Communities of all sizes face the challenge of brownfields, including properties that are abandoned, derelict, or underutilized as a result of their prior use. These sites contribute limited economic or community value and often impede redevelopment efforts. Without coordinated planning, community engagement, and stakeholder collaboration for reuse, remediation, or redevelopment, brownfields typically remain underutilized.
Whether it is an abandoned steel mill, former manufacturing plant, closed gas station or even a once-vibrant community asset such as a turn-of-the-century school or hospital, brownfield sites can be found in any community whether urban or rural. They do, however, offer opportunities for improving environmental outcomes, advancing sustainability, and supporting increased community engagement and revitalization.
Defined by the U.S. Environmental Protection Agency (EPA) as, “properties that are or may be contaminated with hazardous substances, pollutants, petroleum, or other contaminants that pose a barrier to redevelopment,” brownfield remediation contributes to blight reduction, creates green space, and provides a range of infill development opportunities (U.S. EPA, 2019).
Neighborhoods and the broader community benefit from remediating and redeveloping or demolishing brownfield sites (Benton, 2025). From a quality-of-life and public-health perspective, remediating abandoned or underused sites creates a safer community and improves the first impression of an area.
The demolition of dilapidated sites can have clear public health benefits (Greenberg et al., 2001). Brownfield redevelopment can improve quality of life and public health by reducing exposure to environmental contaminants, mitigating blight, and supporting safer, more functional land uses. Redeveloped sites may increase access to green space, community amenities, housing, and employment opportunities, which collectively contribute to physical health, mental well-being, and neighborhood stability.
Redevelopment of brownfield and dilapidated sites encourages leaders and residents to collectively consider what is next for the property. Communities often want to take action related to deteriorated structures but are not sure where to start. A critical first step is comprehensive planning. This includes identifying community priorities, evaluating redevelopment options, and coordinating partners and resources to support long-term reuse.
Take the Lead
Community and economic development professionals or designated county land-reutilization corporations, often referred to as land banks in both urban and rural settings, can take the lead in guiding community conversations and collaborations while also providing the technical assistance needed to secure funding and develop a plan for the property’s next opportunity.
The redevelopment of brownfield sites often has significant cost hurdles (Burr & Forman, 2024). Funding is needed to support the required site studies necessary to secure grant resources for demolition, redevelopment strategies, and other related activities.
In Ohio, the eligible properties for brownfield funding include abandoned, idled, or under-used industrial, commercial, or institutional property where expansion or redevelopment is complicated by known or potential releases of hazardous substances or petroleum (ODOD, 2025). The potential for contamination also qualifies a property as a brownfield and makes it eligible for many funding opportunities.
Identify and Inventory Sites
In communities across Ohio, brownfield sites are identified and cataloged in a variety of ways. Ohio’s land bank system is one active method for brownfield site identification. Land banks often play an important role in identifying and revitalizing sites that may be contaminated due to previous industrial or commercial use (Benton, 2025).
According to the Ohio Land Bank Association, a majority of Ohio’s 88 counties (71 at the time of this writing) have established land banks. For counties or communities without an Ohio-approved land bank, the board of county commissioners, its local community and economic development organization, regional councils of government, and the Ohio EPA, may assist in identifying and mitigating brownfield structures and sites.
Land banks are typically special community-improvement corporations (Ohio Revised Code §1724, n.d.) established as county-level or municipal governmental entities that focus on the conversion or demolition of brownfield and other vacant tax-delinquent properties for a new and productive use. While they are created by government, land banks are considered quasi-governmental structures (Ohio Revised Code § 5722, n.d.) operating as private, non-profit corporations committed to a public purpose.
Land banks have unique legal powers that allow them to cost-effectively acquire properties through tax foreclosure, donation, or purchase, hold them tax-free, and transfer them to qualified end-users who place abandoned properties back on the tax roll.
Under Ohio law, land banks also access liability protections making it safer to take on brownfield sites (Benton, 2025). As the owner of last resort, these organizations have limited environmental liability protection for pre-existing contamination (Ohio Revised Code 5722.22, 2010).
County land-reutilization corporations (land banks) are immune from liability for violations of most Ohio environmental statutes (e.g., air pollution, solid waste, hazardous waste, water pollution) for contamination that existed before acquisition of a parcel. However, environmental due diligence (e.g., Phase I Environmental Site Assessment) must be performed to avoid liability under federal law.
For many communities, redevelopment is preferred for abandoned or underused sites such as industrial sites or brownfields for economic development. This is termed a smart growth option. “The objective of smart growth is to concentrate more building in already developed areas and less on disconnected open spaces,” (Greenberg et al., 2001). Depending on their location, the sites could be reutilized for community or economic-development purposes. Thus, smart growth options repurpose locations and return them as contributors to the local tax base.
The Planner’s Triangle is a concept introduced by Scott Campbell (Campbell, 2013) to describe the inherent conflicts in planning for sustainable development. It highlights the tension between three competing priorities:
- Economic development. Promoting growth, jobs, and investment.
- Environmental protection. Preserving ecosystems, reducing pollution, and managing resources sustainably.
- Social equity (social justice). Ensuring fairness, justice, and equal access to opportunities.
These three goals form the corners of a triangle while the center represents the ideal of sustainable development that balances all three ideals. However, in practice, planners often face trade-offs because advancing one goal can conflict with another (e.g., economic growth vs. environmental protection). In consideration of the Planner’s Triangle, brownfield redevelopment fits well with equity and social justice, environmental protection, and economic development.
Conduct Environmental Site Assessments
Once a property is identified by leaders for a redevelopment plan, an environmental site assessment conducted by trained and certified professionals will be required before applying for a funding grant.
The American Society for Testing and Materials (ASTM.org) develops a wide range of voluntary standards. These standards are U.S. EPA compliant with the federal All Appropriate Inquiries (AAI) rule (Hunter et al, 2022). This U.S. EPA rule establishes the standards and practices for evaluating a property’s environmental conditions and assessing potential liability for contamination under the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) (epa.gov/superfund/superfund-cercla-overview), more commonly known as the Superfund. This federal law addresses the cleanup of hazardous waste sites and holds responsible parties liable for contamination.
The AAI rule provides the process for conducting due diligence to determine if contamination exists before acquiring property. It also provides a basis to qualify for liability protections under CERCLA (e.g., as an innocent landowner, contiguous property owner, or bona fide prospective purchaser).
As a bona fide prospective purchaser, innocent landowner, or contiguous-property owner, the CERCLA Phase I assessment is a due diligence process used to identify potential environmental contamination on a property. “Phase I environmental site assessments are a form of environmental due diligence for property transactions involving a public records review, interviews with persons knowledgeable about the site, and a noninvasive survey of certain aspects of the site,” (Hunter et al., 2022).
Phase I Site Assessment
The National Association of Development Organizations (NADO) has identified the goals of a Phase I Site Assessment:
- establish a minimum level of inquiry for the Phase II Environmental Assessment by evaluating historical uses of the site
- identify areas on or adjacent to the property where hazardous substance discharges occurred or potentially occurred
- determine, if necessary, the types of investigation and sampling that should be included in the Phase II assessment
The Phase I review includes a records review to examine current and past land uses. It includes maps, photos, and historical records. Previous ownership and a diagnosis of whether hazardous materials were used and how they were managed are also included. Assessment experts conduct a physical examination of the site for current conditions and interview owners and community leaders.
Once completed, the Phase I study determines if a more in-depth Phase II Environmental Assessment (ESA) is needed. In addition, some sites may also require a remedial action plan. This plan guides the site-specific methods for contamination remediation. It identifies, assesses, and provides recommendations for mitigation of environmental safety or public health concerns at the site.
A Phase II ESA requires a subsurface investigation to confirm the presence, type, and extent of contamination through physical testing. Its key components include sampling of key target areas identified in the Phase I study findings. As necessary, field investigators collect samples of soil, ground and surface water, and air samples. The samples are then lab tested and analyzed for contaminants. Once lab results are available, teams determine the potential human or ecological risks and if further remediation is needed. This may lead to a Phase III ESA which includes remediation planning and implementation.
The third phase is often referred to as an Analysis of Brownfield Cleanup Alternatives (ABCA). This document is prepared for the U.S. EPA to evaluate and compare potential cleanup options for a contaminated property or brownfield site. This assessment is a required part of a brownfield-cleanup grant application and involves analyzing factors like effectiveness, cost, site characteristics, and future reuse plans. It helps guide decision-making on how to best remediate a site to ensure it is safe for its planned reuse.
The ABCA report summarizes the site history, previous uses, and past assessment findings. It also details the results of any environmental studies (Phase I and II assessments) that have identified contamination. It helps guide decision-making on how to best remediate a site to ensure it is safe for its planned reuse.
Community Engagement
For brownfield projects, community engagement is a critical tool. Brownfield sites often have historical, environmental, and economic implications for local residents. Effective engagement helps build trust, ensure transparency, and incorporate local priorities into collective community redevelopment plans.
A few recommended types of community engagement strategies include public meetings or workshops, surveys, stakeholder advisory committees, and regular communications. It is best practice for community engagement to be performed before environmental assessments and continued through cleanup and redevelopment. Incorporating community vision early helps ensure long-term success.
Brownfield Stages
“The three stages of the brownfield redevelopment process are pre-development, development, and management. Each stage requires specific actions, funding and/or financing. Integrating cleanup and redevelopment activities as appropriate at each stage is the key to cost-effective, sustainable brownfields redevelopment,” (U.S. EPA, 2019).
Potential Funding for Brownfield Projects
Private Capital
Estimating costs for brownfield redevelopment is often difficult because of the many variables involved. Considerations include site investigations and studies, remediation efforts, demolition of structures, and other potential unknowns. The economics of “if and when” a return on investment will occur are also to be carefully considered as short-term benefits are often uncertain (Greenberg et al., 2001).
Another factor to consider when attracting private capital for redevelopment is the many and varied permitting issues at the local, state, and federal levels. The bottom line is that development in greenfield areas is simply easier and less costly. However, from a social and environmental perspective, redevelopment of brownfield sites contributes to a community’s quality of life. “With the economic uncertainty caveat noted, brownfields redevelopment has environmental, political, and moral advantages,” (Greenberg, et al., 2001).
Grants and Loans
The following grant and loan resources are available for communities considering ways to obtain redevelopment funds. Each of these resources has changing application availability, matching funds requirements, deadlines, and focused priorities. In addition, they are all fiercely competitive and demand usually outpaces the availability of funding.
Funding sources include federal funding through the U.S. EPA, or state funding through the Ohio EPA and the Ohio Department of Development. In addition, unless otherwise earmarked to counties, some funding resources are targeted specifically to Ohio Land Bank Reutilization organizations who are identified as being solely eligible for the funds.
Ohio EPA, U.S. EPA, and the Kansas State University Technical Assistant to Brownfields (KSU TAB) offer no-cost technical assistance that includes many pre-remediation planning activities. U.S. EPA and Ohio EPA also have targeted brownfield assistance (TBA) programs that offer Phase I and Phase II assessments at no cost to communities.
Some of the grant programs may include funds that cover up to 75% of a project’s total cost with a 25% local match required. In addition, Ohio funds may sometimes be earmarked for county use and are made available to their identified lead entities. If not accessed by the individual counties, they are made available competitively across the state.
Some grant programs offer rolling cycles of funding, with no set deadline. However, these are often very competitive, and funds are used quickly. Other programs may have set application timelines and deadlines.
A community needs to review each program’s guidelines to determine eligibility, timelines, who the lead applicant can or should be, and if the program covers brownfield Phase I and II assessments, asbestos remediation, and geophysical surveys or demolition.
The Ohio Brownfield Fund, available through the Ohio Water Development Authority (owda.org), provides direct loans for a community’s “voluntary action” for the remediation of contaminated property and provides a promise from the State of Ohio that no more cleanup is needed. The Ohio Abandoned Gas Station Clean Up program with the Ohio Department of Development (ODOD) in partnership with the Ohio EPA and the Department of Commerce, Bureau of Underground Storage Tank Regulations (BUSTR), helps clean up Ohio’s abandoned gas and service stations through funds available in the ODOD brownfields program.
JobsOhio, the state’s economic development organization, also has options through its Revitalization Loan and Grant Fund. Its primary focus is on projects where the cost of redevelopment and remediation exceeds the value of the land and where a site cannot be competitively developed in the current marketplace (Bricker-Graydon, n.d.).
There is also a Vibrant Communities program supporting economic development in small- and medium-sized communities. The Vibrant Communities program focuses on distressed communities that may not have adequate resources to develop and implement economic development projects to attract private investment and create new jobs. The program was established to assist distressed small- and medium-sized communities with the implementation of catalytic development projects that fulfill a market need and represent a significant reinvestment in areas that have struggled to attract new investment.
Job creation is also required for each funding eligibility. These grant and/or loan funds are only offered on a reimbursement basis.
Other Funding Options
Other funding options are available for local Tax Increment Finance (TIF) or “special assessment” districts. Local, state, or federal programs may offer tax credits, loans, incentives, abatements, bonds, subsidiaries, or grants. For land banks, delinquent tax and assessment collection (DTAC) fees are also a resource for funding. This statutory 5% fee is charged to all local subdivisions based on their delinquent tax revenue (Ohio Land Bank Association, 2022).
Summary
Community leaders, economic development professionals, and land banks play a central role in initiating brownfield redevelopment efforts, securing brownfield funding, and guiding collaboration. A wide variety of tools and funding resources support community development work around brownfield sites and properties that may be contaminated which poses barriers to redevelopment.
Brownfields, common in both rural and urban settings, include abandoned industrial facilities, gas stations, rail yards, and former public buildings. Redevelopment offers environmental, social, and economic benefits such as blight reduction, improved community aesthetics, public health, and environmental outcomes, in addition to revitalizing tax bases.
Brownfield Example
A rural Appalachian community focused on redeveloping a brownfield site in the middle of the Sarahsville village limits that once operated as a community school (Figure 5).
Sarahsville is located in a rural Appalachian Ohio County. For this reason, the former school site was considered a weak market area with limited options for private financing. Remediation and redevelopment of the site was a public-led brownfields redevelopment project.
Community leaders in a county with no established land reutilization bank (i.e., land bank), leveraged funding made available through the local development district from the U.S. EPA to complete technical assistance in obtaining the Phase I environmental assessment and remediation plan. Utilizing those reports, they applied for demolition assistance through the Ohio Department of Development county-earmark program.
Key project partners included the Board of Noble County Commissioners, the Ohio State University Extension Community Development educator (i.e., the local economic development organization), Buckeye Hills Regional Council (i.e., the local development district), the Noble Community Improvement Corporation, and T&M Engineering, a private engineering firm contracted through the Buckeye Hills Regional Council grant programs.
Additional support for technical assistance was sought by the site owner, the Noble County Community Improvement Corporation (CIC), who took control of the site through voluntary purchase. The CIC partnered with the U.S. EPA-funded Kansas State Extension Technical Assistance Brownfields (TAB) program to complete community engagement through a survey, meetings, and a market-assessment plan.
Community engagement was conducted in partnership with the Ohio State University Extension Community Development team in Noble County, and the Kansas State University Extension Technical Assistance to Brownfields program. Engagement included an early community survey provided online and in paper copy form to help capture resident input and priorities, as well as concerns and redevelopment ideas. Following the survey, the team convened a public meeting with an informational and interactive workshop to share results and gather additional input and discussion. The team also engaged local media for coverage and transparency.
|
|
Expenses |
|
Revenue |
|
CIC site purchase |
$45,789.94 |
Rent |
$1,500.00 |
|
Insurance |
$1,665.00 |
Oil and Gas Rights |
$135,179.00 |
|
Property survey |
$1,000.00 |
|
|
|
Lawn care: Summer 2025 |
$1,000.00 |
|
|
|
Tree removal |
$800.00 |
|
|
|
|
$50,254.94 |
Total |
$136,679.00 |
|
Grants |
|
|
|
|
Buckeye Hills U.S. EPA TA for Phase 1 Environmental |
U.S. EPA grant |
|
$10,000.00 |
|
Ohio Dept. of Development, Brownfield Site Cleanup and Demolition |
Ohio Dept. of Development grant |
|
$250,000.00 |
|
Kansas State TAB, Technical Assistance Services (Community Engagement & Market Study) |
U.S. EPA grant |
|
$16,370.00 |
The Table 1 budget details the site acquisition and demolition costs. Redevelopment outcomes and costs are still in the planning stages. Leaders have discussed a park project and housing as there is a high demand for housing in Noble County, Ohio. Potential housing developers are being identified and budgets are being considered.
Glossary of Terms & Acronyms
ABCA. The Analysis of Brownfield Cleanup Alternatives outlines the evaluation process for selecting the most appropriate cleanup method for a contaminated site.
All Appropriate Inquiries (AAI). A U.S. EPA rule that establishes the standards and practices for evaluating a property’s environmental conditions and assessing potential liability for contamination under the Comprehensive Environmental Response, Compensation, and Liability Act. AAI is the process of conducting due diligence before acquiring property to determine if contamination exists and to qualify for liability protections under CERCLA.
Bona fide. The Bona Fide Prospective Purchaser (BFPP) defense under the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA). A bona fide prospective purchaser is someone who buys a property with knowledge of contamination but is protected from CERCLA liability if they meet specific conditions.
Brownfield. Defined by the U.S. Environmental Protection Agency (EPA) as a property where the presence or potential presence of a hazardous substance, pollutant, or contaminant complicates its expansion, redevelopment, or reuse.
BUSTR. Acronym for Bureau of Underground Storage Tank Regulations.
CERCLA Acronym for the U.S. EPA’s Comprehensive Environmental Response, Compensation, and Liability Act.
CIC. Acronym for .Community Improvement Corporation.
DTAC. Acronym for delinquent tax and assessment collection fees.
Due diligence. The process of conducting a thorough investigation and analysis before deciding or taking action.
EPA. Acronym for the Environmental Protection Agency
ESA. Acronym for environmental site assessment.
Fatal flaw determination. Before significant resources are invested, this is the process of identifying any critical issues or obstacles that could make a project unfeasible or prohibitively risky. This early risk assessment provides information to assist in the decision of proceeding with or abandoning a project.
Land bank. An Ohio land bank is a county land reutilization corporation created under Ohio Revised Code 1724 and 5722 to acquire, manage, and repurpose vacant, abandoned, or tax-delinquent properties.
ODOD. Acronym for the Ohio Department of Development.
OWDA. Acronym for the Ohio Water Development Authority.
Proforma. A financial projection or model that estimates the expected costs, revenues, and returns for a proposed project.
TAB. Acronym for the Technical Assistance Brownfields program.
TBA. Acronym for targeted brownfield assistance programs.
TIF. Acronym for tax increment financing.
Additional Resources
- Abandoned Gas Station Cleanup Grant
(development.ohio.gov/community/redevelopment/abandoned-gas-station-cleanup-grant) - Assessing Brownfield Sites
(epa.gov/sites/default/files/2020-07/documents/assessing_brownfield_sites.pdf) - ASTM International
(astm.org) - JobsOhio Vibrant Communities Program
(jobsohio.com/incentives-programs/support-for-communities/vibrant-communities) - MS Co-Pilot
(copilot.microsoft.com) - Ohio Water Development Authority (OWDA), Brownfield loan program
(owda.org/brownfield-loan-program) - Ohio Revised Code §122.6511 | Brownfield remediation program
(codes.ohio.gov/ohio-revised-code/section-122.6511) - Urban design link in brownfield redevelopment
(iedconline.org/clientuploads/Economic%20Development%20Journal/EDJ_08_Spring_Bacon.pdf)
References
Benton, L. (2025). Land banks and brownfield redevelopment: Emerging practices and practical considerations. Center for Community Progress.
communityprogress.org/wp-content/uploads/2025/02/2025-01-land-banks-brownfields-practical-considerations.pdf
Bricker Graydon LLP. (n.d.). Economic incentives toolkit.
brickergraydon.com/insights/resources/key/Economic-Incentives-Toolkit
Burr & Forman. (2024). The role of brownfields in economic development: Turning challenges into opportunities.
burr.com/newsroom/articles/the-role-of-brownfields-in-economic-development-turning-challenges-into-opportunities
Campbell, S. D. (2013). Sustainable development and social justice: Conflicting urgencies and the search for common ground in urban and regional planning. Michigan Journal of Sustainability, 1.
dx.doi.org/10.3998/mjs.12333712.0001.007
Greenberg, M., Lowrie, K., Mayer, H., Miller, K. T., & Solitare, L. (2001). Brownfield redevelopment as a smart growth option in the United States. Environmentalist, 21, 129–143. link.springer.com/article/10.1023/A:1010684411938
Hunter, J., Rich, C. W., & Carmody, J. E. (2022). EPA adopts new ASTM standard for Phase I environmental site assessments. Perkins Coie LLP.
perkinscoie.com/insights/update/epa-adopts-new-astm-standard-phase-i-environmental-site-assessments
Ohio Department of Development (ODOD). (2025). Brownfield remediation program.
development.ohio.gov/community/redevelopment/brownfield-remediation-program
Ohio Land Bank Association. (n.d.). The history, Ohio land banks.
ohiolandbanks.org/about.html
Ohio Revised Code §1724. (n.d.). Community improvement corporations.
codes.ohio.gov/ohio-revised-code/chapter-1724
Ohio Revised Code §5722. (n.d.). Land reutilization program.
codes.ohio.gov/ohio-revised-code/chapter-5722
Ohio Revised Code §5722.22. (2010). Immunity of land reutilization corporation.
codes.ohio.gov/ohio-revised-code/section-5722.22
U.S. Environmental Protection Agency (U.S. EPA). (2019). Anatomy of brownfields redevelopment. Office of Brownfields and Land Revitalization (5105T).
epa.gov/system/files/documents/2024-06/anat_bf_redev_101106.pdf