Environmental Protection Agency (EPA) PM Advance Path Forward Copyright 2014
City of Dubuque Action Items # 4.
ITEM TITLE: Environmental Protection Agency (EPA) PM Advance Path Forward
SUMMARY: City Manager recommending approval of the revised Path Forward for
submittal to the Environmental Protection Agency's PM Advance Program.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve
ATTACHMENTS:
Description Type
❑ Clean Air Attainment Strategy-MVM Memo City Manager Memo
❑ Memo Staff Memo
❑ Advance PM 2.5 Path Forward Final Draft 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: Clean Air Attainment Strategy, Environmental Protection Agency PM
Advance Program, Path Forward
DATE: February 20, 2015
In February 2014, the City Council approved the City working on the Environmental
Protection Agency's PM Advance Program. Since that time, the Air Quality Task Force,
has formulated the Path Forward, sent a draft to the Environmental Protection Agency
and the Iowa Department of Natural Resources and received their comments. The Path
Forward is a five year plan that provides a schedule for implementation of various
activities designed to maintain and improve the air quality, specifically PM 2.5.
The Dubuque Metropolitan Area Transportation Study (DMATS) Policy Board approved the
plan at their November 13, 2014 meeting, with the task force making minor edits.
In addition to DMATs, the Environmental Stewardship Advisory Commission has also
reviewed the plan and will continue having input as the Path Forward is implemented.
The Air Quality Task Force made changes and additions based on the Iowa Department of
Natural Resources and the Environmental Protection Agency's input to the Path Forward
draft. The revised Path Forward is attached. It is important to remember this plan is a
working document, and will be periodically modified as it is implemented over the next three
years.
Public Health Specialist Mary Rose Corrigan and Sustainability Coordinator Cori
Burbach recommend City Council approval of the revised Path Forward for submittal to
the Environmental Protection Agency's PM Advance Program.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
// Iju�
Mic ael C. Van Milligen
MCVM:jh
Attachment
cc: Barry Lindahl, City Attorney
Cindy Steinhauser, Assistant City Manager
Teri Goodmann, Assistant City Manager
Mary Rose Corrigan, public Health Specialist
Cori Burbach, Sustainability Coordinator
2
THE CITY OF Dubuque
DuB E
III1.
Masterpiece on the Mississippi ,.2M-N13
TO: Mike Van Milligen, City Manager
FROM: Mary Rose Corrigan, Public Health Specialist
Cori Burbach, Sustainability Coordinator
SUBJECT: Clean Air Attainment Strategy, EPA PM Advance Program, Path Forward
DATE: February 19, 2015
INTRODUCTION
This memorandum provides information regarding the attached revised Path Forward
Plan for implementing a Clean Air Attainment Strategy in conjunction with the
Environmental Protection Agency (EPA) PM Advance program.
BACKGROUND
In February 2014, the City Council approved the City working with the Greater Dubuque
Development Corporation (LDDC), East Central Intergovernmental Association (ECIA),
and Dubuque Metropolitan Area Transportation Study (DMATS) in participating in the
EPA's PM Advance Program. Since that time, the Air Quality Task Force, has formulated
the Path Forward, sent a draft to Environmental Protection Agency and Iowa Department
of Natural Resources (IDNR) and received their comments. The Path Forward is a five
year plan that provides a schedule for implementation of various activities designed to
maintain and improve the air quality, specifically PM 2.5.
DISCUSSION
The Dubuque Metropolitan Area Transportation Study Policy Board approved the plan
at their November 13, 2014 meeting, with the task force making minor edits.
In addition to Dubuque Metropolitan Area Transportation Study, the Environmental
Stewardship Advisory Commission has also reviewed the plan and will continue having
input as the Path Forward is implemented.
The Air Quality Task Force made changes and additions based on Iowa Department of
Natural Resources and Environmental Protection Agency's input to the Path Forward
draft. The revised Path Forward is attached. It is important to remember this plan is a
working document, and will be periodically modified as it is implemented over the next
three years.
RECOMMENDATION
We recommend the City Council approve the revised Path Forward for submittal to the
1
Environmental Protection Agency PM Advance Program.
COUNCIL ACTION
Authorize staff to submit the Path Forward to Environmental Protection Agency.
cc Chandra Ravada, East Central Intergovernmental Association
Dave Lyons, Greater Dubuque Development Corporation
Rick Dickenson, Greater Dubuque Development Corporation
Bob Schiesl, Assistant City Engineer
2
INTRODUCTION
Dubuque is the oldest incorporated community in the state, encompassing 30 square
miles adjacent to the Mississippi River in eastern Iowa (see appendix 1 for map). Anchoring a
region that encompasses portions of Iowa, Wisconsin, and Illinois, Dubuque serves as the hub for
commerce, recreation, and population in the tri-states area. Long a center for manufacturing,
early industry in Dubuque evolved from mining and fur-trading to encompass button making,
boat building, logging, millworking, meat packing, and other heavy industries in its first hundred
years. In the latter half of the 201' century, the community's economy has diversified from its
manufacturing base and now includes finance and insurance, professional services, information
technology, and more. In addition, Dubuque is now a major retail, medical, and higher education
destination for the tri-states area and beyond.
More recently, the story of Dubuque has been about revival and revitalization. Dubuque
was a city experiencing difficult times beginning in the early 1980s, suffering from double-digit
unemployment, an exodus of residents from the community and the state, and struggling
businesses. Dubuque was the hardest-hit community in what was then the worst recession since
the Great Depression, and at one point had the highest unemployment rate of any metropolitan
area in the nation. However, leadership from both the private and public sectors has been able to
turn the tide over the past three decades by focusing on redeveloping numerous parts of the
community and expanding Dubuque's commercial and industrial base.
The Dubuque of today is Iowa's tenth-largest city, with three percent of the state's
population the Dubuque Metropolitan Statistical Area (MSA) is responsible for over eight
percent of the net job gain in the state over the last four years, serving as a model for economic
transformation in the Midwest(see appendix two for recent awards).
Dubuque will bring this 'ban-do" spirit of public/private collaboration to the challenge of PM 2.5
DEMOGRAPHIC INFORMATION (DUBUQUE COUNTY)
Population (2013): 95,697
Population (2010): 93,653
Population under 18 (2013 percent): 23.1 percent
Population over 65 (2013 percent): 15.9 percent
Median Household Income (2012): $50,885
Persons below Poverty Level (2012 percent): 10.3 percent
Unemployment Rate (2013): 4.5 percent
Average Hourly Wage (2013 Private Sector): $23.38
1
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Grant County, WI
Dubuque County, IA
(Outside DMATS region) ALJ"'
MAI Dunuaue __--_—___.__--_
e Daviess County, IL
Dubuque County, IA
(inside DMATS region)
Dubuque County, IA
(Outside DMATS region)
Legend
�] Mississippi River
DMATS
PM 2.5 & AIR QUALITY IMPORTANCE IN DUBUQUE
Fine particulate matter, or PM 2.5, is one of several air pollutants that can affect air quality and
public health. PM 2.5 refers to the size of the particles — 2.5 micrometers or smaller. The size of
particles is directly linked to their potential for causing health problems. Small particles less
thanl0 micrometers in diameter pose the greatest problems, because they can get deep into your
lungs, and affect your health. The Clean Air Act requires EPA to set air quality standards to
protect both public health and the public welfare. Particle pollution affects both, and can also
impair visibility by producing haze, impact ground and water quality, and impact crops and
vegetation.
After serving 10 years on the City Council, Roy D. Buol ran for the office of Mayor in 2005. His
platform was based upon "engaging citizens as partners," and what he heard from thousands of
citizens was a consistent theme surrounding water quality, air quality, recycling, green space,
public transit, cultural vitality, accessibility and downtown revitalization. During the 2006 City
Council goal-setting process, Mayor Buol proposed and received full support from his council
colleagues to focus on sustainability, including air quality, as a City top priority, stating "cities
2
that get out in front on sustainability will have competitive economic advantages in the future."
What soon became known as Sustainable Dubuque is a City Council adopted, community
created, and a citizen-led initiative whose story officially began in 2006. A City Council priority
each year since, we are continually working to expand awareness, create partnerships, and
encourage initiatives involving all sectors of our community. Dubuque became an early leader on
the sustainability front.
ECOLOGICAL
ECONOMIC
Eqa
PROSPERITY
ble CULTURAL
VIBRANCY
Embodied as one of the 12 principles within the Sustainable Dubuque Vision was a vision for
Healthy Air ( "Fresh, clean air, reduced greenhouse gas emissions and minimized health risks")
as well as a vision for a Strong Regional Economy .
It is a priority for the City of Dubuque and its Sustainable Dubuque vision to assure that both of
these priorities (Healthy Air and Strong Regional Economy) can be achieved. In the recent past
there have been instances where PM 2.5 emissions have been higher than anticipated. The
recently-created PM Advance program is a collaborative effort recently launched by the EPA.
The program helps local governments achieve emission reductions in ozone and PM 2.5 in order
to protect public health and efficiently direct available resources toward actions to proactively
address problems quickly. The program assists governments who are proactively trying to avoid
becoming "non-attainment" communities, or communities whose air pollutants persistently
exceed EPA standards. The PM Advance program became a key avenue for Dubuque to address
the Sustainable Dubuque goals of Healthy Air and a strong Regional Economy, minimizing
health risks without threatening economic growth and opportunity.
EXISTING CONDITIONS
EMISSIONS DATA
The overwhelming majority of PM 2.5 emissions produced in Dubuque County are generated
from natural resources: specifically, the large majority of the emissions are generated by
agricultural tilling. The next largest category of PM 2.5 emissions is from fuel combustion from
3
others mobile sources such as heavy-duty diesel vehicles, light-duty gasoline vehicles, and off-
road diesel and gasoline equipment Following that are point-source emissions, with the bulk of
these emissions being produced by waste disposal & recycling and other identified sources
(Source). The percentage breakdown of emission source for PM 2.5 are shown below
Dubuque County PM 2.5 emissons by source in tons
•Fuel C basbm-Electro MEN
10394,3% •Fad C®bastim-rada4nat
54.43,2% •Fad C®ba4im-older
196.91,5% 0 othg ludastriai Process
54.91,2% 0Solved Otdbafim
11.36,0%
2&80,1% •Storage&Trmspatafim
158.47,4%E Was@ Disposal&Reycbag
3].95,1%
6&39,2% Ellighway Vehicles
IN •of iriighway
MNalaral Resm�
Source:EPA 2011 National Emissions Inventrny
As will be outlined, significant efforts are already underway in the community on point-source
emissions with additional efforts under active development Innovative efforts are also being
undertaken on mobile sources as well. These efforts will drastically reduce the level of PM 2.5
emissions in Dubuque.
Dubuque County Emissions in 2011
4
Dubuque Co Emission data
Volatile 0rg icCompouMs ,09] • FSO{Cmoboalm-Pleddc
Sxlfiu Dioatle 1,003 • p�tlm,ln4lm_IvdvsMil
PM25 Pn=y(Filt+ Coon 2p2] • FuSCombotim- ollsse
PM25 Filterable 1,609 • OtMeInobt gPmoesses
PM10 &ima9(Filt + Conn 9,O61 09olvmt Otlmoov
9tmege &Temrportetlm
PMIO Filterable 9,357
• yyene D,Toml& Reryolieg
Nitrogen Pides 3, 05 • H,�wgVeh ,l,,
Anon 257 • Off H1�wey
Carbon Monmide 16, 96 • N,L ,l R,,ovws
0 5,000 10,000 15,000 20,000
TONS
9owce: EPA 2011 Neooml Pmissm,Ivwntmy
Fuel Fuel Fuel ONe' Mvmt
Cmubus m- CmubuOou- Cmubus m- Mustrial Ul fim
ommcUmq maum 0mm 2mcrosm
Carbon M000mde 19151 19559 1,40961 1251 0.13
Amnioma 042 4.06 3247 000 000
Niho enOmdes 61772 256.06 23932 030 0.15
PM10 Filterable 4941 41.05 6.16 3222 6.13
PM10Pnma (Fil[and) 5432 44.01 19286 6164 6.13
PM25 Filterable 4941 2575 5.17 1275 560
PM25Pvmary
Filt+ Cood 5432 28.68 19174 42.16 568
Sul Eu Dioxide 667.04 365.63 1292 000 000
VomhleOrg is 535 1570 24973 2394 1,49390
nip 0.ds
iOiAL 1bW51 MA0 2,33996 18552 1,51780
Sow,, PPA2011 Netore Pm,,,on,lvwvbry
Stuage@ WaAe MToml Hi�way �.-w�way NaNrel
Ta TT am &Rmyc g Vlclm remomcm
Carb on M000mde 000 561.07 72240 5,06909 93400
Amnioma 000 3493 2576 090 4,15000
Nihogen Omdes 000 5643 1,16102 93734 37.02
PM10Filterable 14.42 93.41 0.00 0.00 9,114.02
PM10 Primary(Fill 14.45 93.94 49.31 72.03 9,272.61
+ Cond)
PM2.5 Filterable 14.38 78.97 0.00 0.00 1,416.73
PM2.5 Primary 14.41 79.50 37.95 68.39 1,504.55
(Fill+Cond)
Sulfur Dioxide 0.00 8.07 6.30 4.81 18.48
Volatile Organic 730.26 49.57 678.59 747.57 102.37
Compounds
TOTAL 787.93 1,056.69 9,176.42 7,701.01 26,557.94
Source: EPA 2011 National Emissions Inventory
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COMPARISON
Dubuque County data is compared to Scott County data as Scott County is located on
Mississippi river on Iowa side with twice the population size of Dubuque County. Scott County
almost became a non attainment area but the report released by EPA in 2012 shows that Scott
County is an unclassifiable/attainment area. (source:
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htty://www.enacov/airguality/varticievollution/designations/2l2standards/final/Davenvort Final
UATSD Final.ndf ) The EPA uses a designation category of "unclassifiable/attainment' for
areas where air quality monitoring data indicate attainment of the NAAQS and for areas that do
not have monitors but for which the EPA has reason to believe are likely to be in attainment and
are not contributing to nearby violations.
EMISSIONS DATA
The overwhelming majority of PM 2.5 emissions produced in Scott County are generated from
natural resources: specifically, the large majority of the emissions are generated by agricultural
tilling and roadways (both unpaved and paved). The neat largest category of PM 2.5 emissions is
from Metals Processing and Other Industrial Processes. Following that are point-source
emissions, with the bulk of these emissions being produced by Waste Disposal & recycling and
other identified sources (Source). The percentage breakdown of emission source for PM 2.5 are
shown below
Scott County PM 2.5 emissonsby source in tons
448.19, 11% ■Fuel Combustion -Electric Utlity
169.92, 4% •Fuel Combustion - Industrial
■Fuel Combustion - other
46.40, 1%
■Other Industrial Processes
311.23, 7% M Solvent Utilization
355.34, 8% ■ Storage & Transportation
1.24, 0% ■Waste Disposal & Recycling
135.30,3% m Highway Vehicles
1.94,0% m Off-Highway
58.19,2% m Natural Resources
100.22,2%
■Metals Processing
Source: EPA 2011 National Emissions Inventory
The over all PM 2.5 emissions in Dubuque County from different sources is 3,636 tons where as
Scott County PM 2.5 emissions are around 4,258 tons. Even though the overall emissions in
Dubuqe County are less than Scott County, Dubuque County has higher emissions in Natural
Resources, Fuel Combustions—Industrial, Waste Disposal & Recycling and Solvent Utilization.
Table below provides the comparison between Dubuque County and Scott County.
PM 2.5 emissions by source in tons
Source Dubuque County Scott County
Fuel Combustion -Electric Utility 103.74 169.92
Fuel Combustion - Industrial 54.43 46.40
Fuel Combustion - other 196.91 311.23
Other Industrial Processes 54.91 355.34
Solvent Utilization 11.36 1.24
Storage & Transportation 28.80 135.30
Waste Disposal & Recycling 158.47 1.94
Highway Vehicles 37.95 58.19
Off-Highway 68.39 100.22
Natural Resources 2,921.29 2,630.45
Metals Processing 0 448.19
Total 3,636.22 4,258.43
Source: EPA 2011 National Emissions Inventory
Emissions in tons for Year 2011
Emissions Dubuque County Scott County
Carbon Monoxide 16,395.66 26,463.39
Ammonia 4,257.50 1,931.74
Nitrogen Oxides 3,305.35 7,152.60
PM10 Filterable 9,356.84 8,617.08
PM 10 Primary(Filt+ Cond) 9,861.31 9,710.09
PM2.5 Filterable 1,608.84 1,703.64
PM2.5 Primary (Filt+ Cond) 2,027.38 2,554.79
Sulfur Dioxide 1,083.25 5,349.02
Volatile Organic Compounds 4,097.04 5,936.48
TOTAL 51,993.17 69,418.84
Source: EPA 2011 National Emissions Inventory
The overall data shows that Scott County exceeds Dubuque County in all emissions except for
ammonia and PM 10 Filterable.
The comparison between Dubuque County and Scott County shows that Dubuque is still an
attainment area(any area that meets the national primary or secondary ambient air quality
standard for the pollutant)with existing EPA standards.
ADDITIONAL DATA
In addition to publicly-available PM 2.5 emissions data provided by the U.S. Environmental
Protection Agency (EPA) and the Iowa Department of Natural Resources (DNR), Greater
8
Dubuque Development Corporation financed a study in 2011 to examine the external sources of
PM 2.5 emissions. While Dubuque is making significant progress in reducing its emissions, the
study (conducted by climate researchers at the University of Wisconsin and the University of
Northern Iowa) found that a substantial level of PM 2.5 emissions in Dubuque County are
generated from sources many miles south of Dubuque and carried northward by persistent winds,
often resulting in high PM 2.5 measurements. PM 2.5 levels in Dubuque are exacerbated by the
atmosphere's inability to mix air vertically, especially in colder months. In summary, there may
be a unique set of characteristics, caused by Mississippi River Valley wind patterns, that make
PM2.5 measurements seem artificially high compared to the diminishing production of point-
source PM2.5 emissions in the community. Additionally, cold weather thermodynamics can
make these measurements seem even higher in the coldest months (although this characteristic
may not be limited to Dubuque).
A summary of the researchers' findings is below, and the full study is included as
Appendix 5.
"While there is variability between cases within the high and low sets examined in this project, it
is still possible to make some summary statements. The average virtual potential temperature
profiles for the high PM2.5 cases consistently depict a stably stratified atmosphere that would
resist vertical mixing of air pollution by turbulent processes. On the other hand, the average
profiles for the low cases consistently depict a mixed layer where turbulence would act to reduce
the concentration of particulates at the surface. Both HYSPLIT back trajectory calculations and
surface wind roses indicate that winds at and near the surface most commonly have a southerly
component in the high cases, and a northwesterly component in the low cases. However,
southerly surface winds at Dubuque are not necessarily a good predictor ofPM2.5 concentration
atPotosi. South winds are common at Dubuque every month of the year, yet high PM2.5 episodes
are more strongly associated with cold than warm months. The suggestion is that the
atmosphere's ability to mix air vertically is a dominant process in explaining high PM2.5
measurements. As seen in this study, the thermodynamic structure of the lower atmosphere is
notably and quantifiably different when PM2.5 measurements are high."
PLAN DEVELOPMENT & STAKEHOLDER ENGAGEMENT
This Path Forward plan is the collaboration of a wide range of local and regional entities,
including, but not limited to, Dubuque Metropolitan Area Transportation Study, City of
Dubuque, East-Central Inter-governmental Association and the Greater Dubuque Development
Corporation. (For more detailed information on partners, see appendix 3)
Wide community and stakeholder engagement developed the original Sustainable Dubuque
vision and its principle of Healthy Air. When air quality was identified as a City Council priority
in 2013, an Air Quality Task Force comprised of the City of Dubuque, Dubuque Metropolitan
Area Transportation Study, East Central Intergovernmental Association, and Greater Dubuque
Development Corporation began meeting and have led the development of this document. In
9
that process wider stakeholder outreach began in its preliminary stages, including with Green
Dubuque and the Environmental Stewardship Advisory Commission. Under development is an
even wider stakeholder education and engagement process on general issues of air quality, which
would complement the Advance PM work. As the first steps, we are working with the Iowa
Department of Natural Resources to identify and implement an air quality education program,
beginning with the topic of "local air monitoring". The goal would be to conduct this
educational and outreach session early in 2015 with known and identified stakeholders. This
would be followed by a community-wide educational session on the issue later in 2015. Input
from this wide stakeholder outreach process would be incorporated into the future annual
updates to this Path Forward. Additionally, it is our intention that a progress report regarding the
goals in this document would be provided to the engaged stakeholders and public on an annual
basis.
GOAL OF THIS PATH FORWARD
The Dubuque community's goal is to remain in attainment status and pursue projects and
programs that will improve air quality and public health in the tri-state area while supporting a
thriving local economy. Through this Path Forward, we will:
• Outline and recommit to immediate actions being taken to remain in attainment.
• Discuss and strategize additional actions under development.
• Assure additional citizen, stakeholder and expert input on future efforts beyond simple
attainment.
• Assess if local action alone can maintain attainment standards.
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CURRENT PROJECTS UNDERWAY - IMMEDIATE -
POINT SOURCE
EMISSIONS FROM LARGEST POINT-SOURCE IN THE COMMUNITY HAVE BEEN
ELIMINATED
Jeld-Wen, one of the world's largest manufacturers of wood doors and windows, operated
a manufacturing plant in down-town Dubuque since 1978. This plant, which manufactured door
skins using wood fibers, was the single-largest point source emitter of PM 2.5 emissions in
Dubuque County. For example, as of 2012 Jeld-Wen released 25.62 tons of PM 2.5 annually,
which is more than double the next-highest PM 2.5 emissions contributor in the community. The
community worked with Jeld-Wen in 2011 on a plan to actively manage PM 2.5 and precursor
emissions. In 2013, Jeld-Wen ceased operation of the plant in Dubuque completely, as the plant
is outdated and the site is located adjacent to the Millwork District (a fast growing urban-
revitalization and housing area).
EMISSIONS FROM THE COMMUNITY'S ENERGY PLANT HAVE BEEN
SIGNIFICANTLY REDUCED AND WILL BE ELIMINATED
The community receives its electrical power from Alliant Energy, a regulated private
utility operating in Iowa, Wisconsin and Minnesota. Alliant has historically provided power to
the community by operation of the Interstate Power and Light Dubuque Generating Facility, a
61-MW coal fired power plant located on the Dubuque riverfront. That plant was the largest
CO2e generator in the community, as well as one of the five largest PM 2.5 emitters. In 2011
Alliant switched the generation fuel source from coal to natural gas, significantly reducing
emissions (Alliant will be providing additional detail on reductions which we will be added to the
plan when it arrives). In addition, the hours of operation for the facility since 2011 have been
significantly reduced, also curtailing emissions. Lastly, Alliant filed notice that it will cease
operation completely of the Dubuque Generating Facility in early 2015, removing the remaining
emissions from this source, estimated at(Alliant will be providing additional detail on reductions
which we will be added to the plan when it arrives).
EMISSIONS FROM COMMUNITY'S LARGEST EMPLOYER WILL BE REDUCED
The largest employer in Dubuque is the John Deere Dubuque Works. A manufacturer of
farm, forestry and construction equipment has also historically been one of the top five PM 2.5
emission sources in the community. It has recently announced that it would cease coal fired
energy production at its Dubuque facility. In its initial filing with the Iowa Utilities Board on
December 22, 2011 (John Deere will be providing additional on when the coal fired energy
ceased which we will be added to the plan when it arrives), John Deere stated it has ceased the
"use of coal-fired generation for several reasons including implications of the proposed
Maximum Achievable Control Technology (MACT) standards" that are to control the release of
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mercury and other hazardous pollutants. The Iowa Utilities Board had stated that the plant's
annual net generation was 31,496 MWh prior to conversion.
CITY OF DUBUQUE PROGRAMS REDUCE PM 2.5 IN ITS OWN OPERATIONS
Dubuque has committed record resources to the goal of upgrading City facilities, services
and operations to increase efficiency, reduce costs and improve environmental outcomes,
including the reduction of PM 2.5 in the community. As an example, on October 3, 2013 the
City of Dubuque held a ribbon-cutting to celebrate the completion of a $65 million upgrade to
the Water and Resource Recovery Center(formerly known as the Water Pollution Control Plant),
the single largest capital investment in the community's history. Initially approved by the City
Council in 2008, the update included replacement of 40 year old incinerators and construction of
four high-capacity anaerobic digesters to treat wastewater and high-strength waste from
commercial and industrial sources. This process, often called "codigestion", generates biosolids
that can be used as soil fertilizer on local farmland and also produces biogas (largely methane)
that is used to heat the digestion process and buildings at the facility and generate electricity to
operate the plant and sell back to the local utility. A study is underway to consider converting the
facility to produce renewable natural gas for transportation fuel. City projects such as this
contribute both directly and indirectly to PM 2.5 emission reductions in the community.
Dubuque's Water & Resource Recovery Center underwent a nearly $70 million upgrade that was
completed in 2013 and currently operates at 65 percent of its capacity. It features methane
production/capture and co-generation to produce electricity and create heat for the operation of
the facility. It is expected to be electrically self-sufficient within a few years and will save
$250,000 in annual energy expenses. It also now better serves local industries by accepting high-
strength waste. The project is more environmentally friendly than the former waste incineration
and responded to a US EPA consent degree.
The $70 million upgrade of Dubuque's Water & Resource Recovery Center was completed in
late 2013, the result of the largest capital improvement project in the City's history at that time.
The facility now utilizes anaerobic digestion to manage bio-solids, eliminating incineration of
solids from the treatment process. The innovative design, construction, and management of this
facility are expected to cut heating and cooling usage by up to 30 percent, reduce electrical
demands by 75 percent, and improve the quality of treated water released back into the
environment. Additionally, the new treatment process produces a beneficial by-product, fertilizer
for farm fields.
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ACTION PLAN - IMMEDIATE - MOBILE
EMISSION REDUCTION VIA DERA (DIESEL EMISSION REDUCTION ACT)
PROGRAMMING
In 2005, the U.S. Congress passed the Diesel Emission Reduction Act (DERA) as an
amendment to the Energy Policy Act. DERA was designed to reduce diesel emissions from
existing diesel fleets that did not meet recently adopted federal emission standards. Through the
State Allocated DERA Funding to Iowa, the Dubuque Metropolitan Area Transportation Study
(DMATS) received an $80,000 grant in 2014 to convert City of Dubuque Public Works vehicles
to utilize clean diesel technology. Emission reductions for this project will be provided by end of
2015
EMISSION REDUCTION VIA CONVERSION OF TRANSIT SYSTEM.
The Jule is the operator of mass transit systems and services within the City of Dubuque.
The Jule offers transit bus routes throughout the city, trolley-replica transportation in Downtown
Dubuque and the Port of Dubuque, and on-demand paratransit "MiniBus" service citywide.
Operation of the Jule is the responsibility of ECIA and is supervised by a director who reports to
the Dubuque City Manager and acts on policy as given by the Dubuque City Council, on advice
of the Dubuque Transit Trustee Board. In 2011, The Jule updated the entirety of its 1970s-era 28-
vehicle fleet, with the smaller, right-sized busses running exclusively on clean diesel. By
reducing the size of some buses and replacing the entire fleet in 2011, emissions were reduced by
514 mt CO2e. In addition to a decrease in pollution from the fleet vehicles, a 28 percent increase
in public transit ridership in the last two years means that fewer single-occupancy vehicles are
contributing to the PM 2.5 problem as well.
EMISSION REDUCTION VIA USE OF ROUNDABOUTS
In addition to their improvements to public safety, roundabouts can claim numerous
environmental benefits, including decreased emissions due to reduced idling. Roundabouts often
provide environmental benefits by reducing vehicle delay and the number and duration of stops
compared with signalized or all-way stop-controlled alternatives. Even when there are heavy
volumes, vehicles continue to advance slowly in moving queues rather than coming to a
complete stop. This can reduce noise and air quality impacts and fuel consumption significantly
by reducing the number of acceleration/deceleration cycles and the time spent idling. DMATS
and the City are partnering on these efforts and the design and construction of several
roundabouts in Dubuque. One at Grandview Ave and Delhi St have received Notice of Funding
award from the Iowa DOT, three others are planned to be constructed in the next five years for
the Southwest Arterial construction and an additional one is under design and seeking funding at
Radford Rd and Pennsylvania Ave as part of East/west corridor Improvements.
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EMISSION REDUCTION VIA SIGNAL SYNCHRONIZATION
DMATS has long advocated for and worked towards improved traffic signal
synchronization in the Dubuque area, which can reduce idling and travel times, lowering
emissions levels. Corridor-wide or regional traffic flow improvements are designed to increase
average travel speeds, reduce vehicle delay and idling, and result in fewer vehicle accelerations
and decelerations. Specific projects include traffic signal synchronization, regional congestion
management systems, and intersection improvements. Many of these projects involve elements
of Intelligent Transportation Systems (ITS) managed by the City. In general, traffic flow
improvements that reduce congestion should reduce emissions of most pollutants by improving
the flow of traffic and minimizing stop-and-go conditions and idling. This has been
accomplished by interconnecting the traffic signals with fiber optics, allowing communication
between the signals. This, coupled with the installation of traffic cameras allows for signal
synchronization and real time signal adjustments according to traffic flows. The major highways
through Dubuque, US 20, the NW Arterial and US 52 (which utilizes Central Ave and White
Streets)have had significant results on fewer emissions from semi -trucks due to synchronization
of signals for dealing with hills and traffic. DMATS is in process of developing the project and
will be calculating the emission savings once the project plan is finalized.
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ACTION PLAN - LONG TERM
EMISSION REDUCTION THROUGH INCORPORATION OF AIR QUALITY INTO
COUNTY HEALTH GOALS
As part of Dubuque County's Community Health Needs Assessment and Health
Improvement Plan (CHNA-HIP) for 2011-2016, a goal was adopted to reduce PM emissions.
Specifically: By 2016 the air quality in Dubuque County will be in compliance with the Clean
Air Act standards by the number of days of moderately unhealthy and unhealthy air days being
reduced by maintaining attainment standards for PM 2.5. There are numerous sub-goals, such
as prohibiting open burning on bad air days and minimizing it overall, providing public
education to increase awareness of air quality problems, publicizing the current Air Quality
Index, and partnering with other organizations to reduce PM 2.5 emissions. A full copy of the
Dubuque Community Health Needs Assessment and Health Improvement Plan is attached as
Appendix 6. A new CHNA-HIP is now being drafted and will include community input, with an
expected completion date of May, 2015. The plan will be for a period ending in 2018. Since the
Air Quality Task Force has worked on this existing goal, more data sources have been identified,
which will assist in drafting specific and realistic goals. These goals may align with some of the
activities outlined in this Path Forward.
EMISSION REDUCTION THROUGH PUBLIC/PRIVATE PARTNERSHIPS.
One reason that economic recovery and revitalization have occurred so dramatically in
Dubuque has been its use of unique public/private partnerships. As it relates to PM 2.5 emission
reduction, an example is the Smarter Travel pilots with IBM. The City of Dubuque, along with
national and local partners, collaborated with IBM on its City-In-Motion project to conduct the
Smarter Travel pilot studies. The Smarter Travel pilot studies are part of Smarter Sustainable
Dubuque, the City's partnership with IBM Research and the research component of the
Sustainable Dubuque initiative. Collaborators include the City of Dubuque, IBM Research, The
Jule, East Central Intergovernmental Association, and local private businesses.
Dubuque's initial Smarter Travel pilot study used a smartphone application developed by
IBM Research and RFID technology to collect anonymous data on how, when and where
volunteer participants travel within the community The anonymous, aggregate data collected
was analyzed by IBM and the findings used by the City of Dubuque and its transit partners to
implement practices and policies that incorporate lower-cost and lower-impact travel options
within Dubuque (such as the redesign of transit routes). Like other Smarter Sustainable
Dubuque projects, this research was designed to give residents the information they need to do
what they want (reduce costs, save resources, and decrease their environmental impact).
Possible outcomes from the on-going pilots include, but are not limited to: reduced travel times,
increased fuel efficiency, increased traffic safety, reduced vehicle miles traveled (VMT), and
reduced carbon monoxide emissions.
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EMISSION REDUCTION VIA INNOVATIVE INFRASTRUCTURE
Earlier this year Dubuque broke ground on its sixteen million dollar intermodal
transportation hub, which will centralize innovative infrastructure for transportation conversions.
First to be implemented is Vehicle-to-Transit followed by Vehicle-to-Bike, Vehicle-to-Walk and
even Vehicle-to-Rail. Innovative infrastructures such as the intermodal facility, coupled with
improved data from the Smarter Travel pilots, will also allow acceleration of car-pool, van-pool
and other shared ride systems.
EMISSION REDUCTION VIA BUSINESS INNOVATION
The Dubuque business community is a leader in sustainability innovation and
implementation. The business community, coordinated by the Greater Dubuque Development
Corporation (GDDC) through its Innovation Consortium, develops and hosts specific business
programming on sustainability. A recent example impacting PM 2.5 is the Consortium's work on
compressed Natural Gas Vehicles and infrastructure. With leadership from Black Hills Energy
and private fuel providers, the private sector has embraced compressed natural gas as a more
environmentally friendly vehicle fuel and private NG fleets and fueling stations can now be
found in Dubuque. The City of Dubuque is currently piloting the use of two CNG pickup trucks
and will explore the opportunity to convert additional vehicles to CNG in the future, with
potential fueling sources including methane from the Water and Resource Recovery Center, and
Dubuque Area Metropolitan Solid Waste Agency. On November 13, 2013 GDDC brought
together a natural gas supplier, distributors and end users to discuss benefits (including return on
investment) of expansion of NG fueling.
EMISSION REDUCTION VIA REGULATION
While Dubuque is a community where positive change is most often achieved through
discussion, consensus and accommodation there are instances where direct regulation is
considered and occurs. Attached as Appendix 7 is Dubuque's adopted policy on recreational
burning. While not a primary contributor to PM 2.5, in densely-populated areas, a large number
of residents can be adversely impacted by the air quality resulting from recreational fires and
burning. To mitigate this, the City of Dubuque has adopted the International Fire Code (IFC),
which contains regulations and guidelines regarding recreational fires.
EMISSION REDUCTION VIA NON-POINT SOURCE COLLABORATIONS
While point-source reduction efforts are proceeding well within the community, the
Dubuque Air Quality Task Force will work to identify remaining point-source emitters and
develop an engagement process/campaign to identify additional individual improvements that
can be made. In addition, as the majority of the direct PM 2.5 in the region relates to non-point
sources of emissions, the Dubuque Air Quality Task Force will reach out to the relevant state
agencies and associations to determine if there are collaborative efforts which could be
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undertaken regionally between Dubuque and identified non-point source groups. Progress in
these areas can be added at the annual update of the Path Forward.
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ACTION PLAN - ASSURING CITIZEN, STAKEHOLDER
AND ENGAGEMENT
ENGAGING CITIZENS THROUGH EFFORTS LIKE SUSTAINABLE DUBUQUE'S
WORK ON AIR QUALITY.
"Dubuque is a viable, livable, and equitable community that embraces economic
prosperity, environmental integrity, and social/cultural vibrancy to create a sustainable legacy for
generations to come" became the vision. In order to implement that vision, a citizen-based task
force defined 12 key principles to guide the community's path to a more sustainable future.
These include: Regional Economy, Smart Energy Use, Resource Management, Community
Design, Green Buildings, Healthy Local Foods, Community Knowledge, Reasonable Mobility,
Healthy Air, Clean Water, Native Plants and Animals and Community Health and Safety.
With the support of technical and education assistance through Advance PM, Dubuque
would like to increase the focus on Air Quality within its Sustainable Dubuque model. In
addition to education efforts to increase the general public's understanding of the causes and
effects of PM 2.5, the Air Quality Task Force will explore partnerships with K-12 schools,
colleges, non-profits, and citizen groups to raise awareness and affect behavior change.
ENGAGING THE ENTIRE BUSINESSES COMMUNITY THROUGH
COLLABORATIONS LIKE THE PETAL PROJECT.
The Petal Project is a regional green business certification program designed to help
businesses in the Dubuque area adopt more environmentally-friendly business practices. The
program provides businesses with a simple framework for saving money and resources while
establishing a community-wide definition of a green business for consumers wishing to shop
based on their values. Currently, 30 businesses in the Dubuque area are participating in the Petal
Project, with 15 certified. These organizations span across a range of sectors including retail,
education, non-profit, manufacturing, finance, printing, and medical. Together these companies
employ over 4,000 people. For additional information on the Petal Project, see Attachment 8.
The Air Quality Task Force will explore opportunities to add air quality outreach to existing
business program such as the Petal Project.
ENGAGING EXPERTS THROUGH GOVERNMENTAL COLLABORATIONS SUCH AS
ADVANCE PM.
Dubuque has continually sought the input of state, national and international experts as it
works toward its Sustainable Dubuque vision. Advance PM is a perfect example of proactively
engaging experts on a key environmental issue. The areas and opportunities for technical
assistance are many, with four specific areas of interest to Dubuque at this time:
• Assistance in measuring progress from existing efforts and extrapolating into the future.
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• Assessing the ability to improve capacity for change through scientific, educational and
engagement efforts in the community.
• Assessing whether local action alone can be sufficient to maintain attainment status.
• Assistance with community education, outreach and engagement
APPENDICES
Appendix 1 —Dubuque County and City Map
Appendix 2 —Dubuque Awards
Appendix 3 —Path Forward Partners Information
Appendix 4—Dubuque County PM Emissions Data
Appendix 5 - Dubuque Air Quality Study
Appendix 6—Dubuque Health Needs Assessment and Health Improvement Plan
Appendix 7—Dubuque Fire Regulations
Appendix 8—Petal Project
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