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Adaptive Reuse & Public-Private Partnership at Golden Gate National Recreation Area

Explore the successful strategies and frameworks for adaptive reuse and redevelopment through public-private partnerships at Golden Gate National Recreation Area.

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Adaptive Reuse & Public-Private Partnership at Golden Gate National Recreation Area

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  1. Adaptive Re-use and Redevelopment through Public-Private PartnershipGolden Gate National Recreation Area Aaron Roth, Acting Deputy Superintendent

  2. Partnering “Mission Statement” To enable the National Park Service mission by utilizing sound business and community engagement practices in developing and managing public-private partnerships. Concessioners Lessees Cooperators Permittees Agencies + Other ---------------------------- = PARK PARTNERS

  3. Trends in NPS Partnering • Demand drivers • Greater reliance on partners to achieve mission – leveraging scarce resources • Seeking relevancy, NPS is more inclusive resulting in more partner opportunities - movement from protection to engagement • Increased development and capability of the non-profit and private sectors • Complexity drivers • More authorities available for use • More detailed, and often more restrictive policy frameworks, with increased internal scrutiny • Increased development and sophistication of the non-profit sector Demand Complexity

  4. Partner portfolio

  5. Business Management Scope Total Number of Facility Based Partners: ~40 ~$85M in Services and Programs

  6. NPS Leasing Law, Regulation, Policy Background • Elements of Forts Mason, Baker, Presidio, Cronkhite, Barry transitioned from Army to NPS throughout the 1970’s all the way through 2005 • First adaptive re-use under Cooperative Agreements, Special Use Permits • NPS leasing authority for historic property provided by Section 207 of the National Historic Preservation Act Amendments of 1980 (16 U.S.C. § 470h-3) • Section 802 of the National Parks Omnibus Management Act of 1998, Public Law 105-391 (Nov. 13, 1998), General Leasing Authority • The implementing regulations, 36 Code of Federal Regulations (“CFR”) Part 18 issued in 2002 • Requires competition for opportunities, unless non-profit organization will contribute to park purposes/programs • Requires Fair Market Value rent paid, taking into account the use, and requires investment to justify the term • DO-38 issued in 2006 giving the applicable Regional Director delegated authority part 17 and part 18 leases • Reference Manual part 18 released in 2008 to guide NPS in planning and leasing real property

  7. Authorization Summary

  8. Authorization Selection Flow Chart • For GGNRA Facility-Based Partnerships – which mean buildings and/or lands within the park are assigned for use. • Selection criteria shown are indicative only. Each authorization must meet additional criteria. For example, cooperative agreements require: legislative authority, substantial involvement, transfer of value, public purpose, etc. • NOT comprehensive. For example, Rights of Way, Easements, CUAs, CMAs, Cooperating Association Agreements, Interagency, and other authorizations that may be in use at the GGNRA are not shown due to limited applicability. *concession contract not recommended if occupant investment is desired due to restrictive compensable interest provisions.

  9. Golden Gate National Recreation Area Major Adaptively Reused Installations Fort Baker Forts Chronkhite and Barry Upper Fort Mason Lower Fort Mason Presidio

  10. Fort Mason Center Port of Embarkation (1977-Present)

  11. Fort Mason Center Innovation Special-purpose not for profit organization.

  12. Fort Mason Center Innovation – Phased Leasing • The FMC LDDA issues a series of smaller leases (phases) in the form of a master lease. • Achievement of each new lease phase is on FMF performance towards a scope of work. • There is a trade-off between rent vs. real property capital investment. • At the start of each new lease phase, the financial terms are recalculated and the trade-off re-determined.

  13. Fort Mason Center Innovation Rent Converted to Future Capital Improvements.

  14. Forts Barry and Cronkhite (1980-Present)

  15. Forts Barry/Cronkhite Innovation Cooperative Agreement Framework works like a lease. • Scope and services • Financial Assistance • Term and Termination • Reporting • Indemnification and Insurance • Non-discrimination • Occupancy Provisions • Assignment • Sub-agreements • Utilities • Health and Safety • Env. Management • SDC • Minor Alterations • Hazmat Program Definition, Objectives, and Delivery parameters Construction Project Procedures >$1M per DO-21 Maintenance Planning and Execution Procedures and Standards Fundraising Requirements and Procedures >$1M per DO-21

  16. Upper Fort Mason Residential Program (1998-Present)

  17. Residential Leasing Innovation Self Funded Preservation and Growth Units

  18. Fort Mason Residential Leasing Innovation Profitability

  19. Residential Leasing Innovation - Management Structure PWR and DOI SOL Form Lease Approval Lease Execution Lease Modification Business Management Contracting Budget Task Orders • Leasing Matters • RFB • Rent Increase/Decrease • Eviction Property Management Contractor • Property Matters • Repair needs • Improvements • Parking Rent Collection Resident Lessees (Tenants)

  20. Presidio (1994-Present)

  21. Presidio (1994-Present)

  22. Presidio Innovation Special Purpose Government Organization

  23. Fort Baker Redevelopment (2005-Present)

  24. Fort Baker Lease Innovation – LDDA and Lease Disposition and Development Agreement (LDDA) Program Definition, Objectives, and Delivery parameters Construction Project Procedures and Investment Milestones Maintenance Planning and Execution Procedures and Standards Fundraising Requirements and Procedures

  25. Fort Baker Innovations A Commercial Operation with a portion dedicated to a broader purpose.

  26. Organizational Capabilities • MANAGEMENT • Visitor and Program Experience • (Program, Rates, Marketing) • Operations Compliance (Cultural, Natural, Safety, Public Health Accessibility) • Asset Management (Environmental, Fire, Maintenance) • Coordination and Relationship • Communications, operational integration, issue resolution) • Branding and Marketing • (Physical, press, web) • DEVELOPMENT • Shared vision and goals • Strategy and planning • Negotiation and Term agreement • Writing and execution • Follow-up and Implementation • Revenue and Cost Sharing Management • Invoicing and Receivables • Rent and Fee Analysis • Financial Reporting • Expenditure Planning • Project Tracking EFFECTIVE Partnering ORGANIZATION Incentives, Culture, Communications and Teamwork , Information Systems and Records.

  27. Target Organization Chief, Business Management Supervisory Business Manager GS-14 (Perm) Revenue Management Revenue Manager Financial Analyst -1160 GS-11 (Term) Realty and Lands Management Development Partner Manager Concessions Specialist - 1101 ONPS GS-9 (Perm) Realty Manager Realty Specialist - 1170 ONPS GS-12 (Perm) Partner Developer Business Analyst-1101 ONPS GS-12 (Perm) Partner Manager Business Analyst - 1101 CFF GS-11 (Term) Partner Developer Business Analyst -1101 CFF GS-12 (Perm) Leasing Specialist Realty Specialist - 1170 Leasing GS-11 (Term) Partner/Permit Manager Concessions Specialist - 1101 CFF GS-7 (Perm STF) Real Estate Project Manager Realty Specialist - 1170 Leasing GS-12 (Term) Public Health Officer Environmental Health Specialist CFF GS-9

  28. Redevelopment Implementation Teams Legal and Financial Historical Architect Real Estate Project Manager Planning Construction / Engineering

  29. Accomplishments and Successes • Adaptively reused vacant buildings with no other NPS use, preventing rapid deterioration or vandalism • Rehabilitated and maintained culturally significant historic structures, landscape and infrastructure, reducing reliance on appropriations • Support the Park’s general operations of Fort Mason, Baker and other park areas with effective and cohesive use concepts • Provide unique experiences available to Park visitors but also engaging the local community • More effectively achieved NPS mission, providing for enjoyment while protecting resources

  30. Approximately one-third of the total services, programs and activity within Golden Gate National Recreation Area is supported by appropriated. Two thirds are leveraged. Leveraging Appropriated Dollars

  31. Brian’s 21 Partnering Success Factors • ADOPT A SHARED VISION • LEAVE YOUR EGO AND CONTROL AT THE DOOR • UNDERSTAND EACH PARTNER’S MISSION AND ORGANIZATIONAL CULTURE • FIND WAYS THROUGH THE RED TAPE • BUILD STEP BY STEP • HONOR YOUR COMMITMENTS • PUT MECHANISMS IN PLACE TO RE-ENFORCE THE PARTNERSHIP It all boils down to how deliberate and strategic you and your partners are in building a “partnership culture” that incorporates these success factors and the commitments you are willing to make. Understand and adapt success behaviors, develop competencies for these behaviors to be regularly practiced, and align your partnership to succeed.

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