The article is confusing. It starts out calling it a “city-owned building.” Then later it mentions the Scouts built the building on city-owned land. Did they build it and give it to the city?
It’s not confusing. Don’t build on land you don’t own, because you don’t get to keep the building if you do. If you rent, don’t improve the house, because the landlord gets to keep it and you don’t get reimbursed.