U.S. Environmental Protection Agency Solid Waste Recycling GrantCity of Dubuque
City Council Meeting
ITEM TITLE
SUMMARY:
SUGGESTED
DISPOSITION:
ATTACHMENTS:
Description
MVM Memo
Copyrighted
March 20, 2023
Consent Items # 05.
U.S. Environmental Protection Agency Solid Waste Recycling Grant
City Manager recommending City Council approval of the submittal of a
U.S. Environmental Protection Agency Solid Waste Recycling Grant
application.
Suggested Disposition: Receive and File; Approve
Solid Waste Recycling Grant
Grant Application
Type
City Manager Memo
Staff Memo
Supporting Documentation
THE CITY OF
Dubuque
DUjIBQTE
WAWca 914
Masterpiece on the Mississippi
2007-2012-2013
2017*2019
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: U.S. Environmental Protection Agency Solid Waste Recycling Grant
DATE: March 8, 2023
Public Works Director John Klostermann is recommending City Council approval for the
submittal of a U.S. Environmental Protection Agency Solid Waste Recycling Grant
application in the amount of $2,550,000. There is no grant match required for this grant
request.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
Micl�ael C. Van Milligen
MCVM-sv
Attachment
CC' Crenna Brurnwell, City Attorney
Cori Burbach, Assistant City Manager
John Klostermann, Public Works Director
THE CITY OF
DtUB El
Masterpiece on the Mississippi
TO: Michael C. Van Milligen, City Manager
FROM: John Klostermann, Public Works Director JK
Dubuque
MI-Amirics My
2007-2012-2013
2017*2019
SUBJECT: U.S. Environmental Protection Agency Solid Waste Recycling Grant
DATE: March 3, 2023
BACKGROUND
The Solid Waste Infrastructure for Recycling (SWIFER) Grant program is a new
program funded through the Infrastructure Investment and Jobs Act. The
Infrastructure Investment and Jobs Act provides $275 million for Solid Waste
Infrastructure for Recycling grants to support President Biden's Building A Better
America.
DISCUSSION
SWIFR funding will support the purchase of 18,000 tipper carts and 4 automated, side -
loader recycling trucks. Due to feedback from the community, these 18,000 tipper carts
will include capacity varieties in lieu of an 18-gallon bin option. The proposed project will
help Dubuque to eliminate participation barriers (particularly among disadvantaged
populations), increase recycling rates, generate efficiencies, increase community
aesthetics, and reduce injuries of Public Works Department staff.
The city seeks a total of $2,550,000 in EPA SWIFR funding to support the described
activities. There is no grant match required for this grant request.
Action Required
It is my recommendation and request your approval to submit the Solid Waste
Infrastructure for Recycling (SWIFER) Grant.
Cc:
Jennifer Larson, CFO
Arielle Swift, Assistant Public Works Director
Jacob Jansen, Resource Management Supervisor
Summary Information Cover Letter
ENVIRONMENTAL PROTECTION AGENCY (EPA)
Solid Waste Infrastructure for Recycling
Cooperative Agreement 2022 EPA-1-OLEM-ORCR-23-03
1. Project Title: Community -wide Transition to Automatic Recycling Services with Tipper Carts
in Dubuque, IA
2. Application Name: City of Dubuque
3. Eligible Entity Type: Political subdivision of state
4. Qualification for Program Track: Track I — The City is pursing Track I resources to serve
its Washington (Census Tract 1), Point (Census Tract 3), North End (Census Tract 5), and West
End (Census Tract 12.02) neighborhoods, identified as disadvantaged by the Climate and
Economic Justice Screening Tool. Minorities comprise 18.3%, 14.9%, 3 1.0%, and 14.6% of
Census Tracts 1, 3, 5, and 12.02, respectively, compared to 13.1% across Dubuque. Median
household incomes are also 30-50% lower in these neighborhoods than the national level. Poverty
is nearly twice as high than the United States rate in Census Tract I and 5. Disability rates also
range between 15.0-23.7% in these disadvantaged areas. See attached map and description.
5. UEI Number: FK75GL4E3DN6
6. Project Summary: Dubuque seeks Solid Waste Infrastructure for Recycling (SWIFR) funding
to conduct a community -wide transition from opt -in to automatic recycling services, with tipper
carts instead of 18-gallon bins. SWIFR funding will support the purchase of 18,000 tipper carts
and 4 automated, side -loader recycling trucks. The proposed project will help Dubuque to
eliminate participation barriers, increase recycling rates, generate efficiencies and cost savings,
curb greenhouse gas emissions, increase community aesthetics, and reduce injuries of Public
Works Department staff.
7. Contact Information: Jake Jensen, Resource Management Supervisor, City of Dubuque,
Municipal Services Center, 925 Kerper Court, Dubuque, IA 52001; jjansenkci1yofdubuque.orR;
(563) 594-8640
8. Project Location: Dubuque, IA
9. Total Project Cost: $2,550,000
10. EPA Funding Requested: $2,550,000
11. Project Period: 2 years
12. Program Objective Elements: "Establish, increase, expand, or optimize collection and
improve materials management infrastructure" and "Demonstrate a significant and measurable
increase in the diversion, recycling rate, and quality of materials collected for municipal solid
waste."
13. Strategic Plan Elements: Goal 1: Tackle the Climate Crisis, Objective 1. 1 Reduce Emissions
that Cause Climate Change; Goal 2: Take Decisive Action to Advance Environmental Justice and
Civil Rights, Objective 2. 1: Promote Environmental Justice and Civil Rights at the Federal, Tribal,
State, and Local Levels; Goal 5: Ensure Clean and Safe Water for All Communities, Objective
5.2: Protect and Restore Waterbodies and Watersheds; and Goal 6: Safeguard and Revitalize
Communities, Objective 6.2: Reduce Waste and Prevent Environmental Contamination
14. Cooperative Partners: Dubuque Metropolitan Solid Waste Agency, Dittmer Recycling
1. PROJECT SUMMARY AND APPROACH
The City of Dubuque seeks $2,550,000 in U.S. Environmental Protection Agency (EPA) Solid
Waste Infrastructure for Recycling (SWIFR) funding to conduct a community -wide transition from
opt -in to automatic recycling services, with tipper carts instead of 18-gallon bins. Currently,
Dubuque residents must elect to participate in local recycling collections. The City uses a mix of
18-gallon bins (10,000-15,000 households) and a limited number of 96-gallon carts (3,400
households). Households with 96-gallon carts have been shown to recycle significantly more
materials in Dubuque. SWIFR funding will support the purchase of 18,000 tipper carts and 4
automated, side -loader recycling trucks. Due to Dubuque's hilly terrain and feedback from the
community, these 18,000 tipper carts will include capacity varieties between 35-gallon (94%
increase) and 96-gallon (433% increase) in lieu of an 18-gallon bin option. The proposed project
will help Dubuque to eliminate participation barriers (particularly among disadvantaged
populations as defined by the Climate and Economic Justice Screening Tool ), increase recycling
rates, generate efficiencies and cost savings, curb greenhouse gas emissions, increase community
aesthetics, and reduce injuries of Public Works Department staff.
Detailed Proiect Summary — Dubuque (population 59,119) offers curbside collection services
for trash, yard waste, recyclables, food scraps, electronics, and large items to all single-family
through six-plex multi -family households. The City's Pay -As -You -Throw (PAYT) system
incentives recycling as solid waste customers are charged a monthly volume -based fee for trash
collection, ranging from $15.38 for 35-gallon carts to $29.00 for 96-gallon carts. Residents also
must pay $1.50 for excess trash stickers when their carts are full and they need extra bags picked
up. Single -stream recycling services are provided at no charge to solid waste customers. The
current recyclables collected include plastics (I through 5), cardboard, scrap metal, and paper.
Currently, customers are required to contact the City to opt into the recycling program. Residents
must either make an online request or visit/call Dubuque's Public Works Department to receive a
recycling container. When a resident moves out of their home and new residents move in, the City
does not have a process to verify the residence has a recycling container. If the residence does not
have a recycling container at move -in, the new resident may not know how to request one.
For years, only 18-gallon yellow recycling bins were available. More recently, Dubuque has
piloted the introduction of 96-gallon blue tipper carts. However, demand for the larger recycling
containers outpaces supply. Every year, the Public Works Department purchases approximately
400 more carts as budgets allow. There is a consistent list of customers seeking wheeled containers.
Some households request to have wheels and rope retrofitted to their 18-gallon bin to assist with
participation in recycling. As supplies and budget allow, the City obliges.
Opt -in recycling services have created barriers to resident participation in Dubuque. Residents
must take the initiative to figure out how they can participate in recycling. Households without
Internet service are not able to request recycling containers online. Some residents may not realize
that there is a City recycling program if their neighbors are not participating. In addition, customers
who do not speak English well are challenged by the opt -in process. Nationally, the estimated
participation rate for opt -in recycling programs is 38 percent compared to a participation rate of
60 to 80 percent for programs that automatically provide curbside collection.
Like many communities, Dubuque has also seen its recycling rates decline recently. A 5-year
recycling activity report prepared by the City's Public Works Department in 2022 demonstrated
I I P a g e
that Dubuque collected 277.8 fewer tons of recyclables in 2021 than it did in 2017. Opt -in
confusion and frustration with the physical burden and lack of capacity provided by the 18-gallon
recycling bins are contributing factors to Dubuque's falling participation rate.
In 2022, Dubuque contracted with HDR to develop an action plan to increase recycling and
diversion in the community. HDR studied the City's recycling system and recommended a full
community -wide conversion to automatic services with 96-gallon tipper carts. Studies have shown
that a switch from opt -in containers to automatically distributed carts removes barriers to recycling
participation and increases participation rates by up to 30 percent.'
Research conducted in 2019 by Circular Matters found that the roll -out of automatic cart programs
led to renewed interest in recycling not only for those who weren't previously enrolled but also for
those who were already participating. The study realized that when a city brings their residents
new carts, it provides municipal leaders with an opportunity for proper education about the
importance of recycling. Cart drop-off can be paired with educational materials to increase
awareness. The study also mentioned the effects of residents seeing their neighbors participating
2
in the program, driving them to also recycle.
With SWIFR resources, Dubuque seeks to purchase 18,000 various -
sized tipper carts and 4 new side -loader recycling trucks with fully RECYCLE MORE
automated anus that can empty the containers. The City is pursing Track WASTE LESS!
I resources to serve its disadvantaged Washington (Census Tract 1),
Point (Census Tract 3), North End (Census Tract 5), and West End
(Census Tract 12.02) neighborhoods. A transition to automatic recycling
services to all households with larger carts is expected to produce
multiple economic, environmental, and social benefits, including: .... ..
• More convenient and less physically taxing for residents to utilize
wheeled carts;
• Increased quantities of recyclable materials collected due to more 0 not a a i WLIJ-
resident participation as well as larger container capacity;
• Decreased amount of solid waste disposed of at the landfill,
increasing the facility's lifespan and saving the City money;
• Improved aesthetics by reducing the amount of litter caused by overflowing bins in windy
conditions or pests scavenging recyclable materials;
• Reduced trash accumulation on private property, illegal dumping, and potential litter affecting
the Mississippi River;
• Less replacement of recycling containers as the 18-gallon bins are often missing when new
residents move into a home;
• After implementation, fewer collection routes will be needed to cover the same amount of
coverage, which will lead to less money spent on operations and maintenance;
• Greenhouse gases will decrease and climate change mitigated with fewer vehicle miles
traveled by recycling trucks; and
• Worker and resident injuries will decrease due to no longer repetitively lifting and lowering
1 www.gobroomecounty.com/sites/defauIt/files/dept/dpw/pdfs/issue`/`2OPaper`/`20`/`2310`/`20-
%20Bins%20vs%20Carts%20Fina1.Pd
2 www.red-wing.org/DocumentCenter/View/3229/Circular-Matters --- Red-Wi ng-Ca rt-Tra nsition- Repo rt-P D F
2 1 P a g e
non -wheeled containers.
Meetin2 EPA Reguirements — The project will meet the following objectives under SWIFR
Section I.G. Scope of Work: "Establish, increase, expand, or optimize collection and improve
materials management infrastructure" and "Demonstrate a significant and measurable increase in
the diversion, recycling rate, and quality of materials collected for municipal solid waste." The
conversion of 18-gallon recycling bins to 96-gallon tipper carts addresses the following goals and
objectives of the FY 2022-2026 EPA Strategic Plan:
• Goal 1: Tackle the Climate Crisis, Objective 1.1 Reduce Emissions that Cause Climate
Change — Fewer carbon emissions will be generated after project implementation because
recycling collection routes will be optimized;
• Goal 2: Take Decisive Action to Advance Environmental Justice and Civil Rights, Objective
2. 1: Promote Environmental Justice and Civil Rights at the Federal, Tribal, State, and Local
Levels — Distributing tipper carts to all residents will remove opt -in barriers to participation
among disadvantaged populations and potentially save low-income families money through
a reduction in their monthly solid waste bill per increased diversion under a PAYT system;
• Goal 5: Ensure Clean and Safe Water for All Communities, Objective 5.2: Protect and Restore
Waterbodies and Watersheds — Improved waste management and less potential for littering
will help to protect the Mississippi River; and
• Goal 6: Safeguard and Revitalize Communities, Objective 6.2: Reduce Waste and Prevent
Environmental Contamination — Increased recycling participation rates will reduce solid
waste disposed of at the landfill.
Finally, the project aligns with following objective of the National Recycling Strategy: "Increase
collection and improve materials management infrastructure."
Description of Specific Actions and Methods to Be Undertaken — The proposed scope of work
for the project involves:
• Procuring 18,000 recycling tipper carts in sizes ranging from 35-gallons to 96-gallons;
• Purchasing 4 side -loader recycling trucks with automated anus that can empty the carts;
• Delivering new recycling carts to all residents; and
• Transitioning from opt -in recycling services to automatic curbside collection.
The City will conduct an extensive
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used. This outreach will target low-
income and minority populations who
have not traditionally participated
in local recycling,
particularly in Census Tracts 1, 3, 5, and
12.02 (identified as "disadvantaged"
by the Climate and
Economic Justice Screening Tool). Dubuque will also affix stickers in English, Spanish, and
Marshallese to the carts with helpful information
on what can be recycled.
Timeline — Dubuque anticipates a 2-year project timeframe. A kick-off public meeting will launch
3 1 P a g e
project activities. The tipper carts will be procured upon grant award through a tiered approach.
The City will distribute the new tipper carts to all residents upon their receipt. An ongoing outreach
and educational campaign will follow the distribution of the carts. Due to production delays, it is
expected that the delivery of 4 new recycling trucks will take approximately 18-24 months.
Dubuque will measure project results following deployment of the recycling trucks. The City will
also seek opportunities to share project findings with regional and national audiences through
webinars, conferences, and other events.
Major project milestones include:
• Month I — Organize and host kick-off public meetings; finalize cart size options, order 18,000
recycling carts in a tiered approach and 4 trucks with fully automated anus that can empty the
carts
• Month 4 — Receive the first tier of approximately 6,000 recycling tipper carts and assemble
• Months 5-7 — Distribute recycling carts to residents beginning with Census Tracts 1, 3, 5, and
12.02; launch of ongoing outreach and educational campaign
• Month 8 — Receive the second tier of approximately 6,000 recycling tipper carts and assemble
• Months 9-11 — Distribute recycling carts to residents
• Month 12 — Receive the last tier of approximately 6,000 recycling tipper carts and assemble
• Months 13-15 — Distribute recycling carts to remaining residents
• Month 18 — Delivery of 4 recycling trucks
• Months 19-24 — Performance measurement
• Months 22-24: Regional and national promotion of project results
• Month 24 — Project closeout
11. ENVIRONMENTAL JUSTICE
Universal carting is one of the great drivers of equity, providing every household with the equal
opportunity to recycle. The proposed project is intended to reduce recycling participation barriers,
which are experienced more acutely by disadvantaged populations (e.g., language barriers, trust in
government). A tipper cart will be distributed to every residential address in Dubuque. Extensive
stakeholder feedback has led to the development of this application, with residents requesting
larger recycling containers through surveys, public meetings, and direct contact with the Public
Works Department. The City will continue to engage with residents through an outreach and
education campaign that provides instruction on the carts' use as well as what can be recycled.
Those efforts will focus on neighborhoods in Census Tracts 1, 3, 5, and 12.02 that are identified
as "disadvantaged" by the Climate and Economic Justice
Screening Tool.
Community Benefits — Located along the Mississippi
River, Dubuque is Iowa's oldest city. It is a compact,
3
dense community with 24,151 households. The city is
diverse, with a minority population of 13. 1 %. Dubuque
is an aging community, with 18.9% of residents 65 years
or over. A significant proportion of the population suffers
with a disability (13.1%). Between 2017 and 2021,
median household income in Dubuque was $58,691
3 2020 Census estimate
4 1 P a g e
(compared to $69,021 nationally) and 12.3% of residents lived below the poverty line. 4
Dubuque's Washington (Census Tract 1), Point (Census Tract 3), North End (Census Tract 5), and
West End (Census Tract 12.02) neighborhoods are significantly more diverse and low-income than
the city as a whole. Minorities comprise 18.3%, 14.9%, 3 1.0%, and 14.6% of Census Tracts 1, 3,
5, and 12.02, respectively, compared to 13. 1 % across Dubuque. Median household incomes are
also 30-50% lower in these neighborhoods than the national level. Poverty is nearly twice as high
than the United States rate in Census Tract I and 5. Disability rates also range between 15.0-23.7%
in these disadvantaged areas .5 SWIFR investment will directly support minority and low-income
residents, as demonstrated in the chart below:
Demographic Info
Census
Census
Census
Census
Tract
Dubuque
Iowa
United
Tract 1
Tract 3
Tract 5
12.02
States
Minority
18.3%
14.9%
31.0%
14.6%
13.1%
15.6%
40.6%
Median Household
$44,799
$47,750
$36,047
$35,679
$58,691
$65,429
$69,021
Income
Poverty
20.5%
16.2%
24.0%
16.9%
12.3%
11.0%
12.6%
Receive Food Stamps
21.2%
17.7%
35.7%
17.0%
11.1%
9.6%
11.4%
Language Other than
English Spoken at
2.1%
2.5%
11.1%
4.5%
4.9%
8.6%
21.7%
Home
Age 65 and Over
12.6%
20.9%
11.4%
21.7%
18.9%
17.0%
16.0%
Persons with Disabilities
23.7%
15.0%
17.8%
1 17.4%
1 13.1%
11.9%
1 12.6%
Source: U.S. Census Bureau, 2017-2021 American Community Survey
Dubuque's Washington, Point, North End, and West End neighborhoods are also identified as
environmental justice areas of concern. According to the EPA's EJSCREEN tool, these areas range
between the 66 th and 94h percentiles for key Iowa pollution indicators, and between the 58 th and
80th nercentiles nationallv. See results below:
Environmental Indicator
Percentile in Iowa
Percentile in United States
Particulate Matter (PM2.5)
94
67
Ozone (03)
66
59
Diesel PM
86
58
Traffic Proximity and Volume
87
70
Lead Paint
89
78
Superfund Proximity
94
80
Risk Management Plan Facility Proximity
88
76
Hazardous Waste Proximity
87
59
Underground Storage Tanks
91
76
The proposed project meets the Justice40 Initiative's definition of disadvantaged neighborhoods
experiencing low incomes, persistent poverty, racial segregation, and substandard housing. An
automatic recycling program with larger carts will help to overcome inequality and improve
quality of life. Automatic and free recycling service will provide opportunities for disadvantaged
4 U.S. Census Bureau, 2017-2021 American Community Survey
' Ibid.
5 1 P a g e
populations in Dubuque to reduce waste and save money. Unlimited recycling will reduce the
volume of trash collected and enable these households to lower their solid waste collection fees.
Residents who do not speak English well will have no barriers to entry and recycling instructions
will be translated into Spanish and Marshallese. Older residents and persons with disabilities will
be able to bring their recyclables more easily to the curb with wheeled carts. Larger capacity carts
will also help to reduce litter in Census Tracts 1, 3, 5, and 12.02, as well as improve property
values with less illegal dumping and trash accumulation on private property.
SWIFR investment in Dubuque's recycling infrastructure will build on local efforts to improve
equity and reduce barriers to opportunity for disadvantaged residents. Based on U.S. Census data,
the 2021 Dubuque Equitable Poverty Reduction andPrevention Plan notes that a staggering 56. 1%
of Black residents live in poverty, compared to 13.2% for White residents, and experience
unemployment at a rate four times higher than Whites. The highest median household income
among Black Dubuquers is found in Census Tract 5 with a value of only $22,059.6 Federal
investment that helps the City to benefit low-income and minority audiences directly supports
Dubuque's poverty reduction goals.
Community En2a2ement — The planned transition to automatic recycling with various sized
tipper carts in Dubuque is the direct result of community feedback. Residents have strongly
expressed a desire to eliminate Dubuque's opt -in recycling services and shift to larger wheeled
containers. In 2018, the City contracted with Foth to conduct a performance analysis of its solid
waste operations. A survey was developed and promoted through social media, local newspapers
and television, and community events. In total, 785 responses were received from Dubuque
residents. Exactly 78% of respondents preferred a wheeled cart option for recycling. In addition,
the survey revealed that curbside collection of recycling was the top -valued part of the collection
system in Dubuque, making it clear curbside recycling collection is a strong part of Dubuque's
identity.
Dubuque will continue its community engagement efforts with a kick-off public meeting at grant
award to share news about its changing recycling services and gather resident feedback. A local
outreach and education campaign will also be launched in conjunction with the delivery of new
tipper carts to residents. That campaign will share information on the carts' use as well as what
can be recycled, focusing on disadvantaged populations in Census Tracts 1, 3, 5, and 12.02.
111. MEASURING ENVIRONMENTAL RESULTS
In accordance with EPA Order 5 700.7A I — Environmental Results under Assistance Agreements,
Dubuque expects the proposed project to achieve the following outputs and outcomes:
Anticipated Outputs — The project will produce:
* 18,000 tipper carts purchased and distributed to residents;
* 4 new fully -automated recycling truck procured and deployed; and
* Recycling outreach and educational materials produced (not funded with grant dollars).
Anticipated Outcomes — Quantitative outcomes include:
* 30% increase in recycling annual pounds per household — from 278 pounds per household in
6 www.cityofdubugue.org/DocumentCenter/View/48238/Dubugue-Eguitable-Poverty-Reduction-and-Prevention-
Plan
6 1 P a g e
2022 to 360 pounds per households 2024 (measured with year-end reports);
* 30% increase in recyclables collected tonnage — from 2,832 tons in 2022 to 3,682 tons in 2024
(measured with year-end reports);
* 5% decrease in solid waste disposed of at the landfill — from 17,230 tons in 2022 to 16,380
tons in 2024 (measured with year-end reports);
* 5% reduction in landfill tipping fees — from $620,798 to $589,757
* 5% reduction in curbside collection violations relating to extra bags of trash in the right-of-
way (measured by year-end reports);
* $18,791 savings in 18-gallon recycling bin replacement expenses (measured by year-end
reports);
* 27% drop in the number of collection -related injuries from 9.5 per year to 7 (verified by
Human Resources Department);
* One fewer recycling routes due to improved operational efficiencies (2022 to 2027
comparison);
* Savings in operational and maintenance savings due to improved recycling collection
efficiencies (measured with year-end reports); and
* Fewer carbon emissions released with associated vehicle miles traveled reductions by
recycling trucks (determined with environmental modeling).
Qualitative outcomes include:
• Less litter in the neighborhoods (measured by survey);
• Improved neighborhood aesthetics (measured by survey); and
• Satisfaction with Dubuque's automatic recycling services and the transition to larger capacity
tipper carts (measured by survey).
IV. PROGRAMMATIC CAPABILITY AND PAST PERFORMANCE
Dubuque has an exemplary record of complying with federal grant requirements, including with
the EPA Brownfields and Community Revitalization programs. Detailed work plans were
established for previous federally -supported efforts. All obligations were met on budget and on
time, including the filing of timely quarterly reports.
Past Performance
2018-2020 — Dubuque received a $200,000 EPA Brownfields Cleanup grant to continue
remediation at 411 East 15th Street (Cooperative Agreement # BF-97764401). The grant
period was scheduled from October 1, 2018 to September 30, 2020. Soil contamination was
addressed on the West Blum site. The project was successfully closed out with all federal
dollars spent.
* 2019-present — Dubuque was selected for an $800,000 EPA Brownfields Multipurpose grant
to conduct 5 Phase I and 5 Phase II environmental site assessments, develop a cleanup and
reuse plan, and clean up 3 catalyst sites (Cooperative Agreement # BF-97768801). Grant
funds also will be used to support community engagement activities. The grant period is still
open on this funding.
* 202 1 -present — Dubuque was honored with Building Blocks "Addressing Emerging Mobility"
technical assistance from EPA's Office of Community Revitalization. This expert support is
helping the City to develop new, sustainable solutions to its transportation hurdles, weaving
together the following elements: smart parking, micro -mobility, innovative street design,
flexible transit options, real-time travel information, and new financial models. This technical
7 1 P a g e
assistance project period was scheduled from October 1, 2018 to November 29, 2021.
Reporting — Dubuque has a long history with managing and reporting on grant -funded work.
Timely reports have been filed for all previous EPA and other federally -supported projects. Those
reports provided clear details on the outputs and outcomes achieved through those cooperative
agreements. For EPA's Brownfields program, reporting was successfully conducted through the
Assessment, Cleanup, and Redevelopment Exchange System.
For the SWIFR-supported work, the City will assign a project manager (Jake Jansen). He will
serve as a liaison between EPA Region 7 and Dubuque, and will be responsible for assuring
compliance with the administrative and reporting requirements of the cooperative agreement. A
final technical report will also be filed upon project completion.
Omanizational Experience — Dubuque's Public Works Department has managed the
community's recycling services since 1992. The City has been recognized as a solid waste
management and recycling leader. It received the Governor's Iowa Environmental Excellence
Award (2000), the Iowa Department of Natural Resources' Iowa Recycling Award (2000), and the
Iowa Society of Solid Waste Operations' Outstanding Program Award (2006). However, while the
City provides high -quality curbside recycling at no charge to customers, it has fallen behind other
jurisdictions in infrastructure investment. Dubuque is one of the last cities in Iowa still using 18-
gallon bins.
The key to successful project implementation will be the development of a detailed work plan with
clear objectives. This will be developed at an initial meeting, including participation from the City
Manager and other key staff. The meeting will identify goals, and responsibilities within the work
plan will be well-defined. Perfortnance measures will help to track progress. To ensure that the
project is on schedule, status updates will be incorporated into the City's existing reporting
structure. Monthly reports will be provided to the City Manager. In addition, staff will meet
regularly with key partners (e.g., Dubuque Metropolitan Solid Waste Agency).
Staff Expertise — Dubuque has the staff capacity to manage the proposed project. Key personnel
include:
• Jake Jansen is the City's Resource Management Supervisor. He will manage the proposed
SWIFR project and conduct day-to-day activities. Jake has an extensive background in
environmental efforts across the community. He is responsible for the planning and
supervision of all solid waste, recyclable, and organic collection programs. Jake also works
to identify waste reduction efficiencies to identify a path toward zero -waste. He earned a
Bachelor's degree in Sociology and Political Science at Loras College and earned a Master's
degree in Sustainable Peacebuilding from the University of Wisconsin -Milwaukee.
• John Klostermann is Dubuque's Public Works Director. He will oversee the SWIFR-funded
project. John joined the City of Dubuque in 1975. He is responsible for managing municipal
operating and capital improvement budgets, as well as administering refuse collection and
recycling, landfill operations, and the municipal garage activities. John is a current member
of the American Public Works Association (APWA). In 2019, he was a recipient of APWA's
Top Ten Public Works Leaders of the Year award.
• Arielle Swift is Dubuque's Assistant Public Works Director. She will oversee the financial
progress and reporting of this SWIFR-funded project. Arielle joined the City in 2015 as a
Finance Intern and quickly moved to a full-time Accountant position. She is responsible for
8 1 P a g e
managing the five core areas (field operations, fleet maintenance, landfill operations, curbside
collection, and administration) of Public Works with a focus on operational process
improvements, data capture, tracking, and projections within each. Arielle is the Young
Professional Co -Liaison for Iowa's APWA. She has earned a Bachelor of Arts degree in
Finance and Accounting and a Master of Science in Business Analytics degree.
V. BUDGET AND EXPENDITURE OF AWARDED GRANT FUNDS
Dubuque has the technical, legal, and financial capacity to deliver the proposed project effectively.
The City's experienced staff will manage EPA -funded work. Longstanding local procedures are
in place to support the management of federal grant activities. Dubuque has demonstrated its
capacity to carry out procurement projects in compliance with federal guidelines through
previously funded work (e.g., bus acquisition through the Federal Transit Administration).
Dubuque will only seek reimbursement from EPA for agency -approved budget expenses.
The City's financial controls will safeguard EPA investment. An independent audit is performed
annually in accordance with standards applicable to financial audits contained in "Government
Auditing Standards," OMB Circular A-133. The City has never been cited for an adverse OMB
Circular A-133 audit finding and has never been required to comply with "high risk" terms or
conditions under OMB Circular A-102. Additionally, the City's legal department is able to assist
in any compliance issues.
The City seeks a total investment of $2,550,000 in EPA SWIFR funding to support the described
activities. All federal funding will be expended within a 2-year timeframe. Track I resources will
help Dubuque serve its disadvantaged Washington (Census Tract 1), Point (Census Tract 3), North
End (Census Tract 5), and West End (Census Tract 12.02) neighborhoods, as defined by the
Climate and Economic Justice Screening Tool. See attached map and description. Budgeted costs
are reasonable and necessary to achieve the identified goals. See the attached Budget Table and
Description for full details.
VI. PROJECT SUSTAINABILITY
Fully transitioning to automatic recycling collection with larger containers is difficult for a midsize
community like Dubuque to achieve due to budget constraints. While the City has slowly
introduced 96-gallon recycling tipper carts since 2016, the pace is not material enough for
Dubuque to realize significant participation rate increases or the efficiencies and cost savings
associated with a complete shift. A one-time SWIFR investment will enable Dubuque to sustain
improved recycling services indefinitely. New tipper carts and 4 new recycling trucks will
transform recycling in the area. These changes will outlast federal investment and establish
permanent economic, envirom-nental, and social benefits that the City will realize year after year.
Dubuque commits to invest local funding into ongoing recycling operations. Over the life of tipper
carts, replacements will be needed. Larger recycling containers will have to be provided for new
construction. Recycling trucks will also require ongoing maintenance, repairs, and eventual
replacement. The Public Works Department's annual budget, flinded by solid waste collection
fees, will absorb these recurring costs.
The project will also create long-term cost savings and efficiencies that will help to support local
curbside recycling, including:
9 Dubuque will save money on operations and maintenance by driving fewer recycling routes
9 1 P a g e
due to fully -automated trucks and larger containers;
• Fewer workers' injuries incurred repetitively lifting 18-gallon bins will help to lower the
City's insurance premiums; and
• Community -wide outreach and educational efforts wi I I speak to all residents, not just those
who request recycling infrastructure.
VII. INNOVATIVE APPROACHES AND SOLUTIONS
Dubuque is incorporating innovative approaches in its proposed solution, including:
• The launch of a widescale outreach and education campaign has the opportunity to attract
more eyes and ears. Timed with the tiered delivery of new tipper carts, these efforts will share
instruction on the carts' use as well as infonnation on what can be recycled. The City will
partner with public schools, neighborhood associations, environmental groups, and other
stakeholders to share its news. The big recycling push will help to grow participation rates
and tonnage of recyclables collected.
• Dubuque will develop an incentive program to urge greater recycling participation. Working
with area businesses, the City will offer prizes to residents who begin recycling. The details
of the incentive program will be developed upon grant award.
• The City's focus on breaking equity barriers is unique among local recycling efforts.
Community engagement activities will target Census Tracts 1, 3, 5, and 12.02, disadvantaged
areas where participation rates are low. Stickers with recycling instructions will also be
applied to recycling tipper carts in English, Spanish, and Marshallese.
VIII. PROJECT REPLICABILITY
Dubuque's transition to an automatic recycling system with larger containers can serve as a model
for other cities across the nation, particularly smaller and midsize communities. The City will fully
document the benefits achieved with the proposed changes. Fact sheets and reports highlighting
the SWIFR-funded efforts will be prepared to share with local government leaders. Dubuque will
also seek opportunities to present its results on webinars and at regional/national conferences,
including ICMA (city managers) and APWA (public works directors) events.
IX. LEVERAGING
Federal investment in Dubuque's recycling efforts will leverage additional local, state, federal, and
private sector resources, including:
• Transitioning to automatic recycling with larger containers in one fell swoop will help to
minimize costs that the Public Works Department would otherwise have paid over time, which
can be invested into broader zero -waste goals;
• All project management as well as outreach and education campaign expenses will be borne
by the City;
• The City will partner with the Dubuque Metropolitan Solid Waste Agency, which handles
glass recycling regionally, to conduct outreach and educational efforts;
• Dubuque will coordinate with public schools, neighborhood associations, environmental
groups, and other stakeholders to expand its information reach;
• Increased recycling revenues through greater participation rates and more tonnage of
recyclable materials will be reinvested into outreach and educational efforts to grow recycling
further; and
• Partnership with Dittmer Recycling to increase recycling educational funding; and Dubuque
will create an incentive program that urges greater recycling participation.
10 1 P a g e
Bud2et
Table
Personnel
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Personnel Subtotal
$0
$0
$0
Fringe Benefits
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Fringe Benefits Subtotal
$0
$0
$0
Travel
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Travel Subtotal
$0
$0
$0
Equipment
Year 1
Year 2
Total
4 automated, side -loader recycling
trucks @ $305,000 per truck
$1,220,000
$0
$1,220,000
18,000 tipper carts g $70 per cart
$1,260,000
$0
$1,260,000
Equipment Subtotal
$2,480,000
$0
$2,480,000
Supplies
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Supplies Subtotal
$0
$0
$0
Contractual
Year 1
Year 2
Total
Distribution of tipper carts to
Dubuque households
$50,000
$20,000
$70,000
Contractual Subtotal
$50,000
$20,000
$70,000
Eligible Construction Costs
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Eligible Construction Costs
Subtotal
$0
$0
$0
Other
Year 1
Year 2
Total
Not applicable
$0
$0
$0
Other Subtotal
$0
$0
$0
Total Direct
$2,530,000
$20,000
$2,550,000
Total Indirect
$0
$0
$0
TOTAL
$2,530,000
$20,000
$2,550,000
Description
Personnel — The budget includes no staff costs.
Total Personnel: $0
Frimze Benefits — The budget includes no fringe benefit costs.
Total Fringe Benefits: $0
Travel — The budget includes no budget costs.
Total Travel: $0
Bud2et
Equipment — Dubuque plans to procure 4 automated, side -loader recycling trucks with SWIFR
funding. The cost of each truck is $305,000. This equipment is necessary to empty the tipper carts.
In addition, 18,000 tipper carts will be purchased for each household in Dubuque. The cost of each
tipper cart is $70. Conversion to and full community distribution of larger -capacity tipper carts
will remove barriers to recycling participation and increase participation rates by up to 30 percent.
Item
# of units
Cost per unit
Total
Automated, side -loader recycling
truck
4
$305,000
$1,220,000
Tipper cart
18,000
$70
$1,260,000
Total
$2,480,000
Dubuque will comply with all Bul I d America, Buy America Act requirements.
Total Equipment: $2,480,000
SLapplies — The budget includes no supply costs.
Total Supplies: $0
Contractual — Dubuque will contract with a local company to distribute tipper carts to all
households in the community. Over the 2-year project period, a total of $70,000 is included in
these contractual costs to provide tipper carts to 18,000 addresses. Approximately 12,000 tipper
carts will be distributed in Year I and the remaining 6,000 tipper carts will be distributed in Year
2. Distribution of tipper carts will begin in Census Tracts 1, 3, 5, and 12.02, identified as
disadvantaged neighborhoods by the Climate and Economic Justice Screening Tool.
Service
Year 1
Year 2
Total
Distribution of 12,000 tipper carts to
households
$50,000
$0
$50,000
Distribution of 6,000 tipper carts to
households
$0
$20,000
$20,000
Total
$70,000
Total Contractual: $70,000
Eligible Construction Costs — The budget includes no construction costs.
Total Eligible Construction Costs: $0
Other — The budget includes no other costs.
Total Other: $0
Indirect Costs — The budget includes no indirect costs.
Total Indirect Costs: $0