&EPA
United States
Environmental Protection
Agency
Petroleum Brownfields:
Selecting A Reuse Option
Printed on Recycled Paper
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Foreword
The U.S. Environmental Protection Agency (EPA) Office of Underground
Storage Tanks (OUST), in partnership with the EPA Office of Brownfields
and Land Revitalization (OBLR) and local, state, tribal, federal, and other
stakeholders, released the Petroleum Brownfields Action Plan: Promoting
Revitalization And Sustainability (Action Plan) in October 2008 (www.epa.
gov/oust/rags/petrobfactionplan.pdf). The Action Plan was developed to
improve stakeholder communications; expand technical assistance to states,
tribes, and local governments; explore potential policy changes; and build
upon existing successes by expanding partnerships to address petroleum-
contaminated properties. Since the release of the Action Plan, EPA developed
Petroleum Brownfields: Developing Inventories (www.epa.gov/oust/pubs/
pbfdevelopinventories.pdf) and expanded and updated the EPA OUST Web
site (www.epa.gov/oust/petroleumbrownfields) to better assist stakeholders.
Now EPA, with the support and input of experienced stakeholders, has
developed this new redevelopment tool, Petroleum Brownfields: Selecting A
Reuse Option, which is a catalogue of reuse ideas for petroleum-contaminated
properties.
This catalogue was developed to assist state, tribal, and local public officials,
communities, developers, and nonprofit organizations in envisioning the
wide array of reuse options they have for petroleum-contaminated properties.
It presents examples of successful reuse projects, identifies best practices,
and describes what is possible, the benefits of reuse, and general lessons
learned in each case. The catalogue was created by compiling information
from a variety of successful redevelopment projects from across the country.
It presents case studies for commercial, public, residential, greenspace, and
mixed-use reuse options. The extent and diversity of these successful projects
provide a wealth of information to inspire and guide others in transforming
petroleum brownfields into vibrant community assets.
U.S. Environmental Protection Agency
Office of Solid Waste and Emergency Response
Office of Underground Storage Tanks
Washington, D.C. 20460
Petroleum Brownfields: Selecting A Reuse Option
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Contents
Introduction 1
Starting Redevelopment In Your Community 2
Types Of Redevelopment 4
Commercial 5
Public 9
Residential 13
Greenspace 17
Mixed-use 21
Successful Redevelopment Approaches 25
Moving Forward 28
Petroleum Brownfields: Selecting A Reuse Option
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Introduction
The removal of an underground storage tank
Communities across the country have learned to leverage
the unique characteristics of brownfield properties
contaminated with petroleum—such as former gas
stations, auto body shops, industrial facilities, and
commercial and residential properties—and convert these
abandoned or blighted properties into beneficial new uses.
Many of these characteristics, including property size,
location, and prior use, give petroleum brownfields special
appeal and flexibility.
One common feature among many petroleum brownfields is size: a majority of these
properties are former gas stations occupying relatively small parcels of land and are
typically distributed throughout communities, along major roadways, or at intersections in
neighborhoods. Small properties can be used for neighborhood amenities, including pocket
parks (small urban parks frequently created on a single parcel), restaurants, senior housing,
community centers, and much more. Properties can also be combined with other parcels, or
assembled, to enable larger projects. Additionally, petroleum brownfields are often close to
community resources and services. Redeveloping these properties will eliminate blight and
create valuable spaces in which a community may live, work, or play.
This catalogue provides examples of reuse and identifies strategies and tools that
communities have found helpful in cleaning up and reusing petroleum brownfields. In the
Types Of Redevelopment section, five reuse categories are outlined: commercial, public,
residential, greenspace, and mixed-use. Case studies for each of these categories illustrate
key components of redevelopment. Most case studies are brief and are intended primarily to
introduce a new reuse option, but several are longer and include more details that users may
find useful. In general, most of these redevelopment projects achieved success by:
• Developing a strong vision for reuse;
• Engaging the community to explore a property's reuse potential;
• Understanding and applying available financial and technical assistance resources; and
• Building strong partnerships among the project team, community members, and
regulatory agencies throughout the entire life of the project.
In addition to these components, several trends proved useful in helping communities reduce
costs, increase the value of properties, and be better stewards of the environment. These
included:
• Assembling several small properties or appending a small petroleum property to a
larger, neighboring parcel;
• Incorporating sustainable design into the redevelopment project; and
• Considering an interim reuse for a property while planning for its permanent or long-
term reuse.
A former service garage redeveloped
into a car dealership
Petroleum brownfield projects can benefit from a strong vision
of the intended reuse. To ensure that the property reuse is
consistent with environmental and cleanup requirements,
communities are encouraged to work with their local,
state, tribal, and federal regulatory partners. Outreach and
collaboration can build support for a project and provide an
avenue for ideas that can lead to new insights or designs that
best suit local conditions.
Petroleum Brownfields: Selecting A Reuse Option
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Starting Redevelopment In Your
Community
Petroleum brownfields present excellent redevelopment opportunities. The following themes
are part of the redevelopment process and are highlighted in several of the case studies
that are presented in the Types Of Redevelopment section. Each petroleum brownfield
redevelopment project is unique and so may address these themes differently.
Abandoned gas station on tribal land in Santa Domingo, New Mexico
Identifying Properties
A list of petroleum brownfield properties, or an inventory, is an excellent place to begin
evaluating petroleum-contaminated properties for cleanup and reuse. EPA's Petroleum
Brownfields: Developing Inventories (www.epa.gov/oust/pubs/pbfdevelopinventories.pdf)
provides a comprehensive look at how to develop an inventory of sites, which may include
vacant properties potentially impacted by petroleum contamination. Several states and local
governments have begun compiling brownfields inventories; for more information regarding
existing inventories in your community or state, interested parties can contact their state
response program to obtain petroleum brownfields property information.
Planning Preliminary Reuse Options
While petroleum brownfields may present challenges to redevelopment, they also can create
opportunities. Careful planning and attention is needed when planning for a property's
redevelopment. It is essential to make certain that the reuse vision meets the requirements of
state and local regulatory programs. Individual property considerations such as parcel size,
shape, and environmental conditions also need to be taken into account when determining the
best reuse option.
Working With Partners
Partners are an invaluable component of redevelopment projects. Partners such as local,
state, and tribal government agencies, business owners, community groups, and developers
can help identify redevelopment opportunities to meet a community need or fill a private
market niche. Opportunities to engage a variety of partners include: project planning and
Petroleum Brownfields: Selecting A Reuse Option
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Community celebration at the dedication of the
Fruitvale Home and Family project
outreach, neighborhood association meetings or newsletters, discussions with community
leaders and community development corporations, interviews with residents and business
owners of surrounding properties identified during an inventory process, or other mechanisms.
Involving The Community
Community support is a critical factor and an
ongoing process in the success of a project.
Getting the community engaged and excited in
the planning process can help build momentum
for the reuse and expand the network of investors,
such as businesses looking to relocate or expand.
In addition, discussions with community members
can reveal historical or past use information about
the property that can help guide the cleanup and
redevelopment. An understanding of community
concerns can lead to design options that make the reuse more consistent with community
needs, whether those are job creation, housing, commercial services, or public use.
Considering Redevelopment Early
Addressing redevelopment at the start of
the process and considering reuse during
the cleanup plan can be beneficial to the
success of the project. It is important to
work with state regulators early in the
planning process to ensure that required
cleanup levels will be achieved for the
desired reuse. Understanding these
goals will help address any problems
in the planning phase and will allow for
changes before the project is underway.
For example, incorporating a vapor barrier and venting system as part of a building design and
construction adds little to the overall development cost; however, recognizing the problem and
installing such systems after construction is completed can be much more expensive.
Also, creative planning for a project can allow for interim uses for a property before it arrives
at its permanent reuse. If a redevelopment cannot occur immediately—either due to time
required for land assembly, financing, or other reasons—an interim use may be appropriate.
This could be the leasing of a building for storage or commercial use or the development of the
land as a park or parking lot. Often these interim developments provide an important service
to the community and may not be recognized as interim until a more beneficial use is identified
and completed. For example, community groups might see vacant lots as opportunities for
recreational sports fields as an interim use before long-term reuse plans are developed.
The City of Flagstaff, Arizona, is finding ways to utilize abandoned
gas stations for interim use throughout the city
Understanding Financing
Community members help construct a community gateway
wildflower garden and rock wall as an interim use
It is important to budget for assessment,
cleanup, and redevelopment costs and to
review a comprehensive list of available
financing options. This will help determine the
most advantageous combination of incentives.
Taking into account eligibility requirements
and the timing of public funds is essential to
a project's success. For instance, some grant
programs require that a municipality own the
property in order to be eligible for financing.
Determining all cost categories will show which funding sources make sense, when they can
be used in the project, and what reporting and documentation will be required.
Each petroleum brownfield project requires a different redevelopment blueprint. Each
community and property is unique, and even properties in one community may be at different
stages in the redevelopment process. Petroleum Brownfields: Selecting A Reuse Option aims
to encourage community discussion, professional planning, and sound decision making while
considering viable reuse options for petroleum brownfields.
Petroleum Brownfields: Selecting A Reuse Option
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Types Of Redevelopment
An abandoned gas station along Route 66 provides
an opportunity for future redevelopment
Petroleum brownfields constitute a
significant part of the larger brownfields
universe. Communities throughout the
country are beginning to share their
successes and approaches to assessing,
cleaning up, and reusing these properties.
While redevelopment costs and potential
uses vary significantly based on property
size and the local real estate market,
properties can be redeveloped regardless of
their location.
A broad range of redevelopment options have been successful at petroleum brownfield
properties. Properties have been reused as parks, retail shops, small businesses, schools,
firehouses, condominiums, community gardens, and even as alternative fueling stations.
When talking to communities about their
petroleum brownfield redevelopment projects,
it is clear that they are not deterred by the
type of contamination, the size of the property,
the location of the property, or the local real
estate market. These petroleum brownfield
stakeholders see blight in their community as a
real opportunity to change the landscape. While
these factors help identify the best reuse, none of
them need to be considered barriers to success.
To protect human health and the environment,
a stormwater collection system was developed at
McMinnville, Oregon, abandoned asphalt plant
This catalogue presents five categories of reuse: commercial, public, residential, greenspace,
and mixed-use. These categories recognize the main types of redevelopment that have been
successful on cleaned up petroleum brownfields across the nation.
The remainder of this section focuses on each of the reuse categories. The discussion of each
category includes important factors to consider, key components and lessons from similar
petroleum brownfield reuse projects, and a summary of the benefits associated with the reuse
category. Case studies aim to help petroleum brownfields stakeholders understand the variety
of redevelopment options within a category. Each category contains several shorter additional
project examples to illustrate the variety of projects possible. Redevelopment potential can
be limited by specific property or regional characteristics, but focusing on the needs of the
community, being creative, and being motivated are what made the projects presented
successful.
Five Redevelopment Options - Category Definitions
Commercial - Property used for retail shops, offices, restaurants, and other
businesses. This use of properties generates economic revenue for business and tax
revenue and jobs for the community.
Public - Property used by a local, state, or tribal government agency or a non-profit
group to serve citizen needs. This can include libraries and schools, government
offices, public infrastructure, or other services for the general public.
Residential - Property used for residential purposes such as single-family homes,
townhouses, condominiums, and apartments.
Greenspace - Property used for sports facilities and fields, community parks, walking
trails, open space, and other leisure activities and land conservation efforts.
Mixed-use - Property used for multiple purposes. For example, a building with retail
shops on the ground floor and condominiums on the upper floors.
Petroleum Brownfields: Selecting A Reuse Option
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Commercial
Service And Employment Opportunities For Your Community - Commercial Reuse Options
Examples Of
Commercial
Reuse Include:
Pharmacy
Restaurant or
coffee shop
Shopping center
Supermarket
Office building
Light
manufacturing
business
During the second half of the last century, many
city centers and small-town downtown areas
experienced a decline in population and core
manufacturing activities. As populations shifted,
downtown economic centers slipped into decline,
and businesses, including gas stations, closed or
relocated to undeveloped land along the interstate
highways. The net result of this movement left
neighborhoods in cities' central business districts
without services such as banks, retail facilities,
and grocery stores. For the people remaining in
these areas, petroleum brownfields represent an
opportunity to regain some of these critical services.
A former service station in Wood River, Nebraska, was
redeveloped into a branch of Heritage Bank
Across the country, petroleum-contaminated properties are being cleaned up and reused for
large and small businesses to accommodate the trend of populations moving back to city centers.
Communities are developing plans and strategies for the commercial redevelopment of petroleum
brownfields to benefit the entire community by providing services and employment opportunities.
Small businesses might find an old gas station property a perfect fit for a new bank, pharmacy,
or restaurant. In addition, larger commercial and retail redevelopment opportunities can occur on
larger petroleum brownfield properties or through the assembly of several smaller properties.
Westminster, Colorado - Commercial Building
Westminster was settled by pioneers in the mid-19th century, thanks to the nearby discovery of gold, and evolved into
an agricultural-based community. Since that time, Westminster's rich heritage led to the establishment of the Harris
Park Historic District. Located within this district is the Neighborhood Building, a project viewed as the catalyst for
future revitalization in the area.
The Neighborhood Building property was formerly used as a bowling alley, an ice cream shop, and then as an
automotive service station from the 1950s until the early 1980s. Leaking underground storage tanks forced city
officials to remediate a plume of petroleum contamination under the property. The property was assessed using
EPA Brownfields Assessment funding, and cleanup was financed and conducted through the Colorado Division of
Oil and Public Safety under the state Leaking Underground Storage Tank (LUST) Program. Remediation includes
soil excavation as well as soil remediation that will be completed one to three years after the completion date of
the redevelopment.
Continued..
Former automotive service property was redeveloped into commercial/office space in Westminster, Colorado
Petroleum Brownfields: Selecting A Reuse Option 5
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Prior to initiating redevelopment activities, a market study was conducted to determine the needs of the community.
The market study indicated that a commercial building would help to revitalize the historic downtown area.
Redevelopment activities were integrated with the cleanup and resulted in the opening of the 12,000-square-foot
commercial Neighborhood Building in the summer of 2008.
The Neighborhood Building includes retail space on the first floor and office space on the second floor. Current
tenants include the Colorado Rural Housing Development Corporation, a cafe, a massage therapist, a hair salon,
and a real estate office. The entire project includes the assembly of three properties and offers a small courtyard
area and seating areas for adjacent businesses and future adjacent residences. The redevelopment project
spurred the development of 12 townhouses that are currently under construction.
Key Components And Lessons Learned:
• A market study to determine the most beneficial and feasible reuse was helpful to guide the
redevelopment.
• The assembly of three parcels allowed more room for the redevelopment of a larger commercial
building.
• The project was a gateway to redevelopment of the historic area of Westminster.
New biofuels station in Eugene, Oregon
Eugene, Oregon - Alternative Fueling Station
Located along McVay Highway in the City of Eugene, a 0.6-acre
former gas station was unused and an eyesore and hazard to
the community due to contaminated soil and groundwater. The
successful cleanup of the property resulted in the sustainable
redevelopment of an alternative fueling station. Completed in
August 2006, it is the first station of its kind in the country. The
station sells SeQuential biofuels (including ethanol and biodiesel
blends) and features photovoltaic panels above the pump stations
that provide as much as half the station's electricity needs. The
convenience store has an "eco-roof" with soil and thousands of
plants that help keep the store warm in the winter and cool during the summer. The property also features storm
water retention "bioswales" in which plants filter rainwater before it runs off the site.
Albertville, Alabama - Retail Small Business
The City of Albertville, the Alabama Department of
Environmental Management, EPA, and developers
worked to turn the site of a former convenience
store, gas station, and tractor sales business into
a newWalgreens store. The commercial reuse
demonstrates the viability of redevelopment
opportunities in this small bedroom community
outside of Huntsville.
Kansas City, Missouri - Commercial Corridors
In Kansas City, the city used EPA funding to develop a
comprehensive inventory of petroleum brownfields along the
Prospect andTroost commercial corridors. The city identified more
than 250 petroleum brownfield properties within the targeted
redevelopment areas. Using the inventory, the city was able to
focus redevelopment efforts at prime locations. The successful
redevelopment of former filling stations and garages provides hope
to residents of depressed neighborhoods along Prospect and Troost
avenues. For example, along Southwest Boulevard, now referred
to as Restaurant Row, former gas stations have found new lives
as restaurants that have bolstered economic development and job
creation in the community.
A Walgreens was redeveloped on a former petroleum brownfields property
A former petroleum brownfields property was redeveloped into
the Coffee Break along Troost Avenue in Kansas City, Missouri
Petroleum Brownfields: Selecting A Reuse Option
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More than $1 million in assessment and cleanup funding from the
California Orphan Site Cleanup Account was used at Village at Century
Inglewood, California -
Commercial Corridor And Retail Center
The Village at Century project in
Inglewood assembled 16 acres of
blighted and vacant properties into
a 193,000-square-foot commercial
development—the first of a two-
phase, 51-acre redevelopment
project to revitalize the Darby-Dixon
neighborhood.
The Century Boulevard corridor serves as one of the major transportation corridors to Los Angeles International
Airport. From 1950 to the early 1990s, the area was a high-density residential development; however, due to
the increase in noise pollution from the airport and lack of local investment, the area became rundown and
underutilized. The Inglewood City Council adopted the Century Redevelopment Project Area to eradicate blight
and address issues related to lack of investment, dilapidated housing stock, high crime rates, and needed
traffic and circulation improvements around the Century Corridor. One of the primary project goals was to work
in partnership with residents, the business community, public agencies, and community organizations in the
revitalization of the project area. A number of public meetings were held to hear the collective concerns and
recommendations of the community. In a collaborative effort, the Inglewood Redevelopment Agency, Los Angeles
World Airports, and the Federal Aviation Administration worked together with the community to improve conditions
along Century Boulevard.
An assessment of the project area discovered that a portion of the property's soil was contaminated with high
levels of volatile hydrocarbons from leaking underground storage tanks on several properties. The installation of
a remediation system substantially reduced the contamination in the soil to levels below those established by the
California Regional Water Quality Board.
The California Orphan Site Cleanup Account (OSCA) program's funding—more than $1 million in assessment
and cleanup grants toward the $32 million project—influenced national retailers to contribute to and support the
redevelopment project. The Village at Century includes eight major retail spaces as well as a number of smaller
shops. It is estimated that the retail center area creates approximately 500 full- and part-time jobs and generates
over $600,000 of tax income to the city annually.
* Continued..
The Village at Century commercial redevelopment
Petroleum Brownfields: Selecting A Reuse Option 7
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The Village at Century has dramatically improved the character of the area and continues to encourage new
investment. The project resulted from the partnership of local, regional, and federal government entities and
private developers. Perhaps most importantly, it displayed the ability of Inglewood citizens and their partners to
create job opportunities, offer residents greater shopping diversity, reduce the overall crime rate, and enhance the
economic viability and quality of life for those who live and/or work in Inglewood.
Key Components And Lessons Learned:
• A dedication to outreach by the city council helped to ensure community support for the project.
• It is estimated that the retail center will create approximately 500 full- and part-time jobs and is
expected to generate over $600,000 of tax income to the city annually.
• The OSCA program's funding influenced national retailers to commit to the project.
• There are numerous benefits of public and private partnerships. They can promote the coordination
of regulatory programs, the streamlining of administrative procedures, and a multi-stakeholder
examination of cleanup solutions and risk sharing.
Reno-Sparks, Nevada - Tribal Commercial Development
Removal of petroleum-contaminated soil in Reno-Sparks, Nevada
The Reno-Sparks Indian Colony (RSIC) applied for
a loan through the Nevada Division of Environmental
Protection (NDEP) in order to address petroleum
contamination on a 22-acre former industrial
property. In November 2007, the NDEP loaned
$950,000 from its EPA Revolving Loan Fund
grant to the RSIC to address petroleum and lead
contamination at the property. Cleanup included the
removal of about 1,000 tons of contaminated soil
and allowed RSIC to pursue a risk-based closure
through NDEP. The property will be redeveloped into
Three Nations Plaza, the future home of a Wal-
Mart Super Center. It is expected to generate much
needed jobs and revenue for the community. The
project is estimated to produce about $5-6 million in
tax revenue a year, which will be used to repay the
bonds for a new Tribal Health Center, fund a new
restitution center, and enhance essential government
services such as public safety, education, human
services, and community development.
Summary Of The Benefits Of Commercial
Redevelopment
Commercial redevelopment projects are often the economic engines for a neighborhood or community. The reuse
of former petroleum brownfields for retail and commercial businesses employs workers, increases the tax base
for the community, and expands redevelopment to neighboring portions of the community that are in need of
environmental and economic revival.
An abandoned property impacted by petroleum often has traits that can make it an excellent location for a
small business. These traits include relatively small size properties that easily accommodate small businesses;
prominent locations, often a corner lot on a busy thoroughfare; and existing infrastructure. In addition, state, local,
and tribal governments have created incentives to foster the cleanup and reuse of these properties, including tax
or other financial incentives. Retail and commercial redevelopment on former petroleum brownfields can create a
positive economic impact on historic downtown areas, enabling cities to position themselves to take full advantage
of future opportunities as redevelopment efforts expand to other portions of the community.
Petroleum Brownfields: Selecting A Reuse Option
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Public
Serving Your Community - Public Reuse Options
Examples Of Public Reuse
Include:
- College campus buildings
- Intermodal train station
- Municipal buildings
- Firehouse
- School
- Health clinic
- Parking lots for state office buildings
- Library
- Public amphitheater
- Community center
- Nonprofit organization
- City-county government services
complex
In Ogallala, Nebraska, a former gas station was redeveloped
into the Spruce Street Visitors Center
Across the country, petroleum
brownfields are being redeveloped
for community or public reuse. The
resources provided by community or
public reuse often boost the quality
of life for local citizens. In some
instances, these reuses can become
the cornerstone for a downtown
redevelopment effort. In other cases,
the reuse might supplement additional
community and public services
already established. Whatever the
circumstances, reusing a petroleum brownfield property for a community or public
use can transform the property, eliminate blight, and provide needed services
to a community. Such projects help local governments create a sustainable and
responsible approach to addressing property revitalization.
Redevelopment can include the creation of schools and youth centers to encourage
education and physical activity; community centers that encourage citizen
interaction; health clinics to increase accessibility to affordable health care; and
public offices or facilities such as firehouses, police stations, or locations for motor
pools—all ways to provide public services to the community. In addition to the
restoration of blighted, idle land and the removal of contamination, residents gain
improved access to services, new jobs, and local economic engines that leverage
additional improvements and enhance the quality of life.
Greenville, South Carolina - Community Center And School
In Greenville, residents know about the old corner intersection. This
area is located close to the central business district and historically
housed numerous gas stations in proximity to each other. While
all six properties remained as single parcels for reuse, the City of
Greenville recognized the value of ensuring these properties were
available for redevelopment. Identifying all the parcels as available for
reuse helped the city plan for the area comprehensively. Additionally,
the city realized cost savings by creating a project that required one
assessment and cleanup instead of doing multiple parcels individually.
Continued..
The A.J. Whittenburg Elementary School
under construction in Greenville, South Carolina
The Reedy Place residential units
Petroleum Brownfields: Selecting A Reuse Option
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The city developed a master plan for its downtown area that included the old corner intersection. The City Master
Plan called for high-density residential development and helped inspire Reedy Place, the first redevelopment
project in the area with multiple affordable housing units.
During redevelopment planning, the Salvation Army identified a parcel in the redevelopment area for the future site
of a community center. As part of a $1.6 billion gift to the Salvation Army in 2003, Kroc Community Centers are to
be developed coast-to-coast where each local facility is accessible and visible to various economic groups, with
particular outreach to underserved families. The Kroc Center Foundation provided $52 million to the Greenville
Salvation Army for the development of a future Kroc Community Center. Recognizing the benefit of the downtown
location, the Greenville Salvation Army bought one of the former gas station properties for this purpose. The
community raised $15 million in matching funds, and the Kroc Center development is underway. Redevelopment is
scheduled to be completed in late 2010 or early 2011.
Reedy Place and the Kroc Community Center have already leveraged additional redevelopment in downtown
Greenville. During the planning process, the Greenville school district was looking for a parcel of land to use for the
development of a new elementary school. When the Greenville Salvation Army offered to sell a portion of its parcel
to locate the elementary school next to the new Kroc Community Center, the school district finalized its plans. The
A.J. Whittenburg Elementary School is now under construction, marking the first elementary school to be built
downtown in 30 years. The addition of the new elementary school creates an enhanced learning environment and
improves access to educational facilities for an underserved population.
The new public buildings in the downtown serve as an anchor development project that will help initiate more
redevelopment in the area. Often, it is difficult to be the first redevelopment project, but reuse ventures such as the
community center will help draw more projects into the area to both serve and benefit from the citizens utilizing the
new facilities.
Key Components And Lessons Learned:
• By identifying and assessing multiple properties at the same time, the city saved money and was
able to develop a comprehensive redevelopment Master Plan for the downtown area.
• Attracting a well known organization as a cornerstone of redevelopment helped catalyze other
redevelopment projects.
• The redevelopment project creates an enhanced learning environment and improves access to
educational facilities for an underserved population.
Belmont, New Hampshire - Commuter Parking Lot
The former Gulf gas station property in Belmont is
located on NH Route 106, a busy commuter route. The
one-acre former gas station operated from approximately
1965 until the mid-1980s. During cleanup, four gasoline
tanks were removed. Belmont collaborated with the
New Hampshire Department of Transportation (DOT)
and the Lakes Region Planning Commission to reuse
the property as a RideShare parking lot for commuters
1 sharing car rides. RideShare is a free commuter service
provided by DOT, which is dedicated to finding alternative ways for commuters to travel to and from work. The
location of the Belmont RideShare also provides ample parking for visitors to the adjacent Belmont Town Forest.
Clearwater, Florida - Health Clinic
In one of Clearwater's poorest neighborhoods, EPA Brownfields Assessment
grant funding was used to assess a former petroleum brownfield property.
The project utilized $200,000 in state funding to remove underground
storage tanks and clean up petroleum-contaminated soil. As part of the
city's environmental justice plan, representatives of the North Greenwood
community voted unanimously for the city to lease the property to the
Greenwood Community Health Resource Center (now the Willa Carson
Health Resource Center). The reuse met a critical need for access to a new
health facility in the community and offers immunizations, physicals, tests and
screenings, flu shots, and counseling to neighborhood residents.
The Willa Carson Health Resource Center
open for business in Clearwater, Florida
10 Petroleum Brownfields: Selecting A Reuse Option
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The abandoned asphalt plant in McMinnville, Oregon
McMinnville, Oregon - Sustainable Elementary School
In McMinnville a former two-acre asphalt plant, which
operated for more than 40 years on the edge of town,
received a complete makeover. The plant was abandoned
in the mid-1990s, leaving behind a petroleum-contaminated
property with little to offer the community. After years of lying
vacant, Yamill County acquired the property through tax
foreclosure in 2003. By 2007, the property was cleaned up
and several underground storage tanks and drums had been
removed.
The adjacent 12-acre property was planned and already under
design to host the new Sue Buel Elementary School, a replacement
for the 79-year old elementary school in town. The community
lobbied to develop a green building that would showcase several
energy efficient elements. Specific features include ample windows
and skylights to maximize exposure to daylight, dual flush toilets,
dimmer switches and energy efficient lighting systems, rooftop solar
panels, and a heat recovery system. These features decrease energy
use by 30 percent. The former two-acre asphalt plant property was
incorporated into the adjacent 12-acre school property to provide
more area for the design plans. Because of environmental concerns
associated with the former asphalt plant, the school redevelopment planned to use the two-acre property as a
landscaped parking lot as well as a storm water retention pond. Each of these features improved the sustainable
features associated with the redevelopment and helped the school qualify for the U.S. Green Building Council's
Leadership in Energy and Environmental Design (LEEDfGold certification. The school opened in 2008 and hosts
more than 600 students.
Continued...
The cleanup and removal of several
underground storage tanks
The LEED-certified Sue Buel Elementary School in McMinnville, Oregon
Petroleum Brownfields: Selecting A Reuse Option 11
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The redevelopment of this petroleum brownfield provides for an environmentally-friendly, energy-efficient, long
lasting, and safe public resource for the local community. Conserving resources and lessening the environmental
impact of the building improves the learning atmosphere for students and the quality of life for the surrounding
community.
Key Components And Lessons Learned:
• Sustainable design ensured that the redevelopment was environmentally-friendly, energy-efficient,
long-lasting, and safe for the local community.
• Assembling properties provided additional space for development of needed school grounds and
facilities.
• Attention to the environmental restrictions during design can result in protection of human health. In
this case, the petroleum brownfield was reused for parking and storm water retention instead of a
building location.
Prineville, Oregon - City Hall And Community Plaza
Redevelopment occurring at the Prineville
City Hall and Community Plaza propert
The City of Prineville, a rural town of 9,000, faced the challenge of revitalizing
its downtown after a decade of population growth. The city identified a critical
need for additional building space to accommodate services including
administration, planning and community development, police and emergency
dispatch, and family services. The city used an EPA Brownfields Cleanup grant
to address soil and groundwater petroleum contamination at a 0.25-acre former
gas station property and to further minimize the migration of vapors. This parcel
was developed in conjunction with adjacent properties, and more than 2,700
tons of petroleum-impacted soil were excavated. Cleanup was completed in
June 2004, and the new City Hall and Community Plaza, which can host 500
visitors for concerts, speeches, and community events, opened in July 2005.
Summary Of The Benefits Of Public Redevelopment
Some of the most sensitive reuses for any type of brownfield include health facilities and schools—places where
communities and children spend a lot of time that could create additional exposure. Stringent cleanup levels for
petroleum brownfields protect residents from any former or residual contamination on the properties. Public reuse
can provide new health care options for those in the community who might previously have had few available. In
addition to health facilities and schools, local, state, tribal, and federal governments can also contribute to the reuse
of petroleum brownfield properties. Old abandoned gas stations are often excellent locations for new government
facilities such as firehouses, police stations, community centers, and libraries. These facilities can serve as an
anchor and catalyst for area redevelopment and community pride.
Communities across the country have demonstrated that under the right circumstances, cleanup levels, and
guidance, petroleum brownfields can be put back into productive reuse to benefit the community. Stakeholders that
reuse petroleum brownfields for a public use encourage others not to limit the possibilities for reuse of a property.
With thorough investigation, characterization, cleanup, and funding, there can be multiple reuse possibilities. If a
community has public service needs, it pays to consider all aspects of the redevelopment project and investigate
any property that might fit those needs.
12 Petroleum Brownfields: Selecting A Reuse Option
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Residential
Sheltering Your Community - Residential Reuse Options
Examples Of Residential
Reuse Include:
- Apartments
- Condominiums
- Lofts
- Townhouses
- Multi-family housing
- Single-family housing
- Affordable housing
- Special needs housing
- Senior housing
Reuse of petroleum brownfields can also
include housing or residential options. Ensuring
that the reuse for the property is protective of
human health is especially important when
evaluating a property for residential reuse. It
may be the case that environmental conditions
on the property make cleaning for residential
reuse prohibitively expensive or that the
environmental conditions require specific
redevelopment restrictions or controls on
the property. For instance, depending on the
contamination source and cleanup standards, a
property might not support the development of a building that includes a basement due to
potential vapor intrusion issues. However, the property might still be suitable for residential
reuse, assuming all units are above ground.
Former gas station in Redwood City, California
Residential reuse often creates an opportunity to improve several aspects of a community. First, community leaders may want
to determine if a residential reuse will adhere to specific zoning regulations within the community. If residential reuse is an
option, the reuse can revitalize a downtown area, provide housing options for those that require proximity to specific amenities,
improve the tax base for the community, and develop a neighborhood in a former commercial area. In addition, providing
housing in a downtown area or near existing job centers can help to reduce household transportation costs and improve
access to employment opportunities.
Arlington, Virginia - Apartment Building
For people in and around the Washington, DC area, Arlington, Virginia, has
become a residential and commercial destination. As the population in the
Washington metropolitan area increased, so did the need for residential
units that were convenient for commuting. In the late 1990s, Arlington began
to experience significant revitalization as a result of the growing economic
market. The 1.5-acre Clarendon Triangle site remained one of the only vacant
pieces of property available in 2000.
Petroleum brownfields property in
downtown Arlington, Virginia
The parcel of land included several independent properties that historically hosted gas stations, a car wash, an
automobile dealership, and an office building. At least four properties were assembled to form the Clarendon
Triangle site. Because of a zoning requirement to offer commercial services on the ground level for all multi-unit
residential development in Arlington County, a determination was made to redevelop the property as a planned
community that would offer up to 257 residential units and approximately 14,000 square feet of retail space.
Continued...
The new 257-residential unit Clarendon Triangle apartment complex
Petroleum Brownfields: Selecting A Reuse Option 13
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The redevelopment process was driven by the market conditions in and around Arlington. The Clarendon Triangle
site was overlooked for years because of concerns about environmental contamination; however, the prime
location and partnership with the Virginia Department of Environmental Quality (VA DEQ) attracted the developer.
Because of coordination among VA DEQ, the property owner, the environmental consultants, and the lending
institution, the property was cleaned up to safe, residential levels that met the needs of the project. Despite
identifying additional areas of petroleum contamination during redevelopment activities, the project stayed on
schedule. All contamination was removed, which allowed for subsurface structures on the property. The property
was completed in fall 2003, bringing additional residents to the Clarendon neighborhood.
Key Components And Lessons Learned:
• Project partners allowed the market to be the driver for the project's reuse.
• Cleanup requirements need to be evaluated for the final reuse—contamination can be revisited once
a reuse option is selected.
• The assembly of four parcels allowed the developer to meet the needs of a large project.
Swanton, Vermont - Residential Duplex
This 0.9-acre property operated as a gasoline and service station until the
early 1960s, after which the owner converted it to a duplex rental unit. The
property changed hands several times but continued to operate as a residential
rental until 2003. The existing structure was demolished and research about
the property uncovered its former use as a service station and a lack of
records indicating whether the property's fuel storage tanks had been removed.
To resolve these contamination uncertainties, a series of assessments
funded by the Northwest Regional Planning Commission's EPA Brownfields Assessment grants confirmed that
only minor levels of petroleum contaminants were present at the property. These assessments also indicated that the
contaminants were not migrating and that no underground storage tanks from the former gas station were present.
Habitat for Humanity purchased the property in 2006 and leveraged more than $83,000 in donations and in-kind
services to build a residential duplex on the property. These homes are now occupied by two families.
Fully occupied Habitat for Humanity homes on
the former gas and service station
Salt Lake City, Utah - Apartment Complex
Located in a largely commercial and light industrial area of Salt Lake
City, this 2.57-acre property was once a tiling company, auto and lumber
operation, and more recently, a wholesale produce company. EPA
Brownfields Assessment grants were used to help define the extent of
contamination from a 4,000-gallon underground storage tank discovered
during preliminary construction activities: contamination included elevated
levels of petroleum in the property's soil and groundwater. Cleanup was
completed by March 2005 and included removal of the underground
storage tank, excavation of contaminated soils, and remediation of the property's groundwater. A $5.4 million loan
from U.S. Bank funded the construction of an 84-unit, mixed-income apartment complex on the property. The
Jefferson School Apartments include affordable one- and two-bedroom units, a courtyard, a pool, and an exercise
room. The apartments are conveniently accessible to the light-rail transit line, downtown, and the University of
Utah, providing maximum benefit to working and student residents.
Jefferson School Apartment complex in
Salt Lake City Utah
Chicago, Illinois - Low-Income Housing
From the 1960s through the mid-1990s, a property on West Washington Street
in Chicago was home to a gas station and auto repair shop. The city determined
that the property was a detriment and a threat to public health. The property
was cleaned up to remove barriers to redevelopment. The city demolished a
12,000-square-foot building on the property and removed eight underground
storage tanks. The city detected a petroleum release during the removal of
the tanks and conducted tests on the soil that confirmed the presence of
petroleum. The city then completed the site assessment, preliminary cleanup activity, and excavation and removal of
contaminated soil. After cleanup activities were complete, a local developer built low-income housing on the property.
Redevelopment site of low-income
housing in Chicago, Illinois
14 Petroleum Brownfields: Selecting A Reuse Option
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The cleanup and redevelopment of a former
petroleum-contaminated property in Emeryville, California
Emeryville, California - Sustainable Housing
j*-»~- i-l In the San Francisco Bay Area, housing is in high
demand. This is certainly true in the City of Emeryville,
whose population has more than doubled since
1980 and which is located almost directly across
the bay from San Francisco. City officials typically
let the market determine the best redevelopment
use for most brownfield properties. In the case of a
petroleum brownfield that was formerly used for paint
manufacturing, the community wanted environmentally-
sustainable housing.
This site, which straddles the border of Emeryville and Oakland, previously consisted of three properties that were
combined to form a one-acre parcel. Site investigation activities concluded that the soil and groundwater were
contaminated with petroleum hydrocarbons, including free-floating product. With a strong track record of effectively
implementing EPA Brownfields grants, the City of Emeryville used $1.175 million in EPA Brownfields Revolving
Loan funds to clean up the property. Additional cleanup and redevelopment funding was provided in the form of
private equity and construction loans.
Planning for redevelopment began in 2001, at which time the developer learned that Emeryville and Oakland
encouraged the sustainable reuse of properties. Although the project predated the U.S. Green Building Council's
LEED®for Homes certification program, a team was formed to ensure the completion of environmentally-
sustainable housing. The team included representatives from both cities as well as an architecture firm that was
one of the first in the area to work on green infill housing.
Continued...
Green City Lofts completed on a former petroleum brownfields property
Petroleum Brownfields: Selecting A Reuse Option 15
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Following the completion of cleanup in December 2004, the property was redeveloped into Green City Lofts.
There are 62 residential units, six of which are affordable housing units. The building incorporated green building
technologies, including components like storm water runoff collection for landscape irrigation, Forest Stewardship
Council-certified wood for all interior doors, and paints without volatile organic compounds (VOCs). The project's
green elements create a pleasant and environmentally-friendly residential complex.
Key Components And Lessons Learned:
• Projects that straddle city boundaries can be completed, particularly if the communities or cities
involved have similar goals.
• The demand for environmentally-sustainable housing determined the reuse of the property.
• Green buildings and sustainable development yield human health and environmental benefits to the
local community.
Houston, Texas - Affordable Artist Lofts
The former 1.6-acre Jefferson Davis Hospital property was
used as a park in the 1920s, until the city built its first hospital
for indigent care on it in 1924. After the hospital closed, the
building had a variety of uses before being abandoned. In 2002,
Jefferson Davis Artist Lofts (JDAL) purchased the property from
the county for redevelopment. As part of the acquisition process,
an environmental assessment revealed an underground storage
tank that once contained gasoline used to fuel ambulances.
The use of EPA Brownfields Cleanup grant funds to address
and clean up the property helped JDAL leverage funding from
diverse entities motivated by different aspects of the project,
such as the need for affordable housing, support for the arts, and
historical preservation. As a result, a new affordable loft-style apartment building opened in October 2005 and
was fully leased by November. One unique feature of the apartment building is a "green" or vegetative roof system
that conserves energy. The redevelopment also complements the revitalization of numerous historic buildings in
Houston's central business district.
Petroleum cleanup at the old hospital paved the way for the
renovation of the old building into affordable apartment lofts
Summary Of The Benefits Of Residential
Redevelopment
Citizens need to have a high level of confidence in the cleanup and redevelopment of petroleum brownfields when
they will be calling them home. With many petroleum brownfields on corner lots along main streets or along high-
density corridors, residential reuse is a growing option—especially when residents relocate to downtown areas.
The proximity of these properties to other public amenities makes them attractive for residential reuse. While
the size of the properties can limit redevelopment, assembling properties into a larger redevelopment project
can provide adequate space for residential reuse. The extent, type, and cleanup of contamination can preclude
certain aspects of new structures built on the property. For example, the former petroleum contamination at these
properties may limit the building of sub-surface structures (for example, parking garage, basement) in order to
reduce exposure. However, successful residential development can still be achieved. Other considerations include
proper zoning requirements and conducting community outreach to better ensure safety and the protection of
public health.
16 Petroleum Brownfields: Selecting A Reuse Option
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Greenspace
Greening Your Community - Greenspace Reuse Options
Examples Of Greenspace
Reuse Include:
- City parks
- Promenades and walking trails
- Community gardens
- Outdoor theater
- Nature trails
Petroleum-contaminated properties are being cleaned up and reused in ways
that both enhance the environment and enrich community living. Redevelopment
can include greenspace that provides public spaces for leisure activities or land
conservation efforts. These spaces can also encourage recreation, reduce the
effects of urban heat islands, and improve storm water management—all ways
to improve public health. A cleaned up petroleum brownfield can result in cleaner
rivers and harbors while providing recreational facilities for the local community.
Greenspace or open space reuse also can facilitate land conservation when
development is set aside to protect and preserve land.
Recreational park space in many downtown areas is limited and does not always
meet the needs of the local community. In an effort to address this problem,
neighborhood and city residents are redeveloping smaller petroleum brownfield
properties into city parks, community gardens, and other outdoor recreation areas.
These parks are spurring additional investment and community improvements. Cities
and towns are taking advantage of their waterfront amenities by turning petroleum
brownfields, often larger tank farms that were located by rivers for transportation
purposes, into waterfront recreational areas or promenades for the enjoyment
of the community or as tourist destinations. Waterfront redevelopment also increases access to the water for recreational
uses and educational opportunities, such as programs by Living Classrooms Foundation (www.livingclassrooms.org) and the
National Maritime Heritage Foundation (www.nmhf.org). These programs use environmental and maritime resources as learning
laboratories to create stronger communities that exercise environmental stewardship.
- Riverfront and water access
- Educational facility
- Convention center
- Playground
- Basketball courts
Seymour, Wisconsin - Memorial Park
A former service garage and gas station located in the heart of downtown Seymour was redeveloped into Veterans
Memorial Park. The former petroleum brownfield had six leaking underground storage tanks and was abandoned
for approximately 10 years. The responsible party was financially unable to clean up the property so the city
acquired the property through tax delinquency. The city held community meetings to determine the most beneficial
redevelopment option for the property—which was a community park and greenspace. continued
The redeveloped Veterans Memorial Park in Seymour, Wisconsin
Petroleum Brownfields: Selecting A Reuse Option
17
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The city then obtained a local government liability exemption, which protected the city from future liability. The city
also went through the site closure process with the Wisconsin Department of Natural Resources (DNR) to ensure
that the remediation and redevelopment would progress in the correct and most efficient manner. The city was
able to perform Phase I and Phase II environmental site assessments at the property and also conduct a full site
investigation with funding from a DNR Brownfields Site Assessment grant.
In addition to the local government liability exemption, the city also received a general liability clarification
letter from DNR's Remediation and Redevelopment (RR) Program. The city utilized funds from the Wisconsin
Department of Commerce's Petroleum Environmental Cleanup Fund Awards (PECFA) Program to clean up the
remaining leaking underground storage tank contamination. The grant was used to excavate and properly dispose
of 525 tons of petroleum-contaminated soil, remove the six underground storage tanks, demolish buildings, and
remove asbestos. Throughout the project, RR Program staff assisted with project plans and reports, oversaw
remediation activities, and approved the site closure.
The park has attracted residents back to the downtown area by providing a space for the community to enjoy in
the heart of town. Through working with the community and the state environmental agency, the City of Seymour
reused a brownfield to serve as a place of remembrance, beauty, and recreation.
Key Components And Lessons Learned:
• The most beneficial redevelopment option was determined by the community's need for a public space.
It is easier to gain community support when the project meets community needs.
• The property now provides the community with a place of remembrance, beauty, and recreation.
Oshkosh, Wisconsin - Riverfront Amphitheater
Aerial view of the Riverfront Amphitheater in Oshkosh, Wisconsin
On an eight-acre former manufactured gas plant facility, the
City of Oshkosh seized an opportunity to design an inviting
greenspace for recreation and entertainment that would draw
residents and visitors to the downtown. Site cleanup activities
included the removal of several underground storage tanks and
the removal of petroleum-contaminated soils. More than 23,500
tons of material were treated and reused on the property. The city
purchased the property from the former owner, Wisconsin Public
Service, in December 2003 in order to develop the riverfront
walkway and amphitheater. The facility also includes concession
buildings, landscaping, and parking for the property.
Norwich, Connecticut - Community Park
Located along the Shetucket River, the five-
acre property was formerly utilized by the City
Textile Corporation for a textile finishing business.
The mill complex was destroyed in 1986 by a
fire, leaving only the foundation and a concrete
building on the property. Cleanup included
addressing and capping petroleum-contaminated
soil. The city recognized the need for additional
park space in order to meet the needs of local
residents. Completed in June 2005, the new
riverfront park offers a large, multi-use field in
the center of a walking track, a basketball court,
picnic tables, and a playground. The design
also includes bench seating convenient to the
riverfront and river access for small boats and
canoes.
The former mill complex was cleaned up and transformed into a
community park and river access
18 Petroleum Brownfields: Selecting A Reuse Option
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Jackson, South Carolina - Roadside Park
The Town of Jackson, located in Aiken County, has a population of
1,625. Campbell's Service Center was located on a corner parcel along
Main Street for years but by 1995 was abandoned because of known
environmental concerns, including five underground storage tanks. Because
of these environmental issues, the mayor of Jackson requested support
An abandoned petroleum-contaminated property I f rom the South Carolina Department of Health and Environmental Control
along Main Street in Jackson, South Carolina (SCDHEC).
The Town of Jackson, Aiken County, and SCDHEC partnered
to identify property concerns, which included soil and
groundwater contamination, underground storage tanks,
property ownership, tax liens, and an abandoned building.
The partners then identified resources available to address
each of these challenges. Assessment and cleanup activities
were conducted with support from partners as well as the local
community. During a public meeting, residents recognized
the need for a park where cyclists from nearby Augusta,
Georgia, could stop and take a break. The park would be in the
downtown area of Jackson, allowing the community to utilize
the space. Through a cooperative effort, the Jackson Roadside
Park opened in September 2007 and includes a gazebo, brick
patio on the former building foundation, and park benches. The ribbon-culling ceremony at the new community park and gazebo
Continued..
The new park and gazebo
Petroleum Brownfields: Selecting A Reuse Option 19
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Key Components And Lessons Learned:
• Having a local champion for the project was a key component in driving the project forward.
• Identify concerns, partnerships, and resources early in the planning and development process.
• Existing structures, in this case the building foundation slab, can be reused in new ways to reduce
construction debris and costs.
Wilmington, Delaware - Downtown Park
Wilimington, Delaware, achieved three redevelopment goals with
the completion of the downtown greenspace
The Hi-Tech gas station in downtown Wilmington sat
abandoned since 1995. In 2001, city economic development
officials evinced interest in reusing the property. Once the
underground storage tanks were removed and the soil
contamination was cleaned up, the city moved forward
with the development of the Brandywine Park, which
accomplished three redevelopment goals: meeting the
needs of the Brandywine Village district, cleaning up the
property, and keeping redevelopment costs low.
Columbia, Missouri - Community Park
The 2.5-acre former bulk oil terminal in Columbia was converted into
a center for community activity. Cleanup was funded by a $200,000
EPA Brownfields Cleanup grant and included the removal of more
than 7,500 cubic yards of contaminated soil and 12,000 gallons
of contaminated water. The property is located in the heart of the
Columbia business district and provides the community with access to
a playground, picnic benches, an amphitheater, and a gazebo. The new
park serves as a trailhead for the Missouri-Kansas-Texas Nature and
Fitness Trail and is part of the American Discovery Trail that extends
from Delaware to California.
The former bulk oil terminal was transformed
into a community park
Summary Of The Benefits Of Greenspace Reuse
Greenspace redevelopment provides the opportunity to take a blighted property, previously unsuitable for recreation,
and turn it into an easily accessible public gathering place. New city parks and recreational spaces improve the
aesthetic appearance of derelict land and provide environmental improvements to both the property and the
surrounding area. Planting trees and other vegetation on such properties offers air quality improvements and social
benefits. Creating an inviting greenspace for leisure and recreation draws residents and visitors alike. In addition,
public parks and recreation areas often serve as a catalyst for redevelopment activities in the surrounding area.
In most cases, the design of city parks is a collaborative effort that includes community involvement in every
aspect of planning, cleanup, and redevelopment. Maximizing community input and support, utilizing creative
financing methods, capitalizing on public-private partnerships when available, and overcoming project obstacles
through dedicated leaders working within the political environment are keys to turning petroleum brownfields into
greenspace. Furthermore, the emphasis on public-private partnerships and community involvement affirms that the
inclusion of public interest is essential for development. Greenspace redevelopment promotes outdoor leisure and
has the capacity to initiate a period of economic and aesthetic rebirth to the surrounding area.
20 Petroleum Brownfields: Selecting A Reuse Option
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Mixed-use
Creating A Space With Multiple Uses - Mixed-use Redevelopment Options
Examples Of Mixed-use
Redevelopment Include:
- Coffee shop - Retail
- Restaurant - Farmers market
- Housing - Grocery store
- Offices - Hotel
- Plaza space - Community park
Larger or assembled parcels lend themselves to redevelopment
projects that can accommodate a number of reuses. These projects,
which may include a single building development with two different
types of reuses (for example, a building with retail shops on the
ground floor and condominiums on the upper floors), are typically
considered mixed-use redevelopment. Mixed-use projects serve a
larger population base than single-use projects. Additionally, this
type of redevelopment often combines commercial, residential, and
greenspace reuse in order to accommodate a number of community
needs and provide a better quality of life.
Roxbury, Massachusetts -
Affordable Housing, Commercial Space
The 2.2-acre Egleston Crossing redevelopment in the Roxbury and Jamaica
Plain neighborhoods of Boston grew from the availability of two parcels. The
parcels included a former car repair shop and an abandoned theater in a targeted
redevelopment area identified by community stakeholders. Seeking to eliminate
exposure to these contaminated and abandoned properties as well as improve the
neighborhood center, the Urban Edge community development corporation purchased
the properties and addressed the contamination and reuse of these parcels.
Once both parcels were acquired, the properties were combined to host a
mixed-use project that features affordable housing on the upper floors and
commercial space on the ground floor. Three environmental objectives of the finished project were to provide good
indoor air quality, improve energy and water efficiency, and reduce waste. The redevelopment project consists of
two buildings that include 64 new residential units for low-income residents, almost a quarter of which are reserved
for formerly homeless individuals with disabilities. The project also includes 8,300 square feet of commercial space
that contains a coffee shop, dental clinic, fish market, and a youth writing program.
Recognizing an opportunity to make an additional impact on the community, Urban Edge incorporated additional
sustainable features into the building design. While the project addressed contamination at the property and improved
Continued...
Former car repair shop and abandoned theater
in downtown Roxbury, Massachusetts
The completed multi-use Egleston Crossing redevelopment project
Petroleum Brownfields: Selecting A Reuse Option 21
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the image of the neighborhood, it also worked to minimize the future environmental impact at the site. Sustainable
design elements integrated into the project include: low-flow toilets, shower heads, and aerators; non-irrigated
landscaping with native plants to reduce water use; photovoltaic panels; and the installation of Energy Star® rated
appliances, insulation, windows, and heating systems. The project also recycled 90 percent of the construction waste
and other debris from the property. The project received the 2005 Energy Star® Builder Achievement award for the
energy efficiency achieved and the 2008 EPA National Award for Smart Growth Achievement Award for Built Projects.
Key Components And Lessons Learned:
• The two parcels would have been more expensive to clean up had they been redeveloped separately.
Combining them resulted in a cost-effective project that was completed ahead of schedule.
• Environmental benefits do not have to end at cleanup. The new buildings minimize future impacts on
the environment by integrating sustainable design elements into the project.
Project Funding Sources:
Urban Edge compiled significant public and private funding sources for multiple property activities.
Local
Funding
State and
Federal Funding
Private
Funding
- City of Boston HOME funds
- City of Boston McKinney's Fund
- City of Boston Neighborhood Housing Trust
- Mass Development
- Mass Technology Collaborative
- Massachusetts Housing Investment Corporation
- Massachusetts Housing Partnership Fund
- Massachusetts Home Improvement
Contractors (HIC)
- Mass Home Funders
- Urban Edge
- Keyspan
- Fleet Bank of Massachusetts
- Local Initiatives Support Corporation (LISC)
- Community Economic Development Assistance
Corporation
- Property and Casualty Initiative
- Mass Affordable Trust Fund
- Massachusetts Department of Housing and
Community Development
- Energy Star Homes Program
- Federal Home Loan Bank
- Bank of America
Legacy at Art Quarter
Oklahoma City, Oklahoma - Apartments, Commercial Space
A six-acre property covering a two-block area in downtown Oklahoma City was temporarily
used as soccer fields during the property transfer and planning for the permanent mixed-
use redevelopment project. The property was previously occupied by as many as three
gasoline stations, an automobile service facility, an auto body repair and paint shop,
and a dry cleaner. The property was abandoned in the 1970s, and the structures of the
former businesses were removed. After the Oklahoma Petroleum Storage Tank Division
issued a Ready for Reuse determination acknowledging that environmental conditions
on the property were protective of human health and the environment, the property had an
interim use as soccer fields by the Central Oklahoma Adult Soccer League. The property was later transformed into
a mixed-use redevelopment that now includes the Legacy at Arts Quarter apartment residences, retail shops, and
commercial office space. The interim use in this case was as a recreational space for the community.
New York, New York - Affordable Housing, Retail Space
The property was a former gas station located on White Plains Road in the Bronx.
The New York State Department of Environmental Conservation certified White
Plains Courtyard with the top "Track 1" cleanup ranking, meaning it met the most
stringent environmental standards set by the state's Brownfield Cleanup Program
and qualifying it for "unrestricted use." In addition, White Plains Courtyard was the
first brownfield remediation in the borough as well as the first former-brownfield
affordable-housing development in the state to achieve the highest cleanup
rating. White Plains Courtyard is a seven-story, 120,000-square-foot apartment
development that includes 16,500 square feet of ground floor retail space.
Residential and commercial mixed-use
project in New York, New York
22 Petroleum Brownfields: Selecting A Reuse Option
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Rochester, New York - Townhouses, Commercial Space
The cleanup of the former car dealership
and fuel station
The key to the redevelopment of one of Rochester's largest car dealerships
came down to location. The 2.2-acre multi-parcel property situated in
downtown Rochester operated for more than 60 years as a car dealership
with multi-bay service and a repair garage as well as a gasoline station.
When the facility closed in 1990, the buildings were abandoned and the
property left vacant. While the property was under common ownership,
it was comprised of multiple parcels. Recognizing the need to reinvent
downtown Rochester, the city purchased the land in 1996 after conducting
a market evaluation to determine the reuse potential of the property. The redevelopment of the property would
ultimately take five years to complete. In the interim, the property was used to meet a need for public parking in the
downtown area that allowed more patrons to support nearby downtown businesses.
The city contracted with a private real estate firm to conduct a market evaluation to help understand the possible
reuse scenarios appropriate for the property and for the entire downtown image. In conjunction with a review of
the environmental investigation, the most beneficial redevelopment option was the development of residential
townhouses as well as the reuse of the old dealership showroom as a 24-hour coffee shop and restaurant.
The showroom, which was designated historic, was integrated into the mixed-use property design allowing for
commercial reuse on the property along with residential townhouses. The 77 new townhouses constructed on the
property provided an opportunity to renew the population base within downtown Rochester and created a place to
live, work, and play in the downtown area. The Chevy Place development was the first new downtown apartment
complex built in 20 years.
Using experience on past brownfields redevelopment projects, the city leveraged financing opportunities to make
the project feasible. Total cleanup project costs were approximately $750,000, with the city funding part of the
cost using a U.S. Department of Housing and Urban Development (HUD) Community Development Block Grant
(CDBG) allocation and the developer funding additional cleanup costs. The city also assisted by providing direct
reimbursement for certain disposal costs and provided a reduction on the purchase price of the property to help
offset environmental cleanup costs. Additionally, the city helped provide a $2.35 million loan for the redevelopment
project. Because a number of incentives were offered, the developer was willing to take on the risk of liability for
the property. Another cost savings was the removal of planned basements from the redevelopment project, which
also resulted in a greater level of protection for human health.
Within three months of completing the redevelopment, 97 percent of the units were filled with residents. The
project acted as a catalyst for more than $100 million in private investment and development in the area. Additional
projects included reusing an old auto body shop as a restaurant and removing an abandoned building to increase
parking for new businesses. The Chevy Place redevelopment helped change the face of downtown Rochester by
providing amenities and generating revenue for other local businesses.
Continued...
The new Chevy Place mixed-use development features the restoration of the car dealership's showroom
Petroleum Brownfields: Selecting A Reuse Option 23
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Key Components And Lessons Learned:
• Incorporating changes to the proposed redevelopment to accommodate the cleanup and protection
of human health and the environment provided easy cost savings for all partners.
• Working with an experienced developer helped reduce the city's project work and oversight.
• Financial incentives help in overcoming risk aversion to petroleum brownfield projects.
The former railyard is a prime example of
blending multiple uses
Santa Fe, New Mexico - Residential, Commercial, Public, And Recreational
After serving the community for most of the 20th century as an active center for
transportation and business, the 50-acre Santa Fe Railyard spent the past few
decades as a blighted, vacant property. The public expressed a strong desire
to keep the railroad running to the historic depot, create a large park, enhance
local business opportunities, and form an arts and cultural district within the
Railyard. The city purchased the property and used an EPA Targeted Brownfields
Assessment to characterize the contaminants in the soil and groundwater.
Lead and other metals, petroleum, and petroleum product contamination were
discovered on the property. The city cleaned up the property, and today the Railyard is a successful blend of live-in
artist studios, galleries, museums, a farmers market, retail shops, office space, and over 13 acres that include
a park, plaza, and pedestrian promenade. The city contracted with the nonprofit Santa Fe Railyard Community
Corporation to manage sustainable revitalization in keeping with the community's vision. The Railyard grand
opening was held in September 2008.
Moorhead, Minnesota - Residential, Commercial, And Public
Many structures in the Central City Corridor in Moorhead were over 100 years
old and abandoned or underutilized. Using an EPA Brownfields Assessment
grant, an area-wide assessment of the corridor revealed petroleum
contamination from a former gas station in the soil and groundwater. The city
used grants from the Minnesota Department of Employment and Economic
Development, the Minnesota Dry Cleaners Fund, and the Minnesota Petrofund
to help pay for the cleanup. A developer invested $18 million to redevelop the
area in five phases. The first phase, completed in the spring of 2005, included a mixed-use structure with three
commercial spaces and 17 apartments. Phase II added a second mixed-use structure and renovations of the
corridor's two historic structures, preserving them for reuse. In the fall of 2006, an outdoor bridgehead plaza was
completed at the base of the new Main Avenue Bridge, allowing pedestrians access to the river and to walking
and bike trails. Phase III included a parking ramp for 135 cars and a 30-unit apartment building with underground
parking. This new gateway to Moorhead welcomes travelers with a beautifully renovated, pedestrian-friendly
downtown area.
The Central City Corridor mixed-use
redevelopment project
Summary Of The Benefits Of Mixed-use
Redevelopment
Considerations for mixed-use projects may include property size, building restrictions on the site, comparable real
estate projects in the area, and community need. While property size is important, another key consideration is
property layout. The layout and location of the property may influence the position of future buildings as well as the
combinations of uses that can be situated on a property.
If land is available and there is financial incentive, communities can use mixed-use development to attract a
population base to the redevelopment area. Mixed-use development brings people closer to shopping, jobs, and
other community destinations and in the process often reduces the distance that people have to drive or gives
them the choice of walking, bicycling, or using transit. One common practice includes zoning the first floor of a
residential building for commercial use. This helps to attract retailers while providing goods and services to area
residents. Nonresidents also benefit from the new space. Like most redevelopment projects, mixed-use projects
often depend on an anchor development to attract users as well as other prospects for the property. Petroleum
brownfields have been successfully used for these types of projects, which improve the target property and help
leverage additional development in the area.
24 Petroleum Brownfields: Selecting A Reuse Option
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Successful Redevelopment Approaches
The preceding section highlighted the wide variety of reuse options that are possible at
petroleum brownfields. But how do these properties get redeveloped? Each petroleum
brownfield redevelopment project is different and may rely on a unique combination of tools
and resources to complete. Understanding and having access to a variety of tools and
resources can help make projects successful.
Former gas station redeveloped into a parking lot in support of the
Pelican Landing Conference Center in Moss Point, Mississippi
Engaging Communities And Partners
It is important for developers to remember
that redevelopment projects are successful
when they are accepted and welcomed
by the community. Engaging community
residents and other project partners early
in a property's cleanup and redevelopment
process is critical to help promote more
equitable development outcomes. It
is helpful to integrate the community
engagement process into the property
identification and reuse selection process.
The community needs to be informed of the environmental conditions at the property, the
proposed remediation, and of potential reuse options. Providing honest and complete information
on the environmental issues and how they will be addressed helps generate credibility and
confidence in the project. Regular communication with the community and project partners
helps avoid potential misunderstandings. Listening to community concerns about environmental
issues, property design, and reuse is fundamental to the success of the project. In addition,
communities provide valuable input on preferred uses for a property. For example, in Jackson,
South Carolina, it was community input that crafted the redevelopment vision for Jackson Park.
In this example and in many of the other projects highlighted in this catalogue, civic and public
leadership played an important role in redeveloping petroleum brownfield properties.
Information can be shared with the community through multiple formats to ensure as many
people as possible receive needed information. Some mechanisms for information sharing
include: public meetings; discussions with business and community groups; information on
Web sites and in newspapers and newsletters; signs posted at the property; community
visioning exercises; and design charrettes (intensive, hands-on workshop that bring people
from different disciplines and backgrounds together to explore design options for a particular
area). In areas where multiple languages are spoken, communications can be translated to be
accessible to the impacted population.
In addition to the local community, engaging other project partners is another key to a
property's redevelopment. Community groups, environmental professionals, regulatory
agencies, financiers, local business groups, and developers can all be actively engaged
throughout the redevelopment process. Some partners' skills and resources can be used to
minimize costs; for example, local gardening clubs might offer free or low-cost landscaping for
a pocket park redevelopment once the property has been remediated. For more information
on partnerships, visit www.epa.gov/brownfields/partnr.htm.
Working Through The Cleanup And Redevelopment Process
The redevelopment process begins with the identification of the project property. One tool
communities use to identify petroleum brownfields for redevelopment is a petroleum brownfield
site inventory. This inventory lists known properties that may require cleanup and provides
excellent resources for identifying potential properties for redevelopment. An inventory also can
be used to prioritize the redevelopment of multiple properties, assist in marketing properties for
reuse, help track redevelopment progress, and increase awareness of petroleum brownfields.
An inventory may be developed by a local government in conjunction with community
groups, local business leaders, real estate professionals, and developers. EPA's Petroleum
Brownfields: Developing Inventories (www.epa.gov/oust/pubs/pbfdevelopinventories.pdf) is a
good resource for learning how to develop and use an inventory.
Petroleum Brownfields: Selecting A Reuse Option 25
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Prior to purchasing a property, it is essential to conduct All Appropriate Inquiries (AAI) to
understand any potential environmental issues. AAI is the process of conducting due diligence
or a Phase I Environmental Site Assessment to determine prior uses and ownership of a
property and assess conditions at the property that may be indicative of releases or threatened
releases of hazardous substances at, on, in, or to the property. AAI necessitates involving an
environmental professional and the environmental regulatory agency, either local, state, tribal,
or EPA. An environmental professional can assist with the appropriate inquiry process and
also provide advice on reuse, make recommendations for potential remedial action, and aid
communication with state and federal regulators. The environmental regulator also will assist in
understanding the implications of environmental reports and help explain what remediation is
necessary. More information can be found at www.epa.gov/brownfields/regneg.htm.
Once a property is identified for redevelopment, petroleum brownfield stakeholders can utilize
state regulatory agencies and state response programs to facilitate the property's cleanup
and reuse planning. States are key partners in terms of technical assistance, funding, liability
issues, and selecting remediation and reuse options. Although liability remains an obstacle
to reuse, state response programs are bringing a greater level of certainty to the cleanup
and redevelopment process and establishing finality for cleanups with liability relief and "no
further action" mechanisms. EPA's State Brownfields And Voluntary Response Programs: An
Update From The States (www.epa.gov/brownfields/pubs/st_res_prog_report.htm) explores
the evolving landscape of state environmental, financial, and technical programs, including
the incentives designed to promote brownfields cleanup and redevelopment. This user-friendly
tool looks at multiple components of state brownfields and voluntary response program(s) and
provides a synopsis of each state's response program(s) and contact information.
In the cleanup stage of the redevelopment process, there are a variety of creative approaches
that can be used to reduce costs and streamline redevelopment. An example of one such
approach is using knowledge of a property's environmental and geophysical conditions to
adjust cleanup and reuse plans. Ensuring that new buildings are located on the most sound
areas of a property will reduce the costs associated with stabilization and compaction. For
example, at the Chevy Place in Rochester, New York, environmental investigation results
allowed the cleanup manager to identify ways to alter the cleanup plan, reduce offsite
disposal, and minimize excavation for the new building footprints, resulting in an overall lower
cost. Another example of a cost-saving approach is to use the redevelopment project to fulfill
some of the cleanup requirements. For example, features of a redevelopment project such as
slabs or parking lots can serve as caps to contaminated areas.
After cleanup, there may be challenges to implementing a planned reuse at a property,
including time considerations, community issues, financing issues, and/or environmental
issues. In such cases, an interim reuse may be appropriate at a property to provide near-term
economic and social benefits before a more beneficial long-term reuse can be implemented.
Another approach for property reuse is to consider parcel assembly. Because some petroleum
brownfield properties are small and in locations that may have limited reuse potential as
independent properties, parcel assembly may improve the viability and marketability of a
property. If land assembly is an option, the area can support a larger reuse project and can help
achieve economies of scale if the environmental work can be conducted as a single project.
Incorporating Environmental Sustainability
Petroleum brownfield projects have increasingly incorporated more environmentally-sustainable
elements into project cleanup and reuse, such as recycling construction and demolition
debris; conducting energy modeling to maximize efficiency in building placement and heating,
ventilating, and air conditioning selection; tapping into renewable energy resources (e.g., solar);
using building materials and paints with no VOCs; and incorporating native landscaping.
Sustainable Cleanup And Redevelopment Resources
• EPA Water Sense (www.epa.gov/WaterSense)
• EPA ENERGY STAR® (www.epa.gov/energystar)
• EPA Brownfields Sustainability Pilots (www.epa.gov/brownfields/sustain_plts/)
• U.S. Green Building Council LEED® (www.usgbc.org/LEED)
• Sustainable Sites Initiative (www.sustainablesites.org)
• Living Building Challenge (http://ilbi.org/the-standard)
• EcoTools (www.cluin.org/ecotools)
• Database of State Incentives for Renewables and Efficiency (www.dsireusa.org)
26 Petroleum Brownfields: Selecting A Reuse Option
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Incorporating sustainability into the planning, design, and implementation of redevelopment
projects presents a number of benefits. Some of these benefits include improved energy
efficiency, reduced carbon emissions, and savings in water consumption. Developing in
existing communities and on infill properties, and promoting more compact, mixed-use
development are critical factors in providing greater transportation choice and protecting open
space, resource lands, and critical environmental areas. In addition, projects that incorporate
sustainable elements are more marketable and offer lower operating costs than traditional
developments. There are many organizations that can offer guidance, products, and resources
for those interested in pursuing sustainable petroleum brownfield projects.
Finding Financing And Technical Assistance
Like many brownfields, petroleum brownfields may need to rely on public funding sources
to make redevelopment feasible. A variety of financing sources to support the assessment,
cleanup, and redevelopment of properties are available at various levels of government.
Communities that reach out to local, state, tribal, and federal government programs to identify
these potential sources of funding may facilitate the cleanup and reuse of a property that
was previously unviable. EPA identifies partners and financing opportunities on its Web site
at www.epa.gov/oust/petroleumbrownfields/pbfinance.htm and www.epa.gov/brownfields.
Discussions with these partners can identify public and private funding sources that address
environmental, demolition, or other costs associated with site preparation and redevelopment.
Examples of funding sources and tools that stakeholders utilize in support of petroleum
brownfield projects may include but are not limited to:
• State petroleum cleanup funds
• EPA Brownfield Assessment, Cleanup, and Revolving Loan Fund grants, Section 128(a)
State and Tribal Response Program funds
• U.S. Department of Housing and Urban Development (HUD) Community Development
Block Grants (CDBG), Section 108 loans, HOME Funds
• U.S. Small Business Administration loans
• U.S. Department of Commerce Petroleum Environmental Cleanup Fund Awards (PECFA)
• State-specific economic and community development funds
• The National Park Service, U.S. Department of Interior, U.S. Department of Agriculture,
Appalachian Regional Commission, U.S. Department of Energy, and the Economic
Development Administration are examples of some of the federal agencies that can
support activities on brownfields properties
• State financial tools; for example, Wisconsin's Financial Resource Guide For Cleanup And
Redevelopment (http://dnr.wi.gov/org/aw/rr/archives/pubs/RR539.pdf)
• Tax credits or increment financing also can be a financial resource for projects
• Private funding streams, including construction loans, private Real Estate Investment
Trusts (REITs), and developer equity bonds
EPA's Brownfields Federal Programs Guide lists funding specific to brownfields projects; see
www.epa.gov/brownfields/partners/bf_fed_pr_gd.htm.
In addition to financial support, technical assistance is available from EPA and state regulatory
agencies. Many state and tribal environmental agencies also provide direct assistance for
environmental site investigation.
EPA's Technical Assistance to Brownfields communities (TAB) grants provide geographically-
based technical assistance and training to communities and other stakeholders on brownfields
issues with the goal of increasing a community's understanding and involvement in brownfield
cleanup and revitalization.TAB grants serve as an independent source of information
assisting communities with: community involvement; better understanding the health impacts
of brownfield sites; the science and technology relating to brownfields site assessment,
remediation, and site preparation activities; brownfields finance questions; and information
on integrated approaches to brownfields cleanup and redevelopment. For more information
regarding TAB assistance, see http://epa.gov/brownfields/tools/tab_bifold.pdf.
Petroleum Brownfields: Selecting A Reuse Option 27
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Moving Forward
A former gas station in Milwaukee, Wisconsin, prior to
cleanup and redevelopment
Redeveloping petroleum brownfields, with
their unique characteristics, requires creative
solutions. EPA is committed to efforts that
continue the success of assessing, cleaning up,
and reusing petroleum brownfield properties.
EPA is working with an array of external
stakeholders to enhance communications,
provide needed assistance to potential
partners, explore policy improvements, and
establish lasting relationships. Lessons learned through these efforts will result in new
areas of emphasis, new approaches to overcome the barriers to wide-scale petroleum
brownfields cleanup and revitalization, and further sustainability efforts.
In continuing to implement its Action Plan, EPA remains committed to pursuing
specific redevelopment initiatives that support the economic revitalization of petroleum
brownfields in economically-challenged communities. While EPA recognizes that
tremendous redevelopment progress has been made across the country, much of
the progress has focused on restoring larger urban areas. EPA is also committed to
understanding the needs of rural economically-challenged regions and providing tools
and resources specific to rural communities. While redevelopment projects can help
change the face of a community and protect public health and the environment, it is also
important to facilitate projects that can help restore economic viability and provide much
needed amenities for local citizens.
After cleanup, Sherman Perk opened on the former gas station property
28 Petroleum Brownfields: Selecting A Reuse Option
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Printed on Recycled Paper
United States
Environmental
Protection Agency
Solid Waste and
Emergency Response
5401 P
EPA510-R-09-004
October 2009
www.epa.gov/oust/
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