Statue of Liberty National Monument Fundraising Campaign

DRAFT: Statue of Liberty National Monument Fundraising Campaign

Prepared by Glenn Eugster, Assistant Regional Director, Partnerships Office, National Capital Region

March 19, 2004

Introduction

On March 9 Director Mainella requested the National Capital Region to the NPS Washington Office with an internal review of the fundraising campaign for the Statue of Liberty National Monument (STLI) in NY.

Recently 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 we structure, manage, implement and monitor some of our partnership agreements, including fundraising agreements, plans and campaigns, the relationship between these efforts, our priorities for funding park projects, and communication with the Congress.

Specifically NCR was asked to examine the Statue of Liberty National Monument fundraising campaign, identify real and perceived problems and matters of concern, and identify options to respond to the problems and concerns. This information is intended 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:

Randy Jones, Deputy Director
Don Murphy, Deputy Director
Chris Jarvi, Associate Director, Partnerships, etc.
Sue Masica, Associate Director, Park Planning, Facilities and Lands
Bruce Sheafer, Office of the Comptroller
Bob McIntosh, Associate Regional Director for Partnerships, NER
David Hollenberg, Associate Regional Director for Cultural, NER
Chris Niewold, WASO Partnership Office
Wendy O'Sullivan, WASO Partnership Office
Cynthia Garrett, Acting Superintendent,STLI


Assumptions

The context for this research includes the following assumptions about the fundraising campaign.

The Department of the Interior and NPS, at all levels, has been working with the Statue of Liberty-Ellis Island Foundation since 1983 to undertake to raise additional funds for projects at the Statue of Liberty National Monument and Ellis Island.
The Superintendent, NER Regional Director, Associate Director for Partnerships, etc., Director, and Assist Secretary for Fish, Wildlife and Parks, for the Department of Interior, approved a Fundraising Agreement and three Fundraising Plans in May 2003. The plans included a Memorandum of Agreement for Reopening the Statue of Liberty.
The Memorandum of Agreement between the Statue of Liberty-Ellis Island Foundation and the Department of Interior created a unique or "hybrid" fundraising agreement that has the Secretary playing an active role in monitoring the progress and continuously reviewing the preparation of the proposed concepts, plans, drawings and specifications for projects associated with the Agreement.
In October 2003 the Foundation notified NPS Director Mainella about the progress of fundraising plans to reopen the Statue of Liberty. Two major funding sponsors, Folgers Coffee and American Express Company, were identified.
In November 2003 a letter was sent on behalf of the Director signed by Deputy Director Randy Jones, in response to the letter from Stephen Briganti, President and CEO of the Foundation, expressed gratitude in their "efforts to help the NPS reopen the Statue of Liberty's doors".
The partnership with the Foundation is an extremely important relationship that brings value to NPS management, stewardship and interpretation of the park.
STLI managers and staff have worked long and hard to develop and sustain a partnership that has resulted in national recognition, monetary, and political support for park protection, interpretation and visitation that has never existed before.


Issues
The Department of Interior, NPS-NER and STLI have not complied with Director's Order #21. The fundraising plans that the Department, park, region and Foundation agreed to do not follow Director's Order #21 guidelines for preparing fundraising plans. As a result, the fundraising campaign was launched without answers to specific questions about the techniques, timing and strategy to be used.
Significant concerns have surfaced from Congress about the advertising used in the fundraising campaign and the way that it portrays Congress and NPS as failing to carryout their responsibilities. Members of Congress believe that NPS should not have to "beg" for money to maintain a national icon. They believe that NPS could have asked Congress or the agency for additional funds if money was need for the reopening. Moreover, the fundraising campaign for the Reopening of the Statue does not comply with Director's Order #21, Section 6. Fundraising Campaigns. The campaign undertaken, contrary to guidelines portrayed either Congress or the NPS as having failed to meet their responsibilities.
NPS has not complied, on STLI or other park efforts--with one exception, with direction from Congress in the Appropriations Acts from the last four years regarding large-scale project commitments. Communication has occurred only after major commitments have been made. The Appropriations Committee learned of the fundraising campaign to reopen the Statue of Liberty from television advertisements and complaints from members of Congress. In the case of the STLI the Reopening Project was not discussed with the Appropriations Committee staff even though the park and region met with them a short time prior to the approval of the Fundraising Agreement and Fundraising Plan.
NPS WASO has not had a clear system for monitoring the park fundraising agreements, plans and campaigns, since the STLI Fundraising Agreement was approved, to insure they are in compliance with the policies, procedures and standards set forth in the Director's Order #21.
Both the WASO Partnership Office and the NER Partnership Coordinator position have undergone considerable turnover during the last two years. The park feels that neither office has been consistently available to respond to park requests or provide staff or printed technical assistance (i.e. DO #21 Reference Guide to Donations and Fundraising).
There appears to be uncertainty, or perhaps differing opinions, within NPS about which projects are appropriate for NPS funding (i.e. core responsibilities) versus private fundraising. Some NPS managers believe that we should use icons like the Statue for fundraising purposes because they attract donors. Some believe that there has been a tradition of private philanthropy throughout the history of the Statue and that should be continued. Some believe that NPS should not ask for donations for national icons. While others point to Director's Order guidance to clarify what is appropriate. These differing opinions make consistent decision-making difficult and may send confusing signals to managers, superintendents, and partners. Increasingly Congress is focusing on this "thin green line" between NPS funding and private philanthropy as they react to these partnerships.
Communication about STLI fundraising and reopening efforts within NPS, at all levels of the agency, seems to have been sporadic, inconsistent and appears to have hindered decision-making and coordination between the Department, Congressional, press and partnership offices. For example, the Memorandum of Agreement does not include provisions or expectations for how communication is to be handled between the Superintendent of STLI and the Secretary's Office and NPS WASO. In the case of the reopening controversy, the park believed that they had approval to fundraising for the reopening of the Statue and were surprised when they learned this was not the case.


Options

The following options can and should be taken to mitigate the STLI fundraising campaign problems and concerns within the identified assumptions.

1. Request the Region to bring the current and future STLI fundraising plans into compliance with DO-21.
Preparation of an NPS Fundraising Plans

2. Request NER and STLI, in collaboration with the WASO Partnership Office, to prepare a Communication Plan that describes how communication between the Department, NPS-WASO, NER and STLI will occur and what the specific expectations are for each office.
Clarify the process for briefing Congress
Agree on the roles of NPS WASO, NER and STLI
Identify where, when and what level Congressional and Secretary's Office contact should occur at
Use the positive and negative experience of the Statue of Liberty partnership as a case study to help clarify projects suitable for NPS funding versus private philanthropy. Use this information for upcoming budget hearings and other discussions with Congress.

3. Arrange for discussions with Appropriations and Authorizing Committee staff to discuss their view of fundraising partnerships and get their ideas about how to more effectively work with Congress.
Replicate training sessions such as the 2002 East Coast In-Park Partnership Seminar panel on Partnerships: View from the Hill where NPS, private partners and key Congressional staff come together to share perspectives on partnerships and fundraising.
Schedule briefings Committee staff on current or planned fundraising efforts to discuss fundraising campaigns, in advance of specific events or decisions, as a way to gain insights about how to more effectively work with Congress.

4. Have the Director communicate with Stephen Briganti of the Statue of Liberty-Island Foundation to reaffirm our appreciation of their contributions and our desire to make this effort successful.
Reaffirm that NPS is appreciative of their continued support.
Explain the importance of why the documents and decisions must be agreed to jointly and follow NPS guidance.

Reaffirm the NER and WASO points of contact and NPS process for
fundraising agreements, plans and campaigns and make sure that adequate trained staff are available to assist the park.
Reaffirm the responsibilities of the Associate Director for Partnerships, etc. and his role in the communications and decision-making process for this fundraising effort.
Sustain a WASO Partnership Office with adequate managers and trained staff that replicates other successful services (i.e. Warren Brown Park Planning Model).
Clarify the NER point of contact for fundraising and insure that adequate trained staff are available to assist park staff.
Make available to the park staff, from WASO and NER, staff and printed technical assistance to help in the revision and preparation of these documents and other fundraising plans and campaigns. Such written and technical assistance will help build capacity and reduce the need to reinvent the wheel.

Request line-item construction funds for STLI.
Projects would fare well because of critical safety projects.