Prepared by: 

Environmental Management Support, Inc. 

(Contract No. EP-W-07-054) 

8601 Georgia Avenue, Suite 500 

Silver Spring, MD 20910 

www.emsus.com 

The Ferguson Group 

1130 Connecticut Avenue, NW, Suite 300 

Washington, DC 20036 

www.fergusongroup.us 

The Horinko Group 

2300 N St. NW, Suite 2130 

Washington, DC 20037 

www.thehorinkogroup.org 

Prepared for: 

U.S. Environmental Protection Agency 

Office of Solid Waste and Emergency Response 

Office of Brownfields and Land Revitalization 

Washington, DC 20460 
Challenges & Opportunities at Mothballed Properties 1 

10 Contributors to Success at Mothballed Properties 3 

Profiles of Successful Mothballed Property Revitalization 5 

Corporate Strategies . . . . . . . . . . . . . . . . . . . . 7 

Car Company Revs Up Old Manufacturing Sites 

for Revitalization . . . . . . . . . . . . . . . . . . . . . .7 

Ohio Development Team Overcomes Barriers to Reuse of 

Mothballed Waterfront Property . . . . . . . . . . . . . . .9 

Manufacturer Takes a Prevention Approach to 

Mothballed Properties . . . . . . . . . . . . . . . . . . 11 

Chemical Company Ranks Sites and Reaches out to 

Regulators for Reuse of Underutilized Properties . . . . . . . 13 

Pennsylvania Buyer-Seller Agreement Facilitates Reuse of 

Old Manufacturing Site . . . . . . . . . . . . . . . . . . 15 

Local Leadership . . . . . . . . . . . . . . . . . . . . . . 17 

Vacant Site to Become Rochester Sports Complex . . . . . . 17 

Milwaukee Master Plan Renews Old Industrial Valley . . . . . 19 

Environmental Extension Center Helps Seattle Small 

Businesses on Contaminated Properties . . . . . . . . . . . 21 

West Virginia Small Cities Create A Commerce Corridor . . . . 23 

Colorado Brownfields Foundation Helps Mom & Pops 

with Environmental Stewardship Program . . . . . . . . . 25 

Innovative Building Reuse Program Spurs Revitalization 

of North Carolina Small Towns . . . . . . . . . . . . . . . 27 

	 Mothballed ProPerties	 |	 iii CONTENTS

Contents 
Challenges hallenges & opportunities tunities at Mothballed othballed properties

financial liabilities; and, at times, uncooperative property owners. 

Despite these challenges, success stories are emerging. These stories show property owners working

in collaboration with local communities, regulators, redevelopers, and other stakeholders that can 

overcome barriers to reusing properties preventing

mothballing or transforming properties that were 

previously mothballed. 

■ General Motors is entering into new partner-

	 |	 Challenges &	opportunities at Mothballed Properties 1Amothballed property is a property where 

the owner is unwilling or unable to transfer 

the property or put it into productive reuse.

Mothballed properties cause blight to neighborhoods

inhibit economic development and revitalization

threaten public health and the environment, discourage productive reuse of infill areas, and contribute to 

urban sprawl. Whether these properties are controlled 

by large corporations or mom & pop owners, whether 

they involve parties striving for a cooperative outcome or 

are owned by disengaged or absentee landowners, mothballed properties can hinder productive reuse and vitality

in communities across America. 

The United States Conference of Mayors reports that 

mothballed brownfields remain the toughest brownfields 

barrier facing local leaders. The National Brownfield 

Association study, “Bringing Corporate Brownfield 

Properties to Market,” concludes that many property

owners are seeking additional comfort and redevelopment assistance before transferring these properties. 

A study by the National Center for Neighborhood and 

Brownfields Redevelopment at Rutgers University on 

the impact of mothballed industrial properties on urban 

redevelopment, finds that 40 percent of cities in its study

have at least one mothballed brownfield. The study also 

concludes that about half of the municipalities with 

mothballed properties consider these properties to be 

a barrier to urban redevelopment. The Rutgers study

found that the revitalization of mothballed properties 

is particularly important for communities dealing with 

potentially contaminated properties located in prime 

downtown redevelopment areas, along waterfronts, and 

near important public facilities such as schools. 

A number of factors and challenges confront property

owners, local communities, and other parties striving to

deal with mothballed properties. These challenges can 

include: the need for expertise and information; sites 

where cleanup costs outweigh property values; slow 

real estate markets; concerns about long term environmental and legal liability; lack of confidence in the 

monitoring and enforcement of institutional controls 

at remediated sites; insufficient coordination between 

state and federal regulatory programs; questions about 

the proper accounting and reporting of environmental 

This report showcases a few of the many examples 

of projects where stakeholders are establishing effective partnerships to bring sites that were previously mothballed back into productive use. The 

ships with local governments, redevelopers, and 

regulatory agencies to move previously mothballed properties into revitalization on a more 

expedited timeframe. 

■ Hemisphere Development is partnering with 

local governments and the Ohio EPA to redevelop an old, 1,100 acre chemical manufacturing

facility mired in litigation for 24 years into a 

mixed use waterfront redevelopment and sports 

center on the coast of Lake Erie. 

■ The State of Wisconsin established a comprehensive, streamlined “Remediation and Redevelopment” program that consolidates cleanup

authorities under one state program with a single 

point of contact, resulting in time and cost savings 

during the cleanup and redevelopment process,

effectively reducing the extent to which properties 

are mothballed. 

■ The DuPont Corporation is working with the 

City of Rochester, New York to convert a 100 

year old chemical manufacturing plant, fenced 

and vacant for 13 years, into a sports and recreational complex. 

■ The Colorado Brownfields Foundation is providing technical assistance to help small businesses and individual property owners understand 

and address issues needed to facilitate the transfer 

and reuse of contaminated properties. 
	 Mothballed	ProPerties	 |	  challenges

report also identifies “10 Contributors to Success”

for the revitalization of mothballed properties. 

These success stories show that the cleanup and 

revitalization of mothballed properties can benefit 

all parties – overcoming liabilities and producing 

value for property owners, creating redevelopment 

opportunities for buyers, and bringing new vitality 

for local communities and the economy. 

The U.S. Environmental Protection Agency launched 

an effort to foster the revitalization of mothballed 

properties at the EPA National Brownfields 

Conference in Boston, Massachusetts in 2006. In 

October 2007, EPA convened more than 75 property owners, redevelopers, community leaders, and 

federal, state, and local officials in Washington, DC 

to discuss tools and resources needed for successful 

mothball revitalization. 

This report builds on the ongoing EPA effort to provide assistance on this important issue. This report 

highlights innovative approaches and real success 

stories in the revitalization of mothballed properties.

The highlighted projects include just a few of the 

many examples of successful revitalization projects 

underway across the country. 
2

	 |	 10 Contributors to	success at Mothballed Properties 

10 ContributorstosuCCessat Mothballed othballed ProPerties

At contaminated properties in communities 

across America, certain tools and approaches 

often contribute to the successful revitalization of 

mothballed properties: 

Reuse First – Revitalization of contaminated properties often is more successful when the property

owner works upfront with potential buyers, redevelopers, the local community and other interested 

parties to identify a potential reuse, rather than 

focus solely on the remediation and regulatory challenges. 

Recruit Redevelopers – Redevelopers who get 

involved or obtain the property at the front end of 

the process can help overcome challenges at mothballed properties. 

Local Leadership – The leadership of local government officials is critical to moving mothballed sites 

where the owner is unable or unwilling to sell or reuse the property. Local tools include reuse planning,

market catalyzation, deal facilitation, support in attracting public and private funding, and acquisition 

and assembly of properties. 

Craft Creative Corporate Strategies – Increasingly,

many companies are engaging in strategies that 

consider idled sites to be potential assets that can 

be moved into appropriate reuse to the benefit of 

both the company and the community. Innovative 

corporate strategies include the integration of environmental and real estate teams to move stagnant 

properties, the outsourcing of site revitalization to 

1. 

2. 

3. 

4. 

potential buyers and redevelopers early in the process, and the formation of partnerships with state

federal, and local government authorities. 

Take Advantage of State Tools & Resources – State 

environmental and economic development officials 

are essential partners with effective tools in the 

revitalization of mothballed properties. These tools 

include voluntary cleanup programs; state funding; buyer-seller agreements for site transfer and 

liability clarification. 

Coordinate Cleanups – Using a team tactic to coordinate and integrate state and federal cleanup

requirements into a “One Cleanup” approach can 

expedite the cleanup and redevelopment process 

by avoiding bureaucratic duplication, conflicting

requirements, and delays that can thwart action 

at contaminated properties. 

Leverage Federal Funding & Support – 

Together with local, state, and private resources

the federal agencies support the revitalization of 

potentially contaminated properties with funding

outreach, training, and technical assistance. Federal 

tools include EPA assessment and cleanup grants.

Other federal funding resources available to address 

redevelopment include Brownfields Economic Development Initiative (BEDI) and Section 108 funding from the Department of Housing and Urban 

Development, Public Works and Economic Development Facilities Grants from the Department of 

Commerce’s Economic Development Administration, and the federal brownfields tax incentive. 

5. 

6. 

7. 
	 Mothballed	ProPerties	 |	 

8.	 Assist the Mom & Pops – Mothballed properties 

owned by individuals and small entities exist in 

nearly every community in America. Cooperative outreach and education, reuse plans that 

spark market opportunities, and the leveraging 

of public funding can overcome the challenges at 

these properties. Nonprofit organizations, business assistance centers, local and regional support 

agencies, business associations, and other nongovernmental entities often are well suited to assist 

mom & pop owners of potentially contaminated 

properties. 

9.	 Reduce Risks – The public and private sectors are 

using a variety of institutional control maintenance and assurance tools, environmental insurance protections, and liability transfer strategies 

to reduce risks for hesitant sellers of mothballed 

properties. 

10.Create Comfort – While not needed in the majority of contaminated property transactions, state 

and federal authorities can provide a number 

of policy, legal, and enforcement tools to help 

prospective purchasers of contaminated properties 

reach a level of comfort regarding potential liability at these properties, therefore increasing the 

likelihood that the properties will be redeveloped.

These tools include the bona fide prospective purchaser protections of federal law, state voluntary 

cleanup programs, prospective purchaser agreements, liability status clarifications, comfort letters, “Ready for Anticipated Use” determinations,

and federal settlements and state agreements for 

cooperative sellers. 

For more information on tools and approaches for 

potentially contaminated properties, see www.epa.

gov/brownfields. 

Success Factors
	 |	 Profiles of	successful Mothballed Property	revitalization 3profilesofsuCCessful Mothballed othballed propertyrevitaliza vitalization

The tools and approaches that contribute to the 

revitalization of mothballed properties emerge 

from the tales of success stories from across 

America. This section showcases examples of cases 

in which previously mothballed properties were 

converted into new vitality and opportunity. The 

first series of case studies highlights Corporate 

Strategies for redevelopment and prevention of 

mothballed properties. The second series describes 

situations where Local Leadership, from both 

governments and nonprofits, drove redevelopment 

of underutilized sites. 

Corporate StrategieS 

Car Company Revs Up Old Manufacturing Sites 

for Revitalization 

Ohio Development Team Overcomes Barriers to 

Reuse of Mothballed Waterfront Property 

Manufacturer Takes Prevention 

Approach to Mothballed Properties 

Chemical Company Ranks Sites and Reaches out to 

Regulators for Reuse of Underutilized Properties 

Pennsylvania Buyer-Seller Agreement Facilitates 

Reuse of Old Manufacturing Site 

1. 

2. 

3. 

4. 

5. 

LoCaL LeaderShip 

Vacant Site to Become Rochester Sports 

Complex 

Milwaukee Master Plan Renews Old Industrial 

Valley 

Environmental Extension Center Helps Seattle 

Small Businesses on Contaminated Properties 

West Virginia Small Cities Create A Commerce 

Corridor 

1. 

2. 

3. 

4. 
	 Mothballed	ProPerties	 |	 

5.	 Colorado Brownfields Foundation Help Mom 

& Pops with Environmental Stewardship Program 

6.	 Innovative Building Reuse Program Spurs 

Revitalization of North Carolina Small Towns 

Profiles
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	Corporate	strategies 

Car CoMpany revs up 

old ManufaCturing sites for revitalization 

The redevelopment represents a 

new way of thinking about unused 

properties for General Motors. 

to a RCRA corrective action remedy that was completed,

thereby preparing the area for potential reuse. The sale and 

transfer agreement creates an arrangement under which the 

risk of contamination is allocated between GM, the City,

and the redevelopers. Residential reuse is prohibited under 

institutional controls,and GM is granted the ability to 

review and consent to redevelopment plans to ensure that 

reuse is consistent with the Agency approved remediation. 

In August 2007, the City of Anderson entered into an 

agreement with a redevelopment firm,P&L Investments 

and its partner the Value Recovery Group, to redevelop the 

property for new commercial and light industrial economic 

investment.The redevelopment agreement includes an 

innovative approach under which the developer will share 

profit revenues with the City on a scale determined by how 

many local jobs are created – the more jobs, the more profit 

the developer retains. 

Anderson credits EPA’s Brownfields Program with contributing to its emerging success by offering the City an 

opportunity to leverage public dollars to attract private investment.The City used EPA Brownfields assessment grant 

funding to build the capacity to manage its challenges and 

leverage private funding sources.EPA funding was used to 

conduct outreach to community stakeholders and to attract 

additional investment.Anderson officials also point to 

their participation in the EPA Brownfields Conference as 

instrumental in introducing City officials to federal,private 

sector,and finance partners that are now investing in the 

revitalization effort. 

contributing to a collaborative partnership with GM that 

includes a commitment to moving properties toward revitalization. GM’s commitment is encouraging the devotion 

of City staff and resources to these challenges. 

An example of this collaborative partnership is the efforts 

made to revitalize the plant that GM closed in November 

2006. GM agreed to transfer 300 acres in the downtown 

area to the City of Anderson.This property was subject 

ContributionS to SuCCeSS: 

Recruit Redevelopers – Anderson entered into 

an innovative agreement where the redeveloper’s 

profits are dependent on job creation, providing 

incentives for job growth in the community. 

Leverage Federal Grant Dollars – Anderson 

leveraged EPA Brownfields funding and assistance, using these resources to open opportunities 

to work with local stakeholders, finance partners,

and regulatory agencies. 

1. 

2. 

General Motors (GM) has large manufacturing 

properties throughout the United States. As the 

industry has changed over past decades, many of 

its properties ceased operating, and some are sitting idle 

and contaminated. While traditionally the GM approach 

at these sites was to conduct remediation with in-house 

technical staff while a separate real estate staff worked 

later to sell the sites, GM is adopting a new approach 

in which GM partners with local governments and the 

private sector to move these sites toward revitalization 

on more expedited timeframes at the beginning of the 

process. Success stories are beginning to emerge, including 

the revitalization of former GM sites in two cities – 

Anderson, Indiana and Baltimore, Maryland. 

anderSon, indiana 

For most of the 20th Century,Anderson,Indiana was a 

booming economic and industrial area.In 1918,GM headquartered its Delco Remy division in Anderson and the 

City became a leading electromechanical technology center.

GM and automotive parts manufacturing in the City 

reached its peak in the early 1970s providing more than 

27,000 jobs.Today,however,GM has divested nearly all of 

its interests in Anderson. GM is selling operating businesses,shuttering,and in some cases completely demolishing its 

former manufacturing facilities.Key properties in the center 

of Anderson are idle.The final GM plant closed in 1996. 

Given the extent of GM’s pullout from Anderson, the 

City’s future may depend in large part on its ability to 

revitalize the former GM properties. Local leadership is 
	 Mothballed	ProPerties	 |	 

CheSapeake CommerCe Center in 

baLtimore, maryLand 

GM formed a partnership with redevelopers and local,

state,and federal officials to convert an old auto assembly 

plant in Baltimore into a $140 million business park in an 

expedited time frame. 

GM owned and operated an assembly plant in Baltimore 

for 68 years.When GM shut down the plant in 2005,the 

company met with EPA Region 3 and Maryland Department of Environment (MDE) representatives to ensure 

them that GM would retain a developer who would take 

on responsibility for the cleanup of the site as part of the 

redevelopment.GM officials also assured regulators that 

GM would stay involved in the cleanup process to ensure 

the developer met all remedy commitments.EPA Region 

3’s Facility Lead Program and MDE’s Voluntary Cleanup 

Program provided a favorable framework to facilitate this 

revitalization project. 

GM focused initially on finding a developer with experience in redevelopment of potentially contaminated properties.In January 2006,GM selected Duke Realty Corporation as the developer for the Baltimore property.GM 

and Duke Realty focused on establishing a collaborative 

approach to property cleanup with EPA and MDE. Duke 

proposed a comprehensive cleanup matrix and master 

schedule as part of a facility lead RCRA cleanup approach.

The state and EPA Region 3 regulators responded by setting up an intergovernmental team to develop a streamlined 

cleanup process that met both federal and state program 

goals.This collaborative group focused on the cleanup 

matrix,the master schedule,and the commercial reuse 

scenario to drive decisions on the remedy and institutional 

and engineering controls. 

The developer and its partners also committed to conducting early and substantial community outreach on the site 

redevelopment vision.As described by EPA Region 3 

Administrator Donald Welsh,“Although it may require 

more effort at the outset, by working collaboratively with 

the owners,developers,and the impacted neighborhoods,

EPA can streamline the environmental cleanup process so 

redevelopment takes less time to complete,but still ensure 

the highest environmental standards.” 

The groundbreaking for the Chesapeake Commerce Center took place in the summer of 2006. Duke Realty plans 

to invest more than $140 million in the redevelopment of 

the site. When the redevelopment is complete, there will 

be 16 buildings encompassing 2.8 million square feet.The 

project is expected to create thousands of new jobs over 

the next 10 years. 

The redevelopment of its Baltimore property represents a 

new way of thinking about unused properties for General 

Motors.Historically,GM held onto unused properties and 

typically conducted remediation with in-house resources 

during and after site transfer.In this case,GM worked 

collaboratively with outside parties to allow a redeveloper 

to take on cleanup and redevelopment responsibilities.GM 

retains certain responsibilities and remains liable under 

CERCLA and RCRA as a responsible party. However,

allowing the developer to conduct the remediation with 

Agency oversight reduced GM’s future liability risks to an 

acceptable level. 

ContributionS to SuCCeSS: 

Coordinated Cleanups – A coordinated cleanup 

plan, meeting both federal and state program 

goals, significantly expedited redevelopment. 

Recruit Redevelopers – The redeveloper assumed 

many remediation responsibilities and collaborated with federal and state regulatory agencies in 

order to reduce decision times on the remedy and 

institutional and engineering controls. 

For more information, contact: Fred Zehnder at 

(313) 665-6616 or frederick.j.zehnder@gm.com. 

www.gm.com/corporate/responsibility/ 

environment/plants/brownfield_redev/index.jsp 

1. 

2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	Corporate	strategies 

ohio developMent teaM overCoMes barriers to reuse 

of Mothballed Waterfront property 

The Diamond Shamrock Painesville Works 

property in Lake County, Ohio was mothballed 

and mired in litigation from 1977 until 2001.

In 2001, Hemisphere Development entered into 

a partnership with area municipalities, the Ohio 

EPA, Lake Metroparks, and other public stakeholders to create a plan for addressing the liability and 

cleanup issues and transforming the old industrial 

property into a mixed use and recreational facility. 

Located on 1,100 acres on the coast of Lake Erie 

and the Grand River, the former chemical plant operated from 1912 through 1977, where it produced a 

variety of products including soda ash, baking soda,

chromium compounds, carbon tetrachloride, hydrochloric and sulfuric acids, chlorinated wax, and coke.

The land was the site of various activities over the 

years, including a 500 acre settling pond, a chromium production facility and a landfill. 

The site spans three separate municipalities with 

overlapping jurisdiction over regional development 

issues. In 1980, U.S. EPA initiated action to remedy 

chromium contamination at the site, resulting in 

One critical aspect in freeing the 

site from its mothballed status 

was to change the direction of

the cleanup and reuse plans. 

the construction of a 120 acre clay cap over the impacted area. The Ohio EPA began enforcement activities for the rest of the site in 1989. The site was 

proposed for inclusion on the Superfund National 

Priorities List, which guides EPA in determining 

which sites containing hazardous substances warrant further Superfund investigation and remediation. Parties responsible for hazardous substance 

releases at the site were embroiled in years of litigation that prevented movement at the site. 

One critical aspect in freeing the site from its 

mothballed status was to change the direction of 

the cleanup and reuse plans. The original plans 

were initially focused on achieving an industrial 

reuse in a region that is not expecting any significant additions to the manufacturing sector. Instead,

Hemisphere and its partners envisioned the site for 

a prime, mixed use, waterfront revitalization that 

could command a substantial increase in property 

value, thereby providing an incentive to the property owners and other liable parties to move toward 

site transfer. This potential increase in property 

value – contrasted with the years of litigation cost 

and controversy – motivated the parties to get the 

property into the redeveloper’s hands. 

Under this arrangement, the former owners and other 

responsible parties will be responsible for cleanup 

costs to levels required for industrial use. The redevel­
	 Mothballed	ProPerties	 |	 0

oper will handle the incremental costs associated with 

bringing the cleanup to residential reuse standards. In 

addition, because the previous site owners had concerns 

about their degree of control over the property during 

remediation and redevelopment, the arrangement is 

based on the redeveloper entering into a 99 year lease 

that gives the previous owners a degree of comfort and 

control due to their retention of ownership. Under the 

terms of the lease, the redeveloper has the right to purchase the property once redevelopment is completed 

and site users and development tenants are established.

The deal is backed with negotiated indemnity and environmental insurance instruments. 

Another key to the successful transfer of the property 

was the collaboration among the redeveloper, the site 

owners, and regulatory authorities. The State of Ohio 

assumed lead enforcement authority with the support 

of EPA Region 5. The remedy was planned to fulfill 

both state and federal regulatory obligations, as well as 

prepare the site to participate in the Ohio Voluntary 

Action Program as soon as the enforcement remedy is 

completed. Participation in the Ohio Voluntary Cleanup Program is critical, because it ensures that the redeveloper is eligible to obtain substantial funding from 

the “Clean Ohio Fund” to cover the incremental costs 

associated with cleaning up the property to residential 

cleanup standards. 

Hemisphere’s development plan was the catalyst to 

settling this costly and complex multiparty Superfund 

case, as well as a long standing regulatory enforcement 

action, in an expedited fashion. The redeveloper will 

complete the majority of required remedial activities 

in 2008. Completion of these activities will lead to the 

implementation of one of the largest shoreline redevelopment projects on the Great Lakes and the construction of significant recreational amenities. 

ContributionS to SuCCeSS: 

Reuse First – The developer changed the focus 

of redevelopment from unrealistic industrial 

use to a profitable mixed use development,

causing previously litigious owners to recognize 

the value in cooperation. 

State Tools and Resources – The developer 

is working closely with the state of Ohio to 

expedite the clean up process and obtain muchneeded remediation funds for the project. 

For more information, contact: Todd Davis,

Hemisphere Development at (216) 464-4105 or 

tdavis@hemispheredev.com. 

www.hemispheredev.com/case/lakeview.html 

1. 

2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	Corporate	strategies 

ManufaCturer takes a prevention approaCh 

to Mothballed properties 

The Honeywell company initiated a proactive 

approach to the redevelopment of its closed 

facilities. Given historical operations, some 

formerly operated facilities require remediation.

Rather than mothball these properties, Honeywell 

is actively working to bring them into constructive 

reuse. Honeywell’s contributions to the successful 

reuse of its properties include working with local 

communities and businesses to identify a new use 

before cleanup begins, and treating remediation and 

re-use as linked objectives. 

When evaluating a closed facility, Honeywell integrates its remediation, real estate, communications,

and government relations teams to engage the surrounding community and identify redevelopment 

opportunities that can resolve the challenges such 

properties typically face: achieving regulatory environmental closure while revitalizing the property in line 

with community objectives as soon as practicable. This 

is different from the traditional cleanup model where 

remediation of the site is often done without consideration of an end use. Under that approach, the goal 

is to complete remediation and then to identify a new 

The company is able to create 


a flexible remediation and re­


development plan that considers 


the needs of the community and 


identifies a viable end use for 


the property.


end use. Failure to integrate remediation with redevelopment can unnecessarily delay the remediation of a 

site and may ultimately increase remediation costs. By 

integrating the remediation, real estate, government 

relations, and communications functions, Honeywell 

is able to create a flexible remediation and redevelopment plan for its closed properties. This approach 

considers the needs of the community and identifies a 

viable end use for the property – thereby lessening the 

likelihood that properties will be mothballed. 

A project in El Segundo, California is representative of Honeywell’s mothball prevention approach.

Honeywell owned a 56 acre chemical facility on 

end use for the cleaned up, but vacant, property. This 

traditional model ignores the fact that cleanup standards and approaches can vary depending on the new 
	 Mothballed	ProPerties	 |	 

a South Bay location only a few miles from the 

Pacific Ocean and Los Angeles International 

Airport. The facility began operation in the 1920s 

and ceased operation in 2003. The main industrial 

activities at the site included sulfuric acid production, pesticide packaging and distribution, phthalic anhydride production, solvents packaging, and 

refrigerants production. The more than 70 years 

of operation resulted in both groundwater and soil 

contamination with volatile organic compounds. 

Honeywell’s remediation, real estate, communications, and government relations teams worked in 

partnership with a developer and local government officials to identify potential end uses for 

the property. The real estate group set an ambitious time table to redevelop the property. With 

the time line for redevelopment set to drive the 

remediation, Honeywell and its partners identified several key technical elements essential to the 

success of the redevelopment, including achieving 

expedited site characterization using a dynamic 

work plan (known as the TRIAD approach) and 

the use of real time measurement technologies to 

accelerate and improve the cleanup process. The 

planning resulted in a two phase development 

strategy. Phase I consisted of redeveloping 43 

acres to feature a retail and restaurant center that 

opened in 2006. Phase II included the remaining 

13 acres, which is targeted to be developed into an 

industrial/commercial center at a later time. 

As a result of the coordination and close cooperation among the entire project team, including 

Honeywell, the developer, and regulatory agencies,

Phase I of the project met its ambitious remediation and redevelopment schedule. The remediation 

of the Phase I areas was completed and approved 

by the regulatory agencies by the end of 2005,

only two years after the factory was closed in 

2003. The newly constructed retail center opened 

for business in November of 2006. 

ContributionS to SuCCeSS: 

Creative Corporate Strategies – Honeywell 

views idle properties as assets to be moved into 

appropriate reuse to the benefit of the community and the company. 

Reuse First – Honeywell works upfront with 

the local community and other allies to identify 

reuse opportunities for company properties. 

For further information, contact Evan Van Hook,

Honeywell at (973) 455-4132 or 

evan.vanhook@honeywell.com. 

www.honeywell.com/hser/environmentalremediation-program.html 

1. 

2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	Corporate	strategies 

CheMiCal CoMpany ranks sites and reaChes out to regulators for 

reuse of underutilized properties 

The Dow Chemical Company is working 

jointly with EPA Region 5 on a project to 

encourage reuse of Dow’s underutilized 

properties. The Dow Brownfields Reuse Project 

seeks to engage government regulatory officials 

in a pro-active process to strategically direct 

Dow’s contaminated sites into tailored regulatory 

programs to allow the implementation of timely 

remedies that match reuse goals. 

To promote the productive reuse of contaminated 

properties, Dow approached EPA’s Office of Solid 

Waste and Emergency Response and EPA Region 

5 in November 2006 with a proposal to remediate 

and make their sites available for reuse in a way 

that is sustainable, protective of human health and 

the environment, creates assets for communities,

and is cost effective for the company. 

EPA and Dow held several formal meetings and 

conference calls to move forward on the initiative. 

A prime objective of the collaboration is to determine a strategy under which Dow can voluntarily 

bring idled and contaminated facilities into the 

cleanup program that is the most optimal for a 

Site strategies integrate 


remediation and reuse goals 


for each of the facilities.


given property. Some properties may be best addressed by a RCRA facility-lead corrective action.

Other properties, if not subject to RCRA or state 

permitting requirements, may be easily entered 

into a state-led voluntary cleanup program. The 

effort is designed to seek consensus on the most 

optimum regulatory approach, convene appropriate personnel and resources from the regulatory agencies and Dow to conduct the regulatory 

process, and seek expedited timeframes for remedy 

and reuse. 

Dow and EPA agreed on three Dow facilities 

located in EPA Region 5 to use as pilots for the 

project. Dow is evaluating potential site strategies that integrate remediation and reuse goals for 

each of the facilities. In addition, Dow is working 
	 Mothballed	ProPerties	 |	 

with EPA to outline a process to document the 

“life cycle” of steps and decisions associated with 

closing and revitalizing a facility. The decision 

process is intended as a tool for use in determining a range of factors, such as reuse potential and 

environmental issues to sort other Dow facilities 

for reuse potential. 

Dow’s use of this decision process is leading to 

progress with reuse plans under development by 

Dow at their Bay City, Michigan and Crest Hill,

Illinois facilities. 

The Bay City site is a RCRA facility-lead corrective action project that has progressed to the 

remedy selection phase. The reuse plan will likely 

include multiple land uses including recreational,

residential, environmental habitat, and light industrial. Dow also is looking at ways to provide 

access to a historic lighthouse, which is an important cultural resource to the community. EPA’s 

RCRA corrective action project manager is working closely on this project to ensure that all requirements are met, while providing the flexibility 

for the proposed reuse of the property. 

The Crest Hill facility is a small facility with a 

landfill as the primary environmental concern.

The facility is subject to RCRA corrective action 

and will become a facility lead voluntary cleanup.

Dow and EPA Region 5 are in discussions with 

the Mayor of Crest Hill, who is excited about the 

potential redevelopment of this facility, which is 

located on the main road into town. The parties 

believe that the issues related to the Crest Hill facility are manageable and a final remedy decision 

could come in 2008. 

Dow and EPA Region 5 are discussing the use 

of the company’s ranking and regulatory tool to 

expand the company’s sustainability project to 

include one or more additional facilities. 

ContributionS to SuCCeSS: 

Coordinated Cleanups – Dow is working 

with EPA regional offices to voluntarily 

bring facilities into the most appropriate 

regulatory programs in order to build consensus on cleanup approaches and minimize 

delays while cleaning up properties to approved levels. 

Creative Corporate Strategies – Dow is 

actively engaged in a corporate initiative 

to proactively remediate contaminated and 

underutilized properties. 

For more information, contact Vicki Rupp at 

Dow at (989) 636-1000 or VRupp2@Dow.com. 

www.dow.com/commitments/sustain.htm 

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2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	Corporate	strategies 

pennsylvania buyer-seller agreeMent faCilitates reuse 

of old ManufaCturing site 

that was used in manufacturing processes at the site 

from 1958 to 1980. At the time of the Buyer-Seller 

agreement, PADEP estimated the remaining cost 

of cleanup for the known contamination at approximately $1,500,000. 

Spectrum Control, a ceramics and electronics manufacturing firm, was looking to relocate their Louisiana 

manufacturing operations that had been destroyed 

by Hurricane Katrina. The idle facility owned by 

Murata Electronics was a solution for Spectrum 

Control – the location was ideal since they were 

already operating in other Pennsylvania locations 

and they could reuse most of the equipment Murata Electronics left onsite. Time was of the essence 

because Spectrum Control had to be back in operation as soon as possible to meet production obligations – including deliveries that would keep its other 

Pennsylvania facilities in operation. Because over 

100 new jobs would be created and hundreds of 

existing jobs would be retained by the relocation of 

Spectrum Control’s Louisiana operations, a successful and timely transaction was of high importance to 

the Pennsylvania Governor’s office. 

However, Murata Electronics was a reluctant seller 

given its ongoing environmental liabilities. To sell the 

property, Murata Electronics needed assurances that 

it would be released of all environmental cleanup and 

third party liability. As the buyer, Spectrum Control 

was willing to buy the property “as is,” assume the 

environmental liability obligations and complete the 

remediation. 

Early in the transaction negotiations, insurers were 

unwilling to underwrite the types of environmental 

insurance policy needed to satisfy the seller’s requirements. Potential insurers felt there was not enough 

technical information available to adequately underwrite a policy. The insurance companies also were 

uncertain that PADEP would be willing to forego the 

typical liability transfer mechanism of putting cleanup 

funds in an escrow account that PADEP controlled 

and instead rely on a traditional environmental insurThe Pennsylvania Department of Environment 

(PADEP) uses a successful approach at potentially contaminated sites when the owner 

is hesitant and uncertain about the risks of selling:

Buyer-Seller Agreements with liability protections. 

In January 2006, PADEP entered into a Buyer-Seller 

agreement with Murata Electronics North America,

Inc. (Murata Electronics), a Japanese firm considering 

the sale of a contaminated property in State College,

Pennsylvania, and a Pennsylvania-based firm, Spectrum 

Control, Inc., a company interested in buying the property. The transfer of cleanup responsibility and future 

environmental liability in a manner satisfactory to all 

involved parties was the key to completing a transaction that resulted in a robust cleanup effort as well as 

the creation and retention of hundreds of jobs. 

Murata Electronics owned and operated a ceramic 

manufacturing facility on the 54 acre site since 1956.

At the peak of operations, the 250,000 square-foot 

facility employed 1,200 people. Manufacturing operations at the facility were shut down in 2004 and the 

final 300 employees were laid off. Murata Electronics 

retained ownership, but they vacated the building and 

fenced off the property. 

Murata Electronics is the Responsible Party of record 

relative to the contamination and cleanup obligation.

Remediation of the site was ongoing since 1988.

Groundwater is contaminated with PCE and TCE 
	 Mothballed	ProPerties	 |	 

ance instrument. Without the appropriate insurance 

coverage, the deal could not happen. 

After a complex negotiation process involving 

PADEP, Murata Electronics, Spectrum Control, and 

the insurer, a Buyer-Seller agreement was established 

and agreed upon. Murata Electronics was allowed to 

end its remediation obligations at the facility. Spectrum Control was allowed to assume liability, and to 

continue working to remediate the site to achieve a 

release of liability under Pennsylvania’s Act 2 brownfields statute and program. After the insurer agreed to 

underwrite the transaction, PADEP agreed to accept 

the insurer’s risk management structure rather than 

requiring that remediation funds be secured in an 

escrow account. 

Under the Buyer-Seller agreement, Spectrum Control’s liability was capped by PADEP at $4 million 

for previously identified contamination and related 

ongoing remedial obligations. Spectrum Control also 

purchased a Cost Cap and Pollution Legal Liability 

insurance policy to address risks that went beyond 

cleanup obligations and other sources of potential environmental liability, such as cleanup costs associated 

with unknown contamination and third party claims. 

Murata Electronics and PADEP were listed as additionally insured parties under the policy. The insurer’s 

ability to extend coverage to both the regulatory 

agency as well as to the seller was a critical part of the 

transaction. By being afforded status as an insured 

party on the policy, PADEP was satisfied that remedial obligations would be met by privately secured 

insolvent, the Commonwealth can invoke its rights 

under the policy to receive insurance coverage for the 

cleanup of the site, thereby removing the possibility 

that PADEP is left with financial obligations related 

to cleanup. 

By extending coverage to Murata Electronics, the 

transaction could proceed because third party liability concerns were addressed. Protection from third 

party claims was essential to the transaction because 

the seller would not sell the property without this 

protection. In this case, the environmental insurance policy provided an additional level of liability 

protection not afforded under the Commonwealth’s 

Act 2 release of liability. 

The funds to purchase the insurance policy came from 

the private parties engaged in the transaction. The 

liability transfer allowed the transaction to proceed 

while satisfying the regulatory authority that the 

cleanup would be completed without the use of taxpayer dollars. 

Today, site remediation is moving along as planned.

In fact, cleanup efforts were greatly expedited following the transfer of ownership. The manufacturing 

facility is operating in full swing, employing over 100 

Pennsylvanians, and saving hundreds of other jobs.

Moreover, the revitalized operation is back on the tax 

rolls for the community of State College. 

funding. Should the new owner fail, however, to 

execute its remedial obligations or become financially 

ContributionS to SuCCeSS: 

Create Comfort – PADEP’s buyer-seller 

agreement with liability protection provided 

assurances the owner needed to transfer the 

contaminated property. 

Reduce the Risks – By being listed as an 

insured party on the environmental insurance 

policy, PADEP was satisfied that remedial 

obligations would be met. 

For more information, contact Tracey Vernon,

Pennsylvania Department of Environmental Protection at (717) 772-5906 or tvernon@state.pa.us. 

www.depweb.state.pa.us/dep/site/default.asp 

1. 

2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

vaCant site to beCoMe 

roChester sports Center 

The institutional controls provided 

the framework for an agreement 

that will alleviate concerns about 

losing control of the site and 

dramatically reduce the risk 

associated with property transfer. 

The prior use of the site presented an impediment to 

redevelopment during initial negotiations. The soil at 

the property was contaminated with the byproducts of 

photographic film production – a process that predominantly uses silver and small levels of cadmium,

lead, and mercury. Given these challenges, the reuse 

of the property hinged on DuPont’s ability to reach 

an acceptable redevelopment agreement with the City. 

In response to DuPont’s concerns regarding potential 

environmental risks at the property, the local government explored whether the City could take over 

ownership or liability to provide the certainty DuPont 

sought. Because both DuPont and the City are long 

established and stable entities, the parties are more 

confident about negotiating to reduce risks and liability concerns at this long idled property. 

The City will implement institutional controls as part 

of the remedy to provide the level of certainty regarding future risks and liability sought by DuPont. By

instituting deed restrictions and environmental easements that run with the land, DuPont and Rochester 

can address long term concerns not always covered by 

indemnification agreements. Institutional controls most 

often are not dependent on the continued involvement 

of the party who owned the property at the time of 

remediation. The responsibility to monitor institutional 

controls generally is transferred upon land sale. InAs a result of local government leadership,

and the use of risk management tools and 

institutional controls, a DuPont owned 

property that was closed for 13 years is on the 

verge of being redeveloped as a public recreational 

complex. DuPont is the owner of a 9.9 acre site in 

northwestern Rochester, New York. The site began 

as a fairground in the 1870s and was purchased by 

the Defender Photo Supply Company, a photographic film and paper manufacturing firm. DuPont purchased the business and property in 1945 

and continued production at the property until 

1995. The manufacturing plant was demolished in 

1996 and the site remains vacant. 

For almost 10 years there was little interest from 

entities in the community to redevelop the site, and 

it remained fenced off. In 2006, local youth sports 

organizations began expressing a desire to use the 

site as public athletic fields. The City of Rochester 

School District started to discuss the possibility of 

turning the site into athletic fields and a parking 

lot. The renewed community interest encouraged 

the City of Rochester to approach DuPont to begin 

redevelopment negotiations. 
	 Mothballed	ProPerties	 |	 

demnification agreements generally are not affected by 

the property sale. The City of Rochester, being a local 

government, can provide an additional layer of protection in the case of institutional controls because the 

local government has the internal structure to oversee 

land use permits and can restrict what happens to the 

property, adding additional certainty to any future use. 

DuPont and the City reached an agreement in principle where DuPont will clean up the site and then 

The institutional controls provided the framework for 

an agreement that will alleviate DuPont’s concerns 

about losing control of how the site is used in the future. Further, Rochester’s local leadership in creatively 

working to structure a negotiation that satisfies the 

interests of both parties was important in moving the 

negotiation process forward. Remedial selection for 

the site is expected in late 2008 or 2009, construction 

in 2009-2010, and property transfer expected in 2010. 

donate the property to the City of Rochester. In addition, DuPont executed a Brownfield Cleanup Agreement on May 17, 2007 with the State of New York.

The remedy and land transfer agreement will provide 

for institutional controls, such as a deed notice restriction requiring restricted residential reuse (to limit the 

number of parties responsible for monitoring compliance with institutional controls) and environmental 

easements. DuPont will indemnify the City for environmental costs provided the City accepts the property donation, determines appropriate recreational use 

and ensures all property restrictions are enforced. The 

indemnification by DuPont will be reduced, if not terminated, if the City transfers the property to another 

party in the future. This reflects DuPont’s concerns 

with regard to indemnifying parties that may have 

uncertain financial futures. 

ContributionS to SuCCeSS: 

Local Leadership – The City approached 

DuPont to develop a plan for reuse of the 

property to meet community needs. 

Reduce Risk – The land transfer agreement 

utilizes institutional controls to limit end uses 

to reduce DuPont’s risk of liability. 

For more information, contact Mark Gregor,

City of Rochester at (585) 428-5978 or 

mgregor@cityofrochester.gov. 

www.ci.rochester.ny.us/des/index.cfm 

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2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

MilWaukee Master plan reneWs 

old industrial valley 

The City of Milwaukee, Wisconsin’s 1,500 acre 

Menomonee Valley experienced rapid growth 

from the 1920s to the early 1950s, serving as a 

major industrial center for the area. Surrounding the 

numerous industrial facilities, neighborhoods sprang up 

allowing many of the workers to live near their places of 

employment. As is the case in many Midwestern areas,

the decline of United States manufacturing forced the 

businesses of the once thriving area to close, leaving 

contaminated properties within walking distance of the 

city center. 

In the 1990s, the City of Milwaukee expressed interest in revitalizing the Menomonee Valley and returning 

jobs to the community. In 1998, the City of Milwaukee 

completed a master plan to redevelop the five-mile long 

and half mile wide valley.The City partnered with the 

Menomonee Valley Business Improvement District, the 

Milwaukee Economic Development Corporation, the 

Menomonee Valley Business Association, and numerous 

other local entities to form the nonprofit Menomonee 

Valley Partners, Inc. to implement the land use plan. 

The land use plan relies upon, and uses, federal, local,

and state tools for cleanup. Federal tools include Community Development Block Grants, HUD Economic 

Development Initiative grants, Congressionally directed 

spending, and Environmental Protection Agency resources including Brownfields grants. Local leadership,

private investment, tax foreclosure, and the use of eminent 

domain were identified as important tools and used when 

necessary. Since the implementation of the land use plan,

two additional local tools assisted in the redevelopment.

First, the establishment of an overall Valley land use plan 

created momentum toward redevelopment and resulted in 

increasing property values in the Valley. Property owners 

in the Valley, including several mom & pop businesses,

are taking advantage of the rise in property value and are 

becoming willing to sell now that there is a market, thus 

speeding up redevelopment. A second local tool is the 

use of the Menomonee Valley Partners organization as 

an acquirer of property, as some owners may look more 

favorably on transferring their property to an entity other 

than the government. 

The State of Wisconsin has a number of tools to redevelop potentially contaminated properties that are 

contributing to the development of the master land use 

plan and ongoing cleanup of mothballed properties in 

the Menomonee Valley. Tax increment financing (TIF) 

is used on sites to fund site acquisition and cleanup. TIFs 

allow for a local government to credit property owners 

for the expected rise in property value from redevelopment.That expected credit enables the owner to receive 

a bond to pay for redevelopment up front. Menomonee 
	 Mothballed	ProPerties	 |	 0

Valley projects also took advantage of Wisconsin Department of Natural Resources (DNR) programs and 

expertise.The DNR’s Brownfields Environmental Assessment Program awarded funds for site assessment and 

cleanup. DNR’s Sustainable Urban Development Zone 

funds assisted with investigation as well. DNR continues 

to provide extensive technical assistance to complete all 

environmental work in advance of development. As a 

result, when the City finds an interested purchaser for 

a parcel, the parties need to work only with the DNR 

on the appropriate placement of the buildings (to act as 

a barrier to residual contamination on site) and request 

an exemption to build on the historic fill. This strategy 

saves new businesses thousands of dollars in direct 

and indirect costs, since most of these businesses have 

very short windows in which to finance, purchase, and 

build. A further tool available to local government in 

Wisconsin is a State-established liability exemption for 

local governments who acquire property through use of 

eminent domain or tax receipt foreclosure. This enabled 

Milwaukee to acquire property without becoming a potentially responsible party for cleanup. 

Many of the above tools assisted in the redevelopment 

of the largest mothballed properties in the Menomonee 

Valley – the 130 acre former Milwaukee Road Railyards.

The rail yards were vacant for over 20 years before the 

vidson museum, trails, greenspaces, and light manufacturing. The Harley-Davidson museum is a $60 million,

110,000 sq. ft. project located on a former Morton Salt 

industrial site that houses the museum, a retail store,

banquet space, and a restaurant. Phase II will include 

space for the Harley-Davidson corporate archives, a 

restoration shop and additional museum exhibits. Phase 

III plans include office space and other growth needs.

Harley-Davidson incorporated the Menomonee Valley 

Sustainable Design Guidelines in their development. 

redevelopment plan was instituted.The City faced owners 

unwilling to sell the property that was contaminated with 

asbestos, oil, and PCBs. Eventually an agreement was 

reached. City grants, EPA grants, HUD grants, CDBG 

funds, DNR grants and technical assistance, $16 million in TIFs, and $39 million in private investment came 

together to purchase and redevelop the property. Currently, there is a business park for light industrial users on 

approximately half of the site that is projected to create 

over 1.2 million square feet of building space and 1,200 

jobs.The other half of the property will be greenspace. 

Redevelopment in the Menomonee Valley is still ongoing. Successful projects include the construction of 

Miller Park, home of the Milwaukee Brewers. The Valley 

is also the site of the 12 mile Hank Aaron State Trail 

along the Menomonee River. Over the next 10 years the 

Menomonee Valley Partners are projecting three million square feet of new construction in the once blighted 

Menomonee Valley. At this time, 18 redevelopment 

projects are underway including a unique Harley-DaContributionS to SuCCeSS: 

Reuse First – The City of Milwaukee and 

the Menomonee Valley Partners developed 

a comprehensive land reuse plan to spur 

redevelopment. 

State Tools & Resources – Wisconsin provides technical assistance, grants, tax increment 

financing, and limited governmental liability to 

aid redevelopment. 

For more information, contact David Misky,

Milwaukee Department of City Development at 

(414) 286-8682 or David.Misky@milwaukee.gov. 

www.renewthevalley.org/ 

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2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

environMental extension Center helps seattle 

sMall businesses on ContaMinated properties 

The Extension Service provides free consultations 

and assistance. The assistance tailored individually 

for each business includes research and assessments 

on a property’s contamination history, referrals 

to environmental consultants, interpretation of 

consultant reports, recommendations on cleanup 

strategies, recruitment of tenants for newly cleaned 

properties, help in developing and implementing 

stormwater management plans, assistance with enECOSS has established an 

Environmental Extension 

Service that works cooperatively 

with the government, businesses,

and community and environmental interests in the Puget 

Sound Region. 

An innovative nonprofit environmental assistance center in King County, Washington 

is helping small businesses and mom & pop 

owners make their potentially contaminated properties available for sale and revitalization. 

The Environmental Coalition of South Seattle 

(ECOSS) is a nonprofit educational organization 

designed to assist businesses and the community 

with environmental and economic development 

issues. ECOSS established an Environmental 

Extension Service that works cooperatively with 

government, businesses, and community and environmental interests in the Puget Sound Region. 

The Environmental Extension Service helps small 

businesses understand and address issues related to 

contaminated properties. It helps small businesses 

navigate the road to property cleanup, which can be 

confusing and may seem to be unnecessarily expensive and time consuming. Moreover, the Extension 

Service helps businesses understand that by finding 

and eliminating contamination, they can reduce 

their legal liability and preserve the value of their 

real estate. 
	 Mothballed	ProPerties	 |	 

vironmental compliance, and help accessing public 

sector grants and technical assistance. 

The King County/Seattle Brownfields Showcase Initiative, supported by the EPA Brownfields Program and 

assessment grants, helped launch the Environmental 

Extension Service’s brownfields assistance work. 

Since ECOSS started helping small businesses deal with 

problem properties, the center developed an inventory of 

potentially contaminated properties in King County, conducted initial inspections of more than 170 sites, started 

96 environmental site assessments, completed 50 assessments totaling 250 acres of properties, saved businesses 

more than $250,000 in costs, and leveraged more than 

$11 million in Brownfields cleanup grants and revitalization funding. 

At the North Coast Chemical site located in a low 

rent, depressed industrial area in the County, the out 

of state landlord heard about ECOSS and met with 

ECOSS officials at a community presentation. The 

landowner worked with ECOSS to address problems 

at the site, removing the polluting tenant, establishing 

a work plan for cleanup, and helping find and hire a 

trustworthy cleanup contractor. 

Through community based efforts, environmental assistance centers, such as ECOSS are making a difference 

for mom & pop owners of contaminated sites across 

the nation. 

ECOSS helped mom & pop owners of potentially contaminated properties on numerous successful revitalization projects. When Jun and Susan Despi immigrated 

from the Philippines to Seattle, they started the Delite 

Bakery. Their bakery was so successful that the business 

needed to expand. But plans went awry when they unwittingly bought the contaminated Kwik Cleaners dry 

cleaning site and were unable to address the contamination issues with their family lawyer. ECOSS assisted 

by finding the family a good environmental attorney,

helped find and hire a cleanup consultant, and obtained 

cleanup funding through an old insurance policy. Today, the family is proud that “Despi’s Delite Bakery” is 

a popular and thriving bakery for the neighborhood. 

Contributions to suCCess: 

Assist the Mom & Pops – ECOSS assists mom 

& pop owners navigate the road to cleanup by 

providing information on the tools available for 

remediation and redevelopment. 

Federal Grants – EPA Brownfields Program 

assessment grants provided the seed money 

to begin the program and continue to support 

ECOSS assistance to small businesses. 

For more information, contact Emery Bailey,

Environmental Coalition of South Seattle at 

(206) 767-0432 or emery@ecoss.org. 

http://ecoss.org/about/index.htm 

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2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

West virginia sMall Cities Create 

a CoMMerCe Corridor 

The cities used EPA and other 

resources to create a plan for 

matching the highest and best 

market uses for these sites to the 

physical conditions of the sites 

and the surrounding development context. 

vision for this corridor, to educate stakeholders on 

opportunities, and to prime the market for reuse.

Charles Town and Ranson sought and obtained U.S.

EPA assessment grant funding to support the endeavor.

The cities worked with property owners to convince 

them of the value of conducting environmental assessments on the properties to understand and manage the 

risks at the sites. The localities also worked with a local 

developer on strategies to overcome challenges at these 

properties. The site owners and interested redevelopers 

agreed to allow the performance of Phase I and Phase 

II assessments on these properties. 

The cities used EPA and other resources to create a 

plan for matching the highest and best market uses for 

these sites to the physical conditions of the sites and 

the surrounding development context. The community 

conducted planning charettes, highest and best use 

analyses, market feasibility studies, and reuse planning.

The owners of the properties and other stakeholders were invited to participate in all of these activities,

helping them realize the potential opportunities for 

revitalization. 

A key step was securing assistance from the Urban 

Land Institute (ULI), a nonprofit research and 

education institute focused on urban revitalization. 

ULI convened a “technical assistance panel” (TAP) 

The cities of Charles Town and Ranson engaged 

these property owners, local developers, and the 

broader community in a process to create a reuse 

The cities of Charles Town and Ranson, West 

Virginia are revitalizing a blighted corridor 

in the center of their adjacent downtowns 

into a new “Commerce Corridor” of mixed use development. Technical assistance from private sector 

organizations, supported with EPA Brownfields resources, are critical to this success. These resources 

are helping small owners of mothballed properties 

and redevelopers realize the potential for transfer 

and redevelopment of their properties. 

Two key parcels at the center of the corridor were 

mothballed for decades, held by families unable and 

uninterested in sale or redevelopment. One site is a 

century old industrial scrapyard that was tainted with 

lead, petroleum, and other metals. The second is a 

granary complex subject to state emergency removal 

actions due to petroleum and pesticides contamination.

The family and individual owners of these sites were 

reluctant to revitalize based in part on lack of experience in real estate and development of contaminated 

properties, lack of collaboration with the local government, and a listless downtown market for reuse. 
	 Mothballed	ProPerties	 |	 

of 10 experts in the fields of development, finance,

real estate, and contaminated properties from the 

mid Atlantic region. The ULI TAP engaged the 

cities and community stakeholders to define a 

set of issues and objectives for analysis. The TAP 

convened in the community for three days, met 

with stakeholders, debated reuse prospects, and 

established a set of reuse recommendations. Several 

weeks after the onsite forum, ULI provided a comprehensive 25 page report with reuse recommendations. The report confirmed and enhanced the reuse 

planning already conducted by the community. 

At the beginning of the localities’ efforts, one community official asked a local developer whether 

he would work with the owners of the mothballed 

properties to seek redevelopment. The local developer replied, “those sites are contaminated and 

worthless. Why would I want to get involved in 

another Love Canal?” At the conclusion of the ULI 

forum, that same developer, who attended all of the 

reuse planning activities in the community together 

with the site owners, remarked “I am convinced 

that this project holds the future to the Charles 

Town community. I am investing and moving forward.” He formed a dynamic development team for 

the reuse of the former industrial scrapyard, created 

a remedial plan in cooperation with state officials,

and prepared the site for redevelopment. In August 

2007, the City of Charles Town approved final site 

development plans for a “Gateway Center” that 

will house high tech commercial office tenants. A 

groundbreaking is planned for 2008. This developer 

also purchased a vacant lumber yard in the corridor 

and converted it into a 35,000 square feet commercial office and warehousing operation. In the 

meantime, other redevelopers who see progress in 

Charles Town are engaging in talks with the family 

that owns the granary about expanding the commercial redevelopment in the area. 

In this case, small property owners, an inexperienced local government, and reluctant investors 

who had given up on this downtown corridor came 

together to create a reuse vision that is now being 

implemented. This transformation in thinking was 

fueled by U.S. EPA Brownfields grant resources 

enabling private sector organizations like the Urban 

Land Institute to conduct reuse planning, outreach,

education, and environmental assessments to create a market for revitalization and give parties the 

confidence to move forward. 

ContributionS to SuCCeSS: 

Reuse First – Creation of a reuse plan 

convinced site owners and developers there 

would be a market for the redeveloped property and provided the certainty the parties 

were seeking. 

Federal Grants – Charles Town and Ranson 

used EPA Brownfields assessment funding to 

reach out to the site owners and the broader 

community to conduct assessments and educate stakeholders on opportunities for reuse. 

For more information, contact Charles Town 

Councilwoman Ann Paonessa at (304) 728-2887 

or annpwv@frontiernet.net. 

www.charlestownwv.us/section.asp?section_id=44 

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2. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

Colorado broWnfields foundation helps MoM & pops 

With environMental steWardship prograM 

The Colorado Brownfields Foundation (CBF) 

is a nonprofit organization servicing urban,

suburban, and rural Colorado to promote 

the cleanup and reuse of environmentally impaired 

sites, including mothballed properties. CBF assists 

in finding solutions to mothballed properties by 

providing technical assistance to owners, buyers,

and local governments seeking to revitalize these 

properties. 

CBF’s Environmental Stewardship Program assists 

communities and property owners facing critical 

issues related to potentially contaminated properties but lacking the specialized expertise and 

financial resources to address them. CBF can loan 

a brownfields coordinator to a project to inventory redevelopment opportunities, provide strategic information on land reuse models, coordinate 

environmental related services, identify funding 

options, and act as an intergovernmental liaison.

CBF’s Environmental Due Diligence Grants provide environmental services to local governments to 

support public-private real estate transactions and 

support redevelopment for public benefits. CBF 

brings seminars, workshops, and conferences to 

communities to educate stakeholders and project 

managers on strategic approaches to redeveloping 

potentially contaminated properties. 

Additionally, CBF administers several specialized 

programs including the Colorado Historic Byways 

Initiative, an interagency state program that provides environmental assessment and cleanup services to local economic development projects along 

Colorado’s Scenic Byways and Historic Districts.

CBF also works to help clean up environmental 

contamination associated with clandestine methamphetamine labs, focusing on homes that are 

abandoned, in foreclosure, or otherwise veiled to 

potential occupants. 

CBF coordinated a public-private partnership to 

clean up and reuse the Former Buckshot Industries property in Crowley County, Colorado (population 6,000). The eight acre site is the former 

location of a family owned highway construction 

business and was blighted by a combination of 

illegal dumping, diesel fuel spills, and clandestine 

methamphetamine production. 

Buckshot Industries ceased operation in the mid 

1990s when the owner’s two sons inherited the 

family business. In place of the road construction 
	 Mothballed	ProPerties	 |	 

business, the brothers started a methamphetamine 

production lab – a process with hazardous byproducts.

In addition to the toxic methamphetamine chemicals, the site also contained rusty drums leaking 

diesel fuel left over from previous road construction. Asbestos debris accumulated on the property 

due to the brothers operating an illegal dump in 

addition to their methamphetamine laboratory. 

The site eventually became subject to tax liens by 

the County Treasurer. At the tax sale there were no 

potential purchasers and the county itself declined to 

convert the Treasurer’s liens into title, citing the environmental issues. It appeared that the property could 

remain mothballed for some time into the future. 

In 2007, CBF assisted in encouraging a local manufacturer of hand-crafted cabinetry to consider using this 

property for an expansion of its operations. The manufacturer contemplated relocating out of the County, but 

after discussions with Crowley County Commissioners,

it decided to take possession of the Treasurer’s liens with 

full title after cleanup was complete. 

CBF was instrumental in putting this agreement into 

place and saving the property from continued status as 

a mothballed property. First, CBF coordinated with 

the Colorado Department of Public Health & Environment to characterize site conditions. CBF also 

developed the terms of the agreement. In addition to 

transferring fee title following cleanup, it delegated 

cleanup responsibilities for contaminated diesel soils 

ContributionS to SuCCeSS: 

Assist Mom & Pops – CBF provided the 

expertise to the cabinetry company and local 

government to understand the human health 

impacts of environmental conditions and to 

develop a strategy to clean up and reuse this 

site. 

Local Leadership – The local government,

through the use of assuming cleanup costs 

and waiving fees, committed to developing 

an agreement whereby the cabinetry company would remain in the community. 

For more information, contact Jesse Silverstein,

Colorado Brownfields Foundation at 

(303) 962-0942 or jesse@ColoradoBrownfieldsFoundation.org. 

www.coloradobrownfieldsfoundation.org/ 

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to the County. The cabinetry company agreed to 

clean up the dump site and asbestos debris. CBF 

itself will clean up the methamphetamine laboratory.

The County waived all entitlement fees for the property and offered to provide earth moving equipment 

and operators for cleanup activities. As a side benefit 

and cost savings measure, the local Voluntary Fire 

Department will receive free training from the State 

in assaying and disposing of unknown containerized 

liquids as part of the methamphetamine lab cleanup.

The agreement also specifies that jobs will be kept 

on the site for three years or the business will incur 

financial penalties. 

The retention and expansion of this local business is 

economically significant because it entails the creation 

of jobs and puts the property back on the tax rolls.

CBF estimates reuse of this once tax delinquent and 

vacant site would add about $250,000 in payroll to the 

community, contribute almost $6,000 annually to the 

County’s tax rolls, and over $1,000 in annual taxes to 

the local school district. Unfortunately, at the time that 

this report was being published, a Colorado wildfire 

destroyed this revitalized property, and the community 

will need to work again to redevelop. 
	 |	 Profiles	of	successful	Mothballed	Property	revitalization	–	local	leadership 

innovative building reuse prograM spurs revitalization 

of north Carolina sMall toWns 

North Carolina is in the midst of a 30 year 

economic restructuring as a result of manufacturing closures and job losses. Many 

communities lost their economic base as manufacturing plants closed, the number of small farms 

declined and locally owned businesses, including 

main street stores, disappeared. The hardest hit 

small towns saw their tax bases erode, making it 

difficult to provide basic services and nearly impossible to plan for new growth and development. 

Center (Rural Center) helps create economic 

’

Whether an empty storefront on Main Street or a 

shuttered factory out on the highway, vacant buildings serve as daily reminders of the economic hardships being pressed upon small towns throughout 

North Carolina. They are a source of discouragement to local residents and to anyone considering 

starting a new business. But these buildings also 

represent a town’s potential. Restored, renovated,

and equipped, they can once again become thriving centers of commerce, creating jobs and adding 

much-needed tax base for struggling communities. 

A nonprofit center based in Raleigh called the 

North Carolina Rural Economic Development 

The Rural Center operates a 

“Building Reuse and 

Restoration Program” that 

assists communities and small 

businesses in transforming the 

potential these buildings 

represent into economic reality. 

conducting research into rural issues; advocating 

for policy and program innovations; and building 

the productive capacity of rural leaders, entrepreneurs, and community organizations. The Rural 

Center operates a “Building Reuse and Restoration 

Program” that assists communities and small businesses in transforming the potential these buildings 

represent into economic reality. Grants provided by 

the Rural Center help local governments prepare 

the buildings for reuse by new and expanding businesses. The Rural Center oversees the program that 

received $40 million in funding from the North 

Carolina General Assembly. 

revitalization in the state s 85 rural counties by 
	 Mothballed	ProPerties	 |	 

The Building Reuse program provides predevelopment grants of $25,000 to cover the costs of 

studies and other activity necessary to secure 

commitments from a business or investors for the 

reuse of vacant and blighted buildings. Development grants of up to $400,000 are awarded to 

projects ready for reuse and must be matched by 

at least an equal amount of private and public 

funds. Awards are limited to local governments 

in rural counties or the most economically distressed urban areas, with priority given to towns 

with fewer than 5,000 people. 

For example, a Rural Center grant is helping the 

City of Albemarle, North Carolina reuse a 42,000 

square feet manufacturing facility that closed in the 

early 1970s into a mix of offices, retail, and living 

space. The Rural Center also provided $250,000 to 

the Town of Forest City for the reuse of the Cone 

Mills/Florence textile plant as a mixed use development with a total investment of $20 million. The 

complex, with a restaurant, bookstore, movie theater, meeting facilities, hotel, museum, and housing,

will create 50 jobs and spur the redevelopment of 

other historic buildings near the former mill. 

An important role of the North Carolina Rural 

Center’s programs with respect to mothballed 

properties is that the Building Reuse effort helps 

create “market pull” in localities that struggle with 

economic stagnancy. The predevelopment and restoration grants help create community consensus 

particular sites, and create interest by potential investors and redevelopers in reuse. These issues are 

typically more complex for contaminated properties. Such economic development momentum can 

be critical in providing confidence to the individuals and businesses who own these long vacant sites 

that there is value in taking on the challenges of 

cleanup and restoration. With hope for real estate 

and market opportunities created by the proactive 

efforts that are enabled with Rural Center grants,

property owners often become less reluctant to 

discuss site transfer. 

ContributionS to SuCCeSS: 

Assist Mom & Pops – The Rural Center provides assistance to small businesses for building 

reuse and revitalization. 

State Tools and Resources – State funds provide grants for predevelopment and development projects for communities to identify reuse 

opportunities. 

For more information, contact Billy Ray Hall,

North Carolina Rural Center at (919) 250-4314 

or brhall@ncruralcenter.org. 

www.ncruralcenter.org/ 

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on reuse plans, identify highest and best uses for 
Mothballed properties are a challenge in communities across America. America is up to the challenge of

revitalizing these sites through new innovative approaches and public-private collaboration. 

Stephen Johnson, EPA Administrator 

United States Office of Solid Waste and EPA 560-R-08-003 

Environmental Protection Emergency Response October 2008 

Agency (5105T) www.epa.gov/brownfields/