GSA Office of Real Property Utilization and Disposal 2016-2017 NHLPA Program Highlights Report National Historic Lighthouse Preservation Act 2016-2017 NHLPA Program Highlights Report Executive Summary Congress passed the National Historic Lighthouse Preservation Purpose of the Report Act (NHLPA) in 2000 to recognize the importance of lighthouses and light stations (collectively called “lights”) for maritime traffic. This report provides Coastal communities and not-for-profit organizations (non-profits) 1. An overview of the NHLPA; also appreciate the historical, cultural, recreational, and educational value of these iconic properties. 2. The roles and responsibilities of the three Federal partner agencies executing the program; Over time and for various reasons, the U.S. Coast Guard (USCG) may determine a light is excess property. Through the NHLPA, 3. Calendar Year1 2016 and 2017 highlights and historical Federal agencies; state and local governments; and non-profits disposal trends of the program; can obtain an excess historic light at no cost through stewardship 4. A discussion of reconciliation of changes from past reports; transfers. If suitable public stewards are not found for an excess light, the General Services Administration (GSA) will sell the light 5. A look back at lighthouses transferred in 2002, the first year in a public auction (i.e. a public sale). GSA transferred lights through the NHLPA program; and GSA includes covenants in the transfer documentation to protect 6. Case studies on various NHLPA activities in 2016 and 2017. and maintain the historic features of the lights. Many of these lights remain active aids-to-navigation (“ATONs”), and continue to guide maritime traffic under their new stewards, in coordination with the USCG. 2016-2017 NHLPA Highlights Since the NHLPA program’s inception in 2000, GSA has transferred 137 lights to eligible entities. Public bodies, including non-profits, received 58 percent (79 lights) through stewardship transfers, while 42 percent (58 lights) were conveyed through public sales, generating over $7 million. In 2016: GSA conveyed five lights through stewardship transfers and transferred eight lights through public sales. The transfer of eight lights through public sales set the record as the largest number transferred by auction in a single year since the program’s inception. Gravelly Shoal Lighthouse was successfully resold after the initial purchase defaulted in 2015. Butler Flats Light In 2017: GSA conveyed one light through stewardship transfer, and transferred seven lights through public sales. For More Information Before selling the Penfield Reef Light in Connecticut, Information about specific lights in the NHLPA program the USCG was able to conduct architectural and structural is available at the following websites: repairs. The USCG funded these repair costs using a National Parks Service Lighthouse Heritage Program: grant made possible through the 2013 Disaster Relief https://www.nps.gov/maritime/nhlpa/intro.htm Appropriations Act to historic and archaeological resources General Services Administration Real Property Sales: that were impacted by the Hurricane Sandy in 2012. www.realestatesales.gov 1Unless otherwise specified, all references to year refer to the calendar year (January through December), not fiscal year. ii 2016-2017 NHLPA Program Highlights Report Table of Contents Report Sections American Lighthouse Program History. 1 NHLPA Program Roles and Responsibilities. 2 Program Overview: Stewardship Transfers and Public Sales. 3 2016 & 2017 Program Accomplishments . 5 15 Years—a Look Back. 6 Michigan Transfers to Non-Profits. 9 Cultural Study: Duxbury Pier Light . 10 Cultural Study: White Shoal Light. 11 Photo Credits. 12 Appendices Appendix A: 2016 and 2017 Public Sales and Stewardship Transfers. 13 Appendix B: Light Stations Conveyed as of December 2017. 14 Figures and Tables Figure 1: NHLPA Timeline. 1 Figure 2: Federal Agency’s Roles and Responsibilities in the NHLPA Process . 2 Figure 3: Summary of Annual Conveyances (2002-2017). 3 Figure 4: Total Public Sales Proceeds (2002-2017) . 4 Figure 5: Total Stewardship Transfers and Public Sales by Grantee (2002-2017). 4 Table 1: 2016 & 2017 Notices of Availability and Expressions of Interest. 5 iii 2016-2017 NHLPA Program Highlights Report American Lighthouse Program History Lighthouses serve as critical aids to maritime traffic, ensuring Congress passed the NHLPA in 2000 due to the success of the safe transport of goods and people. Over a thousand the Maine Lighthouse Program. The NHLPA was designed to lighthouses have been constructed in the United States since facilitate the transfer of historic lighthouses that are no longer 1716, although several have since been destroyed by natural mission-critical to eligible public entities (including non-profit or man-made disasters. organizations) or private individuals. These parties agree to maintain and care for the lighthouses so that they remain From 1789 until 1910, the United States Lighthouse cultural beacons for the future. Establishment managed our nation’s lighthouses. In 1910, lighthouse stewardship was transferred to the Bureau of Figure 1: NHLPA Timeline Lighthouses under the Department of Commerce. In 1939, the Bureau of Lighthouses merged with the USCG. The USCG is still responsible for maintaining lighthouses under Federal ownership, and for ensuring that ATONs associated with the lights continue to operate. For various reasons, such as cost and advances in navigational automation, the USCG may determine that the Federal Government does not need to retain ownership of some of these properties and declare them excess. This excess property can then be transferred to a new steward. However, USCG may retain the right to access the property to maintain the ATON until it is decommissioned. In addition, to be eligible for transfer, the lighthouse must be defined as “historic” in accordance with the National Historic Preservation Act. Passed in 1966, the National Historic Preservation Act was intended to preserve historic and archeological sites in the United States. The term “historic” means that the property is listed in the National Register of Historic Places, or the Keeper of the National Register has formally determined the light is eligible for listing. Prior to the NHLPA, historic lights were transferred to state or local agencies through the National Park Service’s (NPS) Historic Surplus Property Program or the Federal Lands to Parks Program. GSA also conveyed historic lighthouses as historic monuments through the Federal Property and Administrative Services Act of 1949 (Property Act). However, non-profit organizations were not eligible to receive a light through these conveyance programs, even if the group had spent significant time and money to rehabilitate and maintain a historic light station through a lease with the Coast Guard. In a series of events in 1990, the Island Institute of Rockland, Maine approached the USCG about acquiring Heron Neck Light, with the goal of repairing and preserving the light. By 1994, the USCG worked with Maine to create an expedited program to transfer several lights in Maine to local communities. The Maine Lighthouse Program was used to successfully transfer 28 lights to new stewards in just 6 years. 1 2016-2017 NHLPA Program Highlights Report NHLPA Program Roles and Responsibilities GSA, USCG, and NPS work together to ensure that the Those parties can then inspect the property during a site Federal government identifies the best steward available for visit and send in completed applications. The USCG and a historic light. Figure 2 outlines the NHLPA process. Many NPS assess the applications on the merits of the preservation factors influence how a light is transferred, and the process and reuse plan, financial viability, and how well the applicant may vary for individual lights. is likely to manage the light. Initially, USCG identifies lights that are no longer needed for If there are no suitable applicants, NPS recommends the their mission purposes. Each year, the three partner agencies light for public sale. GSA will then schedule and hold a work together to develop a list of lights that will be transferred public auction for the light. through the NHLPA program. These lights are announced To ensure continued care and maintenance of the lights, through Notices of Availability (“NOAs”) on the GSA and NPS GSA includes specific covenants for historic preservation in websites. GSA’s regional staff also reach out to potentially all deeds to new stewards. Stewardship transfers to public interested parties via local lighthouse publications and entities also require the transferee to allow public access to newspapers. Eligible parties submit an Expression of Interest the light. The USCG will retain rights to access the lights and (“EOI”) and NPS sends the eligible parties an application to to maintain the active ATON, if applicable. apply for ownership of the light for public use purposes. Figure 2: Federal Agency’s Roles and Responsibilities in the NHLPA Process 2 2016-2017 NHLPA Program Highlights Report Program Overview: Stewardship Transfers and Public Sales The primary method of transferring lights to new stewards If no suitable applicant is identified through the application is through no-cost transfers to Federal, state, or local review process, GSA is authorized to sell a light through a governments, or to non-profits. Since Congress enacted public auction. Since Congress enacted NHLPA in 2000,