Request to Dubuque Metropolitan Area Transportation Study (DMATS) to Reprogram Federal Surface Transportation Block Grant (STBG) FundsCity of Dubuque
City Council Meeting
Action Items # 09.
Copyrighted
February 5, 2024
ITEM TITLE: Request to Dubuque Metropolitan Area Transportation Study (DMATS)
to Reprogram Federal Surface Transportation Block Grant (STBG)
Funds
SUMMARY: City Manager recommending approval to request reallocation of
Dubuque Metropolitan Area Transportation Study (DMATS) Surface
Transportation Block Grant (STBG) funds.
SUGGESTED Suggested Disposition: Receive and File; Approve
DISPOSITION:
ATTACHMENTS:
Description
MVM Memo
Supporting Documentation
ECIA Memo
Type
City Manager Memo
Supporting Documentation
Supporting Documentation
THE C
Dubuque
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Request to Dubuque Metropolitan Area Transportation Study (DMATS) to
Reprogram Federal Surface Transportation Block Grant (STBG) Funds
DATE: February 1, 2024
Our region has been presented two exciting opportunities to advance two important
transportation projects, an overpass over the railroad tracks at 14t" Street and major
improvements to the intersection of the Northwest Arterial and Highway 20. To leverage
Federal and State funding for these two projects, local funding needs to be identified.
In April 2022, the Mayor and City Council approved submitting an application to the U.S.
Department of Transportation for the Rebuilding America's Infrastructure with
Sustainability and Equity (RAISE) Infrastructure Planning Grant to assist with the
planning and design of a multimodal transportation corridor project for proposed
improved to the Elm Street corridor, the 16t" Street corridor, the Kerper Boulevard
Corridor, the Chaplain Schmitt Island Corridor and the proposed 14t" Street Railroad
overpass bridge project.
The city grant application was approved and in November 2023 a grant agreement
negotiated with the following budget:
Fund Description
RAISE Planning Grant
Local Funds — City
Local Funds — DRA
Contribution
Total Project Cost
Percentage
52.1 %
47.9%
100%
Fund Amount
$2,280,000
$1,350,000
$750,000
$4,380,000
Planning and design has progressed enough that the City is ready to apply for a RAISE
grant for construction of some of the elements.
The RAISE grant application for the 14th Street overpass and related improvements is
due at the end of February. The RAISE grant project covers several City Council
priorities including, "RAISE Grant and Matching Funds for Construction," and, "Central
Avenue Corridor Revitalization Plan," by connecting Central Avenue to traffic from
Wisconsin, the riverfront bike trails, the Kerper Blvd industrial park and the reinvestment
plans for Schmitt Island. This project also meets the City Council priority of, "Leveraging
Federal and State Infrastructure Grant Programs," and "Street Maintenance and
Rehabilitation Program," thereby directly addressing four of the ten City Council
priorities.
The impending increase in train traffic due to the merger of the Canadian Pacific and
Kansas City Southern railroads will negatively impact our region. The merger is
projected to double the number of trains passing daily through the metro area from 9 to
18 by 2027. This surge in train activity will lead to significant delays at rail crossings and
will hinder the efficient movement of people and goods, significantly impacting
vulnerable neighborhoods and key employment centers.
The total project costs are estimated at $54,780,000. The maximum RAISE grant is $25
million with no match requirements. The City needs to prioritize the project elements
putting some elements into Future Phases and identify additional funding sources. The
City needs to request reallocation of DMATS STBG funds for the February 8 DMATS
agenda.
ECIA Interim Executive Director Chandra Ravada has identified $11,252,825 of DMATS
STBG funds that could be reprogrammed from the East --West Corridor project, the
Cedar Cross Road project, and an amount in FY 2028 not yet programmed that could
be used to help make the 14th Street overpass and needed improvements at the
Northwest Arterial/ Highway 20 intersection happen. It is also anticipated that when a
new federal transportation bill passes DMATS can expect $2.4 million of STBG funds in
FY 2029 based on past history.
Planning and preliminary design has progressed on the East-West Corridor study but
along the way there have been two Federal and State rule changes for use of Federal
and State Transportation Funds that have created an obstacle to quick completion of
this project. The latest rule change says that the DMATS STBG funds can only be used
for construction, so the City has to identify local funding or grants to complete final
design and conduct property acquisition. Also, DMATS STBG funds can only pay for
80% of the construction costs so the City must identify local funding or grants to pay
20% of the costs. The city cannot leave the existing DMATS STBG funding allocation to
just wait for these additional funding sources to be identified.
It would be reasonable that the $1,597,000 in DMATS STBG funds Chandra has
identified in FY 2028, $500,000 of the money in the East-West Corridor project budget,
an anticipated $2.4 million that will be coming in FY 2029 from a future federal
transportation bill, and the potential for $1.0 million in grants (Iowa Clean Air Attainment
and IDOT Traffic Safety Improvement Program) for a total of $5.5 million will need to go
to the intersection improvements at the NW Arterial and Highway 20 to leverage this
$17.5 million IDOT intersection improvement project that is expected to be built in 2028-
2030 if it is included in the next IDOT 5 year construction plan as requested by IDOT
District 6.
So the East-West Corridor project can continue to progress there is still $847,467 in
IDOT SWAP funds to complete preliminary design and environmental review, plus
$1,065,920 in city funds to support that effort.
As for the RAISE grant project that leaves $9,155,825 in reprogrammed dollars from
Cedar Cross ($3,286,000) and East-West Corridor ($5,869,825) to reduce the funding
shortfall. In addition, the city has $1,121,693 budgeted in 30% sales tax money for
Cedar Cross Road.
We have some belief based on their past comments that we can ask Canadien Pacific
for 5% of the 14th Street overpass construction costs ($1,000,000).
There is the $36,277,518 available for the RAISE project.
The RAISE project has been broken down into 13 separate elements with ten elements
needing to be delayed to future phases and three elements considered for inclusion in a
RAISE construction grant application that will be coming to you for consideration at your
February 19 City Council meeting.
These three elements are as follows:
14t" Street railroad overpass including utility relocations and $31,500,000
property acquisitions.
Roundabout at the intersection of 16t" Street and Sycamore $2,020,000
Street.
Bridge modifications to 16t" Street bridge over Peosta $2,700,000
Channel.
Total Phase One RAISE Project Costs. $36,220,000
This would be a great project for Dubuque, the residents and businesses in the low
income census tracts, redevelopment efforts at the old Pack site, Schmitt Island
redevelopment, the Central Avenue corridor and so much more.
I respectfully recommend Mayor and City Council approval to request reallocation of
DMATS STBG funds.
//' I A (�,' -
)/ 4Z44 14 -
Mic ael C. Van Milligen
MCVM:sv
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
(continued on next page)
3
Gus Psihoyos, City Engineer
Bob Schiesl, Assistant City Engineer
Chandra Ravada, East Central Intergovernmental Association Interim Executive
Director
Alex Dixon, Dubuque Racing Association President & CEO
Rick Dickinson, Greater Dubuque Development Corporation President & CEO
12
City of Dubuque
City Council Meeting
Consent Items # 014.
Copyrighted
May 2, 2022
ITEM TITLE: Rebuilding America's Infrastructure with Sustainab ility and Equity
(RAISE) Infrastructure Planning Grant Application
SUMMARY: City Manager recommending approval of a resolution approving the
submittal of an application for Rebuilding America's Infrastructure with
Sustainab ility and Equity (RAI SE) Grant Funding to assist with the
planning and design of a multimodal transportation corridor project for
proposed improvements to the Elm Street corridor, the 16th Street
corridor, Kerper Blvd, Chaplain Schmitt Island connectors, and the
proposed 14th Street Railroad Overpass bridge project.
RESOLUTION Approving application for Rebuilding America's
I nfrastructure with S ustai nability and Equity (RAISE) Grant Funding for
the planning and design of a Multimodal Transportation Corridor Project
for proposed improvements to the Elm Street Corridor, 16th Street
Corridor, Kerper Blvd, Chaplain Schmitt I Bland Connectors, and the
proposed 14th Street Railroad Overpass Project
SUGGESTED Suggested Disposition: Receive and File; Adopt Resolution(s)
DISPOSITION:
ATTACHMENTS:
Description
(RAISE) Grant Appli cation- MV M Memo
Staff Memo
Resolution
2022 Dubuque RAISE Grant Application
Type
City Manager Memo
Staff Memo
Resolutions
Supporting Documentation
Dubuque
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Masterpiece on the Mississippi
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Rebuilding America's Infrastructure with Sustainability and Equity (RAISE)
Infrastructure Planning Grant Application
DATE: April 28, 2022
Director of Strategic Partnerships Teri Goodmann, City Engineer Gus Psihoyos and
Economic Development Director Jill Connors are requesting City Council approve a
resolution:
1. Approving the submittal of an application to the U.S. Department for $2,280,000
million in RAISE Infrastructure Planning Grant funding to assist with the planning
and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 15th Street corridor, Kerper Blvd,
Chaplain Schmitt Island connectors, and the proposed14th Street Railroad
Overpass bridge project.
2. Approving the City's commitment to provide $2,100,000 million in local funding to
be used for the local match requirement of the RAISE Infrastructure Planning Grant
application.
3. Establish the City's authorized representative for the grant as the City Manager
regarding the grant application and grant administration.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
k�4
Mic ael C. Van Milligen
MCVM:sv
Attachment
CC.' Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Teri Goodmann, Director of Strategic Partnerships
Gus Psihoyos, City Engineer
Jill Connors, Economic Development Director
THE CITF
DUjB-
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Masterpiece on the Mississippi
TO: Michael C. Van Milligen, City Manager
FROM: Teri Goodmann, Director of Strategic Partnerships
Gus Psihoyos, City Engineer
Jill M. Connors, Economic Development Director
Dubuque
vI-lw to C14
2007.2012.2013
2017*2019
SUBJECT: Rebuilding America's Infrastructure with Sustainability and Equity (RAISE)
Infrastructure Planning Grant Application
DATE: April 27, 2022
INTRODUCTION
The purpose of this memo is to request City Council approval to submit an application to
the U.S. Department of Transportation (USDOT) for the Rebuilding America's
Infrastructure with Sustainability and Equity (RAISE) Infrastructure Planning Grant to
assist with the planning and design of a multimodal transportation corridor project for
proposed improvements to the Elm Street corridor, the 15th Street corridor, the Kerper
Blvd. corridor, Chaplain Schmitt Island corridor, and the proposed 14th Street Railroad
Overpass bridge project.
BACKGROUND
The Rebuilding American Infrastructure with Sustainability and Equity, or RAISE
Discretionary Grant program, provides a unique opportunity for the DOT to invest in road,
rail, transit, and port projects that promise to achieve national objectives. Previously
known as the Better Utilizing Investments to Leverage Development (BUILD) and
Transportation Investment Generating Economic Recovery (TIGER) Discretionary
Grants, the U.S. Department of Transportation announced earlier this year that $1.5
billion will be made available in 2022 cycle for RAISE planning and project implementation
grants.
The City of Dubuque has already used funding from this program. A $5.7 million TIGER
grant was received in 2010 to support the reconstruction of utilities and complete streets
in the Historic Millwork District. Additionally, Dubuque County in partnership with the City
received a $5.4 million BUILD grant in 2019 to support a series of roadway repairs,
intersection capacity and safety improvements, and a trail extension in the vicinity of the
John Deere Dubuque Works facility.
DISCUSSION
The City applied for USDOT TIGER Discretionary Grants in both 2014 and 2017 however
our application requests were not selected. City staff were advised by grant review
agency staff that our proposed infrastructure project grant applications were strong,
however the projects were not advanced far enough in the planning, design, and
environmental clearance development phases for selection consideration. Subsequently,
the City applied for a RAISE Infrastructure Planning Grant in 2021 to assist with the
planning and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 16th Street corridor, and the proposed 14th
Street Railroad Overpass bridge project. This planning grant was unsuccessful as well. A
formal debrief with USDOT staff in March of 2022 identified ways in which the project, the
narrative and additional data could strengthen the application.
City staff have worked with a consultant, Sustainable Strategies DC, to compile and
submit the information needed for the Planning Grant application. Sustainable Strategies
DC is a government affairs and strategic consulting firm that assists communities in
obtaining necessary resources for revitalization projects and key city council priorities.
Sustainable Strategies DC has a successful twelve-year partnership grant writing for the
City of Dubuque and has been retained by the City to assist with increased grant
opportunities emanating from the American Rescue Plan Act (ARPA) and the Bipartisan
Infrastructure Law (BIL).
The Planning Grant application proposes a project entitled "Building Bridges to
Employment and Equity (B2E2)". Through the grant, the City of Dubuque requests $2.28
million in USDOT RAISE Planning funds to assist with the planning and design of a
multimodal transportation corridors which will connect vulnerable neighborhoods and low
income residents with economic opportunities, recreational amenities and key community
resources in the Kerper Boulevard Industrial Park, on Chaplain Schmitt Island, in
downtown Dubuque and its Historic Millwork District, and on the west side of the city via
the downtown Intermodal Transportation Center.
In particular, the Planning Grant would be used for planning and design of physical
connections among downtown neighborhoods and areas of economic opportunity such
as the Kerper Boulevard Industrial Park and Chaplain Schmitt Island. The plans and
designs would focus on projects such as a 14th Street Railroad Overpass bridge
(connecting downtown residents to job opportunities while avoiding train crossing delays)
with "complete streets" and roundabout intersections along Elm Street and 16th Street
corridors. The project would also include the design of an improved pedestrian/bike
shared use path adjacent to the existing 16th Street Peosta Channel bridge to Chaplain
Schmitt Island and strategically plan a roundabout at Captain Sheehy Drive on Chaplain
Schmitt Island.
A copy of the grant application is attached. The expected timeline for the USDOT agency
review and announcement of selected award recipients is September — December 2022.
2
BUDGET IMPACT
The RAISE grant funding request is summarized as follows:
Fund Description
Percentage
Fund Amount
RAISE Infrastructure Planning Grant
52.1 %
$2.28 million
Local - DMATS STBG SWAP Funds
47.9 °I°
$2.10 million
And DRA contribution
Total
Project
100 %
$ 4.38 million
Cost
ACTION REQUESTED
I respectfully request that the City Council adopt the attached resolution:
1. Approving the submittal of an application to the U.S. Department for $2,280,000
million in RAISE Infrastructure Planning Grant funding to assist with the planning
and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 16th Street corridor, Kerper Blvd,
Chaplain Schmitt Island connectors, and the proposed14th Street Railroad
Overpass bridge project.
2. Approving the City's commitment to provide $2,100,000 million in local funding to
be used for the local match requirement of the RAISE Infrastructure Planning Grant
application.
3. Establish the City's authorized representative for the grant as the City Manager
regarding the grant application and grant administration.
Prepared by Teri Goodmann, Director of Strategic Partnerships
cc: Jenny Larson, Director of Finance and Budget
Chandra Ravada, ECIA
3
Prepared by Teri Goodman, Director of Strategic Partnerships, 50 W 13t" St., Dubuque, IA 52001, (563) 589-4110
Return to Adrienne N. Breitfelder, City Cferk, 50 W. 13t" St., Dubuque, IA 52001, (563) 589-4100
RESOLUTION NO. 173-22
APPROVING APPLICATION FOR REBUILDING AMERICA'S INFRASTRUCTURE
WITH SUSTAINABILITY AND EQUITY (RAISE) GRANT FUNDING FOR THE
PLANNING AND DESIGN OF A MULTIMODAL TRANSPORTATION CORRIDOR
PROJECT FOR PROPOSED IMPROVEMENTS TO THE ELM STREET CORRIDOR,
16T" STREET CORRIDOR, KERPER BLVD, CHAPLAIN SCHMITT ISLAND
CONNECTORS, AND THE PROPOSED 14TH STREET RAILROAD OVERPASS
PROJECT
WHEREAS, the City proposes a multimodal transportation corridor project that will
improve safety, drive economic competitiveness, improve quality of life, address the
negative impacts of climate change, and foster a more sustainable, equitable and resilient
Dubuque; and
WHEREAS, RAISE Planning funds will be used to plan and design Complete
Street corridors and five roundabouts along the intersecting Elm Street and 16th Street
Corridors, and at Admiral Sheehy Drive on Chaplain Schmitt Island; and
WHEREAS, RAISE Planning funds will be used to plan and design sidewalks and
hike/bike trail and bus stop pads along Kerper Boulevard from 16th Street to Hawthorne
Street; and
WHEREAS, RAISE Planning funds will be used to plan and design a new
pedestrian/bike shared use path adjacent to the existing 16th Street Peosta Channel
bridge to Chaplain Schmitt Island;
WHEREAS, the Canadian Pacific (CP) Railroad travels through the urban core of
the City with numerous at -grade crossings on local city streets in the downtown area; and
WHEREAS, approximately 8-10 trains passing through Dubuque on a daily basis
severely impedes the ability for pedestrians, vehicles, commercial traffic and emergency
responders to access the northeast segment of the City; and
WHEREAS, RAISE Planning funds will be used to plan and design a new vehicular
and pedestrian overpass at the 14th Street railroad tracks to reduce train -related delays
that impair the safe and efficient movement of people and freight to the city's most
promising areas of economic revitalization; and
WHEREAS, the City's Long Range Transportation Plan includes the proposed
multimodal transportation corridor projects; and
WHEREAS, the City of Dubuque will submit a RAISE grant application for
$2,800,000 million to assist with the planning and design of a multimodal transportation
corridor project; and
WHEREAS, the Application requires that the City Council agree to provide and
make available up to $2,100,000 million in local funding to be used for the local match
requirement of the RAISE grant application; and
WHEREAS, the City must establish an authorized representative able to execute
on behalf of the City of Dubuque for the proposed improvements to the Elm Street
corridor, the 16th Street corridor, Kerper Blvd corridor, Chaplain Schmitt Island
Connectors, and the 14th Street Railroad Overpass project.
NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF DUBUQUE, IOWA AS FOLLOWS:
Section 1. Approving the City's application for $2,800,000 million in Rebuilding
America's Infrastructure with Sustainability and Equity (RAISE) Grant funding to assist
with the planning and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 16fh Street corridor, Kerper Blvd corridor,
Schmitt Island Connectors, and the proposed 14th Street Railroad Overpass Projects.
Section 2. Approving the City's commitment to provide $2,100,000 million in local
funding to be used for the local match requirement of the RAISE grant application.
Section 3. Establishing the City Manager as the City's authorized representative
regarding the grant.
Passed, approved, and adopted this 2nd day of May 2022.
Brad M. C vanagh, Mayor
Attest:
X- 6,4Z4
Adrienne N. Breitfelder, City Clerk
THE CITY OF Building Bridges to Employment and Equity Project
DUB E Applicant: City of Dubuque, Iowa (Rural)
Masterpiece on the Mississippi DOT RAISE Request: $2.28 Million
�.20
Project Contact: Teri Goodman
Title: ❑irecto rof Strategic Initiatives
Phone Number: (553) 589-4110
E-mail: tgoodman@cityofdubuque.org
Local Match: $2.1 Million
TABLE OF CONTENTS
Section
Page Number
Executive Summary
1
I. Project Description
5
A. Dubuque's Transportation Challenges
5
B. Dubuque's RAISE Solution
7
C. Project History
9
D. Detailed Statement of Work
10
E. Expected Users
11
F. Local and Regional Significance
12
G. Racial Equity and Reducing Barriers to Opportunity
12
H, Climate Change and Environmental Justice
12
II. Project Location
13
III. Grant Funds, Sources, and Uses of All Project Funding
15
IV. Merit Criteria
17
A. Safety
17
B. Environmental Sustainability
18
C. Quality of Life
20
D. Mobility and Connectivity
22
E. Economic Competitiveness and Opportunity
23
F. State of Good Repair
25
G. Partnership and Collaboration
25
H. Innovation
27
1. Innovative Technologies
27
2. Innovative Project Delivery
27
3. Innovative Financing
28
V. Project Readiness
28
A. Environmental Risk
28
i. Project Schedule
28
B. Required Approvals
29
i. Environmental Permits and Reviews
29
a. NEPA Status
29
b. Other Reviews, Permits, or Approvals
29
c. Environmental Studies
29
d. NEPA Discussions
29
e. Right -of -Way Acquisition Plans
29
f. Public Engagement
29
ii. State and Local Approvals
29
iii. Federal Transportation Requirements Affecting State
29
and Local Planning
C. Assessment of Project Risks and Mitigation Strategies
29
VI. Results of Benefit -Cost Analysis
30
EXECUTIVE SUMMARY
The City of Dubuque, Iowa, requests $2.28 million in U.S. Department of Transportation (DOT)
Rebuilding America's Infrastructure with Sustainability and Equity (RAISE) planning funds to
design and engineer the construction of a railroad overpass, Complete Street enhancements, and
new shared -use paths supporting the economically -distressed North End, Point, and Washington
neighborhoods. The Building Bridges to Employment and Equity (B2E2) project will directly
benefit low-income residents in Areas of Persistent Poverty (Census Tracts 1 and 5) by connecting
them to economic opportunities and key community assets.
Dubuque's North End, Point, and Washington neighborhoods contain the city's oldest housing
stock and the highest concentration of households living in poverty. Dilapidated rental units,
perceptions of high crime, and repeated flooding events have resulted in historic economic
disinvestment and negative safety perceptions. These areas, located in the center of Dubuque's
urban core, are disconnected from vital economic, recreational, and civic hubs in the community,
including:
• Kerper Boulevard Industrial Park: For decades, Dubuque has engaged in long-term
economic development efforts to boost manufacturing, promote commercial development,
and create jobs along its flood levee -protected Mississippi River waterfront, In the 1950s,
the City helped to develop the 229-acre Kerper Boulevard Industrial Park to concentrate
light manufacturing and other business uses along 10h Street. Private sector companies
have invested millions of dollars and
plan to expand their operations within
the park. Large vacant and `
underutilized buildings are targeted for
reuse within the area. However, access #
to the Kerper Boulevard Industrial Park w ��
is constrained by railroad tracks, poor
pedestrian/bike facilities, and unsafe ..w
roadways. 6
• Redevelopment Areas: The formed
Dubuque Packing Company plant
property, a 40-acre site located on 16`h
Street, is poised for redevelopment
after sitting idle for more than a decade.
Development on this key brownfield
site will serve as a regional jobs rr�;EOH�t
magnet, expanding economic
opportunity along the 16�' Street
corridor. However, transportation and
mobility access to the area is
constrained. Dangerous intersections,
unsafe conditions, and limited ,_-;Act
pedestrian/bike accommodations
separate this redevelopment area from Figure 1. Project area, with transportation
Dubuque's residents, particularly those infrastructure and key community destinations
with no vehicle.
identified.
II Page
• Chaplain Schmitt Island. Across the Peosta Channel on 161h Street, a former landfill was
reclaimed and renamed in memory of World War II hero Chaplain Aloysius Schmitt in the
1980s. Current commercial and recreational venues on Chaplain Schmitt Island include the
Q Casino & Resort, Mystique Community Ice Center, hotels, restaurants, and marinas.
RAISE investment will help accelerate additional public and private investment on the
island, including a long -planned hotel expansion at the Q Casino, a 350,O00-square foot
outdoor concert and events venue, and redevelopment of the southern portion of the island
as a destination and jobs center with new housing, retail, restaurants, entertainment
facilities, and recreational amenities. Improved multimodal access for workers is critical to
this growth.
■ Historic Millwork District: The
Historic Millwork District, a 43-acre
abandoned industrial area, contains
over 1 million square feet of warehouse
space. Once the nation's largest
millwork district, the former industrial
area had declined for decades. Dubuque
has successfully reclaimed the Historic
Millwork District (supported with 2010
TIGER funds) and developed the area
as a mixed -use regional engine of
growth, with 1,000 new residents and
more than 1,000 jobs. Residents from Dubuque's North End, Point, and Washington
neighborhoods face access barriers to this employment center with hazardous intersections,
poor pedestrianibike facilities, and inefficient transit options.
• Intermodal Transportation Center: Built with Federal Transit Administration (FTA)
support, Dubuque's Intermodal Transportation Center is located at the intersection of 9th
Street and Elm Street. This transit facility serves as a transfer location for local and regional
buses. North End, Point, and Washington neighborhoods face the same transportation
barriers along Elm Street accessing the Intermodal Transportation Center.
Figure 2. RAISE investment will connect workers in
distressed neighborhoods with job opportunities in
the revitalized Historic Millwork District.
Planning improvements will create the physical infrastructure needed to support a safe, connected
transportation network that serves the distressed North End, Point, and Washington
neighborhoods, providing enhanced multimodal access to the aforementioned key community
destinations. RAISE planning funds will be used to design and engineer:
• A new vehicular and pedestrian/bike overpass at the 141h Street railroad tracks to reduce
significant train -related delays that impair the efficient movement of people and freight
and improve safety;
• Complete Street corridors and five roundabouts along the intersecting 16th Street and Elm
Street corridors; and
■ New pedestrian/bike shared -use paths to the Kerper Boulevard Industrial Park and
Chaplain Schmitt Island.
An overpass at 14"' Street is necessary to connect economically -distressed residents west of the
railroad track with jobs and recreational opportunities to the east. Reconstructing 16th Street as a
Complete Street will improve safety and increase capacity for planned economic growth in the
2 1 P a g e
Kerper Boulevard Industrial Park, at the Dubuque Packing Company redevelopment site, and on
Chaplain Schmitt Island, three key employment centers. Dubuque plans to transform Elm Street
into a Complete Street, improving mobility and access from the City's most challenged residential
neighborhoods to jobs in the Historic Millwork District and transit connectivity at the downtown
Intermodal Transportation Center. The proposed roundabouts on 10h Street and Elm Street will
improve vehicle flow and reduce crashes on dangerous roadways. New shared -use paths will
further expand opportunities for biking and walking. Taken together, the B2E2 transportation
enhancements will provide measurable outcomes that directly benefit low-income and minority
residents of the North End, Point, and Washington neighborhoods.
Specifically, RAISE grant dollars will support planning that:
• Reduces significant train delays and improves the efficient movement of people and goods
by constructing a vehicular and pedestrian railroad overpass at 14`h Street, including street
reconstruction from the new overpass to the eastern terminus of 14th Street, then north from
141h Street to the planned Sycamore Street roundabout on 161h Street;
• Better manages traffic on the 16`h Street and Elm Street corridors by constructing five
roundabouts (Admiral Sheehy
roundabout, Kerper Boulevard
roundabout, Sycamore Street
roundabout, Elm Street roundabout,
and Five Points roundabout) and
reconstructing the street pavement to
improve vehicle flow and restore the
corridors to a state of good repair;
• Improves pedestrian and bicycle safety
with Complete Streets on the 16'h Street
and Elm Street corridors, as well as
separate pedestrianibike shared -use Figure 3. Railroad tracks of 1 Sth Street creates
paths to the Kerper Boulevard harriers for residents in the econornically-d+stressed
Industrial Park and adjacent to the North End, Point, and Washington neighborhoods.
existing 16`h Street bridge across the
Peosta Channel;
• Strengthens connectivity from low-income households in the North End, Point, and
Washington neighborhoods to downtown Dubuque, Chaplain Schmitt Island, the Historic
Millwork District, and the Intermodal Transportation Center;
• Enhances streetscapes to encourage further job -creating development;
• Mitigates climate change impacts through Complete Streets and shared -use paths that
encourage modal shifts, reduce vehicle miles traveled (VMT), and lower vehicular
emissions by providing safe, interconnected routes for walking and biking;
• Addresses racial inequities by connecting minorities who live in Census Tracts designated
as Areas of Persistent Poverty with good -paying jobs and improved access to community
services and critical amenities such as health care, education, food, and recreation;
■ Boosts bus ridership along the 16tr Street and Elm Street corridors for low-income
residents, millennials, senior citizens, and persons with disabilities; and
• Reduces and mitigates stormwater runoff to minimize pollution impacts on the Mississippi
River.
3 1 P a g e
The planning project aligns with DOT's
Strategic Framework FY 2022-2026 goals to
address public health and safety, support -
environmental sustainability, increase equity, r 1
►�. ��
facilitate competitiveness, improve
infrastructure condition, and advance social
justice. Proposed improvements meet all of
DOT's RAISE criteria. The project will:
■ Improve safety by providing a safe Figure 4. Proposed roundabouts will reduce crashes
grade -separated rail crossing, reducing at some of Dubuque's most hazardous intersections
conflicts with roundabouts, and along 16th and Elm Streets.
creating pedestrian and biking
accommodations where they are insufficient or do not currently exist;
• Promote environmental sustainability by encouraging alternative travel modes, reducing
fuel consumption, curbing emissions, and decreasing and filtering stormwater runoff
through green infrastructure;
• Enhance quality of life and racial equity in disadvantaged neighborhoods, particularly in
Census Tracts 1 and 5 (Areas of Persistent Poverty) where nearly one-third of residents
are living in poverty, more than 20% of households have no access to a vehicle, 16% of
persons are disabled, and 26% are minority;
• Improve mobility and community connectivity with alternative transportation modes,
including full compliance with the Americans with Disabilities Act (ADA);
• Spur economic competitiveness by supporting mixed -use, transit -oriented development
as well as the ensuring the efficient movement of goods along corridors with
manufacturing businesses;
• Align with DOT "state of good repair" goals by prioritizing investment in existing
infrastructure;
• Encourage partnerships between the City, local businesses, neighborhood associations,
cultural organizations, and other community stakeholders; and
• Demonstrate innovation through its sustainable design, integration with the City's
Intelligent Transportation System (ITS) technologies, and incorporation of green
infrastructure techniques to protect the Mississippi River.
The project will also leverage significant public and private sector support from the State of Iowa,
East Central Intergovernmental Association, Dubuque Metropolitan Area Transportation Study,
Jule transit system, Greater Dubuque Development Corporation, and local developers, for whom
the project area's designation as a federal Opportunity Zone is already driving significant interest.
Due to significant constraints on the City's ability to fully fund this planning project on its own,
RAISE resources are needed to close the financing gap and move the 132E2 project forward.
Nonetheless, to demonstrate its strong commitment to the project, the City pledges to provide an
aver -match equal to 47.9% of total planning project funding. Planning efforts will commence upon
grant award, and design and engineering will be complete by mid-2025. Limited property
acquisition will be required as the project largely lies within the existing right-of-way. RAISE
funds will easily be obligated by the September 30, 2026 deadline.
4 1 P a g e
I. PROJECT DESCRIPTION
Dubuque (population 59,667) seeks to launch an ambitious effort to improve transportation
infrastructure on two major, interconnected corridors:1
• The 161h Street corridor represents Dubuque's economic future. Containing the Kerper
Boulevard Industrial Park, Chaplain Schmitt Island, and key parcels of vacant land
available for economic development (e.g., Dubuque Packing Company site), the
community expects the B2E2 project to drive new, job -creating investments that will
expand economic opportunity, especially for residents of the distressed neighborhoods in
Census Tracts 1, 3, and 5 that qualify as Areas of Persistent Poverty in and around the
project area. Employers along the 16th Street corridor have conducted locational surveys of
their workers, indicating that access is a challenge from the North End, Point, and
Washington neighborhoods.
• The Elm Street corridor, which intersects the 16" Street corridor, is a vital connector
between the City's major downtown destinations (e.g., Historic Millwork District,
Intermodal Transportation Center) and its economically -distressed neighborhoods.
Hazardous intersections, poor pedestrian/bike facilities, and inefficient transit options
hinder movement between these community nodes.
The proposed RAISE improvements will improve pedestrian, bicycling, and transit uses on the
16th Street and Elm Street corridors. A railroad overpass, Complete Street enhancements, and new
shared -use paths will facilitate the movement of people from the North End, Point, and
Washington neighborhoods residents to downtown Dubuque, the Historic Millwork District, the
Intermodal Transportation Center, the Kerper Boulevard Industrial Park, Chaplain Schmitt Island,
and other key areas.
A. Dubuque's Transportation Challenges
The 16th Street and Elm Street corridors were not designed to support the movement of North
End, Point, and Washington neighborhood
residents. 16'h Street is a four -lane commercial
corridor that serves vehicular mobility into and
through the area, providing access to
businesses along its length. There are no
sidewalks or bike lanes along many parts of i
16"' Street. Access to the Kerper Boulevard
Industrial Park and to Chaplain Schmitt Island Figure 5. Entrance to the Kerper Boulevard Industrial
along 16`h Street is often blocked by trains Park.
stopped on tracks in downtown Dubuque. The
two-lane Elm Street roadway includes intersections with high crash rates and outdated transit
facilities. Sidewalks along Elm Street are in poor condition, not ADA compliant, and there are no
marked bike lanes. Traffic analysis indicates that during the busiest times of day (morning and
afternoon rush hour), Elm Street experiences significant congestion.
Dubuque's key transportation challenges include:
■ Railroad delays: Downtown railroad tracks cleave the community, separating poorer
1 U.S. Census Bureau, 2019 population estimate
5 1 P a g e
neighborhoods from employment and recreational opportunities. Already, 8-10 trains park
in downtown Dubuque for 20-30 minutes each as they pass through the community,
causing traffic to and from the Kerper Boulevard Industrial Park and Chaplain Schmitt
Island to be delayed for long periods of time. Railroad delays of up to 5 hours daily
(including during peak times) impair the efficient movement of people and goods and
impose additional costs on businesses. This transportation barrier will grow larger with the
pending merger of the Canadian Pacific and Kansas City Southern railroads, as train traffic
will nearly double to 18 trains per day that are forecasted to pass through Dubuque.
• Congested streets: Five intersections along the 161h Street and Elm Street corridors impede
the flow of traffic to the Kerper Boulevard Industrial Park, Chaplain Schmitt Island, and
areas of future economic development. This creates unnecessary delays, costs time and
money, increases air emissions, and reduces the efficient movement of people and goods.
• Crashes: Five targeted intersections (161h Street and Admiral Sheehy Drive/Greyhound
Park Road, 16'h Street and Kerper Boulevard, 1 dth Street and Sycamore Street, 16th Street
and Elm Street, and Elm Street and 20`h Street) along the 16`h Street and Elm Street
corridors have some of the highest crash rates in Dubuque.
• Insuffcientlno sidewalks: Pedestrians
are unable to access existing and
planned _
planned economic activity on both n f 4 _
corridors due to insufficient or r "
nonexistent sidewalks. This limits 4�rLj
access to people who do not own a
vehicle.
+ Poor/limited bike accommodations: - -
There are no dedicated bike lanes along
either corridor, limiting bicycle 4___Adr
circulation in the community. ,"
Figure 6. Pedestrians in the background travel along
• Inefficient transit access: While new missing sidewalks in Dubuque.
jobs are being created along the 16"
Street corridor and in downtown
Dubuque, minority and low-income residents in the North End, Point, and Washington
neighborhoods face difficulties accessing this employment using the bus system. Existing
transit routes do not provide a viable option for residents in Census Tracts 1, 3, and 5.
• ADA non-compliance: Elderly and disabled residents traveling to the Crescent
Community Health Center on Elm Street, Chaplain Schmitt Island, and downtown
Dubuque are hindered by poor pedestrian and transit access.
■ Increasing traffic: Over the next 20 years, annual average daily traffic (AADT) on the 16'
Street and Elm Street corridors will grow from 20,000 and 9,000 vehicles, respectively, to
more than 23,750 and 10,700 vehicles (a greater than 15% increase), resulting in significant
peak period congestion. Without shifts to other modes of transportation, this will lead to
increased crashes, unnecessary delays, wasted time and money, and reduced efficiency.
• Inadequate capacity for future traffic volumes: Travel demand modeling indicates that
increasing volumes of traffic on the 16th Street and Elm Street corridors will result in a "C"
and "B" level of service (LOS), respectively, at intersections along the route by 2042.
• Unappealing and unsafe streetseape: The 161h Street and Elm Street corridors lack safety
and identity without sidewalks, uniform street lighting, and landscaping. The existing
6 1 P a g e
streetscapes inhibit people from walking through the area and work against the
community's goal of creating safe, vital commercial corridors and transit connectors.
+ Polluted stormwuter runoff. Discharges from rain events threaten the Mississippi River.
B. Dubuque's RAISE Solution
Construction of a vehicular/pedestrian overpass at the 14th Street railroad grade, Complete Street
development for a 3,044-foot section of the 16th Street corridor and a 2,880-foot section of the Elm
Street corridor, and the creation of pedestrianibike shared -use paths to the Kerper Boulevard
Industrial Park and Chaplain Schmitt Island are critical to the safety of residents in Dubuque's
most challenged neighborhoods and the vitality of the community's economy. This infrastructure
will connect distressed North End, Point, and Washington neighborhood residents to downtown
Dubuque, the Historic Millwork District, the Intermodal Transportation Center, the Kerper
Boulevard Industrial Park, Chaplain Schmitt Island, and other key areas.
Roadway improvements and new pedestrian/bicycle facilities will enhance Dubuque's vitality as
an appealing place to live, work, and play. The proposed planning project will address deficiencies
in east -west travel across the community; provide for increased walking, biking, and transit use;
and support the revitalization of economically -distressed neighborhoods. Specific improvements
include:
14"' Street Railroad Overpass
■ Construct a vehicular and pedestrian overpass (and related street improvements) to reduce
train -related delays that negatively impact the safe and efficient movement of people and
goods to and from the Kerper Boulevard Industrial Park and Chaplain Schmitt Island,
16"' Street Corridor
• Reconstruct 16th Street from Elm Street to Greyhound Park Road as a Complete Street,
with sidewalks and bike lanes to improve safety and access for pedestrians and bicyclists;
• Construct four roundabouts along the 16'h Street corridor (Admiral Sheehy roundabout —
intersection of 161h Street with Admiral Sheehy Drive/Greyhound Park Road; Kerper
Boulevard roundabout — intersection of 10h Street and Kerper Boulevard; Sycamore Street
roundabout — intersection of 16'h Street and Sycamore Street; and Elm Street roundabout —
intersection of 16'h Street and Elm Street) to improve the flow of traffic to and from the
Kerper Boulevard Industrial Park and Chaplain Schmitt Island;
• Boulevard and capacity improvements to accommodate the future economic development
planned for the industrial park and on the island;
• Streetscape enhancements and amenities to create a safe and inviting environment for
mixed -use development; and
■ Green infrastructure such as new street trees and nutrient -separating baffle boxes that
capture pollutants (nitrogen, phosphorus, and solids), reduce runoff volume, and improve
habitat for aquatic species living the in Bee Branch Creek and Mississippi River.
Elm Street Corridor
• Reconstruct Elm Street from 20'h Street to 111h Street as a Complete Street, with sidewalks
and bike lanes to improve safety and access for pedestrians and bicyclists; and
■ Construct a roundabout at Five Points (intersection of Elm Street and 20'h Street) to
enhance safety and improve the flow of traffic to and from downtown Dubuque, the
7 1 P a g e
Historic Millwork District, and the
Intermodal Transportation Center.
Pedestrian/Bike Access
• Create a shared -use path for pedestrians
and bikers from 161h Street to the
Kerper Boulevard Industrial Park; and
• Improve safe access to employment and
recreational opportunities across the
Peosta Channel to Chaplain Schmitt
Island with construction of a shared -use
path adjacent to the existing 10h Street
bridge.
Figure 7. Complete Street improvements on Elm
Street will provide better access to Dubuque's
Intermodal Transportation Center.
DOT Secretary Pete Buttigieg has emphasized using federal transportation investment as a tool to
help communities "create high -quality jobs, improve safety, protect our environment, and generate
equitable economic opportunity for all Americans." RAISE investment in Dubuque's proposed
B2E2 project will repair broken corridors, stimulate economic development, help residents
improve the quality of their lives, and create pathways to lift people out of poverty and expand the
region's middle class, especially for residents of distressed neighborhoods in and around the
project area. RAISE funding will produce a variety of desired outcomes, including:
• Increased transportation choices: RAISE funding will enable Dubuque to increase the
number of residents who bike, walk, or use transit to work and play.
• Safer streets and sidewalks: A separated grade at rail crossing, roundabouts, improved
sidewalks, dedicated bike lanes, and pedestrian/bike shared -use paths will help reduce
vehicular and non -vehicular accidents, making Dubuque a safer place to live and visit.
• Increased density: 10 Street and Elm Street revitalization supports Dubuque's goal to
build density in the Historic Millwork District and North End, Point and Washington
neighborhoods, particularly for low-income residents who cannot afford to own a vehicle.
• Economic growth: RAISE investment will magnify the impact of the project area's
Opportunity Zone designation, helping to unleash significant economic growth and job
creation along the 161h Street corridor and connecting low-income residents to high -quality
employment opportunities via the Elm Street corridor.
• Improved environment: Investments in walkability, bikeability, and green infrastructure
will help improve air quality, decrease stormwater runoff, and generate other significant
environmental benefits, helping Dubuque make progress toward the goals of its 2020
Climate Action Plan.
• Healthier community: Providing opportunities for increased walking and biking, safer
access to community recreational amenities, and reducing environmental pollution will
impact the health and well-being of Dubuque's citizens while addressing needs for
improved physical activity identified in the City's 2019-2021 Community Health Needs
Assessment Health Improvement Plan.
• Improve racial equity: RAISE funding will improve access to living -wage jobs and key
community resources and amenities for the community's minority populations.
• Mitigate effects of climate change: The construction of Complete Streets and new shared -
use paths will help mitigate the negative effects of climate change by reducing VMT, fuel
consumption, and vehicular emissions.
8 1 P a g e
C. Project History
Dubuque has achieved substantial progress on its
community revitalization goals. In the Historic
Millwork District, a $5.6 million TIGER grant was
awarded in 2010 to construct Complete Streets. Those
efforts led to the Historic Millwork District's rebirth.
Virtually empty in 2008, the neighborhood is now
attracting new residents and employing new workers.
More than $150 million was leveraged locally in
private sector investment based on the TIGER funding.
Dubuque was also recognized by the U.S.
Environmental Protection Agency (EPA) in 2013 with
a National Award for Smart Growth Achievement for
the Historic Millwork District's turnaround.
Regular flooding in the North End, Point, and Washington neighborhoods (Census Tracts 1, 3 and 5)la"i
-
has imperiled homes for decades, disproportionately
impacting minority and low-income residents.
Dubuque spent $250 million to resurrect a buried creek Figure S. Low-income and minority residents
and install green infrastructure features to reduce the in Dubuque's Washington neighborhood will
risk of flood damage to 1,155 properties in the Bee benefit from transportation investment.
Branch Watershed, where over 50% of residents either
live or work. The City also created a linear park along the Bee Branch Creek, with amenities
including an amphitheater, bike/hike trails, bridges, lighting, and landscaping. In 2016, Dubuque
received a $31.5 million Natural Disaster Resilience Grant from the U.S. Department of Housing
and Urban Development (HUD) as a part of Iowa's Watershed Approach grant for flood -proofing
and additional stormwater infrastructure improvements in the Washington neighborhood.
In partnership with the Greater Dubuque Development Corporation, the City launched an initiative
to restore the 16`h Street and Elm Street corridors on the north end of Dubuque. The goals of this
"True North" effort are to redevelop, reuse, and repurpose commercial and/or industrial assets with
the greatest opportunity for a transformative effect; and pursue infrastructure improvements
capable of creating the physical, financial, and cultural environment necessary to enable new
businesses to develop and existing businesses to reinvest. The proposed RAISE transportation
improvements are a critical component of community -wide efforts to support the True North
partnership objectives.
Improved access to the Kerper Boulevard Industrial Park, Chaplain Schmitt Island, and future
development on vacant brownfield sites has been the focus of multiple planning efforts, including
the Chaplain Schmitt Island Master Plan, the Chaplain Schmitt Placemaking and Implementation
Plan, the Imagine Dubuque 2037 Comprehensive Plan, and the Tri-State Area Integrated WalkinL
Biking, and Hiking Network Plan. Chaplain Schmitt Island was also rezoned in 2017 to allow for
planned unit development.
Dubuque has anticipated transportation infrastructure enhancements to the 10h Street corridor for
many years. The City has reconstructed the sanitary sewer from Fengler Street to Kerper
9 1 P a g e
Boulevard, and from Kerper Boulevard to Sycamore Street, including reconstruction of the south
two lanes of Kerper Boulevard and capacity improvements to accommodate future economic
development planned for the Kerper Boulevard Industrial Park and on Chaplain Schmitt Island.
D. Detailed Statement of Work
The proposed RAISE project described above will improve multimodal circulation, enhance
pedestrian and biking opportunities, decrease VMT, reduce crashes, promote economic
development, curb greenhouse gas emissions, and provide equitable transportation access to
minority/low-income residents. A detailed statement of work follows:
1. Overall Management
■ Execute Funding Agreement: A RAISE funding agreement will be established between
the City and DOT.
• Designate Project Manager; Dubuque will identify a project manager to supervise and
implement the work. Duties will include public outreach, project management,
planning oversight, reporting, and compliance with all funding requirements.
2. Project Preparation
• Partnership Agreements: Confirm local and regional stakeholder support.
3. Procurement
• Bid: Prepare solicitation and competitively bid the design and engineering project.
• Contract: Select the contractor and confirm the overall design team.
4. Planning
• Conceptual Design: The consultant will develop overpass, Complete Street, and
shared -use path concepts for the City's review. To support conceptual design, the
consultant will develop a Transportation Demand Management (TDM) strategy to
reduce VMT on the 16t' Street and Elm Street corridors; update corridor and
intersection analyses to consider current and future stress factors, including user
conflicts and mode switches; and develop alternative design options. The concepts
should show roadway cross section, aesthetics, and any other necessary information.
This task includes all work items necessary to prepare a preferred concept along with
a Benefit -Cost Analysis (BCA).
• 34% Schematic Design: Once the preferred infrastructure concepts are determined, the
consultant will conduct the following tasks:
o Define the project scope;
o Create a high -quality rendering showing different perspectives of the preferred
overpass, Complete Street, and shared -use path concepts for use in public
engagement;
❑ Develop a preliminary cost estimate and schedule for the work;
o Finalize the infrastructure design criteria; and
o Determine land acquisition needs.
• 60% Design Plan: Following preliminary design, the consultant will:
❑ Finalize the expectations and objectives of the project;
o Confirm the constructability of the overpass, Complete Streets, and shared -use
paths;
❑ Determine construction permit requirements;
101 Page
❑ Implement acceptable value engineering requirements, if applicable;
❑ Identify preferred equipment and materials; and
❑ Complete National Environmental Policy Act (NEPA) documents and other
state and local permits.
• 90% Design Plan: After review by the Iowa Department of Transportation (Iowa DOT),
the consultant will:
o Complete set of plans and specifications for construction;
o Develop final construction cost estimate and schedule for the work;
❑ Create construction phasing plan; and
o Finalize permit package.
5. Community Engagement
• Outreach: Outreach to the community will be integrated into the entire process. Since
the North End, Point, and Washington neighborhoods have historically been
marginalized and neglected, the community engagement process will be tailored to the
needs of these areas and will amplify voices that may not have been traditionally
included in planning processes. Staff from Dubuque's Office of Shared Prosperity and
Neighborhood Support, which specializes in community engagement, will be active
members of the planning team. Project leaders will communicate planning intentions,
impacts, and design concepts through social media, the City web site, newsletters, and
other outreach tools.
• Public Meetings: Share design concepts and plans with residents and local businesses
through community forums and public meetings to seek feedback. To gather ideas, the
City will have several design charrettes and walking tours of the corridors to get a
deeper understanding of mobility challenges. Dubuque will work closely with
community groups and other institutions to garner feedback and input on design.
6. Closeout
■ End: Submit final report.
E. Expected Users
The 132E2 project directly supports residents living within Areas of Persistent Poverty in the North
End, Point and Washington neighborhoods, as well as downtown households in the Historic
Millwork District. The proposed RAISE improvements will benefit many populations, including:
• Low-income and minority residents who face multiple barriers to economic opportunity,
particularly those who live in Census Tracts 1 and 5 (Areas of Persistent Poverty);
• Economically -distressed residents who do not own a vehicle and depend on safe streets,
sidewalks, and bike lanes to travel within the community;
• users of Dubuque's Jule transit system with poor access to bus facilities;
• Millennials who opt to not own a car;
■ Senior citizens and disabled residents who cannot effectively access the 16 h Street
corridor, critical services such as the Crescent Community Health Center on Elm Street,
and Chaplain Schmitt Island;
■ Developers and business advocates who demand transportation improvements along 16th
Street and at the 14t` Street railroad grade; and
• Tourists and other visitors who currently cannot easily access Chaplain Schmitt Island from
mainland Dubuque.
111 Page
F. Local and Regional Significance
The B2E2 project is of local and regional importance. Locally, the project will help the City
revitalize struggling neighborhoods by delivering direct benefits to residents who live in Areas of
Persistent Poverty. The project complements efforts in Dubuque to focus investment in several
key areas. RAISE investment will strengthen economic opportunity along the 161h Street and Elms
Street corridors and provide better transportation access for residents within low-income
households in the project area. Developers are interested in reclaiming vacant buildings and
brownfields across the community. Transportation investment supports these efforts and will
promote further revitalization in this part of the city.
Regionally, Dubuque is an employment center for the tri-state region of Iowa, Illinois, and
Wisconsin. Based on the City's experience in revitalizing the Historic Millwork District, RAISE
funding is expected to spark significant new job -creating investments along the entire 16"' Street
and Elm Street corridors. This boom in economic activity will benefit the whole rural region. DOT
investment will support the Dubuque area as it works to grow needed jobs.
G. Racial Equity and Reducing Barriers to Opportunity
RAISE investment in Dubuque's transportation infrastructure will build on efforts already
undertaken to improve equity and reduce barriers to opportunity for minority residents, particularly
those living in and adjacent to the 132E2 project area. Based on U.S. Census data, the 2021
Dubuque Equitable Poverty Reduction and Prevention Plan notes that a staggering 56.1 % of Black
residents live in poverty, compared to 13.2% for White residents, and experience unemployment
at a rate four times higher than Whites. The highest median household income among Black
Dubuquers is found in Census Tract 5 with a value of only $22,059, followed by Census Tract 1
with a value of $21,382.z
RAISE investment will help ameliorate these inequities by reducing obstacles that systematically
and structurally block individuals from equal access to economic opportunities. The B2E2
project's interconnected Complete Streets components will enhance safe access to key job centers
and critical community resources, including the Crescent Community Health Center and the
nearest grocery store on Elm Street, and reduce the negative impacts of automobile dependency
for minority residents living in and around the project area. Potential new development may also
provide a second grocery option for the neighborhood.
H. Climate Change and Environmental Justice
RAISE investment will help Dubuque make significant progress toward achieving its climate
change mitigation goals as outlined in the City's 2020 Climate Action Plan. The B2E2 project
aligns with the plan's goal to reduce VMT by 10% by 2030. To help achieve this goal, the plan
calls for transforming 25% of local roads into Complete Streets and increasing public transit
ridership. Complete Streets and a connected system of transit, bike, and pedestrian infrastructure
will also contribute to Dubuque's goal of a 34% reduction in greenhouse gas emissions by 2030.
The project will advance environmental justice by delivering economic and social benefits to
distressed Dubuque residents who are subject to the greatest environmental hazards, including
flooding, proximity to contaminated industrial sites, and lead paint in housing.
2 U.S. Census Bureau, 2015-2019 American Community Survey
121 Page
H. PROJECT LOCATION
Located on the banks of the Mississippi River, Dubuque is Iowa's oldest city. Dubuque was
established as a fur -trading post and mining community, and later flourished as a manufacturing
hub. Manufacturing reigned in Dubuque until the mid-1900s. As Dubuque's retail and industrial
sectors moved to the western suburbs or fled completely, the downtown deteriorated and fell into
disrepair. With the collapse of the farm economy in the 1980s, the community watched as the
Dubuque Packing Company (located along the 161h Street Corridor) closed up shop, and then as
John Deere — then the city's largest employer — reduced its workforce by three-quarters of its peak.
Dubuque has reinvented itself. After decades of
population and job loss, the city is rebounding.
Over the last 100 years, Dubuque has seen its
economy shift from chiefly manufacturing to the
tourism, retail, health care, education, and financial
service sectors. Dubuque now serves as the
employment center for the tri-state region of Iowa,
Illinois, and Wisconsin. In recent years, Money
magazine rated Dubuque as one of the best places
to live in America and Forbes ranked the
community as one of the best small cities for
businesses and careers.',' The community enjoys a
business -friendly environment, skilled workforce,
and high quality of life.
Figure 9. Downtown Dubuque.
Dubuque is a compact, dense community with 24,151 households and 1,990.9 people per square
mile.' The city is ethnically -diverse, with a minority population of 12.2%. Approximately one-
third of Dubuque's population are millennials between the ages of 20 and 44 and 19.0% of
residents are 65 years or over. A significant proportion of the city's population suffers with a
disability (13.6%). Between 2016 and 2020, the median household income in Dubuque was
$54,938 (compared to $61,836 in Iowa and $64,994 nationally) and 13.2% of residents lived below
the poverty line (compared to 11.1 % statewide and 12.8% across America). No vehicles are
available to 8.3% of Dubuque's population.6
Dubuque's northern North End (Census Tract 5), Point (Census Tract 3), and Washington (Census
Tract 1) neighborhoods, located within the project area, are significantly more diverse and low-
income than the city as a whole. Minorities comprise 26.7%, 17.1 %, and 28.8% of Census Tracts
1, 3, and 5, respectively, compared to 12.2% across Dubuque. Median household incomes are also
25-50% lower in these neighborhoods ($42,262 in Census Tract 1, $48,295 in Census Tract 3, and
$32,977 in Census Tract 5) than the national level ($64,994). Poverty is more than twice as high
than the United States rate in Census Tracts 1 and 5. Disability rates also range between 15.9-
20.1% in the project area.7 RAISE investment will provide direct benefits to minority and low-
3 Money Magazine, "Best Places to Live in America", 2017
° Forbes Magazine, "Best Small Cities for Businesses and Careers", 2014
s 2020 Census estimate
a U.S. Census Bureau, 2016-2020 American Community Survey
Ibid.
131 Page
income residents, as demonstrated in the chart below:
Census
Census
Census
Dubuque
Iowa
United
Tract 1
Tract 3
Tract 5
States
Minority
26.7%
17.1 %
28.8%
12.2%
15.0%
39.9%
Median Household
$42,262
$48,295
$32,977
$54,938
$61,836
$64,994
Income
Poverty
29.1 %
1 17.0%
29.5%
13.2%
11.1 %
12.8%
Receive Food
27.2%
18.9%
32.0%
11.4%
9.8%
11.4%
Stam s1SNAP Benefits
No Vehicle
20.2%
8.4%
14.2%
8.3%
5.7%
8.5%
Commute by
21.9%
3.4%
14.5%
5.3%
4.4%
4.4%
Walkin IBikin
Commute by Transit
3.3%
1 2.3%
0.5%
1.3%
0.9%
4.6%
Age Under 18
15.6%
19.7%
27.0%
20.1 %
23.1 %
22.4%
Millennials Age 20-44
47.5%
23.2%
38.0%
33.1%
31.9%
33.2%
Age 65 and Over
8.7%
20.7%
11.6%
19.0%
17.1%
16.0%
Persons with
201 %
15.9%
16.5%
13.6%
11.8%
12.7%
Disabilities
Source: U.S. Census Bureau, 2016-2020 American Community Survey
Many households in the project area do not have a vehicle. North End, Point, and Washington
neighborhood residents also commute more by walking, bike, and transit. Alternative
transportation options are particularly important to millennials, low-income residents, and people
who do not own vehicles in Dubuque. Maintaining an efficient transportation system with reliable
buses, safe streets, bike lanes, and sidewalks is imperative to reducing barriers to opportunity for
these populations.
Connection to Existing Transportation Infrastructure
Within the B2E2 project area, the eastern end of the 16'h Street Corridor connects to Kerper
Boulevard, a major north/south artery, which links the project area to U.S. Highway 151, the
freeway that connects Dubuque to Wisconsin on the east side of the Mississippi River, and to U.S.
Highway 61, which connects Dubuque to Illinois on the east side of the river via U.S. Highway
20. Eastbound 16th Street continues past Kerper Boulevard to the transportation network on
Chaplain Schmitt Island via a four -lane bridge. The Elm Street corridor intersects with 14th
StreetlLoras Boulevard, a major cast/west arterial, and to the Dubuque Intermodal Transportation
Center at 11 th Street in downtown Dubuque, which provides transit connections to Dubuque's
West End, as well as hospitals, universities and other destinations. The Elm Street Corridor is
connected to Central/White Street, a major north/south thoroughfare, via 20th Street at the northern
terminus of the project area (Five Points intersection).
Geographic Details
The proposed project is located within a U.S. Census -designated Urbanized Area (UA Code
24823) with a population under 200,000, per the 2010 Census Urban Area designation. Geospatial
coordinates for the project area are 42130'36.48"N and 9013938.70"W. Census Tracts 1 and 5 are
designated as federal Opportunity Zones and Areas of Persistent Poverty.
141 Page
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151Page
III. GRANT FUNDS, SOURCES, & USES OF ALL PROJECT FUNDING
Dubuque seeks $2.28 million in RAISE funding to support planning for the B2E2 project,
including a railroad overpass, Complete Street enhancements, and new shared -use paths. The total
cost of the project is $4.38 million. RAISE investment will represent 52.1% of the total project.
The City commits to match RAISE funds with $2.10 million in non-federal money, which
represents 47.9% of the total project.
Budget
Cost
RAISE Request
Other
Non -Federal
Matching
Description
Federal
Match
Source
Support
Conceptual
$800,000
$100,000
$0
$700,000
City of
Design
18.3%
12.5%
0%
87.5%
Dubuque
30%
$1,000,000
$600,000
$0
$400,000
City of
Schematic
(22.8%)
(60.0%)
(0%)
(40.0°la)
Dubuque
Plan
60% Design
$1,350,000
$900,000
$0
$450,000
City of
Plan
30.8%
66.7%
0%
33.3%
Dubuque
90% Design
$1,200,000
$680,000
$0
$520,000
City of
Plan
27.4%
56.7%
0%
43.3%
Dubuque
Community
$30,000
$0
$0
$30,000
City of
Engagement
0.7%
0%
0%
100%
Dubuque
TOTAL
$4,380,000
$2,280,000
$0
$2,100,000
100%
52.1 %
0%
47.9%
Total Project Cost
$4.38 million
Total Local Match
$2.10 million
Total RAISE Funds Requested
$2.28 million
Percentage of RAISE Funds in Project
52.1%
Percentage of Local Match in Project
47.9%
Match is evidenced by the attached letter of commitment. There are no restrictions on the use of
any of the City's matching funds. No additional funding is required to complete this project.
Dubuque has an exemplary record of managing federal grants on -budget and on -time, having
received numerous DOT (including TIGER and INFRA), EPA, HUD, and other federal grants
over the years. The City has never been cited for an adverse OMB Circular A-133 audit finding
and has never been required to comply with "high risk" terms or conditions under OMB Circular
A-102.
The City's overall financial condition is in very good shape. Dubuque has an Aa3 credit rating.
161 Page
IV. MERIT CRITERIA
A. Safety
Improving safety for all users is a key goal of Dubuque's proposed RAISE project. There are
currently several points of conflict between cars and people in the public realm on the 16`h Street
and Elm Street corridors and their intersecting streets. 10h Street includes four travel lanes, two in
each direction, and no sidewalks or marked bicycle lanes. There are four intersections along 16`h
Street that slow traffic and contribute to a very challenging pedestrian and bicycle experience. Elm
Street, from the Five Points intersection to downtown Dubuque, includes two travel lanes, one in
each direction. Sidewalks are narrow and there are no marked bicycle lanes. Several intersections
slow traffic and contribute to a challenging pedestrian and bicycle experience, especially at the
Five Points and 16'h Street intersections. Rail tracks also separate economically -challenged
neighborhoods in northern Dubuque from employment opportunities at the Kerper Boulevard
Industrial Park and on Chaplain Schmitt Island. Once completed, the B2E2 project will improve
safety by effectively managing traffic flows with a railroad overpass, roundabouts, new/enhanced
pedestrian and bicycle facilities, and better signage. The redesigned 10h Street and Elm Street
corridors will support motorists, pedestrians, bicyclists, and motorists.
A key project benefit is the elimination of an at -grade rail conflict in Dubuque. Currently,
approximately 8-10 trains pass through the community daily. In March 2022, Dubuque
experienced its most recent railroad -related fatality when an oncoming train hit a pedestrian. On
average, there are 2.1 incidents per year in Dubuque County involving trains with injuries or
fatalities, as reported by the Federal Railroad Administration. Train traffic is expected to increase
through the city with the pending merger of the Canadian Pacific and Kansas City Southern
railroads, with 10 more trains expected to pass through town daily. Residents from the North End,
Point, and Washington neighborhoods must cross rail tracks to access employment and
recreational opportunities at the Kerper Boulevard Industrial Park and on Chaplain Schmitt Island.
RAISE planning dollars will help to design an overpass along 14t' Street (the best alternative) to
enable pedestrians, bicyclists, and motorists to safely cross rail tracks. The Canadian Pacific
railroad provided a support letter for the project. The overpass will also increase response times of
the City's first responders reacting to emergencies and reduce the likelihood of a train -related
discharge of hazardous materials.
Crashes are a concern in the project area. Over the past decade, 114 crashes with 37 minor injuries
and 1 serious injury were reported along the 10 Street corridor. For the Elm Street corridor
(excluding the intersection of Elm Street and 10h Street), 64 crashes and 17 injuries were reported
during the same time period. Traffic volume is expected to grow on both corridors due to new
economic development. Traffic studies indicate that daily traffic will rise to 23,750 vehicles on
16"h Street and 10,700 vehicles on Elm Street (a greater than 15% increase) in the next 20 years.
The existing roads are not adequately designed to meet the needs of motorists, cyclists, pedestrians,
and transit users. Without shifts to other modes of transportation, the 16{h Street and Elm Street
corridors will experience increased crashes.
Crash
Severity 2011-2021
16t" Street Corridor
Elm Street Corridor
Total Crashes
114
64
Involving Injury
38
17
Involving Property Damage Only
76
47
171 Page
Overpasses, roundabouts, and Complete Street
enhancements are demonstrated transportation
safety features that reduce surface
transportation -related crashes, injuries, and
fatalities. Design of a railroad overpass aligns
with DOT goals to eliminate at -grade rail
crossing due to their hazardous nature. Studies
have shown that roundabouts are safer than
traditional stop signs or signal -controlled
intersections. The tight circle of a roundabout
forces drivers to slow down, and the most Figure 11, Crashes at dangerous intersection in
severe types of intersection crashes — right Dubuque will be avoided with roundabouts.
angle, left -turn, and head-on collisions — are
unlikely. Roundabouts reduced injury crashes by 75% at intersections where stop signs or signals
were previously used for traffic control, according to studies by the Insurance Institute for
Highway Safety. Roundabouts are also generally safer for pedestrians. Pedestrians walk on
sidewalks around the perimeter and cross only one direction of traffic at a time. Crossing distances
are relatively short and traffic speeds are lower than at traditional intersections. Finally, Complete
Street elements including sidewalks, marked bike lanes, improved transit facilities, and street -level
lighting will further reduce areas of conflict for pedestrians, bicyclists, and bus riders.
Essential street repairs on I61h Street and Elm Street corridors will reduce damage to vehicles,
including deployed airbags, popped tires, damage to vehicle struts, as well as people reporting
pedestrian harms from trip hazards.
Through its participation in the East Central Intergovernmental Association's Smart Traffic
Routing with Efficient and Effective Traffic Systems (STREETS) initiative, Dubuque will
leverage ITS technologies in the project area to create a smart, next -generation, traffic management
and control system that will enable dynamic traffic routing to maximize roadway capacities and
improve safety.
The City ascribes to DOT's Vision Zero goal of reducing traffic deaths and life -changing injuries
to zero. The proposed improvements will help Dubuque shift traffic modes from personal vehicles
to even greater walking, biking, and public transit activity. The existing conditions create unsafe
conditions for bikers and pedestrians and the strong perception of an unsafe environment
discourages residents from using these modes. Complete Street improvements will particularly
benefit low-income and minority residents in northern Dubuque who are nearly three times more
likely to walk to work and five times more likely to bike to work than all commuters in Dubuque.8
B. Environmental Sustainability
Another important goal of the 132E2 project is environmental sustainability. The project will
demonstrate how investing in pedestrian/biking improvements and green infrastructure can
generate multiple environmental benefits, including reduced VMT, curbed greenhouse gas
emissions, improved air quality, decreased runoff, brownfields redevelopment, and smart growth.
8 U.S. Census Bureau, 2016-2020 American Community Survey
181 Page
Dubuque's North End, Point, and Washington neighborhoods are identified as environmental
justice areas of concern. According to the EPA's EJSCREEN tool, this area ranges between the
88`h and 92"a percentiles for Iowa environmental indicators, and between the 61" and 72"a
percentiles nationally, associated with vehicle -generated pollution. See results below:
Environmental Indicator
Percentile in Iowa
Percentile in United States
Particulate Matter PM2.5
88
63
Ozone Os
88
63
Diesel PM
88
63
Air ToAras Cancer Risk
88
61
Air Toxics Respiratory Hazard
1 88
1 61
Traffic Proximity and Volume
1 92
1 72
The 16'h Street and Elm Street corridors will be redesigned to expand walking, biking, and transit
facilities. Key environmental benefits will include:
• Less idling: Currently, approximately 8-10 trains daily stop in downtown Dubuque for
extended time periods (20-30 minutes each), halting traffic traveling to and from the Kerper
Boulevard Industrial Park and Chaplain Schmitt Island. The new 141h Street railroad
overpass will reduce train -related delays, enabling users to travel uninterrupted to these
key economic nodes. Roundabouts will also help to keep traffic moving across town.
• Decreased VMT. Making sidewalks and streets safer for biking and walking will increase
the number of residents who use non -vehicular modes for travel. Improved transit services
will also make bus travel a more attractive option. A shift of trips in the city from single -
occupancy vehicles to walking, biking, and bus transit will decrease VMT.
• Reduced transportation -related air pollution and greenhouse gas emissions: The
Imagine Dubuque 2037 Comprehensive Plan notes that nearly one -quarter of Dubuque's
greenhouse gas emissions are related to transportation. Shifting trips in the city from single -
occupancy vehicles to walking, biking, and bus transit will significantly reduce fuel
consumption and generate meaningful air benefits. Uncoordinated land use decision -
making has led to air pollution hot spots in town, particularly in its disadvantaged North
End, Point, and Washington neighborhoods (see EJSCREEN chart above). As more
residents choose alternative transportation modes, Dubuque's air quality will improve with
less PM2.5, 03, nitrogen dioxide (NO2),
and carbon dioxide (CO2) emissions.
Decreasing air pollution will improve
health outcomes and positively impact
climate change.
• More green infrastructure and less
runoff Dubuque lies within the
Mississippi River watershed. New
sidewalks will include street tree
plantings and bioswales. The benefits
of green infrastructure include air
quality improvements, traffic calming,
noise reduction, lowering of the urban Figure 12. The incorporation of green infrastructure
heat island effect, less stormwater will help Dubuque to reduce storm water runoff and
runoff, improved water quality, and pollution impacts to the Mississippi River.
191 Page
C]
s
general pedestrian realm improvements. Street trees and bioswales have been shown to be
a key tool in combating heat -related illnesses by lowering the ambient temperature in
communities. Green infrastructure is also directly tied to equity as historically-redlined
neighborhoods which were not targeted for regular tree planting.
Sustainable design: During the design process, Dubuque will incorporate the use of lower -
carbon pavement and construction materials to reduce greenhouse gas emissions and
address climate change.
Support better land use and transportation design: While less than 1.5 miles from the
Intermodal Transportation Center, Dubuque's northern neighborhoods are disconnected
from this transit hub. As such, development has bypassed these neighborhoods for areas
better connected to the bus station. RAISE investment will create better access to local
assets like the Intermodal Transportation Center and support smart growth.
Redevelopment o. f brownfreld sites: The North End, Point, and Washington neighborhoods
have a legacy of brownfield contamination that has threatened the health of residents and
overall economic development. Unknown exposure pathways may be putting
neighborhood residents at risk for cancer and non -cancer health hazards. Dubuque is
currently assessing and cleaning up brownfields with EPA funding. For example, the City
will soon complete remediation of the Washington Neighborhood's Blum property, a
former junkyard. RAISE investment will help Dubuque to tackle more contaminated sites
and concentrate infill development for more efficient land use.
Enhanced energy efficiency: The project will plan for the replacement of incandescent
street lights on the rebuilt Complete Streets with energy -efficient LED street lights. Energy
savings will generate meaningful reductions of carbon and other air pollutants.
Mitigates the negative environmental impacts on disadvantaged residents: People are the
product of their environment. Transportation -related air pollution is linked to health
disparities in Dubuque. Less air pollution will address the health needs and concerns of
residents. The region has a higher incidence rate of asthma than Iowa --- 1.68
hospitalizations per 10,000 (age -adjusted) in Dubuque County compared 1.39 across the
state. Fewer harmful emissions will
improve health outcomes.
The City will model the recommended
alternative to determine its environmental
benefits.
C. Quality of Life
Dubuque's B2E2 project will improve quality
of life in the project area and region in several
important ways:
Increasing accessibility for
disadvantaged residents: The project
was developed to provide safe, reliable,
and economical transportation choices
to the underserved North End, Point,
and Washington neighborhoods in
Dubuque. Complete Streets on 16rh
Figure 13. RAISEfunding will help Dubuque to build
infrastructure for seniors and persons with
disabilities that meets all ADA requirements.
201 Page
Street and Elm Street, as well as new shared -use paths, will provide safe mobility options
for pedestrians, cyclists, and transit users, particularly households in Areas of Persistent
Poverty that do not own a vehicle. These residents depend on other modes of transportation
to live, work, shop, and play. Transportation modeling of the recommended alternative will
be conducted to determine the mode shift from vehicles to alternative means. That shift
will significantly decrease household transportation expenses. By expanding transportation
choices, more Dubuque households will be able to forego car ownership, or maintain one
vehicle rather than two or more. For residents with low- and moderate -incomes in
particular, the cost of car ownership is a significant economic burden.
• Lowering transportation and housing costs: Car ownership is expensive and often
unaffordable to lower income populations. Eliminating the need for personal vehicles has
the potential to drastically reduce the cost of living in Dubuque.
• Removing transportation barriers: ADA compliance measures will provide enhanced
access opportunities for seniors and persons with disabilities. Following Universal Design
principles, new sidewalks and improved transit will also connect individuals with mobility
challenges to other community assets.
• Advancing racial equity: Dubuque's northern neighborhoods have a significant minority
population (26.7% in Census Tract 1, 17.1 % in Census Tract 3, and 28.8 in Census Tract
5), with a concentration Black/African American (15.6% in Census Tract 1, 4.8% in Census
Tract 3, and 15.9% in Census Tract 5) residents.9 The proposed RAISE project squarely
seeks to invest transportation resources into the revitalization of an area that will provide
minority residents with improved access to essential services and promote upward
economic mobility.
■ Improving health outcomes: Historically, traffic pollution has disproportionately
impacted Dubuque's North End, Point, and Washington neighborhoods. The EJSCREEN
tool indicates that this area in is the 92nd percentile for traffic proximity and volume in
Iowa. Poor air quality is a systemic issue that low-income individuals and people of color
face. There is a strong link in these neighborhoods between poverty and chronic disease.
According to a 2019-2021 Community Health Needs Assessment, chronic heart and lung
disease are prevalent in Dubuque. Heart disease is rated as the second top cause of death
in the city for people under the age of 75. Health disparities are also concentrated in
economically -distressed areas. Anecdotally, Census Tracts 1, 3, and 5 have higher
incidence rates of asthma than across all of Dubuque. Air pollution reductions will help to
improve health outcomes.
• Promoting neighborhood revitalization: The project has the potential to completely
revitalize the economically -distressed North End, Point, and Washington neighborhoods.
Transit -oriented development will be promoted with a variety of housing options,
commercial/retail opportunities, parks, and other amenities. The proposed Complete Street
improvements support this revitalization effort. Transportation upgrades will help to
leverage planned mixed -use, infill development, including revitalization of brownfields
like the former Dubuque Packing Company site on 10h Street, which has remained vacant
for more than a decade. Particular care will be taken to ensure that lower -income residents
are able to remain in the neighborhood as a result of these investments.
• Improving connectivity to jobs, health care, and other critical destinations: The
9 U.S. Census Bureau, 2016-2020 American Community Survey
211 Page
economic prosperity of a community is
dependent on its ability to move people
and goods. However, that mobility is
constrained in Dubuque by poor
transportation choices for northern
neighborhoods. RAISE investment is
critical to helping connect people with
employment, education, health care,
and other important destinations. 161h Figure 13. A Complete Street on Elm Street will
Street connects to the Kerper Boulevard improve access to key community destinations,
Industrial Park and employment/ including the Crescent Community Health Center.
recreational opportunities on Chaplain
Schmitt Island. Elm Street is a key community roadway that provides access to the
downtown jobs, schools, the Crescent Community Health Center, a grocery store, and the
Intermodal Transportation Center. The proposed improvements will enable residents and
the goods produced in the project area to move efficiently about the community and region.
Saving time and money: Dubuque households experience travel delay due to stopped trains
and congested streets. Travel time savings contribute to quality of life. Less time spent
behind the wheel will provide residents with more opportunity to enjoy leisure activities.
Complete Street improvements will connect minority and low-income residents to downtown
employment opportunities and support the City's equity goals. Dubuque is one of the first
communities in the country to adopt a local equity plan — the Dubuque Equitable Poverty
Reduction and Prevention Plan. Mayor Brad Cavanaugh is committed to "closing the gaps" in the
community so that race does not predict one's success. Dubuque has adopted numerous equity
policies and practices to challenge long-standing racial bias. The City has also created new Office
of Shared Prosperity and Neighborhood Support to ensure that historically -disenfranchised
residents enjoy a seat at the table. The Director (Anderson Sainci) of the Office of Shared
Prosperity and Neighborhood Support will support efforts to engage disadvantaged individuals in
transportation planning.
D. Mobility and Community Connectivity
The project is being designed to improve the movement of both motorized and non -motorized
travelers. Currently, North End, Point, and Washington neighborhood residents have poor access
to downtown Dubuque, the Historic Millwork District, the Intermodal Transportation Center, the
Kerper Boulevard Industrial Park, Chaplain Schmitt Island, and other key areas. Train tracks and
poorly -designed roadways impede travel across the community. In particular, there is poor
connectivity for pedestrians, bikers, and transit users. All travelers face barriers reaching jobs,
schools, health care, and other critical local facilities.
The proposed B2E2 improvements will create an environment where people can easily work, live,
and play. Following Universal Design principles, Dubuque will plan transportation infrastructure
that is accessible for all travelers, including seniors and persons with disabilities. The project will
feature roundabouts, a railroad overpass, safe sidewalks, bike lanes, improved lighting, signage,
and linkages to trails. These mobility elements will help to connect nodes across the community.
221 Page
The project's key mobility and community connectivity benefits include:
• Increasing affordable transportation choices: Walking, biking, and transit are safe,
reliable, and economical transportation choices for disadvantaged residents. Complete
Streets on the 16th Street and Elm Street corridors and new shared -use paths will provide
mobility options for pedestrians, cyclists, and bus users.
• Trail connectivity: The proposed 161h Street shared -use path will connect walkers and
bicyclists to the extensive trail system on Chaplain Schmitt Island.
• Expanding accessibility. for all: The City is incorporating Universal Design principles into
6" Street Bridge planning to ensure that infrastructure improvements benefit all users.
Project features will comply with all ADA requirements to ensure access for individuals
with mobility challenges, including seniors and persons with disabilities. Community
design workshops will ensure that all viewpoints are considered.
• Living vehicle free: The project will help residents and commuters avoid the cost of
owning a car, particularly low-income households in Dubuque's northern neighborhoods.
According to AAA, the overall annual average cast to own and operate a car in 2021 was
$9,666.1Q Each vehicle that the project helps an individual avoid owning or using means
significant funds are available for other expenses. Providing transportation choices such as
improved transit, better walkability, and bike lanes helps residents decide to forgo owning
a personal vehicle and generates significant local purchasing power.
E. Economic Competitiveness and Opportunity
Infrastructure improvements to the interconnected 10h Street and Elm Street corridors will drive
Dubuque's economic future. The City has invested significant resources to grow businesses and
jobs in this part of town. Three areas are key to Dubuque's future economic:
• IKerper Boulevard Industrial Park: Operating since the 1950s, the Kerper Boulevard
Industrial Park is poised for expansion. The 229-acre site is home to a number of existing
tenants, including Georgia Pacific, Hirschbach Transportation, Drive Line, Union-
Hoermann Press, Rainbo Oil, Van Meter Inc., Anderson/Eagle Window and Door Inc., Key
City Plating, United Parcel Service, Rousselot, Black Rock Fabrication, Home Technology
Systems, B&F Fastener Supply, Anova Pallet, Innocor Inc., Bradley Iron Works, Klauer
Manufacturing Company, Dubuque Fire Equipment Inc., Flint Hills Resources, Quanex,
Brightwood Corporation, Advantage Sheet Metal, Inc., Thompson Truck & Trailer, AG
Trucking, Energetics, Automotive & Industrial Hardware, Weitz Sign Systems, Coca-Cola
Bottling Inc., Bel -Aire Rental, Matthews Distributing, Drive Line of Dubuque, Hurst
Logistics, Complete Off Road, Smart Retract -a -Gate, and Advance Designs. A number of
vacant buildings and lots still exist within the industrial park. The True North campaign
seeks to attract more light manufacturing and other business uses appropriate for the Kerper
Boulevard Industrial Park and nearby brownfield sites. Companies in the Kerper Boulevard
Industrial have surveyed workers and determined that their workforce lives largely within
the North End, Point, and Washington neighborhoods. Their expansion in the area is
predicated on improving access for these residents. New business growth will also be
supported by a railroad overpass, Complete Street improvements, and a shared -use trail.
• Chaplain Schmitt Island Transportation investment in the 16`h Street corridor will support
significant economic growth on Chaplain Schmitt Island. A former landfill, the island was
io AAA's 2021 Your Driving Costs study
231Page
redeveloped in the 1980s into a major
commercial and recreational
destination. The current attractions
include the Q Casino & Resort and its
indoor restaurants and amenities,
Dubuque Greyhound Park, Hilton
Garden Inn Hotel, Houlihan's
restaurant, Catfish Charlie's restaurant,
American Marine, Mystique
Community Ice Center, Dubuque Figure 14. Improved access to Chaplain Schmitt
Water Sports Club, Dubuque Yacht Island will support Dubuque's efforts to grow jabs.
Basin Marina & RV Park, American
Lady Yacht, MacAleece Sports
Complex, Miller -Riverview Park, Schmitt Island boat ramp, and several Veterans
Memorials. Community leaders envision the island as a thriving jobs hub and a year-round
destination. In 2017, Chaplain Schmitt Island was rezoned to allow for planned unit
development. The Q Casino is currently planning a new hotel and the southern half of the
area will be developed with new retail, restaurants, entertainment, and recreational
amenities. Better vehicle and transit access, as well as more pedestrian and biking
opportunities, is critical to this expansion.
Joey redevelopment sites: Complete Streets and pedestrian/bike accommodations are also
essential to the redevelopment of area brownfields. A key site on the 16t' Street corridor is
the former Dubuque Packing Company plant. This vacant building has sat idle for more
than a decade and is ripe for redevelopment. Dubuque has received EPA Brownfields
Community -Wide Assessment and Cleanup funding to tackle additional brownfield
challenges throughout the project area. For example, remediation efforts will soon be
complete at the Washington Neighborhood's Blum property, a former junkyard. These
cleanup activities will accelerate as transportation access improves and developers begin
to reclaim more contaminated properties.
Key economic competitiveness benefits of the project include:
• Travel time reliability: A railroad overpass and shifting travel modes from vehicles to
walking, biking, and transit use will reduce congestion and VMT on the 16a, and Elm Street
corridors. Improved traffic flow will save time and money for residents as well as local
manufacturers.
• Improved access to jobs: RAISE dollars will improve the movement of workers in
Dubuque. Complete Streets and shared -use paths will connect Areas of Persistent Poverty
to jobs in the Historic Millwork District, at the Kerper Boulevard Industrial Park, and on
Chaplain Schmitt Island. Sidewalks and bike accommodations along Elm Street will also
connect neighborhoods to the downtown Intermodal Transportation Center.
• Avoided transportation costs: The project will help residents and commuters avoid the
cost of owning a car, particularly low-income households in Dubuque. Each vehicle that
the project helps an individual avoid owning or using means significant funds are available
for other expenses. Providing transportation choices such as improved transit, better
walkability, and bike lanes helps residents decide to forgo owning a personal vehicle and
generates significant local purchasing power.
241 Page
■ Better freight movement: The proposed vehicular and pedestrian overpass at the 14th Street
railroad grade increases economic competitiveness by reducing frequent and lengthy train
delays that impair the efficient movement of people and goods and increase the cost of
doing business. As Dubuque developed, its residential population has located to the west
of its downtown train tracks, and major economic development and job opportunities have
been sited, and continue to grow, to the east along the Mississippi River. Commuting to
these employment centers is difficult. Every day, eight to 10 trains travel north -south on
Canadian Pacific Railway's active line through downtown Dubuque. These roughly 8,000-
foot trains (more than 1.5 miles of railcars) stop for approximately 20 to 30 minutes each
at a railyard just north of downtown to switch cars, load and unload freight, receive orders,
and pick up drivers. For up to five hours throughout the day (including during peak times),
east -west connectivity is prohibited at five at -grade crossings. Visit Dubuque any day of
the year, and one's journey will likely be delayed by trains bisecting the community. These
choke points seriously impact the movement of business shippers.
• Increased land productivity: Opportunity Zone designation of Census Tracts 1 and 5
provides an additional economic development tool to attract private sector interest in
Dubuque. The Opportunity Zone has jumpstarted the Kerper Boulevard Industrial Park's
growth. The City and Greater Dubuque Development Corporation are actively reaching
out to local landowners, developers, tax experts, and wealth advisors to promote the new
capital gains tax benefits. New tax incentives targeting the distressed area will demonstrate
how federal and state support can help struggling communities grow, generate
employment, and improve quality of life. The surge of economic development that RAISE
funding will unleash will also create significant local fees and taxes. New economic
development on sites such as the Dubuque Packing Company are expected to generate
significant annual City tax revenues. These projects are contingent on transportation
improvements, including a railroad overpass.
• Support for Disadvantaged Business Enterprises (DBE): Dubuque will advertise the
B2E2 project with a preference for local DBEs. The bidding process will provide
opportunities for minority -owned businesses to compete for the work.
• More local hiring and apprenticeship opportunities: The City will include local hiring
provisions in construction contracts that support the ability of residents to benefit from
federal infrastructure investment in their neighborhoods. Dubuque will also encourage
competing firms to include apprenticeship opportunities for local low-income individuals.
F. State of Good Repair
RAISE investment supports existing infrastructure on the 10h Street and Elm Street corridors,
which have not been modified in decades. That disinvestment threatens Dubuque's aspirational
economic development efforts in the B2E2 project area. Revitalization will improve the conditions
of existing transportation facilities and infrastructure. With multiple congested intersections,
traffic is unable to flow freely on either thoroughfare. The routes are particularly challenging and
hazardous to pedestrians and bicyclists, as well as senior citizens and disabled residents, with
limited or no sidewalks and bike accommodations. The proposed project is in complete alignment
with DDT's "fix it first" approach.
Even the new infrastructure proposed for the B2E2 project area, particularly the 14t` Street railroad
overpass, will contribute to a state of good repair by creating an alternate route to the Kerper
Boulevard Industrial Park and Chaplain Schmitt Island, thereby reducing pressure on 1 bth Street
251 Page
to carry the bulk of traffic to and from these areas. Integration with the City's STREETS ITS
system will also contribute to reducing wear and tear on roads in the project area by distributing
traffic more evenly along these key access routes.
Dubuque seeks to develop Complete Streets on the interconnected 1 bth Street and Elm Street
corridors, which serve pedestrian, bike, transit, commercial and personal vehicle traffic. However,
neither corridor was designed for these mixed uses. Project elements include reconstruction of the
roadway, five roundabouts, sidewalks and bike lanes, and appropriate pedestrian -scale street
lighting. Complete Street improvements will provide better functionality, improve mobility along
these thoroughfares, and help the City save money by matching the needs of the roadways with
their actual design. Proposed upgrades in existing infrastructure help to minimize deterioration of
the roadways and extend the life cycle of the Jule transit system's rolling stock investments.
Improved pedestrian and bike access also supports Dubuque's investment in existing multi -use
trails. The new pedestrian/bike shared -use path adjacent to the 16"' Street Bridge will improve safe
access to job opportunities, recreation, and other community amenities on Chaplain Schmitt Island.
The project will also provide pedestrian and bicycle connectivity to the Bee Branch Trail,
Mississippi River Trail system, and National Scenic Byway system.
The project is consistent with the region's Long Range Transportation Plan 2045, which seeks to
maintain transportation facilities and systems in a state of good repair. RAISE funding will also
complement other efforts in Dubuque that focus investment established areas, including the
Chaplain Schmitt Island Master Plan and the Imagine Dubuque 2037 Comprehensive Plan.
Dubuque has considered how the project's long-term operations and maintenance costs will be
met. Economic growth along the corridors will create significant additional fees and tax revenues
that can offset costs associated with maintaining 16a` Street and Elm Street infrastructure. Transit
improvements will also increase Jule bus ridership and create efficiencies that will save money.
Finally, the project will be a model for showcasing how the addition of multimodal infrastructure
enhances the resilience of local transportation systems. Dubuque is prone to extreme weather
events. Infrastructure planning will incorporate design features and durable materials that can
withstand climate impacts.
G. Partnership and Collaboration
Dubuque has formed partnerships with key stakeholders to support the project, including:
Partner
Roles and Responsibilities
Iowa DOT
Will work with the City to expeditiously complete NEPA and other
regulatory requirements at the appropriate time
East Central Intergovernmental
Will work with Dubuque to help implement the project and complete a
Association
6CA for construction
Jule Transit System
RAISE funds will leverage Elm Street and 16th Street transit investment
Greater Dubuque Development
Will work to grow jobs along the 16"h Street and Elm Street corridors
Corporation
through its True North business recruitment efforts
Dubuque Racing Association
The City and Dubuque Racing Association will continue to discuss a
public -private partnership to assist with financing key components of the
project
261 Page
Local developers RAISE investment along the 16th Street and Elm Street corridors will be
leveraged with the revitalization efforts of private developers
Dubuque has established a DBE program in accordance with DOT regulations. It is the policy of
the City to ensure that DBEs have an equal opportunity to participate in DOT -assisted contracts.
Community involvement and engagement will be integrated into every part of the project.
Historically, voices from Dubuque's northern neighborhoods have not been heard as loudly as
other areas. The City's Office of Shared Prosperity and Neighborhood Support will work to engage
area residents. All public engagement with be multi-lingual to ensure an equitable process.
Dubuque has incorporated stakeholder engagement into its project schedule to ensure that there is
robust public involvement, including through waikthroughs, surveys, workshops, and public
meetings. As evidenced by the attached letters of support, there has already been a strong effort to
engage with local and regional stakeholders.
This project enjoys strong bipartisan, intergovernmental support from Mayor Cavanaugh, the
Dubuque City Council, the Dubuque County Board of Supervisors, the Iowa DOT, Governor Kim
Reynolds, State Representatives Lindsay James and Charles Isenhart, State Senator Pam Jochum,
U.S. Representative Ashley Hinson, and U.S. Senators Charles Grassley and Joni Ernst.
H. Innovation
i. Innovative Technologies
Dubuque will leverage East Central Intergovernmental Association's STREETS ITS initiative to
create a smart, next -generation, traffic management and control system that will enable dynamic
traffic routing to maximize roadway capacities and improve safety. This smart technology will
help the City to manage growth along the corridor. Project innovations include:
• ITS. The project will include the installation of ITS technologies along the 16" Street and
Elm Street corridors to enhance safety and mobility. The system will integrate with the
City's existing STREETS ITS infrastructure and enable future functionality, such as
Vehicle -to -Infrastructure (V2I), Vehicle -to -Vehicle (V2V), and Vehicle -to -Everything
(V2X) technologies that will support autonomous vehicles.
• Broadband integration: The B2E2 project will support ongoing broadband and digital
equity efforts. Dubuque has been installing multi -duct conduit, allowing up to seven
internet carriers to provide fiber services throughout the area. Universal, redundant, high-
speed broadband access will drive next -generation innovation and enhance equitable
access to the Internet for city residents who live in distressed neighborhoods in and around
the project area — a critical need in today's digital economy.
■ Sustainable design: Dubuque will incorporate the use of lower -carbon pavement and
construction materials to reduce greenhouse gas emissions and address climate change.
• LED street lighting: The project will plan for the replacement of existing incandescent
street lights on the rebuilt Complete Street with energy -efficient LEDs, which will save
electricity, reduce costs, and curb emissions.
ii. Innovative Project Delivery
Dubuque will explore innovative project delivery options for planning, design, permitting, and
review. Dubuque will engage with Iowa DOT and the regional Federal Highway Administration
to discuss innovative strategies to expedite project delivery using Special Experimental Project
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No. 14 (SEP-14) and Special Experimental Project No. 15 (SEP-15). Mobile survey and mapping
applications such as LIDAR data and pavement condition scanning using drone UAV technology
will be considered. The three dimensional scanning technology will allow for real-time 3D BIM
modeling and the use of virtual reality visualization technology during both the design and public
informational meetings to convey and display the proposed corridor improvements. Dubuque will
also evaluate alternative methods for Accelerated Bridge Construction for both the 14th Street
railroad overpass and 161h Street Peosta Channel bridge shared -use path.
iii. Innovative Financing
The private sector is a key supporter of the proposed RAISE improvements. Long-term, non-
federal revenue will be collected from local developers to support the construction and
maintenance of RAISE -planned infrastructure. The potential for private sector investment is
strengthened by Opportunity Zone designation. As part of its previous TIGER construction project,
Dubuque secured a $500,000 cash commitment from the Dubuque Racing Association to support
Complete Streets along the 161h Street corridor and a pedestrian/bike shared -use path to Chaplain
Schmitt Island. The Dubuque Racing Association is discussing additional financial support with
the City for transportation infrastructure that facilitates access to the island.
V. Project Readiness
A. Environmental Risk
i. Project Schedule
Dubuque can begin work quickly upon award and all funds will be spent expeditiously:
2023
2024
2025
Q1
Q2
Q3
Q4
Q1
JQ2
Q3
Q4
Q1
Q2
Funding Agreement
Planning and Design Procurement
Conceptual Design
• Selection of Preferred
Alternative
30% Schematic Design
■ Share Renderings of
Com Vete Street Concept
• Finalize Complete Street
Design Criteria
60% Design Plan
■ Complete NFPA Documents
90% Design Plan
• Complete Set of Plans and
Specifications
• Finalize Permit Package
X = Community Engagement
The City is confident that it can begin the project expeditiously upon grant award and agreement,
proceed on this schedule, and complete design to prepare for permitting and construction.
281 Page
B. Required Approvals
i. Environmental Permits and Reviews
a. NEPA Status
No environmental clearance is required to conduct planning on the 161h Street and Elm Street
corridors. When the project is ready to construct, a NEPA Categorical Exclusion is expected as it
falls primarily within the right-of-way and no adverse environmental impacts are anticipated.
b. Other Reviews, Permits, or Approvals
No additional reviews are necessary to initiate planning. The project poses no risk to cultural or
environmental resources at this stage. As previously stated, Dubuque expects to receive a NEPA
Categorical Exclusion when the City is ready to construct. The State Historic Preservation Office
(SHPO) will also need to confirm that historic resources will not be affected and the U.S. Fish and
Wildlife Service will have to uphold that no rare/endangered species are likely to be harmed. The
City will also work closely with Stuart Anderson at Iowa DOT during the planning process.
C. Environmental Studies
No environmental studies are necessary to begin and complete the proposed planning project,
d. NEPA Discussions
During the planning process, Dubuque will initiate discussions with IA DOT to advance the
proposed project's readiness. A NEPA Categorical Exclusion is expected.
e. Right -of -Way Acquisition Plans
Project improvements will occur largely within the existing right-of-way. Before construction,
only minor temporary and permanent easement acquisition is anticipated.
L Public Engagement
The project is the result of extensive public outreach, led by the City. The community has hosted
numerous public meetings gathering input on ways to improve pedestrian, bicycling, and transit
uses on the 16"' Street and Elm Street corridors. Local leaders, businesses, and residents attended
planning workshops and provided feedback on proposed transportation solutions. The City also
used social media, online surveys, postcard mailers, and utility billing newsletters to solicit
feedback and engage residents, as well as the City Life and City Expo programs that allow
residents to interact with City staff. These continents helped to shape the alternatives that RAISE
resources will help to study.
ii. State and Local Approvals
As this is a planning project, no state and local approvals are required at this time. The project is
consistent with local/ regional plans to maintain transportation facilities in a state of good repair.
iii. Federal Transportation Requirements Affecting State & Local Planning
Upon planning completion, the Dubuque Metropolitan Area Transportation Study's TIP and Iowa
DOT's STIP will be amended to include the 161h Street and Elm Street corridor improvements.
C. Assessment of Project Risks & Mitigation Strategies
Dubuque's RAISE project is both timely and low -risk. There are no issues in conducting the
proposed planning. Long-term, the project poses few construction barriers. Most of the
improvements are located within existing right-of-way. Only minor temporary and permanent
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easement acquisition is anticipated. Potential construction mitigation strategies might include:
• NEPA Delays: The City will consult with Iowa DOT, which administers NEPA reviews
on behalf of DOT for federal -aid projects. The project will likely receive a Categorical
Exclusion, pending SHPO documentation that historic resources will not be affected and
notice from the U.S. Fish and Wildlife Service confirming that no rare/endangered species
will be harmed.
• Cast Overruns: Contingency costs will be built into a future construction budget.
• Technical Capacity: Dubuque has an exemplary record of managing federal grants, having
received numerous DOT, HUD, EPA, and other federal grants over the years. Dubuque has
previously implemented DOT TIGER and INFRA projects on -time and on -budget. The
City has also successfully managed over $66 million of federal -aid transportation projects,
including right-of-way acquisition, railroad negotiation, and all aspects of scoping,
preliminary design, detailed design, construction, and inspection. Dubuque has
demonstrated its ability to hire professional firms and contractors, acquire property, and
otherwise advance infrastructure projects in compliance with federal and state laws through
various projects included on the TIP, be they bridge, highway, or road infrastructure
enhancement projects. The City employs five engineers experienced with administering
grant funds and managing federal -aid transportation projects. Key City staff to be involved
in administering this project are: City Engineer Gus Psihoyos, Assistant City Engineer Bob
Schiesl, Civil Engineer Jon Dienst, Land Surveyor Nate Kieffer, and Civil Engineer Nate
Steffen. The City's team is familiar with typical cost estimates for the major components
of the B2E2 project, including Complete Streets, the 14"' Street railroad overpass, and the
shared -use path to Chaplain Schmitt Island.
The B2E3 project will easily meet the deadline to obligate funds by September 30, 2026. Planning
is ready to commence upon project award. The proposed budget is based upon recent estimates
and previous experience with Complete Street projects.
As the project is planning -focused, there are no barriers to implementation. Construction of
planned improvements will also move expeditiously as the project area is primarily located in the
public right-of-way. Dubuque has evaluated whether any aspects of the natural, social, or
economic environment would be affected by the project. As the activities that comprise the project
are largely replacement in -kind of existing facilities, no impacts are anticipated.
VI, Results of Benefit -Cast Analysis
As a planning project, a BCA is not required. However, Dubuque expects significant economic,
safety, environmental, and quality of life benefits once construction is complete, including:
• Safety: 16'h Street and Elm Street are among Dubuque's most dangerous corridors. Traffic
calming improvements will help to save lives and property in the targeted neighborhoods.
• Travel delay: Dubuque households experience significant travel delay due to stopped trains
and congested streets. Travel time savings will benefit residents and area businesses.
■ Climate Impacts: A railroad overpass, Complete Streets, and shared -use paths will reduce
greenhouse gas emissions as a result of decreased idling and made switching.
• Redevelopment Opportunities: The project is expected to have a significant impact on
development. Coupled with Opportunity Zone designation in Census Tracts 1 and 5,
RAISE investment will help to spur economic activity.
301 Page
TO: DMATS Technical & Policy Boards
FROM: Chandra Ravada, Interim Executive Director,
ECIA
DATE: February 11, 2024
ECIA
SUBJECT: Request for Reprogramming and Allocation of Surface Transportation Block Grant
(STBG) Funding
INTRODUCTION
This memorandum outlines the City of Dubuque's request to reprogram and allocate Dubuque
Metropolitan Area Transportation Study (DMATS) Surface Transportation Block Grant (STBG)
funding. Specifically, the request pertains to the East-West Corridor project, the Cedar Cross
Road project, and fiscal years 2028 and 2029 STBG funding from DMATS to the City of
Dubuque RAISE project (14th Street/16th Street/Sycamore Street/Elm Street) and Northwest
Arterial/U.S. 20 Intersection Improvements.
BACKGROUND
The City of Dubuque previously identified the East-West Corridor and Cedar Cross Road
projects as top transportation priorities. The city submitted applications for Surface
Transportation Block Grant (STBG) funding to the Dubuque Metropolitan Area Transportation
Study (DMATS). In Fiscal Year (FFY) 2020, the city secured $7.9 million ($1.6 million for
preliminary design/environmental review, $6.3 million for construction) for the East-West
Corridor improvements, with an additional $3.2 million earmarked for Cedar Cross Road in FFY
2027. The East-West Corridor Improvements Project is part of the FFY 2024-2027
Transportation Improvement Program (TIP).
In 2023, DMATS identified two pressing issues. Firstly, the impending increase in train traffic
due to the merger of the Canadian Pacific and Kansas City Southern railroads. The merger is
projected to triple the number of trains passing daily through the metro area from 9 to 18 by
2027. This surge in train activity will lead to significant delays at rail crossings and will hinder
the efficient movement of people and goods, significantly impacting vulnerable neighborhoods
and key employment centers. The City of Dubuque secured $2.28 million in U.S. Department of
Transportation (DOT) Rebuilding America's Infrastructure with Sustainability and Equity
(RAISE) planning funds to address these challenges through the design and engineering of a
railroad overpass, complete street enhancements, and new shared -use paths in economically
distressed areas.
j Dubuque Metropolitan Area Transportation Study I Eastern Iowa Development Corps,
1 eastern Iowa Regional Utility Services System I Eastern Iowa Regional Housing Authority I ECIA Business urowti), Inc.
Region 1 Employment and Training I ECIA Regional Planning Affiliation I Region 8 Regional Transit Authority
1 7600 Commerce Park, Dubuque, IA 52002 1 www.ecio.org I ecia@ecia.org 1
563,556.4166 1 Iowa only: 800,942.4648 1 Relay Iowa 800.735.2943 1 f: 563.556.0348
The city is currently in the process of applying for a RAISE grant for the construction of the 14tn
Street overpass and related improvements. The project cost is estimated at $ $54,780,000 (not
including property acquisition), and the application deadline is set for the end of February 2024.
The city can receive a maximum of $25 million from the RAISE grant. The city will need to seek
other funding sources and phase some project elements.
Secondly, the Northwest Arterial and U.S. Highway 20 intersection has become a critical
bottleneck, handling 44,000 vehicles, including 2,500 trucks daily. Safety concerns were
underscored by 168 crashes recorded from 2019 to 2023. Responding to the escalating traffic
issues, the City of Dubuque collaborated with the Iowa DOT in the spring of 2021 to conduct a
study of the intersection. The new location study recommended a four -lane arterial alternative,
estimated to cost $17.5 million in 2022 dollars. The Iowa DOT District 6 office submitted the
project to headquarters for consideration in the State Fiscal Year 2025-2030 Five -Year
Program, with an expectation that one-third of the cost, $5.5 million, will be contributed by local
agencies.
DISCUSSION
The City of Dubuque is continuing to work on the Cedar Cross Road Project and the
preliminary design/environmental review of the East-West Corridor Improvements and
strategically planning the construction of the project in multiple phases, utilizing federal, state,
and local funds.
However, recognizing the urgency of the RAISE Grant Project and the Northwest Arterial and
US Highway 20 Intersection Project, the city recommends redirecting Dubuque Metropolitan
Area Transportation Study (DMATS) Surface Transportation Block Grant (STBG) funding to
address these pressing concerns.
The specific requests from the City of Dubuque to DMATS are as follows:
• Reprogram $6.37 million from the East-West Corridor Improvements to the RAISE Grant
Project.
• Program $3.28 million from the Cedar Cross Road project to the RAISE Grant Project.
• Program $1.59 million of Fiscal Year 2028 DMATS STBG funding to the RAISE Grant
Project.
• Program $2.4 million of Fiscal Year 2029 DMATS STBG funding to the Northwest
Arterial and U.S. Highway 20 Intersection Project.
The City of Dubuque has the following local funds programmed for East-West Corridor
Improvements and the RAISE grant.
• The city programmed $1,065,920 in city funds ($663,926 sales tax 30%, $367,384 in
RUTF, and $34,610 in downtown TIF funding) to support the East-West Corridor
improvements.
• The city of reprogramming $1,121,693 budgeted in 30% sales tax money for Cedar
Cross Road reprogrammed to the RAISE grant project.
• Based on Canadien Pacific's past comments, the city anticipates Canadien Pacific
contributing $ 1,000,000 to the 14th Street Overpass project.
RECOMMENDATION
The DMATS staff agrees with the City of Dubuque's request, recognizing that this reallocation of
funds will effectively address immediate needs within the DMATS region and will leverage tens
of millions of dollars of state and federal transportation investments.
ACTION TO BE TAKEN
The DMATS staff respectfully requests the DMATS Boards to concur with the City of
Dubuque's proposed reallocation and take necessary action to implement the recommended
changes.