Garden Grove Civic Center Revitalization Project
Edgemoor Infrastructure & Real Estate
Delivered through a progressive design-build-finance (DBF) structure, the project is being completed in two phases: - Phase I includes a new 103,000-square-foot public safety facility and a four-level parking structure. - Phase II includes the demolition of the outdated public safety building and construction of a new 3.7-acre community park. Led by Edgemoor Infrastructure & Real Estate as developer, the project team includes Clark Construction as the design-builder, AC Martin as lead architect, and Roth Sheppard Architects providing law enforcement facility design expertise. Innovation in Procurement, Structure, Finance, and Delivery This project utilized a single-step progressive P3 procurement model, which enabled the City to select its partner quickly and move directly into predevelopment. Although no prior design work existed at selection, the progressive model allowed the Edgemoor team to work closely with the City to validate the program, advance design, structure project financing, negotiate commercial terms, and finalize the project budget under a predevelopment agreement. As a result, the project achieved commercial close just six months after selection, and project topping out just 18 months from selection—an exceptionally fast timeline for a public project of this scale and complexity and a testament to the efficiency of the progressive model. Following an in-depth analysis and review of multiple financing options, the Edgemoor team recommended utilizing a lease-leaseback structure using lease revenue bonds, which were issued by the Garden Grove Public Finance Authority. The bonds are repaid using sublease payments from the City, funded in part by revenues from a dedicated 1% local sales tax (Measure O), ensuring a sustainable revenue stream that minimizes the burden on taxpayers while maintaining fiscal responsibility. Craig Beck, the City’s Project Director, noted: “The Garden Grove Civic Center Revitalization project is a model example of the value of delivering public infrastructure projects using a P3 model. Two key outcome goals were identified: 1) a new public safety facility to serve the community today and as it grows in the future; and 2) a reimagined civic park that can support both daily use and activation for special events. Working with the Edgemoor/Clark team has allowed the City to deliver progress to date in half the time as compared to traditional procurement models. In eighteen months since project kick-off, the contract was negotiated, Phase I design completed, financing secured, construction started, to topping out the structure. With the current rate of progress, I anticipate exceeding the scheduled Certificate of Occupancy four months early. The public investment is continuing the renaissance to the civic area by leveraging private investment in food/retail and new housing planned for parcels adjacent to the new park. I continue to be impressed each week as I work with this team through the design and development process.” Effective Risk Assessment and Transfer A central risk to the City was timeline-related: the need to advance the project quickly enough to avoid potential complications from the November 2024 election cycle. Edgemoor’s leadership, buy-in and dedication from the City and Police Department, the integrated delivery model played a critical role in mitigating this risk. By coordinating all key parties from the outset—City staff, designers, builders, and financial advisors—the project moved from award to topping out in under 18 months, significantly ahead of the City’s already ambitious goals. Meeting and Exceeding Project Milestones The Garden Grove Civic Center Revitalization Project has demonstrated a commitment to meeting and exceeding project milestones. Despite beginning with no existing design in October 2023, the project achieved the following milestones: - Commercial close in April 2024 - Groundbreaking for Phase I in May 2024 - Financial close in June 2024 - Construction topping out in April 2025, six weeks ahead of schedule The swift achievement of these milestones is a rare feat for a project of this complexity and a testament to the team’s planning and relationships. By getting buy-in and commitment of resources from the City’s team and the Police Department upfront and fostering a highly collaborative environment, the Edgemoor team was able to move incredibly fast without sacrificing thoughtfulness or quality control. As Garden Grove Police Chief El-Farra noted: “The rate with which Edgemoor is achieving milestones for this critical public safety facility for the community is truly inspiring. Their team's work ethic has motivated all those involved in the project at every level. The P3 structure has provided a foundation of collaboration and a ‘one team’ mindset, which has enabled a high level of effectiveness and efficiency.” Completion of Phase I, which includes the public safety facility and structured parking, is targeted for summer 2026. Phase II, which involves demolition and construction of the new community park, is expected to be completed by fall 2027. Design Quality, Sustainability, and Environmental Measures While the project is under contract for LEED Silver certification, the team anticipates achieving LEED Gold due to enhanced sustainability measures. Sustainable design features are incorporated throughout the project, from energy-efficient systems in the new public safety building to the preservation and replacement of mature trees in the new Civic Center Park. One sustainability challenge in the early stages of the project was the removal of an existing pond. The team worked closely with the California Fish & Wildlife Department to ensure the safe relocation of animal species, mitigating environmental and community risk while maintaining the project schedule. Social Impact and Community Transformation This project addresses a long-standing need for a modern public safety facility in Garden Grove. The new public safety facility will provide a modern, secure, and welcoming environment for law enforcement personnel, enhancing their ability to serve and protect the community effectively. The consolidation of all core functions of the Garden Grove Police Department under one roof will streamline operations and improve efficiency. Further, the inclusion of a community room within the facility underscores GGPD’s commitment to building strong relationships with the public. Though the project required the removal of an existing park, the new Civic Center Park will be larger, more accessible, and better aligned with current community needs. The redesigned Civic Center Park will serve as a vibrant public space, offering residents and visitors a place for recreation, reflection, and community gatherings. The inclusion of a memorial grove and walking trail honors the community's history and provides a serene environment for all to enjoy. This transformation of the civic center into a hub of activity and engagement reflects the City's commitment to enhancing the quality of life for its residents. Throughout the project, the Edgemoor team has been committed to meaningful community engagement, becoming trusted partners in the community and delivering a project that reflects its aspirations. We have supported the community in various ways, including: - Participation in multiple City-hosted open houses and pop-up events to share project updates and collect feedback. - Hosting a small business outreach event to help local businesses register and prepare to bid. - Ongoing presence at City and community events, where the team provides updates, answers questions, and builds trust. - Giving back to the community, including holding a holiday toy drive and donating to the local Kiwanis club to support the renovation of their park pond. Conclusion The Garden Grove Civic Center Revitalization Project demonstrates how a developer-led, progressive P3 can effectively deliver critical civic infrastructure with speed, quality, and community alignment. Through innovative procurement, effective risk management, adherence to project milestones, commitment to design quality and sustainability, and a focus on social impact, the project stands as a model for future civic developments. Its transformative effect on the local community underscores the potential of P3 projects to deliver lasting benefits to the public.