Brownfield Conceptual Redevelopment Plan for 3400 Jackson Street (former Flexsteel Industries Site)City of Dubuque
City Council Meeting
Consent Items # 06.
Copyrighted
May 15, 2023
ITEM TITLE: Brownfield Conceptual Redevelopment Plan for3400 Jackson Street
(former Flexsteel Industries Site)
SUMMARY: City Manager providing information to City Council to receive and file for
the Brownfield Conceptual Redevelopment Plan for 3400 Jackson
Street.
SUGGESTED Suggested Disposition: Receive and File
DISPOSITION:
ATTACHMENTS:
Description
MVM Memo
Staff Memo
Type
City Manager Memo
Staff Memo
Brownfield Site Conceptual Re -use Plan Supporting Documentation
Brownfield Site Conceptual Re -use Plan Attachments Supporting Documentation
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Brownfield Conceptual Redevelopment Plan for 3400 Jackson Street
(former Flexsteel Industries Site)
DATE: May 11, 2023
Economic Development Director Jill Connors is providing information to City Council to
receive and file for the Brownfield Conceptual Redevelopment Plan for 3400 Jackson
Street.
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Mic ael C. Van Milligen
MCVM:sv
Attachment
CC' Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Jill Connors, Economic Development Director
Dubuque
THE CITY OF
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Masterpiece on the Mississippi 2017*2019
TO: Michael C. Van Milligen, City Manager
FROM: Jill M. Connors, Economic Development Director
Economic Development
Department
1300 Main Street
Dubuque, Iowa 52001-4763
Office (563) 589-4393
TTY (563) 690-6678
http://www.cityofdubuque.org
SUBJECT: Brownfield Conceptual Redevelopment Plan for 3400 Jackson Street
(former Flexsteel Industries Site)
DATE: May 10, 2023
INTRODUCTION
This memorandum presents a brownfield conceptual redevelopment plan for the former
Flexsteel Industries site located at 3400 Jackson Street and requests City Council receive
and file the plan.
BACKGROUND
In 2017, Flexsteel Industries constructed a new facility in the Dubuque Industrial Center
on Seippel Road to modernize and expand their operations. The buildings on their 3400
Jackson location were subsequently taken down, leaving a 43-acre site with bare ground
and concrete slabs which are currently surrounded with construction fencing. The area
was ripe for revisioning in order to take a holistic approach to redeveloping the area as
opposed to a piecemeal approach to land use.
The East Central Intergovernmental Association (ECIA) has received a brownfield grant
from the EPA to conduct brownfields remediation efforts. One qualifying activity under
that grant is planning. As an interested party in the redevelopment of the portion of
Dubuque's north end that includes 3400 Jackson Street, the City of Dubuque was eligible
to apply for a planning grant and did so in late 2021. Flexsteel Industries was supportive
of the City's application for this grant.
DISCUSSION
With the use of this grant, ECIA hired Blackstone Environmental to conduct two focus
groups (the North End Neighborhood Association and a group of nearby businesses,
some of which had already verbally expressed interest and support of the proposed
planning efforts) as well as a public input session.
Blackstone Environmental studied several of the City's current planning documents (the
Imagine Dubuque Comprehensive Plan, Climate Action Plan, Equitable Poverty
Reduction & Prevention Plan, Arts & Culture Master Plan, and the Iowa Finance
Authority's most recent Housing Study) before gathering public input on proposed uses
for the area. The purpose of having Blackstone Environmental review and synthesize the
goals of these plans was to inform the conversations that will be held in focus groups and
a public meeting. Having input sessions grounded in information already provided by our
residents has helped make for a solid vision that our community has indicated are
priorities for them.
The resulting conceptual plan is attached.
RECOMMENDATION/ ACTION STEP
I respectfully request that City Council receive and file the Brownfield Conceptual
Redevelopment Plan for 3400 Jackson Street.
2
Prepared For:
The City of Dubuque
Prepared By:
East Central Intergovernmental
Association
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Flexsteel Industries
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Brownfield Site
Revisioning Plan
May, 2023
Acknowledgements
City of Dubuque Staff
Jill Connors, Economic Development Director
Steve Sampson Brown, Project Manager
Deron Muering, Civil Engineer II
Alexis Steger, Housing and Community Development Director
Wally Wernimont, Planning Services Manager
City of Dubuque Council
Brad M. Cavanagh, Mayor
Susan R. Farber, Council Member
Ric W. Jones, Council Member
David T. Resnick, Council Member
Laura J. Roussell, Council Member
Danny C. Sprank, Council Member
Katy A. Wethal, Council Member
Gronen Development
John Gronen, President
Nancy Kann, Broker
Other Partners
Dubuque County Conservation Board
Friends of the Dubuque County Conservation Board
East Central Intergovernmental Association
United States Environmental Protection Agency
Blackstone Environmental, Inc.
"Though this project has been funded, wholly or in part, by EPA, the contents of this document do not
necessarily reflect the views and policies of EPA." 2
Table of C
1. INTRODUCTION................................................................................................................................4
StudyArea...........................................................................................................................................6
HistoricalNarrative.........................................................................................................................7
Dubuque Socio-Economic Trends........................................................................................8
2. NORTH END NEIGHBORHOOD.............................................................................................10
North End Neighborhood Character..................................................................................11
Neighborhood Demographics...............................................................................................12
The Future of the North End...................................................................................................14
3. RELEVANT CITY PLANS AND POLICIES............................................................................16
City of Dubuque 2037 Vision Statement........................................................................16
CityMission Statement.............................................................................................................16
City of Dubuque - Goals 2022.................................................................................................17
Cityof Dubuque Zoning...........................................................................................................17
Cityof Dubuque Zoning Map................................................................................................18
Cityof Dubuque Zoning Map.................................................................................................18
Transportation Plans and Policies......................................................................................19
Sustainable Dubuque Initiative...........................................................................................22
Dubuque Climate Action Plan............................................................................................23
Dubuque Equitable Poverty Reduction and Prevention Plan ..........................24
Urban Revitalization District.................................................................................................24
C
Table of Contents
4. ENVIRONMENTAL AND SITE INFRASTRUCTURE SUMMARY...............................26
SiteOverview....................................................................................................................................26
Environmental Assessment Summary..............................................................................29
Site Overview and Surrounding Land Use.......................................................................32
Site Water Infrastructure............................................................................................................33
Site Stormwater Infrastructure..............................................................................................34
Site Sanitary Sewer Infrastructure.......................................................................................35
S. PUBLIC INPUT...................................................................................................................................36
Overview..............................................................................................................................................36
CommunityInput Meetings....................................................................................................37
CommunitySurvey........................................................................................................................41
CommunityValues.......................................................................................................................45
6. CONCLUSIONS AND RECOMMENDATIONS...................................................................47
AGateway to the North End...................................................................................................47
WetlandsArea.................................................................................................................................48
FlexsteelSite.....................................................................................................................................50
What's Next for the Flexsteel Site.........................................................................................53
Recommendations........................................................................................................................54
ATTACHMENTS
A. Development Summary for the Former Flexsteel Site
B. Flexsteel Industries Brownfield Site Survey Results
Chapter 1. Introduction
The Revisioning Plan for the Former Flexsteel Industries Brownfields Site was prepared
by the East Central Intergovernmental Association (ECIA) with technical support from
Blackstone Environmental, Inc. (Blackstone) for the City of Dubuque (City) with funding
provided by the United States Environmental Protection Agency (EPA).
ECIA is a council of governments, formed in 1974, with the goal of developing regional
solutions for local governments facing similar problems. ECIA serves eastern Iowa
communities in Cedar, Clinton, Delaware, Dubuque, and Jackson Counties. The ECIA
Brownfields Coalition has a $600,000 Brownfield Assessment grant from the EPA.
Blackstone Environmental, Inc. is a qualified environmental consultant retained by
ECIA to assist with the provision of Brownfield assessment and development planning
in the five -county region, with the more rural Clinton, Delaware, and Jackson Counties
as the target area.
What is a Brownfield? A property that is, or may be perceived as, contaminated with
petroleum, asbestos, lead, metals, or other hazardous substances. Brownfields are
generally abandoned, idle, or underused properties, or vacant land where a facility
once stood. Some locations are contaminated and require cleanup, while others only
need testing to be ready for reuse.
The City of Dubuque was awarded an ECIA Brownfields Coalition grant for brownfield
services which included planning activities such as a site reuse assessment, public
outreach, land use assessment, infrastructure evaluation, and environmental
assessment. EPA funding for these brownfield services is 100% free to use, as a local
match is not required. On September 24, 2021, City of Dubuque staff presented an
application for Brownfield services to the City Council for this site. Council approved
this application during regular session on October 18, 2021.
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Study Area
The City of Dubuque is located in the northeast corner of Iowa along the Mississippi
River. The city is adjacent to Illinois and Wisconsin, a region locally known as the tri-
state area. In 2020, the population of Dubuque was 59,667, making it the llth largest
city in the State of Iowa.
The Former Flexsteel Industries Brownfield Site is located at the northern tip of
Dubuque's North End Neighborhood at 3400 Jackson Street, near the intersection of
Jackson Street and East 32nd Street. The site location is mapped in Figure 1. This site
has historically been the location of a variety of industrial operations, the most recent
being Flexsteel Industries Inc., a manufacturer of upholstered and wooden furniture.
Flexsteel operated a manufacturing facility at the site between 1936 and 2019.
Deconstruction of the site's 715,000 square foot manufacturing building and most of
the associated outbuildings was completed in 2020.
The site is located near key transportation routes, including Central Avenue and the
Northwest Arterial. East 32nd Street provides a dividing line between the site and the
the North End Neighborhood.
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Figure 1. Site Location 6
Historical Narrative
The Former Flexsteel Industries Brownfield Site has history going back more than a
century. In 1911, the Brunswick-Balke-Collender Company, a designer and producer of
high -end bar equipment and furniture expanded into Dubuque and located its
operation at the site. In 1914, the company employed roughly 500 people, won
numerous design awards at international exhibitions, and its furniture adorned some of
the most highly regarded restaurants and bars of the time.
In 1914, Brunswick-Balke-Collender received a contract from Thomas Edison's
Diamond Disc Phonograph Company, because Edison's New Jersey phonograph plant
could not keep up with the cabinet work required for each phonograph unit. In the
early 1920s Brunswick-Balke-Collender began producing radio cabinets and the
company's laborforce increased to nearly 1,650 workers. The Brunswick-Balke-
Collender plant officially closed in 1931 due to the reduced demand for phonographs
caused by the Great Depression.
In 1936, the Minnesota -based furniture company Flexsteel Industries moved into the
former Brunswick- Balke-Collender buildings. A year later, the parcel behind the
Flexsteel buildings was purchased by General Dry Batteries. At its peak, General Dry
Batteries produced between 500 to 1,000 rail cars of finished product on an annual
basis, with orders largely coming from government contracts during World War II.
The Dubuque arm of General Dry Batteries was eventually closed in 1958. During this
time, Flexsteel's business continued to flourish, becoming a publicly traded company in
1969. Following the acquisition of a lucrative contract with General Motors in the
1970s, Flexsteel was able to expand and acquire adjacent parcels including the
former General Dry Batteries factory.
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Brunswick- Balke-Collender Company Plant C. 7977
In 2017, Flexsteel officials announced that the company would relocate its Dubuque
manufacturing operations to a new facility on the city's west side and would close the
Jackson Street location. In April of 2020, the deconstruction of the site's buildings
began and Flexsteel tasked Gronen Development with determining options for the
site's redevelopment. Currently, Flexsteel retains ownership of the Jackson Street site.
The City of Dubuque applied to the ECIA Brownfields grant program to assist with the
initial stages of the redevelopment for the site including a Phase I, Phase II and
developing a re -use plan. As part of their future plans for the site, Flexsteel plans to
donate several acres of the site to the Dubuque County Conservation Board (DCCB).
Under the DCCB's application, ECIA has provided a Phase I Environmental Site
Assessment (ESA) as well as a site reuse plan specifically for the donated portion of
land to the Dubuque County supervisors on June 6th, 2022.
The donated portion of land, which is a wetland, is planned to be used as a public
park and will help realign the DCCB's Heritage Trail. Before construction begins on
the realignment of the trail, a Phase II Environmental Site Assessment was conducted,
and it was determined that no further assessment was needed on the portion tested.
The Flexsteel Brownfield Site Revisioning plan represents the culmination of the public
outreach efforts that were facilitated by ECIA and Blackstone through the last
quarter of 2021. The plan will serve as a road map for city officials and private
developers on how to redevelop the site in a way that best serves the North End and
the greater Dubuque community.
Dubuque Socio-Economic Trends
Following its charter in 1837, the City of Dubuque's population grew steadily, peaking
at 62,374 in the 1980 census. This period of sustained population growth was primarily
driven by the city's expanding manufacturing economy, which during this period, was
one of the largest in the State of Iowa. However, the 1980s farm crisis hit Dubuque
and the State of Iowa hard, particularly, large agricultural manufacturing employers.
Between 1982 and 1989, many manufacturing employers began to lay off workers,
roughly 4,970 in this seven-year span, and many people left the community and the
state in search of better opportunities. This economic shock caused the city to
reevaluate its economic strategy. Community leaders from the private and public
sectors came together for community visioning efforts that helped change Dubuque,
focusing on efforts to address downtown redevelopment and industrial expansion.
Table 1 Dubuque Decennial Census Population - 1960 to 2020
56,606 62,309
62,374
57,538
57,686
57,637
59,667
Source: U.S Census Bureau Decennial Census 1960-2020
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Dubuque's efforts to reinvent itself have been a success. In 2005,
Dubuque ranked 22nd in the country in terms of economic growth, far
outpacing any region in the State of Iowa. Today, Dubuque's population
and economy are growing again and the city serves as the retail,
medical, education, and employment center for the tri-state area.
Currently, Dubuque is still growing and new developments including the
revitalization of the Historic Millwork District and South Port Area may
catalyze more growth in the future.
The economic growth has resulted in a diversified job market in
Dubuque. The percentage of manufacturing and production jobs has
decreased over time, but there has also been an increase in highly
technical jobs in the engineering, computer science, healthcare, and
financial industries. These occupational trends point to an evolving
economy within the city, from a 20th century manufacturing economy to
one based in the knowledge economy.
Table 2 Occupations in the City of Dubuque
Occupational sector
% Employed 2013
% Employed 2019
Business,
13.66%
14.63%
Sales, and Financial
Office and
13.50%
12.30%
Administration
Healthcare
8.00%
9.78%
Management
7.02%
8.60%
Transportation
°
7.51/0
°
8.24/°
and Material Moving
Food Service
8.97%
7.49%
Education,
7.60%
7.14%
Library
Production
7.36%
7.11%
Mathematics,
Engineering, and
4.20%
5.46%
Computer Science
Source: U.S Census Bureau
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Chaper 2. The North End
Ne'ghborhooc�
While not formally defined, Dubuque's North
End Nieghborhood is generally understood
to include the area north of 22nd Street and
between Central Avenue and Windsor
Avenue.
The North End was first settled toward the
end of the 19th century. The community was
originally populated with German American
immigrants that sought to create a
neighborhood with German Catholic
churches separate from the Irish Catholic
churches that were located downtown and
in the South End.
The North End Neighborhood is one of
Dubuque's historic, predominantly residential
neighborhoods. Historically a working-class
neighborhood, the North End housed the
employees of the city's nearby industries in the
Millwork District, the Riverfront, and the Former
Flexsteel Site.
The North End's buildings and infrastructure
represent the mixed -use neighborhood that
was common in pre -World War II American
cities. Mixed -use, walkable neighborhoods
were the standard in a time before
widespread adoption of automobiles, where
most city residents traveled on foot or by
streetcar.
The neighborhood's residential structures
include a mixture of single-family homes,
duplexes, and multi -family apartment
houses. Commercial buildings are scattered
throughout the neighborhood. Many
commercial buildings combine residential
and commercial uses, with retail space on
the first floor and apartments on the upper
floors.
Many of the neighborhood's commercial
structures once housed the corner drug and
grocery stores, shops, bars, and restaurants
that historically served the neighborhoods'
residents. Today, some of these first floor
spaces are still used for commercial
purposes, but many have been converted to
residential uses.
Central Avenue was historically one of
Dubuque's major commercial corridors. The
corridor is home to more intense
commercial development, two and three
story buildings with retail space on the main
level and apartments or office space in the
upper stories.
10
North End Neighborhood
Character
The North End's buildings were constructed on
narrow lots that were common for urban
neighborhoods in the late nineteenth and early
twentieth centuries. Typical residential lot
dimensions for the area are 25 to 50 feet wide,
much narrower than today's typical lot. The lots
are 100 to 150 feet deep, platted in long blocks,
and most had alley access in the rear. The
neighborhood's streets are also narrow by
today's standards. Key commercial corridors
such as Central Avenue have 66-foot right-of-
way, while most residential streets are only 50
feet wide.
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Today, the North End provides a unique
historical aesthetic. The North End has a
close-knit neighborhood feel with residents
chatting on their stoops and kids playing
outside. Within the neighborhood, there are
a great number of small businesses
sprinkled in between residential uses,
making the North End a highly dynamic
environment where shops can be in walking
distance of one's home.
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Neighborhood Demographics
This section of the plan provides a summary of two key demographic indicators, income and
housing, for the neighborhood around the project site. The maps in this section present
information from the US Census Bureau's 2021 American Community Srurvey 5-Year Estimates. For
this section the North End neighborhood is defined using the boundaries of the North End
Neighborhood Association (NENA). The NENA is bounded by Central Avenue, 22nd Street,
Windsor Avenue, Lawther Street, and 32nd Street. ACS information is mapped by census tract
area. Overall, Dubuque County is divided into 27 census tracts. The NENA area contains parts of
Dubuque County Census Tracts 4 and 5.
HOUSEHOLD INCOME
The median household income in the City of Dubuque was $58,691 in 2021, which was slightly
below the U.S. median of $69,021, and the State of Iowa median of $65,429. Figure 2 indicates
that Dubuque's higher median income census tracts are located around the southern and
western areas of Dubuque, with tracts near the center of the city having lower median incomes.
The median household incomes in the Census Tracts 4 and 5 were $36,047 and $48,297,
respectively, significantly below the city-wide median.
The Dubuque community has identified improving economic security for people living the North
End and the city's other neighborhoods as one of its top priorities. The City of Dubuque's
Equitable Poverty Reduction And Prevention Plan calls for: "employing innovative strategies to
collectively reverse the impact of poverty." Redevelopment of the site could provide an
opportunity to implement some of strategies called for in the plan.
Legend
ENorth End Neighborhood
Association
a Dubuque City Limits
Major Roadways
Median Household Income
(In 2021 Dollars)
35,679 - 45,000
u 45,001 - 55,000
- 55,001 - 65,000
- 65,001 - 75,000
- 75,001 - 100,000
- 100,001 - 117,361
0 0.5 1
v Miles
Map Created by ECIA, 2023
Figure 2. Median Household Income
Source: U.S Census Bureau, 2017-2021 American Community Survey 5-Year Estimates. Table B19019. 12
HOUSING
In addition to income, housing values are a key indicator for the North End neighborhood. In
general, a home is one of a family's largest investments. Redevelopment projects can
improve the neighborhood, bring home values up, and help build wealth for households in the
surrounding area. In 2021, the median value of an owner occupied housing unit was $113,200
in Census Tract 4 and $86,600 in Census Tract 5, falling below the city of Dubuque median
value of $150,700. Figure 3 shows that census tracts located around Dubuque's western edge
tend to have higher median owner -occupied values while the tracts in the Downtown and
North End neighborhoods have lower median values.
Building age is one of the key factors that contributes to lower home values in the North End.
In Census Tract 5, 59% of housing units are in structures that were built prior to 1939. Older
buildings can be an excellent source of good quality housing, but maintenance can be a
challenge, especially for home owners who lack the financial resources or physical abilities
needed to make repairs. In Dubuque, the community has taken action to improve housing in
the community and improve quality of life for residents. Two examples of the community's
housing improvement initiatives include: the Healthy Homes program, which serves low-
income families with young children who are living in homes built before 1978; and the
Central Avenue Corridor Initiative which includes a housing investment program to help
stimulate housing improvement and investment in the area surrounding Central Avenue.
Legend
allorth End Neighborhood
Association
Dubuque City Limits
Major Roadways
Median Value of Owner -
Occupied Housing Units
(In 2021 Dollars)
86,600 - 100,000
100,001 - 150,000
150,001 - 200,000
- 200,001 - 250,000
- 250,001 - 290,400
ft0 0.5 1
v Miles
Map Created by ECIA , 2023
Figure 3. Median Value of Owner -Occupied Housing Units
Source: U.S Census Bureau, 2017-2021 American Community Survey 5-Year Estimates. Table B25077.
13
The Future of the North End
Despite its challenges, the North End remains a vibrant
community with a bright future ahead. Civic associations,
such as the North End Neighborhood Association, partner
with local businesses to hold regular meetings on the issues
facing the North End. The City of Dubuque has also
undertaken several initiatives to transform the
neighborhood. The following section highlights some of the
initiatives that will have an ongoing positive effect on the
North End.
CENTRALAVENUE CORRIDOR INITIATIVE
The Central Avenue Corridor connects Downtown Dubuque
and the Historic Millwork District to the North End. The goal
is to stimulate economic revitalization of the corridor
through collaboration with residents, business owners, social
service agencies, community leaders, the City, and other key
.� stakeholders. The initiative seeks to meet this goal by
completing street and infrastructure improvements and by
establishing the Housing Investment Pilot Program, which
incentivizes housing improvement and construction along the
corridor.
BEE BRANCH WATERSHED FLOOD MITIGATION
PROJECT
The Bee Branch Watershed Flood Mitigation Project was a
multi -phased, fiscally responsible investment to mitigate
flooding, improve water quality, stimulate investment, and
enhance quality of life within the Bee Branch Watershed.
The $240 million investment was designed to mitigate $500
million worth of future flood damage and included the
creation of the Bee Branch Creek Greenway, a one -mile
linear park that stretches from the heart of Dubuque's North
End to the Mississippi River at Chaplain Schmitt Island. It is
home to a multi -use trail, scenic overlooks, an outdoor
amphitheater, benches, lighting, rest areas, a garden, and a
bioswale board walk.
14
RE -IMAGINE COMISKEY PARK
The City of Dubuque is nearly halfway through a $2.46 million construction project to
improve Comiskey Park, a 5.7-acre park located in the center of the North End
neighborhood. In January 2020, The City of Dubuque launched Re -Imagine Comiskey,
a campaign to gather input from the community on how to improve the park. The
campaign included multiple community engagement events, and resulted in a park
master plan that recommended adding several amenities including: a splash pad,
basketball courts, playground, trails, and a parking lot to the existing park. The City
will complete work on the first phase of the project in the spring of 2023, and plans to
complete the remaining phase the year after.
11
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UPCOMING CITY INITIATIVES
In addition to the initiatives highlighted above, the City of Dubuque is proposing the following
investments that will have a positive effect on the North End:
• $14.68 million commitment to making city-wide improvements to existing housing through
various programs.
• $33.85 million investment over three years through State Revolving Loan Fund borrowing
and forgivable loans to replace lead service lines.
• $300,000 grant received from the US Department of Agriculture to increase food
accessibility through hydroponic and indoor production.
15
City Council 2037 Vision Statement
"Dubuque 2037 is a sustainable and resilient city and an inclusive
and equitable community. Dubuque 2037 has preserved our
Masterpiece on the Mississippi and has a strong, diverse economy
and expanding connectivity. Our residents experience healthy
living and active lifestyles; have choices of quality, livable
neighborhoods; have an abundance of fun things to do; and are
engaged in the community."
City Mission Statement
"Dubuque city government is progressive and financially sound
with residents receiving value for their tax dollars and achieving
goals through partnerships. Dubuque city government's mission i<
to deliver excellent municipal services that support urban living;
contribute to an equitable, sustainable city; plan for the
community's future; and facilitate access to critical human
services.
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City of Dubuque - Goals 2022
Each year, the Dubuque City Council conducts a goal
setting session with the purpose of affirming and evaluating
the City's vision statement, mission statement, and its goals.
These goals help the City prioritize issues as they look to
improve the City and better serve its residents. These goals
are not ranked by importance, as the City has identified
these to be goals that can all be pursued simultaneously.
These goals cover governance, development strategies,
equity, infrastructure, and health.
City of Dubuque Zoning
Dubuque's zoning ordinance regulates the usage of land
and the size and shape of structures that can be built on the
land within the city limits. As shown in Figure 4, the former
Flexsteel site and some immediately adjacent properties are
zoned light Industrial. Properties near the intersection of
32nd Street and Central Avenue are zoned for commercial
uses. Properties in the surrounding area are predominately
zoned for residential uses, with some small commercial
properties scattered throughout. Zoning may be changed
pending review by the Dubuque Planning and Zoning
Commission, and approval by the Dubuque City Council.
City of Dubuque Zoning Map
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Figure 4. City of Dubuque Zoning Map
Source: ECIA, 2022
Legend
Zonin assification
Agricultural
Commercial
Heavy Industrial
— Industrial
_ Light Industrial
_ Office Commercial
- Planned Commercial
- Planned Industrial
- Planned Office
— Public Open Space
Planned Residential
_ Planned Unit Develpment
- Residential
Transportation Plans and Policies
LONG RANGE TRANSPORTATION PLA
N"V
The Dubuque Metropolitan Area Transportation Study
(DMATS) Long Range Transportation Plan (LRTP) is the
primary long-range policy guide for Dubuque and
surrounding communities in the metropolitan area. The LRTP
helps aid in identification of transportation issues and
opportunities, as well as prioritization of transportation
projects. As identified by numerous stakeholders in the public
input process, addressing circulation and transportation
issues in the area surrounding the former Flexsteel site will be
an important part of the plans for its redevelopment.
TRAFFIC VOLUME
The former Flexsteel site is located just off Central Avenue, a
key transportation corridor in Dubuque. Traffic counts
conducted by the Iowa DOT, show that the section of Central
Avenue near the site averaged around 10,000 vehicles per
day in 2021. DMATS LRTP traffic forecasts expect that vehicle
traffic on this section of Central Avenue will increase to
around 13,000 vehicles a day by 2050.
COMPLETE STREETS
The City of Dubuque comprehensive plan targeted the
Central Avenue corridor for a variety of street improvements.
Street improvements such as bike lanes, lighting, and signage
all fall under the concept of complete streets as outlined by
the City of Dubuque. The goal of complete streets is to
improve safety for all street users, including bicyclists,
pedestrians, and drivers. Designated bike lanes, large
medians, and frequent safe crossings for pedestrians go a
long way towards achieving these goals.
-1f {
_ .7A
-.
Transportation Plans and Policies Continued
TRAFFIC SAFETY
The DMATS Long Range Transportation Plan used Iowa DOT
crash data to identify high crash areas within the Dubuque
region. The analysis identified locations with 20 or more
crashes between 2016 and 2020. The results of the analysis
are mapped in Figure 5. The analysis identified some of the
most significant crash clusters within the Dubuque
Metropolitan Area. Several intersections along Central Avenue
and White Street are identified as crash clusters, with one
cluster near the Flexsteel site at the intersection of 32nd
Street and Central Avenue. If a new development is to be
undertaken on the Flexsteel site, a traffic study that examines
the traffic safety impacts should be completed prior to
development approval.
STREETS
The Smart Traffic Routing with Efficient and Effective Traffic
System (STREETS) project uses advanced traffic control
strategies to enable dynamic traffic routing to maximize the
use of existing roadway capacities in the Dubuque
metropolitan area. Once complete, the two-phase project will
cover nine corridors with 65 signalized intersections within the
city, including the Central Avenue Corridor.The goal of this
project is to improve safety, reduce infrastructure wear and
tear, reduce congestion, and improve travel times which will
ultimately aid the flow and efficiency of the current traffic
network.
SAGEVILL■Er
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DUBUCUE
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DODGE 57
F yeti' 1
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AVE
Legend
- Number of Crashes
I I
Q 31 - 40
41 - 50
Figure S. City of Dubuque Crash Clusters
Source:. Transportation Plan •• 51-60
52 -
- 61 - 143
Sustainable Dubuque Initiative
DUBUQUE'S 12 SUSTAINABILITY PRINCIPLES
These principles guide government, business, non-profit, and individual
actions in Dubuque. Community planning documents including the
Comprehensive Plan, Long Range Transportation Plan, Comprehensive
Economic Development Strategy, and many others are guided by this
sustainability framework. In 2006 and every year since, the Mayor and City
Council identified becoming a more sustainable city as one of their top
priorities for our community. The City's sustainability vision statement and 12
sustainability principles were incorporated in the conceptual use.
VISION STATEMENT
"Dubuque is a viable, livable, and equitable community. We embrace
economic prosperity, social/cultural vibrancy and environmental integrity to
create a sustainable legacy for generations to come."
Community Design Healthy Local
Foods
0
Smart Energy Community
Use a Health and Safety
Resource Reasonable
Management Mobility
Regional 6� Healthy Air
Economy
Green Buildings Clean Water
Community Native Plants &
07 Knowledge 0 Animals
Dubuque's 72 Sustoinobility Principles
22
Dubuque Climate Action Plan
The City of Dubuque Climate Action Plan 2020 lays out the foundation for the City of
Dubuque's efforts to reduce its greenhouse gas (GHG) emissions and improve its
resilience to future impacts of climate change. The overall impacts of climate
change can result in shorter winters with fewer cold extremes, and more heavy and
extreme precipitation. These impacts can greatly affect the economy and
infrastructure of not only the City of Dubuque, but Iowa as a whole. As an agricultural
state, the effects of climate change are expected to impact crop yields, agricultural
efficiency, and the broader economy.
Increases in the global surface temperature and changes in precipitation levels and
patterns are expected to continue and intensify for decades. In turn, these changes
in climate have impacts on the economy and health of local communities. The
climate action plan is a comprehensive road map that outlines the specific
strategies and actions that a city will implement to reduce greenhouse gas emissions
and build resilience to related climatic impacts.
Climate change impacts will have the
greatest effects on communities and
neighborhoods experiencing high
poverty and economic challenges. As
expressed in the Dubuque Equitable
Poverty Reduction and Prevention
Plan, the census tracts that make up
the North End are significantly more
vulnerable to climate impacts due to
the economic status of the
neighborhoods. The Washington and
North End districts were two
neighborhoods that were specifically
identified within the Dubuque Climate
Action Plan as being especially
vulnerable.
nips ar
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City of Dubuque Climate Action Plan 2020
23
Dubuque Equitable Poverty
Reduction and Prevention Plan
This plan describes the state of poverty in the
City of Dubuque, analyzes its causes and
impacts, and identifies the actions the
community can take to address it. The plan
serves as a type of "Owner's Manual" on how
to take on poverty, providing the entire
community with concrete action steps and
strategies that prevent, address, and rectify its
impact, so that all Dubuquers may prosper.
The plan identifies portions of the North End
neighborhood as "concentrated areas of
poverty," areas where 40 percent of residents
live below the poverty line. In 2018, of the City's
58,340 residents 8,799 had reported income
levels below the poverty line. On average,
Dubuque's 16 percent poverty rate is higher
than the average 12 percent poverty rate
across the State of Iowa.
Urban Revitalization District
EC
Ingaourlty
Jobs
Living Woge
�tlanoi Transp[
wrcl pub.
City Car Qw
msk
MP
Determinants of poverty chart from the
Equitable Poverty Reduction and Prevention
Plan
As of 2019, the North End Neighborhood has been included in an urban revitalization district;
this district covers the older neighborhoods that are in the core of the City. See Figure 6 for a
map of the area. The urban revitalization district assists with the rehabilitation efforts of
vacant or deteriorating properties by providing needed housing units and supporting
commercial uses for the residents of Dubuque and the surrounding area. After the 10-year
abatement period lapses on these projects, the full assessed value of the rehabilitated
property will go on the tax rolls to the benefit of the entire community.
The city assessor lists building conditions for all properties located in the City of Dubuque.
There are 7,266 properties located in the Dubuque Urban Revitalization District. Of these
7,266 properties 5,800 have principal structures (homes, commercial buildings, etc.) located
on the property. Of the remaining 1,466 properties 159 properties are surface parking areas,
91 properties contain detached accessory structures (garages, sheds, etc.), 946 properties
are vacant, and 271 properties are classified as observed.
24
DUBUQUE URBAN REVITALIZATION AREA
Dubuque Urban Revitalization
Area
Established in 2019
Chapter 4. Environmental
and Site Infrastructure
Summary
Site Overview
The Former Flexsteel Industries Brownfields Site is enrolled in the Iowa Land Recycling
Program (LRP), a voluntary site cleanup program within the Iowa Department of Natural
Resources. The site will complete this program, earning "no further action" status as
redevelopment is completed.
Distinct environmental areas within the site include asphalt -paved parking/drive areas
that are located north, west, and east of the where the main building was formerly
located. A former railroad track on the east portion of the property has been converted
to a parking lot, and the far northern portion of the site consists of vacant land with
wooded, grassy, and wetland areas. A stormwater collection pond with pumping station is
also located on the northern portion of the site.
Site Overview (Prior to Demolition)
26
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Wetland Area
This area is an unused portion of the larger brownfield site owned by Flexsteel Industries
that includes wetlands. The area sits adjacent to the Dubuque County Heritage Trail . The
wetland area is home to a variety of plants, birds, and wildlife unique to the wetland
habitat. Environmental assessment of this area was not included in this project, therefore
any potential development of this land should be considered only after further
environmental assessment.
27
7
Flexsteel Site (Prior to Demolition)
At the time of building demolition, much of the underground concrete was left in place as it
was not feasible to remove it. Roughly half of the length of the former manufacturing building
contained a crawl space/basement that was up to 12 feet deep at the northern extent of the
building. The space was filled in, sloped for proper drainage, and seeded in grass.
Additionally, there are currently several concrete pads located within the footprint of the
Flexsteel site.
Soil and groundwater contamination has been identified on this portion of the property.
Contaminated soil can either be dug out and replaced with clean fill, or "capped" to protect
users of the site from exposure. Any remediation scenario will be subject to the DNR's review
and approval. Groundwater will be monitored for a minimum of two years until the levels of
contamination are shown to be steady or declining. An environmental covenant will be
recorded for the site, documenting the location and levels of known contamination on the
site.
N•
Environmental Assessment Summary
Numerous environmental assessment investigations have been conducted over the years
on the former Flexsteel site given its long history of being utilized for manufacturing
purposes. Flexsteel acquired the site in 1982 including remnants of the Chicago Great
Western Railroad Property. Aerial photographs and topographic maps indicate extensive
filling of the north portion of the site prior to the 1990s. In 1999 Flexsteel built a new
warehouse addition to the east of the main building. From 1999 through 2019 the site
remained relatively unchanged. Flexsteel ceased operations and relocated to a new
facility in 2019. Table 3 provides a timeline of environmental assessments conducted on
the site.
Table 3. Environmental Assessment Timeline
1991
DECremoved.
Diesel, waste oil, and gasoline
underground storage tanks
Resource Conservation and
2011
Recovery Act Final Site Sampling
NOV
Visit Report prepared by Booz Allen
Hamilton.
2019
Flexsteel completes asbestos and
hazardous material removal work
NOVon
interior and exterior of Site
structures.
2020 Deconstruction of Flexsteel
buildings completed.
MAY
2020 Flexsteel voluntarily enrolls the
Site in the IA DNR Land
NOVRecycling Program.
Phase I Environmental Site
2021
Assessment completed for
NOVwetland area.
2022
Groundwater monitoring
began in 2022 and final
Jan
report will be completed after
four quarters of sampling have
been completed.
2022
Phase II Environmental Site
Assessment completed for
OCT
portion along Heritage Trail
29
Environmental concerns identified in the former uses of the site include an oil house,
painting, varnishing, railroad shop building, railroad tracks, railroad roundtable, lacquer
use, mixing and storage, spray booths, waste burner, plating, battery manufacturing,
machining, tooling, Underground Storage Tanks (USTs), gas mixer, and truck repair.
Previous soil and groundwater investigations at the site have identified arsenic, cadmium,
lead, polynuclear aromatic hydrocarbons (PAHs) and waste oil in the soil and arsenic,
lead, cadmium, chromium, barium, volatile organic compounds (VOCs), PAHs, and metals
in groundwater. Additionally, prior assessment work identified asbestos containing
materials (ACM) in several of buildings located on the site requiring ACM abatement
prior to demolition or renovation.
Flexsteel voluntarily enrolled the site in the Iowa DNR Land Recycle Program (LRP), a
cleanup program in January 2020. The Iowa DNR will assess the contamination cleanup in
order for the site to obtain a no further action regulatory status. Flexsteel has contracted
with Blackstone Environmental, Inc. to be its environmental consultant and to provide
additional assessment investigations as needed in regards to the environmental condition
of the property as part of the site's enrollment in the Land Recycling Program.
ASBESTOS AND HAZARDOUS MATERIAL ABATEMENT
Flexsteel began the asbestos and hazardous material removal work on the building
interior in September 2019, and it was completed on November 19, 2019. Approximately
38,661 square feet/331 cubic yards of ACM were disposed at Veolia ES Mallard Ridge
Landfill in Delavan, Wisconsin. Approximately 4,173 mercury containing fluorescent
lightbulbs, 3,317 non -PCB ballasts, 146 Polychlorinated Biphenyls (PCB) containing
ballasts, 126 hard shell bulbs, 57 u-bends, 53 compact bulbs with ballasts, 46 high intensity
bulbs, 44 lead batteries, 25 LED bulbs, 8 compact fluorescent bulbs, and 4 shatter shields
were removed from the site and sent to Recycling Compliance Specialists.
For the exterior of the buildings, the asbestos removal work began on October 7, 2019
and was completed on November 27, 2019. Approximately 1,200 yards of ACM were
removed and disposed of at the Dubuque Metropolitan Area Solid Waste Agency in
Dubuque, Iowa.
30
DECONSTRUCTION OF SITE
In conjunction with the asbestos and hazardous material abatement, deconstruction of
the buildings began in September 2019 and concluded in May 2020. Throughout the
deconstruction process, over two million pounds of reusable wood materials were
diverted from landfills along with other building materials that were deemed
salvageable. Timbers found in the old buildings were extremely rare in twenty feet lengths
and are almost impossible to find in the 21st century. FitzGerald Deconstruction and
Reuse salvaged the wood, saving hundreds of tons of valuable material that was
destined for the landfill. Over $10,000 worth of building materials were donated to the
local Habitat for Humanity. Around 60,000 lbs. of metal including nails, steel, and
attached beams were recycled. Thirty-five jobs were created during the cleanup and
deconstruction project. Over fifty small local construction projects were supported with
custom materials salvaged from the site.
CURRENT SITE MONITORING
The IDNR requires groundwater monitoring for a minimum of two years due to the prior
assessment findings. Currently groundwater monitoring is underway in order to obtain a
no further action certificate on the site. Groundwater monitoring began in 2022 and a
report will be issued to the Iowa DNR after four quarters of sampling have been
completed. If steady and/or declining concentrations of contaminants are demonstrated
in site groundwater, monitoring may cease and an environmental covenant restricting the
use of site groundwater may be recorded (pending review and approval of the Iowa
DNR). Contaminated soil can either be removed or capped. Any future development of
the site must be conducted under a Soil and Groundwater Management Plan approved
by the Iowa DNR.
FUTURE DEVELOPMENT
Flexsteel is considering donating to Dubuque County, a portion of the site that contains
wetlands and is along the county -owned Heritage Trail. Flexsteel is looking to sell the
remainder of the site to a potential developer(s). Blackstone prepared an informal
summary of development options, included in Attachment A, that outlines items to be
considered during the redevelopment process by future developers. The summary is to be
used in part with the Revised Site Assessment Report dated December 15, 2020 by
Blackstone. Decisions regarding future development should be made in consultation with
a qualified professional.
SITE INFRASTRUCTURE
Figures 7-10 on the map the existing infrastructure on and around the site.
31
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6
■
I; STUDY AREA
■ i APPROX: 51 ACRES
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'Central Avenue
w
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Flexsteel`�6pC`�
property not O h}
included in plan
0�-, IL
r
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4
Figure 7. Site Overview and Surrounding Land Use
Source: City of Dubuque
Legend
Residential
Institutional
Commercial
Study Area
0 0.05 0.1 0.2 0.3
z�
0.4
■ Miles
z
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APPROX: 51 ACRES
W
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Flexsteel
property not
included in plan ti
AD
A water pump is located between the
wetland area and the northern portion of
the previous Flexsteel Site.
i
IF
Figure 8. Site Water Infrastructure
Source: City of Dubuque
s
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Flexsteel Property
0 Storm Inlets
— Storm Gravity Main
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Flexsteel
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Figure 9. Site Stormwater Infrastructure
Source: City of Dubuque
le
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Legend
Flexsteel Property
■ Storm Inlets
Storm Gravity Main
Miles
0 0.05 0.1 0.2 0.? 0.4
d�
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It
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STUDY AREA��
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. .... Central Avenue Central Avenue
Cenrra! Avenge
1
Flexsteel
property not C
s
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0
Figure 10. Site Sanitary Sewer Infrastructure
Source: City of Dubuque
I
;a!,-
Legend
Flexsteel Property
■ Sanitary Manholes
---- Sanitary Gravity Main
Sanitary Pressure Main
0.05 0.1 0.2 0.3 0.4 Miles
Overview
An effective community engagement process is the foundation for a successful plan.
The following pages outline the public engagement process used to develop the
plan and summarize the information collected. The public input strategy used a
multi -pronged approach to engage the community. First, the teams at ECIA and
Blackstone held three separate community input meetings targeting local
businesses, neighborhood civic associations, and the general public. Second, the
outreach team distributed a community survey to reach a wider audience and
engage as many people as possible.
Third, the team employed a
supplementary public information and
outreach campaign that included the
utilization of Reddit, Facebook, press
releases, the City of Dubuque website,
local news outlets, and direct mailings to
over 75 residents and businesses. In turn,
the opinions gathered through this
process helped shape the
recommendations that are included
throughout the plan.
Flexsteel Site
Redevelopment
Mello.
The Former Flexsteel Manufacturing Site at 3400jacksan Sveet is the subject of a
community planning effort funded by a United States EnVirvnnental PrQte0Qn
RgRnncy (V5EPA) Brownfields Assessment Grant thatwas awarded to the East Central
tntergovernmemal Association (ECIA) in May 2020.
Ac4operative effort between the USEPA, Flex5tee11ndUiryies, Gronen Devekpmenr,
DBQ Property Group, ECIA, the Cuyof Dubuque, and Blackstone Environmental; this
work will Seek to distill existing planning documents that apply to the opportunity
presented by the redevelopment ofthe Former flexsteel ManufacturingSite in
addition to incorporaungfeedhack specific to the Site itself,
I nitial public engagement with the Nardi -End Neighhorhaod Association (NENA5
oceurred on No,ember 3, 2021. As a nearby business owner, you are IrMted to
Corwiuium urban farmstead on November 0 at 68-0 p.m. to offer your feedbaek. The
project Learn vrill give a brief presentauon to he followed by group conversation and
exercises designed to document your views. Chuck lia rris, President of the NENA
notei that 9t is rare for a well developed neighborh"d to get.) chance to reimagine
a large tract of land, this could be anything From a pocket neighborhood vrith market
rate senior housing to grocery store even a Seninrfcammunity center:
To team more about the ECIA BrowafleldsAssessment Grant'visit Taketnesurvey)
htvxrlAxww.ecia or:Ibrnwnfeldndex.pyp. To participate in a �. Q
survey about the Former Flexsceel ManufacturingSite's
redeyelopnlertt. vl5it jj5:11HMN1.511fYHjI�y.comfd9MFB&NiL
or an the QR code, n(�(
"BLACKSTONE
EMIMRONMENTAt �� r R x & • 6 L' �
Meeting 7 Flyer
36
Community Input Meetings
Gathering feedback directly from community members through targeted community
input meetings was a critical aspect of of the public input process. Three meetings
were held in the North End neighborhood at the Convivium Urban Farmstead
(Convivium), 2811 Jackson Street. The three stakeholder groups that were included in
these meetings were the North End Neighborhood Association (NENA), local
businesses, and the general public. While each of these meetings targeted a specific
audience, the entire community was invited to participate and all three meetings
were open to anyone who wanted to attend. In each of these meetings, facilitators
provided an overview of the site, environmental data, and other details pertaining to
the site's history. After participants provided comments, they were asked to
participate in planning exercises and fill out a survey to better record their thoughts
on the site.
MEETING 1 - NORTH END
NEIGHBORHOOD ASSOCIATION
The project team hosted the first community input
meeting on November 3, 2021 at Convivium. NENA
is a community organization that meets monthly to
discuss issues and events that are relevant to the
North End neighborhood. The North End is the
closest neighborhood to the former Flexsteel site
and would be most impacted by any
developments that occur there. This meeting had
17 participants in attendance, most of whom lived
in the North End.
37
Em MGreen community
� M., I ,
> f
Y
,on MEETING 1 TAKEAWAYS
Ideas discussed during the meeting are listed below.
• Would like to see a mix of housing, retail, • Would like an additional grocery store
and green community space. option in the area that is walkable and
affordable.
• Prefer businesses that provide goods and
services to the neighborhood. • A pocket neighborhood with single-
• Would like green spaces throughout the
site including ares for outdoor recreation
and passive natural areas.
• Beautification in and around the site is
important and would like to see a
reduction of dust on the site and
adjoining properties.
level homes oriented towards the
elderly residents.
• Meeting participants suggested a
variety of public amenities for the site
including: complete streets, a pet
friendly space, and murals.
MEETING 2 TAKEAWAYS
Ideas discussed during the meeting are listed below.
• Infrastructure and traffic circulation
should be addressed to meet the
needs of local manufacturing
businesses.
• Would like to see curb appeal
improved along Jackson St and
Central Ave.
• Improvements to air quality and
reduction of dust is important to the
quality of life for residents.
• Infrastructure maintenance and
improvements could help minimize
road noise and neighborhood
impacts.
• A designated truck route could help
mitigate congestion, safety issues,
and increase efficiency in the North
End.
• Infrastructure improvements are a
priority for meeting participants -
most feel that improvements are
needed before a new development
can occur.
EO
` aq
MEETING 3 TAKEAWAYS
Ideas discussed during the meeting are listed below.
• Would like additional grocery store
options.
• Residents would like to have
welcome signage like other
neighborhoods around Dubuque
�. Would like to attract smaller, local
businesses that provide goods and
services that local residents need.
• Small businesses could help keep
people in the neighborhood.
• Area beautification including
landscaping and murals, particularly
on industrial buildings in the area.
• Truck traffic and general traffic
circulation are a concern among
businesses and residents alike.
• Traffic issues should be considered as
part of future development projects.
• Would like to see a designated truck
route, street maintenance, and
enforcement of existing truck route
laws.
""W
` s-4 A
Community Survey
As part of the public engagement efforts for the plan, ECIA and Blackstone conducted
a community survey. The survey questionnaire included thirteen questions related to
existing and desired future conditions of the site. ECIA worked with the City of Dubuque
and other project partners to develop the survey questions. ECIA distributed the survey
using Survey Monkey, an online survey platform, and made paper questionnaire forms
available upon request.
The City of Dubuque published a press release announcing the survey, and ECIA, the
City, and other project partners shared the release via various communications
channels including websites, social media, newspapers, radio, television, and existing
email distribution lists. Community members that attended one of the public input
meetings held as part of the planning process were also invited to participate in the
survey. It should be noted that this survey was informal in nature and was not subject to
a random sampling process that is typical for scientific surveys. This section summarizes
some of the key results from the survey. Full survey results are provided in Attachment B.
KEY SU RVEY TAKEAWAYS
• Out of 11 options, respondents ranked low/traffic, parking, diverse housing types,
and access to public spaces as the most important values for the potential
development of the site.
• Conversely, access to public transit and singular uses within the neighborhood were
ranked as the least important values.
DESIGN ELEMENTS
• When the survey asked: which elements should be included in the site design?, green
community space received the support of 67% of survey takers, the highest among
all elements.
• Small businesses and housing were supported by more than half of survey takers,
while retail came in at 46%.
• 24% of survey takers selected "other" and commented they would like to see a
grocery store, a community garden, and a variety of other elements.
• Figure 11 charts the results of design elements question.
41
What elements do you believe should be included in the design for the
Flemsteel site?
Green cam munity spa ce
Small bus in ess
Restaurants
Retail
Housing
other (please specify
N on -profit space
Fr4fessi4nal space
Q% 10% 20% 30% 4 % 50 % 6 % 70% &C %
Figure 11. What elements do you believe should be included in the design for the
Flexsteel Site?
Check boxes - select all that apply. Answered: 213 1 Skipped 10.
HOUSING
• Support for including housing in future plans for the site varied depending on the
question.
• Only 36% of survey takers selected housing as an element they want to see included
in future plans for the site.
• When the survey asked: what type of housing would you wish to see, if housing were
to be developed?", only 32% answered "no housing", while the other 68% selected
some type of housing they would like to see on the site.
• Single-family was the most popular housing type with 25%, followed by multi -family
(15%), apartments (12%), other (9%), and condos (8%).
42
BUSINESS
• 57% of respondents suggested that they would like to see small business included as
a potential design element.
• When survey takers were asked specifically what businesses they wanted to see in or
around the site (74%) said grocery, (61%) said restaurants, and (48%) selected retail.
• A number of comments also addressed the need for critical services such as
healthcare in the neighborhood.
• 41% of respondents said they would like to see entertainment businesses on the site.
Survey comments added that entertainment options were needed for the area's
younger population.
• Business options for the site receiving the least support from survey takers were
finance and banking (8%) and industrial, warehouse, and manufacturing (7%).
• Figure 12 charts the results of the business question.
What kinds of businesses do you grant to see in or around the
Flexsteel site?
Grocery
Restaurants and bars
Retail
Entertainm ent
N on -Profit
Technology
Profess-ona (Lawyers, Engineers, Medical ---etc)
N o business
Other(plea se specify)
Finance and Banking
Industrial, WarehDuse, M anufauturing
Q% 1020% 30% 40% 50% 50% 70% 80%
Figure 12. What kinds of businesses do you want to see in or around the Flexsteel site?
Checkboxes - Select all that apply. Answered: 215 1 Skipped: 8.
43
GREEN SPACE
• Green community space received the most support from survey takers with 68%
saying it should be included in the future plans for the site.
• Types of green spaces receiving the support from a majority of survey takers
included bike paths (63%) and playgrounds (56%), and outdoor workout/ recreation
space (54%).
CONCERNS
• One survey question asked respondents to identify potential concerns that they
might have with the site.
• The most common response of the responses was a concern over safety and lighting
(59%).
• Roadway safety and traffic are also concerns.
• 41% of survey takers had environmental concerns about the site.
• Commenters also mentioned concerns about what would happen if nothing happens
with the site and it sits vacant for a long period of time.
INFRASTRUCTURE
• Would like to see more bicycle and pedestrian infrastructure including sidewalks
and better lighting. Would also like to see connections made to existing bike paths,
especially the Heritage Trail.
• Commenters suggested adding improved signage for the local landmarks and to
denote the North End Neighborhood like other city neighborhoods.
DEMOGRAPHICS
• 74% of survey takers lived in the 52001 zip code, followed by 52002 (15%), and
52003 (8%).
• The largest age group of respondents was 35-44 (34%), followed by 25-34 (19%).
• 95% of respondents self -identified as white.
MI
Community Values
Common values emerged during the public outreach meetings
among those in attendance and those voicing their thoughts
and ideas through surveys. Residents and businesses shared one
common value and goal: pride. Residents and businesses alike
have considerable pride in the history of the North End, in the
neighborhood. It is critical to those who live and work in the
area that the City of Dubuque, and community at large, invest in
the future of the North End and aid in the future development of
this area of town. To understand the North End, one must
understand the common values shared and expressed by
attendees at the public meetings. Four core community values
are summarized below.
NEIGHBORHOOD GENERATIONAL PRIDE
Residents of the North End have a great deal of pride in their
neighborhood, and it is one of the reasons that many multi -
generational families continue to occupy the same homes that
they grew up in. One common thread among all North End
residents is that they love the neighborhood and want to see it
headed toward a more prosperous future. Residential and
business neighbors value each other and want to work together
to coexist by beautifying the neighborhood and enhancing
safety for all.
CONNECTION WITH HISTORY
Many residents of the North End are very much aware and in
touch with the community's heritage as residents value the historic
character of the North End. Their families have worked at many of
the local industrial operations and they take great pride in this
valuable contribution they have made to Dubuque's economy and
history.
45
AUTHENTICITY
The people of the North End value real, meaningful projects and
people that will act transparently for the betterment of the
neighborhood and its residents. Residents embrace neighborhood
development and employers, but want to ensure continuous
engagement and commitment is made by the City and local
businesses to make the North End a safe and beautiful
neighborhood.
PRAGMATIC ACTION
North End residents value pragmatic, common sense solutions to
the challenges that their community is facing. A good project will
produce tangible benefits to the community and add value to
existing assets. Community members are highly motivated and
involved in the future of their neighborhood and are ready to take
action in improving the North End.
FA .
Chapter 6. Conclusions
and Recommendations
This chapter presents a vision for the Former Flexsteel Industries
Brownfields Site and the surrounding area. It is informed by public input
that was collected throughout the planning process summarized in the
previous chapter. It should be noted that all conceptual imagery and maps
are in no way indicative of future or current financial commitments by any
public or private stakeholders in this project.
A Gateway to the North End
A number of
comments were received
throughout the
public input process
on the topic
of signage in the North
End. Currently,
the North End is an
unmarked gateway into Dubuque. Signs, banners, and flags are typically
used throughout the city to delineate neighborhoods and districts. Signs
and banners not only help cultivate community pride, but they can also
help craft a unique identity for a neighborhood or district. Below is an
example of sign that demarks the Westend District in Dubuque. It is a
relatively low cost option that can have a large positive impact on the
perception of the North End community.
47
Wetlands Area
The northern portion of the Former Flexsteel Industries Brownfields Site
includes wetlands. These wetlands have been delineated and present an
opportunity for recreational paths, overlooks, and outdoor education. The
site is bounded to the east by the Heritage Trail. Flexsteel plans to donate
the wetlands to Dubuque County Conservation so that the community will
benefit from this long-term stewardship opportunity. Placards with
educational materials could be located along raised walkways, drawing
visitor attention to features of this natural wetland area and providing an
opportunity to sit, relax, and take in the beauty of the surroundings.
Structures constructed on the site could incorporate salvaged materials
from the old Fexsteel building, honoring the company's history as a major
employer in the area. Interpretive displays could highlight the project's
sustainability achievements, including: Over 2,000,000 pounds of
reclaimed timbers diverted from the landfill; over $150,000 spent locally,
tools, equipment, hauling, labor, etc.; 10,000 square feet of flooring
manufactured from timbers and sold locally; 60,000 pounds of metal
recycled from nails and steel attached to the beams.
Wetlands Area
48
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Flexsteel Site
Through the plan development process, the community envisioned a revitalized
Former Flexsteel Industries Brownfields Site and surrounding neighborhood that
that reflects the values of the North End and the broader Dubuque community.
The public input process identified several potential future uses for the site, and
the following section summarizes some the key takeaways identified through the
process.
COMMERCIAL
Reuse of the site for commercial purposes was one of the most popular
redevelopment options identified through the public input process. Survey takers
ranked small business, restaurants, and retail as top elements to include in the
site. The most desired business types included a grocery store, restaurants,
medical services, and other businesses that would provide goods and services to
the surrounding neighborhood. Community members also said that they would
prefer to see smaller, locally owned businesses on the site. The southern portion
of the site was identified as having the best potential for future commercial
development, primarily because of its location near 32nd Street and the existing
commercial uses located on nearby properties.
HOUSING
Through the planning process community members identified the need for
additional housing in the North End, but there were some mixed feelings on
whether housing is the best reuse option for the Flexsteel site. Only 36 percent of
survey takers said they would like to see housing on the site. However, when the
survey asked what type of housing would you want to see, if housing was
developed on the site, around 68 percent said they would want to see some
type of housing on the site while 32 percent said that they did not want to see
housing of any kind on the site. Through the process, those that did want to see
housing recommended a variety of types, from single-family homes to condos
and apartments. The community also suggested that housing could be mixed
with commercial uses to create a walkable, mixed -use area similar to the
existing North End neighborhood.
50
LIGHT INDUSTRIAL
Manufacturing and industrial uses were less popular options for the site when
compared to commercial or residential uses. However, light industrial uses were
discussed throughout the public input process as possible reuse options for the
flowing three reasons: (1) the site is currently zoned for light industrial use, (2)
other light industrial uses are located nearby, and (3) the local market may
determine that light industrial is the highest and best future use for some
portions the site.
The northern portion of the site was identified as having the best potential for
light industrial use because of the light industrial uses located on nearby
properties. Industrial, commercial, and residential uses have coexisted in the
North End for many years, and input suggests that these uses could also coexist
on the site. If a portion of the site was redeveloped for light industrial use, public
input indicated that murals, trees, and landscaping could help diverse land uses
coexist and mitigate potential nuisance issues.
TRAFFIC
Vehicle traffic, especially truck traffic, was a frequent topic of conversation
throughout the public engagement process. The area's manufacturing businesses
rely on trucks, but many area residents expressed concerns about noise and
dust. Moving forward, residents and businesses should continue the dialog and
work together to identify solutions go traffic related issues. Any future
redevelopment plans for the site should include a careful evaluation of traffic
impacts.
BEAUTIFICATION, LANDSCAPING, AND GREEN SPACE
Through the planning process the community has made clear that the
appearance of the site is important, regardless of its future use. Overall, the site
should provide a clean, safe, comfortable, and inviting environment that
incorporates trees, public art, and landscaping into the site design. Community
members would also like to see improvements made to area infrastructure
including streets and lighting. Landscaping elements could serve as a transition
zone between less compatible land uses such as industrial and residential.
Green space can also be used to connect the site to nearby natural areas like
the Heritage Trail and the wetlands to the north.
51
CONSTRAINTS AND OPPORTUNITIES
Future development plans for the site should consider its environmental history.
Decisions regarding future development should be made in consultation with a
qualified professional. Depending on the nature of any future redevelopment,
environmental mitigation strategies will vary substantially. The full environmental
record for the site can be found at the link below.
http Zprograms.iowadnr.gov/contaminatedsites/Site/Documents/1698.
Figure 14. Flexsteel Site Conceptual Use
52
What's Next for the Flexsteel Site?
To achieve the vision for the Former Flexsteel Industries Brownfields Site
laid out in this plan, a collection of stakeholders must continue to be
engaged in this project, particularly local residents, private developers,
the City of Dubuque, and other key stakeholders. Determining the highest
and best use for the site does not fall solely within the purview of any of
the previously mentioned entities. It is the product of a team effort where
residents can engage elected officials about what is desired, and in turn,
city and state officials can work with private developers to determine
potential development agreements, incentives, or other economic
mechanisms that can help turn a project idea into reality.
Community members expressed appreciation for the public outreach
process and that the City of Dubuque and Flexsteel are looking to
incorporate their feedback into the potential reuse of this site. After
meeting with the neighborhood's residents and local businesses, a number
of individuals expressed that they are ready for change and are
passionate about being part of a brighter future for the site and the
neighborhood. A large portion of the residents are fourth generation and
are deeply invested in seeing the neighborhood grow and thrive. Residents
along with commercial and industrial businesses have coexisted in the
North End for over a hundred years, and they would like this to continue far
into the future.
53
Recommendations
Successful redevelopment of the Former Flexsteel Industries Brownfields Site will require
collaboration from a wide variety of stakeholders to achieve the common vision that has
been identified in this plan. The planning team has used the information collected
through the planning process to develop a list of recommend actions that the City of
Dubuque and its partners can take to help achieve its goal of redeveloping the site. The
recommendations are listed in the Table 4. The table describes each recommendation
and identifies the parties responsible for carrying out each activity. The success of the
redevelopment of the site hinges heavily on the surrounding area; therefore,
recommendations have been made regarding the area around the site as well as the
immediate site.
Table 4. Recommendations
Topic
Recommendation
Responsibility
All future developers of this site
should be encouraged to complete
Environmental
their environmental due diligence.
Developer
Developers should follow state and
federal guidelines for environmental
mitigation and cleanup.
Area
Create signage that identifies the
City of Dubuque
Improvements
North End Neighborhood.
Area
Increase lighting infrastructure
Improvements
around site, particularly along
Developer
Jackson St.
Area
Neighborhood street and landscape
Developers, City, Property
Improvements
beautification.
Owners
Traffic
A traffic study should be completed
Circulation
prior to any moderate - high intensity
Developer
re -use of the property.
Consider rezoning a portion of
Flexsteel Site to accommodate the
Property Owners, City of
Land Use
highest and best use of the property
Dubuque
as identified through public outreach
and development realities.
54
Attachment A
November 17, 2022
Mr. John Gronen
Gronen Restoration
900 Jackson Street
Dubuque, Iowa 52001
RE: Development Summary for the Former Flexsteel Manufacturing site at 3400 Jackson
Street in Dubuque, Iowa.
Dear Mr. Gronen,
Blackstone Environmental, Inc. (Blackstone) is pleased to present this informal summary of the
development options for the Former Flexsteel Manufacturing located at 3400 Jackson Street in
Dubuque, Iowa (Site). When this information is provided to potential Site developers, it should not
be used in part, but as a whole with the REVISED Site Assessment Report dated December 15,
2020 by Blackstone.
Summary
The 43-acre Site was used for manufacturing purposes for over 100 years, with the last major
occupant being Flexsteel. Because of the length of time manufacturing was conducted and the
types of manufacturing that operated on the Site, several environmental investigations have been
conducted. The full environmental record for the Site can be found here:
https:Hprograms.iowadnr.gov/contaminatedsites/Site/Documents/1698. The investigations have
identified soil and groundwater contamination at the former facility. This contamination is being
assessed under the oversight of the Department of Natural Resources (DNR) Land Recycling
Program — a cleanup program through the State of Iowa. The completion of the assessments
associated with the Land Recycling Program will result in a no further action regulatory status for
the Site. This status is granted by the State of Iowa and generally indicates the state certifies that
a property has been investigated and determined to meet the applicable state cleanup standards.
This process can take around two years to complete and does not have to be completed prior to
redevelopment. In fact, redevelopment plans can help the process move faster.
The contamination identified at the Site is not such that redevelopment is not possible. On the
contrary, the contamination can be managed in such a way that development can proceed while
reducing or eliminating risks to the public or residents. Attached are two maps that depict the
approximate location of soil contamination at the Site. These maps can be used as an estimate
of contamination for planning purposes. The redevelopment would proceed as any other project,
with the following considerations to keep in mind:
1. To reduce the risk of the public or residents from accessing identified soil contamination,
it must either be capped or removed by excavating.
a. Capping of the areas where soil contamination is present can include constructing
a building over the contamination, constructing a parking lot over the
contamination, or placing several feet of "clean" soil over the contamination.
Attachment A
b. Excavation of the contaminated soil can be conducted prior or during development
and would have to be disposed at a landfill.
2. Digging on the Site and digging that has the potential to require dewatering for
construction should be conducted under a DNR approved Soil and Groundwater
Management Plan (SGMP) specific to the project. The SGMP should be prepared by
environmental professionals retained by Flexsteel for use on the entire Site.
3. Installation of potable water wells will be prohibited and developers should plan to utilize
municipal water.
4. Groundwater monitoring wells are present on the Site and must be maintained until no
further action regulatory status is achieved. The wells will be sampled by an environmental
professional approximately every quarter for around two years or however long required
by the DNR.
5. Plans regarding future development should be conducted in consultation with a qualified
environmental professional and the DNR to achieve a no further action regulatory status.
The DNR and qualified environmental professional will help each developer to design a
strategy for each area design that allows for safe use of the Site, regardless of the project
at hand under the umbrella of the Iowa Land Recycling Program. Planning documents can
be reviewed and approved by the DNR generally within two or three weeks.
6. An environmental covenant will need to be prepared and recorded that detail the
considerations above.
As indicated above, this information should not be used in part, but as a whole with the REVISED
Site Assessment Report dated December 15, 2020 by Blackstone. This is not a technical
document; the information below may include the application of judgment to scientific principles;
to that extent this work may be based on subjective interpretation. Blackstone makes no
warranties, express or implied. Blackstone will assume no responsibility or liability whatsoever for
any claim, loss of property value, damage, or injury which results from pre-existing hazardous
substances being encountered or present on the project Site, or from the discovery of such
hazardous substances.
Respectfully,
BLACKSTONE ENVIRONMENTAL, INC.
Emily Smart, CGP, P.G.
Senior Project Manager
Y
Krista Bro
Senior Project Manager
Attachments: Approximate Location of Soil Contamination at the Site
Wtachment A
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Attachment B
Ftexsteel Industries
Brownfield Site
19 gig tr,
Survey Results
kL Prepared by ECIA
2022
Elr7o 7
-dhM
Attachment B
Purpose
The purpose of this report is to present the results of the Flexsteel Site Community Survey that was
conducted in November and December 2021 by the East Central Intergovernmental Association (ECIA).
Survey Methods
ECIA conducted the survey as part of the public engagement process for the Flexsteel Industries
Brownfield Site Revisioning Plan. The survey questionnaire included thirteen questions related to
existing and desired future conditions of the site. ECIA worked with the City of Dubuque and other
project partners to develop the survey questions. ECIA distributed the survey using Survey Monkey, an
online survey platform, and made paper questionnaire forms available upon request.
The City of Dubuque published a press release announcing the survey, and ECIA, the City, and other
project partners shared the release via various communications channels including websites, social
media, newspapers, radio, television, and existing email distribution lists. Community members that
attended one of the public input meetings held as part of the planning process were also invited
participate in the survey.
Survey Results
A total of 233 people responded to the survey. Ninety-one percent of all survey takers completed the
entire survey. This report contains a summary of the responses to all survey questions. Each question is
stated as it appeared in the questionnaire followed by type of question, the number of participants that
answered the question, and the number that skipped it. Results are presented in both table and chart
form where possible.
2
Attachment B
1. What do you value most in a neighborhood? (1= highest, 11= lowest)
Ranking. Answered: 212 / Skipped: 11.
What do you value most in a neighborhood? (1 = highest, 11 =
lowest)
Low traffic/Walkability
Access to parks and other public space
A mixture of commercial and residential uses within...
Broadband/Internet access
Affordability
Parking
Diverse housing types and styles
Singular housing types and styles
Diverse residents
Access to public transit
Singular uses within neighborhood
0 1 2 3 4 5 6 7 8 9
Chart is based on the average raking given to each statement by all respondents.
Average Score
Singular uses within neighborhood
4.06
Access to public transit
4.43
Diverse residents
4.51
Singular housing types and styles
4.67
Diverse housing types and styles
6.04
Parking
6.3
Affordability
6.53
Broadband/Internet access
6.58
A mixture of commercial and residential uses within
neighborhood
6.95
Access to parks and other public space
8.03
Low traffic/Walkability
8.27
3
Attachment B
2. What elements do you believe should be included in the design for the
Flexsteel site?
Check boxes - Select all that apply. Answered: 213 / Skipped: 10.
What elements do you believe should be included in the design for the
Flexsteel site?
Green community space
Small business
Restaurants
Retail
Housing
Other (please specify)
Non-profit space
Professional space
0% 10% 20% 30% 40% 50% 60% 70% 80%
Answer Choices
Responses
Professional space
15.02%
32
Non-profit space
23.47%
50
Other please specify)
23.94%
51
Housing
36.15%
77
Retail
45.54%
97
Restaurants
55.87%
119
Small business
57.28%
122
Green community space
67.61 %
144
Other Responses
• Agriculture/Food
• Amusement park
• City owned sports facility to
house multiple sports spaces
• Commercial with upper story
apartments
• community garden
• Community gateway appeal
• Concert area
• Concert stadium, baseball
park triple "A"
• Co -working space
• Creative elements /
opportunities for community
gathering that communicate a
sense of place
• Educational/nature center.
Think swiss valley
• Extension of Heritage Pond
area
• Grocery
• Grocery
• Grocery store
• Grocery Store
• GROCERY STORE
• Grocery store
• Grocery store
• Grocery Store - affordable like
an Aldi
• Grocery store!
• GROCERY!!!!
• Half of it to go to Prairie Farms
Dairy and the other half a park
• Indoor sports
complex[volleyball, basketball,
ect], 6 or more Baseball fields,
water park,
4
Attachment B
• Industrial/Commercial
Grocery
• Jefferson Junior High School
• Kwik star
• Las Vegas Style night life
• Las Vegas Style Night Life
• Medical & educational uses
• natural habitat or prairie
restoration
• Park areas would be amazing.
Those of us in the Eagle
Valley/Sky Blue Subdivision
are lacking options for public
play space nearby. This would
be excellent and convenient
site for that.
• Parking
• Parking
• Parks and recreation building
with indoor pool for
community programs pool
• Pet friendly park, grocery
• Poverty law center
• Private dog park
• Recreation
• recreation center
• Recreational area
• Recreational uses (Bet Plex)
• retail store so we don't have
to drive across town to get
household goods and clothing
• SELL LAND
• Stores
• Stupid Idea waste of taxpayer
money
• Theater/Gallery
• WE NEED A GROCERY STORE
AN ALDI
• Whole Foods or Fresh Thyme!
• Youth Baseball Fields
5
Attachment B
3. If housing were to be developed, what sort do you wish to see being built at
the Flexsteel Site?
Multiple Choice — Select one. Answered: 206 / Skipped: 17.
35%
30%
25%
20%
15%
10%
5%
0%
If housing were to be developed, what sort do you wish to see
being built at the Flexsteel Site?
1
No Housing Single Family Multi -Family Apartments Other (please
specify)
Answer Choices
Responses
No Housing
31.55%
65
Single Family
24.76%
51
Multi -Family
15.05%
31
Apartments
11.65%
24
Other please specif
9.22%
19
Condos
7.77%
16
Other Responses
• A mix of all but single-family structures.
• A mix of condos apartments and row houses
• A mixture between hls8ngle family housing and
multi unit housing that blends with the existing
neighborhood. No 1 acre lots.
• Afford. And not more Groenen liveable wage
• AFFORDABLE
• Affordable housing/apts! Biggest problem with
housing in the city.
• Any housing: single family, multi, apartments or
condos
• commercial/retail lower level with upper level
housing or pocket neighborhood
Condos
• It is a FLOOD PLAIN. Don't build housing there.
• low income housing
• Mix of single and multifamily
• Mixed use neighborhood
• Mixture of all types of homes
• Nice Senior housing options.
• Senior market rate housing - ADA compatible
• Street commercial and upper apartments, lofts
• Townhomes
• Waste of money
• Whatever it is it needs to be geared towards
affordability and owner -occupied
0
Attachment B
4. What kinds of businesses do you want to see in or around the Flexsteel site?
Checkboxes — Select all that apply. Answered: 215 / Skipped: 8.
What kinds of businesses do you want to see in or around the
Flexsteel site?
Grocery
Restaurants and bars
Retail
Entertainment
Non -Profit
Technology
Professional (Lawyers, Engineers, Medical... etc)
No business
Other (please specify)
Finance and Banking
Industrial, Warehouse, Manufacturing
0% 10% 20% 30% 40% 50% 60% 70% 80%
Answer Choices
Responses
Industrial, Warehouse, Manufacturing
6.98%
15
Finance and Banking
8.37%
18
Other please specify)
8.84%
19
No business
10.23%
22
Professional (Lawyers, Engineers, Medical ... etc)
10.70%
23
Technology
13.02%
28
Non -Profit
20.47%
44
Entertainment
41.40%
89
Retail
48.37%
104
Restaurants and bars
60.93%
131
Grocery
74.88%
161
Other Responses
• Childcare
• community garden space
• indoor/outdoor sports facilities
• Las Vegas style entertainment
• Las Vegas style night life
• Las Vegas Style Night Life
• Like the millwork
• Maybe end the food deserts with grocery stores
not relying on animal byproducts
• nature and prairie restoration are preferable to
business
• No industrial, manufacturing, warehousing
• Residential Condos
• Restaurants only
• Senior Center
• Small businesses like Charlotte's or Convivium if
any business at all.
• Specialty rec/sports: Bike races, roller derby
track
• There is a bank there already
• This seems like a great opportunity to give the
north end grocery they deserve and also more
housing within city limits and near a green space
7
Attachment B
S. What kind of green/community space do you want to see around the
Flexsteel site?
Checkboxes — Select all that apply. Answered: 216 / Skipped: 7.
What kind of green/community space do you want to see
around the Flexsteel site?
Bike paths
Playground
Outdoor workout/Recreational space
Community gardens
Prairie
Other (please specify)
none
0% 10% 20% 30% 40% 50% 60% 70%
Answer Choices
Responses
none
6.02%
13
Other please specif
7.41 %
16
Prairie
35.19%
76
Community gardens
48.15%
104
Outdoor workout/Recreational space
53.70%
116
Playground
56.48%
122
Bike paths
62.96%
136
Other Responses
• All above would be nice
• Building with indoor pool
• Commercial
• Community funded Art studios
• Dog park
• Dog Park
• Dubuque Needs More Baseball Fields
• Green space with picnic areas and covered
shelters, walking paths, along with a water
feature like a duck pond
• indoor receation AND ARTS center WITH SNACK
BAR and outdoor area A FAMILY CENTER WITH
RECREATION AND CLASSES FOR fAMILIESalso
WITH PUBLIC
• Isn't there water back there? Would be nice to
be able to walk near the water. Connection to
heritage trail for sure.
• natural water feature such as stream or pond
• Public hunting
• Public performance / activity spaces for
festivals, creativity to blossom
• Tear out all the concrete and plant native iowa
plants and trees.
• There Is a bike route connection
• there isn't playgrounds/outdoor space in this
section of the town like to see for those who live
in area so can walk to
W
Attachment B
6. Do you have any concerns regarding the Flexsteel site?
Checkboxes — Select all that apply. Answered: 201 / Skipped: 22.
Do you have any concerns regarding the Flexsteel site?
0% 70%
Answer Choices
Responses
Other leasespecify)
12.94%
26
Access to public transit
20.40%
41
Road quality
21.39%
43
Access to other areas around Dubuque
22.89%
46
Environmental concerns
41.29%
83
Safety, lighting
58.71 %
118
Other Responses
• concern will not be priority and will sit vacant -
want to see something that benefits community
and draws people to area be developed here
• Decrease in people wanting to live on north end
• Don't want new industrial to town
• I'm afraid the city will turn it into another
parking lot or slum
• Increased traffic in under developed area.
• It is a North entry to the City. Must be attractive
• NO
• No
• no concerns
• No pawn shops or liquor stores
• none
• None
• None
• None
• None
• None
• NONE
• Public safety other than lighting.
• Sold to a private business
• There are no sidewalks in the area to get there.
• Traffic concerns
• Use as suburban single family homes
• WASTE OF MONEY
• Would love this to be an inclusive space
0
Attachment B
7. What infrastructure/streetscape improvements would you like to see in the
north -end corridor?
Comment box. Answered: 132 / Skipped: 91.
• "Bee Branch" type lighting/safety fixtures;
increased police presence.
• "A "Welcome to Dubuque" sign on Highway 52
(like all other main Highway entrances into
Dubuque have.
• Clean up of garbage and landscaping/flowers on
Highway 52 with a more welcoming pathway
into the city. "
• A mixed use community of small/multi-families
homes, small businesses and groceries, in a
walkable, pedestrian friendly community.
• Adhere to 90% reduction of truck traffic at
designated date- Dec 22, 2022
• Anything that fosters an ability to adequately
transit throughout the area .
• Areas for kids to safely bike. Easy access to the
walking path. Playgrounds and community
center -type access for families.
• Artistic landscaping
• Better home maintenance. Better street lights.
• better lighting
• Better lighting and roads
• Better lighting, a redesigned 32nd and
central/white intersection that won't cause as
bad of backups.
• Better pedestrian amenities along Jackson and
Central.
• Better roads
• Better streets
• Better streets, drainage less low income
• better walking and biking infrastructure
(dedicated lanes), mixed use zoning, lower
vehicle parking requirements (or removed
altogether).
• Better, more walkable roads. Green space.
• Bike bath under Peru
• Bike lanes and safe routes to schools.
• Bike/walking paths
• "Black owned business.
• A black owned weed dispensary would be cool"
• City entrance on IA 3/ Central
• city to invest in roads and highway as entrance
into Dubuque - all other entrances into town
city has invested in but not this one; it is just as
important as other entrances and deserves
attention.
• Clean up items. A face lift. Make things inviting
• Clean up the outsides of the buildings, make it
more visually appealing.
• Cleaned up/neater
• Connectivity to other parts of town that don't
rely on on -street routes.
• Curb appeal
• Curb appeal. Bike path. Trash cans. Recycling
cans
• Decorative Lighting and larger Welcome signs
• Disc golf courses
• Dog Park - Lighting
• Easy accessibility to the heritage trail
• Expressway through Dubuque, above ground in
the air.
• Extend the b branch theme to this area off the
heritage trail. Prairie landscaping with water
features along with benches. Dog park area
would be great addition
• Flowers, walk/hike/bike paths
• green space, prairie restoration, bird habitat,
unpaved bike paths
• Grocery
• Grocery store
• I would like to see affordable condos. The only
condos available on the north end are the
condos at the end of Windsor.
• I would like to see an area with an Aldis or
Fareway Store, decent parking, landscaping and
a area where people could work out and kids
could have a decent playground
• I would like to see Central Ave to stay being a
one way street south of 22nd street
• If the area isn't going to be used for
manufacturing nice green spaces and affordable
housing.
• Improve and update housing
• "Keep streets in good condition and parks
around the city clean and useable for all ages.
0
11
10
Attachment B
• Less concrete areas.
• Less concrete, less traffic, more greenery
• Lighting
• Lighting
• Lighting and safety improvements as well as
roads
• Lighting and sidewalks on Peru for safety
• lighting for safety and walking
• Lighting! Many of the streets are very dark at
night.
• Lighting, Curbs, Sidewalks
• Lighting, parking, wider roads
• Lighting/Cameras
• Lower curbs in some areas.
• Make the area sparkle!
• Making the road smooth.
• More attractive lighting, better signage, more
well-defined crosswalks and pavement
markings, installation of street trees.
• More bike paths and recreational opportunities
• more community use space for the general
public
• More connections (especially retail or
restaurant opportunities) to connect with
Heritage Trail. Green space. Affordable housing.
A real grocery store with affordable food, good
connections via public transportation. Walkable,
pedestrian -friendly.
• More eco friendly allies
• More green space!
• More lighting
• More Lighting Bike path
• More lighting, safe pedestrian walkways. This is
a well known food dessert area. I would love to
see an affordable grocery such as Aldi. There is
also a well traveled bike path behind it so
making it an outdoor community gathering
place could be amazing. Playgrounds wild
prairie, pavilions or an entertainment area with
food, bowling, outdoor recreation, with adult
soaking pools during the summer (see Pinewood
social club in Nashville TN). Would love to see
housing in the old brewery that is falling down.
Move the industrial business down further along
the highway. There is additional land down that
direction.
• More Off street mixed use trails. Prairie and/or
wetland rehab with education component.
• More parking
• More parks, more trees, more green space
• More roads to take pressure off of the existing
ones
• More seating to rest on, affordable housing that
isn't slumlords.
• More signage include sign as come into town
more welcoming, green shrubs, lighting
• More snow plowing
• More street lights
• More tashcans around the trail and more
lighting.
• More traffic cameras, flood mitigation,
development of recreational space
• More trails, greenscape
• Must accommodate truck traffic but be safe for
pedestrians
• N/a
• Na
• NA
• Nice small business and restaurants
• no semi trailers parked
• none
• None
• None
• None, seems good
• Not so much concrete
• Old time brick roads
• Parking around the area of Jackson Street
• parking for heritage trail. Sidewalk on Peru road
• Please fix the road condition on Shiras Ave.
• Recycling center
• repurpose older buildings such as being
completed on the Holy Ghost property...... also
would love to see the H&W building show some
kind of activity for restoration
• Resterants
• Restore or reconstruct the brewery and other
older homes/businesses.
• Retail, like Aldi. Affordable single family 2
bedroom homes and side by side duplexes with
garages priced in the $130,000-150,000 ranges
for 1st time home owners to decrease rental
needs and to increase tax paying populations
11
Attachment B
• Road Quality
• Safe pedestrian walkway along Peru road
• Safer pedestrian and bike environment.
• Sidewalk for bikes and foot traffic out Peru
Road. A 30 MPH speed limit past the Bee
Branch retention basin.
• Sidewalks
• Sidewalks
• Sidewalks
• Sidewalks
• Sidewalks access heritage trail
• Sidewalks and bike paths. Bus stops.
• Sidewalks or a bike/pedestrian bridge going over
Peru.
• Sidewalks with benches that are well lit year
round.
• Sidewalks, modern safe lit areas, searing areas,
trees
• Signage, Welcome, Landmarks
• Similar to Bee Branch
• Smoother streets
• Something that's a good use of citizens money. I
don't want to pay for this garbage.
• Splash Pad Park/ Dog friendly pavilions/ picnic
• Standard Roadway Improvements
• Street art and community spaces to live and be
in public for all ages. Community gardens.
Grocery stores. Green spaces.
• Streets repaired
• The stop lights at the nearest intersection fail to
work more than they ever should. The turning
lane into flex -steel I narrow. The roads would
need to improve for traffic turning in and out of
that area.
• The street needs to be fixed too many potholes
and needs to be sure that it's safe to build on
• Trees, decent sidewalks
• WE HAVE NO CURBS IN MY NEIGHBORHOOD.
THEY ARE THE ORIGINAL LIMESTONE CURBS
THAT TRILLS YOU HOW OLD THE CURBS ARE AND
IN SONE SPOTS THE CURBING IS GONE. THE
STREET SWEEPER WENT BY THE OTHER DAY
AND TOOK SOME BIG CHUNKS OUT OF THE
CURB
• Welcoming entrance to the city
• Well maintained streets, side walks and green
space.
• Wider streets and parking, specifically at 32nd
and Jackson, better lighting. Trucking routes
near/around prairie farms.
• Wider streets to accomodate trucks
• Will need roads and lights
• Would love to see sidewalk connection from the
Eagle Valley/SkyBlue Subdivision to Peru Road.
There is so many safety concerns with
accessibility and it would be amazing to be able
to have sidewalks for our kids so we can talk
walks/bike down to the trails.
• Would really like to see a grocery store or
smaller department store that also sells
groceries like a Walmart home. It is very much
needed in our area.
12
Attachment B
8. What Zipcode is your primary residence located in?
Comment Box. Answered: 209 / Skipped: 14
180
160
140
120
100
80
60
40
20
0
What Zipcode is your primary residence located in?
20874 52001 52002
Zip Code
Frequency
Percent
20874
1
0.5
52001
154
73.7%
52002
31
14.8%
52003
16
7.7%
52039
2
1.0%
52073
3
1.4%
61025
2
1.0%
16
2 3 2
52003 52039 52073 61025
13
Attachment B
9. Where do you live? (Using map shown above)
Multiple Choice — Select one. Answered: 210 / Skipped: 13.
Where do you live? (Using map shown above)
Answer Choices
Res onses
Peosta
0.00%
0
Centralia
0.00%
0
Other leasespecify)
2.86%
6
Dubuque - Area 5
3.81 %
8
Sa eville
3.81 %
8
Asbury
4.76%
10
Rural Dubuque County
4.76%
10
Dubuque - Area 1
6.19%
13
Dubuque - Area 4
7.14%
15
Dubuque - Area 3
28.57%
60
Dubuque - Area 2
38.10%
80
Other Responses
Adjacent to area 3
Alpine park
East Dubuque
East Dubuque
Maryland
Riverside road
40% 45%
14
Attachment B
10. What is your household income?
Multiple Choice — Select one. Answered: 206 / Skipped: 17.
What is your household income?
Over $150,000
Between $100,000 and $150,000
Between $75,000 and $99,999
Between $50,000 and $74,999
Between $30,000 and $49,999
Between $15,000 and $29,999
Under $15,000
0% 5% 10% 15% 20% 25%
Answer Choices
Responses
Under $15,000
3.88%
8
Between $15,000 and $29,999
9.71%
20
Between $30,000 and $49,999
14.08%
29
Between $50,000 and $74,999
22.33%
46
Between $75,000 and $99,999
17.48%
36
Between $100,000 and $150,000
21.84%
45
Over $150,000
10.68%
22
15
Attachment B
11. What is your age?
Answer Choices
Responses
Under 18
0.95%
2
18-24
4.74%
10
25-34
18.96%
40
35-44
34.12%
72
45-54
12.80%
27
55-64
14.22%
30
65+
14.22%
30
16
Attachment B
12. What is your race or ethnicity?
Multiple Choice — Select one. Answered: 205 / Skipped: 18.
What is your race or ethnicity?
Another race or ethnicity, please describe...
White
Native Hawaiian or other Pacific Islander
Native American or Alaska Native
Multiracial or Multiethnic
Middle Eastern or North African
Hispanic or Latino
Black or African American
Asian
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
Answer Choices
Responses
Asian
0.00%
0
Black or African American
0.48%
1
Hispanic or Latino
0.48%
1
Middle Eastern or North African
0.00%
0
Multiracial or Multiethnic
1.44%
3
Native American or Alaska Native
0.00%
0
Native Hawaiian or other Pacific Islander
0.48%
1
White
95.19%
198
Another race or ethnicity, please describe below
0.48%
1
Self -describe below:
6
Other Responses
Born and raised as a American PERIOD !
Cuban, Indian, Port, Brazilian
Live on south end, work on north end
Marshall islands
White/Hispanic
WHY DOES THAT MATTER
17
Attachment B
13. Thank you for participating in our survey. Please provide us with any
additional comments on the Proposed Development or the survey questions.
Comment box. Answered: 68 Skipped: 155.
• A community garden which would be allocated
to anyone who is willing to work in the garden
with its upkeep, etc. There are gardens such as
this in bigger cities which are teachable
opportunities for kids to learn how to grow food
and to see where it comes from.
• A grocery store is needed on that end
• A nice big dog park next to a play ground.
• Access from Shiras Ave to Roosevelt street.
• Alot of the population down here are elderly
and don't like to drive out to the west end or
they don't have a way It's the same about some
families who would want to ride with kids to a
long bus ride
• Between this and the brewery we can make this
area special
• Closing Central Ave and White St. to truck traffic
would damage businesses on the North End.
The amount of congestion that would increase
on Dodge St and the Northwest Arterial wasn't
thought of.
• Community involvement and feedback and
reports throughout the process when decisions
are made. Don't just get input now but show
how you've applied and are using the
community input to show that you're listening
to it.
• "Drive in movie theater
• Amusement park
• Go carts
• Zip lines"
• Dubuque desperately needs another middle
school. Jefferson is only option in downtown
area And the location of it is horrid. A new
middle school 6-8 would be greatly appreciated
on the north end!
• Encourage reaching out to both North End
residents as well as those with "business
accumen" to help bring positive energy to future
meetings
• Even though my demographics are outside of
the neighborhood, my son and his wife live
nearby so I frequent the area often. There is a
real need for residents to be able to get fresh
food. A small grocery or Aldi type store would
be awesome for this food desert. A mix of
residential with the retail would work too.
Thank you for your commitment to this project
• Flat space for soccer lacrosse. Shared integrated
green space and walkable bike able.
• Grocery Store would be great.
• Grocery/Sidewalks/Section 42 housing/Reroute
Truck Traffic
• having fun things to do in that area, when using
the bike trail would make sense and having
people live there too makes sense.
• Housing and transportation are the 2 biggest
barriers for ppl in DBQ. Particularly for ppl with
criminal histories and ppl on the sex offender
registry.
• Housing vouchers just subsidize landlords. Build
housing that community owned or land
contracted to long time residents.
• "I attended the first Estates meeting and asked
them to consider building their first or second
set of homes on the Flexsteel site. They are
building on the west end, behind AMC theater
and Farm and Fleet.
• With the majority of the population being baby
boomers, condos or retirements homes are
needed!!!"
• I believe a park or a grocery store is the best use
of the area. Apartment buildings and daycares
are also needed. The North end is such a great
area to live. I am excited to see what is decided
on to enhance it.
• I belive that whatever goes there should help
make jobs and get people in the area back on
their feet
• I hope that citizens speak up about valuable,
citizen focused uses for the space rather than
further commericalized space that Dubuque has
done well with but does not need to prioritize at
this time. Public spaces, access for our diverse
populations, and greenery.
• I live on Lemon St, just a few blocks from
Flexsteel. People who live around the
18
Attachment B
neighborhood should have more input then
people in other areas.
• I lived in the area in the past and my spouse
worked at Flexsteel. It flooded several times. A
natural wetland adjacent to the trail would be
good to maintain for flood control.
• I lived in this area for over 75 plus years..... my
father worked at Flexsteel and we lived on
Milwaukee st ...it was called NorthHome when it
first began in the 1930's...... I would love to see it
benefit people in the area but necessarily with
retail..... things such as the Miracle League park
up by Wahlert is such a great example of space
well used ...... we need to get people to come
back to the Northend and feel safe there and
welcome ...... Convivium is such a great example
of investing in the community.... if we were to do
something commercial maybe someone could
come up with something similar .....also the
Dream Center is such an asset to the
community ...... more things like this that build up
connections and inspire others to help. Thank
You for listening
• I think Jefferson junior high school Deserves a
better location
• I think that this large plot could be used for
outdoor recreation in the northend. It would be
nice to have an area to stop with kids for lunch
while on the heritage trail.
• "I would like to see the following use of the
former Flexsteel property.
• - Greenspace (Community, Park, ETC)
• -Expansion of Current - Landlocked North End
Businesses (DBQ Stamp/Prairie Farms)
• No New Businesses/Industry"
• I would like to see something that brings people
to this end of town I'm a business owner in the
area and there isn't a lot of businesses
something that would bring people would be
great!
• I would really love to see an Aldi put in at the
Flexsteel site. They have great prices and access
to organic foods. The health and wellbeing of
the community is very important to me, and
access to healthy, AFFORDABLE food is my
primary concern.
• It seems as if the north end of Dubuque
(Highway 52 North) has been forgotten about in
respect to visitors being welcomed to the city by
a clean and landscaped entrance.
• It's a large site with good access to main routes
to get to downtown/port and to the west end.
Traffic generation may be problematic during
AM/PM peak, but during off peak, not an issue.
Indoor/Outdoor recreational use would be great
since it is close to a large demographic and
easily accessed by others.
• Just angry that Flexsteel used the city and then
bailed. Not the first time this has happened.
Poor decisions like this cannot continue.
• Love to grocery store that has good prices
• Low income housing for families is what
Dubuque needs. No more senior housing.
• Maybe don't build another parking garage
• Multi use business park, pet friendly,
neighborhood oriented
• My biggest concern is that everyone who would
live or work or play on this land would be safe
from containment.
• My family lives 0.4 miles from this area. My
husband and I both work within 0.5 miles of the
area. We bike on the path. We have 3 kids that
would greatly benefit from outdoor space. Also
like to note there is a grocery store about 1.5
miles from the site -eagles. No dog parks, no
murals. Done up right, this space could be
beautiful. We do not need more businesses, fast
food or housing or groceries -it is not
sustainable. Dubuque has worked so hard on
the beautification of the area by the river and
the millwork district. They have done a fantastic
job. Now it is time to add some beauty to this
end of town. It would be easy to tie in the
current stream + bike path and expand the
recreation end of things. (Highlight the wetland
area too!) think swiss valley. There is room to
keep some parking for the green park/area safe
access to the bike trail. This end of town could
benefit from some outdoor beauty.
• na
• No metered parking!! It deters families like mine
with kids from visiting.
19
Attachment B
• No senior housing. We need activities and
vitality in the north end
• None at this time
• Our family had over 150 years of service to
Flexsteel, 4 generations. It is sad to see what
happened to a once thriving business. I hope
something good will be built there. That will be
good for the city and the people who live in
area.
• Please consider diversifying the area by bringing
single family small Homes with garages,
beautiful green spaces, higher scale retail, an
Aldi or similar reasonable market, and lots of
beauty and lighting features.
• Please consider the lack of options on our end of
town when considering retailers or play space. It
would be amazing to have more options for us
on the North End.
• Please continue to attend NENA meetings with
progress reports.
• Please do not allow cookie cutter housing, this
district is not Asbury, it is not peosta, we do not
need ridiculous road layouts or residential only
zoning. This city I falling into the same trap as
others, the suburbs keep expanding and the city
keeps paying for it with our tax money, while
neglecting the people paying those taxes due to
lack of affordable housing, grocery options,
small business support, and public transit.
• Please keep shade in mind. Add trees or large
umbrella over play ground or resting areas.
Splash pad? Interactive space for families.
• Please restore natural habitat and prairie at the
old Flexsteel site
• Please transform this area into a space for
community and recreation opportunities. This
space is ideal for a prairie park.
• Probably can make something work on South
portion and still allow Prairie Farms to do a
project on the North 14 acres. County
conservation project further north should be
tied in.
• thank you city and Flexsteel for this opportunity
to share our thoughts; please continue to
update us and get us involved in this as it is
really important to those of us who live here
and are apart of the community; some of
neighbors were not aware of this event - please
send out follow up to residents all residents in
this part of town so everyone has a chance to
give input
• Thank you for letting me have an input. It will be
great whatever you decide
• Thank you for your hard work and care about
the city
• The area really needs an affordable, nice grocery
store.
• The Flexsteel property, being a FLOOD PLAIN, is
probably most well suited for uses that are least
impacted by flooding. Please keep this in mind.
This is NOT any sort of "diamond in the rough"
scenario. Grandiose, expensive investment will
most likely lead to damaged property.
• The Flexsteel site should definitely be
repurposed for mixed uses, with commercial
(retail/restaurant/office) uses fronting along
32nd St and Jackson St, and residential uses
toward the interior and northern end of the site.
There should be at least some park space
included, but little or no industrial uses. This
neighborhood could really use a grocery store
and medical office of some kind, in addition to
some restaurants.
• The North End needs updating - in so many
areas
• This area is quit clean from trash & let's keep
this area clean as should be...
• We desperately need affordable housing for
seniors and when I say affordable that does not
mean $800 per month!
• We need more for kids and families in this area.
• We need senior housing as much as we need
another gas station or another car wash. This is
sarcasm, we don't need any more of those
things. We need reasonable single family homes
that also aren't on top of each just because they
are affordable housing. The subdivision off
Roosevelt is a prime example of affordable
housing subdivision gone bad. Please see Des
Moines area for new subdivisions for modestly
built homes but still beautifully done and in
Regular subdivisions. I'm not sure why everyone
in Dubuque needs to build a 2,500+ sq foot
house on acre lots. News flash people are
20
Attachment B
having less children and do not need 4 bedroom
homes. We need to look at other communities
successfully recruiting young professionals and
take note. We need to do better with affordable
new housing and strong entertainment venues
outside of indoor concert arenas and breweries.
More young family fun as well. As it relates to
this area we should tap into the already used
bike bath and sparse options for grocers and
food in that part of town. It could be a really
great part of the community, we just need
people to dream big things and follow through.
• We need something that will make money for
the city and bring more people into the city.
• We need to stop this race crap and address
things related to WE the PEOPLE as AMERICANS
. All other classifications are DIVISIONAL. WE
are all humans and bleed red blood .
• We really need a grocery store as was previously
on the site many years ago. Retail would be a
nice addition
• With the close proximity to the bike path, and
stream, it could be a beautiful green space!
• Would like to see mixed use
commercial/residential with a smaller grocery
that would be walkable for that neighborhood.
Would like to see a new place in town people
can live affordably.
21