Request

for
Proposal
Orchard Whitney Redevelopment Study

City of Rochester
Division
of Environmental Quality
Orchard-Whitney
30 Church Street Room
Redevelopment
Study300B
Rochester, New York, 14614
September 22, 2015

Orchard Whitney Redevelopment Study

September 22, 2015

1.

Project Overview

The City of Rochester (City) has been awarded brownfield area-wide planning grant funding
from the US Environmental Protection Agency (EPA) to develop an area-wide revitalization plan
and implementation program focused on brownfield sites in the Jay Orchard Street Area
Neighborhood (JOSANA) neighborhood. The plan will focus on the city-owned OrchardWhitney site (415 Orchard Street and 354 Whitney Street), while evaluating the utilization of
surrounding private and city-owned parcels in the redevelopment of that site. Community
involvement will be emphasized from the inception of the project and will inform re-use planning.
The City and the JOSANA neighborhood stakeholders prepared the JOSANA Neighborhood
Master Plan in 2010 in which the Orchard-Whitney site was recognized as a focus for
revitalizing the neighborhood. In addition, the site is located within a NYS designated Brownfield
Opportunity Area, known as the LYLAKS BOA. The JOSANA Master Plan and the LYLAKS
BOA Revitalization Strategy both emphasize the importance of redevelopment of the OrchardWhitney site to the revitalization and sustainability of this challenged area of the City.
The subject four-acre vacant brownfield site will be substantially remediated to commercial
standards under the NYS Environmental Restoration Program with a Record of Decision
anticipated by March 2016. It is anticipated that residual contamination will be addressed
through engineering and institutional controls.
See attachment for more information about the site and the surrounding area.
The objective of the proposed study is to evaluate factors that influence site redevelopment,
assess potential redevelopment alternatives, analyze the economic impact of those alternatives,
and develop a financing and marketing strategy. More than $4 million of public funds have
already been spent on the Orchard-Whitney Site, improving public health and safety and
readying the site for reuse. This study will be instrumental in helping to inform future City
decision making, formulate possible marketing efforts, assess site-specific funding alternatives,
and encourage interest for site redevelopment. This critical next step will identify viable
redevelopment options, socioeconomic benefits, and financing alternatives based on several
factors including the environmental status of the site, neighborhood conditions, geotechnical
conditions, infrastructure needs, development costs, access, and market conditions.
The City is the awarding and contracting authority for this procurement, subject to the review
and approval of the USEPA.
2.

Proposed Scope of Services:

Task 1: Existing Site Document Review and Site Summary

Consultant shall become familiar with the LYLAKS Revitalization Strategy, JOSANA Master
Plan, the Orchard-Whitney Predevelopment Subsurface Conditions Analysis Investigation
Report, and the comprehensive environmental investigation and remediation reports for all
parcels within and around the Orchard-Whitney Site. Based on the current information
regarding demolition, site cleanup, and engineering/institutional controls in place or anticipated,

the consultant will prepare a summary of site reuse constraints, opportunities, and continuing
obligations.
Task 2: Community Input
Embedded in all of the tasks listed below, the Consultant shall seek input from the community
throughout the planning process. A project advisory committee (PAC) will be created and relied
upon for receiving input and disseminating information. In addition to the PAC, smaller
meetings will be arranged with stakeholders, local experts, local institutions, and community
leaders to not only seek information, but to also generate interest in the site.
Task 3: Infrastructure Study
The next step in this task will be for the consultant team to understand the physical capacity of
the site, including the capacity and condition of the public infrastructure (e.g., streets and
utilities). The consultant will inventory and analyze existing infrastructure serving the site and
area, including potable water, waste water, storm drainage, electricity, natural gas,
telecommunications, roadways, sidewalks, bikeways, and transit systems. Consultant will
conduct feasibility analysis for infrastructure improvements for potential reuse options
suggested by the market study. The infrastructure analysis shall be conducted and the findings
provided within the context of climate change projections for the northeast region of the United
States.
Task 4: Geotechnical Assessment
Consultant will review existing information on subsurface conditions and perform a gap analysis
to determine what additional testing may be required to determine development costs and
conditions based on the subsurface geotechnical conditions. Based on known geotechnical
conditions, the consultant will determine, generally, the subsurface capacity for structural
support of development.
Task 5: Marketing, Development, Reuse Study
Consultant will determine current and future demand for institutional, commercial and industrial
uses at the Orchard-Whitney site. One potential option, a labor training facility, should be
included in the reuse options to be analyzed. Meetings with local labor unions and local
community colleges should be conducted to determine feasibility of a workforce
training/educational use at this site. Meetings with industrial and institutional stakeholders in the
vicinity shall be conducted to determine advantages and disadvantages of the neighborhood
and how these can be advanced or overcome at the Orchard-Whitney site. Is there interest in
the site for expansion by existing industry or institutions in Rochester? Are there byproducts or
common disposal needs among the existing neighborhood industries and stadiums that could
support a recycling/reuse operation at the Orchard-Whitney site while providing an amenity to
the local industry? Is the inclusion of adjoining properties necessary for marketability and
sustainability at Orchard-Whitney? Are there missing neighborhood or community assets that
are needed in order for potential reuses to become realistic possibilities? The consultant should
identify needed assets, explain how they would support potential reuses of the Orchard Whitney
site, and discuss any opportunities to encourage the creation of such assets. In addition, the
consultant will provide recommendations on what the City can do to improve the marketability of
the site and will prepare a plan to be used to attract developers to the site.
Task 6: Reuse Options, Concept Layouts, and Fiscal Impact Analysis
Relying on the above studies, the consultant shall provide, for identified reuse options offering
the most potential, conceptual site layout options for cost estimating, marketing, and assessing
environmental impacts. The consultant will prepare a fiscal impact projection for municipal costs

and benefits associated with redevelopment options. Financial and social benefits to the
community, the developer, and the city tax base shall be quantified for each redevelopment
scenario, and then compared against private and public costs.
In determining redevelopment options, guidance shall be provided by the consultant team on
whether it is necessary to include parcel(s) on Lyell Avenue or other adjacent parcels to
maximize redevelopment potential.
Redevelopment designs shall integrate healthy design and green infrastructure, including
energy efficiency and on-site storm water management facilities. Additionally, site reuse options
shall include environmental justice considerations, including a discussion of any potential
residential or commercial displacement impacts and mitigation.
Task 7: Financing Plan Consultant will prepare financing alternatives, including taxincrement financing options, gap-analyses, and resource leveraging opportunities. Financing
strategies will include recommendations for City and County capital improvement planning for
infrastructure improvements.
Task 8: Preparation of Area-wide Plan
Summarizing all of the above-described research and findings; and, taking into consideration
public comments and guidance, the consultant team will complete a Draft Area-wide
Redevelopment Study for the City and USEPA review. Conclusions will be drawn in the plan
regarding recommended redevelopment options, based largely on the cost-benefit analyses and
the market assessment. Financing and marketing strategies for each option will be described
as well as any recommendations for City policy, budget, or zoning changes.
3.

Instructions to Proposers

Proposals shall be based on the scope presented above, and those that offer innovative
approaches to redevelopment that are supported by a reasonable marketing strategy and
financing plan will be welcomed.
3.1

Pre-proposal Conference

A pre-proposal conference will be held October 5, 2015 at 2:00 p.m. in the conference room at
the Charles Settlement House at 445 Jay Street, Rochester, NY, 14608. All prospective
proposers are strongly encouraged to attend.
3.2

Examination of Proposal Documents

The submission of a proposal shall be deemed a representation and certification by the

Proposer that they:

Have carefully read and fully understand the information that was provided by the City to
serve as the basis for submission of this proposal.
Have the capability to successfully undertake and complete the responsibilities and
obligations of the proposal being submitted.
Represent that all information contained in the proposal is true and correct.
Did not, in any way, collude, conspire to agree, directly or indirectly, with any person,
firm, corporation or other Proposer in regard to the amount, terms or conditions of this

proposal.
Acknowledge that the City has the right to make any inquiry it deems appropriate to
substantiate or supplement information supplied by Proposer, and Proposer hereby
grants the City permission to make these inquiries, and to provide any and all related
documentation in a timely manner.
3.3

Addenda/Clarifications

Should discrepancies or omissions be found in this RFP or should there be a need to clarify this
RFP, questions or comments regarding this RFP must be put in writing and received by the City
no later than October 12, 2015.
Mailed correspondence shall be addressed to:
Dorraine C. Kirkmire, Sr. Environmental Specialist
City of Rochester
Division of Environmental Quality
30 Church Street, Room 300B
Rochester, New York 14614
Or, e-mail correspondence shall be addressed to kirkmired@cityofrochester.gov.
Responses from the City, for issues determined by the City to require a correction or
clarification, will be posted to the City website (www.cityofrochester.gov/orchardwhitneyrfp/).
Inquiries received after the date and time stated will not be accepted and will be returned to
senders without response.
The City shall not be responsible for nor be bound by any oral instructions, interpretations or
explanations issued by the City or its representatives.
3.4

Submission of Proposals

Five (5) copies of the proposal are to be submitted no later than 4:00pm October 22, 2015 to:
Dorraine C. Kirkmire, Sr. Environmental Specialist
City of Rochester
Division of Environmental Quality
30 Church Street, Room 300B
Rochester, New York 14614
At least one (1) copy of the proposal must be signed by an officer of the corporation empowered
to contractually obligate the firm or consortium.
3.5

Withdrawal of Proposals

A Proposer may withdraw its proposal at any time before the expiration of the time for
submission of proposals as provided in the RFP by delivering a written request for withdrawal
signed by, or on behalf of, the Proposer.
3.6

Rights of the City of Rochester

This RFP does not commit the City to enter into a contract, nor does it obligate the City to pay

for any costs incurred in preparation and submission of proposals or in anticipation of a contract.
The City reserves the right to:

Make the selection based on its sole discretion;

Reject any and all proposals;
Issue subsequent Requests for Proposals;
Postpone opening for its own convenience;
Remedy technical errors in the Request for Proposals process;
Approve or disapprove the use of particular subconsultants;
Negotiate with any, all or none of the Proposers;
Accept other than the lowest offer;
Waive informalities and irregularities in the Proposals and/or
Enter into an agreement with another Proposer in the event the originally selected
Proposer defaults or fails to execute an agreement with the City.

An agreement shall not be binding or valid with the City unless and until it is executed by
authorized representatives of the City and of the Proposer.
4.

Proposal Requirements

4.1
Project Approach
Provide a detailed approach to completing the tasks outlined in this RFP. Include proposed
number of meetings with City staff, outside stakeholders, and other entities to complete the
required tasks. In addition to the proposed scope, the consultant may propose any other scope
elements, approaches and initiatives deemed relevant to effectively address the Citys goals.
The Consultant may suggest modifications to the proposed scope of services for consideration
by the City if the firm believes there are opportunities for improving the project overall. The
approach shall include a proposed project schedule.
4.2
Teaming
While the City seeks a single consultant to manage this project, it is recognized that a broad
range of skills are being requested that may be best provided by a group of consultants working
together. As such, consultants with different expertise are encouraged to team to provide one
proposal.
4.3
Costs
Include a not-to-exceed time and materials fee for the basic services itemized by each task of
services broken down by project task. Include billing rates for the various personnel who will be
involved in the project. Include the costs of all review meetings with the City outlined in your
approach. If modifications or additions to the scope of services are proposed, indicate those
costs. Provide an estimate for the cost of reimbursables to be included in the agreement.
4.4
Qualifications
Include the following:
Name, address, telephone number of each participating firm.
Names and addresses of each firms principal officers.
A description of each firms technical capabilities and areas of expertise.
A description of similar projects completed by each member firm of the team, and the
name, address and telephone number of a reference person from the contracting
organization who can be contacted for reference.

A description of how the project will be organized and managed; who will do the work
and the role various members of a multi-disciplinary consortium will play in the design
process, including any sub-consultant work by a City recognized M/WBE firm.
A list of key personnel to be assigned to the project by task and identify the project
manager.

4.5
Proposal Evaluation
The proposals will be evaluated by a committee using the criteria listed below:
Completeness of proposal
Experience and strength of the consultant and its demonstrated ability to perform the
tasks required for this project
Consultants understanding of the project requirements.
Innovation/additional project elements proposed
Proven ability to administer projects within budget and program requirements.
Consultants ability for phasing and scheduling
Experience on projects of similar scope
M/WBE participation within the consultant team
Proposed fee
The selection committee will review all proposals and select the firm whose proposal, in their
judgment, indicates the best opportunity for a completely successful project.
The City also reserves the right to postpone or cancel the project. The City may request to meet with
consultants at any time for further clarification of the Proposal.

ATTACHMENT: BACKGROUND INFORMATION

The City of Rochester is a
mid-sized city of
approximately 210,500
people, located in westcentral New York, on Lake
Ontario, about 60 miles
from Buffalo, and 340 miles
from New York City. The
Orchard-Whitney site (415
Orchard Street and 354
Whitney Street), located
less than 2 miles from the
City's downtown, is a 3.9acre vacant brownfield wellknown in the Jay Orchard
Street Area Neighborhood
(JOSANA) as a targeted
redevelopment site. The
site is located a block away
from Sahlen's Stadium, a
soccer stadium for the
Rochester Rhinos of the
USL Pro League, the
Western NY Flash of the
National Women's Soccer
League, and the Rochester
Rattlers of Major League Lacrosse. The site is within two miles of Frontier Field, home of the Rochester
Red Wings, a AAA baseball team and farm team for the Minnesota Twins. Its central location and
proximity to Interstate 490, Lyell Avenue, State Street, and W. Broad Street make this site easily
accessible from all directions by cars and trucks.
In spite of its accessibility and nearby amenities and attractions, the JOSANA neighborhood, within which
the site is located, is one of the most challenged areas in the City. Socioeconomic characteristics are
summarized in the table below:

Population
Unemployment
Poverty Rate
Percent Minority
Owner Occupied Housing
Median Household Income
Median Housing Value

JOSANA Neighborhood
2,930
16%
51%
71%
29%
$20,800
$30,000

Source: JOSANA Neighborhood Master Plan, 2010;

The Orchard-Whitney site was home to numerous industrial entities since 1900, including Northeast
Electric, Delco-General Motors and Sykes Datatronics. The operations of these entities, including the
presence of bulk storage tanks, electrical transformers, power production, coal storage and dry
cleaning, resulted in areas of contamination across the property. Since the mid 1990's, the site has
been vacant and fenced off. The City foreclosed on 354 Whitney St. in 2006 and 415 Orchard St. in
2008. The final building demolition took place in spring 2015 so the site is now entirely vacant.

In 1999, the USEPA completed the emergency removal of more than 700 drums of hazardous
materials from the Site. A Phase I Environmental Site Assessment (ESA) of the site was performed
by the City of Rochester in 2000 followed by a targeted Phase II ESA completed by the NYSDEC in
2006. The results of the investigations indicated that the soil and groundwater of the site were
contaminated by volatile and semi-volatile organic compounds, and heavy metals. From 2006 to
2013, the City of Rochester demolished several structures and completed a comprehensive remedial
investigation, implemented interim remedial measures, and completed a Remedial Alternatives
Analysis for the Site. The City was awarded funding from the NYSDEC Environmental Restoration
Program to complete a site-wide hazardous materials inventory, lead and asbestos surveys, and to
fully delineate the nature and extent of soil and groundwater contamination at the site. In addition, in
2009, USEPA funding was used to remove nine (9) petroleum underground storage tanks from the
site and facilitate the characterization and disposal of approximately 265 tons of soil contaminated
with petroleum and heavy metals. Lastly, following the recent removal of the last building, the City is
using NYSDEC Environmental Restoration Program for site investigation, interim remedial measures
and related efforts for the remediation of the last part of the site. Soon, the site will be remediated to
standards for commercial redevelopment.

A Predevelopment Subsurface Conditions Analysis Investigation Report is underway. A draft of this

report is available for review on the following website: www.cityofrochester.gov/OrchardWhitney

The Orchard-Whitney site is particularly strategic for the revitalization of the neighborhood not only
because of its central location, but also because of the considerable amount of vacant or underutilized
parcels that surround the site. By extending a short distance north to Lyell Avenue, south to Riley Park
and east to Broad Street there are an additional 7 acres of vacant or underutilized brownfield properties,
some of which are City owned. Adjacent to the Orchard-Whitney site, these brownfield parcels add
acreage and street frontage that may increase the redevelopment potential and marketability. Some of
these adjacent City-owned sites have been studied and/or remediated:
399 Saxton Street and 935 West Broad Street: The operation of a portion of this site
as a gas station and auto repair facility resulted in petroleum product contamination
in soils and groundwater. It was in the EPA Brownfield Cleanup Program and a
Certificate of Completion was issued in 2013. Extensive contaminated soil removal,
and groundwater treatment remedial actions completed in 2012 have successfully
addressed most of the petroleum related volatile organic compounds (VOCs) at the
site, however some residual contamination still exists. An Environmental
Management Plan is in place which will be implemented when work performed at the
site has the potential to disturb soil/fill and/or groundwater impacted with residual
petroleum VOCs.
350 & 370 Orchard Street: Phase I and II studies indicated that on-site sources of
contamination were not identified for 350 & 370 Orchard Street. Some petroleum
contamination was encountered which was limited in extent and possibly attributable
to off-site sources. An environmental management plan would need to be prepared
and implemented if this site is redeveloped.
406 Orchard: This vacant site is located east of the Orchard-Whitney site. A Phase I
ESA was completed in 2000. A phase II study was completed in 2001 and indicated
that on-site sources of contamination were not identified. Some petroleum
contamination was encountered which was limited in extent and possibly attributable
to off-site sources. An environmental management plan should be implemented if the
site is redeveloped.
CSX-owned ROW: RR land runs along the south end of the site; the City is currently
negotiating with CSX to obtain the RR land for trail purposes. A trail feasibility study
was completed in April 2015.
North of the site, private properties that front on Lyell Avenue, a major gateway into Rochester, lend
themselves to inclusion in a redevelopment project. It is unknown to what extent peripheral parcels,
such as the city-owned parcels listed above or the Lyell Ave parcels could add value to the
redevelopment potential, design options, and infrastructure requirements of the Orchard-Whitney
site.
The City and the JOSANA neighborhood stakeholders prepared the JOSANA Neighborhood Master Plan
in 2010 in which the Orchard-Whitney site was recognized as a focus for revitalizing the neighborhood. In
addition, the site is located within a NYS designated Brownfield Opportunity Area, known as the LYLAKS
BOA. The JOSANA Master Plan and the LYLAKS BOA Revitalization Strategy both emphasize the
importance of redevelopment of the Orchard-Whitney site to the revitalization and sustainability of this
challenged area of the City. These plans can be found on line at:

http://www.cityofrochester.gov/josanaplan/

www.cityofrochester.gov/LYLAKS