HomeMy WebLinkAbout12 EVAL REI HANGAR 29 02-20-07
AGENDA REPORT
MEETING DATE: FEBRUARY 20,2007
TO: WILLIAM A. HUSTON, CITY MANAGER
FROM: REDEVELOPMENT AGENCY STAFF
SUBJECT: EVALUATION OF REQUEST OF EXPRESSIONS OF INTEREST (REI)
RESPONSES FOR THE HANGAR 29 COMPLEX AT TUSTIN LEGACY
SUMMARY:
Consider proposals received on the Hangar 29 Complex.
RECOMMENDATION:
It is recommended that the City Council:
1. Concur with the findings of the Navy and the State Historic Preservation Officer
(SHPO) affirming that there is no economically viable reuse submitted for the
Hangar 29 Complex, rejecting all proposals submitted and terminating further
outreach and marketing by the City.
2. Authorize the City Manager or designee to enter into a Consultant Services
Agreement for preparation of mitigation measures for Tustin Legacy hangars as
required by the 1999 Memorandum of Agreement in an amount not to exceed
$130,000, subject to review and approval of the final contract before execution by
the City Attorney.
3. Upon completion of all required mitigation measures, authorize staff to proceed with
negotiations with Tustin Legacy Community Partners (TLCP), LLC on potential
leasing and terms of a subsequent conveyance of the site pursuant to the Tustin
Legacy Master Developer Disposition and Development Agreement (DDA). Upon
entering into a ground lease with the City, TLCP would be able to utilize the hangar
complex until the property is conveyed by the Navy to the City currently estimated in
5-6 years. Upon conveyance to the City, the Hangar 29 Complex would be conveyed
to TLCP for development opportunities.
FISCAL IMPACT:
The proposed action will involve some City staff time and costs associated with
completion of required mitigation measures for the Hangar 29 complex which are an
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authorized expenditure by the Tustin Legacy Enterprise funds. A portion of the costs
will also be off-set by contributions by the County of Orange and TLCP.
BACKGROUND:
Since the closing of Marine Corps Air Station (MCAS) Tustin on July 2, 1999, the City
and the County of Orange ("County") have been following mandatory imposed steps to
determine the future disposition and use of two large WW II era blimp hangars located
on the former base. Prior to reuse and conveyance of historic properties at MCAS
Tustin, the Department of the Navy was responsible for complying with the National
Historic Preservation Act in an effort to find ways to reduce, avoid or mitigate the
potential adverse impact or loss of these historic properties. As part of this process, the
Department of the Navy (Navy) consulted with the State Office of Historic Preservation
(SHPO), the Advisory Council of Historic Preservation, the City and the County and
developed in 1999 a Memorandum of Agreement (MOA) which included mandatory
steps to be followed in marketing of each historic hangar. This process, supervised by
the federal government, ensures that historic structures are treated fairly. The City and
County have followed these steps.
Mandatory steps in the process include each governmental agency (the City and
County) soliciting Requests for Expressions of Interest (RElls) from the public to identify
developers and future tenants that might bring forward economically viable reuse and
renovation proposals for the hangars. The County completed its process with the
Federal Government and State in early 2006. The Board of Supervisors on December
19, 2006 took action to authorize County staff to negotiate an Exclusive Agreement to
Negotiate with I RG for a proposed Sports Complex on the 84.5 acre proposed regional
park site contingent upon acceptability to the National Park Service as a public benefit
conveyance and also contingent on no costs to the County or City.
As part of the mandatory steps imposed under the 1999 MOA on the City, the City
issued a Request for Expressions of Interest/Request for Proposal and marketing plan
for the Hangar 29 Complex (the southerly hangar) after its approval by the Navy and
SHPO in January of 2005.
Four proposals were submitted to the City from the following parties and for uses briefly
summarized below:
1. General Orbit Corp: a proposal to utilize the hangar for assemblage and the testing
necessary to develop "advanced airship"and "spaceship" vehicles intended to be for
entry into the America1s Space Prize of 2010. The envisioned airship is intended to
be a 300 ft. by 50 ft. lighter than air blimp balloon designed to ascend 100,000 feet.
2. James S. Douglas and Robert Scholler: a conceptual proposal with no description of
specific site development components to build a world merchandising mart with a
four story atrium including three mezzanine floors, retail mall space, restaurants,
shopping facilities, entertainment uses, an ice rink and play area.
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3. Lab Holdings, LLC: a proposal to develop a "community experience" focused on the
culinary arts and outdoor living, including a culinary school, artisan food shops,
gourmet cafes and year round farmers market.
4. Dome Development Group: a proposal for a motorcycle riding facility with facilities to
support riding areas (241 ,000 sq. ft or 5 acres of track area) including valet service,
areas for cleaning and storing motorcycles, club facilities such as showers, lockers,
restrooms, saunas, a gym and medical facility, concierge facilities, pro shop, and
party and VIP areas.
The process and criteria utilized in the evaluation of each REI-response is summarized
in the attached technical report entitled "Evaluation of REI Reponses for the Hangar 29
Complex" which also includes compact disc appendices which include the original
REI/RFP, submitted proposals and advertisements utilized in the marketing effort. A
synopsis summary evaluation of the responses is included on this agenda report as
Attachment 1. In summary, the REI responses were reviewed by an evaluation team
against the submittal requirements and review criteria stipulated in the MOA and in the
original REI. The evaluation team included:
1. Management representatives from the City Manager1s - Office/Redevelopment
Agency with expertise in complex development, redevelopment, and real estate
related negotiations and transactions;
2. Management representatives from the Community Development Department with
expertise in City planning and development requirements and historic preservation;
3. Management representatives from the Public Works Department with expertise in
engineering and infrastructure development;
4. A representative from the Master Developer (TLCP) with expertise in development
and engineering; and
5. A representative from the City1s Tustin Legacy financial consultant (Keyser Marston)
who played a significant role in the review of financial information.
Background report information was also provided by Dunn & Bradstreet, Transunion,
the Police Department and the Department of Justice. References were also reviewed.
As part of this process, the City Manager also determined that proposers were subject
to provisions of Section 7800 of Chapter 8 of the Tustin City Code which require
fingerprinting and criminal background checks.
The attached final evaluation report evaluates each proposal in terms of a number of
factors identified in the REI including the following:
Page 4
1. The completeness and responsiveness of the proposal to specific information
requested and criteria identified in the REI;
2. Experience and qualifications including experience in adaptive reuse of historic
properties;
3. Relevant development and business experience;
4. Financial capabilities;
5. The consistency of the proposal with the MCAS Tustin Specific Plan and the
compatibility of a proposal with surrounding uses;
6. The proposed development concepts; and
7. Other strengths and weaknesses of each REI submittal, including additional
information provided by a respondent during the review process when requested by
the City and the background and fingerprinting checks.
Based on the REI/RFP, the REI submittal information was required to be detailed
enough for the City to determine economic viability based on the Navy 1999 MOA. It
was made clear that the City maintained sole discretion to determine the economic
viability of the proposals that were submitted, and to terminate the REI/RFP process
with no obligation to pursue a subsequent RFP process. Only in the event that
submittals during the REI process were found to respond favorably to evaluation criteria
established for the Phase 1 REI process, would respondents be invited to participate in
a Phase 2 process. The Phase 2 RFP process would have required submittal of a more
detailed Business Plan pro forma, with additional details on actual proposed
construction, financing, project feasibility, cash flow, along with a business offer for the
site.
Based on City documentation, an evaluation report was submitted to the Navy and
SHPO in May 2006 which concluded the following:
1. The City1s marketing effort was conducted in compliance with the terms of the 1999
MOA.
2. None of the proposals were complete.
3. No economically viable proposal was presented to the City.
4. None of the REI responses meet the requirements to be placed on a short list to
proceed to a more detailed RFP process.
5. The marketing effort for the Hangar 29 Complex, as detailed in the MOA, is
complete and should be terminated.
Page 5
Based on the evaluation report, the City received notice from the Navy and State
Historic Preservation Office that the City1s marketing efforts were performed consistent
with the mandatory steps defined by the federal government. The Navy and SHPO
concurred with the City1s findings that an economically viable adaptive reuse of Hangar
29 was not substantiated during the REI process and that no further marketing was
necessary. In their conclusions and consistent with MOA requirements, the Navy and
SHPO indicated that the City is now responsible for preparation of a mitigation program
for the Hangar 29 Complex which requires approval of the Navy, SHPO and the Federal
Advisory Council on Historic Preservation. The mitigation plan includes preparation of
the following:
. A written history of MCAS Tustin with emphasis on the air station and it's lighter than
air operations.
. An illustrated interpretive exhibit with emphasis on the initial construction of the air
station and the lighter than air operations.
. An interpretive video which combines still photographs, film footage, oral interviews,
narration and music documenting each hangar.
Pursuant to the MOA, the City and County staff are recommending a collaborative effort
on the required mitigation program. A proposal has been obtained for the proposed
mitigation scope of work at a cost of approximately $127,000 which would be shared
with the County. City staff is recommending that the City Council authorize staff to retain
a consultant to assist the City and County in preparation of the mitigation program.
While Navy conveyance of the site to the City is not anticipated until completion of Navy
environmental remediation in 2011-2012 or later, provisions of the Tustin Legacy
Community Partners (TLCP) Disposition and Development Agreement (DDA) provide
an option, at the City1s sole discretion, to sublease the Hangar 29 Complex to TLCP
once it is available and to subsequently convey the site at a land value to be determined
by an appraisal based on a yet to be determined use of the site. Any use of the
complex would need to be consistent with the MCAS Tustin Specific Plan. Upon Navy
approval of the mitigation program, under any ground lease or conveyance terms it
would be TLCP's decision to keep the hangar or to remove the structure for future
development opportunities.
Christine A. Shingleton
Assistant City Manager
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