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SDAT Report from AIA Sustainable Design TeamTHE CITY OF Dubuque as DLTB E t o Masterpiece on the Mississippi 2007 TO: The Honorable Mayor and City Council Members FROM: Michael C. Van Milligen, City Manager SUBJECT: SDAT DATE: July 1, 2008 Attached is the American Institute of Architects' Sustainable Design Assessment Team Report and Media Plan. 1 ~ ,~ Mic ael C. Van Milligen MCVM/jh Attachment cc: Barry Lindahl, City Attorney Cindy Steinhauser, Assistant City Manager Laura Carstens, Planning Services Manager Media Plan Include an outline of your media plan with a list of local media outlets and contacts The purpose of the Media Plan is to ensure public knowledge of the SDAT project throughout its development phases, acknowledge partnerships involved in its completion, and encourage continued use of the principles of sustainability the project will offer. Communication Tools As part of its long-term commitment to public involvement, the City of Dubuque will work diligently to connect with Dubuque residents, businesses, and other stakeholders. The City of Dubuque will use a variety of communication tools to keep Dubuque citizens informed of the SDAT project. The "City News" newsletter is published bi-monthly by the City's Public Information Office and inserted into utility bills. This publication is distributed to more than 21,000 households. The SDAT project will be featured in the newsletter. Additionally, City Channel 8, the City's public access television channel, broadcasts to the City's cable customers (with a penetration rate of more than 80% of households). Information about the SDAT project will be broadcast. The City's website, www.cityofdubuaue.ora, is a fast, efficient way to highlight new projects and update ongoing plans. Free public access to the Internet is available at the Carnegie-Stout Public Library, ensuring that citizens have access to the website. Information about the SDAT project will be placed on the website. Media releases will be used for major phases of the development of the SDAT project: grant award, kick-off, significant milestones, and completion. Recognition Events The City of Dubuque will recognize major steps in the SDAT process at a media conference hosted by the local steering committee co-chairs, Mayor Roy Buol and Gordon Mills of the Durrant Group. Invited to these events will be the public, local steering committee, local AIA membership, partnership agencies and the media. In addition to showcasing the SDAT process step, a project program will be distributed to participants providing background information. The SDAT visit and SDAT Report will be the most likely recognition events. Public Exhibits The City of Dubuque has utilized exhibits as a way to solicit public input for and inform the general public of City plans and projects. These exhibits -which include site plans, architectural drawings, photographs and text -are placed around the city in public gathering places such as the Carnegie-Stout Public Library. These exhibits have included staff on site to record input, self-directed surveys and comment cards, or other response mechanisms. This format will be utilized as appropriate for the SDAT process. The list of local and area media contacts is attached DUBUQUE SDAT Masterpiece on the Mississippi A Sustainable Design Assessment Team Report Dubuque, Iowa October 22-24, 2007 Peter Arsenault, AIA, Team Leader Jung Kim, AICP, Community Planning and Smart Growth Denise Husband, RLA, Bluff Preservation vs. Development Eric Lyons, ASLA, Stormwater Walter Setlovic, AIA, Neighborhoods and Historic Preservation Jack Werner, Sustainable Community Development Erin Simmons, AIA Communities by Design AIA.Commur~ities by Design '" E N V! S I D N C R E A T F S U S T A I N ,,,. EXECUTIVE SUMMARY The city of Dubuque, Iowa, identified three overall goals and five major planning issues for the SDAT to focus on. Each goal is stated below with a sum- mary of the SDAT's recommendations to foster a more sustainable Dubuque. Think outside of Dubuque. The SDAT focused on the city of Dubuque but also considered the long- term sustainability of the entire region. The city should avoid a return to the 1980s, when influences outside of the city were significant factors. E Enhance the city-county relationship. To become a greener community, it is critical for the city to enhance its relationship with surrounding Dubuque County and other adjacent areas. The city must ~~ address the reality of city-county interdependence ''" to achieve long-term sustainability. Formalize sustainability planning. Planning and development initiatives are already underway- most notably regarding use of the Unified Develop- ment Code, which can catalyze green development by rewarding sustainable development practices and restricting unsustainable ones. Formally incorpo- rating sustainability into such initiatives can make it a proactive focus. Specific Recommendations The SDAT developed the recommendations below for each of the five major planning areas that the team and community addressed during the October 2007 SDAT charrette. ,~ . ~: .. ,~. h 2DD6 ~~~~t~t~ ~,~.:...m.W..~ ~_~~ --. .- . .~ .. .__ b ~, ~..4 _ Dubuque, Iowa, SDAT Report I 3 1. Urban Sprawl vs. Planned and Managed Growth • Conduct a full inventory of vacant and underused sites, including both land and buildings, as an information planning tool-also accounting for estimated build-out of development plans • Further develop the concept of neighborhood centers as amanaged-growth strategy, i.e., concentrations of pedestrian-friendly, mixed-use development and housing opportunities • Provide housing choices through a citywide mix of mazket-rate and affordable housing • Implement a regional planning process, involving at least the city and county, to foster cooperative planning efforts • Integrate transportation with land-use planning at a variety of levels, ideally through a plan that combines the two fields and includes the specific recommen- dations in this report • Implement a system of progress indicators to ensure implementation of the city's strong vision and comprehensive plan 2. Stormwater Runoff vs. Stormwater Management • Use aLow-Impact Development (LID) Stormwater toolkit approach that mimics natural water infiltration and hydrology, all closer to the point of stormwater origins. Sustainable Stormwater management will require techniques specific to a variety of conditions, hence the toolkit approach. 4 I Dubuque, Iowa, SDAT Report ~~~ ~~ l ~ ~~~`_~ ?. e ~P ~ y ~- ~, • Encourage communal energy generation and distribution systems • Encourage communal water collection systems • Negotiate with multinational retailers to adapt universal designs to historic districts, especially the warehouse district • Designate "destination zones" within established districts and neighborhoods • Initiate acity-funded carbon credit for retailers locating in the central downtown districts • Strengthen and expand "conservation districts" • Build upon existing Community Development Block Grant (CDBG) programs 5. Bluff Development vs. Bluff Preservation • Master plan. Thoroughly map and analyze the blufliands to develop a master plan that prioritizes areas for sustainable growth and preservation, including opportunities to establish greenways along the blufliands • Viewsheds. Work with the county, state, region, and local community to preserve the viewsheds, both from within the bluffs and up to and across the bluffs • Character. Recognize the two types of character relative to the blufHands • Architectural character. Consider the existing scale and architectural character of the blufliands in future planning and zoning regulations • Landscape character. Identify areas where landscape features and elements should be protected • Recreation and leisure. Identify and promote opportunities for ecotourism, heritage tourism, and recreational pursuits • Education. Engage Dubuque citizens in the process of guiding and implementing the sustainability of the blufflands • Maintenance: Establish a program to maintain the integrity of the blufl3ands • Economic value: Plan economic development carefully to preserve character The balance of this Dubuque SDAT report fully discusses the background, analysis, and details of the above recommendations. 6 ~ Dubuque, Iowa, SDAT Report and citizens, studied the community and its concerns. The team came to understand the issues and used their expertise to frame a wide range of recommendations, which were presented to the community in a public meeting on October 24, 2007. This report is a more detailed version of the findings and recommendations of that presentation. A review of the three stated goals revealed that the best use of the SDAT team would be to focus on Goal No. 2 and the five related issues. The U.S. Environmental Protection Agency no longer has an active Green Communities designation pro- gram, although the process and intent of that program were consistent with the SDAT process and program. Hence, fol- lowingthe recommendations of this SDAT report will help the City of Dubuque to become a green city. Similarly, following the sustainability recommendations from this report related to the five topical areas of Goal No. 2 will feed into the existing Dubuque five-year goals being pursued as part of Goal No. 3. The difference will be a focus on achieving these goals in a genuinely sustainable manner. Therefore, after a brief overview of the SDAT program and process, and a short discus- sion of Dubuque and the issues it is facing, the Dubuque SDAT and this report cover 1. Urban sprawl vs. planned and managed growth 2. Stormwater runoff vs. stormwater management 3. Traditional development vs. sustainable design 4. Neighborhood disinvestment vs. neighborhood revitalization 5. Bluff development vs. bluff preservation A closing section offers some thoughts on how the community can best move forward to address the range of issues and recommendations covered in the report. What Is the SDAT Program? The SDAT program is an interdisciplinary community assistance program that focuses on principles of sustainability. Launched in 2005, the program represents an exciting new chapter in the Institute's history of supporting communities with volunteer design expertise. 8 ~ Dubuque, Iowa, SDAT Report Dubuque SDAT Focus • Connects plans and actions • Advances the principles of quality sustainable communities • Helps the community define the roles of various stakeholders • Develops a roadmap for the implementation of more sustainable policies and practices The key to SDAT success is diversity and participation, involving multiple disciplines and stakeholders. The SDAT process includes not only the expert team but also gov- ernment agencies and officials, private businesses, schools and students, community members, and other parties as appropriate. Who Are the Key Participants in the SDAT Process? SDATs bring a team of respected professionals-selected on the basis of their experi- ence with the specific issues facing the community-who volunteer their time to help community decision makers develop a vision and framework for a sustainable future. To ensure their objectivity, they agree to refrain from taking paid work for three years from the date of SDAT project completion. The AIA assembles a distinct team for each project based on the project's unique features. The team consists of a leader, five to seven members, and a staff person from AIA Communities by Design. The professional stature of the SDAT members, their independence, and the pro bono nature of their work generate community respect and enthusiasm for the SDAT pro- cess, which, in turn, encourages the participation of community stakeholders. The passion and creativity unleashed by a top-notch multidisciplinary team of professionals work- ing collaboratively can produce extraordinary results. Local Steering Committee The steering committee is the SDAT project's key organizing group. It is responsible for assembling local and regional information, organizing the preliminary meeting and SDAT visit, and generating local media coverage during the project. After the SDAT visits, the steering committee typically evolves into a group dedicated to implementing the SDAT recommendations. 10 I Dubuque, Iowa, SDAT Report DUBUQUE: AN OVERVIEW Background of a River City Founded as a small community in 1788 by French fur trader Julien Dubuque, the city became incorporated in 1833 and is the oldest city in the state of Iowa. Situated along flatlands and limestone bluffs that rise above the Mississippi River, Dubuque is distinc- tive because of the steep hills created by these bluffs-geographic features that many people don't expect to find in Iowa. Its location-in northeastern Iowa, adjacent to both Illinois and Wisconsin across the river-has served it well historically, contributing to its reputation as a source for lead mining, fur trading, button making, boat building, logging, millwork, and related activ- ities. The city and surrounding area prospered well into the 20th century as "a strategic industrial, wholesale, and retail center dominating a vast tri-state marketland" (in the words of a local publication in 1965). With its combination of historical strengths and geographic location, the population grew steadily to about 50,000 people in 1950 and to snore than 62,000 in 1970. The lowest percentage of unemployment ever recorded was 1.5 percent in July 1965. ~. A Reversal of Fortune-and Population Reflecting changes in the local and state economies, industrial and retail losses contrib- uted to a virtual halt in population growth between the 1970s and 1980s, to the point where Dubuque became a city experiencing difficult times. Between 1980 and 1990, the city lost 7.8 percent of its population, dropping to 57,500 in 1990. As double-digit unemployment persisted, many residents left both city and state, 12 I Dubuque, Iowa, SDAT Report • Public-park renovation (22 parks, 713 acres), creation (19 new parks, 138 acres), and planning (3 planned parks, 5.75 acres), representing $9.75 million investment since 1994 • A $38.7 million drainage-basin plan under development to save more than 1,150 homes from flooding Riverfront Revitalization A decision to use the riverfront as a focal point for the community resulted in a 90-acre revitalization effort, with $188 million in investment in the first phase of development. The "Port of Dubuque-America's River" now boasts • The new National Mississippi River Museum and Aquarium (600,000 visitors in the first year) • Acity-owned, 174,000-square-foot conference and event center • Renovation of several historic structures • A $30 million resort hotel with an indoor water park • A network of outdoor spaces including the Mississippi River walk, an outdoor amphitheater, and biking/walking trails This development has earned Dubuque numerous awards and set the next phase in motion, including more museum and recreation space, a River Research Center, a River Max Theater, and new commercial development. Economic Expansion A plan to promote economic expansion and increase job opportunities enabled Dubuque to create 17.8 percent of the net new jobs in the entire state of Iowa (3,200 of Iowa's statewide total of 17,900 from February 2006 through February 2007) even though Dubuque represents only 3 percent of Iowa's statewide population. Further, the aver- age wage in Dubuque County increased faster than the annual inflation rate from 2000 to 2005, to an average of $31,616 in 2005. 14 I Dubuque, Iowa, SDAT Report URBAN SPRAWL VS. PLANNED AND MANAGED GROWTH Background Smart growth provides for housing and jobs while also using existing and new infra- structure efficiently and protecting significant natural and agricultural resources. Sprawl signifies an inefficient use of limited resources, in which public spending for more miles of roads, sewer, and water pipes serves fewer people while consuming more land. Dubuque has exemplified smart growth in the revitalization of Main Street and other neighborhoods in and around downtown. The city and various community stakeholders are continuing these efforts. However, as Dubuque rebounded from the early 1980s, it also sprawled, exhibiting the low-density subdivisions and strip malls typical of many other parts of the country. This type of development has increased dependence on the automobile. Between 1990 and 2000, the proportion of Dubuque residents commuting to work by driving alone increased from 76.8 percent to 83.9 percent. Almost every other mode of transportation-public transit, taxi, bicycle, or walking-declined in their share according to the Dubuque Metropolitan Area Transportation Study (DMAT). (DMATS, p. 28). In preparing this section of the report, the SDAT reviewed relevant planning docu- ments, including the 2031 Long-Range Transportation Plan, the Annexation Study, the city's Comprehensive Plan, the county's Comprehensive Land-Use Development Plan, the Downtown Master Plan, the Port of Dubuque Plan, and both city and county zoning ordinances. 16 I Dubuque, Iowa, SDAT Report Recommendations Information Tools Stakeholders called for a full inventory of vacant and underused sites, including both land and buildings. This inventory should also account for estimated buildout of devel- opment plans. Various stakeholders already have data that could be part of a larger inventory, including the Main Street program's detailed vacancy data fora 90-block area, and the city's land inventory, mainly consisting of larger vacant sites in the outer parts of the city. This inventory should include data such as location, block/lot, square footage or acreage, ownership, condition/status, and access to infrastructure and ser- vices. The inventory can inform city decision makers to better align land supply with anticipated growth, possibly holding reserves to prioritize development or redevelop- ment of particular areas. The inventory can also be a marketing tool to attract developers and investors. A com- prehensive resource toolkit should also be part of the package, outlining the variety of city and other resources available to encourage revitalization. The toolkit should include information about funding type (grant, loan, tax incentive, tax credit), funding cycles or deadlines, eligibility criteria, project examples, Web site, and contact infor- mation. This toolkit will help investors cobble together a range of resources to make projects feasible. Growth Management Strategies Participants from the city expressed interest in revisiting and further developing the concept of Neighborhood Centers-concentrations of pedestrian-friendly develop- ment with a mix of uses and housing opportunities. These centers would promote the revitalization of older areas and better design of new projects. In light of the New Urbanism trend, Dubuque already has a heritage of Real Urbanism. Infill and redevel- opment should rely on preservation and context-sensitive design. Loca] tools such as TIF and tax abatements are already in place and can be prioritized to better support revitalization. The State of Iowa's Department of Economic Development is develop- ing programs to channel federal CDBG and other funds toward this end. Future suc- cesses for this state initiative in Dubuque and other Iowa cities may spur further state policy alignment with smart growth. For new Neighborhood Centers, Dubuque's Real Urbanism can form the basis for a design vocabulary through form-based codes, pattern books, and/or design guidelines. Neigh- borhoodCenters will also help preserve open space-providing an additional amenity for 18 I Dubuque, Iowa, SDAT Report Integrated Land Use and Transportation Transportation and land-use planning must be integrated at a variety of levels, ideally through a plan that combines the two fields and including the recommendations noted below. Highways Highways can be a corridor for movement, development, or-when planned correctly- both. The Northwest Arterial was originally intended to serve a movement function. However, following acost-based decision to use at-grade rather than grade-separated intersections, development along the length of the road followed. Too many. points of access from those uses have yielded negative impacts for traffic congestion and safety. Whether or not the Southwest Arterial is to be alimited-access divided highway, the county and/or the city should maintain the road's mobility by concentrating develop- ment and access at particular nodes. Development should rely on internal road net- works or cross-access that use lane miles more efficiently rather than have drivers spill out onto the new highway for every trip. The city should apply this philosophy to other existing or new arterials for the retrofitting or new construction of developments. Local Streets Local streets should be designed with more than the automobile in mind. Sidewalks, bicycle paths, and bus shelters should emphasize alternative transportation modes. Standard engineering allows for road widths greater than necessary, with the design speed often exceeding the intended (posted) speed limit. "Skinny streets" should be encouraged in areas where walking is an important transportation mode. Streetscaping, sidewalk design (bumpouts, chokers), differen- tiated crosswalks (pavers), bicycle paths, and street parking (parallel, diagonal) can all help narrow the street. Building design-especially appropriate height, massing, and limited setbacks-can also help frame the street. Transit Major obstacles to transit include more than the quality or frequency of service. Sprawling development means that too many areas cannot be effectively served by transit. The destinations themselves may not lend themselves to walking-a problem 20 I Dubuque, Iowa, SDAT Report green design to reinvest in future sustainability efforts. The city should work with the school district, colleges, and other major institutions to go green. From a planning perspective, the criteria should place additional value on the preserva- tion and greening of existing buildings over the construction of new ones. They should consider the location and context of a green building. If a green building is located in a sprawling, auto-dependent area, is the development truly sustainable? The UDC should also serve as an alternative to typical zoning policy by focusing more on design. A form-based code or similar approach can directly relate to the vision anal planning goals, recognizing that where various land uses are compatible, the way people experi- ence a place is based more on its physical character. Monitoring Progress Stakeholders called for accountability to ensure that the city's strong vision and com- prehensive plan are implemented. For the implementation mechanisms discussed above, the city should establish a set of indicators, determining current baseline figures and short-term (3 to 5 years) and long-term (10 to 20 years) targets. INDICATOR BASELINE TARGET ACTIONS (TO ACHIEVE TARGET) WHO MEASURES? 22 Dubuque, Iowa, SDAT Report STORMWATER RUNOFF VS. STORMWATER MANAGEMENT A Historic Perspective Sustainable stormwater management is a relatively new term in the engineering and planning professions, but many of its design principles have been in practice for decades. In fact, one could argue that Fredrick Law Olmstead's design of New York's Central Park or Boston's Back Bay Fens in the 1800s exhibited many sustainable practices. The ecology movement of the 1960s also gave sustainable design principles a foothold from which to build. Ian L. McHarg's classic book, Design With Nature (1969), advo- cated that land development be based on a region's natural features including geology, soils, drainage, hydrology, vegetation, and habitats, to name a few. In the last decade, "sustainable design," "green building," and related terms have become commonplace even in popular culture, and politicians (notably Al Gore and Chicago mayor Richard Daley) have become strong advocates for sustainability. In addition, nonprofit and trade organizations including the AIA, the U.S. Green Building Council, the American Society of Landscape Architects, and the American Society of Civil Engineers have conducted conferences, published books, and provided consult- ing services (i.e., the SDAT program) to advance sustainability issues. With this background in mind, the AIA SDAT began to look at Dubuque's stormwater challenges with the goal of developing a sustainable management system that is func- tional, attractive, and cost-effective. The Dubuque Story Dubuque, the first permanent European settlement in what would become the state of Iowa, has an interesting history tied to fur trading, lead mining, lumbering, and trans- portation due to its position on the Mississippi River. The city's riverfront location also led to a series of disastrous floods over the years that eventually resulted in the construction of a floodwall in the late 1960s. More recently, the riverfront has been the site of redevelopment projects including the riverwalk, the National Mississippi River Museum and Aquarium, and several private developments. Given a history so tied to its riverfront location and flooding, a discussion of sustainable stormwater manage- ment techniques seems appropriate. 24 Dubuque, Iowa, SDAT Report • Reduces land development and infrastructure costs • Balances growth needs with environmental quality • Reduces infrastructure and utility maintenance costs • Improves property values Low-Impact Development Tools The preferred method to achieve these goals is to manage stormwater in small amounts beginning at the highest elevation of the watershed to reduce volumes (i.e., flooding) at the lowest elevations. This strategy divides a site into micro-watersheds where storm- water is slowed, treated, and allowed to infiltrate. The tools used in this process include the following: • Green roofs: Vegetated roofs that reduce run-off, improve energy efficiency, and create a green amenity • Microbasins: Small depressions to create longer flow paths or localized depressions to encourage longer standing-water periods and infiltration • French drains and soak-away pits: Rock-filled trenches that promote rapid infiltration • Swales: Serpentine, vegetated swales that convey water slowly and improve infiltration • Bioswales: Vegetated swales with amended soil backfill and underdrains to improve infiltration • Street tree filters: Systems that divert a portion of street stormwater from gutters into tree planters, where water infiltrates amended soils and surrounds plant roots (e.g., the Green Street project in Portland, Ore., and the SEA [Street Edge Alternative] project in Seattle) • Rain gardens: Landscape depressions filled with amended, permeable soil and native, deep-rooted, moisture-tolerant plants to promote infiltration • Native plantings: Use of native plants to reduce the need for irrigation and reduce runoff. Native plants also slow runoff and improve infiltration with their deep, fibrous root systems. 26 I Dubuque, Iowa, SDAT Report Applying the LID Toolkit to Dubuque In Dubuque, these tools can be applied to new development sites or retrofitted to exist- ing properties. From our brief tour of Dubuque and subsequent meetings with community members and city staff, some applications of these tools to the city seem obvious. ~~ ~.~,r- • ~. •~~ •~~~ «~ ~.ws ,~..~,.~. w.,~ «~...~ `-~ Nu~/R ~"~ wi»+w*ns ~a~RMy v g4MOl @' Green street medians. The city could build storm- water-infiltrating green medians on many streets, including Grandview Avenue, Iowa Street, and Ker- perBoulevard. These would be an attractive amenity that reduces the potential for downstream flooding. Vegetative buffers. Vegetative buffers that slow and filter runoff before infiltrating could be built along the front-yard setbacks ofmany public streets, including Clark College, Asbury Plaza, and US-20 side slopes. These buffers could also replace some of the expansive lawn areas in city parks and busi- ness parks, further improving water quality and reducing flood hazards. Porous pavements. City staff felt that porous pave- ments could be successfully used to reconstruct much of the 26 miles of public alleys that are in poor condition. Many visitors felt that these and other strategies should be applied to the Bee Basin Watershed to reduce the size and cost of proposed stormwater improvement while reducing the impact on the adjoining neighborhood. In addition, the local SDAT stormwater stakeholder group discussed many manage- ment tools and outreach efforts that are underway as well as new programs that should be further developed and coordinated into a comprehensive plan of action: • stormwater stenciling programming: Continue existing educational program • New subdivision ordinances: Military Road Subdivision Model Ordinance devel- oped; Dubuque County Soil and Water Conservation District (SWCD) developed. • Catfish Creek Homeowners Covenant: Ordinance or policy model developed (SWCD) • City's Green Subdivision Task Force: Draft proposal developed for review • Water quality monitoring: Develop guidance for phasing and maintenance decisions 28 Dubuque, Iowa, SDAT Report • Educational links: Promote best management practices with inviting educational tools and link to the city Web site, cable-TV station, city newsletter, and other media • Interjurisdictional regulations: Develop regulations in cooperation with the county, Ashbury, and Sageville • LID stormwater tools: Develop coordinated program to implement LID tools in the city Sustainable stormwater Management: AWin-Win-Win Situation Sustainable stormwater management is one component of a sustainable community, which should incorporate environmental integrity, economic prosperity, and livability. While some believe these components are mutually exclusive, the opposite has proven true when they are appropriately applied in an urban environment (for example, many developers sell homes and office sites that adjoin open space at a premium). Environmental integrity involves more than simply protecting a natural environment; it also enhances the environment and thus increases biodiversity. Sustainable storniwater techniques enhance natural features. Economic prosperity is enhanced by sustainable stormwater management, which has proven less costly than traditional methods while reducing flood hazards and improv- ing water quality. In addition, increased property values associated with these techniques improve the local tax base. Community livability is improved when sustainable stormwater management increases access to open space, trails, and other recreation amenities. The open space network often serves as an organizing tool linking homes with schools, businesses, and parks. These tools can help a community on every scale: the individual lot, the neighbor- hood, the city, and the watershed. The end result is the same: improved environmental quality, infrastructure and maintenance cost savings, and enhanced quality of life- awin-win-win situation. 30 I Dubuque, Iowa, SDAT Report to expand the city's initial effort in using alternative fuels within the government fleet to other fleet owners and overall communitywide. Health providers are an opportunity for a partnership in terms of sustainability and the health advantages. Defining sustainability The Traditional Development vs. Sustainable Design Subcommittee began by discussing the components of "sustainable development": • Building sustainable buildings (materials) • Making waste a resources (e.g., methane captured and used as a fuel) • Incorporating energy-efficiency measures and/or renewable-energy technologies in all construction and in adaptive reuse of existing housing stock • Building design that results in health benefits • Incorporating passive and active open space in residential and commercial development (ensuring that open space has a purpose) • Recapturing wastewater as a resource and responsibly managing all water sources • Promoting an interconnected and efficient multimodal transportation system • Neighborhoods with incorporated systems (easy access to goods and services) • Building with the landscape instead of reshaping it • Public education and partnerships related to sustainable design and practices • Access to green spaces without a car (in residential areas and connectivity) • Cluster development-smaller lots with larger public green space • Gray water-looking at water other than stormwater as a resource, not waste Focus on Building, Transportation, and Land-Use Sectors The subcommittee also looked at the two community sectors that are critical to a sus- tainable path, primarily due to their energy use: buildings and transportation. A specific building-related issue was the need to recognize the difference between developers and builders. Second, because downtown has been developed as an office park instead of a business district, the city needs to focus on mixed development with the loss of neighborhood stores and movement toward more of the chain stores. 32 Dubuque, Iowa, SDAT Report HVAC systems and appliances for homeowners and builders as well as similar incentives for the business/commercial sector. • Home builders and contractors lack education about sustainable practices. • Diminishing Main Street competes with rampant "big box" developments. • City has only one "green design" firm, but others are working toward becoming green firms. • Recycling is not required but those who do recycle receive incentives. • State resources provide important opportunities but are not being tapped effectively. Opportunities • Consider a different sort of rating and classification-and link codes and buildings to green standards • Bring city utilities back into stronger partnership with city government • Educate home builders • Train students to rehabilitate buildings (e.g., Central Alternative students get involved in home building while learning at the same time), producing model energy-efficient homes with renewable-energy applications (e.g., solar hot-water systems) • Promote health benefits of green buildings and development • Use UDC language to encourage or even require green building design and con- struction that produce showcase projects • Use existing commercial buildings that have renewable-energy sources and energy- efficiency measures as demonstration projects • Educate city staff and possibly hire an expert in green buildings • Designate a place and process for recycling building waste during both construction and deconstruction • Require recycling of deconstruction and construction materials through city ordinances • Provide incentives for clean energy companies to locate in Dubuque for manufac- turing and assembly plants, also resulting in more local jobs • Link codes and buildings to green "standards" such as building layout and design 34 Dubuque, Iowa, SDAT Report • Partnerships with businesses such as the casinos • Citizen health education to promote walking and use of bike paths as daily exercise • Partnerships with colleges and K-12 schools to increase mass-transit ridership while teaching students about alternative energy and fuel-efficient school transportation • Work with businesses, employers, churches, and civic organizations to expand the knowledge about alternative fuels and transportation • Partnerships with service stations and suppliers to offer alternative fuels at the pump Land Use and Water Strengths City-owned land is available, which offers an opportunity to use it sustainably. Weaknesses No existing water quality requirements Opportunities • Amend the south port development plan to use it sustainably • Require sustainable design and building in the Dubuque Industrial Park West and Dubuque Technology Park • Incorporate green guidelines in the annexation plan Vision and Goals The subcommittee also recommended additions to the city's vision and goals. Vision • A progressive, sustainable city for future generations • A strong, balanced economy • Preserved or recaptured natural assets and historic architecture • Quality, livable neighborhoods with character (existing and new) • A community well-educated about sustainability 36 I Dubuque, Iowa, SDAT Report Goal 1: Improve Connectivity (Transportation) • Indicator: Increased ridership on public transportation o Purpose: Reduced congestion, improved public health, supporting tax dollars, energy efficiency, improved land use/parking, increased service, reduced emissions • Linkage: Public health, livable neighborhood, business and community benefits • Indicator: Increased number and use of bike racks and paths/lanes o Purpose: Reduced congestion, improved public health, supporting tax dollars, energy efficiency, improved land use-parking, increased service, reduced emissions, increased use of renewable energy (e.g., lighting) • Linkage: Public health, quality neighborhood, business community, consumer choices • Indicator: Progress on SW arterial (reduction of truck traffic downtown) o Purpose: Reduced heavy traffic in neighborhoods, improved road main- tenance, neighborhood and pedestrian safety, economic growth (existing and future industry) • Linkage: Managed growth, riverfront development, balanced economy, livable neighborhood • Indicator: Increased use of alternative-fuel vehicles o Purpose: Use waste gas and other alternative energy sources to reduce fossil-fuel consumption and conduct an impact study on alternative-fuel production • Linkage: Public health, climate change, energy security • Indicator: Increased use of other mass-transit options (rail, air, boats, 4th Street elevator) o Purpose: Reduce cars on street, improve access (economic development, strengthen local economy) • Linkage: Public health, economy, riverfront development, planned and managed growth 38 Dubuque, Iowa, SDAT Report • Indicator: Increased number of green certification programs • Indicator: Increased school participation (K-College, Green Vision Education) o Purpose: Educate targeted audiences, engaged citizens, increase partnerships, involve future generations • Linkage: Sustainable city for future generations Goa! 4: Develop the Riverfront Sustainably • Indicator: Increased use of renewable resources and energy efficiency in buildings o Purpose: Decrease operating costs, building comfort, health and envi- ronmental benefits • Linkage: Public health, riverfront preservation • Indicator: Reduced stormwater runoff o Purpose: Protect riverfront ecology • Linkage: Water quality • Indicator: Development balanced with recreation and pedestrian uses • Indicator: Reduced waste • Indicator: Increased awareness of impact on river o Purpose: Keep people connected to river, tourism Goal 5: Engage and Inform Citizens • Indicator: Increased number of citizens involved in programs and projects (e.g., recycling, use of energy-efficient appliances, weatherization of homes) • Indicator: Increased number of businesses recycling • Indicator: Increased number of available green projects and programs • Indicator: Increased media coverage • Indicator: Increased youth involvement o Purpose: Educate citizens, active citizens, economies of scale-tax dollars for landfill etc., develop relationships with tri-state organizations and governments (Regionalism) • Linkage: Sustainable city and region, public education 40 ~ Dubuque, Iowa, SDAT Report • Indicator: Green building guidelines and enforcement in UDC o Purpose: Decreased energy profile, increased use of renewable energy sources and energy-efficiency technologies, increased preservation of structures and character, money saved, jobs created, materials reused • Linkage: Quality neighborhoods, economy, health, job growth, reduced carbon footprint, sustainable city Goal 9: Address Parking Availability • Indicator: Changed zoning requirements to accommodate mixed-use development (shared parking ratios) • Indicator: Increased opportunities for park-and-ride facilities • Indicator: Revised zoning requirements that address parking • Indicator: Increased pedestrian linkages • Indicator: Incentives created to balance parking needs • Indicator: Increased motorcycle or alternative-transportation parking options o Purpose: Implementation of smart-growth principles, increased public health, increased public transportation, increased energy efficiency • Linkage: Transit, economy, quality neighborhoods 42 Dubuque, Iowa, SDAT Report BLUFF PRESERVATION VS. BLUFF DEVELOPMENT Background The issue of bluffpreservation vs. development evolved from a proposed condominium project called River Pointe, located on a key property known as Kelly's Bluff. The project's effect on the scenic views and historic character of the surrounding commu- nity produced a great deal of concern about protecting the bluff in the future. Because the city had begun the process of creating a Unified Development Code (UDC), it decided to analyze the bluff and formulate potential protection tools as part of the code. A Citizens Advisory Committee worked with the city planning staff and its consultant on this issue. They began developing recommendations for regulations to be incorporated within the Dubuque City Code. The SDAT was asked to help the com- munity with the "big picture"-looking at the sustainability of the blufftands in terms of preservation vs. development. SWOT Analysis Asked to tell the SDAT how they see the bluffs in one or two words, the stakeholders offered the following key words and phrases: • Unique • Soulful • Character • Environmental significance • Historic significance • "Best-kept secret" • Picturesque These terms became important in the discussion about sustainability as it related to development vs. preservation. The City of Dubuque has developed marketing materials that promote community sustainability by emphasizing the "Live, Work, Play" motto. However, to sustain the principles of living and working in the community, there must be commercial, office, and residential development. To promote the principles of living and playing, there must be preservation of existing communities, particularly historic ones, as well as Dubuque open spaces and resources. 44 I Dubuque, Iowa, SDAT Report Recreation (Opportunity) The bluffs are an opportunity to expand existing leisure opportunities-and create new ones-that are fun, healthy, and would improve quality of life. Stewardship (Opportunity and Weakness) There are numerous opportunities to educate and involve current and future generations in becom- ing stewards of the btuftlands. This could also be a weakness because if caretakers of the land do not step forward, the preservation effort would be difficult. Tourism (Opportunity) Tourism is an opportunity to promote the bluffs in terms of recreational qualities, which could include both active and passive recreation such as caving, rappelling, hiking, birding, and so on. Opportuni- ties for ecotourism and heritage tourism are also possibilities. Tourism could also provide economic opportunities, but controls over the type and amount of tourism traffic would be needed so as not to degrade the value of the bluffs. Education (Opportunity) Numerous educational opportunities could include students from public schools and local colleges as to the importance of current and future preservation of the bluffs. Education is also an opportunity to engage people of all ages and socioeconomic backgrounds. 46 Dubuque, Iowa, SDAT Report Recommendations Working from the key words that the stakeholders had previously developed, the group talked about which of these they would like the residents of Dubuque to use 150 years in the future to describe the blufliands. From this discussion, the following goal was developed: "Sustain the unique character of the blufHands, which encompasses historic, cultural, and environmental significance. The blufflands make Dubuque a desirable place to live, work, and play." Given this goal, the group developed several specific recommendations regarding the sustainability of the blufRands. Throughout their discussion, however, they kept return- ing to the need for an overall vision or master plan for the blufflands, which developed as described below. Primary Recommendation The Master Plan Vision Conduct a thorough mapping and analysis of the blufllands to develop a master plan that prioritizes areas for both sustainable growth and preservation, including opportu- pities to establish greenways along the blufHands. It was suggested that the master plan visioning for the blufHands consist of all bluffs as defined by the City BlufRand Advisory Committee in the city of Dubuque. The analy- sis and mapping should include the hydrology; vegetation; ownership; archaeology; mining routes; geology; zoning; topography; and other physical, cultural, and historic features of bluffs. Using the mapping and analysis of existing conditions, a plan would identify areas suitable for sustainable development as well as those needing protec- tion. These areas would need to be prioritized and an action plan developed based on the plan outcome. It was discussed that many of the remaining recommendations be studied and analyzed within the context of the master plan vision. Secondary Recommendations to Be Considered in the Master Plan Process Viewsheds The city should work the county, state, region, and local community to preserve the viewsheds, both from within the bluffs and up to and across the bluffs It was determined that the viewsheds were a key element of both preservation and development of the bluf33ands. Discussion about the county blufliand overlay zone 48 ~ Dubuque, Iowa, SDAT Report Recreation and Leisure The group discussed the numerous opportunities for recreation, ecotourism, heritage tourism, and other leisure activities relating to the bluffs. There was considerable con- cern that these opportunities focus not only on visitors but primarily on the citizens of Dubuque. The activities that should be evaluated as part of the plan include site- specific activities such as rappelling, caving, bird watching, and hiking as well as other active and passive recreational pursuits. With the extent of recreation surrounding the blufHands such as Eagle Point Park and the Mines of Spain, potential connections should be evaluated as part of the visioning process. The recommended activities must be sensitive to the historic and environmental assets of the bluffs. Education The master plan provides a great opportunity to engage the citizens of Dubuque in the visioning process, wherein they can help to guide the future-and implement the sus- tainability-ofthe blufflands. This engagement is a great educational tool because the more the community is involved, the more understanding and ownership of the plan is fostered. It also can become an educational tool that can lead to more stewardship and long-term support for the blufTiands vision. It was recommended that citizens of all ages and socioeconomic backgrounds be included in this educational process. That includes reaching out to schools, colleges, property owners, volunteer organizations, youth groups, young professionals, retired citizens, elected officials, and others. Economic Ualue The city should plan economic development carefully to preserve character. It was felt that the bluffs had an economic value, and there had to be a balance between the devel- opment value vs. the preservation value for sustainability of the bluffs. Many tools should be explored as part of the master plan process, including tax incentives, green initiatives (conservation easements, for example) design initiatives, grant opportuni- ties, preservation incentives, and so on. Economic development incentives should be carefully planned with consideration of public and private interests. 50 Dubuque, Iowa, SDAT Report NEIGHBORHOOD DISINVESTMENT VS. NEIGHBORHOOD REVITALIZATION Overview: Preservation Is an Act of Sustainability Sustainability comprises three essential and overlapping components: environment, economy, and equity (social-cultural}-the "Three E's." It is under this lens that we evaluated neighborhoods and the choices they present for the future. This approach proved beneficial in gaining an initial appreciation for the interlocking and symbiotic relationship of Dubuque's varied districts. Assessment: Strengths, Weaknesses, Opportunities, Threats This component of our Sustainable Design Assessment focused on several neigh- borhoods defined officially and unofficially by the City of Dubuque and the city's neighborhood associations. The neighborhoods vary widely in their composition and geographical location, although most are contiguous. The prevalent observation was that each neighborhood served a variety of cultural, social, and economic needs and that they are interdependent to a degree. As we will discuss in recommendations below, there is a clear desire for the community to strengthen and build upon these interdepen- dencies while allowing each neighborhood to retain its distinct character. A review of the perceived strengths, weaknesses, opportunities, and threats (SWOT) revealed-not surprisingly-found that several districts had issues in common, even when those districts did not appear on the surface to be similar. It should be noted that, anecdotally, defined "strengths" and "opportunities" far outweighed "weaknesses" and "threats," which speaks well for the optimism and love that Dubuque citizens feel for their city and its potential. We summarize each category below. Strengths • Diversity (economic, cultural, social, geographic) • Some of the oldest buildings in Iowa • Several varied historic districts • Flexibility within building types and multiuse capabilities • Buildings reflective of local traditions, using local materials (primarily Dubuque limestone) 52 I Dubuque, Iowa, SDAT Report • Overdone restoration, making it seem too "Disney-like" or expensive • Population loss from failure to respond to community needs quickly enough • Potentially limited economic opportunities for young professionals • Lack of corporate diversity In the aggregate, one or more of the above, under each heading, was applicable to each of the most significant districts identified by the participants of our breakout sessions, including • Washington neighborhood • Warehouse district • Downtown and the cultural corridor • Cable Car Square • North End/The Point • 11th Street neighborhood • Riverfront and Port of Dubuque • The Flats Vision: The Greenest Building Is the One Already Built The overriding goal for redevelopment of these core districts is the reuse and continued appreciation of the original historic building stock. The diversity in popu- lation and building fabric, streetscape, and geography are important candidates for preservation, allowing for layered uses, conveniences, and experiences. The city may supplement and strengthen existing successful programs in the following ways: • Expand the demolition moratorium for properties in the designated conservation district • Refine the transportation network serving each district, connect them, and integrate each one into the larger city context, including newer commer- cial expansion to the west 54 I Dubuque, Iowa, SDAT Report that the city has expressed (e.g., stormwater management). This is perhaps the most exciting aspect of this level of planning: allowing multiple needs to be addressed with symbiotic benefits. Outlined below is a hypothetical application of this approach within the warehouse district. -- ~O " "'''~ Building-Specific Example J ~~r. ~~ ~ "-': Building size and type: Consider a 50,000-square- ~ kcrC•~ ~~'°" foot brick masonry building in the warehouse district .,~ s~ - ~k comprising five stories, each with a 10,000-square- .' ~+K ~~ foot floor plate, timber frame structure, wood floors, t ' radiant heating, and original wooden double-hung ~ windows. The adjacent lot is vacant. ~. ~ spwnwh'(~ '~ '~, ~:la~ V'Et~T~TtUg 00 (2 ~ ~„~p,~v 6k~ury Ownership and use ~ ~ r -*~iiur~w ~ •~ uwn [rt~cr• ~ tt-tcs' _ p~p~~ ~ ur€ ~'~F~ ~IOT-FU~ -fbSOR85lO' µEw ~prtu Fifth or upper floor ("penthouse"): Above-market- - ~r.rk.T~i~ .~. -T~-v~, Pte, BIPY ~~ ~ rate (upscale) residential, which partially subsidizes f ourth floor • Fourth floor: Below-market-rate residential, allowing for diversification of popula- tion (plus advantages toward funding for subsidized housing) • Second and third foors: Light, clean manufacturing • First or ground floor: Commercial or professional Ancillary sustainable program scope • Vegetative roof not only reduces heat-island effect but also helps to reduce stormwater runoff; absorb COz; and provide for a beautiful, more highly marketable amenity • Roof-mounted photovoltaic sheets or panels • Preservation of traditional sustainable building elements, including brick and stone masonry walls (thermal mass), original windows (old-growth wood, natural ventila- tion, increased daylighting, high-quality hardware), early lighting fixtures, original storefront • Redevelopment with compatible new systems, including window weather-stripping systems, laminated low-e glass (not insulated glass units), reflective membrane roofing beneath vegetative roof, radiant heating with heat pumps for cooling 56 I Dubuque, Iowa, SDAT Report o Promotion of regional artisans (e.g., Amish woodworkers, graphic artists, sculptors, musicians) o Instruction on indigenous planting for yards and gardens, composting, and waste management o Resource center with prequalified local contractor directory o Education on sustainable building technologies involving preservation, development, energy • Provide incentives for owner-occupancy throughout the city's historic districts, emphasizing a balance (now f30 percent in Washington neighborhood) with city- wide ownership rates (t70 percent) Establish preservation guidelines that promote understanding and encourage incor- poration of traditional building systems (e.g., wood windows, masonry walls, timber structural systems) • Establish infill guidelines for new buildings that discourage mimicking history (e.g., "Ye Olde New Buildings") and encourage compatible new design that reflects its own time yet blends with the context of texture, proportion, color, massing, scale, and fenestration • Encourage communal energy generation and distribution systems • Encourage communal water collection systems for "grey-water" plumbing systems, irrigation, and continued reduction in stormwater runoff • Encourage negotiations with city-determined desirable multinational retailers to adapt universal designs to the conditions in historic districts, especially the ware- house district. The proximity of so-called anchor stores to the River Walk, adjacent historic neighborhoods, and the bridges linking Dubuque with both Wisconsin and Illinois could increase sales-tax revenues. • Designate destination zones or nodes within established districts or neighborhoods, such as the Theatre District, Restaurants On the River, or distinctive shopping avenues • Avoid and/or discourage parking-intensive businesses while encouraging continued metered parking and shuttle services that connect neighborhoods • Initiate acity-funded "carbon credit" for retailers in the central downtown districts, which would have a monetary value for the retailer that could be passed on to consumers in the form of reduced prices, thereby helping downtown retailers to maintain a compet- itive advantage over big-box stores on the periphery or within the city's west annexes 58 Dubuque, Iowa, SDAT Report MOVING FORWARD To achieve the overall goal of becoming a truly green city, the best strategy moving forward will be for the City of Dubuque to incorporate sustainable thinking and plan- ning into its existing initiatives and policy creation. Enhanced Relationship with Dubuque County The SDAT study area comprises the corporate limits of the City of Dubuque and sur- rounding fringe area within the city's two-mile extraterritorial jurisdiction for subdivi- sion review and approval. Under Iowa Code, the City of Dubuque has sole jurisdiction for all rezonings, planned unit developments, and subdivisions within the corporate limits as well as extraterritorial jurisdiction for subdivision review and approval within two miles of the corporate limits. The County of Dubuque has not completely acknowledged this joint jurisdictional responsibility. The city and county are, in fact, heavily interdependent. Therefore, enhanced relations and joint planning efforts are not only recommended but also vital for the long-term sustainability of both. sustainability Planning The city has a number of existing and "in-process" planning documents, including a comprehensive plan, a future. land use map, an annexation study, and a development policy for the two-mile fringe area. Further, there is a current effort to create a UDC that combines zoning, subdivision, historic preservation, and sign regulations. Incorporating the philosophy, intent, and specific recommendations of this SDAT report into these various planning documents will allow for a multipronged and inte- grated effort to incorporate sustainable design and planning principles into the ongoing operations of the city and surrounding area. 60 I Dubuque, Iowa, SDAT Report