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Leon County
Board of County Commissioners Cover Sheet for Agenda #16 February 10, 2026 |
| To: | Honorable Chairman and Members of the Board |
| From: | Vincent S. Long, County Administrator |
| Title: | Fairgrounds Beautification and Improvement Project Update with Board Direction on Lease Renegotiation |
| Review and Approval: | Vincent S. Long, County Administrator |
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Department/Division Review and Approval: |
Ken Morris, Assistant County Administrator Nawfal Ezzagaghi, Assistant County Administrator Artie White, Director, Planning, Land Management & Community Enhancement (PLACE) |
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Lead Staff/ Project Team: |
Autumn Calder, Director, Blueprint Michael Alfano, Director, Planning |
Statement of Issue:
As requested by the Board, this item outlines the Blueprint Fairgrounds Beautification and Improvements Project and recommends revised lease terms to be renegotiated with the North Florida Fair Association, Inc. (NFFA) to effectuate the construction of the project and clarify roles and responsibilities to realize the highest potential long term community benefit of this County-owned property.
Fiscal Impact:
This item has no fiscal impact. Phase 1 of the Fairgrounds Beautification and Improvement Project is funded through the Blueprint program at $30 million. Future phases, as described in this item, are currently unfunded.
Staff Recommendation:
Option #1: Direct staff to proceed with lease negotiations, as described in the analysis section.
Report and Discussion
Background:
As requested by the Board at its September 15, 2025 meeting, this item outlines the Fairgrounds Beautification and Improvements Blueprint Project (Phase 1) and recommends revised lease terms to be renegotiated with the North Florida Fair Association, Inc. (NFFA) to effectuate the construction of the project and clarify roles and responsibilities to realize the highest potential long term community benefit of this County-owned property.
Renegotiating the existing Fairgrounds lease between the County and the NFFA is necessary to effectuate the construction of the project and clarify roles and responsibilities of the entities throughout the term of the renegotiated lease. Upon Board direction, the results of the lease negotiations will be brought back to the Board prior to the project proceeding to final design and construction.
This item also provides a history of the Fairgrounds, summarizes prior County evaluations and studies for its redevelopment, as well as provides an overview of the Blueprint Fairgrounds Beautification and Improvement Project (Phase 1) and the broader vision for redevelopment and transformation of the site reflected in Blueprint’s Fairgrounds Master Plan. In addition, this item summarizes state laws regulating fair associations and outlines the current lease framework with the NFFA and the limitations the existing lease structure places on Blueprint to implement the approved $30 million project or to guide future redevelopment of the Fairgrounds Master Plan after the initial Blueprint investment.
This item advances the following FY 2022 – FY 2026 Strategic Initiative:
This Strategic Initiative aligns with the Board’s Economy Strategic Priorities:
While there has long been a desire to see the Fairgrounds site redeveloped and transformed to maximize its public benefit as further discussed in this item, market conditions, financial constraints, and the existing lease structure have historically limited the County’s ability to advance that vision. Under the current lease agreement between the County and the NFFA, the County’s responsibilities are limited and its ability to terminate or modify the lease prior to December 31, 2067, is narrowly constrained. As such, any changes to the current lease to effectuate the Fairgrounds Blueprint project and masterplan must be agreed to by the NFFA in a renegotiated lease.
This item presents proposed terms for a renegotiated lease with NFFA (discussed in detail within the Analysis section below) to effectuate the construction of the project and clarify roles and responsibilities to realize the highest potential long term community benefit of this County-owned property. Phase 1 consists of the $30 million approved and budgeted Blueprint Fairgrounds Beautification and Improvements Project that will allow NFFA to conduct its Fair operations and related activities. These proposed updates to the lease are also intended to address specific provisions related to delineating site boundaries and property control between the County and the NFFA; establishing construction authority; and defining operational responsibilities needed to support implementation of Phase 1, while enabling the County to pursue future redevelopment of the outparcels which is key to future public and private investment and transformation of the site over the long term.
To provide context for the existing lease structure and the considerations associated with its potential modification, the following summarizes the historical development of the Fairgrounds site, the origins of the NFFA, and the basis for the County’s ownership and lease relationship with the NFFA.
History of the Fair Association, Lease Agreement, and Fairgrounds Site
The NFFA was established in 1941, originally as the Leon County Fair Association, pursuant to Florida Statutes, for the purpose of conducting and operating an annual public fair. At the time, the Association’s membership (although not mandated by Statute or the NFFA’s bylaws) included County Commissioners and County staff, reflecting some common representation between the two entities.
In 1954, the NFFA conveyed a 142-acre Fairgrounds property to Leon County at no cost, purportedly to prevent the land from being sold for private use by a future NFFA board. This conveyance preserved the Fairgrounds as a public asset under County ownership while allowing the NFFA to continue operating the annual fair. Following this conveyance, the Fairgrounds operated without a formal lease until a written lease framework was adopted in 1959. That framework retained County ownership while authorizing the NFFA to operate the annual fair and preserving County authority over land disposition.
Under the 1959 lease framework, the County had the authority to release portions of the leased premises so long as the purpose of the lease was not defeated and the NFFA could still conduct its annual fair. The County exercised its retained authority in the early 1960s to support additional public uses on the Fairgrounds property. In 1961, land was removed from the leased premises to construct Capital Stadium (now Gene Cox Stadium) in response to the need for a centrally located athletic facility to serve Leon High School, Rickards High School, and the then-planned Godby High School. And again in 1962, an additional portion of the property was released from the lease to establish the Leon County Cooperative Extension Office, supporting agricultural education and youth programs. This site now also serves as the Leon County Office of Human Services and Community Partnerships. Collectively, these actions reduced the acreage used for fair operations to approximately 107 acres by the mid-1960s, a configuration that largely remains in place today.
Throughout this era, the Fairgrounds continued to function primarily as a seasonal and agricultural venue, with no County-led redevelopment initiatives or expectations of year-round activation. During this time, there was a measure of shared experience between the NFFA Board and the County Commission, with some commissioners serving on the NFFA Board during their tenure on the County Commission. The County’s authority to release land from the lease was exercised within this context.
Over time, lease amendments incrementally expanded the NFFA’s operational autonomy and narrowed the County’s authority. A 1969 lease amendment eliminated the County’s unilateral ability to release portions of the Fairgrounds from the lease, marking a significant shift in the governance and control framework. Subsequent amendments in the 1970s eliminated termination without cause and extended the lease term, reinforcing long-term stability for fair operations. These amendments occurred while NFFA Board membership included members of the County Commission and senior staff and reflected an emphasis on fair operational continuity rather than future redevelopment of the site.
In the 1980s, additional portions of the Fairgrounds property were made available for public use through separate agreements. In 1982, an approximately 20.1-acre area abutting Tram Road was authorized for use by the City of Tallahassee as Capital Park pursuant to an agreement between the City and the NFFA (Note: This area continues to serve as a City recreational facility and is currently maintained by the City pursuant to the May 2005 Parks and Recreation Agreement, as amended in February 2008). In 1989, the County entered into a separate joint-use arrangement to support stadium operations at the adjacent Gene Cox Stadium, and a 9.1-acre parking area abutting the stadium was authorized for use by Leon County Schools pursuant to a Joint Use Agreement with the NFFA.
In 1995, the County and the NFFA executed a new long-term lease extending the term through December 31, 2067. Like the prior leases, the 1995 lease was adopted without establishing any formal role for County Commissioners in NFFA governance. Similarly, although Florida law allows the NFFA to have ex-officio membership, the NFFA has never made provision for such membership. It should be noted, however, that although the lease did not formally establish County Commissioner involvement in NFFA governance, Commissioner Jane Sauls served on both the County Commission and the NFFA Board of Directors. Overall, the relationship remained defined primarily by the lease terms and the parties’ contractual roles. The lease granted the NFFA exclusive possession and broad authority over approximately 107 acres, while limiting the County’s role primarily to ownership of the property, insurance of improvements, and maintenance of paved areas. The current lease is included as Attachment #1. Key provisions of the current lease include:
Following execution of the 1995 lease, additional portions of the Fairgrounds property were utilized for public purposes through separate agreements. In September 1999, a 5.2-acre area abutting Tram Road was authorized for use as the Sheriff’s Mounted Patrol Facility and the County’s livestock impoundment area pursuant to a Joint Use Agreement with the NFFA (Note: This use has since ceased, and the agreement is no longer in effect).
In 2008, the County conveyed a recreational trail easement along the eastern boundary of the Fairgrounds property pursuant to Board Resolution 08-19. The easement encompasses approximately 2.6 acres, 2.28 acres of which lie within the leased premises, and supports a recreational trail maintained by the City of Tallahassee.
Although the original lease and its subsequent amendments are no longer in effect, they provide important context for understanding how the County’s contractual relationship with the NFFA evolved over time. Attachment #2 summarizes the major provisions of the lease agreement in its original 1959 form and outlines how the lease changed through subsequent amendments, concluding with a summary of the lease as last amended in 1995.
Under the framework created by the current lease and related use agreements, the County’s responsibilities are limited, and its ability to terminate or modify the lease is narrowly constrained. Absent the occurrence of a termination event and the failure of the NFFA to timely provide a cure, the County does not have the legal grounds to terminate the lease agreement. As the County and the NFFA agreed to the terms of the existing lease, the NFFA must agree to any proposal by the County to modify or terminate the lease, including new terms to allow Blueprint to implement the Fairgrounds Master Plan or any action that would relocate the annual fair.
Current NFFA Governance
While the County owns the Fairgrounds property and leases it to the NFFA, the association exists and operates entirely separate and apart from the County pursuant to Chapter 616, F.S., and under the governance of the rules promulgated by the Florida Department of Agriculture and Consumer Services (FDACS). Under Chapter 616, a fair association is a not for profit incorporated for the purpose of conducting and operating public fairs or expositions.
The NFFA, as reflected in its charter and bylaws (Attachment #3), is governed by a 15-member Board of Directors, with two-thirds of the Board required to be Leon County residents. The Directors serve staggered terms and are chosen at the NFFA’s annual meeting by a simple majority of the present members and each Director holds office for a three (3) year term.
The NFFA hired a new General Manager who assumed the role in August 2025 following the retirement of their predecessor who had served since 2005. In 2025, the NFFA Board also experienced a significant transition in membership. Specifically, in late 2025, five NFFA Board members, including the President of the Board at that time, resigned. The Board member resignations followed a disagreement over an expensive retirement gift for the prior General Manager that was paid for by NFFA funds and vendor donations. Presently, the NFFA Board has 11 members. According to the NFFA, the remaining four vacancies will be filled next month (March 2026).
NFFA Finances and Fairgrounds Property Utilization
Each year, the NFFA prepares a financial statement, and an independent audit is performed. The annual fair is the main source of revenue for the NFFA, and the facility rentals and investments provide additional funds. According to the most recent statement available, included as Attachment #4 (calendar year 2023), the NFFA has a strong cash and investment position ($2,042,499 and $624,631, respectively) relative to its income and has very little in the way of liabilities (no debt). The NFFA received a clean audit with no items under emphasis for its most recent fiscal year available (calendar year 2023), with the audit completed in July 2024 (most recent audit available). Although there is only one year of operations available in the statements, it appears that NFFA has been consistently profitable over a number of years to achieve the current cash balance (FY23 change in net assets or addition to cash was $423,584 and total cash/investments is $2,667,130). In 2023, the annual fair brought in over $1.5 million, and the facility rentals and investment brought in over $500,000. As there were no major building or infrastructure expenses in 2023, the largest expense was salaries at approximately $600,000. In 2024, the NFFA reported six full time, permanent employees and approximately 100 seasonal employees brought in during the annual fair.
Fairgrounds in Florida vary widely from very large-scale entertainment venues such as the Florida State Fairgrounds in Tampa, to much smaller county specific and primarily agricultural venues. The North Florida Fairgrounds serves several counties and is therefore considered a regional fairground, which serves as the site for the annual fair along with other exhibitions and events scheduled throughout the year. For example, in 2025, events included the North Florida Gun and Knife Show, Market Days, 850 Sports Card Show, and the American Vintage Markets. Recurring annual events typically include boat shows, hot tub and spa expos, model railroad shows, exotic bird fairs, dog competitions, rodeos, and community support events such as food drives.
The NFFA’s onsite facilities include nine exhibition or storage buildings, three restrooms, one cattle barn, 12 concession and information booths, and office and maintenance buildings. The Fairground’s climate-controlled indoor space totals 24,000 square feet, with nearly 90,000 square feet of other covered space available, along with a 24,000 square foot cattle barn. There is an RV area on the eastern and southern sides of the site.
Facilities and infrastructure, much of which was constructed in the 1950s, have received only modest reinvestment, resulting in aging buildings and systems that are limited in supporting expanded or modern uses. In 2022, Blueprint completed an extensive site analysis, including a Building Envelope and Roof Assessment and an Existing Conditions Assessment, included as Attachment #5. This report identified widespread natural wear across many buildings. Exterior walls, roofs, and roof systems require varying levels of repair to extend their useful life. Mechanical and electrical components—including HVAC units, water heaters, and electrical panels—need replacement in multiple locations. The RV area requires substantial layout and utility upgrades, including installation of a sewer line and a Department of Health–certified dump station. Restroom facilities have roof systems nearing end of life, with rust and corrosion present around unsealed areas. In response to these conditions, and a desire to see expanded activation and investment on the site, the County has pursued a series of market feasibility studies over time to evaluate potential uses and long-term opportunities for the property, which ultimately led to the current Blueprint Fairgrounds Beautification and Improvements Project.
Evaluations and Studies for the Redevelopment and Transformation of the Fairgrounds
The Leon County Board of County Commissioners has long expressed a desire to improve the Fairgrounds site and for improvements to serve as a catalyst for broader investment and redevelopment on the Southside. In 2002 and reaffirmed in 2005, the NFFA expressed a willingness to cooperate to allow the County to redevelop the Fairgrounds and move the NFFA to another location so long as the NFFA remained whole (Attachment #6). To explore such possibilities, the County Commission and later the IA Board have directed multiple studies to evaluate market conditions and the feasibility of different redevelopment scenarios. Below is a summary of findings from previous major studies:
Blueprint Beautification and Improvements to the Fairgrounds
On December 9, 2021, the IA Board accepted the 2021 North Florida Fairgrounds Market Feasibility Assessment and Alternative Site Analysis Report and directed Blueprint to initiate a Master Plan for the Beautification and Improvements to the Fairgrounds project. The Master Plan, a long-range planning effort, was developed to identify future redevelopment opportunities for the 107-acre site with the goal of realizing the property’s potential as a community asset, while creating a framework for future projects and enhancements. The master planning process incorporated site planning analysis and public engagement and considered opportunities to maximize the benefits of existing uses, identify new investment opportunities, and complement nearby community attractions such as Gene Cox Stadium and Capital Park.
On May 11, 2023, the IA Board accepted a status update on the Fairgrounds Master Plan process, provided direction on top-ranked priorities and amenities, and discussed concepts including a multipurpose building and sports complex. Significantly, the NFFA Board and the IA Board were engaged throughout the master planning process. In addition, other stakeholders included 14 neighborhoods located in proximity to the Fairgrounds property, ULI Capital Region Board Members, representatives from City Parks and Recreation, Leon County Schools, Visit Tallahassee, County and City Housing Departments, the Office of Economic Vitality, the Greater Tallahassee Chamber of Commerce, the Big Bend Minority Chamber of Commerce, and the Capital City Chamber of Commerce.
During development of the Master Plan, initial cost estimates for the prioritized improvements exceeded the project’s original $12 million allocation. To align available funding with the identified priorities, the IA Board approved the FY 2024–2028 Capital Improvement Plan on September 26, 2023, which increased the project allocation to $30 million.
At its meeting on February 29, 2024, the IA Board approved the Master Plan for Beautification and Improvements to the Fairgrounds and directed Blueprint to initiate design for Phase 1 using the $30 million allocated to the project. Phase 1 focuses on essential upgrades—including utilities, stormwater, restrooms, facility renovations, provision for the redevelopment of the property frontage and a future sports core, and overall site beautification—to establish a reliable foundation for future improvements, as illustrated in Attachment #10.
In addition to enhancing existing activities and supporting current operations at the Fairgrounds, the improvements funded through this $30 million investment will prepare the site for future development. Infrastructure elements such as site preparation and grading, utilities, and stormwater management will create a ‘pad-ready’ site - reducing future construction costs and timelines while ensuring long-term flexibility for growth. Throughout the development of the Fairgrounds Master Plan, Blueprint maintained consistent and proactive communication with the NFFA representatives, and regular updates were provided, including to the full NFFA Board at five meetings between 2021 – 2024. After the IA Board approved the Fairgrounds Master Plan, Blueprint staff continued to have an open dialogue with NFFA representatives and County staff participated in several of these meetings. Nevertheless, the NFFA has yet to formally agree to the Fairgrounds Master Plan to allow implementation thereof. This coordination is ongoing and is described in the Analysis section of this item.
The Fairgrounds Master Plan provides a long-term, phased vision for the Fairgrounds property. Phase 1 includes a $30 million investment in Blueprint funding to support beautification efforts and install critical infrastructure, while Phase 2 is currently unfunded. The Phase 1 improvements include:
Because implementation of these sitewide upgrades requires construction and development authority the County does not currently possess under the existing lease, Phase 1 of Blueprint’s Fairgrounds Master Plan cannot proceed without the NFFA’s consent. The proposed lease terms, discussed in the Analysis section below, will provide the County authority to implement Phase 1 of the project while maintaining NFFA’s ability to continue its Fair operations and related activities.
The subsequent phase, currently unfunded, envisions a broader redevelopment of the site, including expanded recreational amenities, mixed-use opportunities, and the creation of a regional sports and events complex, as shown in Attachment #11. As a part of the master planning process, Blueprint completed a Multipurpose Sports Facility Study in 2024 (Attachment #12), which examined the market feasibility of a multipurpose facility at the Fairgrounds, and concluded that the recommended Sports and Events Model can support a financially sustainable regional sports and events complex at the Fairgrounds, with the potential to generate significant economic impact.
The 2024 estimated cost for the complete implementation (Phases 1 and 2) of the long-term vision illustrated in the Master Plan is approximately $116 million (an unfunded $86 million, in addition to the currently allocated $30 million). The later phase depends on the successful completion of Phase 1 and is intended to transition the Fairgrounds from a primarily seasonal venue into a fully activated, year-round public asset. However, as noted in an earlier section of this item, while $30 million has been allocated for Phase 1, no additional Blueprint funds exist to cover the $86 million future Phase cost. Additional funding strategies and mechanisms to incrementally implement the long-term vision, such as public-private partnerships, legislative appropriations, grants, special taxing districts, incentives, and selling portions of the property for private development would have to be considered over time and would be subject to pending lease negotiations related to the County’s control of the site.
As previously mentioned, funding for the Fairgrounds Master Plan beyond Phase 1 remains unfunded. As identified during the FY 2026 budget process, the County’s finances are expected to be significantly constrained by continued property tax reform efforts and the ongoing need to support current service delivery and maintain existing capital assets, including approximately 2.3 million square feet of County facilities and over 5,700 acres of County property.
Analysis:
Renegotiating the existing Fairgrounds lease between the County and the NFFA is necessary to effectuate the construction of Phase 1 of the Blueprint Fairgrounds Beautification and Improvements Project and to clarify roles and responsibilities of the entities throughout the term of a renegotiated lease. Upon Board direction, the results of the lease negotiations will be brought back to the Board prior to the Blueprint project proceeding to final design and construction.
After significant collaboration and engagement with the NFFA Board throughout the conceptual design process, the IA Board approved Fairgrounds Master Plan, Attachment #13, on February 29, 2024. This concept diagram reflects how the site would be organized to support both existing uses and future opportunities and is integral to the negotiations. The diagram was presented to the NFFA Board on September 18, 2025. Although this plan has yet to receive approval by the NFFA, as explained during the presentation, the conceptual diagram will continue to guide the project and may be refined, as necessary. A status update on the project was provided to the IA Board at their November 6, 2025, meeting.
To effectuate the construction of the project, support the continuity of NFFA’s fair operations, and to clarify roles and responsibilities to realize the highest potential long term community benefit of this County-owned property, staff is seeking Board approval of the following lease terms and provisions to be renegotiated with NFFA and reflected in a revised lease:
Should the Board wish for a larger restructuring of the lease to transfer all legal ownership, site control and governing authority to the County and limit the NFFA’s role to an advisory board, this too would require NFFA approval or a legislative change to Chapter 616, F.S.
An agenda item will be brought to the Board within the next 60 days with the results of the lease renegotiations and to seek any further Board direction.
Options:
Recommendation:
Option #1.
Attachments: