this discussion we refer to the "U.S. Capitol Grounds" as the Olmsted designed areas immediately surrounding the Capitol building, and the "Capitol Complex" as the balance of lands and facilities under the purview of the AOC.

1. The Master Plan should proceed from a thorough understanding of the historic context of the entire U.S. Capitol Complex.

NAOP understands that a detailed historic study was undertaken to define the legacy of Olmsted's design for the Grounds and that this study has not as yet been made publicly available. We also recognize that, as part of the new Capitol Visitor Center, several elements of the design will be rehabilitated. However, it is clear from observing the site under construction that much of the original design on the east side of the Grounds has been lost. NAOP believes that such catastrophic change to the surviving Olmsted design can be avoided as future projects are developed on the remainder of the Grounds. We believe that clear understanding of Olmsted's design intent coupled with more careful planning and construction design can achieve these critical goals.

This same consideration must also be extended geographically and chronologically beyond the work of Olmsted at the site. A comparable historians' report by qualified scholars should be prepared for the balance of the complex and for the period following Olmsted's involvement. Clearly the Capitol complex possesses multiple, perhaps even competing layers of historic significance. It is only through comprehensive study that a clear understanding of the totality of historic significance at the site can be gained. Such knowledge can then guide preservation, rehabilitation and restoration plans and ensure that program plans and design for the site are compatible with its most important elements.

2. A "Statement of Philosophy" and a program plan for the entire complex should be developed and vetted prior to design development.

In order to successfully insert new uses and requirements into the existing fabric and framework of the site, the master plan should proceed from a philosophical basis against which all program elements can be measured. Importantly, this philosophical foundation should be carefully reviewed by plan advisors, stakeholders and all concerned parties. Once such a foundation is in place, the design will not be piecemeal but rather a comprehensive reflection of an overall vision for the site.

Specifically, we urge that the following principals be considered:

The character of the spaces originally designed by Olmsted should be preserved and restored to the greatest extent possible, and protected from future encroachment and compromise. Where spaces have been altered or original design intent is lost or unclear, rehabilitation should be undertaken to restore, to the maximum extent possible, the historic spatial and visual relationships.
The critical linkages of the design of the Grounds are the circulation system, the vegetation patterns, and the spatial character they define. Olmsted felt that efficiency of circulation was a key component of a well-functioning public space. He also believed that the Capitol Grounds should be a restful park-like space, in contrast to what he correctly anticipated would become busy, urban surroundings of the Grounds. Furthermore, he had a specific idea regarding visual presentation of the Capitol building, and the vistas revealing it, and carefully controlled these as part of his design. In this way he provided for a stunning public experience of the site that ensured access and enjoyment for generations of visitors. These elements, and the individual areas and components that comprise them, should be restored/rehabilitated to the original design intent.
Contemporary needs for the entire Complex should be accommodated and designed without loss of the integrity and character of the site.
Features that were part of the original design should be preserved and protected from further disturbance and, when needed, restored in accordance with the original design. On the Grounds these include furniture, walls, railings, paving patterns and lanterns as well as specific elements such as the Summer House.
New elements needed to provide security and other modern requirements should be designed in such a manner that their intrusion is minimized and that they are subordinate to the overall intent of Olmsted's original design as well as the historic integrity of the entire Complex.
Vegetation throughout the site should preserve the spatial qualities and original design intent. Existing vegetation should be managed to retain historic character and historic plant species, where possible, while maintaining visibility for security.
Wherever possible, retain, enhance, and replant/restore historic plantings, based on historic plans and plant lists, including trees, shrubs and herbaceous plants, so that vegetation throughout the Grounds is true to the original design intent: to arrange planting to heighten the effect of dignity of the building and to avoid decorative plantings that distract the viewer from this appreciation of the building. Utilize vegetation to screen non-historic, non-contributing elements, as well as those features that are visually intrusive or that detract from the spatial integrity of the site. When necessary, substitute plantings may be used but they should maintain the original intent as to character and effect.
Temporary facilities to fulfill needed functions during the longer-term process of rehabilitation should be simply treated and developed, and should not compete visually with historic resources.
Develop appropriate, consistent signage, furniture, lighting, and security devices for the entire Capitol Complex that allow the Architect of the Capitol to promote public understanding of the Complex as a coherent, designed urban landscape. Keep signage quantities and sizes to the minimum required for effective communication. Furniture and security devices should be consistent throughout the Complex, and in their appearance avoid decorative plantings and be subservient to both architecture and the broader urban landscape character.
While the Olmsted-designed site elements at the Capitol Grounds (such as walls, steps and railings) should be considered as an example for new structures, they should not be copied or translated, and the proportions and scale of new elements should be carefully considered to subordinate them and keep to a minimum their visual significance in the broader urban landscape.

3. The final Master Plan should include a specific Landscape Conservation Plan.

A stated goal of the master planning process is to incorporate sustainable design and create a maintenance plan that ensures long-term stewardship and care for the complex. A comprehensive landscape conservation plan can address this goal and include, among other things, the following elements:

- Sustainable practices including the management of storm water runoff, irrigation and the incorporation of "green" features;

- A long-range plan for plant material including a schedule for tree replacement;

- Design strategies that soften the impact of security and move from fortification to secure accommodation; and

- A design framework that allows for the accommodation of new elements, such as those for security, without compromising the integrity of the design.

4. Engage the public in the master planning process to the greatest extent possible.

A full and public review process for the U.S. Capitol Complex is not required by law. However, the AOC office has suggested that it would like to make the planning process transparent and accessible to stakeholders and the public. NAOP applauds this willingness and would like to be as helpful in this regard as possible.

NAOP can work with the AOC to convene a diverse group of organizations and individuals including representatives from the National Capital Planning Commission, the Commission on Fine Arts, the DC State Historic Preservation Office, the American Society of Landscape Architects, the National Park Service's Historic American Landscape Survey, the National Trust for Historic Preservation, citizen groups such as the Capitol Hill Restoration Society and the DC Preservation League. All these interests will bring experience and insight to the planning process. Their early and active involvement will ensure that the plan is both the best possible for the Capitol and a model for such landscapes across the country. In addition, such groups can serve as champions for the implementation of the plan over time.

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