Historic Millwork District Master Plan 2 16 09TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Adoption of the Historic Millwork District Master Plan
DATE: February 11, 2009
As an outgrowth of the Envision 2010 process, members of the "Warehouse District,"
now known as the Historic Millwork District, committee saw the need to define the
district through a master plan process. Both the public and private partners have
sensed the need to define the long range plan for the district, to anticipate and guide
future investment and to ensure quality development.
The members of the Historic Millwork District Committee are:
Mike Blouin, Greater Dubuque Development Corporation President
Jay Borrell, Jeld-Wen Facility Manager
Paul Butler, B&G Development Partner
Laura Carstens, City of Dubuque Planning Services Manager
Jill Connors, Gronen Restoration
Brian Dalziel, Northeast Iowa Business Accelerator Regional Director
Aaron DeJong, City of Dubuque Assistant Economic Development Director
Rick Dickinson, Greater Dubuque Development Corporation Executive
Director and Chief Operating Officer
Teri Goodmann, City of Dubuque Assistant City Manager
John Gronen, Property Owner
Dave Heiar, City of Dubuque Economic Development Director
Bob Johnson, Property Owner
Dan LoBianco, Dubuque Main Street Executive Director
Tim McNamara, Property Owner
Tony Pfohl, Property Owner
Joel Schmidt, Alliant Energy Regional Director
Michelle Schnier, East Central Intergovernmental Association Director of Housing
and Human Services
Jerry Schroeder, East Central Intergovernmental Association Economic
Development Director
Cindy Steinhauser, City of Dubuque Assistant City Manager
The committee prepared the Warehouse District Revitalization Strategy that was
approved by the Dubuque City Council on August 6, 2007. The first goal of that
strategy was to develop a Master Plan for the district.
Funding for the Plan came mostly from a grant from the United States Economic
Development Administration (EDA) as well from the four major property owners, local
businesses, and Dubuque Initiatives.
Through a competitive bidding process, the Cuningham Group demonstrated to the
selection committee that they had the most capability and creativity to help the
community create a Master Plan for the District. A contract with the Cuningham Group
and ERA was approved on June 2, 2008 by the City Council.
The Cuningham Group work began with a June 25-27, 2008 visit to the community
where several focus groups were conducted to quickly learn about the Historic Millwork
District and to get community input. The consultants met with the business community,
city staff, the City Council, property owners, the Envision 2010 committee, Dubuque
Main Street, a general public meeting inviting the entire community and other
stakeholders for their input. Cuningham Group then gave a presentation to the steering
committee to outline what they had learned from the visit and gave a rough design of
what they considered to be the next steps to developing the plan.
City staff then provided direction over the next few months to prepare for the second
input trip held October 7-8, 2008. The same focus groups met again with the
consultants to be exposed to the work to date and a preliminary development summary
for the district.
A draft of the Master Plan was delivered to City Staff and the Steering committee for
their review at the end of December 2008. The committee met and gave their
comments on the plan to the consultants and those comments have been incorporated
into the plan.
The City Council held a work session on February 2, 2009, to discuss the plan. Andrew
Dresdner of the Cuningham Group, and Chris Brewer of ERA gave a presentation of the
key components of the plan. Comments were received and changes were made to the
document reflecting those comments.
Economic Development Director Dave Heiar is recommending adoption of the Historic
Millwork District Plan.
The Plan includes Demographic and Market Context and a Financial Analysis
Summary.
The Project Goals section outlines that the success of the district depends on several
goals being met. The following are those goals stated in the Plan:
® Showcase the area as a model for sustainability
• Balance the circulation system
• Create a connected public realm
• Reinforce the historical and cultural identity
• Establish a coordinated parking strategy
• Create a range of employment and housing opportunities
The Sustainable Systems section describes the sustainable measures being envisioned
for the district. The district is an opportunity to achieve a quality redevelopment and this
plan outlines the areas of consideration for sustainable improvements. The sustainable
measures are broken into five categories:
• Water
• Energy
• The Built Environment
• Vegetation and Open Space
• Arts and Culture
The plan defines an intended three-phase schedule for improvements. The actual
timeframe for each phase will depend on the local market; however, the recent
announcement by IBM to create 1,300 jobs in Dubuque by the end of 2010 will increase
the local demand.
The Demographic and Market Context prepared by ERA outlines the Dubuque area
demographics and the potential for urban space in the community. The study found that
supply of downtown urban housing is not being met in the community and that there is
initial demand for 250-500 new units. According to the consultant, commercial and
retail uses tend to follow residential and should enough critical mass of housing be
created, new support businesses will begin to locate in the district.
The Financial Analysis Summary outlines in detail the first phase of the Historic Millwork
District plan. It determined the costs and potential funding shortfalls of the
redevelopment schedule. The entire first phase is estimated to cost $52,200,000 and
that cost is expected to be filled with many layers of private, federal, state and local
sources. Of key importance to the financial feasibility is finding non-private sources to
fill financing gaps equal to the benefit of federal and state historic tax credits. These
credits are needed to allow the developers to achieve a reasonable financial return to
compensate them for their assumed risk.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
a .
v~..
Michael C. Van Milligen
MCVM/jh
Attachment
cc: Historic Millwork District Committee
Barry Lindahl, City Attorney
®UbUgUe
THE CITY C)F
All-America Gi1y
~_
.Mc~st~r~iece on the Mi~sissip~i
2007
TO: Michael Van Milligen, City Manager
FROM: David J. Heiar, Economic Development Directo _ ~~
SUBJECT: Adoption of the Historic Millwork District Master Plan
DATE: February 11, 2009
INTRODUCTION
This memorandum presents for City Council consideration adoption of the Historic
Millwork District Master Plan developed by the Cuningham Group and Economics
Research Associates (ERA).
BACKGROUND
As an outgrowth of the Envision 2090 process, members of the "Warehouse District"
committee saw the need to define the Warehouse District through a master plan
process. Both the public and private partners have sensed the need to define the long
range plan for the district, to anticipate and guide future investment and to ensure
quality development.
The committee also prepared the Warehouse District Revitalization Strategy that was
approved by the Dubuque City Council on August 6, 2007. The first goal of that
strategy was to develop a Master Plan for the Warehouse District.
Funding for the Plan came mostly from a grant from the Economic Development
Administration (EDA) as well from the four major property owners, local businesses, and
Dubuque Initiatives.
Through a competitive bidding process, the Cuningham Group demonstrated to the
selection committee that they had the most capability and creativity to help the
community create a Master Plan for the District. A contract with the Cuningham Group
and ERA was approved on June 2, 2008 by the City Council.
The Cuningham Group work began with a two day (June 25-27) visit to the community
where several focus groups were conducted to quickly learn about the Historic Millwork
District and to get community input. The consultants met with the business community,
city staff, the City Council, property owners, the Envision 2010 committee, Dubuque
Main Street, a general public meeting inviting the entire community and other
stakeholders for their input. Cuningham then gave a presentation to the steering
committee to outline what they had learned from the visit and gave a rough design of
what they considered to be the next steps to developing the plan.
City staff then provided direction over the next few months to prepare for the second
input trip held October 7-8, 2008. The same focus groups met again with the
consultants to be exposed to the work to date and a preliminary development summary
for the district.
A draft of the Master Plan was delivered to City Staff and the Steering committee for
their review at the end of December 2008. The committee met and gave their
comments on the plan to the consultants and those comments have been incorporated
into the plan.
The City Council held a worksession on February 2, 2009, to discuss the plan. Andrew
Dresdner of the Cuningham Group, and Chris Brewer of ERA gave a presentation of the
key components of the plan. Comments were received and changes were made to the
document reflecting those comments.
DISCUSSION
The deliverables attached to this memo are 1) the Historic Millwork Master Plan; 2)
Demographic and Market context; and 3) Financial Analysis Summary.
The Master Plan is broken down into 4 sections, District Identity, Project Goals,
Sustainable Systems, and the Development Summary.
The District Identity section outlines the history and potential of the Historic Millworking
District. It defines the rich history of millworking in Dubuque, the architectural character
of the buildings in the district, the connections to other areas of the community, and the
cultural amenities in the area.
The Project Goals section outlines that the success of the district depends on several
goals being met. The following are those goals stated in the Plan:
• Showcase the area as a model for sustainability
• Balance the circulation system
• Create a connected public realm
• Reinforce the historical and cultural identity
• Establish a coordinated parking strategy
• Create a range of employment and housing opportunities
The Sustainable Systems section describes the sustainable measures being envisioned
for the district. The district is an opportunity to achieve a quality redevelopment and this
plan outlines the areas of consideration for sustainable improvements. The sustainable
measures are broken into 5 categories:
• Water
• Energy
• The Built Environment
Redevelop the Washington neighborhood edge to create a positive transition to
the Millwork District.
Redesign 11t" Street as a green street, with two way traffic and ample
landscaping.
Realign Elm and Pine Street to create a developable block on the east edge of
the District. Develop this block with amulti-story gateway building.
The Demographic and Market Context prepared by ERA outlines the Dubuque are
demographics and the potential for urban space in the community. The study found that
supply of downtown urban housing is not being met in the community and that there is
initial demand for 250-500 new units. According to the consultant, commercial and
retail uses tend to follow residential and should enough critical mass of housing be
created, new support businesses will begin to locate in the district.
The Financial Analysis Summary outlines in detail the first phase of the Historic Millwork
District plan. It determined the costs and potential funding shortfalls of the
redevelopment schedule. The entire first phase is estimated to cost $52,200,000 and
that cost is expected to be filled with many layers of private, federal, state and local
sources. Of key importance to the financial feasibility is finding non-private sources to
fill financing gaps equal to the benefit of federal and state historic tax credits. These
credits are needed to allow the developers to achieve a reasonable financial return to
compensate them for their assumed risk.
ACTION STEP
I am requesting that the City Council adopt the attached Master Plan for the Historic
Millworking District. This redevelopment project will be transformational for the
downtown and the community.
F:\USERSWdejong\Warehouse District\Master Plan\20090211 Master Plan approval memo.doc
RESOLUTION NO. 75-09
RESOLUTION ADOPTING THE HISTORIC MILLWORK DISTRICT MASTER
PLAN.
Whereas, the City Council has requested a Master Plan be developed in
accordance with the Warehouse District Revitalization Strategy adopted by Resolution
425-07 on August 6, 2007; and
Whereas, a consultant was hired to assist city staff to prepare a Master Plan for
the Historic Millwork District; and
Whereas, several public meetings were held to provide input on the plan, a
steering committee composed of stakeholders have consulted on the plan, and Several
city staff have provided input to the plan; and
Whereas, the revitalization of the Historic Millwork District will create new
housing, commercial, and retail development opportunities to enhance the economic
development in the downtown; and
Whereas, the District will be revitalized with an emphasis on sustainability
through water resource management, sustainable energy alternatives, historic
preservation of the built environment, reintroduction of greenspace, and a focus of
promoting arts & culture within the area.
NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF DUBUQUE, IOWA:
Section 1. That the Historic Millwork District Master Plan prepared by the
Cuningham Group and Economics Research Associates is hereby approved.
Passed, approved and adopted this 16th day of February, 2009.
Roy D. Buol, Mayor
Attest:
Jeanne F. Schneider, City Clerk
Historic Millwork District Master Plan
Dubuque, Iowa
Adopted by Dubuque City Council on
Prepared for: _ __
The City of Dubuque ,!~* *~ * -
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Prepared by: ,r ~~~ '}~~
Cuningham Group Architecture, P.A. ~ *-'
Economics Research Associates _*
Jeffrey Morton Architecture project#OS-87-04698
Acknowledgements
Acknowledgements
Steering Committee
Mike Blouin
Jay Borrell
Paul Butler
Laura Carstens
Jill Connors
Brian Dalziel
Aaron DeJong
Rick Dickinson
Teri Goodmann
John Gronen
Dave Heiar
Bob Johnson
Dan LoBianco
Tim McNamara
Tony Pfohl
Joel Schmidt
Michelle Schnier
Jerry Schroeder
Cindy Steinhauser
Nancy Van Milligen
City Staff Liaisons
David Heiar, Economic Development Director,
City of Dubuque
Aaron DeJong, Asst Economic Development Director,
City of Dubuque
Cindy Steinhauser, Assistant City 1~Ianager,
City of Dubuque
Laura Carstens, Planning Services Manager
City of Dubuque
Consultants
Cuningham Group Architecture, P.A.
Economic Research Associates
Jeffrey Morton Architecture
CUNINGHAM
G R O U P
Table of Contents
Table of Contents
1. Executive Summary
2. District Identity
3. Project Goals
4. Sustainable Systems
5. Development Summary
6. Phase I: Central
7. Phase 2: South
8. Phase 3: North
D
CUNINGHAM
G F O U P
Dubuque
Historic Millwork District
Master Plan
Dubuque's Historic Millwork District is a keystone to the region's aggressive
economic development strategy. With one million square feet of historic warehouse
space ideal for urban mixed-use development, the District is perfectly suited to
attract entrepreneurs, designers, residents, institutions, and businesses prepared to
fuel Dubuque's globally competitive and sustainable economy.
'This Plan is a vision and a roadmap that positions the District for significant growth
by building on and reinforcing its strengths: size, unique building stock, proximity
to the Mississippi River and Downtown, and healthy and aggressive public-private
partnerships committed to making the District a model sustainable community.
New residents and technologies will inhabit old spaces, the arts will flourish, and
green technologies will be showcased. The embodied energy of historic buildings
will fuel Dubuque's 21st-Century economy and will be the foundation for the
vibrant mixed-use neighborhood that offers convenient access to urban amenities
and outdoor recreation opportunities.
The execution of this Plan will enable the District to become the creative,
innovative, and sustainable place that propels Dubuque ahead of its regional
competitors, thereby assuring its health and vitality for generations to cotne.
CUNINGHAM
G R O U R
Executive Summary -1
Identity: Past & Future
"The Historic A~lillwork District is saturated with history. It imbues the area with authenticity
and character while offering valuable lessons about the importance of sustainable
urban design strategies. At the turn of the century, the District was the innovative and
entrepreneurial center of the region and vvas the backbone of the regional economy. Dozens
of companies, 2,500 employees, a district heating system, and intimate connections to
Downtown and the Washington Neighborhood characterized the District.
'This Plan resurrects the forgotten strategy that connects people, planet, and profit in a
mixed-use neighborhood. It offers a vision for a community reconnected with surrounding
neighborhoods, reenergized with housing, retail, offices, galleries, entertainment, and
employment, and re-imagined as a laboratory for sustainable practices and technologies.
Urban Ecosystems: Infrastructure for a Model Sustainable District
Systems
Goals Integrated Strategies & Placemaking
Impru~c water quality, reduce reliance
on water supply and wastewater ~ Design Guidelines
s stem many e stormwater locall . Economic Analysis l;
Y g Y Green Streets
Stormwater Parks
Minimize carbon footprint, create _ Greywater Ti ~ v~~r++~~,+t fl
and use locally available resources. Rainwater Harvesting
District Energy ~l
Use embodied energy of historic Renewable Energy
warehouse buildings reserve __-_._~ Adaptive Reuse
~ ~ p Historic Preservation ~{
historical significance. Community Gardens
Native Plantings
Provide habitat, create pervious ~ Water Features
surfaces, define places for recreation. Central Gathering Space l
Human-Scaled Spaces
Arts Vcti~es
Celebrate and enwu.nbc historical ~ Artistic Si~e~~~t.aN~eS
and cultural identity. Educational Kiosks
~ ~ . ~ i s ~ 1, ~., ~.E'!~ ~ '"°~ :s.tu.. ,.'.
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High Economic Value -Low Environmental Impact
economic
productivity
environmental R
impact
1850 1900 1950
the past ;the future
•~ reased
economic
productivity,
decreased
environmental
impact
2050
Over time, the District will reestablish
itself as a regional engine of growth,
with a greater awareness of its
environmental impact than was the case
100 years ago. Individual properties
and the public realm will function as an
urban ecosystem, and the District will
be a unit with high economic value and
love environmental impact. Specifically,
the District will strive to stay within
its rainfall budget, approach carbon
balance, create sustainable jobs and
housing, and reinforce the importance
of connectivity within the city.
Executive Summary -2
Strengths
Existingbu$dings: the greenest buildings are those
already built; the District has over one million square
feet of available space.
Access to Downtown and the Port of Dubuque: the
District iswell-located between the area's two most
vibrant places.
Active arts community: Dubuque's strong creative
class is poised to transform the District into the City's
"third space": a place for gathering, interconnectivity,
and inspiration.
Plan Features
• Sense of place: the elnbodied energy of older
buildings offers residents and businesses an authentic
environment unique in the region.
• Untapped Downtown residential market:
Downtown's employment base and amenities create a
strong market for Downtown area housing.
• Healthy public-private partnerships: much of the
District is owned by four developers willing to work
with the City to create a consensus vision for the area.
North
• 182 residential units
Central
• 396 residential units
• 135,000sfoffice(405jobs)
A) Green streets: Rebuild District streets with high-quality
streets..upes, modern utilities, on-street parking, artistic elements,
and stormwater management features.
B) New development blocks: Realign Elm and Pine Streets
to create three new blocks for development, open space, and
stormwater management.
C) Im~~u~t=d connecti.,~..~ ~~r.reen the District, the Port, and
Downtown: Create pedestrian-friendly conditions along 10th
and 7th Streets, the streets connecting Downtown, the District,
and the riverfront.
D) Rapruyram to two-way or calm one-way streets: Work
with IDOT to examine how Central, White, 9th, and 11th
St.~~~~ can lrew~ne calmer urban streets.
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E) A signature public .,.~~_ I space: Build amulti-use,
flexible plaza and parkin the heart of the District to use for
performances, concerts, markets, and to showcase sustainable
practices, technologies, and artistic elements.
F) A w~+w.ih~lated parking strategy: Maxtnltze on-street parking
and build rivo medium-scaled garages when required.
G) A mix of uses: Accommodate rental and ownership housing,
small and large Businesses, and arts and entertainment venues in
the over one million square feet already available in the District.
Throughout: Showcase the visual and performing arts,
implement sustainable technologies and management solutions.
Executive Summary -3
South
• 154 residential units
• 216,600sfoffice(648jobs)
10th Street
7 0th Street: Renovated warehouse buildings will animate and define a key
pedestrian connection to Downtown. Tenth Street will be a unique urban space,
with reused bricks, portals to courtyards, and adapted loading docks.
Jackson Street: Partial reconstruction will include upgrades to utilities and
conditions but will enable Jackson Street to retain its inherent character. Existing
rail tracks, brick pavers, and other unique features will retrain in place where
appropriate.
Green Streets: New and reconstnicted streets will irrigate landscape by collecting
stormwater. On-street convenience parking, well-marked crosswalks, and ample
space for amenities such as public art, seating, and lighting will contribute to the
pedestrian and environmentally friendly streetscape.
Foundry Square: The Alamo Building and new plaza is a lively, year-round focal
point and gathering space in the heart of the District.
Landform Park: stormwater management, recreation, artistic features, and
geothermal opportunities are some of the feattres Landform Park will offer.
Kirby/Parley Plaza: The plaza pair will define a Ivey address for new commercial
and office tenants and will be a significant public space along the 7th Street
connection between Downtown, the District, and the Port.
Dubuque Warehouse District Project Group
Steering Committee City of Dubuque Staff Liaisons
1\-Iike Blouin David Heiar
Ja}' Borrell Bob Johnson
Paul Butler Dan LoBianco
Laura Carstens Tim McNamara
Jill Connors Tony Pfohl
Brian Dalziel Joel Schmidt
Aaron DeJong
Ricl<Dickinson Michelle Schnier
Jerr}' Schroeder
Teri Goodmann Cindy Steinhauser
John Groner Nancy Van Nlilligen
David Heiar, Economic Development Director
Aaron DeJong, Asst Economic Development Director
Cindy Steinhauser, Assistant City 1\~Ianager
Laura Carstens, Planning Services Manager
Consultants
Cuningham Group Architecture, P.A.
Economic Research Associates
Jeffrey D'Iorton Architecture
Foundry Square
Next Steps
• Work with property owners to assemble
a Phase One Historic Tax Credit
Application for approximately 200 rental
units and 100,000 square feet of non-
commercial space.
• Develop a detailed streetscape plan and
plaza design.
• Pursue full funding for public
infrastructure.
• Work with regional and national partners
to develop a comprehensive District
Energy Plan.
• Build a small parking deck adjacent to
the Alamo Building.
• Work with IDOT to begin the process
of rerouting Elm Street.
Executive Summary -4
Places: Streets & Spaces
2. District Identity
DRAFT 01 /28/09
2. District Identity
Physical Environment
Regional Scale
Dubuque is located on the Iowa side of the Mississippi
River, across from the Illinois and Wisconsin border
and almost halfway between Cedar Rapids, Io4va, and
Madison, Wisconsin. "Ihe Great River Road Scenic
Byway links Dubuque with other river towns and tourist
destinations to the north and south.
Since the closest Interstates pass through Quad Cities
Madison and Cedar Rapids, the U.S. Highway system is
the primary transportation link between Dubuque and
other destinations. Consequently, Dubuque's downtown
accommodates four U.S. highways, including three that
pass through and adjacent to the District study area.
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Local Scale
Highways and Arterials
Although the highways bring many travelers to and
through Dubuque instead of around it, several highway-
related conditions create barriers within and adjacent to
the District site:
• Fast, heavy traffic.
• Large amount of truck traffic.
• Wide streets.
• One-way streets.
• Elevated highway bridge.
the highways are an important connection between
Dubuque and the larger region, but their local impacts
are severe. 'Ihe District is unfriendly to pedestrians,
connections between the District, Downtown, the Port
of Dubuque, and the Washington Neighborhood are
challenging and few, and the District functions not as a
destination but as somewhere to pass through en route
to other places. these conditions were acceptable when
the District's primary function was industrial. Now,
however, the area is in transition and must accommodate
a mix of uses, people, and modes of transportation.
Regional Setting: Dubuque is located approximately halfiva Highways & Arterials: Wide, one-way streets
between Madison, Wisconsin, and Cedar Rapids, Iowa (top encourage fast truck traffic (top). the elevated
Four major U.S. Highway routes pass through Dubuque (bottom). highway stn~cture creates a barrier (bottom).
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1 G Fl O U P
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2. District Identity
Physical Environment (continued)
Local Scale (continued)
Local Streets
The downtown street pattern is a connected grid in most
places. Interruptions occur with the presence of natural
features, such as bluffs and water, and physical elements,
such as large buildings and highway structures. Only
four of eight east-west streets pass through the District
uninterrupted, and just one-9th Street-extends from
the water over the bluffs. Not one of the five north-
south streets passes completely through the District.
connections with surrounding neighborhoods and
Downtown. Over time, accommodations for increased
truck traffic, highway strictures, and highway routes
resulted in an eroded grid system--physically and
programmatically--in the District.
Private streets, dead-end streets, one-way streets, and
the elevated highway structure contribute to the loss of
connectivity and introduce challenges to transit, walking
and wayfinding in the District. Narrow, buckling
sidewalks also challenge pedestrians in the area.
The District's local street pattern, types, characteristics,
and conditions are byproducts of the highway system
and the area's history as an industrial hub. The street
pattern to the north and east of the District is a
relatively complete grid that once provided numerous
Despite these challenges, much of the District's valued
character comes through in its streets. Unused railroad
tracks and brick pavement are features unique to the
District that help define it as a meaningful place with a
strong historical component.
Street Patterns: Most of the streets north and west of the District are part of a connected
grid system (left). the grid has eroded within the District (right), leaving behind a system
of one-wa}~ streets (shown in heavy black), private streets (shown in black dots), and dead-
end streets.
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Strut Characteristics: Unused raihaad
tracks and brick pavement define the
District's character (top). Some sidewalks
are difficult to access; some are nearly 18
inches higher than the streets (bottom).
CUNINGHAM
G F O U P
2. District Identity
Physical Environment (continued)
Local Scale (continued)
Buildings and Uses
Within the District, buildings occupy whole or half
blocks. They are tightly arranged, with only small
amounts of space for a few parking lots, streets, alleys,
courtyards, and passages.
A few buildings are small and some are new, but the
main building types are large, historical warehouse
structures. Though some buildngs are vacant,
especially on upper floors, many are occupied by office,
commercial, or industrial uses. Most have not been
renovated.
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Buildings: Most buildings are large, historical warehouse
strictures (left), with the exception of a few newer (right) or
smaller structures sprinkled throughout. Some are in use while
others are vacant.
The Wilmac Building offers the only improved spaces
in the District. It has been a place of office employment
for many years and continues being renovated for
additional tenants, including an art studio space.
JELD-WEN is a fully operational industrial company
that has been part of the District for many years, and is
situated on three blocks in the south area of the District.
Spahr and Rose is another large industrial company
operating in the District. Like JELD-WEN, it is a long
term tenant. Spahr and Rose is located in the District's
north area.
I
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CUNINGHAM
G R O U P
Land lls~: The District is com rised primarily of industrial and
office uses. JELD-EVEN (left occupies nearly three blocks, and
some smaller commercial businesses (right) occupy part of a single
building.
2. District Identity
Physical Environment
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CUNINGHAM
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2. District Identity
Natural Environment
Regional Scale
The Mississippi River and the blufflands are Dubuque's
most prominent natural features. Each reinforces the
sense of place that distinguishes Dubuque and each has
contributed to the area's visual, recreational, commercial,
and community appeal throughout the years.
The Mississippi River is valued not only for its
scenic beauty, richness of habitat, and recreational
opportunities, but also for its role in the region's
commercial and industrial success. The riverfront is
home to both cultural and industrial activity, and serves
as part of a major migratory fl}tivay.
Dubuque's bluffs give added topographical definition
and identity to the city. They rise 300 feet in less than a
mile, with some reaching 900 feet above sea level. These
bluffs, along with deep valleys, characterize the Driftless
Region, an area untouched by glaciers in the last glacial
period that encompasses over 16,000 square miles in
Iowa, Illinois, Wisconsin, and Minnesota. The scenic
region is unique in Iowa, and attracts tourists interested
in hiking, biking, fishing, and other recreational
activities.
The District is situated between and near the river and
the bluffs; therefore, what happens in the District should
complement these natural features and should protnote
responsible stewardship of each. A balance between
industry, urban living, biological resources, and public
land in the District can contribute to making a healthy
ecosystem that promotes the longevity and sustainability
of valuable natural and cultural features.
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CUNINGHAM
G R O V P
The Driftless Area: Over 16,000 square miles in Iowa, Illurois,
Wisconsin, and Minnesota comprise the Driftless Area, a region
characterized by steep bluffs and deep valle}~s.
The Mississippi River. The Dubuque riverfront is active and
diverse, with a collection of cultural, ecological, industrial, and
recreational functions.
2. District Identity
Natural Environment (continued)
Local Scale
Parks and Open Space
Many kinds of open spaces, such as bluftiands, parks, streetscapes, and
promenades, exist around the District. Despite the proximity of these
spaces to the District, none are connected to it and only a few small spaces
exist within it. Currently, short passages, small courtyards, and undefined
fields of grass or parking comprise the District's open space system.
As the focus of the District changes from primarily industrial to a balance
between industrial, office, commerical, and residential, priority should be
placed on creating new green spaces, improving existing spaces, and making
connections between existing spaces within and outside the District.
Streetscapes
Streets are the most continuous network of public spaces in the city. Main
and Iowa Streets are two local examples of different streetscape treatments.
Main Street is designed with wide side~vallcs, street trees, outdoor seating,
and a comprehensive signage treatment that make the outdoors comfortable.
Iowa Street is a tree-lined boulevard. 'Ihe District is the right place for
a street aesthetic and experience all its own, but its streetscape should be
conceived of in a manner as deliberate as that of Main and Iowa Streets.
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Open Space: This passage and small courri'ard can inform the
development of a complete and connected open space s}'stem.
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G R O U P
Par4s k~ Open SpacE: Many Large parks
and open spaces exist around the District,
but none exist ~a.ithin it.
Streetscapes: \Vide sidewalks, street trees, and outdoor seating
contribute to the D4ain Street experience and aesthetic.
2. District Identity
Cultural Environment
History
Cultural Heritage
The District is a living legacy of intangible attributes
worthy of preservation for future generations. Visual
narratives of people, activities, and important processes
are very much alive in the area and are inherent in its
uniqueness of character and historical value.
Natural Heritage
The natural environment, including the Mississippi
River and blufHands, also contributes important natural
and cultural value from the past and to the future. The
river's role in commerce, settlement, and development
history, as well as the beauty and biodiversity inherent
in the blufiiands, river environment, and other natural
places, are strong and guiding forces in the District.
Physical Heritage
The District's physical artifacts, or buildings,
monuments, and industrial equipment, also are assets
to preserve. These tangible layers of history, including
today's, are part of the continued evolution the District
will continue to experience in the future.
Most of the District is a National Register Historic
District. This designation helps honor the District's
past while welcoming its future as part of a dynamic
and evolving city. As an Historic District, buildings are
eligible for state and federal historic tax credits.
Physical Heritage: Historically significant buildings like those of
the Farle}}~ & Loetscher companies (above), comprrsc the Federal
Historic llistrict (right). Contributing structures are shown in
yellow.
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G F O U P
Natural Heritage:'Ihe Mississippi River (above) is one of several
naturally and culturally significant environmental features in
Dubuque. It was and continues to be a strong guiding farce for
the District.
2. District Identity
Cultural Environment (continued)
Character
The Arts
Dubuque is home to a growing arts scene, and the
District is host to many arts events as well as creative
companies, entrepreneurs, artists, and a new arts studio
space. 'There is evidence throughout the District of
the innovative spirit espoused by the arts. "This is
instrumental in reinforcing the District's character and
should be encouraged to flourish.
Industry
The District's roots are in industry. Long before JELD-
WEN and Spahn and Rose, the millwork tradition
was strong. Companies like Caradco and Farley and
Loetscher defined the character and impression of the
place with their large buildings, overhead skywalks, and
employees that walked to and from home in the nearby
Washington Neighborhood.
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The Arts: F,vidence of the creative community appears throughout
the District.
People
Planning Process
Many committed people were involved in the District
planning process. The 22-member project steering
committee, along with city council members, city staff,
neighborhood representatives, artists, and the general
public provided information, shared ideas, and gave
feedback throughout the process. In all, the consultant
team met with about 120 people over a 9-month period.
Partnerships
Strong partnerships between the public and private
sectors are the cornerstone of the District project.
Each group needs the other in order to plan for and
implement the tnost comprehensive and appropriate
plan, and the sterling partnerships already in place
are essential to continue to build and reinforce as the
District's plan comes to life.
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CUNINGHAM
G A O V P
Planning Process: Use of visuals with multiple focus groups and
public input meetings characterized the inclusive planning process.
3. Project Goals
3. Project Goals
Connections
The District's central location betvveen two premier
Dubuque destinations, Downtown and the Port, is
ideal. However, despite its proximity, the District is not
well connected to these destination areas. Busy roads,
the elevated highway structure, and railroad tracks
create significant barriers between the District and its
surroundings.
As the District develops, better connections
with Downtown, the Port, and the Washington
Neighborhood should be priorities. The District will
then be an entertainment destination in itself, and will
CUNINGHAM
G R O U P
Making Connections: "Ihe District is strategically located between
Downtown Dubuque and the Port of Dubuque (left). It is
important to prioritize connections bchveen the District and
Downtown, the Port, and the \Vashington Neighborhood.
also be a com~enient place to live and work.
3. Project Goals
Project Goals & Objectives
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Showcase the area as a
model of sustainability.
• Create aDistrict-wide approach
to clean energy management,
water management, and use.
• Adopt green building standards.
• Operate as an innovative
laboratory for sustainable urban
environments.
Reinforce historical and
cultural identity.
• Return 9th and 11th Streets into
rivo-way streets.
• Reconnect the street and
sidewalk network where feasible.
• Minimize impacts of truck traffic
not destined for the District.
• Enhance elisting sidewalks.
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Establish a coordinated
parking strategy.
• Widen and activate sidewalks.
• Prioritize the 10th Street
pedestrian environment.
• Create a central gathering space.
• Create a system of connected
courtyards and passages.
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Create a range of employment
and housing opportunities.
• Preserve historical buildings. Establish street parking Support a range of job types.
• Provide artist housing, studios, guidelines. Create rental and for-sale
and gallery space. Create several small parking areas housing opportunities.
• Include not-for-profit efforts in instead of a single large parking Encourage new development
the District. area. when and where appropriate.
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CUNINGHAM
G P O U P
Create a connected
public realm.
Balance the
circulation system.
4. Sustainable Systems
4. Sustainable Systems
Overview
This Plan recommends maximizing community, environmental, and
economic benefits through cooperation between the public and private
sectors. Five infrastructure systems, or layers, provide a framework for water
understanding and implementing a healthy and sustainable plan that meets
this criteria. ,
B~Ue InfYdStrUCtUre addresses water use and treatment approaches that `~
contribute to better water quality energy
Ordrlge IrlfrdStrUCtUre includes efficient electrical, heating, and cooling
systems that minimize the District's cairbon footprint.
Gray I nfrdStrUCtUre includes buildings, parking, streets, and other development
redevelopment that is essential to establishing a viable mixed-use
neighborhood.
GYeen InfrdStrUCtUre includes vegetation, parks, and open space that
contribute to a healthy ecosystem, better air and water quality, and improved vegetation &
open space
public life. ~
Red InfrdStruCtUre includes arts and cultural spaces, amenities, and / /~
expressions that reinforce the identify of an area.
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The following section introduces each infrastructure system in detail, and /v/ ~~ICUrn
makes recommendations for implementation at both the District scale and
building scale.
Infrastructure Layers for a
Sustainable Millwork District
Environmental
and Ecological ~i'vnble Social and
Integrity Cultural
Vibrancy
Viable x Equitable
Economic
Prosperity
The triple bottom line of stistainability
.'._~%~, ~ CUNINGHAM
I G P O U P
4. Sustainable Systems
Blue Infrastructure: Water
Introduction
Blue Infrastructure consist of rain and stormwater, wastewater and domestic
water. "This section focuses on the District's relationship to water: the use,
treatment and management of this limited and valuable resource. Water
is a valuable resource for all communities, but is of special importance to
Dubuque because of its proximity to the river and its impact on downstream
communities. Runoff and groundwater enter the river immediately, thereby
impacting downstream communities, habitat, and vegetation.
Instead of assuming water consumption and runoff inevitably increase as
the District redevelops and repopulates, the Plan establishes aggressive
strategies to capttuc, clean and conserve water. The overall goals of the Blue
System are:
• Reduce reliance on City's domestic water supply.
• Improve the water quality of infiltration and recharge.
• Reduce reliance on City's stormwater system.
Upon build-out, the District will have significantly reduced its reliance
on the City's distribution and waste water system by using potable water
primarily for potable purposes and by treating some waste on site. Other
non-potable water needs will come primarily from the District-wide gray
water system and direct rainfall. In addition, upon build-out, the District
will no longer shed its untreated rainfall and stormwater off-site to the
river. Rather, stormwater will be managed and treated on-site prior to either
entering the City's water system or recharging the groundwater.
Community Benefits
• Increased awareness and
stewardship of water
resources.
• Celebration of heritage as
a river community Cleaner
groundwater.
• Cleaner river water.
• Less reliance of off site
stormwater facilities.
• Less reliance on domestic
water supply.
• Cleaner ground water.
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{_ -. ~.._. G P O U P
4. Sustainable Systems
Blue Infrastructure (continued)
Existing Conditions
Generally, the land slopes from west to east toward the Mississippi River.
stormwater in the District is managed by underground pipes that serve
much of Downtown.Three trunk lines, beneath 11th, Sth, and 5tli Streets,
collect stormwater water from Downtown and send it directly to the Ice
Hazbor, Dove Harbor, and the 16th Street Detention Basin. The majority of
the rainfall in the District (and Downtown) enters one of these three tnmk
lines and enters the river untreated. Not all streets are correctly graded;
together with direct flow from rooftops rainfalls often produce loatlized
flooding and ponding.
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Recommendations
In order to reduce reliance on the City's systems and to not allow water
to leave the site in worse condition than when it falls on the site, Plan
recommends a street system designed to capture, use, and treat rainfall
and stormwater runoff; a wastewater system that uses bioremediation to
com'ert (some) black water to gray water, rainwater capture and harvesting
elements that supply a gray water circulation system for all new and existing
buildings. At the block and building scale the Plan recommends additional
rainwater harvesting (cisterns) for irrigation, retrofitting buildings for gray
water, and additional landscaping (green roofs, bioswales, parks, etc.).
29 inches/year= 30 million gallons
r capture and use
infiltrate and recnarye
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direct irrigation
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Rainfall: Over time, the District will use
on-site rainfitll more aggresively and
efficiently.
rainfall ,
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Proposed 61ue Infrastructure: "Ilte plan proposes a gray white black water s}stem that reduces the amount of imported potable water In
addition, the Plan proposes a system that treats all rainfall on site, assuring that water that exits the site is clean.
DRAFT 02/10/09 CUNINGHAM
G P O U P
District Storrrr:vater: Two trunk lines (9th
and 5th Sts) convey stornnvater from
Downtown and the District to the river.
A'Iost water is untreated as it enters the
river.
4.Sustainable Systems
Blue Infrastructure (continued)
Recommendations: District Scale
Create a system of streets that eliminate the need for underground
stormwater conveyance.
• Rebuild 9th and 11th Streets with linear stormwater biofiltration planters
along one side of the street.
• Rebuild 5th 6th, 7th, 8th, 12th Streets, and parts of Washington and Elm
Streets, with curb extensions to capture stormwater.
• Rebuild 10th Street with permeable pavers and im~erted curbs to sheet
flow rainfall to the stormwater feature on the east edge of the District.
• Establish a common palette of salt tolerant and native plants for use in the
stormwater planters and curb extensions.
Create a large stormwater collection area that improves the quality of
infiltration within the District and manages large storm events.
• Work with IDOT to reclaim property on the east edge of the District.
Design this land as a stormwater collection area that also functions as a
landform and art park feature.
• Consider using stormwater collection area for overflow from the 8th or
11th street trunk lines.
• Promote stewardship and environmental responsibility by encouraging
educational programs and signs or kiosks related to stormwater
management and treatment.
Develop a rainwater harvesting and gray water system.
• Design the District's infrastructure in support of a separated white/gray/
black water svstem.
• Retrofit all buildings with triple piping for potable water, waste water and
gray water.
• Use space beneath Foundry Square for larger cisterns and rainwater
collection chambers.
Develop a gray water treatment facility (expandable to blackwater) to
convert waste water to usable gray water.
Evaluate costs and seek partners to develop a Living Machine or other
black water treatment facility on site within the District.
Promote education and natural resource awareness by encouraging
educational programs related to the Living Machine
Use space within Foundry Square or the stormwater collection area on the
east edge of the District for the Living Machine.
I
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....__ _. _~ G R O U P
Green streets: linear planters
Permeable pavers
Gray and blackwater treatment: Living Machine
Plaza Street with permeable pavers
4. Sustainable Systems
Blue Infrastructure (continued)
Recommendations: Building Scale
Encourage green roofs as a means of capturing and using a portion of
a site's rainfall without having to convey it to a centralized location.
• Develop green roofs on the largest and most structurally stable warehouse
buildings. Green roofs can be occupied as social spaces such as gardens,
terraces and greenhouses, or they can serve ecological functions only as
places for vegetation and habitat.
• Integrate green roofs with the overall District-wide blue infrastructure
system.
Encourage building owners and operators to invest in products,
systems, and programs that help the users of the buildings conserve
water, raise awareness and implement the goals of this Plan.
• Work with public utilities to install "smart meters" for in all units and
buildings.
• Rehab buildings with appropriate white/gray/black water plumbing lines
and fixtures.
• Invest in low flow and water efficient fixtures and appliances such as
EnergyStar.
• Install cisterns and rain barrels for local irrigation and watering.
Celebrate water and the community's connection to the river in public
spaces.
• Create recreational connections to the river
• Enhance public spaces with interactive fountains
Green roof
,~'-~°i 1, CUNINGHAAt
_. G R O U P
Rainwater harvesting
Interactive fountains
Drinking fountain
4. Sustainable Systems
Orange Infrastructure: Energy
Introduction
Orange Infrastructure includes the electrical, heating, and cooling
infrastructure for the District -the primary carbon emitters.
This Plan establishes an aggressive vision of an economically vibrant District
with a low carbon footprint. Although redevelopment will bring an increase
in residents, employees, and therefore more energy use, it does not require a
corresponding increase in carbon emissions. Utilizing the embodied energy
of the buildings and the District itself, together with a series of on-site and
off-site energy efficiency strategies the carbon output can be minimized
(and perhaps neutralized). The Plan establishes two main energy goals:
• Reduce per capita energy consumption among residents and employees
within the District.
• Reduce reliance on non-renewable sources of power, and emphasize
reliance on clean and renewable sources of power.
• Be a model for smart energy and promotion of new technologies.
Community Benefits
• Increased awareness
and steUVardship of
environment.
• Reduced energy costs.
• Reduced energy needs.
• Reduced reliance on fossil
fuels.
• stable energy sources and
prices.
• Cleaner air from reduced
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G R O U P
4. Sustainable Systems
Orange Infrastructure (continued)
Existing Conditions
Because many buildings in the District are vacant, carbon emissions are low.
The District is responsible for carbon outputs from two major activities:
• Consumption of electricity that is produced by burning fossil fuels off site.
• The burning of natural gas within the District for heating and cooling, etc.
When the District was operating at its peak, heating was provided via a
series of tunnels and an on-site district heating plant. This system provided
efficient (but not clean) heating to the district.
Recommendations
As the District redevelops and becomes occupied by new residents and new
employees, demands for electricity and heating and cooling will increase.
The challenge is not to curtail development to minimize energy use but
to leverage the growth and development to create an efficient and clean
system that enables residents and employees to lower their per capita carbon
outputs. The Plan focuses on two main strategies:
Designing efficient buildings and systems that require less load.
Using renewable and clean energy to satisfy as many of the energy needs
as possible.
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The District's proximity to the river and adjacency to a local utility plant Energy Use: Over time, the District
offers an opportunity to create glow-carbon district-wide heating and will increase its need and use for energy.
However oaer time the District will
cooling system. The embodied energy of existing buildings can leveraged by transition to clearner and more renewable
be improving their energy performance with efficient materials and systems, sources.
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otential geothermal
Poop and field
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Oian~e Infrastructui:~: Currentl}~, individual buildings have individual boilers, each burning natural gas to heat and circulate water
through buildings. A District energy solution using either geothermal or co-generated heat from the nearby utility plant can be more
efficient and cleaner
CUNINGHAM
G a O U P
4. Sustainable Systems
Orange Infrastructure (continued)
Recommendations: District Scale
Create an efficient and clean District-wide heating and cooling system.
Work with local and regional utilities to explore the possibility of
capturing and distributing heat generated at the power plant and
converted to either natural gas or biomass on the river.
Work with local and regional utilities to evaluate the possibilities of
geothermal on a District-wide or building by building basis.
Consider expansion of the system to adjacent areas such as the
Washington Neighborhood.
Supplement the District-wide system with clean on-site power
generation.
• Install photovoltaics on rooftops, parking garages and plazas.
• Capture bio-gas (via anaerobic digestion) from possible on site Living
Machine for electricity production and/or building heating needs.
• Consider installation of fuel cells, micro turbines, and other possible small
scale means of capturing and conveying clean and renewable energy.
Highlight, promote, and make visible the production and conveyance
of energy in the District.
Consider designing an above ground utility system that reflects the
industrial past and creative future of the District.
Promote education and awareness by encouraging educational programs
related to the production and distribution of energy, power, heat and
electricity.
Pursue partnerships to assist in the capital costs and implementation
of energy programs.
• Consider long term energy service contracts with utility companies.
• Consider performance partnerships whereby the cost of energy efficiency
improvements are financed by a third party and repaid from the energy
savings generated.
Develop a system that measures and monitors energy use and
greenhouse gas emissions for the entire District.
• Work with local, regional and national partners to establish measurements
and targets for per capita carbon emissions.
• Monitor, evaluate, and adjust energy use and greenhouse gas emissions as
the District is built out.
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Solar canopy
Artistic, energy-efficient lights
Photovoltaic
4. Sustainable Systems
Orange Infrastructure (Continued)
Recommendations: Building Scale
Retrofit buildings with energy efficiency improvements.
• Perform pre-construction audits on all buildings prior to redevelopment;
follow up with periodic review audits.
• Provide incentives to developers to develop buildings that create light and
balanced heating/cooling loads; and efficient and dependable heating/
cooling systems.
• Establish educational and training procedures for building operators and
tenants in order to maximize the value of energy efficiency investments.
• Work with public utilities to install "smart meters" in all units and
buildings.
• Invest energy efficient fixtures and appliances.
~'~P; CUNINGHAM
tt G Fl O U P
Exposed infrastructure
4. Sustainable systems
Gray Infrastructure: Development
Introduction
Gray Infrastructure consists of buildings, parking streets and other
redevelopment efforts. The design, location, and balance of these elements
is critical to the success of the District; it will be the mix of uses and spaces
in the District that will attract people and investment, therefore making it a
creative environment unique in the region.
Redevelopment of over one million square feet of buildings will have
regional and national implications. Reusing buildings and reinvesting in
existing streets is aii efficient use of existing resources as it leverages the
embodied (and cultural) energy of the District. Redevelopment of the
District represents the reuse of a historic quarter of Downtown. The goals,
therefore, of Gray Infrastructure are to:
• Bring economic vitality to the region at minimal environmental cost.
• Establish a unique District that enhances Dubuque's regional
competitiveness.
• Connect the District to Downtown, the Port, and the region.
• Reinvest in Downtown Dubuque.
• Utilize the City's Downtown Design Guidelines.
Community Benefits
• Economic vitality and
increased tax revenues.
• New housing choices.
• Options to live within
walking distance of
Downtown.
Reinvestment in
community's history
f
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~. ~. G R O U P
• Restored historic buildings.
4. Sustainable Systems
Gray Infrastructure System (continued)
Existing Conditions
In 2008, the District was named a National Historic District, making
qualified projects eligible for federal and state historic tax credits. The
District consists of approximately 28 buildings, totaling approximately one
million square feet. Most buildings are vacant; however, JELD-WEN (not
in the Historic District) and a few other companies are fully operational.
The warehouse buildings have large open floor plates and generous floor-to-
ceiling dimensions, making them adaptable to many uses. The large floor
plates cover much of the District. While their large size is au asset, it also
presents a challenge in that little space remains for parking. Full build-out
of the District requires nearly 1000 parking spaces.
A second challenge involves organizing land uses so that early phase projects
are clustered to create a significant impact. A third challenge is to connect
the District to surrounding assets such as Downtown, the Port and the
Washington Neighborhood. The District will succeed only if it functions as
apart of the greater whole.
Recommendations
The Plan recommends a land use, redevelopment, and phasing strategy for
both redevelopment and infrastructure. The strategies connect the District
with its surroundings, break down the implementation into realistic phases,
coordinate development with infrastructure, and set up the District for a
new generation of sustainable buildings.
The Plan also recommends utilizing the Downtown Design Guidelines
to stimulate the restoration and rehabilitation of structures and all other
elements contributing to the character and fabric of the District. These
guidelines seek to manage change so that the traditional character of the
area is respected while accommodating compatible improvements. They
reflect the City's goals to promote economic development, enhance the
image of the area, and reuse historic resources. In addition, the guidelines
draw upon urban design principles ofcontext-related and pedestrian-
oriented designs that address how streets are crafted as active, pedestrian-
frielidlyplaces that unify and establish a sense of continuity among
properties.
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~ G fl O U P
Existing Gray Intrastructuie: Historic
warehouse buildings are adapptable
because of their large open floor plates
and generous floor-to-ceiling dimensions.
4. Sustainable Systems
Gray Infrastructure (continued)
Recommendations: City Scale
Extend connections from the District to Main Street, the Port, and to
the Washington Neighborhood.
• Improve the pedestrian experience and the streetscape along 10th Street
from the District to Main Street.
• Improve the pedestrian experience and the streetscape along 5th Street
from the District to Main Street.
• Improve the pedestrian experience and the streetscape along 7th Street
from the District to the Port.
Improve regional access to the District, the Port, and Downtown.
• Work with IDOT to improve regional access to the District by changing
9th and 11th to two way streets.
• Work with IDOT to improve pedestrian connections between the District
and Downtown by either changing Central and White to two way or
otherwise calming the streets.
• Work with IDOT and Alliant to develop a road connection between 9th
Street/ Kerper Blvd. and 7th Streets.
• Reduce the impact of through truck traffic in Downtown by either
calming streets or creating more direct routes for trucks to reach
destinations.
• Encourage transit-oriented development and design.
Multi-modal streetscape
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G fl O U P
Pedestrian-friendly streetscape
4. Sustainable Systems
Gray Infrastructure (continued)
Recommendations: District Scale
Organize land uses in response to JELD-WEN and to the land use
patterns surrounding the District.
• Focus residential uses on the north side of the District, between 9th Street
and 12th Street.
• Take advantage of the visibility and access to the Kirby and Farley and
Loetscher buildings by positioning them for economic development job
creation.
• Within the Farley and Loetscher and Kirby buildings, locate residential
uses on the sides of the buildings with river views and.
Cluster retail uses around each other and adjacent to public spaces.
• Create a retail node around at the intersection of 10th and Washington.
• Provide additional retail, if necessary in the Kirby and Farley Loetscher
buildings along 7th Street.
• Reserve a highly visible commercial location on the east edge of the
District along Elm Street.
Use acombination of on-street parking, parking beneath buildings
and moderately sized parking structures to accommodate parking
demands.
• Create two parking structures to support redevelopment: one adjacent
to the Alamo Building and one adjacent to the Kirby Building. Parking
structures should be used for residents, employees, and longer term
visitors.
• Create smaller, well landscaped infill parking lots adjacent to the Farley
Loetscher Building and JELD-WEN.
• Utilize on-street parking for short term parking needs.
I
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CUNINGHAM
G P O U P
Strategic organization of land uses
Short-term on-street parking
4. Sustainable Systems
Gray Infrastructure (continued)
Recommendations: District Scale
Prioritize rehabilitation of existing buildings in the District.
• Use historic tax credits to rehabilitate as many contribrtting structures as
possible.
• Encourage creative and responsible reuse of existing buildings.
• Encourage use of the City's Downtown Design Guidelines.
Create opportunities for new construction, the next generation of
sustainable buildings.
• Gradually transition land uses the northern edge of the District from
industrial to residential. New construction on the blocks between 12th
and 11th should transition in scale from the Washington Neighborhood
to the District.
• Develop infill buildings on White Street between 9th and 11th Streets in
accordance with the Downtown Design Guidelines.
• Develop new commercial or mixed use buildings, in accordance with the
Downtown Design Guidelines, on the new block created by realigning
Elm Street.
Vary the experience and function of the public realm by creating a
range of street types that balance the multiple needs of the District
and Downtown.
• Nlalce surface and pedestrian improvements to Jackson Street, but leave
the bricks and the tracks intact where appropriate.
• Design 10th Street at a "shared street" or a "plaza street:" a street where
vehicles move very slowly and pedestrians and street level activity is
prioritized over other uses.
• Design 9th and 11th Streets and 6th, 7th, Sth, and 12th Streets as
green streets, with linear stormwater planters or curb extensions with
stormwater planters.
• Encourage transit-oriented development and design.
Plaza street
l
~) I CUNINGHAF.M1
~. ~'_-' -~ G P O U P
Responsible reuse of buildings
Scale transition
4, Sustainable Systems
Green Infrastructure: Vegetation & Open Space
Introduction
Green Infrastructure includes vegetation, parks, and open space. These
features are essential components of a healthy cultural and ecological
ecosystem, and contribute to a high quality of life for people and animals.
In addition, vegetation and open spaces offset negative environmental
impacts created by impervious, heat-absorbing materials like concrete and
asphalt typically found in urban areas. Better air and water quality, a more
hospitable environment, and improved public life are some benefits resulting
from a strong urban vegetation and open space system. To accomplish this,
the green system should:
• Create a cohesive network of trees, plants, and public spaces.
• Increase diversity of plant and public space types.
The following section includes recommendations for District-wide
approaches to realizing a comprehensive green infrastructure system.
Ii
~`'_;'
Community Benefits
• Improved air and water
quality, and reduced urban
heat isliard Pl f ct.
• setter connections and
novement between places
_vithin and beyond the
District.
• Variety of spaces to enjoy
pu~Jjy life.
• More comfortable
streetscape environment.
• Increased plant and animal
diversity.
• Heightened environmental
awareness and stewardship.
• Enhanced commitment and
appreciation for the unique
District environment.
CUNINGHAM
G R O U P
4. Sustainable Systems
Green Infrastructure (continued)
Existing Conditions
Most vegetation and green space is located near and around the District
boundaries, but very little exists within them. What is there lacks the
richness necessary for healthy animal habitat, the cohesiveness ideal for
movement between spaces, and the quantities necessary for improved air
and water quality. Furthermore, existing green spaces are inaccessible and
inhospitable to people.
Recommendations
These conditions are typical of industrial areas. However, as the
District transitions from a place dominated by industry to a place that
accommodates a mix of uses, attention to a more livable and sustainable
green infrastructure should be a priority. Street reconstruction and
building renovation efforts offer ideal opportutlities to introduce a healthy
environment for plants, animals, and people.
This Plan recommends a network of interconnected parks, trees, green roofs,
and other green areas that together make one complete system. Such a
network diversifies habitat options, enables better movement between and
within valued places, improves air and water quality, and reaches beyond the
District to the larger environment.
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CUNINGHAM
G fl O U P
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Existing Green Infrastructure: Very
little vegetation and green space exists
in the District, and what is there is lacks
diversity necessary for rich habitat and is
inaccessible and inhospitable to people.
4. Sustainable Systems
Green Infrastructure (continued)
Recommendations: District Scale
Create parks, plazas, and courtyards to improve public life, to offer
"breathing" space within the compressed urban environment, to
diversify habitat options, and to provide some local food sources.
• Build a large, central public gathering place around the Alamo Building.
• Create a stormwater collection area that also functions as an art and
landform park on the east side of the District.
• Build small plazas on 5th Street at the Kirby and Farley and Loetschet-
building entrances.
• Open internal courtyards to people visiting and living in the District.
• Encourage community gardening.
Plant a variety of trees within parks and plazas to provide a hospitable
environment for people and to offer habitat, shelter, and food for
desirable urban wildlife.
• Plant a bosque of trees in the central gathering space.
• Plant both deciduous and coniferous varieties of trees where appropriate.
Establish green corridors for wildlife and people to enable more
comfortable movement between and within valued parks, plazas, and
buildings.
• Install a continuous green streetscape of street trees, planted stormwater
collection zones, rain gardens, and potted plants.
• Connect 7th,10th, and Washington streetscapes with the riverfront and
the Port, Downtown, and the Washington Neighborhood.
• Create a system ofsemi-public internal building passages for access
between sidewalks and internal courtyards.
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CUNINGHAM
G fl O U P
Community garden
Planted stormwater streetscape
Potted plants
4. Sustainable Systems
Green Infrastructure (continued)
Recommendations: Building Scale
Establish rooftop and courtyard space to improve building climate
control, create avian and insect habitat, and add outdoor gathering
space.
• Build green roofs and roof gardens on Busting buildings provided they are
set back from primary and secondary facades.
• Add plants and water features to internal courtyards.
Create additional private outdoor space for building occupants to
container garden and enjoy the outdoors.
• Consider adding balconies on secondary building facades and in
courtyards.
• Consider building inset "outdoor rooms" on primary facades that carefully
respect the historic integrity of the building.
Encourage building occupants to create gardens that provide
additional vegetation, visual interest, and food sources.
• Promote the use of container gardening on balconies.
• Promote the use of window boles on secondary facades.
Complement public and private areas with active semi-public spaces.
• Use loading docks as patios for outdoor dining.
• Open passages to make connections between sidewalks and internal
courtyards.
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--'1 CUNINGNAM
Courtyard water feature
Loading dock seating
4. Sustainable Systems
Red Infrastructure: Arts & Culture
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Introduction
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Red Infrastructure includes arts and cultural spaces, amenities, and
expressions that reinforce the identity of the District. Enriching stories,
imaginative visuals, and an overall sense of place contribute to what makes a
place meaningful, which in turn makes it memorable, special, and desirable
for residents and visitors. To accomplish this, the red system should:
• Accommodate and encourage creative participation by the arts
community.
• Establish appropriate mechanisms to strengthen the rich tapestry of
historical buildings, streets, spaces, and compelling narratives of past and
present communities of people.
• Increase the presence, visibility, and vitality of arts and culture in the
District.
The following section includes recommendations for aDistrict-wide red
infrastructure system that highlights the cultural significance of the District.
Community Benefits
• Heightened sense of
identity and set~~~ of place.
• Greater awareness of
history, community, and
cultural heritage.
• More inviting streetscape
environment.
• Increased opportunity for
expression and interaction.
• Opportunities for activities
and entertainment.
k
!. ~ G R O U P
4. Sustainable Systems
Red Infrastructure (continued)
Existing Conditions
Many artists and creative businesses have studios and offices within the
District, but their presence, for the most part, is hidden behind small
signs, a few sculptures, and facades of historical warehouse buildings. The
buildings themselves espouse historical significance, but many need repairs
to become-or remain-suitable for the existing and next generation of
occupants.
Recommendations
Since most of the District is a National Register Historic District, changes
to buildings must comply with regulations if a developer or property owner
is using federal or state historic tax credits. Renovations are planned
and underway, but additional renovations that reinforce the historical
significance and continued evolution of the District are necessary for
its longevity When appropriate, building and streetscape renovations
should include opportunities for creative expression that promotes the arts
community.
The Plan recommends that the work, energy, and activities of the arts
community, along with the historical assets inherent in the buildings and
streets, should be more visible and palpable throughout the District.
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'; 4si. ~ CUNINGHAM
_. G R O U P
E~.i;iin~.~ Red Infrastructure:'Ihe arts
community and historical significance of
the District is neither as celebrated nor as
visible as it should be.
4. Sustainable Systems
Red Infrastructure (continued)
Recommendations: District Scale
Use street rights-of-way as places to make functional items spirited
and artistic.
• Attach sculptural artistic elements to light posts.
• Use bright paint or mosaic materials on benches at btts stops and along
sidewalks.
• Paint highway columns with patterns or bright colors.
• Use sculptural elements as bike racks.
• Use sidewalks as canvasses for artistic expression.
• Highlight historicail Jackson Street b}' maintaining its "as-is"condition
where appropriate.
Expand park and plaza space by temporarily closing streets for events.
• Promote performing arts and parades in streets.
• Support markets and festivals in and along streets.
• Use streets for overflow seating during outdoor movies, concerts, and
theater performances.
Design plaza and park space to support the arts.
• Create places for performances and concerts.
• Incorporate sculpture, landfonn, and creative paving patterns.
Promote the District as a place to produce and experience the arts.
• Organize District-wide events to increase visibility and patronage.
• Recruit artists and patrons to visit, live, and work in the area by developing
artist housing, studios, and gallery space.
• Develop partnerships with art and music departments at local schools and
universities.
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Landforms with sculpture
CUNINGHAh1
G P O U P
Light post sculpture
Artistic bike rack
Sidewalk canvas
4. Sustainable Systems
Red Infrastructure (continued)
Recommendations: Building Scale
Make functional elements on buildings artistic.
• Install bright, interesting, and creative signs.
• Use lights to enliven storefronts, courtyards, and outdoor eating areas.
• Use windows as temporary arts exhibits.
Combine the arts and history where appropriate.
• Identify historical elements with creative lighting displays.
• Actively display historical architecture of District buildings.
Install and promote the arts in interior courtyards, passages, rooftops,
and on secondary building facades.
• Allow sculptural elements in roof gardens.
• Paint murals on courtyard and passage walls.
• Create space for small outdoor concerts and performances.
Encourage artistic expression at a variety of scales and locations.
• Install small sculptures meant for small children and a slow pace.
• Promote artistic expression in hidden and atypical places.
Encourage artists and arts organizations to occupy District buildings.
• Organize building-wide shows and events.
• Offer appropriately scaled and priced artist housing.
• Develop studio and gallery space in buildings.
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Art for keen observers
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CUNINGHAM
G H O U P
Creative signs
Window art exhibit
Sculptural drainpipe
5. Development Summary
5. Development Summary
Context Plan: Off Site Improvements
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G P O U P
5. Development Summary
Illustrative Master Plan
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5. Development Summary
Places
Streets
Jackson Street
10th Street
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CUNINGHAM
G P O U P
5. Development Summary
Places (continued)
Spaces
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Landform Park
Foundry Square
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CUNINGHAM
G R 0 U F
Development Program
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5. Development Summary
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Block Name
A Spahn and Rose
B Spahn and Rose
z C Spahn and Rose
D Geisler
E Spahn and Rose
F Caradco
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Caradco
H new
I various
Units(new) Non Res sf Parking
25 0 29
55 0 64
55 0 64
a7 0 80
72 5,000 72
84 10,000 45
22 34,000 44
64 30,000 1S0
7o to,ooo so
84 35,000 0
0 6,000 200
40 57,000 28
0 0 0
50 70,000 344
64 89,600 235
634 359,000 1468**
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~ K Foundry Square
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I L Wilmac*
M JELD-WEN
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Kirby*
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Farley Loetscher*
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TOTAL
*nssumes 1/1 residential, 1/1 non residential, see page 7l
"(does not include on street pnrking)
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CUNINGHAM
c a o u a
5. Development Summary
Land Use /Development Patterns
Rehabilitation and New Construction Ground Floor Uses
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Residential
Parking Q approximately 10,000 sf retail/
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I G fl O U P
5. Development Summary
Open Space
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® Sidewalks
Plazas and Plaza Streets
Courtyards/Passages
StormwaterFeature/Sculpture Park
5. Development Summary
Parking
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On street Type North Central South TOTAL
^ Structure on street 111 193 79 383
Surface Lot structure 0 200 344 544
iln Building surface lot 48 26 263 337
in building 165 421 0 586
324 840 686 1850
I G F O V P
5. Development Summary
Streets
Type of Investment
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New Streets and New Right-of-Way
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. Jackson Street: Partial Reconstruction
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Green Streets with Stormwater Planters in Curb Extensions
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Jackson Street
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G R o U P
Type of Street
5. Development Summary
Streets with Linear
Stormwater Planters
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Streets with Stormwater Planters in
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6. Phase I: Central Area
The Caradco Complex, the Alamo Building, and
10th Street will become the mixed-use center
of the District. Anew plaza around the Alamo
Building will become the District's year round
gathering place and a showcase of sustainable
techniques and technologies. Creative designs
for the preservation of buildings will both honor
their past and prepare theirs for the future.
6. Phase I: Central Area
Existing Conditions and Primary Challenges
the central area is located between 9th and 11th Streets. It is the first
phase of redevelopment and the mixed-use center of the District. this area
contains several large warehouse buildings (the former Caradco Company
complex) as well as newer industrial and distribution buildings (owned by
and operated by Spahn and Rose). Tenth Street bisects the area, offering
the opportunity to connect the District and the recent redevelopment on
the 1000 block of Main Street.
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Existing Conditions
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Primary Challenges
• Provide enough parking
to support redevelopment
but not too much that the
district is overwhelmed
with motorized vehicles.
• Balance historically
appropriate rehabilitation
with creative expression.
• Build attractive local
streets with modern new
infrastructure.
• Reprogram and calm
streets to improve access
to the District, and
connectivity between the
District, Downtown and
Port.
• Convert private streets to
public streets.
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G P D U P
6. Phase I: Central Hrea
The Plan
Redevelopment
Development of the central area occurs in two phases. The first phase
includes three of the Cazadco buildings and the Betty Building, as well as
several new streets, a small parking structure, and a plaza. The second phase
includes the realignment of Elm Street, redevelopment of the remainder of
existing buildings, as well as new construction on White and Elm Streets.
Build-out of Phase One-the three Caradco buildings and the Betty
Building-yields approximately 200 residential units and 100,000 square
feet of non-residential ground floor space. Non-residential commercial
and retail space should be located along 10th and Washington Streets
between 10th and 9th Streets. Ground floor uses on other streets should be
residential. Extending housing throughout the District will give life to the
azea on weekends and evenings; a strong office component will enhance the
demand for housing and will enliven the area during weekdays.
Primary Recommendations
Reprogram or calm
rounding streets.
(B) Reconnect street grid with
new streets and improve
existing streets with new
utilities and streetscaping.
Create a District center
t models and showcases
tainable technologies
1 techniques and that
~ressive of the creative
sure within the District.
(D) Relocate or purchase
businesses not conducive
to mixed-use pedestrian-
oriented urban
redevelopment.
ressively pursue tax
and other sources to
t redevelopment of
adco Buildings.
~~7 ~ CUNINGNAM
~..~,... _. _. G P O U P
Illustrative Master Plan
6. Phase I: Central Area
The Plan (continued)
Redevelopment (continued)
The Plan envisions eventual redevelopment of the
remainder of the Central Area, including the Jackson
Street block between 9th and 10th Streets, the
remainder of the Caradco blocks, and eventually the
Spahn and Rose properties (in both the North and
Central Areas). Early action itetns should include
discussions with Spahn and Rose regarding their long
term plans and possible relocation to a more accessible
location and discussion with property owners on
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Jackson Street in order to create additional small scale
redevelopment opportunities.
The Plan also envisions the creation of new development
blocks on the west end of the District. By negotiating
with IDOT to realign Elm Street betlveen 9th and 11th
Streets, approximately 3 acres can be reclaimed and put
to use. The Plan recommends approximately rivo-thirds
for tlse as a stormwater feature and lalidfortn park, and
one-third as a commercial or mixed-use development.
~~~~ ~ ~ `\__. Building ~w `\ ~~!`\\\\ ( ~\ ~"~J\ ' I 1 t1
Phase 1 A: Tl1e initi~il phase of the project should focus on redeveloping the Caradco Buildings around a new plaza, Foundry Square.
Building Program
Building Units Non-Residential parking
Caradco A 84 35,000 sf 0
Caradco B 84 10,000 sf 45
Caradco C 22 34,300 sf 44
Betty Building t2 7,000 sf 0
Alamo 0 6,000 sf 0
TOTAL 202 92,300 sf 69
note: non-residential space can be used for housing if market
demands dictate it. If on ground floor, space should be designed
to be flexible and postentially converted to non-reidential in the
future.
Parking Program
Location Supply
In buildings S9
On street 80 improved streets only
In structure 200
In lot 77
TOTAL 446
Use Assumption Demand
202 Residential units 1.0 spaces /unit 202 spaces
92,300 Non-residential uni ts 3.0 spaces / 1000 sf 277 spaces
TOTAL 479
i
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CUNINGHAh1
G F O V P
6. Phase I: Central Area
The Plan (continued)
Redevelopment (continued)
Historic Preservation and Creative Expression
As a National Register Historic District, qualified
projects are eligible for federal and state historic t~ix
credits. In order to receive the credits, designs for
rehabilitation of buildings must adhere to the Secretary
of the Interior's Standards. Generally, this consists of
preserving the distinctive qualities of buildings and
spaces. It is preferable that required replacements or
additions be located on secondary facades or be designed
to reflect their own time and contemporary styles. 'They
should not attempt to mimic historical styles.
This Plan proposes an approach that balances the
Secretary of the Interior's preservation guidelines and
the community's desire to create unique environment
conducive to and expressive of creative and artistic
endeavors of all types. The approach seeks not to freeze
passes and skywalks
the District in time but rather to honor the past while
welcoming the future. Central to the approach is the
embrace of an industrial aesthetic consisting of:
• Large volumes and repeated patterns,
• Exposed mechanical systems.
• Heavy strong materials.
• Distinctive elements such as loading docks, large
awnings, and overhead elements connecting buildings.
The Plan proposes to preserve primary facades. Original
window and door openings, cornices, and other
significant features should be preserved and repaired.
Significant additions, such as roof gardens, greenhouses,
and exterior balconies, should occur on secondary
facades, in courtyards, and on rooftops. Elements that
made the District unique (loading docks, large awnings,
second story passes or skyways, passages, and courtyards)
should be celebrated and creatively reinterpreted.
CUNINGHAM11
G ft O U P
loading docks
Highliyhtiny Distinctive Elements
overhead utilities
industrial structures
oversized doors and windows
6. Phase I: Central Area
The Plan (continued)
Parking
To support redevelopment of warehouse space,
considerable parking space must be created. The Plan
recommends asupply of on-street parking, surface lots,
a small structure, and parking in and beneath buildings
where possible.
T~vo of the three buildings can convert basement space
(and portions of first floor space) to parking; however,
this will not be adequate to support filll redevelopment
of the three Caradco buildings. Additional parking is
required.
The Plan recommends approximately 200 spaces in a
new rivo level parking structure on the Alamo Building
block. the structure accommodates weather protected
resident parking on the first floor and guest/customer/
visitor parking on the upper floor, with visibility and
access to Foundry Square.The strucritre should be
designed to be expanded, in the future, if needed, to 4 or
6 floors. An additional 193 spaces are provided on new
and improved streets. 165 spaces are created beneath
two existing buildings.
Streets
New streets are essential to redevelopment in the
District. Most streets and utilities are over 100 years
old and need complete reconstruction. In addition,
new streets in parts of the District must be acquired
and created, and others must be improved with traffic
calming measures or reprogramming from one- to rivo-
way. Reconnecting the street grid is also important. The
Plan recommends extension of:
• Washington Street from 11th Street to 9th Street.
10th Street from Jackson Street to Elm Street.
The Plan also recommends complete reconstruction
(new utilities and streetscaping) o£
• 10th Street from Washington Street to White Street.
• 9th Street from Elm Street to White Street.
• 11th Street from Elm Street to White Street.
In addition, the Plan recommends reprogramming 9th
and 11th Streets to two-way in order to improve access
to the District and wayfinding throughout Downtown.
All new streets listed above should be built according to
the green street standards previously described.
On Street 193 ~ Existing Streets: Full Reconstruction
^ Structure 200 ~ New Streets and New Right-of-Way
Surface Lot 26 ^ ^ Streetscape Improvements Only
~ .. ~ In Building 421 ® Jackson Street: Partial Reconstruction
TOTAL 840
CUNINGHAM
G P O U P
Parking: Central Area
Streets: Central Area
6. Phase I: Central Area
The Plan (continued)
Streets (continued)
Jackson Street
In order to maintain the historic aesthetic and
warehouse environment, the Plan recommends partial
reconstruction and improvements to Jackson Street.
Currently, Jackson Street has original bricks and rail
tracks on the driving surface. The road is in poor
condition, with no drainage and, in places, 18-inch curb
heights.
The Plan recommends removing a narrow six-foot
section along the length of Jackson Street to install
utilities. The six-foot section should be located in the
center of the street in order to provide the oppportunity
to improve the portion of the street in the worst
condition. After utilities installation, the tracks should
be set back in place, and the bricks should either be
replaced or used elsewhere in the District for accents,
edges, or banding in the streetscapes.
__- ~~ ~,.
Jackson Street: The driving surface will be improved, but the brick surface will remain.
~~
~~%~
CUNINGHAM
G R O U P
6. Phase I: Central Area
The Plan (continued)
Streets (continued)
10th Street
Tenth Street is a critical connection to Downtown and
a unique street within the District. With the historic
Caradco buildings defining its edges,l0th Street will
be the most identifiable place in the District. Between
Jackson and Elm Streets, 10th Street should be designed
as a "Plaza Street" or a "Shared Street."
Unlike other District streets that will have substantial
landscaping and generous curb extentions or linear
planters that manage stormwater, 10th Street will be
built with permeable pavers. Instead of capturing
stormwater runoff in planters, the street will shed water
to the Elm Street stormwater feature in Landorm Park.
Tenth Street will be filrther distinguished by having
only a subtle distinction between the sidewalk and the
driving surface. Zhe driving surface is texhired and as
narrow as possible with carefitlly marked parking areas.
The sidewalks are as wide as possible, and are textured
and enlivened with storefronts, restaurants, and large
arched portals to interior courtyards. People, activity,
the Caradco buildings, and reused loading docks will
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CUNINGHAM
G R O U P
10th Street: 10th Street will become a narrow plaza street. Cars wIll be permitted, but the space should be dominated by pedestrians.
6. Phase L Central Area
The Plan (continued)
The Alamo Building, Foundry Square
& Landform Park
The Plan recommends creating a significant public open
space in the middle of the District. The space has ttvo
separate but related parts: 1) a plaza (Foundry Square)
and a 2) stormwater feature (Landform Park). These
will be built in two phases.
Foundry Square is a year-round gathering space defined
by the historic Caradco buildings on two edges, the
restored Alamo Building in the middle, and by the plaza
design throughout. The plaza sets the District standard
and tone by highlighting and showcasing the arts and
sustainable technologies and techniques. Active edges
animate the plaza and occupy both the ground floor and
upper levels of surrounding structures.
The Alamo Building is a landmark building in the plaza.
It should be renovated as a flexible space for lease to
retailers, restaurateurs, or as a gallery space, with open
circulation similar to a market structure.
The south edge of the Foundry Square is defined by a
rivo-level parking structure. The parking structure has a
well designed north edge, such as an art wall, for better
integration with the plaza.
The bosque of trees on the east edge of Foundry Square
provides shade, defines the plaza, and offers a variety of
spatial experiences. The bosque can improve infiltration
and increase permeability. In addition, maintaining
portions of existing buildings on site creates a structured
corner to the bosque and plaza.
.~-~
~~•
The Alamo Buildin~:l7ie former Dean and Rouse Foundry.
Over time, the District's central open space can be
expanded to include a green space on the east edge
of the District. By realigning Elm Street, land can
be reclaimed and used for redevelopment and public
amenity. As the topographic low point in the District,
this area is ideal for a stormwater feature/landform park
(using the excavated fill from the parking structure).
Like the plaza, Landform Park showcases both the arts
and sustainable techniques and technologies, possibly
serving as a sculpture park, geothermal field, a structured
wetland, or space for a blackwater or graywater
treatment plant known as a living machine.
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CUNINGHAM
G R O U P
Phase 1A: Foundry Square
Phase 1 B: Landform Park
G. Phase L Central Area
Foundry Square: The images above show some of the artistic, event-oriented, and spatial
possibilities for Foundry Square.
i
p~:, ~! CUNINGHAM
e rs o u p
5 coon through Foundry Square Looking West: Foundry Square will be a flexible
space to be used for a variety o£public activities. The Plaza will showcase and highlight
sustainable technologies and practices.
6. Phase L Central Area
C
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CUNINGHAM
G R O U f
Landfon ii Par{.:1he images above show some of the artistic, sustainable, and spatial
possibilities for Landform Park.
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7. Phase II: South Area
Redevelopment of the "Ihe Kirby Building, Farley
Loetscher Building and Wilmac BuIlding into
offices/residential will infuse the District with
a lively daytime population. 7th Street will be
a critical pedestrian connection between the
District, Downtown, and the Port.
6. Phase II: South Area
Existing Conditions and Primary Challenges
The South Area is located between 6th and 9th Streets. Zhe area is
dominated by three larger warehouse buildings, each over 100,000 square
feet (Wilmac Building, Farley and Loetcher Building, Kirby Building) and
JELD-WEN, a manufacturer of doors. Stakeholders view JELD-WEN's
presence as an asset to the District and a link to the District's history.
JELD-WEN does not generate significant truck traffic; however, JELD-
WEN's operations will have an impact on land use and development. Fifth
Street extends through this portion of the District, offering opportunities to
use this street as a full connection to Downtown and the Port.
. ~; : ~~~
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Wilmac Building
Existing Conditions
ax,y
~_ i
Primary Challenges
• Organizing redevelopment
around the operations of
JELD-WEN.
• Creating conditions that
help JELD-WEN continue
to operate during
redevelopment and into the
future.
• Creating connections to
Downtown and the Port.
• Supporting the larger
warehouse buildings with
sufficient parking and
access.
• Creating adequate
connections between the
central and south area.
CUNINGHAM
G R O U P
Kirby Building
6. Phase IL South Area
The Plan
RedeveluN~++ent
Most redevelopment opportunities in the south area are in rehabilitation
and redevelopment of three large warehouse buildings: the Wilmac
Building, the Farley Loetscher Building, and the Kirby Building, which
together total krr..~.d...ately 400,000 square feet. The Wilmac Building is
partially o..cu~l~ed; however, the Kirby and Farley Loetscher buildings are
mostly vacant.
the Plan recommends redeveloping these three buildings with a mix of uses.
Each building could be redeveloped with both h„~.~.~~g and commercial uses.
Market conditions should dictate the eventual split between residential and
non-residential uses.
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Primary Recommendations
(A) Redevelop each of the
three large warehouse
buildings with a mix of uses
including offices, residential
and retail.
(B) Develop a single multi-
storyparking structure
adjacent to the Kirby
Building.
(C) Redesign 7th Street
as an address to the
Kirby Building and Farley
Loetscher Building as well
as a connection between
Downtown and the Port.
tr.~'1 ~ CUNINGHAM
t _. G p O U P
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Illustrative Master Plan
6. Phase II: South Area
The Plan (continued)
Redevelopment
Both the Kirby and the Farley Loetscher Buildings can
be positioned to land large tenants looking for large
floorplates and up to 180,000 square feet of office space.
Both of these buildings are visible and accessible from
the highway and from Downtown. They have large
windows and open floor plates. The Greater Dubuque
Development Corporation, the City of Dubuque,
Dubuque Main Street, and Dubuque Chamber of
Commerce should actively market these two buildings
for a large office tenant.
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The buildings can also house medium and small
tenants. The floorplates are flexible and can be divided
to accommodate different size tenants and users.
Ultimately, the market should determine the split
between residential and non-residential uses. The Plan
recommends portions of the buildings with housing
be located on the sides of buildings facing away from
JELD-WEN.
Retail uses should not be prioritized in the south area.
However, if demand exists, the Plan recommends
locating retail on 7th Street in the base of the Kirby and
the Farley Loetscher Buildings.
CUNINGHAM
G R O U P
6. Phasell:South Area
The Plan (continued)
Parking
Providing enough parking is perhaps the largest
challenge to redevelop the arr.,...'.mately 410,000 sf
of space in the south area. The Plan recommends a
single parking structure (+/- 325 spaces) adjacent to
the Kirby Building (possibly with ground floor retail)
and awell-designed and landscaped surface parking lot
(+/- 235 spaces) around the Farley Loetscher Building.
Given the parking demands of office and retail relative
to housing, the planned 560 spaces will comfortably
support a redevelopment prc5.a.., that is arr.~,.....ntely
325,000 sf of housing (+/- 232 tlnits) and 108,000 sf of
office or retail.
If the market drives a redevelopment program that
re4..1.~:; more than the planned 560 spaces, ofd site
solutions such as Downtown .~,...rs, the publicly owned
ramp at the Port and/or a transit circulator should be
explored.
Building
Supply
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Off si!e parking: Depending on the build out of the south area,
off site parking maybe nee~ed. Sidewalk improvements will be
necesarry to fully utfliz:. r,.f.~l.~ in the Port
Building Parking Parking Surplus/
Program Demand Supply (Deficit)
nan-residentinl:
108,200 s/
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- -
~\ h residential:
~- - (A) Wilmac 114,000 sf 324,600sf
s ~~ ~ (B) Kirby 139,200 sf non-residential:
t (q Farley &Loetscher 179,200 sf N 216,400 sf
q~~r ! 432,800 sf o
~ ~ d
N
•y
t residential:
1
1 216,400 sf
j non-residential:
-_ 324,600sf
o
b
v
N residential:
108,200 sf
555 cars 560 spaces 5 spaces
801 cars 560 spaces (241 spaces)
1051 cars 560 spaces (491 spaces)
note: All parking deficits to be
accommodated with off site parking (see
image at top of page).
assumptions:
1 parking space /residential unit
1400 gsf /residential units
3 parking spaces per 1000 gsf non-residential
if
CUNINGHAM
G F O U P
6. Phase II: South Area
The Plan (continued)
Streets
7th Street
Seventh Street is an important connection between
the Port, the District, and Downtown. West of the
District, 7th Street offers a direct connection to Town
Clock Plaza on Main Street with the reconfiguration
or redevelopment of the Iowa Street ramps. To the east,
7th Street could connect to the historic Shot Tower, Star
Brewery, and the Port. Street improvements in both
directions are critical to realize the full potential of this
connection.
Within the District, 7th Street should become the
primary address for both the Farley Loetscher and the
Kirby buildings. Seventh Street could be designed as
a plaza street, similar to the proposal for 10th Street.
Main entrances and entry plazas should flank 7th Street,
helping to make a gateway between the Downtown, the
District and the Port.
As in the central area, designs for warehouse buildings
should balance preservation with creativity. Building
additions or alterations should emphasize the building
entry, its relationship to 7th Street, and the flanking
plazas.
-f'~
CUNINGH AM
G R O U P
(A) Kirby/Parley Square on 7th Street
7th Street Connection
(B) Inw~a Stree[ Ranii~~: If redeveloped or reconfigured, 7th Street
could connect to Town Clock Plaza via a public stairway.
8. Phase III: North Area
The area between 11th and 12th St will become
the neighborhood edge to the District. Over
time, industrial uses will make way for new
residential and mixed-use developments. 11th
Street will be re-purposed as significant gateway
to downtown and a pedestrian friendly street
lined with both new and renovated buildings.
8. Phase III: North Area
Existing Conditions and Primary Challenges
The North Area is located between 11th and 12th Street, Highway 61-
151 and White Street. The area is the south edge of the Washington
Neighborhood and the north edge of the Historic Millwork District. Most
of these three blocks are occupied by Spahn and Rose and other industrial/
distribution uses. The east edge of the area is used to transition the ramps to
surface streets by merging two one way streets into Elm Street.
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Existing Conditions
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Primary Challenges
• improve the connections
between the Washington
Neighborhood and the
District.
• Improve the
redevelopment potential
along 11th Street, a
primary feeder to the
highway and portions of
the Port.
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G P. O U P
Jackson Street
White Street
8. Phase lil: North Area
The Plan
Redevelopment
Primary Recommendations
Redevelopment of the north area will likely be the final phase of (A) Redevelop the
redevelopment. Currently, most of the property between 11th and 12th Washington Neighborhood
Streets is owned by Spahn and Rose. As a lumber yard and distribution site, edge to create a positive
the truck traffic and activity is not conducive to surrounding urban uses. transition to the District.
If the City and Spahn and Rose agree to a relocation plan, the property (B) Redesign 11th Street
as a green street, with
can be redeveloped with uses complimentary to the District and to the two way traffic and ample
Washington Neighborhood. "Ihe Plan recommends redeveloping with landscaping.
primarily residential uses and street improvements designed to reconnect the
(C) Realign Elm and
Washington Neighborhood to the District. Pine Street to create a
developable block on the
Zhe Plan recommends connecting the District and the Washington east edge of the District.
Neighborhood by extending the scale of buildings and development from Develop this block with
each area onto the blocks beriveen 11th and 12th Streets. Generally, the a multi-story gateway
building.
Washington Neighborhood consists of smaller scaled housing oriented to
the north-south streets. 'This pattern can be extended across 12th Street.
~~~~~) ;, CUNINGHAM
I._/ __ G fi O U P
Illustrative Plan: New development on the northern most blocks of the District will
help reconnect the District to the Washington Neighborhood.
8. Phase III: North Area
The Plan (continued)
Redevelopment (continued)
The District consists of larger warehouse buildings.
Therefore, the Plan recommends extending this pattern
across 11th Street, and then transition to meet the
neighborhood scale buildings at mid-block. Buildings
on 11th Street should front on both 11th Street and the
side streets in order to fitlly implement the transition.
Moderate setbacks or courtyards on 11th Street will
create a stronger landscaped appearance to the street,
enhancing its unique role as an important entry to
Downtown, the Washington Neighborhood, and the
District.
The easternmost block in the north area is under
utilized; it is occupied with roads that transition the
neighborhood streets to the southbound on-ramp to
Highway 61-151. The Plan recommends realigning
both Elm and Pine streets to enable the redevelopment
of the property as a multi-story mined-use building. The
buildings and sites should be designed as a gateway to
Downtown and the District.
A ~
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~~~ ' A from Hwy 61/15
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Reconnecting the District and the Washington Neighborl~oocl:
"Ihe blocks between 11th and 12th Streets can become the
seam and transition between the District and the Washington
Neighborhood.
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f_
fUNINGHAM
G R O U P
Gatetva/Sites: Entrances to Downtown and the District should
be highlighted with significant and iconic buildings.
8. Phase III: North Area
The Plan (continued)
Streets
Eleventh Street will remain an important and relatively
well-traveled feeder to the highway. The Plan
recommends converting it to two-way, maintaining its
capacity but calming the traffic so that it becomes a
more desirable address for urban redevelopment. The
street can be enhanced with stormwater planters on
both sides and on-street parking on one side. These
improvements will help buffer new development from
traffic and will provide valuable on street parking for the
District.
The Plan also recommends realigning Elm and Pine
Streets to be simple extensions of their alignment in the
Washington Neighborhood. They will extend straight
into the District as two-way streets, offering a clear,
easily understood connection between the District and
the neighborhood. They will remain important feeders
to Highway 61-151.
I~. ~ ~.~~~~'. CUNINGHAM
G R O U P
Realignment of Elm anti Pine Street: New alignments for Elm
and Pine Streets, and converting 9th and 11th Streets to two-wa}'
will increase access to the District and Downtown, and will create
^ew block that can be developed with new constriction as well as
a wetland feahire and landform park (sec section-).
Economics Research Associates
Final Report
Demographic and Market Context
Historic Millwork District Masterplan
Prepared for:
Cuningham Group
City of Dubuque
Submitted by:
Economics Research Associates
December 31, 2008
ERA Project No. 17886
This study was funded by a grant from the US Department
of Commerce, Economic Development Administration
20 E. Jackson Boulevard Suite 1200
Chicago, IL 60604
312.427.3855 FAX 312.427.3660 www.econres.com
Los Angeles San Francisco San Diego
Chicago Washington DC London New York
Table of Contents
I. Project Summary .......................................................................................................... 1
Market Implications .................................................... ............................................................. 1
11. Introduction ................................................................................................................. 3
III. Market Analysis ............................................................................................................ 4
Population ................................................................. .............................................................4
Households ................................................................ ............................................................. 5
Age and Household Shifts .......................................... .............................................................5
Household Segmentation ............................................ ............................................................ 6
Education .................................................................. ............................................................. 7
Income ...................................................................... ............................................................. 8
Migration ................................................................... ............................................................. 8
Housing ...................................................................... ............................................................ 9
Home Sales ................................................................ ........................................................... 11
Urban Housing Analysis .............................................. ...........................................................12
Retail ......................................................................... ...........................................................13
Tourism ..................................................................... ...........................................................13
Economic Base ........................................................... ........................................................... 14
Case Studies ............................................................... ........................................................... 15
Implications ............................................................... ........................................................... 15
IV. Appendix ...................................................................................................................... 1
Economics Research Associates Project No. 17886
General & Limiting Conditions
Every reasonable effort has been made to ensure that the data contained in this report are accurate
as of the date of this study; however, factors exist that are outside the control of Economics
Research Associates and that may affect the estimates and/or projections noted herein. This study
is based on estimates, assumptions and other information developed by Economics Research
Associates from its independent research effort, general knowledge of the industry, and information
provided by and consultations with the client and the client's representatives. No responsibility is
assumed for inaccuracies in reporting by the client, the client's agent and representatives, or any
other data source used in preparing or presenting this study.
This report is based on information that was current as of December. 2008 and Economics Research
Associates has not undertaken any update of its research effort since such date.
Because future events and circumstances, many of which are not known as of the date of this study,
may affect the estimates contained therein, no warranty or representation is made by Economics
Research Associates that any of the projected values or results contained in this study will actually
be achieved.
Possession of this study does not carry with it the right of publication thereof or to use the name of
'Economics Research Associates' in any manner without first obtaining the prior written consent of
Economics Research Associates. No abstracting, excerpting or summarization of this study may be
made without first obtaining the prior written consent of Economics Research Associates. This
report is not to be used in conjunction with any public or private offering of securities, debt, equity, or
other similar purpose where it may be relied upon to any degree by any person other than the client,
nor is any third party entitled to rely upon this report, without first obtaining the prior written consent
of Economics Research Associates. This study may not be used for purposes other than that for
which it is prepared or for which prior written consent has first been obtained from Economics
Research Associates. This study is qualified in its entirety by, and should be considered in light of,
these limitations, conditions and considerations.
Economics Research Associates Project No. 17886
i
1. Projeet Summary
Economics Research Associates (ERA) was engaged by the Cuningham Group through their contract
with the City of Dubuque to evaluate the market and financial feasibility implications related to
revitalization of the Warehouse District in downtown Dubuque. ERA's analysis has revealed a series
of demographic and economic trends that will influence and shape demand for development in
downtown Dubuque, as follows:
Market Implications
^ Dubuque County is the anchor of a 10-County region with an estimated 335,300 residents. By
2012, the 10-County region is projected to experience an annualized growth of about 1,000
people -Dubuque County is projected to represent nearly half (47%) of this population growth.
^ While Dubuque County population growth has exceeded statewide benchmarks, annualized
population growth for the city of Dubuque has been modest (0.2%). Over the next five years,
annualized population growth at the city level (0.3%) is currently expected to trail statewide
benchmarks (0.5%). However, city of Dubuque population growth is projected to be sufficient
enough to maintain the city's share of 10-county population (17.4%).
^ By 2010, persons living alone are expected to represent 34.8% of non-family households in
Dubuque as compared to 26.8% nationally. These retirees and young professionals will
ultimately drive demand for smaller, urban housing options and maintenance-free living.
^ IRS migration records indicate that between 1997 and 2007, Dubuque County transitioned from a
net annualized out-migration (447 households) to a net annualized inflow (70 households)-a
dramatic improvement from ERA's perspective. During this period, Dubuque County averaged
353 in-migrant households annually from "urban" counties with Cook County, Illinois, and Linn
County, Iowa, representing the largest share of these flows.
^ ERA estimates 395 new urban-lifestyle households within Dubuque County since 2000-despite
growth in households with a propensity for urban living, the downtown Dubuque housing
inventory only expanded by an estimated 30 units between 2000 and 2008.
^ Lifestyle segmentation analysis suggests that the top urban lifestyle segments moving into the
MSA are slightly less affluent when compared to MSA household segments overall. Analysis
reveals a median home value of $114,800 for top MSA lifestyle segments overall, while top
urban segments are characterized by a median home value of $84,300, which reinforces the
need for price sensitivity with any urban project.
^ Condos, duplexes and single family homes built since 2000 represent just 4.4% of Dubuque's
citywide inventory-none of these units were built in downtown Dubuque.
Economics Research Associates Project No. 17886 Page 1
^ Between 2003 and 2007, annualized increases in condominiums and townhome sales in the city
outpaced increases in the number of single-family home sales revealing a growing demand for
higher-density housing.
^ Across the Midwest, cities have seen notable development of modern walkable urban housing.
In these benchmark cities, modern urban housing remains a small but growing share of the
market, representing between 0.4% and 1.9% of total metropolitan area inventory. For
Dubuque, with a modern inventory of about 30 urban housing units, the comparable market
share is about 0.08%, which argues for additional growth.
^ Data from the Office of Federal Housing Enterprise Oversight reveals that between 1998 and
2007, home values in Dubuque County grew at an annualized rate of 4.3%- while consistent
with state-level appreciation (4.3%), average appreciation at the national level was notably higher
at 7.1 %. This finding suggests that housing prices in Dubuque County can be anticipated to
decline less dramatically as compared to housing value declines at the national level.
^ Dubuque County office sector employment grew by roughly 950 positions between 2001 and
2006. Should recent employment trends continue, this would translate into 40,000 to 50,000
square feet of additional office capacity required on an annual basis at the county level. In
practical terms (i.e. a weakening economy), demand will clearly slow over the near-term.
^ The city of Dubuque in 2007 generated $960,502,748 in total retail sales- Dubuque's share of
county sales has remained constant since 2000 despite the city's reported decline as a share of
county population.
^ Growth in Dubuque retail sales between 2000 and 2007 far exceeded annualized growth in
regional population or households during the same period- this is reflective of area income
growth as well as growth in the visitor market.
These market findings point to financial considerations for the warehouse district as well:
^ While the market analysis identifies a realistic near-term opportunity for urban residential
development (rental apartments), ERA remains concerned about the depth of the local apartment
market if all current Warehouse District land owners choose to pursue projects simultaneously.
^ The market analysis highlighted a (by Iowa standards) historic trend for growth in office using
employment and retail trade. Obviously, these trends will soften moving forward as the overall
regional and national economy deals with the current economic downturn. For this reason, ERA
expects that these segments will need to happen after initial residential construction.
Economics Research Associates Project No. 17886 Page 2
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II. Introduction
ERA's generalized approach has included the following efforts with the goal of evaluating changes in
the city of Dubuque market in the broader region:
^ An examination of existing market demographics and associated trends including an analysis of
migration patterns since 1997;
^ A lifestyle segmentation analysis highlighting households with a propensity for urban living;
^ An assessment of characteristics of Dubuque's present housing stock and an overview of related
residential trends including permits, home sales, and pricing;
^ An evaluation of office market indicators, highlighting trends in office-using employment sectors;
^ An investigation into shifts in office sector establishments by size;
^ And an analysis of retail market trends, highlighting regional and sector-specific pull factors and
associated trends in Dubuque's retail environment.
^ Case studies of other Midwestern downtown markets that have added urban housing in recent
history.
Data for this report comes from several sources including:
^ Interviews with key local stakeholders, including developers, bankers, and property owners;
^ Officials from the City of Dubuque and Dubuque County;
^ The Office of Federal Housing Enterprise Oversight;
^ The Iowa Department of Revenue and Finance;
^ The Iowa Department of Workforce Development;
^ The Internal Revenue Service;
^ The US Census;
• ESRI GIS Mapping Software
This report is one element of ERA's overall market and financial assessment for the Warehouse
District. ERA has also prepared a financial analysis of the proposed revitalization program, under
separate cover, which evaluates the specific implications of the market analysis for a renovation
program in the Warehouse District. The financial analysis document will cover an array of elements
including estimated rent levels for apartments, office space and retail space, operating expense
estimates, parking, and renovation costs for the existing buildings.
Economics Research Associates Project No. 17886 Page 3
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111. Market Analysis
The following preliminary memo highlights initial demographic and economic trends for Dubuque
which relate to demand for retail, office and residential uses. ERA has examined trends at the city
and county levels, benchmarking change against the greater 10-county region (defined by ERA to
include the Iowa counties of Clayton, Delaware, Jones, Jackson, Iowa, Clinton, Lafayette and
Dubuque, and the Illinois and Wisconsin counties of Jo Davies and Grant respectfully) and the state
of Iowa. Throughout this document, a compound annual growth rate (CAGR) has been used to
measure the annualized growth-on-growth of individual metrics. An attached appendix summarizes
key data tables used in the analysis. The summarized findings are preliminary and reflect ERA's
work completed through the end of December, 2008.
Population
Population growth drives retail sales, housing demand and job growth. Appendix Table 1 highlights
historical and projected population levels at the city, county, regional and state levels. Several points
are notable to ERA:
^ The city of Dubuque's population grew between 2000 and 2007 by an annualized rate of 0.2%.
While this rate of growth was less than at the state level (0.5%), population growth in Dubuque
County (0.6%) exceeded the statewide benchmark-this trend is projected to continue over the
next five years.
^ Between 2007 and 2012, the city of Dubuque is projected to experience an average annual
population increase of 149 persons, roughly 31 % of projected annualized population growth (486
persons) projected for Dubuque County.
^ Population in the 10-County region is presently estimated at 335,327 persons. By 2012, the
region is projected to experience an annualized growth rate of 0.3%, an average annual increase
of 1,026 persons.
^ Dubuque County is projected to represent nearly half (47%) of projected population growth at
the 10-County level over the next five years-neighboring Jo Davies County is projected to
represent just 7.2%.
^ As a share of regional population (Appendix, Table 2) Dubuque County is projected to continue
growing through 2012.
Economics Research Associates Project No. 17886 Page 4
Households
It is useful to examine household growth as an indicator for area housing demand-characteristics of
these households including structure, income levels and lifestyle preferences will shape area
demand for housing. Appendix Table 3 highlights household growth trends, important findings of
which have been summarized below:
^ Between 2000 and 2007, the city of Dubuque experienced a 0.5% CAGR in total households, a
smaller rate of growth than at the county, regional or state levels.
^ Over the next five years, the city of Dubuque is projected to experience an average annual
growth of 126 households, roughly 44% of the projected annualized household growth (287
households) at the county level.
^ According to current projections, there are 132,653 households in the greater 10-county region.
Projected annual growth in the number of households is estimated at 708 through 2012.
^ According to current forecasts, the city of Dubuque has the highest average household size at
2.49 persons, suggesting more households with children as compared to the county, state or
region.
^ Between 2007 and 2012, the city of Dubuque's average household size is projected to decline
from 2.49 to 2.46, an annualized decline of 0.3% exceeding Dubuque County and statewide
rates of decline. This suggests significant growth in empty-nest and single households, a trend
that will drive demand towards smaller housing units.
Age and Household Shifts
Shifts in local population characteristics including age and family structure inform the nature of area
housing demand. ERA notes important points below as they relate to a growing demand at the city
level for urban housing:
^ Between 2000 and 2007, notable increases as a percent of population occurred in the 35 to 44,
55 to 64, 75 to 84 and 85+ age groups, speaking to the city's growing role as a community for
middle-aged households and retirees.
^ Between 1990 and 2010, the city of Dubuque will have sustained an 8.7 percentage point
decline in married families with children-this is in comparison to a 6.7 percentage point decline
nationally.
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^ By 2010, persons living alone will represent 34.8% of non-family households in Dubuque as
compared to 26.8% nationally. These retirees and young professionals will influence city
housing by generating demand for smaller, urban housing options and maintenance-free living.
Household Segmentation
To further understand the demographic, economic, and cultural characteristics of Dubuque and the
region, ERA utilized an analysis tool called Community Tapestry, developed by Environmental
Systems Research Institute (ESR1). Tapestry divides households into 65 categories or segments
based on several key factors including age groups, income brackets, and education levels, as well as
lifestyle choices, neighborhood housing preferences, and consumer spending habits. Appendix
Table 6 highlights relevant concentrations of defined segments in the city of Dubuque, and compares
these concentrations in neighboring counties and at the state levels-segments with a propensity for
urban living have been highlighted in grey. Key findings of this analysis are summarized below:
^ Dubuque households tend to be middle-aged to older, and primarily middle-income.
^ Household segments with a propensity to live in urban housing comprise 20.4% of Dubuque
households, as compared to just 14.1 % at the county and 4.7% at the regional levels.
^ Retirement Communities and City Dimensions comprise the largest share of Dubuque household
segments with a propensity for urban housing. These segments, in conjunction with an aging
population and projected increases in single-parent families will drive demand for rental, multi-
unit housing as well as senior housing.
^ Rustbelt Retirees, Rustbelt Traditions and Great Expectations are the most common household
segments in the city of Dubuque.
Definitions for Dubuque's household segments are located beneath Appendix Table 6. Dubuque's
core household segments have been defined below:
^ Rustbelt Retirees--these neighborhoods can be found in older, industrial cities in the Northeast
and Midwest, especially in Pennsylvania and other states surrounding the Great Lakes.
Households primarily consist of married couples with no children and singles living alone. The
median age is 44.6 years. Most residents live in owned, single-family homes, with a median
value of $134,314. Unlike many retirees, these residents are not inclined to move.
Economics Research Associates Project No. 17886 Page 6
^ Retirement Communities- these neighborhoods are found mostly in urban areas scattered
throughout the United States. The majority of households live in multi-unit dwellings. This
educated, older market has a median age of 51.4 years-one-third of residents are aged 65 years
or older. Congregate housing, which commonly includes meals and other services in the rent, is
a trait of this segment dominated by primarily by singles living alone. Good health is a priority for
these households with has implications for housing in areas with pedestrian accessibility to
shopping and entertainment.
^ Great Expectations- these neighborhoods are located throughout the country, with higher
proportions found in the Midwest and South. They are comprised primarily by young singles and
married-couple families- the median age is 33.2 years. Approximately half of the households are
owners living in single-family dwellings with a median value of $114,837; the other half are
renters, mainly living in apartments in low-rise or mid-rise buildings. Residents enjoy a young
and active lifestyle focusing upon going out to dinner, to the movies, to bars, and to nightclubs.
^ City Dimensions-these neighborhoods are located in large, urban cities. The market is primarily
young, with a median age of 29.2 years. These segments have a propensity to live in urban-style
housing and roughly 63 percent rent apartments in older, multiunit structures. Median
household income is fairly low at $15,628. Top activities for these household segments include
roller skating, playing soccer and chess, attending auto races and shows, going to the movies,
and renting movies.
Education
An educated labor force is a key determinant of demand for office space, especially for industries
that do not specialize in manufacturing. Appendix Table 4 highlights percent of population in 2006 by
educational attainment while Figure 3 summarizes percentage point shifts in these figures since
1990. Important findings are summarized below:
^ A greater share of Dubuque County residents has a graduate or professional degree (9%) as
compared to the state level (7%).
^ In general, Dubuque County's population is becoming more educated- between 1990 and 2006,
the percent of Dubuque County residents with a graduate or professional degree increased by 4
percentage points as compared to 2 and 3 percentage points respectfully at the state and
national levels.
Economics Research Associates Project No. 17886 Page 7
Income
Area income growth translates into expanded resident buying power for retail as well as housing.
Appendix Table 5 outlines median household incomes at the city, county, regional and state levels
while Appendix Figure 6 highlights the percent of total households by income. The following trends
are noted:
^ Although 2007 median household income at the city level is below the state benchmark,
between 2000 and 2007, median household income growth for the city of Dubuque (3.4%)
exceeded growth at the county, regional and state levels. Over the next five years, median
household income growth at the city level (3.2%) is projected to again exceed county and
regional levels.
^ Households with a median income of $50,000 to $74,000 presently represent the largest income
cohort at the city, county and regional levels. A key difference between the city of Dubuque and
the County is a greater share of households with a median household income of less than
$49,999 at the city-level.
^ Between 2007 and 2012, the entire region is projected to experience an increase in higher-
income households-- households earning less than $74,999 are projected to decline as a percent
of total households.
^ Over the next five years, households earning $150,000 to $199,000 are currently projected to
represent the largest growth cohort at the city and county levels-growth in these higher-wage
households should generate demand for upscale housing.
Migration
ERA analyzed IRS data between 1999 and 2007 to better understand recent patterns of migration
into Dubuque County as a demand generator for area housing, retail and area employment. The
Internal Revenue Service (IRS) collects data from two consecutive household tax returns.
Households that file a return from one county one year, and another county the following year are
classified as "migrants" while households that file in the same county are classified as "non-
migrants" or residents. Among ERA's findings include:
^ Across Dubuque County through 2007, while migrant inflows increased at an annualized rate of
3.0%, migrant outflows decreased at an annualized rate of 0.4%.
^ Over half (64%) of Dubuque County migrants on an annual basis come from outside of Iowa,
speaking to a degree of magnetism for Dubuque County.
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^ Between 1998 and 2007, Dubuque County averaged 353 migrant households annually from
"urban" counties.' Cook County, Illinois, and Linn County, Iowa, represented the largest share
of these flows (Appendix, Table 10).
^ Neighboring Jo Daviess County represents the largest source market overall for migrants into
Dubuque County.
^ Appendix Table 9 highlights percent of migrants to Dubuque County by average Adjusted Gross
Income (AGI). During the period between 1997 and 2007, households with an average AGI of
$30,000 to $40,000 averaged nearly half (44.3%) of total inflows to Dubuque County-
households with an average AGI of $40,000 to $50,000 represented another 26.8%. Overall,
household with an AGI below $10,000 have declined as a share of in-migrating households to
Dubuque County.
Housing
Retail sales follow new rooftops-Appendix Table 11 outlines the estimated number of housing units
at the city, county and regional levels in 2001 and 2007 while Appendix Table 12 summarizes city-
issued building permits by residential property type. Appendix Figure 8 through Figure 10 highlight
characteristics of Dubuque's present housing stock. Important points are summarized below:
^ Between 2001 and 2007, the city of Dubuque issued at total of 1,347 new home permits, an
average of 192 permits per year. Roughly 3,680 permits were issued within Dubuque County
during this same period, an average of 526 permits per year. The city of Dubuque's share of
county-wide permits grew from 24.7% to 37.4% between 2001 and 2007.
^ The number of new home permits issued by the city of Dubuque grew from 109 in 2001 to 137
in 2007, an average annualized growth rate of 0.8%. Annualized growth in housing permits
issued at the entire county level was slightly greater at 1.4%.
^ Between 2001 and 2007, the city of Dubuque has sustained a fairly balanced mix of single-family
versus multi-family housing construction (Appendix, Table 12) -during this period, an average of
42% of housing permits were issued for detached single-family construction, while 58% of
permits were issued for higher-density housing.
' ERA has classified counties as "urban" if they contain a major population center. Conversely, ERA has
classified counties as "rural" if they lack a major population center.
Economics Research Associates Project No. 17886 Page 9
^ Considering some 70% of Dubuque households were childless in 2000 and the local population
is aging, demand for higher-density housing will drive the present multi-family housing share of
annual permits beyond the present average of 58%.
Single-Family Homes, Condominiums & Duplexes
Assessor data reveals that citywide, there are some 26,000 single family homes, condominiums and
duplexes. Highlighted below are important findings related to Dubuque's housing stock.
^ Dubuque's existing housing stock is fairly old-Appendix Figure 8 highlights that nearly 20% of
Dubuque's single family homes were built prior to 1900. Condos, duplexes and single family
homes built since 2000 represent just 4.4% of Dubuque's citywide inventory.
^ Appendix Figure 9 highlights the percent of existing Dubuque homes by total assessed value and
assessed value per square foot. The greatest share (28%) of Dubuque single family homes and
duplexes are assessed between $150k and $200k, with another 26% assessed at between
$200k and $250k. EFiA notes a very small share of the housing stock, including condominiums,
is assessed at over $300k.
^ Appendix Figure 10 outlines percent of Dubuque`s owner-occupied housing stock by assessed
price per square foot. Over half (52.1 %) of Dubuque homes are assessed at $111-140 per
square foot. Another 20% are assessed below $110 per square foot. In general, condominiums
are assessed at a higher value per square foot as compared to single family homes or
duplexes-15% of condos are assessed at over $171 per square foot as compared to just 3.2%
of single family homes or duplexes.
^ Appendix Figure 11 plots the relationship between the assessed value and livable space in
square feet of a Dubuque home built since 2000. Important to note from this analysis is that in
recent years, there has been very little inventory added to the Dubuque housing market with an
assessed value exceeding $300,000. In both highlighted property types, there is a positive
correlation between assessed value and livable space, however, this correlation is more
significant for condominiums as compared to single family homes.
Apartments
Data from the Dubuque County Assessor reveals there are roughly 5,500 apartment units in
Dubuque citywide. Of these units, about 16% are located within Dubuque's downtown. Important
findings related to Dubuque's apartment market are highlighted below:
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^ Dubuque's apartment inventory tends to be old - of citywide rental units, nearly one-third
(32.8%) of these units were built prior to 1900. Another 58% of units were built between 1900
and 1980. Of some 100 rental units built citywide since 2000, 30 were built within downtown
Dubuque, along upper Main Street by John Gronen.
^ Appendix Table 13 highlights characteristics of Dubuque's present apartment unit inventory
including size and rent characteristics. Of modern inventory built since 2000, a typical 2-bedroom
unit is somewhere around 1,000 square feet, a 24% increase over the average size of a 2-
bedroom built prior to 2000. By comparison, 3-bedroom units built since 2000 tend to be slightly
smaller (2.5%) than their counterparts built before 2000. According to available data, a typical 3-
bedroom unit in Dubuque is somewhere around 1,200 square feet.
^ Monthly per square foot rent of a modern 2-bedroom unit ranges between $0.62 and $0.81 psf.
Of all highlighted apartment sizes, one bedrooms command the greatest rent on a monthly per
square foot basis at $0.67 to $0.87.
^ Typical amenities for an apartment building in Dubuque include air conditioning, dishwashers,
hook-ups for washers/dryers, and access to parking. It is less common, although not unusual, for
apartments to have in-unit washers and dryers.
Home Sales
The following section highlights key trends and characteristics of Dubuque's housing market. These
trends offer key insight as to the nature of demand for housing around Dubuque, as well as potential
gaps in the local market. Summarized below are ERA's key findings:
^ Data from the Office of Federal Housing Enterprise Oversight reveals that between 1998 and
2007, housing price appreciation in Dubuque County generally failed to keep pace with housing
price appreciation at the national level. Over the noted period, home values in Dubuque County
grew at an annualized rate of 4.3% and while consistent with state-level appreciation (4.3%),
average appreciation at the national level was notably higher at 7.1 %.
^ For single-family homes built since 2000, the current median value is $200,500 and median value
per square foot is $129. With an overall average value of all homes at $91 per square foot, the
market is pricing in a premium of about 42% for newer construction.
^ For condominiums built since 2000, the median value is $143,500 and median value per square
foot is $140, compared to an overall average of $99 per square foot- a 41 % premium for new
construction.
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^ Of the highlighted housing types, condominiums and townhomes represented the greatest
annualized growth in property sales between 2003 and 2007 at 8.4% and 6.6% respectfully.
Single family homes experienced an annualized growth of just 1.4% from 785 properties in 2003
to 830 in 2007. As such, while single family homes remain the largest share of the market,
condominiums and townhomes are seeing more dramatic annualized growth rates.
Urban Housing Analysis
To understand the potential for housing in downtown Dubuque, ERA compared the present
downtown and MSA residential inventories with population characteristics, concentrating on those
households with a propensity for urban living. To contextualize conditions in downtown Dubuque,
ERA also examined downtown housing conditions within four other Midwestern cities-Des Moines
and Iowa City, Iowa; Traverse City, Michigan; and Madison, Wisconsin. The study area used to
define each "downtown" is based upon the general boundary of each community's defined
commercial downtown area. The approach focuses on the identification of modern /contemporary
urban housing that has been built in each downtown market, primarily since 2000. Important
findings are summarized below:
^ Of the highlighted markets, Madison's downtown is the largest in terms of the number of
"modern" downtown housing units (Appendix, Table 14) as well as in share of the MSA housing
inventory. While Dubuque has a significant number of downtown housing units (over 1,000) only
about 30 are considered modern, which represents about 0.08% of county inventory. For
comparative purposes, modern urban housing accounts for about 1.9% of metropolitan area
inventory in Des Moines.
^ Of the highlighted communities, Dubuque has experienced the least modern inventory
construction within its downtown-according to County Assessor data, there have been about
30 housing units built in downtown Dubuque since 2000. This is in comparison to about 1,500
units built in downtown Des Moines; 2,700 in downtown Madison; 70 units in downtown
Traverse City; and 94 units in downtown Iowa City (Appendix, Table 14).
^ Appendix Figure 1 highlights the percentage point gap between the 1) urban lifestyle households
as a percent of MSA total households; and 2) the downtown's share of modern MSA housing.
Of the highlighted communities, this percentage point gap is greatest for Iowa City at
approximately 48 points-Traverse City and Dubuque are roughly comparable at 10 to 13 points.
Economics Research Associates Project No. 17886 Page 12
Retail
The goal of ERA's retail market investigation was to understand the current strategic position of
Dubuque in the region, and the competitive position of the city as a retail destination. Highlights of
the Dubuque's retail market are summarized below:
^ The city of Dubuque in 2007 generated $960,502,748 in total retail sales, an annualized increase
of 3.7% since 2000, representing 91 % of the county total ($1,053,103,348) for 2007. Dubuque's
share of county sales has remained constant since 2000 despite the city's reported decline as a
share of total county population, according to the US Census estimates.
^ Growth in Dubuque retail sales between 2000 and 2007 far exceeded annualized growth in
regional population or households during the same period- this is reflective of area income
growth as well as growth in the visitor market.
^ Pull factor analysis indicates that in 2007, the city of Dubuque generated 23% more sales than
the local population should logically support. The city of Dubuque's 2007 pull factor (1.23) is an
increase over its pull factor in 2000 (1.11).
^ Pull factor analysis by retail type (Appendix, Figure 7) highlights that in 2007, building materials,
specialty stores and home furnishings generated the greatest sales from outside of the city.
With the exception of 1) eating and drinking places and 2) general merchandise, pull factors for
all retail categories at the city level increased between 2000 and 2007.
^ Should present income and population growth trends continue and assuming annual retail sales
per square foot of $275-$325, ERA projects 122,000 to 144,000 square feet of additional retail
capacity on an annual basis for the city of Dubuque.
Tourism
The Dubuque region is a significant tourism destination. The success of future development in retail,
entertainment, lodging, and other sectors will link with the region's ability to attract visitors on an
annual basis. ERA notes the following key aspects of tourist visitation and impact on the area
economy:
^ Total visitor expenditures for Dubuque County in 2006 were estimated at $236 million. Total
visitor spending in Dubuque County increased from $175.23 million in2000, a 5.1 % annualized
rate of growth. Total visitor spending in Dubuque County as a share of total visitor spending at
the state level increased from 3% to 4% during this period.
Economics Research Associates Project No. 17886 Page 13
^ Although the city of Galena is regarded as a major nearby tourism destination, total visitor
expenditures in Jo Davies County in 2006 was estimated at just $157 million. This figure is up
from $140 million in 2000-an annualized increase of just 1.9%.
Economic Base
Employment growth is a reliable measure of economic expansion and demand driver for business
and housing investment-in particular, employment growth in office-using industries should drive
demand for office space around Dubuque. ERA outlines notable findings related to Dubuque
County's economic base below:
^ Between 2001 and 2006, annualized growth in total employment for Dubuque County (1.2%)
doubled state-level growth (0.6%)-Dubuque County's share of state employment grew from
3.9% to 4.0%.
^ Dubuque County office sector employment grew by roughly 950 positions between 2001 and
2006 (Appendix, Table 16-should recent employment trends continue,
Accounting/Bookkeeping, Insurance, and Internet Search ProvidersNVeb Search/Data will
represent the top demand drivers for office space around Dubuque.
^ Assuming an average rate of growth of office employment of 190 positions annually and 225 to
275 square feet of office space per employee, this translates into 42,600 to 52,100 square feet
of additional office capacity required on an annual basis at the county level. Within the context of
the next several years, ERA would expect lower rates of office job formation.
^ Location quotient analysis revealed Dubuque County office sector employment concentrations in
Broadcasting, Traditional Publishing, Medical Offices, and Web Search Services (Appendix, Table
17). However, according to location quotient analysis, several service-oriented industries
including Legal Services, Accounting, and Design are less concentrated than within the broader
study area-these industries may represent opportunity for growth within the county.
^ Appendix Figure 12 illustrates that of office-using establishments in 2006, nearly half (47%) were
small, employing between one and four employees- mid-sized offices with fifty to ninety-nine
employees represented the greatest growth in terms of total establishments between 2001 and
2006 (Appendix, Figure 12).
Higher wage employment sectors as highlighted in grey grew as a share of total Dubuque County
employment between 2001 and 2006 (Appendix, Table 19) Wages overall at the county level grew by
an annualized rate of 4% as compared to just 2% at the state level- wage growth ultimately drives
consumers' ability to spend.
Economics Research Associates Project No. 17886 Page 14
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Case Studies
To understand the nature of historic warehouse district redevelopment, ERA examined four
Midwestern cities that have successfully redeveloped an existing urban warehouse district-
Cleveland, Ohio; Omaha, Nebraska; Milwaukee, Wisconsin; and Wichita, Kansas. Case studies are
located in the Appendix, with important findings summarized below:
^ With the exception of Wichita's Old Town, warehouse district redevelopment tended to be
initiated by the private sector.
^ Common between all four case studies is an upfront, high-visibility project within or adjacent to
the warehouse district by the City-examples include major streetscape enhancements,
individual building rehabilitation, and construction of adjacent parks, plazas and pedestrian malls.
^ Redevelopment tends to occur over a long period of time (10-20 years) and involves players from
the public and private sectors. In the case of Cleveland, a local non-profit (Historic Warehouse
District Development Corporation) was established comprised of local business interests to
manage district and business development activities.
^ In three of the four examples, financing of warehouse redevelopment extended beyond TIF-
other mechanisms commonly included Historic Tax Credits, CDBG dollars, grants and HUD
loans.
Implications
^ Dubuque residents tend to be older than state averages. Reflective of increases in median age,
average household sizes are decreasing across the region. The decrease in household size has
direct implications for shifting demand towards smaller, denser housing.
^ Age segment shifts at the county level are particularly notable for elderly populations, empty-nest
and single households-these cohorts should drive demand for housing units that are smaller
and well as maintenance-free.
^ Historical housing appreciation in Dubuque County has been below national levels, indicating that
the local market has avoided the worst excesses of the national housing price correction.
^ Dubuque's existing housing stock is older, the majority of which is assessed at under
$250,000-condominiums and single-family homes above this price point represent only a small
share of inventory.
^ Between 2003 and 2007, annualized increases in condominiums and townhomes sales in the
city have outpaced increases in the number of single-family home sales. The vast majority of
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condominiums (75.6%), townhome (94.1 %) and single family home (82.8%) sales in Dubuque
during this period sold for less than $200,000.
^ There are roughly 870 apartments in downtown Dubuque~f 100 apartments built citywide
since 2000, just 30 were built in the downtown.
^ Between 2000 and 2008, ERA estimated a total of about 400 new urban-lifestyle households
within the MSA-even as downtown Dubuque added only a modest level of new urban
construction since 2000.
^ ERA estimates a 13% gap between the percent of new MSA housing within downtown
Dubuque, and the percent of new households MSA-wide with a propensity for urban living.
^ Between 2000 and 2008, the downtown areas of Traverse City and Des Moines added modern
housing units (70 and 1,528, respectively), with varying degrees of public incentive support. In
Dubuque since 2000, modern housing development occurred at a slower pace compared to
either of these aforementioned benchmarks. Given that Des Moines has twice the percentage
of urban segments as Dubuque, ERA would define the overall local urban housing opportunity in
the 250 to 500 unit range.
^ Dubuque County averages 300 migrants annually from "urban" counties-these migrants are
more likely than those from "rural" counties to demand housing in an urban setting.
^ Although wage growth since 2001 in Dubuque County has exceeded statewide benchmarks,
ERA expects that the majority of urban housing demand will be driven by people of average
means.
Economics Research Associates Project No. 17886 Page 16
IV. Appendix
Table 1: Population Change
CAGR CAGR Projected Annual
Jurisdiction 2000 2007 2012 00-07 07-12 Increase
City of Dubuque 57,686 58,399 59,143 0.2% 0.3% 149
Dubuque County 89,143 92,767 95,199 0.6% 0.6% 486
Jo Daviess County 22,289 22,823 23,197 0.3% 0.3% 75
10-County Total 327,694 335,327 340,455 0.3% 0.3% 1,026
Iowa 2,926,324 3,030,140 3,110,913 0.5% 0.5% 16,155
Note: City of Dubuque population figures include some 4,500 individuals living in USCensus-defined "group quarters"
Source: ESRI
Table 2: Share of Regional Population
CAGR CAGR
Jurisdiction 2000 2007 2012
00-07 07-12
City of Dubuque 17.6% 17.4% 17.4% -0.2% -0.1%
Dubuque County 27.2% 27.7% 28.0% 0.2% 0.2%
Jo Daviess County 6.8% 6.8% 6.8% 0.0% 0.0%
10-County Total 100.0% 100.0% 100.0% 0.0% 0.0%
Source: ESRI
Table 3: Households and Average Household Size
Number Average Size
Jurisdiction
2000 2007 2012 0 92 2000 2007 2012 07 12
City of Dubuque 22,560 23,424 24,053 0.5% 2.56 2.49 2.46 -0.3%
Dubuque County 33,690 36,006 37,442 0.8% 2.51 2.44 2.41 -0.2%
1o Daviess County 9,218 9,701 9,983 0.6% 2.4 2.33 2.30 -0.3%
10-County Total 126,300 132,653 136,191 0.5% 2.50 2.43 2.40 -0.2%
Iowa 1,149,276 1,213,728 1,253,509 0.6% 2.46 2.41 2.40 -0.1%
Source: ESRI
Table 4: 2006 Educational Attainment (18+ years of age)
Educational Standing Dubuque County Iowa US
Less than High School 10% 10% 14%
High school graduate (includes equivalency) 40% 37% 32%
Some College 18% 20% 19%
Associate's or Bachelor's Degree 23% 26% 24%
Graduate or professional degree 9%
__ 7% 10%
Source: US Census
Economics Research Associates Project No. 17886 Page 1
Table 5: Household Income
CAGR CAGR
Jurisdiction 2000 2007 2012 00-07 07-12
City of Dubuque $37,313 $47,047 $55,032 3.4% 3.2%
Dubuque County $39,570 $49,138 $56,995 3.1% 3.1%
Jo Daviess County $40,441 $48,627 $54,786 2.7% 2.7%
10-Counties $37,902 $46,459 $53,003 3.0% 3.0%
Iowa $39,448 $49,331 $57,806 3.2% 3.2%
Source: ESRI _ _ _ __
Table 6: City of Dubuque-- Top Tapestry Segments
City of Dubuque 1o Daviess
Segment Dubuque County County 10-Counties Iowa
Sophisticated Squires 6.0% 4.2% 0.0% 1.1% 1.3%
Cozy and Comfortable 5.8% 4.0% 0.0% 1.4% 2.4%
Rustbelt Retirees 13.1 % 10.2% 0.0% 10.4% 5.2%
:Retirement Communities 9.3% 6.4% 3.3% 2.2% 0.6%`
Great Expectations 9.5% 6.6% 0.0% 2.1 % 3.0%
City Dimensions 53°!0 3.7% 00% 1.0% 1.4%
Rustbelt Traditions 13.1% 13.0% 0.0% 10.4% 11.1%
Salt of the Earth 4.9% 11.9% 0.0% 13.8% 7 2%
Home Town 5.9% 4.1 % 0.0% 5.2% 4.0%
Crossroads 4.1% 2.9% 0.0% 1.2% 1.7%
Top Segments 76.9% 66.8% 3.3% 48.7% 38.0%
Exurbanites 1.6% 1.1% 0.0% 0.3% 2.2%
Green Acres 2.5% 13.0% 7.2% 6.7% 5.0%
Old and Newcomers 1.7% 1.2% 0.0% 0.3% 1.2°l°
Prosperous Empty Nesters 4.0% 2.7% 0.0% 1.2% 1.5%
Heartland Communities 3.1% 2.2% 21.1% 10.1% 9.7%
Social Security Set... 1.8% 1.2% 0.0°I° 0.7% 0.6°Io
College Towns 1.2% 0.8% 0.0% 1.6% 1.3%
Aspiring Young Families ;; 2.4% 1.6% 0.0% Oi4% 2.4%
Midland Crowd 2.8% 2.0% 0.0% 1.3% 1.9%
Midlife Junction 1.9% 1.3% 0.0% 4.7% 6.4%
Additional5egments 23.1% 27.2% 28.4% 27.3% 32.2%
Note: Numbers may not add due to rounding
Source: ESRI
Segment Definitions
^ Sophisticated Squires-these residents enjoy cultured country living in low-density, newer home
developments with a median home value of $286,622. These residents are primarily married-
couple families, educated, and well employed. The median age is 38.3 years. Top family activities
include playing volleyball, bicycling, playing board games and cards, going to the zoo, and
attending soccer and baseball games.
Economics Research Associates Project No. 17886 Page 2
^ Cozy and Comfortable-these residents are settled, married, and still working. Many of these
couples still live in pre-1970s, single-family homes in which they raised their children.
Households are located mainly in suburban areas of the Midwest, Northeast, and South. The
median age is 41.9 years and the median home value is $184,456. Top activities of these
households include playing softball and golf, attending ice hockey games and gambling at
casinos.
^ Rustbelt Traditions- these neighborhoods are the backbone of older, industrial cities in states
bordering the Great Lakes. Most employed residents work in the service, manufacturing, and
retail trade industries and the majority live in modest single-family homes that have a median
value of $107,222. Households are primarily a mix of married-couple families, single-parent
families, and singles who live alone. The median age is 36.1 years with a median household
income is $49,579. Favorite leisure activities include hunting, bowling, fishing, and attending
auto races, country music shows, and ice hockey games.
^ Salt of the Earth-a rural or small-town lifestyle best describes this market. The median age is
40.4 years. Labor force participation is higher than the U.S. level, and unemployment is lower.
These residents tend to be employed in the manufacturing, construction,' mining, and agricultural
industries. The median household income is $50,538. Households are dominated by married-
couple families who live in single-family dwellings- homeownership is high at roughly 86
percent. Residents enjoy fishing, hunting and attending country music concerts and auto races.
^ Home Town- these low-density, settled neighborhoods, located chiefly in the Midwest and
South, rarely change. Home Town households are a mix of singles and families. The median age
is 33.9 years. Single-family homes predominate in this market with a homeownership rate of 61
percent. The median home value is $68,647. The manufacturing, retail trade, and service
industries are the primary sources of employment. Residents enjoy fishing and playing baseball,
bingo, backgammon, and video games.
^ Crossroads-young families living in mobile homes typify this household segment, found in small
towns throughout the South, Midwest, and West. These growing communities are home to
married-couple and single-parent families. The median age is 32 years. Homeownership is at 77
percent- the median home value is $74,804. More than half of the householders live in mobile
homes; 36 percent live in single-family dwellings. Employment is chiefly in the manufacturing,
construction, retail trade, and service industries. Top segment activities include fishing,
attending auto races and playing the lottery.
Economics Research Associates Project No. 17886 Page 3
" `i
^ Exurbanites- these affluent households are primarily a mix of empty nesters (40%) and married
couples with children (32%). Half of the householders are between the ages of 45 and 64 years.
The median age is 44.6 years. The median home value is approximately $302,435; median
household income is $88,195. Top leisure activities include boating, hiking, kayaking,
photography, and bird-watching.
^ Green Acres-these households live in pastoral settings of developing suburban fringe areas,
mainly in the Midwest and South. The median age is 40.5 years. Married couples with and
without children comprise most of the households who primarily live in single-family dwellings.
This upscale market has a median household income of $63,922 and a median home value of
$205,460. For exercise, residents ride their bikes and go water skiing, canoeing, and kayaking.
Other preferred activities include bird-watching, power boating, hunting, and attending auto
races.
^ Old and Newcomers-these household segments are in transition, populated by those who are
either starting their careers or retiring. The proportion of householders in their 20s or aged 75
years or older is higher than at the national level. The median age is 37 years. Spread throughout
metropolitan areas of the United States, these neighborhoods have more single-person and
shared households than families. Sixty percent of households are occupied by renters;
approximately half live in mid-rise or high-rise buildings. Top segment leisure activities include
rollerblading, playing golf, gambling at casinos, playing bingo, and attending college ball games.
^ Prosperous Empty Nesters- these neighborhoods are well established, located throughout the
United States; approximately one-third live on the eastern seaboard. More than half of the
householders are aged 55 or older- the median age is 48.5 years. Forty percent of household
types are married couples with no children living at home. Educated and experienced, residents
are enjoying the life stage transition from child rearing to retirement. The median household
income is $69,834. Residents place a high value on their physical and financial well-being and
take an active interest in their homes and communities. They travel extensively, both at home
and abroad. Leisure activities include refinishing furniture, playing golf and attending sporting
events.
^ Heartland Communities- these neighborhoods can be found primarily in small towns in the
Midwest and South. More than 75 percent of the households are single-family dwellings with a
median home value of $85,240. Most homes are older, built before 1960. The median age of
this household segment is 41.7 years; nearly one-third of the householders are aged 65 years or
older. Top activities of this household segment include hunting, fishing, playing bingo, and
listening to country music. They also enjoy civic participation and take an interest in local politics.
Economics Research Associates Project No. 17886 Page 4
^ Social Security Set- located in large cities scattered across the United States, these
communities are dispersed among business districts and around city parks. Four in ten residents
in this household segment are aged 65 years or older; the median age is 45.6 years. The
majority of these residents live alone. The service industry provides more than half of the jobs
held by residents who work- households subsist on very low, fixed incomes. Most residents
rent apartments in low-rent, high-rise buildings. Many rely on public transportation, because
more than half of these households do not own a vehicle.
^ College Towns-- education is the key focus of this household segment. College and graduate
school enrollment is approximately 41 percent. The median age for this market is 24.4 years,
with a high concentration of 18-24-year-olds. Roughly one out of eight residents lives in a dorm
on campus. Students in off-campus housing rent low-income apartments. Approximately 31
percent of the households are town residents who live in owner-occupied, single-family
dwellings. The median home value is $152,965.
^ Aspiring Young Families-these neighborhoods are located in large, growing metropolitan areas
in the South and West, with the highest concentrations in California, Florida, and Texas. Mainly
composed of young, married-couple families or single parents with children, the median age for
this segment is 30.5 years. Half of the households are owner-occupied, single-family dwellings
or townhomes, and half are occupied by renters, many living in newer, multiunit buildings. Top
leisure activities for this segment include dining out, dancing, going to the movies, attending
professional football games, fishing, weight lifting, and playing basketball.
^ Midland Crowd-approximately 10.8 million people represent Midland Crowd, Community
Tapestry's largest market. The median age of 36.9 years matches the U.S. median. Most
households are composed of married-couple families-half of these families have children. The
median household income is $49,748. Housing developments are generally in rural areas
throughout the United States (more village or town than farm)-homeownership is high at 84
percent. Two-thirds of these households live in single-family structures; 28 percent live in mobile
homes.
^ Midlife Junction-these household segments are found in suburbs across the country.
Approximately half of the households are composed of married-couple families; 31 percent are
singles who live alone. In general, these residents are phasing out of their child-rearing years.
The median age is 41.1 years with a median household income is $47,683. Nearly two-thirds of
households are in single-family structures; most of the remaining dwellings are apartments in
multiunit buildings.
Economics Research Associates Project No. 17886 Page 5
Table 7: Dubuque County Annual Net Migration
Time Period In-flows Out-flows Net Migration
1997-1998 1,283 1,730 -447
1998-1999 1,463 1,769 -306
1999-2000 1,481 1,719 -238
2000-2001 1,392 1,819 -427
2001-2002 1,446 1,649 -203
2002-2003 1,359 1,539 -180
2003-2004 1,396 1,517 -121
2004-2005 1,467 1,524 -57
2005-2006 1,604 1,573 31
2006-2007 1,735 1,665 70
Average 1,463 1,650
____ -188
Source: IRS, ERA
Table 8: Origin of Migrants to Dubuque County
Other
Time Period In-Migrants Iowa States US Foreign
1997-1998 1,283 414 822 1,236 47
1998-1999 1,463 553 884 1,437 26
1999-2000 1,481 546 900 1,446 35
2000-2001 1,392 508 856 1,364 28
2001-2002 1,446 508 908 1,416 30
2002-2003 1,359 528 818 1,346 13
2003-2004 1,396 511 870 1,381 15
2004-2005 1,467 560 886 1,446 21
2005-2006 1,604 602 979 1,581 23
2006-2007 1,735 596 1,102 1,698 37
CAGR 3.1% 3.7% 3.0% 3.2% -2.4%
Source: IRS, ERA
Table 9: Percent of Migrants to Dubuque County by AGI
Income 1997- 1998-
Range 1998 1999
<$10K 3.7% 1.8%
$10K- $20K 1.9% 0.0%
$20K-$30K 33.8% 31.1%
$30K-$40K 58.1 % 60.8%
$40K-$50K 2.5% 5.6%
$50K+ 0.0% 0.7%
Total 100.0% 100.0%
Note: Reflects reported flows only
Source: IRS, ERA
1999- 2000- 2001- 2002- 2003- 2004- 2005- 2006-
2000 2001 2002 2003 2004 2005 2006 2007
0.0% 0.0% 0.0% 0.0% 0.0% 0.0% 0.0% 0.0%
3.0% 2.0% 2.1 % 0.0% 1.4% 3.0% 0.0% 6.5%
28.9% 31.5% 24.3% 28.9% 17.9% 24.3% 14.7% 3.9%
64.4% 19.6% 26.1 % 26.3% 67.1 % 63.8% 25.6% 30.8%
1.8% 42.8% 44.7% 41.6% 10.5% 6.9% 56.5% 55.0%
1.9% 4.1 % 2.8% 3.2% 3.1 % 2.0% 3.2% 3.9%
100.0% 100.0% 100.0% 100.0% 100.0% 100.0% 100.0% 100.0%
Economics Research Associates Project No. 17886 Page 6
Table 10: Urban versus Rural Origin of Migrants to Dubuque County
County Urban vs. Rural 1998-1999 2000-2001
Clinton Rural 14 15
Black Hawk Waterloo-Cedar Falls 83 30
Polk Des Moines 31 25
Story Ames 12 0
Johnson Iowa City 29 32
Linn Cedar Rapids 64 63
Marshall Des Moines 0 0
Clayton Rural 25 29
Jones Rural 19 20
Winneshiek Rural 10 0
Delaware Rural 54 50
Jackson Rural 67 72
Scott Davenport 41 43
Buchanan Rural 0 0
Iowa Flows Rural 189 186
Iowa Flows Urban 260 193
Maricopa, AZ Phoenix & Scottsdale 19 11
Jo Daviess, IL Rural 103 117
Rock Island, IL Davenport/Moline/Rock Island 11 0
Cook, IL Chicago 36 29
Lake, IL Chicago 10 0
Dupage, IL Chicago 13 12
Whiteside, IL Rural 0 0
Winnebago, IL Rockford 0 0
Los Angeles, CA Los Angeles 0 0
San Diego, CA San Diego 0 0
Hennepin, MN Minneapolis 14 14
St. Louis, MO St. Louis 0 0
Milwaukee, WI Milwaukee 0 0
Waukesha, WI Milwaukee 0 0
Grant, WI Rural 85 81
Dane, WI Madison 26 19
Lafayette, WI Rural 0 0
Out-of-State Rural 188 198
Out-of-State Urban 129 85
Note: Only includ es those migrants with known origin from wit hin the US
2002-2003 2004-2005 2006-2007 Average
12 13 18 14
36 42 31 44
35 29 21 28
0 12 15 8
35 49 34 36
68 76 63 67
0 0 0 0
43 39 33 34
15 10 23 17
0 0 0 2
46 49 57 51
75 83 101 80
43 27 43 39
0 0 10 2
191 194 232 198
217 235 207 222
13 10 10 13
120 100 117 111
0 0 0 2
41 67 113 57
0 0 0 2
13 N/A 13 N/A
0 10 0 2
0 17 13 6
0 10 0 2
10 11 10 6
0 N/A N/A N/A
0 0 0 0
0 10 2
0 0 10 2
69 88 88 82
21 21 25 22
0 18 0 4
189 216 205 199
98 146 194 130
Economics Research Associates Project No. 17886 Page 7
Table 11: Estimated Housing Units
Jurisdiction 2001 2007 CAGR
City of Dubuque 30,139 31,349 0.7%
Dubuque County 35,946 39,187 1.4%
Jo Daviess County 12,140 13,265 1.5%
10-Counties 139,668 147,008 0.9%
Source: Dubuque City Officials, US Census Permit Databa se & ERA
Table 12: City of Dubuque Residential Building Permits by Type
Annual
Residential Segment 2001 2002 2003 2004 2005 2006 2007 Total Average Share
Single-Family 66 78 78 86 104 82 76 570 81 42.3%
Two-Family 22 34 34 38 38 32 22 220 31 16.3%
Multi-Family 21 65 70 331 14 17 39 557 80 41.4%
Total 109 177 182 455 156 131 137 1,347 192 100.0%
Source: Dubuque City Officials
Table 13: Dubuque Apartment Summary
Size (sf) ~ Annual Rent Monthly Rent/sf
Bedrooms Low High Year Built Low High Low High
Pre-2000
1-Bedroom 585 723 $499.38 $687.50 $0.79 $1.14
2-Bedroom 828 1,065 $675 $735 $0.79 $0.80
3-Bedroom 1,232 0 $645 $0 $0.52 N/A
Post-2000
1-Bedroom N/A N/A N/A N/A N/A N/A
2-Bedroom 1,033 N/A $726 $876 $0.70 $0.86
3-Bedroom 1,200 N/A $764 $879 $0.64 $0.73
Source: Various Sources
Table 14: Estimated Housing Units: Downtown versus Metro
Jurisdiction 2000 2008 Change CAGR
Downtown Dubuque 1,033 1,063 30 0.4%
Dubuque Metro Area 35,505 39,238 3,733 1.3%
Downtown Traverse City 218 288 70 4.1%
Traverse City Metro Area 69,273 80,494 11,221 1.9%
Downtown Iowa City 871 965 94 1.5%
Iowa City Metro Area 54,374 63,643 9,269 2.0%
Downtown Des Moines 2,933 4,461 1,528 6.2%
Des Moines Metro Area 199,393 238,805 39,412 2.3%
Downtown Madison 9,075 11,775 2,700 3.8%
Madison Metro Area 21,2,662 249,485... .36,823 2.0%
Source: ESRI, Dubuque County Assessor Parcel Data & Ci ty Officials
Economics Research Associates Project No. 17886 Page 8
Table 15: Urban Market Served Since 2000
Segment Dubuque Traverse City Des Moines Iowa City Madison
Downtown Housing Units Built Since 2000 30 70 1,528 250 2,700
MSA Housing Units Built Since 2000 3,733 11,221 39,412 9,269 36,823
Downtown's Share of New MSA Housing 0.8% 0.6% 3.9% 2.7% 7.3%
Urban-Lifestyle Households MSA-wide 13.4% 11.2% 28.0% 50.3% 39.9%
2000-2008 Growth in Urban-Lifestyle Households 395 928 9,607 4,113 11,741
Percent of Urban Market Served 7.6% 7.5% 15.9% 6.1 % 23.0%
Source: ESRI, US Census & Dubuque County Assessor
Table 16: Dubuque County Office Sector Employment
Sector 2001 2006 CAGR
Broadcasting (except Internet) 0 175 N/A
Telecommunications 0 134 N/A
Advertising, PR, Related 53 40 -5.7%
Scientific Research and Development 0 0 N/A
Management, Scientific, Tech. Consulting 29 40 6.4%
Computer Programming & Systems 88 63 -6.5%
Specialized Design 48 37 -5.1%
Architecture, Engineering, Etc. 161 170 1.1%
Accounting, Bookkeeping, Etc. 260 426 10.4%
Legal Services 237 223 -1.2%
Traditional Publishing 750 750 0.0%
Medical Office -Dentists, GPs, Outpatient 2,586 2,463 -1.0%
Real Estate 197 270 6.5%
Insurance & Related 1,127 1,274 2.5%
Securities, Commodities, Etc 114 157 6.6%
Banks/Credit Intermediation 1,048 1,051 0.1%
ISPs, web search, data 0 375 N/A
Other Professional, Scientific Services 142 154 1.6%
Total 6,840 7,800 2.7%
Source: US Census, County Business Patterns a nd ERA
Economics Research Associates Project No. 17886 Page 9
Table 17: Dubuque County Office Sector Location Quotient
Sector _ __ _.
Broadcasting (exceptlnternet)
Telecommunications
Advertising, PR, Related
Scientific Research and Development
Management, Scientific, Tech. Consulting
Computer Programming & Systems
Specialized Design
Architecture, Engineering, Etc.
Accounting, Bookkeeping, Etc.
Legal Services
Traditional Publishing
Medical Office -Dentists, GPs, Outpatient
Real Estate
Insurance & Related
Securities, Commodities, Etc
Banks/Credit Intermediation
ISPs, web search, data
Other Professional, Scientific Services
Total
Source: US Census, County Business Patterns and ERA
2006
1.89
0.30
0.17
0.00
0.08
0.15
0.55
0.41
0.72
0.43
2.24
1.18
0.51
0.95
0.30
0.67
1.88
0.53
0.75
CAGR
N/A
N/A
-3.4%
N/A
3.3%
-5.7%
-4.0%
0.0%
4.9%
-3.8%
1.0%
-5.6%
5.1%
2.0%
3.0%
-3.5%
N/A
-3.7%
-1.6%
Table 18: Dubuque County Wages by Sector
__ _ -CAGR 01-
Sector 2001 2003 2006 06
Forestry, fishing, hunting, and agriculture support $20,345 $20,991 $22,022 1.6%
Construction $38,357 $39,529 $43,148 2.4%
Manufacturing $34,016 $39,252 $41,082 3.8%
Wholesale trade $32,867 $36,059 $36,602 2.2%
Retail trade $17,641 $18,915 $19,927 2.5%
Transportation & warehousing $27,688 $32,856 $37,405 6.2%
Information $38,657 $37,683 $50,510 5.5%
Finance & insurance $32,422 $35,049 $43,124 5.9%
Real estate & rental & leasing $18,851 $23,821 $25,658 6.4%
Professional, scientific & technical services $32,847 $36,322 $42,558 5.3%
Management of companies & enterprises $42,072 $65,956 $62,629 8.3%
Admin, support, waste mgt, remediation services $17,959 $21,091 $23,192 5.2%
Educational services $12,204 $15,566 $16,201 5.8%
Health care and social assistance $31,289 $33,909 $35,979 2.8%
Arts, entertainment & recreation $16,308 $17,052 $16,472 0.2%
Accommodation & food services $8,601 $9,071 $9,495 2.0%
Other services (except public administration) $15,562 $18,279 $17,683 2.6%
Auxiliaries (exec. corporate, subsidiary & regional mgt) $0 $7,800 $34,375 N/A
Total $25,621 $28,352 $31,212 4.0%
Source: US Census, County Business Patterns
2001
N/A
N/A
0.20
0.00
0.06
0.20
0.68
0.41
0.56
0.52
2.13
1.57
0.40
0.86
0.2 5
0.79
N/A
0.64
0.81
Economics Research Associates Project No. 17886 Page 10
... • .
' ~ I>r'
Table 19: Share of Dubuque County Employment by Industry Sector
Sector 2001 2003 2006 CAGR 01-06
Forestry, fishing, hunting, and agriculture support 0.2% 0.2% 0.2% -5.9%
Mining 0.1 % 0.1 % 0.1 % -1.2%
Utilities 0.4% 0.8% 0.3% -1.2%
Construction 3,6% 3.8%'' 39°10 1.3%
Manufacturing 21.5% 19.3% 19.0% -2.5%
Wholesale trade 4.7% 4.6% 4.8% 0.5%
Retail trade 13.9% 13.5% 13.0% -1.3%
Transportation & warehousing 2.0% 3.4% 4.0% 15.1%
Information 4.2% 4.2% 3.4% -4.1%
Finance & insurance 4J% 5.1% 4.8% 0.4°l0
Real estate & rental & leasing 0.8% 0.9% 0.9% 2.5%
Professional, scientific & technical services 2.1% 2.1% 2.3% 1.5%
Management of companies & enterprises 0.5% 0.5°{0 2.2% 35.6%
Admin, support, waste mgt, remediation services 4.2% 3.4% 3.7% -2.7%
Educational services 6.7% 5.4% 5.4% -4.3%
Health care and social assistance 13.4% 14.5% 13.8% 0.6%
Arts, entertainment & recreation 3.1 % 3.2% 3.4% 2.1
Accommodation & food services 8.0% 8.9% 8.6% 1.4%
Other services (except public administration) 5.5% 5.4% 6.2% 2.3%
Auxiliaries (exec. corporate, subsidiary & regional mgt) 0.4% 0.0% 0.0% -33.5%
Total 100.0% 100.0% 100.0% 0.0%
Source: US Census, County Business Patterns
Economics Research Associates Project No. 17886 Page 11
Figure 1: Urban Housing Gap
Madison
bw a City
Des Moines
Traverse City
Dubuque
^ %Urban-Lifestyle Households MSA-
w ide
?_ , Dow ntow n's Share of New MSA
Housing
0% 10% 20% 30% 40% 50% 60%
Figure 2: Age of Metro versus Downtown Housing
Madison --
bw a City
Des Moines
'I Median Year Housing Buitt--MSA
I p Median Year Housing Buitt--Dow ntow n
Economics Research Associates Project No. 17886 Page 12
Figure 3: Educational Attainment Point Shift 1990-2006
10.0%
5.0
0.0
^ Less than High School
High school graduate
(includes equivalency)
^ Some College
-5.0
-10.0
-15.0
Source: US Census and ERA
~ Associate's or Bachelor's
Degree
^ Graduate or professional
degree
Figure 4: City Population by Age Cohort
1 a.o°i -----
16.0%
14.0
12.0°
10.0%
8.0%
6.0%
4.0%
2.0°/
0.0
Source: ESRI
2000
^ 2007
Economics Research Associates Project No. 17886 Page 13
Age 0-4 S-9 10- 15- 25- 35- 45- 55- 65- 75-
14 24 34 44 54 64 74 84
Figure 5: Distribution of Families by Type
~el~tiv~ly Fevv~r F~r~~ili~s 1f~ifih Kids
Percent distribution of HHs by type: 1990 and 2010 (projected)
Families w/children
1.0%
Male householder 2.6%
1.7%
1.6%
5.8%
Female _ - ` 7.0%
householder 7.6%
6.3%
26.7%
Married couple 118.0% °
26.7 /°
20.1 ° o
Families w/o children
5.1%
Other 5.2%
5.7%
8.3%
29.4%
Married couple ~ -_-^ - ~~' 27.3%°
28.4 /o
- 31.5%
Nonfamilv
4.2%
7.2%
Other ~- 5.3%
5.4%
Source: US Census and ERA
o Dubuque 1990
^ Dubuque 2010
® US 1990
^ US 2010
Economics Research Associates Project No. 17886 Page 14
Figure 6: 2007 Percent of Households by Income
$zoo,ooo+
$150,000 - $199,999
$100,000 - $149,999
$75,000 - $99,999
$50,000 - $74,999
$35,000 - $49,999
$25,000 - $34,999
$15,000 - $24,999
<$15,000
0.0%
Source: ESRI
5.0% 10.0 % 15.0% 20.0% 25.0 % 30.0%
Figure 7: City of Dubuque Pull Factors by Retail Type
2.0
1.8
1.6
1.4
1.2
1.0
0.8
0.6
0.4
0.2
0.0
e
a`acay cc~o ~~°~yy aca~y° ~`°~ey `,\Gea o\aya QQaca \`'r`c~ ~°'~a
a\cAC~ acaO ~°°a a~or °a~,c1 5e ~'a P Jac
~` ~ e
t~ mac
Source: Iowa Department of Revenue
10-Counties
L1 Jo Daviess County
Dubuque County
^ City of Dubuque
^ 2000
2007
Economics Research Associates Project No. 17886 Page 15
Figure 8: Dubuque Housing by Year of Construction
12o.o°r°
100.0%
80.0%
60.0%
40.0%
20.0%
o ~n O o m o
O
01 N
O V
O CO o0
O Q7 O
m O
O
N
~
o O N ~t C4 00 N
°
_ rn w rn rn rn d
Figure 9: Dubuque Housing by Assessed Value
35.0%
30.0%
25
0%
.
20.0%
15.0% _
t '_-
10.0%
5.0%
0.0% ~~
-
p ~ O O O O O O y
to
fA ~ O
~ ~ ~
~ O
N N O O p
Y Y
Y ~ ~ ~ ~ ~
~
O In
117 I~
~ ~ O
O Y
O
~ Y
O
N Y
O
N Y
O
M
fA 6? V3 fA U3
Source: Dubuque County Assessor
^ % Fbmes by Year Built
[~ % Condos by Year Built
^ % Homes by Assessed Value
~ % Condos by Assessed Value
Economics Research Associates Project No. 17886 Page 16
Figure 10: Dubuque Housing Assessed Value per Square Foot
so.o°i°
50.0%
40.0%
^ % Horres by Assessed Value/sf
30.0%
Condos by Assessed Value/sf
20.0%
10.0% L
-i
~
I
°°o
EPr ° °v r o °o
N N
V EA EA fR fA fR
n
°o V
fA
6? fR r
EA
Source: Dubuque County Assessor
Figure 11: Relationship between Total Home Value and Total Living Space (square feet)
$1,000,000- Type of Housing Unit
O Condominium ~~
Single FemOy Home
---Condominium
Single Fam7y Home `
5800,000- j
c~
CJ
Op ~t~ O
7 5600,000' O p ~Cr~
j O
o O
b
O OHO ~ OD
~ s4oo,o00- ~ ~U~~
6
~ O
$200,000- ll,,' .. ,".,~a,'~ ~.' 4
O
50- o:; :~;=i
~ i i r
0 7 ,000 2,000 3,000 4,000 5,000 6,000
Total Living Space
Economics Research Associates Project No. 17886 Page 17
Figure 12: Percent of Office Sector Establishments by Size
60.0% --_.___. ................ ................ ._______
50.0% _.
40.0%
30.0%
20.0
10.0
0.0%
'1-4' 'S-9' '10-19' '20-49' '50.99' '100-249' 250+
Source: County Business Patterns
^ 2001
2003
®2006
Figure 13: Growth in Office Est. by Size (2001-2006)
3.5%
3.0%
2.5°/
2.0
1.5%
1.0
0.5°/
0.0
'1-4' 'S-9' '10-19' '20-49' 'S0-99' '100-249' 250+
Source: County Business Pattern
~ CAGR
Economics Research Associates Project No. 17886 Page 18
®'. .
Case Studies
Warehouse District-Cleveland, Ohio
Cleveland's Warehouse District encompasses 43 acres bound by Front Street to the north, Superior
Avenue to the south, West 3rd Street to the east, and 10th Street to the west. The area was
originally settled as a residential community, although transitioned to become Cleveland's primary
commercial center following the Civil War- several prominent buildings remain from this era. In
1982, the district was designated a National Historic Landmark and has since transformed into a
vibrant neighborhood of art galleries, restaurants, offices, specialty retail, and loft-style housing. The
Warehouse District presently includes some 1,700 residential units, a mix of 1, 2, and 3 bedrooms;
2,700 square feet of retail; and 1.3 million square feet of office uses.
Warehouse District redevelopment began in the 1970s, beginning with renovation of the Western
Reserve Building by a local department store company. Shortly thereafter, the Cleveland Landmarks
Commission developed a Comprehensive Plan for the Warehouse District and in 1980, the Historic
Warehouse District Development Corporation 1HWDDC) was born. HWDDC is a local nonprofit
comprised of downtown business interests and architects. One of HWDDC's fist projects in 1982
was to have the neighborhood declared a local Landmark District. This was followed soon after by
National Register Historic District designation by the US Secretary of the Interior. Throughout the
1980s, redevelopment activities in the Warehouse District accelerated. In response, the Cleveland
Landmarks Commission adopted the 'Historic Warehouse District Plan Concepts and Design
Guidelines', a framework for encouraging adaptive reuse and establishing design review standards.
Although redevelopment of Cleveland's Warehouse District was initiated by the private sector, the
City has been an active supporter through financing and administrative measures. ERA has outlined
below some of the steps taken by the City to facilitate Warehouse District redevelopment:
^ Financed and managed Local Historic District planning efforts-this ultimately made
redevelopment activities eligible for Historic Tax Credits. It also allowed for greater control over
redevelopment through a design review process;
^ Undertook initial streetscape enhancements;
^ Established an Economic Restructuring Plan to allow residential uses on upper floors of
Warehouse District structures;
Economics Research Associates Project No. 17886 Page 19
^ Provided gap financing to match private sector investment (about $15-$20,000 per unit). Gap
financing is now the responsibility of a civic non-profit committed to downtown housing
development;
^ Adopted business assistance programs related to storefront renovation.
Bonds, grants (Urban Development Action Grant (UDAG); Community Development Block Grants
and Historic Tax Credits have been the primary financing mechanisms for Warehouse District
redevelopment. HUD 221 (D) 4 loans have also helped finance the development of multifamily
rentals. According to the Warehouse District Development Corporation, investment in the
Warehouse District over the past thirty years has totaled roughly $450 million- 10 to 15% of this
has been from the public sector. Between 1982 and 2005, aggregate property value within
Cleveland's Warehouse District increased from $152 million to $418 million.
Schlitz Park-Milwaukee, Wisconsin
Schlitz Park is a 40-acre office park, an adaptive reuse of the Schlitz Brewery complex located in
downtown Milwaukee. Sited along the Milwaukee River, the 110-year old brewery complex
comprised 13 buildings ranging from grain silos to administrative buildings built between 1860 and
1950- the entire complex contained some 2.3 million square feet of space. Following
redevelopment, the complex contains nearly 1.5 million square feet of space, 75% of which is office
space. Another 12% is warehousing and retail space, with the remaining 13% dedicated to
educational uses.
Redevelopment of the abandoned complex began with its purchase in 1983 by Brewery Works, a
developer initially attracted by the site's riverfront location. Renovation began a year later and was
phased over a period of roughly seven years on a building by building basis- Brewery Works would
identify an individual building and renovate it to degree that a tenant could be secured. Upon
securing a tenant through along-term lease, renovations were then completed to suit the needs of
that specific tenant. The entire project was completed in 1994.
The public sector also played an integral role in Schlitz Park redevelopment through financing,
targeted infrastructure improvements, as well as through collaboration with the developer on the
Riverwalk project. In particular, the City supported redevelopment efforts in the following ways:
Economics Research Associates Project No. 17886 Page 20
,~
^ Funded half of the $750,000 Riverwalk, aquarter-mile boardwalk/park along the Schlitz Park site.
The other half of the Riverwalk was funded by Brewery Works.
^ Established Tax Increment Finance Districts to fund infrastructure and other improvements.
^ Provided a series of subordinated loans to the developer- loans were structured so payments
were deferred until the office buildings were leased.
^ In recent years, the City provided grants and loans to the new Manpower headquarters located
adjacent to Schlitz Park, as well as built a new parking ramp for the development.
Financing of Schlitz Park was a combination of public and private sources. According to the Urban
Land Institute, developer equity in the project was roughly $4.2 million. TIF loans, grants, industrial
revenue bonds, first mortgages and other funds comprised another $82.3 million. City officials report
that the Schlitz Park TIF over its eleven year life achieved an incremental value of $37.52 million. The
adjacent Schlitz RiverCenter TIF achieved an incremental value of $32,500,000.
Old Market-Omaha, Nebraska
Old Market is a renovated, 15-block warehouse district on the edge of downtown Omaha. The
district is bound by the Missouri River to the east; Dodge Street to the north; Levinworth Street to
the west; and 13th Street to the south. Within the greater warehousing district is a 4-block historic
district on the National Register. According to the local business association, Old Market is presently
location to 30 restaurants, 13 pubs & taverns, 10 art galleries, 6 coffee shops, in addition to salons
and specialty retail. Old Market is also the site of year-round events and activities including farmers'
markets, music and firework displays.
Redevelopment of the Old Market began in the late 1960's, a movement started by a local family
that owned several area properties. Their vision for the area was to create a local artist's colony-
redevelopment efforts began with conversions of their existing warehouses into artist lofts and
galleries. In the early years of redevelopment, financial support by the City was minimal. However,
the Planning Director at the time showed support for redevelopment through 1) building and zoning
amendments; 2) targeted business recruitment; and 3) development of local plans to complement
the family's vision.
Over the next forty years, the City of Omaha became more engaged in Old Market redevelopment
through the establishment of Tax Increment Finance Districts, and City-sponsored surveys to
designate the Old Market as a local historic district. Most importantly, however, the City has
Economics Research Associates Project No. 17886 Page 21
sponsored several major projects surrounding Old Market that have been catalysts for district
redevelopment:
^ Construction of the Gene Leahy Mall-a 9.6-acre urban park adjacent to the Old Market featuring
a lagoon, walking paths, playgrounds and horseshoe pits. This project required public acquisition
and demolition of several acres of vacant, older buildings.
^ Construction of Heartland of America Park, a 31-acre lakefront park that connects the Gene
Leahy Mall to the riverfront. Heartland of America Park features fountains, live concerts and
gondola rides.
^ Renovation of the Union Station building into the Durham Western Heritage Museum. This Art
Deco structure located just south of Old Market was donated to the City by the Union Pacific
Railroad in 1973. The building is listed on the National Register, and is also a designated an
Omaha Landmark.
Old Town-Wichita, Kansas
Old Town is aturn-of-the-century warehousing district located in downtown Wichita. The district
comprises an area of roughly 40 acres bound to the south by Douglas Avenue, 3'd Street to the north,
Washington Avenue to the east, and an elevated rail corridor to the west. The district currently
comprises a mix of locally-owned retail, bars, restaurants, movie theaters, live-performance venues,
offices, two hotels and 315 homes. Old Town also contains two large public plazas that host regular
events, festivals, and concerts.
Redevelopment of this worn warehousing area into a thriving arts, entertainment and residential
district has been a combined effort of the public and private sectors. Beginning in the 1970s, a
movement amongst community leaders and citizens, including the Old Town Association, began
advocating for district redevelopment- several plans were developed as a combined effort of the
City, key stakeholders and community members. However, in 1990, the discovery of polluted
groundwater brought Old Town redevelopment efforts to a standstill. In an effort to stimulate
redevelopment, the City took the lead in site remediation, relieving property owners of this financial
burden. Additional public sector activities key to redevelopment have included:
^ Preparation of a detailed implementation plan for the establishment of a redevelopment district;
^ Establishment of an Old Town Parking District and two Tax Increment Finance Districts to secure
funding for public infrastructure improvements;
Economics Research Associates Project No. 17886 Page 22
~::
^ Establishment of financial incentives to assist building owners with rehabilitation;
^ Creation of overlay zoning districts to facilitate area mixed-use development;
^ Public acquisition and redevelopment of a three-story warehouse in the center of Old Town in
partnership with a local developer-this project served as a catalyst for further Old Town
redevelopment.
^ A $4 million contribution to implement physical improvements including pedestrian-level lighting,
new parking facilities, roadway surface improvements and the rehabilitation of an existing
building to house a farmer's market.
The public sector's role in Old Town continues to be the construction and maintenance of
infrastructure in the district- all parking has been constructed by the City and is free. The Parking
District is funded by local property owners through a monthly fee to the district based upon their
individual parking needs. Maintenance of landscaping, hardscaping as well as cleaning and repair of
public infrastructure is the responsibility of the City of Wichita.
Tax Increment Financing has been critical to Old Town redevelopment efforts. According to city
documents, total public investment in Old Town between 1993 and 2008 in the form of TIF bonds,
general obligation bonds, special assessments, and other public funds has totaled roughly $40
million. Estimates by the City place property value increments in Old Town during this time at $65
million.
Economics Research Associates Project No. 17886 Page 23
Economics Research Associates
Final Report
Financial Analysis Summary
Historic Millwork District Masterplan
Prepared for:
Cuningham Group
City of Dubuque
Submitted by:
Economics Research Associates
January 27, 2009
ERA Project No. 17886
This study was funded by a grant from the US Department
of Commerce, Economic Development Administration
20 E. Jackson Boulevard Suite 1200
Chicago, IL 60604
312.427.3855 FAX 312.427.3660 www.econres.com
Los Angeles San Francisco San Diego
Chicago Washington DC London New York
ERA AECQM
Introduction
As part of work efforts related to the Dubuque Historic Millwork District Masterplan, ERA was asked
to evaluate the financial implications of the redevelopment concept. The approach was built around
a discounted cash flow (DCF) analysis, which evaluates:
^ A proposed renovation program (new apartment units, office space and retail space)
^ A phasing plan for the project
^ Assumptions for achievable rents and operating expenses over the holding period for the asset
^ Renovation costs
^ Financing (debt service) costs over the asset holding period
^ Investment requirements for streets, parking, and infrastructure
^ The value of federal and state historic tax credits, which are assumed to reduce the debt service
requirement that would otherwise be absorbed by the developer.
^ A terminal value, which assumes the sale of the project at the end of a set holding period,
adjusting for payment of remaining debt service and costs of sale.
The DCF approach looks at all of these factors over amulti-year development period from a
developer's perspective, evaluating the resulting stream of cashflows to identify the balance of
revenues and costs that achieve two alternative minimum rates of return:
^ Unleveraged return of 10%- Assumes a 100% equity investment by the developer
^ Leveraged return of 15% -Factoring in the positive impact of debt service and financial leverage
While the second approach assumes that a minimum rate of return of at least 15% is "feasible", as
every developer's threshold for return and holding period is different, not all developers will agree
with the 15% hurdle rate. In general, ERA experience has shown that renovation projects of this
scale and complexity require developers with patient capital and along-term perspective.
As important, the approach looks at likely public sector infrastructure investment requirements in
relation to resulting fiscal benefits, to clarify the extent to which the public side of the project can be
justified. The essence of this approach is simple; for a project to be "feasible" in practical terms,
both the public and private sides need to be in balance.
Page 1
ERA AECOM
Policy /Planning Assumptions
Key framework assumptions that guided the analysis include:
^ Although the warehouse district project includes a total of four identified phases of future
development, covering both renovation and new construction, the DCF approach focuses entirely
on renovated space, with focused analysis of an identified phase 1 program that includes
apartments, retail space, and office space.
^ The market analysis process identified a small but relevant market opportunity for urban housing
in Dubuque. Considerations relate to market scale (i.e. is it sufficient to keep four warehouse
district property owners satiated?) and depth (i.e. support for a residential element that is 100%
loft style apartments?).
^ Given that every developer has different expectations for return and timing, ERA has assumed
that the project is renovated by one ownership entity, who makes initial investments in the
project, generates operating income and pays debt service over the holding period, and sells the
asset at the end of the holding period; this stream of income is used to calculate the project rate
of return. This is an important assumption, given that there are currently four primary property
owners in the district, each with different costs of capital and investment horizons, and return
expectations. This assumption is based entirely on ERA experience with similar projects.
^ The project will require considerable reinvestment for streets, infrastructure, parking, and
streetscape improvements. Assessments by City Staff and the Cuningham Group identified total
"public" costs of approximately $24 million over three phases, with afirst-phase increment of
about $7 million. The approach assumes that the developer will be unable to internally absorb all
of these costs, meaning that the City of Dubuque will need to find ways to support and justify a
share of these costs.
^ The approach does not specifically factor in the potential impact of recent announcements by
IBM that they will locate a 1,300-position information service center in downtown Dubuque. This
expansion should bode well for the warehouse district, to the extent that necessary public and
private improvements can be made in a timely fashion.
The approach assumes that the federal and state historic tax credits are used in the analysis. The
approach assumes a 20% federal credit and a 25% state credit, with eligible construction costs at
95% of total construction costs. The tax credits are assumed to be syndicated, with the federal
credits converting at $0.90 on the dollar and the state credit at $0.50 on the dollar. Importantly, the
project is dependent on at least two credits, so if the state historic credit is unavailable, other
incentives will need to fill the gap. These include new markets tax credits, low income housing
Page 2
ERA AEGOM
credits, and other HUD loan products which offer credit enhancement. The program does not
include the incremental benefit of the warehouse district being defined as an Iowa Cultural or
Entertainment District, which would justify additional state historic credit support. The project also
does not specifically account for the impact of carbon / brownfield credits /grants. From ERA
experience with other warehouse district projects, all of these incentive approaches may be needed
to round out the project's financial base.
Absorption /Development Phasing
The proposed Phase 1 program includes the following program elements:
^ 202 loft style apartments, assuming an average gross unit size of about 1,400 sq. ft. This is a
gross space factor, and includes living space as well as public space per unit.
^ 92,300 sq. ft. of office and retail space
^ 89 internal parking spaces
Proposed program absorption is estimated at three years, with one year of construction.
Income and Expense Assumptions
All income and expense numbers are current values, and are inflated to future years of occurrence at
an annual rate of 3%:
^ Retail - $10 per sq. ft, less a vacancy allowance of 5%. Operating expenses of $4 per sq. ft. are
assumed.
^ Office - $10 per sq. ft, less a vacancy allowance of 5%. Operating expenses of $4 per sq. ft. are
assumed.
^ Residential: $0.65 per sq. ft on an average 1,400-sq. ft. unit, for a monthly rent of $910, less a
5% vacancy allowance. Operating expenses are assumed at 33% of effective gross revenue, or
approximately $3,500 per unit.
^ No revenue from interior parking is assumed
Project Construction Costs
Preliminary order-of-magnitude construction cost estimates were developed with support from
Cuningham Group, Jeff Morton, city staff, and property owners, based on walk-through's of a sample
of buildings, developer input, and team experience. The preliminary construction cost estimates for
phase 1 include renovations to interior space, building facades and roofs, and below grade parking.
Cost factors, in current 2008 dollars, include:
Page 3
ERA AECOM
^ Building exterior shell renovation: $2.5 million
^ Building roof renovation: $790,100
^ Interior parking: $1,068,000
^ Retail /Office Interior: $9.2 million
^ Residential Interior: $20.2 million
^ Soft costs: 23% of hard costs, or $7.8 million
^ Contingency: 10% of hard costs, or $3.4 million
^ Total phase 1 project costs are estimated at $45.1 million, with annual inflation at 3%.
The program also includes neighborhood infrastructure, streetscape, and public parking
improvements. Cost estimates, in current 2008 dollars, include:
^ Street reconstruction: $3.9 million
^ streetscape improvements: $621,500
^ Phase 1 structured parking: $2.5 million
^ Total phase 1 infrastructure cost of $7.1 million are estimated
The infrastructure element of the project is complicated by the existence of private streets in the
district and existing infrastructure systems that, in some cases, date back before 1900. ERA views
parking is the key variable, with the existing buildings having limited capacity for internal parking,
pointing to the need for additional street parking, as well as parking lots and structures. The extent
of public parking requirements, related costs, and the public sector's share of costs will be
influenced by overall parking policy objectives defined by city council.
Project Financing Scenarios
The approach assumes three tiers of development financing:
^ 100% equity: A simplistic theoretical approach, with the developer investing 100% of project
costs, owning the asset for a set holding period, and selling the property at the end of the
holding period (15 years) using a terminal capitalization rate (8.5%).
^ Traditional debt financing: Atypical market approach, with 25% equity / 75% debt financing,
assuming 8% monthly interest and a 20-year term. The project is developed, maintained over a
set holding period (15 years), and then sold at the end of the holding period, less costs of
outstanding debt and costs of sale, using a terminal capitalization rate (8.5%).
^ Debt financing plus federal and state historic tax credits: This approach follows from above, with
the exception that the project benefits from approximately $13.5 million in federal and state
Page 4
ERA AECOM
historic tax credit equity, which reduces the amount of debt that the developer would have to
cover from operating income, improving the projects rate of return.
Development Implications
The Phase 1 financial analysis yields several significant results:
^ Federal and state historic tax credits are essential for project viability. Based on noted
assumptions, and with both historic tax credits, the project generates an internal rate of return
(IRR) of 15.5% over the 15 year period. While the 15.5% IRR meets ERA's minimum threshold
for feasibility, there are several caveats:
- The majority of the return on investment is on the back side of the project, including the
terminal capitalized value. Also, initial year cash flows are projected to be negative for years
1 through 4, with positive cash flow building from there. Given these realities, patient capital
and along-term perspective are prerequisites for project success.
- Project feasibility is equally dependant on infrastructure improvements, which are discussed
on the next page.
- The retail and office elements are a challenge, in that while downtown rents are in the $8 to
$12 per sq. ft. range, commercial renovation costs are falling in the $120 per sq. ft. range,
which would be comparable to new construction. If market reaction to these elements
proves to be modest, delayed investment could improve near-term project performance.
^ Obviously, since the near-term status of state historic tax credits is uncertain, the development
may need to access alternative tax credit options, including new markets credits, and / or low
income housing credits to sustain the current IRR. Other options include the use of HUD
Section 202 loans, which allow specific projects to benefit from below-market interest rates (6%
versus 8%, for example).
^ Given that the analysis is preliminary in nature (reflected by a contingency of 10%) it is difficult to
precisely define the financial benefits of district energy and other sustainable /energy saving
elements. In principle, these programs offer the potential to reduce operating expenses, either
for the developer (which would enhance rate of return), or the renter (which would enhance
marketability and competitive positioning, offset by a marginal increase in development costs.
However, since the long-term expense of building operation will outweigh one-time costs, these
elements need to be further explored.
^ The approach assumes that revenue and cost inflation at 3%. Developers would need to
assume effective revenue growth at a rate faster than cost growth. Factoring in such a premium
would improve project feasibility. As well, the approach does not assume growth in value at a
Page 5
ERA AECOM
faster rate in the future. Accelerated value growth becomes realistic if the development team
and city agree to a firm upfront investment basis in the project.
^ The approach assumes a conservative three-year absorption period for Phase 1. To the extent
that demand occurs faster than projected, project financial performance would improve.
^ From a retail standpoint, the ability to attract one or more anchor tenants (grocery /restaurants)
or national chains (Starbucks) will be supportive of project feasibility. Anchor tenants will support
smaller adjacent retailers, and national chains will tolerate higher rents compared to locally
owned stores.
^ While the analysis assumes a balanced mix of retail and office use, the project could initially
support a larger share of office and service functions, which in some cases could be supportive
of higher rents.
^ Bank lending for the project will be tied initially to credit worthiness of the development team
(i.e. their ability to commit equity to the project). Also, the presence of credit-worthy retail and
office tenants who can commit to pre-lease a percentage of the commercial spaces will also
impact bank lending capacity. To the extent that banks are unwilling /unable to lend for the
project, additional offsetting gap financing would be required.
^ All rate of return estimates are on a pre-tax basis.
Infrastructure Implications
As noted above, Phase 1 includes a requirement for up to $7 million in infrastructure improvements
for infrastructure, streetscape, and parking. These improvements are an essential element of the
renovation program, and their cost and viability has to be factored into the overall project. To place
the infrastructure improvements in perspective, ERA evaluated likely project fiscal benefits, primarily
property tax payments to local taxing jurisdictions linked to supportable tax increment financing (TIF)
capacity. The approach includes the following assumptions:
^ Current building valuations that range from $3 to $8 per sq. ft. for the majority of existing un-
renovated space, according to assessment records, with an overall average of about $5.77 per
sq. ft. on an inventory of about 1 million sq. ft.
^ An assessed property value "as renovated" that starts at about $40 per sq. ft. in 2008, which is
based on discussions with city staff and the local property assessor regarding achievable
renovated building values. Renovated values are assumed to grow at 3% per year. Assuming
$5.77 per sq. ft. as the base year value, the analysis will use only the growth in increment above
the base value for calculation of supportable TIF proceeds.
Page 6
ERA AECCaM
^ Using the noted phasing plan, the Phase 1 project could result in a renovated inventory of about
401,800 sq. ft. by Year 5, with a renovated value of about $15.9 million. Property tax rates of
34.44676 per $1000 of value, and a commercial rollback of 99.73% are used to estimate
incremental property tax proceeds, allowing for the two year lag between project completion and
tax bill payment. Using these assumptions, the defined phase 1 project could generate
incremental property taxes of about $194,600 by Year 4 of development, and about $547,800 by
year 7 of development, which would be a conservative stabilized occupancy year for Phase 1
from a tax perspective.
^ Assuming stabilized year tax increment of $547,800 in year seven, EFiA estimates that TIF
revenue bond debt of approximately $7.5 million could be supported, which assumes a 2% semi-
annual interest rate and a 20-year bond, with two payments per year.
^ Importantly, the City of Dubuque has already committed capital improvement dollars to the
district, programmed between 2009 and 2013 for improvements to streets, stormwater and
sanitary systems, water main replacement, streetscape, fiber optics, and related improvements.
The total value of public investment currently committed to the project from funding sources
other than TIF is about $4.8 million through 2013.
Overall the fiscal implications of the project appear in line with overall investment. Assuming an
overall project value of about $52.2 million and a potential public share of about $7.1 million, every
dollar of public investment would leverage more than six dollars in private investment, which has
traditionally been a realistic ratio. Considerations include:
^ While Phase 1 public and private shares of investment seem appropriate, public investment
requirements for Phase 2 are more challenging, with about $10 million in improvements
identified, including structured parking - a specific challenge.
^ Although phase 1 includes a modest parking structure, related TIF revenue support for this
element may lag behind a developer's need for these additional spaces. This reality reinforces
the need for a deliberate parking strategy that considers the Warehouse District, the port, and
the downtown area.
^ The proposed Phase 1 project does not include a condominium component, which means that all
program elements will incur property taxes at the lower commercial rollback rate (99.73%). In
future phases, as condominium ownership becomes a more significant reality, there will be a
relevant impact on property tax proceeds due to the significant residential rollback (44.0803%).
^ The TIF approach assumes that all taxing jurisdictions participate in the TIF.
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ERA AEC~M
General & Limiting Conditions
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