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Duluth Works: a Reuse Planning Report for the US Steel Superfund Site Superfund Redevelopment Initiative Pilot Project

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Duluth Works: a Reuse Planning Report for the US Steel Superfund Site Superfund Redevelopment Initiative Pilot Project Duluth Works: A Reuse Planning Report for the US Steel Superfund Site Superfund Redevelopment Initiative Pilot Project funded by prepared for prepared by U.S. Environmental Protection Agency The City of Duluth E2 Inc. Superfund Redevelopment Initiative (SRI) Department of Planning & Development 2417 Northfi eld Road 402 City Hall Charlottesville, Virginia 22901 Duluth, Minnesota 55802 1 Table of Contents Acknowledgements Project Overview page 3 E2 Inc. would like to thank the following people and organizations for their Introduction page 5 dedication to the reuse planning project for the US Steel Duluth Works site and for their valuable contributions to this report. Duluth’s Regional History page 7 US Steel Duluth Works: Social and Industrial History page 9 Mark C. Barnes, Environmental Affairs-Remediation Manager, United US Steel Duluth Works: Operations and Contamination page 11 States Steel Corporation US Steel Duluth Works: Conceptual Reuse Framework page 15 Thomas Bloom, Reuse Coordinator, EPA Region 5 US Steel Duluth Works: Market Analysis page 19 US Steel Duluth Works: Future Plans and Next Steps page 23 Tom Cotruvo, Director, Urban Development, City of Duluth Planning and Development Department Appendices Susan Johnson, Project Leader, Minnesota Pollution Control Agency Appendix A: Report Sources page 24 Appendix B: Planning, Land Use, and Anne Moore, Public Information Offi cer, Minnesota Pollution Control Market Analysis Data page 25 Agency Andy McDonough, Development Director, Duluth Port Authority Jon Peterson, Remedial Project Manager, EPA John Zaborske, Regional Manager, United States Steel Corporation Cover page: Aerial Image of the US Steel Duluth Works Site, Taken November 1951, Courtesy of NMHC, Duluth Left: Recent Bird’s Eye Photograph of the US Steel Duluth Works Site 2 Project Overview The United States Environmental Protection Agency (EPA)’s primary responsibility at Superfund sites is the protection of human health and the environment. Since 1995, it has also been EPA policy to consider reasonably anticipated future land uses when making remedy decisions at Superfund sites, so that the remediation of Superfund sites can allow for safe reuse for commercial, recreational, ecological, or other purposes. With forethought and planning, communities can help return sites to productive use without jeopardizing the effectiveness of the remedy put into place to protect human health and the environment. Across the nation, more than 400 former NPL sites are in productive reuse or plans for their reuse are under development. Fifteen thousand jobs are located on sites returned to commercial and industrial use, generating a half-a-billion dollar increase in annual incomes. Other sites are providing more than 60,000 acres for ecological and recreational uses. Reuse planning at NPL sites presents a unique set of obstacles, challenges, and opportunities. Superfund site designation represents a commitment from EPA that a site’s contamination will be remediated and that the site will be made safe for human health and the environment. However, several factors can complicate reuse considerations at these sites, including the level and complexity of contamination, the regulatory and liability scheme used to enforce site remedies, and unclear or resistant site ownership, which can lead to a lengthy and contentious remediation process. Any successful reuse planning effort must be mindful of how a site’s reuse and remediation will work together, must involve and expand the capacity of diverse stakeholders to meaningfully participate in the process, and must take into account the long time frames often involved in NPL site remediation. The City of Duluth, Minnesota received assistance from EPA’s Superfund Redevelopment Initiative in 2003 to work with a consultant team and key stakeholders, including the City’s Planning and Development Department, the U.S. Steel Corporation, and the Duluth Port Authority, with support from EPA and the Minnesota Pollution Control Agency (MPCA), to identify future land use opportunities for the US Steel Duluth Works portion of the St. Louis River/Interlake/U.S. Steel NPL site. The St. Louis River/Interlake/U.S. Steel NPL site includes approximately 135 acres of St. Louis River sediment and approximately 895 acres of surrounding land, river embayments, wetlands, and boat slips. The ‘Site’ includes two state Superfund sites, located four miles apart, along the St. Louis River’s northern bank: the St. Louis River/Interlake/Duluth Tar site (SLRIDT), located in West Duluth, and the US Steel Duluth Works site (USX), located in Morgan Park. EPA listed both areas as a single site on the NPL in 1983 due to contamination from hazardous substance discharges made by numerous companies between the 1900s and 1970s. This report, prepared by the project’s consultant team, presents the team’s fi ndings, including a conceptual reuse framework and market analysis. The report highlights key reuse considerations, opportunities, and challenges that the City of Duluth, the U.S. Steel Corporation, community organizations, EPA, and MPCA will need to keep in mind as the US Steel Duluth Works portion of the St. Louis River/Interlake/U.S. Steel Superfund site is remediated and returned to use. The project’s fi ndings are intended to inform the site’s remedial design and implementation as well as future community planning efforts. 3 4 Introduction Today, planning for the remediation of the 640-acre US Steel Duluth Works site is underway. The Minnesota Pollution Control Agency, the lead agency in charge of remediation at the site, is working with EPA to assess the site’s conditions and contaminants and develop remedial approaches for the site. Several years from now, the site’s remediation will be complete. Planning for the future use of the site today will help to ensure that the remedy and reuse can be coordinated. As a result, the site will not only have a remedy that will be protective of community residents’ health and safety, but the site will also be reintegrated into the community, ultimately helping to meet local needs and sustain the lcoal economy. This report is the product of an eight-month reuse planning process conducted by the City of Duluth to identify reuse opportunities and challenges for the US Steel Duluth Works portion of the larger St. Louis River/Interlake/U.S. Steel Superfund site. Working with a consultant team from E2 Inc., D.I.R.T Studio, and a group of key stakeholders, the City of Duluth managed the reuse planning process with support from MPCA and EPA. During the project’s eight month duration, the reuse planning process has involved: • research on the US Steel Duluth Works site’s history, contamination, and current remedial status; • coordination with the project’s consultant team to assess local market conditions and the potential impacts of industrial, residential, commercial, and recreational reuses at the site; and • identifi cation of key reuse considerations, opportunities, and challenges for the US Steel Duluth Works site. Based on these analyses and discussions between stakeholders, the project’s consultant team hereby presents the City of Duluth, US Steel Corporation, MPCA, and EPA with the project’s fi ndings for the US Steel Duluth Works Superfund Redevelopment Initiative project. The project’s fi ndings represent a signifi cant step that will inform the remediation and eventual reuse of the US Steel Duluth Works site. Sustaining community interest and involvement, creating of partnerships, and procurring resources are critical next steps. These steps will help to ensure that this report serves as part of an active and ongoing community discussion and continues to inform MPCA and EPA’s remedial planning for the US Steel Duluth Works site. Left Page: Photos of the US Steel Duluth Works Site, 2003 5 US Steel in the Upper Lakes Iron Range Country, 1908 (courtesy of Kenneth Warren’s Big Steel: the First Century of the United States Steel Corporation, 2001) 6 Duluth’s Regional History Northern Minnesota’s vast natural resources and the confl uence of the St. Louis River with Lake Superior helped to draw settlers to the area now know as the City of Duluth. Twelve thousand years ago, the region that now includes the City of Duluth was under one-mile-thick ice. However, by 5,000 B.C., several Paleo-Indian cultures had settled in the area. Native American tribes’ inhabitation of the area continued uninterrupted until 1793, when French settlers established the fi rst permanent trading post at the mouth of the St. Louis River, near the natural entrance to what would become Duluth Harbor. The fur industry dominated the region’s economy through the fi rst half of the 1800s. In the 1870s, the development of a shipping canal on Minnesota Point and the extension of a new railroad led to sustained regional population growth. Duluth’s population grew from 100 in 1869 to 33,000 by 1890, sustained by an economy rich in agricultural, timber, and iron ore resources. Iron ore from Minnesota and coal and lime from across the Great Lakes region were transported directly by boat and rail car to Duluth, helping to establish the city as a major center for steel production. By 1900, Duluth was considered a major port, with annual shipments of iron ore, lumber, grain, and general merchandise totaling nearly twelve million tons. In 1910, the US Steel Corporation selected the Duluth Works site as the location for a new steel manufacturing facility, which was fully constructed by 1916. The site was selected for its large size, proximity to the ore reserves, and location adjacent to Duluth’s inland port. The location allowed for low-cost shipping of steel products to national and international markets. US Steel’s facilities at the US Steel Duluth Works site operated between 1916 and 1979, operating as the American Steel Company until the 1940s. In the 1950s, Duluth’s agricultural, timber, and steel industries began to decline from the depletion of regional timber reserves, technological innovations, and fi erce competition from larger Chicago mills and foreign steel.
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