Rebuilding America's Infrastructure with Sustainability and Equity (RAISE) Infrastructure Planning Grant ApplicationCity of Dubuque
City Council Meeting
Action Items # 3.
Copyrighted
July 19, 2021
ITEM TITLE: Rebuilding America's Infrastructure with Sustainability and Equity
(RAISE) Infrastructure Planning Grant Application
SUMMARY: City Manager recommending approval to submit a $2,112,000 application
to the U.S. Department of Transportation for the Rebuilding America's
Infrastructure with Sustainability and Equity (RAISE) Infrastructure
Planning Grant to assist with the planning and design of a multimodal
transportation corridor project for proposed improvements to the Elm
Street corridor, the 16th Street corridor, and the proposed 14th Street
Railroad Overpass bridge project.
RESOLUTION Approving application for Rebuilding America's
Infrastructure with Sustainability and Equity (RAISE) Grant Funding for
the planning and design of a Multimodal Transportation Corridor Project
for proposed improvements to the Elm Street Corridor, 16th Street
Corridor and the proposed 14th Street Railroad Overpass Project
SUGGESTED Suggested Disposition: Receive and File; Adopt Resolution(s)
DISPOSITION:
ATTACHMENTS:
Description
RAISE Grant Application- MVM Memo
Staff Memo
Resolution
Type
City Manager Memo
Staff Memo
Resolutions
Grant Application Supporting Documentation
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Rebuilding America's Infrastructure with Sustainability and Equity (RAISE)
Infrastructure Planning Grant Application
DATE: July 13, 2021
Director of Strategic Partnerships Teri Goodmann, City Engineer Gus Psihoyos and
Economic Development Director Jill Connors recommend City Council approval to
submit a $2,112,000 application to the U.S. Department of Transportation for the
Rebuilding America's Infrastructure with Sustainability and Equity (RAISE) Infrastructure
Planning Grant to assist with the planning and design of a multimodal transportation
corridor project for proposed improvements to the Elm Street corridor, the 16th Street
corridor, and the proposed 14th Street Railroad Overpass bridge project. The City's
commitment for local match will be $1,408,000 supplied by DMATS STBG SWAP
Funds.
The City applied for USDOT TIGER Discretionary Grants in both 2014 and 2017,
however our application requests were not selected. City staff was advised by grant
review agency staff that our proposed infrastructure project grant applications were
strong, however the projects were not advanced far enough in the planning, design, and
environmental clearance development phases for selection consideration. As a result,
in an effort to be better positioned for future Federal Discretionary Grant opportunities,
the City has applied for a RAISE Infrastructure Planning Grant to assist with the
planning and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 16th Street corridor, and the proposed
14th Street Railroad Overpass bridge project.
The Planning Grant application proposes a project entitled "Building Bridges to
Employment and Equity (KE2)". Through the grant, the City of Dubuque requests
$2,112,000 in USDOT RAISE Planning funds to assist with the planning and design of a
multimodal transportation corridors which will connect low-income residents with
economic opportunities and key community resources in the Kerper Boulevard Industrial
Park, on Chaplain Schmitt Island, in downtown Dubuque and its Historic Millwork
District, and on the west side of the city via the downtown Intermodal Transportation
Center.
In particular, the Planning Grant would be used for planning and design of physical
connections among downtown neighborhoods and areas of economic opportunity such
as the Kerper Boulevard Industrial Park and Chaplain Schmitt Island. The plans and
designs would focus on projects such as a 14th Street Railroad Overpass bridge
(connecting downtown residents to job opportunities while avoiding train crossing
delays) with "complete streets" and roundabout intersections along Elm Street and 16th
Street corridors. The project would also include the design of an improved
pedestrian/bike shared use path adjacent to the existing 16th Street Peosta Channel
bridge to Chaplain Schmitt Island.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
Mic ael C. Van Milligen
MCVM:jh
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Teri Goodmann, Director of Strategic Partnerships
Gus Psihoyos, City Engineer
Jill M. Connors, Economic Development Director
2
THE CITY OF
DUB El
Masterpiece on the Mississippi
TO: Michael C. Van Milligen, City Manager
FROM: Teri Goodmann, Assistant City Manager
Gus Psihoyos, City Engineer
Jill M. Connors, Economic Development Director
Dubuque
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SUBJECT: Rebuilding America's Infrastructure with Sustainability and Equity (RAISE)
Infrastructure Planning Grant Application
DATE: July 13, 2021
INTRODUCTION
The purpose of this memo is to request City Council approval to submit an application to
the U.S. Department of Transportation (USDOT) for the Rebuilding America's
Infrastructure with Sustainability and Equity (RAISE) Infrastructure Planning Grant to
assist with the planning and design of a multimodal transportation corridor project for
proposed improvements to the Elm Street corridor, the 16th Street corridor, and the
proposed 14th Street Railroad Overpass bridge project.
BACKGROUND
The Rebuilding American Infrastructure with Sustainability and Equity, or RAISE
Discretionary Grant program, provides a unique opportunity for the DOT to invest in
road, rail, transit, and port projects that promise to achieve national objectives.
Previously known as the Better Utilizing Investments to Leverage Development (BUILD)
and Transportation Investment Generating Economic Recovery (TIGER) Discretionary
Grants, Congress has dedicated nearly $8.9 billion for twelve rounds of National
Infrastructure Investments to fund projects that have a significant local or regional
impact.
The City of Dubuque has already used funding from this program. A $5.7 million TIGER
grant was received in 2010 to support the reconstruction of utilities and complete streets
in the Historic Millwork District. Additionally, Dubuque County in partnership with the
City received a $5.4 million BUILD grant in 2019 to support a series of roadway repairs,
intersection capacity and safety improvements, and a trail extension in the vicinity of the
John Deere Dubuque Works facility.
DISCUSSION
The City applied for USDOT TIGER Discretionary Grants in both 2014 and 2017,
however our application requests were not selected. City staff was advised by grant
review agency staff that our proposed infrastructure project grant applications were
strong, however the projects were not advanced far enough in the planning, design, and
environmental clearance development phases for selection consideration. As a result, in
an effort to be better positioned for future Federal Discretionary Grant opportunities, the
City has applied for a RAISE Infrastructure Planning Grant to assist with the planning
and design of a multimodal transportation corridor project for proposed improvements to
the Elm Street corridor, the 16th Street corridor, and the proposed 14th Street Railroad
Overpass bridge project.
City staff have worked with a consultant, Sustainable Strategies DC, to compile and
submit the information needed for the Planning Grant application. Sustainable
Strategies DC is a government affairs and strategic consulting firm helping communities
obtain resources for revitalization and key priorities. The fee proposal from Sustainable
Strategies DC to assist in preparing the grant application was $7,500 and will be paid
through the Engineering Department Operating Budget.
The Planning Grant application proposes a project entitled "Building Bridges to
Employment and Equity (B=)". Through the grant, the City of Dubuque requests
$2,112,000 in USDOT RAISE Planning funds to assist with the planning and design of a
multimodal transportation corridors which will connect low-income residents with
economic opportunities and key community resources in the Kerper Boulevard Industrial
Park, on Chaplain Schmitt Island, in downtown Dubuque and its Historic Millwork
District, and on the west side of the city via the downtown Intermodal Transportation
Center.
In particular, the Planning Grant would be used for planning and design of physical
connections among downtown neighborhoods and areas of economic opportunity such
as the Kerper Boulevard Industrial Park and Chaplain Schmitt Island. The plans and
designs would focus on projects such as a 14th Street Railroad Overpass bridge
(connecting downtown residents to job opportunities while avoiding train crossing
delays) with "complete streets" and roundabout intersections along Elm Street and 16th
Street corridors. The project would also include the design of an improved
pedestrian/bike shared use path adjacent to the existing 16th Street Peosta Channel
bridge to Chaplain Schmitt Island.
A copy of the grant application is attached. The expected timeline for the USDOT
agency review and announcement of selected award recipients is September — October
2021.
BUDGETIMPACT
The RAISE grant funding request is summarized as follows:
Fund Description
Percentage
Fund Amount
RAISE Infrastructure Planning Grant
60 %
$ 2,112,000
Local - DMATS STBG SWAP Funds
40 %
1,408,000
Total Planning Grant Funding
100 %
$ 3,520,000
At the July 8t", 2021 DMATS meeting, the Policy Boards approved $1,408,000 in
DMATS STBG SWAP Funds for the project.
I
ACTION REQUESTED
I respectfully request that the City Council adopt the attached resolution:
1. Approving the submittal of an application to the U.S. Department for $2,112,000
in RAISE Infrastructure Planning Grant funding to assist with the planning and
design of a multimodal transportation corridor project for proposed improvements
to the Elm Street corridor, the 16th Street corridor, and the proposed 14th Street
Railroad Overpass bridge project.
2. Approving the City's commitment to provide $1,408,000 in local funding to be
used for the local match requirement of the RAISE Infrastructure Planning Grant
application.
3. Establish the City's authorized representative for the grant as the City Manager
regarding the grant application and grant administration.
Prepared by Robert Schiesl, Assistant City Engineer
cc: Jenny Larson, Director of Finance and Budget
Chandra Ravada, ECIA
3
Pre;pared by Robert Schiesl City of Dubuque EngineeringErgineerIng 50 W. 13111 St. Dubuque, IA 52001 563 589-4270
Return to Adrienne N. Breitfelder City Clerk City of Dubuque, 50 W. 131h St. Dubuque, iA 52001 (563) 589-4100
RESOLUTION NO, 256-21
APPROVING APPLICATION FOR REBUILDING AMERICA'S INFRASTRUCTURE
WITH SUSTAINABILITY AND EQUITY (RAISE) GRANT FUNDING FOR THE
PLANNING AND DESIGN OF A MULTIMODAL TRANSPORTATION CORRIDOR
PROJECT FOR PROPOSED IMPROVEMENTS TO THE ELM STREET CORRIDOR,
16TH STREET CORRIDOR AND THE PROPOSED 14TH STREET RAILROAD
OVERPASS PROJECT
WHEREAS, the City proposes a multimodal transportation corridor project that will
improve safety, drive economic competitiveness, improve quality of life, address the
negative impacts of climate change, and foster a more sustainable, equitable and resilient
Dubuque; and
WHEREAS, RAISE Planning funds will be used to plan and design Complete
Street corridors and five roundabouts along the intersecting Elm Street and 16th Street
Corridors, and
WHEREAS, RAISE Planning funds will be used to plan and design a new
pedestrian/bike shared use path adjacent to the existing 16th Street Peosta Channel
bridge to Chaplain Schmitt Island,
WHEREAS, the Canadian Pacific (CP) Railroad travels through the urban core of
the City with numerous at -grade crossings on local city streets in the downtown area; and
WHEREAS, approximately 8-10 trains passing through Dubuque on a daily basis
severely impedes the ability for pedestrians, vehicles, commercial traffic and emergency
responders to access the northeast segment of the City; and
WHEREAS, RAISE Planning funds will be used to plan and design a new vehicular
and pedestrian overpass at the 14th Street railroad tracks to reduce train -related delays
that impair the safe and efficient movement of people and freight to the city's most
promising areas of economic revitalization, and
WHEREAS, the City's Long Range Transportation Plan includes the proposed
multimodal transportation corridor projects; and
WHEREAS, the City of Dubuque will submit a RAISE grant application for
$2,112,000 to assist with the planning and design of a multimodal transportation corridor
project; and
WHEREAS, the Application requires that the City Council agree to provide and
make available up to $1,408,000 in local funding to be used for the local match
requirement of the RAISE grant application; and
WHEREAS, the City must establish an authorized representative able to execute
on behalf of the City of Dubuque for the proposed improvements to the Elm Street
corridor, the 16th Street corridor, and the 14th Street Railroad Overpass project-, and
NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF DUBUQUE, IOWA AS FOLLOWS -
Section 1. Approving the City's application for $2,112,000 in Rebuilding America's
Infrastructure with Sustainability and Equity (RAISE) Grant funding to assist with the
planning and design of a multimodal transportation corridor project for proposed
improvements to the Elm Street corridor, the 16th Street corridor, and the proposed 14th
Street Railroad Overpass Projects.
Section 2. Approving the City's commitment to provide $1,408,000 in local funding
to be used for the local match requirement of the RAISE grant application.
Section 3. Establishing the City Manager as the City's authorized representative
regarding the grant.
Passed, approved and adopted this 19th day of July 2021.
Ar� /.L/
Roy D. YU01, Mayor
Attest:
Trish L. Gleason, Assistant City Clerk
Building Bridges to Employment and Equity (B2E2)
City of Dubuque Requests $2,112,000 in U.S. DOT
RAISE Planning Resources to Connect Low -Income
Residents with Economic Opportunities
Chaplain Schmitt Island
Applicant: City of Dubuque, Iowa
Type of Applicant: City Government,
Rural, Areas of Persistent Poverty
Location: Dubuque, Iowa
RAISE Planning Grant Request: $2,112,000
Local Match: $1,408,000
THE CITY OF Project Contact: Teri Goodman
Director of Strategic Partnerships
DUB E (563) 589-4110
Masterpiece on the Mississippi tgoodman&cityofdubuque.org
TABLE OF CONTENTS
Executive Summary
Page 3
I. Project Description
Page 6
II. Project Location
Page 14
III. Grant Funds, Sources and Uses of all Project Funding
Page 17
IV. Selection Criteria
Page 18
A. Primary Selection Criteria
Page 18
1. Safety
Page 18
2. Environmental Sustainability
Page 20
3. Quality of Life
Page 21
4. Economic Competitiveness
Page 22
5. State of Good Repair
Page 24
B. Secondary Selection Criteria
Page 26
1. Innovation
Page 26
a. Innovative Technologies
Page 26
b. Innovative Project Delivery
Page 26
c. Innovative Financing
Page 27
2. Partnership
Page 27
V. Environmental Risk Review and Project Readiness
Page 29
A. Project Schedule
Page 29
B. Required Approvals
Page 30
1. Environmental Permits and Review
Page 30
2. State and Local Approvals
Page 30
3. Federal Transportation Requirements Affecting State and Local
Page 31
Planning
C. Assessment of Project Risks and Mitigation Strategies
Page 31
D. Technical Capacity
Page 31
E. Financial Capacity
Page 32
VI. Benefit Cost Analysis
Page 32
ATTACHMENTS
• Excel Project Form
• Letters of Support
• Local Match Documentation
• Areas of Persistent Poverty/Opportunity Zone Map
• Project Area Detail Map
• Crash Incidents
• Federal Aid Projects History
• Engineering Staff Bios
2 1 Page
EXECUTIVE SUMMARY
The City of Dubuque, Iowa, requests $2,112,000 in U.S. Department of Transportation (DOT)
Rebuilding America's Infrastructure with Sustainability and Equity (RAISE) Planning funds to
plan, design and engineer an estimated $35.2 million multimodal transportation corridor project
that will improve safety, drive economic competitiveness, improve quality of life, address the
negative impacts of climate change, and foster a more sustainable, equitable and resilient
Dubuque. The Building Bridges to Employment and Equity (B2E2) project will directly
benefit low-income Dubuque residents in Areas of Persistent Poverty by connecting them to
economic opportunities and key community resources in the Kerper Boulevard Industrial Park,
on Chaplain Schmitt Island, in downtown Dubuque and its Historic Millwork District, and on the
west side of the city via the downtown Intermodal Transportation Center (ITC).
RAISE Planning funds will be used to plan and design Complete Street corridors and five
roundabouts along the intersecting Elm Street and 16th Street Corridors, design a new
pedestrian/bike shared use path adjacent to the existing 16th Street Peosta Channel bridge to
Chaplain Schmitt Island, and to plan and design a new vehicular and pedestrian overpass at the
14th Street railroad tracks to reduce significant train -related delays that impair the efficient
movement of people and freight to the City's most promising areas of economic revitalization.
These improvements will create the physical infrastructure needed to support a safe, connected
walking and biking network that serves the distressed North End, Point and Washington
Neighborhoods, providing enhanced multimodal transportation access to key community
resources. The project area and all three distressed neighborhoods are located in census tracts
designated as Areas of Persistent Poverty. Two of the census tracts in the project area are also
designated as a federal Opportunity Zone.
Reconstructing 16th Street as a Complete Street will improve safety and increase capacity for
planned economic growth in the Kerper Boulevard Industrial Park and on Chaplain Schmitt
Island, two key employment centers. Dubuque plans to reconstruct Elm Street as a Complete
Street to establish a safe network connecting the City's most distressed residential neighborhoods
to the project area's primary economic clusters, the downtown ITC, and other community
services and amenities. Taken together, the B2E2 transportation enhancements will provide
measurable and non -trivial outcomes that directly benefit residents of the City's Areas of
Persistent Poverty.
Dubuque's B2E2 project aligns with DOT's strategic goal to improve the efficient movement of
people and goods, and supports the Biden Administration's priority to invest in national
infrastructure projects that result in good -paying jobs, improve safety, apply transformative
technology, and explicitly address climate change and advancing racial equity.
For decades, Dubuque has engaged in long-term economic development efforts to boost
manufacturing, promote commercial development and create jobs along its Mississippi River
waterfront. In the 1950s, the City helped to develop the 229-acre Kerper Boulevard Industrial
Park to concentrate light manufacturing and other business uses. Private sector companies have
invested millions of dollars and expanded their operations within the park over the years.
3 1 Page
Large vacant and underutilized buildings are currently being targeted for reuse within the Kerper
Boulevard Industrial Park. Across the Peosta Channel, a former landfill was reclaimed and
renamed in memory of Chaplain Aloysius Schmitt in the 1980s. Current commercial and
recreational venues on Chaplain Schmitt Island include the Q Casino & Resort, Mystique
Community Ice Center, Iowa Greyhound Park, hotels, restaurants, and marinas. RAISE
investment will help drive additional public and private investment on the island, including a
long -planned hotel expansion at the Q Casino and redevelopment of the southern portion of the
island as a destination and jobs center with new housing, retail, restaurants, entertainment
facilities, and recreational amenities.
Finally, the former Dubuque Packing Company (pork and cattle meat packing) plant property, a
40-acre site located on 16th Street near the island, is poised for redevelopment after sitting idle
for more than a decade. Development on this key brownfield site will serve as a regional jobs
magnet, expanding economic opportunity along the 16th Street Corridor. However,
transportation access to the area is constrained. Poor intersections, unsafe conditions and limited
pedestrian/bike accommodations separate the City's employment clusters from Dubuque's
residents, particularly those with no vehicle.
Specifically, RAISE grant dollars will help Dubuque plan, design and engineer a project that:
• Better manages traffic on the Elm Street and 16th Street Corridors by constructing five
roundabouts (Admiral Sheehy Roundabout, Kerper Boulevard Roundabout, Sycamore
Street Roundabout, Elm Street Roundabout, and Five Points Roundabout) and
reconstructing the street pavement to improve vehicle flow and restore the corridors to a
state of good repair;
• Improves pedestrian and bicycle safety with Complete Streets on both corridors, as well
as a separate pedestrian/bike shared use path adjacent to the existing 16th Street bridge
across the Peosta Channel;
• Reduces significant train delays and improve the efficient movement of people and goods
by constructing a vehicular and pedestrian railroad overpass at 14th Street, including
street reconstruction from the new overpass to the eastern terminus of 14th Street, then
north from 14th Street to the planned Sycamore Street Roundabout;
• Strengthen transit connectivity between the 16th Street commercial corridor and the
downtown, Historic Millwork District, ITC and low-income households in the North End,
Point and Washington Neighborhoods;
• Enhance streetscapes to encourage further job -creating development;
• Mitigate climate change impacts through Complete Streets that encourage modal shifts,
reduce vehicle miles traveled (VMT) and lower vehicular emissions by providing safe,
interconnected routes for walking and biking;
• Address racial inequities by connecting minority residents who live in census tracts
designated as Areas of Persistent Poverty with good -paying jobs and improved access to
community services and critical amenities such as health care, food and recreation;
• Boost bus transit ridership along the Elm Street and 16th Street Corridors for low-income
residents, millennials, senior citizens, and persons with disabilities; and
• Reduce stormwater runoff to minimize pollution impacts on the Mississippi River.
4 1 Page
Revitalization of the Elm Street and 16th Street Corridors meets all of DOT's RAISE criteria.
The project will improve safety by reducing conflicts on both corridors with roundabouts and
creating pedestrian and biking accommodations where they are insufficient or do not currently
exist. Proposed improvements align with DOT "state of good repair" goals by prioritizing
investment in existing infrastructure. Economic development in the promising 16th Street
Corridor is dependent on the proposed transportation measures. Transportation enhancements
along both corridors will promote environmental sustainability by encouraging alternative travel
modes, reducing fuel consumption, curbing emissions, and decreasing stormwater runoff through
green infrastructure.
Upgrades on the Elm Street and 16th Street Corridors and the construction of pedestrian/bike
connectors will contribute to quality of life improvements in the distressed North End, Point and
Washington Neighborhoods. In Census Tracts 1 and 5, nearly one-third of residents are living in
poverty, more than 20% of households have no access to a vehicle, 16% of persons are disabled,
30% of residents are millennials (age 20 to 34), and one-third are minority residents, compared
to 12% of the city population as a whole. (see Figure 1. Demographic Profile) Both census tracts
are designated as Areas of Persistent Poverty. Three additional census tracts adjacent to the
project area also qualify for this designation (Census Tracts 3, 6 and 7.01).
The B2E2 project demonstrates innovation through its sustainable design, integration with the
City's Intelligent Transportation System (ITS) technologies, and incorporation of green
infrastructure techniques to protect the Mississippi River. The project will also leverage
significant local and private sector support from Dubuque's partners, including the State of Iowa,
East Central Intergovernmental Association, Jule transit system, Greater Dubuque Development
Corporation, and local developers, for whom the project area's designation as a federal
Opportunity Zone is already driving significant interest.
Dubuque submitted a 2017 application for DOT TIGER funding to support construction of the
16th Street Corridor project as it was conceived at that time. This RAISE Planning request
includes changes in the proposed project scope that make it an even more compelling investment
of federal transportation funds. The City also received a $5.6 million TIGER award in 2010,
which it effectively used to construct Complete Streets in the nearby Historic Millwork District.
That transformative work leveraged more than $150 million in local private investment and
earned Dubuque a 2013 National Award for Smart Growth Achievement from the U.S.
Environmental Protection Agency (EPA).
Due to significant constraints on the City's ability to fully fund this planning project on its own,
RAISE resources are needed to close the financing gap and move the B2E2 project forward.
Nonetheless, to demonstrate its strong commitment to the project, the City pledges to provide an
over -match equal to 40% of total planning project funding. Planning efforts will commence upon
grant award, and design and engineering will be complete by September 2024. Limited property
acquisition will be required as the project largely lies within the existing right-of-way. RAISE
Planning funds will easily be obligated by the September 30, 2024 deadline and expended well in
advance of the September 30, 2029 deadline.
5 1 Page
I. PROJECT DESCRIPTION
Dubuque (population 57,882) is currently underway with an ambitious effort to revitalize two
major, interconnected corridors:'
• The 16th Street Corridor represents Dubuque's economic future. Containing the Kerper
Boulevard Industrial Park, Chaplain Schmitt Island and key parcels of vacant land
available for economic development, the community expects the B2E2 project to drive
new, job -creating investments that will expand economic opportunity, especially for
residents of the distressed neighborhoods in census tracts that qualify as Areas of
Persistent Poverty in and around the project area.
• The Elm Street Corridor, which intersects the 16th Street Corridor, is a vital connector
between the City's major economic clusters and distressed neighborhoods in census tracts
that qualify as Areas of Persistent Poverty and are designated as a federal Opportunity
Zone (see attachments forAPP/OZ map).
• The project will connect Dubuque residents with the Historic Millwork District, a
43-acre, previously abandoned industrial area that contains over 1 million square feet of
warehouse space. Once the nation's largest millwork district, the neighborhood had
declined for decades. Dubuque has completed an ambitious effort (supported with 2010
TIGER funds) to reclaim the Historic Millwork District as a regional engine of growth.
• The North End, Point and Washington Neighborhoods contain the City's oldest housing
stock, a higher concentration of minorities and households living in poverty than
citywide, and rank above the 95th percentile statewide and nationally in several key
environmental justice indicators (proximity to Superfund sites, lead paint). Dilapidated
rental units, perceptions of high crime and repeated flooding events in sections of these
neighborhoods have resulted in declining property values. The area, located in the center
of Dubuque's urban core, is being revitalized with green infrastructure, brownfields
remediation and mixed -use development. RAISE funding will support and accelerate
these efforts.
• The proposed RAISE improvements will improve pedestrian, bicycling and transit uses
on the Elm Street and 16th Street Corridors, and facilitate the movement of residents
between downtown Dubuque, the Historic Millwork District, and the North End, Point
and Washington Neighborhoods to new commercial activity and job opportunities in the
Kerper Boulevard Industrial Park, on Chaplain Schmitt Island, and on key brownfield
sites in the project area.
Dubuque's Transportation Challenges
The Elm and 16th Street Corridors were not designed to support the expansive economic
development envisioned by the City. Traffic will not be able to flow freely on the two
thoroughfares with their multiple congested intersections. Both routes are particularly
challenging for pedestrians and bicyclists, as well as senior citizens and disabled residents, with
inadequate/no sidewalks or bike lanes. Dubuque's key transportation challenges include:
1 U.S. Census Bureau, 2019 Population estimates
6 1 Page
•
•
Congested Streets: Four intersections along the 16th Street Corridor impede the flow of
traffic to the Kerper Boulevard Industrial Park, Chaplain Schmitt Island and areas of
future economic development. This creates unnecessary delays, costs time and money,
and reduces the safe and efficient movement of
people and goods.
Railroad Delays: Traffic to and from the Kerper
Boulevard Industrial Park and Chaplain
Schmitt Island is frequently delayed by trains
for long periods of time. This also impairs the
efficient movement of people and goods and
imposes additional costs on businesses.
• Insufficient/No Sidewalks: Pedestrians are
unable to access existing and planned economic
activity on both corridors due to insufficient or
nonexistent sidewalks. This limits access to DUBURUE'S IGTH STREET CORRIDOR
people who do not own a vehicle.
• Poor/Limited Bicycling Accommodations:
There are no dedicated bike lanes along either corridor, limiting bicycle circulation in the
community.
• ADANon-Compliance: Elderly and disabled residents traveling to the Crescent
Community Health Center on Elm Street, Chaplain Schmitt Island and downtown
Dubuque are hindered by poor pedestrian access.
• Unappealing Streetscape: The Elm Street and 16th Street Corridors lack identity without
uniform street lighting and landscaping. The existing streetscapes inhibit people from
walking through the area and work against the community's goal of creating vital
commercial corridors and transit connectors.
• Polluted Stormwater Runoff. Discharges from rain events threaten the Mississippi River.
Project History/Progress to Date
Dubuque has achieved substantial progress on its
community revitalization goals. In the Historic
Millwork District, a $5.6 million TIGER grant was
awarded in 2010 to construct Complete Streets. Those
efforts led to the Historic Millwork District's rebirth.
Virtually empty in 2008, the neighborhood is well on
its way to attracting new residents and employing new
workers. More than $150 million was leveraged locally
in private sector investment based on the TIGER
DOBOOOE'S HISTORIC MILLWORK DISTRICT
funding. Dubuque was also recognized by the EPA in
2013 with a National Award for Smart Growth
Achievement for the Historic Millwork District's turnaround.
In the North End, Point and Washington Neighborhoods (Census Tracts 1, 3 and 5), regular
flooding has imperiled homes for decades, disproportionately impacting the City's minority and
low-income residents. The City spent $219 million to resurrect a buried creek and install green
7 1 Page
infrastructure features to reduce the risk of flood damage to 1,155 properties in the Bee Branch
Watershed, where over 50% of Dubuque's residents either live or work. The City also created a
linear park along the Bee Branch Creek, with amenities including an amphitheater, bike/hike
trails, bridges, lighting, and landscaping. In 2016, Dubuque received a $31.5 million Natural
Disaster Resilience Grant from the U.S. Department of Housing and Urban Development (HUD)
for flood -proofing and additional stormwater infrastructure improvements in the Washington
Neighborhood.
In partnership with the Greater Dubuque Development Corporation, the City launched an
initiative to restore the Elm Street and 16th Street Corridors and other areas on the north end of
Dubuque, originally the heart of the City. The goals of this "True North" effort were to
redevelop, reuse and repurpose commercial and/or industrial assets with the greatest opportunity
for a transformative effect; and pursue infrastructure improvements capable of creating the
physical, financial and cultural environment necessary to enable new businesses to develop, and
existing businesses to reinvest. The proposed RAISE transportation improvements support the
True North partnership objectives.
Improved access to the Kerper Boulevard Industrial Park, Chaplain Schmitt Island and future
development on vacant brownfield sites has been the focus of multiple planning efforts,
including the Chaplain Schmitt Island Master Plan, the Chaplain Schmitt Placemaking and
Implementation Plan, the Imagine Dubuque 2037 Comprehensive Plan, and the Tri-State Trail
Vision. Chaplain Schmitt Island was also rezoned in 2017 to allow for planned unit development.
Dubuque has planned for transportation infrastructure enhancements to the 16th Street Corridor
for many years. The City's 2017 TIGER Construction grant application for the corridor included
several components that are in progress or have since been completed. Dubuque has
reconstructed the sanitary sewer from Fengler Street to Kerper Boulevard, and from Kerper
Boulevard to Sycamore Street, including reconstruction of the south two lanes of Kerper
Boulevard and capacity improvements to accommodate the future economic development
planned for the industrial park and on Chaplain Schmitt Island. The City recently received a
federal TAP grant to complete construction of a new multipurpose Bee Branch Creek trail
segment from Sycamore Street, under the elevated U.S. Highway 151/61 overpass to 12th Street,
and has applied for an Iowa DOT recreational trails grant to complete the segment from 12th
Street to Kerper Boulevard and 16th Street.
Dubuque's RAISE Solution
Revitalization of a 3,044-foot section of the 16th Street Corridor and a 2,880-foot section of the
Elm Street Corridor, construction of the pedestrianibike shared use path to Chaplain Schmitt
Island, and a vehicular/pedestrian overpass at the 14th Street railroad grade are critical to
Dubuque's future economic vitality and to reduce barriers to opportunity for the City's most
impoverished residents. Complete Streets will connect downtown Dubuque, its Historic
Millwork District, and the ITC with low-income households in the distressed North End, Point
and Washington Neighborhoods, providing improved access to good -paying jobs and other
community resources and amenities.
8 1 Page
Specific improvements include:
16th Street Corridor
• Reconstruct 16th Street from Elm Street to Greyhound Park Road as a Complete Street,
with sidewalks and bike lanes to improve safety and access for pedestrians and bicyclists;
• Construct four roundabouts along the 16th Street Corridor (Admiral Sheehy Roundabout
— intersection of 16th Street with Admiral Sheehy Drive/Greyhound Park Road; Kerper
Boulevard Roundabout — intersection of 16th Street and Kerper Boulevard; Elm Street
Roundabout — intersection of 16th Street and Elm Street; and Sycamore Street
Roundabout — intersection of 16th Street and Sycamore Street) to improve the flow of
traffic to the Kerper Boulevard Industrial Park and Chaplain Schmitt Island;
• Boulevard and capacity improvements to accommodate the future economic development
planned for the industrial park and on the island;
• Streetscape enhancements and amenities to create a safe and inviting environment for
mixed -use development;
• Green infrastructure such as new street trees and rain gardens that capture rain where it
falls, reducing runoff volume to the Mississippi River.
Elm Street Corridor
• Reconstruct Elm Street from 20th Street to 11th Street as a Complete Street, with
sidewalks and bike lanes to improve safety and access for pedestrians and bicyclists;
• Construct a roundabout at Five Points (intersection of Elm Street and 20th Street] to
enhance safety and improve the flow of traffic to downtown Dubuque, the Historic
Millwork District, and the ITC;
14th Street Railroad Overpass
• Construct a vehicular and pedestrian overpass (and related street improvements) to
reduce significant train -related delays that negatively impact the safe and efficient
movement of people and goods to and from the Kerper Boulevard Industrial Park and
Chaplain Schmitt Island.
Pedestrian/Bike Access
• Improve safe access for
pedestrians and bicyclists
to employment and
recreational opportunities
across the Peosta Channel
to Chaplain Schmitt Island
with construction of a
grade -separated
pedestrian/bike shared use
path adjacent to the
existing 16th Street
bridge.
UNSAFE FDR PEDESTRIANS/BIKES: IBTH STREET BRIDGE TD CHAPLAIN SCHMITT ISLAND
9 1 Page
Expected Users
The B2E2 project directly supports residents living downtown, in Dubuque's Historic Millwork
District, and within Areas of Persistent Poverty in the North End, Point and Washington
Neighborhoods. The proposed RAISE improvements will benefit many populations, including:
• Dubuque residents who are either unemployed or underemployed;
• Minority residents who face multiple barriers to economic opportunity, particularly those
who live in census tracts designated as Areas of Persistent Poverty;
• Economically -distressed residents who do not own a vehicle and depend on safe streets,
sidewalks and bike lanes to travel within the community;
• Users of Dubuque's Jule transit system with poor access to bus facilities;
• Millennials who opt to not own a car;
• Senior citizens and disabled residents who cannot effectively access the 16th Street
Corridor, critical services such as the Crescent Community Health Center on Elm Street,
and Chaplain Schmitt Island;
• Developers and business advocates who demand transportation improvements along 16th
Street and at the 14th Street railroad grade; and
• Tourists and other visitors who currently cannot easily access Chaplain Schmitt Island
from mainland Dubuque.
Project Outcomes
DOT Secretary Pete Buttigieg has placed an emphasis on using federal transportation investment
as a tool to help communities "create high -quality jobs, improve safety, protect our environment,
and generate equitable economic opportunity for all Americans."
RAISE investment in Dubuque's proposed B2E2 project will repair broken corridors, stimulate
economic development, help residents improve the quality of their lives, and create pathways to
lift people out of poverty and expand the region's middle class, especially for residents of
distressed neighborhoods in and around the project area. RAISE funding will produce a variety
of desired outcomes, including:
• Increased Transportation Choices: RAISE funding will enable Dubuque to increase the
number of residents who bike, walk or use transit to work and play.
• Safer Streets and Sidewalks: Roundabouts, improved sidewalks, dedicated bike lanes,
and a pedestrianibike shared use path to Chaplain Schmitt Island will help reduce
vehicular and non -vehicular accidents, making Dubuque a safer place to live and visit.
• Increased Density: Elm Street and 16th Street revitalization supports Dubuque's goal to
build density in the Historic Millwork District and North End, Point and Washington
Neighborhoods, particularly for low-income residents who cannot afford to own a
vehicle.
• Economic Growth: RAISE investment will magnify the impact of the project area's
Opportunity Zone designation, helping to unleash significant economic growth and job
10 1 Page
creation along the 16th Street Corridor and connecting low-income residents to
high -quality employment opportunities via the Elm Street Corridor.
• Improved Environment: Investments in walkability, bikeability and green infrastructure
will help improve air quality, decrease stormwater runoff, and generate other significant
environmental benefits, helping Dubuque make progress toward the goals of its 2020
Climate Action Plan.
• Healthier Community: Providing opportunities for increased walking and biking, safer
access to community recreational amenities, and reducing environmental pollution will
impact the health and well-being of Dubuque's citizens while addressing needs for
improved physical activity identified in the City's 2019-2021 Community Health Needs
Assessment Health Improvement Plan.
• Improve Racial Equity: RAISE funding will improve access to living wage jobs and key
community resources and amenities for the city's minority populations.
• Mitigate Effects of Climate Change: The construction of Complete Streets along the Elm
Street and 16th Street Corridors will help mitigate the negative effects of climate change
by reducing vehicle miles traveled (VMT), fuel consumption, and vehicular emissions.
Local and Regional Significance
The B2E2 project is of local and regional importance. Locally, the project will help the City
revitalize struggling neighborhoods by delivering direct benefits to residents who live in Areas of
Persistent Poverty. The project complements efforts in Dubuque to focus investment in several
key areas. RAISE investment will strengthen economic opportunity along the 16th Street
Corridor and provide better transportation access for residents in the Historic Millwork District
and low-income households in the project area. Developers are interested in reclaiming vacant
buildings and brownfields along the 16th Street Corridor. Transportation investment in the
corridor supports these efforts and will promote further revitalization in this part of the city.
Regionally, Dubuque is an employment center for the tri-state region of Iowa, Illinois and
Wisconsin. Based on the City's experience in revitalizing the Historic Millwork District, RAISE
funding is expected to spark significant new job -creating investments along the entire 16th Street
Corridor. This boom in economic activity will benefit the whole rural region. However, poor
access to Dubuque's key job centers will threaten planned development. RAISE investment will
support the Dubuque region as it works to grow needed jobs.
Racial Equity and Reducing Barriers to Opportunity
RAISE investment in Dubuque's transportation infrastructure will build on the significant efforts
already undertaken and now underway to improve equity and reduce barriers to opportunity for
the city's minority residents, particularly those living in and adjacent to the B2E2 project area.
Based on U.S. Census data, the 2021 Dubuque Equitable Poverty Reduction and Prevention Plan
notes that a staggering 56.1 % of Black residents live in poverty, compared to 13.2% for white
residents, and experience unemployment at a rate four times higher than whites. The highest
median household income among Black Dubuquers is found in Census Tract 5 with a value of
only $22,059, followed by Census Tract 1 with a value of $21,382. According to data from the
Federal Reserve's 2019 Survey of Consumer Finances, median wealth for Black and Hispanic
111 Page
families in America was $24,100 and $36,100, respectively, while for white families, median
wealth was over five times that amount, at $188,200.2 A similar wealth gap is likely in Dubuque.
Additional indicators that weigh against equitable outcomes for Dubuque's minority residents are
found in limited access to health insurance and healthcare, where Black and Hispanic Dubuque
residents are uninsured at more than three times the rate of white residents; in home ownership,
where whites are eight times more likely to own their home than Black residents; and in
educational attainment, where white residents are more than twice as likely to hold a bachelor's
degree as Black residents.' Residents in Census Tracts 1 and 5 are also subject to food insecurity,
with the nearest supermarket located one mile or more away.4 According to the Environmental
Justice Mapping Tool, residents in these census tracts are also subject to numerous and
significant environmental hazards, including proximity to Superfund sites and exposure to lead
paints
Taken together, these indicators establish the B2E2 project area's minority and low income
population as an overburdened community that experiences disproportionate environmental
harms and risks compared to Dubuque as a whole due to an accumulation of negative and lack of
positive environmental, health, economic, and
social conditions.
For over a decade, Dubuque has made
significant investments in the distressed
Washington Neighborhood, where the city's
minority population, poverty and old housing
stock are concentrated. Low-income Housing
Tax Credits (LIHTC), a local Housing Trust
Fund, and numerous federal grants, including
CDBG funds, have been used to try to meet the
ever-increasing need for safer, more affordable
housing that exceeds the existing supply. With RAISE INVESTMENT WILL STRENGTHEN DUBl1DIJE'S DISTRESSED
support from federal grant funds, Dubuque has WASHINGTDN NEIGHBORHOOD
also invested nearly a quarter -billion dollars to
reduce flood hazards that impact residents in and around the B2E2 project area.
RAISE investment will help ameliorate these inequities by reducing obstacles that systematically
and structurally block individuals from equal access to the means from which to advance from
poverty. The B2E2 project's interconnected Complete Streets components will enhance safe
access to key employment centers and critical community resources, including the Crescent
Community Health Center and the nearest grocery store on Elm Street, and reduce the negative
' The Federal Reserve, "2019 Survey of Consumer Finances",
hW2s://www. federalreserve.,Qov/econres/notes/feds-notes/disparities-in-wealth-by-race-and-ethnicity-in-the-2019-sur
vey-of-consumer-finances-20200928.htm
s 2021 Dubuque Equitable Poverty Reduction and Prevention Plan
'USDA Food Access Research Atlas, 2019, https://www.ers.usda.gov/data-products/food-access-research-atlas
' EPA's Environmental Justice Screening and Mapping Tool (Version 2020), htWs://www.el2a.gov/ejscreen
12 1 Page
impacts of automobile dependency for minority residents living in and around the project area.
Potential new development along 16th Street may provide a second grocery option for the
neighborhood.
Climate Change and Environmental Justice
RAISE investment will help Dubuque make significant progress toward achieving its climate
change mitigation goals as outlined in the city's 2020 Climate Action Plan (CAP). The B2E2
project aligns with the CAP goal to reduce vehicle miles traveled (VMT) by 10% by 2030. To
help achieve this goal, the plan calls for transforming 25% of the city's streets into Complete
Streets and increasing public transit ridership.
The 132E2 project also includes stormwater management features such as street trees and rain
gardens that help reduce contaminated runoff from reaching the Mississippi River. Improving the
equity of Dubuque's transportation systems requires a focus on developing systems and networks
that allow for greater choice in where residents live and work as well as how they commute.
Implementation of Complete Streets and a connected system of transit, bike and pedestrian
infrastructure will contribute to Dubuque's progress toward its goal of a 34% reduction in
greenhouse gas emissions by 2030.
The project will advance environmental justice by delivering economic and social benefits to
Dubuque residents who live in the city's most distressed neighborhoods and are subject to the
greatest environmental hazards, including flooding, proximity to contaminated industrial sites,
and lead paint in housing.
Detailed Statement of Work
1. Project Preparation
• Partnership Agreement: Confirm local and regional stakeholder support.
• Funding Agreement: Upon notice of RAISE award, expeditiously coordinate with the
DOT to process agreement and prepare for planning.
2. Procurement
• Prepare bid solicitation and competitively solicit the bid for the design and engineering
project.
• Select the consultant and confirm the overall design team.
3. Planning & Design
• Develop TDM strategy to reduce vehicle miles traveled on the Elm Street and 16th Street
Corridors.
• Update corridor and intersection analyses to consider current and future stress factors,
user conflicts, and mode switches.
• Develop alternative options for the Elm Street and 16th Street Corridors and design
alternatives for effective intersection enhancements.
13 1 Page
• Design and engineer key intersections, 14th Street railroad overpass, pedestrian/bike
shared use path to Chaplain Schmitt Island, and Elm Street/ I6th Street Corridors to the
60% level.
4. Community Engagement
• Communicate project intentions, impacts, and plans to residents and local businesses
through community forums, public meetings, direct mail, social media, and other
methods to seek feedback.
• Share progress by posting project updates on the City website.
5. Shovel -Ready Project
• Share design concepts with DOT, the community, and other project partners.
• Complete final design.
• Prepare for permitting and other approvals based upon designs.
II. PROJECT LOCATION
See attachments for full-scale Project Area Detail Map
Located on the banks of the Mississippi River, Dubuque is Iowa's oldest city. Dubuque was
established as a fur -trading post and mining community, and later flourished as a manufacturing
hub. Manufacturing reigned in Dubuque until the mid- 1900s. As Dubuque's retail and industrial
sectors moved to the western suburbs or fled completely, the downtown deteriorated and fell into
disrepair. With the collapse of the farm economy in the 1980s, the community watched as the
Dubuque Packing Company (located along the 16th Street Corridor) closed up shop, and then as
John Deere — then the city's largest employer — reduced its workforce by three-quarters of its
peak.
Dubuque has reinvented itself. After decades of population and job loss, the city is rebounding.
Over the last 100 years, Dubuque has seen its economy shift from chiefly manufacturing to the
tourism, retail, health care, education, publishing, and financial service sectors. Dubuque now
serves as the employment center for the tri-state region of Iowa, Illinois and Wisconsin. In recent
14 1 Page
years, Money magazine rated Dubuque as one of the best places to live in America and Forbes
ranked the community as one of the best small cities for businesses and careers."' The city
enjoys a business -friendly environment, skilled workforce and extraordinary quality of life.
Dubuque is a compact, dense community
with 23,620 households, 13,964 families
and 1,923.3 people per square mile."
The city is ethnically -diverse, with a
minority population of 12.3%.10
Approximately 22.6% of Dubuque's
population are millennials between the
ages of 20 to 34, and 18% of residents
are 65 years or over." A large proportion
of the city's elderly population suffers
with a disability (35.2%).12 Between
2015 and 2019, the median household
income in Dubuque was $54,234 DDWNTOWN DUHUGUE
(compared to $60,523 in Iowa and
$62,843 nationally) and 15.9% of the
city's residents lived below the poverty line (compared to 11.2% statewide and 10.5% across
America).13 Nearly 36% of housing units in Dubuque are renter -occupied, compared to 28.5% in
Iowa. No vehicles are available to 8.4% of Dubuque's population.14
Dubuque's northern neighborhoods located within the project area (Census Tracts 1 and 5) are
significantly more diverse and low-income than the city as a whole. In Census Tract 1, 37.4% of
residents belong to a minority group and 27.1% in Census Tract 5.15 About 30% of the
population across both tracts is millennial and 9% of residents are 65 years and over.16 Nearly
14% of residents in Census Tract 1 and 18% in Census Tract 5 are disabled.17
The median household income in Census Tract 1 is $32,931 and $32,083 in Census Tract 5,
significantly below national, state and local levels. Nearly 30% of residents in Census Tract 1
and 32.4% of Census Tract 5 residents live in poverty. Over 28% of the households in Census
Tract 1 and nearly one-third of households in Census Tract 5 receive Food Stamps and
Supplemental Nutrition Assistance Program (SNAP) benefits, compared to 12% citywide and
6 Money Magazine, "Best Places to Live in America", 2017
Forbes Magazine, "Best Small Cities for Businesses and Careers", 2014
8 U.S. Census Bureau, 2019 ACS 5-Year Estimates
s U.S. Census Bureau, 2010 Census
10 U.S. Census Bureau, 2019 ACS 5-Year Estimates
" U.S. Census Bureau, 2015-2019 American Community Survey, "Age and Sex"
12 U.S. Census Bureau, 2015-2019 American Community Survey, "Population 65 Years and Over"
13 U.S. Census Bureau, 2015-2019 American Community Survey, "Selected Economic Characteristics"
1a U.S. Census Bureau, 2015-2019 American Community Survey, "Selected Housing Characteristics"
15 U.S. Census Bureau, 2014-2018 American Community Survey, "ACS Demographic and Housing Estimates"
16 U.S. Census Bureau, 2014-2018 American Community Survey, "Age and Sex"
17 U.S. Census Bureau, 2014-2018 American Community Survey, "Selected Social Characteristics"
15 1 Page
10.7% nationally." Approximately 24% of occupied housing units in Census Tract 1 and 20.5%
in Census Tract 5 do not own a vehicle, compared to 8.4% citywide and 8.6% nationally.19
Table 1. Demographic Profile
Median Household Income
Minority Population
Poverty
Renters
No Vehicle
Millennials (20-34)
Age 65 and over
Persons with Disabilities
Food Stamps/SNAP
Census
Tract 1
$32,931
37.4%
29.6%
81.5%
23.9%
36.3%
9.4%
13.8%
28.3%
Source: US Census, 2018 ACS 5-Year Estimates
Source: US Census, 2019 ACS 5-Year Estimates
Designated Area of Persistent Poverty
Census Dubuque Iowa
Tract 5
$32,083 $54,234 $60,523
US
$62,843
27.1%
12.3%
14.3%
39.3%
32.4%
15.9%
11.2%
10.5%
61.9%
35.8%
28.9%
36%
20.5%
8.4%
6.1%
8.6%
22.8%
22.5%
19.6%
20.4%
9.2%
18.0%
17.5%
16.5%
18.2%
13.6%
11.8%
12.7%
32.2%
12.0%
9.5%
10.7%
Census Tract 1 individuals 16 years and over are nearly three times more likely to commute by
walking than Dubuque residents overall (11.7% vs. 4.0%). This compares to 3.5% statewide and
2.8% nationally. In addition, Census Tract 1 commuters are five times more likely to bike to
work than all city residents (1.5% vs 0.3%).20
Alternative transportation options are particularly important to millennials, low-income residents
and people who do not own vehicles in Dubuque. Public transportation ridership consists of
29.5% of workers living at or below the poverty level, compared to 16.2% citywide and 12.5% in
Iowa. Among transit system customers who live in an Area of Persistent Poverty, more than 40%
in Census Tract 1 and over half in Census Tract 5 do not own a vehicle.21 Maintaining an
efficient transportation system with reliable buses, safe streets, bike lanes, and sidewalks is
imperative to reducing barriers to opportunity for these transit -dependent populations.
18 U.S. Census Bureau, 2014-2018 American Community Survey, "Selected Economic Characteristics"
19 U.S. Census Bureau, 2014-2018 American Community Survey, "Selected Housing Characteristics"
20 U.S. Census Bureau, 2015-2019 American Community Survey, "Selected Economic Characteristics"
21 U.S. Census Bureau, 2015-2019 American Community Survey, "Means of Transportation to Work by Selected
Characteristics"
16 1 Page
Connection to Existing Transportation Infrastructure
Within the B2E2 project area, the eastern end of the 16th Street Corridor connects to Kerper
Boulevard, a major north/south artery, which links the project area to US Highway 151, the
freeway that connects Dubuque to Wisconsin on the east side of the Mississippi River, and to US
Highway 61, which connects Dubuque to Illinois on the east side of the river via US Highway
20. Eastbound 16th Street continues past Kerper Boulevard to the transportation network on
Chaplain Schmitt Island via a four -lane bridge. The Elm Street Corridor intersects with 14th
Street/Loras Boulevard, a major east/west arterial, and to the Dubuque Intermodal Transportation
Center at I Ith Street in downtown Dubuque, which provides transit connections to Dubuque's
West End, as well as hospitals, universities and other destinations. The Elm Street Corridor is
connected to Central/White Street, a major north/south thoroughfare, via 20th Street at the
northern terminus of the project area (Five Points intersection).
III. GRANT FUNDS AND SOURCES/USES OF PROJECT FUNDS
Dubuque seeks $2,112,000 in RAISE funding to support a multimodal project that will help
improve access to the Kerper Boulevard Industrial Park, Chaplain Schmitt Island, downtown
Dubuque and its Historic Millwork District, the ITC transit hub, and future development on key
vacant brownfields within the project area.
The total cost of the planning project is $3,520,000. RAISE support represents 60% of the total
project. Dubuque and its partners have committed to match RAISE funds with $1,408,000 in
non-federal money from the City, which represents 40% of the total project.
Table 2. Grant Fund Sources/Uses
Other
RAISE
Federal
Matching
Match
Project Component
Cost
Request
Support
Funds
Source
$810,000
$486.000
$0
$324,000
City of
16th Street (Elm to Kerper)
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
16th Street Bridge Ped/Bike
$100,000
$60,000
$0
$40,000
City of
Shared Use Path
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
Admiral Sheehy Drive
$170,000
$102,000
$0
$68,000
City of
Roundabout
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
$890,000
$534,000
$0
$356,000
City of
Elm Street (I Ith to 20th)
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
14th Street Railroad
$1,400,000
$840,000
$0
$560,000
City of
Overpass
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
14th Street (Cedar to
$150,000
$90,000
$0
$60,000
City of
Sycamore Bridge)
(100.0%)
(60.0%)
(0.0%)
(40.0%)
Dubuque
$3,520,000
$2,112,000
$0
$1,408,000
Design Subtotal Costs
(100.0%)
(60.0%)
(0.0%)
(40.0%)
_
17 1 Page
Total Project Cost
$3,520,000
Total Local Match
$1,408,000
RAISE Funds Requested
$2,112,000
Local Match in Project
40.0%
RAISE Funds in Project
60.0%
MATCH BREAKDOWN
AMOUNT
% OF TOTAL PROJECT
City of Dubuque Local Funds
$1,408,000
40.0%
Total Local Match
$1,408,000
40.0%
All matching funds will be available for implementing this RAISE Planning project pending City
Council and mayoral approval of the authorizing resolution, which is expected by July 19, 2021.
There are no restrictions on local cost share dollars.
IV SELECTION CRITERIA
A. Primary Selection Criteria
1. Safety
Improving safety for all users is a key goal of
Dubuque's proposed RAISE Planning project.
Once completed, the 132E2 project will
improve safety by effectively managing and
redirecting traffic flows with improved
intersections, clear crosswalks, designated
pedestrian and bicycle intersections, and
improved signage. Dubuque intends to redesign
and improve multiple intersections along the
Elm Street and 16th Street Corridors to better
support pedestrians, bicyclists and motorists.
There are currently several points of conflict
between cars and people in the public realm of
16th Street and its intersecting streets. 16th
Street includes four travel lanes, two in each
TRAFFIC INCIDENT ON IETH STREET
direction, and no sidewalks or marked bicycle lanes. There are also four intersections along 16th
Street that slow traffic and contribute to a very challenging pedestrian and bicycle experience.
Elm Street from the Five Points intersection to downtown Dubuque includes two travel lanes,
one in each direction. Sidewalks are narrow and there are no marked bicycle lanes. Several
intersections slow traffic and contribute to a challenging pedestrian and bicycle experience,
especially at the Five Points and 16th Street intersections, where new roundabouts are planned.
Over the past decade, 117 crashes with 45 injuries and no fatalities were reported along the 16th
Street Corridor, including 34 crashes at the Elm and 16th Street intersection and 32 crashes at the
18 1 Page
intersection of 16th and Kerper Boulevard. For the Elm Street Corridor (excluding the
intersection of Elm and 16th), 144 crashes with 49 injuries were reported during the same time
period. (see attachments for Crash Incident Reports) Although these are not the most dangerous
intersections in Dubuque, expected increases in traffic volume along both corridors due to new
economic development, as well as increased pedestrian and bicycle usage encouraged by
Complete Streets enhancements make a proactive approach to improving safety along both
corridors a smart investment of federal transportation resources that will directly benefit
low-income residents, senior citizens and disabled residents in Areas of Persistent Poverty.
The project will help the City avoid future surface transportation -related crashes, injuries and
fatalities, and achieve significant safety benefits. Consistent with the goals of the Dubuque
Metropolitan Area Traffic Study (DMATS) Long Range Transportation Plan 2045, the B2E2
project will implement alternative intersection designs that reduce conflict points and enhance
safety and mobility. Studies have shown that roundabouts are safer than traditional stop signs or
signal -controlled intersections. The tight circle of a roundabout forces drivers to slow down, and
the most severe types of intersection crashes — right angle, left -turn and head-on collisions — are
unlikely. Roundabouts reduced injury crashes by 75% at intersections where stop signs or signals
were previously used for traffic control, according to studies reported by the Insurance Institute
for Highway Safety.ZZ Roundabouts generally are also safer for pedestrians. Pedestrians walk on
sidewalks around the perimeter and cross only one direction of traffic at a time. Crossing
distances are relatively short and traffic speeds are lower than at traditional intersections.
Through its participation in the East Central Intergovernmental Association's Smart Traffic
Routing with Efficient and Effective Traffic Systems (STREETS) initiative, Dubuque will also
leverage ITS technologies in the B2E2 project area to create a smart, next -generation, traffic
management and control system that will enable dynamic traffic routing to maximize the use of
existing roadway capacities and improve safety.
The proposed improvements will help
Dubuque shift traffic modes from personal
vehicles to even greater walking, biking, and
public transit activity. The existing conditions
create unsafe conditions for bikers and
pedestrians and the strong perception of an
unsafe environment discourages residents
from using these modes. Safe sidewalks,
dedicated bike lanes and improved lighting
will reduce areas of conflict. Essential street
repairs on Elm and 16th Streets will also
reduce damage to vehicles, including
deployed airbags, popped tires, damage to
vehicle struts, as well as people reporting
pedestrian harms from trip hazards.
NO DEDICATED BIKE LANES UN IGTH STREET
22 Insurance Institute for Highway Safety, https://www.iihs.org/topics/roundabouts
19 I Page
The vehicular and pedestrian overpass planned at the 14th Street railroad grade will also improve
safety by reducing train -related delays experienced by the City's first responders and reducing
the potential for vehicle -train incidents and the likelihood of a train -related discharge of
hazardous materials.
As economic development advances in the B2E2 project area, increasing traffic volumes along
these key corridors, it will become even more important to redesign transportation infrastructure
and deploy new technologies to ensure the safety of all users, especially for residents of the
project area's distressed neighborhoods, who are nearly three times more likely to walk to work
and five times more likely to bike to work than all commuters in Dubuque.
2. Environmental Sustainability
Another important goal of the B2E2 initiative focuses on environmental protection and
sustainability. The project will demonstrate how investing in pedestrian/biking improvements
and green infrastructure can generate multiple environmental benefits, including reduced
dependence on foreign oil, curbed emissions, improved air quality, decreased stormwater runoff,
brownfields redevelopment, and smart growth. Each of these benefits will contribute
significantly to the sustainability of the city and region.
Making sidewalks and streets safer for biking and walking will increase the number of residents
who use non -vehicular modes to commute to work. The Imagine Dubuque 2037 Comprehensive
Plan notes that nearly one -quarter of Dubuque's greenhouse gas emissions are related to
transportation. Shifting trips in the city from single occupancy vehicles to bus transit, walking
and biking will significantly reduce fuel consumption and generate meaningful reductions of
carbon and other air pollutants.
Another important environmental benefit associated with this project is the reduction of
hazardous pollutants resulting from reductions in vehicle miles traveled (VMT). In addition to
encouraging mode shifts, the new 14th Street railroad overpass will create a more efficient access
route to the Kerper Boulevard Industrial Park and Chaplain Schmitt Island by reducing
train -related delays, enabling users to more easily travel to these key economic nodes from
downtown Dubuque and other points south of the project area. Moreover, Complete Streets
improvements to the Elm Street Corridor will increase multimodal access to local grocery stores
for residents of the project area's distressed neighborhoods, reducing emissions from the vehicle
miles traveled for food.
Dubuque lies within the Mississippi River watershed. Reducing the volume and contaminant
load of stormwater runoff is critical to mitigating health hazards and improving the river's water
quality. Dubuque proposes to install green infrastructure along the Elm Street and 16th Street
Corridors to capture rainwater where it falls. New street trees and rain gardens will reduce runoff
volume and filter water as it percolates into the ground.
The 16th Street Corridor also has several potential brownfield sites that are seriously threatening
the health of residents and the general economic development of Dubuque. Bordering the
Mississippi River, the area has been the home to shipbuilding and repair facilities, bulk
20 1 Page
petroleum and coal storage operations, food processing plants, farm machinery manufacturers,
and lead mining activity since the early 1800s. A legacy of riverftont activities has left the
riverbanks marred with environmental contamination. Brownfields cleanup, supported with EPA
grants, is already underway in the community. For example, the City will soon complete
remediation of the Washington Neighborhood's Blum property, a former junkyard. RAISE
investment will help to encourage additional remediation of contaminated sites and further
concentrate infill development for more efficient land -use. Increased capacity of the
transportation system will encourage private sector developers to site their projects on vacant
parcels now available in the B2E2 project area.The project also includes energy efficient LED
street lights, which will save electricity, reduce costs and curb emissions.
3. Quality of Life
Dubuque's B2E2 project will improve quality of life in the project area and the region in several
important ways:
Providing More Transportation Choices for Expected Users. Dubuque's B2E2 Planning
project will increase safe, reliable and economical transportation choices for a diverse group of
expected users. The Elm and 16th Street Complete Streets components will directly support
households in Areas of Persistent Poverty that do not own a vehicle. These residents depend on
other modes of transportation to live, work, shop and play. The Planning project will help
Dubuque advance its goals to improve vehicular access while enhancing the safe and accessible
multimodal corridors that are vital to providing options to those without a private vehicle.
According to AAA, the average annual cost of owning and operating a car rose to more than
$9,500 in 2020.23 Providing transportation choices such as improved transit, better walkability,
and bike lanes helps residents more easily forgo owning a personal vehicle or operate without
one, increasing local purchasing power, reducing the cost of living, and increasing the resources
available to low-income families to meet their basic needs. With median household income of
just $32,000 -- only half of the national median household income -- many residents in the
project area are dependent on non -private vehicle transportation.
In addition, according to the National Low Income Housing Coalition's "Out of Reach 2020,"
the Fair Market Rent (FMR) for a two -bedroom apartment was $760 in 2020. In order to afford
this level of rent and utilities, without paying more than 30% of income on housing, a household
must earn $30,410 annually. Assuming a 40-hour work week, 52 weeks per year, this level of
income translates into a housing wage of $14.62. In order to afford the FMR for a two bedroom
apartment, a household must include two minimum wage earners working 40 hours per week,
year-round.za
" AAA "Your Driving Costs 2020",
https://newsroom. aaa. com/wp-content/uploads/2020/ 12/Your-Driving-Costs-2020-Fact-Sheet-FINAL-12-9-20-2.pdf
24 National Low Income Housing Coalition, "Out of Reach 2020",
https://reports. nlihc. org/sites/default/files/oor/files/reports/state/IA-2020-OOR.12df
211 Page
Expanding safe multi -modal access through the B2E2 project is critical to improving quality of
life and affordability for these residents. Walking and biking should be commonplace, but the
poorly functioning, unsafe, and unattractive Elm Street and 16th Street Corridors do not support
walkability and livability for this community. Complete Streets and pedestrian improvements
along both corridors will provide safe opportunities for walking and biking. In addition, ADA
compliance measures will provide safer access opportunities for seniors and persons with
disabilities to critical resources like the Crescent Community Health Center on Elm Street.
Promoting Neighborhood Revitalization and Infill Development. The project has the
potential to completely revitalize the Elm Street and 16th Street Corridors, thereby improving
quality of life in the distressed North End, Point and Washington Neighborhoods. Transportation
improvements will promote infill development and drive the revitalization of brownfields like
the former Dubuque Packing Company site, which has remained vacant for decades, leading to
job creation that will directly benefit low-income residents in the project area.
Improving Connectivity to Jobs and Community Amenities. RAISE investment is critical to
helping connect people with employment and other key community amenities, such as health
care, food and recreation. The economic prosperity of a community is dependent on its ability to
move people and goods. However, that mobility is constrained in the project area by roadways
that were not designed for the expansive economic development envisioned by the City. RAISE
improvements will enable Dubuque residents to safely move about the community, and save time
and money along busy streets. Travel time savings will also contribute to quality of life. Less
time spent behind the wheel will provide residents with greater opportunities to enjoy leisure
activities. The proposed 16th Street pedestrianibike shared use path will improve quality of life
by creating a safer route to access healthy recreational opportunities, connecting walkers and
bicyclists to the extensive trail system on Chaplain Schmitt Island. The proposed 14th Street
railroad overpass will reduce significant train -related delays that prevent workers from reaching
their places of employment.
4. Economic Competitiveness
Infrastructure improvements to the
interconnected Elm Street and 16th Street
Corridors will drive Dubuque's economic
future. The City has invested significant
resources to grow businesses and jobs in this
part of town. Three areas are key to
Dubuque's future economic vitality — the
Kerper Boulevard Industrial Park, Chaplain
Schmitt Island, and vacant brownfield parcels
that are ripe for redevelopment. Operating
since the 1950s, the Kerper Boulevard
Industrial Park is poised for expansion. The
229-acre site is home to a number of existing
tenants, including Georgia Pacific,
Hirschbach Transportation, Drive Line, Union-Hoermann Press, Rainbo Oil,
HEAVY TRUCKS NEAR KERPER BOULEVARD INDUSTRIAL PARK
Van Meter Inc.,
22 1 Page
Anderson/Eagle Window and Door Inc., Key City Plating, United Parcel Service, Rousselot,
Black Rock Fabrication, Home Technology Systems, B&F Fastener Supply, Anova Pallet,
Innocor Inc., Bradley Iron Works, Klauer Manufacturing Company, Dubuque Fire Equipment
Inc., Flint Hills Resources, Quanex, Brightwood Corporation, Advantage Sheet Metal, Inc.,
Thompson Truck & Trailer, AG Trucking, Energetics, Automotive & Industrial Hardware, Weitz
Sign Systems, Coca-Cola Bottling Inc., Bel -Aire Rental, Matthews Distributing, Drive Line of
Dubuque, Hurst Logistics, Complete Off Road, Smart Retract -a -Gate, and Advance Designs. A
number of vacant buildings and lots still exist within the industrial park. The True North
campaign seeks to attract more light manufacturing and other business uses appropriate for the
Kerper Boulevard Industrial Park and nearby brownfield sites. In combination with incentives
available through Dubuque's Opportunity Zone (Census Tracts 1 and 5), Complete Streets
improvements on Elm Street and 16th Street will help the City and Greater Dubuque
Development Corporation attract new businesses.
Transportation investment in the Elm Street and 16th Street Corridors will support significant
economic growth on Chaplain Schmitt Island. A former landfill, the island was redeveloped in
the 1980s into major commercial and recreational venues. The current commercial and
recreational venues include the Q Casino & Resort and its indoor restaurants and amenities,
Dubuque Greyhound Park, Hilton Garden Inn Hotel, Houlihan's restaurant, Catfish Charlie's
restaurant, American Marine, Mystique Community Ice Center, Dubuque Water Sports Club,
Dubuque Yacht Basin Marina & RV Park, American Lady Yacht, MacAleece Sports Complex,
Miller -Riverview Park, Schmitt Island boat ramp, and several Veterans Memorials.
Community leaders seek to transform the island into a thriving jobs hub and a year-round
destination. In 2017, Chaplain Schmitt Island was rezoned to allow for planned unit
development. The Q Casino is currently planning a new hotel and the southern half of the area
will be developed as a destination with new retail, restaurants, entertainment, and recreational
amenities. Better vehicle and transit access, as well as more pedestrian and biking opportunities,
is critical to this expansion.
Complete Streets and pedestrian/bike accommodations are also essential to the redevelopment of
area brownfields. A key site on the 16th Street Corridor is the former Dubuque Packing
Company plant. This vacant building has sat idle for more than a decade and is ripe for
redevelopment. Dubuque has also received EPA Brownfields Community -Wide Assessment and
Cleanup funding to tackle additional brownfield challenges throughout the project area. For
example, remediation efforts will soon be complete at the Washington Neighborhood's Blum
property, a former junkyard. These cleanup activities will accelerate as transportation access
improves and developers begin to reclaim more contaminated properties. In addition, two 2-acre
parcels along the 16th Street Corridor are prime for immediate redevelopment with the proposed
transportation enhancements.
Besides jobs, RAISE Planning investment will lead to the creation of additional economic
benefits. Land values will rise along the improved corridors. The surge of economic development
that RAISE funding will help Dubuque to unleash will also create significant local fees and
taxes. The proposed RAISE project will help connect unemployed and underemployed workers
in low-income households within Areas of Persistent Poverty to job opportunities on the 16th
23 1 Page
Street Corridor. Pedestrian and bike improvements across the Peosta Channel, as well as ADA
compliance measures, will also help connect disadvantaged residents to employment. This is
critical to an economically -distressed portion of the city.
The proposed vehicular and pedestrian overpass at the 14th Street railroad grade also increases
economic competitiveness by reducing frequent and lengthy train delays that impair the efficient
movement of people and goods and increase the cost of doing business. As Dubuque developed,
its residential population has located to the west of its downtown train tracks, and major
economic development and job opportunities have been sited, and continue to grow, to the east
along the Mississippi River. Commuting to these employment centers is difficult. Every day,
eight to 10 trains travel north -south on Canadian Pacific Railroad's active line through
downtown Dubuque. These roughly 8,000-foot trains (more than 1.5 miles of railcars) stop for
approximately 20 to 30 minutes each at a railyard just north of downtown to switch cars, load
and unload freight, receive orders, and pick up drivers. For up to five hours throughout the day
(including during peak times), east -west connectivity is prohibited at five at -grade crossings.
Visit Dubuque any day of the year, and one's journey will likely be delayed by trains bisecting
the community. These choke points seriously impact the movement of commuters to
employment centers, business shippers, visitors to waterfront recreational opportunities, and first
responders to emergencies.
Traffic delays caused by trains are often underreported in conventional traffic modeling. A recent
study suggests that traffic delays may be 5-7 times longer than typically estimated due to the
recovery period required to restore normal traffic flow after the train has passed.25 A new
overpass at 14th Street will help minimize these delays.
5. State of Good Repair
RAISE investment supports existing infrastructure on the Elm Street and 16th Street Corridors,
which have not been modified in decades. That disinvestment threatens Dubuque's aspirational
economic development efforts in the B2E2 project area. Revitalization will improve the
conditions of existing transportation facilities and infrastructure. With multiple congested
intersections, traffic is unable to flow freely on either thoroughfare. The route is particularly
challenging and hazardous to pedestrians and bicyclists, as well as senior citizens and disabled
residents, with limited or no sidewalks and bike accommodations. These components of the
proposed project are in complete alignment with DOT'S "fix it first" approach.
Even the new infrastructure proposed for the B2E2 project area, particularly the 14th Street
railroad overpass, will contribute to a state of good repair by creating an alternate route to the
Kerper Boulevard Industrial Park and Chaplain Schmitt Island, thereby reducing pressure on
16th Street to carry the bulk of traffic to and from these areas. Integration with the city's ITS
infrastructure will also contribute to reducing wear and tear on roads in the project area by
distributing traffic more evenly along these key access routes.
" G. Rempel, "Using ITS to Measure and Mitigate Traffic Congestion at Railroad Crossings," in ITS America,
Detroit, MI, 2018.
24 1 Page
Dubuque seeks to develop Complete Streets on the interconnected Elm Street and 16th Street
Corridors, both of which currently serve pedestrian, bike, transit, commercial and personal
vehicle traffic. However, neither corridor was designed for these mixed uses. Project elements
include reconstruction of the roadway, five roundabouts, sidewalks and bike lanes, and
appropriate pedestrian -scale street lighting. Complete Street improvements will provide better
functionality on Elm Street and 16th Street, improve mobility along these thoroughfares and help
the City save money by matching the needs of the roadways with their actual design. Proposed
upgrades in existing infrastructure help to minimize deterioration of the roadways and extend the
life cycle of the Jule transit system's rolling stock investments.
Improved pedestrian and bike access also supports Dubuque's investment in existing multi -use
trails. The new pedestrian/bike shared use path adjacent to the 16th Street Bridge will improve
safe access to job opportunities, recreation and other community amenities on Chaplain Schmitt
Island. The project will also provide pedestrian and bicycle connectivity to the Bee Branch Trail,
Mississippi River Trail system and the National Scenic Byway system.
The B2E2 project is consistent with existing local and regional plans to maintain transportation
facilities and systems in a state of good repair. RAISE Planning funds will complement robust
planning efforts, including:
• Chaplain Schmitt Island Master Plan (2017� — Roundabouts are proposed to help improve
traffic flow and serve as a gateway to the island.
• Chaplain Schmitt Island Placemakin and nd Implementation Plan (2017) — The plan calls
for better pedestrian/bike access across the 16th Street Bridge. These improvements will
enhance the visitor experience and connect back to the Bee Branch trail system and other
basin improvements.
• Imagine Dubuque 2037 Comprehensive Plan (2017) - The plan calls for implementing
Complete Streets and the addition of roundabouts and technology enhancements to
existing roadways.
• True North (2017� — The City and Greater Dubuque Development Corporation
recommend the proposed RAISE transportation improvements to help attract businesses
to the region.
• Tri-State Area Integrated Walking Bicycling and Hiking Network Plan - The plan calls
for the adoption of Complete Streets to support sustainable community development and
addressing constraints and gaps in transportation networks to ensure continuity and
safety.
• Dubuque Metropolitan Area Traffic Study (DMATS) Long Range Transportation Plan
2045 - The plan calls for implementing innovative intersection designs and traffic signal
modifications that reduce conflict points and enhance safety and mobility.
• Dubuque Climate Action Plan (2020) -- The plan calls for the conversion of 25% of
Dubuque streets to Complete Streets by 2030 to help meet the city's greenhouse gas
reduction goals.
• Dubuque Equitable Poverty Reduction and Prevention Plan (2021) -- The plan calls for
reducing obstacles that systematically and structurally block individuals from equal
access to the means from which to advance from poverty, including through
transportation enhancements.
25 1 Page
Without strategic transportation investments, Dubuque will have difficulty spurring new
economic development in the area and leveraging the full potential of its Opportunity Zone
designation. The City is remediating key brownfield sites and developers have begun to reclaim
empty buildings, vacant storefronts and idle lots. However, this revitalization will not be fully
realized if the community's multimodal transportation network does not work. Mode shifts are
key to Dubuque's economic future.
Dubuque has considered how the project's long-term operations and maintenance costs will be
met. Economic growth along the corridors will create significant additional fees and tax revenues
that can offset costs associated with maintaining the Elm Street and 16th Street Corridor
infrastructure. Transit improvements will also increase Jule bus ridership and associated fares,
and create efficiencies that will save money.
B. Secondary Selection Criteria
1. Innovation
Dubuque's B2E2 project incorporates innovative technologies, project delivery and financing to
improve its transportation system. Specifically:
a. Innovative Technologies
The project will include the installation of Intelligent Transportation System (ITS) technologies
along the Elm Street and 16th Street Corridors to enhance safety and mobility. The system will
integrate with the City's existing ITS infrastructure and enable future functionality, such as
Vehicle -to -Infrastructure (V2I), Vehicle -to -Vehicle (V2V), and Vehicle -to -Everything (V2X)
technologies that will support autonomous vehicles.
The 132E2 project will also be paired with on -going broadband and digital equity efforts in and
around the project area. The City has been installing multi -duct conduit, allowing up to seven
internet carriers to provide fiber services throughout the area. In addition, the City will shortly be
completing the second major internet crossing of the Mississippi on the Hwy 151/61 transiting
16th Street from downtown Dubuque to Wisconsin. Universal, redundant, high-speed broadband
access will support the next -generation connectivity that drives further innovation and enhance
equitable access to the Internet for city residents who live in distressed neighborhoods in and
around the project area -- a critical need in today's digital economy.
The City will use innovative Complete Streets design elements to transform poorly functioning
streets and implement streetscape improvements along the Elm Street and 16th Street Corridors.
Sidewalks, bike lanes and other streetscape improvements will support transit, walking and
biking. The project also includes the replacement of existing incandescent street lights on the
rebuilt Complete Streets with energy efficient LEDs, which will save electricity, reduce costs and
curb emissions. In addition, innovative green infrastructure approaches such as planting trees and
infiltration basins to help with uptake will be used to improve water quality and manage the
quality and quantity of stormwater runoff from road surfaces into the Mississippi River.
26 1 Page
Based on previous experience with the $5.6 million TIGER -funded Historic Millwork District
Complete Streets project, City staff and partners have the technical capability to install and
operate these innovative technologies and approaches. No extraordinary permitting, approvals,
exemptions, waivers, or other procedural actions will be required since the installations will fall
within existing rights -of -way. Dubuque anticipates no effects on the project delivery timeline.
b. Innovative Project Delivery
As part of this RAISE Planning project, Dubuque will explore innovative project delivery
options for planning, design, permitting, and review. Dubuque will engage with Iowa DOT and
regional Federal Highway Administration (FHWA) to discuss innovative strategies to expedite
project delivery using mobile survey and mapping applications such as LIDAR data and digital
imagery and pavement condition scanning using drone UAV technology. The three dimensional
scanning technology will allow for real-time 3D BIM modeling and the use of virtual reality
visualization technology during both the design and public informational meetings to convey and
display the proposed corridor improvements. Dubuque will also evaluate alternative methods for
Accelerated Bridge Construction (ABC) for both the 16th Street Peosta Channel bridge shared
use path and the 14th Street railroad overpass bridge.
c. Innovative Financing
The B2E2 project is located entirely within Dubuque's federally -designated Opportunity Zone,
where the City will intentionally seek to leverage the program's tax incentives, passed in the Tax
Cuts and Jobs Act of 2017. The potential for driving significant private sector investment along
the 16th Street Corridor and on Chaplain Schmitt Island is great, and Dubuque is ready to
combine local and federal dollars to leverage private redevelopment through Opportunity Funds
over the next decade. The area is ripe for redevelopment, but transportation challenges inhibit
these new opportunities and diminish the economic potential of the area. While this was by no
means the only reason to invest in the 16th Street Corridor, Opportunity Funds now offer both
the City and DOT the ability to channel public dollars more effectively and the City is planning
accordingly. New development will increase local tax revenues to support additional
transportation infrastructure improvements.
Dubuque also intends to pursue private funds to support specific elements of the B2E2 project.
As part of its previous TIGER construction application, Dubuque secured a $500,000 cash
commitment from the Dubuque Racing Association (DRA) to support the construction of
Complete Streets along the 16th Street Corridor and a pedestrian/bike shared use path to
Chaplain Schmitt Island. Although DRA has since spent those funds on a different project, they
have expressed interest in renewing discussions with the City regarding financial support for a
future construction project that facilitates access to the island.
2. Partnership
Dubuque will continue to work with many key partners to develop the project that is the subject
of this planning effort. Partners crucial to the implementation of the project include:
27 1 Page
• City of Dubuque — will administer the RAISE planning project and has committed
$1,408,000 in local match.
• State of Iowa — will work with the City to expeditiously complete NEPA and other
regulatory requirements at the appropriate time.
• Jule Transit System — RAISE funds will leverage Elm Street and 16th Street transit
investment.
• East Central Intergovernmental Association — will work with Dubuque to complete a
BCA and help implement the project.
• Greater Dubuque Development Corporation — will work to grow jobs along the Elm
Street and 16th Street Corridors through its True North business recruitment efforts.
• Dubuque Racing Association (DRA) - the City and DRA will continue to discuss a
public -private partnership to assist with financing key components of the project.
• Local Developers — RAISE investment along the Elm Street and 16th Street Corridors
will be leveraged with revitalization efforts of private developers. Current conversations
with a landowner and developer propose the creation of over 100 well -paid jobs in the
area. The developer has commissioned a traffic study to fully understand the
improvements needed to support their plans.
To ensure that the B2E2 planning process explicitly addresses climate change and environmental
justice impacts, as well as racial equity and reducing barriers to opportunity, Dubuque will
engage key community stakeholders who partnered in the development of the City's 2020
Climate Action Plan and the 2021 Equitable Poverty Reduction and Prevention Plan, including
Dubuque's Resilient Community Advisory Commission, the Community Foundation of Greater
Dubuque, Green Dubuque, Inclusive Dubuque, Government Alliance on Race and Equity,
faith -based organizations, and neighborhood organizations in and around the project area.
The B2E2 project enjoys strong intergovernmental support from Dubuque Mayor Roy Buol, the
Dubuque City Council, the Dubuque County Board of Supervisors, the Iowa Department of
Transportation, Governor Kim Reynolds, State Representatives Lindsay James and Charles
Isenhart, State Senator Pam Jochum, U.S. Representative Ashley Hinson, and U.S. Senators
Charles Grassley and Joni Ernst.
Having applied for a DOT TIGER construction grant in 2017, the City has already coordinated
closely with its federal partners to plan for and develop the B2E2 project. That interagency
collaboration has long been a hallmark of Dubuque's federally -supported transportation, disaster
resilience and environmental remediation efforts. In 2010, Dubuque received a $5.6 million DOT
TIGER grant to develop Complete Streets in the Historic Millwork District. In 2012, the FTA
awarded the City a $8 million State of Good Repair grant to construct a new intermodal facility
near the Historic Millwork District. In 2015, Dubuque won a $31.5 million HUD Natural
Disaster Resilience Grant for flood -proofing and stormwater infrastructure improvements in the
Washington Neighborhood. The City has also received $1 million in EPA Brownfields
Assessment, Cleanup and Area -Wide Planning dollars to remediate contaminated sites in the
B2E2 project area. Dubuque was honored in 2013 with an EPA National Award for Smart
Growth Achievement for its downtown revitalization efforts. RAISE investment will
immediately leverage this federal support.
28 1 Page
V. ENVIRONMENTAL RISK REVIEW AND PROJECT READINESS
A. Project Schedule
Dubuque can begin the proposed planning project quickly upon award of a RAISE grant and all
funds will be spent expeditiously.
Table 3. Project Schedule
2022
2023
2024
QI
Q2
Q3
Q4
Q1
Q2
Q3
Q4
Q1
Q2
Q3
Q4
Project Phase
Funding Agreement
with DOT
Planning & Design
Request for Proposal
(RFP) Preparation and
Consultant Solicitation
Select Consultant &
Confirm Design Team
Develop Design Scope
of Services &
Consultant Contract
Complete Preliminary
Engineering
Host Community
Forums to Share
Proposed
Improvements
Complete
Environmental Review
NEPA /106 Clearance
Complete Final
Engineering
Host Community
Forums to Share
Proposed Final
Improvements
Seek Local Approvals
on Completed Plan
Public Engagement
29 1 Page
Dubuque has incorporated community and stakeholder engagement into its project schedule to
ensure that there is robust public input, including through public workshops and public meetings
that can produce a strong community consensus on the ultimate plans. The City will also use
social media, online surveys, postcard mailers, and utility billing newsletters to solicit feedback
and engage residents, as well as the City Life and City Expo programs that allow residents to
interact with City Staff and learn more about services and projects. The B2E2 planning process
will explicitly include consideration of climate change impacts, racial equity and environmental
justice.
As evidenced by the attached letters of support, there has already been a strong effort to engage
with local and regional stakeholders well in advance of the start of planning. The federal
Opportunity Zone designation for Census Tracts 1 and 5 further cemented the interest that the
community has in seeing redevelopment and infrastructure improvements along the Elm Street
and 16th Street Corridors.
B. Required Approvals
1. Environmental Permits and Review
Based on the city's prior TIGER construction grant application, Dubuque has worked closely
with Stuart Anderson at the Iowa Department of Transportation to advance the proposed
project's readiness. The City has consulted with the state on NEPA, although NEPA discussions
are not needed at this stage for a RAISE Planning project. Dubuque anticipates that the future
construction project will be classified as a Categorical Exclusion, pending documentation from
the State Historic Preservation Office (SHPO) that historic resources will not be affected and
from the U.S. Fish and Wildlife Service to confirm that no rare/endangered species will be
affected. Dubuque fully expects the construction project to be compliant with all regulatory
requirements and to pose no adverse impacts on historic resources.
As part of the City's previous project development efforts, Dubuque has already engaged in
extensive public outreach. The community hosted numerous public meetings gathering input on
ways to improve pedestrian, bicycling and transit uses on 16th Street. Local leaders, businesses
and residents attended planning workshops and provided feedback on proposed transportation
solutions. Additional public outreach and community engagement, especially with respect to
redesign of the Elm Street Corridor, climate change impacts, racial equity and environmental
justice, will be an important part of this RAISE -funded planning effort for the retooled B2E2
project.
2. State and Local Approvals
The B2E2 project is consistent with existing local and regional plans to maintain transportation
facilities and systems in a state of good repair. RAISE Planning funds will complement other
smart growth efforts in Dubuque to focus investment downtown. Minor permits to conduct work
in the right-of-way will easily be secured from the Iowa Department of Transportation. A Corps
of Engineers permit will be required to construct the pedestrian/bike shared use path to Chaplain
Schmitt Island. Representatives from the state and federal agencies have indicated that they will
support this work and will move expeditiously to complete regulatory requirements at the
appropriate time. Other project components —ADA sidewalk improvements, benches and street
30 1 Page
lighting — will take place on land owned or controlled by the City. Dubuque will issue a building
permit upon completion of environmental and site plan review.
3. Federal Transportation Requirements Affecting State and Local Planning
The Dubuque Metropolitan Area Transportation Study, administered by the East Central
Intergovernmental Association, is supportive of the project and has pledged to amend its TIP to
include the B2E2 project elements immediately upon RAISE award.
C. Assessment of Project Risks and Mitigation Strategies
Dubuque's RAISE Planning project is both timely and low -risk. The City is prepared for
additional planning. The funding gap between available local resources and the planning project
cost remains its primary concern. RAISE funds would alleviate that gap and allow the planning
to proceed to evaluate the 132E2 initiative's challenges, opportunities, and alternative options.
Long-term, the project poses few construction barriers. Most of the proposed improvements are
located within the existing right-of-way. Only minor temporary and permanent easement
acquisition is anticipated. Potential construction risk mitigation strategies might include:
• NEPA delays: The City will consult with Iowa DOT, which administers NEPA reviews
on behalf of DOT for federal aid projects. The future construction project is expected to
receive a Categorical Exclusion, pending SHPO documentation that historic resources
will not be affected and notice from the U.S. Fish and Wildlife Service confirming that no
rare/endangered species will be harmed.
• Cost overruns: Contingency costs will be built into a future construction budget.
D. Technical Capacity
The sponsor of this project is the City of Dubuque, Iowa. The City has demonstrated its ability to
hire professional firms and contractors, acquire property and otherwise advance projects in
compliance with federal and state laws through various projects included on the Transportation
Improvement Program in the past ten years or more, be they bridge, highway, or road
infrastructure enhancement projects.
In the past ten years, the current City engineering staff has successfully managed over $66
million of federal -aid transportation projects, including right-of-way acquisition, railroad
negotiation, and all aspects of planning such as scoping, preliminary design, detailed design,
construction and inspection (see attachments for Federal Aid Project History). Dubuque has an
exemplary record of managing federal grants, having received numerous DOT, U.S.
Environmental Protection Agency, U.S. Department of Housing and Urban Development, and
other federal grants over the years. Key to this effort is the development of a detailed work plan
with clear milestones and responsibilities. Performance measures will be established in order to
track progress.
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The City employs five engineers experienced with administering grant funds and managing
federal aid transportation projects. Key City staff to be involved in administering this project are:
City Engineer Gus Psihoyos, Assistant City Engineer Bob Schiesl, Civil Engineer Jon Dienst,
Land Surveyor Nate Kieffer, and Civil Engineer Nate Steffen (see attachments for Engineering
Staff Bios).
The city's team is familiar with typical cost estimates for the major components of the B2E2
project, including Complete Streets, the 14th Street railroad overpass, and the pedestrianibike
shared use path to Chaplain Schmitt Island. Ultimately, as this is a planning project, these
estimates and features will serve as a guide for the selected consultant and the City's engineering
team to develop a robust plan for the B2E2 project.
E. Financial Capacity
Dubuque is fully prepared to manage the costs of the B2E2 planning project and to support the
project budget submitted with this application. Dubuque is committed to providing an
over -match of 40% for the RAISE Planning application, and the city has a solid track record of
delivering on its commitments. In combination with Opportunity Zone designation in Census
Tracts 1 and 5, RAISE funding will spur significant private investment. This economic growth
will create additional fees and tax revenues that can offset additional costs associated with
maintaining the proposed infrastructure.
Despite the challenges of the COVID-19 pandemic, the City's overall financial condition is in
very good shape. Dubuque has an Aa3 credit rating. Furthermore, planned and proposed
development in the community is expected to strengthen the City's local revenues. Dubuque has
an exemplary record of managing federal grants, having received numerous DOT, EPA, HUD,
and other federal grants over the years. The City has never been cited for an adverse OMB
Circular A-133 audit finding and has never been required to comply with "high risk" terms or
conditions under OMB Circular A-102.
VI. Benefit -Cost Analysis
A BCA consistent with DOT guidelines is not required for a RAISE planning project, although
the Dubuque team expects significant economic, safety, environmental, and quality of life
benefits once construction is ultimately complete. The B2E2 project is expected to reduce travel
time and improve mobility for all users, enhance safety along the Elm Street and 16th Street
Corridors, reduce emissions as a result of decreased idling and mode switching, increase
property values, and encourage new residential and commercial development.
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