Economic Development Plan-Volume I Five Year Strategic Plan and Volume II-One Year Action Plan_Economic Development Steering Committee August 1984d.
ARCHIVES
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DUBUQUE, IOWA
Economic Development
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Vt, Steering Committee
Volume One
Five Year Strategic Plan
Welton Becket Associates
Peat, Marwick, Mitchell & Co.
R 711 . 4 ECO Iowa Book=,
v.1 & 2
Economic development plan,
Dubuque, Iowa
FIVE—YEAR PLAN FOR ECONOMIC DEVELOPMENT
IN DUBUQUE, IOWA
VOLUME I: FIVE—YEAR PLAN
August 7, 1984
Five -Year Economic Development Plan
Volume I: Five -Year Plan Updated 08/07/84
CONTENTS
Page
INTRODUCTION I- 1
Introduction to this Manual I- 2
Purpose of the Study I- 2
The Dubuque Area Economic Development Steering Committee I- 3
Economic Planning Concepts I- 3
GOALS, OBJECTIVES AND STRATEGIES II- 1
Introduction II- 2
Goals of the Five -Year Plan II- 4
IMPLEMENTATION ORGANIZATION III- 1
Organizational Strategy III- 2
Recommended Organization III- 3
Organization Structure III- 4
Organization Members III- 5
Selecting Individuals III- 6
Financing III- 6
Publicity III- 7
Five -Year Economic Development Plan Page I-1
Volume I: Five -Year Plan Updated 08/07/84
I - INTRODUCTION
Five -Year Economic Develcpment Plan Page I-2
Volume I: Five -Year Plan Updated 08/07/84
I - INTRODUCTION
This manual presents the five-year plan for economic development in Dubuque.
The manual is the second volume in a three -volume series that documents this
economic development plan. The other two volumes are the One -Year Action Plan
in Volume II and the Reference Manual in Volume III.
INTRODUCTION TO THIS MANUAL
This manual presents the goals, objectives and strategies for economic
development in Dubuque. In addition, it describes a proposed organizational
structure to support plan implementation. The manual is presented in three
sections, including this introduction. This manual is intended to have a
number of important uses, as described below:
The manual should provide a detailed decision -making framework
for the first five years of economic development activities.
The five-year plan presented in the manual provides the basis
for selecting specific plans and actions in subsequent years of
implementation.
The manual should be a successful "working" document which
represents the direction of all community economic development
activities. It is envisioned that all sections of this manual
will be periodically updated.
PURPOSE OF THE STUDY
The concept of "economic development" has evolved in the last ten years as the
national economy has been dramatically affected by increased international
competition, technological innovation and productivity improvements. The
factors that contributed to the relative ease with which the national economy
expanded after World War II are no longer present. Economic development has
come to be viewed as a productive way in which local communities can
strengthen their own economic base within the new economic realities at the
national level.
As the concept of economic development has grown, so has the competition.
Economic development for local communities has become an intensely competitive
arena of more than 5,000 organizations nationwide. In this environment, local
governments are finding they cannot do it alone. Most city officials and
community leaders agree that economic development requires public -private
cooperation. Many communities are discovering that this cooperation is even
Five -Year Economic Development Plan
Page I-3
Volume I: Five -Year Plan Updated 08/07/84
more effective if approached as part
practical, well -planned and based on
community's economic prospects truly
of a comprehensive strategy that is
a realistic assessment of what the
are.
The basic purpose of the study was to determine the best overall strategy for
economic development in Dubuque. In order to make this determination, the
characteristics of the Dubuque area economy were evaluated to assess the
factors that may support or hinder the development of new employment oppor-
tunities. Based on such constraints, as well as perceived opportunities for
new employment opportunities in Dubuque, a five-year plan for economic
development was prepared. A one-year action plan for the first year of the
program was then prepared based on the strategies described in the five-year
plan.
THE DUBUQUE AREA ECONOMIC
DEVELOPMENT STEERING COMMITTEE
This Welton Becket/Peat Marwick study was initiated by the Dubuque Area
Economic Development Steering Committee (the DAEDSC) in recognition of the
factors just discussed. The DAEDSC represents a unique coalition of the local
Dubuque business community, government and organized labor.
ECONOMIC PLANNING CONCEPTS
The five-year economic development plan for Dubuque was prepared in the same
manner that private business firms traditionally employ. Specific organiza-
tional units for action are the basis of the plan, as detailed in Exhibit II-1
in the next section.
A key element in preparing a five-year plan is the concept of "goals, objec-
tives, strategies, plans and actions (GOSPA)." GOSPA is an orderly process
for structuring the direction in which an organization wishes to proceed. The
GOSPA process is based directly on analysis of opportunities and constraints
facing an organization. The GOSPA process is briefly explained below.
Goals - Goals express the end result that your efforts are
intended to achieve. Goals indicate an overall direction for a
plan but generally do not express a timetable or quantifiable
desired result.
Objectives - Objectives are based on overall goals and define
the results expected within a specified period of time. Objec-
tives include specific results that can be quantified that are
to be achieved according to a specific timetable.
a
J
Five -Year Economic Develcpment Plan
Volume I: Five -Year Plan
Page I-4
Updated 08/07/84
Strategies - Strategies are the key to a sound planning pro-
cess. Strategies determine how resources will be used to
achieve objectives that will result in goals being attained.
Plans - Plans are of most interest to those implementing the
overall plan, since they are a detailed program of actions that
will accomplish the desired result.
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APRIL 17, 1984
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WBA PROJECT NO. 130:
APRIL 17, 1984
Five -Year Economic Develcpment Plan
Volume I: Five -Year Plan
Page II-1
Updated 08/07/84
II - GOALS, OBJECTIVES AND STRATEGIES
Five -Year Economic Development Plan
Volume I: Five -Year Plan
Page II-2
Updated 08/07/84
II - GOALS, OBJECTIVES AND STRATEGIES
This section of the manual presents the overall five-year plan for economic
development in Dubuque. The presentation of the plan is based on the goals,
objectives and strategies format introduced in Section I.
INTRODUCTION
The five-year plan for economic development in Dubuque has been prepared in a
format similar to that of a business firm contemplating its corporate future.
To facilitate activities and responsibilities over the coming five years,
separate organizational units have been used. These organizational units are
based on the major SIC categories used by the Bureau of Labor Statistics and
are detailed in Exhibit II-1. These organizational units are important, since
they are intended as discrete areas of responsibility that can be acted upon
and monitored independently. By such organization, a broad -based, multi-
faceted economic development strategy will be possible.
The one-year action plan presented in Volume II is based on the five-year plan
described in this section. The reader will note that only a select number of
strategies presented in this section are meant to be included in any one-year
period of action plans.
i
1
Five -Year Economic Develcpment Plan
Volume I: Five -Year Plan
Exhibit II-1
ORGANIZATIONAL UNITS
Overall
Manufacturing
Tourism
Retailing
Health Care
Higher/Vocational Education
Business Support Services
Transportation
Page II-3
Updated 08/07/84
Five -Year Economic Develcpment Plan Page II-4
Volume I: Five -Year Plan Updated 08/07/84
GOALS OF THE FIVE-YEAR PLAN
All activities to be conducted as part of the five-year plan are based on a
series of economic development goals. 0ne overall goal has been identified
for each of the eight economic planning units in the five-year plan.
In the balance of this section, these goals are related to measurable
objectives and a series of specific strategies. The strategies that are
recommended have been selected so that the identified objectives of the
five-year plan will be met.
The goals of the five-year plan are presented below:
Build a broad community consensus regarding the direction of
economic development efforts
Retain existing manufacturing firms and facilitate the expan-
sion of these existing firms; assist in the formation of new
manufacturing firms; and attract relocating and/or expanding
manufacturing firms from outside the Dubuque area
Establish the Dubuque area as a recognized tourist destination
within the North Central Region of the United States
Maintain and strengthen Dubuque's position as the center of
retailing in the trade area
Maintain and expand the local health care industry's share of
the regional market
Maintain and support Dubuque's reputation as a center of pri-
vate college, high -quality, liberal arts education; make the
Tri-Colleges an integral component of the overall economic
rdevelnnment nlan: maintain anrd .sunnnrt the role of the North-
east Iowa Technical Institute in job training for local
businesses
Expand the base of service industry employment; maintain exist-
ing firms and facilitate their expansion
Support the improvement of transportation facilities serving
the Dubu.que area, including highway, air, railroad and river
systems.
Five -Year Economic Development Plan Page II-5
Volume I: Five -Year Plan Updated 08/07/84
GOAL:
Build a broad community consensus regarding the direction of
economic development.
OBJECTIVE: Involve as many individuals and community groups as possible at
some level of plan implementation.
STRATEGY 1: Conduct an education -oriented internal marketing
program. Efforts should begin with dissemination of
this study.
STRATEGY 2: Work with local colleges on career nights and
work-study programs.
STRATEGY 3: Encourage community leaders' training program that
is already in place.
STRATEGY 4: Reorganize and expand participation in the DAEDSC to
establish it as a permanent, policy -oriented entity.
Five -Year Economic Development Plan Page II-6
Volume I: Five -Year Plan Updated 08/07/84
GOAL:
Retain existing manufacturing firms and facilitate the expansion
of these existing firms; assist in the formation of new manufac-
turing firms; and attract relocating and/or expanding
manufacturing firms from outside the Dubuque area.
OBJECTIVE: Retain at a minimum the 125 firms listed in the 1983-1984 Dubuque
Area Industrial Directory through 1989.
STRATEGY 5: Conduct an ongoing manufacturing firm outreach pro-
gram comprised of the following elements: education
forums on available local, state and national
resources; media relations program with regular
press releases on local firms; ongoing contact
program with all firms initiated by survey (use
tickler system).
OBJECTIVE: Facilitate the formation of 3 manufacturing firms by 1989.
STRATEGY 6:
Establish a local public/private venture capital
firm to provide funds to existing local, newly
formed and relocating businesses.
STRATEGY 7: Work with the Small Business Development Center to
identify and support entrepreneurship activities.
One example is the potential relocation or start-up
of John Deere suppliers in the Dubuque area.
Another example would be to actively seek spin-off
divisions of major industrial firms. Finally,
start-up ventures may be possible that would provide
basic components and supplies to major industrial
firms in the region.
STRATEGY 8: Work with the Small Business Development Center to
identify start-up opportunities.
OBJECTIVE: Capture all plant expansions of existing Dubuque -based
manufacturing firms through 1989.
STRATEGY 9: Identify plans for plant expansions early.
STRATEGY 10: Encourage local governments to review their
permit/planning process to eliminate time delays.
One example for facilitating the permitting process
is a permit directory listing all local government
responsibiliies and requirements for construction.
STRATEGY 11: Integrate information needs of expanding firms with
Strategy 1.
Five -Year Economic Development Plan Page II-7
Volume I: Five -Year Plan Updated 08/07/84
OBJECTIVE: Attract one relocating manufacturing firm from outside the Dubuque
area by 1989.
STRATEGY 12: Initiate a targeted but limited out-of-town market-
ing program to attract relocating firms and limit
out-of-town marketing.
STRATEGY 13: Support a stronger Iowa Development Commission,
especially in its marketing efforts, and develop
local capacity to work in effective collaboration.
STRATEGY 14: Work with the Convention and Visitors Bureau to
market to trade shows that are staged in Dubuque.
OBJECTIVE: Make maximum use of existing resources.
STRATEGY 15: Support consolidation of functions of Dubuque Area
Industrial Development Corporation and Dubuque-in-
Futuro.
STRATEGY 16: Review existing industrial marketing materials to
insure consistency with overall economic strategy.
Five -Year Economic Develcpment Plan Page II-8
Volume I: Five -Year Plan Updated 08/07/84
GOAL:
Establish the Dubuque area as a recognized tourist destination
within the North Central Region of the United States.
OBJECTIVE: Increase, the total travel -generated employment in Dubuque County
by 500 workers in 1989. As a point of reference, the 1984 Statis-
tical Profile of Iowa estimated that total travel -generated
employment in Dubuque County was 1,746 in 1981.
STRATEGY 17: Encourage the efforts of the Convention and Visitors
Bureau in organizing the community's economic devel-
opment strategy for tourism. Continuing efforts
should be made to broaden cooperative marketing
efforts to include representatives of area marketing
organizations, retailing groups, educational insti-
tutions and tourist activities.
STRATEGY 18: Offer an ongoing and diverse set of activities and
events in key activity centers. A tcurist activity
center typically offers a primary attraction and
related retail and services in close proximity. Key
activity centers in Dubuque include the Port of
Dubuque/4th St. Peninsula, Town Clock Plaza, Fenelon
Place Elevator, Five Flags/Orpheum Theatre and the
Kennedy Mall. The Tri-Colleges are also considered
as potential key activity centers. Exhibit II-2
presents specific plans that are recommended as part
of this strategy.
STRATEGY 19: Improve and build upon the physical assets of
Dubuque and integrate them with an overall tourism
destination experience. Specific plans should
include consideration of overall community image,
integration of west -side, a clear identity and func-
tion for CBD and further development of historic
districts. A tourism linkage study should also be
prepared to evaluate the transportation system,
graphics identification and application of urban
design guidelines. Exhibit II-3 presents specific
plans that are recommended as part of this strategy.
Five -Year Economic Development Plan
Volume I: Five -Year Plan
Page II-9
Updated 08/07/84
OBJECTIVE: Increase the average length of stay to 2.0 days by 1987. A recent
study completed by the Iowa Development Commission and the Dubuque
Area Chamber of Commerce indicated that the current average length
of stay was 1.5 days.
STRATEGY 20: Construct a new hotel facility as an integral compo-
nent of the tourism/business center in the CBD, if
justified by a formal feasibility study. This hotel
would be best located adjacent to the existing Five
Flags Center. Work closely in the identification of
a developer and management company to link the hotel
with overall economic development concept.
STRATEGY 21: Initiate study for a new tourist -oriented hotel as
an integral part of the Ice Harbor project in 1989.
The facility could potentially be located adjacent
to the Public Dock area.
OBJECTIVE: Increase annual visitations to Dubuque by 50% by 1989.
STRATEGY 22: Market the "Dubuque Experience" as a whole by
integrating and focusing all existing marketing pro-
grams. Specific plans recommended for this strategy
are included as Exhibit II-4.
STRATEGY 23: Work with management of the Julien Motor Inn to make
a final determination of the ultimate use of the
Julien Hotel as it relates to overall CBD/Riverfront
activities and implement a solution.
STRATEGY 24: Construct Ice Harbor tourist complex. Plans will
include land assembly, solicitation of a master
developer and finalization of a development agree-
ment. Also consider a program to save materials and
artifacts from highway right-of-way demolitions for
use in Ice Harbor. Details of the project concept
are contained in Appendix A.
Five -Year Economic Development Plan Page II-10
Volume I: Five -Year Plan Updated 08/07/84
Exhibit II-2
PLANS FOR STRATEGY 18
Create a weekend adult education program
Encourage riverboat experience
Move Farmers Market activities to Ice Harbor when completed
Create pedestrian and drive community tour programs
Create multimedia presentation of the Dubuque Story to be staged at the
Dubuque Five Flags Theater
Package several stage productions for tourists using college students and
children
Create a variety of two- to three-day minivacation packages.
Five -Year Economic Development Plan
Page II-11
Volume I: Five -Year Plan Updated 08/07/84
Exhibit II-3
PLANS FOR STRATEGY 19
Build a tourist complex at Ice Harbor
Create a tourism focal point on the Fourth Street peninsula
Implement an urban design program in the central business district
Designate an historic district in the CBD
Create a uniform signage program
Develop dog track and integrate with Fourth Street facilities
• Explore options for using the Four Mounds Property as a conference/small
group meeting center
Develop pedestrian linkage between CBD and Ice Harbor
Establish tourist shuttle to link various attractions and activity
centers.
Five -Year Economic Development Plan Page II-12
Volume I: Five -Year Plan Updated 08/07/84
Exhibit II-4
PLANS FOR STRATEGY 22
Create a four -season image of Dubuque tourism:
Use area attractions to promote season image, such as ski resort for
the winter season
Encourage the staging of major two- to three-day events in each
season, such as DubuqueFest in May, Riverfest in September and
Winter Wonderland in the winter season
• Implement a hospitality training program
• Work with the local Ad council to coordinate media advertising
• Work with the Convention and Visitors Bureau to coordinate group meeting
marketing
Establish joint marketing program under the direction cf the Tourism Task
Force
Create a community logo to be incorporated into all community marketing/
advertising
Encourage employers to distribute tourism marketing package to visitors
Have Tourism Task Force review and expand the tourism package in light of
the economic strategy for tourism
Expand the tour bus market
Market CBD/Fourth Street Peninsula/Ice Harbor as focal point of Dubuque
tourist experience
Promote visitation to the 2,000-acre Mines of Spain Nature Preserve.
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PEAT, MARWICK, MITCHELL & CC
WBA PROJECT NO. 130:
MAY 18, 198•
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Five -Year Economic Development Plan Page II-15
Volume I: Five -Year Plan Updated 08/07/84
GOAL:
Maintain and strengthen Dubuque's position as the center of
retailing in its trade area; strengthen and differentiate existing
retail centers in Dubuque; integrate retail marketing with overall
tourism promotion and marketing.
OBJECTIVE: Increase Dubuque County total retail sales by 25% (in constant
dollars) by 1989.
STRATEGY 25: Establish a task force to coordinate marketing
efforts and identify linkages between and west -side
and downtown retailing. Linkages could include such
things as a community trolley system. The task
force would be composed of the Kennedy Mali Mer-
chants Association/West End Retailers, the Downtown
Association and the Chamber of Commerce Business
Development Committee.
OBJECTIVE: Establish a discount retailing center in Town Clock Plaza using
20,000 square feet of existing vacant retailing space.
STRATEGY 26: Identify and solicit national and/or regional
discount retailers.
STRATEGY 27: Explore feasibility of enclosing Town Clock Plaza.
Begin with mall development study (see Appendix B).
OBJECTIVE: Establish a minimum of three specialty retailing nodes in the CBD
area/Riverfront area, including Fenelon Place, Town Clock Plaza
and Ice Harbor.
STRATEGY 28: Adopt urban design guidelines for each of the
identified specialty retailing nodes in order to
unify an image for each area (see Appendix B).
STRATEGY 29: Investigate feasibility of relocating City Hall
function into CBD area to strengthen retailing and
other activities.
Five -Year Economic Develcpment Plan Page II-16
Volume I: Five -Year Plan Updated 08/07/84
GOAL:
Maintain and expand the local health care industry's share of the
regional market.
OBJECTIVE: Achieve 100% functional utilization of existing health care
plants, including the Xavier Park complex.
STRATEGY 30: Encourage and support joint marketing program for
Dubuque health care industry, including hospitals,
health maintenance organizations and private
practice physicians.
STRATEGY 31:
Investigate feasibility of placing outpatient care
facilities at various locations throughcut the
region.
Five -Year Economic Develcpment Plan Page II-17
Volume I: Five -Year Plan Updated 08/07/84
GOALS:
Maintain and support Dubuque's reputation as a center of private
college, high -quality, liberal arts education; make the Tri-
Colleges an integral component of the overall economic development
plan; maintain and support the role of the Northeast Iowa Techni-
cal Institute in job training for local businesses.
OBJECTIVE: Increase Tri-College enrollments each year through 1989.
STRATEGY 32: Integrate educational institutions into overall
economic development marketing program and place
representatives of the institutions on selected
economic development plan task forces.
OBJECTIVE: Create activities on the college campuses that will reinforce the
overall economic development efforts of the community.
STRATEGY 33: Create a business research center within the local
college/university environment that would specialize
in local economic development studies.
OBJECTIVE: Increase the percentage of graduates that are placed in Dubuque
area businesses each year through 1989.
STRATEGY 34: Expand work-study programs.
Five -Year Economic Development Plan Page II-18
Volume I: Five -Year Plan
Updated 08/07/84
GOAL:
Expand the base of service industry employment (nontourism, since
tourism is treated separately); maintain existing firms and
facilitate their expansion.
OBJECTIVES: Increase total services employment by 500 by 1989; Attract two
firms from outside the Dubuque area by 1989.
STRATEGY 35: Monitor and consult with CyCare in connection with
its existing corporate headquarters operation and
future expansions in Dubuque.
STRATEGY 36: Establish a services industry recruiting task force.
STRATEGY 37: Operate a recruitment program toward target industry
groups that have a high number of administrative/
support personnel. Target industry groups would
include: computer and data processing; holding and
other investment offices; accounting and bookkeeping
services; property casualty and life insurance
companies; and financial services. In addition,
orient marketing directly'to "back -office"
administrative functions.
STRATEGY 38: Operate a recruitment program toward high -growth
firms located in the North Central Region. Monitor
these firms and periodically do target mailings.
Volume 3, Appendix C contains a list of marketing
prospects in the North Central Region.
STRATEGY 39: Create a marketing program that supports recruitment
program activities and emphasizes quality of life in
Dubuque. Include in this program a survey of
Dubuque residents to determine likely second wage
earner participation of women.
OBJECTIVE: Encourage new service firms in the CBD.
STRATEGY 40: Encourage use of vacant office space in the CBD as
the location of incubator service industry firms.
STRATEGY 41: Offer, where necesssary, financial incentives and/or
subsidies to encourage use of vacant space.
STRATEGY 42: Do urban design work in the CBD, see Strategy 14.
Five -Year Economic Development Plan
Volume I: Five -Year Plan
Page II-19
Updated 08/07/84
GOAL: Support the improvement of transportation facilities serving the
Dubuque area, including highway, air, railroad and river systems.
OBJECTIVE: Support completion of downtown U.S. 61 project by 1989:
STRATEGY 43: Maintain formal and regular contacts with IDOT and
state and federal legislators.
OBJECTIVE: Support completion of U.S. 20 four -lane highway in Iowa by 1989.
STRATEGY 44: Maintain formal and regular contacts with IDOT and
state and federal legislators.
OBJECTIVE: Obtain a state and federal commitment to a four -lane highway
interstate connection by 1987.
STRATEGY 45: Conduct local public education program to better
inform residents of the need and importance of
interstate connection.
STRATEGY 46: Formulate and implement a lobbying campaign at state
and federal levels.
OBJECTIVE: Maintain two -carrier rail service in Dubuque.
STRATEGY 47: Initiate formal and regular contacts with rail
carriers in order to identify and respond to their
needs and problems, where possible.
OBJECTIVE: Explore feasibility of increasing number of air passenger flights
and the reintroduction of commercial jet service.
STRATEGY 48: Initiate discussions with existing carriers and
others to determine conditions necessary to expand
and upgrade service levels.
OBJECTIVE: Explore feasibility of developing a commercial harbor with
barge -rail facilities.
STRATEGY 49: Initiate preliminary discussions with rail carriers,
commercial barge operators and the U.S. Army Corps
of Engineers to identify potential interest and
problems/issues related to development and operation.
STRATEGY 50: Prepare formal market and financial feasibility
study.
Five -Year Economic Development Plan
Volume I: Five -Year Plan
III - IMPLEMENTATION ORGANIZATION
Page III-1
Updated 08/07/84
Five -Year Economic Develcpment Plan Page III-2
Volume I: Five -Year Plan Updated 08/07/84
III - IMPLEMENTATION ORGANIZATION
This section of the manual recommends the formation of an organization that
will implement the five-year plan. The recommendations presented in this
section are based on the review of community organizations presented in
Volume III.
ORGANIZATIONAL STRATEGY
An overall organizational strategy is required to effectively implement the
economic development plan. Such a strategy needs to reflect the unique
character and needs of Dubuque. While there is no single way to organize for
economic development, there are basic guidelines that should be used.
The major objective of the organizational strategy is to encourage the
existing elements of the community to work together in a true public -private
partnership. Effective local leadership is needed to bring together these
diverse elements. Such leadership, people who care about their communities
and are willing to and able to take actions, is the impetus for public -private
cooperation that can be the vehicle for overcoming otherwise compelling forces
for deterioration. An interesting series of economic development case studies
was completed by the Committee for Economic Development (CED). The CED
studied seven U.S. cities to determine the factors that contributed to
sustained, successful community economic development efforts. Its overall
conclusion was that all such successful effort was based on the presence of a
sound "civic foundation." The civic foundation consists of:
A positive civic culture that encourages citizen participation
rooted in a practical concern for the community as a whole
A realistic and commonly accepted vision of the community,
which takes into account strengths and weaknesses, in
identifying what the community can and should become
Effective building-block civic organizations that blend the
self-interest of their members with the broader interest of the
community and translate that dual interest into effective action
A network among the key groups that encourages communication
among leaders of every important segment and facilitates the
mediation of differences among competing interests
The inclination to nurture civic entrepreneurs, that is,
leaders whose knowledge, imagination and energy are directed
toward enterprises that will benefit the community, whether in
the public sector, the private sector, or both
Five -Year Economic Development Plan Page III-3
Volume I: Five -Year Plan Updated 08/07/84
Continuity in policy, including the ability to adapt to chang-
ing circumstances, which minimizes uncertainty and fosters
confidence in individual and group enterprises.
Economic development can only proceed where strong leadership can make these
elements of the civic foundation function together, or build those elements
that do not presently exist.
RECOMMENDED ORGANIZATION
The focal point of the economic development effort is recommended as a local
Dubuque Area Economic Development Corporation (DAEDC). This recommendation is
considered the best means for implementing the economic development program in
an efficient and economic manner.
The authority of the DAEDC to act on behalf of the community can be enhanced
by official resolution of the Dubuque City Council and the Dubuque County
Board of Supervisors.
The DAEDC is intended to be a permanent body with a long-term mission in the
community. As such, it is important that the terms of board members be struc-
tured in such a way to insure continuity of policies and programs. Terms of
office should be for more than one year and staggered.
Other areas considered for focusing were the city government, other governmen-
tal agencies, departments or commissions, an independent local development
corporation, an ad hoc group or committee, or various business or service
associations. The reasons for this recommendation are described on the
following page.
Legal - A private sector organizational form will be Less
affected by restrictions in available legal authority. While
certain types of organizations, such as commissions, depart-
ments and advisory boards, can be established within a
governmental setting, there are restrictions on governments
that preclude them from entering into certain types of
transactions and organizational arrangements.
Economic - The economic environment of Dubuque plays a major
role in determining the Eorm of the organization. The economic
environment affects the availability and allocation of finan-
cial resources to finance economic development activities.
Allocation can include such areas as retention, new business
formation, relocation, commercial revitalization and small
business development.
Five -Year Economic Development Plan Page III-4
Volume I: Five -Year Plan Updated 08/07/84
Physical - Physical factors include the location of the
organization, its service area and clientele, and the other
organizations it will interact with in the community.
Political - Coalitions must be fostered among various interest
groups in Dubuque, since economic development issues will
inevitably foster potentially divisive coalitions. Issues
could include retention versus relocation, big business versus
small business, westside versus downtown, and government
subsidies versus no government subsidies.
ORGANIZATION STRUCTURE
The proposed DAEDC would consist of 30-member advisory board of directors and
a three-perscn professional staff. Elements of this organizational structure
that need to be considered include its organizational activities, its adminis-
trative component, the policies and procedures and controls necessary to
operate, and its identity and relationship with the Dubuque Area Chamber of
Commerce.
Organizational Activities - The DAEDC will be the organization
primarily responsible for implementing the five-year economic
development plan. Activities of the DAEDC will at a minimum
include those outlined in the plan, which are primarily
directed at job creation.
Administrative Component - The administrative component
consists of two areas: personnel policies and business
practices. With respect to personnel policies, the following
guidelines should be considered:
- Job descriptions and specifications need to be prepared.
- Employment should be based on training and experience.
- Investment should be made in staff training and develop-
ment programs.
- Compensation should be tied to performance.
- Performance should be reviewed at a minimum on an annual
basis.
With respect to business policies, the following guidelines
should be considered:
- The DAEDC should be administered as a private -sector
organization.
Five -Year Economic Development Plan Page III-5
Volume I: Five -Year Plan Updated 08/07/84
- Office space,
should convey an image of productivity and efficiency.
communications, meetings and correspondence
- Finances should be handled in a responsible manner,
including adoption of an annual operating budget and
development of monthly financial statements.
Policies, Procedures and Controls
Identify and Separate Relationship with the DACC - In general,
the DAEDSC should conduct its affairs separately from those of
the DACC and other sponsoring organizations.
ORGANIZATION MEMBERS
As indicated earlier in this section, leadership is the key to successful
economic development programs. The economic development organization requires
leaders at both the policy and administrative levels. Credible leaders with
the authority to lead will be needed from a number of areas of the community,
including big and small business, organized labor, local government, educa-
tional institutions and civic organizations. Care should be exercised in the
selection of individuals and groups to participate in the economic development
process. Candidates include members from government, civic and private sector.
Public Sector Participants
• State - Legislators
Local Government - City of Dubuque, County of Dubuque, East
Central Intergovernmental Association
Civic Groups - Dubuque Chamber of Commerce, Convention and
Visitors Bureau, Kiwanis, Jaycees, Lions Club
Health Care Institutions - Mercy Health Center, Finley
Hospital, physician associations, dental society, and the like.
Private Sector Participants
Financial Institutions
Educational Institutions - University of Dubuque, Clarke
College, Loras College and the Northeast Iowa Technical
Institute.
• Public Utility Companies
Communication Firms
Five -Year Economic Development Plan Page III-6
Volume I: Five -Year Plan Updated 08/07/84
•
Labor Unions - United Labor Participation Committee
Industrial Firms - John Deere, A.Y. McDonald, FDL Foods, etc.
Real Estate Developers.
SELECTING INDIVIDUALS
After the target groups have been determined, a list of individual candidates
should be prepared. To the extent possible, an attempt should be representa-
tive of the various constituencies within the community. Membership on the
Board should be balanced so that no single group can exert excessive
influence. This can be accomplished on a recruitment or volunteer basis.
If volunteers are solicited, it is important that individuals
meet some minimum qualifications. The following volunteer
screening procedures should be considered:
- Develop criteria for screening volunteers. Identify such
factors as current position, past experience, past accom-
plishments, demonstrated abilities and relevant education
or training
- Announce the need for volunteers
- Screen the responses
- Appoint the Board.
If a recruitment process is followed, the methodology for
selection would be similar, except that candidates would be
actively recruited.
The DEDC Board will only be as good as the individuals who are its members.
In general, an attempt should be made to recruit the highest level person
within a certain organization or group. Such a person is likely to be
credible and command the respect, if not authority, of all segments of the
community.
FINANCING
Initially, the DAEDC will need to be capitalized. Subsequently, it will
require access to sustaining financing. Start-up financing can come from the
following sources:
Proceeds from the DAEDSC Fund
I 1
Five -Year Economic Development Plan Page III-7
Volume I: Five -Year Plan Updated 08/07/84
Gifts or grants
Fund-raising events
Local government support
Memberships.
Sustaining financing typically is raised from among the following sources:
Membership dues
Service income
Repayment of prior loans
Income from land sales or rental
Governmental grants or appropriations.
PUBLICITY
Publicity is the primary vehicle for generating community support and aware-
ness of the activities of the organization. In some cases, representatives of
the various news media, primarily at the ownership level, will actively sup-
port and become involved formally in the organization. In other cases, members
of the media prefer not to assume a formal role in the organization but will
report activities and news events that relate to economic development.
JC
DUBUQUE, IOWA
Economic Development
Steering Committee
Volume Two
One Year Action Plan
Welton Becket Associates
Peat, Marwick, Mitchell & Co.
FIVE—YEAR PLAN FOR ECONOMIC DEVELOPMENT
IN DUBUQUE, IOWA
VOLUME II: ONE—YEAR ACTION PLAN
August 7, 1984
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
CONTENTS
Updated 08/07/84
Page
INTRODUCTION I- 1
Introduction to this Manual I- 2
SUMMARY OF THE FIVE-YEAR PLAN II- 1
ONE-YEAR ACTION PLAN III- 1
Plan 1 III- 3
Plan 2 III- 4
Plan 3 III- 5
Plan 4 III- 6
Plan 5 III-11
Plan 6 III-12
Plan 7 III-13
Plan 8 III-14
Plan 9 III-15
Plan 10 III-16
SCHEDULE OF ACTIONS IV- 1
PLAN MANAGEMENT V- 1
Five -Year Economic Development Plan Page I-1
Volume II: One -Year Action Plan Updated 08/07/84
I - INTRODUCTION
I
Five -Year Economic Development Plan Page I-2
Volume II: One -Year Action Plan Updated 08/07/84
I - INTRODUCTION
This manual presents the one-year action plan for the five-year economic
development strategy in Dubuque. The manual is the second volume in a
three -volume series of three manuals that documents the economic development
plan. The other two volumes are the Five -Year Plan in Volume I and the
Reference Manual in Volume III.
INTRODUCTION TO THIS MANUAL
This manual is an operations -oriented document that is intended primarily for
the staff of the implementing organization. The manual details the specific
plans and actions to be conducted in the one-year action period. The plans
and actions detailed in this volume are based on the goals, objectives and
strategies for economic development in Dubuque presented in Volume I.
i
1
1
1
Five -Year Economic Develcpment Plan Page II-1
Volume II: One -Year Action Plan
Updated 08/07/84
II - SUMMARY OF FIVE-YEAR PLAN
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
Page II-2
Updated 08/07/84
II - SUMMARY OF FIVE-YEAR PLAN
This section of the manual presents an overview of the five-year plan for
economic development in Dubuque. A complete presentation of the five-year plan
is detailed in Volume I, Section III.
The five year plan recommends the creation of a "Dubuque Area Economic
Development Corporation (DAEDC)." The mission of the DAEDC is as follows:
• Promote the retention, expansion and creation of employment
opportunities
• Serve as a technical and financial resource to the community in
the area of economic development
• Coordinate all public and private economic development planning
activities
• Provide a forum in which all elements of the community can
effectively participate in shaping Dubuque's economic future.
The major goals of the five-year plan are:
Build a broad community concensus regarding the direction of
economic development efforts
Retain existing manufacturing firms and facilitate the
expansion of these firms; assist in the formation of new
manufacturing firms; and attract relocating and/or expanding
manufacturing firms from outside the Dubuque area
Establish the Dubuque area as a recognized tourist destination
within the North Central Region of the United States
Maintain and strengthen Dubuque's position as the center of
retailing within the trade area
Maintain and expand the local health care industry's share of
the regional market
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
Page II-3
Updated 08/07/84
Maintain and support Dubuque's reputation as a center of high -
quality, private, liberal arts education; make the Tri-Colleges
an integral component of the overall economic development plan;
maintain and support the role of the Northeast Iowa Technical
Institute in job training for local businesses
Expand the base of service industry employment; maintain
existing firms and facilitate their expansion
Support improvement of transportation facilities serving the
Dubuque area, including highway, air, railroad and river
systems.
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
III - ONE-YEAR ACTION PLAN
Page III-1
Updated 08/07/84
Five -Year Economic Development Plan Page III-2
Volume II: One -Year Action Plan Updated 08/07/84
III - ONE-YEAR ACTION PLAN
This section presents the plans and activities for the current year, based on
the overall five-year plan. The implementation plan has been designed as a
day-to-day working tool for the staff and board of the economic development
organization. In comparison to the Five -Year Plan, the implementation plan
contains more specificity with respect to plans, actions, responsible parties
and schedules. The implementation plan also serves as the primary tool for
monitoring and evaluating the effectiveness of the economic development
organization.
The implementation plan is a one-year plan. As such, it must be revised and
updated on an annual basis. The framework for updating the implementation plan
is the Five -Year Plan, which contains the overall goals, objectives and
strategies for economic development.
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
Page III-3
Updated 08/07/84
PLAN 1: DISSEMINATE RESULTS OF WELTON BECKET/PEAT MARWICK STUDY
Purpose: Successful implementation of the economic development plan is depen-
dent upon the participation and support of the various interest
groups within the community. Dissemination of the study results is
the first step in building the necessary community consensus to move
forward. It is also important that the results of the study be dis-
tributed on a selected basis on a regional and national level.
Action: .1. Hold press conference announcing results of study.
2. Obtain interviews with representatives of the print., tele-
vision and radio media.
3. Prepare audio-visual materials that highlight major findings
and recommendations contained in study.
4. Prepare study excerpts/summaries for mailing to civic,
business, labor and other organizations.
5. Sponsor series of public forums for presenting results of the
study.
6. Solicit speaking engagements from various community organiza-
tions.
7. Make presentation of study results to Congressional delegation,
state representatives and state agency representatives
(particularly the Iowa Development Commission).
8. Issue press releases and other relevant material to appropriate
national organizations, including the National Council for
Urban Economic Development, the American Planning Association,
the International City Managers Association, the National
Association of Real Estate Executives and the Travel and
Tourism Research Association
Assigned to: DAEDSC
Strategy
Reference:
See Strategy 1 (Volume I, Page II-5).
Five -Year Economic Development Plan
Volume II: One -Year Action Plan
Page III-4
Updated 08/07/84
PLAN 2:
Purpose:
ESTABLISH A DUBUQUE AREA ECONOMIC DEVELOPMENT
CORPORATION TO IMPLEMENT THE FIVE-YEAR PLAN
A newly created organization is required to integrate and focus the
community's economic development activities. In the past, economic
development planning and implementation have been carried out by a
variety of entities from both the public and private sectors. There
has been no comprehensive planning framework to guide the efforts of
those individuals and organizations involved in economic develop-
ment. Finally, there has been no single organizational entity that
has formally involved all major elements of the community.
Action: 1. Recruit candidates to serve on board.
2. Prepare organizational by-laws and incorporate as private,
not -for -profit development corporation.
3. Recruit an executive director, assistant executive director and
a secretary/administrative assistant.
4. Adopt first -year operating budget.
5. Prepare a fund-raising program and raise first -year budget.
6. Obtain necessary office space, supplies and equipment.
Assigned to: DAEDSC
Strategy
Reference:
See Strategy 4 (Volume I, Page II-5).
Five -Year Economic Development Plan Page III-5
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 3: APPOINT A TASK FORCE TO DEVELOP STRATEGIES
FOR JOINT LABOR-MANAGEMENT PARTICIPATION IN
ECONOMIC DEVELOPMENT PLANNING
Purpose: The role of organized labor and the relationship between labor and
management in economic development need to be clarified. Recent
labor-management problems have resulted in the perception (real or
imagined) that Dubuque has a "labor-management problem." This is a
perception that is held by a number of business people surveyed in
this study. Given the realities of the decline of manufacturing
employment in the Midwest, it is important that steps be taken to
improve Dubuque's competitive position. There is a need to estab-
lish a formal forum outside of the context of the bargaining table
where management and labor can identify problems and opportunities
that affect their mutual self -interests.
Action: 1. Recruit leaders from business, academic and labor to become
members of task force.
2. Recruit one
both groups to serve as an unbiased facilitator(s).
or more individuals who are mutually acceptable to
3. Conduct research on innovative joint labor-management forums
involved in economic development in other areas of the country.
4. Prepare a "white paper" documenting results of task force work
and specific recommendations.
5. Convert task force to a permanent standing committee of the
DAEDC.
Assigned to: DAEDC
Strategy
Reference:
See Strategy 11 (Volume I, page II-6).
Five -Year Economic Development Plan Page III-6
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 4: INITIATE A MASTER DEVELOPMENT PLANNING PROCESS FOR A
TOURIST COMPLEX AT ICE HARBOR
Purpose: The Ice Harbor represents the major immediate economic development
opportunity available to the community. This underused resource
offers the greatest potential for creating an intensive focal point
for tourism development. A tourist complex at Ice Harbor would
provide a specific tourist activity center and would also create an
interesting image for the community that would assist other areas of
the economic development effort. Due to the size, location and
importance of this area to the future economic vitality of the City,
a master development plan is required to facilitate and guide the
future development of the Ice Harbor and surrounding area. A master
development plan would provide the necessary framework for critical
public investment. Likewise, the plan would serve as a vehicle to
stimulate private investment.
Action: The DAEDC should undertake the following actions:
1. Adopt and support preliminary development concept prepared
during this study.
2. Explore strategies for identifying potential local investors.
3. Take active role in facilitating planning process, identifying
potential developers and investors, and exploring opportunities
for DAEDC to take an equity position in development.
The City should undertake the following actions:
1. Designate Ice Harbor as a special planning district with
possibility of declaring the area as a redevelopment zone/tax
increment district.
2. Prepare development guidelines and standards for area.
3. Continue to monitor and coordinate with the state on the
planning and construction of new highway extension.
4. Identify any parcels of land that must be acquired for develop-
ment.
5. Prepare financing strategy to fund land acquisition, necessary
site clearance and infrastructure.
6. Solicit proposals for a master developer of the site.
Five -Year Economic Develcpment Plan
Volume II: One -Year Action Plan
Assigned to:
Strategy
Reference:
City of Dubuque, Planning
See Strategy 24 (Volume I
Page III-7
Updated 08/07/84
Department DAEDC
, page II-9) and Appendix A.
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Five -Year Economic Development Plan Page III-11
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 5: INITIATE MANUFACTURING OUTREACH PROGRAM
Purpose: Manufacturing is and will continue to be for the foreseeable future
the base of the Dubuque economy. The manufacturing sector of the
economy continues to undergo significant, long-term changes due to
competition, technology innovation and other factors. The Dubuque
area and the Midwest have significant competitive disadvantages for
most manufacturing in relation to other regions of the country. As
a result of these factors, it is critical that Dubuque focus its
attention on the problems and needs of its existing base of manufac-
turing firms. In order to do this, a system needs to be in place
whereby information can be exchanged on a timely basis among indus-
try, government and the DAEDC. This will help to insure that
existing firms will remain and grow in Dubuque.
Action: 1. Establish ad hoc manufacturing task force composed of a
representative cross-section of manufacturing firms.
2. Work with task force to identify major areas of concern for
manufacturers.
3. Develop a "contact management program" that will enable DAEDC
to meet with manufacturers on a regular basis.
4. Establish an "early warning program" whereby manufacturing
firms notify DAEDC of plans to relocate outside of Dubuque or
go out of business.
5. Develop program
local firms.
Assigned to: DAEDC
Strategy
Reference:
to publicize contributions and achievements of
See Strategy 4 (Volume I, Page II-5).
Five -Year Economic Development Plan Page III-12
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 6:
Purpose:
ENCOURAGE ACTIVITIES OF CONVENTION AND VISITORS BUREAU
IN ORGANIZING THE COMMUNITY FOR TOURISM PROMOTION
Tourism represents the industry with the greatest short-term growth
potential for Dubuque. Based on the survey of businesses conducted
during this study, this potential is also perceived by many in the
community. The Convention and Visitors Bureau has been active in
organizing the various local organizations that conduct tourism,
marketing and related activities. Coordinating these resources is
critical in heightening Dubuque's tourism potential.
Action: 1. Prepare comprehensive tourism development plan addressing such
areas as the inventory of tourism resources, physical develop-
ment opportunities, events programming, marketing theme and
image, marketing and promotion strategy and hospitality train-
ing.
2. Develop internal marketing program to raise community awareness
of the role and importance of tourism in economic development.
Assigned to: Dubuque Convention and Visitors Bureau
Strategy
Reference:
See Strategy 17 (Volume I, Page II-8).
Five -Year Economic Development Plan Page III-13
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 7:
Purpose:
SUPPORT AND COORDINATE WITH THE SMALL BUSINESS
DEVELOPMENT CENTER
The concept of the Small Business Development Center recognizes the
role and importance of small businesses in the local economy.
National studies have shown that the majority of existing and future
business formations are among firms that employ less than 100
persons. This is the case in Dubuque where the great majority of
existing firms can be classified as small businesses. The tourism
industry, including retail and service -oriented firms, is dominated
by small businesses.
Small businesses are often on the "cutting edge" of market and
technological innovations. At the same time, small businesses
experience the highest rate of failure. Failure is due to such
causes as lack of business experience and expertise, inadequate
capitalization and major economic downturns.
Working in conjunction with the Small Business Development Center,
the DAEDC should take steps to foster an environment that nurtures
and supports existing small businesses and fosters the formation of
new firms.
Action: 1. Establish formal relationship with the Small Business Develop-
ment Center and provide financial and staff support for its
operations.
2. Actively recruit prospects (primarily from the Dubuque area)
who are interested in starting their own business.
3. Investigate feasibility of establishing a local venture capital
firm that would be a subsidiary of or affiliated with the DAEDC.
4. Establish formal relationship and coordinate with the SBA 503
Certified Development Corporation.
Assigned to: DAEDC Small Business Development Center
Strategy
Reference:
See Strategy 7 (Volume I, Page II-6).
Five -Year Economic Development Plan Page III-14
Volume II: One -Year Action Plan
Updated 08/07/84
PLAN 8: CONDUCT SURVEY OF POPULATION TO DETERMINE
CHARACTERISTICS OF THE LABOR FORCE IN
RELATION TO SERVICE INDUSTRY REQUIREMENTS
Purpose: Service industries is the fastest growing sector of the national
economy. Local service firms, such as CyCare, large financial
services companies, insurance, telecommunications and computer
services firms, have significant flexibility in their location
decisions in comparison to large manufacturing firms. These types
of firms employ many clerical and administrative personnel. As a
result, such firms must have access to a labor force with these
types of skills.
An important marketing tool for communities trying to attract major
service firms is a thorough analysis of the local labor force. A
survey of the Dubuque area labor force is needed to establish the
current characteristics of the labor force in terms of age, sex, job
experience and skills. This information can then be used in conjunc-
tion with an overall strategy to attract service firms.
Action: 1. Conduct a targeted informal survey among major local and
regional service firms to determine the labor force profile
such firms seek.
2. Develop and conduct a mail survey with the assistance of local
colleges and NITI.
3. Review results of survey with local colleges and NITI to deter-
mine appropriate educational/vocational strategies to pursue.
4. Prepare materials suitable for distribution to service firms
that highlight relevant labor force characteristics and the
availability of training/vocational resources.
Assigned to: DAEDC, local colleges, NITI
Strategy
Reference:
See Strategy 39 (Volume I, Page II-18).
Five -Year Economic Develcpment Plan Page III-15
Volume II: One -Year Action Plan Updated 08/07/84
PLAN 9: CONDUCT ANNUAL SURVEY OF DUBUQUE AREA BUSINESSES AND
INSTITUTIONS
Purpose: An annual survey would serve two major purposes. First, it would
provide important quantitative and qualitative information on the
"state of the local economy." Secondly, a survey is an effective
means for establishing and maintaining visibility in the community.
Action: 1. Review survey questionnaire used in this study and revise where
necessary or appropriate.
2. Conduct survey during the first quarter of the year following
the year to be reviewed.
3. Mount annual publicity campaign through the media and the
Chamber of Commerce to encourage high rate of response.
4. Summarize results of survey and distribute to media.
5. Incorporate quantitative information into computerized data
base which can be used to monitor trends and to evaluate
effectiveness of the economic development strategy.
Assigned to:
Strategy
Reference:
DAEDC
See Strategy 4 (Volume I, Page II-5).
[ I
Five -Year Economic Develcpment Plan Page III-16
Volume II: One -Year Action Plan
Updated 08/07/84
PLAN 10: CONDUCT ANNUAL SURVEY OF RETAIL ESTABLISHMENTS AND
RETAIL SHOPPING CHARACTERISTICS
Purpose: This annual survey, like the other surveys recommended in this plan,
will provide useful information on the major aspects of retail trade
in the area. Such a survey was conducted by the Chamber of Commerce
in 1983. However, if the resulting survey data is going to remain
useful on a continuing basis (rather than providing a "snapshot in
time"), it needs to be conducted on a regular basis. In this way
changing patterns and emerging trends can be identified. Economic
develcpment strategies can then be formulated in response, to these
changing conditions.
Action: 1. Review and modify where necessary or appropriate the 1983
survey instrument.
2. Work with representatives of the Retail Committee of the
Chamber of Commerce to solicit support.
3. Identify locations and times (i.e.,day/night, weekdays/weekend,
holidays) to conduct surveys.
4. Incorporate results into data base and use as a resource in
ongoing planning efforts.
Assigned to: DAEDC Chamber of Commerce, Retail Committee,
Strategy
Reference:
See Strategy 25 (Volume I, Page II-15).
Five -Year Economic Development Plan Page IV-1
Volume II: One -Year Action Plan Updated 08/07/84
IV - SCHEDULE OF ACTIONS
Five -Year Economic Development Plan Page IV-2
Volume II: One -Year Action Plan Updated 08/07/84
Action
number
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
Exhibit IV-1
"SAMPLE" PLAN IMPLEMENTATION SCHEDULE
BY TARGET COMPLETION DATE
Description
Action Target date Actual date
assigned to of completion of completion