SEPA
United States
Environmental Protection
Agency
Success
Story
PMC Groundwater Superfund Site
PMC Groundwater Superfund Site
Petoskey, Michigan
October 2010
FINAL
U.S. EPA Region 5

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Table of Contents
Executive Summary	3
Introduction	4
Site Description and History	5
Planning for Redevelopment	6
History of Remediation	6
Remedial Considerations	8
Agency Collaboration and Support	9
History of Redevelopment	10
Overcoming Challenges	13
Components of Success	14
Conclusion	14
Developed for EPA Region 5 by E2 Inc.

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PMC Groundwater Superfund Site
Executive Summary
The Petoskey Manufacturing Company (PMC) in Petoskey, Michigan was located in an industrial
area on the shores of Lake Michigan's Little Traverse Bay. PMC improperly disposed of solvents
used in die casting at the plant, contaminating ground water and the town's municipal well. This
case study highlights how the U.S. Environmental Protection Agency (EPA), the Michigan
Department of Natural Resources and the Environment (MDNRE), the City of Petoskey and local
developers collaborated on the cleanup and redevelopment of the PMC Site and surrounding
waterfront area. This collaboration and persistence, combined with the city's visionary planning
efforts and creative financing strategies, transformed the former contaminated industrial zone
into a vital recreational waterfront.
EPA and MDNRE made it a priority to work with the City of Petoskey to design cleanup activities
to be compatible with the future vision for the community while still achieving the objectives of
the cleanup. While discussions continue regarding potential improvement to the PMC Site, the
cleanup and redevelopment of the Site helped to revitalize the community in many ways. The
number of visitors that come to enjoy Petoskey's lakefront scenery and recreational amenities
has significantly increased in recent years, and the taxable value of the PMC Site has multiplied
15 times from when the PMC facility was in operation in the 1960s.
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PMC Groundwater
Superfund Site
Petoskey
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PMC Groundwater Superfund Site
Introduction
Located on the shores of Lake Michigan's Little Traverse Bay, the City of Petoskey, Michigan is a vibrant
community and popular resort surrounded by natural beauty and year-round recreation. The
community is recognized nationally as a "best small town" and a "best place to retire". The town has a
well-established full-time population of about 6,000, but draws thousands of visitors every year to enjoy
the lakefront scenery, festivals, recreation and the century-old buildings downtown. The city's
waterfront area has undergone a major transformation over the last twenty years from an industrial
corridor to a welcoming public space, which has helped to boost the number of visitors that come to
enjoy Petoskey. Part of this transformation was the cleanup and redevelopment of the PMC
Groundwater Superfund Site (PMC Site or Site).
Lake Michigan
Bayfront Park Wesf
Irigalls Well
^and Pumphouse
* Festival Place^^
(Former Petrolane Sitejj
Little Traverse Wheel
Sunset Shores
Condominiums "
Water Street
West Lake Street
Former Petoskey	i" "¦ Approximate Site
m j Redevelopment	BfSfB Manufacturing Company i . J Boundary
Condominium
Rede
Figure 1: Site vicinity map
This case study explores the partnerships and key factors that led to the cleanup and reuse of the PMC
Site. In particular, the case study discusses the evolution of remediation and redevelopment efforts, and
ongoing reuse activities at the Site. The report outlines lessons learned identified by the local, state and
federal representatives involved in the project. While discussion continues regarding potential remedial
improvements to the Site, the reuse of the PMC Site has resulted in regional economic revitalization due
in part to collaboration on cleanup and redevelopment activities.
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PMC Groundwater Superfund Site
Site Description
The PMC Site is located within the City of Petoskey, Emmet County, Michigan. The Site consists of
several units, including the former Petoskey Manufacturing Company (PMC) property, the City of
Petoskey's former Ingalls Municipal Well and the portion of the city's Bayfront Park West that surrounds
a contaminated ground water plume. The Site boundary shown in Figure 1 is approximate and not
meant to indicate the extent of contaminated ground water.
The former PMC facility was located at 200 West Lake Street in what is currently a residential area of the
City of Petoskey. The former PMC facility is bordered to the north by the Sunset Shores condominium
complex, to the east and south by several residences and to the west by a 100-foot wide access
easement to Bayfront Park West and the Fraternal Order of Eagles (FOE) parking lot. Little Traverse Bay
of Lake Michigan is approximately 500 feet north of the PMC property. Bear Creek, which drains into
Little Traverse Bay, is located approximately 500 feet east of the PMC property.
Site History
The land between the former PMC facility and Little Traverse Bay was once occupied by a large
industrial rail yard, which included oil, coal and propane storage facilities, and a rail turntable. A
manufactured gas plant was located to the northeast in an area formerly known as the Petrolane Site.
This area is now a public park called Festival Place. Figure 2 shows an aerial photo of the site thought to
have been taken in the 1940s. Land use at the site today is entirely residential and recreational
Petrolane Site
current site of Festival Place
PMC Facility
current site of
Water Street condominiums
Rail Yard
Current site of Sunset Shores
condominiums and Bayfront Park
Figure 2: Aerial photo thought to be from the 1940s showing the former PMC building and the Petrolane manufactured gas
plant. A rail yard and coal storage sit on the current location of the Sunset Shores condominiums and Bayfront Park West.
Today, Water Street and the new bike path run along the easement of the former main rail line. (Source: City of Petoskey)
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PMC Groundwater Superfund Site
Planning for Redevelopment
A proposal from a private developer
provided the catalyst to initiate the
first cleanup and redevelopment
activities in the area. The developer
saw residential potential in the
former propane storage property,
but was not willing to invest so long
as the Petrolane manufactured gas
plant remained in place across
Wachtel Ave. The city submitted an
offer to the Petrolane Company to
move their facility. The offer
consisted of a new 4-acre site south
of town, construction of a new rail
siting and the $280,000 reserved in
the city's Beach Fund. As soon as the city demonstrated their commitment to restoring the Petrolane
property, the developer moved forward with construction of the Sunset Shores condominiums. The
Michigan Department of Natural Resources and the Environment (MDNRE) funded three phases of
remediation on the Petrolane Site to enable the area to be used
for public recreation.
The successful cleanup and redevelopment of the Petrolane Site
opened the city's eyes to the possibilities of redeveloping other
areas of the waterfront. City staff and officials realized that
redevelopment of the waterfront for recreational and residential
use could encourage more private investment and raise real
estate values. In 1981, the city established an official Waterfront
Redevelopment Plan to guide the redevelopment efforts in the
waterfront district.
History of Remediation
Contamination at the PMC Site was first discovered in
September 1981 when drinking water samples from the Ingalls
Municipal Well revealed high levels of volatile organic
compounds (VOCs) and inorganic contaminants. The City of
Petoskey requested assistance from MDNRE in identifying
responsible parties and in finding the source of the
contamination. MDNRE conducted soil sampling at the PMC
facility in 1982 and found high levels of several chemical
The former Petrolane Site is now a public park called Festival Place.
Petoskey Manufacturing
Company
PMC was established in 1946 as
a small fabricating and painting
operation. The company
performed a die casting of zinc
parts for the automotive industry
from the late 1960's up to fall
2000 when the business closed.
The primary product line
included door handles, hood
ornaments and emblems.
Molten zinc was cast into parts
and then trimmed, polished,
buffed and painted as
necessary. Trichloroethylene
(TCE) was use as a solvent to
clean paint masks. Xylene was
used as paint thinner and
solvent.
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PMC Groundwater Superfund Site
contaminants. Small amounts of TCE breakdown
products were also found in monitoring wells near
the former PMC property.
MDNRE determined that in its operations, PMC had
disposed of spent solvents directly to the ground
surface surrounding the plant. For this reason, EPA
and MDNRE identified PMC as the source of the
city's ground water contamination.
In 1982, under the direction of the MDNRE, PMC
performed a Time Critical Removal of contaminated
soils from a portion of the Site. EPA evaluated the
PMC Site and added it to the National Priorities List
(NPL) on September 8, 1983. Following the removal
of the contaminated soil, TCE concentrations in the
Ingalls Well decreased significantly from 50 part per
billion (ppb) to approximately 4.0 ppb. TCE
concentrations remained relatively stable in the 1 to
3 ppb range until monitoring ended.
In 1987, PMC signed an Administrative Order by
Consent (AOC) with EPA agreeing to conduct a full
Remedial Investigation and Feasibility Study (RI/FS).
After several delays due to PMC's financial
limitations, EPA relieved PMC of conducting the
RI/FS work in 1990 and entered into a State
Cooperative Agreement with the MDNRE to
perform the Rl with funding provided by EPA.
Concurrently with the state-led Rl, EPA began a
Focused FS to examine the impact of site-related
contamination on the Ingalls Well. In 1995, EPA
signed an Interim Record of Decision (ROD) for providing on-line treatment of ground water at the
Ingalls Well. The State of Michigan requested that construction of a new drinking water source be
considered instead of the selected remedy due to the likelihood that water from the Ingalls Well would
need additional treatment. EPA agreed to forgo the selected remedy and contribute the capital costs to
the city to partially defray the cost of replacing the Ingalls Well. The State of Michigan contributed
$500,000 in grants for the development of the alternative water supply. In late 1995, the City of
Petoskey completed the construction of its replacement municipal wells and use of the Ingalls Well
ceased.
Remedial Timeline
1981: PMC identified as a PRP by EPA and
MDNRE
1982: Time Critical Removal of contaminated soil
from the west side of the PMC building
1983: Site listed on EPA's National Priorities List
1995: First Record of Decision (ROD) signed for
providing on-line treatment of ground water
1996: City completed construction of
replacement municipal water source and use of
Ingalls Well ceased
1998: MDNRE completed the Remedial
Investigation; EPA completed the Feasibility Study
1998: Second ROD signed for the soil and final
ground water remedies
1999: PMC filed for bankruptcy and closed
1999: On-site construction starts
2000: Preliminary Close-out Report signed
2005: Restrictive Covenant for former PMC
property approved by MDNRE and filed with
Emmet County
2006: Ingalls Well demolished by City
2007: Replacement monitoring wells installed
and EPA declares PMC Groundwater as Site Wide
Ready for Anticipated Use (SWRAU)
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PMC Groundwater Superfund Site
In September 1998, EPA issued another ROD to select the remedies for soil and ground water at the Site.
The remedies included:
•	Excavation and off-site disposal of the contaminated soil that exceed MDNRE's residential direct
contact criteria and Ground Water/Surface Water Interface (GSI) protection criteria for
protection of surface water used as a drinking water source.
•	The installation and operation of a Soil Vapor Extraction (SVE) system to remove volatile organic
compounds (VOCs) from subsurface soils.
•	Monitored natural attenuation (MNA) of the ground water, which included the development of
a Ground Water Monitoring Plan (GWMP), followed by installation of a monitoring weii
network, an initial three year period of quarterly monitoring, and then ten years of long-term
monitoring.
•	Establishment and maintenance of Institutional Controls (ICs) to prohibit future use of the
ground water on the former PMC Property. ICs consist of a Restrictive Covenant prohibiting
contact with soils or use of ground water on the former PMC property and a municipal
ordinance prohibiting the construction of wells or use of ground water in the area that exceeds
ground water cleanup standards.
•	Development of a plan for a contingency
remedy, and development of a monitoring
well abandonment plan.
With the known PMC soils having been addressed
by SVE and excavation, EPA expected the residual
contaminated ground water to naturally attenuate
A Preliminary Close-Out report was signed on
February 18, 2000 indicating the remedial
construction activities were complete at the Site.
With construction complete and ICs in place, EPA
declared the PMC Groundwater Site as Site Wide
Ready for Anticipated Reuse (SWRAU) on
December 17, 2007.
Remedial Considerations
While the remedy currently remains protective of human health and the environment, TCE
concentrations continue to exceed MCLs and there is no clear indication that contaminant
concentrations in the ground water plume are declining. MDNRE and EPA continue to discuss additional
remedial implementation, including revisions to the monitoring plan and monitoring well network,
potential contingency remedies and ICs, investigation into remaining contamination, including zinc, and
long-term maintenance options.
A flush mounted monitoring well located in Bayfront Park
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PMC Groundwater Superfund Site
Agency Collaboration and Support
MDNRE and EPA made innovative efforts to best utilize funds and speed up the cleanup (both during
Remedial Design and during field work). For example, EPA and MDNRE agreed that preparation of a
Quality Assurance Project Plan (QAPP) and the implementation of verification sampling would not be
necessary if areas that exceeded direct contact criteria were over-excavated. By drawing the excavation
boundaries with sufficient conservatism, the agencies could feel assured that these areas had been
sufficiently remediated.
MDNRE and EPA also worked together to modify cleanup standards to allow for the greatest flexibility in
future reuse of the Site. Considerations of future use are an integral part of EPA's Superfund program to
ensure that contamination is not a barrier to reuse of a property. Despite the fact the PMC property was
zoned for industrial reuse, EPA agreed to MDNRE's request to modify cleanup standards from industrial
to residential reuse criteria since the Site was surrounded by existing residences and the city anticipated
future residential redevelopment of the property.
Finally, EPA consented with MNDRE's recommendation to purchase and develop an alternative
municipal water supply for the City of Petoskey.
Developing an Alternative Water Supply
Contamination was discovered in the Ingalls Well in 1981. After 10 to 12 years of searching for an
alternative water source, the City was about to go forward with the development of a surface water
plant when another option emerged. The developer of a proposed golf resort and conference
center needed water supply sooner than the expected surface water treatment plant and invested
in a search for ground water closer to the proposed development site. To everyone's surprise, he
found ground water of adequate quality and quantity.
The City worked out an arrangement to purchase the two wells that had been installed from the
Bay Harbor Company for $2,885,000. The City updated the wells to municipal standards,
developed a third well, upgraded the distribution system, installed 5 miles of pipeline, created a
wet well that accepted the water from Bay Harbor, and then renovated the pumping system to
redistribute water throughout the City. The State of Michigan contributed $500,000 in grants
towards the construction of the alternative water supply. The project, which took a total of $7
million, was completed in 1996. The alternative plan, the construction of a lake water treatment
plant, would have cost closer to $15 million with higher annual expenses for operation and
maintenance.
George Korthauer, the City Manager at the time, remembers that "the Bay Harbor option emerged
at a crucial time for the City. It was no secret that the City needed water, and Bay Harbor had the
City in the perfect spot to sell water to the City, but we were able to get it worked out to the City's
advantage".
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PMC Groundwater Superfund Site
Brownfield Redevelopment
Authorities
In the State of Michigan, a local governing
body may establish one or more
Brownfield Redevelopment Authorities
and create and implement a brownfield
plan that indentifies the properties from
which taxes will be captured and where
eligible activities will be conducted. BRAs
may only exercise powers on eligible
property within the jurisdiction and may
only capture taxes from approved
brownfield sites that the municipality
authorizes. States may require state
approval of the brownfield plan and
approved brownfield projects are also
eligible for other incentive programs.
(Source: Citizens Research Council of Michigan,
Survey of Economic Development Programs in
Michigan, June 2007)
History of Redevelopment
In 1984, the city came up with a method to finance
their redevelopment plans for the waterfront district.
The city established a tax increment finance authority
(UFA) and a tax increment financing (TIF) district to
capture of property tax levies above and beyond the
year in which the TIFA was established. The city used
the initial revenue to recover costs from the cleanup
and redevelopment of the former Petrolane Site,
beyond the remediation funded by MDNRE in the early
1990s. The subsequent increment generated by the
Sunset Shores condominiums, which was significant,
was used to fund further waterfront improvements.
In 2000, the state awarded the City of Petoskey a Clean
Michigan Initiative Waterfront Redevelopment Grant.
This provided approximately $500,000 for demolition
and $100,000 for acquisition of the PMC Site. The grant
posed one particular challenge; it was specifically
designed for industrial or commercial brownfield
redevelopment, which no longer matched the city's
zoning or desires for the property. After the city successfully made the case that resort tourism was the
most valuable industry in the area, the state agreed to a predominantly residential brownfield
redevelopment plan with a small commercial component. The city rezoned the property as a Planned
Unit Development (PUD) in order to incorporate the small commercial component needed to meet the
state's grant program requirement.
After resources available from the state and EPA for cleanup were exhausted, and monitoring wells
were all that remained on the Site, the city formed a local Brownfield Redevelopment Authority (BRA) to
The former PMC facility (Source: City of Petoskey)
The Water Street condominiums with improved road
(Wachtel Ave) and integrated utilities
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PMC Groundwater Superfund Site
help develop a plan for the Site's redevelopment. A BRA allows a local government to use TIF revenue
for environmental remediation of brownfield sites, which can provide an added incentive to private
entities for redeveloping a site.
In April 2003, the former PMC facility was sold through Chapter 7 Bankruptcy Trustee to Perazza
Products, LLC, a Michigan developer. In July 2004, the developer demolished the existing building,
including its foundation and removed contaminated soils. The construction of the new residential
condominium buildings, called the Water Street Condominiums, started in September 2004 and
continued until 2008. Ten of the 16 condos were completed before the property went into foreclosure
in the fall of 2009.
Financial assistance was an important driver for the developer. The developer relied on approximately
$150,000 in compensation from the BRA to offset $350,000 in cleanup expenses. The developer also
depended on a Small Business Tax Credit from the Michigan Economic Development Corporation for
construction of the condominiums.
Redevelopment of the Surrounding Waterfront District
During the time the city was searching for another water source, the Water Department purchased the
land west of the Sunset Shore condominiums and east of the Ingalls Well pump house for use as a
reservoir. The city considered development of a water intake from the lake or a water treatment plant
on this property before reaching an agreement to purchase the new wells installed by the Bay Harbor
Company.
The City of Petoskey has invested considerable resources in planning and designing recreational improvements along the
waterfront. The City's latest effort involves recreational improvements along the Bear River which extends south from
Bayfront Park. The Bear River Valley is characterized by natural forests and open space areas that are rich in plant species and
local history.
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PMC Groundwater Superfund Site
In 2005, the City of Petoskey began a two-year
project to rebuild and re-landscape streets,
utilities and additional waterfront parkland. The
work included street rerouting and repaying,
and relocation of electric and cable utilities
underground. Since the lakefront property west
of Sunset Shores was no longer needed for a
reservoir or water treatment plant, the city
converted the property to what is now the
popular Bayfrorvt Park West. The park area was
significantly re-graded and a new storm
drainage and underground sprinkler system was
installed.
Bayfront Park
The city's waterfront redevelopment activities
also resulted in the conversion of a public street
to a bicycle and pedestrian right of way. The
bicycle / pedestrian path created a connector
between two portions of the Little Traverse
Wheelway, a 26-mile trail that stretches along
Little Traverse Bay from Harbor Springs through
Petoskey and down to Charlevoix. The trail is
part of the North County Trail, a National Park
Service designated scenic trail which extends
from Pennsylvania to South Dakota. The
Michigan Department of Transportation (MOOT)
financed the majority of the trail construction in
Petoskey, from Bay Harbor to Bayview, with the
city completing a half-mile segment.
Waterfront Redevelopment History
1981: Waterfront Redevelopment Plan created
1985: Tax Increment Financing District
established
1999: Emmet County Brownfield Redevelopment
Authority (BRA) established
2000: First PMC Brownfield Plan approved; made
site eligible for Tax Increment Financing (TIF)
2000: MDNRE granted the City a $597,500 Clean
Michigan Initiative Waterfront Redevelopment
Grant (WRG) ($497,500 for demolition; $100,000
for property acquisition)
2002: MDNRE agrees to City's request to remove
WRG requirement for a Prospective Purchaser
Agreement (PPA) with EPA
2003: Developer submitted a revised Brownfield
Redevelopment Plan; Developer Agreement
approved by the BRA
2003: Developer requests property rezoningfrom
1-1 Light Industrial to a Planned Unit Development
(PUD); City Council unanimously approves
2003: Developer submits a Baseline
Environmental Assessment and Due Care
Compliance Analysis for the former PMC property
to MDNRE
2004: Developer demolished building, removed
contaminated soils and started construction; City
starts construction of Bayfront Park and
surrounding infrastructure improvements
2007: Construction of 10 of the 16 residential
units and one commercial space complete;
Reconstruction of Bayfront park and city
improvements complete
2010: Developer reimbursed by BRA for eligible
cleanup expense of PMC site
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PMC Groundwater Superfund Site
Although some components were modified, the Waterfront Redevelopment Plan is currently in place as
it was originally intended 25 years ago.
Water Street right-of-way before redevelopment. (Source: City Water Street right-of-way redeveloped as a bicycle /
of Petoskey)	pedestrian path called the Little Traverse Wheelway.
Overcoming Challenges to Redevelopment
The redevelopment of the PMC Site and waterfront district was not without local controversy. The city
had difficulty getting community buy-in and support from older generations who considered the
waterfront district an area that should be redeveloped to support the city's industrial future. The city
was blamed at one point for causing the PMC to go out of business. George Korthauer, the former City
Manager, remembered that the City Council decision to acquire the Petrolane Company Site came down
to a 3 - 2 vote: "If that vote had fallen the other way, the area would not be improved as it is today. The
city having the ability to get that industrial use out of the waterfront is what enabled the area to turn
the corner in terms of redevelopment".
The previous name of the Site caused concern in the community and created a number of public
relations problems for the city. When the Site was placed on the NPL, the site name was changed from
the Petoskey Manufacturing Company Superfund Site to the Petoskey Municipal Well Field. In 2007, EPA
recognized the name unfairly stigmatized the City of Petoskey, which was never a potentially
responsible party, and changed the site name to PMC Groundwater.
The city acknowledges that coordinating infrastructure improvements with the condominium
construction was often a challenge, especially due to frequent turnover of the developer's onsite project
management staff. The city, however, kept constant pressure on the developer to complete the slabs
and foundations so the city could finish construction of public improvements on the Site's perimeter. If
it were not for the city's need to coordinate activities, the Site may not be in the finished state it is
today. While the city anticipates the vacant building pads on the PMC site will remain vacant until
economic conditions improve, the city, state and EPA are assured that the soil caps are in place and the
infrastructure is installed and ready for the economy to rebound.
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PMC Groundwater Superfund Site
Components of Success
Participants involved in the PMC Groundwater
Superfund Site agree that a combination of
factors contributed to the Site's cleanup and
successful redevelopment.
•	The city had a strong vision for residential
and recreational use of the waterfront
district in place, which helped to guide
cleanup standards and reuse activities.
Amy Tweeten, the current City Planner
remarked that, "the city stuck to the Plan,
and despite challenges from potential
funding sources and the volatility of
developer investments in the area, the
city stuck to it and kept chipping away at
it."
•	The city had visionary and persistent leadership from city staff and elected officials. The main
designer of the Waterfront Plan was involved since the inception of the plan, providing
institutional knowledge and continuity throughout the project.
•	The local government put together a variety of funding mechanisms to support redevelopment
of the waterfront district over the years, including the creation of a BRA and TIF, the Small
Business Tax Credits from the Michigan Economic Development Corporation, the Waterfront
Redevelopment Grant from the Clean Michigan Initiative and trail funding from the MOOT
•	The Site is located in an area that is well suited for residential and recreational use, and the
market responded positively to improvements made in the area.
•	EPA and MDNRE selected and implemented a remedy for the Site that would be consistent with
the property's reasonability anticipated future use.
•	The State of Michigan worked extensively with the city and the developer to provide state grant
funding and coordinate redevelopment efforts with remediation efforts.
Conclusion
The redevelopment of the PMC Groundwater Site illustrates how community visioning, dedicated
leadership, state and federal funding opportunities, collaborative partnerships with EPA and MDIMRE,
and flexible long-term planning can result in local economic redevelopment and community
Vacant building pads serve as soil caps, an essential
component of the site remedy
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PMC Groundwater Superfund Site
revitalization. The city recognized that the cleanup represented an opportunity to revitalize the
downtown area in a way that was aligned with their long-term vision for the waterfront district. The city,
in partnership with EPA and MDNRE, has realized their vision for restoring the natural setting along the
lakefront, enhancing outdoor activities and bolstering the recreational culture of the area. Public and
private investment in the area has significantly increased the number of visitors every summer that
come to enjoy Petoskey's lakefront scenery and recreational amenities. Today, the financial rewards of
this investment are great. The taxable value of the PMC Site is now almost $1.5 million, compared to
$97,000 when the PMC facility was in operation.
A visitor walking through Bayfront Park on the Little Traverse Wheelway
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