US Conference of Mayors Brownfields Publications Featuring DubuqueTHE UNITED STATES CONFERENCE OF MAYORS
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* 1620 EYE STREET. NORTHWEST
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ELIZABETH B. K:AUTZ
\la, or of Burns, rile
..Y President.
SNTONIO R. VII LARUGOSA
\ Lnor W In. Angrier
.. and vice Pr..idene
_IICHAEL A. NUTTER
Jac of PhiLdelphia
pill Prnidenn:
!ERRS' E. URRAAtsON
`.L.or of l::we,fle
I'iCH.1RD M DAI.EY
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Y•l\IAS M. NIENINO
Lfx.. of Boston
GUN.0 D L. Hi:SOL!EL1 IC
h \ of Akron
RAbLPH P RILLS. lit
\hail of Chadrston. SC
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I. CHRISTIAN' BULLTAGE
'starer of Oiaabeth
LU IES RRUNARD
Lror of camel. IN
`.IR'HAEL B. COLEAIAN
Aha of Colambus. OH
`.PICK CORNETT
\L•:or of s &lahoma City
rJl. FRANK' IN CO \VNIE
\Ls or of Des Xloine.
BOB FOS I
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.'.‘TRICK HENRY HAYS
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^REND.\ L. LAWRENCE
lacy of Southfield
HOAIAS C. LEPPERT
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ARLENE I. NIUE DER
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^A'ID W. SMITH
;.rvfnar o1 Ne,o14. CA
SCOTT SMITH
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ELUNE N. WALKER
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OALPH BECKER
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JUAN CARIOS BERSfUDFZ
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ROBERT L. BO`X'SER
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DAVID N. CICILLDIE
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:'.ORERT CLUCK
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IDS" COOPER
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RORERT ). DUFFY
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BILL FINCH
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•ENNIFER T. STLITZ
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ALAN C S'AHLFR
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l OCHRAN
October 26, 2010
Dear Mayor,
I'm pleased to release The U.S. Conference of Mayors' two most recent brownfield
publications which are enclosed.
The first report entitled, Recycling America's Land: A National Report on Brownfields
Redevelopment (1993 - 2010) differs from our past studies. This report provides data on
where we are in 2010 as compared to when we started on the issue of brownfields back
in 1993. It demonstrates the tremendous progress that we have made in redeveloping
brownfield properties for the past 17 years including the benefits that have been realized
as it relates to new jobs and new tax revenues. It also demonstrates how we have just
scratched the surface on the potential if we redevelop the estimated 500,000 brownfield
sites that still remain in the United States.
The second report, which is entitled, Brownfields Redevelopment: Reclaiming Land,
Revitalizing Communities — A Compendium of Best Practices, focuses on innovative best
practices that have been successful in redeveloping brownfield properties in the cities of
Asheville, Baltimore, Coralville, Dallas, Dubuque, and Houston. I hope some of these best
practices prove helpful to you as you face your own redevelopment challenges.
Both of these reports can also be downloaded on our website at
www.usmayors.org / brownfields.
I would like to thank all of the Mayors and their staff for their participation in both of
these reports. If you have any questions about the reports, please contact Judy Sheahan
of my staff at 202 - 861 -6775 or at jsheahan@usmayors.org. Thank you again for your
support.
Sincerely,
Tom Cochran
CEO and Executive Director
October 2010, Volume IX
Recycling
America's Land
A National Report on Brownfields Redevelopment (1993 -2010)
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THE UNITED STATES
CONFERENCE OF MAYORS
Elizabeth B. Kautz
Mayor of Burnsville
President
Antonio R. Villaraigosa
Mayor of Los Angeles
First Vice President
Michael A. Nutter
Mayor of Philadelphia
Second Vice President
Ashley Swearengin
Mayor of Fresno
Chair, Environment Committee
J. Christian Bollwage
Mayor of Elizabeth
Co- Chair, Brownfields Task Force
Lois J. Frankel
Mayor of West Palm Beach
Co- Chair, Brownfields Task Force
Tom Cochran
CEO and Executive Director
The United States Conference of Mayors is the official nonpartisan organization of cities with populations of 30,000 or
more through their chief elected official, the Mayor.
Judy Sheahan, Assistant Executive Director
Ted Fischer, Staff Associate
1620 Eye Street, NW, Washington, DC 20006
(202) 293 -7330 • www.usmayors.org
This publication was made possible, in part, with funding from the U. S. Environmental Protection Agency's Office
of Solid Waste and EmergencyResponse. The information contained in this document does not necessarily reflect the
views of the U. S. Environmental Protection Agency. www.epa.gov
FRONT COVER PHOTO: Grand River Center, Dubuque, IA.
Photos throughout this publication were provided by the cities of Baltimore, Coralville, Dallas, Dubuque and Houston.
' Printed on Recycled Paper.
�«/ DO YOUR PART! PLEASE RECYCLE!
Volume 5,. October 2010
Brownfields Redevelopment:
Reclaiming Land, Revitalizing Communities
A Compendium of Best Practices
THE UNITED STATES CONFERENCE OF MAYORS
THE UNITED STATES
CONFERENCE OF MAYORS
Elizabeth B. Kautz
Mayor of Burnsville
President
Antonio R. Villaraigosa
Mayor of Los Angeles
First Vice President
Michael A. Nutter
Mayor of Philadelphia
Second Vice President
Ashley Swearengin
Mayor of Fresno
Chair, Environment Committee
1. Christian Bollwage
Mayor of Elizabeth
Co- Chair, Brownfields Task Force
ois J. Frankel
ayor of West Palm Beach
it Brownfields Task Force
ran
CEO and Executive Director
ed States Conference of Mayors is the official nonpartisan organization of cities with populations of
0,000 or more, represented through their chief elected official, the Mayor.
dy Sheahan, Assistant Executive Director
bi Headley, Editor and Contributing Writer
Contributing Writers: Ted Fischer, Virak Kchao
e United States Conference of Mayors
20 I Street, NW
Washington, DC 20006
(202) 293 -7330
ww w.usmayors.org
This publication was made possible, in part, with funding from the U.S. Environmental Protection Agency's Office
of Solid Waste and Emergency Response. The information contained in this document does not necessarily reflect
the views of the U.S. Environmental Protection Agency or The United States Conference of Mayors.
Printed on Recycled Paper.
DO YOUR PART! PLEASE RECYCLE!
...11.....
Elizabeth B. Kautz
Dear Mayor,
This is the fifth consecutive compilation of best practices in brownfields redevelopment that
The U.S. Conference of Mayors has published. Each year, the best practices we profile
seem to shine a light upon a different aspect of this vital community revitalization strategy.
In our report last year, for example, we noted that most of the projects we profiled had
moved forward despite the nation being in the throes of the deepest economic recession
in decades. That's true of the projects we've profiled this year as well. We also noted
the importance of public - private partnerships in brownfields redevelopment —each of our
projects profiled this year brought city, state and federal officials to the table with private
developers and other business leaders, nonprofit and philanthropic leaders, and com-
munity residents. Likewise, none of these projects could have been completed without a
combination of private capital and public dollars.
What's particularly striking about the best practices profiled this year is how each develop-
ment has, in its own way, has become a landmark, so to speak, in its City. Houston built a
park that's not only spurred over $500 million in new development in the downtown core,
but in two short years become one of the best known and most popular parks in the city.
Dallas created a vibrant new neighborhood that generated a billion dollars in investment,
on the Former site of an electric power generating plant. In Asheville, Coralville, Dubuque
and Baltimore, redevelopment in each case has helped not only enhanced the City's tax
base, but helped its residents reclaim and reconnect with the waterfront (where the abun-
dance of brownfields are a legacy, to be sure, of our nation's long manufacturing and
shipping history).
I'm extremely proud of the work that The U.S. Conference of Mayors has undertaken over
the past two decades to raise the profile of brownfields redevelopment as an important
tool for environmental remediation, sustainable development, and economic growth in
cities. What we can take away in addition from this year's crop of best practices is that
brownfields redevelopment doesn't simply transform the physical fabric of community —it
can transform the social and cultural landscape as well. In these tough times, creating and
strengthening our sense of community can hardly be more important.
Sincerely,
Elizabeth B. Kautz
Mayor of Burnsville
President, The U.S. Conference of Mayors
11.11. 111.
A Compendium of Best Practices — 3
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Introduction
A City Reconnects with the Majesty of
the Mississippi
America's River
City of Dubuque, IA
Mayor Roy Buol
In the 1980s, the future looked bleak for Dubuque. Dubuque's economy was heavily invested in a handful of manufac-
turing industries, and when those businesses experienced an economic slump few residents were immune to the reper-
cussions. Furthermore, the collapse of these businesses left the
riverfront area, now known as the Port of Dubuque, plagued by
environmental issues, undervalued property, and a mix of heavy
industrial uses adjacent to downtown. These issues created both
a physical and psychological disconnect between residents and
visitors and the Mississippi River, the city's greatest potential as-
set. The site, essentially, was the epitome of a brownfield envi-
ronment, burdened with obstacles to redevelopment.
As the gateway to Eastern Iowa, the Port of Dubuque was in vast
need of redevelopment and repositioning, and the city seized the
opportunity to reconnect with the Mississippi. In the late 1990s,
the community came together on a project, America's River, that
would forever change the riverfront of Dubuque. The America's
River project transformed 90 acres at the Port of Dubuque into
a destination that captures the historical, environmental, educa-
tional and recreational majesty of the Mississippi River. Today,
America's River at the Port of Dubuque, a 90 -acre, mixed use
redevelopment surrounding the historic Ice Harbor along the Mis-
sissippi River waterfront, is one of Iowa's finest tourism attractions
and continues to set state tourism attendance records.
The 86,000 square foot Grand River Center is
designed so That it literally seems to be cantile-
vered over the river. (Photo courtesy of the City
of Dubuque)
Site History and Acquisition
The area in question has had a long history of industrial activity dating back to early 1800s— trapping, fishing and shell
harvesting later gave way to shipping, shipbuilding, leather working, brewing, and sawmill operations. The early to
mid 1900s saw a number of formerly thriving businesses cease operations, including a minor league baseball park, a
bulk petroleum storage facility, the former Dubuque Star Brewery, a cold storage facility and a bulk asphalt terminal.
Several facilities had been closed and abandoned for decades.
By reclaiming brownfield property for mixed -use development and creating a world class venue where people can
reconnect with and experience the river, the America's River project provided a much needed boost to Dubuque's
struggling economy, tourism, and image.
The Mayor, City Council, and other community leaders worked together to undertake one of the largest economic
development projects in the community's history. Local support was further demonstrated by the large number of local
organizations and citizens who worked on this project, and as local government, business leaders and non -profit orga-
nizations alike embraced the vision of rejuvenating community spirit and revitalizing the economy, a unique collabo-
ration emerged. The City of Dubuque worked with multiple property owners to assemble the parcels needed for the
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A Compendium of Best Practices — 25
project, and moved active businesses to other locations in the region. In addition, the City partnered with
the Dubuque Area Chamber of Commerce and the Dubuque County Historical Society to pool resources and to seek
funding from local, state and federal agencies for the America's River project. This unprecedented private - public
partnership ultimately included 13 federal agencies, the State of Iowa and many of its agencies and departments, five
Governors along the Upper Mississippi River, a number of national navigation associations, and 35 national environ-
mental groups.
Administrative Process and Public Involvement
In 2001, the City Council launched a yearlong community planning and design effort to craft a comprehensive, long-
term vision and redevelopment concept for America's River at the Port of Dubuque. The planning process began with
a 10- member committee established by the City Council,
which included representatives from the City of Dubuque,
Dubuque Area Chamber of Commerce, Dubuque County
Historical Society, Greater Dubuque Development Corpo-
ration, and private developer Platinum Hospitality. A team
of consultants, including economic analysts, planners, and
urban designers, guided the work of the committee. The
committee worked with local property owners, developers,
City Council members and citizens at large to get their in-
put on the most appropriate plan for the Port of Dubuque.
This process included monthly meetings, public workshops,
news articles and one -on -one consultations. The city also
sponsored a developer's workshop, which brought togeth-
er nearly 60 potential developers from the region to review
the plan and to discuss properties available for redevelop-
ment, along with a list of potential incentives.
As the lead government organization for America's River
project the City of Dubuque dedicated its resources for
planning, engineering, facilitating, and funding of the
America's River effort. The Mississippi River Museum was the lead non - profit organization For America's River project
and dedicated its resources to research, planning support, exhibit development and fundraising. The lead business and
tourism organization on the project, the Dubuque Area Chamber of Commerce and its Convention and Visitors Bu-
reau, focused their efforts on product development, additional fundraising, public awareness and tourism development
aspects of the plan. Dubuque County, an active partner in the effort, also endorsed and contributed to the project in
many ways.
Prior to redevelopment, several facilities on the site
had been closed and abandoned for decades. (Photo
courtesy of the City of Dubuque)
Financing
The America's River project became a nearly $400 million revitalization effort, one of the most successful in Iowa.
The America River's redevelopment initiative has provided the City with new office and showroom space, residential
and commercial development, and greenspace. The city used a combination of state, county and local funding for the
project, as well as private contributions. The City of Dubuque allocated just over $100 million, or 35% of the total fund-
ing, for the America's River project. In addition the city received $400,000 from the Environmental Protection Agency
Brownfields Pilot and Clean Up grant program, and grants from the US Economic Development Administration and US
Department of Housing and Urban Development provided more than $2.35 million to cover property acquisition costs.
State grants in excess of $55 million provided significant funding for various redevelopment projects. These grants
included the Vision Iowa Grant, the Community Attraction and Tourism Development Grant, and Clean Up Grants.
Dubuque County contributed $1.7 million to the redevelopment project, and private contributions totaled just over $15
million.
i
26 — A Comnendium of Best Practices
Remediation and Redevelopment
Soils and groundwater impacts on the assessed properties were significant. Soil impacts were found throughout the top
ten feet of variable fill across the area. Arsenic concentrations in excess of statewide standards for soil were identi-
fied in numerous locations, generally distributed throughout all soils. Lead, possibly associated with industrial land use
activities or historical lead mining operations in the area, and polynuclear aromatic hydrocarbon (PNA) impact associ-
ated with the storage and use of petroleum products and industrial by- products, were also identified in several of the
soil borings throughout the area. Inorganic metal and volatile and semi - volatile organic compound impact was identi-
fied in groundwater at multiple sample locations.
Release of petroleum over the approximate 50 -year operating life of the bulk petroleum storage facility resulted in
impacts to soil and groundwater over five acres, bounded by the Mississippi River to the southeast and Ice Harbor on
the southwest side. The close proximity to adjacent surface water boundaries posed a significant threat to the aquatic
environment. Due to the frequent flooding, the riverfront was also the location of uncontrolled filling activities from
industrial. Risk -based evaluation under the state voluntary cleanup programs generally demonstrated that the sites are
suitable for reuse through a combination of land -use controls, engineered barriers, construction - worker cautions, and/
or other methods without the need for extensive physical remedial activity such as excavation and disposal of impacted
soils, which could be cost- prohibitive.
Environmental assessment and clean up of interior areas of Port of Dubuque began in May 2003. Phase I assessments
have been completed on 11 targeted properties
containing 29 individual parcels. Phase II assessments
have been completed on 7 properties using US EPA
Brownfields funding. Cleanup of residual petroleum
impact resulting from a bulk petroleum storage facility
was completed in late 2007. The petroleum cleanup
made use of an innovative technology that involved
multi- arrayed vacuum extraction of free product and
hydrogen peroxide injection to address dissolved
impact in groundwater.
Phase I of redevelopment consisted of five anchor
components: the Mississippi Riverwalk, the National
Mississippi River Museum and Aquarium, the 86,000
square -foot Grand River Conference Center, the
Grand Harbor Resort, and the Star Brewery. These
five facilities, completed in 2003, accounted for $188
million in redevelopment. Throughout most of the de-
cade the Port of Dubuque has continued to be a busy
construction zone, thanks to a $200 million vision for
America's River Phase II, which included an expansion
of the National Mississippi River Museum and Aquarium; new offices for McGraw -Hill Higher Education and the Dur-
rant Group, an architectural firm; an expansion of the Diamond Jo Casino; renovation of the historic Star Brewery and
historic Shot Tower; a public parking ramp; transient boat slips in the Ice Harbor; and a 92 -slip marina on the river -
front. As of 2010 most components of Phase II have been completed.
A cross -river view of the America's River development.
(Photo courtesy of the City of Dubuque)
Lessons Learned and Future Directions
America's River demonstrates the importance of public /private partnerships —a strategy which continues to play a key
role in many of the city's long -range plans. The pairing of public and private investment dollars to complete the Ameri-
ca's River project has literally changed the landscape of Dubuque's riverfront and the city as a whole.
The America's River project further provides a practical framework for communities interested in waterfront redevelop-
A Compendium of Best Practices — 27
ment as more than a financial concern. Real estate development tends to fo-
cus, first and foremost, on profitability. Environmental concerns are at the fore-
front of any brownfields redevelopment project, and with the America's River
project The City of Dubuque and its various partners have expanded on those
more conventional environmental considerations. Each of the components of
the America's River project, from the conference center to the museum, from
the aquarium to the river walk, has helped the community reconnect with the
Mississippi River on different levels. And the project has benefitted not only
Dubuque residents, but visitors from all over the world, who through the vari-
ous America's River amenities and features can learn about the importance of
the Mississippi River as an economic engine for industry, its role as an environ-
mental habitat, and its recreational opportunities. By recapturing, leveraging
and ultimately caring for this vital natural resource, Dubuque has realized a
vision that will continue to pay for the city, both literally and figuratively, for
generations to come.
Contact:
Aaron M. DeJong, Assistant Economic Development Director
City of Dubuque
50 W. 13th Street, Dubuque, IA 52001
(563) 589 -4393 telephone
adejong @cityofdubuque.org e-mail
www.cityofdubuque.org
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The renovated Star Brewery is
one of the anchors of the Amer-
ica's River development. (Photo
courtesy of the City of Dubuque)
V11,■wI1F1 I:IA'f - P. 11(
The expanded National Mississippi River Museum and Aquarium is an affiliate of
the Smithsonian Institution. (Photo courtesy of the City of Dubuque)