Park Use and Resource Protection Planning Guide (Turf Management Guide Section 1)

This is Chapter 1 Section 1 of the Turf Management and Operations Guide for the National Mall and Memorial Parks, a comprehensive guide and manual intended for National Park Service employees, permit holders, and others using the lawn areas of the National Mall and Memorial Parks.

 
 

1.1 Protecting Level 1 Turf Areas

Level 1 areas in the National Mall and Memorial Parks consist of turf areas in the monumental core. Memorials such as the Jefferson, Lincoln, Korean War, World War II, and the Washington Monument are considered Level 1 Turf Areas. In addition, iconic landscapes such as the Mall and along the Reflecting Pool shall be considered Level 1. Uptown Parks shall be managed as level 1.

Level 1 means that the turf is maintained at the highest level of care and excellence. Grounds are manicured. Level 1 is appropriate for high traffic areas such as public squares and gathering areas, as well as commemorative works of memorials. Based on public scoping done in conjunction with the National Mall Plan, the American people thinks that this is the level with which the National Mall should be maintained.

Level 1 turf regulations may be modified by the Superintendent for National and Historic Events. Current National Celebrations include:

  • Cherry Blossom Festival
  • Fourth of July Celebration
  • Smithsonian Folklife Festival
  • Presidential Inaugural Ceremonies
  • Columbus Day Commemorative Wreath Laying

Level 1 areas such as the Mall are highly desirable for all kinds of uses and have been typically scheduled for over 800 days of permitted use per calendar year (based on multiple events happening on the same days). On the Mall the result was the decline of turf health and visual appearance and deteriorating soil conditions. By 2006, conditions were judged to be unsatisfactory to the National Park Service, Department of the Interior, Congress and the American public. The large number of permitted activities limited maintenance practices to renovation of half of the center turf panels every other year by taking the panels out of use for the winter. This approach, based on recovery and not prevention, has not been effective.

The National Park Service has invested in a major multi-phase landscape and soil restoration, drainage, and irrigation project on the Mall that will be complete by the end of 2016. The high tech turf and soil system is similar to systems used on professional sports fields and includes durable strains of turf grass. This manual sets out standards to protect both the Mall’s signature turf character and the significant investment. Developed in consultation with turf experts, incorporating best practices and new information, it establishes a different approach to resource protection and maintenance procedures.

While not all level 1 areas will benefit from such construction, the goal with level 1 turf is to maintain turf, a contributing feature of this highly significant, designed historic landscape, in good to excellent condition even as it is used for a variety of permitted activities and recreational uses. Rather than taking large areas out of use for long time periods, the new approach will consistently utilize a combination of:

  • intense maintenance procedures before, during, and after events that will reduce or eliminate the need to take large areas out of use for longer time periods;
  • spaces designed or designated for specific types of uses;
  • encouraging use of non-turf areas by allowing temporary facilities on designated non-turf areas for longer time periods than on turfgrass areas; and
  • Requirements for temporary facilities placed on turf as described in tables 2 and 3 in this Chapter of the document.

Between events, NPS will perform pre-event preparation and post-event restorative and preventative maintenance on level 1 turf areas. The cost of any maintenance outside normal operating procedures in order to support or recover from an event, shall be considered part of the cost recovery for the event and is the responsibility of the Permittee.

 

1.2 Introduction to the Level 1 areas within the National Mall, the NPS Regulatory Process, and Park Resource Protection

The National Mall’s landscapes and open spaces provide a stunning visual setting in our Nation’s capital. “Here orchestrated events involving thousands of people or spontaneous ones with just a few participants are equally fitting. Space here is ever changing – at one point defined, at the next open and casual-but it is seldom limited to a single or even predominating use. In this sense the Mall’s space is neutral, allowing people freely to engage themselves in myriad ways…”The Mall in Washington, 1791-1991 15 (Richard Longstreth, ed.)(2002).

Permitted use is granted on a first come/first serve basis, through an application process. Applications are accepted no more than one year in advance of the first day of setup of the proposed event. Details regarding the permit process can be found in the Special Events Planning Guide for the National Capital Region (referred to in this document as the “SEPG” or “Special Events Planning Guide”).

Consistent with the NPS’s statutory mandate to protect parkland for the enjoyment of visitors while leaving it unimpaired for the enjoyment of future generations, the NPS regulations help protect park resources while managing assorted activities that may occur there. The terms “demonstrations” and “special event” are defined in the NPS regulations at 36 CFR 7.96(g)(1)(i)(ii). While demonstrations that involve 25 persons or fewer do not generally require a permit, all other demonstrations as well as all special events require that an application be submitted and a permit issued, per 36 CFR 7.96(g)(2)(3). The NPS does not accept applications more than one year in advance (including set-up time, if any) and they will be processed in order of receipt, per 36 CFR 7.96(g)(4)(i).

The NPS reviews applications and based upon regulatory criteria found at 36 CFR 7.96(g)(4)(vii)(A)-(D) and 36 CFR 7.96(g)(5)(v)(A)-(E) and determines whether a permit may be issued. Among the criteria the NPS considers is whether the park area requested is “reasonably suited in terms of accessibility, size and nature” or whether the proposed event “is of such a nature or duration that it cannot reasonably be accommodated in the particular area applied for; in that event, the Regional Director shall propose an alternate site to the applicant, if available for the activity; in this connection, the Regional Director shall reasonably take into account possible damage to the park, including trees, shrubbery, other plantings, park installations and statues.” In the event that a permit is issued, 36 CFR 7.96(g)(5)(xii) provides that the NPS “may impose reasonable restrictions upon the use of temporary structures in the interest of protecting the park areas involved, traffic and public safety considerations, and other legitimate park value concerns.” Permits may be accepted during the hours of 8am to 4pm Monday through Friday, holidays excepted.

In addition to specific regulations governing the National Capital Region, initial sections of 36 CFR regulate “proper use, management, government, and protection of persons, property, and natural and cultural resources within areas under the jurisdiction of the National Park Service.” Section 1.5 governs Closures and Public Use Limits and provides a superintendent with the ability to designate areas for specific use or activities, impose conditions on use and other actions in order to maintain public health and safety; protect environmental and scenic values, protect natural and cultural resources, aid scientific research, and equitably allocate use to avoid conflict among visitor use activities. Section 1.6 states permits will be submitted during normal business hours unless otherwise specified, requires a compilation listing permitted activities that is available to the public upon request, and prohibits violation of permit process. Section 1.7 requires public notice when the authority of section 1.5 is invoked.

This Turf Management Operations and Maintenance Guide for the Mall, in conjunction with the “Special Events Planning Guide” and regulations in 36 CFR, is intended to be used by the NPS as it considers the potential impact caused by an application seeking to use the turf and its consideration of various turf protection measures. This document is also intended to advise and alert applicants of these turf issues, which the NPS will discuss as their application is processed. Certain permitted events that may impact the turf and either involve extensive logistical set-up, or the erection, construction or placement of structure or equipment such as tents, stands, platforms, or portable toilets will require the NPS and the applicant to work early together. That way, if a permit is issued, park resources are reasonably protected while the permitted activity can be safe, successful, and enjoyable. The Turf Management Operations and Maintenance Guide for the Level 1 areas describes special requirements that apply only to the Level 1 areas.

A smooth and well-coordinated relationship between NPS staff and the applicant’s staff is essential for the Permittee to have a successful event that furthers its desired message and provides attendees a safe and comfortable experience, while protecting park resources. To help establish this important collaboration, the NPS created this Turf Management Operations and Maintenance Guide for Level 1 areas to help alert interested parties to the impact caused by permitted activities to turf and to detail various turf protection measures, to assist in each step in the event planning process.

 

1.3 Mall Site

Located in the heart of Washington DC, the Mall is defined as the area bound on the east by Third Street, on the west by 14th Street, on the north by Madison Drive, and on the south by Jefferson Drive.

The following maps illustrate areas in which Permittees may hold events. Where applicable, use limitations are noted. For additional details on event capacity, refer to section 3.3/Table 7.
 

1.3.1 Non-Turf Areas for Temporary Structures

Non-turf areas such as walkways and hardscape panels are the preferred location for events of all types, particularly events using structures. Non-turf areas are highlighted in orange on the diagram below. Total square footage of non-turf areas is approximately 800,000 square feet. This includes four hardscape panels (3, 8, 20, and 40), as well as the north-south and east-west walkways.

 
Map for Non-Turf Areas for Temporary Structures for National Mall
The map is a visual reference of non-turf areas of the National Mall between 14th and 3rd Streets and Madison and Jefferson Drives in Washington, DC. For more information about the map or using these spaces for permitted activities, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Perimeter Walkways are highlighted in dark brown on the map. Perimeter walkways include the east-west walkways along Jefferson Drive on the southside of the street from 14th Street to 3rd Street; the east-west walkways along Madison Drive on the north side of the street from 14th Street to 3rd Street; the north-south walkway along 14th Street on the east side of the street from Madison Drive to Jefferson Drive; the north-south walkways along both sides of 7th Street and 4th Street from Madison Drive to Jefferson Drive; and the north-side walkway along 3rd Street on the west side of the street from Madison Drive to Jefferson Drive.

Internal North/South Walkways are highlighted in light brown on the map. They include north-south walkways from Madison Drive to Jefferson Drive halfway between 14th and 12th Streets; on 12th Street; halfway between 12th and 9th Streets; on 9th Street; and halfway between 7th and 4th Streets.

Internal East/West Walkways are highlighted on the map in yellow. They include interior east-west walkways on the National Mall between Madison and Jefferson Avenues from 14th Street to 7th Street.

Adjacent Roads of Jefferson Drive North and Madison Drive South are highlighted on the map in greyish-blue.
 

1.3.2 Turf Area Locations for Temporary Structures

Structures are permitted on all walkways and hardscape. Structures can be permitted on turf panels with limitations listed in Section 3.3. The yellow areas on the diagram below indicate areas where structures are permitted; the red areas indicate areas where structures are permitted but with use limitations to protect the turf. Structures are not allowed in the tree panels.

 
Map of where structures are permitted on the National Mall
The map is a visual reference for where structures are permitted on National Mall between 14th and 3rd Streets and Madison and Jefferson Drives in Washington, DC. For more information about the map or using these areas for permitted activities, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Areas with use limitations for structures are highlighted on the map in red. Lawn areas between the internal walkways running east-west from 14th Street to 3rd Street between Madison and Jefferson Avenues generally have use limitations for structures.

Permitted areas for structures are highlighted on the map in orange. Structures are permitted on the majority of north-south and east-west perimeter and internal walkways on the National Mall from 14th Street to 3rd Street between Madison and Jefferson Avenues.
 

1.3.3 Mall Hardscape Measurements

 
Hardscape Measurements of the National Mall from 3rd to 9th Street
The map is a visual reference of hardscape measurements on the National Mall between 3rd Street and the 9th Street Tunnel and Madison and Jefferson Drives in Washington, DC. For more information about the map or using these areas for permitted activities, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Hardscape areas and measurements include:
A 140-feet by 140-feet area next to Madison Drive between 9th and 7th Streets
A 180-feet by 400-feet area between Madison and Jefferson Drives and 9th and 7th Streets
A 60-feet wide north-south walkway on the west side of 7th Street
A linear 23-feet wide area along the west side of 7th Street
A linear 17-feet wide area along the east side of 7th Street
A 16-feet wide north-south walkway on the east side of 7th Street
A 180-feet by 487-feet area between Madison and Jefferson Avenues just east of 7th Street
A 40-feet wide north-wouth walkway between 7th and 4th Streets
A 180-feet by 566-feet area between Madison and Jefferson Avenues just west of 4th Street
A 15-feet wide north-south walkway on the west side of 4th Street
A linear 16-feet wide area on the west side of 4th Street
A 11-feet wide walkway along the west side of 4th Street
A 10-feet wide walkway along the east side of 4th Street
A linear 15-feet wide area on the east side of 4th Street
A 14-feet wide north-south area on the east side of 4th Street
A 180-feet by 508-foot area between Madison and Jefferson Avenues and 4th and 3rd Streets
A 15-feet wide walkway on the west side of 3rd Street
A linear 17-feet wide area on the west side of 3rd Street
A 16-feet wide walkway along 3rd Street

Mall 3rd to 9th Street Tunnel

 
Hardscape Measurement from 9th to 14th Street
The map is a visual reference of hardscape areas on the National Mall between 9th and 14th Streets and Madison and Jefferson Drives in Washington DC. For more information about the map or questions related to using this area for permitted events, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Hardscape areas and measurements include:
A 240-feet by 60-feet area halfway between 14th Street and 12th Street
A 180-feet by 145-feet area along Madison Drive above the 12th Street Tunnel
A 180-feet by 105-feet area between Madison and Jefferson Drives above the 12th Street Tunnel
A 180-feet by 145-feet area along Jefferson Drive above the 12th Street Tunnel
A 240-feet by 60-feet area halfway between 12th Street and 9th Street
A 240-feet by 105-feet area above the 9th Street Tunnel

Mall 9th Street Tunnel to 14th Street

 

1.3.4 Locations for Setup of Chairs or Other Seating

Setup of chairs or other seating is permitted on all walkways, hardscape panels, and turf panels (with protective turf covering). The orange areas on the diagram below indicate areas where seating setup is permitted. Appropriate turf cover must be used when seating is placed on turf panels2.

 
Map of where use of chairs and floor covering is permitted on the National Mall
The map is a visual reference of where standing is permitted on the National Mall between 14th and 3rd Streets and Madison and Jefferson Drives in Washington, DC. For more information about the map or using the space for permitted activities, contact the National Mall and Memorial Parks' Office of Permits Management at 202-245-4715.

Areas where seating setup is permitting is highlighed in orange on the map. Seating is generally permitted on perimeter and internal walkways and sections of turf in between internal walkways in all areas between 14th and 3rd Streets and Madison and Jefferson Drives. An additional area along Madison Drive between 9th and 7th Streets is also highlighted.
 

1.3.5 Locations for Pedestrian Standing Areas

Standing is permitted on all panels and walkways, as illustrated in orange in the diagram below. If weather conditions or crowd numbers warrant it (1 person per 5 square feet), the event may be required to install protective flooring.

 
Map of where standing is permitted on the National Mall
The map is a visual reference of where standing is permitting on the National Mall between 14th and 3rd Streets and Madison and Jefferson Drives in Washington, DC. For more information about the map or using these areas for permitted activities, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Areas were standing is permitted are highlighted in orange on the map. Standing is generally permitted in all parkland areas between 14th and 3rd Streets and Madison and Jefferson Drives with the exception of roads open to vehicular traffic.
 

1.3.6 Level 1, 2, 3 Turf Areas

Level 1 guidelines are the basis for all guidelines and they are presented in this guide.

Level 1 are areas that allow for a one day set up of a limited number of tables, chairs, and 10’x10’ tents

In Level 2 areas, all rules that apply to Level 1 still apply except:

  • Vehicles
    • Limited approved vehicles (Forklifts with flotation tires) driving on approved decking is allowed.
      • Tractor trailers allowed only when delivering and removing mobile stages. They must drive on protective flooring.
    • Limited (in number and size) approved turf vehicles (golf cart size or similar) with turf tires (smooth tread and a psi of less than 15) are allowed to drive on turf without decking.
  • For a stage set up, pedestrian flooring is only required between a stage and front of house, not everywhere full capacity is reached.

Level 3 areas, in addition to Level 2 allow:

  • Chairs, tables, and similar items with feet are allowed to be set up directly on the turf.
  • Smooth, wide turf tire, with a psi less than 20 on larger equipment allowed to drive directly on turf. This includes tractors 45 hp and less and forklifts.
  • Tractor trailers allowed with protective flooring and proper traffic dispersal (a route in and out may only be used once by a tractor trailer).
  • Aluminum roll out flooring allowed for 4 hours a day before 10 am and after 4 pm.
 
Map of turf level areas on the National Mall and Memorial Parks
The map provides a visual reference for the locations of Turf Levels 1-3 and Level 1 Exclusion Areas on the National Mall and Memorial Parks in Washington, DC. For more detailed information and questions about using these areas for permitted activities, contact the National Mall and Memorial Parks' Permits Management Office at 202-245-4715.

Level 1 Areas are highlighted in green on the map. Level 1 Areas include parkland in and around the Thomas Jefferson Memorial, Franklin Delano Roosevelt Memorial, Martin Luther King, Jr. Memorial, Korean War Veterans Memorial, Lincoln Memorial, Vietnam Veterans Memorial, Reflecting Pool, and World War II Memorial; parkland on the Washington Monument grounds inside the internal walkways; and parkland on the National Mall between 14th Street and 3rd Street.

Level 2 Areas are highlighted in light blue on the map. Level 2 Areas include parkland near the Lincoln Memorial by Daniel French Drive along Independence Avenue and by Henry Bacon Drive along Constitution Avenue; a section of the National Mall from near the Korean War Veterans Memorial to near the World War II Memorial; parkland around Constitution Gardens, parkland along Independence Avenue from 17th Street to near 14th Street; and some parkland along Constitution Avenue from 17th Street.

Level 3 Areas are highlighted in yellow on the map. Level 3 Areas include the majority of West Potomac Park fields along Ohio Drive.

Level 1 Exclusion Areas are highlighted in red on the map allowing one day table, chairs, and a 10-feet by 10-feet tent. Four areas are highlighted on the map, including two near the base of the Lincoln Memorial's steps; one on the steps on the east side of the World War II Memorial; and one near the southwest side of the Thomas Jefferson Memorial.
 

1.4 Key Team Players

The National Mall is in acutely high demand; its management requires diverse technical abilities and skills. Depending upon what is envisioned by an event producer, the mix of NPS staff necessary will vary by event. It is expected that the cost to support the necessary team shall be borne by the Permittee.

Many of the key team players identified in the SEPG are the same as those identified in this document; however, specific staff, with special responsibilities and appropriate technical training, is involved with National Mall and Memorial Parks (NAMA) events held on turf areas. This includes the following roles:

  • NAMA Event Coordinator
  • NAMA Permits Management Division Chief
  • NPS Permits Management Specialist
  • NAMA Turf Manager
  • NAMA Compliance Monitor

The special duties of these positions as related to events on the National Mall are outlined below:

 

1.4.1 NAMA Event Coordinator

The NAMA Event Coordinator is the person responsible for coordinating and scheduling NPS-sponsored national celebrations, special events or activities. Events related to the Mall’s purpose and significance (see section 1.1) have priority pre-scheduling on the permits management calendar or database. This staff position resides in the Division of Interpretation and Education.

 

1.4.2 NAMA Permits Management Division Chief

The NAMA permits management staff provides services not only to NAMA but also other parks within the National Capital Region (NCR). The NAMA Permits Management Division Chief assigns and manages staff to work with Permittees; to schedule, monitor, track and report on a wide variety of permitted activities; and to recover related costs.

 

1.4.3 NPS Permits Management Specialist

The NPS Permit Specialist serves as the primary point of contact for the Applicant and Permittee, and coordinates with other divisions and other park staff, such as the Turf Manager.

The NPS Permit Specialist shall be responsible for working with the Permittee to resolve all issues related to the event, particularly those reported by Event Monitors.

 

1.4.4 Event Monitors

Event Monitors are responsible for monitoring of the event including set up and tear down, ensuring the Permittee follows the guidelines set forth by NPS and administering the permit. Event Monitors report to the NPS Permits Management Specialist and are responsible for being onsite during the duration of the event for monitoring purposes.

If monitors find issue with the Permittee, they will address the issue immediately with the persons involved and report the incident to the NPS Permits Management Specialist.

All reasonable instructions given by Event Monitors must be obeyed promptly. Failure to comply with all the terms and conditions of the public gathering permit may constitute grounds for revocation of the permit and immediate termination of the event, and/or citation against the violator(s).

 

1.4.5 NAMA Turf Manager

The Turf Manager is responsible for the health and overall maintenance of the turf, soil and irrigation system. The Turf Manager generally monitors and tracks the condition of the turf to maintain a healthy turf and provides a record of conditions linked to permitted or other uses, weather conditions, or other factors.

The Turf Manager and/or team participate in pre-event planning for events with expected attendance of over 1,000 or as determined in conjunction with the Permit Specialist as well as the pre- and post-event walk through assessments to evaluate and record the condition and health of the turf and to verify the functionality of the irrigation or other systems. Additional pre-planning activities may be required at the discretion of the Turf Manager. The Turf Manager leads the Grounds Maintenance team assigned to the Mall.

The Turf Manager will determine if additional measures beyond those identified in the permit are necessary due to changing circumstances.

The Turf Manager and team act as a resource in the development of cost recovery requirements and also serve as a resource to the NPS Permit Specialist during the planning, implementation, and take-down of event.

In addition to the operations procedures outlined within this document, the Turf Manager has developed a turf wear index. (An example Turf Wear Index can be found in the appendix (Using a Turf Wear Index, adapted from work by David Schlotthauer, Turf Expert, Brigham Young University). This charting system assists the Turf Manager by enabling better visualization and tracking of the amount of activity occurring on the turf. Because some activities have greater impacts on turf than others, assigning numerical value to different uses will help the Turf Manager assess potential damage and prescribe an appropriate level of maintenance.

In addition to variety of use, environmental conditions are also considered when using a turf wear index. For instance, if an event takes place during or after a rain storm the negative impact on the turf is increased. Use of this tool allows the Turf Manager to accurately calculate turf wear based on activity, duration, and environmental conditions, and prescribe maintenance according to these factors.

 

1.4.6 NAMA Compliance Monitor(s)

A variety of compliance specialists may be required depending on the nature of the event. These could include code specialists, NEPA compliance, public health and safety, law enforcement, transportation, and could include a multi-agency or incident command approach. As defined in permit conditions, the Permit Specialist may serve this role. At the discretion of the permit specialist, additional input may be required. This will be determined on an event by event basis.

 

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Last updated: February 25, 2020

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