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The condition of vacant properties is a critical aspect of the redevelopment process. Currently there is no protocol to assess the level of contamination or physical suitability of vacant properties before they are considered for redevelopment. Even when vacant properties are slated for redevelopment they are not routinely tested for contamination. Why is lot assessment important? The issue of equity is key to redeveloping vacant lots in a responsible and
sustainable manner. A disproportionate level of risk due to environmental
hazards stemming from poor lot conditions affects low-income,
minority populations in areas of high
vacant lots density. Knowing about lot conditions can also play an
important role in determining the best uses and costs of redevelopment projects.
For example, when a local community group applies to the PRA to purchase and
redevelop vacant lots, the PRA could determine which lots would be best suited
for urban gardens versus off street parking or a tot-lot. The level of soil
contamination and the cost of clean up for different lots can significantly
alter a redevelopment proposal’s budget and schedule. Knowing this information
before redevelopment begins can lead to a more efficient and responsible type of
lot transfer. Brown University, Center for Environmental Studies Lot Survey. In 1997, Brown University’s Center for Environmental Studies in conjunction with the Department of Public Works (DPW) conducted visual surveys of vacant lots in Providence. Students and the City surveyed lots for the presence of litter, debris, nearby hazards, surrounding utilities and adjacent uses. This study determined that 595 vacant lots posed "health and safety hazards" to the public. The definition of "health and safety hazard" is based on a ranking system of high, medium and low risk determined by the level of priority for clean up. Environmental violations are issued to lots cited for environmental violations (Map 6, Environmental Violations 1999). Environmental officers from the DPW issue a ticket (fine of up to $100) to the owners of the property with solid waste violations, evidence of rats, etc. What are the Major Soil Contaminants and what are their origins? Although there hasn’t been enough soil testing in Providence to determine
conclusively which contaminants are the most prevalent, some historical research
into land uses can shed light on the issue. Some level of soil contamination can
be suspected on vacant lots because of their previous uses. Houses once stood on
a majority of the vacant lots that now blight the city’s landscape. Many of
these old houses were either burned or demolished on site. It was common
practice to bury the housing debris into the basement or in a pit on the
property instead of paying hauling fees to take debris to a landfill. This type
of demolition left behind contaminated soil from housing debris such as lead
paint, underground storage tanks, plumbing or insulation. Soil lead
contamination is one of the major contamination concerns because of the presence
of lead-based paint from old housing stock and its effects on young children.
Arsenic is another soil constituent naturally occurs in most Rhode Island soils
but which may be higher in Providence soils because of industrialized uses. In some cases, past commercial uses such as plating shops, gas stations, or dry-cleaners also may have contributed to soil contamination on vacant lots. Each of these uses could have left behind a specific type of contamination: gas stations and UST’s – oily substances, dry-cleaners - TCE, jewelry plating shops – heavy metals (i.e. chromium, copper, cadmium. Screening soil for all the possible contaminants that may exist from previous commercial/industrial activity would be costly and time-consuming. Unless the previous uses of the property are known (which maybe difficult if a plating shop was run illegally, for example) it is difficult to know which contaminants to test for. Soil contamination can also be a direct result of litter or debris that is dumped onto vacant lots. Illegal dumping that occurs on vacant properties can contribute to the level of risk associated with a lot’s condition. What are the environmental health risks associated with soil lead and arsenic contamination? Children are especially vulnerable to lead poisoning from soil lead contamination. This is true because lead-contaminated soil clings to fingers, toys, and other objects children normally put in their mouths. This is the most common way that lead in soil is ingested by children. Lead does not pass through unbroken skin. The following are websites with more information on the health risks associated with lead poisoning: http://www.atsdr.cdc.gov/cxlead.html, www.hud.gov/lea, http://www.cdc.gov/nceh/programs/lead/lead.htm, http://www.epa.gov/opptintr/lead/index.html.
EPA's Soil Lead Testing: The following are average concentrations of soil lead from this study (Appendix A):
The US Environmental Protection Agency's Urban Environmental Initiative conducted soil lead testing on 67 vacant lots (mostly in South Providence in 1998-99, Map 7, Vacant lots tested by the EPA). EPA officials tried to coordinate their efforts with the city's Planning Department who owned the vacant properties and a local community organization, Direct Action for Rights and Equality (DARE). Soil Lead Abatement Tips from the Department of Health:
. What are the costs associated with soil testing and remediation? Small (average lot size = 4,000sq.ft.), residential properties like vacant lots in South Providence are currently not eligible for federal funds to study and clean up contamination as is the case for large industrial sites called Brownfields. The cost for vacant lot testing and remediation poses significant financial hurdles for low-income residents who may otherwise be interested in redeveloping (owning) a vacant lot. Therefore it is important for the City to assess lots before the transfer of property to residents. The cost for removal of lead contaminated soil in RI is usually cheaper than in other states because of Rhode Island's Household Hazardous Waste Exception, stating that lead waste that is generated from residentially zoned property may be treated as household, vs. hazardous, waste. Recent price quotes were obtained from a local lead testing consulting company (quotes include labor, equipment, materials and disposal of waste):
CleanScape Lots: CleanScape is a subsidiary of the South Providence Development Corporation, a non-profit organization that runs a recycling and composting facility with employees from South Providence. The organization negotiated a "sole-source" contract with the Providence Redevelopment Agency for the maintenance of 21 vacant lots in South Providence. The reasons for this clean-up were noted by the PRA as, "due to a time-of-essence need to implement the vacant lot clean up and redemption due to severe public safety and health hazards and other emergency conditions associated with these vacant lots in the primary cleaning season." Usually the City’s Department of Public Works would be responsible for clean up and maintenance of the PRA lots but because the lots were leased to CleanScape they were charged with the clean up instead. CleanScape charged the city approximately $2500 per lot to perform basic clearing, clean up, and landscaping. Some of the lots require more expensive cleanup because of the heavy debris left on the properties, such as concrete foundations. Other lots were actively being used as off-street parking, making cleanup impossible and a few of the lots were overgrown with trees and weeds so much so that it would require heavy equipment beyond the allotted budget to clear them. Soil Lead Testing of CleanScape Lots: CleanScape gave me permission to test their 21 lots for lead and a few other heavy metals (arsenic, cadmium, chromium and copper). I was unable to test every lot for the some of the same reasons that impeded CleanScape from clearing the lots (off-street parking, heavy debris, etc). In addition to this, some lots had a fresh layer of topsoil dumped on top which negated the potential for discovering lead in the soil. Thirteen of the 21 lots were tested. None of the lots tested showed significant levels of copper, chromium or cadmium. The results for lead are summarized in the table below and the complete methodology (sampling and analysis) is described in Appendix B. CleanScape lots soil lead test results:
Appendix B)
How to incorporate lot assessment into the redevelopment process? A comprehensive soil testing and surveying initiative should be implemented for all City/PRA owned vacant lots prior to redevelopment projects occurring. By assessing lot conditions early, the PRA could identify clean lots as prime for redevelopment projects. Lots requiring more significant clean-up efforts could be prioritized for redevelopment based on the funding and interest available for particular lots.
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by Ana Baptista
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