Mesa Verde National Park Cultural Center and Visitor Information/ Orientation Facility Fact-Finding/ Gap Analysis
Prepared by Glenn Eugster, Assistant Regional Director, Partnerships Office, National Capital Region
Final Report October 20, 2004
Introduction
On March 9 Director Mainella requested the National Capital Region to assist the NPS Washington Office with an internal review of the fundraising campaigns for a variety of partnership construction projects greater than $5 million. The Mesa Verde Cultural Center partnership construction project in CO, within the Mesa Verde National Park (MEVE), was one of the projects identified for assessment. This document is a report on NPS's fact-finding/ gap analysis.
Background
NPS had a series of discussions between the National Leadership Council, the House and Senate Appropriations Committees, the Development Advisory Board, and some of our park and regional offices about the relationship between public and private partnerships, park projects and NPS funding. During these discussions it has become apparent that there are inconsistencies in the way NPS structures, manages, implements and monitors some partnership agreements, including fundraising agreements, plans and campaigns, the relationship between these efforts, priorities for funding park projects, and communication with the Congress.
Specifically NCR was asked to examine the Mesa Verde National Park Cultural Center and Visitor Information/ Orientation Facility fundraising campaign, identify real and perceived problems and matters of concern, identify options to respond to the problems and concerns, and identify ways that NPS can assist parks and regional offices in building better partnership projects. This information is to be shared with NPS managers to assist them in their decision-making.
The approach used for this fact-finding and analysis involved a review of relevant documents made available by headquarters, the regional office and the park; personal and telephone discussions with key leaders; and analysis of the information collected. It is important to note that the time schedule for this analysis was limited. Further research may reveal different facts and lead to additional or different conclusions.
Individuals that were contacted and provided information to this report include:
Chris Jarvi, Associate Director, Partnerships, etc.
Sue Masica, Associate Director, Park Planning, Facilities and Lands
Chris Niewold, Acting Chief, and Shannon Stone, Partnership Staff, WASO Partnership Office
Superintendent Larry Wiese, MEVE
Beck Debs, Lead, Construction Group, IMR
Betty Janes, Assistant Regional Director, MEVE
Rick Frost, Public Affairs Specialist, IMR
Greg Kendrick, Program Manager, Heritage Partnerships, IMR
Interviews were requested with Randy Jones, Deputy Director, WASO;
Don Murphy, Deputy Director, WASO; Bruce Sheafer, Office of the Comptroller, WASO; and Dan Wenk, Denver Service Center but these individuals did not respond.
Facts
Park Name: Mesa Verde National Park
Project Summary: Visitor Information/Orientation Facility and Mesa Verde Cultural Center
The Visitor Information Facility will be located just off State Highway 160, at the base of the Mesa and will be the first point of contact and information about Mesa Verde National Park. The Mesa Verde Foundation (Foundation) will be the primary park partner. The Foundation intends to donate lands upon which the Visitor Information Facility will be constructed and to raise funds for its construction. No additional federally appropriated funds would be sought for planning, construction, operations, or maintenance of this facility. The following functions are being considered for the Visitor Information Facility: restrooms; entrance area with information for tours and ticketing; multipurpose area; exhibit area; Mesa Verde Museum Association sales area, offices and warehouse; general building support; outdoor information/orientation plaza; utilities; parking; and infrastructure. The Visitor Information Facility will be approximately 5,000 square feet or about $6 million gross.
The Regional Office also supports adaptive reuse of the Far View Visitor Center to serve as a Cultural Center. Current building conditions, ADA accessibility and antiquated mechanical and electrical systems will be addressed as part of this project. The Cultural Center is proposed to acquaint visitors with the history, archeology, cultural and natural resources of Mesa Verde and the Four Corners Region. Anticipated new functions at this site would include a museum and tribal exhibit, Foundation office space, and outdoor plaza and staging areas. Funding for the Cultural Center would also be solely through partnership donations from the Mesa Verde Foundation and approximately $3 million gross. No additional federally appropriated funds would be sought for planning, construction, operations or maintenance of this facility.
A memorandum of intent for the design and construction of the Visitor Information Facility and the adaptive reuse of the Far View Visitor Center as a Cultural Center has not been prepared for either project. Neither proposal has been formally approved by the Regional Office nor reviewed by the Development Advisory Board (DAB). Once IMR, MEVE and the Foundation leaders have developed defined project proposals, the June 2004 Director's guidance for partnership construction projects will be followed. During the initial phase of this process, MEVE and the Foundation will sign a Memorandum of Intent, which will be reviewed and approved by the Regional Office. The DAB will likely review the concept in 2005.
A complimentary but separate building, the Curatorial Facility, is to be funded by the NPS through Line Item Construction (LIC) with a current estimate of $11 million in FY2010. Initial planning is being funded through a FY2004 planning earmark of $600,000 from Congress. Part of the planning will include development of a master plan, which will identify other functions and related structures, in addition to the Curatorial Facility, to be located at the base of the Mesa.
Name of Partner: Mesa Verde Foundation, established in 1997.
PMIS: # To be updated pending regional director's approval.
Estimated Gross Cost: Estimated total costs to plan, design, and construct, and adaptively reuse facilities, and to create an endowment for the Cultural Center and Visitor Information Facility are estimated to be $10 million.
Targeted Completion Date: To be determined. The Cultural Center and Visitor Information Facility will be started only when all public and private funds have been secured.
Breakdown of Funds Needed:
Private and Donated Funds: TBD. Estimated at $9 million for both
projects, excluding the endowment. The precise costs and whether there will be one or two fundraising campaigns for these projects will be determined through a fundraising plan being developed with the assistance of the Ketchum Group. All fund-raising agreements must contain the provision that the Foundation will not seek congressionally appropriated funds for the project.
State and local funds: TBD
Operations Funds Needed: TBD. Once the project is clearly defined
and agreed upon, future operational needs, if any, will be calculated.
Cost-Offsets: TBD. All possibilities will be explored once the
project is defined. An endowment for O&M estimated at $1 million will also be raised by the Foundation
Chronology
1920’s Superintendent J. Fewkes – Determines the need for an
information orientation facility at the entrance to the park.
1952 Master Plan Outline calls for information, administration
facility at the entrance to the park.
1957 Mission 66 Development Plan – Calls for facility at the
entrance to include a Visitor Center, Headquarters and Administration
1979 General Management Plan – Calls for multiple components at
the entrance to include a Visitor Center, Headquarters and Curation
1987 Tony Anella provides a design concept for a campus approach
to all needed facilities at the entrance to Superintendent Robert Heyder.
1988 Development Concept Plan – Lays out potential placement of a
Visitor Center, Headquarters and Curation at the entrance authored by Michael Snyder.
1993 Deb Frye, Rocky Mountain Region, provides a design concept
for a Visitor Center under Acting Superintendent Terry Gess.
August 12, 1993 National Park Foundation passed a resolution
supporting a critical need for Visitor Center Facility at entrance in order to better inform and disperse visitors.
1994 Tribal Involvement and consultation – Continuing with design
ideas provided by 24 tribes
1995 Agreement signed by Director Roger Kennedy, Regional Director
John Cook, Superintendent Wiese, President of Mesa Verde Museum Association to help develop mission statement, vision, model, concept design for the entrance facility, and creation of Foundation Board to assist with fundraising.
1995 Nationally and Internationally known designer Murray Gelberg
helped to redesign a downsized facility and keep needed elements, and create initial models. Work was completed pro-bono and reduced the size to 130,000 s.f.
April 1996 On-site meeting held at Mesa Verde with Regional
Director Cook; Deputy Regional Director Bob Reynolds; Rick West, Director of the Museum of Native Americans/ Smithsonian; Steve Wilson and Tim Kelly of National Geographic; Boyd Evison, Destination Cinema; Michael Musgrave, O’Brien Kreitzburg; Larry Martinez, Bigelow and company. Regional Director continues support and recommends moving ahead with planning and review of funding options.
1997 Mesa Verde Foundation Created.
December 7, 1998 Memorandum of Understanding between Mesa Verde
National Park and Mesa Verde Foundation. The agreement notes that specific work projects or activities that involve the transfer of funds, services, property, or specific fundraising campaigns and activities between the parties to this MOU will require the execution of separate agreements, contingent upon the availability of funds appropriate by Congress or available from funding from the Foundation. The Memorandum, which was approved by MEVE and the Foundation, expired on November 22, 2003 and was renewed in August 2004.
1999 Curatorial Facility placed in Line Item
2000 National Curators’ Report indicates no opportunities for
placement of three million object collection in regional proximity of park. Should be held at park. Twenty-four tribes vote to hold collection at Mesa Verde.
2000 National Renewable Energy Labs involvement starts with project
and continues to present.
2000 Value Analysis completed with support of Rick Turk, Denver
Service Center, Intermountain Region, Park, Tribal representation.
2000 J. Crockett Design Concept provided from Value Analysis still
recommends visitor center, curatorial, administration.
2001 Curatorial Facility removed from Line Item
2002 Concept Plan/EA/FONSI – Recommends retaining and
consolidating the Visitor Center and Curation at the entrance and a partnership with Mesa Verde Foundation to fund and build on Mesa Verde Foundation and National Park Service land.
2002 Intermountain Region suggests: Phase to compete for Line
Item funds. MEVE responded with 3 components and all 3 were submitted separately in PMIS.
2002 Curatorial Storage proposed for funding in Line Item.
2002 WASO construction responds, no Line Item funding until land is transferred
March 12, 2003 Letter from John W. Low, Chairman of the Mesa Verde
Foundation to the IMR Regional Director indicating that they own 37 acres of property in the County of Montezuma, CO and that "Mesa Verde Foundation is willing to convey the Property to the Mesa Verde National Park at such time as the NPS has received funds for the planning, design and construction of a curatorial center on the Property and has committed such funds for those purposes".
2003 IMR and MEVE sign a Project Agreement
June 2003 All Indian Pueblo Council (19 Pueblos) passes resolution
supporting construction of Mesa Verde Research and Museum Collection Facility and Cultural Center at entrance to Mesa Verde National Park.
2003 Curatorial Storage–Component is funded in Line Item for 2009
–later changed to construction date of 2010.
2003-2004 Initial Workshops: During 2003 and 2004, six detailed
workshops were held with Intermountain Region, Denver Service Center, Mesa Verde National Park, Mesa Verde Foundation, AJC, representatives from City, County, State, Federal, Tribal and academic organizations. Reports were produced on each workshop.
July 2003 Visioning and Programming Workshop
August 2003 Site Master Planning and Sustainability
September 2003 Selected Preferred Site Plan and Developed Design
Guidelines
January 2004 Meeting with Regional Director Steve Martin, Regional
and Denver Service Center staff, the Foundation members, MEVE staff to discuss reducing scope and costs for project.
February 2004 Life Cycle Cost Analysis with National Renewable
Energy Labs
March 2004 Mesa Verde Cultural Center--Project Definition. Program,
Master Plan, Design Guidelines, and Life Cycle Cost Analysis, prepared by AJC Architects
April 2004 MEVE reduces and reprogram project elements
May 5, 2004 Data Sheet submitted to NPS WASO
June 2004 Meeting with Regional Director and staff, the Foundation,
and MEVE to reduce size, scope, and cost of project and to discuss next steps.
July 15, 2004 Draft Fundraising Analysis for MEVE. The Mesa Verde
Foundation has received the results of their Feasibility Study from Ketchum. The Foundation, MEVE Park Staff and Regional Directorate met on June 17, 2004 to discuss the capital project to be accomplished and begin preparation of partnership agreement documents.
August 2004 Memorandum of Agreement between MEVE and Foundation renewed.
September 2004 Tribal Consultation Workshop Design Vocabulary
September 2004 4th Annual Mesa Verde Foundation “Soukinii” Fundraiser event.
September 2004 Draft Memorandum of Intent to Conduct a Partnering Program
October 2004 Meeting with Regional and Deputy Regional Director to
include the adaptive reuse of the Far View Visitor Center to include certain functional components of the originally proposed Cultural Center, including museum and tribal exhibits, Foundation office space, and an outdoor plaza and staging area.
Background
Director Roger Kennedy, Regional Director John Cook, Superintendent Wiese, President of Mesa Verde Museum Association signed a written agreement in 1995 to help develop mission statement, vision, model, concept design, and creation of Foundation Board to assist with fund raising. This agreement did not specify the square footage of the Center.
In 1995, nationally and internationally known designer Murray Gelberg was asked to design a downsized set of facilities, including the Cultural Center, Park Headquarters, and the Curatorial Facility, and keep needed elements and create initial models. Work was completed pro-bono and reduced the size of the project to 130,000 s.f. (interior and exterior spaces). Many of these functional elements and associated spaces have now been eliminated in order to reduce project size and cost.
During April 2003, Regional Director Karen Wade and Superintendent Wiese signed the project agreement for the Curatorial Facility.
Additionally in 2003 and 2004, using the services of AJC Architects, a full-service architectural firm, through an Indefinite Quantities (IDIQ) from DSC, a series of design charrettes were held to help decide plans for the center. A "life cycle charrette" was used to look at the design, construction and operation of the center holistically. This approach, noted as unique by Superintendent Wiese, received "good partnership support" from National Renewable Energy Labs who helped to pay for the charrette.
The Superintendent indicated that the approach used to design the Cultural Center and Curatorial Facility was based on the needs of the park, community and Tribes. Designers spent time with all of the staff, the Tribes, and input from other community groups as well. Rick Cronenberger, IMR Historical Architect, and Jim Crockett, a DSC architect, were assigned to assist with reducing the footprint to realistically address user and operational needs, using their service-wide experience.
In 1997, the Mesa Verde Foundation incorporated as a, a 501(c) (3) non-profit to help the park raise funds to construct the Cultural Center and to acquire lands upon which the Cultural Center would be located. The Foundation purchased 37 acres of land at the base of the Mesa, just off Highway 160, for a proposed Mesa Verde Cultural Center construction area as one of its first efforts, with the concurrence of the Regional Director.
As the park, region, and Foundation continued to work together, they came to a common understanding regarding the size and scope of the project. A meeting was held with the Regional Director’s staff, the park, and the Foundation to review the project in light of the new Partnership Construction Process, to discuss downsizing the cost and size, and to establish parameters.
The Foundation agreed to raise private and donated funds to assist NPS with specific phases of the plan. With continued assistance from AJC architects and the NPS, the Foundation has successfully reduced the size and cost of the Cultural Center while preserving the original intent of the project. The design process for the Cultural Center has identified critical elements, which could become smaller as the concept moves into the construction process. The current estimates are $9 million for the Cultural Center and Visitor Information Facility, including exhibits as well as $1 million for operations and maintenance account.
Ketchum, a recognized leader in the fundraising and donor stewardship industry, has prepared a Fundraising Feasibility Study for the Foundation. The Ketchum consultants think that it will take 3-5 years to raise private funds for the projects and that the Foundation will be able to raise the targeted $10 million for the project. The fundraising campaign would like to focus its efforts on 2006, which is the 100th Anniversary of Mesa Verde National Park.
On October 8, 2004, the Superintendent of MEVE met with the Regional and Deputy Regional Directors to re-define the development package to incorporate the adaptive reuse of the Far View Visitor Center as a Cultural Center. The need for clear project definition with careful focus on functions was emphasized. The meeting defined project components to include three separate but related facilities: A Curatorial and Research Facility; a Visitor Information and Orientation Facility; and to adaptively reuse Far View Visitor Center as a new Cultural Center. The meeting also established functional components for each site and set clear size and cost targets for the three separate facilities.
Assumptions
MEVE and IMR are supportive of the proposed stand-alone Curatorial Facility. The park has received a Congressional funding earmark for planning and they are going ahead with initial planning. This is being done in concert with IMR, DSC, AJC Architects, MVF and park staff.
The re-defined project has not yet been vetted through the affiliated tribes, and has not yet received written endorsement from the Foundation. However, it is anticipated that both entities will fully support the described program.
The NPS Curatorial Facility is scheduled in the Line Item program for 2010. However, if it can be funded sooner, MEVE and IMR are supportive and prepared to move ahead.
The Foundation has agreed to turn over land to the NPS through a minor boundary adjustment.
The Foundation is looking at the development plans for the Curatorial Facility as a way to help and act as a springboard for their fund-raising campaign. The Federal commitment for the Curatorial Facility is a cornerstone of private fundraising support.
The Foundation is continuing with the friend-raising and fundraising for operational expenses and expects to establish an endowment to help cover operational and maintenance costs of the partnership projects.
Issues and Concerns
Size and Scope of Proposed Buildings
Over the history of this project NPS headquarter, park and regional
office and Congressional leaders have had different perceptions and concerns about the size and cost of the proposed Cultural Center.
NPS Washington leaders believe that the park and regional office managers haven't run the buildings proposed for Mesa Verde Cultural Center through the NPS models to determine whether the size and the scope of the proposed facilities is appropriate.
In 2003, Mesa Verde and IMR applied the new NPS architectural models to
ensure the size of each component was in keeping with curatorial storage, visitor center and administrative facility sizes. Additionally, they were the test case for the national curatorial model. The application helped to reduce the size and cost of the construction projects.
MEVE and IMR, in collaboration with the Foundation, have gone to
considerable lengths to reduce the size of the building program while maintaining the concept and the functions of the Cultural Center and Visitor Information Facility.
Perception of phasing and details of development:
Interviews with NPS-WASO and park managers revealed that there were
different perceptions about the relationship between, and sequencing for, the three separate construction projects: the Curatorial Facility, Cultural center, and Visitor Information and Orientation Facility. Although everyone agrees that the three projects are inter-related but separate projects, more planning needs to be done to clarify the functional relationship. NPS headquarters leaders indicated that "There is no single document describing the proposals or the words that describe elements--the terminology". The lack of access to this basic information makes communication between the park, region, headquarters and Congress difficult and sometimes confusing.
Information About the Project Proposal:
Leaders from NPS headquarters indicated that at times they have been
surprised by news about this project. According to Associate Director Masica, "Two years ago Senator Campbell was going to hold a hearing to purchase land for the project. No one in WASO knew what this was about."
Superintendent Wiese agreed that information about the project is
sometimes problematic. He said, "When there are five links in the communication-chain it changes the message. Often NPS people that aren't involved in this project are providing leaders with incorrect information". Superintendent Wiese went further to say, "There has to be one person that distributes information. There needs to be a single voice for all entities to speak with. Typically that is the superintendent. It should be the superintendent that disseminates info to all key parties".
Partnership and Fundraising
NPS and the Foundation do not have a approved a Fundraising Agreement
and Plan and have not developed a Donor Recognition Plan.
Despite the 1998 Memorandum of Agreement between MEVE and the Mesa Verde Foundation private fundraising for this project has not been authorized by NPS, as per the requirements of DO-#21.
Leaders from the park and the region are concerned about the consistency of guidance that they receive from headquarters about fundraising and partnerships. "DO-21 is flexible but not certain, said one regional leader". The Superintendent said, "It seems as if guidance from Washington is constantly changing and it makes it harder for our work to be consistent with policy".
As an example, the Superintendent expressed concern about the uncertainty of NPS guidance for "Donor Recognition". He said "John Lowe Foundation, Vice President wanted to know if there are naming opportunities? The Regional Office would approve this idea but it is not clear whether it would be approved at the WASO level".
The Superintendent noted that "the news of the Oneida Donation was filtering to other Tribes. What happened at VAFO recently has Stirred controversy and could impact Tribes who are considering donations to other parks such as Mesa Verde".
Headquarters officials indicated that Mesa Verde fundraising
proposals have been inconsistent. The total cost of what NPS and private funds are needed has varied and basic documents have not undergone headquarters review and approval.
The Superintendent agrees with this statement, but suggests that they have not initiated this information, but rather have responded with information known at the time. Because the size of the Visitor Information Facility and Cultural Center continue to be reduced, costs and support funds will also continue to change until we have a final agreed upon plan. Until that time, the two projects are still in its conceptual phase.
Park and regional leaders indicate that the Mesa Verde Foundation
has received the results of their Fundraising Feasibility Study from Ketchum. The study supports the Foundation’s ability to raise the targeted $10 million needed. The Foundation, MEVE staff and the Regional Directorate met on June 17, 2004, to discuss the capital project to be accomplished and begin preparation of partnership agreement documents.
The Superintendent said that there are plans this fall (November 7-8, 2004) for a NPS-Foundation Retreat, which was recommended in the Mesa Verde Fundraising Feasibility Study. Ketchum will be doing a pro-bono workshop for Foundation and park leadership to help organize the campaign and communications, and to develop a strategy to approach donors. They will also discuss how to establish and add to the Foundation's Board of Directors and members and develop a fundraising plan for NPS approval.
Superintendent Wiese said, "We want to look at this together, decide how everyone will be involved and describe the monetary commitment. This campaign requires a collective understanding, time requirement and commitment to tasks. We want to bring the Foundation Board together as a team." Once this is complete, they will follow the June 2004 Director's guidance for partnership construction projects and Director's Order # 21 for fundraising and donations.
Sustainable Design
The two partnership projects incorporate concepts and designs that
will reflect environmental responsibility and energy efficiency, as well as NPS’ ethic to lie lightly on the land, be visually compatible with natural surroundings, and relate to both the prehistoric and historic architecture. The adaptive reuse of the Far View Visitor Center, a potentially eligible historic structure, is in keeping with the intent of the National Historic Preservation Act as well as Director’s Order 28. Recent meetings and charrettes have proven very positive involving the National Renewable Energy Labs, MEVE staff, Mesa Verde Museum Association, Mesa Verde Foundation, Regional, and DSC personnel, including financial support for charrettes by the Labs.
The Mesa Verde Foundation has completed a Fundraising Feasibility
Study. The Mesa Verde Foundation received a response on their fundraising feasibility study for the Mesa Verde Cultural & Visitor Center in March 2004. They are using this information to work with the Park and finalize the project, then will work on each of the agreements and documents identified. The Board has approved the results of the study report that indicates that "Mesa Verde Foundation can successfully conduct a major capital campaign with the objective in the range of $10-15 million in private funds". The fundraising study views a commitment of $11 million from the Federal government as a cornerstone of the campaign.
Options:
The following options can and should be taken to address the Mesa Verde National Park and Cultural Center and Visitor Information/ Orientation Facility fundraising issues and concerns within the identified assumptions.
1. Description of Project
a The Superintendent of MEVE, in cooperation with the Mesa Verde
Foundation, should prepare a Concept Report and Project summary.
2. Review and Approvals of Agreements and Plans
a. NPS headquarters should request IMR and MEVE to bring the Mesa Verde Cultural Center and Visitor Information/ Orientation Facility fundraising campaign into compliance with DO-21.
As soon as possible IMR and MEVE should prepare a NPS Fundraising Plan and Donor Recognition Plan.
b. IMR and MEVE should continue to comply with the provisions of the
June 2004 Director's Guidance for Partnership Construction Projects and DO-21 prior to any actions or NPS approvals.
3. Communications within NPS
NPS headquarters, IMR and MEVE should establish officials and central
points of communication, and a Communications Plan, for activities and distribution of information related to the two partnership projects and that the region and the park need to operate closely as the project moves forward.
The Superintendent of MEVE and the Regional Office believe that "there needs to be a central person in each region that distributes information to WASO".
The region and the Superintendent agree that "the superintendent needs to be the focal point for discussion regarding the partnership projects". MEVE and the Foundation, with direction from the National Partnership Office, should develop a Communications Plan, which addresses all aspects of communication with the public and establishes protocol for internal communication within NPS, the Department of Interior and Congress. The plan, as required by the Director's June 2004 guidelines for partnership construction Projects, should also address external communication with communities, partner organizations and the public.
NPS headquarters should require the Superintendent of MEVE, and all
other superintendents of partnership construction projects, to complete and regularly update on a regular basis (to be determined) a Project Data Sheet. NPS headquarters should "design and implement a computer program to provide for an easy way for superintendents to communicate with WASO about their projects".
The data sheet would describe where the project is in terms of design and planning, compliance with NEPA, fundraising, civic engagement, etc.
Superintendent Wiese suggested that WASO have a distribution link to others and that it should be kept fairly controlled. He encouraged the use of a single statement/ format that is understandable.
c. The National Partnership Office should consider ways to communicate with NPS parks and park-partners to avoid incorrect information about fundraising and donation projects and issues (i.e. Oneida donation).
National Guidance & Park Assistance
a. The National Partnership Office should complete the revisions to DO-
21 and the DO-21 Reference Guide and make that information available to NPS parks, regional offices and partner organizations. The guide should provide parks with approved examples of appropriate "Donor Recognition" alternatives.
The NPS Office of Park Planning, Facilities and Lands should identify
people that can help with the thought-process for designing sustainable buildings and facilities. NPS could have a subcontractor develop a list of people, within and outside NPS that are credible that managers can use to query on sustainable design.
