Agenda Item   



                                                                                                                        ASR Control  20-000619




legal entity taking action:

Board of Supervisors

board of supervisors district(s):


SUBMITTING Agency/Department:

John Wayne Airport   (Approved)

Department contact person(s):

Barry A. Rondinella (949) 252-5183 



Dave Pfeiffer (949) 252-5291



Subject:  Selection of Fixed Base Operators for Negotiation of Lease Terms


     ceo CONCUR

County Counsel Review

Clerk of the Board


No Legal Objection




3 Votes Board Majority




    Budgeted: N/A

Current Year Cost:  N/A

Annual Cost: N/A




    Staffing Impact:


# of Positions:           

Sole Source:   N/A

    Current Fiscal Year Revenue: N/A

  Funding Source:     N/A

County Audit in last 3 years: No



    Prior Board Action:         09/10/2019 #18, 06/25/2019 #45, 05/22/2018 #39, 03/13/2018 #S29D






Select one Full-Service Fixed Base Operator for the Northeast parcel, one Full-Service Fixed Base Operator for the Northwest parcel and one Limited-Service Fixed Base Operator for the Southwest parcel to negotiate lease terms and conditions.



Authorize the Airport Director or designee to negotiate lease terms and conditions, which are consistent with the environmental analysis certified in Final Program Environmental Impact Report 627, with selected Respondents for Fixed Base Operators at John Wayne Airport and return to the Board of Supervisors for approval of final leases. Should an agreement not be reached with the selected Respondents, return to the Board of Supervisors for selection of an alternate Respondent for negotiation.






Selection of full- and limited-service Fixed Based Operators will enhance service, safety, security and efficiency for general aviation services and activities at John Wayne Airport.








On March 13, 2018, the Board of Supervisors (Board) approved the traditional land lease financial development model lease for the General Aviation Improvement Plan to allow John Wayne Airport (JWA) to develop a self-sustaining General Aviation (GA) operation.  On March 29, 2018, JWA issued a Request for Qualifications for Full- and Limited-Service Fixed Base Operators (FBO) to qualify to participate in the FBO Request for Proposal (RFP) process to manage GA services at JWA. On May 22, 2018, the Board approved a slate of nine qualified Respondents (see table below).  


Request for Qualification Submittals

Full-Service FBO

Limited-Service FBO

ACI Jet, dba Aviation Consultants, Inc.



American Aircraft Maintenance, Inc.



Clay Lacy Aviation, Inc.



Jay’s Aircraft Maintenance, Inc.



Jet Aviation of America, Inc.



Newport FBO Two, LLC, dba Atlantic Aviation



Orange County Airport Aviation Partners, dba Million Air John Wayne



Ross Aviation Holdings, LLC



Signature Flight Support Corporation




On June 25, 2019, the Board certified Final Program Environmental Impact Report 627 (EIR 627) and approved the Proposed Project with certain specified land use requirements. On September 10, 2019, the Board authorized issuance of the RFP for FBOs for: Parcel (1) Northeast Full-Service FBO; Parcel (2) Northwest Full-Service FBO; and Parcel (3) Southwest Limited-Service FBO.


RFP Proposals and Scoring


The following nine proposals were received on December 19, 2019, in response to the RFP:







Limited-Service Southwest

ACI Jet, dba Aviation Consultants, Inc.




American Aircraft Maintenance, Inc.




Clay Lacy Aviation, Inc.




Jay’s Aircraft Maintenance, Inc.




Jet Aviation of America, Inc.




Newport FBO Two, LLC, dba Atlantic Aviation




Orange County Airport Aviation Partners, dba Million Air John Wayne





A separate Proposal was required for each parcel the Respondent was interested in proposing on in the RFP. Five panel members participated in the initial review and scoring of each of the proposals received on December 19, 2019.


On April 17, 2020, Addendum 16 (Addendum) was released for the purpose of seeking supplemental information from the Respondents. The Addendum was incorporated into the RFP and the resubmittal provided an opportunity for Respondents to demonstrate that their Proposals were in compliance with EIR 627, the Phasing Plan and the Stormwater Management Plan. The resubmittals in response to the Addendum were due on June 1, 2020.


The same five panel members reconvened to score the Addendum submittals received on June 1, 2020. In accordance with the Addendum, the panel was informed that supplemental information and/or revised Proposals not pertinent or responsive to the Addendum would not be considered or re-scored.


Panel Members Scoring Summary


The total points available per panel member for all categories was 100 points, or a maximum of 500 points from all five panel members per proposal. Detailed scoring sheets for each Respondent are provided in Attachment C. 


Financial Certifications


Due to the financial effects of the COVID-19 pandemic upon various business sectors, and at the request of the Airport Ad Hoc Committee, on July 7, 2020, JWA asked all Respondents to certify the following statement with respect to their Proposals submitted on December 19, 2019:


Any and all documentation submitted as part of Respondent’s Proposal demonstrating availability of financial resources and capacity to finance the proposed project, remains accurate and complete as of the date of this certification. 


All Respondents returned signed financial certifications by July 15, 2020, certifying that their signatory is an authorized representative for the Respondent, that they have sufficient knowledge of Respondents’ finances to make the certification and that the above statement is true and correct to the best of their knowledge.  


Lease Minimum Service Requirements


Respondents, should they be awarded a leasehold, will be required to provide the following minimum services through the lease:


Full-Service FBO:

·     Provide aviation fuel, engine oil and lubricants for sale to GA customers, as well as providing line services for support of fueling operations;

·     Manage hangar storage operations and tie-down facilities;

·     Provide aircraft repair and maintenance services;

·     Provide and manage transient parking;

·     Provide charter operations;

·     Manage fueling operations; and

·     Provide aircraft wash facilities.


Limited-Service FBO:

·     Manage hangar storage operations and tie-down facilities;

·     Provide and manage transient parking;

·     Provide light aircraft repair and maintenance services;

·     Provide an above-ground, self-contained, self-service fueling facility for avgas only; and

·     Provide aircraft wash facilities.


Respondents awarded the Northeast Full-Service FBO (Parcel 1) and Northwest Full-Service FBO (Parcel 2) will operate the existing fuel storage parcel. Both the Northeast and Northwest Full-Service FBOs are required to sell both Jet A and avgas fuel. The Limited-Service FBO is required to provide an above-ground, self-contained, self-service fueling facility for avgas only. 


The selected Respondents will be required to negotiate certain elements of their design, development and phasing plans for their specific FBO site locations. Each Respondent was required to demonstrate an ability to incorporate Envision Gold and CALGreen Tier 1 certification development into their projects.


Following the lease award to the successful Respondents, but prior to lease commencement, the County must receive all items required by the lease, including, but not limited to, the required security deposit and evidence of insurance.


Rent Calculation


Basic Rent shall consist of the Minimum Annual Rent and the Additional Rent. The “Minimum Annual Rent” is defined as the sum of Ground and Building Rent. In addition, Respondents agree to pay an amount equal to five percent of all Gross Receipts, as defined and set forth in each of the leases.


FBO Parcels

Approximate Parcel Area

Annual Ground Rent*

Approximate Building Area

Annual Building Rent*

Percentage Rent of

Gross Receipts**

Northeast Full-Service FBO

1,358,299 SF

$1.77 PSF

270,393 SF

$8.16 PSF


Northwest Full-Service FBO

  635,178 SF

$1.77 PSF

99,816 SF

$8.76 PSF


Southwest Limited-Service FBO

  558,313 SF

$1.25 PSF

15,014 SF

$2.53 PSF


* Annual Ground and Building Rents are based on appraised values.

**No percentage rent is payable to JWA on tie-downs, sunshades and T-hangars in small GA areas.


Acceptance of Existing Liability


The leased premises described in the RFP have been used for GA FBO purposes and related activities. The prior activities include aircraft tie-down areas, fuel storage parcels that include underground fuel storage tanks and underground oil and water separator/clarifiers. Historical assessments identify the presence of environmental constituents both on and off the leased premises associated with the FBOs.


As part of the terms and conditions of the leases, the selected Respondent firms will be required to agree and acknowledge that they may be subject to liability and costs associated with environmental conditions by entering into a proposed lease. Selected FBOs will be required to indemnify and hold the County harmless both during and after the proposed lease term for environmental conditions related to the leased premises and will be required to provide the County with environmental liability/pollution insurance coverage.


Land Use Requirements


Upon commencement of the demolition of existing facilities, to maintain safety, FBOs shall park aircraft on the leased premises in strict accordance with the uses depicted on Lease Exhibit C within Attachment D. During the lease negotiation phase, should a Respondent’s proposal be out of compliance based on Lease Exhibit C, the selected Respondent will be required to adjust their development plan to comply accordingly.  For purposes of interpreting Lease Exhibit C, the following definitions shall apply:



The green area marked as “SMALL GA” on Lease Exhibit C shall only be used for the parking of aircraft that meet at least one of the following criteria:



The aircraft has a wingspan of less than 49 feet in accordance with Federal Aviation Administration Airplane Design Group I (see Advisory Circular AC 150/5300-13A regarding Airport Design, updated September 28, 2012); or



The aircraft is a “small aircraft” with a maximum certificated takeoff weight of 12,500 pounds or less in accordance with Title 14 CFR § 1.1.



The yellow area marked as “MIXED USE” may be used for the parking of aircraft of any size.


Property Tax and Tax Revenue


Property tax, regular, special or utility assessments and all tax related to the Premises and the Proposal will be the sole responsibility of the Respondent. The Respondent is responsible for paying any Possessory Interest Tax that may become due for the land and improvements as fully set forth under the lease. Respondents were required to submit a projected 10-year tax revenue report to the County based on the estimated number and type of based aircraft at the FBO site locations. Each of the proposals were reviewed and scored specifically for this category and the points are reflected in Attachment C. 


Compliance with CEQA: The selection of Fixed Base Operators for negotiation of Lease terms is a necessarily included element of the project considered in Final EIR No. 627, certified by the Board on June 25, 2019, which adequately addressed the effects of this action. No substantial changes have been made in the project, no substantial changes have occurred in the circumstances under which the project is being undertaken and no new information of substantial importance to the project that was not known or could not have been known when the Final EIR No. 627 was certified has become known; therefore, no further environmental review is required. 






This is a non-financial agenda staff report.











Attachment A – Respondents’ Questionnaire Responses
Attachment B – Scoring Summary and Score Sheets
Attachment C – Fixed Base Operator Request for Proposals
Attachment D – Addendum 16
Attachment E – ACI Jet Renderings & Layouts
Attachment F – American Aircraft Renderings & Layouts
Attachment G – Atlantic Aviation Renderings & Layouts
Attachment H – Clay Lacy (east) Renderings & Layouts
Attachment I – Clay Lacy (west) Renderings & Layouts
Attachment J – Jay’s Aviation Renderings & Layouts
Attachment K – Jet Aviation Renderings & Layouts
Attachment L – Million Air (east) Renderings & Layouts
Attachment M – Million Air (west) Renderings & Layouts