The redevelopment of Uplands, a boarded-up apartment complex off Edmondson Avenue, has been described as one of the largest projects of its kind on the East Coast. Dixon recently acknowledged having a personal relationship in 2003-2004 with a developer who later got a stake in the deal.
The unusual progression of the project, including the decision to forgo the panel's recommendation, comes to light days after The Sun learned that the Maryland state prosecutor has been investigating Dixon's relationship with Doracon Contracting head Ronald H. Lipscomb and her support for development deals that benefited his company.
Prosecutors have been examining spending irregularities at City Hall for more than two years and have probed projects involving Doracon, but there is no indication that the investigation extends to Uplands.
Despite the review panel's preference, Housing Commissioner Paul T. Graziano recommended in June of last year that the Uplands project - a plan to convert 100 acres of vacant buildings into 1,100 new apartments, houses and condominiums - be overseen by Philadelphia-based Pennrose Properties. Dixon held a news conference the next month to announce Pennrose would get the job.
The team also includes Bethesda-based home builder EYA and a firm called Uplands Partners - a consortium including Doracon, Banks Contracting Company, Harrison Developers and Ambridge LLC, according to the city. Others involved in the project include the Cryor Group and former Prince George's County Executive Wayne K. Curry.
Months earlier, Graziano had recommended that the project be awarded to another team led by St. Louis-based McCormack Baron Salazar, The Sun has learned. That decision, which Graziano confirmed last week, was based on a panel's review of three proposals and its unanimous opinion that McCormack was the most qualified firm.
Graziano said he took his recommendation to use McCormack to then-Mayor Martin O'Malley in late 2006 but that O'Malley deferred making a decision at least in part because he was preparing to leave City Hall to begin his term as governor.
Around that time, the community learned that the city was leaning toward McCormack and asked for an explanation. Neither Graziano nor community leaders recall how residents learned of the recommendation to use that firm - the city's solicitation prohibited companies from communicating with the public until after the selection process was complete.
In November of 2006, the city organized a meeting at Edmondson High School for community members to hear from the various companies about their proposals. About 30 people turned out for the meeting, according to news reports from the time. Several subsequent meetings were held with the community through early 2007, records show.
Graziano said residents living near the site strongly opposed McCormack, despite the city's attempts to convince them otherwise.
"Frankly, I changed my mind based on that," Graziano said. "My original recommendation was consistent with the panel, and I would have been happy with that, but the community was so adamant about it."
Graziano said he was never asked by the mayor to change his position and that the only pressure he ever received was from the community.
Residents often express strong opinions about redevelopment plans, but this case is unusual in that the project was not expected to differ greatly regardless of which team won. The community and the city had already established the broad outline of the proposed neighborhood through a 2004 zoning plan.
Some said they objected to McCormack mainly because the city seemed so eager to use them.
"It wasn't about their work," said Angela Bethea-Spearman, president of the Uplands Community Association. "They appeared to the community to be pre-chosen. We wanted a fair process for everyone. [They] knew too much and [weren't] from here. It did seem like it was set up."
Bethea-Spearman added that the McCormack team did not provide details about its plan to use minority- and women-owned subcontractors while the Pennrose team had put together an impressive list that included many of Baltimore's best-known minority contractors.
According to the housing department's request, the panel did not weigh heavily each team's ability to use minority firms. Out of a possible 160 points, the panel's scoring criteria reserved only five points for the use of minority-owned businesses.