WewouldliketoacknowledgethattheNorthernStateHospitalSiteislocatedonthe ancestralhomelandsoftheCoastSalishPeopleswhohavelivedintheSalishSeaBasin, throughouttheSanJuanIslandsandtheNorthCascadeswatershed,fromtime immemorial.TheHospital’spropertysharesaborderwiththefederallyrecognizedUpper SkagitIndianTribethatiscomposedofelevenpredecessorbands,includingthe Nuwha’ha,Nookachamps,Bsigwigwilts,Bsxwexwehwa’1,Chobahahbish,Sabelxu, Saylayotsid,Shayayotsid,Kwabatsabsh,Sahkumehu,andtheSkaywih(UpperSkagit IndianTribe,n.d.).Whenconductingresearch,cleanup,andredevelopmentactionsonthe propertyitisimportanttorespectandincludethesegroupsinthedecisionmaking processandtorespecttheirancestrallands.
TableofContents: Introduction:.........................................................................................................................2 SiteHistory:.........................................................................................................................3 Integration:...........................................................................................................................7 CleaningupthePast:...........................................................................................................8 TheRevivalofaGhostTown:...........................................................................................12 FutureSiteEngagement:....................................................................................................17 Citations:............................................................................................................................18 LandAcknowledgement:
Introduction:
TheNorthernStateHospital contaminatedsitehostsa varietyofcomplexities spurringintegrated collaborationbetweenparties involvedtocreatea prosperousfutureforthesite.
Itiscommonfor contaminatedsitesunderthe
ModelToxicsControlAct(MTCA)tobecleanedofcontaminantspriorto redevelopment.Howeverdistinctiveaspectsofthesite,likeitshistoricandecological characteristics,preventthisfromhappening Thesiteisalsostillinactiveusewith tenantsrentingoutbuildingsandrecreationalspacebeingopentothepublic.Withthese issuesinmind,thepartiesinvolvedinthesitecreatedaplantointegratecontamination cleanupandsiteredevelopment Thepartiesinvolvedinthesitemanagementareathree partypartnershipmadeupbythePortofSkagit,theCityofSedro-Woolley,andthe SkagitCounty.Thepartnershipdesignedanintegratedremediationandredevelopment plantoensurethatthehistory,ecology,andactiveuseofthesitearepreservedwhilestill efficientlyutilizingresources.
SiteHistory:
Nestledamongstthelowland foothillsjustnortheastof Sedro-Woolleyisasitethat hasalongandcomplex history.In1909,the constructionoftheNorthern StateHospitalbeganand threeshortyearslateritwas officiallyopenforuse,but notopentothepublic(TCLF,2009).The Hospital’scampuswasdesignedbytheOlmstedbrothersandtheirfamilyfirm,the OlmstedFirm.Theyweregreatlyinspiredbytheirfather’spreviousworkonCentralPark inNewYorkandimplementedthepark’ssignaturesprawlinglandscapeintothecampus’s 1,200acres(TCLF,2009) ThebrothersalsoimplementedaSpanishColonialRevival stylenotoftenseeninthePacificNorthwest,makingthecampusstandoutamongstits heavilywoodedsurroundings.Theimmensearchitecturalfeatwasundertakenlargely becauseoftheHospital’smainpurpose,toprovideaselfsufficientoccupationaltherapy centerforincarceratedindividuals(TCLF,2009).TheHospitalachievedthisthrough housingitsownpowerhouse,fuelingstation,laundrybuilding,barns,croplands,dairy plant,patientandstaffhousing,andmanyotheramenitiestotalingover80buildings (TCLF,2009).
Theconstructionofthehospitalwascommissionedduetoovercrowdingin neighboringhospitals.Withthehospital’sopeningin1912agreatburdenwasliftedfrom otherhospitalsinWashingtonStateaswellascreatinganeweconomicengineforthe Sedro-Woolleycommunity(TCLF,2009).Thehospital’sgentleidealistlandscapedidnot reflectwhatwentonbehinditsartfullydesignedwalls.ThepatientshousedatNorthern StateHospitalalsoknownastheNorthernStateAsylumwere,atthetime,referredtoas
“criminallyinsane”andcommittedagainsttheirwill.Theirconditionsrangedwidely from“violentlymentallyill”to“mildlydisturbed”,individualswithmoreconventional illnessessuchasepilepsyandaddictionwerealsotreatedhere(Judd,2017).
Thetreatmentspracticedonthepatientswereextremelyunethical,somebeing fittingofthetimeandothersbeingentirelyexperimental.Shocktherapywasregularly administeredtowomenexperiencingmenstruationinducedmoodswings(Judd,2017).
Transitionallobotomiesbecamecommoninthehospitalduringthe1940’sandwere consideredagroundbreakingcureformentalillnessandsocietalnonconformity(Judd, 2017) Thehospital'spatientpopulationwaslargelymadeupofimmigrants,manyof whomwereforcefullysterilized“forthebettermentofsociety”(Judd,2017).Uniqueto thehospitalwasthepracticeofexperimentalchemicalsedation.InsulinComaTherapy wasoneofthesetreatments,patientswereinjectedwithrepeateddosesofinsulinto induceacoma-likestate,thecomascouldbemadetolastdaystoweeks(Judd,
UpperRight:MaleWard10and11,UpperLeft:Hospitalstaffinthe“InsulinRoom”,LowerRight:Groupphotoof nursingstaff.LowerRight:AdministrationBuilding(UWSpecialCollections,n.d.)
2017;Wright-Mendoza,2018).Thistreatmentwasreservedforpatientssufferingfrom Schizophrenia,thetreatmentoftentimespersisteduntiltheindividualhadbeeninduced 30-50times(Wright-Mendoza,2018).TheHospitalalsohosteditsowncemeterywhere over1,000bodiesresttoday,manyofthedeceasedwerepatientsatthehospitalandwere unclaimedbytheirfamily(Judd,2017).
Thehospitalclosedin1973after61yearsofoperationduetobudgetcutsand deinstitutionalization(TCLF,2009).TheDeinstitutionalizationmovement,whichbecame prevalentinthe1970s,wasspurredbychangingpublicviewstowardsthetreatmentof individualssufferingfrommentalillness(Torrey,2015) Thegoalsofthemovement includedreducingcarecosts,protectingpatientrights, andshiftingcarefrominstitutions tocommunitywellnesscenters(Torrey,2015).TheNorthernStateHospital’sunethical treatmentofpatientsmadeitaprimesubjectfordeinstitutionalization Afteritsclosurea skeletoncrewwaskeptemployedatthecampustokeepthebuildingsfromfallinginto completedilapidation.In2010theDepartmentofArcheologyandHistoricPreservation (DAHP)classifiedthecampusasaNationalHistoricDistrictforthesite’simportanceto theState'smedicalhistoryandtheuniquearchitecturestillpresentonthecampus (WTHP,2017).Thehistorictitleincentivisesthepropertyownerstoprotectthehistoric andculturalintegrityofthecampus’s56remainingbuildings.
CharlieCruse,finalemployeeof NorthernStateHospital(EverettHerald,1976)
NorthernStateHospital’sstorydoesnotendwithitsclosurein1973,butinstead continuesontothepresentday. In1974theownershipoftherecentlyclosedcampuswas transferredtotheStateDepartmentofGeneralAdministration,whichisnowknownas theDepartmentofEnterpriseServices(DOE,n.d.).Alongwiththeseownershipchanges alargeportionofthecampuswasparcledoffandgiventotheDepartmentofNatural Resourcesforrecreationaluses(DOE,n.d.).Afterthisthecampuswouldsitrelatively unchangedfordecadesuntil2014whenitwasofficiallyclassifiedasacontaminatedsite andtheMTCAprocessbegan(seesection:CleaningupthePastformoreinformation). WiththeMTCAregulationnowactive,stepstounderstandthecontaminantspresenton thepropertybegan.Sitecharacterizationstudiesandsiteassessmentswereconductedby independentpartiesin2014.Preliminaryremedialinvestigationsandstudieswere conductedin2015,withaplanningassessmentcompletedin2017(DOE,nd) Despite thesitebeingacontaminatedone,thecampusbecameactiveagainafterthePortof Skagittookownershipandliabilityofthesitein2018andtheybeganrentingbuildings out Theactiveuseofthecampusalongwithitshistoriclegacy,ecologicalfeatures,and futuredevelopmentplanscreatesanunusualsitenotoftenseenunderMTCA.
NorthernStateHospitalTimelinecreatedbySophiaFox
Integration:
Asweinterviewedfromthedifferentpartieswerealizedhowspecialanddifferent thissiteis.Fromremediationtoredevelopmentintegrationisakeyelementtomakethis siteasuccessstoryanditreflectsjusthowcomplexthisoneis.Fromthehistorical integrityandculturalimportancetotheenvironmentalpriorities,theseconcernscreatea complexwebofbarriers.Thisapproachhasturnedthedreamofthissite'spotentialintoa reality.Theworkthatallpartieshavedonehassetaprecedentforhowtohandlethe clean-upofMTCAsitesalongwithredevelopment.Futurebrownfieldsitescanall implementthesenewwaysofmanagementandplanning.Sitesthatoftenwerereferredto as“unwanted”landscouldverywellbefuturehubsforcommunityopportunities.
CleaningUpthePast: Overview
ThelonghistoryoftheNorthernStateHospitalleavesbehindanotherlastingdark legacyintheformoftoxiccontamination.Frompesticidestolaundrychemicals,and eveninthebuildingmaterialsthemselves,thehospital’sday-to-dayactivitiesinvolved manysubstanceswenowknowtohaveharmfulimpactsonbothhumanhealthandthe environment.ThecontaminantsleftbehindbytheNorthernStateHospital’syearsspent inoperationcanlargelybegroupedintothreecategories:toxicmetalslikeleadand arsenic,volatileorganiccompoundswhichwereusedincleaningsolutions,and contaminationfrompetroleum-based productswhichcomefromunderground storagetanks Leftignored,these chemicalshavethepotentialtocausea widerangeofdangeroushealthissues.
(DOE,2019) Forexample,high amountsofleadwereusedinbuilding materials,andcancauseneurological damage(EPA,2023).Thechemicalsleft behindbycleaningsolutionsand petroleumcancausethroatandorgan damage,inadditiontobeing carcinogenic(EPA,2022).Inorderfor theformerNorthernStateHospitaltobe availableforreuseandredevelopment, thesehealth-harmingsubstanceshaveto becleaneduptosafelevels.
Duetotheimmensesizeoftheproperty,andthedifferenttypesofcontamination, itwasbrokendowninto8distinctproblemareascalledAreasofConcern(AOC).Some oftheseAOCsarecontainedtoonlyonelocation,whileothersrepresentasingle site-wideconcern,likethepresenceoftoxicsubstancesingroundwater.Accordingto CarolynWiseofMaulFosterAlongi,aconsultingfirmhiredtohandlecleanupwork, breakingdownthesiteinto‘bite-sized’chunkshasafewcrucialbenefits(Jackson& Wise,2023).Thisapproachmakesthecleanupworkforsuchahugelocationmore manageable.Additionally,itallowsAOCswithrelativelycheapandeasysolutionstobe tackledearly,whichcreatesspaceforredevelopmentandreuseofthesiteearlierrather thanlater.Italsomeansthatfundingforcleanupcanbeobtainedandappliedpieceby piece,ratherthanallatonce.
TheRoleofMTCA
InWashingtonStatetheModel ToxicsControlAct(MTCA)isthe lawwhichregulatesenvironmental cleanupthroughoutthestate. The WashingtonDepartmentof Ecology,alsoreferredtoas Ecology,isthegovernmententity whichorganizesandhelpsfund cleanupofMTCAsites Notevery sitegoesthroughtheformal MTCAprocess,butthosethatdo gothroughadefinedseriesof stepstoensurethat,bytheend, contaminationiscleanedup accordingtoanyapplicablestate orfederalstandards.Duringthe MTCAprocess,theDepartmentof
Ecologyorganizespublicoutreachtohelpinformthecommunityofthecleanupsite. Theyarealsorequiredtohavepubliccommentingperiodsthroughouttheprocesswhere anyonecansubmittheirquestionsorcommentstoEcologyandreceive
OneofthemostimportantpartsofMTCAisidentifyingthePotentiallyLiable Party(PLP),inthiscasethePortofSkagit,whotakesthefinancialresponsibilityfor makingsurethesiteiscleaneduptotheappropriatestandards.However,therearemany programsthroughEcologyorthroughfederalgrantstohelpcoverthecostsofcleanupin certaincontexts,suchaswhenasiteisconsideredabrownfield(refertotheRevival sectionformoreinformationaboutbrownfields)
TheformerNorthernStateHospitalpropertyisoneofthesebrownfields.Many publicandprivateentitiescanbehesitanttoacquireandredevelopbrownfieldsbecause theycouldenduptakingthefinancialburdenofcleaninguptoxiccontaminationaswell EventhoughitwasknownbothbythecommunityandbyEcologythattheformer NorthernStateHospitallikelycontainedsomeleveloftoxiccontamination,theexact natureandextentofthecontaminationwaslargelyunknown However,in2014,the desiretocleanupandreusethesitewasmetwithgrantmoneyfromtheDepartmentof Ecology.(DOE,2014).ThePortofSkagit,spearheadinganeffortbetweenseveral parties,acquiredtheNorthernStateHospitalproperty,assumedPLPstatus,andbeganthe MTCAcleanupprocessincoordinationwithEcology.
Inordertohandletheinvestigationsandimplementremediationsolutions,thePort ofSkagithashiredtheconsultantfirmMaulFosterAlongi.Remediationreferstotheact ofcleaningupenvironmentalcontamination AccordingtoIanFawley,anoutreach plannerwithEcology,thedifficultandexpensivenatureofidentifyingandremediating toxicsubstances,andalsobecauseofthemeticulousnessoftheMTCAprocess,cleanup oflargesitesliketheNorthernStateHospitalcantakealongtime(Jackson&Fawley, 2023).Thiscouldbeabigobstacletotheredevelopmentoftheproperty,andgreatly delayanypotentialeconomicreturntothecommunity.Forexample,eventhoughthis processstartedmovingalongin2014,rightnowthecleanupphaseattheNorthernState Hospitalsiteistechnicallyinthemiddleofreviewingtheremedialinvestigation(DOE,
2021).Thankfully,MTCAhasabuilt-inmechanismtoimplementorpartiallyimplement solutionswhichareurgentorrelativelyeasy:interimactions.ThisallowsthePLPand Ecologytoagreeonpartialremedialworkdoneoutsidetheformalprocess.Althoughthe MTCAprocesshasn’tformallyreachedthecleanupimplementationphase,thePortof SkagitandEcologyhaveanagreementwhereMFAhasdoneinterimremediationwork ontwoAOCs:AOC1andAOC4(DOE,2021).
AOC1
AOC1referstoanoldlaundrybuilding Thechemicalcontaminationinthesoilat thatlocationiscausedbythecleaningmaterialsusedfordrycleaningoperationsyears prior.Thesearecalledchlorinatedvolatileorganiccompounds,orcVOCs.Whenthese typesofchemicalsareinsoil,theyeasilyevaporate intotheair,whichmakesbeinginabuildingontopof cVOCcontaminationunsafe.Typically,thesetoxic substancescanberelativelyeasilycleanedupthrough excavatinganddisposingtheaffectedsoil However, thisdoesn’tmeettheredevelopmentandreusegoalsof theSWIFTCenter,asitwouldrequirethatthe buildingbetorndown Rightnow,thisisbeing addressedbysealingtheharmfulvaporsunderavapor barrier(DOE,2019). However,accordingtoCarolynWiseofMFA,inordertoremove theharmfulvaporsthereareplanstoinstallasubsurfacedepressurizationsystem This worksusingfanstocreateapressuregradientunderneaththevaporbarrier,whichdraws thesoilvaporandanytoxicsinitsafelyoutofthebuildingthroughpiping(Jackson& Wise,2023) Overtime,thecontaminationlevelsinthesoilwillreturntoacceptable levels.Throughouttheprocess,carefulmonitoringwillensurethateverythingis proceedingasexpected.
AOC4
AOC4isactuallytwolocations:oneonapatch oflandnearanoldbuilding,andanotherwhich ispartofanoldathleticfield.Theysharea characteristicofhavingelevatedlevelsof arsenicinthesoil.Whiletherelikelyisn’tasingle explanationforitspresence,arseniccontaminationcan belinkedtopesticideuseintheorchardsthattheNorthernStateHospitalstaffand patientsoncetendedontheproperty.ComparedtootherAOC’s,cleaningupthe contaminatedsoilwasrelativelyeasyasitwasonpatchesofsoilwithnostructureto contendwith.Asimpleexcavationandsafedisposaloftheaffectedsoilisallthatwas necessarytoremediateAOC4(DOE,2019).
TheRevivalofaGhostTown: TheNorthernStateHospitalhasalong historythathasgainedaninterestingreputationover theyears.Thesiteisrumoredtobehauntedbythe patientswhodiedatthehospitalandhasbecomea popularhauntedattraction.Ghostenthusiastshave traveledacrossthecountrytowitnessthesite's paranormalactivity.AsMTCAandredevelopment takeholdofthepropertyitfeelsasifithasbeen awakenedandtakenanew,lesshaunting,form.A three-partypartnershipconsistingofthePortofSkagit, SkagitCounty,andtheCityofSedro-Woolleyisexploring theopportunityofredevelopingthissite.Thepartnershiphasagreedthatthesitecould contributemoretotheoveralleconomicwell-beingofthecommunitythrougha concerted,locallydrivenefforttoplan,regulate,andattractprivateinvestmentwithina
unifiedplannedmulti-usecampus.Thepartnershiphasensuredthatdevelopmentwillbe consistentwithlocalgoals,andwillrenamethesitetheSedro-WoolleyInnovationFor Tomorrow(SWIFT)Center.
ThePorthastakenboththeownershipofthepropertyandtheliabilityfor clean-up.Theyhaveaspecialinterestinthepotentialofthesiteasatoolforeconomic developmentforthecountyandbecause,accordingtoHeatherRogersonthePort’s planninganddevelopmentdirector,theywouldliketoexpandtheirprojectsfarthereast toreachmorepeople(Fox&Rogerson,2023) AnotherreasonthePorthasundertaken thisprojectisbecausetheydonotneedtoseeimmediatefinancialreturnsontheir investmentcomparedtotheotherpartners.Thedreamofthissiteisforittobecomea multi-use,publiccampus Inordertotruly showasenseofprogressthemayorof Sedro-Woolleydecidedtorenamethesite.The partnersagreedonthenameSWIFTCenter whichhasdualmeanings.SWIFTstandsfor Sedro-WoolleyInnovationforTomorrowbutit alsoreferstoVaux’sswift.Vaux’sswift(as seeninthephotototheright)isalocalnative birdthatoriginallyhabitedoldgrowthtree stumpsbutnowinhabitsthesmokestacksofthe property ThemaingoalsthatthePortofSkagithasforredevelopmentinclude(Portof Skagit,2015):
A.EncouragetheprivatesectortocreateandsustainjobsattheCenterthatwillbenefit allofSkagitCountyanditscitizensandthatarecompatiblewithalloftheothergoals
B.ContinueandpromotepublicaccessandrecreationaluseoftheCenter
C.ProtecttheenvironmentallysensitiveareasoftheCenter,inparticularHansenCreek
D.Acknowledgeandprotectthehistoric significanceoftheCentertothelocal community,thewiderregion,andthe StateofWashington
E.Acknowledgeandrespectthe neighboringUpperSkagitIndianTribal Nation’sinterestsintheCenter.
SWIFTCenterImplications
ThisMTCAsiteisdifferentfromothers formanyreasons,onebeingthefactthat itisabrownfieldsite Brownfieldsare typicallyreferredtoas“unwanted”lands andareabandonedorunderutilizedduetopollutionfromindustrialuse(EPA,n.d.).This oftencomplicatestheredevelopment,reuse,andrevitalizationofaproperty(EPA,n.d.) Withthesetypesofclean-upsitesitcanbehardtofindsomeonewillingtoredevelopthe landandbecometheliablepartyfortheclean-up.ThisiswherethePortofSkagitcomes inandthisiswhytheirroleissoimportantinthethree-party-partnershipbetweenthem, theCityofSedro-Woolley,andSkagitCounty.AccordingtoHeatherRogerson,thePort’s planninganddevelopmentdirector,saystheyhavetakentheroleasliablepartyoverthe otherpartnerssincetheyhavetheresourcesforfindinggrantstodotheclean-upandare morefamiliarwiththeMTCAprocesses
Additionally,whileMTCAdoesnotincluderedevelopment,thissitecallsforan integratedapproachtotheclean-upprocessandredevelopment.Theremediationandthe renovationstage,whicharetypicallydoneseparately,mustbeintegratedtogether.There areacoupleofreasonswhythismusthappen
Cultural & Historic Integrity
BecausethepropertyanditsbuildingsarelistedundertheHistoricDistrict RegistryboththeMCTAprocessandredevelopmentmusttakeextremecaretoprotect thehistoricalintegrityofthearchitectureandbuildingdesign.WithintheFinal AgreementOrderbetweenthePortand Ecology,bothpartiesarerequiredto protectthehistoricintegrityofthe originalbuildings.
Asidefromthehistoricintegrity thereisalsoculturalimportancearound thesiteandtheadditionalrecreationarea thatisapartoftheoriginal1,200acres
ThelocalcommunityofSedro-Woolley seestheNorthernStaterecreationarea
asapieceofpride Whenyoudriveto
theparkinglotthefirstthingyouwillseeisacommunityplazainmemorialoflocal veterans.TheParkincludestheoldabandonedbarnsfromthehospital,discgolfcourses, andmanytrailsthroughtheparkandthecampusproperty.Localsspendtheirfreetime heretorelaxandgetbackintouchwiththelandscapesaroundthem.Thisareaposes somecomplexitieswithMTCAandtheredevelopment.Thisisbecauseparkaccessibility dependsontheSWIFTcenterproperty
roads Duetotheimportanceoftherecreationalaspectofthisproperty,the redevelopmentmustconsiderandprotectitsintegrity.
complexitytothissite.WithintheFinal AgreementOrderbetweentheP
Ecologyitstatesthatshouldeit anyactivitiesdoneatthesitecr dangertohumanhealthorthee oraroundthesite,thenthePort coupleareasofconcernonthe habitats.Hansencreekisanim Salmonhabitatthatrunsthroug property,thecity,andtheUppe reservation.Ifthecreekwereto contaminateditwouldaffectbo healthandthewildlife Thepar responsibilitiestoweighintrib
ulturallyimportant.SalishSea nPeople(Smithsonian heirCreator,andtheyhonor nstitute,n.d.).TheUpper omy.
dspecies,alsoinhabitsthe lynestinlargehollowsinold aturalhabitatgradually dtheirnestingpatternsand andonedsmokestacksonthe 9).Thebirdstendtonestin everaltotensofthousandsof Audubon,2019).Removing placewillmostlikelykillthe opulationalreadyinadecline atusitisimportanttohandle dubon,2019).Workingaround lopmentmayposeagreat SWIFTCenterpayinghomage isexpectedthattheywilltake ds.
IFTCenterhasgonethrough l,topark,tocontaminated
site,torenterspaceitisasifthepropertyhasseenitall.However,asthefuturedraws neartheCenterwillcontinuetochangewithmoreMTCAactionsandredevelopment beginning.ThefirstoftheupcomingMTCAactionswillbeapublicmeetingheldonJuly
17th,2023.ThemeetingwillgivetheSedro-Woolleycommunityanopportunitytoshare concerns,hopes,andquestionsaboutthesite’sfuture.Onamoreambiguoustimescale thethreepartpartnershipplansformoreremedialinvestigationsofthesitealongwith remedialactionsandrenovations.Thepartnershipalsoplanstomakeamendmentstothe finalagreedorderforthecontaminationcleanupofAOC1.
Allofthesefutureactionsbringthesiteclosertotheendofitsjourneyof contaminationandtoitsnewbeginningasaredevelopedeconomicengineforthe community.Whenthisprocesswillbecompleteisunknown,MTCAsitestendtotakea longtimetobeconsideredcleanandgetdelistedfromtheregister,withthedelisting processalonetakingmultiplefiveyearperiods.However,withthesite'suniqueapproach tointegratingremediationandredevelopment,anewandimprovedcampusmightcome soonerthanexpected Integrationhasbroughtthisdeeplyrootedlandmarkbacktothe forefrontofsociety,bysettinganexampleforfuturebrownfields.Thisexampleisset throughintegratingredevelopmentandremediation,notoftenaccomplishedinMTCA sites Aswelooktothefuturethissitesetsupmoreinnovativeapproachestothereuseof contaminatedsitesacrossWashingtonState.
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