Professional Documents
Culture Documents
Executive
Summary: The National Underground Railroad Freedom Center (“Freedom Center,”
“NURFC,” or “the Sponsor”) is a museum that explores a range of freedom
issues. The center offers lessons and reflections on the struggle for freedom and
features three pavilions celebrating courage, cooperation, and perseverance.
The state appropriated $15.5M to the Freedom Center, which opened in August
of 2004 on the Cincinnati riverfront. The Commission previously approved
$14.65M of the funding, which has been reimbursed to the Sponsor. Under
NURFC’s current operating structure, sustainability is an issue. The Commission
is holding in escrow approximately $462K, provided by the Sponsor, in the event
the Sponsor is unable to continue to operate the facility. .The Sponsor is Deleted: In such an unfortunate event, these
requesting return of the escrowed funds in exchange for a guaranty in an equal escrowed funds would be used to heat, cool,
secure and insure the facility until a new cultural
amount. The guaranty funds would be used to heat, cool, secure and insure the organization user could be identified
facility until a new cultural organization user could be identified, or the building
sold to satisfy the Freedom Center’s obligation to return to the Commission the
amount of any outstanding unamortized bonds.
Facility Overview: The Center consists of a 160,000-square-foot facility located on the Cincinnati
riverfront that opened in 2004. Features of the facility include a museum,
interactive story theaters, computer networking to other Underground Railroad
sites, arts and education facilities, and a public forum space.
The Center is currently owned and operated by the Sponsor, an Ohio nonprofit
corporation since 1995.
Culture Presented: The preservation and presentation of features of historical interest or significance.
Sponsor
Background: The Sponsor states, “The mission of the National Underground Railroad
Freedom Center is to reveal stories about freedom's heroes, from the era of the
Underground Railroad to contemporary times, challenging and inspiring everyone
to take courageous steps for freedom today.”
Project Information
Scope: The current appropriation will reimburse the Sponsor for construction expenses
previously incurred but not yet reimbursed (the “Project”). The Project consists of
reimbursing $850,000 on an appropriation awarded in H.B. 562. In addition, the
Sponsor is requesting return of the $462K in escrowed funds, in exchange for a
guaranty in an equal amount.
Regional Support
Matching Resources
The Sponsor demonstrated a minimum of non-state matching resources equal to at least 50 percent of
the total state funding of $15,500,000 (a minimum of $7,750,000). Matching resources were
substantiated in November 2008. On October 9, 2001, Substantial Regional Support was confirmed by
the Commission in resolution R-01-26. The following table is provided for informational purposes.
Funding Model
Old Adjustments New
Funding
State funding $ 15,500,000 $ - $ 15,500,000
Cash on hand - - -
Private contributions 63,000,000 - 63,000,000
County government - - -
City government 6,000,000 - 6,000,000
Federal government 22,200,000 - 22,200,000
Available funding sources 106,700,000 - 106,700,000
Other (future investment income)1 11,650,000 (11,650,000) -
Total funding sources $ 118,350,000 $ (11,650,000) $ 106,700,000
Project
Construction and soft costs2 $ 62,633,000 $ (30,095,954) $ 32,537,046
Exhibits 17,660,000 - 17,660,000
Fixtures/furnishings/equipment 2,790,000 - 2,790,000
Pre-opening expenses (other) 32,761,000 - 32,761,000
Project cost approved by Commission 115,844,000 (30,095,954) 85,748,046
2004/2005 Operating deficit (other) 1,900,000 - 1,900,000
Total project budget $ 117,744,000 $ (30,095,954) $ 87,648,046
1
Due to the bond settlement transaction, the future investment income projection was never realized
2
The original estimated construction cost of $62M shown above reflects the project cost used for past approvals however, the original
construction cost per the audit was $78M and was adjusted to reflect the impairment charge. The current value of the building per the
12/31/09 audit is $32M after the impairment charge of $42M.
Project Need
Commission staff analyzed the Sponsor’s financial statements, including the following:
• internally generated financial statements for year-to-date September 30, 2010 ("YTD10")
• audited financial statements for fiscal-years-ending December 31, 2009 and 2008 (“FYE09”
and "FYE08")
• five-year pro forma
LIABILITIES:
Total Current Liabilities $ 618,721 0.58% $ 615,126 -42.85% $ 1,076,256
Total Long-Term Liabilities $ - -100.00% $ 27,000,000 -41.30% $ 46,000,000
TOTAL LIABILITIES $ 618,721 -97.76% $ 27,615,126 -41.34% $ 47,076,256
NET ASSETS:
Unrestricted $ 33,357,286 147.29% $ 13,489,393 -78.44% $ 62,563,238
Temporarily Restricted $ 954,643 27.72% $ 747,456 -35.33% $ 1,155,713
Permanently Restricted $ 956,666 4683.33% $ 20,000 0.00% $ 20,000
TOTAL NET ASSETS $ 35,268,595 147.38% $ 14,256,849 -77.63% $ 63,738,951
TOTAL LIABILITIES AND NET ASSETS $ 35,887,316 -14.29% $ 41,871,975 -62.21% $ 110,815,207
Solvency:
An organization is solvent when assets are greater than liabilities. The Sponsor is solvent because net assets
are positive (YTD10 total assets are $35.9M; total liabilities are $0.6M).
YTD10, the Sponsor had no debt; therefore, a viability ratio was not calculated.
Liquidity:
Liquidity relates to availability of, access to or convertibility to cash. A test of liquidity is current ratio (current
assets divided by current liabilities), which indicates how many times over the entity can pay its current
liabilities with its current assets. (Note: Restricted current assets were not used to calculate the current ratio
because they generally are not available to service current liabilities. Including restricted current assets in the
The Sponsor’s YTD10 working capital is $2.7M). Days of cash-on-hand (an indication of how many days an
organization can pay expenses if its revenue stream ceases) at 22 is lower than the 30-day norm.
Leverage:
Leverage is the degree to which a Sponsor is borrowing money. A measure of leverage is debt ratio (debt Deleted: sponsor
divided by total assets).
YTD10, the Sponsor has no debt; therefore, a debt ratio is not calculated.
Total Revenues (net of capital income raised) $ 5,000,030 17.17% $ 4,267,276 -45.19% $ 7,785,726
Total Expenses (net of capital expenses) $ 5,670,869 -30.48% $ 8,157,132 -22.94% $ 10,584,822
OPERATING CHANGE IN NET ASSETS (pre-
depreciation and pre-realized/unrealized
gain/(loss) on investments) $ (670,839) -82.75% $ (3,889,856) 38.97% $ (2,799,096)
Impairment loss (FAS-144 adjustment) $ - -100.00% $ (42,200,000) NC $ -
Extraordinary income (debt settlement) $ 24,150,000 NC $ - NC $ -
Realized/Unrealized Gain/(Loss) on
Investments $ 26,517 -94.22% $ 458,825 P $ (2,447,546)
Depreciation $ (2,494,182) -35.23% $ (3,851,071) -11.24% $ (4,338,937)
OPERATING CHANGE IN NET ASSETS
(post-depreciation and post-
realized/unrealized gain/(loss) on $ 21,011,496 P $ (49,482,102) 416.21% $ (9,585,579)
liens; it is not yet clear what will be required regarding the Commission’s property interest in the facility. The Deleted: It appears that the Freedom Center is
in danger of not continuing is a going concern
Commission has a leasehold interest, which was required under the “old” Ohio Building Authority bonds.) unless federalization is realized or an
Under the federalization scenario, the U.S. Government would operate the museum commemorating the extraordinary set of
ending of chattel slavery in the United States. Deleted: sponsor
Deleted: ships or gifts are received. ¶
According to the Sponsor, if federalization takes place, the Freedom Center expects to receive
approximately $3M/year in federal operating revenues on a permanent basis, enabling the Freedom Center Deleted: Federalization
to generate operating surpluses starting at $1.15M for each twelve month period beginning with October 1, Deleted: sponsor
2011, the start of the next Federal fiscal year. According to the Sponsor, Senator Sherrod Brown supports
the legislation that was discussed in draft form in October of 2009, and the Freedom Center management is
hopeful that the legislation will be passed. The Sponsor anticipates “that the funds would be received in the Deleted: optimistic
[fourth] quarter of 2011, if [it is] successful in getting the language signed and passed prior to [September
30, 2011].”
Even if the effort to secure federalization is successful, there remains a challenge in meeting operating cash
flow needs until such time as the Federal funds are received. A review of the liquidity position calls into
question the ability of the Freedom Center to meet its obligations in the first quarter of 2011 and beyond.
Commission staff requested and reviewed a Sponsor-prepared cash flow schedules that starts in the fourth Deleted: a
quarter of 2010 and ends at the fourth quarter 2011 and another cash flow for fiscal year 2012. The cash
flows exclude federalization funds and assumes Commission funding of $850K and the return of the $462K Deleted: Federalization
escrow in February of 2011. Each cash flow indicates positive cash balances throughout 2011 and 2012 if Comment [kf3]: CB/TC verify
financial projections are met. Comment [kf4]: Need to update based upon new
cash flow and business plan
Comment [kf5]: This phrase may no longer be
relevant
Deleted: and
Deleted: until federalization is anticipated to
take place in October of 2011, at which time the
Freedom Center would possibly receive $3M in
federal funding.
Operating Revenues
Private Support
Board Support 750.0 880.0 900.0 950.0 Revenue ($000)
Individuals 303.0 305.0 308.0 311.0
Corporations 625.0 705.0 720.0 730.0 6,000.0
Trust/Foundations/Charities 650.0 948.0 963.0 973.0
MLK 38.9 20.0 20.0 125.0 5,000.0
IFCA, net 150.0
Total Private Support 1,159.3 3,083.8 2,366.9 3,008.0 2,911.0 3,089.0 4,000.0
Year-over-year change 166% -23% 27% -3% 6%
3,000.0 Total Earned Income
Government Total Government
Department of Education 275.0 50.0 200.0 150.0 2,000.0
Total Private Support
OCFC 850.0 0.0
City of Cincinnati 300.0 100.0 100.0 100.0 1,000.0
Total Government 1,182.4 744.4 1,425.0 150.0 300.0 250.0
Year-over-year change -37% 91% -89% 100% -17% 0.0
Earned Income
Admissions 595.0 600.0 619.0 631.0
Facility Rental 190.0 200.0 198.0 202.0
Retail 140.0 140.0 146.0 149.0
Membership 40.0 40.0 42.0 43.0 Expenses ($000)
Café 15.0 20.0 15.0 15.0
Total Earned Income 3,107.9 1,171.9 980.0 1,000.0 1,020.0 1,040.0 9,000.0
Year-over-year change -62% -16% 2% 2% 2%
8,000.0
In reviewing the projected cash flow, Commission staff notes that projected operating cash outflows are
significantly less than recent actual operating costs shown in the prior year audit and the YTD financial
statements. The projected decreases are due to cuts in fundraising and professional lobbying expenses. In
response to inquiries as to how projected fundraising cash inflows will be achieved when cutting fundraising
expenses, the Sponsor responded that they hired a new director of development, which should enable the Deleted: sponsor
Freedom Center to cut fundraising costs while achieving their fundraising goals. The Sponsor’s response
regarding the impact of cutting professional lobbying expenditures before federalization is secured was to
clarify that the lobbyist will not stop working, but will be working pro bono. Deleted: :
In order to achieve the positive cash balances anticipated in the projected cash flow, fundraising cash
inflows must continue to be realized at a level which has only recently been accomplished, as indicated by
the year to date financials, but which is substantially higher than years past. In evaluating the Freedom
Center’s ability to achieve the fundraising cash inflow, Commission staff notes the Freedom Center and new
director of development must contend with a challenging environment for fundraising, including an uncertain
economy, possible donor fatigue, and the effect the write down of the building may have on potential donor
enthusiasm. Also, the fundraising outlook may be influenced positively by certain factors including the effect
the debt settlement has on donor perspective as well as the prospect of federalization. Commission staff
In formulating its recommendation, the Commission staff observes that if federalization is not successful the Deleted: only one alternative is available to
Freedom Center must achieve elevated fundraising levels while further reducing payroll and other operating potentially enable fulfillment of the overall goal
that the Freedom Center facility continue to
costs. Because operating costs have been cut drastically in years past, theymay not realistically be cut operate
much further,.. Nationally-recognized bond council created an amortization schedule for the outstanding Deleted: Federalization
principal related to the Sponsor. It was included as an appendix in the Second Amendment to the Base
Deleted: Since
Lease dated July 1, 2008. According to this schedule, the dollar amount of outstanding bonds allocated to
the Freedom Center is $6.6M as of February 2011 out of an original balance of $14.7M. The outstanding Deleted: and
bonds will be paid off by the state over the next 9 years. The unamortized balance of the state bonds Deleted: can
decreases by approximately $1M a year for the next several years. Therefore, the states exposure Deleted: and because operating revenues
decreases rather substantially each of the next several years. These calculations do not include the $850K have historically been insufficient to cover costs,
it appears that the most promising alternative is
currently being considered for approval by the Commission. Commission staff evaluates the risk to the state federalization as contemplated by the Sponsor
as ‘high’ if the Sponsor were to stop operating in 2011 or 2012. Therefore, the alternative of not approving
Deleted: Commission staff calculated
the $850K in state funds or the $462K in escrow fund and thereby exacerbating a very difficult financial
position may lead to closure of the Freedom Center before federalization can be approved or the new Deleted: to be
business plan be implemented. Approval for the $850,000 and the $462,000 appears to be necessary to Deleted: 7.4
keeping the Freedom Center open while they continue to pursue federalization or the implementation of Deleted: October
their new business plan. Deleted: 2010
Deleted: 10
Because the state’s exposure regarding the unamortized amount of the bonds decreases substantially over
the next several years it behooves the Commission to enable the Freedom Center to continue operations. Deleted: sponsor
Accordingly, Commission staff recommends the approval of the $850K project and $462K escrow release. Deleted: Project
However, Commission staff recommends such an approval only conditionally in order to eliminate any Comment [jd6]: TC & KF to revisit on 1/10/11
additional risk. Commission staff recommends the Commission approve the Project contingent on execution Deleted: implementing
of a guaranty in an amount equal to the current appropriation of $850,000. John Pepper, a founding board
Comment [kf7]: Discuss w/ KF rewriting this
member of the Freedom Center and Chairman-emeritus of Proctor & Gamble, has agreed to sign the paragraph
guaranty. Such a guaranty would ensure the Commission is not placing the new state funds at risk; in
Comment [kf8]: CB/TC to redraft based upon
addition, this contingent approval reduces the state’s risk associated with state funds previously paid out new business plan CB to review 1/17/11.
because the Freedom Center will have time to continue to seek federalization or another long term
Deleted: Since
operating strategy. Should the Freedom Center cease operations before the unamortized amount of bonds
Deleted: the
decreases to zero the state would utilize its first lien position and sell the facility (recently written down to
$32M by the auditors) Comment [kf9]: Need to revisit in light of new
information just received.
The Commission holds approximately $460K in an escrow fund for a “management transition” in the event Comment [jd10]: TC & KF to revisit on 1/10/11
the Freedom Center is unable to continue to operate.. The Sponsor is requesting return of the $462K in Deleted: Commission staff also recommends
escrowed funds, in exchange for a guaranty, signed by John and Frances Pepper, in an equal amount. The the Commission require a business plan,
approved by the Freedom Center board, with
guaranty would be called in if the Freedom Center defaults under its legal agreements with the Commission fallback arrangements in the event the Sponsor-
and the guaranty funds would be used to pay costs of heating, cooling, insuring, and securing the building prepared cash projections prove infeasible.
until such time as another organization could be identified to operate the building as a cultural facility. Deleted: The escrowed funds would be used
Commission staff notes that return of the $462K in escrowed funds in exchange for a guaranty in an equal to pay costs of heating, cooling, insuring, and
amount places the Commission in a position equitable to the current position. securing the building until such time as another
organization could be identified to operate the
building as a cultural facility
Finally, noteworthy for the Commission’s deliberations regarding the Freedom Center, is the apparent
Federal requirement that the Facility be free of all liens in order for federalization to take place. As we
understand it, this criterion would require the Commission to release its property interest in the facility at the Deleted: first lien position on
point in time when the federal government takes ownership and commits to providing operating funds. The
Commission may be prohibited, by the bond documents pertaining to the bond money which funded the
original appropriations, from releasing its property interest in the facility. Therefore, Commission staff is
recommending the Sponsor be required to provide an opinion from nationally recognized bond counsel on
A review of the Sponsor’s solvency, liquidity, leverage, change in net assets and pro forma indicates it is
marginally likely the Sponsor will be able to operate the Facility and present culture to the public over a Deleted:
sustained period of time in accordance with Section 3383.07 of the ORC.
Although experienced in the provision of general building services at the Facility, the Sponsor has
marginal financial capacity to continue providing general building services at the Facility. In
anticipation of the Sponsor completing the proposed Facility transfer to the federal government,
Commission staff conditionally confirms the Sponsor continue to provide these services as permitted
by section 3383.07 of the ORC.
Appropriation History:
Appropriation Bill Appropriation G.A. Appropriation Comments
Name Number Date Amount
National Am. Sub. 6/24/2008 127 $850,000 Funding this project.
Underground H.B. 562
Railroad Freedom
Center
National Am. Sub. 12/28/2006 126 $2,000,000 Funded construction of the
Underground H.B. 699 freedom center.
Railroad Freedom
Center
NURFC H.B. 16 5/4/2005 126 $4,150,000 Funded construction of the
freedom center.
National H.B. 675 12/13/2002 124 $4,000,000 Funded construction of the
Underground freedom center.
Railroad Freedom
Center
Recommendation: The materials submitted by the Sponsor were reviewed and analyzed, and the
Commission chief financial analyst, chief project manager, and executive director recommend approval of
Resolution R-11-06, the approval of the Project and authorization of the expenditure of funds, subject to the
following conditions:
5) Provide evidence that the bank lien on the facility has been released.
Executive Director
Exhibits
□ A Provision of Culture
E Financial Statements