Partnership
far Sustainable
Communities
The Partnership for Sustainable Communities
Brownfield Pilots
Lessons Learned Report
EPA 5 60-R-12-001
" June 2012
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Introduction
THE PARTNERSHIP FOR SUSTAINABLE COMMUNITIES
Sustainable communities are places that balance their economic and natural assets so that the diverse needs of
local residents can be met now and in the future. Typically, these communities have lower costs and more value
for taxpayers because they are more connected and efficient. Sustainable communities provide economic
momentum and help America compete more effectively for jobs. Regions all around the country recognize this
and are planning thoughtfully based on their own local resources, landscape, culture, and ingenuity.
The Partnership for Sustainable Communities (PSC) was created in June 2009 as an interagency partnership
between the U.S. Department of Housing and Urban Development (HUD), the U.S. Department of Transportation
(DOT), and the U.S. Environmental Protection Agency (EPA). The Partnership marks a fundamental shift in the
way the federal government structures its transportation, housing, and environmental spending, policies, and
programs. Through the Partnership, the three agencies collaborate to help communities meet housing and
transportation goals while simultaneously protecting the environment, promoting equitable development, and
helping address the challenges of climate change.
Guiding this work are the Partnership's Livability Principles:
• Provide more transportation choices.
• Promote equitable, affordable housing.
• Enhance economic competitiveness.
• Support existing communities.
• Coordinate and leverage federal policies and investment.
• Value communities and neighborhoods.
The Partnership agencies are promoting these principles internally by addressing federal policy and administrative
barriers to promoting sustainable communities, and externally through their programs, funding, and technical
assistance. One of the first acts of the Partnership was to demonstrate how the three agencies could work
collaboratively to support equitable transit-oriented development (TOD).
THE PSC BROWNFIELD PILOTS
Brownfields are real property, the expansion, redevelopment, or reuse of which may be complicated by the
presence or potential presence of a hazardous substance, pollutant, or contaminant. Brownfields revitalization
involves inventorying, assessing and cleaning up these sites, and putting them back into productive reuse.
Brownfields revitalization is an inherently sustainable community practice, as it seeks to reuse property that has
already been developed and is typically connected to existing transportation and utility infrastructure. The benefits
of cleaning up and reinvesting in brownfield properties include protecting the environment, reducing blight, and
taking development pressure off greenspace and working land.
In many communities, brownfields that are linked to transportation corridors, former industry, or other historic
legacies are concentrated in geographic areas. The impacts from these brownfields can result in environmental
justice issues (i.e., when all community residents do not enjoy the same degree of protection from environmental
and health hazards, or equal access to the decision-making process to have a healthy environment in which to live,
learn, and work). Multiple brownfields located within geographic areas can also provide an opportunity for
enhanced area-wide planning, which recognizes that revitalization of the area surrounding the brownfield site(s) is
just as critical to the successful reuse of the property as assessment, cleanup, and redevelopment of an individual
property. The PSC Brownfield Pilots provide communities with a springboard to address multiple properties
through a broader, integrated plan—which is often an optimal planning scale to implement more sustainable
approaches—and to comprehensively engage the community.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Through the Partnership, EPA worked with DOT and HUD through a collaborative process to select five
communities to receive direct technical assistance from EPA's Brownfields, Sustainable Communities, and
Underground Storage Tank Programs. The selected PSC Brownfield Pilot communities include:
• Fairmount Line - Boston, Massachusetts (EPA Region 1)
• Smart Growth District - Indianapolis, Indiana (EPA Region 5)
• Riverfront Crossings District - Iowa City, Iowa (EPA Region 7)
• La Alma/South Lincoln Park - Denver, Colorado (EPA Region 8)
• Westside Affordable Housing TOD - National City, California (EPA Region 9)
Figure 1: Locations of the PSC Brownfield Pilots
Riverfront Crossings District
Iowa City, Iowa
AleMside Affordable Housing Transit-Oriented Development
Notional City, California
Each Pilot area is affected by numerous brownfields (including petroleum brownfields), vacant properties, and
other pressing environmental issues, has ongoing transportation and affordable housing projects, and has
prioritized area-wide brownfield revitalization planning. In addition, each Pilot community demonstrated a strong
desire to enhance the sustainability of its revitalization planning efforts. Through the PSC Brownfield Pilots, the
communities received technical assistance from Agency staff and a consulting team that provided:
• Planning for the eventual assessment, cleanup, and sustainable redevelopment of brownfield sites and the
associated long-term quality of life improvements;
• Local economic development planning;
• Community engagement, outreach, and charrettes;
• Integrated land use and transportation planning; and
• Area-wide revitalization planning to address community needs such as affordable housing creation and
preservation; access to transit; air and water quality improvements; energy efficiency and renewable
energy; and access to recreational greenspace, enhanced retail, employment opportunities, and other
quality of life enhancements.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Figure 2 provides a high-level overview of the Pilots and their goals.
Figure 2: PSC Brownfield Pilot Profiles and Goals
PSC Brownfield Pilot Pilot Profile
Fairmount Line - Boston,
MA (EPA Region 1)
Smart Growth District -
Indianapolis, IN (EPA
Region 5)
Riverfront Crossings
District-Iowa City, IA
(EPA Region 7)
La Alma/South Lincoln
Park - Denver, CO (EPA
Region 8)
Westside Affordable
Housing TOD - National
City, CA (EPA Region 9)
Address three separate projects related to the
Fairmount Collaborative's activities—each
involving TOD and related improvements to new
and improved station areas along the
Fairmount/lndigo Commuter Rail Line.
Develop a revitalization strategy and
implementation plan for the Smart Growth
District, a neighborhood located northeast of
downtown Indianapolis.
Create a redevelopment plan for an
underutilized riverfront district adjacent to the
University of Iowa and downtown Iowa City.
Plan and implement the revitalization of an
aging public housing development into a vibrant
and sustainable mixed-use, mixed-income TOD.
Transform a brownfield property into an
affordable housing TOD as a catalyst for
neighborhood change.
Pilot Goal
Develop a tool to identify opportunity sites along the
commuter rail corridor; create designs for a mixed-use,
affordable TOD; and conduct meaningful community
engagement.
Prioritize specific revitalization activities, spur
investment, and attract residents and economic
development to the Smart Growth District,
strengthening the area near downtown Indianapolis.
Engage local stakeholders in a planning and design
workshop to articulate the goals for the district and
develop a conceptual plan reflecting those changes.
Conduct three charrettes focusing on specific
sustainability issues: energy, transportation, and
stormwater/green infrastructure design.
Build on city and community efforts by making the TOD
project and neighborhood more sustainable through
green remediation, open space reuse, and habitat
restoration. Develop a property ranking approach, and
relocate and 'green' a public works facility.
The PSC Brownfield Pilots were not conducted in isolation or as stand-alone projects. In each community, the
Pilots were designed to enhance long-term, locally based revitalization planning. The technical assistance was
tailored specifically to fill a resource gap or enhance ongoing work through the contributions of national experts
and a collaborative team of representatives from EPA, HUD and DOT.
SHARING SUCCESSFUL STRATEGIES
Sustainable revitalization planning is a complex process relying on the collaboration and collective wisdom of
numerous project partners and stakeholders. While each community and each revitalization project is different,
there are common elements to successful revitalization planning. This report was developed to capture and share
lessons learned from the PSC Brownfield Pilots with other communities pursuing similar revitalization planning
efforts; identify tools, resources, and points of contact; and share sustainable community planning ideas.
This report includes a summary of each PSC Brownfield Pilot, including Pilot-specific lessons learned, followed
by lessons learned from all five Pilots related to three topics: integrating sustainability, getting to implementation,
and fostering equitable development in brownfield revitalization projects.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
r
Fairmount Line—Boston, MA
BACKGROUND
This project is born from decades of disinvestment
along the Fairmount Commuter Rail Line in Southwest
Boston. It is the oldest line within Boston's commuter
rail system and the only line contained entirely within
city limits. It runs through some of the oldest, most
historically rich and culturally diverse communities in
the city. In some of these communities people of color
constitute as much as 96 percent of the population. The
area generally has poverty rates higher than that of the
city as a whole.
While the Fairmount/Indigo Commuter Rail Line has
brought countless commuters from outlying areas into
the center of Boston, the line has very few stops in the
large, diverse communities through which it runs. Until
recently local residents have endured the burdens of a
rail line running through their neighborhood without
benefiting from the transportation options or
community enhancement that can come with transit
stations. To get
to downtown
Boston, bus
service takes
nearly two hours
compared to 15
minutes by rail.
However, this is
changing.
EPA assistance
was provided to
a collaboration
of community
based
organizations
called The
Fairmount
Collaborative,
whose long term
commitment to
social
empowerment,
housing, equity,
and livability
spans decades.
The
Collaborative is
composed of
four Community
'The Fairmount
Collaborative and [the PSC]
helped organize and bring
together so many important
efforts that existed in the
Fairmount Corridor. And
now, we have a much more
coordinated strategy both
with respect to our
relationships with the
federal agencies, HUD,
DOT, and EPA; city
agencies and interventions
whether it's housing
investment, green jobs
creation, energy efficiency
investments that the city and
our local partners are
making; as well as our
community organizations
that are on the ground every
day to make that area more
sustainable."
- Jim Hunt, Chief of
Environmental and Energy
Services, City of Boston
Technical assistance was provided to three separate projects
related to the Fairmount Collaborative's activities; each
involved TOD and related improvements to new and improved
station areas along the Fairmount/Indigo Commuter Rail Line
in Boston, MA.
Lead Local Organization: The Fairmount Collaborative
Pilot Goal: Each of the three projects leveraged brownfield
redevelopment and had a unique goal, including: 1) develop a
tool for the Collaborative to identify opportunity sites along the
9-mile commuter rail corridor; 2) create an initial set of designs
for a mixed-use, affordable TOD; and 3) engage community
residents to identify the benefits of increased density, explore
recent undesirable experiences with it, and begin a planning
process to help shape positive results in future TOD projects.
Challenge(s): Developing tools, designs, and guidance for use
across community based organizations and public agencies.
Assets/Opportunities: Well organized coalition of community
based interests with strong ties to city leadership.
Catalyst for Change: The combination of community based
advocacy structured to own and redevelop property, and to
encourage public investment.
Transferrable Element: The coalition based model used by
the Collaborative allowed federal resources to be applied
across multiple goals, including affordable housing,
brownfields redevelopment, green TOD, community
engagement, and partnerships, simultaneously (e.g., the site
prioritization tool is being used by community based
organizations and the city for mutually supportive objectives).
Continuing Success: The Collaborative's member
organizations are acquiring and redeveloping properties
surrounding the new and enhanced commuter rail station
areas for affordable housing and are using the site
prioritization tool to identify properties within the corridor for the
purpose of providing greenspace.
Benefit to Residents: Development proposals are being
tailored to reflect resident priorities, which will result in
improvements to residents' health, economic well-being, and
housing choice.
Local Contact: Joan Tighe - Fairmount Collaborative
Coordinator, (617) 287-8758, Jtconres@aol.com
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Development Corporations (CDC): Codman Square
Neighborhood Development Corporation (NDC), Dorchester Bay
Economic Development Corporation (EDC), Mattapan CDC, and
Southwest Boston CDC. Through the Fairmount Collaborative.
these CDCs apply their collective resources and political
influence to provide affordable housing, transit equity, economic
development, and equitable open space provision within
underserved neighborhoods along the Massachusetts Bay
Transportation Authority (MBTA) Fairmount/Indigo Commuter
Rail Line in Boston.
Brownfield sites dot the landscape in these communities, with
vacant sites whose previous uses include but are not limited to
chemical manufacturing, automotive related uses, former dry
cleaners, and metal plating facilities. These sites have negative
consequences on the surrounding community's health, economic
opportunities, and identity. Hundreds of these properties have
histories with the MA Department of Environmental Protection
and have received assistance from EPA, while others have yet to
be identified and addressed. These sites have direct negative
impacts on the Collaborative's efforts to improve the
community's environmental and economic conditions. Through
its strategic and long-term community activism, the Collaborative
has successfully elevated the community's political profile
and increased its capacity to draw once absent public
resources. Now, in addition to recent city and state attention,
substantial EPA investment in the Corridor is helping prepare
brownfields for reuse on sites such as Lewis Chemical site
and with brownfield assessment grants managed by the City
of Boston.
As a direct result of the long term commitment by the
Collaborative and its neighborhood partners, the City of
Boston, Massachusetts Department of Transportation
(MOOT), MBTA, and the Federal Transit Administration
(FTA), four new stops are scheduled to open by 2013 and
two existing stops are being reconstructed to better serve the
communities through which the rail line runs.
Pilot Purpose/Goal
Through the PSC Pilot, EPA Region 1 and the Collaborative
discussed strategic ways in which assistance could be applied
to bridge gaps in efforts to ensure equitable development
results from the investments in the commuter rail stations.
Working together, EPA and the Collaborative identified three
discrete projects along the rail corridor that help to revitalize
brownfields, provide affordable housing, shops and offices
near transit, and expand greenspace. These goals are
supported by the community and represent the mutual
commitment among the Collaborative and its public partners
to smart growth changes reflecting PSC principles.
Fairmount Rail 1/2 Mile Corridor Buffer
Morten Street Homes Preliminary Conc«pt »nd Slt« Capacity Study
^li^'HY Maiupan Community Development Corporation DRAFT Nov. 05. 2010
CLANO
Designs for Morton St Homes
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Pilot Activities
The new transit station areas will catalyze growth in the surrounding area resulting in equitable TOD, additional
housing, and increased commercial activity. The Pilot provided technical assistance that addressed gaps within
three discrete sub-projects. Each served to increase the Collaborative's capacity to identify priority sites, build
community support, and maintain affordable housing opportunities in neighborhoods surrounding commuter rail
station areas.
• Sub-project 1: Fairmount Collaborative Corridor Wide Site Prioritization Tool - Developed an Excel-
and Google Earth-based corridor-wide site inventory and prioritization tool for properties within a half
mile radius of the Commuter Rail line. This tool will help the Collaborative identify and prioritize
properties for a planned greenway and ensure that contamination from past uses is addressed.
• Sub-project 2: Morton Street Homes - Created site-specific designs for the Morton Street Homes project
and developed brownfields guidance related to the development of an affordable TOD near the Talbot
Avenue station. The subject site has former automotive related uses necessitating environmental
assessment and guidance related to liability issues for the purchaser, Mattapan CDC.
• Sub-project 3: Codman Square NDC and Talbot Norfolk Triangle Neighborhood Association (TNT)
Public Participation Initiative - Supported a community meeting with TNT residents and businesses to
identify community goals and outline preferences for new development and higher density. This meeting
also served to catalyze longer term community planning efforts. The TNT neighborhood is impacted by
several vacant properties with prior automotive related uses whose redevelopment will require
environmental assessment and perhaps remediation.
Measurable Results and Outcomes
The Pilot provided technical assistance that helped advance the timeframe for all three sub-projects and helped the
Collaborative meet a critical funding application deadline. While the sub-projects existed prior to the technical
assistance, each had gaps that needed bridging to make the projects feasible.
• Sub-project 1: Fairmount Collaborative Corridor Wide Site Prioritization Tool - The Collaborative is
already using the Excel-based tool to identify priority sites. In addition, an unanticipated, yet welcomed,
outcome of the project is the tool's use by the City of Boston's Department of Neighborhood
Development.
• Sub-project 2: Morton Street Homes - The site design developed for the Morton Street Homes TOD is
allowing the Collaborative to actively pursue public affordable housing funding and gain community
support for the project. Designs were created that leveraged community support in time to meet a funding
application deadline.
• Sub-project 3: Codman Square NDC and Talbot
Norfolk Triangle Neighborhood Association
(TNT) Public Participation Initiative - A key
outcome from this sub-project is the enhanced
dialogue between the TNT neighborhood and
Codman Square NDC. In addition, Codman
Square NDC now knows residents' priorities for
characteristics of development they would
support and can integrate them into the
development concept.
The materials produced under this Pilot also helped
illustrate the Collaborative's (and its member CDCs')
substantial capacity to accomplish goals, leverage
additional resources, and complete complex projects.
TNT Meeting Table Discussions
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
The Collaborative's projects are now seen as viable
investments and its members are considered strong partners by
philanthropic organizations and public agencies. Another long-
term change resulting from the Pilot is the improved
relationship between the Collaborative and the city. By
delivering a tool with utility for both the Collaborative and the
city, common objectives and partnership opportunities were
established.
With respect to the working relationship of the PSC federal
agencies, long-term change resulting from the Pilot will be
seen in the way in which EPA, HUD, and DOT engage in
thoughtful and effective processes for identifying and selecting
projects for additional financial or technical assistance in
Boston. This project set the tone and pace for ongoing
collaboration among Partnership agencies, from Pilot selection
through implementation.
TRANSFER OF KNOWLEDGE
Coalition-Based Advocacy: This Pilot embodies
the importance of collaborative problem solving
amongst community based organizations. The
Fairmount Collaborative provides a vehicle for
multi-stakeholder advocacy and mutual resource
sharing. Such a vehicle lends weight to advocacy
efforts and allows for more strategic pursuit and
management of resources member organizations
would otherwise compete for in isolation. Further,
it helps broaden the capacity individual
organizations might struggle with due to financial
or other limitations.
KEY PARTNERS (PARTNERSHIP COORDINATION AND ENGAGEMENT)
Key partners at the local level include the Collaborative that served as the primary contact and organizing point
for all three segments of the assistance. Other key project partners include:
• Sub-project 1: Fairmount Collaborative Corridor Wide Site Prioritization Tool - Fairmount
Collaborative and each member CDC, and the City of Boston Department of Neighborhood Development
• Sub-project 2: Morton Street Homes - Mattapan CDC and Next Street Capital
• Sub-project 3: Codman Square NDC and Talbot Norfolk Triangle Neighborhood Association (TNT)
Public Participation Initiative - Codman Square NDC and the Talbot Norfolk Triangle Neighborhood
Association
Engagement with local partners included extensive conference calls, electronic communication, and site visits.
This provided a forum in which project partners shared their goals, identified obstacles to achieving them, and
built strategies to overcome them. Involvement by HUD or DOT was coordinated by the EPA Region 1 project
manager and supported through regular team meetings in Boston. During these meetings each agency provided
feedback and guidance to EPA regarding the project. Agency representatives provided review of each product
developed and feedback on the final report.
LESSONS LEARNED
Pilot specific lessons learned include:
• Cooperative engagement between multiple organizations provides a venue for organizing and
advocating with a unified voice, to achieve strong, effective results. In the case of the Fairmount
Collaborative, results include substantial public investment in commuter rail stops and moving sensitive
communities closer to transit equity.
• Design with the community in mind. Thoughtful site design should reflect community and political
priorities and can be an effective tool in garnering community interest and support. Designs created for
the Morton Street Homes project integrated greenspace, which met both the Mayor's priorities and served
future residents of the development. These designs were used in securing written support from multiple
community based organizations, which was a requirement of the affordable housing funding being
pursued.
• Build with the community in mind. Poorly designed and executed development projects can result in
community opposition for future development. Residents, organizations, and institutions are hesitant to
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
support future development when they do not understand, or believe in, the difference between previous
development teams and proposals.
• Active community engagement strengthens brownfields revitalization efforts. In the TNT neighborhood,
Codman Square NDC held public forums to enable residents to articulate the specific development
elements they wanted and those they did not. This information will be used in project planning phases to
avoid the elements known to be unwanted by the community. Further, it helped develop a sense of trust—
and a working dialogue—between the community and the developer.
• Federal support of local projects can elevate a project's status at all levels of government. The presence
of EPA assistance through the PSC elevates the political profile of projects receiving assistance through
it. Boston's public agencies have ongoing financial and political relationships with each of the three
Partnership agencies. By supporting the initiatives receiving PSC assistance, the city and the CDCs are
better positioned to demonstrate their commitment to PSC sustainability principles and be more
competitive in future federal transportation and housing grant proposals.
• In projects with multiple stakeholders, it is helpful to have a dedicated local liaison. This liaison can be
responsible for coordinating schedules, timelines, and meetings, and in helping to manage expectations.
Communication among the multiple stakeholders within the Fairmount Collaborative was made efficient
by having the Collaborative's Coordinator manage communication from a central position.
• Regular collaboration amongst PSC agencies ensures efficient allocation of federal resources.
Technical assistance projects in EPA Region 1 were identified and reviewed by EPA, DOT, and HUD to
align agency resources with the goals of selected Pilots.
• Successful implementation of PSC resources demonstrates the local capacity. In turn, this can improve
the ability of local agencies to secure resources through competitive processes. For example, the
Dorchester Bay EDC member of the collaborative and the City of Boston recently received a $20.5
million HUD Choice Communities Implementation Grant.
POST-PILOT IMPLEMENTATION
Each sub-project within the Pilot is now better positioned to implement its plans.
• Fairmount Collaborative Greenway Trail - The Pilot provided assistance that developed the site
identification and prioritization tool; the tool allows the Collaborative to search efficiently for priority
project sites for the realization of the Fairmount Greenway, a series of non-contiguous greenspaces along
a half mile radius of the rail line. It can be used to find properties with multiple characteristics including,
but not limited to, proximity to station areas and other parks, size, and environmental history. By using
the tool to identify sites in park deficient neighborhoods that can be converted to greenspace, the impact
of the Greenway Trail can be maximized.
• Morton Street Homes - Designs created for the project allow Mattapan CDC to move forward with
assembling detailed project budgets, apply for Low Income Housing Tax Credits, and sustain community
support for the development of a mixed-use TOD that provides affordable housing adjacent to the Morton
St. station area. This was not the case prior to the Pilot, when previous designs were denied such funding
and project partners did not have resources to amend them. Pilot assistance bridged that gap and put
Mattapan CDC in position to pursue these financial resources in 2011.
• Codman Square NDC and TNT Community Planning - By engaging in thoughtful dialogue, residents
were able to clearly articulate the benefits of increased commercial and residential activity they would
like future development to bring to their community. The community also had a forum in which to define
the elements of previous development they felt did not work well. This exchange informed Codman
Square NDC about how to craft its development proposal for TOD adjacent to the future Talbot Avenue
station. Looking beyond one development and one timeframe, this dialogue initiated longer term
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
community planning to further define the community's goals for future growth and change in the
neighborhood.
These three projects are just a snapshot of the tremendous work being conducted by the Fairmount Collaborative
and its member organizations throughout the Fairmount Corridor and Southwest Boston. From providing
affordable housing to building greenspace and advocating for transit equity, the Collaborative and its members
serve as models to other communities facing similar environmental, economic, and political pressures. Their
success is highlighted by the recent award of the HUD Choice Communities Implementation Grant to Dorchester
Bay EDC and the City of Boston. The overall effort highlights how working in partnership with each other and
with public agencies, communities can create the change they want to see for themselves.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Smart Growth District—Indianapolis, IN
BACKGROUND
In 2008, the City
of Indianapolis
and local
stakeholders
delineated a Smart
Growth District
(SGD), which
extends
approximately %
of a mile from
East 22nd Street
"Our Pilot serves as a
testament to the effect a
federal department
partnership can have on a
local project and how it is
integrated into its
community."
- Chelsea Humble, Smart
Growth Program Director,
KPADC
and the Monon
Trail Greenway.
The SGD
encompasses
neighborhoods that are challenged by crime, illegal
dumping, a nearly 70 percent household poverty rate, a
30 percent vacancy rate, approximately 200
brownfields, and limited access to retail, job centers,
transit options, fresh food, or community services.
The SGD also has many assets upon which to build. It
is located less than two miles from downtown
Indianapolis, providing ready access to the region's
core. It is bound to the south by 16th Street, which has
been the subject of redevelopment planning for the last
several years. It is adjacent to the Old North Side and
Heron-Morton historic districts, as well as the award-
winning Fall Creek Place, a smart growth, mixed-
income neighborhood that has attracted hundreds of
new residents while retaining many of its long-time
residents. In addition, the SGD has a traditional street
grid that is served by IndyGo's bus system. The
region's long range transportation plan includes transit
enhancements for the SGD, including the potential for
a bus rapid transit, light rail, or heavy rail station. The
Monon Trail Greenway, a 17-mile trail that attracts
tens of thousands of visitors each month, runs through
the heart of the SGD connecting the District with
downtown, the Indiana State Fairgrounds, and other
points north.
The SGD has many community-based assets, including
two community development corporations: the King
Park Area Development Corporation (KPADC) and
the Martindale-Brightwood Community Development
Corporation CDC (MB CDC). Many of today's SGD
residents have lived there for generations and
Developing a revitalization strategy and implementation plan
for the SGD, a neighborhood strategically located northeast of
downtown Indianapolis with a high vacancy rate and hundreds
of brownfields.
Lead Local Agency: Indianapolis Department of Metropolitan
Development
Pilot Goal: To prioritize specific revitalization activities, spur
investment, and attract residents and economic development
to the SGD and strengthen the Indianapolis region.
Challenge(s): Identifying a common vision for the
revitalization of the SGD and identifying potential sources of
funding to implement the revitalization strategy. Balancing the
desire to reduce the neighborhood's vacancy rate without
displacing current residents. Ensuring new investment and
development meet neighborhood needs.
Assets/Opportunities: The SGD is located near downtown
Indianapolis, the 16th Street redevelopment corridor, and the
Old North Side and Heron-Morton Place historic districts. It
has a gridded street pattern, bus service, and excellent
access to the Monon Trail Greenway. It has a strong civic
base, a high rate of multi-generation home ownership, dozens
of churches, and active local developers that are investing in
the neighborhood.
Catalyst for Change: The neighborhood's two community
development corporations working together and supporting a
common development vision enabled them to more effectively
engage with city, state, and federal stakeholders.
Transferrable Element(s): The process for developing a
common revitalization vision and "funding charrette" to
maximize the impact of federal resources and promote
brownfield revitalization TOD, and regional sustainability.
Continuing Success: The city is working to designate the
SGD as a redevelopment area, enabling the city to better
leverage tools to encourage redevelopment.
Benefit to Residents: Long-time residents will have improved
access to transit and neighborhood-based services, while
strategically located new housing will attract residents and
help catalyze broader revitalization.
Local Contact: Chelsea Humble, King Park Area
Development Corporation, Smart Growth Program Director,
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
collectively have a relatively high rate of home ownership. There are
dozens of churches and community groups based in the SGD. In
addition, local developers have been investing in areas along the Monon
Trail.
In October 2008, the Indianapolis Green Commission recommended that
the Mayor implement the SGD Concept Plan. In the following year, the
American Institute of Architects awarded Indianapolis a 2009
Sustainable Assistance Design Team grant to study the SGD and
conduct community outreach. EPA became aware of the SGD through
its interaction with Indianapolis Department of Metropolitan
Development (DMD) Brownfield staff on projects located in the area.
For more information on the history of this Pilot, see the Indianapolis
PSC Pilot Fact Sheet.
Pilot Purpose/Goal
EPA worked with the Indianapolis DMD, KPADC, MB CDC, and
other project stakeholders to determine what was needed to help
catalyze revitalization within the SGD. Building on the multiple
planning efforts that have taken place in and around the SGD
in recent years, this PSC Brownfield Pilot focused on
developing a practical revitalization strategy to: 1) prioritize
actions to strategically build walkable neighborhoods to
support a transit-oriented future; 2) help connect the SGD with
other ongoing redevelopment and planning efforts in and
around the SGD; 3) identify how existing and future resources
can be directed toward the SGD; and 4) identify opportunities
for investments in brownfields and other underutilized
properties and underserved corridors that will help catalyze
revitalization of the SGD. In addition, this PSC Brownfield
Pilot supported a "funding charrette" that brought a wide
variety of project stakeholders and potential flinders together
to align financial resources with specific implementation
projects in the SGD.
The SGD is located less than a mile
from downtown Indianapolis.
PILOT ACTIVITIES
To develop the revitalization strategy, the EPA technical
assistance team first reviewed over 50 existing plans and
studies, conducted interviews with over 20 individuals and
organizations, and collected geographic information system
(GIS) data. The team developed and analyzed this data in a
series of SGD computer-aided drafting and design (CADD)
maps to identify the potential for restoring the population
within the SGD and potential area-wide revitalization drivers.
The team's analysis found that by retaining the historic block
pattern, infilling vacant sites, and adding density to a limited
number of lots located at key intersections, the SGD could
regain enough residents to support enhanced transit such as
light rail, while preserving the single-family home fabric of the
neighborhood.
TRANSFERRABLE ELEMENT:
A SUMMARY OF THE INDIANAPOLIS
REVITALIZATION PLANNING PROCESS
Revitalization Planning
1. Initiate project scoping and community
engagement; and build relationships between
the city and CDCs, and among CDCs.
2. Identify needs, opportunities, and assets to
build from, and frame revitalization on these
elements to create a robust and sustainable
plan.
3. Develop a strategy with direct, implementable
steps and clear responsibilities. This minimizes
investment risk and ensures that stakeholders
understand the plan, are fully engaged, and
participate in the community engagement
process.
Implementation
4. Identify priorities (in the SGD, each CDC and
the city identified the same priority area,
demonstrating sensitivity to one another's
goals); organize projects and prioritize by
theme; and create a timeline for better
communication with external partners.
5. Host a funding charrette to bring together
federal, foundational, and local funding
agencies to develop a well-rounded plan for
funding; organize grant writing and planning
activities, and attract new partners.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
At the same time, EPA and the technical assistance team worked with the Indianapolis Office of Sustainability to
convene an Advisory Committee, which included representatives from over 15 local, state, and federal
stakeholder organizations. The Advisory Committee provided guidance to the technical assistance team and
requested that the revitalization strategy focus on prioritizing actions to support a transit-oriented future.
The revitalization strategy was presented to the Advisory Committee in fall 2010 and included five primary
actions: 1) identify locations for walkable neighborhood development sites adjacent to transit routes; 2) develop
design criteria for higher-density development within walkable neighborhoods; 3) promote infill development on
selected blocks to create walkable neighborhoods; 4) increase usage of the Monon Trail within the SGD; and 5)
develop a communications and outreach strategy. For each action, the revitalization strategy describes supporting
activities (e.g., identify and prioritize city-owned lots for infill, sale or redevelopment) and identifies potential
partners.
The technical assistance team then assisted the Advisory Committee with identifying a focus area within the SGD
for revitalization. The team developed criteria that local stakeholders could use to evaluate potential focus areas
against one another. The Advisory Committee selected 16th Street between College Avenue and Dr. Andrew J.
Brown Avenue as the focus area, referred to as the Smart Growth District Phase I Redevelopment Plan Area. The
EPA technical assistance team facilitated a funding charrette in July 2011, to bring together key stakeholders and
potential flinders related to connectivity and public realm, housing, land development, and local business
development improvements. The funding charrette resulted in the identification of potential funding sources for
30 different projects in the Smart Growth District Phase I Redevelopment Plan Area, prioritization of the projects,
and development of a detailed project timeline. The highest priority projects were related to corridor/streetscape
improvements, brownfields assessments, and zoning revisions. For more information, review the funding
charrette report.
Measurable Results and Outcomes
The Pilot provided local stakeholders with a set of discrete, prioritized actions to foster revitalization within the
SGD and a detailed funding plan to implement improvements in the Smart Growth District Phase I
Redevelopment Plan Area. If fully implemented, the revitalization strategy would enable the SGD to gain new
residents without displacing existing residents (e.g., through a combination of infill development and encouraging
higher density development in carefully selected areas), and credibly support enhanced transit service. Through
the funding charrette, flinders were able to see connections between the investments, gaining an understanding of
how their investments may be leveraged or enhanced by other investments. Also, stakeholders formulated a
comprehensive funding strategy that prioritizes specific projects across the next several years.
The Central Indiana Community Foundation has committed to provide funding for CDC staff to oversee SGD
management and coordination. KPADC created an SGD Program Manager position to make the planned
investments a reality and to coordinate SGD activities and public engagement. The CDCs are working together
toward a common vision for the SGD. This enhanced cooperation has improved the CDC's communication with
city offices and elevated the priority of the SGD overall. This already resulted in funding from the city's ReBuild
Indy being directed toward street improvements near the 16th Street corridor in 2011.
KEY PARTNERS (PARTNERSHIP COORDINATION AND ENGAGEMENT)
This Pilot benefited from the input of a large number of partners. Key Pilot partners who served on the Advisory
Committee include: the City of Indianapolis Office of Sustainability, City of Indianapolis DMD, City of
Indianapolis Deputy Mayor for Economic Development, City of Indianapolis Brownfields Coordinator, City of
Indianapolis Community Development Block Grant Coordinator, City of Indianapolis Parks, KPADC, MB CDC,
Indiana Finance Authority, Indianapolis Metropolitan Planning Organization, the Federal Highway
Administration (FHWA), Federal Transit Administration, HUD, and EPA. In addition, as a result of the funding
charrette, additional partners including a number of foundations, the U.S. Small Business Administration, and the
U.S. Department of Commerce's Economic Development Administration became involved with the Pilot.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
LESSONS LEARNED
This Pilot is part of a broader community-based effort to revitalize the SGD and relied on the contributions of
many project partners. The Pilot yielded the following lessons learned, highlighting the importance bringing
stakeholders together to identify a common vision and develop a detailed implementation plan for revitalization.
• Respect ongoing planning processes. For the last several years, a number of significant planning efforts
had been undertaken in the SGD, and KPADC and MB CDC have been engaging residents via a long-
term community engagement process. The first six months of this Pilot focused on understanding what
planning work had already been completed in the SGD and what organizations and individuals were key
stakeholders that could help catalyze the revitalization process. Understanding and respecting ongoing
planning processes is a critical step for any external entity, including federal partners, to undertake before
implementing a project.
• Respond directly to local resident concerns. A revitalization strategy typically responds to market
conditions, seeks to build from recent development successes, and identifies unique local drivers that can
catalyze wider revitalization. To be successful, it also needs to meet the needs of local residents. In the
SGD, local residents desire better access to jobs and basic services and improved infrastructure (e.g.,
lighting, sidewalks, streets). They are also concerned about gentrification, in part due to displacement of
some residents as a result of other nearby revitalization activities in recent years. The revitalization
strategy directly responded to these needs and concerns, and EPA and the technical assistance team
worked closely with local stakeholders to ensure they had opportunity to provide input to and feedback on
the revitalization strategy.
• Communicate "sustainability" in terms people can relate to. Restoring vibrancy to a strategically
located area such as the SGD by increasing density, planning for transit, and providing access to basic
services and retail is inherently sustainable. However, much of the jargon associated with land use and
transportation planning, economic development, and "sustainability" topics is at best difficult to
understand, and at worst, alienates important stakeholders. When communicating the vision for the SGD
to the public, the importance of using simple terms related to quality of life was acknowledged by the
project team. In response, KPADC designated an outreach and communications lead for the SGD to
convey information in a readily understood and community sensitive way.
• Establish an effective collaborative process to improve the quality of project outcomes. It is critical to
coordinate across organizations and stakeholders at the very beginning of the project to avoid conflict and
build mutual capacity. Creating a collaborative process in which all stakeholders have a voice and a
responsibility to help achieve the project vision ensures that project outcomes will be achieved. Almost a
dozen organizations worked together to identify the Smart Growth District Phase I Redevelopment Plan
Area, select key projects to implement the revitalization strategy, and pursue funding resources.
• Create a focused revitalization strategy with a clear
implementation plan. The SGD does not lack ideas for
revitalization. However, the SGD needed a concise
revitalization strategy that prioritized short- and long-
term actions. By limiting the number of recommended
actions and activities, the revitalization strategy
presented a clear implementation plan that helped move
this project forward. The Advisory Committee began
implementing the strategy in 2011 by selecting a focus
area (the Smart Growth District Phase I Redevelopment
Plan Area) and developing a more specific
implementation plan for that area. The funding charrette engaged project
stakeholders to link funding opportunities
with project planning.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
• Identify funding for implementation to advance a project out of the planning phase. The many planning
processes that have occurred in the SGD resulted in many residents and stakeholder organizations
becoming disengaged from the process: people are ready for action. The funding charrette was conducted
to help move the process out of the planning phase and into implementation.
• Think "big" when planning, but be prepared for setbacks during implementation. In the SGD, the
prospect of enhanced transit has been a driver for many revitalization plans and even some speculative
real estate development. However, through the Pilot EPA learned that the transit enhancements are not
guaranteed and likely will not occur for many years, if at all. Despite this setback, by thinking big when
developing the revitalization strategy (e.g., targeting investments at key intersections that may be served
by transit), the SGD has the potential to more easily attract investment and accommodate transit if it does
become a reality; this is due to increased population density, which is essential to getting transit stations.
• A catalyst—whether consensus around a common vision, a significant new development project or
investment, or an effective project champion—is necessary to spur revitalization. Revitalization
planning is more art than science. In every community, something different serves as the catalyst that then
spurs other investments in the area. In the SGD, the cooperation and collaboration among dozens of
organizations, the private and public sectors, and local residents is the catalyst that will launch
revitalization. By aligning their collective energy, resources, and attention, SGD stakeholders are poised
to restore vibrancy to the area.
POST-PILOT IMPLEMENTATION
The City of Indianapolis took a major step forward in September 2011, by preliminarily establishing the Monon
and 16th Street Redevelopment Area, which largely overlaps with the Smart Growth District Phase I
Redevelopment Plan Area. A redevelopment area is a geographic designation provided in the Indiana Code to
enable local governments to leverage various tools that encourage new development and redevelopment. The city
also adopted the redevelopment area plan, which will be the first step in enhancing access to public transportation
in the area. The city hopes to formally adopt the redevelopment area in late 2011.
KPADC and MB CDC are now collaborating on: creating a detailed project prioritization list and submitting grant
proposals for projects identified through the funding charrette; supporting the creation of a tax increment finance
district in the Monon and 16th Street Redevelopment Area; supporting a proposed rezoning for at least one
strategically located parcel as multi-use apartments; completing brownfields assessment work; and cleaning up
the Monon Site for a four-acre dog park (early 2012) and 9.5 acres of recreational space (in the design phase).
The city is undertaking a comprehensive revision of its zoning ordinances and development regulations under its
$1.2 million HUD Community Challenge Grant. The revisions will feature livability and sustainability principles,
including transit oriented development. The SGD is one of three neighborhoods that will be studied in detail to
help formulate changes in the zoning ordinances, serving as a prototype for other central city neighborhoods. The
IndyParks board plans to expand operating hours on the Monon Trail Greenway so commuters can legally use the
trail early and late in the day. The city plans to use ReBuild Indy funding for infrastructure upgrades in the Monon
and 16th Street Redevelopment Area, and is committed to completing those projects sustainably by relying on a
new "green checklist."
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Riverfront Crossings District—Iowa City, IA
BACKGROUND
Iowa City has a population of approximately 68,900
and is the largest employment center in the region. It
resides within Johnson County and serves as the
County Seat. Downtown Iowa City is directly adjacent
to the Iowa River.
In 2008, the Iowa River flooded many areas in Iowa
City, including the Riverfront Crossings District
(RCD), a 10-square block study area located south of
downtown Iowa City. Technical assistance was
provided through the Pilot to bridge the gap between
Iowa City's aspirations for a more pedestrian and
bicycle friendly district with housing options and river
front park access and its current physical and
functional condition. The area has many one way
streets that are considered dysfunctional and dangerous
for motorists, bicycles, and pedestrians. Also, the
current land use is generally low density with several
vacant properties and brownfields, including
automotive related and light industrial sites. For more
information on the history of the project and Pilot
effort, see the Iowa PSC Pilot Fact Sheet. The
assistance built on prior technical assistance provided
to the city for the RCD by EPA and the Federal
Emergency Management Agency (FEMA) in response
to the 2008 flood.
This project created a redevelopment plan for an underutilized
riverfront district adjacent to the University of Iowa and
downtown Iowa City. When redeveloped, the district will
provide better transportation access to downtown, park space
along the river, and a beautified commercial corridor with
business and housing opportunity.
Lead Local Agency: City of Iowa City Planning Department
Pilot Goal: To engage local stakeholders in a planning and
design workshop to articulate the goals for the district;
evaluate development preferences, transportation
improvements, and greenspace creation; develop a
conceptual plan reflecting those changes; and provide
guidance to the city and development interests for brownfield
redevelopment planning and implementation.
Challenge(s): Developing a plan that aspires to a higher
degree of design and functionality than is required by the
zoning code, and making recommendations for code
amendments that reach those goals but are also considered
feasible by the real estate development community.
Assets/Opportunities: A thriving downtown and robust
demand for commercial, office, and residential real estate
despite the slow economy.
Catalyst for Change: The PSC and the visuals in the RCD
plan captured the attention of public decision makers, the
public, and development community, and translated into
support and action.
Transferrable Element: The stakeholder engagement
process fostered collaboration between local government
departments, and coalesced multiple priorities into a single
integrated vision.
Continuing Success: Iowa City is amending its zoning code,
working with property owners, and formally adopting the RCD
sub-area plan.
Benefit to Residents: RCD residents will have
unprecedented access to the river, transportation options,
urban vitality, and access to downtown. Roads will be safer,
environmental quality improved, and threat of future flooding
mitigated.
Aerial view of downtown Iowa City
(with Riverfront Crossings District
outlined in purple)
Local Contact: Bob Miklo, Senior Planner, City of Iowa City,
(319) 356-5240, bob-miklo@iowa-city.org
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Pilot Purpose/Goal
Iowa City wants to diversify the housing options, increase park space, improve the transportation system, promote
bicycle and pedestrian safety, achieve quality design, and improve environmental performance in the RCD.
Assistance provided through the Partnership helped the city and residents articulate these goals through a
collaborative process, and create a vision with supporting recommendations that could align city zoning and
infrastructure investments in support of these desired outcomes. The resulting RCD sub-area plan, zoning and
design recommendations, and brownfields guidance are already being used to that end.
PILOT ACTIVITIES
As one of many steps taken to revitalize the RCD, Iowa City seized the opportunity to receive Partnership
technical assistance to conduct a three-day design workshop, evaluate the city's zoning code, make
recommendations for amendments, and provide guidance related to potential brownfields issues. EPA assistance
resulted in the RCD sub-area plan, with zoning and design guideline recommendations and a project summary
report including brownfields guidance. Generating these involved extensive collaboration amongst local project
partners, federal partners, and the consulting team including review of background documents, conference calls,
e-mail communication, a file sharing website SharePoint, and three site visits. These visits served to develop the
project scope, conduct the workshop, and publicly present the draft RCD sub-area plan.
Multiple departments within Iowa City, Johnson County Council of Governments, Johnson County, University of
Iowa, EPA, FTA and HUD were involved in a the three-day workshop. Facilitated by the consulting team, the
workshop focused on critical elements within the district including the automobile, pedestrian, and bicycle
transportation network; building densities, urban design, green infrastructure, park space, creek restoration, and
flood mitigation. Special attention was paid to the existing zoning code and development resulting from it, taking
the opportunity to define the difference between actual results and the city's desire for higher quality
development. After three days, the consulting team generated a draft RCD sub-area plan that showed graphically
the city's goals for the district, while accounting for market feasibility, regulatory requirements, and agency
limitations. It articulates a pedestrian friendly mixed use urban community conducive to active recreation, bicycle
transportation, green streets, and multi-modal
transportation. It incorporates green infrastructure
and sustainable building practices (e.g., rain gardens
that handle stormwater rather than sending it to the
sewer system). It consists of building types,
densities, open space design, an enhanced surface
transportation system, and resilient urban waterways
designed with the capacity to accommodate flooding
(e.g., changing one way streets to two way, and
replacing development with park space and
constructed wetlands in areas within the 100-year
flood plain). In support of this vision, assistance
included evaluating the city's zoning code and its
capacity for the type of development articulated in
the plan.
Aerial drawing of the Riverfront Crossings District
as envisioned in the sub-area plan
Measurable Results and Outcomes
The primary outcome from the Pilot is Iowa City's forthcoming adoption of the RCD sub-area plan and zoning
code amendments, which will result in improved surface transportation system, pedestrian and bicycle safety,
increased housing choice, and commercial economic development opportunity. This also allows for the
application of green infrastructure, additional park space and Iowa River access, and extension of the city's trail
system. These outcomes are extending beyond the RCD as the city is working on applying the zoning code and
design guidelines in other districts citywide.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
An enhanced level of collaboration between local and federal agencies is taking the project an additional step
towards implementation. For example, letters of support written by FTA, FFiWA and HUD provide linkages
between the city's goals and available resources for transit improvements and housing development assistance.
Iowa City's goals for light rail and high speed commuter rail investments in the RCD were major considerations
from the very onset of the project. Two light rail station areas, included in the sub area plan, establish the district's
transit-oriented character. They are designed and located in a way that is complementary to automobile, bicycle,
and pedestrian traffic. These station areas will not only provide sustainable transportation options to access the
RCD and downtown Iowa City but also build economic value in surrounding properties that attracts private
investment.
Another significant project outcome is the increased public involvement resulting from public presentation of the
plan. Over 150 community members attended the final public forum where the RCD sub-area plan and
accompanying recommendations were presented, and 36 people provided detailed feedback on questionnaires
made available to them. A key feature of the project that can transfer to others is using an iterative process in the
design workshop/charrette. Conducting the design workshop over the course of three days allowed for thoughtful
contribution from workshop participants with opportunities to review the results and provide additional
contributions afterward. This allowed for participants to confirm that their input was accurately recorded, and
provided for a very detailed and high quality draft plan that was later finalized.
Additional impacts include:
• Local and national development interests met with the consulting team and city, communicating their
interest in investment in the district.
• Local congressional representatives and city leaders voiced their renewed commitment to prioritizing the
RCD as an important investment.
• Substantial coverage by local newspaper and televised press helped raise the district's profile with
businesses, citizens, and graduate students in urban planning at the University of Iowa.
• Upcoming investment in decommissioning the wastewater treatment plant can be scoped strategically in a
way that works toward achieving the future goals for constructed wetland and park space where it
currently sits.
• State of Iowa Department of Natural Resources financing was identified as applicable for brownfields
assessment and remediation.
KEY PARTNER
KEY PARTNERS AND CONTRIBUTIONS
Engagement with local and federal partners included extensive
conference calls, electronic communication, and site visits. Their
collaboration, leadership, and contributions were invaluable in
defining issues, finding solutions, and aligning the goals of the
RCD with available resources.
Led by the city's Department of Planning, key partner
collaboration at the local level included the Department of Public
Works, Department of Parks and Recreation, and the Community
Development Office. Other local government and public partners
included the Johnson County Council of Governments, Johnson
County, and the University of Iowa.
EPA Region 7 and Headquarters staff provided leadership and guidance throughout the project, coordinating
involvement from FHWA, FTA and HUD. The State of Iowa Department of Natural Resources was consulted
The City of Iowa City Planning Department:
The planning department served as the main
point of contact and coordinated all interagency
and local intergovernmental collaboration on the
project. It will also be the main driver of city
policy and practice needed to realize the vision
for the RCD.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
regarding its resources and availability for use within the RCD to address brownfields related issues at the request
of the city.
Federal partners played an important role in informing ways in which the content of the plan speaks to the goals
and requirements of financial resources within their agencies. Their experience working on similar issues in other
communities helped guide the direction of recommendations and resources. At the conclusion of the Pilot, FTA,
FFiWA and HUD submitted letters to EPA Region 7 and Iowa City stating what resources might be available for
project implementation. Providing such guidance and documented support builds confidence in Iowa City's
application of resources within the RCD.
LESSONS LEARNED
Throughout the Pilot, PSC partners identified challenges and opportunities related to collaboration,
communication, and resources common to other revitalization efforts. The following are lessons learned from the
Pilot as well as those related to the larger revitalization of which it was a part.
• Compatibility between the plan and public agency resource goals and requirements increases the plan's
feasibility of implementation. Having participation from HUD, DOT and EPA early and throughout the
process helped ensure that the RCD sub-area plan components speak to the objectives of HUD for
housing needs, DOT for transportation needs, and EPA and the Iowa Department of Natural Resources
for brownfields related needs. This strategy will help maximize the chances of local revitalization efforts
to secure federal and state financial resources.
• Public/Private Partnerships hold promise to be the vehicle for financial feasibility: Iowa City does not
plan to apply local public financial resources to acquire, reposition, and transfer property within the
district for the purpose of realizing the RCD plan, leaving the private development market the main
stakeholder responsible for development. This underscores the importance of federal resources used for
getting properties ready for private development. Applying those resources through partnerships between
local, state, and federal agencies with the private development market can bridge gaps.
• Focused workshops with multiple city agency stakeholders resulted in effective plans that incorporate
the needs, and account for the limitations, of each local agency. An example is when generating the
design and function of the proposed park and constructed wetland, EPA's technical assistance team
considered the Parks and Recreation Department's limited maintenance budget. This resulted in a design
that allowed for multiple uses but represented little increased burden on their budget.
• Combining inter-related goals of an improved transportation system, smart growth oriented housing, and
improved environmental quality is a priority for the citizens and institutions in Iowa City. By developing
the plan through a multi-stakeholder workshop and actively engaging the public, the plan was able to gain
support from a wide audience, effectively
avoiding obstacles for the plan to be adopted
by the city and supported by the development
community.
• Breaking down the goals of each partner
agency using visual media is important when
communicating with the public. By having a
plan with detailed graphics and images to
relate to, the public was able to break down
the message behind the Partnership and the
city's goals for the RCD into common sense
terms and ideas, allowing for more informed
public support.
Public presentation of the Riverfront Crossings District
sub-area plan
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
• The Partnership and EPA technical assistance team spent considerable time scoping the project needs in
advance in order to avoid dramatic changes in direction while the project was underway. Having well-
articulated goals was essential in accomplishing the project in an efficient manner.
• Developing a project team that had a strong set of technical skills as well as a strong understanding of
local cultural and political dynamics proved helpful to producing a plan that reflected local priorities,
identity, and feasibility.
• Relationships between local government and private property owners are long term, personal, and extend
beyond the duration of a technical assistance project. Strong participation, commitment, and leadership
are essential to ensure all partners remain engaged actively and consistently in the project and the project
is successfully implemented.
• The type and intensity of public involvement that is appropriate for any city or town is unique to that
particular place. While not dictated by public agencies alone, local dynamics like these should be
respected when providing assistance. Teams providing this assistance should rely upon local stakeholders
to determine what is and is not effective and/or appropriate.
POST-PILOT IMPLEMENTATION
Iowa City has long hoped that the RCD could accommodate strong market demand for additional housing choice
and commercial opportunity within the city and act as a natural extension of downtown. The extensive flooding in
2008 provided the impetus to move development out of the 100-year flood plain and also triggered financial
resources from FEMA to move the wastewater treatment plant, scheduled for 2013.
The city recognizes that private development interests will provide the investment to drive changes in the district;
and to that end, are engaging local and national development interests in discussions about how partnerships can
be formed and what additional support is needed from federal and state partners. This includes ongoing
collaboration with RCD property owners, some of whom will receive assistance from the city to relocate their
light industrial businesses to more appropriate areas.
In the near term, the City Council will be adopting the RCD sub-area plan and moving forward with zoning code
changes, which could include a form-based code thought necessary for the type and quality of development
featured the plan. In addition, the city is currently conducting a city-wide evaluation of its zoning code and is
working toward city-wide application of code similar to that recommended through the Pilot for the RCD.
Strong market demand, actively engaged public and private partners, public support, and dedicated leadership are
all in place for the realization of a new Riverfront Crossings District.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
La Alma/South Lincoln Park—Denver, CO
"The charrettes allowed us
to have all the key
stakeholders in one room,
actively brainstorm ideas,
implement change almost
immediately, and create a
model for other sites. "
- Kimball Crangle, DHA
BACKGROUND
The South Lincoln
Redevelopment
Project (South
Lincoln), adjacent
to the 10th and
Osage Light Rail
Station in Denver,
Colorado, focuses
on the
redevelopment of
South Lincoln
Homes, a 270-unit
public housing site on 15.1 acres. The housing
development is owned and managed by the Denver
Housing Authority (DHA) in the La Alma/Lincoln
Park neighborhood.
In 2007, EPA awarded a $200,000 Brownfields
Cleanup grant to the city to remediate 10th and Osage,
a 2.6-acre site adjacent to the light rail station and part
of the South Lincoln project. Community groups were
consulted in the application process and meetings were
convened to obtain public input. The site, which is part
of Phase I of the South Lincoln Redevelopment Master
Plan, was cleaned to unrestricted residential use
standards in the fall of 2008 under Colorado's
Voluntary Cleanup Program. DHA successfully
applied for and received HUD funding for Phase I
construction in 2010.
South Lincoln Homes is distressed due to high
concentrations of poverty and crime, underutilized
parcels, a nearby railyard, and limited transportation
connections; however, the broader South Lincoln
Park/La Alma community is characterized by a
dynamic, mixed-use neighborhood and changing
demographics. It has a variety of housing types,
diversity of land uses, historic resources, proximity to
an economically vibrant downtown, a relatively new
transit station, a strong regional job base, and is close
to the newly revived Santa Fe Arts District. There are
parks and a broad range of cultural and public
facilities.
Using integrated design, which is a collaborative
building design method, and a construction process
that promotes economic, environmental, and social
vitality, DHA is creating an energized TOD
community: a mixed use, compact, and walkable
Planning and implementing the revitalization of an aging
public housing development into a vibrant and sustainable
mixed-use, mixed-income TOD.
Lead Local Agency: Denver Housing Authority (DMA)
Pilot Goal: Conduct three charrettes on specific sustainability
issues (energy, transportation, stormwater/green
infrastructure design), and enhance design and build-out of
the redevelopment project that includes brownfield properties.
Challenge(s): Identifying and getting the right people (e.g.,
those who could affect change) to the charrettes, and
identifying ways to overcome existing local policy barriers
(e.g., city does not allow development in right-of-ways for
strategies such as stormwater management).
Assets/Opportunities: Timing of the project was optimal due
to extensive community outreach and planning already
underway. It can capitalize on existing funding and energy
being put into redevelopment efforts. A health impact
assessment had been completed. The City and County of
Denver purchased and cleaned up an adjacent brownfield.
Catalyst for Change: DMA, as project champion, encouraged
bold, green concepts to be integrated into the project design.
Transferrable Element(s): Assessing energy efficiency and
stormwater/green infrastructure at a district-wide scale.
Conducting energy and carbon dioxide emission modeling
using resources from federal partner—the National
Renewable Energy Laboratory. Establishing partners to
support the design of multiple TOD sites in Denver.
Continuing Success: Energy goals for the area are set, and
solutions for stormwater and transit are materializing.
Partnerships established through the charrette process are
being cultivated, and project build-out is underway.
Benefit to Residents: Phased redevelopment keeps existing
residents in the neighborhood and preserves social
connections. Project adds affordable workforce housing and
commercial space for neighborhood-oriented businesses.
Project Websites:
www.denverhousinq.orq/development/SouthLincoln/Paqes/def
ault.asox:
vrqsustainabilitv.centraldesktoD.com/denverscDcharrettesexte
rnal/doc/9722904/w-DenverSCPCharrettesHome
Local Contact: Kimball Crangle, DMA, Project Manager,
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
community centered around the 10th and Osage Light Rail
Station that puts pedestrians and bicycles first. This is a
community where people choose to live and experience
environmental sustainability, cultural diversity, proximity to
downtown, and a spectrum of housing options.
At South Lincoln Homes, DHA organized numerous
community meetings, surveys, and work sessions with
residents and neighbors to collect valuable feedback and input
for project decisions prior to the PSC Brownfield Pilot. For
example, DHA conducted a Health Impact Assessment (HIA)
in 2009 to identify potential health impacts and solutions, and
applied the Healthy Development Measurement Tool to build
on the HIA. The HIA revealed issues such as the importance of
keeping existing residents in place during construction, which led to a phased redevelopment approach
Aerial view of the South Lincoln
Redevelopment Master Plan
Although there are some concerns about human health impacts from nearby construction activities, a phased
approach will make it easier to manage change and minimize negative impacts on neighborhood residents. By
keeping existing residents in their neighborhood while redevelopment takes place, social connections that
residents have with each other and the broader community will be preserved. Ultimately, South Lincoln Homes
will replace all existing affordable housing while providing new affordable workforce housing and new market
rate housing options. In addition, the new neighborhood will include community-serving facility spaces that
provide affordable commercial spaces for neighborhood non-profits and burgeoning microenterprises, giving
neighborhood-based services and local retail a chance to thrive.
Pilot Purpose/Goal
Through informal collaboration, EPA and DHA identified opportunities to build and strengthen relationships and
enhance green concepts in the project's design. With support from HUD and DOT through the PSC Brownfield
Pilot, EPA and DHA hosted three charrettes focusing on key sustainability issues—energy, transportation, and
stormwater and green infrastructure design—to enhance the project's design and build-out. These charrettes also
allowed stakeholders to define project goals, brainstorm strategies, target funding opportunities and partnerships,
and identify barriers and next steps for strategy implementation and modification. For more information on the
history of the South Lincoln project and Pilot effort, see the Denver PSC Pilot Fact Sheet.
PILOT ACTIVITIES
EPA and DHA determined the topics for the charrettes based on sustainability themes identified in the project's
Master Plan. For example, DHA wanted to maximize energy efficiency and investigate the feasibility of a creating
a net zero, district-wide energy solution, which
became the focus of the Energy Charrette. Frequent
flooding at the 10th and Osage Light Rail Station and
water quality issues from stormwater runoff prompted
the Stormwater/Green Infrastructure Design Charrette, DHA is phasing the development of the South Lincoln
while the need to expand accessibility and connectivity project. The RFPs that DHA is issuing to design and
to neighborhood resources and amenities provided the construction teams for development of Phases III and IV
DHA PUSHES THE ENERGY EFFICIENCY
ENVELOPE WITH CARBON INTENSITY GOAL
motivation for the Transportation Charrette.
The EPA technical assistance team helped plan and
facilitate each charrette to ensure it was highly
interactive and educational. Stakeholders from local,
state, and federal government agencies, the La
Alma/Lincoln Park community, non-profit
organizations, and private entities participated in the
charrettes. Each charrette was split into two daily four-
set an absolute carbon intensity goal of eight Ibs.
C02/ft2/year for conditioned space. This may be the first
time a carbon intensity goal has been specified for a major
construction project. Setting this standard is a more
aggressive way to establish energy efficiency goals, going
beyond even Leadership in Energy and Environmental
Design (LEED) requirements—a nationally accepted
benchmark for high performance sustainable buildings.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
hour sessions and focused on a single theme. Prior to the charrettes, research and analyses were conducted to
facilitate discussions and progress (see the materials for each charrette, including agendas, presentations, and
summary notes). The EPA technical assistance team developed a total of four reports—one for each charrette—to
summarize the process and results, and a lessons learned report featuring insight into opportunities and barriers.
Each report also included recommendations on how to implement the ideas generated during the charrettes (see
final reports). Some of these ideas—such as the creation of a "convening" body that enables communication and
collaboration on regional stormwater projects—are already being acted upon (see discussion of the Stormwater
Charrette consortium following Measureable Results and Outcomes).
Measurable Results and Outcomes
One of DHA's main goals for the multi-phase, affordable housing TOD project is to be as energy efficient as
possible and reduce the project's carbon footprint. To this end, the Energy Charrette featured discussions on
energy goals for the overall site and for each phase of the project. These discussions continued after the Energy
Charrette and resulted in DHA adding language to its Request for Proposals (RFP) to ensure energy
enhancements in each development phase. The project's energy goals have also been aided by the National
Renewable Energy Laboratory (NREL), which provided extensive pre- and post-charrette energy modeling for a
district-wide energy solution. A transferable element of this Pilot was NREL's modeling of carbon dioxide
emissions. Energy modeling for projects is common, but modeling carbon dioxide emissions at a district-wide
scale is unique.
As a result of the Stormwater/Green Infrastructure Design Charrette, participants determined that a regional
approach would be more effective for addressing stormwater issues (e.g., water quality and flooding) than the
traditional site-by-site approach. An unlikely consortium of EPA, Regional Transportation District (RTD), City
and County of Denver, a local university, and DHA initiated discussions on regional stormwater issues at the
charrette that continue even to this day.
Lastly, the Transportation Charrette helped participants (in particular, DHA) evolve their thinking about
transportation strategies to design a transportation system that puts pedestrians first, rather the automobile—in the
hopes of creating an area where owning a car may not even be necessary. Overall, discussions from the three
charrettes spurred ongoing conversations about ways to help this project and influence other projects as well—by
promoting innovative thinking, and building networks and partnerships for future work.
KEY PARTNERS (PARTNERSHIP COORDINATION AND ENGAGEMENT)
The charrettes involved a myriad of stakeholders from
federal, state, and local governments to land use
planning and design experts (e.g., architects, engineers,
building energy consultants) and academia to local
residents and community members. DHA, with its
extensive green building development experience,
remains the driving force and champion of this project.
DHA conveyed the goals of the project and strongly
advocated to push the green and sustainable design
envelope during the charrette process. Local design
professionals and EPA's technical assistance team lent
their vast knowledge and expertise to specific technical
topics such as energy efficiency measures and low
impact development strategies. City staff (e.g., Denver
Community Planning and Development, Development
Services, Public Works, Parks and Recreation)
explained city policies and addressed implementation and funding issues at the local level. RTD staff participated
actively in the charrettes and offered ideas, opportunities, and challenges regarding the light rail station.
Participant reports back to the group during
Energy Charrette.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
EPA, HUD and DOT participated in multiple planning group meetings to identify key participants for each
charrette, shape the agendas, and provide input on presentation content. These agencies also participated in the
charrettes, answering questions about their funding and regulatory processes. After the charrettes were completed,
the agencies provided input on the summary reports. Discussions from the charrettes resulted in the identification
of strategic partnerships to help move the project forward in each of the sustainability topic areas. To learn more
about the strategic partners and their roles, see the final reports.
LESSONS LEARNED
The three South Lincoln sustainability charrettes provided opportunities to engage the community and key
stakeholders. This process explored opportunities and barriers to key strategies, the impact of city policies and
regulations, and means to implementation. The following are overall lessons learned from the three individual
charrettes. Additional lessons learned from each charrette, as well as lessons learned from the charrette process,
can be found in the South Lincoln Redevelopment Lessons Learned Report on EPA's website.
• Use charrettes to build relationships and explore innovative ideas. The PSC Brownfield Pilot shows that
the use of charrettes to gather innovative design ideas, promote communication and build support among
stakeholders, identify technical solutions and barriers, and develop a plan for implementation is an
effective use of time and resources. The charrettes helped build new relationships that are critical for the
successful implementation and coordination of sustainable design concepts. This kind of relationship
building is something that rarely happens through technical analysis and paper reports. Charrettes are
important tools to build and maintain momentum around innovative and forward thinking ideas,
technologies, programs, and initiatives.
• Build upon existing plans. Use existing plans and design ideas to establish the context and a clear
starting point for new ideas and discussions. A thorough review of existing plans can help push a project
beyond its already identified baseline and prevent teams from rehashing old conversations. For the PSC
Brownfield Pilot, the EPA technical assistance team used the existing Master Plan and La Alma/Lincoln
Park Neighborhood Plan as a starting point from which existing design ideas could be further developed
and new ideas generated.
• Resident and stakeholder buy-in is critical. Resident and stakeholder buy-in is important for the
successful implementation of many sustainability strategies and initiatives. Efforts that encourage resident
engagement, education, and feedback will likely be more successful. At South Lincoln Homes, DHA
organized numerous community meetings, surveys, and work sessions with residents and neighbors to
collect valuable feedback and input for project decisions prior to the PSC Brownfield Pilot. Additional
ideas that emerged during the charrettes for resident engagement included a green jobs program, green
store/resource room, and green team for training and ongoing operations/maintenance. Although the
charrettes were "technical" in content, DHA strongly represented the resident perspective.
• Think beyond the property line, invite neighbors to increase collaboration. The PSC Brownfield Pilot
charrettes convened major neighborhood partners (the regional transportation authority, neighboring
university campus, etc.) to collaborate with the project team and key stakeholders. The key partners were
identified during the planning of the charrettes and planning group members reached out to partner
contacts. This is particularly important because the implementation of neighborhood scale solutions such
as stormwater management and district energy systems will impact areas beyond the South Lincoln
Homes project boundary, making buy-in from neighborhood partners critical.
• A central repository for project, documents, ideas, and feedback can promote effective implementation.
Large-scale development projects take years to design and construct. A long timeframe can make it easy
for project teams to forget past ideas and recommendations. Formal master plan documents can capture a
snapshot of high-level goals and efforts, but there is also value in hosting an ongoing repository and
forum for project documents, ideas, and feedback. Such a repository can act as a "real-time" resource for
project updates, lessons learned, case studies, implementation strategies, ongoing feedback, and funding
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
resources for the project. The repository and forum can engage viewers by being interactive and easily
accessible, and supported through a dedicated funding source.
• Pilot projects can create precedence for innovative technologies. Pilot projects enable local agencies to
test innovative strategies and technologies that are not approved through standard policies and
regulations. This creates precedence that can be referenced by other future teams. These pilot projects
provide important information regarding design considerations, construction costs, and operational
realities. Future projects that explore strategies not readily adopted by city guidelines will benefit from
these pilot projects.
• Establish clear metrics and definition of success (or at least as clear as possible). A measureable
definition of success can help define progress for a TOD, yet there is currently no single metric that
informs this evaluation. Using guides such as Leadership in Energy and Environmental Design for
Neighborhood Development (LEED-ND) credits, Walk Score, or the Sustainable Sites Initiative to
measure sustainable elements such as pedestrian and bicycle connectivity or water quality and quantity
improvements will help provide more concrete benchmarks. Targets that include prescriptive and
performance measures will likely be more effective for defining success. For the South Lincoln project,
high-level goals of net zero energy use, no impact of stormwater runoff to neighboring land owners, and
safe and accessible walking, biking, driving, and public transportation options for residents helped define
success.
• Discounted energy bills do not promote resident energy savings. Many affordable housing residents do
not directly pay their energy bills and/or have a cap to their monthly energy costs, regardless of how
much energy they use. This structure limits resident knowledge of energy consumption and does not
allow for incentives to reduce their energy usage. Projects working under a similar structure, particularly
those funded by the federal government, need to explore opportunities for residents to reduce their energy
usage in order to maximize the sustainability of these programs.
POST-PILOT IMPLEMENTATION
After three years of planning, construction for the first phase of the South Lincoln project—a 100-unit LEED
Platinum building for senior housing—was completed in early 2012 and is fully occupied as of June 2012 (click
here to see the construction process). DHA received $10 million in HUD American Recovery and Reinvestment
Act (ARRA) Competitive Energy Modernization Grant funding in 2010 to offset the $20.4 million in build-out
costs. In May 2011, DHA was one of only eight housing authorities to receive $22 million in additional HUD
Home Ownership and Opportunity for People Everywhere (HOPE) VI Revitalization Program funding for Phase
II of the South Lincoln project. The purpose of this HUD program is to transform severely distressed public
housing developments into mixed-income communities.
Phase II of the project has completed the design phase and under construction as of June 2012. DHA's current
design and the RFPs that are being prepared for Phases III and IV include the absolute carbon intensity goal.
DHA is also working closely with the city to overcome potential policy barriers regarding stormwater and
transportation issues. Conversations are being held with the city about policy to enhance transit and stormwater
management. Because DHA is an experienced developer in addition to being a semi-governmental organization, it
has been given pilot status with the city to try several innovative stormwater management techniques (e.g., planter
boxes in the street right-of-way and the potential use of permeable pavers).
The seven-phase, $250 million South Lincoln redevelopment project is expected to be completed in 2018.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Westside Affordable Housing TOD—National City, CA
"The Pilot provided access
to national best practices
and guidance, helping
National City move forward
with our efforts in the West
side."
—Pat Beard,
Redevelopment Manager
BACKGROUND
The Westside
Infill Transit-
Oriented
Development
Project
(Westside TOD)
is a $69 million
infill project in
National City,
California; the
project will
consist of 201 affordable housing units on
approximately 14 acres immediately adjacent to the
24th Street Trolley Station (a light rail station serving
metropolitan San Diego). The city-owned site was
used formerly as the city public works maintenance
area and by a charter bus company and found to be
contaminated with hazardous materials, as identified
by an EPA Brownfields Assessment grant and two
Targeted Site Investigations.
The Westside TOD is located in the Westside
neighborhood, a primarily low-income, minority,
urban neighborhood, wholly contained within the
incorporated limits of National City. National City has
a population of approximately 61,000 and adjoins the
City of San Diego to the south. Over the past 50 years,
the Westside neighborhood has evolved from a
primarily residential neighborhood to include a
significant number of industrial uses, mainly auto
body-related, in and around homes and Kimball
Elementary School. The Westside TOD will mark one
of the largest and most significant increases in
residential use in the neighborhood.
The Westside TOD is the direct result of seven years
of community involvement by residents of the
Westside neighborhood and is intended to be the
catalyst for overall neighborhood change through the
Westside Specific Plan (the city's plan for the area). In
2004, National City held a series of community
workshops in which hundreds of residents, property
owners, and business owners discussed priorities for
reinventing the neighborhood. Of top importance was
the elimination of toxic hazards believed to be the
cause of high asthma rates. Second was the
community's desire to reclaim the neighborhood for
residential uses, especially affordable housing for
Transformation of a brownfield into an affordable housing,
TOD as a catalyst for neighborhood change.
Lead Local Agency: City of National City Redevelopment
Division
Pilot Goal: To build on city and community redevelopment
efforts by making the TOD project and neighborhood more
sustainable in several distinct areas: green remediation, open
space reuse, and habitat restoration. To develop a property
ranking approach, and to relocate and green a public works
facility.
Challenge(s): Changes in project scope required additional
time and discussions to agree on a path forward pushing back
project completion. Developer concerns regarding EPA
involvement and the lack of direct communication with the
developer.
Assets/Opportunities: Layering of HUD, DOT, and EPA
funds and their involvement in the project prior to Pilot
activities. The city and community's extensive and ongoing
involvement in the Westside neighborhood.
Catalyst for Change: Proactive City Council and city
redevelopment staff promoting the development of tools to
address non-conforming uses and securing funds to ensure
the TOD moves forward.
Transferrable Element: Although National City had already
initiated a process to address non-conforming property uses
in Westside prior to Pilot activities, the development of a
ranking process and tool as part of the PSC technical
assistance is helping to further this effort by ensuring the city's
approach treats all non-conforming uses consistently
according to shared community values.
Continuing Success: The City Council approved the criteria
and factors for the property ranking process followed by
substantial community outreach. Conversations on open
space reuse options continue. Remediation planning and
predevelopment activities are underway.
Benefit to Residents: Project will add substantial affordable
housing and much needed open space. Relocation of non-
conforming uses will increase residents' quality of life.
Local Contact: Brad Raulston, Executive Director, City of
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
families. Community engagement continued with a community design workshop in fall 2008 and subsequent
ongoing community meetings hosted by the development team to facilitate open communication about the project.
The Environmental Health Coalition (EHC), a 28-year old environmental and social justice organization
headquartered in National City, identified several San Diego area neighborhoods, including the Westside, as
"cumulatively impacted neighborhoods in crisis." EHC received an EPA CARE Level II grant in 2009 to reduce
exposure to diesel emissions and air pollution from industries in residential areas. According to a survey
conducted by EHC, approximately 45% of Westside residents are under 24 years old and 14% of the children and
9% of the adults living within this area have been diagnosed with asthma, which is a higher rate than national,
California, and San Diego County averages. EHC research also shows that the asthma hospitalization rate in the
city is 24% higher than the average for San Diego County.
Pilot Purpose/Goal
With approximately 389 polluters per square mile, the Westside neighborhood has started to address the
numerous heavy industrial uses, mostly auto-related, that exist throughout the neighborhood. City and community
redevelopment efforts already in progress include creating auto-related business design guidelines, revising
zoning, and addressing auto-related non-conforming uses. The purpose of the EPA technical assistance through
the PSC is to build on these redevelopment efforts. Technical assistance support focused on providing
recommendations and tools for redeveloping and revitalizing the Westside TOD project site and surrounding
neighborhood. For more information on the history of the Westside TOD and Pilot effort, see the National City
PSC Pilot Fact Sheet.
CONCEPTUAL
PARADISE CREEK HOUSING STUDY
NATIONAL CITY. CALIFORNIA
IHE RELATED COMPANIES Of CAUFORWA HEAP
Conceptual plan for the Westside TOD project
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
PILOT ACTIVITIES
Considering that the planning for the Westside TOD was underway, EPA and National City's Redevelopment
Division worked closely to identify areas where EPA technical assistance could provide the biggest impact
without duplicating ongoing efforts. As a result, the city requested EPA support to make the project and
neighborhood more sustainable in several distinct areas: green remediation techniques, open space reuse, and
habitat restoration; a property ranking tool; and relocation of a public works facility.
First, the EPA technical assistance team provided recommendations on green remediation techniques for areas
impacted by the hazardous materials, open space reuse options for a former gas station site, and habitat restoration
for Paradise Creek. As part of this effort and after consulting with the affordable housing developer, the technical
assistance team held a workshop in November 2010 with neighborhood and community residents to discuss the
benefits of sustainably cleaning up and reusing brownfields. During the workshop, participants engaged in an
interactive exercise to obtain input on the preferred open space reuse for the former gas station site—a portion of
the larger 14-acre project site.
Second, to address the toxic hazards believed to be contributing to the high asthma rates in the neighborhood, the
technical assistance team developed a property ranking process and tool. The intent of the ranking process and
tool (comprised of an Excel spreadsheet) is to assist the city in relocating and/or closing highly polluting
businesses that pose a health risk and are not compatible with the Westside Specific Plan and current zoning. The
city compares these businesses by ranking them against each other using information such as the company's
compliance with permits, proximity to schools and homes, the investment in the business; and determines which
businesses the city will speak to first about relocation from the neighborhood. National City tested the ranking
process to ensure that the resulting property rankings were consistent with the city's expectations. In addition, the
technical assistance team incorporated input on the ranking process from the business community after consulting
with business stakeholders in a January 2011 meeting hosted by the Chamber of Commerce.
Finally, with redevelopment planning for the Westside TOD project site underway, National City is exploring
options for relocating the existing public works facility. Seeing this as an opportunity to build on other city efforts
to green its operations, National City requested EPA assistance to research and identify green practices associated
with public works yard facilities and operations, and the benefits of those green practices. The technical assistance
team developed a memorandum that highlighted green construction and management practices for public works
yards or similar municipal facilities, and identified financial and technical resources that might be available to
National City for integrating green practices into its facility.
To learn more, see the EPA technical assistance reports and tools developed for the National City PSC
Brownfield Pilot.
Measurable Results and Outcomes
A significant result of the National City PSC Brownfield
Pilot is the ongoing work by the city and interest from the
community regarding the relocation of non-conforming
uses. After Pilot efforts concluded, the City Council ratified
the criteria and factors for the property ranking process and
tool in May 2011. The city held a large town hall meeting
during the summer, attended primarily by business owners,
to discuss the relocation of non-conforming uses and the
property ranking process, and address misconceptions.
Meeting participants voiced concerns about the relocation
of non-conforming uses in general (not the ranking process
and tool). The ranking process and tool developed through
the Pilot increased community interest (from both those in
favor and those opposed) and because of the meeting, there
is a better understanding regarding relocation of non- Open space site in proposed Westside TOD
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
conforming uses and the purpose of the property ranking process. A unique, transferable quality of this Pilot was
the development of the property ranking process and tool. Although National City had already initiated a process
to address non-conforming property uses in the Westside neighborhood prior to Pilot activities, the ranking
process and tool is helping to further this effort by ensuring the city's approach treats all non-conforming uses
objectively and uniformly according to shared community values. For more information on the recommendations
for ranking properties, to see the tool, and view a webinar on National City's plan, see EPA's website.
National City is continuing a dialogue on how to implement the recommendations for the open space reuse
options on the former gas station. During the November 2010 community workshop, participants indicated their
top preferences as an active recreation space (e.g., tot lot, swings) and a community garden. The preference for a
community garden was unexpected, but many residents were enthusiastic about this opportunity because they
were familiar with farming in their country of origin.
In addition, as the city moves forward with relocating its public works facility, it is using the memorandum
developed as part of EPA's technical assistance as a guide to green their operations and secure resources. The city
is sharing the memorandum with other municipalities looking to green their public works facilities.
KEY PARTNERS (PARTNERSHIP COORDINATION AND ENGAGEMENT)
Prior to Pilot activities, HUD, DOT and EPA were already involved or viewed as a key partner in the affordable
housing TOD project. An EPA Brownfields Assessment grant provided funding to assess the 14-acre property and
helped the city, along with the California Department of Toxic Substances Control (DTSC), determine a path
forward for cleaning up the site. DOT is providing support to the project through the San Diego Association of
Governments (SANDAG) by granting the city $730,000 in Safe Routes to School funding for the adjacent
Kimball Elementary School; work conducted under the funding includes the installation of sidewalks, curb ramps,
bulb-outs, crosswalks, and signing and striping enhancements. These enhancements will make it easier for
children, and everyone in the neighborhood, to safely walk and bicycle, hopefully paving the way for more to do
so. Finally, the city operates HOME and Community Development Block Grant (CDBG) programs funded by
HUD. The intent is to use HUD funding to assist with site preparation and infrastructure, and to meet the
affordability price points required for the apartments.
The layering and timing of these federal investments are important to bringing the project to fruition. The
investments work together and complement each other to fill critical gaps in city and developer resources. In
addition, the award of the Westside TOD as a PSC Pilot increased federal agency interest in and understanding of
the project.
Key partners during the Pilot technical assistance activities included many local stakeholders and the developer.
The National City Redevelopment Division is the local project champion, working to facilitate and collaborate
across all project interests (federal, state, and regional governments and local departments; and local community,
business, and non-profit interests). To help inform the planning and content for the community workshop, and
ultimately, the recommendations report, the EPA technical assistance team met and received input from the
affordable housing developer, elected city officials and city departments (Planning and Building and City
Attorney), non-profit groups and civic organizations (i.e., EHC, Old Town Neighborhood Council, Kimball
Elementary School, St. Anthony's Parish, Paradise Creek Educational Park, Inc.) and the business community.
Community member participation in the community workshop was integral to the city's efforts to begin to build
consensus, as well as serve as the starting point for future plans for open space. Also, the technical assistance
team worked closely with the City Attorney and Redevelopment Division to develop and test the property ranking
process and tool. Subsequent input from local business owners helped fine-tune the ranking process and tool.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
LESSONS LEARNED
As a result of the Pilot, several lessons learned that focused primarily on partner communication and
collaboration, community and stakeholder engagement, and dealing with the complexities of an evolving project
emerged.
Be flexible when dealing with complex
projects as needs and priorities may change.
At the beginning of EPA's technical
assistance, the type of support requested was
general. It took time and several iterations to
scope the technical assistance. As the Pilot
progressed, the needed support changed into
several discreet products that were not all
intersecting but important to meeting the needs
of the project and the overall neighborhood. In
the end, the city received products that were
very useful to the affordable housing TOD
project, the broader Westside neighborhood,
and the city in general.
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Rendering of a potential community garden
Communicate with all project partners early
and often. It is helpful to have a kick-off
meeting as early as possible in the process to capitalize on project excitement and to help clarify roles and
expectations, especially those related to federal involvement. In addition, when there are many entities
involved in a project, it is important to have regular conference calls with all project partners to ensure
that the technical assistance is useful and relevant to the current stage of the project. Because some project
partners acted as a go-between for others, secondhand messages sometimes became distorted or unclear.
It is better to have project partners communicate directly with each other to avoid miscommunication.
Early site visits and stakeholder meetings produce richer and more effective products. It is important
for the technical assistance team to conduct site visits and schedule stakeholder meetings at the beginning
of the Pilot to get input from all stakeholders. By engaging the stakeholders early on in the process, they
became willing participants in the community workshop and provided valuable feedback to the city that
was captured in the final recommendations report. In contrast, although convening the business
community during the development of the property ranking process and tool was an important
component, earlier consultation may have provided better insight on concerns and further alleviated
concerns on the implementation of the ranking process.
Layering of federal resources is an important aspect of affordable housing TOD projects. The
dedication of federal staff provides tremendous value and is critical for local success with several federal
resources at play. In National City, DOT and HUD investment in the project was already completed or
underway by the time Pilot activities started. However, it is still very useful to find the right contacts and
have them present at kick-off meetings and closing meetings to lend support and identify additional
opportunities. For example, when HUD staff attended a kick-off meeting, additional programs that could
be used to support the project were discovered.
Special care is needed to fit technical assistance into a project that is already underway. Bringing in
new ideas through technical assistance when stakeholders might already have ideas fixed in their minds
can be a challenge. How do you come to the table on projects that are in different phases of development?
How do you negotiate added value when a project is already set in place? The stage of the project should
be a primary factor when determining the usefulness or effectiveness of technical assistance. For the
National City Pilot, the affordable housing developer was concerned about EPA's involvement and the
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
purpose of the technical assistance. Through many phone calls and an in-person meeting with the
technical assistance team, the developer's concerns were addressed and parties were able to agree on how
the Partnership could best support the project.
• Novel ideas and concepts like property ranking require more extensive community outreach. In general,
developing a process such as the property ranking approach requires the early and continuing engagement
of those trying to affect change as well as those affected by the change in order for it to be successful. It is
important for the entity implementing the approach or process to have a good understanding of the
stakeholders, their roles, and their positions on the issues, as well as a good working relationship. This is
a very important component of successful community engagement. National City had many meetings
including a large town hall meeting on the relocation of non-conforming uses and the property ranking
approach. Everyone may not be happy about the ranking approach, but because of these outreach efforts,
they understand it. It was difficult in the short term, since the concept of property ranking is novel, but
through many community meetings and extensive outreach to the business community the educational
gap is closing.
• Community workshops can change perceptions. City leaders were under the impression that a
community garden may not be the optimal reuse of the open space portion of the project. The community
workshop not only presented the various reuse options available to community members, it changed the
city's perception on community wants and needs since residents were in fact interested in having a
community garden and ranked it high as a preference.
POST-PILOT IMPLEMENTATION
In June 2011, the city entered into an agreement with the affordable housing developer, Paradise Creek Housing
Partners. This was the result of a two year negotiation process for this very complicated project. Since entering
into the agreement, the developer has completed geotechnical investigations. Concurrently, the city completed a
draft remediation plan for the project site. The developer via its partner, Community Housing Works, is using
$95,000 in HUD HOME funding for predevelopment activities at the site. Phase I of the redevelopment project is
scheduled for completion in 2014, with full project completion by 2016.
At the adjacent Kimball Elementary School, the $730,000 DOT Safe Routes to School Grant is moving forward.
This project will create raised and lighted crosswalks for students, an expanded and enhanced pick up and drop
off area, and many other safety and aesthetic improvements.
The implementation of the property ranking process, which the City Council approved, is on hold due to the
California Supreme Court's 2011 decision to freeze redevelopment activities in the state. Should redevelopment
activities eventually continue, the city will retain a consultant to update all of the property information in the
ranking tool. The city will then select the top two or three ranked businesses to proceed with relocation. The plan
is to re-rank approximately every two years and to relocate two to three businesses every two years. Concurrently,
a code compliance effort is taking place and the city is working with a prospective developer to consolidate
several city-owned parcels that may be suitable as a relocation area for non-conforming uses from the Westside
neighborhood.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Cross-Pilot Theme: Integrating Sustainabilit
Sustainability involves the integration and balance of social, economic, and environmental values. Social values
include common goals and individual needs of the community, such as health, nutrition, housing, education, and
recreation; and cultural norms, values, and beliefs. Economic values include the financial feasibility of achieving
environmental quality and social equity, including jobs, a viable tax base, and community enhancements.
Environmental values include quality of the air, soil, water, and habitat. While sustainability is a broad concept
and achieving improvements in all of these areas simultaneously is an ambitious goal, the co-benefits of each
action accelerate progress toward measurable change. Neighborhood and area-wide projects can incorporate
enhanced sustainability concepts by defining which elements of sustainability are most important, desirable, and
achievable for each individual project. "Sustainability" should be uniquely defined for each community and
therefore may reflect different priorities from project to
project.
EPA, HUD, and DOT are exploring different ways of
enhancing neighborhood-based sustainability through the PSC
and by incorporating the Livability Principles into the
agencies' work. EPA is testing the efficacy of providing
technical assistance and research focused on more sustainable
development techniques for brownfields revitalization projects.
These techniques include a spectrum of sustainable
development and smart growth tools that advance
sustainability in brownfields revitalization projects, as well as
area-wide planning projects and these Pilots.
SUSTAINABILITY RESOURCES
Partnership for Sustainable Communities' Tools
and Key Resources
EPA's Sustainability Web site (see Smart Growth
and Sustainable Communities section or EPA's
Smart Growth Web site)
HUD's Sustainable Communities Resource Center
DOT'S Livabilitv Web site
Similar to EPA, HUD and DOT also offer programs that
promote sustainability by coordinating federal housing and
transportation investments with each other and local land use decisions. The goal is to create safe, reliable,
integrated, and accessible transportation networks and affordable housing options that reduce transportation costs,
save energy, and increase housing and employment opportunities. HUD, DOT, and EPA collaborated under the
PSC Brownfield Pilots to address a variety of sustainable development issues, including but not limited to:
contaminated lands, including petroleum brownfields; automobile sector issues (e.g., incompatible land uses, air
quality concerns); transportation connectivity and access; affordable housing; meaningful community
involvement; stormwater quality and quantity issues; open space reuse options; and barriers to increased density.
In terms of sustainability, the Pilots revealed some common lessons. First, the Pilots demonstrated the importance
of early and active community engagement. The community engagement process can be used to define
sustainability for the project, thereby enabling the community choose the level of and type of sustainability it
wants to commit to (e.g., Will sustainability be a primary project goal or something to be integrated where
economically feasible? How will it be integrated?). Well planned community engagement processes also provide
the foundation critical for the community "buy-in" to support the brownfield project and reduce the possibility for
costly resistance later in the process.
Second, the Pilots demonstrated that planning for sustainability early in the process—before or as part of the
critical decision-making process for a property's reuse—allows for more in-depth exploration and refinement of
the sustainability elements to be integrated into the project's design before construction begins. Again, this can
save a significant amount of resources. For example, if this planning and design work was not completed early in
the process in Iowa City, it likely would have been too costly for the city to retrofit transportation and green
infrastructure enhancements into the project's design.
Finally, the Pilots showed us that there remain barriers and challenges to incorporating sustainability into these
types of projects. For example, in Boston, local residents were eager for revitalization but initially resisted ideas
for new, higher density, compact development near the commuter rail stations because the benefits and co-
benefits had not been compiled and shared. Through the PSC, EPA, HUD, and DOT have a role to play in
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
providing information about what sustainability is, the variability associated with how sustainable a project is, and
how to define community preferences for sustainable revitalization projects.
Because the concept of "sustainability" can vary so much from project to project, it is of no surprise that each
Pilot addressed sustainability differently, achieving different outcomes, as described below.
Creating Sustainable Communities through Increased Density and Transit Equity
• Fairmount Line - Boston, Massachusetts: Community-based advocacy from the Fairmount Collaborative,
partner organizations, citizens, and institutions in Southwest Boston resulted in substantial investment
from the City of Boston, Massachusetts Bay Transit Authority, State of Massachusetts, and the FTA. This
investment supported the reopening of closed commuter rail stops and developing new stops within low
income communities of color along the Fairmount Commuter Rail Line. This is an example of public
resources being brought to bear in the name of transit equity using existing infrastructure and social
capital to realize environmental, economic, and social gains. Residents along the commuter rail line will
be able to take a 15-minute train ride to their places of employment downtown rather than a 1.5-hour bus
ride, easing their commuting burden and improving air quality. Development is anticipated in the areas
surrounding the new and reopened station areas, including affordable housing options and increased
transit accessibility. The economic activity generated through this increased density will provide more
local entrepreneurial opportunity and enhanced access to goods and services.
Incorporating Green Concepts into Transit Oriented Development Projects
• La Alma/South Lincoln Park - Denver, Colorado: From the beginning of the South Lincoln
Redevelopment Project, creating a sustainable TOD neighborhood was a primary goal as outlined in the
Master Plan developed in 2009. The Master Plan also identifies sustainability goals as integral to the
project vision. EPA and DF£A used these sustainability goals to identify the charrette topics (i.e., energy,
transportation, stormwater/green infrastructure design) for the PSC Brownfield Pilot. Since sustainability
was already a primary goal, the charrettes were used to further advance sustainable redevelopment
concepts by enhancing design and build-out of the project. For example, the Energy Charrette helped
establish district-wide energy goals, including an aggressive carbon intensity goal that goes beyond LEED
requirements. The Stormwater/ Green Infrastructure Charrette identified innovative low-impact
development techniques to manage stormwater on the project site, including challenges and opportunities
related to city policies. The charrette also broadened the scope from project-specific to regional in scale
since the stormwater issues extend beyond property boundaries. Access to transportation options and
connectivity issues were explored during the Transportation Charrette, which highlighted the need to put
the pedestrian, not the automobile, first.
• Smart Growth District - Indianapolis, Indiana: The SGD revitalization strategy is firmly grounded in the
Livability Principles seeking to link new development with transportation plans, identifying funding to
secure affordable and equitable housing, and providing a foundation to integrate mixed uses that met local
resident needs. Most importantly, the strategy was designed to help strengthen the Indianapolis region by
revitalizing a high-vacancy area less than two miles from downtown while supporting and improving
conditions for existing residents. As local stakeholders implement the strategy, they will seek to test new
zoning codes and green building approaches to ensure new development has a reduced environmental
impact, makes significant investments in green infrastructure, improves pedestrian access, and links
higher density housing development with existing and planned transportation systems.
• Riverfront Crossings District - Iowa City, Iowa: Conceptual land use plans for the Riverfront Crossings
District developed through the Pilot integrated green practices into the infrastructure, transportation
system, structures, and open spaces in support of public goals. Transportation improvement
recommendations include features such as rain gardens, bicycle lanes, and access to future light rail and
high speed rail stops. Public spaces in the concept plan include a large riverfront park with a constructed
wetland that doubles as floodwater retention areas when the river floods. The plan calls for transforming a
local creek from an obstacle over which bridges are built into an amenity around which lifestyles will be
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
built. Land uses in the plan show mixed use structures, increased density of residential and commercial
uses, and a vibrant urban streetscape. Providing these uses within the built environment relieves pressure
for additional development elsewhere. The integration of these concepts and practices uses increased
urbanization to improve environmental and economic health simultaneously. Integrating these concepts
into the plan has proven effective in soliciting interest from the development community, which
recognizes that these features ensure marketability and lifecycle cost savings.
Promoting Sustainability through Green Remediation and Habitat Restoration
• Westside Affordable Housing TOD - National City, California: Recommendations were provided for
building a livable community through sustainable remediation, consensus-driven open space creation, and
habitat restoration. These recommendations provide a guide for selecting options that sustainably address
the site's environmental impacts, but consider and preserve the site's assets (e.g., reuse of existing
infrastructure) and reflect the community's desires (e.g., plans for affordable housing and open space).
Through these recommendations, the city, the Westside TOD project developers, and the community can
come together to create and build a project that enhances the sustainability of both National City and the
Westside neighborhood.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Cross-Pilot Theme: Getting to Implementation
Brownfield revitalization projects typically encompass a large number of activities—from assessment, to cleanup
and reuse planning, to redevelopment. Many revitalization projects require coordinated investments from a
number of private and public sector organizations to successfully achieve revitalization. While the PSC
Brownfield Pilots were being conducted, many public agencies faced shortfalls in general revenue due to a
decrease in development activity and real estate values, which in turn limited the efficacy of traditional public
funding vehicles available to local governments, such as tax increment financing (TIP). During the same time,
private development interests were more conservative in their real estate investment decisions.
In response, communities and developers have been pursuing innovative funding and financing strategies
including public-private partnerships, increased emphasis on government resources to supplement private
investment for development, capitalization through non-traditional financial partners, and strategic project
prioritization and planning.
Figure 3: Example Public-Private Partnership (PPP)
Federal partners
(EPA, HUD, DOT)
Private Developer
Non-profit partner
(such as a CDC)
Typical
Project
Role or
Gap Filled
by Partner
Assembles and controls
property through land bank
Guarantees expedited zoning
and permit review processes
Manages brownfields
assessment/ remediation
Manages infrastructure
improvements
Manages EPA, DOT funding
Provides funding to cover or
"seed" the cost of brownfield
assessment and/or remediation
Provides funding for housing-
related planning or development
Provides funding for infrastructure
improvements
Provides technical assistance for
redevelopment planning
Receives or purchases
property from city
Engages in development
planning
Secures private financing for
redevelopment
Implements redevelopment
project
Manages HUD
funding
Leads community
engagement
processes
Benefit to Reduced risk associated with
Project project timelines improves
prospects for private financing
Ensures redevelopment is
consistent with city plans
Provides infrastructure
improvements
Fills critical funding gaps
Staff serve as technical resource
to community
Provides clarity on environmental
and liability concerns (EPA)
Attracts attention to leverage
private investment
Provides capital for
redevelopment
Markets redeveloped property
to tenants
Assumes ownership of
property
Ensures project goals
reflect community
needs and
preferences
Enables development
of affordable housing
Benefit of Private partners with flexibility
PPP to to move fast, leverage private
Partner financing, and realize
development
Federal partners offset project
costs
Non-profit partners assist with
community engagement
Experienced partners develop
and manage real estate
Funding leveraged from other
partners ensures federal
resources is used as "seed"
money
Local capacity is developed to
address similar future sites
Improved environmental quality,
sustainability, liability
Value of the property and
infrastructure improvements
received from the city helps
secure financing
Community engagement
process ensures local support
for redevelopment
Additional resources
to secure affordable or
market rate housing
Faster redevelopment
than could be
achieved working
independently
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Public-Private Partnerships: Partnerships between the public and private sectors involve leveraging the authority,
technical capacity, and financial resources afforded public agencies, along with the development capacity of
private and non-profit interests. Combined, they bridge financial, technical, and logistical gaps to achieve
mutually beneficial development serving the public and private market. Figure 3 provides an example of how a
public-private partnership can help partners bridge gaps in each other's capacity to conduct a redevelopment
project.
Using Public Funding Sources: Public funding from all levels
of government is being combined with private and non-profit GETTING TO IMPLEMENT A TION
investments to bridge gaps created by retreating private RESOURCES
investment, depleted tax revenue, and general market
uncertainty. The alignment of complementary financial Partnership for Sustainable Communities -
resources from EPA, HUD, and DOT is playing an Partnership Grants, Assistance & Programs
increasingly important role in site acquisition, preparation, EPA Brownfields and Land Revitalization -
infrastructure improvements, planning, and services that Federal Programs Guide
maximize public investment. Because these sources of capital
come with their own set of timelines, eligible uses, and targets, Funders Network for Smart Growth and Livable
it has become increasingly important that revitalization
planning takes these dynamics into account. Project Environmental Finance Centers
stakeholders need to ensure that the planning activities speak
directly to the goals and requirements of their anticipated Cataloq of Federal Fundinq Sources for
funding sources. This puts them in better positions to pursue Watershed Protection
critical revitalization implementation resources as planning
concludes.
Using Non-traditional Funding Sources: Communities are finding success in working with non-traditional
financial partners. One strategy that has grown in popularity in recent years is the use of Community
Development Finance Institutions (CDFIs). CDFIs are locally-based institutions funded by the U.S. Department
of the Treasury that provide loans, investments, and technical and financial services to underserved communities.
CDFIs have emerged as a promising brownfields revitalization tool because of their explicit purpose of providing
financing vehicles where traditional institutions are increasingly hesitant to extend themselves due to the current
economic climate. Another option is Economic Development Administration funding for regional economic
development clusters and innovation which can be used to support revitalization projects.
Strategic Project Prioritization and Planning: Communities that are the most effective in securing nontraditional
funding and partnerships are those that first robustly plan their projects. Doing so may mean partnering with other
organizations and developing plans that also reflect partner goals. It may also mean planning for specific project
elements or types of reuse that are eligible for available funding sources and identifying what publically funded
investments are required to attract private development. The timelines associated with public funding resources
(e.g., grants, loans, or technical assistance) vary significantly and local governments are not eligible to use all
sources. Project plans that anticipate the timing of funding availability, establish partnerships with the
organization receiving the funding, and identify alternative resources as back-up in case one or more funding
sources fall through are beneficial. Also, while funding for brownfields revitalization planning is needed and
available from an increasing variety of sources, substantially more funding is needed for implementation of those
plans. Where possible, revitalization plans should include a funding strategy to make implementation a reality.
Project plans also need to be informed by an understanding of local market dynamics (e.g., small or large, weak or
strong, active or stagnant) to realistically anticipate the potential absorption of new development. Each of the PSC
Brownfield Pilots used one or more of the public-private partnership, financial, or project planning arrangements
described above to move their projects closer to implementation.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Public-Private Partnerships
• La Alma/South Lincoln Park - Denver, Colorado: Through the charrette process, it became apparent that
a multi-stakeholder approach would be necessary for project success, especially to plan the project's
stormwater management and district energy systems. Including city agencies (Planning, Public Works,
etc.) early in the process was critical to implementing innovative strategies, especially on city-owned
land. Federal agencies provided the much needed funding (e.g., HUD HOPE VI funding) to move the
project forward. DHA's years of collaboration with the community on the project combined with the new
partnerships established during the charrette process will help the project achieve its goal of a mixed use,
mixed income transit oriented development through public and private investments.
• Smart Growth District - Indianapolis, Indiana: Revitalization planning in the SGD is being led by two
CDCs that have strong ties to private foundations and locally-based developers that have made significant
investments in the area. The CDCs frequently engage in public-private partnerships with these developers
to create higher density affordable housing and enhanced neighborhood amenities. Through the Pilot, the
CDCs enhanced their partnerships with the city and federal government. This improved collaboration
resulted in more coordinated planning, improved access to resources and funding, and the development of
a shared vision for revitalization in the SGD.
• Riverfront Crossings District - Iowa City, Iowa: Reuse planning for the Riverfront Crossings District
recommends substantial improvements to public rights of way and greater density and diversity of uses on
private property. The Riverfront Crossings District is not an urban renewal area and the city does not
currently have plans to acquire properties to facilitate redevelopment. Partnerships between public
agencies at several levels, private developers, and property owners will need to be formed in order for the
plan to leverage private investment along public infrastructure investments.
• Fairmount Line - Boston, Massachusetts: The ongoing partnership between the Fairmount Collaborative,
their member CDCs and the City of Boston has resulted in CDC property ownership to ensure long-term
equitable distribution of community revitalization. Results have included the development of new
commuter rail stations along the Fairmount commuter rail line through the Collaborative's advocacy for
transit equity in Southwest Boston. Public agency response to this advocacy helped direct financial and
political support for development of the station areas; which will in turn foster new private and non-profit
investment in the neighborhoods surrounding the new station areas.
Using Government Resources and Capitalization Through Non-traditional Financial Partners
• La Alma/South Lincoln Park - Denver, Colorado: The Denver PSC Brownfield Pilot provided a real-
world experience of how federal and state funds and resources are distributed down to the local project
level directly, and often indirectly (e.g., through regional planning organizations). HUD, DOT, and EPA
have varying approaches to programs, funding mechanisms, organizational structure, and staffing. In
particular, the Pilot highlighted the different ways in which HUD, DOT, and EPA fund projects. DOT
projects are funded at the Metropolitan Planning Organization (MPO) level. HUD projects are funded at
the city-level, while EPA funding can be more flexible and discretionary. Both HUD and DOT have
various rules and regulations that determine funding; this coupled with different funding cycles poses a
challenge when trying to align federal funding sources for a specific project. Aligning the federal funding
streams to accommodate specific projects precisely when the funding is needed may result in a bigger
impact, which may help projects remain sustainable.
• Fairmount Line - Boston, Massachusetts: Regular communication and collaboration amongst EPA, HUD,
and DOT through scheduled monthly meetings and information sharing through email has greatly enhanced
efforts to implement the Fairmount Greenway Plan, an area-wide enhancement project planned by the
Fairmount Collaborative. In September 2011, the City of Boston and Fairmount Collaborative non-profit
Member Dorchester Bay EDC were jointly awarded a $20.5 million HUD Choice Communities Initiative
award for revitalization of Southwest Boston. Another Collaborative member, Mattapan CDC, partnered
with a CDFI to finance the Morton St. Homes project, whose designs were created through the Pilot.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
• Westside Affordable Housing TOD - National City, California: A private market developer and
affordable housing developer are partnering with the city to provide high quality and mixed income TOD.
The development will use Low Income Housing Tax Credits, private development capital, public
infrastructure investments, and HUD Community Development Block Grant funding.
Strategic Project Prioritization and Planning
• Smart Growth District - Indianapolis, Indiana: Pilot partners participated in a one-day funding charrette
to link funding sources with specific investment needs. To prepare, local stakeholders developed a
detailed list of 30 projects that needed to be completed in the Smart Growth District Phase I
Redevelopment Plan Area. During the charrette, participants: linked specific private, city, state, and
federal funding sources to these projects (e.g., ReBuild Indy program will be targeted for street
improvements near the 16th Street corridor); prioritized the projects; and developed a detailed timeline to
pursue funding. As a result, Pilot partners have a detailed funding plan to support implementation of its
revitalization strategy.
• Riverfront Crossings District- Iowa City, Iowa: When drafting the Riverfront Crossings District sub-area
plan, regular communication with HUD and FTA ensured the plan reflected each agency's priorities and
eligibility requirements. In particular, the plan recommended infrastructure, transportation improvements,
and increased density strategically planned for future pursuit of federal resources for light rail, high speed
rail, and mixed income housing.
• La Alma/South Lincoln Park - Denver, Colorado: As part of the project planning process, Pilot partners
collected a substantial amount of data and developed detailed, multi-layered maps of the project site
before EPA assistance was provided. The maps and underlying data were useful for the core project's
revitalization planning, but also proved useful for supplemental projects such as identifying additional
brownfields near the project area that could be revitalized, potential redevelopment sites located near
transit nodes, and opportunities for enhanced green infrastructure. This data provided a basis for strategic
planning and prioritization, which was critical to developing a viable comprehensive redevelopment and
financing plan, as well as identifying opportunities for revitalization using the core project as a catalyst.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Cross-Pilot Theme: Fostering Equitable Development
The environmental justice movement emerged in the 1980s when minority, low-income, and tribal communities
began to organize in response to disproportionate environmental and health impacts in their neighborhoods. EPA
defines environmental justice as "the fair treatment and meaningful involvement of all people regardless of race,
color, national origin, or income with respect to the development, implementation, and enforcement of
environmental laws, regulations, and policies." Over the years, the concept of environmental justice and "fair
treatment" has expanded to consider not only how burdens are distributed, but also how environmental and health
benefits are shared. Many communities are striving to create equitable development, or development that protects
all residents from environmental hazards and provides access to environmental, health, economic, and social
benefits such as clean air and water, adequate infrastructure, job opportunities, and involvement in decision-
making. The concept of equitable development encompasses both environmental justice and sustainability.
The focus on equitable development in many communities has meant that planning and revitalization efforts have
become increasingly focused on ensuring that new development in underserved neighborhoods provides the
services and amenities needed by long-time residents and business owners. This shift has helped reinforce the idea
that new development should not displace community members, but instead yield benefits that are shared equally
by long-time and new community members.
In the revitalization of underserved neighborhoods, equitable
development approaches can strengthen quality of life, housing
and transportation choice, environmental and health protection,
and educational, cultural, and spiritual opportunities for local
residents. Revitalization can provide increased access to
amenities, benefits, and services that the communities may not
have had for a long time. Often, this requires a substantial
focus on building the capacity of communities to participate in
revitalization decisions, using robust community engagement
strategies, and creating partnerships with a diverse range of
stakeholders.
ENVIRONMENTAL JUSTICE
RESOURCES
EPA's Plan EJ 2014
HUD's Draft 2012-2015 Environmental Justice
Strategy
DOT's Environmental Justice Strategy
EQUITABLE DEVELOPMENT
RESOURCES
Partnership for Sustainable Communities -
Supporting Environmental Justice and Eguitable
Development
EPA's draft report: Creating Equitable, Healthy,
and Sustainable Communities: Strategies for
Advancing Smart Growth, Environmental Justice,
and Equitable Development
Brownfields revitalization—assessing, cleaning up, and
reusing property—is an important tool for addressing
environmental justice concerns and creating equitable
development. Revitalization of a once-blighted property can be
a catalyst for restoring vibrancy to a community that has
experienced economic disinvestment and negative
environmental and health impacts.
Through the PSC, EPA, HUD, and DOT are exploring how to
achieve equitable development by supporting community
efforts to articulate revitalization goals that benefit long-time
residents and new community members and investors associated with new development. Because each
community has its own social characteristics, physical and economic conditions, and environmental history, no
single approach to equitable development will be effective or appropriate in every community. Instead, it is
important to use different tools and approaches to understand the needs of local residents and their desired
outcomes from revitalization.
The Pilots demonstrate different ways communities can foster equitable development. Each Pilot identified
revitalization approaches that minimized displacement by combining meaningful community engagement with
proactive project planning, phased implementation, and linking public resources. The Pilots yielded the following
lessons for other communities embarking on similar revitalization efforts that seek to foster equitable
development.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
• Involve local residents in the planning process early and often. This ensures new development meets
community needs and expectations.
• Make community-based decisions for each development project both holistically and at specific decision
points throughout the process. This will help ensure that neighborhood gentrification does not occur as a
result of isolated incremental decisions. Stakeholders saw how sustainable revitalization and development
can result in improved quality of life and public health to offset long-term impacts from brownfields and
EJ issues, and that through partnering with each other and the community, these improvements can
expand.
• Incorporate affordable housing into project plans. This provides housing for current residents of the
community and also attracts new residents who might not otherwise be able to afford to live in a
revitalized community. EPA determined that some communities need technical tools to reduce EJ issues
and impacts from contamination to help plan and implement a neighborhood's transformation.
Specific examples of how each Pilot addressed environmental justice issues are described below.
Responding to Residents' Needs
• Smart Growth District - Indianapolis, Indiana: To respond to local resident concerns stemming from a
recent nearby revitalization project that displaced many long-time residents, the Smart Growth District
revitalization plan directly addresses displacement issues by focusing on infill development to revitalize
vacant properties and retain the historic neighborhood fabric. The community development corporations
leading implementation of the strategy will ensure that all future development meets the needs of the
residents including affordable housing, improved street infrastructure, neighborhood serving retail, and
improved connections to transit.
• La Alma/South Lincoln Park - Denver, Colorado: Long-time residents of the project area have raised
concerns about displacement and have been actively engaged in the revitalization planning process from
the beginning. To ensure residents can remain in the neighborhood, the Denver Housing Authority is
using a phased approach to the project's redevelopment to avoid wholesale displacement of local
residents during construction.
Strategically Relocating Polluting Facilities Can Help Improve Public Health
• Westside Affordable Housing TOD - National City, California: Over the past 40 years, the integration of
numerous, mostly auto-related industrial facilities into a residential neighborhood seriously deteriorated
surrounding air quality. This is now being reversed by an "amortization schedule" adopted by City
Council to relocate these facilities to more appropriate locations or, if necessary, close them permanently.
The technical assistance team developed a property ranking approach and tool, consistent with the city's
Land Use Code, to determine which nonconforming facilities should be relocated or closed. This strategy,
combined with outreach efforts to educate businesses on best management practices and design guidelines
to promote environmental performance, will assist the city in its efforts to address the toxic hazards
believed to be contributing to the high asthma rates in the neighborhood.
Promoting Transit Equity and Transit Oriented Development
• Fairmount Line - Boston, Massachusetts: The residents of this project area have borne the environmental
burdens of having an active train line run through their neighborhood, but have received almost no
benefits associated with this transit option due to extremely limited service. In the revitalization of this
corridor, the Fairmount Collaborative and its member CDCs recognize the need to maintain affordable
housing around new commuter rail stops to ensure equitable access to enhanced transit options. The
Dorchester Bay Economic Development Corporation and the City of Boston were awarded a HUD
Choice Communities grant to provide affordable housing along the Fairmount corridor.
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Partnership for Sustainable Communities Brownfield Pilots: Lessons Learned Report June 2012
Ensuring Adequate Affordable Housing
• La Alma/South Lincoln Park - Denver, Colorado: The South Lincoln Redevelopment Project is focused
on providing 270 affordable housing units in a mixed-income, mixed-use, transit oriented development to
promote equity, cultural diversity, and social vitality. Former public housing units will be replaced with
new affordable workforce housing and market rate housing options to minimize gentrification. In
addition, neighborhood-based services and local retail will be encouraged through DHA's goals to
provide community-serving facility spaces and affordable commercial spaces for neighborhood non-
profits and microenterprises.
• Riverfront Crossings District - Iowa City, Iowa: The city recognizes the opportunity for the Riverfront
Crossings District to offer affordable housing with equitable access to downtown, public spaces, and
multi-modal transportation where no housing currently exists. By strengthening the design requirements
for this district, they ensure that any affordable housing developed in the RCD will be of market rate
quality and dispel negative stereotypes related to affordable housing.
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