2026 BUILD Capital Grant Application: East-West Corridor Capacity Improvements Project - Approve Grant Application SubmissionCity of Dubuque
City Council
ACTION ITEMS # 2.
Copyrighted
March 2, 2026
ITEM TITLE: 2026 BUILD Capital Grant Application: East-West Corridor
Capacity Improvements Project - Approve Grant Application
Submission
SUMMARY: City Manager recommending City Council adopt the attached
resolution retroactively approving the filing of the application
with the USDOT for a 2026 BUILD Capital Grant Application
to assist with funding for the proposed East-West Corridor
Capacity Improvements Project.
RESOLUTION Retroactively Authorizing The Filing Of A
Grant Application With The U.S. Department Of
Transportation (USDOT) For A Build Capital Grant To Assist
With Funding For The Proposed East-West Corridor Capacity
Improvements Project
SUGGUESTED Receive and File; Adopt Resolution(s)
DISPOSITION:
ATTACHMENTS:
1. MVM Memo 2026 BUILD Capital Grant Application E W Corridor Capacity
Improvement Project Grant Application Submission
2. BUILD Grant Application - EW Corridor Council Submit Approval - STAFF MEMO
3. BUILD Grant Application - EW Corridor Council Submit Approval - RETROACTIVE
APPROVE RESOLUTION
4. 2026 BUILD Grant Application - EW Corridor - FINAL 2-24-26
Page 619 of 939
Dubuque
THE CITY OF
uFA�a9a av
DuBE
13
Masterpiece on the Mississippi zoo�•*o
rP PP 2017202019
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: 2026 BUILD Capital Grant Application
East-West Corridor Capacity Improvements Project
Approve Grant Application Submission
DATE: February 26, 2026
City Engineer Gus Psihoyos and Assistant City Engineer Robert Schiesl are
recommending City Council adopt the attached resolution retroactively approving the
filing of the application with the USDOT for a 2026 BUILD Capital Grant Application to
assist with funding for the proposed East-West Corridor Capacity Improvements Project.
With the planning level cost estimate established, staff will work with Finance and
Budget Department staff to develop a proposed Capital Improvement Program (CIP)
budget for Fiscal Year 2027 through Fiscal Year 2030 to identify and program funding to
cover the $4.1 million in local match funding.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
Mic ael C. Van Milligen
►VA140►TAWA
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Gus Psihoyos, City Engineer
Robert Schiesl, Assistant City Engineer
Jenny Larson, Chief Financial Officer
Anderson Sainci, Director of Strategic Partnerships
Chandra Ravada, ECIA
Teri Goodmann, Hawks Goodmann and Associates
Andrew Seth, Sustainable Strategies DC
Page 620 of 939
THE CF
D�Uj__B E
Masterpiece on the Mississippi
TO: Michael C. Van Milligen, City Manager
FROM: Gus Psihoyos, City Engineer
Robert Schiesl, Assistant City Engineer
SUBJECT: 2026 BUILD Capital Grant Application
East-West Corridor Capacity Improvements Project
Approve Grant Application Submission
DATE: February 26, 2026
INTRODUCTION
Dubuque
AII•America Ciq
2007.2012-2013
2017*2019
The purpose of this memorandum is to provide the Mayor and City Council with
information and documentation in support of the attached retroactive authorization
resolution which provides the approval for the City of Dubuque to submit an application
to the U.S. Department of Transportation (USDOT) through the Better Utilizing
Investments to Leverage Development (BUILD) Grant Program to assist with funding for
the proposed East-West Corridor Capacity Improvements Project.
BACKGROUND
The US Highway 20 corridor is the primary east -west route in the City of Dubuque and
future traffic volume projections indicate US Highway 20 alone will not provide sufficient
capacity for east -west travel in the City. Capacity along alternate east -west corridors will
need to be improved to provide connectivity between the western growth areas and the
downtown urban core.
To advance this objective, the City completed the East-West Corridor Connectivity Study.
The purpose of the study was to analyze the east -west traffic flow in the City, identify
corridor improvements or modifications to support growing traffic demands, and to
consider transit needs, pedestrian needs, and sustainability. The four east -west corridors
identified in the study area were: Asbury Road; Pennsylvania Avenue; University Avenue;
and Loras Boulevard.
The adopted East - West Corridor Connectivity Study report has acted as the City's
Master Plan for both short-term and long-term capacity improvements or corridor
modifications to support growing east -west traffic flow in the City. The study included
recommended improvements supporting complete streets concepts, multi -modal
transportation, vehicle, pedestrian, bicycle, and recreational improvements.
The report included 32 proposed capacity improvement projects along the four corridors.
Capacity improvements identified include a series of intersection realignments,
intersection improvements, turn lane additions, add traffic signal interconnect and
Intelligent Transportation System (ITS) improvements along each corridor.
Page 621 of 939
In September 2025, the City Council listed
the East - West Corridor Capacity
Improvement Implementation as a "High
Priority" in its 2025 - 2027 Goals and
Priorities and directed City staff to begin
implementation plans for the
recommendations contained in the East-
West Corridor Connectivity Report.
In an effort to advance this top priority, the
City has already completed the following
improvements:
Project
Year
Cost
Property Acquisition
2016
$ 853,300
Asbury -University
Grandview - Delhi
2016
$ 827,000
Roundabout
Loras - Grandview
2017
$ 370,300
Traffic Signals
University - Grandview
2018
$1,200,000
Roundabout
Total Improvements To -Date
$3,250,300
Capacity East/West Corridor Ca
DuZ=n P Y Improvements w
�O=GAWP
Property Acquisition
i Com pleteo. 2016
I4 X
University. Loras: Asbury:
Pennsylvania Overlap Section
Proposed Roundabouts
Preliminary Design!
Environmental Study. 2020 "
�y ow/Loras
Traffic Signal Impproveve
ments
Completed: 2017
0010
dye
(cj
tr
Grandview ni I r5ty
Roundabout
Completed: 2018
G randv,..Melh,lGrace
Roundabout
Completed: 2016
4 40 ,
UNIVERSITY - OVERLAP SECTION IMPROVEMENTS
The section of University Avenue, from Pennsylvania Avenue to Delhi, referred to as the "Overlap
Section" was recommended for converting the four intersections along University Avenue to
roundabouts.
Page 622 of 939
BUILD CAPITAL GRANT
The 2026 BUILD Capital Grant application for the East-West Corridor Capacity
Improvements Project was submitted on February 24, 2026, which was the application
deadline.
The BUILD grant requested funding will support improvements to a 0.6-mile corridor along
University Avenue, from Pennsylvania Avenue to Delhi, and will include final design,
property acquisition, construction, and grant administration. The University "Overlap
Section" will be transformed into a Complete Street corridor with new roundabouts at
Pennsylvania Avenue, Asbury Road, Loras Boulevard, and Delhi; enhanced crosswalks
near the roundabouts; pedestrian and bike accommodations along the segment-, an
additional left -turn lane on Asbury Road (southbound); a westbound right -turn lane at the
intersection with Asbury Road; and realignment of Loras Boulevard and McCormick
Street to create a four -legged intersection. The proposed project will improve east -west
arterial connectivity, relieve traffic congestion on U.S. 20, reduce crashes, and spur
economic development.
BUILD CAPITAL GRANT - SCHEDULE
The project development schedule prepared and included in the BUILD grant application
is outlined in the following table.
PROJECT DEVELOPMENT
SCHEDULE
CY 2026 1 CY 2027 1 CY 2028 1 CY 2029 1 CY 2030 1 CY 2031 CY 2032
FY26 FY27 FY28 FY29 I FY30 FY31 FY32 FY33
Quarter
1 2 3 4
1 1 2 3 1 4
1 2 3 4
1 2 3 4
1 2 3 1 4
1 1 2 3 1 4
1 1 2 3 4
Preliminary Design
. PE Completed
Environmental 1 Historic Review
. Receive NEPA & Section 106 Approval
Grant Award Admin
. Funding Agreement
OBLIGATION DEADLINE SEPT 30, 2030
Final Design & Engineering
. Complete Set of Final Plans
Permitting
. Permits from Iowa DNR, Railroad
Procurement- Bidding
. Iowa DOT Bids Project
. Contracts Finalized
Construction
. Complete Streets - Roundabouts (4)
Project Closeout
RECOMMENDATION
I recommend that the City authorize the submission of an application to the USDOT for
the 2026 BUILD Capital Grant, retroactive to February 24, 2026, to assist with funding for
the proposed East-West Corridor Capacity Improvements Project.
BUDGETIMPACT
The planning level cost estimate for the corridor capacity improvements incorporated into
the BUILD grant application is summarized as follows:
Description
Amount
2026 BUILD Capital Grant Application Request
$ 18,500,000
Total Planning Cost Estimate
$ 18,500,000
Page 623 of 939
The cost estimate breakdown is summarized as follows:
PROJECT COSTS
ESTIMATE
Final Design and Construction Engineering
$ 1,800,000
Property Acquisition
5,800,000
Construction
8,700,000
Grant Construction Administration
600,000
Contingency
1,600,000
Total Project Cost
$ 18,500,000
The anticipated funding proposed in the BUILD grant application is summarized as
follows:
Funding Source
Percentage
Amount
BUILD Grant Program
77.8%
$ 14,400,000
Local Funds - City
22.8%
4,100,000
Project Funding
1 $ 18,500,000
With the planning level cost estimate established, staff will work with Finance and Budget
Department staff to develop a proposed Capital Improvement Program (CIP) budget for
Fiscal Year 2027 through Fiscal Year 2030 to identify and program funding to cover the
$4.1 million in local match funding.
ACTION TO BE TAKEN
I respectfully request Mayor and City Council adopt the attached resolution retroactively
approving the filing of the application with the USDOT for a 2026 BUILD Capital Grant
Application to assist with funding for the proposed East-West Corridor Capacity
Improvements Project.
Should the Mayor and City Council elect to decline submitting the BUILD Capital Grant
Application, the City can withdraw the application.
cc: Jenny Larson, Chief Financial Officer
Anderson Sainci, Director of Strategic Partnerships
Chandra Ravada, ECIA
Teri Goodmann, Hawks Goodmann and Associates
Andrew Seth, Sustainable Strategies DC
F:\PROJECTS\EAST-WEST CORRIDOR CAPACITY IMPROVEMENTS\BUILD Grant Application 2026\Council
Page 624 of 939
Prepared by: Robert Schiesl, Assistant City Engineer, City of Dubuoue 50 W. 13'" Street Dubuque IA 52001 (563) 589-4270
Return to: Adreinne N. Breitfelder, City Clerk, 50W 13`h Street, Dubuque, IA 52001 (563) 589-4100
RESOLUTION NO. 72-26
RETROACTIVELY AUTHORIZING THE FILING OF A GRANT APPLICATION WITH
THE U.S. DEPARTMENT OF TRANSPORTATION (USDOT) FOR A BUILD CAPITAL
GRANT TO ASSIST WITH FUNDING FOR THE PROPOSED EAST -WEST CORRIDOR
CAPACITY IMPROVEMENTS PROJECT
WHEREAS, the USDOT issued the Notice of Funding Opportunity (NOFO) for the
2026 Better Utilizing Investments to Leverage Development (BUILD) Grant Program; and
WHEREAS, the City Council listed the East-West Corridor Capacity Improvements
as a "High -Priority" in its 2025-2027 Goals and Priorities; and
WHEREAS, the City Council has directed City staff to begin implementation plans
for the recommendations contained in the East-West Corridor Connectivity Study; and
WHEREAS, the US Highway 20 corridor is the primary east -west route in the City
of Dubuque and future traffic volume projections indicate US Highway 20 alone will not
provide sufficient capacity for east -west travel in the City and alternate east -west corridors
will need to be improved to provide connectivity between the western growth areas and
the downtown urban core; and
WHEREAS, to advance this objective, the City completed the East-West Corridor
Connectivity Study which analyzed east -west traffic flow in the City, identify corridor
improvements or modifications to support growing traffic demands, and to consider transit
needs, pedestrian needs, and sustainability; and
WHEREAS, the four east -west corridors identified in the study area were: Asbury
Road; Pennsylvania Avenue; University Avenue; and Loras Boulevard, with the section
of University Avenue, from Pennsylvania Avenue to Delhi, referred to as the "Overlap
Section" as the priority segment to implement corridor improvements; and
WHEREAS, the BUILD grant application requested funding to support
improvements to a 0.6-mile corridor along University Avenue, from Pennsylvania Avenue
to Delhi, and will include final design, property acquisition, construction, and grant
administration; and
WHEREAS, the BUILD grant application requested funding to assist in the
transformation of the University "Overlap Section" into a Complete Street corridor with
new roundabouts at Pennsylvania Avenue, Asbury Road, Loras Boulevard, and Delhi;
enhanced crosswalks near the roundabouts; pedestrian and bike accommodations along
the segment; an additional left -turn lane on Asbury Road (southbound); a westbound
right -turn lane at the intersection with Asbury Road; and realignment of Loras Boulevard
and McCormick Street to create a four -legged intersection; and
WHEREAS, the proposed project will improve east -west corridor connectivity,
relieve traffic congestion on U.S. 20, reduce crashes, and spur economic development;
and
WHEREAS, the City of Dubuque is seeking the necessary BUILD grant funding
for project implementation, and upon completion, in cooperation with the USDOT, be
responsible for adequately maintaining and operating the East-West Corridor Capacity
Improvements for public use and benefit during the project's useful life; and
WHEREAS, the application submittal date established in the issued NOFO for the
BUILD Grant Program are set by the USDOT outside the control of the City; and
WHEREAS, the grant deadlines set by the USDOT do not always coincide with
the meetings of the City Council; and
WHEREAS, the City applied for the 2026 BUILD Capital Grant from USDOT with
an application deadline of February 24, 2026; and
WHEREAS, the City Manager signed the application and seeks retroactive
approval of the grant application from the City Council.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF DUBUQUE, IOWA:
SECTION 1. The City is hereby authorized to file the grant application with the U.S.
Department of Transportation for a 2026 BUILD Capital Grant to assist with funding for
the proposed East-West Corridor Capacity Improvements Project.
SECTION 2. The application to the U.S. Department of Transportation is approved
retroactive to February 24, 2026.
Passed, approved, and adopted this 2"d day of March 2026.
rad M nagh, Mayor
Attest:
Adreinne N. Breitfelder, City Clerk
View Burden Statement
OMB Number: 4040-0004
Expiration Date: 11/30/2025
Application for Federal Assistance SF-424
* 1. Type of Submission:
❑ Preapplication
❑X Application
❑ Changed/Corrected Application
2. Type of Application: * If Revision, select appropriate letter(s):
X❑ New
❑ Continuation ' Other (Specify):
❑ Revision
3. Date Received: 4. Applicant Identifier:
02/24/2026
5a. Federal Entity Identifier:
5b. Federal Award Identifier:
State Use Only:
6. Date Received by State:
7. State Application Identifier:
8. APPLICANT INFORMATION:
a. Legal Name: City of Dubuque
" b. Employer/Taxpayer Identification Number (EIN/TIN):
" c. UEI:
TLJMHPVMMUD3
426004596
d. Address:
`Street1: 50 West 13th Street
Street2:
• City: Dubuque
County/Parish:
• State: IA: Iowa V
Province:
`Country: USA: UNITED STATES V
• Zip / Postal Code: 52001-4805
e. Organizational Unit:
Department Name:
Division Name:
f. Name and contact information of person to be contacted on matters involving this application:
Prefix: Mr. . v ' First Name: Bob
Middle Name:
. Last Name: Schiesl
Suffix: V
Title: Assistant City Engineer
Organizational Affiliation:
Telephone Number: 563-589-4270 Fax Number:
*Email: bschiesl@cityofdubuque.org
Page 627 of 939
Application for Federal Assistance SF-424
* 9. Type of Applicant 1: Select Applicant Type:
C: City or Township Government
V�
Type of Applicant 2: Select Applicant Type:
1
�I
Type of Applicant 3: Select Applicant Type:
* Other (specify):
* 10. Name of Federal Agency:
U.S. Department of Transportation
11. Catalog of Federal Domestic Assistance Number:
CFDA Title:
* 12. Funding Opportunity Number:
DTOS59-26-RA-BUILD
* Title:
FY 2026 National Infrastructure Investments
13. Competition Identification Number:
Title:
14. Areas Affected by Project (Cities, Counties, States, etc.):
Add Attachment Delete Attachment View Attachment
* 15. Descriptive Title of Applicant's Project:
East-West Connectivity Project in Dubuque, IA
Attach supporting documents as specified in agency instructions.
Add Attachments Delete Attachments View Attachments
Page 628 of 939
Application for Federal Assistance SF-424
16. Congressional Districts Of:
* a. Applicant 1A-01 * b. Program/Project 1A-01
Attach an additional list of Program/Project Congressional Districts if needed.
Add Attachment Delete Attachment View Attachment
17. Proposed Project:
* a. Start Date: O1/O1/2027 * b. End Date: 03/31/2032
18. Estimated Funding ($):
* a. Federal 14, 400, 000.00
* b. Applicant 4,100,000.00
* c. State
* d. Local 0 . 00
* e. Other 0 . 0 0
*f. Program Income 0.00
*g.TOTAL 18,500,000.00
* 19. Is Application Subject to Review By State Under Executive Order 12372 Process?
❑ a. This application was made available to the State under the Executive Order 12372 Process for review on
❑ b. Program is subject to E.O. 12372 but has not been selected by the State for review.
❑X c. Program is not covered by E.O. 12372.
* 20. Is the Applicant Delinquent On Any Federal Debt? (If "Yes," provide explanation in attachment.)
❑ Yes ❑X No
If "Yes", provide explanation and attach
Add Attachment Delete Attachment View Attachment
21. *By signing this application, I certify (1) to the statements contained in the list of certifications** and (2) that the statements
herein are true, complete and accurate to the best of my knowledge. I also provide the required assurances** and agree to
comply with any resulting terms if I accept an award. I am aware that any false, fictitious, or fraudulent statements or claims may
subject me to criminal, civil, or administrative penalties. (U.S. Code, Title 18, Section 1001)
❑X ** I AGREE
** The list of certifications and assurances, or an internet site where you may obtain this list, is contained in the announcement or agency specific
instructions.
Authorized Representative:
Prefix: Mr. V * First Name: Michael
Middle Name:
"Last Name: Van Milligen
Suffix: V
`Title: City Manager
`Telephone Number: 563-589-4110 Fax Number:
`Email: CtyMgr@cityofduhuque.org
`Signature of Authorized Representative: ' Date Signed: 02/23/2026
/�4� k�4
Page 629 of 939
DISCLOSURE OF LOBBYING ACTIVITIES
Complete this form to disclose lobbying activities pursuant to 31 U.S.C.1352 OMB Number: 4040-0013
Expiration Date: 02/28/2025
Review Public Burden Disclosure Statement
1. * Type of Federal Action:
2. * Status of Federal Action:
3. * Report Type:
❑ a. contract
�X a. bid/offer/application
X� a. initial filing
�X b. grant
❑ b. initial award
❑ b. material change
c. cooperative agreement
❑ c. post -award
For Material Change Only:
d. loan
year Quarter
e. loan guarantee
Elf. loan insurance
date of last report
4. Name and Address of Reporting Entity:
Prime ❑ SubAwardee Tier if known: ❑
Name City of Dubuque
Street 1 50 West 13th Street Street 2
City Dubuque State IA: Iowa ® Zip 52001-9805
Congressional District, if known:
5. If Reporting Entity in No.4 is Subawardee, Enter Name and Address of Prime:
6. * Federal Department/Agency:
7. * Federal Program Name/Description:
U.S. Department of Transportation
CFDA Number, ifapplicable:
8. Federal Action Number, if known:
9. Award Amount, if known:
$
10. a. Name and Address of Lobbying Registrant:
Prefix Mr. V * First Name Andrew Middle Name
Last Name Seth Suffix
Street 1 200 Massachusetts Avenue, NW Street 2 Suite 380
*City Washington State DC: District of Columbia y Zip 20001-6351
b. Individual Performing Services (including address if different from No. 10a)
Prefix Mr v * First Name Andrew Middle Name
*Last Name Seth Suffix
Street 200 Massachusetts Avenue, NW Street Suite 360
*City Washington State DC: District of Columbia V Zip 20001-6351
11. Information requested through this form is authorized by title 31 U.S.C. section 1352. This disclosure of lobbying activities is a material representation of fact upon which
reliance was placed by the tier above when the transaction was made or entered into. This disclosure is required pursuant to 31 U.S.C. 1352. This information will be reported to
the Congress semi-annually and will be available for public inspection. Any person who fails to file the required disclosure shall be subject to a civil penalty of not less than
$10,000 an not more than $100,000 for each such
ssuuc`h failure.
* Signature:
*Name: Prefix Mr. V *First Name Michael Middle Name
* Last Name Van Mi-igen Suffix
Title: City Manager Telephone No.: 563-589-4110 Date: 02/23/2026
Authorized for Local Reproduction
Federal Use Only: Standard Form - LLL(Rev. 7-97)
Page 630 of 939
PROJECT DESCRIPTION
Description of the Project to be Constructed — The City of Dubuque, Iowa, seeks $14.1 million
in BUILD funding to support the East-West Connectivity Project, including the construction of a
Complete Street boulevard along University Avenue with roundabout conversions, improved
pedestrian and bicycle accommodations, turn lane additions, roadway realignments, and cross-
section modifications.
The high -traffic University Avenue primarily serves commercial development with some
residential properties located west of Asbury Road and east of Loras Boulevard. Users include
commuters, college students, and visitors. The University of Dubuque is located in the southeast
corner of the intersection of University Avenue with Loras Boulevard. Students attending Clarke
University and Loras College also travel the corridor. DOT assistance will help the City implement
infrastructure upgrades that accommodate motorists, pedestrians, bicyclists, and users of all ages
and abilities. Within the project limits, University Avenue serves as an overlap east -west
connection, with multiple arterial/collector roadways (University Avenue, Pennsylvania Avenue,
Asbury Road, Loras Boulevard, and Delhi Street) combining in this area. The proposed
improvements will help improve east -west connectivity in the community, relieve congestion,
reduce the risk of fatal and serious injury crashes, and ensure the corridor operates safely and
efficiently as traffic volumes increase.
Specifically, BUILD funding will support final design,
construction, and construction inspection of a variable- _ i.r
lane urban boulevard along University Avenue from
Pennsylvania Avenue to Delhi Street in Dubuque. The
majority of the corridor will have two through lanes,
but there is a small overlap section, as noted above, that
will have four total lanes, two in each direction. This
0.6-mile east -west arterial corridor will be transformed Figure 1. Complete Street improvements on
into a Complete Street with new roundabouts at University Avenue will enhance safety for
Pennsylvania Avenue, Asbury Road, and Loras commuters, college students, and visitors.
Boulevard; enhanced crosswalks near the roundabouts;
pedestrian and bike accommodations along the
segment; an additional left -turn lane on Asbury Road (southbound); a westbound right -turn lane
at the intersection with Asbury Road; and realignment of Loras Boulevard and McCormick Street
to create a four -legged intersection.
The proposed project will improve east -west arterial connectivity in Dubuque, relieve traffic
congestion on U.S. 20, reduce crashes, and spur economic development. The benefit/cost ratio for
the project is 1.1.
Scope of Work — With consultant support from HDR and MSA, the City is currently completing
the preliminary engineering design and environmental clearance phase of the project. BUILD
capital resources will fund:
1. Project Launch
• Execute BUILD Agreement: A funding agreement will be established among the City, Iowa
DOT, and FHWA.
• TIP/STIP: Dubuque will work with the East Central Intergovernmental Association and Iowa
DOT to add the East-West Connectivity Project to the TIP and STIP, respectively.
1 1 P a g e
Page 631 of 939
2. Community Engagement
• Outreach: Dubuque will continue to engage with the community through public meetings,
social media, the City web site, newsletters, and other outreach tools.
3. Environmental/Historic Review
• Clearance: Receive NEPA and Section 106 approval.
4. Planning
• Final Design: After preliminary engineering design, the team will:
■ Complete set of plans, specifications, and estimate for construction.
■ Finalize permit package.
■ Finalize Project Management Plan with Iowa DOT approval.
5. Acquisition
• Property Acquisition: Property acquisition along University Avenue.
• Easements: Secure temporary and permanent easements, if needed.
6. Permitting
• Permits: Secure necessary permits from Iowa DOT and IDNR.
7. Procurement
• Bid: Prepare solicitation and competitively bid the project through Iowa DOT.
• Contract: Select the contractor and confirm the overall construction team.
8. Construction and Construction Inspection
• Construction:
■ Convert University Avenue intersections with Pennsylvania Avenue, Asbury Road, Loras
Boulevard, and Delhi Street into roundabouts.
■ Enhance crosswalks near the Pennsylvania Avenue, Asbury Road, Loras Boulevard, and
Delhi Street roundabouts on University Avenue.
■ Install continuous sidewalks and dedicated bike lanes along University Avenue.
■ Construct an additional left -turn lane on Asbury Road (southbound).
■ Construct a westbound right -turn lane at the University Avenue/Asbury Road intersection.
■ Construct an exclusive northbound left -turn lane on McCormick Street where it intersects
with University Avenue.
■ Realign Loras Boulevard and McCormick Street to create a four -legged intersection.
■ Install curb and gutter, lighting, pedestrian signals, green infrastructure, and other
streetscape features.
■ Integrate innovative technologies, including LiDAR-based pedestrian and bike detection,
dynamic driver notification, V2N/V2X-ready integration, and near -miss analytics and
performance monitoring.
• Construction Inspection:
■ Conduct construction inspection to ensure conformance with plans and specifications.
9. Closeout
• End: Submit final report, final reimbursement request, record drawings, and financial
summary report.
Current Design Level — Dubuque contracted with HDR to conduct preliminary engineering design
for the project. This work is anticipated to be completed by the end of 2026. The City has
conducted extensive public engagement to determine the preferred alternative. NEPA review will
soon be initiated with Iowa DOT. An Environmental Assessment (EA) with a Finding of No
Significant Impact (FONSI) for the project is expected by early 2027.
2 1 P a g e
Page 632 of 939
Description of the Project Location — Located on the banks of the Mississippi River, Dubuque is
Iowa's oldest city. Manufacturing reigned in the community until the mid- 1900s. 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.
The East-West Connectivity Project includes improvements on University Avenue, from
Pennsylvania Avenue (western terminus 42.498703,-90.698721) to Delhi Street (eastern terminus
42.497431,-90.689258). University Avenue runs parallel to U.S. 20, a major federal highway that
carries through -traffic across Dubuque. Future traffic projections indicate that U.S. 20 alone will
not provide sufficient capacity for east -west travel in the community. Capacity along alternate east -
west corridors like University Avenue need to be improved to provide connectivity between the
western growth areas and the downtown.
Dubuque is located within an Urbanized Area (UA Code 24823) with a population under 200,000.
All construction activities will occur in Census Tract 9. Roadway improvements will provide
access to employment opportunities in Census Tracts 1, 3, and 5, identified as Areas of Persistent
Poverty and Historically Disadvantaged Communities. The project will also enable low-income
residents in Census Tracts 7.01 and 7.02 (also Areas of Persistent Poverty and Historically
Disadvantaged Communities) to travel west to educational (University of Dubuque), shopping
(Hobby Lobby, Target, Lowe's, Kennedy Mall), recreational (Flora Park), and health care (Statera
Integrated Health and Wellness Solutions) destinations.
Map
Figure 2. Project area map.
3 1 P a g e
Page 633 of 939
Project Typical Sections
F
Figure 3. Before and after typical sections of proposed University Avenue improvements.
Transportation Challenges Project Will Solve —University Avenue is an east -west arterial corridor
in Dubuque with heavy vehicular traffic. HDR completed the East-West Corridor Connectivity
Study in 2010 to determine the impact of growth on travel across the community. Congestion,
bottlenecks, and the lack of bike infrastructure make University Avenue a significant barrier
between Dubuque neighborhoods to the west and the downtown to the east. Key transportation
challenges for residents, college students, and visitors include:
• High Traffic Volume — Year 2022 AADT at the most congested location along the University
Avenue corridor (between Asbury Road and Loras Boulevard) was 20,900 (10,450 vehicles
traveling in each direction). By year 2050, AADT is expected to increase to 22,000 vehicles
(11,000 traveling in each direction).1 Key issues associated with higher traffic volumes
include congestion, infrastructure wear and tear, increased air pollution, and safety hazards.
• Con esg tion — University Avenue is experiencing growing congestion as traffic volumes rise
along this key corridor. During peak periods, heavier through -traffic mixes with frequent
turning movements, creating recurring bottlenecks at signalized and unsignalized
intersections. A major contributor is the lack of dedicated turn lanes: left -turning vehicles
often must wait in the same lane as through -traffic, causing queues to spill back and disrupt
progression. Right turns can create similar friction where vehicles decelerate to turn without
a separate lane, increasing delay. These conditions not only lengthen travel times and make
access less predictable for drivers, but also heighten the potential for rear -end conflicts.
• Poor Connectivity — Dubuque's main east -west route for regional traffic is U.S. 20. As the
community has grown, more drivers are diverting to secondary roads like University Avenue.
The current design struggles with high traffic volumes, leading to delays and inconsistent flow
due to its multiple signalized intersections and confusing geometry. The East-West Corridor
Connectivity Study identified the proposed University Avenue improvements as essential to
transforming it into an effective connector. Without these upgrades — including roundabouts,
improved intersections, and additional turn lanes — the roadway will not function efficiently
as an alternative east -west route.
• Hazardous Intersections — Several intersections along University Avenue present safety
concerns due to their geometry and alignment. In particular, the intersection with McCormick
Street and Loras Boulevard is poorly aligned, creating an offset condition that can confuse
drivers and complicate turning movements. This misalignment reduces sight clarity and
increases the likelihood of unexpected vehicle paths, especially for motorists attempting left
turns or crossing traffic. These hazardous conditions are amplified during periods of higher
1 Local traffic data
4 1 P a g e
Page 634 of 939
traffic volume, when drivers have less time to react and gaps in traffic are harder to judge.
Improving alignment and intersection design in this segment would help reduce confusion,
enhance safety, and support more efficient traffic operations.
• Crashes — University Avenue is prioritized in the East Central Iowa Transportation Safety
Plan for reducing crashes. According to 2018-2022 Potential for Crash Reduction (PCR)
screening data, the corridor's intersections with McCormick Street and Delhi Street have a
high PCR rating. This indicates that these intersections are performing less safe than expected,
relative to similar intersections in Iowa, and have a high potential for improved safety by
making improvements. The McCormick Street and Delhi Street intersections are rated in the
top 1 % statewide for PCR in their intersection crash categories. From 2021 through 2025
(five-year period), there were 26 crashes at the undivided, low -speed, partial -stop control
McCormick Street intersection, including 8 injury crashes. During this same period, there
were 11 crashes at the undivided, low -speed, partial -stop control Delhi Street intersection,
including 3 injury crashes (I serious crash).
• Unsafe Pedestrian Environment — Pedestrian conditions along University Avenue are
particularly challenging due to the combination of high traffic volumes and frequent student
activity. As a major corridor near University of Dubuque, Clarke University, and Loras
College, the roadway experiences regular pedestrian crossings throughout the day as students
travel between campus buildings, housing, and nearby services. However, the heavy flow of
vehicles and limited opportunities for safe crossing can create uncomfortable and sometimes
risky situations, especially during peak travel periods. Drivers may be focused on navigating
congestion and turning movements, while pedestrians must judge gaps in fast-moving traffic,
increasing the potential for conflicts. These challenges highlight the need for improved
pedestrian infrastructure and safer crossing treatments.
• No Bike Opportunities —There are no bike lanes along University Avenue in the project area.
Travel by bicycle is not safe without separated, protected infrastructure.
Project's History — Dubuque's East-West Connectivity Project grew out of the City's recognition
that U.S. 20 would not provide sufficient future capacity and alternate east -west corridors were
necessary to better connect western growth areas with downtown. The East-West Corridor
Connectivity Study was completed in 2010, which reviewed travel -time and corridor performance
data, including traffic counts, intersection turning movements, and reviews of existing signal
timings, while also considering what happens when drivers divert off U.S. 20 onto parallel routes.
Based on that work, the City advanced a set of preliminary concepts focused on the University
Avenue corridor. HDR was contracted in 2021 to help develop preliminary designs for four
roundabouts and other capacity improvements. Dubuque has hosted numerous public information
opportunities to gather feedback on these plans. The preliminary engineering design and
environmental clearance stage will be completed by early 2027.
How Project Fits in Applicant's Broader Transportation Infrastructure Investments — Complete
Street reconstruction on University Avenue supports Dubuque's efforts to enhance multimodal
connections. Implementation of the East-West Corridor Connectivity Study began in 2016 with
property acquisition at the University Avenue/Asbury Road intersection. In the same year, the City
constructed a roundabout at the Grandview Avenue/Delhi Street intersection to enhance east -west
travel. This was followed by another roundabout at the University Avenue/Grandview Avenue
intersection in 2018. Furthermore, Dubuque is currently constructing a railroad overpass at 141h
Street, funded by a 2024 RAISE grant. That overpass will help to connect neighborhoods,
employment areas, and the street network, including the University Avenue corridor.
5 1 P a g e
Page 635 of 939
PROJECT BUDGET
Dubuque seeks $14,400,000 in BUILD grant funding to support the University Avenue Complete
Street project. The total project cost is $18,500,000.
Table 1. Funding Sources
Funding Source
Total Funding
$14,400,000
BUILD Funds
77.8%
$0
Other Federal Funds
0%
$4,100,000
Non -Federal Funds
22.2%
$18,500,000
Total Project Cost
100 /o
Table 2. Cost Classifications
Cost Classification
BUILD
Other
Non -Federal
Total
Funds
Federal Funds
Funds
Project Cost
Final Design
$1,280,000
$0
$320,000
$1,600,000
8.6
Property Acquisition
$4,160,000
$0
$1,040,000
$5,200 000
28.1
Construction
$6,160,000
$0
$1,540,000
$7,700,000
41.6%
Grant & Construction
$0
$0
$500,000
$500,000
Administration
2.7%
Contingency
$1,200,000
$0
$300,000
$1,500,000
8.1
Inflation to Midpoint of
$1,600,000
$0
$400,000
$2,000,000
Construction 2030 at 3%/Year
10.8%
Total Funding
$14,400,000
$0
$4100,000
$18,500,000
100%
All project activities will be conducted in Census Tract 9.
Table 3. Census Tract Budget Breakdown
2020 Census Tracts
Project Costs per Census Tract
9
$18,500,000 100%
Total Project Cost: $18,500,000
Dubuque is located within an Urbanized Area (UA Code 24823) with a population under 200,000.
All BUILD -supported activities are defined as rural.
Table 4. Urban/Rural Budget Breakdown
Urban and Rural
Project Costs
Urban (2020 Census -designated urban area with a population
$0
greater than 200,000
Rural (Located outside of a 2020 Census -designated urban area
$18,500,000
with a population greater than 200,000
Total Project Cost: $18,500,000
1 1 P a g e
Page 636 of 939
Sources, Uses & Availability — BUILD grant funding will support:
Table 5. Detailed Budget
Budget
Cost
BUILD Request
Other
Non -Federal
Matching
Description
Federal
Match
Source
Support
Final Design
$1,600,000
$1,280,000
$0
$320,°000
City of Dubuque
8.6/0
8.9%
0%
7.8%
Property
$5,200,000
$4,160,000
$0
$1,040,000
City of Dubuque
Acquisition
28.1 %
28.9%
0%
25.4%
Construction
$7,700 000
$6,160 000
$0
$1,540 000
City of Dubuque
41.6/0
42.8/0
0/0
37.6%
Grant &
Construction
$500,000
$0
$0
$500,000
City of Dubuque
Administration
(2.7%)
(0%)
(0%)
(12.2%)
Contingency/
$1,500,000
$1,200,000
$0
$300,000
City of Dubuque
Risk
8.1 %
8.3 %
0 /0
7.3°
Inflation to
Midpoint of
$2 000,000
$1 600,000
$0
$400,000
Construction
(10.8%)
(11.1 %)
(0%)
(g 8%)
City of Dubuque
(2030) at
3%/Year
TOTAL
$18,500,000
$14,400,000
$0
$4,100,000
100%
100%
0%
100%
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.
Contingency Amount & Plan — The budget includes a contingency of $1,500,000. There should
be sufficient funds to cover all project costs. If there are unanticipated cost overruns, the City is
prepared to cover additional expenses.
Level of Design — Dubuque began preliminary design in 2022 to develop a Complete Street
concept for University Avenue. The City has conducted extensive public engagement to identify
a preferred alternative. Preliminary engineering is underway and will be completed by September
2026. The cost estimate is based on a 50% degree of design completion.
Cost Estimate — The cost estimate was prepared by HDR in February 2026. This work was
completed with BUILD planning funds and is based on industry standards and experience with
similar projects.
Cost Share — As a rural community, no BUILD match is required. However, Dubuque will provide
a match commitment of $4.1 million (22.2%) to the project.
2 1 P a g e
Page 637 of 939
Dubuque
THE CITY OF
All-AmericaCity
NAl10NAL C7VI(: LIl1dll'
UB E 'I 1'
2007*2012*2013
Masterpiece on the Mississippi 2017*2019
February 23, 2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Match Commitment
Dear Secretary Duffy:
City Manager's Office
City Hall
50 West 13th Street
Dubuque,1A 52001-4845
Office (563) 589-4110
Fax (563) 589-4149
TTY (563) 690-6678
ctymgr@cityofdubuque.org
www.cityofdubuque.org
This letter confirms the match commitment for the U.S. Department of Transportation's
Better Utilizing Investments to Leverage Development (BUILD) grant. The City of
Dubuque will provide $4.1 million in non-federal funds to match a $14.4 million BUILD
award.
Sincerely,
k�4
Michael C. Van illigen
City Manager
Service People Integrity Responsibility Innovation Teamwork
Page 638 of 939
MERIT CRITERIA
Between Pennsylvania Avenue and Delhi Street, University Avenue is 0.6-mile east -west arterial
that provides connectivity between Dubuque's western growth areas and the downtown. The
corridor limits east -west connectivity due to heavy traffic, crashes, and limited multimodal
facilities. BUILD funding will support the construction of a Complete Street boulevard along the
corridor. Improvements will include converting intersections into roundabouts, enhancing
accommodations for pedestrians and cyclists, and realigning roadways.
I. SAFETY
Prevents Fatalities & Serious Injuries — Improving safety
for all users is a key goal of Dubuque's proposed BUILD
project. There are currently several points of conflict
between users in the public realm on University Avenue:
• High Traffic: Year 2022 AADT at the most congested
location along the University Avenue corridor (between
Asbury Road and Loras Boulevard) was 20,900 (10,450
vehicles traveling in each direction). By year 2050,
AADT is expected to increase to 22,000 vehicles (11,000 PFigurel.vy traffic on University
traveling in each direction).' Avenue threatens the safety of
• Risky Intersections: The corridor includes four major commuters, students, and visitors.
intersections (Pennsylvania Avenue, Asbury Road, Loras
Boulevard/McCormick Street, and Delhi Street) that combine high traffic volumes, complex
geometry, and heavy pedestrian activity without designs that safely manage those conflicts.
• Few Turning Lanes: As traffic volumes have grown, so have turning conflicts. The corridor
lacks dedicated turning lanes, so left- and right -turning vehicles often block through traffic,
causing backups and sudden stops — prime conditions for rear -end and angle crashes.
• Poor Geometry: Loras Boulevard/McCormick Street is a misaligned intersection on University
Avenue, causing confusion for drivers and complicating left turns and crossings due to irregular
approaches that reduce visibility. The University Avenue alignment with Asbury Road also
shifts on the west leg of the intersection, with long pedestrian crossings.
• Crashes: From 2021 through 2025, there were 26 crashes at the undivided, low -speed, partial -
stop control McCormick Street intersection, including 8 injury crashes. During this same
period, there were 11 crashes at the undivided, low -speed, partial -stop control Delhi Street
intersection, including 3 injury crashes (1 serious crash).Z The McCormick Street and Delhi
Street intersections are also rated in the top 1 % statewide for PCR in their intersection crash
categories. 3
• Unsafe Pedestrian Environment: The targeted section of University Avenue directly serves the
University of Dubuque, leading to frequent pedestrian crossings. Students often navigate heavy
traffic with few crossing options, resulting in uncomfortable conditions.
• No Bike Lanes: There are no bike facilities along University Avenue in the project area. While
cyclists still travel the corridor, it is unsafe without separated infrastructure.
Complete Street solutions that will help to prevent fatalities and serious injuries include:
• Roundabouts: Dubuque will convert the Pennsylvania Avenue, Asbury Road, Loras
' Local traffic data
2 Ibid.
'Iowa DOT PCR
1 'Page
Page 639 of 939
Boulevard/McCormick Street, and Delhi Street intersections on University Avenue to
roundabouts. The geometric features of a roundabout force drivers to slow down, eliminating
right-angle, left -turn, and head-on collisions. FHWA indicates that converting conventional
intersections to roundabouts reduces fatal crashes by —90%. These safety countermeasures
reduce injury crashes by —75% at intersections where stop signs or signals previously
controlled traffic, according to the Insurance Institute for Highway Safety. Additionally,
roundabouts enhance pedestrian safety by allowing crossings in one direction at a time, with
shorter distances and lower traffic speeds.
• Realignment: The intersection with Loras Boulevard and McCormick Street will be realigned
into a roundabout to improve safety. This realignment will enhance sightlines, reduce driver
confusion, and create clearer paths for vehicles, pedestrians, and cyclists. These changes aim
to decrease conflict points, lowering the likelihood of severe crashes while ensuring that any
accidents occur at lower speeds, resulting in less severe outcomes.
• Continuous Sidewalks: Sidewalks along University Avenue will offer pedestrians a safe,
dedicated space away from vehicle traffic, decreasing the risk of conflicts. Continuous
sidewalks will enhance visibility and driver awareness, guiding pedestrians to safer crossing
points. This design will lower exposure to high-speed traffic, significantly reducing the chances
of fatal or serious injuries in pedestrian crashes.
• Bike Lanes: Separated bike lanes along University Avenue will protect cyclists from vehicular
traffic. Bike lanes make cyclists more visible and expected to drivers, lowering the risk of high -
severity crashes such as sideswipes and turning conflicts at intersections and driveways. This
safety countermeasure will significantly reduce the likelihood of a crash.
• Enhanced Crosswalks: High -visibility markings, shorter crossing distances, better lighting, and
refuge areas will help slow vehicles and improve pedestrian safety at crosswalks. By reducing
speeds and clarifying pedestrian priority, these enhancements will lower the risk of crashes and
lessen injury severity if they occur. In addition, the crossings at multilane roundabouts will
incorporate rectangular rapid flashing beacons (RRFB), which are user -activated and provide
enhanced pedestrian safety.
According to the BCA, the project will result in $6.4 million of discounted avoided accident costs
and $1.0 million of discounted avoided active transportation accident costs over a 20-year period.
Protects Motorized & Non -motorized Travelers from Safety Risks — A Complete Street on
University Avenue will protect motorists by organizing traffic movements, reducing conflict
points, and lowering vehicle speeds, particularly where serious crashes may occur. Four
roundabouts will replace high-speed, stop -and -go intersections at Pennsylvania Avenue, Asbury
Road, Loras Boulevard/McCormick Street, and Delhi Street, promoting continuous, low -speed
circulation and eliminating severe right-angle and head-on crashes. Roadway realignment and a
roundabout intersection at Loras Boulevard/McCormick Street will improve sightlines and clarity
for drivers. Enhanced crosswalks and clearer intersection layouts will further reduce unexpected
interactions between vehicles, pedestrians, and cyclists, particularly with students new to the
University of Dubuque, Clarke University, and Loras College campuses. Together, these
improvements will create a more predictable driving environment, reducing the likelihood that
crashes occur and that they result in fatal or serious injuries.
For non -motorized travelers, the Complete Street will provide connected facilities that greatly
reduce exposure to fast-moving traffic. Enhanced crosswalks will shorten crossing distances,
improve visibility, and slow vehicles at key pedestrian conflict points. Dedicated bike lanes will
provide clear separation between cyclists and vehicles, reducing dangerous overtaking and turning
2 1 P a g e
Page 640 of 939
conflicts and making bike movements more predictable to drivers. Combined with lower speeds
created by roundabouts, these features will create a safer, more accessible corridor for pedestrians
and cyclists, dramatically reducing the risk of fatal and serious injuries.
Reduces Fatalities & Serious Injuries in ProjectArea Below Statewide Average — Between 2018-
2022, the University Avenue corridor's intersections with McCormick Street and Delhi Street have
high PCR ratings, indicating lower safety compared to similar Iowa intersections and a strong
potential for safety improvements. The McCormick Street and Delhi Street intersections are rated
in the top 1% statewide for PCR in their intersection crash categories. From 2021 through 2025,
there were 26 crashes at the undivided, low -speed, partial -stop control McCormick Street
intersection, including 8 injury crashes. During this same period, there were 11 crashes at the
undivided, low -speed, partial -stop control Delhi Street intersection, including 3 injury crashes (I
serious crash).
To address these elevated risks, the project will introduce ';�
roundabouts to lower vehicle speeds and eliminate high-
severity conflict points such as right-angle and head-on
collisions, resulting in fewer and less severe crashes r
er► ,
overall. Roundabouts will feature multiple lanes to sf� separate turning vehicles from through traffic,
minimizing sudden braking, reducing rear -end and angle
collisions, and making traffic movements more Figure 2. Roundabouts will reduce speeds
predictable. Multimodal accommodations will protect and crashes on University Avenue.
non -motorized travelers from vehicle traffic, improving
visibility and predictability, and reducing conflict points at crossings and intersections.
Furthermore, enhanced crosswalks will reduce safety risks by increasing pedestrian visibility,
slowing approaching vehicles, and providing clearer, more controlled crossing points. Together,
these upgrades will mitigate the primary causes of crashes along University Boulevard and support
Dubuque's goal of bringing intersection collision rates below the statewide average.
Incorporates Specific Safety Improvements of Documented Safety Risk Strategy — The East
Central Iowa Transportation Safety Plan, funded by a DOT Safe Street and Roads for All grant,
identifies segments of University Avenue (including the project area) as high -crash, high -injury.
The plan recommends the following safety countermeasures to reduce transportation conflicts:
• Roundabouts • Crosswalks
• Geometry Improvements • Bike/Pedestrian Facilities
The proposed University Avenue improvements align closely with the East Central Iowa
Transportation Safety Plan by advancing a Safe System Approach to reduce fatalities and serious
injuries through evidence -based roadway design. The project targets a priority corridor identified
in regional crash analyses and applies proven countermeasures that directly address the plan's key
emphasis areas of intersections, local roads, speed management, and vulnerable road users.
II. ENVIRONMENTAL SUSTAINABILITY
Makes Basic Stormwater Improvements — The University Avenue plan incorporates stormwater
management improvements as an integral component of the Complete Street reconstruction. As
the corridor is rebuilt with new pavement, realigned intersections, and expanded pedestrian and
bicycle facilities, the project will upgrade stormwater drainage infrastructure to accommodate the
revised roadway cross-section and improve system performance. These improvements will
enhance the corridor's resilience by reducing ponding and localized flooding, protecting the
roadway and adjacent properties, and ensuring long-term functionality of the transportation
3 1 P a g e
Page 641 of 939
investment under increasing precipitation and extreme
weather conditions.
A key drainage improvement is installing curbing along the
reconstructed roadway to direct stormwater runoff into
designated inlets, preventing uncontrolled flow and erosion.
By defining drainage paths, this will enhance collection
efficiency and manage peak runoff during heavy rains.
Traditional drainage infrastructure will be paired with green Figure 3. Green infrastructure along
features. Landscaped medians and planting strips will University Avenue will improve the
corridor's drainage.
function as bioretention areas to improve stormwater control.
Improves Resilience of At -risk Infrastructure — Since 2000,
Dubuque has experienced eight FEMA Major Disaster Declarations, primarily due to flash
flooding from heavy rainstorms. The City will improve the resilience of at -risk infrastructure by
fully reconstructing the corridor with modern roadway and drainage curb systems designed to
withstand more frequent and intense storms. Upgraded stormwater infrastructure will manage
runoff more effectively, reducing flood -related damage that can compromise pavement, utilities,
and adjacent properties. By correcting roadway geometry and improving drainage flow paths, the
project will reduce vulnerability to weather -related deterioration and extend the service life of a
critical transportation asset.
In addition, the project will enhance system -wide resilience by ensuring University Avenue
remains a reliable east -west route during and after emergencies. Improved roadway design, safer
intersections, and continuous pedestrian and bicycle facilities will help maintain access for first
response units, transit, and daily travel when conditions are disrupted elsewhere in the network.
Together, these improvements will strengthen Dubuque's transportation system by reducing failure
risks, improving recovery time after severe events, and supporting long-term adaptability.
Aligns with Resilience Improvement Plan — The proposed improvements on University Avenue
align directly with Dubuque's 2024 Stormwater Climate Action Plan by addressing the impacts of
increased rainfall intensity, localized flooding, and infrastructure vulnerability through integrated
roadway and stormwater design. The plan identifies the need to redesign infrastructure to withstand
more intense, shorter -duration storm events and to improve stormwater conveyance along major
corridors to prevent roadway flooding and service disruptions. By reconstructing University
Avenue as a Complete Street with upgraded drainage systems and improved runoff control, the
project will advance local adaptation strategies to reduce flood risk, protect critical transportation
assets, and extend infrastructure service life under changing climate conditions.
The University Avenue project will consider risk across transportation modes, regional
connectivity, and interdependent systems, consistent with the Climate Action Plan's emphasis on
coordinated infrastructure planning. University Avenue serves as a key east -west corridor and an
alternative to U.S. 20, supporting emergency response, freight access, transit, and daily travel for
motorists, pedestrians, and cyclists. By improving safety, stormwater management, and access
during extreme weather events, the project will strengthen network redundancy and minimize
failures between transportation, emergency services, and economic activity. This multimodal
approach reflects the plan's goal of building a resilient transportation system that supports
community mobility, public safety, and economic stability during climate -related disruptions.
Incorporates Green Infrastructure — The project incorporates green infrastructure in its design.
Landscaped medians and planting strips will be installed along the corridor not only to calm traffic
4 1 P a g e
Page 642 of 939
but also to manage stormwater naturally through sustainable stormwater capture, reducing runoff
and filtering pollutants before they reach the Mississippi River. By integrating green infrastructure
features into the roadway design, the project will help prevent contaminants such as oil, grease,
and heavy metals from entering local waterways while also supporting more climate -resilient
infrastructure.
Reduces Transportation Related Air Pollution & Greenhouse Gas Emissions — The
transportation sector is a major contributor of air pollution in Dubuque. Making University Avenue
safer and more accessible for walking and biking will decrease vehicle miles traveled (VMT).
III. QUALITY OF LIFE
Reduces Transportation & Housing Cost Burdens — According to the Center for Neighborhood
Technology, Dubuque residents spend 39% of their income on housing and transportation
expenses.4 This financial burden is particularly acute in Census Tract 9, with low per capita income
($33,006, compared to $44,673 across the country).'
University Avenue provides a diverse range of housing options, including:
• Multi -family housing, including apartment buildings and converted multi -unit structures that
serve students, renters, and lower- to moderate -income households.
• Student housing, including university -owned residence halls.
• Single-family and duplex homes west of Asbury Road and on side streets.
• Affordable and supportive housing, relying on walking, biking, and transit for daily travel.
Complete Street infrastructure will help reduce transportation and housing burdens by providing a
cost-effective alternative to owning and maintaining a vehicle. Project enhancements will include
pedestrian and bike accommodations, improved roadway crossings, and reliable public transit
access. By making these improvements, residents (including college students) will find it easier to
access jobs, education, and essential services without relying on an automobile.
Coordinates/Integrates Land Use, Affordable Housing & Transportation Planning — A
Complete Street on University Avenue will coordinate and integrate land use, affordable housing,
and transportation planning by aligning roadway design with the corridor's existing mix of higher -
density housing, student residences, and neighborhood -serving development. By improving
walkability, bike access, transit reliability, and safe crossings, the project will support mixed -use
land patterns and make existing housing — particularly multi -family and affordable units in the area
— more accessible to jobs, education, health care, and daily services without reliance on a personal
vehicle. This integration will reinforce University Avenue's role as a livable urban corridor.
In addition, the Complete Street approach will strengthen housing stability and affordability by
reducing transportation costs for residents who rely on walking, biking, and transit, including
students, lower -income households, and seniors. This is particularly significant for those who face
the greatest cost burdens, as the project will provide them with more affordable and efficient means
to access what they need for day-to-day living. Safer, more reliable multimodal access will increase
the viability of existing affordable housing and support future housing reinvestment without
requiring additional parking or roadway expansion. By coordinating transportation improvements
with surrounding land uses and residential patterns, the project will advance Dubuque's broader
planning goals of neighborhood connectivity and sustainable growth.
Implements Transit -Oriented Development — The proposed Complete Street improvements will
' https://htaindex.cnt.org
s U.S. Census Bureau, 2020-2024 American Community Survey
5 1 P a g e
Page 643 of 939
support transit -oriented development by creating a safer, more accessible corridor that aligns
higher -density housing, campus uses, and neighborhood services with frequent, reliable transit
service. University Avenue is served by multiple Jule bus routes — including the Grey Line, Orange
Line, AM/PM Commuter Shuttle, and the Express Line — providing east -west connections to the
Midtown Transfer, downtown, employment centers, medical facilities, and western Dubuque. By
improving sidewalks, bike lanes, crosswalks, and intersection safety while maintaining efficient
traffic flow, the project will make it easier for residents to walk, bike, and safely access bus stops,
reducing reliance on personal vehicles. These improvements will enhance the attractiveness and
viability of transit -supportive land uses along the corridor, encourage reinvestment in existing
housing and mixed -use development, and reinforce University Avenue's role as a connected,
multimodal spine that supports compact, transit -oriented growth.
Beautifies Transportation Infrastructure — The University Avenue project will beautify
transportation infrastructure by transforming the corridor from an auto -oriented roadway into an
attractive Complete Street that enhances the public realm. Streetscape elements such as modern
intersection designs, improved sidewalks, clearly marked crossings, landscaped medians, and
planting strips will create a more visually appealing corridor. Roundabouts and roadway
realignments will also provide opportunities for gateway features and public -facing design
treatments that reflect the character of surrounding neighborhoods. Together, these enhancements
will improve corridor aesthetics, strengthen community identity, and create a more welcoming
environment for residents, students, and visitors while still supporting efficient transportation.
Improves Travel Experience for Families — Multimodal improvements such as new
pedestrian/bike facilities and enhanced crosswalks will significantly improve the travel experience
for families by creating a safer, welcoming, and more comfortable environment for everyday trips.
The inclusion of ADA-compliant pedestrian facilities along University Avenue will allow parents
with strollers, children walking to school, and families treading along the corridor to travel on
sidewalks protected from fast-moving traffic. Improved crossings and reduced crossing distances
will also make it easier and less stressful for families to move across the roadway. Together, these
Complete Streets elements will transform the roadway into a family -friendly corridor that supports
recreation, neighborhood connectivity, and healthier transportation choices.
Improves Wayfinding & User Experience — University Avenue's design incorporates context -
sensitive signage, enhanced intersection treatments, and corridor branding features that support
wayfinding for motorists, pedestrians, cyclists, and transit riders. Roundabouts will provide natural
locations for gateway signage and directional cues, while improved sidewalks, bike facilities, and
crossings will support pedestrian- and bike -scale wayfinding between universities, neighborhoods,
transit stops, and nearby destinations. Together, these features will help users navigate the corridor
more intuitively, reinforce University Avenue's identity as a key east -west connector, and improve
orientation for students, visitors, and regional travelers.
Makes Transportation More Affordable — Car ownership is expensive and often unaffordable to
lower -income populations. According to AAA, the annual average cost to own and operate a
vehicle in 2025 was $11,577.6 The median -income family in Census Tract 9 spends 26.3% of their
income on transportation. Many college students in the project area lack access to a personal
vehicle. Low-income households in Census Tracts 7.01 and 7.02 (also Areas of Persistent Poverty
and Historically Disadvantaged Communities) also travel west along the corridor to educational
6 https://www.ace.aaa.com/automotive/advocacy/cost-of-driving.html
https://hudgis-hud.opendata.arcgis.com/datasets/location-affordability-index-v-3
6 1 P a g e
Page 644 of 939
(University of Dubuque), shopping (Hobby Lobby, Target, Lowe's, Kennedy Mall), recreational
(Flora Park), and health care (Statera Integrated Health and Wellness Solutions) destinations.
A Complete Street on University Avenue will make transportation more affordable by reducing the
need for car ownership and lowering the cost of daily travel for residents, students, and workers
along the corridor. By improving pedestrian, bike, and transit mobility, the project will allow
people to choose lower -cost travel options instead of relying solely on private vehicles and parking.
Safer intersections and more efficient traffic flow will also reduce crash -related costs, delays, and
vehicle wear. Together, these improvements will help households spend less on transportation,
making mobility more affordable and accessible for people of all incomes.
IV. MOBILITY & COMMUNITY CONNECTIVITY
Decreases Roadway Traffic Congestion & Does Not Limit Roadway Capacity — The project is
designed to reduce roadway traffic congestion by improving overall corridor operations while
creating safer, more efficient multimodal connections. The project will address existing high traffic
volumes and crash patterns along University Avenue by introducing roundabouts, intersection
improvements, and new pedestrian crossings that better organize traffic flow and reduce conflict
points. By enhancing access and connectivity, the project will distribute travel demand more
effectively and provide alternatives to short vehicle trips, thereby reducing localized congestion.
These improvements will support smoother traffic flow through key intersections, where crashes
and queuing have historically contributed to delays.
Importantly, the plan does not reduce roadway _
capacity, and University Avenue will continue to
provide adequate space for vehicles, including trucks - and transit. Proposed changes will maintain the
corridor's ability to carry existing and future traffic
volumes. The project is also not creating artificial ■ ■ ■
chokepoints — no intentional bottlenecks are being Figure 4. Complete Street improvements will
introduced. Instead, operational enhancements such not reduce roadway capacity.
as roundabouts, improved intersection geometry, and
better -defined pedestrian crossings are intended to
improve safety and traffic efficiency without restricting vehicular throughput.
Incorporates ADA Improvements — BUILD funding will enhance accessibility for all users,
particularly pedestrians and individuals with mobility challenges (9.2% in Census Tract 9).8 The
project will construct sidewalks along University Avenue designed to meet current ADA standards.
These upgrades will provide continuous, barrier -free connections along the corridor between
housing, campuses, and services. In addition, new and improved crossings will be installed near
the Pennsylvania Avenue, Asbury Road, Loras Boulevard/McCormick Street, and Delhi Street
roundabouts along University Avenue, with reduced crossing distances and upgraded pedestrian
signal equipment where needed. All infrastructure — including sidewalks, curb ramps, and
crosswalks — will be constructed to ensure safe, compliant, and accessible travel on the roadway.
Improves Vehicular Roadway Capacity — Dubuque will preserve roadway capacity along
University Avenue by maintaining its role as an east -west arterial corridor that accommodates
heavy traffic volume. AADT at the most congested location along the University Avenue corridor
(between Asbury Road and Loras Boulevard) is expected to increase to 22,000 vehicles (11,000
8 U.S. Census Bureau, 2020-2024 American Community Survey
7 1 P a g e
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traveling in each direction) by 2050.9 The corridor will maintain through -lane continuity and
convert busy intersections to roundabouts without reducing roadway capacity.
The project will also improve vehicular efficiency by addressing key operational factors that
influence roadway performance. Safety improvements and traffic calming measures such as
separated enhanced crosswalks, bike facilities, and curbing are designed to reduce crash -related
disruptions. In addition, the project will enhance roadway functionality by incorporating design
elements that support safe and predictable vehicle movement. No new vehicular access points will
be created, avoiding unnecessary turning conflicts, while roundabouts and roadway
reconfiguration will address operational friction.
Enhances the Accessibility of Transportation System for Families & Americans with Disabilities
Using Universal Design — Following Universal Design principles, Dubuque has designed
pedestrian- and bike -friendly transportation infrastructure that is accessible for all travelers,
including families, seniors 65 years and older (14.4% in Census Tract 9), and persons with
disabilities (9.2% in Census Tract 9).10 The project will feature continuous, ADA-compliant
sidewalks along University Avenue. By creating accessible walking and rolling spaces, the project
will ensure that people of all ages and abilities — including those using wheelchairs, walkers,
strollers, or other mobility devices — can travel safely and comfortably.
Roundabouts, new crossings, and intersection upgrades will reduce crossing distances, improve
visibility, and provide accessible signal equipment where needed. In addition, the project will
enhance pedestrian infrastructure to meet ADA standards. These upgrades will make it easier for
families and individuals with disabilities to navigate University Avenue, which currently functions
as a barrier due to high traffic speeds and limited safe crossing opportunities.
Removes Physical Barriers for Individuals by Reconnecting Communities to Direct, Affordable
Transportation Options — The BUILD project will transform University Avenue from a high -
stress, vehicle -dominated roadway into a connected, accessible transportation spine that safely
serves people of all ages and abilities. Continuous sidewalks, safe crossings, and dedicated bike
facilities will reconnect neighborhoods, student housing, and university campuses that are
currently divided by wide lanes, fast traffic, and limited crossing opportunities. These
improvements will make it easier for residents and students to reach transit stops, schools, jobs,
health care, and daily services without needing a personal vehicle.
Improving access to affordable transportation options like walking, bicycling, and Jule transit
service along University Avenue will reduce dependence on costly car ownership. Safer
intersections and improved access to bus stops will allow more people, particularly college
students, lower -income households, and individuals with disabilities, to choose reliable, low-cost
travel modes. In doing so, the Complete Street design will reconnect people to opportunity while
removing physical and financial barriers that have limited mobility along the corridor.
Includes Transportation Features that Increase Accessibility for Non -motorized Travelers —
Complete Street development will help residents, commuters, and students avoid the cost of
owning a car. A median -income family in Census Tract 9 spends 26.3% of their household income
on transportation.11 Each vehicle that the project helps an individual avoid owning or using means
funds are available for other expenses. Providing more transportation choices will help people to
forgo owning a personal vehicle, generating significant local purchasing power in Dubuque.
9 Local traffic data
10 U.S. Census Bureau, 2020-2024American Community Survey
" https://hudgis-hud.opendata.arcgis.com/datasets/location-affordability-index-v-3
. :
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According to the U.S. Census Bureau, 1.3% of Dubuque's population depends on bus service to
make their daily commute.12 The Jule's Grey Line, Orange Line, AM/PM Commuter Shuttle, and
Express Line bus routes serve the project area. A Complete Street along University Avenue will
expand transportation options for mobility -challenged households and improve connectivity to
transit options.
Provides Additional Options for Intermodal & Multimodal Freight Shippers — The BUILD
project will improve truck traffic and business deliveries by creating a more organized roadway
that accommodates freight movements while reducing conflicts with general traffic. Although
trucks account for only about 2% of total traffic, the project's roundabouts and improved
intersection geometry will allow for smoother maneuvering, reducing delays and improving travel
time reliability for businesses. These upgrades will make curbside delivery safer and more
efficient. By improving access to regional arterials and freight facilities, the corridor will also
support intermodal and multimodal shippers by strengthening last -mile connections between local
businesses and the broader freight network.
Considers Last -Mile Freight Plans in Multimodal Approach — The proposed project considers
last -mile freight needs with a multimodal approach that balances efficient local deliveries with
safety and accessibility for all users. While freight traffic is a small portion of total corridor
volumes, improved intersections and predictable traffic operations will reduce delays and enhance
access to businesses. By maintaining strong connections to regional arterials and nearby
intermodal facilities while accommodating pedestrians, cyclists, and transit users, the Complete
Street improvements will strengthen last -mile freight reliability without compromising safety or
livability. This integrated design will ensure that local businesses, service providers, and freight
shippers can efficiently move goods.
V. ECONOMIC COMPETITIVENESS & OPPORTUNITY
Reduces Travel Time & Improves Travel Time Reliability — The University Avenue project will
reduce travel time by improving traffic flow and eliminating many of the operational inefficiencies
that currently slow movement along the corridor. Converting key intersections to roundabouts will
allow traffic to move continuously at lower, consistent speeds rather than stopping at intersections
or waiting for gaps in traffic. These design changes will help vehicles, buses, and delivery trucks
move more efficiently through the corridor, particularly during peak travel periods.
The project will also improve travel time reliability by creating a more predictable transportation
system. Fewer stop -and -go conditions mean less variability in day-to-day travel times, while
simplified intersections and clearer lane continuity will reduce crashes and incident -related delays
that can disrupt traffic flow. For transit riders, emergency
responders, and businesses that depend on dependable travel
times, the Complete Street design will ensure that University
Avenue functions as a consistent and reliable east -west route. Abihal
Improves Safety, Security & Efficiency of Goods Movement —
Federal investment will help Dubuque to enhance the safety of
local goods movement by creating a roadway that better
accommodates delivery vehicles while reducing conflicts with
other users. Although truck traffic accounts for approximately
2% of corridor volume, delivery vehicles play an outsized role
in supporting nearby businesses. Roundabouts and better
"U.S. Census Bureau, 2020-2024 American Community Survey
Figure 5. Local freight movement
will improve on University Avenue
with BUILD investment.
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intersection geometry will allow trucks to slow, queue, and turn without blocking through traffic
or making abrupt maneuvers. These features will reduce the risk of crashes involving delivery
vehicles and improve safety for drivers, pedestrians, and cyclists. The project will also improve
the efficiency and reliability of local deliveries by reducing congestion and minimizing
unpredictable delays. Continuous traffic flow at roundabouts, improved lane continuity, and fewer
stop -and -go conditions will help delivery vehicles move steadily through the corridor, even during
peak periods.
Creates Jobs Related to Project's Delivery & Ongoing Operations — The proposed project will
generate measurable job growth. Using widely -accepted DOT and FHWA economic multipliers —
approximately 13 direct, indirect, and induced job -years per $1 million in transportation
construction spending — the project is expected to support approximately 220 job -years during the
design and construction phase, or roughly 70-75 full-time jobs over a 3-year timeline. These jobs
include construction laborers, equipment operators, electricians, paving crews, stormwater and
utility specialists, traffic control personnel, engineers, inspectors, and project managers, as well as
jobs at local suppliers, material producers, trucking firms, and equipment vendors.
In addition to short-term construction employment, the project will support ongoing job growth
and retention through ongoing operations and economic activity. Permanent jobs will arise from
roadway and stormwater maintenance, landscaping, and traffic system management. Improved
safety, reliability, and access along University Avenue will also strengthen nearby businesses,
universities, and service providers by improving workforce mobility and delivery reliability,
helping to retain existing jobs and support future employment growth along the corridor.
Promotes Economic Growth & Other Broader Economic/Fiscal Benefits — The University
Avenue project will promote economic growth by strengthening access to Dubuque's higher -
education institutions and supporting their long-term growth and student attraction goals. Research
shows that students choose campuses located in walkable, bike -friendly, transit -supported
environments, and surveys by the American Planning Association and DOT indicate that younger
populations are more likely to value multimodal access over auto -oriented infrastructure. By
improving safety, walkability, and transit access along University Avenue — the primary corridor
serving the University of Dubuque and nearby colleges — the project will enhance campus
connectivity, directly supporting enrollment competitiveness and institutional expansion.
The project will also generate tourism and visitor -related economic benefits. According to FHWA
and U.S. Travel Association research, transportation investments that improve access and
streetscape quality increase visitor spending by improving first impressions and ease of navigation
to destinations. University Avenue functions as a key approach route for visitors attending
university events, athletic competitions, cultural activities, and regional tourism destinations.
Improved travel time reliability and safer multimodal access will benefit shuttle services, tour
buses, and visitors unfamiliar with the area, strengthening Dubuque's visitor economy.
In addition, Complete Street investments are closely tied to private reinvestment and local tax
growth. The University Avenue project will improve access, safety, and multimodal mobility,
boosting development potential and encouraging investment in housing and neighborhood -serving
businesses. FHWA case studies also show that corridors rebuilt with Complete Street principles
often experience property value increases of 10-30%.
Includes Union Participation & Project Labor Agreements — The City will include opportunities
for union participation and Project Labor Agreements (PLAs) that promote cost-effectiveness and
workforce stability. Union labor participation will help reduce schedule risk, improve safety
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performance, and maintain high construction quality — key factors in controlling costs and avoiding
delays on an $18.4 million infrastructure investment. By utilizing a PLA or similar labor
framework, the project can ensure access to a skilled, experienced workforce trained in complex
roadway, utility, and stormwater construction. The procurement process will also support open and
fair competition by allowing all qualified contractors — union and non -union alike — to bid under
consistent work rules and standards. This balanced approach aligns with DOT best practices by
promoting efficient project delivery, protecting taxpayer investment, supporting local workforce
development, and maintaining competitive contracting and fiscal responsibility.
Improves Intermodal & Multimodal Freight Mobility — As previously discussed, the project will
improve intermodal and multimodal freight mobility by strengthening last -mile connections
between local businesses and the broader freight network. While freight traffic is a small portion
of total volume, features like roundabouts and improved intersection geometry will enable delivery
vehicles to operate more efficiently without disrupting through traffic. By ensuring reliable access
to regional arterials and nearby highway- and rail -served freight facilities, the Complete Street
design will support seamless transfers between modes and improve the efficiency of goods
movement from intermodal hubs to final destinations. These improvements will enhance freight
reliability, reduce delay and operating costs, and ensure University Avenue functions as a resilient,
multimodal connector within Dubuque's transportation system.
Facilitates Tourism Opportunities — A Complete Street on University Avenue will enhance access,
safety, and first impressions for visitors traveling to Dubuque's college campuses and downtown
attractions. Families visiting students at the University of Dubuque and nearby institutions
frequently navigate University Avenue to reach campus facilities, housing, hotels, restaurants, and
event venues. Safer intersections, clearer wayfinding, improved sidewalks, and more predictable
traffic flow will make these visits less stressful, particularly for visitors unfamiliar with local
streets. A walkable corridor will also enhance the campus experience itself, supporting athletic
events, commencements, and conferences that bring visitors and spending into the community.
The project will strengthen Dubuque's broader tourism market by improving a key east -west
gateway that connects visitors to major attractions across the city. University Avenue provides an
important link between western lodging and shopping areas and downtown destinations such as
the National Mississippi River Museum & Aquarium and the Mississippi Riverwalk. Improved
travel time reliability, enhanced streetscape aesthetics, and safer multimodal access will support
tour buses, shuttles, cyclists, and pedestrians exploring these destinations. By creating a safer, more
welcoming, and more navigable corridor, the Complete Street project will help Dubuque attract
visitors, encourage longer stays, and increase tourism -related spending across the economy,
benefiting local businesses and contributing to growth in local sales and hospitality tax revenues.
VI. STATE OF GOOD REPAIR
Deferred Maintenance — The project will help Dubuque to defer future maintenance on the
corridor by replacing aging infrastructure with a fully reconstructed, modern roadway designed
for long-term performance. Rather than continuing a cycle of short-term fixes (e.g., repeated
patching), the project will rebuild the corridor with new pavement, curbing, drainage systems, and
intersection treatments that have longer service lives and lower routine maintenance needs. This
"fix -it -right" approach will reduce the frequency of reactive repairs and associated costs over time.
In addition, the project's design will directly reduce maintenance demands by improving traffic
operations and drainage. Roundabouts will replace traffic signals, cutting ongoing costs, while
better stormwater management will minimize pavement deterioration from standing water and
freeze -thaw cycles. By creating a more durable, resilient corridor that better manages traffic loads
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and weather impacts, the University Avenue project will allow Dubuque to defer costly
interventions and stretch limited infrastructure dollars further into the future.
Party Responsible for Maintenance & How New/Improved Assets Will Be Maintained —
University Avenue is owned and maintained by the City, with responsibility shared among its
Engineering, Public Works, and Transportation divisions. Once constructed, the corridor will be
incorporated into the City's established asset management and maintenance programs, which
include routine inspections, preventative maintenance, and long-term capital planning. By
replacing aging infrastructure with a modern design, the project will reduce reactive maintenance
needs and ensure that University Avenue can be efficiently maintained in a safe, reliable condition
over its service life.
Restores/Modernizes Existing Core Infrastructure
Assets that Have Met their Useful Life — The University
Avenue project will reconstruct both the roadway and
underlying stormwater systems rather than continuing
short-term repairs. Much of the existing pavement,
curbing, and intersection infrastructure along the corridor
has experienced years of wear from traffic volumes,
utility cuts, and weather -related deterioration, resulting in
recurring maintenance needs and reduced performance.
The project will replace these aging roadway elements Figure 6. Reconstruction of the corridor
with new pavement structures, curbs, and intersection will invest in existing infrastructure.
designs built to current standards, restoring structural
integrity, improving safety, and extending the service life of this critical east -west corridor.
Prioritizes Improvement of Condition & Safety of Existing Transportation Infrastructure — The
proposed project prioritizes improving the condition and safety of University Avenue, a critical
east -west corridor in Dubuque that has reached the end of its useful life and carries a high cost of
failure. University Avenue functions as a key alternative to U.S. 20 and serves major destinations
including universities, neighborhoods, transit routes, and local businesses; failure of this corridor
would create significant safety risks, mobility disruptions, and economic impacts. The project will
address these challenges through full roadway reconstruction, modern intersection designs, and
upgraded stormwater infrastructure that collectively reduce crash risk, prevent flooding -related
damage, and improve operational resilience. Roundabouts, improved alignment, and multimodal
facilities will correct documented safety issues. By proactively rehabilitating and modernizing
University Avenue, the project will reduce the likelihood of costly failures, extend infrastructure
life, and ensure the continuity of this essential transportation asset.
Reduces Construction & Maintenance Burdens through Efficient & Well Integrated Design —
Design features like roundabouts, improved drainage, and durable pavement will lower ongoing
maintenance needs by lowering equipment and signal upkeep and minimizing weather -related
damage. With less VMT on the corridor, there will be reduced wear and tear on road surfaces,
lowering both the frequency and cost of repairs. Encouraging a shift in travel modes — from
vehicles to walking, biking, and public transit — will also delay the need for corridor expansion.
Furthermore, reduced traffic and congestion will lead to fewer road closures due to accidents and
maintenance work.
Addresses Current/Projected Transportation System Vulnerabilities — The project will address
transportation system vulnerabilities by proactively modernizing a corridor that experiences safety
challenges, congestion, aging infrastructure, and increasing multimodal demand. Existing
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intersection geometry, limited turning capacity, and inconsistent pedestrian and bike facilities
contribute to crash risk and operational inefficiencies. By redesigning intersections, improving
lane continuity, and adding dedicated facilities for pedestrians and cyclists, the project will reduce
exposure to high -severity crashes and address vulnerabilities related to safety, access, and user
conflict as travel demand continues to grow.
The project will also mitigate future vulnerabilities to climate impacts, system reliability, and
network resilience. Upgraded stormwater infrastructure and improved drainage will reduce the risk
of flooding, pavement failure, and corridor closures during increasingly intense storm events. By
improving travel time reliability and maintaining University Avenue as a dependable east -west
alternative to U.S. 20, the project will strengthen network redundancy and reduce the risk of
cascading failures during incidents, extreme weather, or emergency response situations. Together,
these improvements will ensure that the corridor is better prepared to withstand future stresses
while continuing to safely and reliably serve Dubuque's transportation system.
VII. PARTNERSHIP & COLLABORATION
Collaborates with Public & Private Entities — The University Avenue project has been developed
through extensive collaboration with both public and private entities to ensure the Complete Street
improvements reflect community needs. The City has engaged closely with nearby colleges to
coordinate roadway design with campus access, student safety, and long-term growth plans.
Neighborhood residents have been involved through public meetings, open houses, and ongoing
outreach efforts that provided opportunities to review concepts, share concerns, and influence
design decisions related to safety, access, and connectivity. Dubuque has also worked with local
businesses and property owners to understand delivery needs, access requirements, and
construction considerations. This coordination has helped shape design elements such as
roundabouts and multimodal facilities that support business operations. Finally, Dubuque will
coordinate with Iowa DOT and IDNR for necessary permits and approvals.
Support from Local, Regional & National Levels — Complete Street improvements on the corridor
are supported at the local level through strong City leadership and broad stakeholder engagement.
The University Avenue overlap section has been identified as a long-standing priority in Dubuque's
transportation planning, capital improvement programming, and safety initiatives. Local support
includes backing from neighborhood residents, businesses, and nearby colleges.
Regionally, the project is supported through planning efforts led by the East Central
Intergovernmental Association, the metropolitan planning organization. University Avenue is
identified as a critical east -west corridor in regional transportation and safety planning documents,
and the proposed improvements are prioritized in the East Central Iowa Transportation Safety
Plan. Nationally, Dubuque's congressional delegation is a major project champion.
Engages Residents & Community -Based Organizations — During the design phase, the City
engaged residents and community -based organizations through a comprehensive, ongoing public
involvement process designed to ensure those who live and work along the corridor are
meaningfully involved throughout the project lifecycle. The City has conducted multiple public
meetings and open houses at key project milestones, providing opportunities for residents,
students, businesses, and institutions to review concepts, ask questions, and provide input on
safety, access, and design alternatives. Engagement tools have included a project web site, in -
person meetings, and direct outreach to neighborhood groups.
The City will form a project advisory committee made up of residents, college partners, and
business stakeholders. This group will meet regularly to guide the project through the construction
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phase. By maintaining transparent, two-way communication from planning through construction,
Dubuque will ensure that community voices meaningfully shape project outcomes.
Coordinates with Other Types of Projects — The project team is closely coordinated with economic
development, campus expansion, and residential reinvestment occurring along the corridor.
University Avenue serves as a primary access route to the University of Dubuque, with proximity
to Clarke University and Loras College, and the project has been developed with awareness of
ongoing and planned campus facility investments, student housing needs, and enrollment growth.
By improving safety, multimodal access, and streetscape quality, the project will support higher -
density residential development, student housing, and neighborhood reinvestment while
strengthening connections between campuses, nearby neighborhoods, and commercial areas.
The project will be coordinated with utility and infrastructure partners during construction. BUILD
investment will enhance underground utilities and existing infrastructure managed by Alliant
Energy (electric and gas) and telecommunications providers. The corridor benefits from
Dubuque's existing municipal and private fiber network, which supports broadband access.
Coordinating utility work within the roadway project will minimize future disruptions, avoid
repeated excavation, and ensure long-term reliability of power, water, and broadband systems.
Partners with High -Quality Workforce Development Programs — The City will partner with local
and regional workforce development programs to help train, place, and retain workers in good -
paying construction and infrastructure careers. Dubuque will coordinate with Iowa Workforce
Development, Northeast Iowa Community College (NICC), and local trade organizations to
connect residents to jobs created by the project. NICC's construction, electrical, civil construction,
and heavy equipment programs align directly with the skills needed for roadway, stormwater, and
utility work, providing a strong local pipeline of trained workers.
In addition, the project will support participation in registered apprenticeship programs through
partnerships with local and regional labor unions and contractors. These programs combine paid,
on-the-job training with classroom instruction, helping workers earn family -sustaining wages
while developing transferable skills. By coordinating hiring needs with workforce and
apprenticeship programs, the project will help ensure that local residents — especially young adults,
displaced workers, and underrepresented populations — have access to long-term career pathways.
VIIL INNOVATION
Deploys Technologies, Project Delivery & Financing Methods New/Innovative to Community —
The University Avenue project will deploy new and innovative technologies that build on
Dubuque's growing smart transportation ecosystem, including LiDAR-based pedestrian and bike
detection, dynamic driver notification, V2NN2X-ready integration, and near -miss analytics and
performance monitoring.
A key element is integration with East Central Intergovernmental Association's Smart Traffic
Routing with Efficient and Effective Traffic Signals (STREETS) program, which optimizes traffic
signal operations on connected routes. Although University Avenue will feature roundabouts that
limit signal reliance, the project will strengthen links to nearby signalized corridors, improving
travel time reliability and reducing congestion.
The City has already invested in multipath fiber communications, conduit, advanced traffic
systems, and camera deployments along this corridor and on adjacent ITS corridors. However, the
existing intersections create delay, stop -and -go conditions, and increased carbon emissions that
interrupt optimized system flow. This project closes that operational gap by combining roundabout
reconstruction with smart safety technologies integrated into the City's existing fiber backbone.
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Additionally, Dubuque will utilize technologies supported by a DOT SMART grant for in -dash
information delivery to connected vehicles, offering real-time routing and safety updates.
Finally, funding strategies that combine local funding with federal transportation programs will
allow the community to deliver a complex, multimodal project more efficiently.
Innovative Technologies
Deploys Innovative & Emerging Transportation Technologies — Innovative technologies will be
adopted with BUILD resources, including:
• LiDAR-based Pedestrian & Bicycle Detection: Detection at each roundabout for continuous
3D crosswalk monitoring and near -miss analytics.
• Dynamic Driver Notification (B1ueBand or Equivalent): Activated only when pedestrians are
present.
• V2NN2X-Ready Integration: To broadcast pedestrian alerts and support future connected
vehicle integration.
• Near -Miss Analytics & Performance Monitoring: To measure yield compliance, speed
reduction, pedestrian exposure, and operational efficiency, providing measurable before -and -
after safety and emissions outcomes.
Enhances the Environment for Connected or Automated Vehicles — While the project does not
install connected and automated vehicle (CAV) equipment, the proposed improvements will create
conditions that support automated vehicle detection systems. Roundabouts, standardized
intersection geometry, and crosswalk enhancements will improve automated vehicle ability to
anticipate stops, detect pedestrians, and mitigate rear -end collision risks. Curbing and landscaped
medians will create a more defined roadway edge and clearer lane structure, improving the ability
of automated vehicle sensors to interpret roadway boundaries. This modernized infrastructure will
provide clearer lane guidance, more consistent operating speeds, and fewer unexpected conflicts —
key factors for CAV performance in urban environments.
Innovative Project Delivery
Uses Practices that Facilitate Accelerated Project Delivery — The University Avenue project will
employ proven practices to accelerate project delivery. Dubuque will leverage advanced digital
construction management tools, including 3D modeling, electronic plan sets, and digital
scheduling and inspection platforms, to improve coordination, reduce errors, and accelerate
decision -making during construction. Digital as-builts can further support efficient close-out and
long-term asset management.
The City will benefit from streamlined environmental review and permitting processes coordinated
with the Iowa DOT. This coordination will reduce approval timelines while ensuring that
regulatory requirements are met, minimizing delays and accelerating delivery of safety, mobility,
and resilience benefits to the community.
Innovative Financing
TIFIA Financing — Dubuque will engage with DOT's Build America Bureau to explore
opportunities to expand the project with additional transportation financing.
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PROJECT READINESS
I. PLANNING & CONSTRUCTABILITY
TIP/STIP— Upon BUILD grant award, the East Central Intergovernmental Association's TIP and
Iowa DOT's STIP will be amended to include the University Avenue improvements. Dubuque has
already begun this coordination, demonstrating that the project will be fully integrated into the
metropolitan and statewide planning framework.
Consistency with Other Plans — The East Central Iowa Transportation Sa/ty Plan, funded by a
DOT Safe Street and Roads for All grant, identifies segments of University Avenue (including the
project area) as high -crash, high -injury. The plan recommends roundabouts, enhanced crosswalks,
geometric improvements, and pedestrian/bike facilities as safety countermeasures to reduce
transportation conflicts.
The proposed improvements align closely with the East Central Iowa Transportation Safety Plan
by advancing a Safe System Approach to reduce fatalities and serious injuries through evidence -
based roadway design. The project targets a priority corridor identified in regional crash analyses
and applies proven countermeasures that directly address the plan's key emphasis areas of
intersections, local roads, speed management, and vulnerable road users.
The Complete Street project directly advances the goals of Dubuque's 2017 Imagine Dubuque
2037 Comprehensive Plan, which emphasizes creating a livable community through improved
transportation and mobility. The plan specifically calls for applying Complete Streets principles
throughout the community. By incorporating roundabouts, enhanced pedestrian crossings, bike
facilities, and improved intersection geometry, the University Avenue project will fulfill these
directives. Transportation improvements strengthen multimodal connectivity along a major
commercial corridor, support walkable and mixed -use development patterns, and enhance
sidewalk connectivity and safety consistent with adopted land use and community vibrancy goals.
The project is also consistent with the region's Lon Runge Transportation Plan 2045, which
emphasizes improving east -west connectivity. University Avenue functions as a critical alternative
to U.S. 20, and the planned operational and geometric improvements respond to long -identified
capacity and safety needs. By combining traffic efficiency improvements with Complete Streets
design, the project will balance mobility, safety, and community character while expanding access
to jobs, education, retail, and services. As such, the project represents a direct implementation of
the City's long-range transportation and comprehensive planning framework.
Property Acquisition/ROW — The project will require the City to acquire some property along
University Avenue before construction. The project will also involve securing temporary and
permanent easements. Dubuque has already begun consulting with the impacted landowners.
Acquisition activities are scheduled for 2027-2029, following NEPA clearance.
Construction Techniques & Phasing — The project will not involve any unique construction
techniques or non-standard project delivery methods.
II. PROPOSED SCHEDULE
Dubuque has been conducting preliminary design on the University Avenue Complete Street
concept since January 2022. The City has conducted extensive public engagement to identify a
preferred alternative. All preliminary design activities are planned to be completed on or before
December 31, 2026, prior to the execution of a BUILD contract.
Key project dates include:
• Anticipated Finalization of BUILD Grant Agreement: June 2027
• Project listed in TIP and STIP: July 2027
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• Start & End of PreliminarDq�ign: January 2022 to September 2026
• Start & End of the NEPA Process: January 2026 to December 2026
• Start & End of Final Design: July 2027 to December 2028
• Start & End of Obtaining Permits/Approvals: January 2028 to December 2028
• Start & End of ROW Acquisition: February 2027 to March 2029
• Start & End of Construction: July 2029 to June 2031
See project development schedule below:
PROJECT DEVELOPMENT
SCHEDULE
CY 2026 1 CY 2027 1 CY 2028 CY 2029 I CY 2030 1 CY 2031 1 CY 2032
FY26 FY27 FY28 FY29 I FY30 FY31 FY32 FY33
Quarter
1 2 3 4
1 1 2 3 1 4
1 2 3 4
1 2 3 4
1 2 3 1 4
1 1 2 3 1 4
1 1 2 3 4
Preliminary Design
• PE Completed
Environmental I Historic Review
• Receive NEPA & Section 106 Approval
Grant Award Admin
• Funding Agreement
OBLIGATION DEADLINE SEPT 30, 2030
Final Design & Engineering
• Complete Setof Final Plans
Acquisition
• Property Acquisition
• Easements
Permitting
• Permits from Iowa DNR, Railroad
Procurement - Bidding
• Iowa DOT Bids Project
• Contracts Finalized
Construction
• Complete Streets - Roundabouts (4)
Project Closeout
Project Development Phases to be Funded with BUILD — BUILD funding will be used to support
final design, ROW acquisition, and construction. NEPA clearance will be secured before an
agreement is signed with DOT.
III. NEPA & PERMITTING
NEPA Class of Action — As the project footprint requires the relocation of several residents, an
Environmental Assessment (EA) with a Finding of No Significant Impact (FONSI) is expected for
the proposed scope of work.
NEPA Status & Milestones — No significant environmental impacts are anticipated. Dubuque has
initiated pre-NEPA activities with Iowa DOT. There are no expected challenges to completing the
NEPA process. An EA with a FONSI is expected by March 2027.
NEPA Documentation — The City is currently conducting pre-NEPA activities with Iowa DOT.
Formal NEPA documentation will be prepared in 2026-2027.
Re Evaluation & Post -Approval Changes — The City will coordinate with Iowa DOT and relevant
permitting agencies to adjust the proposed scope of work in response to any reevaluations or post -
approval changes resulting from NEPA review. This will ensure timely and coordinated
implementation of the project.
Permits & Approvals — Dubuque will secure the following permits for the proposed improvements:
• FHWA authorization
• NPDES General Permit No. 2
• Project Development Certification
No additional state or local approvals are required to reconstruct University Avenue.
Coordination with Iowa DOT — Dubuque is working closely with Iowa DOT on pre-NEPA
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activities and will soon initiate the formal NEPA process with the agency for the University Avenue
project. Recent coordination with the agency resulted in an expectation of an EA with a FONSI.
IV. PROJECT SUPPORT
Public & Agency Involvement Process — The University Avenue project has been developed
through extensive collaboration with both public and private entities to ensure the Complete Street
improvements reflect community needs. During the design phase, the City engaged residents and
community -based organizations through a comprehensive, ongoing public involvement process
designed to ensure those who live and work along the corridor are meaningfully involved
throughout the project lifecycle. The City has conducted one public meeting, one impacted
property owners open house, and 10 stakeholder meetings/workshops, with at least two more open
houses planned in 2026, providing opportunities for residents, students, businesses, and
institutions to review concepts, ask questions, and provide input on safety, access, and design
alternatives. Engagement tools have included in -person and online meetings, virtual presentations,
a project web site, surveys, and direct outreach to stakeholders.
Key public engagement audiences have included:
• Residents: Neighborhood residents have been involved through public meetings and ongoing
outreach efforts that provided opportunities to review concepts, share concerns, and influence
design decisions related to safety, access, and connectivity. Property owners with direct
impacts from this project have had additional outreach and meetings with the project team.
• Businesses: Dubuque has worked with local businesses to understand delivery needs, access
requirements, and construction considerations. This coordination has helped shape design
elements such as roundabouts and multimodal facilities that support business operations.
• Area Colleges: The City has engaged closely with nearby colleges to coordinate roadway
design with campus access, student safety, and long-term growth plans.
• Places of Worship: Dubuque has collaborated with churches to coordinate roadway design,
ensure community safety, and address long-term plans. Modifications were made based on
feedback from a church with a daycare to keep it safely open.
Complete Street improvements on the corridor are supported at the local level through strong City
leadership and broad stakeholder engagement. The University Avenue overlap section has been
identified as a long-standing priority in Dubuque's transportation planning, capital improvement
programming, and safety initiatives. Local support includes backing from neighborhood residents,
businesses, and nearby colleges.
Regionally, the project is supported by the East Central Intergovernmental Association, the
metropolitan planning organization. University Avenue is identified as a critical east -west corridor
in regional transportation and safety planning documents, and the proposed improvements are
prioritized in the East Central Iowa Transportation Safety Plan.
Public & Agency Involvement Results — Public and agency engagement has demonstrated broad
support for the proposed University Avenue improvements. Residents, students, businesses, transit
users, and community organizations champion redesigning the corridor to improve safety, enhance
pedestrian and bicycle access, and strengthen connections to the nearby campuses. Elected officials
at the local and regional levels have endorsed the project as a priority investment aligned with
adopted plans, and partner agencies — including the East Central Intergovernmental Association
and Iowa DOT — have provided ongoing coordination and technical input. Feedback received
during outreach was incorporated into the project's safety treatments and multimodal design
features. No organized opposition to the proposed improvements has been identified, and
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stakeholder input has strengthened the project's design and implementation approach.
Letters of Support — The project has garnered strong backing from local elected officials,
prominent employers, and businesses located in Dubuque. See attached letters of support.
V. RISKS & MITIGATION
Complete Street construction on University Avenue poses no risk to cultural or environmental
resources. No additional environmental studies are necessary to complete the project. The project
is consistent with local/regional plans to maintain transportation facilities in a state of good repair.
No additional state and local approvals are necessary, and a local match is already committed.
Potential mitigation strategies might include:
• NEPA & Historic Delays — Public engagement related to the project has already been
conducted. Dubuque is already working cooperatively with Iowa DOT to secure an EA with a
FONSI for the project, expected in early 2027. The State Historic Preservation Office will soon
be contacted to initiate Section 106 compliance. These pre -award activities will position the
project to move into construction quickly.
• Cost Overruns — Contingency costs have been built into the budget to account for potential
increased costs.
VL Applicant Capacity Review
Roles & Responsibilities — Dubuque has demonstrated its ability to hire professional firms and
contractors, acquire property, and advance infrastructure projects in compliance with federal and
state laws. The City employs five professional engineers experienced with managing large-scale
federal -aid transportation projects. Key City staff who will be involved in administering the project
are: City Engineer Gus Psihoyos, Assistant City Engineer Bob Schiesl, Land Surveyor Nate
Kieffer, Civil Engineer Nate Steffen, and Traffic Engineer Dave Ness.
Iowa DOT will administer the BUILD grant on behalf of Dubuque. The City has worked
cooperatively with the state transportation agency on numerous federal transportation grants over
the years. Dubuque has previously been awarded TIGER, BUILD, and RAISE funding. The
proposed East-West corridor capacity improvements are currently in the final phases of
preliminary design and NEPA review. Over the past 10 years the City has successfully managed
over $100 million of federal -aid transportation projects, including all aspects of scoping,
preliminary design, final design, right-of-way acquisition, construction administration, and
inspection. All work has been implemented on -time and on -budget.
Federal Funding — The sponsor of this project is the City of Dubuque. The City has demonstrated
its ability to hire professional firms and contractors, acquire property, and otherwise advance
projects in compliance with federal and state laws through various projects included on current
and past TIPs and STIPs. Dubuque's current engineering staff has successfully managed tens of
millions of dollars' worth of federal -aid transportation projects, including right-of-way acquisition,
railroad negotiation, and all aspects of planning and delivery (scoping, preliminary design, detailed
design, construction, inspection). The City has an exemplary record of managing federal grants,
having received numerous DOT, EPA, HUD, and other federal grants over the years. Key to this
effort is the development of a detailed work plan with clear milestones and responsibilities.
Performance measures will be established to track progress.
Federal Regulations — Dubuque has previously implemented BUILD and other federal -aid
projects on time and on budget, in accordance with federal requirements including, but not limited
to, compliance with Title VI, Civil Rights requirements, Buy America provisions, the Americans
with Disabilities Act, the Davis Bacon Act, and the Uniform Relocation Assistance and Real
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Property Acquisition Act.
Project Planning - The City demonstrated its ability to add the federally -funded projects to the
TIP and STIP, including:
• 2020 BUILD Grant - Northwest Arterial/John Deere Road Corridor for Freight Mobility;
STBG-SWAP-2100 (702)--SG-31, HDP-0031 (110)--3C-31
• 2022 RAISE Planning Grant - Building Bridges to Elevate Employment; EDP-2100 (705)--
7Y-31
• 2024 RAISE Capital Grant -Building Bridges to Elevate Employment; EDP-2100 (000)--7Y-
31
Complete Street improvements funded with BUILD resources will be added to the TIP and STIP
following grant award.
Project Delivery - Dubuque's Engineering Department is responsible for planning, designing, and
constructing the City's roadway and bridge improvement projects, including all federal -aid
transportation projects. This team has successfully designed and constructed tens of millions of
dollars' worth of transportation projects, delivering transformative results. The Engineering
Department has carried this project forward through preliminary design and coordination with
Iowa DOT. On behalf of Dubuque, they are prepared to advance this project through construction
upon award of a BUILD implementation grant.
Dubuque's experience with similar complex, large-scale transportation projects includes:
• Northwest Arterial - The City was awarded a $9.2 million State of Good Repair grant to
conduct a multi -year, multi -phased project that included major pavement reconstruction and
rehabilitation of the arterial roadway from Highway 20 (Dodge Street) to John F. Kennedy
Road. In 2022, work was completed to reconstruct the arterial's Pennsylvania Avenue and
Asbury Road intersections, as well as milling, repaving, and adding a 4-foot shoulder to the
southbound arterial lanes. In 2023, the remaining segments of the northbound lanes from the
Catfish Creek Bridge (north of Highway 20) to John F. Kennedy Road were reconstructed. The
project was substantially completed in August 2023 before the start of the new school year.
• Southwest Arterial - The City, in partnership with the Iowa DOT, recently completed the $165
million Southwest Arterial (U.S. 52), which is a 6.1-mile, four -lane, divided freeway with
priority -one access control and provides an alternative route for traffic through southwestern
Dubuque. The City was the lead agency responsible for project development, including
preliminary engineering, NEPA clearance, final engineering, permitting, property acquisition,
utility relocations, and preparing construction plans for 26 separate bid packages. The City
secured $35.5 million in federal funding, which was used to leverage a $115 million investment
by the Iowa DOT to assist with funding the project completion. After years of planning and
construction, the Southwest Arterial opened to traffic in August 2020.
VII. FINANCIAL COMPETITIVENESS REVIEW
The proposed budget is based on a professional engineer's estimate developed in February 2026,
prepared according to industry standards. The budget is based on planning at the 50% level.
A $4.1 million match (not required for a rural community) will be provided to support BUILD
funding. A letter of commitment is attached pledging local match dollars for the project.
As demonstrated in the attached Project Budget section, all funding sources are identified. The
budget includes a contingency category to account for potential increased costs. A 3% inflation
rate has been applied to the midpoint of construction, which is set for 2030. Any cost overruns
beyond the proposed budget will be absorbed by the City and supported by bond financing.
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F)R
Benefit -Cost Analysis Technical
Memorandum
BUILD Discretionary Grant Program
University Avenue
Corridor Complete
Street: East-West
Connectivity Project
City of Dubuque
February 24th, 2026
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City of Dubuque I East-West Corridor Project
Benefit Cost Analysis Supplementary Documentation
Table of Contents
1 Executive Summary............................................................................................................................
3
2 Introduction..........................................................................................................................................
7
3 Methodological Framework.................................................................................................................
7
4 Project Overview.................................................................................................................................
8
4.1 Base Case and Alternative Case..............................................................................................
9
4.1.1 Base Case....................................................................................................................
9
4.1.2 Alternative Case...........................................................................................................
9
4.2 Project Costs & Components..................................................................................................
10
4.3 Merit Criteria............................................................................................................................
10
5 General Assumptions........................................................................................................................
12
6 Demand Projections..........................................................................................................................
12
6.1 Methodology............................................................................................................................12
6.2 Demand Projections................................................................................................................
12
7 Benefits Measurement, Data and Assumptions................................................................................
13
7.1 Safety Outcomes.....................................................................................................................
13
7.1.1 Methodology...............................................................................................................13
7.1.2 Assumptions...............................................................................................................14
7.1.3 Benefit Estimates.......................................................................................................
14
7.2 Environmental Sustainability Outcomes..................................................................................
15
7.2.1 Reduced Air Emissions..............................................................................................
15
7.2.2 Benefit Estimates.......................................................................................................
17
7.3 Economic Competitiveness and Opportunity..........................................................................
17
7.3.1 Travel Time Savings...................................................................................................
17
7.3.2 Reduced Vehicle Operating Costs.............................................................................
18
7.3.3 Benefit Estimates.......................................................................................................
19
7.4 State of Good Repair Outcomes.............................................................................................
20
7.4.1 Change in O&M Costs................................................................................................
20
7.4.2 Residual Value of Capital Assets...............................................................................
20
7.4.3 Benefit Estimates.......................................................................................................
20
8 Summary of Findings and Benefit -Cost Outcomes...........................................................................20
9 Benefit Cost Sensitivity Analysis.......................................................................................................
21
9.1 Variation in Key Inputs and Assumptions................................................................................
21
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City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
Tables
Table ES-1: Summary of Infrastructure Improvements and Associated Benefits.........................................4
Table ES-2: Annual Capital Expenditure, 2024 Undiscounted Dollars.........................................................5
Table ES-3: Capital Expenditure by Project Component, Undiscounted......................................................
5
Table ES-4: Overall Results of the Benefit Cost Analysis, 2024 Dollars ......................................................
5
TableES-5: Summary of Benefits.................................................................................................................
6
Table 6: Total Project Cost Components, Undiscounted...........................................................................
10
Table 7: Expected Effects on Merit Criteria Outcomes and Benefit Categories ........................................
10
Table8: Demand Projections.....................................................................................................................
12
Table 9: General Assumptions used in the Benefit -Cost Analysis..............................................................
13
Table 10: Comparison of Pedestrian Crash Modification Factors..............................................................
14
Table 11: Comparison of Cyclist Crash Modification Factors.....................................................................
14
Table 12: Assumptions used to Monetize Safety Benefits.........................................................................
14
Table 13: Estimates of Safety Benefits......................................................................................................
14
Table 14: Assumptions used in the Estimation of Environmental Benefits — Emission Values .................
15
Table 15: Assumptions used in the Estimation Environmental Sustainability Benefits — Autos ................
16
Table 16: Assumptions used in the Estimation Environmental Sustainability Benefits — Trucks ...............
16
Table 17: Estimates of Environmental Sustainability Benefits...................................................................
17
Table 18: Assumptions used in the Estimation of Travel Time Savings ....................................................
18
Table 19: Assumptions used in the Estimation of Vehicle Operating Cost Savings ..................................
18
Table 20: Assumptions used in the Estimation of Vehicle Operating Cost Savings — Fuel Costs ............
19
Table 21: Estimates of Economic Competitiveness Benefits.....................................................................
19
Table 22: Assumptions used in the Estimation of the Residual Value of Capital Assets ..........................
20
Table 23: Estimates of State of Good Repair Benefits..............................................................................
20
Table 24: Overall Results of the Benefit Cost Analysis, 2024 Dollars.......................................................
21
Table 25: Summary of Project Benefits......................................................................................................
21
Table 26: Quantitative Assessment of Sensitivity, Summary (Discounted) ...............................................
22
Figures
Figure 1: East-West Connectivity Project..................................................................................................... 3
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City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
1 Executive Summary
Located in the City of Dubuque, University Avenue primarily serves commercial development with some
residential properties located west of Asbury Road and east of Loras Boulevard. Users include commuters,
college students, and visitors, with the University of Dubuque located in the southeast corner of the
intersection of University Avenue and Loras Boulevard. This corridor serves as an overlap East-West
connection with multiple arterial/collector roadways combining in this area. During peak hours, heavy
vehicular traffic along with frequent turning movements at signalized and unsignalized intersections has
created significant delays and safety concerns, particularly due to the lack of dedicated turning lanes and
poor alignment. These delays also result in excessive vehicle operating costs and increased criteria air
contaminant (CAC) pollution from idling, as well as heightened potential for rear -end conflicts. In addition
to the impacts on vehicular travel, the corridor experiences heavy pedestrian and cyclist use. A lack of
clearly marked crosswalks and no dedicated bike lanes makes the corridor dangerous for pedestrians
crossing at intersections as well as cyclists traveling with vehicle traffic.
In order to alleviate these issues for vehicular and active transportation users, the City of Dubuque is
planning to reconstruct the University Avenue corridor by adding roundabout conversions at intersections,
dedicated turn lanes, roadway realignments, and cross-section modifications. These changes will reduce
travel times, relieve congestion, and reduce the risk of crashes. Beyond roadway improvements, the Project
will also implement several improvements in support of enhanced mobility and multi -modal access for
users, including wider sidewalks, rectangular rapid flashing beacons at crossings, and dedicated bike lanes.
The proposed concept is illustrated in Figure 1.
Figure 1: East-West Connectivity Project
Table ES-1 summarizes the impacts and associated monetary benefits expected from the project. Section
8 summarizes the results for the entire project as well as for its individual components.
3
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Benefit Cost Analysis Supplementary Documentation
Table ES-1: Summary of Infrastructure Improvements and Associated Benefits
Status (Base
Changes to Baseline
PopulationCurrent
ProblemsScenario) &
..
. by
Benef . its
Results
i
be ..
..
Motorists,
Reduced
Reduced delays from roundabouts for
local
Travel Time
$4.15 M
better traffic management
businesses,
Costs
residents
Reduced fuel and motor oil consumption
from shorter delays at intersections
$0.20 M
along University Avenue during peak
Motorists,
hours
local
Vehicle
Growing traffic on
businesses,
Operating
Cost Savings
Reduced fuel and motor oil consumption
University Avenue in the
from shorter delays at intersections
residents
City of Dubuque has
along University Avenue during off-peak
Qualitative
caused excess
The Project will
hours
congestion, resulting in
convert existing
prolonged travel times for
intersections to
Reduced emissions from shorter delays
all roadway users. This
roundabouts along the
at University Avenue intersections
Local
$0.01 M
has resulted in excess
corridor which will
during peak hours
residents and
travel time and vehicle
improve traffic flow,
residents
Avoided
operating costs for
reducing delays, widen
Reduced emissions from shorter delays
across the
Emissions
motorists, increased
sidewalks, install
at University Avenue intersections
country
Qualitative
vehicular emissions, and
dedicated cycling
during off-peak hours
safety concerns resulting
lanes, and add
Reduced accident costs at intersections,
Motorists
Avoided
Accident
$6.44 M
from poor traffic
management at
signalized pedestrian
intersections. Additionally,
crosswalks at busy
improving safety on University Avenue
Costs
active transportation users
intersections.
Avoided
do not have safe methods
of travel along the
Reduced active transportation involved
Cyclists,
Active
corridor.
crashes with bike lanes and signalized
Pedestrians
Transportation
$0.97 M
crosswalks
Accident
Costs
Active transportation benefits from
Cyclists,
Active
expanded sidewalk width, signalized
Pedestrians
Transportation
$0.17 M
crosswalks, and bike lanes
Benefits
Residual value of infrastructure with a
Project
Residual
remaining useful life at the end of the
Value of
$0.68 M
study period
sponsors
Assets
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City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
The period of analysis used in the estimation of benefits and costs is 28 years, including 8 years of
construction and planning and 20 years of operation beginning in late 2031. The total project costs amount
to $15.9 million dollars (2024$) in capital costs as shown in Table ES-2 and Table ES-3.
Table ES-2: Annual Capital Expenditure, 2024 Undiscounted Dollars
Year
2024
Capital Expenditure
$0.4 M
2025
$0.1 M
2026
$0.3 M
2027
$0.3 M
2028
$2.4 M
2029
$3.2 M
2030
$7.8 M
2031
$2.0 M
Table ES-3: Capital Expenditure by Project Component, Undiscounted
ComponentProject
Previously Incurred Costs + NEPA
i
$1.2 M
$1.2 M
Construction
$9.2 M
$8.7 M
ROW
$5.2 M
$4.9 M
Engineering & Design
$2.0 M
$1.9 M
Based on the analysis presented in the rest of this document, the project is expected to generate
$12.6 million in discounted benefits and $11.7 million in discounted costs, using a 7 percent real discount
rate. Therefore, the project is expected to generate a net present value (NPV) of $0.9 million and a benefit -
cost ratio (BCR) of 1.1.
Table ES-4: Overall Results of the Benefit Cost Analysis, 2024 Dollars
Evaluation Metrics
Undiscounted
Discounted
Total Benefits
$40.0 M
$12.6 M
Total Costs
$16.6 M
$11.7 M
Net Present Value (NPV)
$0.9 M
Benefit -Cost Ratio (BCR)
2.4
1.1
Payback Period (years)
9.4 years
18.6 years
Internal Rate of Return (IRR)
7.1%
Constructing the modernized East-West Corridor would reduce travel times by creating roundabouts to
improve traffic flow, as well as signalized crosswalks, expanded sidewalk width, and dedicated bike lanes
to improve active transportation safety and trip quality along the corridor. The table below provides a
summary of the project benefits.
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City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
Table ES-5: Summary of Benefits
NPV Over Operations
Impact Categories
Undiscounted Discounted
Benefits
Travel Time Savings
$12.7 M
$4.2 M
Vehicle Operating Cost
$0.6 M
$0.2 M
Savings
Avoided CAC
$0.0 M
$0.0 M
Emissions
Avoided Accident
$19.1 M
$6.4 M
Costs
Avoided Active
Transportation
$2.8 M
$1.0 M
Accident Costs
Active Transportation
$0.5 M
$0.2 M
Benefits
Residual Value of
$4.2 M
$0.7 M
Assets
PV Benefits
$40.0 M
$12.6 M
Costs
Capital Cost
$16.6 M
$11.7 M
NPV
$23.4 M
$0.9 M
BCR
2.4
1.1
The benefits listed above are derived from the analysis of an average weekday peak -AM and PM hour of
traffic. As such, the results are conservative because there are no impacts quantified for 22 hours of the
day, or on weekends. Substantial delays also occur during off-peak hours, meaning that the Project would
generate additional travel time savings, reduced emissions and multi -modal crashes that are not captured
quantitatively in the benefit -cost analysis.
In addition to the quantified benefits highlighted in Table ES-5, the project would result in many benefits
that are difficult to quantify and are thus described qualitatively.
• Improved Travel Time Reliability
The replacement of signalized and unsignalized intersections with roundabouts would greatly
improve traffic fluidity and alleviate uncertainty regarding traffic delays and wait times, thereby
improving travel time reliability for all roadway users.
• Improved Connectivity
Reduction in delays and wait times will improve access to nearby businesses, schools, residences
and other public facilities.
• Off -Peak Travel Time Savings
The reconstruction of the East-West Corridor will reduce delays during off-peak hours. Traffic
microsimulations were only available for peak hours. Only a minority of traffic is captured in the
peak hours.
• Off -Peak Vehicle Operating Cost Savings
Reduced delays during off-peak hours will reduce the amount of fuel consumed while vehicles are
idling. Given the uncertainty around the avoided off-peak delays, the fuel savings were no possible
to monetize.
6
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City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
• Off -Peak Emissions Cost Savings
Reduced delays during off-peak hours will reduce the number of emissions released while vehicles
are idling. Given the uncertainty around the avoided off-peak delays, the emissions savings were
not possible to monetize.
• Improved Mobility and Supply Chain Resiliency
Improved connectivity to the East-West corridor through reduced travel delays will promote
economic growth and development in the area.
• Reduced Level of Traffic Stress for Users
Improved traffic fluidity and safety in this corridor will reduce the level of traffic stress experienced
by motorists and active transportation users. Improved multimodal facilities mitigate potential future
collision risks and allow all users to navigate the corridor more safely and efficiently.
2 Introduction
This document provides detailed technical information on the economic analyses conducted in support of
the BUILD Grant Application for the University Avenue Corridor Complete Street: East-West Connectivity
Project.
Section 2 — Introduction: Outlines the BCA document layout and structure to assist U.S. DOT reviewers.
Section 3 - Methodological Framework: Introduces the conceptual framework used in the benefit -cost
analysis (BCA).
Section 4 - Project Overview: Provides an overview of the project, including a brief description of existing
conditions and proposed alternatives; a summary of cost estimates and schedule; and a description of the
types of effects that the East-West Connectivity Project is expected to generate.
Section 5 - General Assumptions: Discusses the general assumptions used in the estimation of project
costs and benefits.
Section 6 — Demand Projections: Outlines estimates of travel demand and traffic volumes;.
Section 7 — Benefits Measurement, Data and Assumptions: Details the specific data elements and
assumptions used to address the goals of the project and to comply with program requirements.
Section 8 — Summary of Findings and Benefit -Cost Outcomes: Estimates the project's net present
value (NPV), its benefit -cost ratio (BCR), and other project evaluation metrics.
Section 9 — Benefit Cost Sensitivity Analysis: Provides the outcomes of the sensitivity analysis that
evaluates the impact that variations in key variables have on the overall project.
3 Methodological Framework
The BCA conducted for this Project includes monetized benefits and costs measured using U.S.
Department of Transportation (U.S. DOT) guidance, Benefit -Cost Analysis Guidance for Discretionary
Grant Programs, as well as the quantitative and qualitative merits of the Project. A BCA provides estimates
of the benefits that are expected to accrue over a specified period and compares them to the anticipated
costs. Costs include both the resources required to develop the Project and the costs of maintaining the
7
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Benefit Cost Analysis Supplementary Documentation
new or improved asset over time. Estimated benefits are based on the projected impacts of the Project on
both users and non -users of the facility, valued in monetary terms.'
While a BCA is just one of many tools that can be used in making decisions about infrastructure
investments, U.S. DOT believes that it provides a useful benchmark from which to evaluate and compare
potential transportation investments.
The specific methodology employed for this application was developed using the BCA guidance developed
by U.S. DOT and is consistent with the BUILD program guidelines. In particular, the methodology involves:
• Establishing existing and future conditions under the Base Case (No Build) and Alternative Case
(Build) scenarios;
• Assessing benefits with respect to each of the merit criteria identified in the Notice of Funding
Opportunity (NOFO);
• Measuring benefits in dollar terms, whenever possible, and expressing benefits and costs in a
common unit of measurement;
• Using U.S. DOT guidance for the valuation of safety benefits and reductions in air emissions, while
relying on industry best practice for the valuation of other effects;
• Discounting future benefits and costs with the real discount rate recommended by the U.S. DOT (7
percent); and
• Conducting a sensitivity analysis to assess the impacts of changes in key assumptions.
4 Project Overview
Dubuque is Iowa's oldest city, located on the banks of the Mississippi River. The Dubuque economy has
shifted from manufacturing to tourism, retail, healthcare, education, and financial service sectors over the
past 100 years, and now serves as the employment center for the tri-state region of Iowa, Illinois, and
Wisconsin. The University Avenue corridor in Dubuque primarily serves commercial development with
some residential properties located west of Asbury Road and east of Loras Boulevard, and is located in
close proximity to the University of Dubuque, Clarke University, and Loras College. University Avenue runs
parallel to U.S. 20, a major federal highway that carries through -traffic across Dubuque. As the community
has grown, more drivers are diverting to secondary roads like University Avenue. Future traffic projections
indicate that U.S. 20 alone will not provide sufficient capacity for east -west travel in the community. Capacity
along alternate east -west corridors like University Avenue needs to be improved to provide connectivity
between western growth areas and downtown.
University Avenue itself experiences heavy vehicular traffic already, with high traffic volume contributing to
congestion, infrastructure wear and tear, increased air pollution, and safety hazards. A major contributor to
these issues is heavy through -traffic mixing with frequent turning movements, creating bottlenecks at
signalized and unsignalized intersections. Left turning vehicles must often wait in the same lane as through -
traffic, causing queues to spill back and disrupt progression. Right turning vehicles can create similar friction
where vehicles decelerate to turn without a separate lane, causing delays. These conditions not only
lengthen travel times and make access less predictable for drivers but also heighten the potential for rear
end conflicts. Several intersections along University Avenue present safety concerns due to their geometry
and alignment. In particular, the intersection with McCormick Street and Loras Boulevard is poorly aligned,
creating an offset condition that confuses drivers and complicates turning movements through reduced
' U.S. DOT, Benefit -Cost Analysis Guidance for Discretionary Grant Programs, December 2025.
8
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sight clarity and unexpected vehicle paths. These hazardous conditions are only amplified during periods
of high traffic volume when gaps in traffic are harder to judge.
University Avenue is prioritized in the East Central Iowa Transportation Safety Plane for reducing crashes,
with intersections on Asbury Road and McCormick Street being rated as high crash, high injury intersections
according to the 2025 Potential for Crash Reduction screening data. Crashes at these intersections are
above the statewide crash rate for similar facilities, and are rated in the top 3.5% and 1.8% highest
statewide, respectively.
In addition to safety concerns for drivers, pedestrians and cyclists also suffer from an unsafe environment.
The roadway experiences regular pedestrian crossings throughout the day as students travel between
campus buildings, housing, and nearby services. The heavy flow of vehicles and limited opportunities for
safe crossings can create uncomfortable and risky situations, especially during peak travel periods.
Additionally, there are no bike lanes along University Avenue in the project area, which creates unsafe
conditions for cyclists.
The East-West Connectivity Project will improve the current conditions in the area by:
• Converting University Avenue intersections with Pennsylvania Avenue, Asbury Road, Loras
Boulevard, and Delhi Street into roundabouts and realigning Loras Boulevard and McCormick
Street to create a four -legged intersection to improve traffic flow, reduce congestion, and enhance
travel time reliability.
• Improving safety through installing roundabouts and improving intersection alignments.
• Enhancing crosswalks with rapid rectangular flashing beacons near Pennsylvania Avenue, Asbury
Road, Loras Boulevard, and Delhi Street roundabouts to improve pedestrian safety.
• Installing wider continuous sidewalks and dedicated bike lanes along University Avenue to
improve active transportation trip quality and safety.
• Reducing motorists' carbon footprint and vehicle operating costs from idling.
4.1 Base Case and Alternative Case
4.1.1 Base Case
The Base Case for the East-West Connectivity Project is defined as the No Build scenario. In the Base
Case, the University Avenue corridor is not reconstructed. The rapidly increasing traffic in the area results
in excessive vehicle queueing during peak and off-peak hours, causing significant delays for all roadway
users. Pedestrians and cyclists will continue to experience unsafe conditions, and crashes will continue to
increase.
4.1.2 Alternative Case
The Alternative Case is defined as the Build Scenario. In the Build case, the existing intersections on the
corridor are replaced with roundabouts. Additionally, enhanced crosswalks are added at each of the
2 East Central Iowa Transportation Safety Plan, prepared by East Central Intergovernmental Association
& Iowa State University Institute for Transportation, 2025; East Central Iowa Transportation Safety Plan
Adopted.pdf
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roundabouts, continuous wider sidewalks are installed along the corridor, and a dedicated bike lane is
created. As a result, traffic lights would be eliminated, increasing traffic fluidity and greatly reducing delay
for all roadway users. Pedestrian and cyclist crashes would be reduced, and both pedestrian and cyclist
trip quality would be improved. Overall, the Project is expected to yield significant societal benefits to all
users.
4.2 Project Costs & Components
Table 6 summarizes the total project cost including previously incurred costs.
Table 6: Total Project Cost Components, Undiscounted
Cost
Preliminary Engineering + NEPA3
2026$
$1,190,175
i
$1,153,873
Construction
$9,203,125
$7,809,564
ROW
$5,201,000
$4,599,448
Engineering & Design
$2,030,000
$1,743,954
Total Project Cost4
$17,624,300
$15,306,840
4.3 Merit Criteria
The main benefit categories associated with the project are mapped into the merit criteria set forth by U.S.
DOT in the table below.
Table 7: Exoected Effects on Merit Criteria Outcomes and Benefit Cateaories
Criteria
CategoryMerit
Benefit
Description
Improved safety from intersection
Yes
-
Improved Safety from
improvements during Peak Hours.
Improved safety from intersection
Yes
Interchange Improvements
Safety
improvements during Off -Peak Hours.
Improved Active
Improved safety from crosswalk and
Yes
-
Transportation Safety
bike lane improvements.
Avoided criteria air contaminants
(CAC) emissions costs from reduced
Yes
-
vehicle idling at the interchange during
Environmental
Reduced Air Emissions -
Peak Hours.
Sustainability
CAC
Avoided criteria air contaminants
(CAC) emissions costs from reduced
_
Yes
vehicle idling at the interchange during
Off -Peak Hours.
Improved access to nearby
Improved Connectivity
businesses, schools, residences and
-
Yes
other public facilities.
Quality of Life
Improved traffic fluidity and safety will
Reduced Traffic Stress
reduce the level of traffic stress
_
Yes
experienced by motorists and active
transportation users.
3 Spent prior to grant award.
4 Costs shown exclude escalation.
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Criteria
CategoryMerit
Benefit
Qualitative
Reduced delays at traffic lights and
excess vehicle queuing at
intersections will improve travel time
Mobility and
reliability as there will be a significantly
Community
Improved Travel Time
lower chance for drivers to be delayed
-
Yes
Connectivity
Reliability
thus reducing the unpredictability of
trips in the area. This also allows both
short and long -haul trucks to
experience improved delivery
timeliness.
Reduced delays from conversion to
roundabouts at intersections along
Yes
-
University Avenue during peak hours.
Travel Time Savings
Reduced delays from conversion to
roundabouts at intersections along
_
Yes
University Avenue during off-peak
hours.
Reduced vehicle operating costs (fuel,
Economic
motor oil) as a result of a reduction in
Yes
-
Competitiveness
vehicle idling at the intersections
and Opportunity
Reduced Vehicle Operating
during Peak Hours.
Reduced vehicle operating costs (fuel,
Costs
motor oil) as a result of a reduction in
_
Yes
vehicle idling at intersections during
Off -Peak Hours.
Improved connectivity to the corridor
Improved Mobility & Supply
through reduced travel delays will
_
Yes
Chain Resiliency
promote economic growth and
development in the area.
State of Good
Residual Value of Capital
Residual value of capital assets.
Yes
-
Repair
Assets
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5 General Assumptions
The BCA measures benefits against costs throughout a period of analysis, beginning at the start of
construction and including 20 full years of operations. The monetized benefits and costs are estimated in
2024 dollars, with future dollars discounted in compliance with U.S. DOT BUILD requirements.
The methodology makes several important assumptions and seeks to avoid overestimation of benefits and
underestimation of costs. Specifically:
• Input prices are expressed in 2024 dollars;
• The period of analysis begins in 2024 and ends in 2051; it includes project development and
construction years (2024-2031) and 20 full years of operations (2031-2051); and
• A constant 7 percent real discount rate is assumed throughout the period of analysis.
6 Demand Projections
Accurate demand projections are important to effectively estimate the benefits in a BCA. Demand
projections for this project were estimated based on traffic demand models in combination with recent
annual average daily traffic (AADT) provided by the City, and population growth forecasts for the State of
Iowa, published by Woods & Poole Economics for the State Data Center of Iowa.5
6.1 Methodology
Traffic and delays were estimated using the Synchro Traffic Demand model. Base year values were
obtained for 2022, with forecast values for 2030 and 2050 in the Build and No -Build cases for each
intersection along the corridor. HDR interpolated the growth rate for the years in between to generate
benefits at an annual level. AADT and delay data was available for one peak AM and peak PM hour per
day. These values were annualized, assuming 260 weekdays per year. As such, the benefits related to
traffic and delays are conservative.
6.2 Demand Projections
The resulting projections for annual average daily traffic (AADT) volumes along the University Avenue
corridor as well as expected hours of vehicle delay (Base Case) are presented in the table below.
Table 8: Demand Projections
Case
First Year of Benefits-0
2050
Peak Hour AADT
8,342,065
8,675,743
9,041,500
No Build
Total Hours of Daily Peak
103.4
123.9
152.8
Delay
Peak Hour AADT
8,569,567
8,896,802
9,275,500
Build
Total Hours of Daily Peak
38.8
43.3
49.2
Delay
'Peak Hour AADT and delay metrics each include one peak AM and one peak PM hour.
5 State Data Center of Iowa:Census Demographics-Population,Housing
,Economy, Government Statistics
-
Proiections
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7 Benefits Measurement, Data and Assumptions
This section describes the measurement approach used for each benefit or impact category identified in
Table ES-5 and provides an overview of the associated methodology, assumptions, and estimates. The
assumptions in Table 9 were used in the estimation of all benefits.
Table 9: General Assumptions used in the Benefit -Cost Analysis
Variable Name
Unit
Value
Source
Discount Rate
%
7%
U.S. DOT Benefit -Cost Analysis Guidance for Discretionary
Grant Programs. November 2024.
Annualization Factor
days
260
Weekdays per year
Construction Start Year
year
2024
Project Schedule
Construction End Year
year
2031
Project Schedule
First Full Year of Benefits
year
2032
Project Schedule
Truck Share of Traffic
%
2%
Weighted average of current truck volumes on University
Avenue
Automobile Share of Traffic
%
98%
Calculated from percentage of trucks
7.1 Safety Outcomes
Crash costs and impacts on life, limb, and property are a significant component of road user costs. Road
safety is a key economic factor in the planning of roads, as well as an important indicator of transportation
efficiency, while outside the economic context, highway safety is often the subject of public concern.
The Project would help improve safety outcomes by removing friction from turning vehicles by creating
more dedicated turning lanes. Furthermore, the one-way travel pattern associated with the roundabout
reduces the likelihood of T-bone and head-on collisions. The Project will also implement several
improvements in support of improved safety for multi -modal users, including wider sidewalk and bike lane
facilities, rectangular rapid flashing beacons at crossings, and improved lighting.
7.1.1 Methodology
The average number of vehicular crashes by injury type were estimated for all years from 2022 to 2050 for
Fatal & Injury and Property Damage Only in the Build and No Build cases. Fatal & Injury crashes were
distributed into KABCU crash types by assuming a constant percentage of crash types based on the
previous 5 years of crash data obtained from the Iowa Crash Analysis Too16 for years 2021-2026.
No Build active transportation crashes were estimated using 5 years of historical data for only pedestrian
and cyclist involved crashes from the Iowa Crash Analysis tool for years 2021-2026. These crashes by type
were then distributed by severity based on the percentage of crash types over the 5 previous years. The
crash rates were inflated annually by the average annual Dubuque County population growth rate from
2000-2025 from the Iowa Data Center?
The Build case for active transportation crashes was estimated based on the project improvements being
installed for each transportation type. For pedestrians, new signalized crosswalks are being installed, and
as such a Crash Modification Factor of 31 % for Rectangular Rapid Flashing Beacons was used. For cyclists,
6 Iowa Crash Analysis Tool (ICAT)
https://www.iowadatacenter.org/browse/pro'ections.htmi
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a new dedicated bike lane is being built, so a CMF of 73.4% for Bicycle Lane Additions while Reducing
Lane and Shoulder Widths was used.
As can be seen in Table 10 and Table 11, research finds similar crash reduction values for the
implementation of Rectangular Rapid Flashing Beacons and Bicycle Lane Additions, respectively.
Table 10: Comparison of Pedestrian Crash Modification Factors
Variable Name Value CMF ID Crash Types
Install rectangular rapid flashing beacon* 0.31 CMF Clearinghouse. ID 11158 All
Install rectangular rapid flashing beacon 0.3 CMF Clearinghouse. ID 11168 Fatal & Injury
Install rectangular rapid flashing beacon 0.27 CMF Clearinghouse. ID 11169 Injury
*Factor used in this analysis.
Table 11: Comparison of Cyclist Crash Modification Factors
Variable Name Value CMF ID Crash Types
Install bic cle lanes* 0.734 CMF Clearinghouse. ID 10741 All
Install bicycle lanes 0.694 CMF Clearinghouse. ID 10742 All
Install bicycle lanes 0.649 CMF Clearinghouse. ID 10743 All
*Factor used in this analysis.
The predicted crashes were monetized by crash type using the values recommended by the United States
Department of Transportation's December 2025 Benefit -Cost Analysis Guidance for Discretionary Grant
Programs release.
7.1.2 Assumptions
The program is expected to generate substantial benefits for the Safety merit criteria, with the specific
benefits described below. The safety benefits are monetized using the assumptions presented in Table 12.
Table 12: Assumptions used to Monetize Safety Benefits
Variable Name
Cost of Fatalities
Unit
2024$/fatality
Value
$13,700,000
Source
U.S. DOT Benefit -Cost Analysis Guidance for
Discretionary Grant Programs
Cost of Serious Injuries
2024$/injury
$1,302,300
Cost of Minor Injuries
2024$/injury
$256,300
Cost of Possible Injuries
2024$/injury
$122,400
Cost of Unknown Injuries
2024$/injury
$238,500
Cost of Property Damage
2024$/crash
$5,500
7.1.3 Benefit Estimates
The table below highlights the benefits generated by the Project, which are the sum of avoided vehicle,
pedestrian, and cycling accidents. The estimated present value of discounted benefits over a 20-year period
is $6.4 million.
Table 13: Estimates of Safety Benefits
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7.2 Environmental Sustainability Outcomes
Environmental costs are increasingly considered an important component in the evaluation of transportation
projects. The primary environmental impact of vehicle use is exhaust emissions, which impose wide-ranging
social costs on people, material, and vegetation. The negative effects of pollution depend not only on the
quantity of pollution produced, but also on the types of pollutants emitted as well as the local environmental
conditions into which the pollution is released. The Project is expected to reduce emissions on the corridor
by decreasing idling due to decreased vehicle delay times.
7.2.1 Reduced Air Emissions
The change in vehicle delay time at the University Avenue corridor is used to estimate the total fuel
consumption while idling by vehicle type. The total estimated vehicle delay times are multiplied by the
appropriate emission factors for tons of for NOX, PM2.5, and SOX per hour of vehicle idling.8 Each pollutant
is then multiplied by its monetary value to get the total emission cost impact due to vehicle delay time. The
BCA quantifies environmental sustainability outcomes by estimating and monetizing the net reduction in
emissions due to reduced vehicle delay time on the University Avenue corridor, where the assumptions
used to monetize the reduction in emissions are summarized in Table 14 through Table 16.
Table 14: Assumptions used in the Estimation of Environmental Benefits - Emission Values
Year
2025
NOx
$21,600
PM2.5
$1,054,000
sox
$59,000
Office of the Secretary. Benefit -Cost Analysis
Guidance for Discretionary Grant Programs,
Table A-6. U.S. Department of
Transportation. December2025. Obtained
from:
https://www.transportation.gov/mission/office-
secretary/office-policy/transportation-
policy/benefit-cost-analysis-guidance
2026
$22,000
$1,070,700
$60,100
2027
$22,500
$1,087,800
$61,100
2028
$22,900
$1,105,100
$62,200
2029
$23,300
$1,122,600
$63,400
2030
$23,800
$1,140,500
$64,500
2031
$23,800
$1,140,500
$64,500
2032
$23,800
$1,140,500
$64,500
2033
$23,800
$1,140,500
$64,500
2034
$23,800
$1,140,500
$64,500
2035
$23,800
$1,140,500
$64,500
2036
$23,800
$1,140,500
$64,500
2037
$23,800
$1,140,500
$64,500
2038
$23,800
$1,140,500
$64,500
2039
$23,800
$1,140,500
$64,500
2040
$23,800
$1,140,500
$64,500
2041
$23,800
$1,140,500
$64,500
2042
$23,800
$1,140,500
$64,500
2043
$23,800
$1,140,500
$64,500
2044
$23,800
$1,140,500
$64,500
2045
$23,800
$1,140,500
$64,500
2046
$23,800
$1,140,500
$64,500
2047
$23,800
$1,140,500
$64,500
2048
$23,800
$1,140,500
$64,500
2049
$23,800
$1,140,500
$64,500
8 A vehicle speed of 5 mph was used to estimate idling emissions rates using the EPA's MOVES tool.
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Table 15: Assumptions used in the Estimation Environmental Sustainability Benefits - Autos
Year
2025
Emissions per Gallon
NOx
0.7044
of Fuel Burned - Passenger Vehicles
PM2.5
0.0255
(grams/veh-hour)
sox
0.0319
Based on MOVES
average annual
emission factors for
passenger vehicles in
Dubuque County in
Iowa. Assuming idling
vehicles have emissions
similar to vehicles
traveling 5 mph. Moves
model run in February
2026.
2026
0.6332
0.0247
0.0311
2027
0.5692
0.0239
0.0304
2028
0.5116
0.0231
0.0297
2029
0.4599
0.0224
0.0290
2030
0.4134
0.0216
0.0283
2031
0.3578
0.0203
0.0272
2032
0.3097
0.0191
0.0262
2033
0.2680
0.0180
0.0252
2034
0.2320
0.0169
0.0242
2035
0.2007
0.0159
0.0233
2036
0.1737
0.0149
0.0224
2037
0.1504
0.0140
0.0216
2038
0.1301
0.0132
0.0208
2039
0.1126
0.0124
0.0200
2040
0.0975
0.0117
0.0192
2041
0.0852
0.0102
0.0187
2042
0.0744
0.0088
0.0182
2043
0.0650
0.0077
0.0177
2044
0.0568
0.0067
0.0172
2045
0.0496
0.0058
0.0167
2046
0.0433
0.0051
0.0162
2047
0.0378
0.0044
0.0158
2048
0.0331
0.0039
0.0153
2049
0.0289
0.0034
0.0149
2050
0.0252
0.0029
0.0145
2051
0.0248
0.0027
0.0144
Table 16: Assumptions used in the Estimation Environmental Sustainability Benefits - Trucks
2025 63.82
0.82
0.048
Based on MOVES
average annual emission
factors for passenger
vehicles in Dubuque
County in Iowa.
Assuming idling vehicles
have emissions similar to
vehicles traveling 5 mph.
2026 59.63
0.69
0.047
2027 55.71
0.59
0.046
2028 52.06
0.50
0.046
2029 48.64
0.42
0.045
2030 45.45
0.36
0.044
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Year
2031
Emissions per
•sox
43.17
Gallon of Fuel Burned - Trucks
0.32
(grams/veh-hour)
0.043
Source/Comment
Moves model run in
February 2026.
2032
41.00
0.28
0.043
2033
38.95
0.25
0.043
2034
36.99
0.22
0.042
2035
35.14
0.19
0.042
2036
33.38
0.17
0.042
2037
31.70
0.15
0.041
2038
30.11
0.13
0.041
2039
28.60
0.12
0.041
2040
27.17
0.10
0.041
2041
26.58
0.09
0.040
2042
26.00
0.09
0.040
2043
25.44
0.08
0.040
2044
24.88
0.07
0.040
2045
24.34
0.07
0.040
2046
23.82
0.06
0.040
2047
23.30
0.06
0.040
2048
22.79
0.05
0.040
2049
22.30
0.05
0.040
2050
21.81
0.04
0.039
2051
21.66
0.04
0.039
7.2.2 Benefit Estimates
The table below shows the benefit estimates of reducing vehicle delay times and associated emissions.
The estimated present value of discounted benefits over a 20-year period is just over $5 thousand.
Table 17: Estimates of Environmental Sustainability Benefits
7.3 Economic Competitiveness and Opportunity
This project is expected to improve the economic competitiveness of the region through reducing vehicle
idling time at the existing interchange and thereby reducing vehicle operating costs and improving travel
time reliability.
7.3.1 Travel Time Savings
Travel time savings will be generated for motorists (automobiles and trucks) on the University Avenue
corridor. Reduced wait times and vehicle queues from the conversion of intersections to roundabouts will
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lead to decreased vehicle travel time costs which are monetized using DOT guidance for value of time of
automobile drivers and passengers, as well as heavy vehicle truck drivers. Out-of-pocket vehicle operating
cost savings will accrue from decreased vehicle wait times and idle fuel consumption.
Traffic delay times at the interchange for both the Build and No Build scenarios were also extracted from
the University Avenue Corridor Traffic study, which were calculated using the latest version of the Highway
Capacity Manual (HCM) and Synchro 10 analysis software.
Value of time by vehicle type, as well as occupancy assumptions for both automobiles and trucks are
available in the Benefit -Cost Analysis Guidance for Discretionary Grant Applications published by U.S.
DOT. The estimate for travel time savings is the product of hours of delay, vehicle occupancy, and
respective value of time.
The assumptions used in the estimation of travel time savings benefits are summarized in the table below.
Table 18: Assumptions used in the Estimation of Travel Time Savings
Variable Name
Unit
Value
Source
Auto Occupancy
persons/vehicle
1.34
U.S. DOT, BCA Guidance December 2025;
2022 National Household Travel Survey.
Truck Occupancy
persons/vehicle
1
Assumption for commercial trucks.
Value of Time for Automobile
2024$/hour
$21.80
U.S. DOT, BCA Guidance December 2025;
Driver and Passenger
Revised Departmental Guidance on Valuation
of Travel Time in Economic Analysis (2016).
Value of Time for Truck Driver
2024$/hour
$37.20
7.3.2 Reduced Vehicle Operating Costs
In addition to travel time impacts, out-of-pocket cost savings were monetized based on the change in delay
time and associated fuel and motor oil consumed while idling.
The reduction in vehicle idling time on the University Avenue corridor will translate into lower vehicle
operating costs from reduced fuel and motor oil consumption in the Build scenario. The change in vehicle
delay time (by vehicle type and by year) is multiplied by the associated vehicle fuel consumption rate to
obtain annual estimates of fuel consumption from idling. This multiplied by the cost per gallon of fuel
provides an estimate of the change in fuel costs. The same methodology is applied to estimate the change
in motor oil consumption and costs. The sum of the fuel and motor oil costs produces an estimate for the
overall vehicle operating cost impacts due to vehicle delay time on the corridor.
The assumptions used in the estimation of reduced vehicle operating costs are summarized in the tables
below.
Table 19: Assumptions used in the Estimation of Vehicle Operating Cost Savings
Variable Name
Unit
Value
Source
U.S. DOE: Alternative Fuels Data Center and Argonne
Gasoline Burned at Idle - Autos
gallons/hour
0.36
National Laboratory, "Idle Reduction Savings
Worksheet" (2018) - Average of gasoline passenger
vehicles.
Diesel Fuel Burned at Idle -
U.S. DOE: Alternative Fuels Data Center and Argonne
Trucks
gallons/hour
0.49
National Laboratory, "Idle Reduction Savings
Worksheet" 2018 - Combination Trucks.
Motor Oil Consumption at Idle -
quarts/hour
0.0345
Based on U.S. DOT: HERS-ST Highway Economic
Autos
Requirements System (2002) oil consumption of
1.38gt/1000 miles and assuming that "One hour of idle
Motor Oil Consumption at Idle -
quarts/hour
0.0345
time is equal to approximately 25 miles of driving" (Ford
Trucks
Motor Company, 2011
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Variable Name Unit Value Source
Cost of Motor Oil - Autos 2024$/quart $12.56 Average Oil Price Sourced from HERS Model (BLS
Cost of Motor Oil - Trucks 2024$/quart $5.02 CUUROOOOSS47021). Inflated to 2024$ using GDP
deflator.
Table 20: Assumptions used in the Estimation of Vehicle Operating Cost Savings - Fuel Costs
Unit
Year
Gasoline
Diesel
Source
Fuel Costs
$/gallon
2024
$3.45
$3.75
Based on
forecast of
transportation
fuel costs
less Federal
and States
taxes. Data
obtained from
US EPA's
Annual
Energy
Outlook 2025
Release.
2025
$3.26
$3.52
2026
$3.06
$3.43
2027
$3.00
$3.43
2028
$2.97
$3.46
2029
$2.93
$3.50
2030
$2.93
$3.54
2031
$2.93
$3.55
2032
$2.91
$3.53
2033
$2.90
$3.58
2034
$2.90
$3.60
2035
$2.88
$3.64
2036
$2.88
$3.66
2037
$2.86
$3.68
2038
$2.82
$3.70
2039
$2.81
$3.72
2040
$2.80
$3.75
2041
$2.74
$3.77
2042
$2.71
$3 79
2043
$2.71
$3.84
2044
$2.59
$3.87
2045
$2.60
$3.88
2046
$2.55
$3.91
2047
$2.58
$4.00
2048
$2.59
$4.01
2049
$2.60
$4.00
2050
$2.62
$4.01
2051
$2.62
$4.01
7.3.3 Benefit Estimates
The table below highlights the economic competitiveness benefits as a result of replacing the signalized
intersections with roundabouts, reducing wait times and costs associated with vehicle idling. The estimated
present value of discounted benefits over a 20-year period is $4.4 million.
Table 21: Estimates of Economic Competitiveness Benefits
Travel Time Savings $12,712,203 $4,153,077
Reduced Vehicle Operating $614,904 $203,186
Costs
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7.4 State of Good Repair Outcomes
7.4.1 Change in O&M Costs
It is assumed that any incremental O&M costs of new Project components will be offset by the improved
condition of existing roadways that will no longer require maintenance after being replaced. Therefore, no
net O&M costs are factored into the BCA.
7.4.2 Residual Value of Capital Assets
The residual value is included to quantify the benefits associated with new infrastructure with a useful life
beyond the study period.
The proposed project would contribute to the state of good repair by converting existing intersections to
roundabouts, improving existing crosswalks, and adding a dedicated bike lane. Due to the 20-year time
period considered for this analysis, no project assets are expected to hold residual value at the end of the
analysis period except for Right of Way Costs, which are assumed to hold 100% of their value in perpetuity.
The assumptions used in the estimation of the residual value of capital assets are summarized in Table 22.
Table 22: Assumptions used in the Estimation of the Residual Value of Capital Assets
Variable Name Unit Value Source
Per Transportation for America which indicates roadway
Useful Life of Roadway years 20 improvements have an expected lifespan of 20 years, even
Improvements if individual components of the project may have a 30-year
lifespan.
Depreciable Project 2024$ $11,719,449 Cost data provided by the MSA Professional Services.
Costs
Right of Way Acquisition 2024$ $4,209,379 Cost data provided by the MSA Professional Services.
7.4.3 Benefit Estimates
The table below shows the estimated State of Good Repair benefits generated by the Project. The
estimated present value of discounted benefits over a 20-year period is $0.7 million.
Table 23: Estimates of State of Good Repair Benefits
8 Summary of Findings and Benefit -Cost
Outcomes
The tables below summarize the BCA findings. Annual costs and benefits are computed over the lifecycle
of the project (28 years). As stated earlier, construction is expected to be completed by early 2031 with
2032 being the first full year of benefits. Benefits will accrue for approximately two thirds of 2031, with full
benefits accruing in 2032-2050, and one third of the year of benefits accruing in 2051 for a full 20-year
benefits period.
20
Page 679 of 939
City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
Table 24: Overall Results of the Benefit Cost Analysis, 2024 Dollars
Evaluation Metrics
Undiscounted
Discounted
Total Benefits
$40.0 M
$12.6 M
Total Costs
$16.6 M
$11.7 M
Net Present Value (NPV)
$0.9 M
Benefit -Cost Ratio (BCR)
2.4
1.1
Payback Period (years)
9.4 years
18.6 years
Internal Rate of Return (IRR)
7.1%
Considering all monetized benefits and costs, the estimated internal rate of return of the project is 7.1
percent. With a 7 percent real discount rate on all other impacts, the $11.7 million investment would result
in $12.6 million in total benefits for a Net Present Value of $0.9 million and a Benefit/Cost ratio of 1.1.
The project yields substantial societal benefits. It is important to recognize that the full benefits of the Project
are far greater than those quantified, given that the traffic simulation model only captures one hour of peak
AM and one hour of peak PM weekday traffic, which only account for a small share of total daily traffic. As
such, these results are deemed to be highly conservative.
Table 25: Summary of Project Benefits
Impact Categories NPV Over i Years of Operations
Undiscounted Discounted
Benefits
Travel Time Savings
$12.7 M
$4.2 M
Vehicle Operating Cost
$0.6 M
$0.2 M
Savings
Avoided CAC Emissions
$0.0 M
$0.0 M
Avoided Accident Costs
$19.1 M
$6.4 M
Avoided Active
Transportation Accident
$2.8 M
$1.0 M
Costs
Active Transportation
$0.5 M
$0.2 M
Benefits
Residual Value of Assets
$4.2 M
$0.7 M
PV Benefits
$40.0 M
$12.6 M
Costs
Capital Cost
$16.6 M
$11.7 M
NPV
$23.4 M
$0.9 M
BCR
2.4
1.1
9 Benefit Cost Sensitivity Analysis
9.1 Variation in Key Inputs and Assumptions
The BCA outcomes presented in the previous sections rely on a large number of assumptions and long-
term projections; both of which are subject to considerable uncertainty.
The primary purpose of the sensitivity analysis is to help identify the variables and model parameters whose
variations have the greatest impact on the BCA outcomes: the "critical variables."
21
Page 680 of 939
City of Dubuque I East-West Corridor Project ���
Benefit Cost Analysis Supplementary Documentation
The sensitivity analysis can also be used to:
• Evaluate the impact of changes in individual critical variables — how much the final results would
vary with reasonable departures from the "preferred" or most likely value for the variable; and
• Assess the robustness of the BCA and evaluate whether the conclusions reached under the
"preferred" set of input values are significantly altered by reasonable departures from those values.
The outcomes of the sensitivity analysis for the East-West Connectivity Project are summarized in the table
below. The table provides the percentage changes in project NPV associated with variations in variables
or parameters, as indicated in the column headers.
Table 26: Quantitative Assessment of Sensitivity, Summary (Discounted)
Original
BCR
Parameters
Parameters
(Discounted at 7%)
Change(Discounted in NPV
IBCR
Increase
capital costs
-$0.8
-186.0%
0.9
Change in
by 15%
Decrease
Capital Costs
capital costs
$2.7
+186.0%
1.3
by 15%
Change in
Annualization
365 Days
$2.8
+193.7%
1.2
Factor
$0.9 M
1.1
Reduced Vehicle
Decrease
Delay
Vehicle Delay
-$0.1
-115.8%
1.0
by 25 /o
Increased
Increase No -
Vehicle Delay
Build Vehicle
$2.0
+115.8%
1.2
Delay by 25 /°
CO2 Emissions
Yes
$1.1
+14.3%
1.1
Included
Higher Share of
Increase truck
$1.0
°
+11.3/°
1.1
Truck Traffic
traffic to 10%
The sensitivity analysis was found to be most sensitive to changes to the annualization factor, with an
increase of the annualization factor to 365 days resulting in a 193.7% gain to the NPV. This is closely
followed by the capital costs, which result in an 186% change in NPV from a 15% increase or decrease in
costs. The benefit -cost analysis results are extremely conservative, given that the project only considers
the impacts of two peak hours of weekday traffic. The Project will result in beneficial impacts to stakeholders
and society, beyond what is able to be quantified in the BCA.
22
Page 681 of 939
LETTERS OF SUPPORT
1. Representative Ashley Hinson (sent separately)
2. Senator Chuck Grassley (sent separately)
3. Senator Joni Ernst (sent separately)
4. Chandra Ravada, Director of Transportation, Planning, and Transit Services,
Dubuque Metropolitan Area Transportation Study
5. Amy Hawkins, Superintendent, Dubuque Community Schools
6. Michael Doyle, JD, President, Loras College
7. Nancy Van Milligen, President & CEO, Community Foundation of Greater
Dubuque
8. Chad Wolbers, CEO, Crescent Community Health Center
9. Molly Grover, President & CEO, Dubuque Area Chamber of Commerce
10.Debi Butler, Board President, Dubuque Forward
11.Jason White, President & CEO, Greater Dubuque Development Corporation
Page 682 of 939
February 11, 2026
The Honorable Sean Duffy
Secretary of Transportation ECIA
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590 6M
Re: Strong Support for City of Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy,
I am writing on behalf of the Dubuque Metropolitan Area Transportation Study (DMATS), the
Metropolitan Planning Organization (MPO) for the Dubuque metro area. We want to express
our strong support for the "Better Utilizing Investments to Leverage Development" (BUILD)
grant application submitted by the City of Dubuque to the U.S. Department of Transportation
(DOT).
The City of Dubuque is seeking DOT BUILD capital funds to enhance mobility and safety
along University Avenue. This corridor serves residents, college students, visitors, and local
businesses, and it presents opportunities for improved multimodal connectivity.
The proposed BUILD funds will play a crucial role in Dubuque's plan to convert three
intersections into roundabouts, improve accommodation for pedestrians and cyclists, and
implement a series of roadway realignments, turn -lane additions, and cross-section
modifications along University Avenue.
DMATS strongly supports the initiative to construct the East-West Corridor Connectivity
project, which aims to enhance East-West connectivity within the community, alleviate
congestion, reduce the risk of fatal and serious injury crashes, and ensure that the corridor
operates safely and efficiently as traffic volumes increase.
Additionally, DMATS has identified this project as one of the top needs in the metropolitan
area and listed it as a major improvement in its Long -Range Transportation Plan (LRTP),
acknowledging the significant regional impact it is expected to have in the DMATS region.
We sincerely request your support for the City of Dubuque's BUILD funding application. Your
thoughtful consideration of this grant application is greatly appreciated.
Thank you for your time and consideration.
Chandra Ravada,
Director of Transportation, Planning and Transit Services
Dubuque Metropolitan Area Transportation Study
Page 683 of 939
Amy Hawkins I Superintendent ofSchoois
ahawkins@dbgschools.org I P 563/552-3012 I F 563/552-3014
2300 Chaney Road I Dubuque, Iowa 52001-3059 1 www.dbgschools.org
Dubuque
COMMUNITY SCHOOLS
February 12, 2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy,
On behalf of the Dubuque Community School District, I'd like to share our strong support for the
City of Dubuque's "Better Utilizing Investments to Leverage Development" (BUILD) application
to the U.S. Department of Transportation (DOT).
Dubuque seeks BUILD capital funds to advance mobility and safety improvements along
University Avenue. This corridor supports residents, college students, visitors, and local
businesses, and presents opportunities for enhanced multimodal connectivity. DOT assistance
will help Dubuque plan infrastructure upgrades that accommodate motorists, pedestrians,
bicyclists, and users of all ages and abilities. The proposed improvements will help improve East-
West connectivity in the community, relieve congestion, reduce the risk of fatal and serious
injury crashes, and ensure the corridor operates safely and efficiently as traffic volumes increase.
The Dubuque Community School District supports Dubuque's effort to convert three
intersections to roundabouts, improve pedestrian and bicycle accommodations, and construct a
series of roadway realignments, turn lane additions, and cross-section modifications along
University Avenue.
As a school district, student safety is paramount to our work. Improving pedestrian and
vehicular safety - especially in close proximity to schools - will ensure that arrival and
dismissal times are safer for students and lower the risk of dangerous accidents.
Thank you for your full, thoughtful consideration of Dubuque's application for DOT BUILD
funding. We are confident that it will make our community a stronger and safer.
Sincerely,
'M'
t �"
Amy Haw i s
Superintendent of Schools
Page 684 of 939
OFFICE OF THE PRESIDENT
1450 Alta Vista Street
Dubuque, 1A 52001
563.588.7103
February 23, 2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy:
I write on behalf of Loras College to convey our strong support for the City of Dubuque's "Better Utilizing
Investments to Leverage Development" (BUILD) application to the U.S. Department of Transportation (DOT).
Dubuque seeks BUILD capital funds to advance mobility and safety improvements along University Avenue. This
corridor supports residents, college students, visitors, and local businesses, and presents opportunities for enhanced
multimodal connectivity. DOT assistance will help Dubuque plan infrastructure upgrades that accommodate
motorists, pedestrians, bicyclists, and users of all ages and abilities. The proposed improvements will help improve
East-West connectivity in the community, relieve congestion, reduce the risk of fatal and serious injury crashes,
and ensure the corridor operates safely and efficiently as traffic volumes increase.
Loras supports Dubuque's effort to convert three intersections to roundabouts, improve pedestrian and bicycle
accommodations, and construct a series of roadway realignments, turn lane additions, and cross-section
modifications along University Avenue. These upgrades are critical in the community because they provide
necessary infrastructure to ensure our students and community can safely access the many community resources in
this area. Loras takes pride in the number of our students who work, engage in clinicals, and student teach in the
community. This initiative provides needed access to these important areas.
Please give the highest consideration to Dubuque's application for DOT BUILD funding. Thank you very much.
Fla
Michael H. Doyle J.D. ('91)
President
Loras College
J#��
Community
The Honorable Sean P. Duffy
Foundation
Secretary
OF GREATER DUBUQUE
U.S. Department of Transportation
1200 New Jersey Avenue, SE
UNITED FOR OUR REGION:
Washington, DC 20590
OUR AFFILIATES
AND PARTNERS
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Allamakee County Community
Foundation
Dear Secretary Duffy:
Clayton County Foundation for
the Future
I write on behalf of the Community Foundation of Greater Dubuque to convey our strong
Community Foundation of
Jackson County
support for the City of Dubuque's "Better Utilizing Investments to Leverage Development"
(BUILD) application to the U.S. Department of Transportation (DOT). Dubuque seeks BUILD
Dyersville Area Community
Foundation
capital funds to advance mobility and safety improvements along University Avenue. This
Foundation for Dubuque Public
corridor supports residents, college students, visitors, and local businesses, and presents
Schools
opportunities for enhanced multimodal connectivity. DOT assistance will help Dubuque plan
Foundation for the Future of
infrastructure upgrades that accommodate motorists, pedestrians, bicyclists, and users of all
Delaware County
ages and abilities. The proposed improvements will help improve East-West connectivity in
Jones County Community
the community, relieve congestion, reduce the risk of fatal and serious injury crashes, and
Foundation
ensure the corridor operates safely and efficiently as traffic volumes increase.
Lincoln Way Community
Foundation
The Community Foundation of Greater Dubuque supports Dubuque's effort to convert three
River Bluff Community
intersections to roundabouts, improve pedestrian and bicycle accommodations, and
Foundation
construct a series of roadway realignments, turn lane additions, and cross-section
modifications along University Avenue. These upgrades are critical in the community because
CONNECT WITH US
as an organization deeply invested in the long-term vitality of the greater Dubuque region,
700 Locust St., Suite 195
the Community Foundation recognizes that safe, efficient, and accessible transportation
Dubuque, IA 52001
infrastructure is foundational to a thriving community. The University Avenue improvements
563.588.2700
will not only reduce serious injury crashes but also strengthen connections between our
dbqfoundation.org
neighborhoods, colleges, and local businesses — supporting the kind of vibrant, connected
community that attracts and retains residents for generations to come
OUR MISSION
Please give the highest consideration to Dubuque's application for DOT BUILD funding. Thank
Empower communities and
ignite generosity
you very much.
Sincerely,
I /
\- An V6cnac_
Nancy Van Milligen
President & CEO
Community Foundation of Greater Dubuque
Page 686 of 939
1
Crescent Community
HEALTH CENTER
2/20/2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy:
I wYite on behalf of Crescent Community Health Center to convey our strong support for the City of Dubuque's
"Better Utilizing Investments to Leverage Development" (BUILD) application to the U.S. Department of
Transportation (DOT). Dubuque seeks BUILD capital fiends to advance mobility and safety improvements along
University Avenue. This corridor supports residents, college students, visitors, and local businesses, and presents
opportunities for enhanced multimodal connectivity. DOT assistance will help Dubuque plan infrastructure
upgrades that accommodate motorists, pedestrians, bicyclists, and users of all ages and abilities. The proposed
improvements will help improve East-West connectivity in the community, relieve congestion, reduce the risk of
fatal and serious injury crashes, and ensure the corridor operates safely and efficiently as traffic volumes increase.
Crescent supports Dubuque's effort to convert three intersections to roundabouts, improve pedestrian and bicycle
accommodations, and construct a series of roadway realigiurnents, turn lane additions, and cross-section
modifications along University Avenue. These upgrades are critical in the community because many of our patients
rely upon either the bus line and/or travel by foot or bicycle. Anything that we can do to ensure their safety and
that of our team members is of great interest and importance to Crescent Community Health Center.
Please give the highest consideration to Dubuque's application for DOT BUILD funding. Thank you very much.
Sincerely,
Chad Wolbers
Chief Executive Officer
Crescent Community Health Center
1690 Elm Street Suite 300 • Dubuque, Iowa 52001 • Phone: 563-690-2850 • Fax: 563-557-8488
Page 687 of 939
DUBUQUE AREA
CHAMBER
February 18, 2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy:
Greetings! I am writing to you on behalf of the Dubuque Area Chamber of Commerce to express our strong
support for the City of Dubuque's "Better Utilizing Investments to Leverage Development" (BUILD) application
to the U.S. Department of Transportation (DOT). Dubuque seeks BUILD capital funds to advance mobility and
safety improvements along University Avenue. This corridor supports residents, college students, visitors, and
local businesses, and presents opportunities for enhanced multimodal connectivity. DOT assistance will help
Dubuque plan infrastructure upgrades that accommodate motorists, pedestrians, bicyclists, and users of all ages
and abilities. The proposed improvements will help improve East-West connectivity in the community, relieve
congestion, reduce the risk of fatal and serious injury crashes, and ensure the corridor operates safely and
efficiently as traffic volumes increase.
The Dubuque Area Chamber supports our city's efforts to convert three intersections to roundabouts, improve
pedestrian and bicycle accommodations, and construct a series of roadway realignments, turn lane additions, and
cross-section modifications along University Avenue. These upgrades will enhance safety, improve traffic flow
and support reliable multi -modal travel along the University Avenue corridor -benefits that are vital for Dubuque's
growing community and economy.
Please give the highest consideration to Dubuque's application for DOT BUILD funding. Thank you very much.
Sincerely,
Molly Grover, President & CEO
Dubuque Area Chamber of Commerce
Page 688 of 939
Dubuque
7o;
Forward
-' Intentional. Community.
February 12, 2026
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy:
I write on behalf of Dubuque Forward to convey our strong support for the City of Dubuque's
"Better Utilizing Investments to Leverage Development" (BUILD) application to the U.S.
Department of Transportation (DOT). Dubuque seeks BUILD capital funds to advance
mobility and safety improvements along University Avenue. This corridor supports
residents, college students, visitors, and local businesses, and presents opportunities for
enhanced multimodal connectivity. DOT assistance will help Dubuque plan infrastructure
upgrades that accommodate motorists, pedestrians, bicyclists, and users of all ages and
abilities. The proposed improvements will help improve East-West connectivity in the
community, relieve congestion, reduce the risk of fatal and serious injury crashes, and
ensure the corridor operates safely and efficiently as traffic volumes increase.
Dubuque Forward supports Dubuque's effort to convert three intersections to
roundabouts, improve pedestrian and bicycle accommodations, and construct a series of
roadway realignments, turn lane additions, and cross-section modifications along
University Avenue. These upgrades are critical in the community because theywill improve
safe and easy access to all of Dubuque. The University Avenue corridor is heavily traveled
900 Jackson St, Ste 112,
Dubuque, IA 52001
dubuqueforward.com
Page 689 of 939
5 Dubuque
Forward
Intentional. community.
and is a main artery for people accessing other areas of Dubuque. Improving traffic flow,
bicycle flow and pedestrian movement will benefit the entire community. It will also create
better access to the downtown core, an area that is experiencing renewed growth of
educational, commercial and residential interest. The first medical school to be build in
Iowa in over 120 years is on the downtown core. The improvements along University Avenue
will simplify access for the students, faculty and administration to the rest of our
community and all that it has to offer.
Please give the highest consideration to Dubuque's application for DOT BUILD funding.
Thank you very much.
Sincerely,
Debi Butler
Board President
Dubuque Forward
900 Jackson St, Ste 112
Dubuque, IA 52001
dubuqueforward.com
Page 690 of 939
Greater
Dubuque
DEVELOPMENT CORP.
February 9, 2026
Schmid Innovation Center
900 Jackson St., Suite 109
Dubuque, IA 52001
www.greaterdubuque.org
The Honorable Sean P. Duffy
Secretary
U.S. Department of Transportation
1200 New Jersey Avenue, SE
Washington, DC 20590
Re: Strong Support for Dubuque's East-West Corridor Connectivity Project
Dear Secretary Duffy:
I am writing on behalf of Greater Dubuque Development Corporation to convey our strong support for the
City of Dubuque's "Better Utilizing Investments to Leverage Development" (BUILD) application to the U.S.
Department of Transportation (DOT). Dubuque seeks BUILD capital funds to advance mobility and safety
improvements along University Avenue. This corridor supports residents, college students, visitors, and
local businesses, and presents opportunities for enhanced multimodal connectivity. DOT assistance will
help Dubuque plan infrastructure upgrades that accommodate motorists, pedestrians, bicyclists, and users
of all ages and abilities. The proposed improvements will help improve East-West connectivity in the
community, relieve congestion, reduce the risk of fatal and serious injury crashes, and ensure the corridor
operates safely and efficiently as traffic volumes increase.
Greater Dubuque Development supports Dubuque's effort to convert three intersections to roundabouts,
improve pedestrian and bicycle accommodations, and construct a series of roadway realignments, turn
lane additions, and cross-section modifications along University Avenue. These upgrades are critical in the
community as they will improve safety and ensure efficient access to jobs, services, and educational
opportunities that support economic growth and quality of life.
Please give the highest consideration to Dubuque's application for DOT BUILD funding. Thank you very
much.
Sincerely,
;,�_ sV/,,�
Jason E. White
President & CEO
YOU can be great here.
Page 691 of 939