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Harvard Kennedy School Innovations in American Government - Round 2 Copyright 2014 City of Dubuque Consent Items # 4. ITEM TITLE: Harvard Kennedy School Innovations in American Government - Round Two SUMMARY: City Manager recommending submittal of the 2014 Round Two Supplemental Application Information to the Harvard Kennedy School for Innovations in American Government Award. SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve ATTACHMENTS: Description Type ❑ Harvard Kennedy School Innovations in American Government-MVM City Manager Memo Memo ❑ Supporting Document Agency Director Signature Page Supporting Documentation ❑ Supporting Document CEO Signature Page Supporting Documentation ❑ Supporting Document 2014 Round Two Information Supporting Documentation ❑ Supporting Document Organization Chart Supporting Documentation THE CITY OF Dubuque UBE I erica .i Masterpiece on the Mississippi 2007-2012-2013 TO: The Honorable Mayor and City Council Members FROM: Michael C. Van Milligen, City Manager SUBJECT: Harvard Kennedy School Innovations in American Government Round Two DATE: January 14, 2015 Assistant City Manager Cindy Steinhauser has submitted the 2014 Round Two Supplemental Application Information to the Harvard Kennedy School for Innovations in American Government Award. I concur with the recommendation and respectfully request Mayor and City Council approval. Micliael C. Van Milligen MCVM:sv Attachment cc: Barry Lindahl, City Attorney Cindy Steinhauser, Assistant City Manager Teri Goodmann, Assistant City Manager - HARVARD KennedySchool ` ASH CENTER for Democratic Governance and Innovation INNOVATIONS IN AMERICAN GOVERNMENT 2014 SUPPLEMENTARY APPLICATION AGENCY DIRECTOR SIGNATURE PAGE This document is due to the Innovations Office by 3:00 PM EST on Friday,January 9',2015. Program Name: Bee Branch Watershed Flood Mitigation Project Contact Person: Cindy Steinhauser Title: Assistant City Manager Department/Division: City Manager's Office Address(no P.O.Boxes,please): 50 West 131 Street City: Dubuque State:Iowa Zip: 52001 Telephone:563-589-4110 Fax: 563-589-4149 E-Mail: csteinha@cityofdubuque.org Agency Director: Michael C.Van Milligen Title: City Manager Department/Division: City Manager's Office Address(no P.O.Boxes,please): 50 West 13th Street City:Dubuque State:Ia Zip: 52001 Telephone:563-589-4110 Fax: 563-589-4149 E-Mail: ctymgr@cityofdubuque.org I certify that,as represented to me,the information contained in this application is accurate. 1-8-15 Signature of Agency Director Date HARVARD KennedySchool ASH CENTER for Democratic Governance and Innovation INNOVATIONS IN AMERICAN GOVERNMENT 2014 sUPPLEMENTARY APPLIcATTosi-CEO SIGNATURE PAGE CEO SIGNATURE PAGE DEADLINE: FRIDAY,JANUARY 16TM,2015 APPLICATION DEADLINE: JANUARY 91`,2015 Program Name: Bee Branch Water shed Flood Mfigation project Contact Person: Cindy Steinhauser Title: Assistant Qty Manager DepartmentsDivision: CityManagers Office Address(no P.O.Boxes,please: 50 West 13"Stree City Dubuque State: Iowa Zip: 52001 Telephone: 563-589-4110 Fax: 563-5894149 E-Mad cstenba@cityofdubuque.org Chef Elected Officer or Presiding Official:Roy D.Buol Title: Mayor DepamnentsDivision Dubuque City Council Address(no P.O.Boxes,please: 50 West 13"Stree City Dubuque State: Iowa Zip: 52001 Telephone: 563-589-4110 Fax: 563-5894149 leeftkdn 44t to Otemfwnnuou cotuWtcderr dtiroppSnrtion&an,nmre. / 15-15 SigroatweQ,f%lnef11ected Officer Date Thisfmxn should be new a of to Kaolin Bwroughs Ash Center Harvard Kennedy School 79 KIT Street,Menton 74 Cambndge,MA 02138 Tel (617)496 6258 INNOVATIONS IN AMERICAN GOVERNMENT 2014 ROUND TWO INFORMATION Primary Contact Name: Cindy Steinhauser Title: Assistant City Manager Division: City Manager's Office Address 41: 50 West 13th Street Phone 41: 5635894110 Email 41: csteinha@cityofdubuque.org Contact Twitter Account: Randy Gehl, Public Information Officer Program Information Program Name: Bee Branch Watershed Flood Mitigation Project Program Start Date: 5/1/2003 Jurisdiction Type: City/Town Jurisdiction Name: City of Dubuque, Iowa Jurisdiction Unit: Engineering Department Jurisdiction Population: 57827 Website: www.citvofdubuque.org Applied Previously: Yes Policy Area: Transportation, Infrastructure and Environment Primary Contact: Ms. Cindy Steinhauser, Assistant City Manager 50 West 13th Street Dubuque Iowa 52001 Phone: 563-589-4110 Email 1: csteinha@cityofdubuque.org ESSAYS Please respond to each directive or question as fully and concisely as possible. Please note that the word limits for the individual essays are maximums. PROGRAM SUMMARY 1. Describe your innovation. What problem does it address? When and how was the program or policy initiative originally conceived in your jurisdiction? How exactly is your program or policy innovative? How has your innovation changed previous practice? Name the program or policy that is closest to yours. (maximum 500 words) The Initiative Dubuque's Bee Branch Watershed Flood Mitigation project(BBWFMP) is a multi-phased, green infrastructure investment to mitigate flooding, improve water quality, stimulate development,and enhance quality of life.The project catalyzes community economic, social and environmental capital to create resilient neighborhoods, foster economic opportunities, and balance resources. The Problem Historically the Bee Branch Creek flowed through the city's North End to the Mississippi River; in the early 1900's it was buried (in a storm sewer). As Dubuque grew and stormwater increased—the storm sewer eventually was overwhelmed during major rain events. The Bee Branch Watershed, where over 50%of Dubuque's residents either live or work, has been hit hard with flash flooding that inundates basements and rushes down streets. Six Presidential Disasters issued between 1999 and 2011 due to flash flooding logged estimated damages of$69.8 million. The watershed encompasses historic neighborhoods offering affordable workforce housing. Most residents are working families, many are elderly--those least able to recover from repetitive flood loss. For over a decade, businesses and homes have suffered losses from water damage and disinvestment. From 2004 to 2009, commercial property values rose 39%citywide—but fell 6% in the watershed. The Innovation In 2006,the City Council made Sustainability our top priority. Sustainable Dubuque,a community-created initiative,grew out of this priority.The City Council created a citywide task force to develop Dubuque's vision of sustainability. The result was: "Dubuque is a viable, livable and equitable community. We embrace economic prosperity,environmental integrity, and social/cultural vibrancy to create a sustainable legacy for generations to come." In the past the traditional approach to flooding was to move the stormwater as quickly as possible to the river. Rather than treat the disease we kept applying a Band-Aid. The BBWFMP is the result of lessons learned from our Sustainable Dubuque process. We looked at cause and not effect and were able to design a holistic solution to promote the viable, livable and equitable results that citizens wanted. The result was a watershed plan to address flooding through sustainable, innovative means. Dubuque citizens embraced the challenge and supported the BBWFMP. This 12-phase project will reduce the volume of stormwater,slow the rate of stormwater through the upper watershed,and increase the safe conveyance of stormwater through the flood-prone areas. When complete, it also will include "daylighting"a buried creek,community gardens and orchards,outdoor amphitheater/classroom, bioswales, landscaped parkways, 1,000 trees, hike/bike trails,water recreation and other amenities as well as necessary utilities and public infrastructure. By engaging citizens in the creek daylighting design, care was given to reduce how many structures were removed,and preserve "neighborhood anchors" such as local businesses, schools and churches. Only 100 properties were voluntarily acquired and deconstructed. Creative reuse of salvaged material resulted in over 1,500 tons diverted from the landfill. This 20-year,$179 million project addresses the severe and frequent flash flooding experienced in the watershed. It will prevent an estimated $582 million in damages over the project's 100-year design life. DETAILED PROGRAM DESCRIPTION AND HISTORY 2. If your innovation is an adaptation or replication of another innovation, please identify the program or policy initiative and jurisdiction originating the innovation. In what ways has your program or policy initiative adapted or improved on the original innovation? (maximum 500 words) Citizen engagement is the foundation of any sustainable, resilient solution. The BBWFMP is a model of how community visioning and system change alters everything about how a city responds to issues,challenges and opportunities in a viable, livable and equitable manner. This 12-phase project uses green infrastructure improvements to reduce the volume of stormwater,slow the rate and increase the safe conveyance of stormwater. Most communities see flooding as strictly stormwater management,and attempt to remediate through conveyance, detention and levees.This approach falls short of managing stormwater long-term and does not address the entire watershed, water quality, healthy homes, preservation of neighborhoods,and community development. The BBWFMP accomplishes all of these objectives through a series of interconnected infrastructure improvements described below. Green Alleys One of the BBWFMP's green infrastructure phases is impervious surface reduction through installation of approximately 240"green alleys". Green alley reconstruction focuses on reducing the volume of stormwater in the watershed using permeable pavement. Permeable pavement has pores or openings that allow water to pass through the surface and filter gradually into the soil below. In addition to reducing stormwater run-off,green alleys replenish ground water and help prevent pollutants on roadways from entering the storm sewer system and ultimately our rivers. Green alleys are expected to reduce stormwater runoff within the BBWFMP by up to 80%. Creek Restoration Creek restoration provides open water habitat, flood control, and sediment capture. We are linking project trails to a regional network to improve physical health and transportation alternatives. Local efforts resulted in changes to federal policy to make green infrastructure eligible for the first time for State Revolving Fund (SRF) for water quality improvements. Capacity Improvements Investing in capacity improvements in the existing system while restoring natural habitat for native plants and animals allowed us to maximize our ability to reduce flows and volumes to downstream properties and encourage new investment. Since 2005,over$9 million invested in flood mitigation has leveraged over$25 million in public and private investment, particularly for homeownership. Since 2008, there are 34 new homeowners, 61 rehabbed residential properties,and 18 rental properties converted to single-family homes.Through a local partnership, at-risk students learn homebuilding skills while earning their high school diploma, achieving a 93%graduation rate. Because of the BBWFMP, non-public investment has eclipsed $139 million since 2008 and is expected to total $354 million. Partnerships Dubuque has partnered with 57 communities in the Mississippi River Cities &Towns Initiative to work towards "improved water quality,flood and floodplain management and river economy and environmental protection." In 2013 the City entered into a first of its kind partnership with the State of Iowa Flood Mitigation Program to leverage$98.5 million State Sales Tax Increment financing on Green Infrastructure improvements and to think beyond traditional flooding "fixes" and invest in citizen-led,citizen-designed replicable solutions. This is a significant, and crucial,shift for cities. It is impossible to create sustainable, resilient communities and economies without integrated solutions that educate and promote best practices. 3. How was the program or initiative embodying your innovative idea designed and launched? What individuals or groups are considered the primary initiators of your program? Please substantiate the claim that one or more government institutions played a formative role in the program's development. (maximum 500 words) Unfortunately, Bee Branch Watershed residents have faced this dire situation repeatedly: do you stay in your flooding basement or go upstairs and risk the tornado warning? The Bee Branch Watershed, where over 50%of Dubuque's residents either live or work, is continually hit hard with flash flooding that inundates basements and rushes down streets from curb to curb. Six Presidential Disasters issued between 1999 and 2011 due to flash flooding and estimated$69.8 million in damages. The watershed encompasses historic neighborhoods with affordable workforce housing. Most residents are those least able to recover from repetitive flood loss. For over a decade, businesses and homes have suffered losses from water damage and disinvestment.These neighborhood associations, residents and businesses repeatedly asked the City for help, but traditional approaches and designs did not address the issues. Innovation and sustainability were needed. In response, the City engaged consultants, state and federal partners, citizen advisory committees,and the general public to help create,fund,and implement a watershed plan to address the flooding. In 2006, during the heart of the citizen engagement process for the Bee Branch Watershed, the City Council made sustainability their top priority with the belief that cities that embrace sustainability will have competitive economic advantages.The result was "Sustainable Dubuque," a citizen-led,community-created initiative. By 2008 the City Council adopted the citizens'vision that "Dubuque is a viable, livable and equitable community. We embrace economic prosperity, environmental integrity, and social/cultural vibrancy to create a sustainable legacy for generations to come"along with 12 sustainability principles that have become the foundation to everything we do in the city. The BBWFMP is a multi-phased, fiscally responsible investment developed using the Sustainable Dubuque framework. It reflects a holistic approach to mitigate flooding, improve water quality,stimulate investment, and enhance the quality of life. The City of Dubuque has secured extensive local, state,and federal financial assistance and support for the $179 million BBWFMP. The total commitment of combined local and federal funding provides 52%of the total project cost. The City has secured federal financial assistance of$49 million through the federal Clean Water Act and a $1.2 million U.S. Economic Development Administration disaster relief grant, which is a federal program providing assistance specifically for hazard mitigation. The City of Dubuque has been awarded $98 million in Sales Tax Increment over 20 years from the State of Iowa's Flood Mitigation Board. Having secured the necessary federal and state approvals, permits, and funding, Dubuque has pushed forward with planning,execution, and completion of three phases and the initiation of two more. Because of the public support for the BBWFMP,the stated commitment of the City Council to implement the various phases of the project, and because the City has already started implementing some of the improvements, non-public investment in the Bee Branch Watershed has already eclipsed $139 million since 2008 with an additional $215 million expected to follow in the next five years for a combined total of$354 million in non- public investment. 4. How has the implementation strategy of your program or policy initiative evolved over time? Please outline the chronology of your innovation and identify the key milestones in program or policy development and implementation and when they occurred (e.g., pilot program authorization enacted by state legislature in February 2008; pilot program accepted first clients, June 2008; expanded program approved by legislature in February 2009). (Maximum 500 words) (maximum 500 words) BBWFMP is about achieving Social/Cultural Vibrancy through Citizen Innovation. Citizens designed the solution,selected the alignment and recommended the funding through the establishment of a stormwater utility.This helped preserve the unique culture of these neighborhoods and mobilized social capital among our lowest income and elderly populations. Milestones in Citizen Innovation • 1999, the City commissioned an engineering study called the Drainage Basin Master Plan (DBMP). • 2001 the study determined that approximately 1,150 homes and businesses are at risk of flood damage. Flood mitigation became a top priority and the City Council adopted DBMP. • 2003-City Council forms a 16-member Bee Branch Citizen Advisory Committee (BBCAC) to form a consensus on a final flood solution, select the alignment, and guide final design. City Council forms a citizen advisory committee to study creation of a stormwater utility. A stormwater management utility fee is established based on the committee's recommendation. • November 2004 after committee, public,and neighborhood meetings, City Council adopts BBCAC's recommendations. • City Council makes Sustainability a top priority,and creates a citizen task force to define Dubuque's vision of sustainability. • 2008 City Council hired consultants to provide engineering and design services for the BBWFMP. City Council adopts the Sustainable Dubuque recommends by the citizen task force as the lens through which City operations and projects are implemented. • February 2009 final restoration plans, landscaping and design presented to public. This project is about achieving Economic Prosperity and Environmental Integrity through Design Innovation by looking at the entire watershed with care for the built environment. Eighty-five percent (85%) of the impacted properties have buildings that are potentially eligible for listing on the National Register of Historic Places. Milestones in Design Innovation • 2011—Construction of the Lower Bee Branch complete • Streets and parking areas in the Historic Millwork District are converted to permeable pavement surfaces and new storm sewers are installed. • 2013—Project is awarded $98.5 million from the Iowa Flood Mitigation Board • 2014—Twenty-three alleys in the Bee Branch Watershed are reconstructed into green alleys. This project is about Government Innovation—creating a manageable, phased approach to not overtax resources and neighborhoods Phase Description Status 1 Carter Road Detention Basin Complete 2 West 32nd Street Detention Basin Complete 3 Historic Millwork District Complete 4 Lower Bee Branch Creek Restoration Under Construction 5 Flood Mitigation Gate Replacement Under Design 6 Impervious Surface Reduction Under Construction 7 1 Upper Bee Branch Creek Restoration I Under Design 8 1 22nd Street Storm Sewer Improvements I Under Design 9 Flood Mitigation Maintenance Facility Under Design 10 North End Storm Sewer Improvements Under Design 11 Water Plant Flood Protection Under Design 12 17`h Street Storm Sewer Improvements Under Design • In 2008 the City started inquiring about the use of Clean Water and the Drinking Water State Revolving Fund (SRF). • 2010 Appropriation Law included additional requirements affecting both the SRF programs and creek day lighting was identified as an eligible green infrastructure project. BBWFMP was the first green infrastructure project to be funded. 5. Please describe the most significant obstacle(s) encountered thus far by your program. How have they been dealt with? Which ones remain? (maximum 500 words) Railroad Crossing The Lower Bee Branch Creek Restoration was completed in 2011. The next phase of the BBWFMP was to construct a section of the creek over or under railroad property before construction of the Upper Bee Branch Creek Restoration.The City has been working through issues with the railroad since 2007, making steady progress despite two changes railroad ownership and personnel. In 2012,a Memorandum of Understanding was executed between the City and the current owner, Canadian Pacific (CP). It outlines the expectations and needs of both parties, establishing a roadmap for resolving all of the issues for the BBWFMP to move forward. Next, the City and CP entered into a Service Agreement which formally established the resolution process. Finally,a draft Construction and Maintenance Agreement has been circulated. As a prerequisite for finalizing the Agreement, multiple iterations of the proposed construction documents(plans and specifications) for the improvements through the railroad property have been reviewed by CP. In late October 2014,CP responded to the City's September 2014 design submittal outlining additional changes to the proposed construction documents, noting that if the modifications identified by CP are made, CP will accept the construction documents. Once the Agreement is executed,the City can bid the section through the railroad property. Understanding Community Benefit Since the beginning,the City has had help citizens understand that flash flooding in specific neighborhoods is actually a community-wide issue because it damages public infrastructure (parking lots,streets and sewers) and disrupts essential city services. For these reasons and more, the BBWFMP is benefiting all residents. It will also improve water quality,create opportunities for economic growth,and enhance quality of life. Creating an understanding of these community-wide benefits and building support for the project has been an obstacle from the beginning. In response the City continues to utilize Citizen Advisory Committees, host public information meetings, distribute informational mailings, post information on the Bee Branch webpage,and utilize social media. Getting People to Think Beyond Individual Silos The BBWFMP isn'tL about stormwater management and yet in the beginning design and funding sources were guiding the project toward that"silo-ed" approach. As more citizens were impacted by each rain event, it became clear this project crossed silos. As a result, citizens helped design a project that is a multi- phased, green infrastructure investment to mitigate flooding, improve water quality, stimulate development,and enhance quality of life. The BBWFMP catalyzes community economic,social and environmental capital to create resilient neighborhoods and opportunities, balance resources and improve quality of life. But funding and federal permitting for this bigger vision was stalemated because it didn't fit under a single Federal agency, no "one" agency could "own" the issue or solution. The BBWFMP requires a U.S. Army Corps of Engineers permit, U.S. Environmental Protection Agency (EPA) review, National Park Service consultation, and others.This obstacle was resolved when ARRA regulations allowed Green Infrastructure as an eligible expense for EPA funding thereby opening the "flood gates' for the BBWFMP to proceed. RESULTS AND POLICY IMPACT 6. What is the single most important achievement of your program or policy initiative to date? (maximum 500 words) The BBWFMP's single most important achievement is removal of silos at every project level -- design, funding, permitting and construction -- by applying the Sustainable Dubuque framework. Sustainable Dubuque is a holistic approach to making Dubuque a viable, livable, and equitable community that embraces economic prosperity,social/cultural vibrancy, and environmental integrity to create a sustainable legacy for generations to come. Dubuque was able to remove these silos because we engaged stakeholders at every level using the Sustainable Dubuque model. At the local level,we brought together citizens, businesses and City staff to understand what strengths existed among us. At the State and Federal levels, we brought together environmental,economic,community development, flood management and legislative interests to develop a shared understanding of the issues and a collective,collaborative,and holistic solution that could lead to leveraged funding and higher return on investment(both public and private). Key to this shared vision was common understanding that the BBWFMP is not just about removing 1,150 properties from the threat of repeated flooding; it also is about community outcomes. How do we manage stormwater? How do we improve water quality? How do we prevent and reverse neighborhood decline? How do we preserve community culture,the built environment and native species? How do we promote a balanced local economy? By shifting from a traditional outputs approach to a sustainability outcomes approach evaluating qualitative and quantitative impacts,we have made the BBWFMP more resilient and designed a more sustainable process for future projects. Below are examples of how we removed silos using the Sustainable Dubuque framework. Design Traditional design is top down and output-focused. Cities hire consultants assess a problem, design a solution,and then seek funding, which can jeopardize citizen support and sustainable funding. Sustainable design is bottom up and outcome-focused, as is Sustainable Dubuque. We engaged consultants,state and federal partners,citizen advisory committees,and the general public to help create, fund, and implement a sustainable, innovative watershed plan. Dubuque citizens embraced the challenge and supported the BBWFMP, which involves restoration of a buried creek and other green infrastructure; supports efficient, effective use of land and existing infrastructure; provides transportation choices; maintains sense of place; enhances natural and built environments; and benefits all citizens. Funding and Permitting State and Federal funding and permitting is commonly conducted by separate agencies in isolation; however, because the BBWFMP was holistic in its approach it did not fit under one funding or permit"silo'. The BBWFMP broke down silos and helped State and Federal agencies see the interconnectedness of flooding, water quality, and community development through the Sustainable Dubuque model for funding and permitting green infrastructure projects. Construction Traditional flood mitigation involves buyouts and demolitions, sewers and levees. Dubuque could have constructed a concrete ditch or massive storm sewers that cut a swath through vulnerable historic neighborhoods. Instead, Dubuque citizens and our partners embraced the Sustainable Dubuque framework of the BBWFMP to restore the Bee Branch Creek, install permeable pavement, and construct other green infrastructure improvements. 7. What are the three most important measures you use to evaluate your program's success? In qualitative or quantitative terms for each measure, please provide the outcomes of the last full year of program operation and, if possible, at least one prior year. (maximum 500 words) Flood Mitigation The project will mitigate flooding in four ways: reduce volume of floodwaters, reduce flow of floodwaters, increase floodwater conveyance capacity,and provide barriers for critical facilities. While flash flooding can be expected until all phases are implemented, we see measurable benefits with the completed phases. Construction of the Carter Road Detention Basin in 2003 mitigated to some extent the flooding that occurred in 2004, 2006, 2008, 2010, and 2011. This facility can temporarily store up to 59.3 million gallons of stormwater.The basin reduces the peak flow of runoff from a 100-year flood event by 98%from 1,490 cubic feet per second to 30 cubic feet per second. Prior to expansion of the West 32nd Street Detention Basin in 2009, floodwaters would overwhelm the downstream storm sewer, overtop the basin, and result in a wall of water flowing through neighborhoods-- contributing to street and basement flooding. Storage capacity has more than doubled to 33.5 million gallons, the peak flow of runoff out of the basin is reduced to 30%of the peak flow into the basin,and downstream flooding has been slightly reduced. The Bee Branch storm sewer only had the capacity for a 3-year flood event.The 2011 Lower Bee Branch Creek Restoration from Garfield Avenue to the 16th Street Detention Basin allows stormwater from a 100- year event to safely move through this area without flooding adjacent properties. Non-public Investment The Bee Branch Watershed is a significant economic engine, with 1,325 businesses employing over 16,000 full-time equivalent workers-- representing 19.5%of the businesses and 27%of the workers in Dubuque County. It is home to the City's original commercial and industrial developments and residential neighborhoods. The frequent and severe flash flooding, however, caused disinvestment in commercial, industrial and residential properties within the watershed. Because of the City's construction of improvements and commitment to the project, non-public investment in the watershed has eclipsed $139 million since 2008. We expect an additional $215 million in the next five years for a total of$354 million in non-public investment. Improved Water Quality The project will improve water quality by "daylighting" the creek back to its natural state. Replacing storm sewer with 4,500 feet of open waterway, restoring floodplain, constructing bio-swales, and installing "green alleys" will allow for infiltration and improve downstream water quality by removing pollutants from the water. The Lower Bee Branch Creek Restoration has water quality benefits through creation of"new" aquatic areas and fishery resources. A fishery assessment conducted on 6/25/2014 in this stream segment found fourteen species of native fish. Given the "newness" of this stream segment,the Iowa Department of Natural Resources considers this assessment a mark of success. Green alleys feature permeable pavement, which reduces stormwater runoff, replenishes ground water, and helps prevent pollutant runoff. Approximately 240 alleys will be converted during the 20-year project. Twenty were converted in 2014. In 2015, another 50-55 are planned.The full conversion is expected to reduce stormwater runoff within the watershed by up to 80%. 8. Please describe the target population served by your program or policy initiative. How does the program or policy initiative identify and select its clients or consumers? How many clients does your program or policy initiative currently serve? What percentage of the potential clientele does this represent? (maximum 250 words) The Washington and North End Neighborhoods, located in the BBWFMP,are diverse areas with a mix of historic housing,small local businesses, neighborhood churches and schools, and limited recreational activities. With over twice population density in population as the entire city, the area has 30% homeownership and 70% rental. The neighborhoods have some of Dubuque's oldest housing with over 86% built prior to 1940. The area has depressed property valuations and high vacancy rates. Single family homes average$42,000 in assessed valuation; duplexes average$49,000. Opportunities for employment and services have become less accessible; the transient, minority, and poverty rates for the area have increased significantly; and crime has increased. Since the 1950s, those able to afford it have moved west to larger homes on larger lots; new businesses have chosen to locate elsewhere. The more we learn about the watershed flooding patterns, the more we realize the impacts this shift has had on these at-risk neighborhoods. The table below identifies the striking differences between the Washington and North End Neighborhoods and the surrounding Dubuque County (2000 US Census data). Washington and North Dubuque End Neighborhoods County Median household income $24,401 $39,582 Individuals below poverty rate 7.8% 19% Shortage of affordable housing (low- 28% 17% income households paying over 30% toward rent/mortgage) Minority rate 9.8% 2.7% The BBWFMP will not only mitigate water quality and flooding issues; it will be helping to save historic neighborhoods for a group of residents most in need of our assistance. 9. What would you characterize as the program's most significant remaining shortcoming? (maximum 250 words) The most significant remaining shortcoming is the project will take 20 years to complete the infrastructure improvements and mitigate the flash flooding. Individual phases of the project will provide some benefit, but flooding can be expected to occur until all the improvements are implemented. Prior to completion, Dubuque may experience heavy rain events that result in flash flooding.This could cause millions of dollars in property damage to homes, businesses and public infrastructure. It may also create confusion for residents who are not fully educated about the project and assume that because some of the phases are complete that the flooding issue has been fixed. It will be critical moving forward that we continue to communicate with residents that flash flooding may continue to occur until all phases of the project are complete. Factors impacting the length of the project include its multi-phased design, the issuance of general obligation bonds, state sales tax increment funding spread over 20 years, and negotiations with the Canadian Pacific Railway (CPR). Since 2008 the city has been working diligently to reach an agreement with CPR regarding the design of the Upper Bee Branch Creek Restoration. Several RR ownership changes during the life of the project have led to delayed design review and the inability to as yet, reach an agreement. This has required staff to design temporary improvements until an agreement is signed. We now anticipate to complete the creek restoration in late 2016. 10. What other individuals or organizations have been the most significant in (a)program development and(b)on-going implementation and operation? What roles have they played? What individuals or organizations are the strongest supporters of the program or policy initiative and why? What individuals or organizations are the strongest critics of the program or policy initiative and why? What is the nature of their criticism? (maximum 500 words) The City of Dubuque received many letters of support from business, health,environmental, and economic organizations, and neighborhood associations for the BBWFMP. The repeated flash flooding created disincentives for private investment and was a detriment for many restoration projects.The business community believes the project will provide significant opportunities for economic growth. Health organizations have seen the long term negative impacts to the lives of citizens and feel the project will improve the livability and vitality of the downtown and north end neighborhoods. Environmental agencies support the use of green infrastructure to mitigate flooding, improve water quality and enhance biodiversity. The BBWFMP is a model in this regard. The North End Neighborhood Association is comprised of 65 blocks of homes and businesses that have been most impacted by the frequent flash floods and know firsthand the need to complete the project. They have shown their support for over 15 years through participation in the Bee Branch Creek Advisory Committee, neighborhood meetings, public hearings,and infrastructure input sessions.The Washington Neighborhood has also showed their support for the project. Many of its residents are low to moderate income households that have experienced basement flooding due to capacity problems with the Bee Branch storm sewer. Their residents will receive a direct benefit from the flood mitigation efforts and will be able to enjoy the recreational amenities of the restored bee Branch Creek. The BBWFMP also enjoys the support of State and Federal agencies: Iowa Department of Natural Resources, Iowa Department of Homeland Security, Iowa Department of Cultural Affairs, Iowa Department of Transportation, Iowa Department of Agriculture and Land Stewardship, Vision Iowa, Iowa Flood Mitigation Board, US Environmental Protection Agency, US Economic Development Administration, US Department of Transportation, US Department of Agriculture, US Department of Housing and Urban Development, and US Army Corps of Engineers.They see this project as a replicable model for other cities, both in design and financing. This project was one of the first of its kind to remove silos and braid different local, state and federal funding streams and permitting processes. Dubuque has been invited to present this project nationally in the hopes that we can educate others on how to approach stormwater management from the environmental,economic and social/cultural framework of Sustainable Dubuque. Critics to the BBWFMP include City residents who live outside the watershed. These residents lack the understanding or acceptance that this project is one component of our community's approach to stormwater management. By design,the BBWFMP is more than just stormwater management, but at its core it does contribute to our stormwater management plan. Critics also include citizens who are fearful about the project design and/or cost. Some are fearful of public safety because the project includes an open channel instead of an underground (and assumedly safer) storm sewer. Others are fearful of the$179 million project cost and the issuance of debt to fund the improvements. To date the city has received$127 million in financial assistance to leverage the $179 million improvements. EVALUATION AND REPLICATION 11. If your program or policy initiative has been formally evaluated or audited by an independent organization or group, please provide the name, address, and telephone number of a contact person from whom the materials are available. Please summarize the principal findings of the independent evaluators) and/or auditor(s). If your program has been the subject of an article, book, or other publication(including web-based)produced by an independent organization or group, please provide a complete citation. (maximum 500 words) The Bee Branch Watershed Flood Mitigation Project(Project) was evaluated and endorsed through the process of seeking and acquiring financial support. Some of the discrete elements of the overall project were individually evaluated on a similar basis as well. The two largest backers of the undertaking are the State Flood Mitigation Board and the Iowa Environmental Protection Commission. The City was awarded $98.5 million in funding through the State Flood Mitigation Program. As outlined in the funding agreement between the city and the State Flood Mitigation Board, "the Flood Mitigation Board found the Project to meet the requirements established for participation in the Flood Mitigation Program as set forth in Iowa Code chapter 418 and the administrative rules implementing the same." A copy of the agreement endorsing the Project through the$98.5 million in funding can be obtained at: http://WWW.Cityofdubugue.org/DocumentCenter/View/22540. The Iowa Environmental Protection Commission (EPC) endorsed the environmental merits of the Project as reflected in its financial contributions for the construction of the W. 32nd Street Detention Basin (2nd phase of the Project); the construction of the Lower Bee Branch Creek Restoration Project(4`h phase of the project); and the construction of green, pervious alleys as part of the Impervious Surface Reduction (6`h phase of the Project). The EPC has also a stated commitment to contribute an additional$28.8 million to fund the Upper Bee Branch Creek Restoration Project(7`h phase of the Project) as reflected in the Clean Water SRF Fiscal Year 2015 Intended Use Plan which was approved by the EPA on June 17, 2014. The Intended Use Plan can be found online at: http://www.iowasrf.com/media/cros/FY 15 IUP F823055274474.pdf. Additional endorsements through financial contributions include the U.S. Department of Transportation Federal Highway Administration,the U.S. Department of Commerce Economic Development Administration, Iowa Economic Development Authority, Dubuque Community Schools, Dubuque County, and others. The Project has been the subject of numerous articles in the local newspaper(Telegraph Herald) but also national publications. See: American Rivers. Daylighting Streams: Breathing Life into Urban Streams and Communities. (2013): 10. Brown,Jesse. "Dubuque Builds a Sustainable Future." Working for Clean Water, 2012 Iowa Watershed Successes. (2012): 6-7. Carey,John A. "After the Deluge." Scientific America December 2011: 72-75. "Dubuque Named "River City of the Year"." Iowa Rivers Revival. Iowa Rivers Revival, 31 Jan. 2013. Web. 08 Jan. 2015. Fetty, Nick. "Dubuque and Other Communities Improve Infrastructure for Future Natural Disasters." Iowa Environmental Focus. N.p., 09 Sept. 2014. Web. 08 Jan. 2015. Fetty, Nick. "Dubuque Recognized for Efforts to Address Climate Change." Iowa Environmental Focus. N.p., 09 Dec. 2014. Web. 08 Jan. 2015. "Interagency Project Example: Dubuque, Iowa —Flood Risk Mitigation with Environmental Enhancements." The BUZZ Special Edition (Aug. 2014): 4-6. Manning, Michael. "Creek Restoration Turns Flood Plain into Park-Like Amenity."Sustainability City Network. N.p., 28 Nov. 2012. Web. 08 Jan. 2015. Vock, Daniel C. "Facing Climate Change,Cities Embrace Resiliency." Governing September 2014: 24-30. 12. To what extent do you believe your program or policy initiative is potentially replicable within other jurisdictions and why? To your knowledge, have any other jurisdictions or organizations established programs or implemented policies modeled specifically on your own? (maximum 500 words) The success of the program can be tied directly to the City's ability to form partnerships and bundle various, diverse outside funding sources in order to implement a large-scale resiliency project at an affordable cost to citizens. The secret is to package or market the project elements that appeal to a specific audience, seek to form partnerships with other agencies or groups where missions converge. For example, the Iowa Economic Development Authority is interested in growing the tourist economy in the state. As a result,they partnered with the city to help create amenities associated with the overall Project. Others have already concluded that Dubuque's approach is replicable. The Environmental Finance Center (EFC) at the University of Maryland included an "infographic" about the Project as part of EFC's"Green Infrastructure Financing Map."The purpose of the map is to share the story of communities like Dubuque and hold it up as an example for other communities with similar issues. The map can be found online at http://efc.umd.edu/GiMap.htmi. Because of their belief that others could replicate how Dubuque was able to bundle funding sources in order to implement a large-scale project such as the Bee Branch Watershed Flood Mitigation Project, the U.S. EPA invited Dubuque to present as part of its Green Infrastructure WebcastSeries. In particular,the EPA wanted to highlight Dubuque's ability to "leveraged Clean Water State Revolving Fund resources for a flood mitigation project that provided multiple economic,environmental and social benefits." More information about the webcast, including the slides and transcript,can be found at http://water.epa.gov/infrastructure/greeninfrastructure/gi training.cfm#webcasts. The other replicable element of the Project is related to the public outreach and engagement effort included at every step of the process from moving a large scale, complex project from a concept to a reality. The city initiated meetings with neighborhood groups early in the process, implementing a public engagement strategy to accommodate public input and consider social and economic concerns of those residents being impacted. A thirty member citizen advisory committee was formed to help determine how to fund the Project.The committee recommended the establishment of a stormwater utility but also that the city continue to seek other outside funding sources to offset the cost to Dubuque citizens.The pulse of residents in the impacted neighborhoods and others in the community was continually monitored. The Bee Branch Citizen Advisory Committee held five public meetings where City officials and consultants presented preliminary plans seeking discussion, including alternatives. Citizens were asked to state both their fears and their preferences. Cost comparisons and lifestyle impacts were considered. Surveys were taken. As opinions changed and new ideas came forward, information was shared. Over the course of the project planning, citizens indicated their desire for benches and tables, bike/hike trails, and aesthetically-pleasing bridges. City of Dubuque is using it as an example in order to build partnerships and community engagement as part of other community undertakings. BUDGET 13. What is the program's current operating budget? What are the program's funding sources (e.g., local, state,federal, private)? What percentage of annual income is derived from each? Please provide any other pertinent budget information. (maximum 500 words) Funding for the Bee Branch Watershed Flood Mitigation Project comes from multiple sources including financial assistance from the State of Iowa and Federal government, private donations, GO bonds, and funds from the local Stormwater Utility. The City was awarded $98.5 million from the Iowa Flood Mitigation Board in the form of state sales tax increment financing. Each year the total amount of state sales tax charged on goods and services purchased in Dubuque is projected to increase.This increase is called the "sales tax increment". From 2013 to 2033, up to 70 percent of this sales tax increment can be distributed to the city to help fund the Bee Branch Watershed Flood Mitigation Project. The City of Dubuque was awarded $5,600,000 as part of the Federal government's American Recovery and Reinvestment Act of 2009 through the U.S. Department of Transportation Investment Generating Economic Recovery grant.The funding was used to enhance mobility, improve the safety and condition of the streets, and create a pervious pavement system to infiltrate floodwaters in the Historic Millwork District. The City was awarded $3,965,500 for the Lower Bee Branch Creek Restoration through the I-Jobs II program for Disaster Prevention improvements. The City was awarded a River Enhancement&Community Attraction and Tourism Grant from the state to help fund amenities along the Bee Branch Creek Restoration. Amenities include overlooks, scenic bridges, hike/bike trails,amphitheater,trees and landscaping. A$1,000,000 U.S. Department of Transportation National Scenic Byways Grant was awarded to the City to help fund the bike/hike trail along the 4,500-foot long creek restoration project. It effectively extends the 26-mile Heritage Trail from Dyersville all the way to the Mississippi River. Towards that end, a $100,000 State Recreational Trail grant was awarded for to project. And $640,000 in Dubuque Metropolitan Area Transportation Study Transportation Enhancement funds were obtained for a trail head parking and a creek overlook. The Iowa Environmental Commission has approved the City's use of U.S. EPA Clean Water SRF for various project elements. The financial assistance comes in the form of a 2% interest rate on a $28.8 million loan,of which $4.4 million will be forgiven, and $9.4 million through the state's Clean Water SRF Sponsored Projects Program. The Clean Water SRF's Sponsored Projects Program allowed the City to reallocate$9.4 million that was to be paid in interest on the loan associated with wastewater plant upgrades to instead be used to construct more than 70 green alleys in the Bee Branch Watershed. America's Rivers III is an ongoing public support campaign for the Bee Branch Creek Restoration that has resulted in general public and private sector contributions of$165,000. Dubuque is one of the more than 30 communities across Iowa with a storm water utility. Currently, the fee rate in Dubuque is the 2nd highest and 37% higher than the average rate. The fee generates$3.5 million per year and it is being used to retire debt issued to construct the project. PROGRAM AWARDS AND RECOGNITION 14. Has the program or policy initiative received any awards or other honors? If so, please list and describe the awards or honors and the sponsoring organizations. If no, please indicate "not applicable"below. (maximum 500 words) The City is pleased to have received the following recognitions and honors from local,state,and national organizations acknowledging the Bee Branch Watershed Flood Mitigation project: White House Climate Action Champion (2014) Iowa Rivers Revival River City of the Year(2012) 1000 Friends of Iowa Best Development Award for Stormwater Management(2014) Dubuque Metropolitan Area Solid Waste Agency EnViro Star Award (2013) American Council of Engineering Companies Engineering Excellence Award (2011) Components of the BBWFM project have also received national recognition: in the 2013 EPA National Award for Smart Growth Achievement(Historic Millwork District/Washington Neighborhood Corridor) 15. Has the program received any press or other media coverage to date? If yes, please list the sources and briefly describe relevant coverage. If no, please indicate "not applicable"below. (maximum 500 words) The BBWFMP,as part of the community's Sustainable Dubuque efforts, has received extensive coverage. From germination to the current construction process,the BBWFMP project has been featured in numerous national and local publications and media coverage. Facing Climate Change, Cities Embrace Resiliency. Governing Magazine, 2014 Working for Clean Water. Iowa Watershed Report,2012 Countless local media coverage, including Telegraph Herald and Julien's Journal articles The City of Dubuque is also honored to be able to share the BBWFMP as a best practice with other communities at the request of state and federal agencies and associations. In each of these presentations, City representatives were able to share the evolution of the BBWFMP. This presentation includes detail regarding project need, impact,community engagement process, innovative funding braiding strategy, legislative support,and engineering best practices. Presentation at National League of Cities Conference regarding climate change adaptation (Austin, 2014) Presentation to federal agencies at the request of EPA(Washington DC, 2014) Midwest Natural Resources Working Group(Chicago, 2014) Climate Communities national webinar(Webinar, 2014) Sustainable City Network national webinar(Webinar, 2012) ORGANIZATION CHART 16. Please attach an organization chart to show the current number, responsibilities, and reporting relationships of key program employees or staff. (maximum 1 page. Any additional materials attached will be discarded.) See Attached Bee Branch Watershed Flood Mitigation Project Organization Chart City of Dubuque, Iowa Citizens of Dubuque Role: Project advocates,steering committee members&selection of project alignment City Council Roy D. Buol, Mayor Role:Policy Decision Makin City Manager's Office Michael C.Van Milligen,City Manager Responsibility: Implementation of City Council Policy Agenda Engineering Department Gus Psihoyos,City Engineer Responsibility: Design and construction of infrastructure related to Stormwater, Sanitary Sewer and Public Right of Way(ROW) Stormwater Management Deron Muering,Civil Engineer II (CE II) Responsibility:Project Manager Bee Branch Watershed Flood Mitigation Project Design Finance Deron Deron Muering,CE Operation and Public Muering,CE 11 Construction II Maintenance Engagement Dean Matoon, Deron Jenny Larson, Responsibility: Kristin Hill, Engineering Muering,CE 11 Budget Director Communications Technician g Public Works Specialist Steve Brown, Alexis Steger, Dept. Responsibility: Special Accountant/Grant Leisure Services Responsibility: -Permit Projects Administrator Dept. Outreach to Agency Review Manager Assistant Citizens; Develop including DNR, Responsibility: Responsibility: Project Website& EPA,SHPO and Oversee Pre are and Leisure Services Social Media; USACOE p Develop construction present project Public Works Marie Ware, information -Coordinate time line; financial updates; Manager on John Klosterman, distributionIan; engineering ensure Ensure funding P Supervisor Responsiblity: Develop project design; Ensure construction requirements are publications; design standards are met;apply for new Responsibility: Sediment& coordinate public complies with met; Manage fundingsources; Cleaning and debris removal meetings and Iowa State contractors Implement and repair of existing of existing presentations Code,SUDAS Oversee projectstormwater stormwater and other budget infrastructure in infrastructure in requirements Public ROW Parks and Public ROW Utility Billing State Revolving Fund(SRF) State Flood M7and n Program Rose Hoerner,Supervisor Alexis Steger Alexier Responsibility: Respoty: Responsiblity: Oversee project progress, provide Oversee Salencrement Maintain Stormwater low interest loan for project; calculations ayments; billing system for project Ensure Environmental and Compile Yearorts to the funding Historical Code compliance State Lure