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Brownfields
Action Agenda
BACKGROUND
JD
JL V estoring contaminated property
can help bring life and strength to a
community. Making a once toxic area
viable again means more jobs, an
enhanced tax base and a sense of
optimism about the future. EPA's
Brownfields Initiative will make it easier
for such sites to be redeveloped and
become vital, functioning parts of their
communities.
Brownfields are abandoned, idled or
under-used industrial and commercial
facilities where expansion or redevelop-
ment is complicated by real or per-
ceived environmental contamination.
Frequently, these properties, once the
source of jobs and economic benefits to
the entire community, lie abandoned for
fear of the contamination and the
liability it implies. Instead, companies
pass over these brownfields in the
urban core and head for the pristine
greenfields outside the cities.
EPA announced its Brownfields Action
Agenda in January, 1995. The Action
Agenda outlined four key areas of
An abandoned, idled or under-
used industrial site
action for returning brownfields to
productive use: awarding Brownfields
Pilot grants; clarifying liability and
cleanup issues; building partnerships
with all brownfields stakeholders; and
fostering local work force development
and job training initiatives.
By 1996, EPA completed all of its
commitments in the 1995 Action
Agenda. However, it became clear that
the problem required the involvement
of all levels of government, the private
sector and non-governmental organiza-
tions.
U.S. EPA • Region 9 • 75 Hawthorne Street • San Francisco, CA 94105

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THE NATIONAL
PARTNERSHIP
ACTION AGENDA
In May, 1997, EPA expanded its
Brownfields Initiative by announcing the
Brownfields National Partnership Action
Agenda, which provides a framework for
cooperation among governments, busi-
nesses, and non-governmental organizations.
Keith Takata, Director
Superfund Division
U.S. EPA, Region 9
a
The Brownfields Initiative has a
great future. More and more, we will
see the value of these local
brownfields partnerships as we move
into the payoff stage-when the vision
and hard work is translated into new
development, new jobs and a brighter
future for our communities.
•	The Department of Housing and Urban
Development (HUD) providing $155
million in community development ana
housing support and an additional S165-*
million in loan guarantees.
•	The Economic Development Adminis-
tration (EDA) granting $17 million for
brownfields redevelopment in distressed
areas.
•	The Department of Transportation
(DOT) funding $4.2 million for transpor-
tation projects to address brownfields
areas.
¦	Site Assessment Pilots
EPA has funded 121 brownfields pilots for
up to $200,000 each. The pilot grants
provide assistance to States, tribes and
localities in developing new strategies for
promoting site assessment, environmental
cleanup and redevelopment. Assessment
pilot activities must be directed toward
environmental activities preliminary to
cleanup, such as site identification, site
assessment, and remediation planning and
design. EPA will fund approximately 100
new pilot grants in 1998 through two rounds
of national competitions.
¦	Showcase Communities
The Brownfields National Partnership seeks
to protect public health and the environ-
ment, clean up contaminated properties,
build economic viability, and create job
opportunities.
¦ Federal Agency
Commitments
The Brownfields Partnership addresses all
aspects of the brownfields process with
commitments from federal agencies and
non-governmental organizations. It includes
a $300 million federal investment in
brownfields cleanup and redevelopment
from more than 15 federal agencies. Some
examples include:
• EPA funding $125 million for assess-
ment, cleanup, state voluntary cleanup
programs and job training.
The centerpiece of the Brownfields
National Partnership will be the selection of
10 Showcase Communities across the
country, designed to demonstrate that
through cooperation, federal, state, local and
private efforts can be concentrated around
brownfields to produce successful collabora-
tion on brownfields related activities. Each
Showcase Community will have a federal
staff person on loan to coordinate federal
brownfields activities and support state and
local brownfields efforts. The Brownfields
coordinator will work with local brownfields
task forces and advisory boards to link
federal, state, local and privately funded
activities with community members. The 10
Showcase Communities will be announced
early in 1998.
The EPA Region 9 office is promoting the
Brownfields National Partnership Action
Agenda as described below.
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Region 9 Brownfields Partnership Action Agenda

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BROWNFIELDS
National site
ASSESSMENT PILOTS
¦	Sacramento, California
In September, 1995 EPA awarded a
$200,000 Brownfields Pilot grant to the City
of Sacramento for a brownfields project at
the old Southern Pacific and Union Pacific
railyard sites. The City is using these funds
to develop a public outreach program to
involve affected communities in deciding
cleanup levels for brownfields properties
and determine their future use. These funds
are also being used by the City to streamline
its land use permitting process to put these
properties back into productive use and to
develop a manual describing how to address
brownfields properties, including lessons
learned from the pilot. The City plans to use
the grant to conduct site assessment activities
in the El Monte Triangle area of northern
Sacramento. In September, 1997, EPA
awarded Sacramento a $350,000 Revolving
Loan Fund Pilot grant. This grant will be
used to capitalize a revolving loan fund for
;anup work at brownfields properties.
¦	Stockton, California
In March, 1996 Stockton was awarded a
$200,000 Brownfields Pilot grant. The
ultimate goal of Stockton's brownfields effort
is to encourage economic revitalization of its
urban waterfront area. Redevelopment of the
waterfront will promote productive land use,
reduce air and water pollution associated
with urban sprawl, and expand job opportu-
nities in locations accessible to low-income
populations. To satisfy these objectives,
Stockton is developing a comprehensive
environmental master plan that will guide
the assessment, cleanup and reuse of
brownfields properties in the waterfront
area. Stockton will conduct an extensive
public outreach program to ensure that the
community is actively involved in decisions
regarding the cleanup and reuse of the
brownfields properties.
¦	Emeryville, California
Emeryville was awarded a Brownfields
Pilot grant in March, 1996. The Emeryville
brownfields effort is designed to encourage
development by building stakeholder
confidence in a risk management model for
brownfields redevelopment. The model will
incorporate a new State of California regula-
tory policy for using a regional approach to
groundwater analysis and remediation.
Emeryville will also make available to the
public a geographic information system
database with environmental, economic,
land use, planning and assessor's informa-
tion on parcels within the study area, and a
"One-Stop Shop" that simplifies information
retrieval for all stakeholders. The City has
compiled the hydrogeologic, soil and
groundwater information from available
sources and is moving towards completion
of the computer database. Emeryville has
convened a broad-based community task
force to provide guidance to the project. The
City is also coordinating with regulatory
agencies to implement a "One-Stop Shop"
process that streamlines regulatory clear-
ance, particularly for smaller sites.
¦	Richmond, California
Richmond was awarded a Brownfields
Pilot grant in September, 1996. The goal of
Richmond's pilot project is to stimulate
economic development and improve public
health and environmental quality in the 900-
acre North Richmond Shoreline, which
contains a number of brownfields sites. The
plan includes a green component to provide
recreation and open space for public use.
Planned activities include completing
preliminary site assessments at two to five
sites; developing financing mechanisms to
promote the City's brownfields process;
streamlining the regulatory process of the
various authorities; and implementing
community education and outreach pro-
grams to promote full stakeholder participa-
tion. The City has completed a computerized
database listing ail properties within the
project area and has developed site selection
criteria, and several community meetings
have been held. EPA loaned a staff member
to Richmond to provide assistance on its
Region 9 Brownfields Partnership Action Agenda
Page 3

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brownfields project with both the City and
EPA funding the position.
¦ Navajo Nation, New
Mexico
The Navajo Nation was also awarded a
Brownfields Pilot grant in September, 1996
to revitalize the Navajo Forest Product
Industries mill site in McKinley County,
New Mexico. This was the first Brownfields
Pilot awarded to a Tribe. The mill site
Warehouse District tenants about contamina-
tion; create a database of known contamina-
tion and remediation efforts in the pilot area;
identify funding mechanisms for cleanup;
develop economic and zoning incentives and'
technical and managerial methods for rede-
velopment; and link jobs to low-income and
minority residents living nearby.
¦ Santa Barbara County,
California

EPA awards
$200,000 to Santa
Barbara County
to assist in the
redevelopment of
Goleta Old Town.
closed in 1995, leaving hazardous sub-
stances on the site. Activities under this
pilot include scoping the local community's
needs and concerns through an education
campaign in the Navajo language; perform-
ing a site assessment to establish the nature
and extent of the contamination; preparing
a remediation plan; and conducting a
public Tribal meeting to secure a commit-
ment by the Red Lake Chapter of the Tribe
to help finance the remediation plan.
Santa Barbara County
was awarded a Brownfields
Pilot grant in September,
1997. The pilot area is
Goleta Old Town, which
has experienced economic
decline. Pilot grant funds
will be used to conduct site
assessments and determine
the scope and costs of
remediation; develop a
team approach with the
private sector and local,
state and federal agencies
to implement cost-effective
cleanup programs; evaluate
financing sources and
mechanisms; and imple-
ment a public outreach and
community involvement
plan. These activities will complement the
County's Goleta Old Town Revitalization
Plan, a joint public-private effort aimed at
restoring vitality to this area.
BROWNFIELDS
REGIONAL SITE
ASSESSMENT PILOTS
¦ San Francisco, California
¦ Tucson, Arizona
In May, 1997, Tucson was selected for a
Brownfields Pilot grant. The pilot project
area, the Warehouse District/Barraza
Aviation Parkway Corridor, encompasses
approximately 80 acres of warehouse
properties, roadways, and vacant sites
located within the downtown City Center.
The pilot project goals are to educate
San Francisco was awarded a Regional
Pilot grant in September, 1996. The City
received $100,000 to revitalize the Bayview
Hunters Point neighborhood, a 3,000-acre
area near the Hunters Point Naval shipyard.
San Francisco's overall goals and objectives
of the pilot project are to establish and
sustain a brownfields advisory board to
educate and inform Bayview Hunters Point
community members about contamination
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Region 9 Brownfields Partnership Action Agenda

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and redevelopment issues; to give commu-
Ity members an opportunity to participate
in project decision making; and to identify
jid prioritize potentially contaminated
.operties for redevelopment. Information
regarding the environmental condition of
the neighborhood has been collected and
entered into a geographic information
system database. The grant was increased
by $100,000 to continue the project and
conduct site assessment work at several
properties with redevelopment potential.
¦	Oakland, California
Oakland was awarded a $100,000
Regional Pilot grant in September, 1996.
The funding will be used to conduct Phase
II site assessments at two sites: one is
within Oakland's Downtown Redevelop-
ment area, the other is in East Oakland
near the Coliseum. In April, 1997 an
additional $100,000 was added to the Pilot
grant which will be used to encourage the
redevelopment of the Faiitvale Bay Area
Rapid Transit (BART) area's Transit Village
project. This large-scale development
project is designed to revitalize this neigh-
borhood with shops, offices, and housing
i.a pedestrian-oriented setting. This is a
local, community driven project in which
the Spanish Speaking Unity Council is
partnering with EPA, the Department of
Housing and Urban Development (HUD),
the Department of Health and Human
Services (HHS) and the Department of
Transportation (DOT) as well as private
entities to redevelop this multi-cultural
area.
¦	East Palo Alto, California
EPA collaborated with the Department of
Housing and Urban Development (HUD)
to provide the City of East Palo Alto with a
federal liaison staff position. The federal
liaison, initially funded by HUD, worked
on housing issues for the City, and now,
while funded by EPA, is assisting the City
in its effort to develop the Ravenswood
Industrial Area. EPA also provided compre-
hensive site characterization services to
give prospective purchasers an idea of how
much cleanup will be needed to redevelop
the Ravenswood Industrial Area. The
completed sampling revealed that
contamination was far less
than previously estimated
and cleanup costs would
likely be in the $3 to $5
million range, rather than
an earlier estimate of $30
million. Potential developers
have expressed interest in the
project. EPA is providing a Regional Pilot
grant to the City to convene a stakeholder's
forum for public participation in the
redevelopment of the Ravenswood Indus-
trial Area, and to provide education to
community members about environmental
issues.
¦ Pomona, California
Pomona was awarded a $100,000
Regional Pilot grant in September, 1997.
The pilot's target locations include 11
redevelopment project areas and the
portions of the City within the Los Angeles
Revitalization Zone (LARZ) which offers
various tax incentives for qualified busi-
Job Training In East Palo Alto
In August 1997, EPA
piloted a technical training
and jobs placement pro-
gram for the community
surrounding the	East
Palo Alto
brownfields
site. Sixteen
students re-
ceived seven
weeks of extensive training
from DePaul University in
hazardous waste handling,
lead and asbestos abate-
ment, and underground stor-
age tank cleanup and re-
moval. Funding for this
program was provided by
EPA to DePaul through an
existing grant the university
has with the National Insti-
tute for Environmental
Health Sciences. Class-
room training was followed
by 90 days of paid on-the-
job training
with several
environmen-
tal cleanup
firms in the
area. Throughout the train-
ing program, EPA has
conducted extensive out-
reach activities with large
companies in the hopes that
these companies will hire
students into full-time em-
ployment positions at the
conclusion of the on-the-job
training.
Region 9 Brownfields Partnership Action Agenda
Page 5

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nesses located in the revitalization zone.
Pomona will use the grant funds to con-
duct a detailed analysis of all vacant,
underused, potentially contaminated sites
in the City. The City will compile this
information in a database including
information such as existing land use, prior
land use, LARZ development opportunities,
and available financing assistance. The City
plans to make this information available to
the public via the Internet.
¦	San Diego, California
In September, 1997 San Diego was
awarded a $100,000 Regional Pilot grant to
study industrial sites in an effort to revital-
ize the Barrio Logan neighborhood. The
grant will be used to identify properties
and enter them into the City's computer-
ized database, conduct detailed site
assessments on identified properties,
prepare cleanup plans and cost estimates,
and develop future land uses for the
affected properties. The community will be
involved throughout the process. A project
team has been established, and partners in
the project include the Environmental
Health Coalition, the MAAC project (a
nonprofit housing and social services
organization), and CCLR, the California
Center for Land Recycling.
¦	Phoenix, Arizona
Phoenix was awarded a $100,000
Regional Pilot grant in September, 1997.
The grant will be used to hire a coordina-
tor to facilitate Brownfields redevelopment.
The project area encompasses the City of
Phoenix Enterprise Community, approxi-
mately 20 square miles including the Rio
Salado Area, and several smaller redevel-
opment or neighborhood initiative areas,
enlarging the total project area to approxi-
mately 28 square miles. The project is
called the Land Recycling Program and the
pilot funds will be focused on the follow-
ing three areas: streamlined developmental
services, program outreach, and commu-
nity involvement. The project will empha-
size working with owners and developers
to assist them with the brownfields devel-
opment process.
CLARIFYING
LIABILITY AND
CLEANUP ISSUES
¦ Reducing Liability Fears
The fear of potential environmental
liability is a significant factor affecting the
redevelopment of urban real estate.
Property that is contaminated (or even
suspected of being contaminated) may be
difficult to sell because wary buyers are
concerned they may become liable for
cleanup costs. In an effort to reduce the
fears about property transactions, EPA has
issued guidance to address these concerns.
The following is a list of recently issued
guidances:
•	Land Use in the CERCLA Rem-
edy Selection Process
Encourages discussions between land
use planning authorities and the commu-
nity early in the process and ensures that
EPA considers future land use during
Superfund cleanups.
•	Guidance on Agreements with
Prospective Purchasers of Con-
taminated Property
Expands the circumstances under
which EPA will sign an agreement not to
sue the buyer of a property for existing
contamination in exchange for an
appropriate cash or work contribution to
the cleanup of the property, or indirect
benefits. Indirect benefits can include
potential environmental improvements as
well as economic and social factors such
as jobs, infrastructure, an increased tax
base and opportunities for disadvantaged
groups.
•	Policy on the Issuance of Com-
fort Letters
EPA will provide a measure of "com-
fon" in the form of letters sent to parties,
such as developers, who need to under-
stand the potential for EPA involvement
at a potentially contaminated property.
The policy contains four sample comfort
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letters which address the most common
lquiries for information that EPA receives
concerning the current or past federal
~nterest, or state involvement, at the site.
•	Policy Toward Owners of Prop-
erty Containing Contaminated
Aquifers
EPA will not pursue owners of property
where groundwater contamination has
migrated to their property in instances
where the property owner did not contrib-
ute to the contamination,
•	Policy on CERCIA Enforcement
Against Lenders and Government
Entities that Acquire Property
Involuntarily
EPA will not pursue the cleanup costs
from lenders that provide money to an
owner or developer of contaminated
property, but do not actively participate in
the daily management of the property.
The policy also sets forth the criteria for
exempting municipalities from potential
liability when they involuntarily acquire
property. (Portions of this guidance were
jnacted as the Asset Conservation, Lender
liability, and Deposit Insurance Protection
Act of 1996, adding Section 107(n) to
CERCLA.)
•	Underground Storage Tank (UST)
Lender Liability Rule
This rule limits the regulatory obliga-
tions of financial institutions and others
who hold security interests in property on
which petroleum underground storage
tanks are located. This rule should in-
crease the availability of capital to owners
and operators at UST sites, many of whom
are small businesses.
¦ Brownfields Tax Incentive
Congress and the President recently
agreed to a budget that includes a $1.5
billion tax incentive over the next three
years, beginning in August 1997, making it
possible for investors in brownfields proper-
ties to deduct their cleanup expenses
immediately, and dramatically cut the cost
for this type of investment. This incentive,
targeted specifically to areas where the
poverty rate is 20% or higher, empowerment
zones, enterprise communities, or
brownfields pilot sites announced before
February, 1997, is expected to spur $6
billion in private investments nationwide,
and could return to productive use as many
as 14,000 brownfields throughout the United
States.
¦ Removing "No Action"
Sites from the EPA Inventory
EPA has removed more than 30,000 sites
from its computer database known as
CERCLIS, the Superfund inventory of poten-
tial toxic waste sites. These sites often had
no contamination or were being cleaned up
A Prospective Purchaser
AGREEMENT SPARKS
Redevelopment
Region 9 has signed
eight prospective purchaser
agreements and is
currently negotiating
several more. One of
our latest such
brownfields
agreement
was
finalized
in April,
1997 for a
parcel of land within
the Middlefield-Ellis-
Whisman (MEW)
Superfund Site In Mountain
View, California. A
covenant not to sue was
entered into with 464 Ellis
Street Associates, allowing
for the purchase and
development of 80 acres
located within the site. The
parcel was formerly used
by Fairchild Semiconductor
in the manufacture of
computer chips and is a
source of heavily
contaminated
groundwater. The
developer
plans to build
and operate a
high-tech
research and office
facility in a campus-like
setting on property that has
been blighted and vacant
for several years. As part
of the agreement, the
prospective purchaser will
pay $200,000 to EPA,
enabling the Agency to
continue sampling at a
nearby monitoring well for
an additional two years.
Region 9 Brownfields Partnership Action Agenda
Page 7

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under state programs. Even though EPA
planned to take no action at these sites, their
inclusion in the database caused lenders,
developers and potential buyers to avoid
them due to liability concerns. Removing
these sites from CERCLIS eliminates the fear
that can prevent redevelopment from
moving forward.
PARTNERSHIPS AND
OUTREACH
¦ Los Angeles, California
Brownfields Project
In May, 1996 EPA loaned one of its
employees to the City of Los Angeles'
Environmental Affairs Department to provide
assistance to the City in overcoming the
barriers associated with brownfields redevel-
opment. To assist the City in developing a
strategy for various departments to work
together on brownfields issues, the City
established an Executive Team, with repre-
sentatives from the Mayor's Office of
Economic Development, the Environmental
_	Affairs Department,
anc' c^e Commu-
ST	»
senior level
Resource Team
to serve as staff to
the executive team; and
several Case Study Teams to work towards
resolving brownfields concerns on several
case studies.
The newly created City structure is
developing ways to improve processes that
encourage the revitalization of these
underutilized areas. To take advantage of
various revitalization opportunities, Los
Angeles has established a SI million
Brownfields Revitalization Fund. This fund,
which comes from the City's SI51 million
HUD Community Development Block Grant,
is being used to establish a pool of re-
sources to support brownfields efforts,
In November, 1997 EPA loaned an em-
ployee to the City's Community Redevelop-
ment Agency, with both the City and EPA
funding the position. During this second
year of support, the City will focus on
testing a variety of brownfields approaches
on a number of demonstration sites. At the
first site, the City is negotiating a two-year
assignable option on a twenty-acre State
owned contaminated parcel. This property
was formerly proposed for a prison and is
located near the City's eastern industrial core
and the northern terminus of the Alameda
Corridor Project. The City will use the
Brownfields Revitalization Fund to conduct
extensive site assessment and outreach
efforts, under a Voluntary Cleanup Agree-
ment with the State. The second site is a
208-acre area with multiple owners in South
Central Los Angeles, and will be developed
into a model inner city industrial park with
funding support from the Economic Devel-
opment Administration.
¦ Targeted Site Assessment
As part of the brownfields effort, EPA is
providing site characterization services to
several cities and states. Potential buyers
and developers are often reluctant to
purchase properties when they are not sure
of the level of environmental contamination
on the property, By providing site charactei
ization services, EPA can give cities, devel-
opers and others an idea of how much
cleanup will be needed to redevelop the
propeny.
The North Fork community in Madera
County, California is located about 15 miles
south of Yosemite National Park. In 1994,
the community's lumber mill was perma-
nently closed. EPA is conducting a Phase I
and II environmental assessment to deter-
mine the extent of contamination. The
California Center for Land Recycling (CCLR)
is providing support to the community to
create a sustainable, environmentally
responsible and economically feasible plan
for redevelopment, Both EPA and CCLR
assistance will help the North Fork commu-
nity to develop a reuse master plan for the
134-acre parcel. Upon completion, the final
plan is expected to attract private resources
for cleanup and redevelopment.
EPA is also providing assistance to the City
of Yuma, Arizona by conducting site assess
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Region 9 Brownfields Partnership Action Agenda

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ment activities at a 64-acre brownfields site
jng the south shore of the Colorado River,
Miown as the "West Riverfront Recreational
-development Area." Site assessment
Itivities will include gathering surface
sediment samples along the northern
boundary of the proposed project, collecting
shallow groundwater samples from existing
on-site and nearby wells, and collecting soil
and gas samples from a former landfill. The
City's project includes development of a
greenbelt along the river, with walk and
bike pathways, improvements to existing
wildlife habitats, and construction of a boat
launch and marina.
¦	The California Center for
Land Recycling
The California Center for Land Recycling
(CCLR) established in 1996, is a program of
the Trust for Public Land, a national, non-
profit land conservation organization. CCLR
was started with an initial grant from the
James Irvine Foundation. Its mission is to
promote the reuse and recycling of previ-
ously developed land and buildings, and
bypassed infill sites in urbanized areas of
:ies, suburbs and rural towns in California.
]LR's role is to facilitate the redevelopment
or brownfields by providing an integrated
package of services tailored to the specific
needs of each project. Through its three
integrated programs, Project Learning,
Information and Outreach, and Policies
and Practices, CCLR seeks to identify the
obstacles facing brownfields redevelopment,
test potential solutions and disseminate their
findings, and stimulate long-term policy and
practice reforms. Each year CCLR will select
up to eight brownfields redevelopment
projects in California, and create a strategic
partnership with each of the site sponsors.
EPA has loaned a staff member to CCLR to
assist them in their efforts.
¦	Brownfields Working
Group
The "Brownfields Working Group" is a
group of nonprofit oiganizations and
community members in the San Francisco
Bay Area which hold monthly meetings to
discuss brownfields and environmental
justice issues. The Working Group provides
an opportunity for a variety of local commu-
nity based environmental organizations who
attend these meetings, as well as federal
agencies, brownfields pilot cities, students,
foundations and community members to
learn more about brownfields and to plan
their future involvement in brownfields
efforts. The Working Group presented "A
Workshop on the Language & Practice of
Brownfields Redevelopment" in May and
November, 1997 to provide a variety of
perspectives aimed at showing community
members how to move a brownfields
redevelopment project forward. EPA helps
support the Brownfields Working Group
through an Environmental
Justice grant to the Urban
Habitat Program, the
organization that hosts the
Brownfields Working
Group.
Assistance to the North
Fork community will help
revitalize this closed
lumber mill site.
(Photo courtesy of
North Fork History Group,
North Fork, California.)
Cities with properties that
have development potential but
need environmental site assess-
ments to determine the level of
contamination and estimated
cleanup costs should contact
EPA's Brownfields Team for
possible assistance at
(415) 744-2378.
Region 9 Brownfields Partnership Action Agenda
Page 9

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Brownfields Contacts
Jim Hanson
(415)744-2237
Bobbie Kahan
(415)744-2191
Bill Keener
(Office of Regional Counsel)
(415)744-1356
Thomas Mix
(415)744-2378
Steve
SlMANONOK
(415)744-2358
Wally Woo
(415)744-1207

National EPA Home Page
www.epa.gov
e^<>
National Brownfields Home Page
www.epa.gov/brownflelds
EPA Region 9 home Page
www.epa.gov/region09
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