Work Session - Bee Branch Watershed Flood Mitigation Project - Blum Copyrighted
J uly 20, 2020
City of Dubuque Work Session - Top # 3.
City Council Meeting
ITEM TITLE: Work Session - Bee Branch Watershed Flood Mitigation Project- Blum
Site Progress Update and Options for Future Redevelopment
SUM MARY: Leisure Services Manager Marie Ware and Project Manager Steve
Sampson-Brown will present an update on the Bee Branch Watershed
Flood Mitigation Project- Blum Site Progress and Options for Future
Redevelopment
SUGGESTED Council Discussion Only. Public Input is not accepted during the work
DISPOSITION: session portion of the meeting.Suggested Disposition:
ATTACHMENTS:
Description Type
Bee Branch Watershed-Blum Site Work Session-MVM City Manager Memo
Memo
Staff inemo Staff Memo
Presentation Supporting Documentation
5-13-19 Council Work Session Powerpoint Supporting Documentation
Presentation Slides
5-28-19 Followup Staff Memo to 5-13-19 Council Work Supporting Documentation
Session
Dubuque
THE CITY OF �
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Bee Branch Watershed Flood Mitigation Project - Blum Site Progress
Update and Options for Future Development
DATE: July 16, 2020
Leisure Services Manager Marie Ware and Project Manager Steve Sampson Brown are
transmitting information for the Work Session on the Bee Branch Watershed Flood
Mitigation Project - Blum Site Progress Update and Options for Future Development.
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Mic ael C. Van Milligen
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Attachment
cc: Crenna Brumwell, City Attorney
Teri Goodmann, Assistant City Manager
Cori Burbach, Assistant City Manager
Marie L. Ware, Leisure Services Manager
Steve Sampson Brown, Project Manager
Dubuque
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TO: Michael C. Van Milligen - City Manager
FROM: Marie L. Ware — Leisure Services Manager
Steve Sampson Brown - Project Manager
SUBJECT: Bee Branch Watershed Flood Mitigation Project - Blum Site Progress
Update and Options for Future Redevelopment
DATE: July 15, 2020
INTRODUCTION:
The purpose of this memorandum is to provide a project status update and discuss
options for future redevelopment at the Bee Branch Flood Mitigation Project - Blum Site
bordered by Elm Street to the west, 15'" Street to the south, 16t" Street to the north, and
the Bee Branch to the east dissected by railroad tracks. This information is provided in
connection to the City Council 2019-2021 Management Agenda Top Priority of Bee
Branch Projects: Next Steps.
BACKGROUND:
In support of the Bee Branch Watershed Flood Mitigation Project, the Blum junk yard
property (Blum Company) was initially purchased to create green space along the creek
section that runs between Sycamore Street and 16th Street. The acquired property was
intended to also accommodate a flood maintenance building that would provide Leisure
Services Department maintenance staff with a convenient and more efficient location to
store equipment used maintain the greenway every day.
City staff along with its design consultants first started looking at site development
concepts for the East Blum Site (east of the railroad tracks) in late 2013 and early 2014.
After several alternatives were developed, it was concluded that having the flood
maintenance building and a public parking lot located on the East Blum Site would leave
little remaining green space for recreational users of the greenway.
Page 1 of 11
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With support from the City Council, Engineering Department staff negotiated a purchase
agreement for the one block sized Blum Junk Yard property located immediately west of
the railroad tracks between 15t" and 16t" Streets (West Blum Site). The purchase
agreement for the West Blum site was fully executed in June of 2014. The intent of
acquiring the West Blum Site was to allow the flood maintenance building, public
parking lot and public restrooms to be relocated onto this city block, thus leaving all of
the East Blum Site to be redeveloped for recreational use by the public.
In order to offset some of the costs associated with redeveloping the former east and
west junk yard sites which contained expected contaminates such as asbestos, heavy
metals including lead, arsenic, and mercury, and polycyclic aromatic hydrocarbon (PAH)
compounds which are typically from petroleum residuals, the City applied for and
received a series of three individual United States Environmental Protection Agency
(EPA) Brownfield Clean-Up grants. The East Blum Site EPA Clean-Up Grant was the
first grant awarded in the amount of$200,000 which started in October 2016. The East
Site currently has two small maintenance buildings of marginal quality on it that will
have to be deconstructed as part of any redevelopment effort.
Page 2 of 11
At the time the West Blum Site was acquired, the City was aware that West Blum was
more heavily contaminated than the East Blum. The City was also uncertain if it would
be able to be awarded additional US EPA Clean-Up grants at the time of acquisition. In
order to protect the City from potentially elevated site redevelopment costs caused by
the presence of contamination, a clause was negotiated into the Purchase Agreement
that delayed the payment of $400,000 of the purchase price. The Agreement between
the City and Mr. Blum stated the City would apply for grants that would pay to address
the contaminates on the site. If the amount of all the received grants did not cover the
total cost of environmental clean-up cost, the City would pay 50% of the additional cost
and Mr. Blum would pay 50% of the additional cost until all of the $400,000 of reserved
payment was expended. As of today, the City has received two (2) US EPA Brownfield
Clean-Up grants for the West Blum Site with a total value of$400,000. These grants
started in 2017 and 2018 and will continue through September of 2021. The West Site
currently has two larger, older brick warehouse type buildings located on it. The
building along 15t" Street has been determined to be structurally deficient and needs to
be deconstructed. The four-story building along Elm Street is in good condition and has
the potential to be preserved and redeveloped.
As a prerequisite to being able to apply for each of the three brownfields grants, the City
was required to hold a public information meeting and solicit input on how the site
should be redeveloped. Additionally, each USEPA brownfield grant required the City to
conduct a community engagement effort that also focused on soliciting input for
potential redevelopment options for both the East and West Blum Sites. To fulfill this
requirement, the Engineering Department collaborated with the Leisure Services
Department and project landscape architect Saiki Design of Madison, Wisconsin to
develop several redevelopment alternatives that could be displayed to spur
conversation and feedback from the public.
The City gathered feedback from September to December 2017 from residents on what
types of activities and equipment that they thought would best serve the community as
part of the future recreational space. The public was asked to vote for their three
favorite concepts from a list of twelve options and/or submit their ideas. Through a
combination of events, paper ballots, and online forms, the City received almost 600
responses. The Engineering Department featured the various Blum Site redevelopment
concepts at two consecutive City Expo events which provided a great opportunity to
have meaningful conversation with interested residents.
The Engineering and Leisure Services Departments along with the Public Information
Office in the Fall of 2018 also coordinated a community art project for the site by asking
neighborhood residents to draw a self portrait, your favorite thing, or your favorite place
in your neighborhood. The submitted art was arranged on vinyl banners and the
banners where then hung on the fence of the West Blum Site. The art project
culminated with a public banner unveiling in June of 2019 hosted by the City Council.
This event provided another opportunity to receive direct feedback Dubuque's residents
about their future vision for the east and west sites. The reactions to the banner art
project have been positive ever since the banners were revealed.
Page 3 of 11
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During the public engagement sessions mentioned above several consistent desires of
the public evolved which included:
• Outdoor recreational opportunities with convenient connection to the creek and
basin for water-based activities such as fishing and kayaking.
• A gathering place for group activities planned along the greenway. This evolved
into discussion of a bike trailhead.
• Fun, large, natural type play feature that offers a unique play experience along
with climbing opportunities, and a bike and scooter playground.
• The possibility of outdoor exercise space and equipment.
• A sheltered area that could offer shade, cover from the elements, and be used to
support family and group gatherings.
• Convenient access to public restrooms.
• Year-round indoor public gathering and activity space that can be utilized by all
residents.
• Enough parking to support the activities mentioned above.
Page 4 of 11
In December of 2019, Mr. Blum approached the City and offered to voluntarily
renegotiate the terms of his purchase agreement for the West Blum Site so that none of
the $400,000 reserved payment (explained above) would be returned to him. Mr. Blum
stated that he believed in the future vision being explored for the Blum Site which had it
being converted into full community use and that he wanted to support that effort. While
the contamination clean-up is still underway as of today, it is estimated that the total
clean-up cost will be in the range of$700,000, which is $300,000 more than the grant
funds will pay for. Keeping in mind the City pays 50% of the cost overrun and Mr. Blum
pays 50% of the cost overrun, is would have resulted in Mr. Blum paying $150,000
toward the clean-up and being returned approximately $250,000 of the initially reserved
real estate payment of$400,000. The agreement approved by the City Council in
December 2019 allowed the donated funds to the City "to be used to redevelop the
property as determined by the City in its discretion."
DISCUSSION:
As a result of working with the project's landscape architect Saiki Design and building
architect and site civil engineer IIW Engineers & Architects of Dubuque, city staff have
developed a range of possibilities for consideration in order to determine a formal
direction and level of build out for the East and West Blum Sites. The options are
outlined below.
Option 1 — Site Cleanup (Grant Required Minimum):
The City is obligated through the current two active USEPA clean-up grants on the West
Blum Site to remediate the existing contamination on site and to enroll the site in the
lowa Department of Natural Resources Land Recycling Program. The minimum
standards for the IDNR Land Recycling Program are to mitigate any potential for
contamination to leave the site or to expose the public to the contamination. This can
be minimally accomplished by placing a 6" layer of gravel over the whole site and leave
the existing site fence in place. The East Blum Site would remain in it's current state
which includes an abandoned building foundation slab in poor condition, a 2-bay service
garage currently used for storing and servicing maintenance equipment by the Parks
Division and a medium sized, light industrial, steel sided building that is in poor
condition but currently being used for storage of Parks Division equipment and park
furniture.
There are many negatives associated with this option including leaving blighted
buildings in place over the long term, increased ongoing operating budget maintenance
costs for both the Leisure Services and Engineering Departments related to the
deteriorated conditions of the existing building and perimeter fence, and maintaining
public safety also related to the deteriorated buildings and fence conditions. This
option does not provide for a needed Parks Division Maintenance Facility that can
efficiently support maintenance activities along the Bee Branch Greenway. The positive
related to this option is it has the lowest possible up-front capital cost.
Page 5 of 11
The estimated capital cost associated with this option beyond the expenditures required
by the brownfield grants is in the range of$200,000 to $250,000 plus the ongoing
operating budget maintenance costs.
Option 2 — Site Cleanup and Clearinq, Structure Deconstruction and Site
Stabilization:
This option would provide for the deconstruction of the two existing brick buildings and
complete removal of the perimeter site fence on the West Blum Site. On the East Blum
Site, the light industrial, steel sided building and abandoned foundation slab would be
removed. As part of the work on the West Blum Site, the soil contamination would be
capped with at 2-foot-thick layer of topsoil that could be either seeded with turf grass or
planted with prairie grass and wildflowers.
The positives related to this option would be that the East and West Sites would no
longer remain in a blighted condition and the safety and on-going maintenance costs
discussed in Option 1 would be mostly eliminated. The negatives associated with this
option include leaving a key location in one of Dubuque's most densely populated
neighborhoods underdeveloped and of minimal value to residents. There are limited flat
open spaces in this neighborhood. During the public engagement sessions, some
neighborhood residents living west and south of the Blum Site expressed a desire to
have more natural play space closer to their homes for small children to easily access.
This option does not provide for a needed Parks Division Maintenance Facility that can
efficiently support maintenance activities along the Bee Branch Greenway.
The estimated capital cost associated with this option is in the range of$400,000 to
$500,000.
Option 3 — Buildinq and Structure Deconstruction and Addition of a Park Division
Maintenance Facility with Public Parkinq and Public Restrooms:
Option 3 represents the current approved scope of work as describe in the Bee Branch
Watershed Flood Mitigation Project multi-phased master plan and reflected in the City's
current five-year capital budget plan. After all of the brownfield cleanup work is
completed and the all of the buildings currently standing on the East and West Blum
Sites are deconstructed, a new maintenance facility will be constructed to store parks
maintenance equipment and provide work space for city employees assigned to
maintaining the Bee Branch Creek Greenway. In addition to the maintenance facility,
the current plan includes redeveloping the remainder of the East and West Blum Sites
into recreational space adjacent to the creek along with constructing public restrooms.
It is planned that a final public engagement phase will be conducted to determine which
type of recreational amenities can be afforded as part of the project.
The positives of this option include that a more efficient and properly sized maintenance
facility will be constructed to support maintenance operations of the Bee Branch
Greenway and downtown parks and green spaces. This option also fully removes all
blighted aspects of the east and west sites and provides some value to residents
because the build out of the space will include some minimal recreational features. The
Page 6 of 11
negative aspects of this option are that the residents of the abutting neighborhood and
the Recreation Division of the Leisure Services Department will still lack adequately
sized indoor space in the North End and Point areas to support a more varied offering of
programmed activities and events. Indoor recreation related space was also identified
in Imagine Dubuque by our community. The public, outdoor recreational amenities that
will be constructed as part of this project will be limited due to budget constraints with
this option.
The estimated capital cost associated with this option is in the range of$3,250,000 to
$3,750,000. The funding for this project is currently scheduled to be available in FY28
with funding from the State Flood Mitigation Program. The timing of these
improvements could be impacted by the economic uncertainty caused by the COVID-19
pandemic.
Option 4 —Relocation of the Leisure Services Department Office from Bunker Hill
to the West Blum Site as a Leisure Services Communitv Hub (civic commons),
Construction of Parks Division Maintenance Facility and Buildinq and Park
Development:
Option 4 is the same concept that was previously presented to the City Council at the
May 13, 2019 work session and can be viewed at:
http://cityofdubuque.granicus.com/MediaPlayer.php?view id=3&clip id=3237
(see attached 2019 presentation). It includes redevelopment improvements in three
distinct locations all building on the prioritized input of residents collected during the
previously mentioned public engagement sessions. It also includes enhancements
provided by the Leisure Services Department that will eliminate current barriers to
delivering impactful programs and services that help people of all ages and from all
parts of our community.
In order to understand why city staff looked at the relocation of the Leisure Services
Department Office to this location it is important to begin with the City Council's 2034
Dubuque Vision Statement which says:
"Dubuque 2034 is a sustainable and resilient city and an inclusive and
equitable community. Dubuque 2034 has preserved our Masterpiece on
the Mississippi, has a strong diverse economy and expanding
connectivity. Our residents experience healthy living and active lifestyles;
have choices of quality, livable neighborhoods; have an abundance of fun
things to do; and are engaged in the community."
The vision of the city council is embraced by all city staff and we strive to move the
community and organization in that direction through our projects and actions. The
vision statement for our city has many meaningful words including sustainable, resilient,
inclusive, and equitable. These words in the City's vision statement form the basis of a
just cause for our community and employees. Author Simon Sinek defines a just cause
as a specific vision of a future state that is so appealing that people are willing to make
sacrifices in order to help advance toward that vision. Considering the recent events in
Page 7 of 11
our country that have brought a renewed focus on eliminating racism and bias, the
words inclusive and equitable have taken on additional importance. The American
values of inclusiveness and equity are not new to us. In 1963 Doctor Martin Luther King
Jr. spoke the famous words "I have a dream that my four little children will one day live
in a nation where they will not be judged by the color of their skin, but by the content of
their character."
The reality of a vision that includes an inclusive and equitable community is one in
which we will never fully achieve complete victory. There is no single day in the future
of Dubuque in which we will say we have eliminated all racism, everywhere. Instead to
properly frame this challenge we must adopt an infinite mindset, one where we
continuously advance toward the just cause of inclusiveness and equity. Here in
Dubuque, we must work hard everyday with purposeful action if we want to achieve the
City Council vision by 2034.
The components of Option 4 represent the best practices developed through almost two
years of discussion with key leaders from the City's Human Rights, Health Services,
Planning, Leisure Services and Engineering Departments, Public Information Office,
and the City Managers Office to advance the cause equity and inclusion within our city.
It leverages best in class expertise of the staff who work in these departments. Option 4
represents ideas that build collective impact within our downtown and north end
neighborhoods. It does not compete with other nonprofit agencies serving residents but
instead expands activities, services, and support that they do not provide.
During the May 2019 city council work session presentation, the idea of redeveloping
the Blum Site and relocating the Leisure Services Offices there was framed as what
author Jim Collins would call a "BHAG" or Big Hairy Audacious Goal. It was framed this
way because moving the needle and making real improvements to equity and inclusion
within our community, to create a place that purposely brings people together from
diverse racial and economic backgrounds so they get to know and learn from one and
other is novel. Questions were asked during the work session about data supporting
this concept to better understand if physical structures and programming can make a
difference, and it was specifically asked to "share the study information which speaks to
race relations and teenage arrest rate improvements by way of community center
installation". A memo from Leisure Service Manager Marie Ware to the Mayor and City
Council dated May 28, 2019 is attached to this agenda item for review. This memo
addresses this question and provides other supporting information.
Is it possible for architectural place design to actually help bring people together and
build trust? The answer is yes if done correctly. The best example of this is the
Reimagining the Civic Commons Project funded by the Knight, Kresge, William Penn,
and JPB Foundations. A civic commons is where paths cross with people of all
backgrounds, where social capital is multiplied, trust is cultivated and empathy for
others is bolstered. To counter the trends of increasing economic segregation, social
isolation and distrust, the Civic Commons Project is a collaboration of national
foundations and local civic leaders that are reimagining civic assets as a solution. Their
Page 8 of 11
stated goal is to transform shared civic assets to foster engagement, equity and
environmental sustainability and economic development in cities across the country.
The Blum site can become the next Civic Commons Project.
If the stated goal of the city council is to build inclusion and equity within our community
which directly supports the goal to eliminate racism, it can only be done by first building
trust between those who have and those who don't. Once trust exists, pathways to
better heath care, education, and economic development opportunities can be
accessed by those in need. This is a big and bold initiative, and if we want to make
measurable positive impacts in the near future, we need a strategy that will involve
some risk. Much of the risk associated with this project can be mitigated though quality
master planning and adopting a phased approach to building out the proposed
components of Option 4. Oklahoma based Life Church founder and senior pastor
Craig Groeschel talks instead about an "SBAG" which is the more appropriate acronym
for this project. SBAG stands for Stretching But Achievable Goal. A phased approach
to Option 4 will provide the City with achievable goals that staff can deliver on.
The West Blum Site is envisioned to be the new home of the Leisure Services
Department by renovating and expanding the existing four-story building located along
Elm Street. Three of the four floors will be arranged in a way that they are open to the
public for a variety of uses, both formal and casual. This includes creating several
different sized activity rooms on the third and fourth floors that will support a wide range
of programmed activities and be available to be rented by Dubuque residents for private
events. The home office of the Leisure Services Department will be located on the
second level which will help initiate and increase daily interaction with neighbors,
residents and building visitors which in turn begins to build trust through building
personal relationships.
This option builds upon one of our models that is proving very successful at the
Multicultural Family Center. The day-to-day contact with youth, teens and families leads
to increased understanding of needs. They are creating opportunities for youth and
teens to experience enrichment activities. This is accomplished through both
relationship building as well as mentoring. This option would allow a replication of
success and expansion into another neighborhood area of the city that is our most
diverse.
A new Parks Division Flood Maintenance Facility will be constructed by adding a one-
story addition to the south of the main building. The second brick building on the site
adjacent to the railroad tracks will be deconstructed due to its poor structural condition.
The remaining outdoor space will be mostly hard surfaced and constructed to facilitate
flexible use including sporting events such as basketball and parking spaces to support
larger events at this location. This hard-surfacing caps the brownfield site with
community, recreational type amenities. Similar remediation strategies used in the Port
of Dubuque has resulted in the creation of top-quality public space. It is also envisioned
that the outdoor space will contain informal seating areas, shaded venues that allow
scheduled programs to proceed even during inclement weather, and other possibilities
Page 9 of 11
such as a stage for performance arts and music events or raised gardens that can
facilitate healthy eating and cooking programs.
The East Blum Site is planned to be all green space which offers several types of
unique active play options and informal gathering spaces which can be used to enjoy
the creek and observe its natural habitat. An overlook that supports medium sized
group gatherings and also provides shade and protection from inclement weather has
been discussed as a potential feature. This location has also been discussed as having
the potential to be a trailhead gathering point where family and friends can meet to
prepare for a ride on many of the multi-use trails that are connected to the greenway.
This trailhead would connect directly to the Heritage Trail by heading north and then on
west to Dyersville.
The "Sycamore Triangle" area is a small area just east of the Sycamore Street Bridge
and on the south side of the Bee Branch Channel. This location has been identified as
the best place to construct amenities that support water based, recreational activities
such as fishing and kayaking. Concepts developed for this location include a drop-off
area and connected boat ramp which can be used by the public and is needed by the
Parks Division to have a place to launch their boat so that they can perForm creek
cleaning and maintenance activities. Kayaking and canoeing have increased
tremendously in popularity as a recreational activity during the COVID-19 pandemic. A
smaller sized storage building is planned that can store recreational equipment such as
fishing poles, kayaks or canoes, and possibly support environmental science based
programs similar to the fresh water mussels that the Mississippi River Museum released
this summer while partnering with St. Mark Youth Enrichment and the Dubuque
Community School District.
The redevelopment of the Blum Site can be best accomplished by breaking the scope of
work up into multiple phases. By having multiple phases, each part of the project can
be customized to ensure that they remain affordable as was done the with $237 million
Bee Branch Watershed Flood Mitigation Project.
A phased approach to redevelopment has two primary benefits. First it provides staff
with an opportunity to break the project up into parts that become highly competitive for
available grants. Secondly, the project can also be structured so that through the
America's River III campaign, the City is able to invite the community to invest and
become a part of the vision for this project. By investing through donated funds, donors
will be investing in the outcome and future of our community. Most importantly, through
donations a strong message is sent to those who end up using the redeveloped facility
that they are cared for and valued by their fellow community members. AI Blum has
already invested because he believes in the vision, the just cause, and it is anticipated
that others will too.
As discussed above each of the three primary locations — West Blum, East Blum, and
Sycamore Triangle will likely end up having multiple phases to ensure project
affordability. The final budget for each location will vary depending on the final selected
Page 10 of 11
project scope. Based on the project components described above and presented at the
May 2019 work session the following capital budgets have been developed for each
location.
West Blum Site: $5,000,000 - $7,000,000
East Blum Site: $1,900,000 - $2,400,000
Sycamore Triangle: $350,000 - $500,000
With both Option 3 and 4 city staff will always be looking for any grant availability to help
achieve the final approved plans.
ACTION STEP
Three EPA Brownfield grants have been received to aid in the cleanup of the East and
West Blum land. Citizen input has been gathered and incorporated into concepts for
the facility with each one being refined through the community input processes.
Banners were designed and revealed that now cover the fence at the site. Currently
there is funding in the five-year Capital Improvement budget for Option 3. Options 1
and 2 are shown should financing become a concern or outcome of a future financial
crunch become a reality. Option 4 was presented prior to the Council in May 2019.
This work session is to provide a project status update and discuss options for future
redevelopment and allow the City Council to ask any questions of any of the options
presented. This information is provided related to the City Council 2019-2021
Management Agenda Top Priority of Bee Branch Projects: Next Steps.
CC: Gus Psihoyos, City Engineer
Deron Meuhring, Civil Engineer
Kristen Hill, Bee Branch Project Communication Specialist
Steve Fehsal, Park Division Manager
Dan Kroger, Recreation Division Manager
Heather Satterly, AmeriCorps Director
Jacqueline Hunter, Multicultural Family Center Director
Attachments
Page 11 of 11
Bee Branch - Blum Presentation
7-20-20
SLIDE 1:
Steve Sampson Brown – Project Manager with the City’s Engineering Department.
Good evening mayor and city council members. I’d like to thank you for giving
myself and Marie Ware the time tonight to provide you with a progress update on
the project. Also, in terms of the of the presentation tonight – as part of the 2019-
2021 Management Agenda the “Bee Branch Projects: Next Steps” was identified
as a Top Priority which is why we are here providing some future redevelopment
options.
Before we get started, I’d like to clarify a few items.
First, we are trying to present about 60 minutes of content in the next 15 to 20
minutes. To do that we have provided a memo that goes along with tonight’s
presentation which fully covers all aspects of the project in greater detail. For
tonight we plan to use our time to provide you with a brief history and summary,
and then Marie will talk in more detail about the future redevelopment options.
The second item I would like to clarify is that this is not a request to spend $10
million dollars in the next few years.
If you think of the 230 plus million dollars budgeted for the many phases the Bee
Branch Watershed Project, to date 163 million dollars in grant funding has been
secured covering 68% of the total project cost. As staff we fully expect that the
$10 million dollar project budget that goes along with one of the options = Option 4
would be measurably reduced through grants and considering the potential to
allow donations in support of building out that option.
I’d also like to point out that city staff is envisioning that regardless of what future
vision is selected for this site, it will likely come into reality following more of a
campus master plan concept that could possibly end up unfolding over many years
so that parts of the project can be best grouped to make it highly competitive for
grant applications and ensure that they remain affordable.
Tonight’s discussion will focus on the start of finalizing the future vision & direction
for this location. The vision needs to come first, the plan which is the strategy to
achieve the vision will then come after. Or put another way, a mountain climber
must select their next mountain to climb before they plan their route to ascend the
mountain.
Lastly, as the presentation memo discusses – why are we as staff even talking
about an option similar to Option 4 that Marie will cover in a few moments? Option
4 evolved out of collaborative discussions among city departments who were
looking to ways to bring the words of your 2034 vision statement into reality.
We are here tonight in support of your vision statement, with an idea for you to
consider that will help Dubuque become a more inclusive and equitable
community.
Trust and respect which are the precursors to equity and inclusion do not happen
by watching a YouTube video, by posting things to social media, or by sitting at
home. They happen by getting out and getting to know your neighbors and
interacting with them.
1
SLIDE 2:
Tonight we are going to discuss the 3 areas that consist of the Blum Site,
The West site is located between the railroad tracks & Elm Street and between
thth
15 Street and 16 Street.
The East site is located just east of the railroad tracks and runs along the
southern edge of the lower bee branch channel.
And what we refer to as the Sycamore Triangle is located just east of Sycamore
Street also along the southern edge of the bee branch channel.
SLIDE 3:
One of the biggest advantages of the Blum Site is that it is centrally located along
the bee branch greenway and adjacent to many destinations frequented by the
public.
With the completion of the bike trail under the Canadian Pacific railroad tracks
late next spring, the Blum Site will then easily connect with the upper portion of
the greenway.
SLIDE 4:
As you can see from this slide, the upper bee branch is also adjacent to many
public destinations.
SLIDE 5:
In terms of how we arrived at tonight’s presentation, there is a detailed timeline
described in the memo that goes along with this presentation so as part of the
presentation, I’ll just briefly touch on the key points.
The key points in the history of this project include:
1) The properties consisting of the East Blum site were all acquired by February
2013 for the purpose of a flood maintenance facility, storm shelter, and public
restrooms.
2) The purchase agreement for the West Blum site was formally approved in May
2014. By purchasing the West Blum site, we were able to relocate the planned
maintenance facility and public parking area to this location. In turn this
measurably enhanced the amount of space that could be redeveloped for
recreational use by the public.
The City so far has received 3 brownfield clean-up grants from the United States
Environmental Protection Agency to assist with cleaning up the contamination on
the East and West Sites.
We received $200,000 for the East Side which that site is now remediated and
the grant has been completed.
We received $400,000 for the West Side and that work is about 40% complete
currently and will be fully completed by September 2021.
2
Once the City became owners of the East and West sites, city staff and our
engineering consultants completed a structural condition assessment for each of
the existing buildings.
SLIDE 6:
Buildings 1 & 2 are located on the West Blum site. Building 1 is currently
completely empty on the inside and in solid structural condition but would need to
have some work done on the building envelope if we wanted to consider keeping
it over the long term.
Building 2 is currently in poor structural condition and it is planned that it will be
deconstructed during the EPA brownfield grant work.
Buildings 3 & 4 are the only remaining buildings located on the East Blum site.
Building 3 is a residential garage type structure which was temporarily
repurposed after the completion of the lower bee branch project to provide a
small storage area for the Parks Division.
Building 4 is an older, steel sided building and the Parks Division is temporarily
using it to store their heavy equipment and for winter storage of park amenities
such as picnic tables and benches.
Since these were left over buildings and not positioned properly on the site, it
planned for them to be deconstructed once redevelopment starts.
NOW I’D LIKE TO HAND THE PRESENTATION OVER TO MARIE.
Community Engagement Slide
Thanks Steve. This is Marie Ware, Leisure Services Manager. The three EPA grants
each required community engagement of what to do with the Blum site once cleaned
up. The input received via City Expo, on-line surveys, the Banner reveal event, and
other input opportunities led to the creation of concepts that continued to evolve with the
community input given during each successive grant.
Community Engagement – Imagine Dubuque
The Imagine Dubuque Comprehensive plan feedback received from our citizens in the
Social Cultural Vibrancy section resulted in a recommendation to “initiate a feasibility
evaluation for a community center…with an eye towards creating a multi-generational
and central community gathering place that supports health, wellness and social
interaction among residents.” Many successful community centers have both
indoor/building and outdoor park/trail components.
2034 Vision
The city council sets the vision of where we need to be headed to by 2034. The
elements Options 1-4 meet varying degrees of the vision. Option 1 meets sustainability
and livable neighborhood while option 4 meets all the elements shown in blue on the
slide. Bee Branch has been a part of the City Council goals for many years and it is still
a Management top priority of Bee Branch Projects: Next Steps. Next steps are where
we are at with this project site.
3
Area of Opportunity – Poverty
As we look at planning, we look at the question of “What does the data tell us?” We
know within the walking distance of the Blum project site that there is a concentration of
persons in poverty, especially racial and ethnic concentrations of poverty.
Areas of Opportunity – Youth Development
Recreation and park services are critical to the development of youth. If you think of
play when you were a child you know that play helps you establish your identity—who
you are; you establish autonomy, you achieve in play, you learn right from wrong, learn
leadership and problem solving skills and just think of your fondest memories of kids
you used to play with and those close relationships you developed. It always brings a
smile to your face.
Areas of Opportunity – 6000 hours
th
By 6 grade upper- and middle-class students have spent 6000 more hours of learning
than do children in poverty. Enrichment programs introduce children to engaging
activities, caring adults, new experiences that they otherwise might not have had.
Jackie Hunter, the Multicultural Family Center Director has given me the best
perspective to consider. Often times we think of these children coming with a deficit
that we need to address or fix but instead we need to think of it that they have never
been given the opportunity and we need to provide the opportunities. We need to be
there for them and walk side by side with them as a constant in their lives. We can be
more of an active part of that 6000-hour deficit!
Community Center
In an earlier slide I mentioned that the community through Imagine Dubuque imagined a
community center where you get to know your neighbors. A community center is not a
recreation center. A community center can be a building where programs can happen
and has places for interaction where you get to know the neighbors and kids. Mentoring
happens, leadership happens. The current model for Leisure Services is sign up for a
program and come for one time and do a specific program or a come for 4 weeks once
a week model. This gives enrichment activities to children but does not create
relationships. Community centers are based upon relationships. They are active and
safe places to explore what it is you would like to learn or try and see if you might like it.
That type of programming needs to be in an accessible location in areas of our
community where the neighbors of the center can benefit the most.
Areas of Opportunity
From the early days of the council’s focus on equity I have talked with the city manager
about the location of the office as a challenge to meeting our equity goals. To change
the Leisure Services model from come to where we have programs and available space
to being a part of a neighborhood is a major shift. The current site of our offices is in the
middle of a golf course in a more affluent neighborhood with no sidewalks to get there
and almost ½ mile from a bus stop which really is uphill both ways. The Blum site is
within a neighborhood that could benefit even more from our services and location
change and assist us in achieving the equity efforts we continue to strive to build upon.
4
Location
Over 5100 addresses are within ½ mile of the site. The walkability/bike ability of this
neighborhood is one of its strongest elements. Comiskey Park is close by and does
have an indoor building. It is small, about 1600 square feet and cannot be expanded.
Input during the Re-imagine Comiskey engagement was the desire for more indoor
activities in the Comiskey Center. We are currently evaluating that as an opportunity for
the neighborhood.
Bring People Together
Can the design of a place bring people together and build trust? The answer is yes.
The JPB Foundation, Knight Foundation, The Kresge Foundation and The Rockefeller
Foundation collaborated with five cities and a network of local partners. Revitalization
and connection of civic assets to produce increased and more equitable shared
prosperity. As you recall from the first slides Steve showed not only do we have
Comiskey Park, Bee Branch Greenway, the trail system and the Blum site which
creates a Civic Commons, we also have many connections in this neighborhood like
Crescent Community Health located right next to the Bee Branch. The Civic Commons
approach is a data driven approach.
Stretching but Achievable Goal
Creating a place that brings people together. I am a firm believer in relationships. Each
of our neighborhoods has different needs. In the Washington and North-end
neighborhood we know we have diverse racial and economic backgrounds. We can
learn from each other. All the persons in those neighborhoods have things they can
teach us, but you do not create relationships by dropping in and doing rec programming
and leaving until the next one. We come in and do lots of programming in the summer
using the parks in the area. We are short on indoor places to do that programming. We
know from our work at the Multicultural Family Center, which is a community center, if
we build it, they will come, and they are. Teens are a tough nut to crack and yet
because of the relationships and getting to know one another and learning from each
other that programming has continued to grow. The teens prior to COVID were coming
to hang out at the center and we look forward to them returning. This rebuilding has
begun this summer out of Prescott Resource Center. We have a model that we know
works.
The Concept
There are pieces of each option shown in these conceptual drawings. Again, these
concepts were driven by the input received and voting done by our community. The
concepts are just that, concepts. They have not been fully fleshed out, but they do give
the viewer an idea of what the input is telling us.
Entire Site
As Steve shared earlier we have the area we call the Sycamore triangle (East of
Sycamore Street), East Blum (east of the railroad tracks) and West Blum (west of the
railroad tracks) that make up the site.
5
West Blum
One of the components you see in this and the next slide is hard surface spaces for
parking and basketball courts. Part of the cleanup is capping the site. That can be
done with removal of contaminated soil and/or addition of inches of clean soil or it can
also be done with hard surfacing like parking lots and basketball courts.
The red brick looking building is the current building along Elm Street and in option 4 it
is renovated for not just the offices but in addition there are two levels of programming
space that can also be available to the neighborhood. A barrier is established along the
railroad for safety.
West Blum
The idea of gathering in this area and places to just feel comfortable to be has been
incorporated along with shade. Numerous places for this type of drop by areas were
incorporated. Parents get to know each other as their children play or family and other
groups meet and enjoy spaces together.
East Blum
The area features a large flat grassy area and nature themed play area. Both were
highly scored elements in the input received. This area would also be a trailhead that
connects Bee Branch through the north-end trail to the Heritage Trail to Dyersville.
Once the underpass under the railroad is complete you will be able to be off road and
on a recreational trail the entire way from Dubuque to Dyersville. It will become a
popular starting/ending trailhead.
East Blum
A covered pavilion and restrooms are envisioned that interacts with the water and is
near the play area. We have no rentable pavilions in this neighborhood which is an
equity issue. For the summer programming the pavilion would then have a protected
space and programs could continue on rainy days vs telling children they would have to
go home due to weather.
Sycamore Triangle
This triangle does not lend itself to economic development of the triangle, but it does for
recreational purpose. We continue to have feedback from the community of their need
and desire for canoe and kayak facilities. During COVID individual activities like these
have grown exponentially in popularity.
Sycamore Triangle
The support services and parking are critical to use of the water. They can also act as
areas for parking for fishing as well as bird viewing. It also has a connection to the solar
field.
Parks Bee Branch Maintenance Facility
From the earliest planning of the Bee Branch, its care and maintenance have been
prioritized to ensure the investment is protected. A 2-bay building structure was moved
in one of the earliest parts of the project and it continues to be the maintenance facility
6
today. As the Bee Branch has been developed and phases come on-line, the
equipment and personnel needed to maintain it has grown.
Programming
Most important is the programming. Programming facilitates the way we connect with
people and the way they connect with the outdoors. This project can be more open
park space and that would serve one need-Option 1 as open park area. What can be
envisioned by the Council’s mission is the opportunities I referred to earlier. The
opportunity to connect youth and families in enrichment activities—things they have
never experienced before. The opportunity is to influence the 6000-hour gap in a
neighborhood. This becomes possible in Option 4.
Blum Site Options
As laid out in the beginning of the presentation we laid out four options. Within the
options 1-4 there are many variations that could be contemplated. For example, one
could do option 3 and pick and choose from elements that are shown in the conceptual
plans based on community feedback to create a new option 4. There would need to be
preservation efforts done during the years it is not renovated to ensure the building on
Elm Street continues to be a viable building site for the future. To consider option 4 or
any new version of option 4 one would want to do a true master plan. As you are aware
master plans like the ones done for Bee Branch and Eagle Point Park and even the Port
of Dubuque have been the critical in securing grant funds that allow the City to assist in
paying for projects. It is important to remember that even with option 3 the funding
budgeted is in FY 2028 so we are years away from that next step.
Bee Branch Water Element and Questions
The Civic Commons project shared “More than places to gather and recreate, our civic
assets are key to nurturing engagement, equity, sustainability and economic residency
in our cities.” The built environment can become a place of engagement. We show you
here an element of the Bee Branch. As a planning group we talked about how we
wanted to build it for people to interact with it in the ways they wanted. Everyone loves
playing in the water. This is the type of build environment (or civic commons) we are
talking about throughout the presentation. It is a mesh of indoor and outdoor spaces.
Watch as the slides roll the people, the variety of people, how they interact with each
other and how they interact with water.
(Click again and wait for the slides to roll through!)
Thank you for allowing us to update you on the Bee Branch Blum site as our last update
was in May of 2019 and we have numerous new council persons since that time. With
that we will take any questions you might have.
7
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• Location for a maintenance facility, storm shelter, and public restrooms
• Purchase of West Blum Site
• Need for more green space especially flat space
• Three EPA Brownfields Cleanup Grants - $600,000 ($200,000 each)
• Cleanup and cap contaminated soil, abatement in buildings
• Condition assessment of structures on site
• Preservation of the building along Elm Street
• Redevelopment opportunity for future use
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Option 1: SiteCleanup — grantrequired minimum
Option 2: Site Cleanup and Clearing - Structure Deconstruction and
Site Stabilization
Option 3: Bu i Id i ng a nd Structu re Deconstruction a nd Add ition of Bee
Branch Maintenance Facility
• Currently Programmed for FY28
Option 4: Relocation of the Leisure Services Department Office to the
West Blum Site and Parks Division Bee Branch Maintenance Facility
and Park Area Development
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IMAGINE
• DU BUC� U E
.
SOCIAL + CU LTU RAL VI BRANCY �• •
RECOMMENDATIONS RPsj�Pnt n���►tP�
"Dubuque needs a better Community
� �� ��� � � � �
Recreation ' '� " ' ��'`� ��� Center/Leisure Services. Our Leisure Services
�r# ��r *r.���. �c,�.;ti,t: �� �� ,�
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��. . �� � . r��,���,� Y Department does well with what they have
������x��`���� ��'`�`� ���$ but their facilities are limited. In my vision
Initiate a feasibility evaluation for a �=�-������ �`� ���,�� ' �
ff� � "¢������ ���. of Dubuque we would have a Community
Community Center, potentially including r � {� � ` • ����`;x��`°�� ��°� '/
�#a����,, �'����k� *�'w���� �����}• Center with classes for children outh and
�F,���y"t- - i„1-�I � � �#11SIR�r' ,�� / J' /
.l'` ._ .. �+111K�15i.1i+. - �, �i ._ ���
indoor recreation and indoor/outdoor ��� �r�=� ,�
����_' �k�����$�y ' ���,�� adults.....like gymnastics, tumbling, pottery,
�'• a�lhl� ��� �.w,•r' ��',�'��%;
aquatic facilities, with an eye towards l � exercise classes, conversational language
creating a multi-generational and central . .� -��� ,-���r���,���:f� ��� classes.... Other communities where 1 have
`���--� � � � �� �;��°"''�':.:a� �.
r. � ,rye4�� � .' �;,x.�'�" A,y� .
community gathering place that � �� {_�-.;w,��%���� ;. . .�� lived have these kinds of activities for
�����-� �*�� o� 4 �'"r,���� people of all ages. Our Leisure Services have
supports health, wellness, and social � � ,.,,.,- � ��� ;
interaction among residents. � �r �,,�� some of this but the lack of facilities 1 am
�-�~ � �� �k�+�� ��
_ ���r,����,����'�_ . ,�+�,��• sure make this very hard to make work."
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< < Dubu ue 2034 is a sustai nable and resi I ient cit and
a y
an I nC� USIVe and eq u itable community. Dubuque
2034 has preserved our Masterpiece on the Mississippi , has
a strong diverse economy and expanding connectivity. Our
residents experience healthy I ivi ng and active
I ifestyles ; have choices of C� Ua� It�/, I ivable
neighborhoods; have an abundance of fun things to
do; and are engaged i n the comm u n ity. � �
` - . • • • • •
Trect �` T��Ct 3
SBG1 � 9GT
Concentrated Areas T��°t
11.02 �
$G 4 Track
of Pove rty by 6I oc k G ro u p � �' °���1 Tract
T�aet `-'^�— 5 BG 2 Tract�BG 2
i� d2 Tract 3 BG 2
BG 3
TraC! �
11.02
gG� 131
LEGEN❑ � r��r�e�3
� RaciallElhnic ConcentraEed Areas of Poverty ai 20°lo R1E threshold �'��
� �403'0 of population helow pouerty and close to 2d9�o RIE tnreshold Tract Trsct 5 6G 7
� RaciallElhnic r.anoentration exceeds 203'a threshold and�lose to 40°Io poverty ihreshold ����1 Tract 5 �G
�� � Tract 6 gG 3
� 2Q10 Block Groups
TracE 1 BG 1
� �ubuque City Limits Traet 6�G 2
�
.
Tract ■
7_D1
� � Tract 1 BG 3
Tf 8 Ct
7.41
Tr�ct 9 BG 1 �7
Tract
7_a1 BG 3
TracE Tract 1 BG 2
7 d2
act 9 6G 3 BG 1
�
Tract Tract
�02 7.az aGa lract
B�� 7.42
BG 2
Tracf 8�G 2 2U
` - . • • • • •
Park and Rec Professionals Play a ► - �
, �
Key Role in Youth Development � � �- � �
,_
C�
Five Areas of Youth Development - ��.� �
�� � : ;
1 . The need to establish an identity '
�—�—, a��—��_�°��� ���u���� �
.
,
. e n e e to e sta i s a u to n o m y Tl,e R1t���,�le f��r
Recreation Services for
3. The need for achievement Y��Llth: An E�l��en�e�
Based Approach
4. The need to develop a moral compass oE.Eaaw�r.
5. The need to develop close relationships ��������������
�X National Recreation
�. andParkAssociation
Source: Witt and Caldwell. The Rationale for Recreation
Services for Youth: An Evidence Based Approach
` - . • • • • •
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b uuu n v u r� � � � `�
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• Upper income parents increased amount spent on children's enrichment � , � -
'' OUR KIDS �
activities by 10 times the amount of their lower-income peers. f � j � _�
� ,;�.,�
„ c��.G�.
• Low income families' have increasingly less access to engaging � „ ��� �,E,�� ° r� ,��v ��, _
activities, new experiences, caring adults outside their families . - --�
and fewer opportunities to build academic, social and emotional skills.
• By 6th grade, upper and middle-class students have spent 6,000 more hours learning than do children in poverty.
• Research shows that enrichment programs increase academic scores, improves social-emotional skills, attendance
in schools and reduces negative behavior.
Source: Robert Putnam Our Kids: The American Dream in Crisis
. . �
a �s a omm un� en er .
• Relationship building
. Sta bi I izi n effect on the
Access to programming g
� � � I ives on ou n eo le .
• Mentoring opportunities y g p p
• Leadership development
• Opportunities for education
• Promotes an active and healthy community
• Safe place
` - . • • • • •
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r� n e o e o e e r u � ru s
Ca n a rc h itectu ra I p I�� Reimagining A,�o��, T1ieCities ReSau��es Search a o 0 0
the Civic Commons
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economic, and environmental
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Option 1: SiteCleanup — grantrequired minimum
Option 2: Site Cleanup and Clearing - Structure Deconstruction and
Site Stabilization
Option 3: Bu i Id i ng a nd Structu re Deconstruction a nd Add ition of Bee
Branch Maintenance Facility
• Currently Programmed for FY28
Option 4: Relocation of the Leisure Services Department Office to the
West Blum Site and Parks Division Bee Branch Maintenance Facility
and Park Area Development
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• Connected communities are more resilient.
� They a re better a ble to spri ng back when ha rd ti mes hit, protect a nd
prepare themselves against global issues.
• Research shows they are happier and healthier.
Nowhere else in the City do we have a connected
community space like the eee eranch Creek Greenway.
■
• Comfortable shared spaces give people a chance to meet others, gather,
relax, and try new things.
• It might be yoga, learning about healthy eating and how to grow
vegetables, or help with personal development.
Nowhere else in the City do we have a connected
community space like the eee eranch Creek Greenway.
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• Location for a maintenance facility, storm shelter, and public restrooms
• Needed more green space - so we looked at the West Blum Site
• EPA Brownfields Cleanup Grants for existing site — capping contaminated soil
• Condition assessment of structures on site — Look at saving the building on
the West side along Elm St. and redeveloping for future use
• Community engagement (required for grant) : What type of activities and
equipment does the public want to see in the future recreational space?
' - . • • • • •
2018 GDDC Community Perceptions Survey Inclusive Commun�ty:
• 37% disagreed with the statementthattheyfeel safe in the Downtown � � - • �
� � , - �
�
- � ��,
• 25% disagreed with the statementthatthey feel safe in the Northend
• 36% said race relations is the biggest challengefacingthe communityas a whole
• 33% disagreedwiththestatement, "Racerelationsin Dubuquearegood."
• 19% disagreed with statement, "Dubuque is a welcomingcommunityto people of different backgrounds:'
• 81% of those sayinga lack of services is a big or moderate problem in their part of the communitycomefrom
the Northend or"anotherpart" of the community
• 43% of those saying crime is a big or moderate problem in their part of the community come from the
Northend and Downtown
' - . • • • • •
����� rracc�
5BG1 g��
Concentrated Areas T�a°t
�1.a2
��� Tract
of Poverty by Block Group �g�'
f Trect �
TTact '-�— — , ���� Tract 4 BG 2
?1.02 � Tract 3�G 2
BG 3
Tre�t
11.02
LEGEN❑ ° � �� T��i s s�s i�i
� RaciallElhnic Concentrated Areas of Poverly at 20°Io RIE threshold
� �405'0 of populafion below pouerty and close to 249'o RlE threshold Tract Tract 6 9G 1
'� RaciallEthnic caneentration exceeds 20°/a threshald and close ta 40°Io paverty ihreshold 1�•�1 Tract 5 BG
a�'� Tract 6 BG 3
� 2�14 Bloak Grnups
� �ubuq�e City Limits Tract 6�G 2 Tract 1 BG 1
�
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7.f71
�1 Tra�t � BG 3
Tract
7.41
Tract 9 BG� BG 2
Trac#
7.01 BG 3
Tracf Tract 1 BG 2
7.p2
ecl 9 BG 3 BG 1
i
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BG 3 7.4�
a�z
Tract B�G Z 20
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"You can't simply arrest your way � � � i � - � � �,. � � � �r� �� � ��g
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G � O D T � PASS I O N EQU ITY &
COMMUNITY
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CENTER & PARK
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B��zT T° �AST BEST AT
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WELCOMING PLACE
with all kinds of services and programs -- for and with -- all kinds of people.
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• 2017 City Expo: Dot Exercise • Online Forms: Almost 600 responses
from Sept. — Dec. 2017
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Identification and pursuit of the redevelopment, reuse and � � . , � , . , .-,,�-�
re ur osin of commercial and or industrial assets with the � - ��� � � � � �`,�``� '=
p p g / � � . ,/
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greatest opportunity for a "transformative" effect. - � �-,�f' ��f;.-. � : � � ��" � ` ;
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Identif ke commercial or industrial ro erties whose �� -`. ���� p � � �
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redevelopment, reuse or repurposing would have the � _ ����'� � �- , . �- -� ��
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greatest positive economic, environmental and cultural �; : � �,; � =.�. .` � � � �
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impact for the community or neighborhood. -.w� ._ � � ��'-. -.: =� � :� �
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IMAGINE
SOCIAL + CULTURALVIBRANCYis closel linked toour individual, . D U BIJC� U E
Y
community, and economicwell-being. To enhancethisvibrancy, '• �
residents suggested:
• Enhance event access and participant diversity
• Improve perceptions of community safety
� Promote healthy lifestyles
� Increase eco-education programming, particularly for children
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IMAGINE
� � DUBUQUE
.
L + L L B �• •
SOCIA CU TU RA VI RANCY
Public recreation investments are a prime means for building Use recreation investments
inclusion through programming, community activity, and space.
�s equity enhancers.
Construction of a community center with indoor aquatics,
and renovation and re-programming of park spaces, both Playground and park enhancements,
were cited throughout the public engagement process as as well as lighting, can be targeted for
badly needed, and a means to enhance equity and updates that create safe, accessible
connections among Dubuque residents. spaces attracting people from well
beyond the immediate neighborhood.
� � o� � Keeping an "equity eye" in the siting,
br
��e �a �m�� planning and design of these
" [Q' �lho��oo�� �eQ., � Y ��r investments will benefit Dubuque.
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IMAGINE
� � DUBUQUE
.
L + L L B �• •
SOCIA CU TU RA VI RANCY
RECOM M EN DATIONS RP�ir�Pnt C���tP:
��,.,
"Dubuque needs a better Community
. �' .•�*� -r'�'� ,.,��x�, f�,��"''��°�^.� Center/LeisureServices. Our Leisure5ervices
Recreation , � � ,. ��
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",,'��yykk �` '���' �� �����`'`�y�'��� �°�,�"t°�'� �� Department does well with what they have
���• s�'/�I�� f��{Cr_F J�� _'��l_- �4!
� �h'��'�"�'�� �� � ��`� ����� but their acilities are limited. In m vision
Initiate a feasibility evaluation for a ��_��-�t��� �-��`�'�� ' � f y
f�} � �¢�°'�. �������1°� �V �; of Dubuque we would have a Community
Community Center, potentially including �} � ��. '� `��� _-.� r .�� �Y�
�.�. x��: �
x,'s,����������°�.;'i����l `�,�,����.�ti�+. Center with classes for children, youth, and
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indoor recreation and indoor/outdoor , ��Y� � -�
� ""� ��«���� ,� ''� ���' _ adults.....like gymnastics, tumbling, pottery,
aquatic facilities, with an eye towards V ' ��� a='�' '� rL:�"�r� ��"�`��{�'� exerciseclasses conversational lan ua e
, 9' 9
creating a multi-generational and central � -.��� r-����:,� ��� � classes.... Other communities where I have
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community gathering place that r � , . . . , �y lived have these kinds of activities for
��
� � � �� .�� �`� ������f� people of all ages. Our Leisure Services have
supports health, wellness, and social , ,,.r ��� f, -�._ �*� .
^� � � � - some o this but the lack o acilities 1 am
interaction among residents. ��� ���� �;�=. �,,�,�;E f f f „
- {.��,,,,x�.,�,�,,,,�;���_: � � ��� sure make this very hard to make work.
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R 'iac alhnic Concentrated Areas of Poverty hy�Block Group
Tract 11.02 ��- HG 2 �
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Nationally. 1/27,000 residents 1201 ._--�-� � � �'��'
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• National average for square footage is 11,000 ._ _ .� _ __���02� .� �,, �ra�„B�z
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LEGEND
� RaciaUElhnic Concentraled Areas ot Paverly at 20%R/E threshoEd
� �40%of population below poverty and close to 20%R/E threshold
� RaciallEthnic concentretion exceeds 20%threshold and close to 40%po�erly threshold
� 2D1D Block Groups
� Dubuque City Limits
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• • • • � • • , • • � '
• Comiskey Building ( BB) 1, 624
• Free Pre-school & Community Meetings
• AI I ison Henderson — U pper 1,080
• Youth Enrichment ( 18 mo . to 5 years)
• Allison Henderson — Lower 900
• Arts (dance, music, art, etc. )
• Resource Room ( Prescott) ( 66) 500
• MFC ( Multi-Purpose Room ) ( 66) 800
Total Indoor Space 4,904 square feet
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Grading
$ 10,750
Parking/Drives/Walks/Stairs/Walls/Canoe Ramp
$ 512,000
Plantings
$ 137,750
Site Amenities & Lighting
$ 426,000
Playground/Cli mbi ng Feature
$ 200,000
Bike/Scooter Playground
$ 50,000
Large "DBQ" Play Element
$ 70,000
Sub Total $ 1 ,406,500
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Overlook Deck $ 165,000
FEMA Storm Shelter and Restrooms $ 525,000
Sub Total $ 832,000
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$ 235,000
Storage Building
$ 85,000
Parki ng/D rives/Wa I ks/Stai rs/Wa I Is
$ 95,000
Sub Total $ 415,000
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Grading $ 4,500
Parking/Drives/Walks/Sidewalk/Walls/B-Ball Courts $ 1 ,076,750
Plantings $ 131 ,000
North Site — Hardscape Amenities & Lighting $ 294,500
South Site — Hardscape Amenities & Lighting $ 151 ,000
Sub Total $ 1 ,657,750
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North Addition — Stairwell/Elevator/Storage/Mechanicals $ 1 ,560,000
East Addition — Porch Structure/Stairs/Restrooms $ 443,500
Flood Control Maintenance Building $ 883,250
Elm St. — Existing Building Core & Shell $ 2,592,000
Sub Total $ 5,478,750
� • • ' • . � • ' •
East Blum — Site Features $ 1 ,406,500
East Blum — Building Features $ 832,000
Sycamore Triangle $ 415,000
West Blum — Site Features $ 1 ,657,750
West Blum — Building Features $ 5,478,750
Today's Construction Cost Total $9,790,000
Contingency 20% $1 ,958,000
Total Construction Cost w/Contingency $11 ,748,000
�
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Total Construction Cost w/ Contingency $ 11 ,748,000
Grant Eligible Project Features - $ 1 ,296,000
Sponsorship/Donations - $ 1 ,250,000
Sub Total $ 9,202,000
Programmed Bee Branch Funding - $ 3,920,000
Needed Funding $ 5,282,000
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FY24 = $220,000 for Prel i mi na ry Design
FY28 = $3,700,000 in stormwater funds
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aspects of the project.
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CREATING AN EQUITABLE �
COMMUNITY OF CHOICE ,
Dubuque
THE CITY OF �
ul•i�enc�Gll�
DuB E ��.�.�,�:���
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Masterpiece on the Mississippi Z°°'�z°l�
2013•2017
TO: Michael C. Van Milligen, City Manager
FROM: Marie L. Ware, Leisure Services Manager
SUBJECT: Follow-up to Blum Site City Council Work Session Presentation
DATE: May 28, 2019
INTRODUCTION
The purpose of this memorandum is to share information related to a follow-up question
from the Blum Site City Council work session presentation. The request was to "share
the study information which speaks to race relations and teenage arrest rate
improvements by way of community center installation."
BACKGROUND
This memo sets forth studies on the potential for community centers and other leisure
activities to impact positive youth development and prosocial behavior. As noted in the
Dubuque 2010 Study on Crime and Poverty conducted by Northern Illinois University,
however, no two communities are the same and the context in which we are operating
always matters to outcomes.
https://www.cityofdubuque.org/DocumentCenter/View/2742/Dubuque-2010-Study-on-
Crime-and-Poverty-Summary-R?bidld=.
There is no "one-size-fits-all" solution or strategy that can be prescribed for the City of
Dubuque or any other city. As discussed below, there is not a mysteriously elusive
program or policy decision that can be implemented to change the complex factors
that contribute to the presence of crime in a community. As the study team confirmed
in the search of the literature, there is not a singular recommendation available to
direct a community on how to fight crime—every strategy must be tailored to the
needs, context, values and assets of the individual community. P. 74-75
Academic research has also pointed to a number of promising strategies to address
crime-susceptible neighborhoods with concentrated public or assisted
housing. Foremost among these strategies is the following: public housing units
should be located in garden-style settings, widely geographically disbursed into
neighborhoods with sufficient social resources. This helps ensure that residents are
supported socially, can create defensible space where residents can control their
immediate external surroundings, dampens the fuel that fires crime hotspots, and, has
been proven not to diffuse crime into the surrounding neighborhood. In addition, police
should engage residents by involving themselves into the problem
neighborhoods. Since no single community policing strategy can be applied
successfully in every setting, the guiding principles should be to increase contact with
residents, pursue community partnerships, and be proactive in preventing crime. P.
78.
Neighborhood attachment, informal social control and social capital are all associated
with lower levels of crime fear. Oh and Kim (2009) studied the effect of neighborhood
attachment on fear of crime. Neighborhood attachment was measured by the
number of friendships held with other neighborhood residents, amount of socialization
with neighbors, social cohesion (are neighbors trustworthy and is the community tight
knit), informal social control (would neighbors take action if they saw kids misbehaving
in public), and participation in neighborhood watch programs. Of those variables,
higher amounts of neighbor socialization, social cohesion and informal social control
significantly lessened fear among neighborhood residents. P. 115.
As a Leisure Services Department we were asked to research and consider ways to
create safe parks and with a goal to effect violence reduction in 2015. Recreation
Division Manager Dan Kroger put together the attached research completed at that
time. It highlights how city government, specifically recreation and policing can help to
create safe spaces and reduce crime in lower income areas. It points not to stopping
crime but rather displacing the opportunity to commit crimes in these areas through
greater community involvement and participation. A focal area for the department was
Jackson Park and as Downtown Neighborhood President Joe Noel can attest there
have been significant reductions and he credits the work of the city and specifically the
Leisure Services Department activities.
DISCUSSION
It was requested of the team we "share the study information which speaks to race
relations and teenage arrest rate improvements by way of community center
installation." The following is a compendium related to the requested information.
There have been a multitude of studies, reports and proven examples over the years on
the positive effects that infrastructure improvement, community engagement and/or
programming have especially in low-income areas. One of these studies goes back to
1969 when a Stanford psychologist, Philip Zimbardo, conducted an experiment on a
broken-window theory which details how dilapidated structures and spaces that are not
cared for nor repaired, increase the opportunity for and types of crime as well as
decrease community moral and perceptions. This theory was later published in 1982 in
the Atlantic Monthly by James Wilson and George Kelling titled Broken Windows
(https://www.theatlantic.com/magazine/archive/1982/03/broken-windows/304465/).
2
More recently, at the NRPA (National Recreation and Park Association) annual
conferences in both 2017 and 2018, examples from cities like Philadelphia, Louisville,
St Louis, and Raleigh were presented in sessions around public safety, youth
programming and park infrastructures and the effects that their improvements have had
on crime and public perception in their specific spaces. In each case, these
improvements have increased the community's usage of these spaces which in turn
reduced the amount of crimes committed with these public spaces and in the immediate
surrounding area.
The positive effects that intentional changes to park infrastructure, youth programming,
and space available to youth can have on communities range from socio-economic
improvements, health education, community pride and involvement, as well as on crime.
Specifically, in the area of crime, as a park and recreation department (Leisure Services
in Dubuque) we are not necessarily responsible for working to rehabilitate nor change
the behaviors of the individuals who commit crime. However, as an accessible and
equitable department with resources to educate, mentor youth, program for the
community and provide other opportunities for information sharing and
physical/emotional outlets, we can have a very positive impact on crime reduction
and/or displacement in our public spaces and places. The Benefits of Recreational
Programming on Juvenile Crime Reduction:A Review of Literature and Data was a
review (http://www.nccu.edu/formsdocs/proxy.cfm?file id=2907) published in 2014 by
NRPA provides in detail the roles we can play as a public organization. This publication
cites numerous studies and research on the topic.
Throughout the remainder of this memorandum, we share the proactive approach to
reduce crime over time as park and recreation departments play a substantial role not
only through providing safe spaces to recreate but also by programming for youth and
young adults especially in lower income areas where many of these youths go
throughout their day without any structure or positive influences. Community centers
located in these same areas can have a similar effect. Community centers are safe
places and spaces for youth and adults to go throughout the year. Numerous programs
need a physical space to happen thus a community center becomes that place where
the programming described below can happen. It is only a building until you fill it with
programs and bring it alive with the programs and results described below.
Studies Related to Teen Arrest & Impact of Increased Opportunity for Leisure
Programming
As park and recreation professionals, it is our duty to our community to provide
programming that will help youth grow to become fully functioning adults by providing
services that will help youth develop important skills, such as conflict resolution,
independent thinking, problem-solving, and interpersonal communication. Any kids sport
pick-up game with no adults present does this. Parks and recreation departments are
key to crime prevention, as well as improving outcomes for youth who have participated
in the juvenile justice system.
3
According to the National Recreation and Park Association (NRPA), park and recreation
professionals play a key role in 5 areas of youth development:
1) The need to establish an identity;
2) The need to establish autonomy;
3) The need for achievement;
4) The need to develop a moral compass; and
5) The need to develop close relationships.
Through recreational activities, youth have the potential to learn how to negotiate with
peers, resolve conflict, and work together for communal goals. Youth also can
experience safe places to try out different roles and interact informally with members of
the opposite sex. Another important role for park and recreation departments is that
youth can develop relationships with nonparental adults who may serve as important
mentors or role models. These relationships are often central to helping youth develop
into healthy adults (Witt). �
According to Witt the literature on the link between delinquency and out-of-school time
provides four interrelated perspectives for understanding that relationship (Caldwell and
Smith, 2006), including the:
• Filled-time perspective—Time filled with prosocial activities cannot be filled with
deviant activities. Youth with stronger attachment, commitment, involvement and
belief in positive social norms, activities and institutions are less likely to be
involved in association with deviant peers (Gottfredson and Hirschi, 1990).
• Association with deviant peers perspective—Certain activities are more likely to
instigate deviant behavior or association with a deviant subculture. Youth are
differentially motivated or tempted by situations and those who commit crimes do
not necessarily reject conventional values, but rather seek excitement,
conspicuous consumption, and toughness (Osgood, Wilson, O'Malley, Bachman,
and Johnston, 1996).
• Activity structure perspective—Time spent in informal and/or unsupervised
activities is likely to promote deviance, while time spent in supervised activities
protects against it. Structured activities offer fewer opportunities to engage in
deviant behavior because youth are engaged in doing something (as opposed to
nothing like hanging out, for example) that is engaging and positive.
• Person-environment interaction perspective—How activities are structured,
organized, and led is critical. Effective programming must take account of
individual factors associated with participants when planning programs. It has been
reported that structured activities are linked to low antisocial behavior, while
involvement at an unstructured center has been found to be associated with high
antisocial behavior (Mahoney and Stattin, 2000). The researchers noted that: ...the
issue is not whether an individual is engaged in an activity—the issue appears to
be what the individual is engaged in and with whom. In terms of antisocial
' Witt, Peter A., and Linda L. Caldwell. The Rationale for Recreation Services for Youth:An Evidenced
Based Approach. National Parks and Recreation Association, 2010,
www.nrpa.orq/qlobalassets/research/witt-caldwell-full-research-paper.pdf.
4
behavior, it may be better to be uninvolved than to participate in unstructured
activity, particularly if it features a high number of deviant youth (p. 123).
According to the National League of Cities, community-based resources, such as
recreation and leisure programming play an important role in helping youth reintegrate
into their community after returning from the Juvenile Justice system. Furr et a1.2 states
the following: "Action Step: Implement a continuum of high quality community-based
services. A robust continuum should aim to meet the individual needs for support and
accountability of youth involved in the juvenile justice system. City officials can provide
funding directly or lead efforts to raise and coordinate private funding for a variety of
programs, including:
• Restorative justice programs, including teen courts, community panels, Civic
Justice Corps crews or community conferencing, as in Baltimore;
• Cognitive behavioral modification programs, such as anger management programs
or cognitive behavioral therapy, as employed in the Becoming a Man program in
Chicago;
• Behavioral health services, including mental health treatment, counseling and
substance abuse treatment;
• Evidence-based interventions, such as multi-systemic therapy or family functional
therapy;
• Youth development programs, including mentoring, jobs programs, work readiness
and skills training, recreation or sports programs and community service
opportunities, as offered through Washington, D.C.'s YouthLink; and
• Educational supports, such as dropout reengagement and alternative education
centers or programs.
Youth at the "low" end of the juvenile justice system, such as those charged with
vandalism or loitering, may benefit from a very brief community service/restitution
opportunity combined with youth development or education supports. Youth facing more
significant charges and needs could benefit from evidence-based interventions or
cognitive behavioral modification programs. In addition to services and supports keyed
to the nature or apparent causes of the offense, young people can also benefit from
integrated approaches that address key developmental tasks such as acquiring job
skills and completing educational qualifications"3.
According to the National Parks and Recreation Association, structured recreational
programming can reduce juvenile crime. "At-risk youths have been found to especially
benefit from guided recreation programming. Low-income, at-risk youth experience
improved test scores in both reading and math after they begin participation in after-
2 Furr, Laura E., et al. "NLC Municipal Action Guide: Increasing Public Safety and Improving Outcomes
for Youth through Juvenile Justice Reform." Models for Change, National League of Cities, 8 Dec.
2014, www.modelsforchange.net/publications/717.
3 Ibid.
5
school programs. Data has also shown that students who reported spending no time in
afterschool extracurricular activities were 57 percent more likely to drop out of high
school, 49 percent more likely to use drugs and 27 percent more likely to have been
arrested than students who spend as much as four hours in structured activities."4
Allowing youth access to structured recreation programming can deter youth from
engaging in delinquent behavior or in crime, provide youth who have been in the
juvenile justice system with opportunity to reform, and help youth grow into healthy
adults.
After School and Summer Programs
6000 Hours, Author Robert Putnam states in his book, Our Kids: The American Dream
in Crisis:
"Over the last 40 years, upper-income parents have increased the amount they
spend on their children's enrichment activities by 10 times the amount of their lower-
income pears. Meanwhile students from low-income families' have increasingly less
access to engaging activities, new experiences, caring adults outside their families,
and fewer opportunities to build academic, social and emotional skills."
The book goes on to say that by 6t" grade, upper and middle-class students have spent
6000 more hours learning than do children in poverty. Of that number 4000 are in
afterschool and summer programs. This opportunity gap cannot be filled through school
alone. Research shows that quality after-school programs increase academic scores,
improve social-emotional skills, attendance in schools, and reduce negative behavior.
Reference
The 6000 Learning Gap
https://www.expandedschools.org/
Click the Learning Gap, scroll down to Click here to learn more to see research
related to this topic.
Anatomy of a 6000 Hour Deficit
http://hechinqered.orq/content/anatomy-of-a-6000-hour-deficit 6457/
Importance of Afterschool/Summer Programs in Limited Income Communities
Afterschool and summer programs are critical partners in helping to ensure that all
children are afforded the opportunities that will help them thrive and meet their full
potential. Afterschool programs can enact meaningful change by encouraging children
to explore different interest areas to find their passion, finding new and creative ways to
keep kids excited about learning, offering academic help to students who are struggling
4 Kurts, David. Structured Recreation Programming Can Help Reduce Juvenile Crime. The National
Recreation and Parks Association, 1 Sept. 2015, www.nrpa.org/parks-recreation-
magazine/2015/septem ber/structu red-recreation-proqramm inq-ca n-hel p-red uce-j uven ile-cri me/.
6
with their school day lessons, and helping keep their students from being hunger by
providing snacks and meals. The demand for afterschool and summer learning
programs in limited-income communities is high. As reported in America After 3pm:
Afterschool in Communities of Concentrated Poverty5:
• The demand for afterschool programs in communities of concentrated poverty is
much higher than the national average, where more than half of children (56
percent) not in an afterschool program would be enrolled in one if it were
available to them, compared to the national average of 41 percent.
• Two out of three parents living in communities of concentrated poverty (66
percent) would like their child to take part in a summer learning program, 15
percentage points higher than the national average of 51 percent.
• Afterschool program participation in communities of concentrated poverty is
higher than the national average. Close to 1 in 4 children living in communities of
concentrated poverty participate in an afterschool program (24 percent),
compared to less than 1 in 5 children nationally (18 percent).
• More than 4 in 10 parents living in areas of concentrated poverty (41 percent)
report that their child took part in a summer learning program, 8 percentage
points higher than the national average (33 percent).
Studies have found that access to afterschool and summer learning opportunities
greatly impact people's lives. Children living in communities of concentrated poverty are
more likely to attend schools where the test scores are low, live in neighborhoods with
higher crime rates and have limited after-school options. With consideration of
struggles and barriers facing families living in low-income communities, quality after-
school programs, which include before school, afterschool and summer learning
programs are critical systems of support that can help bring back into balance
opportunity at all levels.
Afterschool programs provide students a number of supports, including a safe
environment, academically enriching activities, mentors who care about them, healthy
snacks and means and opportunities for physical activity. Many programs also provide
parents additional opportunities to become more involved in their child's education, offer
supportive services for entire families, and give parents peace of mind about their
child's safety whey they are at work or looking for work.
According to the study by Afterschool Alliance6, there are challenges for families
seeking afterschool programs: accessibility and affordability.
5 America After 3PM Special Reports. Afterschool in Communities of Concentrated
Poverty. http://www.afterschoolalliance.orq/researchReports.cfm
6 http://afterschoolalliance.orq/documents/AA3PM-2015/National-AA3PM-Summer-Fact-
Sheet-6.11.15.pdf
7
Accessibility
• More than 2 out of 3 parents living in communities of concentrated poverty (67
percent) report that finding an enriching environment for their child in the after
school hours was a challenge, compared to 46 percent of parents living outside
of these areas
• Parents living in areas of concentrated poverty were more likely than their higher-
income counterparts to report that lack of a safe way for their children to get to
and home from afterschool programs (51 percent versus 39 percent), hours of
operation (47 percent versus 31 percent) and inconvenient locations (41 percent
versus 33 percent) were important factors in their decision not to enroll their child
in a program.
Affordability
• More than 6 in 10 parents living in communities of concentrated poverty (61
percent) agree that current economic conditions have made it difficult for them to
afford placing their child in an afterschool program, 14 percentage points higher
than parents living outside of communities of concentrated poverty (47 percent).
• Close to 3 in 4 parents living in communities of concentrated poverty (73 percent)
say that program cost was very important in their selection of an afterschool
program, with more than half reporting that cost was extremely important in their
decision (53 percent).3 Among parents living outside communities of
concentrated poverty, 67 percent report that cost was an important factor in
choosing a program, with 44 percent reporting that it was an extremely important
reason.
• Among parents who do not have a child in an afterschool program, almost half of
parents living in communities of concentrated poverty (47 percent) report that the
cost of afterschool programs was a very important factor in their decision not to
enroll their child in a program, compared to 43 percent of parents living outside of
high-poverty areas.
A study released by the National Recreation and Park Association (NRPA), 2018 Out-
of-School Time Report
(https://www.nrpa.orq/contentassets/c76ea3d5bcee4595a17aac298a5f2b7a/out-of-
school-time-survey-results-report-2018.pdf
http://afterschoolalliance.org/afterschoolsnack/Park-and-recreation-afterschool-
programs-make-a-real-difference 01-11-2019.cfm), highlighted the ways that local park
and recreation before school, afterschool, and summer programs are positively
impacting the lives of children and their families. With nine in ten park and recreation
agencies offering afterschool services, millions of children across the country are
benefitting from safe and supportive places to spend time outside of school.
The top five benefits of afterschool programs provide youth with:
1) Safe spaces to play outside of school hours
2) Free or affordable spaces to engage in health and wellness opportunities
3) Opportunities to socialize with peers
4) Exposure to nature and outdoor experiences
5) Educational support and supplemental learning opportunities
8
Why Afterschool Quality Matters
https://naaweb.orq/imaqes/Final NAA 1 E .pdf
Afterschool Programs Make a Difference: Findings From the Harvard Family Research
Project
http://www.sedl.orq/pubs/sedl-letter/v20n02/afterschool findings.html
The Ecobiodevelopmental Framework: How Developmental Science Translates into
Lifelong Outcomes — Implications of Poverty on Student Outcomes
"Early childhood adversity and toxic stress, factors in the new developmental contract
called Adverse Childhood Experiences, or ACEs, are now referred to by the American
Academy of Pediatrics as "new morbidities" (Garner, A. S., Shonkoff, J. P., Siegel, B.
S., Dobbins, M. I., Earls, M. F., McGuinn, L., & Wood, D. L., 2012). The need for new,
creative ways to address these morbidities in a more effective way is essential to
improve the physical and mental health of children, as well as the social and economic
well-being of the nation. Pediatricians and other health care professionals have long
been responsible for developmental assessments and the overall monitoring of a child's
wellbeing. Because the early roots of problems in both health and learning typically
occur outside of the walls of a medical office or hospital setting, the boundaries of
concern must move beyond the clinical setting and acute medical care of children and
expand into the larger ecology of the community, state, and society."
"Policy advocacy plays a critical role in promoting changes in well-established systems
that influence child health and development. Translating advances in developmental
science into effective interventions and lifelong health will require a fundamental shift in
the way the general public and policy makers view and invest in early childhood."
https://implicationsofpoverty.squarespace.com/science-1/2016/12/8/the-
ecobiodevelopmental-framework-how-developmental-science-translates-into-lifelonq-
outcomes
"Children growing up in low-income households not only face a greater likelihood of
being exposed to strong, frequent, and/or prolonged adversity— but the adults in their
lives are often exposed to significant adversity as well and, therefore, are not as well-
positioned to mitigate the harm of these stresses in their kids' lives."
https://kaboom.org/resources/play research/toxic stress and carinq adults
Community Center Overview
How Does a Community Center Enhance a Neighborhood?
A quality community center is a valuable asset to any neighborhood. A well-run
community center serves as a thriving hub of activity for youth, families, senior citizens,
civic organizations, parks and recreation departments, and more.
9
Community Centers Have a Positive Impact on Community Youth
A vibrant community center can have a stabilizing effect on the lives of young people.
By providing safe and adequately equipped spaces for physical activities like dance,
martial arts, yoga, basketball, and other sports, community centers instill discipline,
healthy exercise habits, and teamwork. Community centers create the perFect setting for
local mentorship programs, providing guidance and leadership development for the
youth of the community. The role of community center is especially crucial for
communities that lack the necessary facilities to keep their children in safe
environments. After school programs provide a refuge for at-risk youth, helping to
reduce crime rates, court costs, and other costs to the community. Ensuring community
youth have a healthy outlet for their creativity and energy is an important step towards
long-term community improvement. Discipline, self-esteem, and leadership are all
qualities that are fostered in youth-focused programs.
Community Centers Provide an Opportunity for Education
A top-notch community center can have dedicated rooms for social clubs and academic
programs to supplement the school experience for students. Perhaps best of all, these
opportunities are afforded to local youth and their parents at little to no charge. A
community center provides a place where devoted coaches, teachers and staff
members create an environment of growth and learning for young people. A community
center can foster community pride and bring people together. Providing opportunities for
interaction, inclusivity, and community learning help contribute to economic
development and a safe community.
Community Centers Promote an Active and Healthy Community
Maintaining an active lifestyle is a fundamental aspect of a happy and healthy life.
Fortunately, community centers don't solely cater to young people. Walking clubs,
fitness programs, athletic opportunities, arts and crafts classes, and various cultural
activities are made available to those of all ages by community centers and partner
organizations. A community facility helps to develop a culture of physical wellbeing,
mental health, and nutritional education. With intelligent programming and effective
community outreach, a community center can be a central component to enact change
at the community level. Once again, there is little to no cost associated with participation
in these programs, which is a significant benefit for those living on a fixed income.
A National Example that Parallels the Blum Proposal - Civic Commons
http://civiccommons.us/
Reimagining the Civic Commons is a three-year, national initiative with projects in five
U.S. cities that revitalize and connect civic assets. A collaboration of national
foundations (The JPB Foundation, Knight Foundation, The Kresge Foundation and The
Rockefeller Foundation) and a network of local partners, the initiative is working toward
four main goals: civic engagement, socioeconomic mixing, environmental sustainability
and value creation.
10
They focus on civic assets as community connectors. As communities have segmented
by income, technology has advanced and priorities have shifted, support for civic assets
has declined. Due to underinvestment and apathy, they assert our civic assets are no
longer providing the connective tissue that bind together and anchor neighborhoods.
The result is more than overgrown ballfields and lackluster libraries: research shows
that Americans spend less time together in social settings, trust each other less and
interact less with others whose experiences are different.
Reimagining the Civic Commons intends to create great public places that are shared
by everyone, a neutral ground where common purpose is nurtured. Reimagining the
Civic Commons is advancing a vision for renewed and connected urban public places—
and reinventing how cities manage public assets. Central to their approach is the belief
that our shared public places are a portfolio of assets that have the power to influence
positive social outcomes. Based on this, they are working with teams to design, manage
and operate their civic commons in a manner that:
• Recognizes the intrinsic value of existing buildings, assets, neighborhoods and
people that others disregard
• Brings people of all backgrounds back into public life, reconnecting communities
to civic assets where trust can be formed
• Generates stewards and advocates for the assets that shift the behavior of
citizens from consumers to producers
• Provides the best quality for all and can compete with alternatives in the private
market
• Welcomes everyone and creates opportunities for shared experience among
people of all incomes and backgrounds
• Increases access to nature for residents and invites visitorship via walking, biking
or transit
• Provides ecological benefits to the surrounding neighborhood
• Attracts additional investment in the surrounding neighborhood to create tax
revenue to support the assets in a way that serves longtime residents
To achieve these outcomes, the funders are supporting collaboration among and across
city departments, local non-profits, community groups and a diverse range of
community members in the five demonstration cities. These partnerships are working to
foster public places that thoughtfully respond to community needs while making
progress toward our four main goals. An important part of their initiative is
measurements (http://civiccommons.us/app/uploads/2018/01/Measurinq-the-Civic-
Commons.pdf).
Civic Commons mirrors our BHAG that the Blum presentation outlined and connects
with the potential work that was imagined. When one adds the Bee Branch Creek
Greenway, Comiskey Park as well as Audubon School you have major civic
connections to the Blum site. The major private foundation funders of Civic Commons
work on the basis of data and perFormance just as we do. They would not be behind
such a project did they not believe in the outcomes.
11
Local Teen Arrest Data
Research specific to teens in Dubuque has shown that crime committed by or against
teens occurs on school days between 3:00 pm — 6:00 pm. Teen arrest records from
Dubuque Police Department for individuals aged 17 and under were compiled and
evaluated. Years/dates included were 1/1/2016 to 11/28/2018. Of the 1,932 charges
reported, 1,252 were males and 680 were female (some of these charges belong to the
same individual). Breakdown of ages of individuals charged: age 17 (417), age 16
(407), age 15 (348), age 14 (293), age 13 (207), age 12 (153), age 11 (82), age 10 (22),
age 9 (3). Total arrests during this time span were 1,524.
1,525 charges were reported during the school year, with 408 charges happening in the
summer. Charges by race were white (1040), black (868), Asian (17), unknown (4),
Indian (3). Top 5 charges were disorderly conduct (393), assault (315), theft (207),
criminal mischief (178), and interference with official acts (157).
Localized Dubuque data placed on geographical map shows larger concentration of
charges near Hillcrest Family Services, Hempstead High School, Senior High School,
Alternative Learning Center, between Central Ave and Elm Street from 11t"_32na Street,
Locust/Almond St/Ellis St, Loras Blvd/Henion St-Locust, and Windsor/Merz. (this list is
NOT in order relating to amount of charges). The largest of those concentrations being
in the downtown areas between Central Ave and Elm Street from 11tn_32na Street.
Time of day: Day of the week:
Earl Mornin 12:OOam-5:OOam 197 char es Monda : 309
Mornin 5:01 am- 11:59am 515 char es Tuesda 343
Afternoon 12:00 m - 2:30 m 316 charges Wednesda 339
Late afternoon 2:31 m- 5:00 m 287 char es Thursda 273
Earl evenin 5:01 m- 8:00 m 293 char es Frida 278
Evenin 8:01 m-10:00 m 187 char es Saturda 194
Late Evenin 10:01 pm-11:59pm 137 char es Sunda 196
This data was provided by the Dubuque Police Department and compiled by Leisure
Services AmeriCorps Partners in Learning Director.
How Does a Community Center Connect to All This Information on Youth and
Teen Arrest Rates?
The data and research presented above clearly makes connections to youth and teen
and negative behaviors and the positive effects of programming as well as involvement
of persons in those young people's lives. As the presentation shared, Leisure Services
has very limited programming space indoors. We currently offer programs throughout
the community and in this neighborhood with many, many more programs in this
neighborhood throughout the summer because they can be held outside. The square
footage to run programming indoors is virtually non-existent especially when one
considers the number of households in the area. Leisure Services does use school
12
sites as much as we can however we are always second, third or more in the pecking
order and often have activities cancelled for school events.
As the NIU study pointed out no two communities are alike. Each city and each
neighborhood have its own crime, socioeconomic levels and demographic profile. Each
city and neighborhood have its own physical infrastructure. NIU shared that there is no
"one size fits all" solution or strategy that can be prescribed for the City of Dubuque.
This means we must know the data, know the neighborhood, understand what we offer
and could potentially offer. We must also know our partners and their strengths and
ability to play a role in the solution or strategy.
NIU shared "there is not a singular recommendation available to direct a community on
how to fight crime" and that was backed up by their literature. Our presentation did not
say that we could totally solve race relations or the teenage arrest rate. We can be a
strategy (and a strong one based on the data shared above) working with various
departments and organizations to collectively impact the teen arrest rate through a
place and programming.
What about race and our relationships with one another?
If you have ever been around children and especially children on a playground you
know that race does not come in to play when deciding whether to play together. Those
children come together because they have a common goal—they want to play and have
fun. They meet and welcome others that want to play and have fun just like they do.
We have so much to learn from our children.
A park or community center by itself does not improve race relations. As government
staff, our focus should be on improving relationships between ourselves and the
communities we serve, and it is our collective effort to ensure equitable delivery of our
services to communities of color that is most likely to have an impact on race relations
in this sense. Each department's equity plan and continued evaluation and
improvement of our service delivery, along with our review of our facilities and
infrastructure through an equity lens is where government's primary role in race
relations lies. Accessibility to improvements in how we deliver our services and our how
these community members can access city services is a prime example as was outlined
in the presentation. Often people have heard said, "location, location, location".
Looking at the potential of a site that is easily accessible on foot as well as the Jule and
by vehicle as well is just a start in equitable service delivery and equitable access to one
of our most diverse neighborhoods.
Government can influence race relations by creating places--whether parks or
community center or civic spaces--where we come together with common goals or
common interests, we too will slowly make friends and break down those barriers in our
mind. When a parent, foster parent or grandparent sits at that playground or in a comfy
waiting area while their child participates in a program they connect over that common
bond. It can be a bond of the children themselves or it can be a bond that slowly
13
develops because of being in the same space in the same time. When you see your
child or children playing with another it is not uncommon for the parents to create a
connection through those young children. They start talking about anything from the
cute outfit one is wearing, commenting on the strength or leadership of a child or maybe
even joining in with the kids pushing them on swings or having the children on their
laps. Relationships start with one nod, one conversation, one common moment.
It starts with a place that is welcoming, that is cared for, that is open, that sets a tone of
we are excited you are here and will help—whether child or adult. The research above
does not call out race specifically but relates to persons of all races. We have seen
what building a welcoming environment has done for the Multicultural Family Center. In
five years it outgrew its small building and moved into its current building and now 10
years later we are adding on as it is bursting at the seams. Programs and a space—
that is what the MFC is about and yet it is so much more. It is our welcome mat, it is
inviting to both children and adults. It seems like your living room that invites you to sit
down and chat. I see the relationships across cultures bloom all the time there. It starts
sometimes in that front room and sometimes at a program. We have a successful
model that is working in the Downtown Neighborhood. This proposal is the next
extension of that successful strategy that started 15 years ago as an idea just like this
Blum proposal is.
The Blum presentation and our BHAG is not a part of the fifteen 2018-20 Policy Agenda
items specifically. It could fall under the high priority of Crime Prevention Program if it
was happening in that timeframe. What it does fall under is the 2035 Vision and the city
mission statement and most importantly it meets the Goals for 2024 of Vibrant
Community, Livable Neighborhoods and Housing, Financially Responsible, High
PerFormance City Organization, Sustainable Environment, Partnership for a Better
Dubuque, Diverse Arts, Culture, Parks and Recreation Experiences and Activities as
well as Connected Community and I could argue that it also meets Robust Local
Economy. Seldom does a potential project meet every council goal.
The Blum presentation and BHAG resonates loudly when reviewed against the Council
approved outcomes and values to residents that are the focus of most staff work and
our measurements. We as city staff consider, think, brainstorm, research, meet,
discuss, and focus constantly on outcomes. This idea is beyond just the cleanup of a
brownfield which is required and a maintenance shop which is needed for the area. It
could meet the goals, the outcomes and the value residents shown below.
Robust Local Economy: Diverse Businesses and Jobs with Economic
Prosperity
Outcomes
• Create a resilient regional Dubuque economy
• Have the infrastructure and amenities to support economic development and growth
• Embrace diverse populations to support a diverse multicultural workforce with equitable
job opportunities
Value to Residents
14
• Young professionals want to live here and college graduates want to stay
• Children and grandchildren want to stay or return to raise their families
• More retail, services, recreational and entertainment opportunities— keeping sales tax and
dollars in Dubuque
Vibrant Community: Healthy & Safe
Outcomes
� Continue to become an inclusive and equitable community in which all feel welcome,
included, and leaving no one behind
• Have an efficient public health system that focuses on prevention and wellness
• Have residents feeling safe in any neighborhood and throughout the community
• Have residents feeling that they are part of the solution
Value to Residents
• Everyone is welcome in the Dubuque community
• Equitable treatment for all
� City services are available for all and delivered in an equitable and fair manner
Livable Neighborhoods and Housing: Great Places to Live
Outcomes
• Increase the visual appeal and beauty of the city with attractive gateways, corridors,
neighborhoods, homes and businesses
• Have safe, healthy, inclusive neighborhoods citywide
Value to Residents
• Choice of livable neighborhoods
� Opportunities for our children to stay in Dubuque
• Protection of home and property values
Financially Responsible, High Performance City Organization: Sustainable,
Equitable and Effective Service Delivery
Outcomes
• Provide City services responsive to the community
• Provide easy access to City information and services for all
Value to Residents
• Financially sound and responsible City government
• Easy, convenient access to City information and services
� Service value for taxes and fees
• Opportunities to become involved in City governance and planning
• Customer-focused City service delivery
Sustainable Environment: Preserving and Enhancing Natural Resources
Outcomes
• Reduce the community's carbon footprint (50°/o by 2030)
• Reduce the potential flooding through flood plain management, mitigation and protection
15
• Become a resilient city using sustainable and affordable technology for water, energy,
transportation, health and wellness, discard, community engagement—a model
community for the world
Value to Residents
• Protecting the natural resources and environment of Dubuque
� City government using sustainable practices in daily operations
• Healthy living environment: homes, neighborhoods and community
• Clean water and air
• Creating a more livable, viable and equitable community
� Opportunities for a healthy lifestyle including local food products
Partnership for a Better Dubuque: Building our Community that is Viable and
Equitable
Outcomes
• Increase resident engagement in the City governance processes
• Have non-profit institutions, private businesses and educational institutions contributing
toward implementation of the Imagine Dubuque plan
• Have opportunities for residents for upward mobility and empowerment across all
demographics
• Engage contracted and purchased service partners in advancing Council goals and
community betterment
• Become an inclusive and welcoming community for all
Value to Residents
• Sense of community pride and commitment to the Dubuque community
• More ownership of"end" products— residents involved in the process and support
outcomes
• Protection of residents' interests
• Access to wealth and social capacity—financial, spiritual, social, etc
• Better access and use of City facilities
Diverse Arts, Culture, Parks and Recreation: Experiences and Activities
Outcomes
• Have well-built, well-maintained and upgraded parks and park amenities
• Have welcoming community events and festivals that bring the Dubuque community
together— residents meeting residents
• Have family-oriented programs and activities
• Expand arts and cultural opportunities with access for all
Value to Residents
• Opportunities for all to experience diverse arts and culture
• Choice for residents' leisure time
• Family oriented activities for all generations
• Accessible, equitable and diverse recreational and enrichment programs, facilities and
activities
• Access to quality parks, facilities and park amenities for all
• Enriches quality of life
16
Connected Community: Equitable Transportation, Technology, Infrastructure &
Mobility
Outcomes
• Have well maintained, improved transportation system —vehicles, roadways, sidewalks
and trails
Value to Residents
• Reduced traffic congestion and improved traffic flow
• Greater economic opportunities
• Choice among alternative transportation modes
ACTION REQUESTED
This memo is for informational purposes only to share research and data related to race
relations and teenage arrest rate improvements by way of community center installation
as well as ties that research and data to equity impacts, outcomes and the value to
residents.
cc: Steve Sampson Brown, Project Manager
Dan Kroger, Recreation Division Manager
Heather Satterly, AmeriCorps Director
Steve Fehsal, Park Division Manager
Jackie Hunter, Multicultural Family Center Director
Kelly Larson, Human Rights Director
Jerelyn O'Connor, Neighborhood Specialist
Mary Rose Corrigan, Public Health Specialist
Teri Goodmann, Assistant City Manager
Cori Burbach, Assistant City Manager
Mark Dalsing, Police Chief
Crenna Brumwell, City Attorney
Gus Psihoyos, City Engineer
Deron Mehring, Civil Engineer
17
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Safe Parl�s
How to Reduce Violence In and Around Parks
Dan I<roger / November i6, ZoiS
18
When referring to public spaces, American Urbanist William H. Whyte once said, "So-
called `undesirables' are not the problem. The best way to handle the problem of
undesirables is to malce the place attractive to everyone else" (NRPA, aoiZ). The basic
concept of a parlc or neighborhoods safety is people. Having more people being active in
these spaces deters the others who want to cause problems. This concept is consistent in
all parts of the world. Researchers from the Commission for Architecture and the Built
Environment (CABE) based in the UK, have done exhaustive research on how
parlc/community design combined with demographics play a major role in anti-social
behavior. The National Recreation and Parlc Association (NRPA) along with along with
Universities have also done research on safe parlc environments and the role of
neighborhood parlcs as crime generators. In addition, the U.S. Department of Justice
developed a Community Police Response Guide for "Dealing with Crime and Disorder in
Urban Parlcs." Communities in our largest urban areas (New Yorlc, Chicago,
Philadelphia, Las Angeles, etc.) have all created programs to help reduce the amount of
crime in their public spaces.
Throughout all of these publications there are 3 main themes.
i. Infrastructure and Design
z. People/Participants
3. Community
Infrastructure and design can directly relate to anti-social behavior. Where amenities are
located, how well lit the parlc and walkways are, tree location, and more can all contribute
to whether or not a public space is safe; however, infrastructure and design also relates to
amenities. Does the area have activity generators that people actually want to use? Do
these generators draw in people from both the community and other areas? According to
the U.S. Department of Justice, parlcs with more activity generators experience less crime
(Hilborn, zoo9). These activity generators can be passive and/or programmable. A
passive activity generator is something within the parlc that a patron can participate by
themselves or with friends without the need for programming. Qualiry wallcing paths,
outdoor chess sets, outdoor ping pong tables, playgrounds, splash pads, graffiti walls, etc.
are examples of passive recreation. Programmable recreation generators are ball fields,
baslcetball courts (can also be passive), band shells, etc. where city staff or communiry
members can hold structured activities.
The ultimate goal of infrastructure and design is to bring people to the parlc. The design
and setting of a parlc determines whether it is well used. Well used parlcs have enough
legitimate users to monitor what goes on in them (McCord & Groff, zoii). Studies show
that the more people are in the park, the less opportunity for crime. These patrons in the
parlc can be considered natural guardians (Hilborn, aoo9). These guardians are ordinary
citizens whose presence serve as a reminder to potential offenders that someone is
watching. This idea reaches outside of the parlc borders. In many neighborhoods,
19
patrons wallc to their local parlc area. It is just as important that the access routes to and
from the parlc have quality wallcways that are well lit at night and in good repair.
Encouraging foot traffic around the parlc, expands the natural guardianship into the
neighborhood.
Just as important as infrastructure and design is the cleanliness and attention provided to
space. The decline in a parlc's condition creates the opportunity for antisocial behavior to
become dominant Much lilce the Brolcen Window theory, negligence creates an
atmosphere that states no one is watching nor cares. If someone wallcs by an old building
with brolcen windows, the chances are greater that they may try to brealc any remaining
solid windows. Obviously no one cares about this building and its olc/fun to throw rocics
at it. Even worse, people may choose to use this building for drug purposes or other
crimes. In a playground, if graffiti is not talcen care of immediately, playground
equipment is in disrepair, and lights are out regularly this provides an impression to
potential at rislc youth and other criminals that no one is watching nor cares. Essentially
this space would be considered an easy target for someone wanting to commit a crime.
To the everyday patron, a consistent lacic of attention can provide the perception that the
parlc is unsafe which will result in the lacic of use.
Programming utilizes the amenities to another level for patronage of a parlc and/or
neighborhood. Programming expands the outreach of programs and services to attract a
greater number of people to the area. It also typically includes staff which are able to
monitor parlc activity at a higher capacity than the average patron. This can include
weelcend festivals, baslcetball leagues, playground programs, teen nights, art fairs, etc.
The overwhelmingly most influential part of park/neighborhood safety is the community.
In every successful neighborhood turnaround project researched, the support and buy-in
from the people who live in these areas had the greatest impact. This buy-in can also be
defined as a "personal sense of place." Without personal meaning there is little
motivation to get involved in crime prevention (Hilborn, zoo9). There is also an
accelerated reaction to view a parlc/neighborhood as unsafe for those individuals who are
not vested in the neighborhood. In response to this reaction, organizations such as CABE
and the Project for Public Spaces have been developing models for place-malcing. As one
example, youth and young adults (ages iz to a5) are often involved in parlc/neighborhood
crime. This activity can range from loitering throughout the neighborhood to serious
crimes involving drugs, vandalism, or much worse. In an article posted on the Project for
Public Spaces website (www.pps.org) examples were provided on how cities throughout
the world have worlced with their young people to solve issues within their
neighborhoods. By being actively engaged in youth-friendly spaces, young people can feel
lilce they have an investment in their community and they can develop a strong sense of
ownership in these places (Millard, zoi5). In the article's examples, these cities were able
to change the way their public spaces were utilized through engaging young people in the
planning process. These processes included updated amenities, design, and community
20
watch programs. The more that the youth felt a part of the space, the more active they
became as well as attentive to inappropriate behavior.
Conclusion
Creating safer public spaces cannot be accomplished by one person, group, or entity. In
other words the City cannot do it alone. It is the effort of everyone with the vested
interest in these spaces that has the greatest impact on whether or not they are safe. It is
going to talce a critical loolc at infrastructure of these parlcs and surrounding
neighborhoods along with increased and intentional programming by both staff and the
community to drive positive change. This change can reshape community wide
perceptions toward an area's safety as well as value.
References
CABE. (Zoo4, November). Policy Note: Preventing Anti-Social Behavior in Public Spaces.
Retrieved from Cabe Space: http://www.cabespace.org.ulc
CABE. (ZooS). Decent Parlcs? Decent Behavior? The Linlc Between the Quality of Parlcs
and User Behavior. Retrieved from Cabe Space: http://www.cabespace.org.ulc
Hilborn, J. (zoo9, May). Dealing With Crime and Disorder in Urban Parlcs. Retrieved from
COPS, U.S. Department of Justice: http://www.cops.usdoj.gov
McCord, E., & Groff, E. (zoii). The Role of Neighborhood Parlcs as Crime Generators.
Security Journal, i-a4.
Millard, C. (zoi5, June a). Young People and Placemalcing: Engaging Youth to Create
Community Places. Retrieved from Project for Public Spaces: http://www.pps.org
NRPA. (aoiz). Creating Safe Parlc Environments to Enhance Community Wellness.
Retrieved from National Recreation and Parlc Association: www.nrpa.org
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DUBUQUE 2010 STUDY ON CRIME AND POVERTY SUMMARY REPORT
RELATIVE CITINGS
The Dubuque 2010 Study on Crime and Poverty Summary Report conducted by
Northern Illinois University (NIU) provided a literature review on general effective
strategies/policies for preventing crime in mid-sized communities and effective
strategies/policies to alleviate the perception of crime. They shared, "Though the
literature provides for multiple strategies that may be appropriate for mid-sized
communities such as Dubuque, it is important to note that no two communities are alike,
nor have any of the authors been able to generalize their Study's findings. Each
municipality's existing landscape of crime, demographics and policies must be taken
into consideration, including the legal, fiscal, and technical feasibility as well as the
political acceptance of each strategy and/or combination of strategies."'
"The City of Dubuque has been committed to a professional approach to managing its
affairs based on analysis, expertise, review, dialogue, and objective decision-
making. From this orientation and recognizing that crime remains a chief concern
among residents, the City asked that a broad study of crime and poverty be undertaken.
In this context, the purpose of the analysis that has been presented here is not to
identify a "silver bullet," but to establish a foundation of understanding based on
objective data analysis and sound research principles that will be useful to frame future
dialogue regarding crime and poverty in Dubuque. There is no "one-size-fits-all"
solution or strategy that can be prescribed for the City of Dubuque or any other city. As
discussed below, there is not a mysteriously elusive program or policy decision that can
be implemented to change the complex factors that contribute to the presence of crime
in a community. As the study team confirmed in the search of the literature, there is not
a singular recommendation available to direct a community on how to fight crime—
every strategy must be tailored to the needs, context, values and assets of the
individual community. However, by 1) gauging resident perceptions, 2) comparing
crime attributes with similar communities, 3) examining patterns of crime in Dubuque, 4)
exploring potential connections of various demographic groups to crime, including Sec.
8 participants, and, 5) canvassing the academic literature regarding crime and poverty,
this study provides Dubuque policymakers with an objective assessment of local crime
and poverty that can move the discussion beyond competing perceptions toward
reasoned solution."$
"Research shows that these neighborhoods suffer from cumulative disadvantage, where
the simultaneous presence of negative factors such as families below the poverty line,
families receiving public aid, the unemployed, and female-headed households with
children in a dense setting combines to create social and physical disorder. As disorder
increases and crime blossoms, residents feel that they are unable to exert formal and
informal control over the neighborhood and become fearFul of crime, further weakening
� Dubuque 2010 Study on Crime and Poverty Summary Report; Northern Illinois University.
https://www.cityofdubuq ue.org/Docu mentCenter/View/2742/Du buque-2010-Study-on-Crime-and-
Poverty-Summarv-R?bidld= Page 7.
$ Ibid. Page 74-75.
22
collective efficacy and social networks. This creates hotspots of crime that can be
difficult, if not impossible, to immediately reverse. It is the concentration of low
incomes and poverty in resource-poor neighborhoods that can be blamed for many
high-crime neighborhoods.
Nonetheless, academic research has also pointed to a number of promising strategies
to address crime-susceptible neighborhoods with concentrated public or assisted
housing. Foremost among these strategies is the following: public housing units should
be located in garden-style settings, widely geographically disbursed into neighborhoods
with sufficient social resources. This helps ensure that residents are supported
socially, can create defensible space where residents can control their immediate
external surroundings, dampens the fuel that fires crime hotspots, and, has been proven
not to diffuse crime into the surrounding neighborhood. In addition, police should
engage residents by involving themselves into the problem neighborhoods. Since no
single community policing strategy can be applied successfully in every setting, the
guiding principles should be to increase contact with residents, pursue community
partnerships, and be proactive in preventing crime."9
"With this in mind, the research team offers the following broad principles to assist in
developing strategies to address crime and poverty:
• Utilize this study as a springboard for objective dialogue — Decision-making absent
information can create dangerous perceptions and exacerbate existing
conditions. The report offers a wealth of data and analysis to help understand crime
and poverty in Dubuque. Policymakers, staff, and residents are encouraged to adopt
the analytical approaches contained within the study now and into the future to guide
public discourse on these vital community issues.
• Invest in, partner with, and empower at-risk neighborhoods — By rehabilitating housing
stock, addressing physical and social disorder, establishing relationships between
police and neighborhood residents, partnering with neighborhood businesses and
nonprofits, Dubuque policymakers can help those living in suffering areas to reclaim
their neighborhoods. ... Residents in these areas must have trust in each other and
police in order to reclaim their neighborhoods.
• Address downtown crime hotspots — Focusing resources toward these areas through
efforts such as saturation patrol and minimizing disorder can have a tremendous effect
upon crime; however, it is important to note that these efforts are most effective after
community policing strategies to build relationships in troubled neighborhoods have
been successfully implemented.
• Address poverty wherever it occurs —As poverty and low income are the greatest
predictors of crime, Dubuque policymakers would be wise to provide assistance to the
impoverished so that they can regain their financial footing. Such efforts could prove
to be the most significant crime prevention strategy available and could help ensure
that other neighborhoods do not fall prey to the cycles of poverty and crime."'o
9 Ibid. Page 78.
10 Ibid. Page 80-81.
23
"Neighborhood attachment, informal social control and social capital are all associated
with lower levels of crime fear. Oh and Kim (2009) studied the effect of neighborhood
attachment on fear of crime. Neighborhood attachment was measured by the number
of friendships held with other neighborhood residents, amount of socialization with
neighbors, social cohesion (are neighbors trustworthy and is the community tight knit),
informal social control (would neighbors take action if they saw kids misbehaving in
public), and participation in neighborhood watch programs. Of those variables, higher
amounts of neighbor socialization, social cohesion and informal social control
significantly lessened fear among neighborhood residents.
Social capital (defined as the level of social resources one has available through one's
social network) has been shown to affect fear and perception of neighborhood crime,
according to a study by Kruger and Hutchison (2007). Crime fear was an itemed
scale. The items were:
• How fearFul are you about crime in your neighborhood (very fearFul to not at all
fearful)?
• How safe is it to walk around the neighborhood in the daytime?
• How safe is it to walk the neighborhood at night (extremely dangerous to completely
safe)?
• Compared to other neighborhoods, the crime rate in my neighborhood is... very high
to very low.
The social capital was measured as an itemized scale: asking if neighbors are willing to
help each other and how trustworthy their neighbors are. For people ages 10 to 24 and
50 or older, social capital had a significant negative relationship with fear of
crime. Because social capital, informal social control and neighborhood attachment are
important predictors of crime, promotions of activities like community gardens and
neighborhood watches are recommended.""
" Ibid. Page115.
24