Wyoming Territorial Prison Master Plan

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1 In 1981 a small group of local Laramie residents began discussions on the possibility of restoring the old Prison. In 1983 the Laramie Motel Association, searching for a way to boost tourism in the community to make up for the energy (oil & gas), bust approached the Laramie Area Chamber of Commerce and formed a special committee to examine the Prison as a potential historic site and tourist attraction. In November of 1984, the University s College of Agriculture held discussions with Laramie Area Chamber of Commerce, City of Laramie, and the Wyoming Recreation Commission on preliminary planning for the restoration of the Territorial Prison located on the University Stock Farm. The Committee for the Preservation of the Territorial Penitentiary, the appointed committee of the Laramie Area chamber of Commerce, received a $2,000 grant from the Wyoming Recreation Commission for the purpose of making a structural analysis of the building. This committee would eventually become the core of a not-for-profit corporation called the Wyoming Territorial Prison Corporation [WTPC]. Representative Matilda Hansen prepared Legislation for designation of the Territorial Prison and related buildings as the Wyoming Territorial Prison State Park and Historic Site. Created for the purpose of economic development and diversification through cultural heritage tourism. Representative Hansen, along with representatives of the Committee for the Preservation of the Territorial Penitentiary and the Laramie Area Chamber of Commerce, appeared before the Joint Senate Minerals, Business and Economic Development and House Committee and Business Interim committee and the tourism subcommittee of the Joint Travel, Recreation and Wildlife Interim Committee of the Legislature in Casper, WY on October 18, The proposed Legislation permitted the University Stock Farm to use the lands and facilities of the Wyoming Territorial Prison until replacement facilities are constructed The Wyoming Legislature shall appropriate necessary amounts from the general fund to the University of Wyoming for relocation of the University sheep, swine, animal nutrition and reproductive physiology programs and related support facilities presently on the lands described under this act to a suitable location on other lands owned by the University. An immediate need of the Committee for Preservation of the Territorial Penitentiary was access to the prison building in order to stabilize the structure and to prevent further deterioration. The stabilization work would be under the jurisdiction of the State Archives, Museums, and Historical Department. Furthermore, it was understood that no University funds would be involved in the project, and that the land and buildings would remain the property of the Trustees until such time as adequate replacement facilities for the swine, sheep, and animal nutrition and reproductive physiology programs of the College of Agriculture were funded and constructed. As part of the process, the WTPC was successful in helping secure funding for a new location for the University Stock Farm in 1988 Senate File 86. The Wyoming Territorial Prison Corporation was established on September 2, 1986 as a 501c (3) non-profit corporation. In 1986, the Legislature declared the site a State Park and Historical Site to be known as the Wyoming Territorial Prison State Park and Historical Site. Senate File 36, W.S

2 Additional legislation, in 1990, Senate File 139, W.S (b) transferred title to the lands to the Wyoming Recreation Commission to administer, operate and maintain the state park, excluding lands and buildings comprising the historic site as specified under W.S (e), as follows: Park development, operation and management shall be in accordance with the business plan specified under W.S (d) and the commission shall under lease agreement or contract management arrangement with a local public or private nonprofit entity, provide for park development, operations and management. Upon execution of the agreement or arrangement, the local public or provide nonprofit entity shall serve as the single management group for the park. Also, W.S ( c) authorized State Archives, Museums and Historical Department to administer, operate and maintain the historic site. State Government Reorganization combined the Wyoming Recreation Commission and State Archives, Museums and Historical Department into the Department of Commerce, and later to the Department of State Parks and Cultural Resources. In 1990 a quitclaim deed for the old Stock Farm was filed from the University of Wyoming, in consideration of $1.00 (one dollar) paid by State of Wyoming, Recreation Commission of Cheyenne, Wyoming. The WTPC was designated as the single management group for the Park/ Historic Site. A 99 year renewable lease agreement between the WTPC and Wyoming Department of Commerce was signed on October 31, Under the terms of the lease agreement, the WTPC was solely responsible for managing and financing the development and operation of the Historic Site with oversight provided by the Department of Commerce Parks and Cultural Resources Division. The WTPC also agreed not to receive any on-going funding support from the State. _ Funding History Wyoming Territorial Prison Corporation: 1986 Initial funding of $2,000 General fund appropriation for Attorney General to determine title of the lands. Chapter 112 declared specified lands to be Wyoming Territorial Prison State Park and Historic Site. Required Economic Development and Stabilization (EDS) Board to prepare a business plan for private operation of the Historic Site under contract with the State Initial funding of $3,050,000 for restoration of the Historic Site provided by 1% Albany County Capital Facilities Tax $25,000 General fund appropriation to the EDS Board to complete planning for development and operation of the Historic Site. Funds were to be matched by any money granted by the EDS board for preparation of the plan.

3 1989 Wyoming State Legislature added support in the form of a $10 million state loan through the City of Laramie Another $11.4 million was acquired through a 1% Capital Facilities Tax levied in Albany County. This funding provided the Wyoming Territorial Prison Corporation with $24.45 million in capital to develop a State Historic Site. Of the $24.45 million, $10.75 million was used to restore the building facilities, $3.68 million for water and sewer bonds, and $7.98 million for interest and debt repayment (state loan). Only $2.04 million of the original funding was used for continued operation and maintenance State Legislature appropriated $40,000 to help maintain the state-owned buildings $300,000 appropriation from Legislature for operation and maintenance $200,000 appropriation from Legislature for operation and maintenance $300,000 appropriation from Legislature for operation and maintenance. _ The Territorial and first State Penitentiary was originally set aside by the State of Wyoming to commemorate the significant role of law and justice in Wyoming. In 1987, the State Archives, Museums, and Historic Department staff assigned to oversee the Historic Site initiated a management and visitor use planning process. This was done in conjunction with WTPC, and with input from the general public in Laramie. The general management plan was intended to meet the administration and development objectives for the Historic Site. It provided in concise language a long-range strategy for site development, resource management, and visitor use. Finally, the plan offered general guidance toward attainment of management and use objectives for the Historic Site, but it by no means precluded any changes, which would be deemed prudent in the future. This plan was not adopted and another, more theme park related, plan was developed in 1988 leaving the Prison as a museum, but focusing on a recreational complex and theme based living history areas. In 1988 the WTPC worked with professional consultants, Woodbay Consulting Group, Ltd., to develop a master plan for the Historic Site, which outlined plans for a major western heritage theme park requiring over $50 million in capital development to fully complete. The needs identified were to design a resource that could sustain itself economically, satisfy the public s fascination with the old west and with legendary Laramie, provide historically accurate and quality experiences, and would further develop Wyoming s tourist industry by developing an attraction that would be a destination in addition to the State s National Parks. Colonial Williamsburg provided the model the Corporation hoped to emulate. The WTPC recognized that establishment of a western oriented theme park in conjunction with the Historic Site would enhance the economic base of Laramie and create a quality tourist attraction. The concept as envisaged included the restoration of the Wyoming Territorial State Prison as well as the establishment of a major 1860s-1900s theme park containing both active and passive attractions providing historically authentic educational and recreational experience. These theme areas were

4 to include Law and Justice Circle Plaza, U.S. Marshals Museum, Prison, restored broom factory, warden s house, carriage house and horse barn, outdoor amphitheater and festival field, recreated Wyoming old west town, Hotel/Saloon and Victorian Town Square, Opera house/theater, 1860s Railroad depot and train rides, living history sites (Plains Indian Camp, Mountain Man Trapper s Area, Mining exhibit, Military Post, Tie Hacking exhibit, End of Tracks tent community, and Frontier Ranch) Wild West Land (area with amusement park rides and entertainment) and Natural History area. Stagecoach rides and Dinosaur Dig activities. Live animal exhibits were to be integrated into the overall Historic Site. Although the WTPC initially asked the state legislature for a $40 million grant for the project, it eventually received a $10 million, 25-year loan at 6% interest. The WTPC then purchased $1.3 million in zero coupon bonds to secure repayment of the loan principal. In addition, the residents of Albany County contributed $14.45 million to the project through the passage of two (2) separate 1% capital facilities tax initiatives. The $600,000 annual interest payment for the state loan was paid by the WTPC from $5 million in designated funds from the % capital facilities tax. Restoration of the Historic Site began in 1989 and completed in 1991 at a cost over $5 million. The restoration of the prison and development of the Wyoming Territorial Prison took place under the terms of a Memorandum of Understanding (MOU) between WTPC and the Wyoming State Archives, Museums and Historical Department. The WTPC was only able to complete a portion of the proposed theme park [Park] project before it officially opened to the public on July 1, 1991 and succeeded in attracting 40,000 visitors during that first season May September. By 1994 a reality check in operation came about. The WTPC did not anticipate, or plan for, immediately operating at a profit, but when initial projections of attendance and revenues did not materialize they made some difficult, but necessary, budgetary adjustments in an effort to strengthen their financial position. Initial changes resulted in a 81% reduction of WTPC s operating deficit from $1,068,581 in 1991 to $900,000 in The WTPC supplemental funding from the % capital facilities sales tax covered the Historic Site s projected deficits until Supplemental revenues from fundraising, endowment interest, and lease fees from on-site commercial business efforts anticipated a balanced budget by WTPC s top priority in its long range plans was the achievement of financial stability. Staffing costs were an area of real concern. The organizational management structure of the WTPC underwent several changes since the Park s inception. Originally, in 1991, the WTPC employed 14 permanent and 140 seasonal staff. In 1992, the theme park increased its permanent staff to 26 and decreased its seasonal staff to 103. In 1993 staffing levels were reduced to 14 permanent and 85 seasonal positions and more emphasis was placed on the utilization of volunteers. In 1994 reduced staffing further to 13 permanent employees and 60 seasonal positions. In 1998 the 13 permanent staff was reduced to 8 permanent employees. The 8 employees were reduced to 4 permanent employees in July 1995 the WTPC developed a strategic plan to become self-sufficient. The revised plan focused on commercial development area along Interstate 80 and McCue Street on about 43 acres. Land would be leased to businesses, since the Park was located on state land which cannot

5 be sold. Without complete development of the land platted for commercial use by 2002, the Park would not have the necessary funds to remain open. The Wyoming Territorial Park Foundation (WTPF) was incorporated on September 1, 1995, as a 501c(3) non-profit corporation. Its mission was to enhance public awareness, provide support and services by soliciting, receiving and managing private and public donations, grant and sponsorships to fund the operation, and to develop and expand the Park and its programs. In 1996 WTPC changed the name of the Wyoming Territorial Prison State Park and Historic Site to Wyoming Territorial Prison & Old West Park. This was done in hopes of attracting new audiences to visit the Park thus increasing visitation revenue. On August 5, 1996, the WTPF established the Wyoming Territorial Park Foundation Living Legacy Endowment Fund with the Wyoming Community Foundation, Inc. All individual gifts, brick sales, and event income were deposited in the Community Foundation. Approximately 50% of the gifts were for undesignated use while the remainder was designated for use in the theater, prison, warden s house, ranchland and broom factory. The largest project to raise money was from a Kresge grant with the Community Foundation from April 1, 2002 to January 1, The WTPF raised $375,000 that was combined with the Kresge grant for a total of $500,000. Despite successful fund raising efforts by the WTPF, financial self-sufficiency was a constant problem for the WTPC. In 1995 the Park found itself facing a potential shortfall in operations and maintenance (O&M) funding. WTPC ask Albany County citizens to allow the Park to use the interest or excess funds from the capital facilities taxes for O&M. Approved WTPC received $1, from the % Capital Facilities Tax (escrow surplus and over collections) and this was used to support Park operations for the next 4 years. WTPC obtained a loan from a conglomerate of local banks to carry it until the Park actually received the over collections and surplus funds. There was a delay in receiving the money so WTPC borrowed again based on the collections of this money. At the end of 1998, the Park received the last of the monies from the capital facilities tax. After paying off the two loans which enabled the Park to operate during that intermediate time period, the Park had approximately $1 million at the end of 1998 to operate at current budget until In order to continue operation of the Park the WTPC appealed to the State Legislature for financial assistance. In 2001, 2002, and 2003 the Legislature appropriated funds to continue Park operations. In 2003 Legislature also informed WTPC they would decline any further requests. Consequently, the WTPC and the WTPF began serious discussions for continuing the operation of the Park. The financial obligations of the WTPC were assumed by the WTPF through a loan from the First National Bank in Laramie. Endowment funds were used as security. Interest from the endowment was used for repayment of the loan. In November 2003 the WTPC Board approached the State and began a serious discussion regarding a new direction for the Park. Operations of the Park without continual legislative appropriations clearly presented a picture of a Park that would be marginally financially successful. On December 4, 2003 the WTPC Board met with State Legislators and Wyoming State Parks and Cultural Resources [SPCR] representative. As a result, proposal for the State to

6 assume management of the Historic Site was made to the Legislature in the form of Senate File No. 41 during the 2004 s legislative session. The bill passed. By March 31, 2004 all employees of the WTPC were terminated. On April 1, 2004, SPCR assumed operation of the Historic Site. In May 2004, the State and the WTPC signed a termination agreement concerning property rights on the Historic Site. In June 2004, the WTPC and the WTPF board members elected a transition Board from their members to create the Wyoming Territorial Park Historic Association (WTPHA). A contract between the WTPHA and the State was agreed upon for June 1, 2004 to May 31, In October 2005 officers and board members were elected for the WTPHA, this was the beginning of a new Association under its revised by-laws. Development at the Historic Site during the WTPC s management ( ) period included the removal of many outbuildings and structures remaining from the Stock Farm era that were in poor condition or unsuitable for a theme park only leaving the Prison, Broom Factory, Horse Barn, Warden s Quarters, Boxcar House, Duplex Building and Judging Pavilion. Construction of a frontier town facade main street consisting of 7 buildings, construction of 1920s barn, 1920s historic church, outside stage and benches, two modular toilet facilities, five modular office buildings, a fast food service area, a running and bike path along the Laramie River (maintained by the City of Laramie), and a kitchen added to the original 1910 horse barn, with the second floor of which had been modified into a theatre. Also in 1997 a collection of historic log ranch buildings were donated from the Chimney Rock Ranch on the Wyoming/Colorado border. Ranchland was created with homesteader s cabin, school house, and single-hole outhouse. Farming equipment was added and in 1998 a new chicken house was constructed and a twoseater outhouse was donated. Visitation Data Estimate 3,766, no actual data reported however $3, in admission income was reported for 2003 at $10.00/per person, resulting in visitation of 3, Estimate 11,213, no actual data reported however $134, in admission income was reported for 2002 at $12.00/per person, resulting in visitation of 11, Estimate 13,932, no actual data reported however $167, in admission income was reported for 2001 at $12.00/per person results in visitation of 13, Estimate 48,116, no data except notation decrease of approximately 4% from Estimate 50,121, no data except notation increased approximately 3,000 visitors from Estimate 47,321, no data except notation decrease of approximately 11% from New admissions policy - Free admission was eliminated and a $2.00 per person gate fee was established. Museum admission fees stayed the same.

7 ,170 (combination of free and paid admissions. Free admissions up and paid very low) ,309 (combination of free and paid admissions) 23% from Wyoming (with 57% of that total from Laramie) and 77% from out-of-state. Name was changed to Wyoming Territorial Prison & Old West Park in Operating dates changed to May 11 September 29 daily, from 10:00 am 6:00 pm. Admissions policy was changed to allow all visitors free access to the Park, related activities, and events. Admission fees for touring the museums were lowered ,107 19% Wyoming and 81% Out-of-State ,020 18% Local/Laramie and 82% Out-of-State Admissions policy changed to $7.50 per person. Operating dates changed to May 7-September 30, 9:30 am 5:30 pm daily. Off-season moved to October April, Monday-Friday ,304 20% Local/Laramie and 80% Out-of-State ,530 35% Local/Laramie and 65% Out-of-State ,858 55% Local/Laramie and 45% Out-of-State