SHIFTING GEARS
BEST TIRE DE
•». IN
-------
Foreword
The revitalization of idled industrial properties is vital
to the economic future of many communities across
the country. Through partnerships among all levels of
government and the private sector this revitalization
can lead to improvements in public health and
environmental protection. Examples of these successful
partnerships can be found in the American automotive
sector. While this sector is a symbol of our country's
economic growth and industrial prowess, it currently is
facing substantial restructuring. One significant result
of the industry's restructuring is an increase in idle
manufacturing facilities and properties.
Many towns and cities across the country and
particularly in the Midwest grew up around automotive
manufacturing facilities. As these facilities close, the
economic future of communities may turn on finding
successful solutions for the cleanup and revitalization
of the properties left behind. The brownfields created
when plants close or manufacturers consolidate and
relocate often sit within the urban core of our nation's
communities. The sustainable cleanup and revitalization
of these brownfields properties is a priority for EPA.
EPA's Brownfields, Land Revitalization, and Waste
Management Programs are building partnerships with
state, tribal and local governments, as well as private
sector land owners and redevelopers to address the
environmental and public health issues presented by
idle properties left in the wake of America's economic
transformation, creating opportunities for economic
revitalization.
This report provides an overview of community
success stories. By building strong partnerships and
setting priorities for recovery and revitalization, the
public and private sectors are realizing a great deal of
success in addressing idle industrial brownfields. EPA
applauds these successful ventures and we look forward
to leading the way toward stronger partnerships and the
continued revitalization of our nation's communities.
I want to thank everyone who contributed to this
report—auto manufacturers, developers, environmental
professionals, communities, and federal, state and local
government officials. I urge you to use this report as
a catalyst to help improve the quality of life in your
community.
Susan Parker Bodine
EPA Assistant Administrator for
Solid Waste and Emergency
Response
Cover Photos
Front cover (left to Right): Gates Rubber Plant,
Gas station along Route 66, Ford Rouge Plant
Back cover (left): Aerial view of Ford Rouge Plant
Back cover (right): Gates Rubber Plant
Prepared for:
U.S. Environmental Protection Agency
Office of Solid Waste and Emergency Response
Office of Brownfields and Land Revitalization
Washington, D.C. 20460
Prepared by:
SRA International, Inc. (Contract No. EP-W-07-023)
3434 Washington Boulevard
Arlington, VA 22201
The City of Kenosha, WI, redeveloped Harbor Park area
-------
Table of Contents
Introduction. . 2
Case Studies . . 6
Going Forward 31
Underground Storage Tank removal Denver
Muffler Shop redevelopment
-------
Introduction
AUTO INDUSTRY BACKGROUND
The automobile, long a symbol of the American
Dream, spurred economic development in the 20th
century and created a complex industry across the
United States. Automobile manufacturing grew into a
vast array of supporting industry sectors, all centered
on meeting the demands of the driving consumer.
As the industry grew, it came to employ hundreds
of thousands of workers and established itself as the
economic hub for hundreds of United States cities.
The growth of the U.S. auto industry transformed the
nation's economy as well as the landscape of thousands
of acres of commercial and industrial property across
the country.
U.S. automobile manufacturing1 reached its
peak in the 1980s. In 1987, the industry employed
751,000 workers and generated annual revenue in the
hundreds of billions.2 Since then, plant restructuring,
technological advancements in automobile assembly
and manufacturing, and increased international
competition are resulting in the consolidation and
closing of U.S. manufacturing plants.3 In addition,
many of the parts used in automobile production are
increasingly being manufactured overseas.
Market projections for several major U.S. car
manufacturers include ongoing reductions in capacity
and production, and additional North American plant
closures. Each of Detroit's Big 3—General Motors
(GM), Ford Motor Company (Ford) and Chrysler—are
streamlining and restructuring their operations. In
2005, GM announced a restructuring plan that includes
closing four assembly plants and four stamping and
powertrain plants, reducing production at three
additional assembly plants, and eliminating 30,000
manufacturing jobs.4 A similar plan announced by
Ford in 2006 will cease operations at 14 manufacturing
facilities by 2012 and reduce between 25,000 and 30,000
manufacturing jobs.5
The economics and landscape of the Midwest
states are particularly hard hit by recent changes in
automobile manufacturing. Between 1997 and 2002,
nine motor vehicle manufacturing plants closed in
U.S. EPA's Region 5 (i.e., Illinois, Indiana, Michigan,
Automobile manufacturing plant
Chrysler lakefront
Gas station along Rt. 66 corridor
-------
Minnesota, Ohio and Wisconsin) alone,6 and many
became brownfield properties.
Plant closings leave a physical mark upon
municipal landscapes. Underutilized, idled and often
contaminated properties that need to be cleaned up
and revitalized are blighting many Midwestern cities
and towns. These communities often are struggling
to put these properties back into productive use
and rejuvenate their local economies. This report
illustrates the significant impact that idled properties
are having on many communities. This report's
purposes are to provide background, success stories and
lessons learned for municipalities dealing with these
properties; illustrate the opportunities for sustainable
redevelopment; and offer ideas to help reduce the
impact of future plant closures.
AUTO INDUSTRY BROWNFIELDS:
ECONOMIC AND ENVIRONMENTAL
CHALLENGES
Underutilized and idled properties created as a
result of changes in in the U.S. automotive assembly
and manufacturing industry share land revitalization
issues common to plant closures in other industrial
sectors such as public perception and liability concerns
regarding real or perceived contamination. They
pose issues that local governments need to address-
including blight, a variety of potential environmental
contamination issues and economic hardship due to
loss of jobs and tax revenue.
Often, large auto facilities involve multiple, closely
grouped properties, requiring collaborative, areawide
cleanup and reuse planning. Some of these idle facilities
involve a variety of contaminants and pose cleanup
challenges that require demolition of existing buildings
and infrastructure. Such complication may add to
the cost of new development and deter private sector
investment. These properties also may include pockets
of ongoing operations that must be addressed during
assessment, cleanup and redevelopment. In addition,
many parts manufacturers and service suppliers are
located in clusters around assembly plants. These
long active and colocated facilities present potentially
significant contamination issues for local and regional
governments.
-------
Many of the supporting facilities, such as auto
salvage yards, are operated by small business
owners who may lack the necessary resources
or information needed to address the complex
environmental compliance problems associated with
these properties. And though not specifically an auto
sector related issue, these properties often involve
multiple regulatory programs (e.g., state response
programs RCRA, CERCLA) due to the complexity of
the potential contaminants present.
The challenges posed by auto industry brownfields
also can offer opportunities for communities,
regulatory authorities, the automotive industry and
other stakeholders to work together to redevelop these
properties and revive local economies. This report
presents case studies of successful automotive property
Component; of the Automobile
Manufacturing Industry
The primary and ancillary sectors within the
motor vehicle industry include:
1. Assembly Plants—Facilities where motor
vehicles are assembled
2. Parts Suppliers Clustered Near Assembly
Plants—Manufacturers of large parts
including engines, transmissions, seats and
large body stampings
3. Mobile Parts Suppliers—Manufacturers of
smaller, shippable parts including electronics,
glass, exhaust systems and wheels
4. Retail and Support Sector—Establishments
that provide goods and services to the
automobile industry including used and new
car dealerships, auto maintenance and repair
shops, gas stations, car washes and auto
salvage yards
redevelopment projects and offers lessons
learned from some successful redevelopment
case studies. The case studies provide real life
examples of how municipalities can navigate
the complex issues associated with former automotive
properties and address similar sites in their own
communities. In many cases, revitalization can be
facilitated by partnerships forged between communities
and the manufacturers themselves.
REGULATORY APPROACHES
Auto manufacturing facilities that managed
or disposed of hazardous waste onsite often have
Resource Conservation and Recovery Act (RCRA)
permits and contamination at these properties may
be addressed by the RCRA program. In some cases,
releases at auto sector properties are addressed
under the Comprehensive Environmental Response,
Compensation, and Liability Act (CERCLA).
However, the majority of idled properties in the auto
sector, particularly former automobile dealerships,
repair shops and gasoline stations typically are not
RCRA permitted facilities and are not contaminated to
the extent that would cause them to be addressed under
CERCLA. These properties, when underutilized or idle,
may be brownfield properties. Brownfields properties
are often assessed and cleaned up under state oversight
and in accordance with state voluntary cleanup
programs (VCPs). In addition, many brownfields may
contain underground storage tanks.
Auto sector properties may be contaminated with
a variety of contaminants in addition to petroleum,
heavy metals and VOCs that one expects at auto sector
properties. In addition, it is not unusual for there to
be a geographic concentration of multiple brownfield
properties. The colocation of these properties
can require collaborative, areawide planning for
revitalization. Because these challenges may be solved
more easily using an integrated cleanup approach, EPA
is exploring opportunities to implement a collaborative
and coordinated multiprogram approach to clean up
and restore the nation's auto sites in several regions.
-------
BEST TIRE DEAL
Old pumps remain at former gas station
Promoting a "One Cleanup Approach" to
revitalization, the Agency's goal is to facilitate
accelerated cleanup schedules by integrating the
requirements of different cleanup programs—CERCLA,
Brownfields, RCRA, UST and state voluntary cleanup
programs—while ensuring that resources are effectively
coordinated, that program goals are implemented, and
results are communicated to the public.
A One Cleanup Approach can promote the
coordination of multiple Agency processes, streamline
schedules for meeting regulatory requirements, and
allow for the leveraging of resources to better address
area-wide cleanups. This approach also may promote
program coordination to resolve challenges and remove
unintentional barriers so that contaminated properties
may be revitalized and returned to protective and
beneficial uses by:
• Reducing uncertainties about liability and cleanup;
• Identifying, reconciling and communicating
differences among cleanup programs;
• Coordinating site investigation efforts; and
« Providing incentives for participation in long term
revitalization efforts.
EPA's Brownfields Program—provides
funding and technical assistance to help
communities identify, assess, safely clean up
and sustainably reuse potentially contaminated
properties.
The Superfund Program—manages cleanups
of the nation's uncontrolled hazardous waste
sites that pose a current or future threat to
human health or the environment.
The Resource Conservation and Recovery
Act (RCRA) Corrective Action Program—
requires the investigation and cleanup of
hazardous releases at operating facilities.
RCRA Corrective Action differs from Superfund
in that Corrective Action facilities generally have
viable operators and ongoing operations.
The Underground Storage Tanks Program—
supports states, territories and other partners
in the cleanup and reuse of properties
contaminated by petroleum releases from USTs.
-------
Auto Sector toe
This section highlights eight successful auto sector redevelopment projects, detailing
the challenges, strategies and results of cleanup and revitalization efforts. An expanded
look at two auto support industries—salvage yards and gas stations—explores their unique
challenges and opportunities to local communities. In addition to the detailed case studies,
several capsule stories showcase revitalization successes.
Many of these projects used a coordinated, multiprogram approach. The eight case
studies outline the participation of various federal cleanup programs, state agencies, local
governments, industry and private interests to successfully redevelop auto sector properties.
To address a variety of auto sector property types, the case studies are organized by type,
including auto assembly plants associated with Ford, GM and Chrysler and auto parts
suppliers (rubber and glass). The report also includes information on revitalization efforts at
related industries, including salvage yards and gas stations.
Automobile Manufacturing and Assembly Plants:
• Baltimore, Maryland—Former GM Plant
• Allen Park, Michigan—Former Ford Landfill
• Kenosha, Wisconsin—Former Chrysler Plant
• Anderson, Indiana—Former GM Plant Properties
• Dearborn, Michigan—Former Ford Plant
Automobile Parts Manufacturing Plants:
• Fitchburg, Massachusetts—Former Hope Rubber Plant
• Ford City, Pennsylvania—Former Pittsburgh Plate Glass Industries Plant
• Jackson, Michigan—Former Goodyear Tire and Rubber Plant
Related Industries:
• Salvage Yards
• Gas Stations and Underground Storage Tanks
-------
GM Assembly Plant—Baltimore. MD
Streamlined administrative procedures and materials recycling
lead to timely and responsible cleanup and redevelopment
BACKGROUND
For 68 years, the Baltimore GM assembly plant
produced every type of GM car from the Impala to
the Pontiac GTO. The 182 acre property, located in
southeast Baltimore adjacent to the Seagirt Marine
Terminal, was the site of a 3.2 million square foot
assembly plant. GM closed the plant in 2005. This
former automotive property is now slated to become
a $150 million business park with sustainable project
elements, including the recycling of 96 percent of
demolition debris and the construction of a Leadership
in Energy and Environmental Design (LEED) certified
building.
Demolition of the former GM Baltimore Plant
MEETING THE CHALLENGE
With the plant closure, GM knew
it had to satisfy its state and federal
hazardous waste management
obligations. GM met with
EPA Region 3 and Maryland
Department of Environment
(MDE) representatives to assure
them that GM would retain
a developer who would take
on responsibility for cleaning
up the property as part of the
redevelopment, and that GM would
stay involved in the process to assure
the developer met its commitments. Upon
selecting a developer in January 2006, the team
"Although it may
the impacted neighborhoods, EPA can
streamline the environmental cleanup
process so redevelopment takes less time
to complete, but still ensure the highest
environmental standards'.'
-Donald J. Welsh,
EPA Mid-Atlantic Regional Administrator on the former
611 plant redevelopment effort
faced several complex challenges
to complete the project. These
challenges included a short
timeframe on preacquisition
due diligence, differences in
the sitewide RCRA Corrective
Action and MDE Voluntary
Cleanup Program objectives,
and a schedule that allowed only
18 months to complete cleanup
and begin new construction.
Keyj to tett
Collaborative public-private
partnership resulting in streamlined
administrative procedures, allowing
complete cleanup and initial
construction within 18 months
Cleanup strategy that includes a
waste reduction method resulting
in 96 percent of materials recycled
estimated at approximately 98,000 tons paid for the
entire cost of building demolition
CLEANUP AND
REVITALIZATION STRATEGY
The strategy for the Chesapeake Commerce
Center redevelopment project adopted by GM and
the development team focused on a collaborative
approach with EPA and MDE. The developer, Duke
Realty, created a comprehensive cleanup matrix and
master schedule, and approached EPA and MDE with
a proposal to conduct a facility led
RCRA cleanup approach. The
state and federal regulators
responded in kind
with collaboration
and streamlined
administrative
procedures, setting
-------
GM Assembly Plant—Baltimore. MD
Aerial view of the former GM Baltimore property
up an intergovernmental team that met intensively
and repeatedly early in the process. This collaborative
public-private partnership focused on the cleanup
matrix and master schedule, as well as the commercial
reuse scenario. The focus was to drive decisions on
remedy and institutional and engineering controls
toward the agreed upon reuse, while meeting an
aggressive schedule for redevelopment. All parties
involved committed to conducting early, substantial
community and stakeholder outreach on the property
redevelopment.
In addition to the cleanup work, the developer
took its environmental commitment one step further.
By dismantling the buildings and structures onsite,
the developer chose a waste reduction method that
resulted in recycling 96 percent of all nonhazardous
building materials and offset the total cost of building
demolition. Former pits, trenches and basements were
filled with materials processed by an onsite concrete
crusher. In addition, the scrap metal was sold as a
commodity and shipped by truck or rail across the
United States. The volume of recycled materials from
the deconstruction is estimated to be 98,000 tons.
The energy savings from recycling these materials is
equivalent to removing nearly 1,000 cars from the
roadway for one year.
RESULTS
Groundbreaking took place in June 2007. The first
structure will be a certified LEED building utilizing
recycled and regional materials, incorporating
energy and water efficiency into the building design,
and maximizing greenspace onsite. Over the entire
Chesapeake Commerce Center project, Duke Realty
will increase the greenspace by 20 percent, thus
reducing stormwater runoff, minimizing heat island
effects and adding to the overall green landscaping and
aesthetics of the area including planting 2,200 trees.
When the entire redevelopment is complete, there
will be 12 to 20 new buildings totaling between 2.5
and 3 million square feet of commercial space that
will be used for bulk distribution, offices and research
and development. The project is expected to create
thousands of new jobs over the next ten years.
Master Plan concept for former GM plant
-------
Former Federal Engineering Building—Detroit, Ml
The former 80,000 square foot Federal Engineering
Building located in the Highland Park Neighborhood
in Detroit, Michigan was once used to manufacture
dies for automotive parts. It now is a key part of the
Highland Park revitalization project. This project
includes a mixed redevelopment with residential
housing, conference facilities, a community center and
other amenities.
Starting in 1940, Federal Engineering operated a tool
and die company on the property, which manufactured
heavy metal forms of dies for stamping metal into
automobile parts such as bumpers, hoods and quarter
panels. Due to the declining U.S. automotive industry,
Federal Engineering ceased operations in 1984. Once
a vital and productive part of the community, the
property became blighted and contaminated, and
presented a barrier to community revitalization.
HOPE Revitalization—a nonprofit corporation—used
funding from an EPA Brownfields Cleanup grant to
clean up and restore the former automotive property.
HOPE Revitalization integrated environmental,
economic and community goals into its sustainable
reuse plan for the property. HOPE elected to reuse an
urban site; an antidote to urban sprawl and development
of open space. To reduce the environmental impact
of construction and demolition waste, HOPE
Revitalization incorporated construction and
demolition (C&D) waste reduction strategies into the
cleanup plan. Approximately 1,200 tons of materials
(such as steel) and over 13,000 gallons of liquid
waste water were recycled or reused—diverting
these materials from landfills. As a result, $150,000
or 20 percent of the total project costs were saved
through material reuse and the organization avoided
significant disposal costs, keeping the project cost
competitive.
The cleanup of the Federal Engineering Building was
the first phase of a five phase revitalization strategy.
This effort resulted in the creation of a parking
facility that in turn paved the way for the project's
second phase, which included the construction
of the Village of Oakman Manor (VOM). VOM is
a $6.2 million 55 unit apartment building for low
income seniors that was completed in February 2007
and is now fully occupied. These accomplishments
resulted in the designation of the area as a "Cool
Cities Neighborhood" by the state, and an award of a
$100,000 grant that was used to fund the third phase
of the project, the building of a community park. The
last two phases of the Highland Park Neighborhood
revitalization project include the addition of senior
housing and completion of the Bell
Building.
For more information go to:
http://www.focushope.edu/default.htm
The Federal Engineering Building before
cleanup and demolition activities
-------
Allen Park Project—Allen Park, Ml
Green retail and recreational center on former Ford landfill
promotes sustainable and environmentally friendly practices
BACKGROUND
Originally a clay quarry the Ford Motor Company
opened the Ford Allen Park Clay Mine Landfill in the
1950s as a disposal site for its manufacturing wastes.
Certain characteristics of the industrial waste landfill,
including limited settlement and minimal offgassing,
made this site favorable for redevelopment. Ford
devised a strategy to close and cap the landfill and
develop the site as the Fairlane Green retail center. Ford
is working closely with the
Michigan Department of
Environmental Quality
(MDEQ) to ensure the
long term integrity of the
property.
MEETING THE CHALLENGE
The Allen Park project is an example of successful
redevelopment, despite the environmental challenges
generally posed by landfill properties. Cleanup and
redevelopment activities had to account for site
stabilization, landfill cap protection, and reinforcement
of the landfill slope. The MDEQ and the City of Allen
Park provided $30 million in tax increment financing
to reimburse Ford for the costs associated with these
landfill development challenges. Under a master
deed, Ford maintains ownership of the original,
subsurface landfill and is permitted to sell
development rights of the surface land.
Construction of the Fairlane Green retail center on the former
Ford Allen Park Clay Mine Landfill
10
-------
Native landscaping at the new retail center
CLEANUP AND REVITALIZATION STRATEGY
Ford chose a revitalization approach that emphasizes
sustainability and environmentally responsible
development. The design for the Fairlane Green retail
center focuses on maximizing the preservation of
greenspace, enhancing its appeal for Allen Park citizens.
The final design develops only 4,000 square feet per
acre, rather than the 10,000 square feet of retail space
per acre typical of other shopping centers.
The environmentally responsible redevelopment of
the Allen Park landfill property includes: irrigation for
the property that will be supplied by storm water rather
than drawn from municipal water sources; landscaping
that will facilitate coexistence with wildlife; retention
ponds for runoff that will function similarly to wetlands
and create natural wildlife habitats; and energy
consumption that will be reduced through the use of
energy efficient utilities. Some of these utilities include
high efficiency heating, cooling and lighting equipment,
white roof membranes, and low flow water sinks and
toilets.
Buildings on the new redevelopment will feature
additional environmental enhancements, including
reflective roofing to save energy and green outer walls
that use plants to reduce heat and provide natural
habitation. Though Ford sold the first phase of the
project to the Archon Group, Ford remains significantly
involved in the construction, geotechnical analysis and
environmental aspects of the development.
RESULTS
The Allen Park project was recognized as an
outstanding brownfield redevelopment project as the
winner of a Phoenix Award in 2007. Once completed,
Fairlane Green will apply for certification as a green
building through the U.S. Green Building Council's
LEED program. In addition to meeting environmental
goals, the project will contribute to the revitalization
of the local economy. The project is expected to
generate nearly 2,000 permanent jobs, as well as bring
dining, shopping and recreation outlets for Allen Park
residents.
Keyj to te«
The area is 60 percent less dense
than the average retail development
—sets aside two-thirds of its
total space for redevelopment of
greenspace and includes a 43 acre
park and 3.5 miles of trails
Uses industry best practices for
green projects—provides rainwater
collection for irrigation; constructs bio-swales to
collect runoff and provide natural habitat; and utilizes
green screens on building walls to produce oxygen
and reduce heat
Promotes environmental sensitivity in its retail
tenants—Target will use green construction
techniques, including skylights, to effectively control
energy usage
-------
Harbor Park—Kenosha. Wl
Community involvement key to Kenosha lakefront revitalization
BACKGROUND
The City of Kenosha, Wisconsin is located along Lake
Michigan between Chicago and Milwaukee. Situated
along the city's waterfront is a 69 acre property known
as the Harbor Park area. This property was a Simmons
Mattress manufacturing plant from 1870 to 1960. In
1960, American Motors Corporation (AMC) opened
an auto manufacturing plant at the property. In 1987,
Chrysler purchased AMC, only to close the facility in
1988. As a result of the plant closing, 5,000 people lost
their jobs and the Harbor Park area became blighted by
the remnants of a demolished auto plant. In 1994, the
City of Kenosha purchased the property for $1, paving
the way for redevelopment along the Lake Michigan
waterfront.
MEETING THE CHALLENGE
The City of Kenosha partnered with the Wisconsin
Department of Natural Resources (DNR) when
redeveloping the property, which was contaminated
with heavy metals, petroleum and polychlorinated
biphenyls (PCBs). The City followed the guidelines set
by the DNR through its voluntary cleanup program,
(Remediation and Redevelopment Program), for
the cleanup of brownfields. In addition, the city
partnered with the Urban Land Institute (ULI) to
develop a redevelopment plan that accurately met
the community's vision of an accessible and livable
waterfront development. The city spent $18.5 million
cleaning up the property and improving necessary
infrastructure, including street construction and the
installation of street lights in the Harbor Park area.
The redeveloped Harbor Park area
"Thepartnership with
the state...\vas very important.
The willingness of DNR to look at
things with a different perspective...
enabled us to achieve the Harbor
Park Redevelopment, one of the first
brownfields redevelopment in
Wisconsin'.'
—Mayor Antaramian
Demolition of the Former
Chrysler Plant
12
-------
A new condominium development at Harbor Park
Keyj to tett
CLEANUP AND REVITALIZATION STRATEGY
The centerpiece to the cleanup and revitalization
strategy was public involvement throughout the
project. Once the City and the Mayor, working with
ULI, developed basic redevelopment plans, the
city started the community visioning process by
holding two citywide public forums and numerous
staff presentations to discuss the residents' views on
redevelopment. In addition, the city taped the public
meetings and made them available to the public
for those who were unable to attend. As a result of
the community driven process, nearly 100% of the
community supported the Harbor Park redevelopment
project and in turn the redevelopment project benefited
from the community's suggestions.
Development and implementation
of a public participation process that
created a redevelopment project
with nearly 100 percent community
support
Strong green infrastructure
component including pedestrian and
bike paths, open space and parks
that promote linkages to downtown, and access to
public amenities including the Kenosha lakefront
RESULTS
HarborPark, located on the shores of Lake Michigan,
is now home to upscale condominiums, walking and
biking trails, streetcar services to downtown, a marina,
museums and much more. In addition, redevelopment
provided significant "green infrastructure" to the city.
As a result of redevelopment, the value of the property
increased $50 million from 1989-2003, while nearby
property values increased by more than $13 million.
In addition, 22 jobs were created and the improved
harbor redevelopment increased property taxes by
nearly $900,000 in 2003. After realizing the benefits
that redevelopment of HarborPark provided for the
city, Kenosha's Mayor continued promoting brownfields
redevelopment throughout the city.
PROJECT FUNDING SOURCES
• Federal Transit Administration
• City of Kenosha
• Wisconsin Department of Commerce
• Various other public sources
-------
Kew to tett
GM Properties—Anderson, IN
Collaboration and an innovative redevelopment agreement
revitalize a community
BACKGROUND
For most of the 20th century, Anderson, Indiana
was a booming economic and industrial area. GM
and automotive parts manufacturing employment
opportunities reached their peak in the early 1970s
and at one time provided more than 27,000 jobs in
Anderson. Today, GM has divested nearly all of its
interests by selling operating businesses, shuttering,
and in some cases completely demolishing, its former
manufacturing facilities in Anderson. In addition, one
of GM s spin off companies, an automotive lighting
manufacturer, Guide Corporation, shuttered its
Anderson plant at the end of 2006, eliminating 1,300
jobs. This closing, along with the anticipated 2008
closing of the last Delphi facility in Anderson, marks
the end of a lengthy exit process by GM and automobile
manufacturing. Over the years, these closings
resulted in the relocation or complete elimination of
thousands of well paying jobs in Anderson, a link that
directly corresponds to a consistent trend of declining
population in the community. These plant closures also
resulted in a $1.2 million decrease in the annual tax
base for the community.
Agreement between the city and
developer provides a win-win for
both parties—as the developer
creates more job opportunities,
it retains more profit from the
development
Establishing a partnership with GM
resulted in a mutually beneficial
arrangement that spreads the risk among GM, the
city, and redevelopment parties, and allows GM the
ability to oversee redevelopment plans
MEETING THE CHALLENGE
The City of Anderson's future will depend in
large part on the revitalization of these former GM
properties. Historically, the relationship between the
city and GM was somewhat contentious regarding
these properties. However, new mayoral leadership in
2004 turned the tide and began a period of positive and
collaborative partnership between the city and GM.
City government made brownfields redevelopment a
priority and took the lead in collaborating with GM
to clean up and redevelop former manufacturing
properties.
Demolition of the EC. Cline Building
Prime Battery site before demolition
14
-------
Prime Battery site after demolition activities
CLEANUP AND REVITALIZATION STRATEGY
GM agreed to transfer 300 acres located south of the
downtown area to the city in November 2006. Portions
of this property are subject to a RCRA corrective action
remedy that was approved prior to the transfer and
installed shortly after, thereby preparing the property
for potential reuse. Environmental investigations and
remedy implementation in other areas continue to be
conducted by GM and reviewed by the state agency.
The sales and transfer agreement creates a sophisticated
arrangement under which risk of contamination is
shared among GM, the city and redevelopment parties.
The agreement also prohibits residential reuse under
institutional controls and grants GM the ability to
review and consent to redevelopment plans to ensure
that reuse is consistent with the agency approved
remediation.
In August 2007, the City of Anderson began
working with a brownfields redevelopment firm
to aggressively redevelop these properties for new
commercial and light industrial economic investment.
The redevelopment agreement includes an innovative
approach under which the developer will share profit
revenues with the city on a scale determined by how
many local jobs are created as a result of the new
development.
RESULTS
The city is optimistic about its prospects for
economic revitalization, as a result of its partnership
for the redevelopment of the these GM
properties. The combination of
persistent local leadership,
collaboration with GM, and
an innovative approach to
redevelopment makes
a positive difference in
the future of Anderson.
-------
Ford Rouge Plant—Dearborn, Ml
Sustainable practices revitalize outdated automobile assembly plant
BACKGROUND
The Ford Rouge Plant stands as a marvel of the
automobile industry. Construction began in 1917 and
by the 1930s it was the largest industrial complex in
the world. The facility once included 93 structures and
employed over 100,000 people. It was a self sufficient
manufacturing complex, containing a power plant, glass
plant, cement plant and byproducts plant, enabling
cars to be built from scratch. However, years of steel,
glass and automobile production and assembly left
environmental contamination. After World War
II, demand for the plant's output decreased; some
automobile operations were transferred to other Ford
plants and portions of the plant were sold off. In the
1990s, Ford turned its attention back to Ford Rouge
with the intention of renovating the truck plant and
creating a significant sustainable manufacturing effort
at the site.
MEETING THE CHALLENGE
Today the Ford Rouge Plant is a pinnacle of ingenuity
and innovation using sustainable practices in and
around the plant itself. The truck plant employs 7,000
workers and produces the Ford F-150. Many areas
of the 600 acre plant are in the midst of a $2 billion
dollar redevelopment and renovation. The truck plant
maintains a living roof atop the building and sky lights
that provide natural light to the assembly plant floor.
To encourage nature to thrive where manufacturing
once did, there are approximately 20,000 honeybees
housed in hives that help attract birds, insects and
small animals to the grounds. In addition, over
100,000 perennials, shrubs and trees were planted on
the property. Ford also is testing a phytoremediation
process to attempt to remove and detoxify
environmental pollutants from soil. In terms of building
practices, over half of the onsite Visitors Center is made
from recycled materials. Photosensory cells above its
main entrance capture sunlight and convert it to usable
energy.
Aerial view of the Ford Rouge Plant's green roof
Photos Courtesy of:
William McDonough
and Partners via
Green Roofs for
Healthy Cities
Ford's sustainable green roof is composed
of nine varieties of sedum
CLEANUP AND REVITALIZATION STRATEGY
Onsite environmental contamination included
semi-volatiles and coal distillates from historical coke
making operations; coal, microscopic coal particles
known as coal fines, and heavy metals from steel
making operations; and petroleum and non petroleum
hydrocarbons from heavy manufacturing operations.
Under oversight of the Michigan Department of
Environmental Quality (MDEQ), voluntary cleanup
measures employed during the remediation of the plant
involved: comprehensive solid waste management
unit identification; site investigation; source removal;
building demolition; phytoremediation; institutional
controls; monitored natural attenuation; and innovative
storm water management techniques. For an example
of the last point, the plant operates a 12,500 gallon
cistern that collects rainwater for irrigation and other
purposes throughout the plant complex.
16
-------
Shrubs, grasses and other vegetation
surround Ford's F-150 Truck Plant in
Dearborn, Michigan
Most notably, the 10.4 acre living roof, installed in
2003, is the symbol of change at the plant. The roof is
composed of sedum, a plant that absorbs water and
carbon dioxide and emits oxygen. The roof provides
insulation to the truck plant below and acts as a natural
filtration system for storm water runoff. While the
cost of a green roof is more than a traditional roof, it is
expected to last twice as long.
RESULTS
The sustainable manufacturing practices in place
at the Ford Rouge property partially offset the carbon
footprint of industrial manufacturing that goes on
inside the plant. The benefits of the living roof are
increased energy savings through insulation of the
truck plant and a roof that is more durable than a
traditional roof. Ford won numerous awards for the
project and complex design, including the Gold LEED
Award from the U.S. Green Building Council, and the
Clean Air Excellence Award from EPA. As it was in
its manufacturing heyday, the plant is once again a
tourist attraction; visitors come from all over to tour the
automobile plant, learn about its history, and see the
possibilities of sustainable development and practices.
PROJECT FUNDING SOURCES
Ford Motor Company
Rows of trees greet visitors to the truck plant at the Ford
Rouge site
Keyj to te«
Reusing and recycling older
buildings in ways that support
both industrial manufacturing and
sustainable practices
Fostering natural habitat to prosper
in an industrial setting
Working under MDEQ oversight to
clean up truck plant site
-------
Hope Rubber Factory—Fitchburg. MA
Committed local government and community collaboration
transform former rubber plant into a riverfront park
BACKGROUND
Situated along the Nashua River in Fitchburg,
Massachusetts approximately 50 miles from Boston,
the Hope Rubber factory produced plastic and rubber
parts until its closure in the 1990s. The closure of this
facility coupled with the closure of a General Electric
(GE) plant in 1998 resulted in the loss of 600 jobs and
an increased number of deficient and vacant buildings
throughout the city, including the 35,000 square foot
Hope Rubber factory. With an unemployment
rate nearly double the national average in 1999
and with almost 12 percent of the population
below the poverty line, this troubled
community was in need of help.
Fitchburg's two acre Riverfront Park
MEETING THE CHALLENGE
The GE shutdown spurred a needed
urban renaissance within the city. By May
1998, a complete Urban Renewal Plan was
prepared and ready for implementation.
The selective renewal program targeted
urban brownfields including the former Hope
Rubber factory located at 40 Commercial Street. To
address contamination at this 1.6 acre property, the
city Planning Board initially used a $200,000 EPA
Brownfields Assessment grant to hire an environmental
contractor to perform Phase I and Phase II
environmental assessments and conduct risk analyses.
This work confirmed the need to address surface soils
contaminated with lead, arsenic and asbestos, and four
underground storage tanks containing fuel oil and
liquids.
"The Fitchburg Riverfront Park
provides people with a place to
enjoy the outdoors and the river as a
community—It has proven that it
has the potential to draw
people back downtown"
—Lisa Wong
Fitchburg Economic Development Office
Keyj to tett
Collaborative effort that included
residents in every aspect of the
cleanup and redevelopment
Assessment activities moved forward /.,
in a cost effective manner using EPA
Brownfields Assessment grant which
allowed Fitchburg Redevelopment
Authority to locate areas of contamination hot spots
CLEANUP AND
REVITALIZATION STRATEGY
The vision of a riverfront park became a reality
through a collaborative effort between the city and its
residents. The Riverfront Park Citizens Committee
composed of business leaders, residents and
government officials was formed to guide the project.
The Committee undertook both small and large tasks,
including small details such as bench and street lamp
preference to the huge task of selecting an architectural
design firm.
Phase 1 of the project is complete; it included
removing 155 cubic yards of contaminated material,
replacing 18 inches of clean cover material, paving
walkways, installing lighting, fencing and benches, and
planting grass, trees and other greenery. The Executive
Office of Environmental Affairs and the Fitchburg
Redevelopment Authority provided the $530,000 in
funding needed for Phase I of the project. Phase 2
is estimated to cost $625,000 to build the park and
renovate the Old Iron Bridge for pedestrian use.
18
-------
Gate* Rubber Plant—Denver, (0
Once dubbed the "West's Biggest Factory," the Gates
Rubber Plant is slated to become one of Denver's
first mixed use, mixed income, transit-oriented
developments. Established in 1911 along the South
Platte River in central Denver, Colorado, the 85 acre
rubber plant produced belts, hoses and tires for
the automobile industry. Gates closed the plant in
1996 after 85 years of operation. In December 2001,
Cherokee Denver, an affiliate of Cherokee Investment
Partners and experienced brownfield redeveloper,
purchased 50 acres of the property. Cherokee plans
to create a $1 billion development that functions as a
minidowntown and destination point complete with
residential, office, retail and entertainment venues,
parks and public plazas, as well as access to a light-rail
station and a park and ride.
Cherokee enrolled the former Gates Rubber property
in Colorado's Voluntary Cleanup Program (VCUP)
and since 2002 is actively cleaning up the property to
address contamination after years of industrial use.
As of winter 2008, Cherokee received three VCUP
plans resulting in No Action Determinations (NADs)
with one other pending close out and three VCUP
plans currently under review. Cherokee estimates
the project's cleanup costs to be approximately
$24.5 million with demolition costs estimated at
about $10.5 million. With a mission of sustainable
development, Cherokee has a goal of recycling 95
percent of the demolition debris and has already
reused 21,900 tons of concrete and nearly 4,000
tons of asphalt onsite or elsewhere to make new
roads, while salvaging almost 2,150 tons of steel. As
RESULTS
Riverfront Park was completed in August 2003 and is
now the key element in the city's proposed $43 million
Fitchburg Urban Revitalization Program. What was
once an urban eyesore and contaminated property was
transformed into a beautiful two acre park complete
with outdoor theater, river promenade, nature trails and
expansive green lawns.
The Gates Rubber Plant prior to cleanup and demolition activities
located next to light rail and close to downtown Denver
one of the first properties in the United States to
be selected as part of the Leadership in Energy and
Environmental Design Neighborhood Development
(LEED ND) pilot program in 2007, the project will
incorporate smart growth principles and green
building design. In addition to these sustainable
elements, the project will include affordable housing
and quality jobs in exchange for $126 million in city
subsidies.
The first phase of the 10-15 year redevelopment
project is underway and includes 410 market rate
and 60 affordable rental units. Phase II of the project,
Metropolitan Gardens, will include one million
square feet of retail space, including Robert Redford's
fourth Sundance Cinema, two hotels, 610,000 square
feet of office space, 850 apartments and 1,300 condos,
as well as parks, pedestrian plazas and a major
transportation hub.
For more information go to:
http://www.cherokeedenver.com/
PROJECT FUNDING SOURCES
• U.S. EPA Brownfield Grant
• State of Massachusetts—Executive
Office of Environmental
Affairs
• Fitchburg Redevelopment
Authority
. Urban Self-Help
Grants
-------
Ford City Revitalization—Ford City, PA
Partnerships vital to Ford City's revitalization efforts
BACKGROUND
Pittsburgh Plate Glass Industries, Inc. (PPG)
established itself in Ford City, Pennsylvania in 1887
and at one time employed 5,000 workers, making
it the largest plate glass factory in the world. By the
time the company ceased operations in Ford City
in 1993—following a decline that started in the mid
1960s—nearly 45 percent of Ford City's population left
the area. The 57 acres that were home to the idle glass
plant represented Ford City's only developable land.
The former PPG facility has been redeveloped into new
office space.
MEETING THE CHALLENGE
Seven acres of the glass plant land were acquired by
Ford City in 1999. Prior to ownership by the city, the
seven acre parcel was leased by AMCO for a foundry
operation. AMCO filed for bankruptcy in 1995 and
abandoned the property, leaving behind three empty
buildings and unknown levels of contamination from
more than a century of industrial uses. To address the
contamination issues, the city entered the property
into the state's VCR The Pennsylvania Department of
Environmental Protection (PA DEP) then performed
a preliminary property assessment. Following a Phase
I site assessment, additional site investigation was
conducted and a cleanup plan was completed.
An EPA Brownfields Assessment grant, awarded to
Ford City in 1998, provided funding for more detailed
Construction activities at the former PPG Factory
assessments of the former AMCO property. These
assessments resulted in the discovery of arsenic and
lead in the soil and VOCs in the ground water. The
grant also assisted Ford City in ongoing negotiations
with PPG to turn over the remaining 50 acres to the
town, providing it with the entire 57 acre property for
cleanup and redevelopment.
CLEANUP AND REVITALIZATION STRATEGY
Ford City Borough created the Greater Ford
City Community Development Corporation in
1999 to administer grant funding and oversee the
redevelopment of brownfields. Quarterly public
meetings were held to allow community participation
in determining reuse. The result was a plan for the new
Heritage and Technology Park (HAT), which when
complete will feature more than 90,000 square feet of
commercial, office and light industrial space within
PPG's former machine shop. To make the HAT a reality,
the city needed more than $1 million for cleanup and
more than $4 million to restore existing buildings on
the seven acre property. The city successfully leveraged
funding from numerous public and private entities,
including EPA, the Department of Housing and Urban
Development, PA DEP, the Economic Development
Administration, U.S. Steel, and the U.S. Army Corps of
Engineers.
Site of the former PPG Factory ready for redevelopment
20
-------
The new Heritage and Technology Park in Ford City
RESULTS
The redevelopment of the original seven acres is now
complete and home to OEM Shades, a window blind
manufacturer. Another building was redeveloped on
the former AMCO Shop 2 property, originally the PPG
machine shop. Currently, Shop 2 has several tenants
occupying the space, with other tenants on their way.
Because of these efforts, Ford City was invited by the
Pittsburgh Federal Executive Board to demonstrate
successful partnerships between the federal government
and grass roots revitalization efforts.
PROJECT FUNDING SOURCES
• Pennsylvania Department of Environmental
Protection
• U.S. Housing and Urban Development Economic
Development Initiative
• Economic Development Administration
. U.S. Steel
• U.S. Army Corps of Engineers
• U.S. EPA Brownfields Assessment Grant
Key to Success
Leveraging resources to
successfully redevelop a former
plate glass factory using local, state
and federal partners
-------
Former Goodyear Facility—Jackson, Ml
Strategic financial incentives lure state-of-the-art power plant
to a former tire manufacturing property
BACKGROUND
The Kinder Morgan Jackson Power Facility
redevelopment project converted a former Goodyear
Tire & Rubber Manufacturing facility into a $250
million, state of the art, natural gas fired and 510
megawatt electric power generation facility in Jackson,
Michigan. Built in the 1930s, Goodyear purchased the
plant in 1936. It operated the plant until an explosion
in 1983 resulted in $4.5 million in damage and forced
the company to close its doors in 1984. Between 1984
and 2000 the 59 acre facility sat dormant and the one
million square foot onsite structure deteriorated to a
state that rendered it unusable.
MEETING THE CHALLENGE
During its 47 years of operation, Goodyear used
and stored large quantities of oil, fuel, solvents and
other hazardous substances needed for manufacturing
tires onsite. The facility also operated 12 high-voltage
transformers that resulted in the need to manage
PCB contaminated oils during the cleanup process.
In 1996, the City of Jackson received a site assessment
grant from the State of Michigan to identify potential
environmental concerns associated with the property.
The property assessment revealed the buildings to be
in poor condition. There was evidence of widespread
vandalism at the property, including broken glass,
graffiti, holes in chain link fencing and piles of rubbish.
In addition, asbestos containing materials were
found throughout the buildings. There were 55 gallon
drums—some that still contained chemicals—on the
property as well as stained soil, oil filled capacitors,
PCB transformers, and oil and grease stained floors.
CLEANUP AND REVITALIZATION STRATEGY
In the late 1990s, both the City and County of
Jackson created a Brownfield Redevelopment Authority
to promote redevelopment of brownfields areas in
and around Jackson. To foster the redevelopment of
the Goodyear property, the city created a Renaissance
Zone as an incentive for Kinder Morgan to develop the
property. Renaissance Zones are designed to provide
communities with powerful market based incentives to
spur new jobs and investment. In addition, businesses
that locate in Renaissance Zones are subject to virtually
no state or local taxes. The creation of the Renaissance
Zone and the collaborative partnership that the local
Construction activities at the Kinder Morgan Jackson Power Plant
22
-------
government offered Kinder Morgan were key factors
in attracting the company to the Goodyear facility. The
location provided readily available access to the existing
transmission grid, natural gas and water supplies.
The incentives for redeveloping the Goodyear facility
helped ameliorate the demolition and environmental
challenges faced at the property.
By December 2000, Kinder Morgan purchased 31
acres of the 59 acre property. Kinder Morgan took
advantage of Michigan's voluntary cleanup program
for brownfields to ensure protection from liability for
previous releases at the property. The company worked
with the state to develop a strategy to contain the
contamination using a risk based approach resulting
in the property be cleaned to standards acceptable for
industrial use.
The state program provides an innovative approach
to tackling the barriers to reusing brownfield
properties. Under the Natural Resources and
Environmental Protection Act, the state can assess and
remediate contaminated sites. The program allows a
risk based approach to cleanup, relying on future use to
determine the degree of remediation needed to support
redevelopment. Institutional controls ensure that future
owners and operators of contaminated sites are aware
of the environmental conditions and abide by the land
use restrictions for properties under Michigan Law.
Keyj to tew
Establishment of a Renaissance Zone
that provided an exemption from
state and local taxes as a financial
incentive to draw a developer to this
property
Partnership between the state's
economic development and regulatory
agencies and the developer
Creation of Brownfields Redevelopment Authorities
at the municipal and county level that provide focus
and resources that overcame previous barriers to
redevelopment
Aerial view of the redeveloped Goodyear property
RESULTS
In July 2002, the Kinder Morgan gas fired electric
power generation facility became fully operational.
The plant, designed to operate at full capacity during
times of peak demand, helps meet the growing energy
shortfall in Michigan. In addition to supplying the state
with power when it is needed most, the $250 million
project is a tremendous asset in revitalizing the local
community and brings significant economic benefits
to the economy. Redevelopment of this brownfield
brought approximately $50 million in local labor and
$15 million in materials during the construction phase
of the project. As a result of facility operation, 15 of the
23 new jobs went to local residents. Additionally, local
infrastructure was improved—approximately $700,000
went to water and sewer upgrades and connections, and
Consumers Energy upgraded the power distribution
structure. These improvements benefit the community
and the greater geographic area.
PROJECT FUNDING SOURCES
« Kinder Morgan
• Consumers Energy
• State of Michigan
• City of Jackson
• Jackson County
-------
Salvage Yards
Former neighborhood eyesores become community assets
BACKGROUND
Salvage yards—where vehicles are dismantled for
reusable parts and fluids, and the remaining materials
are sold as scrap—are a prime example of recycling
and reuse in the country. Automotive recyclers play a
significant role in rebuilding, recovering and reselling
usable parts and recycling materials. Auto recycling
decreases the amount of scrap materials disposed in
landfills. Every year, about eight million cars and five
million trucks are recycled at one of the more than
7,000 auto salvage yards nationwide.
Unfortunately, the automobile recycling processes
used at salvage yards may result in negative impacts on
the environment. Many salvage yards contain rusting
cars, piles of tires, and scrap metal. Salvage yards
can be aesthetically unattractive as well as provide
environmental challenges due to the types of wastes
handled.
IMPACTS OF SALVAGE YARDS ON
COMMUNITIES
Automotive scrap yards tend to be owned and
operated by small businesses. Compliance with
environmental regulations may present a challenge
for these small businesses. The types of hazardous
substances frequently found at salvage yards include:
petroleum based products including oils, lubricants,
fuel, antifreeze, brake fluid, steering fluid, freon or
In 2002, the Florida Department of
Environmental Protection announced the
"Green Yards" program for auto salvage
yards. The pilot program helps automotive
recyclers understand and comply with
environmental regulations and encourages
voluntary compliance without enforcement
risk. Property owners achieve the designation
by demonstrating environmental compliance
with more than 35 best management
practices. As of 2007, 24 properties were
officially recognized as "Green Yards" and
more than 100 owners signed letters of intent
for the program. The program supports the
implementation of best management practices
that help owners of salvage yards achieve
environmental compliance and decrease the
threat of contamination on their properties.
other refrigerants; mercury from switches; lead from
lead acid batteries and wheel weights; and asbestos
from brakes. Many states such as California, Colorado,
Florida and Vermont identify best management
practices and develop guidance to ensure that facilities
are in compliance with environmental regulations.
In addition to compliance concerns at these facilities,
challenges arise when operations close. Former salvage
yards can become eyesores in the communities they
once served. These properties may have significant
levels of contamination. Given the size of the properties
or the extent of potential contamination, the costs
associated with cleaning up these properties may be
significant.
New flooring business on the former National Auto Wrecking Co.
property
24
-------
COMMUNITIES MEETING THE CHALLENGE
Although former salvage yards may pose concern to
communities due to potential contamination and blight,
the cleanup and redevelopment of these properties can
help revitalize areas that were once considered eyesores
to the community as shown in Onalaska, Wisconsin and
Minneapolis, Minnesota.
1 Interagency cooperation and
partnerships facilitate the timely
cleanup and redevelopment of two
former salvage yards
Closure letters and Prospective
Purchaser Agreements provide
liability assurances to assuage
developer liability concerns
National Auto Wrecking Company
In Onalaska, Wisconsin, the National Auto Wrecking
Company operated from f 952 to f 994 burning and
crushing vehicles, salvaging car batteries, cutting
transformers, and cutting up petroleum tanks. The
2.5 acre property was contaminated with PCBs, lead,
motor oil, transmission fluids, antifreeze and other
hazardous contaminants associated with the salvaging
of vehicles.
After being approached by the Wisconsin Department
of Natural Resources (WI DNR) about contamination
concerns in 2000, the former owner and operator
agreed to spend $170,000 to determine the scope of
soil contamination. The results revealed PCB and
lead soil contamination. After the bankruptcy of
the owner's estate, WI DNR and the EPA Region 5
Superfund Program formed a partnership and worked
together to determine the cleanup remedy and
implementation. The WI DNR spent an additional
$30,600 on property contamination investigations.
Over the course of the project, approximately 11,000
tons of contaminated soil, more than 400 tons of
debris, and 16 55 gallon drums of waste oils were
New business in the light industrial park
reused, recycled or chemically treated and properly
disposed. Using approximately $800,000 in federal
funding, cleanup was complete in May 2004. Then
the property was purchased by a developer who
received a "closure letter" to signal the end of cleanup
and protect the developer and any future owners
from environmental liability. As a result of EPAs and
WI DNRs partnership, three new light industrial
businesses—including heating and cooling, windows
and siding, and flooring businesses—now occupy the
property.
»•• ' -«
* , -^teai
^
LM«iKs
' ^T_
vwws
;
-------
Salvage Yards
Abandoned building, Anderson, IN
Former GM plant, Baltimore, MD
National Auto Wrecking Co. property
Former Doc'i Auto Salvage
Through innovative interagency cooperation and
partnerships, Hennepin County, the Minnesota
Pollution Control Agency (MPCA), the Metropolitan
Council and EPA facilitated the reuse of a long idle
brownfield located within a federally designated
urban Empowerment Zone in Minneapolis,
Minnesota. The Former Doc's Auto Salvage property
historically was occupied by a drum-reconditioning
facility, a service station and a scrap yard. From
the mid 1970s until the early 1990s, the scrap yard
was cited on numerous occasions for unlawful
disposal of hazardous waste and illegal discharges
of contaminated stormwater. In 1995, the business
closed and the 1.1 acre property forfeited to
Hennepin County. Due to pervasive contamination,
the property was added to the Minnesota State
Superfund List in 1997.
Given its small size, known contamination and
location in a blighted neighborhood, the property
remained vacant for several years. To expedite
cleanup and redevelopment, Hennepin County
and the MPCA developed a unique Joint Powers
Agreement (JPA), which allowed the two agencies to
combine resources to clean up the property. At the
MPCAs request, EPA completed a removal action,
resulting in the expedited treatment and disposal
of 3,670 tons of lead contaminated hazardous
soil. Hennepin County, with the assistance of its
consultant and the MPCA, completed an extensive
site assessment, directed and contracted for building
demolition, and arranged for the removal and
disposal of drums, solid waste, and approximately
2,600 tons of contaminated soil within the
redevelopment timeframe. Hennepin County enrolled
the property in the MPCAs Voluntary Investigation
and Cleanup Program to obtain liability assurances
for the Metropolitan Council, the future owner.
After securing a Prospective Purchaser Agreement
from EPA, the Metropolitan Council purchased the
property and constructed a $3 million transit control
center, which opened in 2002 and employs 30 people.
Old and abandoned automobiles end up in salvage yard
26
-------
Gas Stations and Underground Storage Tanks
Addressing the challenges of USTs with innovative concepts
BACKGROUND
As ubiquitous as the car is to American society, so
is the neighborhood gas station. At one time, a gas
station was always just down the street or around the
corner. Today, many gas stations are closed, vacant
or simply underutilized, and many of those are left
with petroleum contamination and underground
storage tanks buried beneath. In some areas of the
country, transportation corridors exist with numerous
Underground Storage Tank sites at gas stations and
other industrial facilities. Some are vacant, some
abandoned, and some still in operation, but with
leaking underground storage tanks buried just below
the surface.
EPA estimates that there are approximately 640,000
underground storage tanks nationwide that store
petroleum or hazardous substances, and the Agency
defines an UST as: "a tank and any underground piping
connected to the tank that has at least 10 percent of its
combined volume underground." The dangers of USTs
include the corrosion and leaking of bare steel tanks,
which can lead to the contamination of soil and ground
water with petroleum fuel, fuel additives or other
hazardous substances.
EPA MEETS THE CHALLENGE
As discussed earlier in this report, EPA is addressing
challenges of leaking USTs under several programs,
including RCRA, Superfund and Brownfields. EPA
launched the USTfields Initiative in 2001 to promote
revitalization efforts at sites with leaking USTs and gas
stations across the country. When Congress passed the
Brownfields Law and amended Superfund in 2002, 25
percent of Brownfields grant monies were allocated
specifically for assessment and cleanup of brownfields
contaminated with petroleum and petroleum products.
Digging up an UST outside a muffler shop along Route 66
-------
Gas Stations and Underground Storage Tanks
Inventories - - Counting the Opportunities
Taking inventory of LIST sites and contaminated
properties is a useful tool for stakeholders to
identify priority properties and bring limited
resources to bear. Site inventories help encourage
private investment, foster redevelopment planning,
target cleanup and reuse efforts, and prioritize
sites based on the extent of environmental
contamination.
Using publically available resources—a variety
of maps, fire department files, records of LIST
permits, state and county databases—inventories
can be made into simple spreadsheets or
elaborate geographic information systems. Some
inventories are for city officials only, while still
others are available to the public.
In the State of Washington, the Tacoma-Pierce
County Health Department inventoried more than
740 former gas station sites in Pierce County
through its Abandoned Commercial Tank Project.
In 2004, the Los Angeles Department of
Environmental Affairs took a brownfields
inventory which included approximately
50 properties in the 466 square mile city.
The inventory started out as an electronic
spreadsheet used to track former gasoline
station properties, and through an EPA
Brownfields Assessment grant, was expanded
to include other types of sites. It was updated
from an electronic spreadsheet to a technically
advanced and user friendly Web-based
database. The City of West Sacramento
inventoried over 500 parcels to create a system
that interfaces with the city's GIS database.
The inventory is publically available and gives
potential developers access to assessment
information and helps city officials advance their
redevelopment objectives.
IMPACT OF USTS ON COMMUNITIES
Although petroleum contamination and USTs
present potential hazards to communities, they also
present opportunities. Gas station properties are usually
located in high traffic areas that offer redevelopment
potential. Unfortunately, these properties can suffer in
developers eyes due to real or perceived contamination.
Environmental assessment, cleanup and subsequent
redevelopment can help reverse the blight in these
areas. The USTfields Initiative demonstrates that
communities benefit economically from redeveloped
UST sites, especially those that are part of a larger
revitalization effort. Additionally, USTs and gas station
properties that are clustered in a community can be
inventoried (see textbox) inventories can then help
stakeholders prioritize sites resources.
Workers unearth large
underground storage
tanks
Gas station along Rt. 66 corridor
-------
Route 66 Initiative*
In the southwest, a collaborative effort between
EPA Region 9 and the Arizona Department of
Environmental Quality (ADEQ) is exploring
opportunities and barriers to redevelopment along
the State of Arizona's section of the famed Route 66
corridor.
Serving as the first cross country highway connecting
Los Angeles and Chicago, Route 66 was a main
artery roadway for over 40 years. After 1970, four
lane highways bypassed many parts of the road and it
became the road less taken. In its heyday, hundreds
of gas stations sprung up to support the thriving
roadway. And while they still dot the landscape,
many of these fueling stations leaked petroleum into
the soil and ground water. In Arizona alone, it is
estimated that 350 sites with leaking USTs or piping
are located along the state's 200 miles of the original
route. ADEQ created the Route 66 Initiative to address
those sites. Approximately 75 percent of the Arizona
sites are closed, with corrective action completed or
unnecessary. The remaining 25 percent await further
investigation or cleanup.
Abandoned outbuilding along Route 66
In 2004, ADEQ began working with affected
communities along the route—such as Winslow,
Holbrook, and Joseph City—because of a large
number of UST releases affecting the ground water
in these cities. The following year, ADEQ partnered
with more communities and since January 2006,
is looking at the full spectrum of sites along the
roadway through the Route 66 Initiative. The goals
of the program are to remove USTs through the
state's Municipal Tank Closure Program (MTCP),
identify and clean up UST releases or spills, and work
with owners, operators or any volunteers regarding
releases.
Historic Highways Project
The Historic Highways Project picks up the inventory
and assessment of abandoned gas stations along Route
66 in the states of Missouri and Kansas, as well as the
former Lincoln Highway in Iowa and Nebraska. In
August 2007, the Historic Highways Project got started
when a team of federal and state agencies identified
and developed an inventory of 217 gas stations in 115
different communities along the Route 66 highway.
Led by the EPA Region 7 Land Revitalization Team,
the project team members include: EPA Brownfields
and Underground Tanks Programs, the National Park
Service, the Missouri Department of Natural Resources,
the Kansas Department of Health and Environment,
the Iowa Department of Natural Resources, and the
Nebraska Department of Environmental Quality.
The overall goals of this project are to assist
communities and owners of gas stations along the
route in identifying and addressing any barriers to
using these sites in a sustainable manner. Since the
original group of sites was identified, the project has
concentrated on properties that have the best chance
of redevelopment and reuse. The types of assistance
available includes reuse planning, site assessments,
legal advice, historical restoration grants,
environmental assessment and cleanup grants, and
technical assistance on environmental investigation
and cleanup.
-------
Prineville, Oregon Gaj totion-
A Part of the Whole
UST sites and former gas stations can sometimes
play a role in a larger redevelopment project. While
these properties are typically smaller in size—but are
situated in prime locations (e.g., busy street corners,
downtown areas)—they can be combined with large
scale redevelopment efforts and make more of an
impact. For example, in the small town of Prineville,
Oregon, the site of a former gas station with soil and
ground water contamination was part of an effort
to revitalize downtown after a decade of population
growth.
To accommodate the growth, the city began
revitalizing a portion of its downtown area,
some of which was damaged by a flood in 1989.
A comprehensive revitalization project included
redeveloping damaged properties, constructing a
During construction on the new City-County
Government Services complex on the same corner
Before image of Prineville gas station on busy
street corner
new City-County Government Services Complex
and family resource center, creating new parks
and open space, and extending the road. As part of
that larger effort, the 0.25 acre former gas station
property was redeveloped to be a new City Hall and
Community Plaza. The property, which was located in
the flood plain area, was found to have leaking USTs
and gasoline vapors migrating to nearby buildings
contaminating air quality.
In 2004, a $200,000 Brownfields Cleanup grant was
used to address soil and ground water petroleum
contamination and minimize vapor migration. More
than 2,700 tons of petroleum impacted soil were
excavated; onsite treatment of contaminated ground
water was conducted; and onsite buildings were
demolished. After the cleanup and redevelopment
were completed, the City Hall and Community Plaza
hosts visitors for concerts, speeches and community
events.
Former service station sits idle
along the roadway
30
-------
Going Forward
Idled and blighted former automotive properties
can have significant negative environmental and
economic impacts on communities. Municipalities
have successfully addressed these properties by
partnering with EPA, auto manufacturers, states and
other interested parties. Collaboration, planning and
information exchange are key methods for moving
forward.
The information presented in this report identifies
successful strategies and partnerships that can assist
municipalities in planning for upcoming automotive
plant closures and consolidations. This planning
can help facilitate the return of former auto sector
properties to productive reuse.
The following insights and strategies were gathered
from local governments that successfully met the
challenges of cleanup and redevelopment at former
auto related properties.
Keep long term sustainability in mind during
planning, cleanup, and redevelopment. Using
sustainable cleanup and redevelopment practices
throughout the entire life cycle of a project can result
in long term environmental, economic and social
benefits. Since many auto related properties are
centrally located in urban areas where infrastructure
already exists, developers have an opportunity to use
existing infrastructure and help preserve greenspace
by reusing these properties. When readying a property
for redevelopment, using construction and demolition
materials recycling strategies diverts waste from
landfills, reduces the amount of raw materials needed
for new products, and may provide economic benefits.
This was the case in the Baltimore GM project where
recycling 96 percent of all non hazardous building
materials offset the total cost of building demolition.
Incorporating green building design techniques into
projects such as energy and water efficiency strategies;
using reused, recycled and regional materials; and
stormwater management best practices can provide
environmental as well as economic benefits through
reduced energy usage and reduction in long term
expenditures.
Native landscaping at the new retail center, Allen Park, MI
Work with the auto manufacturers in the region to
address properties that are already closed or idle, and
proactively plan for any future closures. This enables the
community to provide input to the reuse plan as well
as provides the manufacturers with an understanding
of the community goals for a property. For example, in
Anderson, Indiana, the collaborative relationship struck
between the city and General Motors, allowed for the
transfer of 300 acres to the city. The city is redeveloping
the area, making a positive difference in its future.
It is important for communities to incorporate
sufficient time for public outreach when developing
project timelines. For example, the City of Kenosha,
Wisconsin held two citywide forums to discuss the
community's ideas for reuse and then partnered with
Chrysler and ULI to develop a plan that reflected
the community's vision. As a result, a majority of the
community supported the redevelopment effort and
understood the length of time needed for the project.
Communities can be creative with
financial and other incentives
when working with auto
manufacturers. To make
the project financially
enticing, Allen Park,
Michigan used tax
increment financing to
-------
reimburse some of the auto company's redevelopment
costs. Anderson, Indiana used profit sharing with the
developers based on the number of local jobs created.
Identify opportunities to streamline regulatory
and administrative processes wherever possible.
Because these properties are often large, contain
widespread contamination, and can cross county lines,
they are usually under the jurisdiction of multiple
regulatory agencies and localities. Working with
the local, state and federal government to develop
streamlined planning, administrative, permitting, and
regulatory approaches and processes can help save
time and money—two factors that may ultimately
determine whether a developer proceeds with a
project. In the Baltimore GM project, the collaboration
among EPA Region 3's RCRA Program, MDE and
the developer helped streamline the RCRA and VCP
requirements to meet an 18 month cleanup deadline.
midstream. For example, the Ford Rouge plant was
originally designed to be a self-sustaining automobile
operation and had power, glass, cement and byproduct
facilities onsite—and as a result contained a wide array
of contaminants. Whether the property is small or
large, thorough site assessment and characterization
of contaminants are instrumental to identifying the
cleanup activities needed to realize the property's
full potential. Garnering a full understanding of the
properties' challenges up front will facilitate future
reuse opportunities.
In conclusion, underutilized or idled properties
created by economic conditions that resulted in
the consolidation of the U.S. automotive industry
create distinct challenges for municipalities. Many
local governments are turning these challenges into
opportunities for community revitalization and
planning for the future as the automotive industry
Riverfront Park, Fitchburg, MA
Truck plant at Ford Rouge,
Dearborn, MI
Demolition at Gates Rubber Plant,
Denver, CO
Creating an implementation strategy during the
initial phases of the project that outlines timelines,
roles and responsibilities, and estimated costs can be
instrumental in managing the project tasks, reassessing
the process as issues arise, mitigating schedule lags, and
assisting in decision making.
Characterize the property through in depth and
extensive site assessments. Many automobile facilities
and salvage yards operated for years and as a result can
have significant and varied contamination. Thorough
characterization helps mitigate unexpected future
contamination findings which could halt the project
continues to transition. It is also important to note that
applying the strategies and lessons learned presented
in this report at one property can help establish strong
partnerships for future redevelopment projects,
create a coalition of knowledgeable and informed
stakeholders, and streamline and facilitate community
wide revitalization through a better understanding
of applicable local, state and federal cleanup and
redevelopment regulations. For more information on
how EPA can help with a former auto sector property,
please visit EPA program office Web sites.7
-------
Paving the Way to te«: Took of the Trade
In addition to the more auto specific strategies
previously outlined, municipalities may want to
consider incorporating the following general principles
and tools in their redevelopment plans.
Build collaborative partnerships to pool financial
and other resources; establish multidisciplinary teams
to creatively address a projects challenges; and when
possible, incorporate smaller redevelopment projects
into area wide redevelopment efforts.
Encourage community involvement from the initial
planning stages through a projects completion; this
can pave the way for a conflict free and community
supported endeavor. Involvement can range from
quarterly public meetings to more in depth design
charrettes and visioning sessions to determine a
property's reuse.
Identify a local champion or dedicated project
advocate to coordinate among stakeholder groups
and ensure that consensus is achieved throughout
each phase of the project, stakeholder interests
are recognized and understood by everyone in the
process, and project obstacles or issues are quickly
addressed.
Address and manage liability concerns by
understanding the applicable state and federal
regulations and liability protections early in the
process. Whenever possible, work with state
voluntary cleanup programs to help navigate the
cleanup. In addition, municipalities should work
with EPA and their state VCP to establish additional
assurances such as closure letters and Prospective
Purchaser Agreements to outline what activities must
be finished before cleanup is considered complete and
the property is "ready for reuse."
Plan for success and determine the specific end
use of a property as early as possible in the process.
Better designed, more cost effective, faster, and more
marketable cleanup and redevelopment projects can
be achieved through up front end use determination.
ENDNOTES
1 For the purposes of this report, "automobile manufacturing"
includes data from NAICS codes 3361, 3362, and 3363. These
sectors include not only automobiles but also light duty trucks and
utility vehicles (336112), heavy duty trucks (33612), truck trailers
(336212), motor homes (336213), and campers (336214).
2 US. Census Bureau. U.S. Census Statistical Abstract for 1995.
Retrieved November 2007, from http://www.census.gov/prod/
www/statistical-abstract-1995_2000.html
3 Office of Aerospace and Automotive Industries International Trade
Administration, U.S. Department of Commerce. The American
Automotive Industry Supply Chain—In the Throes of a Rattling
Revolution. Retrieved December 2007, from http://www.tmde.
gov/td/auto/domestic/SupplyChain.pdf
4 Office of Aerospace and Automotive Industries International Trade
Administration, U.S. Department of Commerce. April 2006. The
Road Ahead for the U.S. Auto Industry. Retrieved December 2007,
from http://www. ita.doc.gov/td/auto/domestic/roadahead06.pdf
5 Office of Aerospace and Automotive Industries International Trade
Administration, U.S. Department of Commerce. April 2006. The
Road Ahead for the U.S. Auto Industry. Retrieved December 2007,
from http://www. ita.doc.gov/td/auto/domestic/roadahead06.pdf
6 U.S. Census Bureau. Economic Census for years 1997 and 2002.
Retrieved November 2007, from http://www.census.gov/epcd/
www/econ97.html
7 Brownfields: http://www.epa.gov/brownfields/
RCRA: http://www.epa.gov/rcraonline/
Superfund: http://www.epa.gov/superfund/index.htm.
OUST: http://www.epa.gov/OUST/
,
-------
United States
Environmental Protection
Agency
Office of Brownfields
and Land Revitalization
EPA560-R-07-001
April 2008
www.epa.gov
warn.
------- |