Rawleigh Complex Redevelopment

Transcription

Final: May 23, 2002
Rawleigh Complex
REUSE STUDY
AND
F R E E P O R
OPPORTUNITIES ANALYSIS
I L L I N O I S
T ,
Rawleigh Complex Reuse Plan
Final: 5/23/02
Table of Contents
Table of Contents .......................................................................................................................................................................... 1
Rawleigh Complex Reuse Study and Opportunities Analysis................................................................................................... 3
INTRODUCTION ........................................................................................................................................................................................................ 3
Purpose of Reuse Study................................................................................................................................................................. 4
TIMELINE OF ACTIVITIES TO DATE................................................................................................................................................................................ 4
PROJECT AREA ........................................................................................................................................................................................................ 4
Regional Analysis .......................................................................................................................................................................... 5
Figure 1: Regional Analysis................................................................................................................................................................................................................................5
I-90 REGIONAL CITY ................................................................................................................................................................................................ 5
Figure 2: I-90 Regional Midpoint .......................................................................................................................................................................................................................5
Figure 3: Concentrated Investment Districts.........................................................................................................................................................................................................6
CHICAGO TO DUBUQUE TOURISM CORRIDOR ........................................................................................................................................................... 7
FREEPORT TO MADISON ENTERTAINMENT CORRIDOR ................................................................................................................................................. 7
Local Analysis ................................................................................................................................................................................ 8
Figure 4: Local Connections................................................................................................................................................................................................................................9
PROJECT AREA ANALYSIS ....................................................................................................................................................................................... 10
Figure 5: Redevelopment Zone Opportunities.....................................................................................................................................................................................................11
Rawleigh Complex Conceptual Reuse Strategy...................................................................................................................... 12
PROJECT AREA REDEVELOPMENT THEMES ............................................................................................................................................................... 12
Figure 6: Chicago to Debuque Excersion Rail Corridor ....................................................................................................................................................................................12
Figure 7: Madison to Freeport Entertainment Corridor.....................................................................................................................................................................................13
Figure 8: Regional Arts Investments .................................................................................................................................................................................................................14
RAWLEIGH COMPLEX PROPOSED BUILDING REUSE................................................................................................................................................... 15
Figure 9: Rawleigh Complex Reuse Strategy......................................................................................................................................................................................................17
RAWLEIGH COMPLEX REDEVELOPMENT ZONE ......................................................................................................................................................... 19
Figure 10: Rawleigh Complex Redevelopment Zone...........................................................................................................................................................................................21
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Implementation Strategy............................................................................................................................................................ 23
PROJECT MANAGEMENT ........................................................................................................................................................................................ 23
FUNDING STRATEGY ............................................................................................................................................................................................... 23
NEXT STEPS ............................................................................................................................................................................................................ 24
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Rawleigh Complex Reuse Study and Opportunities Analysis
INTRODUCTION
The Rawleigh Complex (the Complex) is comprised of three large buildings once used for production and
storage of items ranging from spices to health care products to cleaning supplies. Construction of these
facilities began in 1904 and ended in approximately 1956. Ultimately, the Complex had more than 400,000
square feet of manufacturing, warehousing, laboratory, and office floor space.
The W.T. Rawleigh Company, once known as the W.T. Rawleigh Medical Company, specialized in the
production of medical products, such as anti-pain oil, camphor balm, liniments, and cough syrup, and
diversified into items including spices, inks, shampoos, and cleaning supplies. Company founder, W.T.
Rawleigh, traveled the world in search of raw materials for his thousands of products, bringing them back to
his Freeport facilities for analysis and processing. The Rawleigh Company used a direct-to-customer or doorto-door sales approach to marketing. “The Rawleigh Man” traveled the countryside selling products from
farm-to-farm. However in the late 1980s, the business model that had sustained the company for over eighty
years came to an end with W.T Rawleigh Company filing for bankruptcy. In 1989, Golden Pride International
purchased certain assets of the W.T. Rawleigh Company in the United States and Canada. Today, Rawleigh
products can still be purchased throughout the world.
However, the Rawleigh Complex was mothballed and ultimately abandoned by the W.T. Rawleigh Company,
leaving a set of structures that not only became an eyesore for the community, but became a major health
hazard as well. The company had not only abandoned the buildings, but also left in place fully stocked
chemical labs and above and below ground storage tanks filled with a variety of petroleum products and
chemicals.
Over the last three years, in close cooperation between the City of Freeport, the Illinois Environmental
Protection Agency (IEPA), and the U.S. Environmental Protection Agency (USEPA), the USEPA’s
Emergency Response Branch mobilized to remove these contaminants from the structures. The USEPA
successfully addressed the major environmental concerns on the property. The City is in the process of
addressing the few remaining potential environmental concerns and is confident that these issues can be most
effectively addressed during the redevelopment of the property.
Since the immediate environmental issues have been largely mitigated, the City has refocused its energies at
returning the Rawleigh Complex site back to productive use, providing tax base and jobs for the City once again.
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Purpose of Reuse Study
This reuse study of the Rawleigh Complex and the adjacent area surrounding the Complex is intended to be a roadmap for redeveloping the
Rawleigh Complex, revitalizing the surrounding areas, and reinvigorating the economic health of the community. The proposed reuse strategy for
the building is based upon an opportunities analysis of regional and local market and redevelopment opportunities. Revitalization of the Rawleigh
Complex will require a significant commitment by the City, the creative and political leadership of the community, and an understanding of scope
and scale of implementing a project of this magnitude. This study is intended to lay out a number of options and ideas for the reuse of the property
and how to reposition the City to take advantage of its key assets, but is only the first step in the process. Significant work and resources will be
required to successfully implement this project. Key next steps are also identified to provide direction on how to proceed.
TIMELINE OF ACTIVITIES TO DATE
A significant amount of preparatory work has been completed over the last three years to position this project to move forward. A timeline of
activities includes:

March 1999—IEPA awarded City $120,000 Brownfield Redevelopment Grant
October 1999—IEPA conducted a redevelopment assessment.
November 1999—USEPA conducted a removal site assessment.
July-October 2000—USEPA conducted a removal action.
December 2000—City receives funding for brownfields clean up from U.S. Housing and Urban Development
April 2001—USEPA awards City Brownfields Assessment Demonstration Pilot Grant to conduct environmental assessment and develop a
conceptual reuse plan for the Rawleigh Complex
December 2001—Phase I Environmental Site Assessment is completed for Rawleigh Complex
March 2002—IEPA awarded the City an additional $120,000 for environmental assessment
May 2002—Conceptual Rawleigh Complex Reuse Plan
PROJECT AREA
The project area is bound by State Street to the west, East Linden Street to the north, the rail corridor to the east, and Jackson Street to the south.
The extension of the project area beyond the Rawleigh Complex allowed analysis of the Complex’s reuse potential in the context of a larger
redevelopment project area.
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Regional Analysis
Figure 1: Regional Analysis
Defining the future potential reuses of the Rawleigh Complex begins with an
examination of the regional context in which Freeport lies. Freeport is
geographically located approximately twenty miles west of Rockford on US
Highway 20, one hundred-twenty miles northwest of Chicago, and seventy-five
miles south of Madison, Wisconsin.
Freeport’s economy is driven heavily by three emerging economic corridors.
These corridors reflect the evolving economic activity that is currently and will
define the economic health of Freeport. These corridors also represent an
opportunity for Freeport to position itself for harnessing these regional economic
forces to revitalize Freeport’s downtown and the Rawleigh Complex itself. These
corridors include:

The I-90 Regional City from Chicago to Madison
The Chicago to Dubuque Tourism Corridor
The Freeport to Madison Entertainment Corridor
Figure 2: I-90 Regional Midpoint
I-90 REGIONAL CITY
The City of Freeport’s location within the I-90 Regional City, as defined in the I-90 Regional Vision
Project, creates numerous economic and development opportunities for Downtown Freeport and the
Rawleigh Site (Figure 2). Based on the I-90 Regional Vision Project, the I-90 Regional City is defined as
the I-90 transportation corridor that runs between Madison to the north and Chicago to the south. As
regions increasingly are in competition with other regions for economic activity, the I-90 corridor is
rapidly emerging as an interdependent regional economy. It is becoming the lifeblood of communities
within the corridor and is increasingly being seen as a way to position communities for economic
growth. If properly planned and implemented, the I-90 Regional City could provide the backbone for
the economic growth and physical development for communities within the region, including Freeport.
Further, this regional economy has the opportunity to nurture and attract companies and employees that
are necessary for the growing biotechnology economy.
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Figure 3: Concentrated Investment Districts
Stephenson, Boone, Ogle, Winnebago Counties, Illinois and Rock County,
Wisconsin make-up what has been named the Regional Midpoint. Within this
midpoint, the I-90 Regional Vision Project identified numerous economic, land
use, and redevelopment opportunities (Figure 3). The recommendations that
could directly impact the Rawleigh Site include the following:

Creation of an identity and image for the I-90 Corridor and the Regional
Midpoint.
Development of a recreational bike trail line from Rockford to Galena,
via Freeport.
Rehabilitation and redevelopment of Downtown Freeport
Expansion of Highway 20 west of Freeport
Strategic growth and development of the Highway 20 Corridor between
Rockford and Freeport
Greater density and intensity of development at the Highway 20
Freeport bypass
Preservation and enhancement of the recreational resources, specifically
the Pecatonica River
The reuse scenarios for the Rawleigh Complex must be aligned and take
advantage of this emerging regional economic activity. Tying into and
positioning the City of Freeport to take advantage of this growing economic
region will be at the heart of Freeport’s ability to thrive in the future.
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CHICAGO TO DUBUQUE TOURISM CORRIDOR
The Chicago to Dubuque Corridor is a heavily traveled tourism corridor, running along Interstate-90 to Rockford and U.S. Highway 20, to
Freeport and Galena, Illinois, and Dubuque, Iowa. With its river views and historic downtown, Galena is an important player in Illinois’ tourism
economy with an estimated 1.3 million visitors to Jo Daviess County each year and approximately sixty-five percent of those visitors coming from
the Chicago area. Across the Mississippi River in Dubuque, thousands of visitors travel there each year with many coming from metro Chicago.
Freeport has a tremendous opportunity to increase its presence in this corridor by becoming a destination through the development of tourism
venues. Given its proximity to metro Chicago, Freeport could capture a significant number of leisure travelers if it can create and package
attractions that will make people want to come to the City. The Rawleigh Complex represents a significant opportunity for the City to create a
major destination hub that could in turn spur the revitalization of the adjacent area and the downtown itself.
FREEPORT TO MADISON ENTERTAINMENT CORRIDOR
Freeport is connected to the City of Madison by Illinois Highway 26/Wisconsin Highway 69. Between the two cities are a “string” of rural
communities, including Paoli, New Glarus, and Monroe, which have unique artisan galleries, restaurants, breweries, museums, stores highlighting
locally produced goods, and other attractions. The Jane Addams Trail is a planned recreational trail that will allow bicyclists to travel between
Freeport and Madison. Freeport has an opportunity to build upon these unique entertainment venues and draw from visitors within the
entertainment corridor. Freeport could serve as one bookend of this emerging corridor of activity, positioning itself to be a destination or
launching point for people to explore the unique attributes of this corridor.
This corridor is also emerging as a source of locally produced food products. Freeport has a number of unique locally owned and operated food
companies that could be packaged with these other communities’ products. This strategy, which is outlined in more detail later in this study, could
be a major impetus to reposition Freeport’s identity and create destination travel to the City.
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Local Analysis
The Rawleigh Complex is located at a convergence point of road, rail, and recreational trails. (See Figure 4.) Downtown Freeport is located
southeast of the U.S. Highway 20 and Illinois Highway 26 interchange. Highway 20 serves as the major transportation corridor running west from
Rockford into Iowa, while Business 20 links the downtowns of Belvidere, Rockford, Freeport, and Galena. Illinois Highway 26 changes to
Wisconsin Highway 69 at the state line and connects Freeport to the Madison metropolitan area. The active rail line runs from Chicago to Galena
and on westward. The planned Jane Addams Trail and Pecatonica Prairie Path recreational trails will connect Freeport to Madison and Rockford
respectively, and Tutty’s Crossing will serve as a regional trailhead.
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Figure 4: Local Connections
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PROJECT AREA ANALYSIS
Many potential redevelopment sites, which offer the community great opportunity to change the image of the riverfront district, are located within
the project area.
Of special interest within the project area is:

Furst-McNess: The Furst-McNess company specializes in the production of farm feeds and consumer food products. In recent years, it
has diversified its consumer food product offering with the creation of the Terrapin Ridge label, which focuses on the development of
high-quality mustards, sauces, and other condiments. The Furst-McNess complex of buildings lies at one end of the redevelopment area
with the Rawleigh Complex at the other end. The company serves as a major anchor both, physically and economically, for the area.
Tutty’s Crossing: The former manufacturing site is currently being cleaned up and positioned for redevelopment as a major trailhead for
the regional bike trail system being constructed. Construction for the development of this site is targeted for late summer/fall 2002.
Lincoln-Douglas Debate Square: On August 27, 1858, Abraham Lincoln and Stephen A. Douglas met in this square in one of their
seven famous debates across Illinois during their campaign for a U.S. Senate seat.
Union Dairy: Union Dairy has a “dairy bar,” which serves ice cream, sundaes, and novelty treats produced in its onsite manufacturing
facilities.
City Lights: The former Germania Club, a private restaurant and club, currently known as the City Lights building, has a rich legacy in
Freeport’s history. The building, currently vacant, is located between the Rawleigh Complex and the downtown. It is in a state of serious
disrepair and presents a development challenge that will need to be addressed as part of the larger downtown redevelopment project area.
Proposed New Library: A new library is planned to be constructed within the project area and will serve to revitalize a blighted parcel
and also create a destination draw for the area.
Honeywell: Honeywell also has facilities within the project area. The City should work closely with this business, as well as Nicor Gas, to
ensure that their long-term plans are incorporated into the project area’s final redevelopment plan.
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Figure 5: Redevelopment Zone Opportunities
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Rawleigh Complex Conceptual Reuse Strategy
This section describes redevelopment opportunities for Freeport that are based on the local and regional analysis of existing market opportunities
and the Complex’s site conditions. Also described is a conceptual reuse of the Rawleigh Complex site, which is based on the results of this
Opportunities Analysis. This conceptual plan is designed to take the Complex beyond clean up and place the property back into productive use.
PROJECT AREA REDEVELOPMENT THEMES
Based on the regional analysis, three themes for redevelopment within the project area and more specifically, the Rawleigh Complex, emerged.
Redevelopment themes include:

Railroad heritage and excursion rail
Regional foods and beverage niche
Artisans and artwork
Railroad Heritage and Excursion Rail
In the nineteenth and early-twentieth centuries, the City of Freeport flourished due to its proximity to the railroad. At one time, the Illinois Central,
St. Paul, Northwestern, and Great Western railroads dispersed in nine different directions from Freeport. In fact, rail transit was so important to
the City that its emblem prominently features a rail engine as its centerpiece. According to a Rawleigh marketing poster, a central Freeport location
offered:
Figure 6: Chicago to Dubuque Excursion Rail Corridor
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Nearness to the center of population, resulting in
1. Shorter hauls to and from factories, effecting
2. Savings of 6 to 20 percent freight on raw materials and 10 to 20 percent on
finished products
3. More rapid freight, express, and mail service
4. Lower production and distribution costs
5. Better values in quality, quantity and price to consumers
In 1982, Stephenson County Antique Engine Club began the Silver Creek and
Stephenson Railroad, which offers train rides along 1.72 miles of track it purchased in
1983. The Club owns several locomotive engines and other antique rail cars. Today, the
club owns the Silver Creek Depot that houses a large collection of historic railroad
equipment and memorabilia.
One regional vision taking shape is that of promoting excursion rail as a means of
drawing tourists to downtown destinations in multiple communities, including Freeport.
Freeport could be the launching ground for this idea in northern Illinois by developing a
partnership with both Galena and Dubuque. With its close proximity to the rail line, the
Rawleigh Complex could serve as a potential rail stop for tourists heading west with stops
in Galena and Dubuque.
Regional Foods and Beverage Niche
The small cities and villages between Madison and Freeport are known for their
production of specialty products including cheese, beer, and mustard as well as their
unique regional restaurants. Many Wisconsinites take day trips to these small towns, as far
south as Monroe; however, many do not travel across the border to Freeport.
Historically, Freeport was a large producer of beer and pretzels, and in fact, was called
“Pretzel City, USA.” Today, Freeport is home to a wide-variety of locally branded and
produced food products that could be a base to build a strong economic growth strategy
for Freeport. These homegrown food products are unique and if marketed together could
reposition Freeport as a point of destination for leisure travelers. In turn, this strategy
could expand the markets for these locally produced products, strengthening these
Freeport companies and encouraging growth of other food related companies in the
Freeport area.
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Figure 7: Madison to Freeport
Entertainment Corridor
Final: 5/23/02
Art and Artisan Niche
The City of Freeport is well positioned by its proximity to the arts and artisan markets of Chicago, Madison and Milwaukee. Chicago has a worldrenowned art institute and performing arts centers as well as smaller galleries throughout the City. Additionally, the cities of Milwaukee and
Madison recently made large investments to improve their performing and fine arts centers. Furthermore, the Freeport Arts Center is the largest
repository of fine art in northwestern Illinois.
Just as the string of communities between Freeport and Madison are known for their specialty food production, they are also known for their
artisans and galleries. For example, the rural hamlet of Paoli draws visitors down Highway 69 from Madison to the Artisan Gallery, which is
located in a renovated creamery. Additionally, both Galena and Dubuque are known for their unique collection of artisan galleries. If Freeport
marketed itself as a collection of museums, galleries, and artisan shops, it could draw visitors down the Highway 69/26 corridor and off of
Highway 20 to explore its downtown and riverfront.
Figure 8: Regional Arts Investments
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Freeport Arts Center and the
MASS MoCa Model
RAWLEIGH COMPLEX PROPOSED BUILDING REUSE
The Rawleigh Complex offers the City the opportunity to “give place” to all of these redevelopment
themes described above. With over 400,000 square feet of floor space, the Rawleigh Complex can
provide a home for many activities that will draw visitors to downtown Freeport, bringing new energy
to both the riverfront and downtown areas. Reuse of the buildings should capitalize on railroad,
specialty foods, and art themes.
Building A—Rawleigh Arts Building
Building A has the greatest amount of architectural detail of the buildings within the complex. It
includes exterior brick and limestone detailing as well as the landmark Rawleigh logo tower. The
reinforced concrete building has well-proportioned spaces and northern light.
Reuse of both wings of Building A is recommended to focus on providing space for the visual and
performing arts, including gallery and office space for the Freeport Arts Center. Additionally, space
should be dedicated for the development of a Rawleigh Collectors Center, as well as areas for a
Rawleigh retail store and “Good Health” cafe.
Chicago Satellite Collection Gallery: Most museums can only display a small percentage of their
current holdings at one time. The Freeport Arts Center should form a relationship with one of the
large museums in Chicago, such as the Chicago Art Institute or Chicago Museum of Contemporary Art
to become a satellite museum, providing exhibit space for pieces currently not exhibited in their
facilities. This gallery would be constructed to fulfill all requirements of the holding museum, in terms
of climate control, security, and lighting. Bringing well-known works of art to Freeport would create a
regional draw to the City.
Local Exhibit and Resident Artist Gallery: This gallery would focus on displaying work created by
artists living in the region. Furthermore, this gallery would provide gallery space for visitors to watch
the artist “at work.”
Rawleigh and Permanent Collection Gallery: The Freeport Arts Center began when W.T. Rawleigh
bequeathed a portion of his art collection to the City. Historically, pieces of this collection were on
display at the Rawleigh Complex and should again be displayed within the confines of the structure.
This gallery would also have space to show the Arts Center’s other permanent collections, such as the
Parvin, Dedrick, and Rilling Collections, which include objects ranging from a small mummy to preColumbian pottery to Sub-Saharan African objects.
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The City’s recent downtown plan made
a preliminary recommendation to
redevelop a portion of the Rawleigh
Complex into art galleries and art
studios, in the same vein as the project
in the City of North Adams,
Massachusetts, with its MASS MoCa
(Museum of Contemporary Art) project.
North Adams worked to create a
museum in an abandon textile mill along
the Branen River, which today is the
biggest contemporary arts center in the
world. Coincidentally, one of the MASS
MoCa project architects grew up in
Freeport.
The Freeport Arts Center is interested in
relocating its facility from its existing
location to a more central downtown
location. Its current facility lacks
sufficient gallery space, appropriate
heating and air conditioning systems,
and adequate fire security systems.
Redevelopment of the Rawleigh
Complex into a MASS MoCa-like
project would be an excellent
opportunity for the new Arts Center,
while helping to revitalized Freeport’s
riverfront.
Final: 5/23/02
Performance Space: With its higher ceilings, a portion of the first floor of Building A could serve as a
medium-sized performance space. The City of Freeport has a very active amateur theater company,
which is the oldest amateur theater company in the state, as well as many local musicians and
performers that could perform at a performance space within the Rawleigh Complex. Again, the
inclusion of a performance space would draw people downtown, providing renewed energy for the
area.
Commercial Office Space focused on Media and Technology-oriented Companies: Depending
on demand in the market, a portion of Building A should be reserved for commercial space for film,
graphic-arts, media, design and technology-oriented companies that would find it valuable to create
synergy with the arts uses and the proximity to artisans within the buildings.
Building B—Retail and Manufacturing Building
The brick exterior of Building B is covered with sheet metal, which should be removed prior to
building renovation. Generally, this building has low architectural character with its reinforced-concrete
frame and brick in-fill; however, its large footprint and floor plates make it a good space for
manufacturing and flea-market-type uses.
The reuse of Building B will provide space for a mix of uses including antique dealer, train collectors,
and food product manufactures. The proximity of Building B to the proposed excursion rail stop
makes it an ideal location for themed retail, such as antiques and train collectibles.
Antiques Vendors: The proposed excursion rail system would take visitors between Freeport, Galena,
and Dubuque. Antique shops in the Rawleigh Complex could serve as the eastern storefront for dealers
working in both Galena and Dubuque. Given the size of the space, the building would evolve into an
antiques mall with a variety of shops focusing on various niches in the antiques market.
Train Collectors Vendors: A portion of floors four and five are proposed as a retail space for train
vendors.
Food Product Manufacturing: One of the primary functions of the Rawleigh Complex was food
product production; these facilities are well positioned with the appropriate construction materials for
the sterile conditions necessary to manufacture food products. Floors Six, Seven, and Eight should be
used as production facilities for local food and food product manufacturers. The ground floor retail in
Building B could serve as a “produced in Freeport” storefront, selling food products made in the
Freeport region.
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Rawleigh Collectors’ Center, Retail
Space, and “Good Health” Cafe
A quick search of Internet
auction sites, such as e-Bay,
will show that people are
actively collecting medicine
bottle, product tins,
advertising objects, and
catalogues produced by the
W.T. Rawleigh Company. In
fact, a book entitled Door-toDoor Collectibles—Salves,
Lotions, Pills & Potions for
W.T. Rawleigh was published
in 1998, which details the
history of the company and
provides collectors with a
general pricing guide.
As the Rawleigh Complex was
the world headquarters for
this company, it seems
appropriate to create an
exhibit that focus specifically
on the products and graphic
arts produced throughout the
company’s history. The
Collectors’ Center could
include a retail shop in which
one could consign their
Rawleigh objects as well as
purchase modern replicas of
the objects. Additionally, the
“Good Health” cafe could
specialize in organic foods
and food products produced
in the Freeport area.
Final: 5/23/02
Figure 9: Rawleigh Complex Reuse Strategy
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Building C—Spring Street Residential
The architectural character of Building C is generally low. Its interior remains historically intact; however, the exterior of the building has been
modified with the exception of the northeast corner, which has remained intact.
The reuse of the Building C focuses on residential “loft” apartment conversion and providing studio space for local and traveling artists and
artisans. In this plan, floors one and two would be converted into parking for the four floors above. As northern light is the most suitable for an
artist’s studio, the northwest corner of this building will be dedicated for this use, while the remaining floor space will be converted into
apartments.
Building D—Powerhouse Brew Pub and Microbrewery
Building D has interesting architectural character with its brick detailing, historic chimney, and multi-story interior spaces. Powerhouse equipment
remains inside the building, which could serve as a potential interior or exterior display. Additionally, the building has an interior connection to
Building A.
The creation of a brew pub and microbrewery in the former Rawleigh Complex power house could compliment the other proposed activities
(Rawleigh Collectors Center, Arts Center, Excursion Rail and Train Exhibits) as well as serve as a destination of its own. A brewer should be
recruited who is interested in re-establishing one of Freeport’s historic beer labels.
RAWLEIGH COMPLEX REDEVELOPMENT ZONE
Redevelopment of the parcels adjacent to the Rawleigh Complex is critical to bring new uses to the complex and to the overall revitalization of the
riverfront. An assortment of incompatible uses currently surrounds the complex causing the area to have a generally blighted condition. To
enhance the Rawleigh Complex building conceptual plan, the reuse potential for the surrounding parcels has been identified.
Rawleigh Plaza and Rawleigh Complex Gateway
The Rawleigh Plaza (2) and the Rawleigh Complex Gateway (3) will serve as the primary entrance features of the Rawleigh Complex
Redevelopment Zone. Design of this area will integrate the planned Tutty’s Crossing (14) trailhead into the redevelopment area. The hardscape of
this area and the adjacent parking lot (12) will facilitate special or seasonal events, such as antique shows, flea markets, and farmers markets.
Powerhouse Plaza and Liberty Court
Close attention should be paid to the streetscaping and space use directly around the perimeter of the Rawleigh Complex. The Powerhouse Plaza
(4) can provide an outdoor seating area for the Powerhouse Pub and/or an outdoor display area for powerhouse equipment that will be removed
during the renovations. With either or both scenarios, visual interest will be added to the exterior of the Complex, informing people of the
activities taking place inside.
The two-block area along Liberty Street between the buildings of the Rawleigh Complex is currently an uninviting alleyway that deters people from
walking through the area. Liberty Court (5) will create an inviting and active walkway, drawing people from Complex gateway to the rolling stock
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exhibit and the excursion rail depot. This area could include interpretive displays explaining the history of the Rawleigh Company and the Rawleigh
Complex.
Urban Design and Streetscape
New development on the blocks facing the Rawleigh Complex should reflect the industrial design of the complex. Industrial-style design elements
could incorporate brick-faced rectangular buildings with regularly spaced industrial windows and flat roofs.
Two types of streetscape design should be integrated into the Rawleigh Complex Redevelopment Zone including, specialized depot-style
streetscaping and that used within the greater downtown area. Depot-style should extend from Jackson Street west to Adams Street, east on Spring
Street, to the rail corridor south. This style of streetscape should make use of pavers, benches, and lighting traditionally found in train stations. The
streetscape design implemented as part of the greater downtown redevelopment effort should be extended north of Liberty Avenue and west of
Benton Street.
Excursion Train Depot and Rolling Stock Display
The proposed location of the Excursion Train Depot (6) is east of Building C, between two rail spurs. The depot will sell tickets to travelers going
to regional destinations, such as Galena or Dubuque. Parking lots (8) will be designated for those using the excursion rail system.
The two rail spurs, one along Spring Street and the other located in the Train Passenger Parking Lot (8), will be used as a display area for rolling
rail stock displays (7). These displays will contain refurbished rail cars as part of the rail exhibits and retail found in Building B.
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Figure 10: Rawleigh Complex Redevelopment Zone
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Implementation Strategy
In order to take the Rawleigh Complex conceptual reuse plan from the drawing board to reality, the City must have a well-coordinated
implementation strategy that integrates project management, funding, and next steps strategies.
PROJECT MANAGEMENT
Redevelopment of a building the size of the Rawleigh Complex will necessitate a highly coordinated effort between the City, local organizations,
and developers.
Project Management Team
The Project Management Team will be a group comprised of elected officials, city staff, private-sector redevelopment groups, and project
consultants. This group will implement project goals and objectives.
Brownfields Redevelopment Advisory Committee
As part of the USEPA Pilot Grant, the City has convened a brownfields advisory committee. This committee will meet quarterly for the next two
years to discuss progress of the environmental assessment and planning activities at the Rawleigh Complex.
Specialty Foods Network
The City should assemble an ad-hoc committee of local food and beverage producers to help guide the food and beverage redevelopment theme
for the reuse of the Rawleigh Complex. The food network will be invaluable in determining the ultimate feasibility of branding products “made in
Freeport” and in assisting with tenant recruitment to the Rawleigh Complex.
Arts Committee
The Freeport Arts Center has convened a Long-Range Planning Committee to determine the Center’s future space needs and to find relocation
alternatives. The City should actively work with this committee as part of the Rawleigh Complex redevelopment project.
FUNDING STRATEGY
Having a diverse stream of funding facilitates redevelopment as each funding source has its own limitations. Five important funding tools include:

Tax increment financing
Historic preservation district tax credits
State and federal grants
Private endowments and foundations
Private financing
23
Final: 5/23/02
Tax Increment Financing
The Rawleigh Complex is part of an existing tax increment financing (TIF) district. New private sector increment should help drive the public
sector improvements, such as the enhanced streetscapes and hardscapes within the project area. A review of the current status of the TIF District
and a strategy to amend or expand the district, if necessary, is a critical next step.
Historic Preservation District
Currently, the City is in the process of creating a Historic Preservation District, which includes the Rawleigh Complex and a portion of the greater
Project Area. The designation of this district will allow developers to take advantage of both state and federal historic renovation tax credits, which
will help reduce the cost of reuse to be more comparable and competitive with the cost of new construction.
State and Federal Grants
Over the last several years, the City has been very successful in procuring state and federal grant funds for this project. The City should continue to
work with both state and federal agencies to obtain additional funding, particularly focusing on programs relating to tourism enhancement, arts
programming, brownfields redevelopment, and transportation improvements.
Private Endowments and Foundations
Grants that focus on the visual and performing arts should be sought from private corporations and non-profit foundations when working on the
expansion or relocations of arts facilities to the Rawleigh Complex.
Private Financing
The other four financing sources ultimately will support a developer or team of developers accessing private equity and debt to redevelop most of
the structures. The other sources of funds will position the project so that private financing of the bulk of the project is possible.
NEXT STEPS
Initial implementation steps include:
Physical and Structural Analysis of the Rawleigh Complex

Complete analysis of the physical and structural elements of the Complex including:
¾ HVAC systems
¾ Electrical systems
¾ Plumbing systems
¾ Roof
¾ Exteriors
Identify costs for rehab of buildings based current conditions and reuse strategy
Acquisition

Identify primary and secondary strategies for obtaining clear title to property
24

Final: 5/23/02
Work with USEPA to obtain Prospective Purchaser Agreement to release the City from costs incurred by the Agency
Execute acquisition strategy
TIF District Status

Complete analysis of TIF increment to be generated from various development scenarios
Create a new or amend the current TIF district as necessary
Feasibility Analysis of Mass MoCa Concept

Complete feasibility analysis of the Mass MoCa model. Identify key strategies from the development of the Mass MoCa project that could
be applicable to the Rawleigh Complex
Conduct thorough feasibility analysis of the requirements to host art exhibits, including security, HVAC systems, insurance, etc.
Refine analysis of the physical space and potential changes to the space that would make it more inviting to hosting art works
Identify various models, ranges of complexity and cost that could be implemented at the Complex
Identify a phased strategy for the use of the space for arts uses
Work closely with the Freeport Art Center’s Long-range Planning Committee to determine potential synergy of this project with the Art
Center’s long-range plans
Analyze public and private support for concept both locally and regionally
Train Excursion Strategy

Define scope of operations:
¾ Number of passenger cars
¾ Define program
¾ Number of events over what period of time
Complete feasibility analysis
Create partnerships and define how costs will be allocated
Develop and execute implementation plan
Freeport Food and Beverage Network

Form strategy team of local food producers
Identify all locally produced products
Complete opportunity analysis
Create marketing/positioning strategy for Freeport
Identify growth strategy
Implement strategy
25
Final: 5/23/02
Market and Development Feasibility Analysis

Interview potential users for the space
Complete an analysis of the feasibility of the proposed uses for the Complex, including a proforma analysis of potential development
scenarios to identify the market feasibility and the required public financing of each.
Developer and User Recruitment

Draft RFP for all or a portion of the Complex to solicit interest from the development community in the project
Identify key potential users of the space. Negotiate terms of occupying space
Negotiate the development agreement with the developer(s) and users of the space
Work with developer to obtain financing
26

Rawleigh Complex Redevelopment

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