SACRAMENTO REGION, CA (MPG) - California’s State Capitol Complex is comprised of the historic West Wing, with its iconic dome, and the adjoined Annex building, which houses the offices of the Governor and most of California’s lawmakers. The Capitol also hosts millions of visitors each year. But the existing Annex has many health and safety deficiencies such as inefficient heating/cooling systems, failing plumbing, outdated electrical systems, and lack of fire sprinklers. Stairways, elevators, and exit doors are also undersized, and the building is frequently overcrowded—which has become an even greater concern during the COVID-19 pandemic.                                   

The Capitol Annex Project—overseen by the Joint Rules Committee (JRC)—plans to demolish the current Annex and replace it with a modern energy-efficient and ADA-compliant building. The project also includes an underground parking structure and an underground visitors center. The vision of the project, which is spearheaded by JRC Chair Assemblyman Ken Cooley, is to create a Capitol that is welcoming, engaging, and inspiring.

But Public Accountability for Our Capitol (PAC)—a group of preservationists, environmentalists, and fiscal responsibility advocates—believes the project is too expensive, lacks transparency, and will cause significant damage to Capitol Park’s historic trees.

PAC members Richard Cowan and Paula Peper each resigned from their seats on the Historic State Capitol Commission (HSCC) in protest over the Capitol Annex Project. The HSCC is responsible for reviewing any development or improvement of the historic State Capitol and advising the Legislature on such projects. Both Cowan and Peper have stated that the HSCC was denied information about the project, which Cowan characterized as “shrouded in secrecy.”

The members of PAC don’t dispute the need for improvements to the Annex, but they believe that it is possible and more cost-effective to repair and improve the existing building. Cowan said, “We think the project could be re-planned to avoid damaging Capitol Park and its trees, avoid the destruction of a historically recognized building, satisfy all the valid health and safety concerns, and save hundreds of millions of dollars that are needed to address climate change and economic recovery.”

Instead of an open public engagement process, Cowan said that stakeholders invited to participate in JRC meetings about this project had to sign non-disclosure agreements (NDAs). “So much for transparency,” said Cowan.

When asked about the NDAs, Assemblyman Cooley said that such agreements are standard in the post-911 world when discussing security issues in closed sessions. He also disputed the idea that the project has eschewed public input, stating that aside from those few closed sessions concerning security briefings, all the JRC meetings are open to the public. When he became JRC Chair in 2017, he moved quickly to launch a comprehensive website to share information about the project with the public. “We’ve been very public about the whole process,” he said.

PAC’s concern about the project’s impact on Capitol Park trees was based on the Environmental Impact Report (EIR), released in September 2019 and updated in January 2020, which outlined the project footprint. Based on that footprint, PAC estimated that over 100 rare and historic trees could be at risk.

At a JRC meeting on September 9, 2020, Assemblyman Cooley revealed a detailed design plan with three potential styles for the Annex building (square, circular, or double-T). Cowan noted that the recently released plans deviated significantly from the EIR, with the parking garage location moving from the east lawn to the south between L and N streets. Cowan acknowledged that the new location would disrupt fewer trees, but he feared it could still endanger the trees in the Civil War Grove, “which is sacrosanct.”

When asked about the potential loss of 100 trees, Assemblyman Cooley said, “I couldn’t bear that.” He described the historic and memorial trees as “irreplaceable” and explained that safeguarding the trees is one of the primary goals of the design process.

The Capitol Annex Project has been in the works since Arnold Schwarzenegger was Governor, and initially the Department of General Services planned to create two new buildings in Capitol Park. But when Assemblyman Cooley took over as JRC Chair in 2017, he fought against that plan, because the design would have destroyed many historic trees, including the Civil War Grove. Assemblyman Cooley said he is committed to safeguarding the trees and vistas of the park. He explained that the construction footprint outlined in the plans is just a rough estimate of the area and not a specific blueprint: “We’re not going to disturb all that ground.” Protecting the historic trees is such a high priority that Cooley said the new parking garage design even has a “notch” designed to safeguard a tulip tree.

The Legislature originally approved $755 million from the general fund for the Capitol Annex Project. Assemblyman Cooley suggested additional authority be given to the JRC to authorize lease revenue bonds in case the government ended up needing those funds, “if the economy stumbles.” That stumble came this year. Due to the recent economic crisis caused by the pandemic, the Governor’s office has asked that those funds be returned to the general fund—and that the JCR pause the plans for the visitors center. As the project moves forward, the plan is to pursue the authorized lease revenue bonds to fund the Annex and parking garage.

PAC has voiced concern that the interest on the lease revenue bonds will increase the overall cost of the project by approximately 30%, money they believe is better spent on investing in the economic recovery. Cowan also said that the JRC decided to demolish and rebuild the Annex without conducting a study to determine the cost of restoration.

But Assemblyman Cooley views the project as a way to stimulate economic recovery by creating a variety of jobs in the area over the life of the project: “It would put people to work.” And for Cooley, the reasons to move forward with a rebuild over restoration have been clear since the planning study was completed almost three years ago. The study found that the existing structural system of the Annex “limits the ability to provide new large hearing rooms or auditoriums with column-free view paths and appropriate ceiling heights.” The study also found that a consistent floor plan that is easy to navigate for both visitors and staff is impeded by the “current building footprint and column bay spacing.”

Cowan said he is “absolutely not persuaded” by those arguments against restoration. Further, for a project based on a need for more space, PAC was surprised to see that each of the three potential Annex designs feature large open-air galleries with skylights looking up to the Capitol dome. While Cowan acknowledges that the designs are beautiful, he still argues that a new building is not necessary.

PAC also believes it is shortsighted to build a large underground parking garage at a time when transportation is changing rapidly. As concerns about climate change increase, Cowan said California should be looking to the future. The idea of an underground parking garage “is not who we are. It’s not how we lead,” he said.

But for Assemblyman Cooley, the improved energy-efficient Capitol Complex will be a symbol of California’s “positive, hope-filled outlook.” The Capitol Annex Project started before Cooley’s tenure as JRC Chair and will conclude after his term ends, so he said the project isn’t about what he wants. As Chair, he reports to the JRC. He said it’s his job to bring all the information and all the options to the members so they can make the best decision for the people and the future of “The People’s House.”

To find out more about the project or submit a comment, visit https://annex.assembly.ca.gov/.