New Orleans Jazz National Historical Park

New Orleans Jazz National Historical Park
Prepared by Glenn Eugster, Assistant Regional Director, Partnerships Office, National Capital Region

Final Decmber 20, 2004

Introduction

On March 9, 2003 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 New Orleans Jazz National Historical Park (JAZZ) 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 New Orleans Jazz National Historical Park 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; a meeting with park and regional office managers; 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:

Rick McCollough, Chief, Partnership Office, Southeast Region
Dave Herrera, Acting Superintendent, JAZZ
Francis Peltier, Special Assistant to the Regional Director
Gayle Hazelwood, former Superintendent, JAZZ
Chris Niewold, Senior Staff, National Partnership Office
Chris Jarvi, Associate Director, Partnerships, Interpretation, Volunteers, Outdoor Recreation, and Education

Facts

Park Name: New Orleans Jazz National Historical Park (JAZZ)

Project Summary: To preserve the origins, early history, development and progression of jazz; provide visitors with opportunities to experience the sights, sounds and places where jazz evolved; and implement innovative ways of establishing jazz educational partnerships that will help ensure that jazz continues as a vital element of the culture of New Orleans and the Nation.

Name of Partner(s): City of New Orleans, New Orleans Jazz Commission. Note: A Cooperative Agreement between NPS and the Friends of WWOZ, a 501 (c)(3) non-profit corporation established in 1986, was proposed and a fourth draft of an agreement was shared in May 2004.

PMIS: # 21467A

Estimated Gross Cost: $11,069,500

Targeted Completion Date: The completion date is unknown at this time. Current funding is not sufficient to install new utilities and rehabilitate the buildings at Armstrong park as first envisioned. Because the latest bids were significantly above the government estimate, the bid package had to be revised to exclude work on the buildings in hopes of awarding a contract. There are no funding requests for additional money.

Development of Permanent Facilities, Phase I”, an NPS managed LIC add-on project, is targeted for completion by April 2006. The City has funds for repairs to Armstrong Park that is targeted to coincide with this project.

Breakdown of Funds Needed:
NPS share: $5,291,500. Regional Office leaders indicate that this may be an old estimate for the Master Plan for site development? If so, it should be updated to reflect inflation and projected year for construction.
Other Federal Funds: 0
Private, Donated and State and local funds: $5,778,000
Operations Funds Needed: $1,079,200 annually
Cost-Offsets: 0

Chronology and Status of Planning, Partnership and Fundraising Activities

June 30, 2004
Correspondence from Regional Director Hooks to David Freedman, General Manager WWOZ Community Radio regarding guidance on a draft cooperative agreement for a proposed facility and interpretive and educational programs for JAZZ.

Senate Report 108-089
Senate Appropriations Committee Report Language
"The Committee is aware of discussions among the National Park Service, the City of New Orleans and prospective local partners regarding the development of an interpretive center for New Orleans Jazz National Park. The Committee is supportive of these efforts, and encourages the parties involved to continue their work toward an acceptable cooperative agreement. Participants in these discussions should be mindful, however, of the language regarding partnership projects that was included in the Statement of Managers accompanying the Department of the Interior and Related Agencies Appropriations Act, 2003. The Committee also notes that any interpretive center proposal must be consistent with the park's general management plan, and must address the safety of both visitors to the Park and National Park Service personnel".

May 4, 2004
Fourth Draft Cooperative Agreement between NPS and the Friends of WWOZ, Inc.

November 2000
Planning and design charrette was done by NPS with community leaders and partners. . We might want to add all of the planning and design and approval activities here. i.e. HSRs, AIA Planning Charette, Title I, Value Analysis, DAB Approval (see next comment), Title II, Director Approval, Solicitation, Cancellation, Current status with 8A….

July 9, 1999.
Record of Decision was signed

October 1998
General Management Plan approved.

October 1998
Draft General Management Plan and Environmental Impact Statement, New Orleans Jazz National Historical Park, Louisiana

April 8, 1998
Cooperative Agreement between NPS and City of New Orleans to establish a framework for the NPS to expend appropriated funds for the preservation and adaptation of historic and non-historic buildings owned by the City.
Grants immediate possession of the Jazz Complex to NPS.
Complex includes Perseverance Hall; Caretaker's residence; Reimann House; Rebassa House, Elevator Tower and Breezeway; Appurtenant fencing, landscaping, parking lots, and other fixtures, upon completion of the Restoration Plan and GMP, to the NPS for admin as a part of JAZZ all lands and appurtenances within the Jazz Complex.
Lease for 50 years with an additional 49-year option.

January 1998
Project reviewed by Servicewide Development Advisory Board (Package 101). Review comments noted:
"Cooperative Developments: The Board is concerned about the possibility of escalating responsibilities and costs on this project, and recommends that the project be reviewed again after building assessments, schematic design, value analysis, Class B cost estimates, and an analysis of unit costs for comparable facilities are completed".

September 28, 1996
FY 1997 Appropriations for JAZZ--PL 103-433 Congress provided NPS $3 million for actions consistent with budget plan. Noted that "NPS should participate with the partners, and use Cooperative Agreements, where appropriate, in particular at Perseverance Hall No. 4". Also noted, Cooperative Agreements could be used that will accommodate the visiting public. It also notes that "The funds may be used, in whole or in part, prior to the completion of the General Management Plan".

October 31, 1994
New Orleans Jazz National Historical Park legislation passed:
"to preserve the origins, early history, development and progression of jazz; provide visitors with opportunities to experience the sights, sounds and places where jazz evolved; and implement innovative ways of establishing jazz educational partnerships that will help to ensure that jazz continues as a vital element of the culture of New Orleans and our Nation".

Legislation includes provisions:
To accept and retain donations
To construct, operate and maintain an interpretive center
Authorizing Cooperative Agreements, donations, grants and technical assistance.


Assumptions

The context for this research includes the following assumptions, identified by NPS park, regional and headquarters leaders, about the fundraising campaign.

NPS leaders are supportive of the park and indicate that they "want
to get construction project approved and want to obligate the funds". NPS leaders "want to put the NPS flag in Armstrong Park".

Congress envisioned that …"to the extent the partners
are capable of accomplishing some of the elements of the budget plan once it is developed, the National Park Service should participate with the partners, and use cooperative agreements, where appropriate, in particular at Perseverance Hall No. 4".

Congress indicated that, "The funds may be used, in
whole or in part, prior to the completion of the General Management Plan".

A long-term lease is needed with City of New Orleans to give NPS
authority to develop a visitor center in Armstrong Park. WWOZ wants to enter into a partnership agreement with NPS to operate on a portion of the park.

No commitment has been made by the City of New Orleans for direct
funding of NPS facilities and no organization currently plans a fundraising effort in support of the park.


Issues

NPS leaders indicate that "People in the community are
upset that things haven't moved yet". There have been a series of delays for various reasons. For example, the GMP was approved in 1998 but nothing happened since then. The superintendent of JAZZ has changed three times and with the changes have come differing philosophies, rapport with WWOZ, and NPS commitments.

One of the proposed partners, WWOZ, seem to have a
different perspective about the park partnership than the one NPS has. Then proposed Cooperative Agreement put forward by WWOZ asks for funds from NPS, while the NPS GMP envisions that Phase II of the park will be created by fundraising conducted by NPS, the New Orleans Jazz Commission and partners.

The status of fundraising for JAZZ is unclear. NPS
leaders indicate that, "No fundraising is underway--we are using appropriated money for the park project". Moreover, NPS Leaders indicated that, "They don't intend to do a fundraising agreement", and, "This wasn't going to be a joint fundraising effort--an operational agreement was expected. This isn't a partnership construction project".

However, despite the fact that there is no authorized fundraising agreement, according to NPS leaders WWOZ initiated fundraising for their new radio station with the announced intention of offering a portion of the building for NPS use. In addition, WWOZ requested through Senator Mary Landrieu of LA a $6 million earmark of NPS appropriations as a way to fund a new radio station. The radio
station had presented a draft cooperative agreement to the SER
Regional Director that included a suggested use of the new facility by NPS perhaps as a way to justify the earmark. But the agreement was not accepted nor approved.

The status and details of the partnership between WWOZ
and NPS is uncertain. WWOZ has been trying to partner with NPS for years. Although a Cooperative Agreement has been passed back and forth between WWOZ and NPS there is no agreement. Some delays are attributed to the fact that the superintendent of JAZZ has changed several times and the land is the City's.

WWOZ's proposal to build a new radio station may also be a point of disagreement between NPS and the organization. WWOZ had proposed to partner with NPS as a way to operate the radio station near the JAZZ visitor center in Louis Armstrong Park and that NPS funds would be made available to facilitate the move, and maintain and operate the property. NPS leaders indicate that the GMP does not propose a combined visitor center and radio station, nor does it indicate that Federal funds would be used to facilitate a new WWOZ facility. The radio station is currently operating in the Caretaker’s house, one of the four buildings leased by the NPS from the City.

Also, when WWOZ leaders were made aware of the June 2004 Director's Guidelines on Partnership Construction Projects they evidently were unhappy with the new guidance. NPS leaders are unsure what WWOZ's feelings about partnering are now. One leader indicated that, "They will likely go elsewhere".

NPS leaders expressed a concern about this and other
partnership construction projects. "More and more a partnership will impact NPS's budget". NPS leaders believe that the park will be realized if this is a true-partnership and they want to know what each party is bringing to the table? "If the project isn't a partnership NPS leaders believe that a determination needs to be made about whether JAZZ is a high priority--high enough to pull an existing project".



Background

NPS received $3 million from Congress for New Orleans
Jazz National Historical Park. Congress indicated that the funding for the park is provided to the NPS "to be expended in a manner consistent with a budget plan to be developed by the partners, including the NPS, the New Orleans Jazz Commission, and the City of New Orleans".
The budget plan currently describes rehabilitating two buildings-- Perseverance Hall and the Reimann House including the accompanying utilities.

NPS has developed and approved a General Management
Plan (GMP). The 1998 GMP recommends a "Proposed Action" entitled "Alternative C: Partnership Emphasis. The proposed action indicates that NPS would need to actively participate in partnerships with private and other public entities to provide these services and meet other goals such as resource preservation. The park would seek to leverage limited NPS funds by attempting to accomplish the bulk of the park's programs through partnership arrangements.

The proposed alternative would be achieved in two phases through a multifaceted partnership program and with significant resources coming from the private sector and other partners. The role of NPS would be to assist in coordinating efforts to preserve and interpret jazz and to help visitors understand how the diverse environments of jazz influenced its early development.

Phase I of the proposed action would be accomplished using appropriated funds.

The visitor center, at least on an interim basis, will be located at Perseverance Hall No. 4 complex in Louis Armstrong Park. The visitor center would be developed in Armstrong Park on lands provided to NPS under a long-term lease by the City of New Orleans.

Perseverance Hall No. 4 and the Reimann House would be rehabilitated. The Rabassa and Caretaker Houses would be considered for rehabilitation based on associated costs.

Phase II would be funded through partnerships and private sector support and would feature highly interactive and evocative interpretive media.

Fundraising for phase II would be conducted by NPS, the New Orleans Jazz Commission and partners. Phase II would provide the necessary interpretive facilities and media to fully meet park purposes, and would only be accomplished through support from the private sector and other partners.

Phase II proposes to "provide for the preservation of the origins of jazz and to ensure the continuation of jazz as a vital element of the culture of New Orleans. WWOZ desires to accept such engagement, to provide education and interpretation services…"

WWOZ would become a formal partner with the park and move to a larger more suitable location close to the visitor center. The station would cooperate with the park to broadcast music and educational programs, provide technical and musical expertise, and afford visitors and expanded opportunity to hear jazz and watch the operations of a public broadcasting enterprise.

NPS is supportive of the mission of WWOZ's and working
with them in a formal partnership to carryout the legislation and the recommendations of the General Management Plan. NPS leaders believe that JAZZ is "a park where real creativity needs to be applied. Things need to happen differently here. We envisioned working with WWOZ to interpret story for the visitors".

In June 2004 NPS Regional Director Hooks responded to a letter from the General Manager of WWOZ asking for guidance on a draft cooperative agreement for a proposed interpretive facility and interpretive and education program for JAZZ. Regional Director Hooks suggested that the partners work together and outlined steps to do so including tasks to: produce a description of the proposed project and its consistency with
the GMP; ensure that the project is included in the NPS Line-Item Construction Program; discuss the readiness of each partner; and prepare a letter of intent for review and approval by NPS.

It was also noted that the project would require "defining the project in more specific terms, including cost estimates, in preparation of review by NPS Washington and the Servicewide Development Advisory Board".

Options
The following options can and should be taken to address the New Orleans Jazz National Historical Park fundraising issues within the identified assumptions.

1. Clarify whether NPS envisions a partnership construction project with WWOZ, or other partners, to implement the General Management Plan for JAZZ and communicate that decision to Congress and NPS park-partners. If a partnership is envisioned clarify the appropriate roles and responsibilities for NPS and park-partners.
The enabling legislation, funding language and General Management Plan for JAZZ envision partnerships to help NPS establish, develop, maintain and interpret the park's mission. Although NPS has been working with WWOZ on a cooperative agreement to help implement the General Management Plan it is unclear whether the agreement is for a partnership construction project and if the partners agree on roles and responsibilities. Clarifying NPS, partner and Congressional expectations for partnership activities will avoid confusion, focus collaboration on areas of agreement and help sustain community and Congressional support for the park.

2. There is some evidence to suggest that WWOZ may have been raising funds for JAZZ without an authorized fundraising agreement and plan. If that is the case, NPS should advise WWOZ leadership of NPS policies on fundraising and donations.
WWOZ leadership is a recognized and important partner and their willingness to assist NPS with JAZZ is a positive gesture. If fundraising has been undertaken by WWOZ, in the name of NPS or JAZZ, it is important that NPS leaders request their leadership to discontinue fundraising until appropriate agreements are approved. NPS should also advise WWOZ leadership of the requirement in the Director's June 2004 Interim Partnership Construction Project Guidance that prohibits NPS park-partners from lobbying for federal appropriations.