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Comprehensive Plan Phase I - March 1994 Phase II - October 1995THE CITY OF Dui COMPREHENSIVE PLAN Phase 1 March 1994 Phase II October 1995 REVIEW SHEET Comprehensive Plan Elements: Obiectives for Broad Goals Goals are shown in bold type, and are adopted. The objectives are numbered under the goals. Numbers are not rankings. At the end of each objective, the first set of parenthesis indicates the source of the objective [e.g. (LB) indicates the Library Board). Most objectives were provided by City departments, boards or commissions, or key stakeholders in the community. Objectives without a source indicated were the result of group discussion, and are not attributable to a single source. The second set of parenthesis indicates to which other Element goals that objective also relates [e.g. (LU) indicates the Land Use Element]. Element Abbreviations (LU) Land Use and Urban Design (TRN) Transportation (IN) Infrastructure (EQ) Environmental Quality (REC) Recreation (CF) City Fiscal (ED) Economic Development (HOUS) Housing (HS) Human Services (EDU) Education (CA) Cultural Arts (HLTH) Health (PUB) Public Safety (DIV) Diversity Board/Commission Abbreviations (ESC) Environmental Stewardship Commission (LRPC) Long Range Planning Commission (HRC) Human Rights Commission (PARK) Park and Recreation Commission (CD) Community Development Commission (HPC) Historic Preservation Commission Department Abbreviations (OM) Operations and Maintenance (LS) Leisure Services (HE) Health (PD) Police Department (ENG) Engineering (BUS) Transit (CTV) Cable TV (WD) Water Department (AIR) Airport (HSIY): Housing Services Department P a /Group Abbreviations (RP) Riverfront Plan (CP) Compretensive Plan (LP) Library Plan of Service (APy Airport Master Plan (PC) Public Comments (CS) Catholic School System (EDS) East Dubuque School System (NA) Human Services Needs Assessment (MHC) Mercy Health Center (HD) Healthy Dubuque 2000 (NARFE) Nat'l Assn Rtd Fed Employees (LB) (TB) (ZC) (HC) (AC) (CC) Library Board Transit Board Zoning Commission Housing Commission Airport Commission Civic Commission (IS) Information Services (WPC) Water Pollution Control (PS) Parking System (EM) Emergency Management (COM) Communications (ED) Economic Development (AS) Administrative Services (FD) Fire Department (LIB) Library Department (BS) Building Safety (DAA) Dubuque Arts Alliance (DAC) Dubuque Arts Council (DMATS) DMATS Long Range Trans Plan (DCHS) Dbq Co Historic Society (V2) Vision 2000 (NICC) NICC Strategic Plan (DCSD) Dbq Comm School District (CC) Cable TV Reg. Commission. (HCC) Health C.A.R.E. Coalition (HTF) Health Insurance Task Force R 711.40977739 DUB DESK Dubuque comprehensive plan Planning Services Division 50 West 13th Street Dubuque, lot•.a 32001-4845 (319) 589-4210 September 26, 1995 The Honorable Mayor and City Council City of Dubuque City Hall - 50 W. l3th St. Dubuque, IA 52001 RE: Adoption of Comprehensive Plan -- Phase II Dear Mayor and City Council Members: This letter transmits a resolution for adoption of the Comprehensive Plan, and the revisions to the Plan, as discussed at your previous work sessions with the Long Range Planning Commission. Please insert this resolution and these revisions into your three-ring binder containing the Comprehensive Plan, in preparation for your upcoming public hearing on October 16, 1995. Phase I of the Comprehensive Plan was adopted by the City Council in March, 1994. Phase I included the Executive Summary, Socio-demographic Profile, and Policy Statements, Goals and Inventory Analysis of Existing Conditions/Facts and Critical Issues/Trends for the Plan's 14 elements contained in the binder. Phase II of the Comprehensive Plan includes the following components submitted for adoption by the City Council: • Shared Vision Statement and Index. • Revisions to the introduction to the Comprehensive Plan elements, entitled: "Policy Statement, Goals, Objectives and Inventory Analysis..." • Revisions to the Policy Statements and Goals adopted during Phase I. New language is underlined, with language to be deleted shown in brackets. • Objectives for each of the goals. • Five Systems Maps. The Commission recommends that the City Council adopt Phase II of the Comprehensive Plan. Respectfully submitted, Anna O'Shea, Chairperson Long Range Planning Commission Enclosures Service People Integrity Responsibility Innovation Teamwork RESOLUTION NO. -95 A RESOLUTION ADOPTING PHASE II OF THE COMPREHENSIVE PLAN OF THE CITY OF DUBUQUE, IOWA. Whereas, there has been filed with the City Clerk Phase II of the Comprehensive Plan of the City of Dubuque, Iowa; and Whereas, said plan has been examined by the Long Range Planning Commission and had its approval endorsed thereon; and Whereas, said plan has been examined by the City Council and they find it is compatible with City goals and ordinances; and Whereas, the City Council concurs in the conditions of approval as established by the Long Range Planning Commission and by the Section 36-1 of the Code of Ordinances of the City of Dubuque, Iowa. NOW THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: That Phase II of the Comprehensive Plan is hereby accepted and approved, and the Mayor and City Clerk are hereby authorized and directed to endorse the approval of the City of Dubuque, Iowa, upon said Phase II of the Comprehensive Plan. Passed, approved and adopted this day of , 1995. Terrance M. Duggan, Mayor Attest: Mary A. Davis, City Clerk PL\COUNCIL\res.phs MINUTES CITY COUNCIL AND LONG RANGE PLANNING COMMISSION WORK SESSION SEPTEMBER 25, 1995 7:00 P.M. Auditorium, Carnegie Stout Library 360 W. llth Street, Dubuque, Iowa PRESENT: Mayor Terry Duggan; City Council Members Loras Kluesner, Katie Krieg, Bob Nagle, Dan Nicholson, Joe Robbins, and Dirk Voetberg; Chairperson Anna O'Shea; Commissioners Rick Stein, Mary Lynn Neumeister, Dave Rusk, Mary Agria, Greg Malm, Ferd Nesler; City Manager Michael Van Milligen; Staff Members Laura Carstens and Guy Hemenway. ABSENT: Commissioner Gordon Mills. CALL TO ORDER: The meeting was called to order at 7:02 p.m. CERTIFICATION OF COMPLIANCE: Staff presented an Affidavit of Compliance verifying that the meeting was being held in compliance with the Iowa Open Meetings Law. REVIEW OF DRAFT COMPREHENSIVE PLAN -- PHASE II: Chairperson Anna O'Shea reviewed the results of September 11, 1995, Comprehensive Plan work session. Consensus of City Council was to retain the changes made at the September 11 work session as submitted. Council consensus was determined by lack of dissention. Commissioner Neumeister reviewed the Land Use and Urban Design element. Council consensus was to change the work "ensure" to "encourage" in goal #5, to change the word "ensuring" to "promoting" in goal #7, and to accept the other recommendations of the Commission. Commissioner Malm reviewed the Transportation element. He noted the Commission's recommended changes to the adopted policy statement and to goal #6. Council consensus was to substitute "work toward meeting" for "meet" in objective #4.1, and "work toward providing" for "provide" in objective #4.4. Council consensus was to reword objective #6.3 to read: "Encourage the development and maintenance of riverfront facilities," to add "as available" at the end of objective #7.3, and to accept the other recommendations of the Commission. Commissioner Stein reviewed the Infrastructure element. Council consensus was to delete the word "a" in goal #2, and to reword goal #5 to read: "To provide for, maintain and improve safe, accessible public sidewalks and steps throughout the community, where possible." Consensus was to reword objective #7.3 to read: "Encourage the development and maintenance of riverfront facilities." Consensus was to reword objective #8.1 to read: "Promote compatibility and connection of Dubuque's communication infrastructure to key state, regional, national and global networks and systems", to substitute "Promote" for "Assure" in objective #8.2 and for "Support" in objective #8.6. Consensus was to reword objective #8.5 to read: "Promote reasonable transmission capacity on new communication systems that is dedicated to non-commercial government, education and public interest uses." Council by consensus accepted the other recommendations for this element. Minutes - Long Range Planning Commission Monday, September 25, 1995 Page 2 Commissioner Neumeister reviewed the Economic Development element. Consensus was to reword goal #6 to read: "To work toward identifying the economic needs of the chronically unemployed and underemployed in Dubuque, and encourage programming - including education and retraining - to meet those needs." Consensus was to substitute "Promote" for "Ensure" in objective #6.4, and to substitute "promote the provision of" for "ensure" in goal #10. Consensus was to add the words "and as possible" after the words "as necessary" in objectives #8.4 and 10.4, and to accept the other recommendations for this element. Carstens reviewed the five systems maps: Potential Growth Areas, Existing Land Use, Future Land Use, Transportation Systems and Utility Systems. Carstens and Commissioners reviewed the process of public comment sessions and focus group meetings held over the past two years to develop the community consensus shown on the proposed maps. Carstens reviewed a handout comparing projections for a twenty-year development reserve with planning results for the future land use map. She noted that several routes were shown for the Southwest Arterial to help citizens provide their input. Council members, Commissioners and Carstens discussed what impacts these maps, especially the future land use map, have on facilitating development and City Council's decision -making. Council members made no changes to the five maps. In response to Chairperson O'Shea's questions, City Council consensus was to hold the public hearing on adoption of Phase II of the Comprehensive Plan at the Council's regular meeting on October 16. Chairperson O'Shea reviewed the Commission's recommendations for format and distribution of the Comprehensive Plan, after its adoption by City Council. ADJOURNMENT: The meeting was adjourned at 8:52 p.m. Respectfully submitted, Laura Carstens, Planning Services Manager Adopted THE CITY OF DUBJJE COMPREHENSIVE PLAN Phase 1 March 1994 Phase II October 1995 ACKNOWLEDGEMENTS CITY COUNCIL James Brady, Mayor Terrance Duggan, Mayor Loras Kluesner Kathryn Krieg Robert Nagle Daniel Nicholson Joseph Robbins Dirk Voetberg CITY MANAGER'S OFFICE W. Kenneth Gearhart, City Manager Michael C. Van Milligen, City Manager Stephani Johnson, Assistant City Manager Nancy Guider, Assistant City Manager LONG RANGE PLANNING COMMISSION David Wm. Rusk, Chairperson Gail Chavenelle Carla Crahan Vern Haberkorn James A. Miller Gordon Mills Jeffrey Mozena Anna O'Shea Dirk Voetberg Harold McCormick Richard Stein Gregory Maim Ferd Nesler Mary Lynn Neumeister COMPREHENSIVE PLAN DEVELOPMENT STAFF Laura Carstens, Planning Services Manager Pamela Myhre-Gonyier, Associate Planner Aggie Kramer, Assistant Planner Guy Hemenway, Planning Technician Kay Birkenholz, Planning Secretary Tracy Willenborg, Planning Intern Terry Dietzel, Planning Intern Christopher Helle, Planning Intern Tammy Tucker, Desktop Publishing Specialist With special thanks to: City of Dubuque Management Team Community leaders and the Citizens of Dubuque, Iowa COMPREHENSIVE PLAN Executive Summary (Phase I) Introduction Purpose Definition Legal Basis Past Planning Efforts Organization of the Plan Public Input Socio-Demographic Profile (Phase I) Shared Vision Statement and Index (Phase II) Statement of Policies, Goals (Phase I) and Objectives (Phase II) and Inventory Analysis of Existing Facts/Conditions and Critical Issues/Trends (Phase I) • Physical Environment Land Use and Urban Design Transportation Infrastructure Environmental Quality • Economic Environment City Fiscal Economic Development • Social Environment Health Housing Human Services Education Cultural Arts Recreation Public Safety Diversity Systems Maps (Phase II) Potential Growth Areas Existing Land Use 1990 Future Land Use Transportation Systems Utilities Systems Implementation (Phase III) Leadership Community Attitudes Citizen Participation Action Strategy Legislative Administrative Private Actions EXECUTIVE SUMMARY INTRODUCTION The Comprehensive Plan is an official public document adopted by the City Council. The plan is a general, dynamic guide that establishes long-range goals for unified and coordinated growth and development of the community. The plan is comprehensive because the elements address the full range of community issues which can be influenced by the City Council, the community's governing bodies, the private and nonprofit sectors, and the citizens of Dubuque themselves. The plan is general because the recommendations are broad in scope. The plan is long-range because Dubuque can expect to be ready for the future only if long term policies, goals and objectives are established. The plan is dynamic because it can incorporate amendments to adapt to changing needs, new opportunities and challenges that the future may bring. PURPOSE Planning is a means of identifying and linking what a community desires with what may actually happen. If a community plans adequately for its future, it will be prepared for expected change and better able to prevent or mitigate undesired change. Growth and development based on a community consensus of goals and objectives and the implementation of policies to achieve the community's goals are the purposes of planning. Comprehensive planning is a long-term, continuous process that defines a future vision for the community, provides a framework for development and policy decisions into the 21st century and provides input for a Comprehensive Plan for the physical, economic and social development of Dubuque. DEFINITION The Comprehensive Plan is the community's principal tool to guide its future development, public policies and decision making. The Comprehensive Plan is intended only as a guide, and is not to be interpreted or construed to give rise to any enforceable rights or remedies. Such a community plan must: • be value driven; • be a product of and periodically tested and updated by a community visioning process; • involve all aspects of the community --physical, environmental, social, cultural, economic, emotional and spiritual; • be long-range in focus, from ten (10) to fifteen (15) years; • include the entire community geographically, not just a few sections; • be highly participatory; • be communicated clearly to the citizenry; • be action -oriented; and • be approved by City Council resolution. LEGAL BASIS The Code of Iowa states that a Zoning Ordinance shall be made in accordance with a Comprehensive Plan (Chapter 414, Municipal Zoning). While the State law does not explain clearly what a Comprehensive Plan is, the City Code (Chapter 36) defines the Comprehensive Plan for Dubuque and makes the Long Range Planning Commission, an advisory body appointed by the City Council, responsible for coordination and supervision of the preparation and maintenance of the Comprehensive Plan. PAST PLANNING EFFORTS The City's first and only adopted Comprehensive Plan was prepared by the City Planning and Zoning Commission and John Nolen, consultant, from 1929 to 1936. A 1965 update, the Dubuque Development Program, prepared by Victor Gruen, consultant, was not adopted. Since 1965, there have been periodic updates of elements of the plan, such as the Zoning Ordinance, Transportation Plan, Downtown Urban Renewal Plan, Park and Recreation Plan, and beginning in Fiscal Year 1980, a five-year Capital Improvement Program updated annually. ORGANIZATION OF THE PLAN The Comprehensive Plan is organized into the following sections: Shared Vision Statement. The Vision 2000 document summarizes the shared vision which is a product of the community visioning process. Community Profile. This section is a "snapshot" of Dubuque, comparing local conditions to the state and the nation over the last twenty (20) years. Statement of Policies, Goals and Objectives. This section explains the direction, ideals and desires which the Comprehensive Plan is intended to satisfy. This section serves as justification for many of the planning and budget decisions, ordinances and regulations that follow. Inventory Analysis. This section includes a complete description of the current conditions in the community and represents a shared data base for use in developing the various elements of the Comprehensive Plan. It includes population characteristics and projections; income information; housing information; economic activity (retail, services and industry); employment characteristics and needs; natural environment; transportation information; survey of existing land use; utility systems; community facilities; history and culture of the residents, and similar data. This inventory analysis identifies community trends, projects such trends into the future and assesses the probable impact. This analysis identifies and references all appropriate studies and analyses done by city, county, state and federal agencies. The inventory analysis is composed of fourteen (14) elements that reflect major sectors of the community's physical, economic and social environment. Each of these fourteen elements represents a culmination of a cooperative effort, pulling together the knowledge and experience of diverse citizens and staff. For each element, existing conditions/facts and critical issues/trends have been compiled to help shape the priorities and future development pattern of the community. The elements of the Comprehensive Plan which comprise the physical environment are: land use and urban design, transportation, infrastructure and environmental quality. Elements defining the economic environment are: City fiscal and economic development. The social environment includes: health, housing, human services, education, cultural arts, recreation, public safety and diversity. In addition, the inventory analysis includes a series of maps: urban growth areas, existing land use, future land use, transportation systems and utility systems. The entire Comprehensive Plan, not just its land use element and maps, becomes the guide for the official zoning map and for making zoning and subdivision decisions, but only such decisions by the City Council may be binding and enforceable. It is the guide in regard to the best utilization of private and public development, the timing of that development and its association with other public improvements. The future needs of the City's physical infrastructure for the transportation and utilities systems must be compatible and consistent with each other and with the land use plan. Implementation. This section includes a discussion of certain issues identified by the Vision 2000 community visioning process. This section details the necessary and agreed upon action steps, responsibility, schedule and cost to implement the goals, objectives and recommendations of the Comprehensive Plan. The community visioning process should serve to assist the City Council, City administration, community leaders and the citizens of Dubuque in prioritizing implementation of policies, goals and objectives. PUBLIC INPUT The current comprehensive planning process began in 1990 with the formation of the City's Long Range Planning Commission. The first steps were to begin data collection of existing conditions/facts and to identify critical issues/trends from data collection and analysis, studies, plans, surveys and interviews of key informants and stakeholders in City departments and the community. Both the existing conditions/facts and the critical issues/trends sections generally were statements and data provided by interested parties and were not always part of an analytical study. Critical issues/trends represent what these public and private stakeholders considered to be of importance in their sector of the community, based on their statistics, knowledge and experience. Studies were conducted for some elements. The land use and urban design element relied on a 1990 windshield survey of existing land use and exterior structural conditions for the approximately 30,000 parcels in the city, and a 1993 development needs study. The housing element incorporated research from the 1990 Census, a 1991 housing needs study, 1990 and 1992 affordable housing studies, and the development needs study. The human services element was based on a 1992 needs assessment conducted by the Tri-College Social Work Program for the Dubuque area that involved analysis of a key informant study, social indicators and an agency survey. Other elements incorporated the results of strategic planning efforts, such as the Carnegie -Stout Public Library's Plan of Service 1993-1997, the Dubuque Community School District's Strategic Planning Actions for 1991-1996, the 1992 State Plan for Educational Excellence, as well as the City's budget and capital improvement program. Concurrently, the Vision 2000 community visioning process was conducted from 1991 to 1992. The year -long visioning process involved community meetings, a citizen input questionaire, reactor group sessions, and a community validation and assessment survey. Eight (8) dimensions emerged from the Vision 2000 process in 1992. Critical issues/trends, policies, goals and objectives emerged for the fourteen elements of the Comprehensive Plan through linkage with these eight Vision 2000 dimensions and input from various key groups, agencies, and individuals in the community through public meetings, programs on the City's government access channel on cable television, and focus group presentations. In addition, information on the Comprehensive Plan was made available at the Carnegie -Stout Public Library. Public comment sessions were held during the course of the comprehensive planning process to assess the policies, goals, objectives, future issues and physical plans (land use, transportation and utilities systems) being drafted by the Commission. Public review continued during the public hearing and adoption procedures. For more information, contact the City of Dubuque, Planning Services Division, City Hall, 50 West l3th Street, Dubuque, Iowa 52001, telephone (319) 589-4210. CITY OF DUBUQUE, IOWA Socio-Demographic Profile U.S. Census Data served as the primary source for the following information. Other data was gathered from sources including Job Service of Iowa, Dubuque Main Street LTD., City of Dubuque Planning Services Department, the Dubuque Area Labor Survey and City of Dubuque Housing Services. 1960 1970 1980 1990 • We have both gained and lost population between 1960 and 1990. • We have formed more, but smaller, households. The total number of households has increased from 21,130 to 21,437 between 1980 and 1990 while the average household size has decreased from 2.77 to 2.52 persons over the same period. • Our citizenry is only slightly more diverse in our racial and ethnic makeup; however, our minority population is only 1.6% of our total population. • We have grown older overall; fewer young people (under 18) and more elderly (over 65) are remaining in Dubuque. Median Age 34 Population Total number % of Population Under the Age of 18 0• O .o 0 .o .o 03 0 0 56,606 62,309 62,321 57,546 — 30 — 20 It — 10 — o .c .c .o .o D` V 03 .0 0 0 0 0 1 % of Population Over the Age of 65 20 - 15- 10- 10.1 11.2 16.0 .a •o .o .o Cr. V CO sO 0 0 0 0 S 1960 1970 1980 1990 • Our high school graduation rate has increased. • Our percentage of college educated residents has increased. % High School Graduates (25 years old and older) I I I I 10 20 30 40 50 60 70 80 Percentage of graduates % with Bachelor's Degree 1960 1970 1980 17.4 1990 19.4 I I I 0 10 20 Percentage • Since 1970, more Dubuque families have slipped below the poverty level. These families are generally female -headed households with young children. % of Poverty Level Families that are Female Headed Families •0 0' '.0 0 '.0 CO 0 •0 ,0 0 % of Female Headed Families with Related Children under the Age of 5 with Incomes Below the Poverty Level 80 -- 60 — 40- 20 — 0 N/A • '.0 0'. 0 75.2 0 54.1:' 1 43.6 •o •o •o 03 0 0 0 • Our overall poverty statistics are better than both Iowa and the U.S. • When compared with Iowa and the U.S. in 1990, Dubuque has a slightly greater average income that the state but Tess than the U.S. % of all Persons with 1989 Income Below the Poverty Level Dubuque Iowa U.SA 0 5 10 Percentage 10.9 11.5 13.1 I 15 Median Household Income 2 a c 0 F, c i, • Atthough we have fewer manufacturing jobs in 1990, we have more professional, retail and service jobs. — 30 — 20` i N R. — 10 0 n a i LABOR FORCE COMPOSITION Wholesale/ Manufacturing Professional Retail Trade Service 1960 33.9 19.0 21.7 11.2 1970 34.3 22.7 20.6 9.7 1980 29.5 27.1 20.9 10.6 1990 21.6 29.7 24.1 13.0 7 • Currently, Dubuque has approximately 100 manufacturing plants that employ almost 14,000 workers. Ten of these companies employ 200 or more workers each. • Dubuque County unemployment rate has generally declined from a high of 10.8 % in 1982 to 2.9% as of October, 1993. • Almost half of Dubuquet modem labor force is female, which is greater than both Iowa and U.S. numbers. % of Labor Force that is Female o, 0 0 .13 o, 0 0 • Although we have lost population, we have more housing units with fewer people living in each unit. • More single-family houses have been built in the first four years of the 1990's than in the entire decade of the 1980t. • In 1970, 33.7% of housing units were configured in structures with 2 units or more. By 1990, only 31.6% of units were located in multi- family structures. • The percentage of multi -family structure building permits has increased from 3.3% of all residential structures 1980 - 1989, to 10.8% of all residential structures 1990 - 1992. Total Housing Units Percentage of Units in Structure 2-4 units 20 — o t t 10 0 43 .O .O sO o' - W .O 0 0 0 0 oo rn N O 0 ON O% Is 5+ units 20 — 10 — 0 r°7:° .' 0 n Q` oh rn O 0% 0% • Since 1970, residents are less likely to own their own homes. • Although our housing values are less than national or regional values, housing values in Dubuque are greater than elsewhere in Iowa. • When compared with Iowa and the U.S., much of Dubuquet housing stock is older. • The City of Dubuquet Housing Services has administered a loan program that is responsible for rehabilitation of 70 to 80 housing units a year (both owner -occupied and rental) since 1978. Approximately 150 of these housing units were in vacant and abandoned buildings. Median Value of Owner -Occupied Housing Unit in 1989 Dollars 100 - 80 — v a o �o g 60 — O 0 40-- 2 20 — 0 a N 1I O O O O 0 5 C C a- in i1 .a K rD a rD I1 % of Housing Units - Owner Occupied 1960 1970 1980 1990 63.5 69.0 67.0 66.1 I I I I I I 10 20 30 40 50 60 70 Percentage % of Housing Built Pre-1940 50 - 40 - t 30 - 20 - 10 - 0 40.7 •.• 35.0 1 8.4 0 c g rD 0 ti C in 9 • Over 110 acres of land were developed for commercial, office and industrial use in 1991 and 1992, surpassing approximately 80 acres of similar development which occurred over the six -year period from 1985 through 1990. • In 1985, six multi -story office/commercial buildings in Dubuque downtown had a 45% occupancy rate. By 1993, the same buildings had a 77% occupancy rate. The current occupancy rate for first floor buildings in the downtown area is 95%. /a Bio. 172 Group project progress report. You may either turn in a written progress report addressing the questions below and signed by all of the group members, or arrange a meeting with me and all of the members of the group sometime during the week of March 30. 1. What is the question or set of questions that the group is working on? 2. What kind of information have you gathered and how do you plan to present this information? Have you run into any problems that need to be addressed? 6 SHARED VISION STATEMENT and INDEX to the ELEMENTS and GOALS of the COMPREHENSIVE PLAN The Shared Vision Statement consists of the eight dimensions of Vision 2000. This document is a product of the tri-state community planning process conducted from 1991 to 1992, and this document is intended to capture and record a consensus vision for the future of the community. The vision was crafted through a year -long process of community meetings, a citizen input questionnaire, a reactor group session, and a community validation and assessment survey. Over five thousand area citizens actively participated in some or all parts of the process. Vision 2000 has eight dimensions: Economic Development, Education, Transportation, Environment, Cultural and Recreational Opportunity, Leadership, Community Attitudes and Racial/Ethnic Diversity. An Index cross-references the Shared Vision Statement with the elements and goals of the Comprehensive Plan through a two-part correlation. First, the Index correlates the individual vision statements of the eight dimensions of Vision 2000 with the fourteen elements of the Comprehensive Plan. Nearly all vision statements align with one or more of the Plan's elements. The Index also correlates the eight dimensions of Vision 2000 with the goals adopted for the fourteen elements of the Comprehensive Plan. Three letter acronyms have been assigned to each of the eight dimensions of Vision 2000, and are printed at the end of each of its goals. Not all goals in the Comprehensive Plan could be cross-referenced, because the Plan's fourteen elements cover a different scope of community issues than do the eight dimensions of Vision 2000. Vision 2000 is widely recognized to be a consensus of community sentiment toward the future as evidenced in the highly inclusive process that created it. The Comprehensive Plan is consequently further strengthened by this demonstration of its consistency with Vision 2000. The Shared Vision Statement, as part of the community planning process for the Comprehensive Plan, should serve to assist the City Council, City administration and community leaders in realizing the goals and objectives of both Vision 2000 and the Comprehensive Plan. DUBUQUE AND THE SURROUNDING AREAS ILLINOIS ♦ IOWA ♦ WISCONSIN \\ n {AID\\1.1 RL i1: :HAIR .,E \ I. I'TR>TIVE V OD' BERTSCH BI: DOE ,I BURKE RR, E.LEER ICH EWER. >.,E„E R 1. C1,ikR February 1992 Dear Friend, This document is intended to capture and record a consensus vision for the future of our community. The vision has been crafted through a year -long process of community meetings, a reactor group session, a citizen input questionnaire, and a community validation and assessment survey. Outlined are eight dimensions of our vision for the future of the Tri-State Community. The process was sponsored and implemented by the Tri-State Community 2000 Steering Committee and was designed to be as inclusive as possible. The committee itself is very broad based and, as facilitator of the process, has expended significant effort in ensuring that all members of our community have had an opportunity to participate in one or more entry points in the process. What is a vision? In this context a vision is a target, an idealized description of the future of our community. It is a target toward which long-range plans can be formulated. It is neither so specific as to be confused with a plan, nor so general as to be of little value. It is a portrait of a desired future. The vision speaks of values and ideals. It offers not solutions to current and future problems and challenges, but rather a framework through which they can be addressed. The vision will serve as a guide for future decision making for all who embrace it. The success of the visioning process must be measured in a least two ways. First, it is already apparent that success has been achieved in terms of openness to citizen participation. A second success criterion is more difficult and has yet to be measured —the degree to which our community and its institutions sustain the vision and implement plans toward its reality. Since the vision is neither a starting point nor an ending point, but truly dynamic, it will be necessary to maintain an ongoing process of revisiting the vision and checkpointing our progress toward it. The Tri-State Community 2000 Steering Committee seeks to communicate and promote this vision of our future. The committee asks that all who are in receipt of this document honor its intent in all that they say and do with regard to the future of our community. Whether creating a strategic plan for a business or organization, or simply being thoughtful as to personal or family circumstances, we all have a role in helping the vision become our future. Many individuals and organizations have supported the community visioning process in one way or another. On behalf of the entire community, the Tri-State Community 2000 Steering Committee wishes to thank all who have supported or participated in the process in any fashion. Special thanks to the City Council and staff of Dubuque for seed monies and civic sponsorship of the process, and also to the many dedicated individuals who have invested their personal time and talents in this effort. Tri-State Community 2000 Steering Committee ECONO M IC ■ ■ ■ ■ ■ • DEVELOPMENT We envision our community as a regional economic center providing opportunities for economic development that include: • A diverse and balanced economic base that provides job security for all segments of the community. This economic base will be secured through the support, retention, and recruitment of retail, manufacturing, hi -tech, services, year- round tourism, and recycling businesses and industries. Stable, orderly, diversified economic growth balanced with our quality of life and in coordination with regional, state, and national efforts. Industries and businesses that promote labor/management cooperation and provide full-time jobs with good wages, health benefits, and opportunities for future advancement. Development and promotion of our community as a regional center for manufacturing, transportation, education, health/medical services, telecommunications, shopping, and tourism. Employment programs that promote partnerships among businesses, social services, and education institutions to train/educate the workforce. Development and enhancement of the riverfront for recreation and tourism. Development of adequate, affordable housing for all citizens. E D U C A T I 0 N We envision our community as an educational center that includes: • Promotion of parental educational system. • Increased cooperation and partnership among community institutions. businesses, social services, and the educational systems. • Promotion of personal health education and effective parenting education for every individual. • Quality global, multi -cultural, non-sexist education at all levels. • Development of, promotion of, and access to all levels of education for all persons. • Integration, coordination, and pooling of re- sources among private and public educational institutions at all levels. and other citizen ownership and participation in the TRANSPORTATION ■ ■ ■ • We envision our community as a transportation center providing comprehensive, efficient, safe transportation systems that include: • Improved 4-lane access for surface transporta- tion from Dubuque to major cities, including Chicago, Madison, Cedar Rapids, and the Quad -Cities. • Quality passenger rail and air service to major cities, including Chicago, Des Moines, Minneapolis, and St. Louis. Greater utilization of rail and barge transportation for business and industry. Efficient, affordable, and accessible mass transportation within Dubuque and between cities for transit -dependent people. Convenient and well -maintained streets that provide easy access to all parts of the city. Improved sidewalks and bicycle lanes to city shopping areas. N V I R 0 NMEN T • ■ • ■ We envision the restoration, preserva- tion, and stewardship of the historical and natural beauty of the Tri-State area, including: ■ Beautification and preservation of the Mississippi River area within the Tri-State region. ■ Development of parks, greenspace, preserves, and sanctuaries as part of a comprehensive plan to protect bluff lands, streams, and valleys. Preservation of water and air quality. Increased appreciation, education, technical assistance, and funding of our historical and architectural heritage. Coordination and expansion of clean-up efforts, both public and private. Comprehensive, mandatory recycling and waste control for the entire Tri-State area. CULTURAL & RECREATIONAL OPPORTUNITY We envision our community as a cultural and recreational center that includes: • ■ • Coordinated and increased public and private support of wide-ranging, affordable cultural/ recreational events and organizations. • Development of affordable family -oriented recreational and entertainment facilities and activities. • Development of the waterfront for safe, clean activities. Expanded, affordable use of public facilities. Expanded cultural and recreational opportunities for youth, singles, and senior citizens. LE A DERSH 1 f' • • We envision our community providing opportunities for leadership development that include: • Presentation of community concerns in a manner that promotes understanding and participation. • Cooperative. interdisciplinary relationships among all levels of governmental. public, and private organizations. • A formal leadership program that provides an opportunity for all segments of the community to participate in leadership activities through ongoing, diversified leadership identification, recruitment, and training. Expanded citizenship/leadership programs in schools at all levels, and the coordinated recruitment of youth for leadership roles in the community by businesses, schools, churches, and organizations. Public recognition and respect of Tri-State leaders. COMMUNITY ATTITUDES ■ ■ We envision our community as one with global perspective, a community characterized by: a A recognition of the human dignity inherent in every individual, regardless of economic, social, lifestyle, and other differences. • A strong sense of civic pride and individual responsibility for upholding family and commu- nity values. responsive system of social service providers. A sense of personal health and safety. equal access to health services, and city-wide physical accessibility for all. Respect for the individual family unit. including broad support for quality childcare, and concern for the development of and involvement with youth. An integrated and RACIAL/ETHNICDIVERSITY • We envision our community as one of racial, ethnic, and religious diversity that believes in equal opportunity and justice for all citizens, a community character- ized by: • Citizens and institutions that value, accept, and promote racial/ethnic diversity within our community. Community efforts to retain minorities by providing affirmative action in government/private employment and by expanded recruitment of minorities into leadership in government. education. business. and industry. VISION A Word About Our Logo... This logo has served as a fitting symbol for the visioning process undertaken in our community. Note the three waves representing the tn-states sharing the Mississippi River for a border: the sun on the horizon beckoning to our bright future: the rich, blue background —the sky's the limit: and the diamond pattern, perhaps reminiscent of the Field of Dreams! Vision 2000 ... A Future For The Tri-State Community (Special thanks to Cathy Goodman for creating our Vision 2000 logo. / Comprehensive documentation of The Visioning Process is available for review at the Carnegie -Stout Public Library, 11 th & Bluff, Dubuque, Iowa. Inquiries should be directed to the Library Reference Desk. VISION 2000 INDEX TO COMPREHENSIVE PLAN ELEMENTS ECONOMIC DEVELOPMENT (VEC) We envision our community as a regional economic center providing opportunities for economic development that include: • A diverse and balanced economic base that provides job security for all segments of the community. This economic base will be secured through the support, retention, and recruitment of retail, manufacturing, hi -tech, services, year-round tourism, and recycling businesses and industries. • Stable, orderly, diversified economic growth balanced with our quality of 1 ife and in coordination with regional, state, and national efforts. • Industries and businesses that promote labor/management cooperation and provide full-time jobs with good wages, health benefits, and opportunities for future advancement. • Development and promotion of our community as a regional center for manufacturing, transportation, education, health/medical services, telecommunications, shopping, and tourism. • Employment programs that promote partnerships among businesses, social services, and education institutions to train/educate the workforce. • Development and enhancement of the riverfront for recreation and tourism. Development of adequate, affordable housing for all citizens. COMPREHENSIVE PLAN ELEMENT • Economic Development • Economic Development/Land Use • Economic Development • Economic Development/Land Use • Education • Recreation/Economic Development/ Land Use • Housing/Land Use/Human Services EDUCATION (VED) COMPREHENSIVE PLAN ELEMENT We envision our community as an educational center that includes: non-sexist education at all levels. • Education/Diversity • Development of, promotion of, and access to all levels of education for all persons. • Education • Integration, coordination, and pooling of resources among private and public educational institutions at all levels. • Education • Promotion of parental and other citizen ownership and participation in the educational system. • Education • Increased cooperation and partnership among community institutions, businesses, social services, and the educational systems. • Education/Human Services • Promotion of personal health education and effective parenting • Health/Education/Human Services TRANSPORTATION (VTR) COMPREHENSIVE PLAN ELEMENT We envision our community as a transportation center providing comprehensive, efficient, safe transportation systems that include: • Improved 4-lane access for surface transportation from • Transportation Dubuque to major cities, including Chicago, Madison, Cedar Rapids, and the Quad -Cities. • Quality passenger rail and air service to major cities, including Chicago, Des Moines, • Transportation Minneapolis, and St. Louis. • Greater utilization of rail and • Transportation/Economic barge transportation for business and industry. Development • Efficient, affordable, and accessible mass transportation within Dubuque and between cities for transit -dependent people. • Transportation • Convenient and well -maintained streets that provide easy access to all parts of the city. • Infrastructure • Improved sidewalks and bicycle lanes to city shopping areas. • Infrastructure ENVIRONMENT (VEN) COMPREHENSIVE PLAN ELEMENT We envision the restoration, preservation, and stewardship of the historical and natural beauty of the Tri-State area, including: • Beautification and preservation of the Mississippi River area within the Tri-State region. • Environmental Quality • Development of parks, greenspace, preserves, and sanctuaries as part of a comprehensive plan to protect bluff lands, streams, and valleys. • Recreation/Environmental Quality/ Land Use • Preservation of water and air quality. • Environmental Quality • Increased appreciation, education, technical assistance, and funding of our historical and architectural heritage. • Cultural Arts/Economic Development • Coordination and expansion of clean-up efforts, both public and private. • Environmental Quality • Comprehensive, mandatory recycling and waste control for the entire Tri-State area. • Environmental Quality CULTURAL & RECREATIONAL OPPORTUNITY (VCR) COMPREHENSIVE PLAN ELEMENT We envision our community as a cultural and recreational center that includes: • Coordinated and increased public and private support of wide- ranging, affordable cultural/recreational events and organizations. • Development of affordable family- oriented recreational and entertainment facilities and activities. • Development of the waterfront for safe, clean activities. • Expanded, affordable use of public facilities. • Expanded cultural and recreational opportunities for youth, singles, and senior citizens. • Recreation/Cultural Arts • Recreation/Cultural Arts • Economic Development/Land Use • Recreation/City Fiscal • Recreation/Cultural Arts LEADERSHIP (VLD) COMPREHENSIVE PLAN ELEMENT We envision our community providing opportunities for leadership development that include: • Presentation for community concerns in a manner that promotes understanding and participation. • Cooperative, interdisciplinary relationships among all levels of governmental, public, and private organizations. • A formal leadership program that provides an opportunity for all segments of the community to participate in leadership activities through ongoing, diversified leadership identification, recruitment, and training. • Expanded citizenship/leadership programs in schools at all levels, and the coordinated recruitment of youth for leadership roles in the community by businesses, schools, churches, and organizations. • Public recognition and respect of Tri-State leaders. • Education • Education COMMUNITY ATTITUDES (VAT) We envision our community as one with global perspective, a community characterized by: • A recognition of the human dignity inherent in every individual, regardless of economic, social, lifestyle, and other differences. • A strong sense of civic pride and individual responsibility for upholding family and community values. • An integrated and responsive system of social service providers. • A sense of personal health and safety, equal access to health services, and city-wide physical accessibility for all. • Respect for the individual family unit, including broad support for quality childcare, and concern for the development of and involvement with youth. COMPREHENSIVE PLAN ELEMENT • Diversity • Human Services • Health/Human Services/ Infrastructure/Public Safety • Human Services RACIAL/ETHNIC DIVERSITY (VRD) We envision our community as one of racial, ethnic, and religious diversity that believes in equal opportunity and justice for all citizens, a community characterized by: • Citizens and institutions that value, accept, and promote racial/ethnic diversity within our community. • Community efforts to retain minorities by providing affirmative action in government/private employment and by expanded recruitment of minorities into leadership in government, education, business, and industry. COMPREHENSIVE PLAN ELEMENT • Diversity • Diversity/Economic Development VISION 2000 INDEX TO COMPREHENSIVE PLAN GOALS LAND USE AND URBAN DESIGN GOALS must address interrelated factors affecting the physical development of a city, including the satisfaction of human needs, the vitality of the local economy, the protection and enhancement of the natural and built environment and the efficiency of public infrastructure and service provision. Urban design establishes a context for development in response to the community's desired image. While new development is encouraged, short term benefits must be weighed against long term impacts to the community's quality of life. Land use and urban design decisions will always affect the future in significant, and sometimes irreversible, ways. It is incumbent that a land use plan balance the need for growth with the protection of existing community assets. • To protect and enhance the viability, livability and affordability of the city's residential neighborhoods while integrating multifamily development throughout the community. (VEC) ▪ To ensure that opportunities for convenient and concentrated commercial development are provided to support both the local and regional market. (VEC) • To provide sufficient opportunities for industrial development sites within the community. (VEC) • To balance open space and environmental preservation with the community's development needs. (VEN) To ensure that the physical character and form of the city reflects its historic setting and that the built environment is compatible with the city's natural environment. (VEN) To encourage the concept of mixed use development to create diverse and self-sufficient neighborhoods. (VAT) To encourage redevelopment opportunities within the city in an effort to revitalize unused or underused property while ensuring the preservation of viable and affordable housing stock. (VEC) To provide physical accessibility throughout the city. (VTR) (VAT) To promote principles of good urban design as part of all development. To plan for the city's future and orderly development within a regional context. (VEC) TRANSPORTATION GOALS must address a safe, efficient transportation system, which is essential to tie the community together and to link the community to the region. Transportation networks to the nation are important for economic growth because they provide needed access for the import and export of goods and services, as well as for visitors to Dubuque. The circulation pattern and condition of the local street system should not only provide safe, reliable access to work, schools, shopping and residences but also will have a major influence on where future growth is likely to occur. The location and quality of other means of transportation, including an airport, public transit, pathways, railroads, highways and navigable water, in addition to providing accessibility to all parts of the community, are important factors for new and expanding business, industry and residential development. To provide, maintain and improve safe and efficient movement on the City's street system. (VTR) To plan long-range for both local and regional street and highway systems to ensure safe, efficient access into and through the city and to support urban growth in an appropriate development pattern. (VTR) To facilitate improved four -lane access for surface transportation from Dubuque to major cities in the region. (VTR) To encourage an efficient, affordable and accessible transit system in the city for the transit -dependent population and as an alternative means of transportation. (VTR) To meet the special transportation needs of the elderly and disabled. (VAT) To maintain safe and efficient utilization of the riverfront for commercial, industrial and recreational traffic. (VEC) To provide safe and efficient airport services to the community and the region. (VTR) To support rail opportunities for both commercial/industrial and passenger service. (VTR) To establish improved hike and bike routes in the city to encourage alternative modes of transportation. (VTR) INFRASTRUCTURE GOALS must address the maintenance, improvement and capacities of aging utility and street systems while continuing to provide extensions and expansions of these systems to meet changing community needs. "New" forms of infrastructure, including communication and data and information processing systems, have become an important aspect of our community's life and livelihood. The pace and extent of the city's growth and development pattern will impact the timing and demand for infrastructure provision. Public expenditures for infrastructure can shape the city's land use pattern as effectively as development regulations. The phasing of new and extended infrastructure must be based on both the fiscal capability of the City and sound land use decisions made in an integrated management process. • • To provide, maintain and improve: a cost-effective, functional and self-supporting water utility system. a cost-effective, functional and self-supporting sanitary sewer and water pollution control systems. a safe and functional storm sewer system. a cost-effective, safe and functional surface transportation system of streets, bridges, lights and signals. (VTR) safe, accessible public sidewalks and steps throughout the community. (VTR) an accessible, functional and self-supporting parking system. the floodwall, harbors and boat ramps for industrial, commercial and recreational use of the riverfront. (VEC) accessible and functional communication infrastructure. a cost-effective and functional data and information processing system. City -owned buildings, structures, facilities and properties. To plan for, build or improve infrastructure systems to meet anticipated growth and development needs. ENVIRONMENTAL QUALITY GOALS must address the balance between responsible stewardship and protection of our environment and the impacts of urban living. And while there is growing public awareness that personal health and safety can be directly effected by the livability and sustainability of our immediate environment, it must also be understood that a community can both effect and be effected by regional and even global environmental issues. Dubuque's natural and built environments establish the city's appearance and image as a healthy, safe and viable place to live, work and play. To create a sustainable environment that successfully balances urban growth and development with ecological constraints. (VEN) To promote conservation practices that result in responsible use of non- renewable natural resources. (VEN) To educate citizens about environmental issues affecting their lives and their community. (VEN) To protect and preserve existing water supplies and air quality and ensure that future water and air quality is safeguarded. (VEN) To coordinate proper control, collection and disposal of stormwater, wastewater, solid wastes and household hazardous wastes. (VEN) To promote residential and business recycling efforts that reduce, reuse and recycle the community's waste stream. (VEN) To promote the protection, preservation and enhancement of the city's bluffs, wetlands and waterways. (VEN) To promote community clean-up and beautification efforts with other public and private interests. (VEN) To meet the mandates of all Federal, State and local laws regulating environmental quality in an expeditious manner. CITY FISCAL GOALS must address the allocation of limited available resources among competing interests, departments, activities and programs. These goals should develop an acceptable balance of costs and services with respect to quality, quantity and financing. City fiscal goals should emphasize policy and budget objectives, demands on and accomplishments of City governmental units and alternative funding and service levels. Their purpose is to help focus on the major policy decisions of what services City government will provide, who will pay for them and the implications of such decisions in achieving the goals in all elements of the Comprehensive Plan. • To promote the fiscal soundness and viability of City government operations. • To communicate the City's fiscal management process in language understandable to the general public. • To provide reports and financial data that are accurate, timely and meaningful and which satisfy the need for sound fiscal policy formulation, efficient City management and full disclosure of City finances. • To minimize the impact of economic swings on the City's operating budget by making the budget more recession -proof. • To emphasize the use of fees and users charges to maintain existing City services and reduce reliance on federal and state funding sources as well as local property taxes while remaining sensitive to program access and availability for those with low or moderate incomes. (VCR) • To improve City government productivity and service delivery and identify alternative means of service delivery. • To determine the work effort required and the costs to meet increased service delivery requests and/or mandates. • To make decisions on achieving goals in all elements of the Comprehensive Plan based on competition for and distribution of limited resources. • To examine public and private funding sources and alternative means to accomplish goals in all elements of the Comprehensive Plan. ECONOMIC DEVELOPMENT GOALS must continue the active and vital collaboration between public and private sectors to promote the economic health and well- being of our region. Economic development encompasses decisions regarding business retention and recruitment, work force development, available and appropriate locations for new business and industry, public investment in supportive infrastructure and financial incentives which can induce private investment and economic growth. The preservation and expansion of the community's economic base should be a prime objective. Unless existing business and industry are healthy and there are expanding employment opportunities that pay a living wage, the population will not be stable, the tax base will decline and government's ability to finance public services and facilities will be impaired. The future development of the community depends on maintaining and enhancing local economic development efforts directed towards these goals. To reduce unemployment, achieve economic stability, and increase the standard of living for all citizens. (VEC) To build a highly skilled, flexible work force. (VEC) To concentrate on retaining and expanding existing local businesses. (VEC) To increase the number of small firms within Dubuque by fostering local entrepreneurship. (VEC) To recruit businesses that are suited to the area, require a highly skilled work force or are willing to train an entry-level work force and are experiencing growth. (VEC) To identify and meet the economic needs of the chronically unemployed and underemployed in Dubuque, including education and retraining. (VEC) To promote existing attractions and to establish additional year-round tourist attractions to enhance Dubuque's position as a center of tourism. (VEC) • To strengthen the local tax base. To establish and maintain housing and transportation, communication, and utility systems which support and foster quality development. (VEC) • To ensure an adequate supply of commercial and industrial use. • To utilize the riverfront as an opportunity. (VEC) vacant, development -ready land for outstanding economic development • To encourage development that is environmentally sensitive. (VEC) HEALTH GOALS must address health and medical issues that fall within the scope of both public and private providers. Government often cites "health, safety and the general welfare" as necessary and important public purposes. The public's health and continued wellness must be of concern to the community as a whole. The promotion of good public health practices and lifestyles and the provision of necessary and adequate private health care to all members of the community must be the shared responsibility of both the public and private sectors. • To reduce and prevent the occurrence of disease, disability and death in the community. (VAT) • To promote the physical and mental health and wellness of the citizens of Dubuque through educational and outreach efforts. (VAT) • To ensure that all members of the community have access to and receive necessary and adequate health services. (VAT) • To address the special health needs of pregnant women, children and the elderly. (VAT) • To create safe and sanitary work, play and housing environments. (VEC) • To contain the rising costs of health care in an equitable, efficient and collaborative manner through community -wide planning. (VAT) • To retain and recruit quality health and medical personnel for our community. • To become a regional health care center providing a full -range of both general and specialty health and medical services. (VEC) HOUSING GOALS must address the issues of housing availability, affordability and accessibility for all members of the community. Public intervention in the private housing market is sometimes necessary to ensure safe and sanitary housing, to provide income assistance to those in greatest need or to spur reinvestment and renewal in existing, older neighborhoods. The provision of shelter is a basic human need that demands special attention in the arena of human services delivery and stands alone as an important element. Our community's very image is reflected in large measure by the pride and well- being displayed in our neighborhoods. • To preserve existing housing and existing, older residential neighborhoods. (VEN) • To promote the creation and maintenance of an adequate supply of sound, affordable housing integrated throughout the community. (VEC) • To expand the opportunities for homeownership, especially for low income households. (VEN) • To promote fair housing opportunity for residents in all city neighborhoods. • To assist local service agencies in providing shelter and semi-independent living for persons in need of supportive services. (VAT) • To understand that the availability and affordability of housing for employees is an important key to successful economic development. (VEC) • To promote the public's awareness of housing needs and issues through informational and educational efforts. HUMAN SERVICES GOALS must address a variety of needs resulting from societal changes, economic restructuring and demographic shifts. These goals strive for an optimum level of service, that is, the greatest degree attainable under local conditions and acknowledging competition for limited available resources. While other Comprehensive Plan elements deal more directly with economic development, housing, health, environmental quality, education, transportation and public safety, City government has an indirect role in the provision of needed human services to community residents as it works with and is supportive of area providers. To work with area providers to: • promote optimum health care services for community residents. (VAT) • promote optimum services to meet food, clothing, shelter, transportation and other basic material needs. (VAT) • promote optimum individual and collective safety. (VAT) • promote optimum social and family interrelationships. (VAT) • promote optimum income security and economic opportunity for community residents. (VEC) • ensure that human services are supported and delivered in an adequate and effective manner through organized, coordinated action. (VAT) EDUCATION GOALS must address the educational and informational needs of all members of the community as life-long learning opportunities are made available at many levels of interest and for all ages and abilities. Education must not be relegated to the schools alone but must become a collaborative experience that weds public and private sector, business and government, parent and child in partnership with each other and our educational institutions. A community's quality of life and ability to attract and retain both economic growth and residents often depends on the quality and quantity of educational facilities and services. • To (VED)support opportunities for life-long learning for residents of all ages. • To provide access to timely, accurate and useful information and both audio-visual and reading materials through the public library. • To create and deliver a quality education that allows all students to reach their highest potential. (VED) To address the special pre-school educational needs of children in the community. (VED) To increase the involvement of parents and the community in our schools. (VED) To build partnerships between the private sector and schools to ensure that educational outcomes meet the needs of both future employers and employees. (VED) To develop responsible citizens and leaders to meet the challenges of a changing world and global society. (VED) To provide adequate educational facilities in appropriate locations throughout the community to meet changing demographic and development patterns. (VED) To identify new sources of funding and increased efficiencies to maintain and/or expand educational programs and facilities. (VED) CULTURAL ARTS GOALS must address the arts as an important aspect of our community's basic quality of life. The cultural arts not only enrich our experiences but educate us about the world we live in. The diversity of the world as represented through the cultural arts is one way to share the culture and knowledge of different peoples and places. The freedom and opportunity to create and explore the cultural arts should not be understated or ignored. To celebrate the arts as an opportunity to enjoy and enrich community 1 ife. To provide a variety of affordable and accessible cultural arts activities and resources for all ages. (VCR) To promote affordable and accessible spectator and participatory arts experiences and cultural events. (VCR) To utilize the arts to encourage a better understanding of the cultural diversity of the world. (VRD) To support the expression of the cultural arts and access to that expression. (VCR) To safeguard the cultural and historic resources of the community as critical to the quality of life and the attractiveness of Dubuque. (VEN) To encourage the availability of adequate facilities to support arts activities. (VCR) RECREATION GOALS must address the provision of facilities and activities for leisure time enjoyment by all members of the community. Both public and private resources are needed to provide a full range of recreational experiences. The community's overall health, wellness and quality of life are interrelated with the variety and availability of parks, open space and recreational opportunities that are accessible to all. Accessibility includes both physical and financial access to recreational facilities and activities. Recreation can serve to meet positive human needs and is one of the key factors in Dubuque's livability. • To develop a safe park and recreation system that continues to meet the community's needs for useable and accessible park and open space. (VEN) • To promote and encourage the wholesome and enjoyable year-round use of leisure time. (VCR) • To offer a variety of affordable and accessible spectator and participatory events and experiences. (VCR) • To provide a variety of affordable and accessible recreation classes and activities for people of all ages. (VCR) • To provide opportunities for young people to learn the skills of various sports and leisure activities. (VCR) • To improve and expand recreational opportunities for adults, the elderly and the disabled. (VCR) • To enhance the visual attractiveness of the community and park system. (VEN) • To (oCoptimize the recreational amenities offered by the city's riverfront. PUBLIC SAFETY GOALS must address acceptable and appropriate levels of risk and response. As the city grows and equipment and facilities age, the need for quality public safety services continues and may increase. Current and potential residents and businesses are attracted to the community in part because they wish to have a sense of security about their lives, families and properties. Public safety efforts should seek to reduce the amount and effect of external harm to individuals and damage to property, as well as to promote an atmosphere of personal security from external events. • To ensure the fair, equitable and uniform enforcement of rules, regulations and laws. • To maintain adequate and appropriate readiness response capabilities all areas of public safety. in • To prevent, control and investigate criminal behavior and activities. • To create a safe community environment through increased awareness and education to eliminate gang activity, drug use and juvenile crime. (VAT) • To prevent, control and investigate fires. • To prevent or minimize the impacts of natural or man-made disasters. • To provide emergency first responder and advanced life support medical care to the community. • To provide review and inspection services that regulate the safe and sanitary construction and maintenance of buildings and structures. • To educate the community in areas of law enforcement, fire prevention, emergency response, disaster preparedness and building safety. (VAT) DIVERSITY GOALS must address the differences and the similarities found in our community. As citizens of Dubuque, we share common hopes and dreams for our future even though we may not look or dress or think alike. Our diversity can be our strength as we learn new ways and forge new friendships. The world is no longer a place where Dubuque, or any other community, can exist in isolation; rather, the world has come to Dubuque in all its many colors, its many ideas, its many challenges and opportunities. To promote community understanding of the content and spirit of the City's Human Rights Ordinance. (VRD) To ensure compliance with anti -discrimination laws. (VRD) To understand, respect and welcome diversity and not base fear on racial, cultural or gender -based differences. (VRD) To educate community members about diversity and open avenues of communication and interaction within the community. (VED) To recognize, appreciate and celebrate diversity as an opportunity to experience and share both our differences and our similarities as a unified community. (VRD) To promote affirmative action and equal opportunity hiring practices in both the public and private sectors as a means to diversify the workplace and expand role -model and leadership opportunities. (VRD) r POLICY STATEMENTS, GOALS, OBJECTIVES and INVENTORY ANALYSIS for the FOURTEEN ELEMENTS of the COMPREHENSIVE PLAN The Comprehensive Plan is comprised of fourteen elements affecting all aspects of community life. These fourteen elements fall into three categories: Physical Environment -- Land Use and Urban Design, Transportation, Infrastructure and Environmental Quality. Economic Environment -- City Fiscal and Economic Development. Social Environment -- Health, Housing, Human Services, Education, Cultural Arts, Recreation, Public Safety and Diversity. Each element includes a policy statement, goals and objectives which explain the direction, ideals and desires which the Comprehensive Plan is intended to satisfy. Following the policy statement, goals and objectives for each element is an inventory analysis of the existing conditions/facts and the critical issues/trends for that element. The opening paragraph of each element is a policy statement. The policy statement sets the context and provides the framework for the goals and objectives of that element. Goals are intended to be broad in scope and fundamental in purpose, a set of unique approaches for realizing the policy statement for that element. They generally are not quantifiable or measurable, serving instead as boundaries which define objectives and action steps. Goals are shown in bold type. Objectives allow communication and common understanding of what is to be achieved, helping people know what is expected. They are significant and challenging, yet reasonable and achievable methods to accomplish the goals. After some objectives is an acronym for an element of the Plan. The acronym indicates a correlation of that objective to another element of the Comprehensive Plan that has similar goals and objectives. The element acronyms are shown below: Land Use and Urban Design (LU) Transportation (TRN) Infrastructure (IN) Environmental Quality (EQ) City Fiscal (CF) Economic Development (ED) Health (HLTH) Housing (HOUS) Human Services (HS) Education (EDU) Cultural Arts (CA) Recreation (REC) Public Safety (PUB) Diversity (DIV) POLICY STATEMENTS, GOALS, OBJECTIVES and INVENTORY ANALYSIS for the FOURTEEN ELEMENTS of the COMPREHENSIVE PLAN (continued) The inventory analysis includes a complete description of current conditions in the community and represents a shared data base for use in developing the various elements of the Comprehensive Plan. This analysis identifies community trends, projects such trends into the future and assesses the probable impact. It identifies and includes all appropriate studies and analyses done by city, county, state and federal agencies. The number of a goal or of an objective is not a ranking. As part of the comprehensive planning process, citizens were asked to rank the goals for each element of the Plan. Citizens were asked to rate the priority of each goal based on the importance of the goals to them. "High" was of greatest importance, "Medium" was of second importance, and "Low" was of less importance. As a result of this public input, most goals were ranked "High" or "Medium"; none were ranked as "Low". The "High" priority placed on so many goals reflects their appropriateness for and acceptance by the community; however, these rankings are not an effective means for prioritizing implementation. Consequently, the ranking of the goals and objectives as to their importance and priority becomes the responsibility of the City Council and other community leaders who will have a direct role in implementation of the Comprehensive Plan's goals and objectives. Action strategies and priorities for implementation can best be accomplished by those key stakeholders who have the resources to undertake the Plan's implementation. The policy statements, goals and objectives, together with the systems maps, serve as a justification of the policy, planning, administrative and budgetary decisions to be made during implementation of the Comprehensive Plan. The plan, by definition, is limited in its legal authority to that of a guide, and is not legally binding. Nor is the plan intended to establish any enforceable legal standards which would give rise to any legal action against the City of Dubuque. As a guide for the community's future, the City of Dubuque will use the plan to shape its policies and decisions in areas where City government does have direct authority and influence. Implementation of many areas of this plan will involve other community players who have more influence, authority and expertise than City government, such as health care providers, educational institutions, human service agencies, private business and non-profit groups. This Comprehensive Plan should serve as a guide for the entire community, in all aspects of public and private life. By working together, as a community with a shared vision of our future, these goals and objectives are attainable. Reaching them will take commitment, collaboration and shared responsibility. it LAND USE AND URBAN DESIGN GOALS must address interrelated factors affecting the physical development of a city, including the satisfaction of human needs, the vitality of the local economy, the protection and enhancement of the natural and built environment and the efficiency of public infrastructure and service provision. Urban design establishes a context for development in response to the community's desired image. While new development is encouraged, short term benefits must be weighed against long term impacts to the community's quality of life. Land use and urban design decisions will always affect the future in significant, and sometimes irreversible, ways. It is incumbent that a land use plan balance the need for growth with the protection of existing community assets. 1 To protect and enhance the viability, livability and affordability of the city's residential neighborhoods while integrating multifamily development throughout the community. 1.1 Promote inclusive and economically integrated neighborhoods that allow a diverse mix of residents and housing types. (LRPC) (HOUS) 1.2 Provide a range of housing options throughout the community. (LRPC) (HOUS) 1.3 Connect and interrelate neighborhoods with greenbelts or other pathways, commercial nodes or public facilities. (LRPC) 1.4 Preserve historic and aesthetic character and function of established neighborhoods. (LRPC) (CA) 1.5 Protect existing residential areas from encroachment by incompatible development. (LRPC) (HOUS) 1.6 Provide neighborhood amenities throughout the community in an equitable manner. (LRPC) 1.7 Encourage neighborhood identity, planning and pride of place. (LRPC) 1.8 Preserve the environmental quality of residential areas and buffer from noxious or nuisance impacts. (LRPC) (EQ) 2 To ensure that opportunities for convenient and concentrated commercial development are provided to support both the local and regional market. 2.1 Protect downtown commercial core and encourage continued reinvestment and redevelopment. (LRPC) (ED) 2.2 Encourage expansion of commercial opportunities in existing commercial corridors or nodes where infrastructure can support growth. (LRPC) (ED) 2.3 Provide opportunities for neighborhood commercial centers that assure compatibility with residential property. (LRPC) (ED) LAN Q USE AN D tRgAN tStcrl 2.4 Preserve historic and aesthetic character and function of established commercial districts. (LRPC) (ED) (CA) 3 To provide sufficient opportunities for industrial development sites within the community. 3.1 Promote the retention and expansion of existing, and attraction of new, industrial development opportunities in suitable locations, including airport environs. (LRPC) (TRN) (ED) 3.2 Protect existing industrial and airport development from encroachment by incompatible development. (LRPC) (TRN) (ED) 3.3 Encourage annexation of land suitable for industrial usage if necessary. (LRPC) (ED) 3.4 Lessen negative impacts to residential areas which are located near industrial areas. (LRPC) (ED) (HOUS) 4 To balance open space and environmental preservation with the community's development needs. 4.1 Protect and preserve existing open space and park land to meet the community's needs. (EQ) (REC) 4.2 Encourage expansion of urban green spaces in suitable locations. (LRPC) (REC) 4.3 Provide open space easily accessible to residents at neighborhood level. (LRPC) (REC) 4.4 Incorporate green space into all new development wherever possible. (LRPC) (REC) 4.5 Limit development along bluff lines and protect scenic vistas. (LRPC) (EQ) 4.6 Protect and enhance riverfront and related wetlands, waterway corridors and other sensitive land areas. (LRPC) (EQ) 5 To encourage [ensure] that the physical character and form of the city reflects its historic setting and that the built environment is compatible with the city's natural environment. 5.1 Define and enhance city gateways and focal points to create a sense of place. (LRPC) (REC) 5.2 Protect and preserve the city's historic buildings, urban pattern and natural environment. (LRPC) (CA) (EQ) L-At•M use cwp urr-131)1+4 DPs« 5.3 Protect natural vistas from the clutter of inappropriate physical development. (LRPC) (EQ) 5.4 Promote quality in the design and construction of new public and private development. (LRPC) (REC) 6 To encourage the concept of mixed use development to create diverse and self-sufficient neighborhoods. 6.1 Promote a compatible mix of land uses that create a diversified urban environment that mixes shopping, employment, recreation and residential opportunities where appropriate. (LRPC) (ED) 6.2 Buffer and protect incompatible uses from each other. (LRPC) 6.3 Limit sprawl and aggregate travel time through use of mixed use developments. (LRPC) (TRN) 7 To encourage redevelopment opportunities within the city in an effort to revitalize unused or underused property while promoting [ensuring] the preservation of viable and affordable housing stock. 7.1 Encourage redevelopment or adaptive reuse of vacant or underutilized buildings and sites. (LRPC) (HOUS) (ED) 7.2 Promote infill development, where appropriate, to encourage more compact urban form and avoid needless and costly sprawl. (LRPC) (HOUS) (ED) 7.3 Promote redevelopment that maximizes existing infrastructure. (LRPC) (IN) 7.4 Strive to eliminate slum and blight. (HOUS) (ED) 8 To provide physical accessibility throughout the city. 8.1 Encourage and facilitate urban accessibility by walking, cycling and/or public transit as well as by auto. (LRPC) (TRN) 8.2 Encourage new development concepts that by design enable people to walk to work, school, day care, shopping and recreation. (LRPC) (TRN) 8.3 Facilitate, where possible, enhanced accessibility within existing development. (LRPC) 8.4 Encourage the development of pathways that link the community together in a cohesive manner. (LRPC) (REC) 8.5 Encourage the provision of access to persons with disabilities. (LRPC) 9 To promote principles of good urban design as part of all development. 9.1 Enhance the aesthetics of new and existing development -- design, landscaping, parking, signage -- with special sensitivity to the historic character and building materials found in the community. (LRPC) (REC) (CA) 9.2 Avoid negative impacts on established development and street system. (LRPC) (IN) (TRN) 9.3 Encourage environmentally compatible and sensitive design that fits the development site. (LRPC) (EQ) 9.4 Promote energy conservation efforts in building design, materials and orientation. (LRPC) (EQ) 9.5 Reflect land conservation practices in density and building patterns to encourage compact urban form versus sprawl. (LRPC) 9.6 Provide for flexible development requirements that avoid duplication in design. (LRPC) 9.7 Adapt land use controls to fit the various historic development patterns and neighborhoods that reflect urban, suburban and rural characteristics. (LRPC) (CA) 9.8 Compliment the human scale and historic bulk and mass of existing structures when designing new or redeveloped structures. (LRPC) (CA) 10 To plan for the city's future and orderly development within a regional context. 10.1 Consider the community's regional setting and economy when assessing the opportunities and constraints for land development. (LRPC) (ED) 10.2 Minimize the negative impact of urban fringe development on regional watersheds, ecosystems and rural infrastructure. (LRPC) (EQ) (IN) 10.3 Encourage city -county cooperation to develop policies for development of fringe areas, to enhance development and avoid unregulated sprawl. (LRPC) (ED) 10.4 Limit undefined urban sprawl by clearly defining the city's edge with open space, bringing corridors of green into the city along natural and roadway corridors. (LRPC) (EQ) (TRN) 10.5 Encourage cooperative regional planning with all levels of government, to develop a strategic plan for fringe area development that may include annexation. (LRPC) (ED) (TRN) 10.6 Balance farmland and critical area preservation with the need to annex developable land for urban expansion. (LRPC) (EQ) (ED) LANDUSEANDURBANDESIN EXISTING CONDITIONS/FACTS • The city of Dubuque is approximately 25 square miles (16,000 acres) in size. While the west side, downtown and "flats" areas consist of level ground or gently rolling hills, much of the City is built on areas of extreme topography such as bluff edges, steep slopes and valleys. Because of this, much of the transportation system is not laid -out in a true grid pattern and some of the city's vacant land is not practical for development. • The city is bounded on the east by the Mississippi River, with approximately six miles of riverfront, and on the north, south and west by bluffs, creek valleys, gently rolling hills, farm fields and some county urban development, including the cities of Asbury and Sageville. • Dubuque is a visually attractive city with a unique mix of natural features that include river, bluffs, wooded areas, hills, valleys and panoramic views and an historic architectural fabric of Victorian houses, downtown rowhouses, brownstones, commercial and office buildings and old neighborhood storefronts. Although these features are assets to the community, they have not always been protected or promoted in the past. • The bulk of land within the city is zoned for residential purposes (56%), with 13% zoned for office/commercial uses and 14% zoned for industrial uses. Over 17% of land located within the current city limits is still zoned for agricultural uses. The actual 'use' of land differs somewhat from its zoning. While the entire city is "zoned", only 60% of the city has been developed. Residential land uses still comprise the majority of all land uses with approximately 43% of all developed land in residential usage. Less than 8% of developed land is in office/commercial usage; less that 7% is in industrial usage. Of the city's 9.8 square miles of existing vacant (including agricultural) land, approximately 4.5 square miles, or 2900 acres, are developable (about 18% of the total city land area). This vacant land serves as a reserve for future growth. Approximately 789 acres, or 27%, have been zoned for residential use; 95 acres (3%) are zoned commercial; 167 acres (6%) are zoned industrial. The greatest opportunity for development may be found in the 1819 acres (63% of the total vacant land area) that are currently zoned agricultural -- a holding zone which can be rezoned to the most appropriate use in the future. • The City has a total of 483 acres of park area. If FDR Park (which is over 200 acres, outside the corporate limits and currently closed) and E.B. Lyons Preserve ( over 90 acres outside the corporate limits) are included, the park area totals over 780 acres. The City also borders the Mines of Spain, a 1,200 acre semi -primitive recreational area administered by the State of Iowa. • There are several older residential areas throughout the city that are currently zoned for commercial and industrial uses. The housing stock and environmental quality in some of these areas is marginal, some areas are adjacent to existing industrial and commercial uses or are in areas where future commercial/industrial expansion and development has been projected. However, some of these areas represent viable neighborhoods that are not appropriate for commercial or industrial development and may need to be downzoned. • There are many neighborhood commercial developments that evolved prior to any zoning regulation. Some have been or are being converted to residential uses while others have remained static or have changed commercial uses. Some commercial uses, while providing valuable goods and services, generate negative impacts on residential neighborhoods. • The city's historical downtown development pattern, with small lots, modest setbacks, few garages, multi -story buildings and densely developed neighborhoods, has created attendant problems relative to building and zoning regulations. Such regulation often inhibits expansion of existing, or development of new, buildings in these areas. • Some "fringe" areas that face future developmental pressure lie outside the primary watersheds that serve to drain existing sanitary and storm effluent for the bulk of the City's built environment. Development in these areas may require the use of lift stations, of which the construction and maintenance is generally the responsibility of the developer or property owner. • Development along bluff lines and on steep hillsides creates special environmental problems like erosion and disruption of natural vistas and raise safety issues relative to retaining earth and storm runoff. • Some development is taking place within the city's two-mile fringe area. While such development is subject to review and approval by the City for compliance with the Subdivision Ordinance, rezonings and site plans are not subject to review for compliance with City regulations. Coordination of development by City and County entities is limited in this urban fringe area. • Realtors state that while there is currently a substantial amount of residential development and an adequate number of residential lots, affordable, handicapped and smaller, multi -family properties are scarce. In addition, moderate to expensive townhouse/condominium style multi -family housing is currently in high demand. Realtors have indicated a critical lack of appropriately zoned, 1 to 2 acre commercial and office sites within the city, in addition to a general lack of industrial property in the area. "Typical" single-family residential subdivision lot size on the City's west side has been calculated at 8,925 square feet or 3.5 units per acre (this allows for the standard 29% street coverage). Given the current building trend, single-family residential property will be developed at a rate of 29 acres per year (100 lots). This may be a conservative estimate because the number of building permits issued has increased each year for the last six years. With 646 acres of vacant, developable, single-family residentially zoned land available within the current corporate limits, however, this rate of land consumption represents approximately a 20-25 year timeline for full build -out. This acreage will accommodate approximately 2261 "typical" residential building lots, which represents housing opportunities for 7032 people (based on 1990 Census data for family size of 3.11 persons/family). • Most subdivisions established in the 1950's, 1960's and 1970's have been fully developed leaving very few standard lots available within them. Others established in these decades are not in close proximity to utilities or are in areas of extreme topography and have not been developed. However, several extensive areas have been subdivided in the 1980's and early 1990's, of which the five largest have created in excess of 700 residential lots. (50 of these are zoned multi -family). Of these 700 lots, 263 have been built on, leaving over 400 vacant residential lots. • If the 1991-92 building trend continues, all categories of residential development (single- and multi -family) will consume in excess of 100 residentially zoned lots per year. The newest subdivisions, which represent near term development potential for various housing types and price ranges, could, at this rate of consumption, be fully built -out in 4 to 5 years. LANDUSEANDIJRBANDESIGN CRITICAL ISSUES/TRENDS • Existing residential areas that are zoned for uses other than residential are at risk. If the housing stock is to remain viable and investment encouraged, proper zoning is needed to ensure future residential use is maintained. • The aging of the population will likely impact the character of traditional single-family neighborhoods, the demand for various housing types and the need for alternative housing arrangements and services. • The cost of service delivery and infrastructure provision is becoming so great that compact and contiguous urban development is necessary for efficient city service provision. Conventional subdivision design may not always "pay for itself" in terms of future public or private service delivery. • Compact development - development that limits travel time and encourages pedestrian and bike access to work, school, day care, shopping and recreation - not only promotes a healthy lifestyle but protects the environment by lessening dependence on the automobile, limits the need for expensive infrastructure and lowers service demand. Cities may need to direct growth inward, through redevelopment or increased densities, rather than continuing to sprawl into the adjacent rural landscape; however, the need to annex should be considered to assure an adequate land 'reserve' is available to accommodate growth - especially for industrial development opportunities. Sprawl not only creates inefficiencies for service delivery, but can eliminate productive agricultural land and impact the natural environment. To create a sense of place, communities are defining their fringe - the city's edge - rather than continuing undirected sprawl. The "greening" of the city idea encourages open space and environmental concern to create more livable cities. Greenspace can be extended from the rural fringe into the city along both natural and built corridors. Fringe development outside a city's corporate boundary is of substantial interest and concern to a community. Whether annexation is or is not necessary, development control and coordination are often desired. The need for additional large site industrial properties which are easily accessible to transportation systems will likely continue as new industry is developed and existing business expands or relocates. Providing a sufficient inventory of properly zoned and developable land, especially for commercial and industrial uses, requires reasonable projections of short-term growth. Holding zones (e.g., agricultural zone), which serve as land 'reserves' and can be rezoned as needed in conformance to a proposed land use plan, allow better development control for the community and eliminate vested interests. NIMBY - "Not In My Back Yard" - land uses and LULU'S - "Locally Unwanted Land Uses" - are issues that must be addressed by the community as a whole. Distinctions must be made between environmental hazards which are objectionable and the social or economic uses which are often "unwanted" neighbors. The concept of residential neighborhoods which reflect mixed incomes, mixed housing types and mixed densities can be viewed in other than NIMBY terms. • Communities must take responsibility for the waste products that are generated locally and provide adequate land use development opportunities for storing, processing, resale and recycling of the waste stream as part of a sound environmental and economic policy. • Land stewardship, as a universal concept, requires thinking long-term about land usage - its preservation, conservation and renewal. It also implies that private property rights are not absolute; they must always be tempered with both the public good and the effects of individual land use on surrounding properties. • The concept of 'highest and best use' of land from an economic standpoint is not always compatible with the general public good. Short-term expediencies must be balanced with long-term impacts while being sensitive to the rights and needs of property owners, businesses and developers. D ' TRANSPORTATION GOALS must address a safe, efficient and aesthetically appealing transportation system, which is essential to tie the community together and to link the community to the region. Transportation networks to the nation are important for economic growth because they provide needed access for the import and export of goods and services, as well as for visitors to Dubuque. The circulation pattern and condition of the local street system should not only provide safe, reliable access to work, schools, shopping and residences but also will have a major influence on where future growth is likely to occur. The location and quality of other means of transportation, including an airport, public transit, pathways, railroads, highways and navigable water, in addition to providing accessibility to all parts of the community, are important factors for new and expanding business, industry and residential development. 1 To provide, maintain and improve safe and efficient movement on the City's street system. 1.1 Continue the ongoing street construction program, providing for timely maintenance, repair and reconstruction of the City street system. (ENG) (IN) 1.2 Implement sound safety engineering principles and practices in the area of street lighting, street layout, speed limits, street signage, street pavement striping, and traffic signals. (ENG) (IN) (PUB) 1.3 Maintain the street system's continuity and safety. (ENG) (IN) (PUB) 2 To plan long-range for both local and regional street and highway systems to ensure safe, efficient access into and through the city and to support urban growth in an appropriate development pattern. 2.1 Coordinate with regional transportation agencies to maintain and update a long-range transportation plan. (DMATS) (LU) (ENG) 2.2 Coordinate with regional transportation agencies involved with highway planning and construction. (ENG) (LU) (ED) 2.3 Improve the existing street network to reduce traffic capacity restraints and improve safety. (ENG) (PUB) 2.4 Involve the public in the transportation planning process. (DMATS) 2.5 Plan for aesthetically appealing streets and highways, with particular focus on gateway opportunities. (LRPC) (LU) 3 To facilitate improved four -lane access for surface transportation from Dubuque to major cities in the region. 3.1 Plan future transportation facilities with local, regional, state and federal agencies. (ENG) (LU) 3.2 Work with regional transportation agencies in the development of an improved highway system to serve the City. (ENG) (LU) 3.3 Strive for a street and highway system which meets current and future traffic needs. (DMATS) (LU) (ED) 4 To encourage an efficient, affordable and accessible transit system in the city for the transit -dependent population and as an alternative means of transportation. 4.1 Work toward meeting the changing needs of the transit dependent. (ENG) 4.2 Strive to meet the needs of both existing and new housing developments, as well as service to medical centers and care centers, as demand arises. (ENG) (LU) 4.3 Obtain Federal and State capital and operating assistance grants to the maximum extent possible. (ENG) (CF) 4.4 Work toward providing a safe, clean, timely, affordable and comfortable mode of public transportation. (ENG) 4.5 Continue to provide the best possible transit system in the most cost- efficient manner. (TB) (CF) 4.6 Work with proper agencies to continue to receive adequate funding. (TB) (CF) 5 To meet the special transportation needs of the elderly and disabled. 5.1 Maintain the City transit systems to serve these transit submarkets, as appropriate. (DMATS) (HS) 5.2 Utilize para-transit vehicles to provide service to eligible disabled citizens of Dubuque. (TB) (HS) 6 To maintain safe and efficient utilization of the riverfront for both land and water based commercial, industrial and recreational traffic. 6.1 Coordinate the implementation of the four planning components of the Riverfront Plan with other public and private organizations. (RP) (LU) 6.2 Promote adequate harbor, channel and dock depths. (OM) (IN) 6.3 Encourage development and maintenance of riverfront facilities. (OM) (IN) 7 To provide safe and efficient airport services to the community and the region. i at•15{7o?_71%noA 7.1 Establish the Dubuque Regional Airport as the center of airline passenger activity for northeast Iowa, northwest Illinois and southwest Wisconsin. (AP) 7.2 Expand the air cargo services provided at the Dubuque Regional Airport. (AIR) (ED) 7.3 Develop portions of the Dubuque Regional Airport for industrial uses, both aviation and non -aviation related. (AP) (LU) (ED) 7.4 Promote airport zoning to control conflicts in and around airport facilities. (AIR) (LU) 7.5 Implement the Airport Master Plan, through various funding resources, as available. (AIR) (LU) (IN) (ED) 8 To support rail opportunities for both commercial/industrial and passenger service. 8.1 Develop cooperatively rail, river and trucking appropriate multi -modal access, which will promote an efficient system throughout the region. (DMATS) (ED) 8.2 Work with railroads and other private concerns to develop mutually acceptable arrangements for the locations of terminal facilities. (DMATS) (LU) (ED) 8.3 Reduce auto -train conflicts during the peak travel demand hours. (DMATS) (PUB) 8.4 Encourage the reintroduction of passenger rail service into the region. (DMATS) (ED) 9 To establish improved hike and bike routes in the city to encourage alternative modes of transportation. 9.1 Develop a comprehensive regional system of bikeways and/or multi -purpose trails which minimize conflicts between motor vehicles, bicycles and pedestrians. (DMATS) (LU) (REC) 9.2 Provide a more bicycle- and pedestrian -friendly transportation network. (DMATS) (IN) 9.3 Consider relevant bicycle and pedestrian elements in all new transportation projects. (DMATS) (IN) 9.4 Encourage development patterns more compatible with non -motorized travel. (DMATS) (LU) (IN) TRANSPORTATION EXISTING CONDITIONS/FACTS Highway/Street System Federal highways connecting the tri-state community north/south include U.S. Routes 52, 151 and 61, with U.S. 20 the main east/west link. State highways 3 and 386 on the north side of Dubuque supplement these federal highways. The city does not, however, have direct 4-lane links to the federal interstate highway system. Recent design and construction projects in the Dubuque area include: The 1991 redecking of existing two-lane Julien Dubuque Bridge (U.S. 20); completion of a four -lane U.S. 151 from Dubuque to Dickeyviile; the 1992 completion of U.S. 61/151 as 1 four -lane elevated freeway through Dubuque; improvement to a four -lane divided, limited access for U.S. 20/Dodge Street from Bluff to Devon by late 1998; Route 61 expanded to four -lane highway south to Dewitt by 1998; and expansion of U.S. 151 to four -lane from Dubuque to Madison finished in 2003. • Studies underway or planned include the expansion of U.S. 20 east as a four - lane highway connecting with Interstate 90, expansion of the Julien Dubuque Bridge to four lanes, limited access redesign of U.S. 20/Dodge Street from Devon to the western city limits, completion of the Northwest Arterial, possible realignment of U.S. 52/Central Avenue on the City's north side and a Southwest Arterial. • The 1990 long range transportation plan adopted in 1970 was amended in 1990 by the Dubuque Metropolitan Area Transportation Study (DMATS) to reaffirm the basic components of the plan, to extend it to 2008, to change the Julien Dubuque Bridge to four lanes and to propose changing U.S. 52 and IA 3 designations to the Northwest and Southwest Arterials. • The Interstate Surface Efficiency Transportation Act of 1991 (ISTEA) mandates that DMATS update its long range plan by the end of 1994. The plan update will use 1990 as the base year, and will forecast out to 2020 with several intermediate forecasts. • City streets are classified based on their function, design and traffic. State and Federal highways and the Northwest Arterial comprise the City's 15 principal arterials, which are the main routes between major land uses. Forty-five minor arterials complete the City's primary cross-town network. The City's 120 collectors serve as intermediate feeders between arterials and local streets to accommodate short trips. Local streets provide access to adjacent land, principally residential neighborhoods. • Major traffic generators in the area include downtown Dubuque, the industrial parks, John Deere, Flexsteei, FDL, the 3 colleges, the 2 hospitals, Kennedy Mall and the surrounding commercial strips, the Ice Harbor, dog track and area sports fields. Public Transit • In 1992, Iowa had 35 public transit systems; 19 urban and 16 regional (rural). DMATS provides planning and grant administration services for mass transit projects for the Cities of Dubuque and East Dubuque and the Regional Transit Authority (RTA) in Dubuque, Delaware, and Jackson Counties. • In FY '90, the Keyline bus system provided 432,074 miles of service to 598,188 passengers, and two handicapped accessible minibuses provided door- to-door services for 28,000 elderly and disabled passengers. In FY '92, Keyline eliminated 10 John Deere routes and 18 school routes as a result of a 1992 Transit Development Plan. In FY '92, the bus system operated a fleet of 26 buses on 4 fixed routes and 17 school routes Monday through Saturday, and provided 364,366 miles of service to 448,995 passengers. Minibus service in FY '92 increased, providing door-to-door services for 35,424 elderly and disabled passengers. • In 1992, the Urban Mass Transportation Administration (UMTA) was replaced by the Federal Transit Administration (FTA). The FTA requires an urban transit system to provide transportation for the disabled comparable to the regular services. In 1992, Keyline met only 3 of 6 criteria due to limited resources and federal funding cutbacks. • In 1992, a Transit Development Plan conducted for the Keyline system examined current Keyline operations, assessed mobility needs, and examined alternative system designs. Operating and financial forecasts were made for the next 5 years. A recommended plan emerged from public comments and meetings of the Keyline Transit Board and the City Council. A program of capital improvements was developed, consisting of downsizing buses and making other systems improvements, to implement the recommended plan. A new route system was developed to emphasize service to areas where ridership is greatest and to eliminate service to areas with low ridership. • In January, 1992, the City Council adopted a 5-year compliance plan for the Keyline transit system with the 1990 Americans with Disabilities Act (ADA). The goals of this plan are to provide safe, reliable and accessible mass transit to maximize mobility for the disabled citizens of the City of Dubuque, and to further the integration of disabled individuals into the mainstream of society. Railroads Six Class I, 2 Class II and 12 Class III railroads own or lease track in Iowa. The 6 Class I lines account for 7O% of the State's 4,414 miles of track. Railroads are classified by operating revenue. Class I is over $92.6 million; Class II at least $18.4 million. In 1988, 178,743,000 tons of revenue freight were carried within the State. Three railroads serve Dubuque with freight services only: Soo Line, Chicago Central and Pacific (CC&P), and Burlington Northern. The major inbound products are corn, beans, steel, appliances and scrap. Primary outbound products are beans, urea, carbon dioxide and fertilizer. The Dubuque urban area rail plan was completed in 1983. • The Soo Line (Class I) provides daily carload service north and south to Dubuque businesses: Blum Company, John Deere, FDL and Georgia Pacific. • The CC&P (Class II) serves 3 grain terminals: Cargill, Continental Grain and Peavey. It hauls grain from the west to connect with barge service on the river. It serves 13 other businesses including Captive Plastics and Jeld-Wen Fiber. It serves Chicago, Omaha and internal line cities. Ertl, Flexsteel and Georgia Pacific use the CC&P line's piggy -back ramp and switching service to the Burlington Northern. The Burlington Northern (Class I) will serve the Fischer Cold Storage building and Spahn & Rose as needed. Rails cars are switched for the Burlington Northern by the CC&P. Freezer Services in East Dubuque is a future major user as well. Rail passenger service is available through Amtrak in La Crosse, Galesburg and Chicago. Amtrak officials are unwilling to conduct a feasibility study for passenger service between Chicago and Dubuque because ILDOT does not support a study; past studies conducted by ILDOT show that such service is not cost-effective. Barge Service Iowa is the only state bordered by two navigable rivers. In 1988, Iowa's 78 river terminals moved 17.5 million tons of cargo. The major commodity was grain. Barge service in the Mississippi River follows a 9 foot channel from St. Paul to the Gulf of Mexico. Barge fleeting and service is provided at the port of Dubuque by Newt Marine Service and Wisconsin Barge Lines. The Fischer Companies leases barge fleeting space south of the railroad bridge off the 4th Street peninsula. • There are 10 river terminals in Dubuque. The navigation season lasts 10 months, but the length of the season varies with ice conditions on the Mississippi River. Grain (corn, soybeans, and wheat) is the largest single type of commodity shipped by barge in the region. Others include coal, petroleum, fertilizer, salt and cotton seed. In 1990, Dubuque saw 20,435,000 tons of commodities pass through Lock and Dam #11, the highest level in 7 years. Air Transportation • In 1991, Iowa had over 350 airports. Of the 142 open to the public, 113 were publicly owned and included in the State Aviation System Plan. Five were located in the Northeast Iowa region. The 2,500 aircraft registered in Iowa in 1989 was about the same level as 1970. Registrations peaked at 3,492 in 1980. • In 1993, the Dubuque Regional Airport provided commercial passenger service for the tri-state region through American Eagle and Northwest Airline with daily flights to Chicago, Waterloo, LaCrosse and Minneapolis. Charter air service, fixed base operations, air cargo and car rental services were available. Five private hangars, 32 T-hangars and 3 large open -bay storage facilities were located at the airport for use by locally -based general aircraft. The Federal Aviation Administration (FAA), U.S. Weather Service and University of Dubuque flight school were located at the airport. 3 • The 1,059 acre airport is City -owned property outside the City limits approximately six miles southwest of Dubuque on U.S. Route 61. Income is derived in part from leases and contracts for the terminal area, hangars, fixed base operators, rent -a -cars, farming, services and rentals, as well as FAA matching funds and a renewable passenger facility charge. • In FY '92, an extensive terminal remodeling and parking lot reconstruction program was completed. In FY '93, updating of the 1985 Airport Master Plan and a publicly -run FBO were initiated by the Airport Commission. • Both runways at the airport are concrete with asphalt overlay and 150 feet wide. Runway 13-31 is 6,498 feet and runway 18-36 is 4,902 feet. The airport can handle a Boeing 727, with a seating capacity of 160 passengers. • Airport operations include the maintenance of runways and taxiways, security for certified air carriers, aircraft rescue and fire fighting capabilities, weed and grass control, snow and ice removal, and supervision of short- and long-term parking for commercial, charter and general aviation. • Between June, 1988 and December, 1991, the Dubuque Regional Airport was not operationally available approximately 3.0% of the time due to weather related conditions. Other Iowa airports typically are closed operationally 2-3% of the time. The instrument approach for runway 31 currently is waived by FAA from a standard 50:1 slope to a 34:1 slope to accommodate existing obstructions and conditions. • Over the last 15 years, the Dubuque airport has suffered a steady decline in air freight. The pounds of air freight have declined from a 1974 high of 1,125,429 to 24,274 in 1988 and has remained low throughout the 90's. This is due, in part, to the decreased cargo capacity of the current airline services relative to the large cargo\increased tonnage capacity of prior airlines. • Enplanements, or the number of airline passengers, declined from 40,024 in 1978 to 17,008 in 1982, but have been greater every year since then, reaching 42,898 in 1992. • Single -engine and multi -engine aircraft based at the Dubuque Regional Airport reached a high of 77 in 1983 and 1984, but declined to 36 in 1989. By 1993, 68 such aircraft were based at the airport. TRANSPORTATION CRITICAL ISSUES/TRENDS Highway/Street System • Dubuque is one of the last metropolitan areas in the nation to not have a direct connection to an interstate highway. This situation is changing, as U.S. 20 is built to expressway standards from Delaware County to the City limits, and U.S. 61 will be constructed to meet these standards south to Dewitt and Interstate 80. Major land use constraints and natural barriers influencing transportation planning include the Mississippi River, hilly terrain, railroads, flood plains, major utility lines, existing development, and competition for federal, state and local funds. These barriers affect feasibility, cost of construction and location of roadway facilities. Phase IV of the Northwest Arterial, of which about 72% is outside the Dubuque city limits, is expected to be completed as a state highway by IDOT in accordance with a primary extension agreement between DMATS and IDOT approved in 1993. One of the major changes resulting from ISTEA, a 6-year reauthorization bill, is the replacement of Federal Aid to Urban Systems (FAUS) funds with Surface Transportation Program (STP) annual funding allotments. The STP funds in Iowa have been allotted on a per capita basis (like the former FAUS funds were) in the first 2 years; however, IDOT is expected to distribute STP funds in a more flexible manner through increased regional decision making in the last 4 years. • ISTEA legislation has initiated a "transportation enhancement" program that allocates money to mitigate transportation impacts through enhancements including landscaping, historic preservation, trail development and billboard removal. Both planning and implementation/ construction projects can be funded with ISTEA monies, expanding the opportunities for communities to enhance transportation projects and corridors. Barge Service • The 1984 DMATS barge fleeting study of the Dubuque area recommended that: 1) all fleeting sites identified and in use are needed; 2) additional fleeting sites will be needed for potential economic growth; and 3) management of the fleeting sites in the Dubuque pool area is needed. Attempts to designate a barge fleeting management agency have been unsuccessful. • The 1987 Refuge Master Plan completed by the U.S. Fish and Wildlife Service identified barge fleeting and commercial navigation as having major impacts on wildlife populations and habitats in the Upper Mississippi National Refuge. The plan determined that existing barge fleeting on refuge lands must be eliminated by not issuing fleeting permits or by land exchange. 5 • The Refuge Plan would exchange 7,000 linear feet involving about 16 acres on the edge of two islands near East Dubuque for approximately 500 acres in Wisconsin and Minnesota. Fleeting on the upper site, near the Julien Dubuque Bridge, negatively impacts the aesthetic quality of the area, results in noise and light pollution at night and lessens opportunities for nearby recreational access along this stretch of the river. Public Transit • Keyline faces declining ridership, fare box revenues, and Federal Transportation Administration (FTA) funds. At the same time, the 1990 ADA Act mandates supplemental para-transit service, lift -equipped buses and other items that will increase transit expenditures. If municipal funding in excess of the current 54-cent transit tax is not forthcoming, Keyline will likely continue to restructure and downsize the bus system in response to funding limitations. The period from 1992-1997 will be a period of change for Keyline, as the primary mission of the transit system shifts to service for those persons who are transit -dependent (i.e., unable to drive or don't own a car). Due to the uncertainty of future forecasts and the need to be flexible to respond to changing conditions, the bus system performance and other City transit programs should be monitored during this period. Transportation alternatives and parking reduction can be linked to encourage transit use and ride sharing. Options include employer -sponsored ride sharing, transit pass subsidies, and employee busing. Promotion of ridership through Keyline's marketing program begun in 1992 is intended to slow the steady drop in patronage. The planned office, commercial and residential developments in the Northwest Arterial Corridor may increase the opportunity and need for mass transit to the City's west side. Railroads • Amtrak will not study restoration of Dubuque to Chicago service until both IDOT and ILDOT support this feasibility study. State and federal subsidies will be needed for Amtrak service to Dubuque. DMATS remains on record in support of a study for Amtrak service between Chicago and Dubuque, particularly since the advent of riverboat gambling on both the Iowa and Illinois sides of the Mississippi River along U. S. 20. Air Transportation • The Dubuque Regional Airport is a self-contained facility operating much like a small city. Issues of concern include transportation, land use, infrastructure, public safety, fiscal management, economic development and environmental quality. • Airport funding by the FAA is tied directly to passenger counts. An intense marketing effort by the Dubuque airport called "Fly Dubuque" is combating passenger leakage to other nearby airports and helping to expand and support 6 the regional market. Jet service is possible as soon as passenger numbers increase to warrant it. Establishment of the Dubuque Regional Airport as the center of airline passenger activity for the tri-state area will maximize passenger enplanement potential for the service area. Demand for industrial sites could be met at the airport by developing portions of the airport for industrial uses, both aviation and non -aviation related, expanding the airport's role into air cargo and expanding general aviation, a major airport user. Related to creation of an industrial park is the airport's access to the future 4-lane expansion of U.S. 61. Current operations and future development of the airport are affected by obstructions to aircraft flight paths, noise patterns generated by aircraft using the airport, surrounding land uses and county zoning. The master plan will address aircraft types and operational levels which then may be used to develop noise contours for identifying compatible land uses and to avoid limiting airport potential due to structure heights. 7 NeACTZLICTIAZE INFRASTRUCTURE GOALS must address the maintenance, improvement and capacities of aging utility and street systems while continuing to provide extensions and expansions of these systems to meet changing community needs. "New" forms of infrastructure, including communication and data and information processing systems, have become an important aspect of our community's life and livelihood. The pace and extent of the city's growth and development pattern will impact the timing and demand for infrastructure provision. Public expenditures for infrastructure can shape the city's land use pattern as effectively as development regulations. The phasing of new and extended infrastructure must be based on both the fiscal capability of the City and sound land use decisions made in an integrated management process. 1 To provide, maintain and improve a cost-effective, functional and self- supporting water utility system. 1.1 Ensure an adequate water supply. (WD) (EQ) 1.2 Ensure cost-effective delivery of water. (WD) 1.3 Ensure a safe water supply that meets all local, state and federal water quality standards. (WD) 2 To provide, maintain and improve [a] cost-effective, functional and self-supporting sanitary sewer and water pollution control systems. 2.1 Maintain the integrity of the sanitary sewer system. (ENG, OM) 2.2 Operate the Water Pollution Control Plant (WPCP) and sanitary sewer system efficiently. (WPC, OM) 2.3 Minimize odors emanating from the Water Pollution Control Plant (WPCP). (WPC) (EQ) 2.4 Meet all local, state and federal air and water quality standards. (WPC) (EQ) 3 To provide, maintain and improve a safe and functional storm sewer system. 3.1 Maintain the integrity of the storm sewer system. (ENG, OM) 3.2 Maximize the capabilities of the City's retention basins. (WPC, OM) 3.3 Meet all local, state and federal standards for stormwater discharge. (ENG, OM) 3.4 Identify existing and potential run-off problem areas, and alleviate with appropriate mitigation strategies, where possible. (WPC) rzucrurr.E 4 To provide, maintain and improve a cost-effective, safe and functional surface transportation system [of streets, bridges, lights and signals.] 4.1 Continue the ongoing street construction program, ensuring the timely maintenance, repair and reconstruction of the City's streets and bridges. (ENG) (TRN) 4.2 Identify new technologies, new materials and new concepts for street maintenance, restoration and reconstruction. (ENG) (TRN) 4.3 Seek alternative funding sources for construction and maintenance. (ENG) (TRN) (CF) 4.4 Maintain City alleys, guardrails, street lights, traffic control lights, street pavement markings, traffic signs, street name signs, walls and other related facilities. (OM) (TRN) 4.5 Extend the life and improve the quality of the City street system through preventative maintenance programs. (OM) (TRN) 5 To provide for, maintain and improve safe, accessible public sidewalks and steps throughout the community, where possible. 5.1 Maintain and improve the condition of public sidewalks, steps, walks and handrails. (ENG) 5.2 Ensure reasonable removal of snow and ice accumulations from public sidewalks, steps and walks. (ENG) 6 To provide, maintain and improve an accessible, functional and self- supporting parking system. 6.1 Provide, maintain and improve a parking system designed to meet the needs of the patrons of downtown business and retail establishments and downtown employees. (PS) 6.2 Ensure the financial integrity of the parking system by meeting bond covenants that require the parking system to be self-supporting and by continuing sound fiscal management practices. (PS) (CF) 6.3 Meet the requirements of federal and state laws regulating public handicapped designated parking stalls. (PS) 6.4 Promote and practice preventative maintenance programs to protect the longevity of the parking garage structures. (PS) 6.5 Maintain and improve the aesthetic qualities of the parking system's facilities. (PS) (LU) 7 To provide, maintain and improve the floodwall, harbors and boat ramps for industrial, commercial and recreational use of the riverfront. t' f 5t12u CTU f1- 7.1 Coordinate the implementation of the Public Infrastructure planning component of the Riverfront Plan with other public and private organizations. (RP) (REC) (TRN) (ED) (LU) 7.2 Provide aesthetically attractive waterfront areas. (OM) (LU) 7.3 Encourage the development and maintenance of riverfront facilities. (OM) (TRN) 7.4 Operate and maintain the floodwall facility. (OM) 7.5 Promote adequate harbor, channel and dock depths. (OM) (TRN) 8 To provide, maintain and improve an accessible and functional communication infrastructure. 8.1 Promote compatibility and connection of Dubuque's communication infrastructure to key state, regional, national and global networks and systems. (CTV) 8.2 Promote fair treatment of citizens by telecommunications service providers. (CTV) 8.3 Determine Dubuque's communication infrastructure needs relevant to renewal of the Cable TV franchise. (CTV) 8.4 Continue to promote maximum use of public, educational and government access programming to increase citizen awareness. (CTV) 8.5 Promote reasonable transmission capacity on new communication systems that is dedicated to non-commercial government, education and public interest uses. (CTV) 8.6 Promote equitable access to essential levels of communication systems, services and opportunities by under -served segments of the community. (CTV) 9 To provide, maintain and improve a cost-effective and functional data and information processing system. 9.1 Utilize methods of systems implementation that make the best use of the City's resources for the systems that are implemented. (IS) 9.2 Establish standards for the City organization for definition and articulation of system needs, for acquisition, development and performance of information systems, and for description, documentation and caretaking responsibilities of such systems. (IS) 9.3 Encourage the use of data processing technology and advances to improve service delivery and increase employee productivity within the City organization. (IS) (CF) 10 To provide, maintain and improve City -owned buildings, structures, facilities and properties. 10.1 Maintain and improve the energy efficiency and aesthetic qualities of City -owned buildings, structures, facilities and properties. (LU) 10.2 Assure accessibility to City -owned buildings, structures, facilities and properties. (LU) 10.3 Utilize principles of good design and/or historic preservation in all public projects. (LU) 11 To plan for, build or improve infrastructure systems to meet anticipated growth and development needs. 11.1 Ensure future infrastructure capacity will exist for future identified growth areas. (WPC) (LU) (ED) 11.2 Ensure that City utility rate structures are both adequate to meet obligations and future needs and are equitable for services received by residential, commercial and industrial users. (WPC) (CF) 11.3 Investigate usefulness of technological advances to optimize services. (WPC) (CF) 11.4 Plan for orderly replacement and upgrade of public and private communication infrastructure with attention to features, capacity, compatibility and future growth. (CTV) (LU) 11.5 Consider opportunities for buried public and private communication infrastructure during planning for street, water and sewer construction projects. (CTV) (LU) 11.6 Work with the Iowa Department of Transportation (IDOT) and the Dubuque Metropolitan Area Transportation Study (DMATS) on the timely development of new highway and arterial street systems to provide growth potential for the future. (ENG) (LU) (TRN) (ED) 11.7 Provide sanitary sewer and water main extensions within the city in a timely manner, when economically feasible. (ENG) (LU) (ED) 11.8 Evaluate periodically the water systems storage and hydraulics to ensure ability to serve future growth demands. (WD) (LU) (ED) 11.9 Provide a "looped" water distribution system, where practical. (WD) 11.10 Continue to encourage and enhance downtown development by striving to meet current parking needs and providing expansion programs that are cost-effective and innovative. (PS) (LU) (ED) (CF) 11.11 Monitor and coordinate appropriate implementation of gas and electric delivery systems. (LRPC) (LU) (ED) INFRASTRUCTURE EXISTING CONDITIONS/FACTS Utilities • The City's water plant has a treatment capacity of 20 million gallons daily. The plant's raw (untreated) water supply comes from 5 shallow wells and 4 deep wells. The water plant operates 24 hours a day. • The City's water distribution system is comprised of approximately 235 miles of cast iron and ductile iron pipe that varies in diameter from 4 to 30 inches, with 4,654 control valves and 1,865 hydrants. This system also includes meter maintenance and replacement. • The City operates three pressure systems or zones: low, intermediate and high (referring to elevation, not pressure), with 95% of all water usage divided almost equally between the high (west end and hill areas) and low (downtown and north end areas) zones, while 5% is delivered by the intermediate (Eagle Point) system. The City maintains five above ground water storage tanks that vary in capacity from 0.5 to 2.4 million gallons and one 7.5 million gallon below ground tank. The 6 remote storage tanks provide a system reserve of 15 million gallons, or about a two day water supply. Four of the five above ground tanks serve the hill and west end areas. The below ground tank has recently been fitted with a new concrete cap. Tanks are sandblasted, repaired, primed and painted over a 15 to 20 year cycle as necessary. Completion of the maintenance cycle of all water tanks is slated for 1993. Water mains are "stubbed" under the Northwest Arterial at Asbury Road and Pennsylvania Ave. and plans call for an additional line to be laid under the Arterial at U.S. Highway 20. This is a preemptive effort to accommodate future growth on the city's west end and Dubuque Industrial Center areas. The City sanitary sewer system is comprised of approximately 126 miles of pipe and 1,920 manholes. Pipe composition is either plastic, clay tile, ductile iron or concrete wound and varies in diameter from 6 to 48 inches. The City maintains seven lift stations in conjunction with the sanitary sewer system. Infiltration problems on the city's west end tend to raise waste water levels during peak rainwater runoff periods. • The City's water pollution control plant has a capacity of 15 million gallons daily. Although the plant runs 24 hours a day, it operates at approximately 50% capacity. Much of the facility is approaching life expectancy and is scheduled for renovation in 1993-1995. • The City maintains over 130 miles of storm sewers with 4,240 catch basins and more than 1,200 manholes. Pipe composition is either clay tile, brick, ductile iron or concrete and varies in diameter from 6 to 60 inches. • There are an estimated 50 private wells and 300 private septic systems in the city, which are monitored by the City's Housing Services Department and Health Services Division. Streets and Bridges • The city has 335.67 miles of streets and alleys and over 2,700,000 lineal feet of curb and gutter. The municipal street system comprises: Arterial streets 29.6 mi. Collector streets 32.6 mi. Local streets 240.6 mi. Park roads 3 7 mi. Commercial alleys 7 7 mi. Residential alleys 21.4 mi. • The upgrading and realignment of Highways 61/151 from the Grandview Ave. overpass on the city's south side to the Dubuque/Wisconsin bridge is slated for completion in 1993. • The realignment of U.S. Highway 20 from Bluff St. to Devon Dr. is scheduled to begin in 1994 and be completed in 1996. This project is extensive and will include the construction of overpasses at Bryant/Hill Sts., Grandview Ave. and Fremont Ave. and lowering of the roadbed by as much as 30 feet. • Preliminary studies of traffic flow along the Central Ave. corridor from 4th St. to 32nd St. indicate that congestion problems may be alleviated without realignment; however, intersections at 22nd and 32nd Sts. would have to be expanded. • The Public Works Department identifies those streets that are in disrepair and most costly to maintain in an effort to prioritize street projects. Traffic volume and citizen complaints also influence the prioritization process. Citizens may also petition to have their street repaired. An annual street construction program is submitted to the State of Iowa. • A comprehensive traffic analysis is planned after completion of the freeway improvements to identify the impacts on the traffic patterns in the downtown and surrounding areas and to recommend actions in response to new needs. Steps and Sidewalks • The City maintains an extensive network of steps that connect the downtown with the hill area. Since 1981, several sets of steps have either been demolished, vacated or closed. Others have been renovated. Of the sixteen sets that remain, eleven are in fair to very good condition and five are in poor to bad condition. • There are approximately 235 miles of city owned/maintained sidewalks. The Parks, Parking, Streets and Water Divisions are responsible for maintaining their own sidewalks. • In 1988, the City implemented a comprehensive, systematic city-wide sidewalk inspection program. The program's goal is to inspect all of the 300 plus miles of privately maintained sidewalks within the city and identify those in need of repair. The abutting property owners are then responsible for repair work. Parking Facilities • The City's parking system has been developed to meet the needs of the patrons and employees of downtown businesses and retail stores, as well as residents living in downtown. The parking system encompasses an area bordered by First and Jones, Eighteenth and Central, White and Bluff. • In 1993, the parking system had 1,430 metered street spaces. The metered street parking system was designed to accommodate long-term parking in the perimeter area with 10 hour meters, serve retail and business patrons with 1 and 2 hour metered stalls and promote turnover parking with 20 minute meters. • The City maintains 3 parking ramps with a total of 1,429 parking spaces. The Locust Street parking garage has 440 parking stalls--242 stalls dedicated for monthly customers, 198 stalls available to the public daily. The Iowa Street parking garage has 401 of its 613 stalls reserved for monthly patrons, with 212 spaces open for daily customers. The Fifth Street ramp, constructed to answer the need for monthly parking, has 330 of its 376 stalls rented to downtown employees. • In 1993, the City's 10 surface parking lots provided a total of 693 spaces, with 356 long-term parking stalls and 337 reserved spaces for patrons needing 4 hours or more of parking. • The parking system is required by bond covenant to be self-sufficient; no tax dollars are used to support the system. Operating costs, depreciation, principal and interest payments, and capital improvements are sustained by revenues collected within the system. The downtown business community assisted the City in seeking public support to build the 3 parking ramps to enhance the parking system. Riverfront • Dubuque is protected from flooding conditions of the Mississippi River by a 6.25 mile floodwall facility, fifteen storm sewer closures, nine 16 foot gates and four 4 foot gates. Floodwall gates are closed beginning at a river stage of 13 feet through 20 feet, when all gates are closed. Pumping stations are staffed by the Public Works Department when the respective gates are closed. Periodic inspections and repairs are made to the floodwall by the City in coordination with the U. S. Corps of Engineers. • The City is responsible for the lighting, sweeping, snow clearance and other miscellaneous maintenance of 2 parking lots in the Ice Harbor area, as well as for removal of silt and debris from around the 16th St. detention basin. The City controls 5.5 miles of property and 20 leases along the riverfront. The Public Works Department is responsible for maintenance and improvement of 2 municipal boat ramps and aesthetic characteristics of the floodwall facilities. Adequate harbor and dock depth are maintained by the City through sounding and dredging. Street and Traffic Lighting • The City maintains a traffic signal system consisting of 90 traffic signal installations, with 74 signalized intersections along arterial routes. Only 28 are actuated by traffic -actuated controllers. • City street lighting consists of several system types with over 3,000 fixtures. Ownership and maintenance responsibility are divided between the City and Interstate Power Co. IPC owns approximately 2350 street lights and the City owns approximately 880. Communications • Dubuque has had cable television since 1953. With approximately 20,000 subscriber households in 1991, Dubuque's 93% penetration rate is among the highest in the nation due to local terrain. The national average is 60%. • The City's Cable TV Division administers the 20-year cable TV franchise agreement awarded to Teleprompter in 1981. That company was acquired by TCI Cablevision in 1987. Through two appointed commissions, the Cable TV Division monitors the terms of the franchise as well as encouraging and developing public use of the community access FM 101.3 radio frequency (cable direct only) and television cable channel 8. The Division also produces governmental programming and weekly messages about meetings, job openings, deadlines, regulations, special events and schedules. • In 1993, TCI Cablevision offered premium pay channels and a basic pay package on 65 channels. Within the basic package, channels are reserved for local government, local educational programs, public access and local origination for TCI itself. Data and Information Processing • The City's mainframe computer purchased in 1988 has 24 megabytes of random access memory and over 1.5 gigabytes of disk storage. All mainframe software is written in-house by the Information Services Division, which also provides leadership in the development, maintenance and support of mainframe applications. Mainframe applications include utility billing, accounts payable, general ledger, budget, parking violations, payroll/personnel, equipment maintenance and accounts receivable/licensing. • The clerical local area network installed in 1989 includes 20 IBM-compatible workstations, both diskless and with hard disks, having limited "dial in" capabilities. All use word processing and office software. The network also supports an ambulance billing program in the Finance Division. Hardware and systems support is provided by Information Services staff. • Throughout the City, there are 50 personal computers that are stand-alone systems that are not networked. Nearly all are IBM-compatible. Most are used for word processing and spreadsheets. Some are for specialized processing such as recreation scheduling, desktop publishing or hazardous material inquiry. Information Services provides training, support, hardware installation and repair, and assistance writing needs specifications for new applications. INFRASTRUCTURE CRITICAL ISSUES/TRENDS Utilities With the water pollution control plant operating at about 50% capacity, the City is studying ways to downsize the operation and increase efficiency. The water pollution control plant disposes of sludge in a manner that meets all state and federal requirements through the use of a fluidized bed incinerator. New federal environmental regulations will require the expenditure of over $400,000 in capital improvements to this facility. The City water pollution control plant is being continually upgraded and retrofitted. These efforts may increase its life expectancy an additional 20 years; however, increasingly stringent federal regulations will likely require additional improvements in upcoming years. Much of the sanitary sewer system was installed in the early to mid 1900's and is reaching maturity. Pipe failure may become more frequent. New methods of lining pre-existing pipe are being explored but can prove costly. Some areas west of the Northwest Arterial may require additional lift stations to join new development with the existing sanitary sewer system. A recent commercial development in the area was required to provide and maintain its own lift facility. Much of the City storm sewer system is very old and in disrepair. Some pipe is beyond repair. Due to this, the frequency of storm sewer failure may increase. Lining storm sewer pipe is an alternative to replacement, but is costly and not always possible. Funding for study of the west end infiltration/inflow problem (storm sewer entering sanitary sewers) has been allocated and engineers are confident this problem can be solved. Streets and Bridges Street assessments, elevated by increasing maintenance and construction costs, may be placing a disproportionate burden on low/moderate income neighborhoods. • The high moisture content of the native clay in the Dubuque area can create street construction problems and can add to development delays and costs. Steps and Sidewalks • While the City plans to repair the upper portion of the public steps off W. 3rd Street, there are currently no plans to repair or renovate any other public steps. Some may even need to be closed to reduce liability. • The terrain and existing configuration of steps and sidewalks provide a challenge in meeting the Americans with Disabilities Act requirements for accessibility in Dubuque. Parking Facilities • Continually changing parking patterns and an increase of high density office development in the metered downtown area has heightened demand for parking. Business and office related parking is beginning to encroach into downtown residential areas. • The expansion of existing parking facilities and/or the construction of additional parking facilities must be studied thoroughly and a cost -benefit analysis completed prior to any commitment by the City. The $8,500 to 10,000 cost per parking ramp stall (completed at 1993 prices) must be analyzed completely before future dollars are encumbered. The high density office development in the downtown metered area and the intrusion of parking into perimeter residential areas add impetus to the necessity and possibility of considering alternatives such as shuttle "perimeter" employee parking lots and "restricted" employee parking regulations. • Future plans of Main Street businesses and the potential loss of 160 to 200 surface lot stalls, if parking lots are sold to developers, must be contemplated. In addition, plans must take into account accessibility for disabled persons for compliance with federal and state dictates. • Parking rates must be reviewed as the cost -of -living scale changes. Affordable, economical parking must be available to the "captive" downtown employee. Conversely, the City parking system must earn its own way. Riverfront Future development and access along the riverfront may place an additional burden on existing infrastructure (boat ramps/docks, parking areas, park facilities, etc.) that is currently operating at capacity during peak use. Communications Rapidly changing electronic communication technologies and hardware make planning difficult for future communication infrastructure and support systems. Key developments in communication technology, most notably fiber optic digital networks and personalized wireless communication systems, will have great impact on the City's role as planner, developer, regulator and end -user of such technologies. The community should consider what is the proper balance between free enterprise and government regulation of communication industries, and decide what portions of communication systems, if any, should be publicly owned and controlled. Growth and development should be fostered, competition encouraged and freedom of speech allowed to flourish, yet certain public interests and consumer protection elements must be assured as well. In the near future, the distinction between cable TV systems and telephone systems will have blurred considerably. Likewise, the merging of previously separate video, voice and computer technologies into a single electronic phenomenon using hybrid consumer devices will occur in the future. The City must take in account the future merger of these now separate systems delivering different services and consider to what extent communication systems should be considered "local" versus "national" or "international", for coordinated planning, use and regulation. The current cable TV franchise agreement with TCI Cablevision expires in 2001. Under current law, negotiations for whatever is to succeed that agreement will begin in 1997. The community should begin now to determine what the City ought to include in those negotiations, and perhaps reserve physical space or radio frequency for future government communication even if no present application exists. • In the short term, Dubuque should plan for connection and use of the new Iowa Communication Network, whose initial phase is due to arrive in 1993. In the long term, leadership is needed to monitor and assure that Dubuque's work force is ready for new communication developments that require specialized skills to keep business and industry relevant. • Underground conduits and raceways, particularly in the downtown area, are tightly packed. Dubuque's lead -lined bluffs pose a problem for land -based wireless communication systems. Planning for new buildings, streets, etc. should include communication systems' use of easements and rights of way in underground versus overhead installations, given limited physical space, aesthetic and public safety considerations. Dubuque must work to minimize the factors of isolating terrain to accommodate new wireless systems. • A communication related sociological phenomenon is the equitable access to information and communication tools and skills by all citizens to function in our local, yet global, society. New social classes may develop, differentiated by the "information haves" and the "information have-nots" and by the increasing costs of maintaining one's access to basic television, telephone, computer and related services to remain "in the loop" of the community. These factors could be considered as a basic material need, similar to shelter, sanitation, public safety and education. Data and Information Processing • Information, rather than data, is needed faster and from a variety of sources. Technology itself will not solve the problem or answer the questions of City government but may be facilitated through downsizing. City systems need to be updated to meet City and citizen needs, moving from one -vendor automation to a more open systems processing. Information Services staff will move from a programming role to a consultative resource. • The operation of the current City mainframe system is sporadic and a major effort is needed to upgrade hardware and software. Each additional terminal degrades the system, connection of personal computers is expensive and many existing applications are out -dated, lack features and are time-consuming to support. It has become more cost-effective to use packaged software from third -party vendors. Following completion of the downsizing of the mainframe systems in late 1993, Geographic Information Systems (GIS) development is scheduled. The City plans to begin with base map information from Dubuque County, and then add attribute and overlay information. The City's clerical local area network also is planned for connection to new communication networks and access to centralized data bases. The City's stand-alone personal computers may become ill -maintained and lack coordination. An inventory and audit of these computers, and connection to City networks, will clarify the uses and potential for these computers. ENVIRONMENTAL QUALITY GOALS must address the balance between responsible stewardship and protection of our environment and the impacts of urban living. And while there is growing public awareness that personal health and safety can be directly effected by the livability and sustainability of our immediate environment, it must also be understood that a community can both effect and be effected by regional and even global environmental issues. Dubuque's natural and built environments establish the city's appearance and image as a healthy, safe and viable place to live, work and play. 1 To create a sustainable environment that successfully balances urban growth and development with ecological constraints. 1.1 Give priority to expansion and recruitment of environmentally conscious businesses. (ESC) (ED) 1.2 Maintain and plan for open/green space as development and public improvements occur. (ESC) (LU) 1.3 Promote linkages or connections of open/green spaces. (ESC) 1.4 Coordinate the implementation of the Environment Planning component of the Riverfront Plan with other public and private organizations. (RP) (REC) 2 To promote conservation practices that result in responsible use of non- renewable natural resources. 2.1 Consider the potential for agricultural land preservation and/or production in any actions relative to land use. (ESC, LRPC) (LU) 2.2 Facilitate the development of solar and wind use energies. (ESC) (ED) 2.3 Promote awareness and use of alternate, renewable resources. (ESC) 2.4 Encourage weatherization and energy conservation measures in building construction/remodeling. (ESC) (HOUS) 2.5 Promote programs to improve energy efficiency. (HC) (HOUS) 3 To educate citizens about environmental issues affecting their lives and their community. 3.1 Identify and develop environmental indicators. (ESC) 3.2 Develop ongoing environmental education programs for citizens of all ages, building on the community's natural resources. (ESC) (EDU) 3.3 Educate the community on the human health effects of environmental issues and problems. (HE) (HLTH) cNVt204MENT►'-kL Q U Pit-ON7 4 To protect and preserve existing water supplies and air quality and ensure that future water and air quality is safeguarded. 4.1 Identify and develop potential controlling measures to safeguard water and air quality. (ESC) (IN) 4.2 Identify and evaluate potential water supplies and water storage measures. (ESC) (IN) 4.3 Promote the enforcement of regulations relative to protecting and preserving existing water and air quality. (PUB) 4.4 Ensure all new development meets the applicable standards for water and air quality controls. (ESC) (LU) 4.5 Consider alternatives to incineration of wastewater sludge; e.g. more beneficial use. (ESC) (IN) 4.6 Protect, control and maintain the water distribution system to preserve water quality and meet state and federal mandates. (WD) (IN) 4.7 Assure ground water protection and adequate water quality of our streams and rivers. (HE) (HLTH) 5 To assure [coordinate] proper control, collection and disposal of stormwater, wastewater, solid wastes and household hazardous wastes. 5.1 Promote reduction and proper disposal of household hazardous waste. (ESC) 5.2 Promote reduction and proper disposal of solid waste. (ESC) 5.3 Assure a safe and sanitary environment along the city's streets, alleys and other properties. (OM) 5.4 Provide a sanitary environment through the safe collection and disposal of stormwater and wastewater. (OM) 5.5 Provide a sanitary environment through the proper collection and disposal of solid wastes in accordance with environmental and aesthetic standards. (OM) 5.6 Prevent toxic waste discharge into the wastewater treatment system and/or the environment. (WPCP) 5.7 Operate the landfill and yard waste compost site in conformance with state and federal environmental and health regulations. (OM) 6 To promote residential and business recycling efforts that reduce, reuse and recycle the community's waste stream. 6.1 Continue and expand recycling efforts. (ESC) t1•1V1 2-otlMENTNL 6.2 Promote use of recycled products and biodegradable waste/disposal. (ESC) 6.3 Encourage composting options. (ESC) 6.4 Educate the community concerning recycling and other solid waste reduction methods. (OM) 7 To promote the protection, preservation and enhancement of the city's bluffs, wetlands and waterways. 7.1 Identify and protect areas of rare, native and sensitive habitat (including prairies and woodlands) with concern to the evolving understanding of management techniques. (ESC) (LU) 7.2 Encourage environmentally appropriate public use of, and access to, the community's bluffs, wetlands and waterways. (ESC) (LU) 7.3 Enhance protection and restoration of these sensitive areas as development and redevelopment occurs, including along the riverfront. (ESC) (LU) 7.4 Provide an aesthetically attractive city riverfront for use by industrial, recreational, residential and commercial interests. (OM) (IN) (LU) (ED) 8 To promote community clean-up and beautification efforts with other public and private interests. 8.1 Encourage clean-up/beautification for the public, private and business sectors. (ESC) 8.2 Encourage plantings of native species conducive to urban native wildlife. (ESC) 9 To meet the mandates of all Federal, State and local laws regulating environmental quality in an expeditious manner. 9.1 Gain knowledge of and promote compliance with mandates. (HE) 9.2 Evaluate current and alternative local measures for monitoring and enforcement of mandates/compliance. (ESC) 9.3 Encourage the environmentally conscious purchase, use and disposal of hazardous chemicals. (ENG) ENVIRONMENTAL QUALITY EXISTING CONDITIONS/FACTS Solid Waste • The Dubuque Metropolitan Landfill is overseen by the Dubuque Metropolitan Area Solid Waste Agency (DMASWA), which consists of a three member board of directors: two members of the Dubuque City Council and one member from the Dubuque County Board of Supervisors. DMASWA was created in 1975 through a 28-E agreement between municipalities for a shared service, landfill ing. This agreement is binding until all bonds are paid. It is anticipated that the final bond payment for the landfill will be made in 1994. • The landfill consists of 214 acres of which 103 acres will be used for solid waste fill. It receives an estimated 122 tons of waste per day from the city of Dubuque or 38,000 tons per year (312 working days). The operation costs involved with the landfill are covered entirely by tipping fees. • The source of waste received by the landfill is approximately 39% residential, 45% industrial/commercial, and 16% construction/demolition. • The life expectancy of the landfill is 29 years. The landfill will be full by the year 2021 if the tonnage of waste received per day remains constant. New sites will not be examined until about 2011, which is ten years before the current site will be full. • In 1990, an Integrated Solid Waste Management Plan was prepared for DMASWA. This study was conducted as Part I of the Solid Waste Comprehensive Plan to establish solid waste disposal options. The list of options proposed were: 1) Waste Reduction 2) Yard Waste Reduction 3) Mixed Solid Waste Composting 4) Recycling 5) Waste to Energy 6) Incineration 7) Landfilling • The landfill reduces the waste received by having households separate yard waste, which is composted, and appliances and tires, which are recycled. The City of Dubuque initiated curbside collection of paper, plastic, metals and glass in April, 1992. Magazines were included in the curbside program in June of 1993. • Several private businesses in the city of Dubuque provide recycling services for glass, tin, plastic, aluminum cans, corrugated cardboard and batteries. • There are two other landfills located within ten miles of Dubuque: John Deere Dubuque Works operates a private 35 acre landfill north of Dubuque and Tschiggfrie Excavating Inc. operates a 14 acre construction and demolition landfill to the south of the city. Toxic/Hazardous Waste • Currently, the landfill funds toxic/hazardous waste "clean up days" which occur approximately every other year. In October, 1991, the DMASWA sponsored a Toxic Cleanup Day which served 195 households by properly disposing of household hazardous waste through a licensed contractor. The operation received 1,400 gallons of paint, 550 gallons of waste oil, 89 lead -acid batteries, and 32 pounds of household batteries. The total cost of disposal was $73,500. Future "clean up days" may be funded by an increase in the tipping cost for solid waste at the landfill. Businesses and industries within Dubuque must dispose of their own toxic/hazardous waste to the proper agencies. The Iowa Waste Reduction Center, University of Northern Iowa, provides free and confidential answers to businesses and industries about disposal of toxic/hazardous waste. In 1992, the EPA had identified 11 toxic/hazardous waste sites within the city of Dubuque which have either been or will be remediated. Additional sites may still be added to the list. As of June 1993, the Iowa Department of Natural Resources (DNR) listed 69 leaking underground fuel storage tanks within the city of Dubuque. In the event of a toxic/hazardous waste spill in the city, the City Fire Department's Hazmat Team will perform three steps: 1) identify the spill and the substance; 2) isolate the substance and the area; and 3) inform the proper agencies for clean up. A fourth step, which the Fire Department is working on incorporating into their procedures, would allow the department to stop the spill. The costs associated with the spill are charged to the responsible individual or business. The State Attorney General's Office assists communities in the enforcement and prosecution of cases dealing with toxic/hazardous substances. Water Dubuque receives high quality water from 4 deep and 5 shallow wells which are recharged by the Dresbach aquifer, not the Mississippi River. This is somewhat unique because most cities along large rivers receive their water from wells which are recharged by the river. The average daily water demand for the city of Dubuque in 1990 was 7.8 million gallons (MGD) or 135.5 gallons per person per day (1990 population 57,546). The national average is 168 gallons per person. The yearly water demand was 2,847 million gallons (these figures include industrial and commercial uses). The City's Water Plant has the design treatment capacity of 20 million gallons per day with 6 remote storage tanks. These storage tanks provide a system reserve capacity of 15 million gallons, or a 2 day supply. City water usage in 1989 was 54% residential, 38% industrial/commercial, 3% public and 5% miscellaneous. The Dubuque Water Plant employs a lime softening process, along with filtration, chlorination and fluoridation to achieve water quality which meets or exceeds all federal and state requirements. • The quality and safety of Dubuque water is ensured by a monitoring program which includes testing by the Water Division employees and regular sample submittal to the University of Iowa Hygienic Laboratory. • There are an estimated 50 private wells and 300 septic systems in the city, which are monitored by the Housing Services Department and the Health Services Division. • The Dubuque Water Pollution Control Plant was constructed in 1970 and was expanded in 1976 to meet a secondary treatment requirements. It treats an average flow of 9 million gallons per day, with a capacity to treat 25 million gallons per day. • The Water Pollution Control Plant employs a pure oxygen, activated sludge treatment process. • In 1986, the Kerper Wetland Mitigation Plan was prepared to negotiate the filling of wetlands between 19th Street and Fengler Street along the west side of Kerper Boulevard. The City was required to compensate for filling this wetlands by establishing a new wetlands, which is similar in size, on Schmitt Island. Air Local wetlands are generally located along Catfish Creek, Couler Valley and the Mississippi River. The DNR monitors the air quality in the city of Dubuque through 4 Department of Environmental Quality monitors. Monitors located at the City Water Plant and the U.S. Post Office collect data on suspended particulate. A monitor located along Hawthorne Street collects data on sulfur dioxide, and one located at Dodge and Bluff Streets collects data on carbon monoxide. These monitors have registered minimal pollution in the city's air. The City by ordinace does not permit burning of garbage, trash or refuse in the city at any time. The City provides educational information to the general public on the characteristics and dangers of radon. The Health Services Division provides a list of businesses that sell test kits. • Radon testing studies indicate that Iowa ranks first in the percentage of homes that test above 4 picos per dl (the safety threshold). Preliminary test data shows that, in Dubuque, 60% of all homes tested are above the 4 ppdl safety level. Noise • The City by ordinance restricts and/or prohibits loud and excessive noises within the city. The City also requires by ordinance that every motor vehicle be equipped with a muffler that will not exceed specified sound limits. 3 ENVIRONMENTAL QUALITY CRITICAL ISSUES/TRENDS Solid Waste • Iowa's 1987 Groundwater Protection Act will affect the future operation of Dubuque County Landfill. After July 1, 1992, new or renewal permits for landfills will require a leachate control system to prevent pollutants from entering the ground water. After July 1, 1997, permits will only be issued for alternatives to landfills or landfills which are part of an alternative disposal system. • In 1989, the Iowa Legislature passed the Waste Reduction and Recycling Act which prohibits certain materials from landfills. This legislation requires the Dubuque landfill to reduce waste received by 25% as of July 1, 1994 and 50% as of July 1, 2000. The waste reduction level is based on the level of solid waste disposal as of July 1, 1988. • While society, in general, is becoming aware of the solid waste problem, state and federal legislation will force urban areas to reduce waste. If the public is unwilling to reduce voluntarily solid waste volume, mandatory measures may be necessary. Toxic/Hazardous Wastes Cooperation with the EPA will be necessary to remediate the remaining EPA - identified sites in Dubuque. Water The daily water demand per person in the city has increased from 129.3 gallons in 1980 to 135.5 gallons per person in 1990. With only a two day reserve supply of water, emergency rationing measures and/or an excess reserve supply may be prudent to consider. While development opportunities along the City's waterways may be possible, environmental concerns must also be addressed. Wetlands development in Dubuque requires multiple jurisdiction approval, including Iowa Department of Natural Resources, U.S. Army Corps of Engineers and the U.S. Department of Fish and Wildlife. Air • The 1990 Clean Air Act Amendments require states to implement plans which focus on reducing smog, motor vehicle emissions, air toxins, and acid rain. The cost of compliance will likely fall on both private and public entities. 4 CITY FISCAL GOALS must address the allocation of limited available resources among competing interests, departments, activities and programs. These goals should develop an acceptable balance of costs and services with respect to quality, quantity and financing. City fiscal goals should emphasize policy and budget objectives, demands on and accomplishments of City governmental units and alternative funding and service levels. The purpose of these City Fiscal goals is to help focus on the major policy decisions of what services City government will provide, who will pay for them and the implications of such decisions in achieving the goals in all elements of the Comprehensive Plan. 1 To promote the fiscal soundness and viability of City government operations. 1.1 Maintain or upgrade the City's bond rating. (AS) 1.2 Monitor changing conditions, trends and legislation as it impacts the City's fiscal position and promote appropriate fiscal policy and guidelines to maintain the City's sound fiscal condition. (AS) 1.3 Identify and evaluate revenue alternatives to City property tax. (AS) 1.4 Minimize program costs by using sound purchasing practices. (AS) 1.5 Minimize program costs by using sound risk management practices. (AS) 1.6 Use nonrecurring revenues only to fund nonrecurring expenditures. (AS) 2 To communicate the City's fiscal management process in language understandable to the general public. 2.1 Continue to refine the Citizens Guide to the Budget. (AS) 2.2 Encourage increased public participation throughout the budget process. (AS) 2.3 Continue to help citizens understand local government financing, such as the allocation of property tax askings between the City, County and schools. (AS) 2.4 Continue to meet national standards for the City's budget presentation, such as the Government Finance Officers Association for review. (AS) 3 To provide reports and financial data that are accurate, timely and meaningful and which satisfy the need for sound fiscal policy formulation, efficient City management and full disclosure of City finances. 3.1 Base all financial reports on generally accepted and appropriate accounting principles. (AS) 3.2 Continue to meet national standards for the City's annual financial report, such as the Government Finance Officers Association for review. (AS) 4 To minimize the impact of economic swings on the City's operating budget by making the budget more recession -proof. 4.1 Promote economic development efforts to expand the property tax base and to improve and/or implement "growth" revenues for the City. (AS) 4.2 Allocate revenue sources sensitive to economic conditions primarily to deferable capital improvement projects, when possible, to allow the City to maintain a steady revenue stream to fund operating expenses. (AS) 5 To emphasize the use of fees and user charges to maintain existing City services and reduce reliance on federal and state funding sources as well as local property taxes while remaining sensitive to program access and availability for those with low or moderate incomes. 5.1 Pursue federal, state and private funding to help finance City services and minimize the property tax burden, but avoid service or funding commitments after such outside funding ends. (AS) 5.2 Explore new options for alternative revenue sources to property taxes. (AS) 5.3 Maintain access to and availability of essential City services to low and moderate income persons. (AS) 5.4 Establish reasonable user fees and charges for services where appropriate, so that those who utilize or directly benefit from a City service activity or facility also help pay for it. (AS) 6 To improve City government productivity and service delivery and identify alternative means of service delivery. 6.1 Review all City services and programs for operational efficiencies to improve service levels and delivery, and/or to implement cost containment measures. (AS) 6.2 Review all City boards and commissions to identify possible changes for improved performance. (AS) 6.3 Identify additional City government activities where volunteers could supplement City employees, or where services could be "spun off" to nongovernment groups or sponsors. (AS) 6.4 Utilize employee involvement as a means to improve productivity and service delivery. 6.5 Encourage citizen input to help identify productivity and service delivery needs. 7 To determine the work effort required and the costs to meet increased service delivery requests and/or mandates. 7.1 Support changes in federal and state laws, such as Home Rule, to eliminate or reduce unfunded mandates. (AS) 7.2 Identify and forecast impacts, options, and realistic annual and long- term maintenance and operational costs and responsibilities early in the budgeting process for each service request or mandate. (AS) 7.3 Consider new City services primarily when either additional revenues or expenditure reductions are demonstrated, or when mandated by state or federal law. (AS) 7.4 Focus City policy decisions on what services the City will provide, who will pay for them, and the implications of such decisions. (AS) 8 To make decisions on achieving goals in all elements of the Comprehensive Plan based on competition for and distribution of limited resources. 8.1 Continue to encourage citizen participation in the City's comprehensive plan and budget process. (AS) 8.2 Use the community visioning process and the comprehensive planning process to assist the City Council, City administration and community leaders in setting priorities for implementation. (CP) 8.3 Establish a plan for distribution of limited resources based on the City Council's goals and priorities. 9 To examine public and private funding sources and alternative means to accomplish goals in all elements of the Comprehensive Plan. 9.1 Collaborate with members of the community to implement City Council goals and priorities. (CP) 9.2 Identify public and private funding sources, and alternative means to accomplish goals for which the City government has direct authority and responsibility. (CP) 9.3 Encourage other area service providers, private entities and community leaders to identify private funding and other similar means to realize goals within their areas. (CP) CITY FISCAL EXISTING CONDITIONS/FACTS • • • • In 1992, the City Council established the Investment Oversight Commission to review the actions and decisions of the City's Investment Committee and all money managers for compliance with City fiscal policy and to review the performance of funds invested by the Investment Committee. This Commission was formed, in part, as a response to the temporary loss of Iowa Trust Fund monies and in an effort to safeguard future investments. Of the approximately $1.76 billion value of all property within the City, $.5 billion, or 28.4%, is tax exempt (this includes forest reserve, City owned property, church, nursing home, hospital and school property, industrial exemptions and the dog track property). As a comparison, 9.1% of the value of all taxable property in the City of Council Bluffs is tax exempt. Total actual city valuation of land and buildings as of June, 1990, was $1,089,808,000. The assessed value of these properties, for purposes of property tax collection, was $944,086,000, which was 86.63% of the actual property value. In Fiscal Year 1990, the property tax rate was $11.6891 for the City of Dubuque, $12. 3212 for the Dubuque Community School District, $5.6024 for Dubuque County, $.4503 for Area I Voc Tech and $.613 for the Board of Education and independents; totaling $30.6760 per $1000 assessed valuation. The total tax rate for Fiscal Year 1992 is $34.9244, based on $12.77 for the City of Dubuque, $13.65 for the School District, $7.07 for Dubuque County $.46 for Area 1 Voc Tech and $.62 for the independents. This is comparable to a total Fiscal Year 1992 tax rate of $34.4712 per $1000 assessed valuation in Eau Claire, Wisconsin (a city of similar population in close proximity to Dubuque). The distribution of tax dollars between city, county and the school district is very similar in both cities. The statewide average total tax rate for FY'92 is $30.2358 The City portion of property taxes on the average residential home in Fiscal Year 1993 will be 0.80% more than the Fiscal Year 1988 tax bill, when sales tax was first initiated. Commercial and industrial property tax bills are 9.1% less than their Fiscal Year 1988 tax bills. This shifting of the tax burden from commercial and industrial property to residential property is the result of changes in the state issued equalization orders and rollback factors. The City's annual budget increased from $30,681,113 for Fiscal Year 1981 to $60,192,693 for 1992. The number of full-time employees decreased from 588 to 508 over the same period. The recommended budget for Fiscal Year 1993 totals $52,750,300 including operating, capital improvement and debt service requirements. The recommended budget is $7,242,393 (12.1%) less than the adopted Fiscal Year 1992 budget. This represents an increase in the operating budget of $318,232 (0.8%) and a decrease in the Capital Improvement Program budget of $7,560,625 (41.6%). The Fiscal Year 1993 budget is comprised of the operating budget ($42,126,040) and the capital budget ($10,624,360) for a total budget of ($52,750,300). The total budget revenues are derived from local taxes (27.08% or $14,289,296), utilities (23.96% or $12,640,759), federal funding (11.48% or $6,056,878), state funding (11.05% or $5,828,381), operating receipts (10.17% or 5,366,688), sales tax (8.72% or $4,597,703) and miscellaneous funds such as loan repayments, Dubuque Racing Association revenue and special assessments (7.5% or $3,970,595). 0f the total Fiscal Year 1993 budget expenditures, Facilities and Environment uses 61.39% ($32,383,204), Protective Services uses 20.33% ($10,724,004), Leisure Services uses 10.47% ($5,520,466) and Administration uses 7.82% ($4,122,626). In Fiscal Year 1993, there were no sewer or water rate increases anticipated; however, refuse fees were increased due to the initiation of a new curbside recycling program. In Fiscal Year 1990, employee expenses were $22,040,628 or 36.4% of the total budget. In Fiscal Year 1993, employee expenses increased to $23,561,149 which comprised 44.6% of the total budget. The City's Five Year Capital Improvement Program (1993-1997) anticipates improvements totaling $60,516,492 for development and maintenance of the infrastructure, including $57,472,413 for facilities and environment projects, $2,110,565 for leisure services requirements, $713,514 for the protective services area and $220,000 for various administrative services operations. The plan is reviewed and modified annually to provide the framework for both the near -term and future needs of the community. In Fiscal Year 1992, major infrastructure initiatives included the allocation of $5,041,000 for improvements to the water pollution control plant, $1,187,000 for storm sewer projects funded by general obligation bonds, $1,103,500 for sanitary sewer projects, $948,000 for improvements to the water plant and water distribution system, $865,000 for economic development projects and $775,000 for housing rehabilitation and incentive projects. In addition to the above, $99,500 was allocated for airport improvements, $93,650 for parking system maintenance projects, $56,400 for equipment needs of the emergency communications center and remodeling of the Emergency E911 backup center and $50,000 for shore improvements to the Ice Harbor area. The proceeds from a 1% local option sales tax, initiated in 1988, are allocated 50% to direct property tax relief, 30% for relief of street special assessments by at least 75% and 20% for infrastructure maintenance. As a result of the local option sales tax proceeds, the City government portion of the property tax rate has been reduced from $13.95 per $1000 assessed valuation in Fiscal Year 1988 to $12.50 in Fiscal Year 1993, a 10% decrease. In 1992, the local option sales tax generated $4,514,848 in revenues. A 5% local option Hotel/Motel Tax, initiated in 1980, generated $459,070 in Fiscal Year 1991. 50% of these funds were allocated for General Obligation debt service for the Five Flags Civic Center bond issue, which has since been paid off, and 50% for the promotion of community tourism through the Convention and Visitors Bureau (CVB). In November, 1991, the local option Hotel/Motel Tax was increased from 5% to 7%. Of this 2% increase, 1% was earmarked for capital improvement programs and the remainder was equally divided between the Civic Center/Parks System and the CVB. In Fiscal Year 1992, the Hotel/Motel Tax generated $623,643, of which 43% goes to the CVB, 43% to the City's Leisure Services Department and 14% to the City's capital improvement program. Riverboat gambling has represented a significant source of revenue for the City. During it's first full fiscal year of operation (FY '92), in addition to generating $1,643,163 to pay off the principal and interest on the Tax Increment Financing (TIF) backed revenue bonds, the Dubuque Casino Belle paid $420,614 to the General Fund to reduce property tax askings. Since the loss of the boat in April, 1993, further reliance on gambling revenue depends on the success of future boats docked in Dubuque. Federal and State aid for local programs has, in general, steadily decreased. Community Development Block Grant Funding (CDBG) has decreased from $1,100,000 in Fiscal Year 1980 to $945,000 in Fiscal Year 1990. CDBG funding has, however, increased to $1,133,000 in Fiscal Year 1993. Federal funds represented 11.65% of the total Fiscal Year 1993 budget compared to 16.6% of the Fiscal Year 1981 budget. The Code of Iowa mandates that community debt not exceed 5% of the actual value of taxable property within the city (only general obligation bonds are included as indebtedness under the statutory debt limit). As of June 30, 1992, the City's net general obligation bonded debt of $16,255,000 was well below the legal limit of $56,484,534, and debt per capita equaled $298. As of June, 1992, the City also had $2,411,429 of tax -increment financing bonds, $5,170,000 of revenue bonds and $350,000 of special assessment debt outstanding. The City has maintained its Aa rating from Moody's Investors service on general obligation bond issues. This rating system determines the interest rate cities can ask on such bond issues. After resolution of the Iowa Trust Fund litigation, the City plans to pursue the Aaa rating it lost in the early 1970's. This rating would make bonds more attractive to investors and reduce the City's cost of borrowed funds. CITY FISCAL CRITICAL ISSUES/TRENDS • • • • • Greater reliance on fees, user charges and local taxes to maintain existing city services may be necessary due to increased costs and the steady cutback of state and federal funding. User fees for non- essential services have grown 3% per year. The privatization of traditional City services may be another option to control budget growth. Local taxes will likely continue to cover the bulk of cost increases caused by inflation. Local option sales taxes will continue to provide needed revenue while residential property taxes will probably be assessed close to the maximum allowed by the state. Generally, costs incurred for extension of utilities and provision of services to new residential developments are not completely offset by the increased fees and tax revenues such developments generate. By contrast, most industrial and commercial development "pays for itself". Agricultural land also has a net positive effect on property tax rolls, as virtually no City services are needed. This is an important consideration when calculating the benefits of annexation. The City has expanded its resource base to include sales tax, hotel/motel tax and gambling revenues. Increased reliance on these revenues has made the City vulnerable to economic swings and no longer "recession proof". However, significant state funding cutbacks, and to a lesser degree federal cutbacks, have forced the City to work toward self-reliance and alternative funding sources. The 1% local option sales tax remains a major tool for financing the five-year capital improvement program. Revenue generated by the sales tax is, however, dependant on the general economic health of the community and the region. Goals of preserving the area's natural resources and protecting the environment may conflict with an increasing demand for new or expanded service delivery. Local policy makers must weigh needs carefully before allocating limited resources. An ever growing segment of the population who are either fixed- or low- income may no longer be able to afford the increased costs associated with new or expanded service demands. Increasing user fees and property taxes may dramatically impact the life style of these residents. Local government policy makers and managers must balance demands with available resources, prioritizing those resources to insure the public receives the greatest return on their investment and continually re- examine current services and service levels to insure the best use of available resources. • The areas which are currently experiencing the greatest service delivery demand increases are: increased development activity which impacts inspections, enforcement, plan reviews and infrastructure maintenance; increased mobility requirements in terms of more cars per family and greater parking demand; increased calls for service from police, fire and ambulance; more emphasis on economic development to provide local job opportunities and job security; and finally, increased demand for citizen participation in response to either their concerns regarding the rising costs of government and government services or the demand for more or improved services. LU F a :o C)J L.L.I C) C.) LLJ LiJ p ECONOMIC DEVELOPMENT GOALS must continue the active and vital collaboration between public and private sectors to promote the economic health and well- being of our region. Economic development encompasses well-informed decisions regarding business retention and recruitment, work force development, available and appropriate locations for new business and industry, public investment in supportive infrastructure and financial incentives which can induce private investment and economic growth. The preservation and expansion of the community's economic base should be a prime objective. Unless existing business and industry are healthy and there are expanding employment opportunities that pay a living wage, the population will not be stable, the tax base will decline and government's ability to finance public services and facilities will be impaired. The future development of the community depends on maintaining and enhancing local economic development efforts directed towards these goals. 1 To reduce unemployment, achieve economic stability, and increase the standard of living for all citizens. 1.1 Establish and maintain a broad community consensus regarding the direction of economic development efforts. (CED) 1.2 Continue to diversify the commercial/industrial base. (CED) (LU) (IN) 1.3 Facilitate access to economic incentives for quality job creation and/or tax base enhancement. (CED) (CF) 1.4 Continue to use a unified economic development team, with public/private sector involvement, to tackle the City's economic development goals. (CED) 1.5 Reduce barriers to economic growth, while recognizing the City's regulatory function. (CED) 1.6 Identify additional resources to aid in economic development. (CED) (CF) 1.7 Develop and maintain a community socio-demographic data base as an information clearinghouse for economic development. (LIB) 2 To build a highly skilled, flexible work force. 2.1 Work with local educational institutions to coordinate training/skill requirements to meet the needs of local employers. (CED) (EDU) 2.2 Reduce barriers to obtaining necessary or upgraded job skills. (CED) 2.3 Utilize the talents and experience of mature workers who bring special skills and knowledge to the work force. (CED, LIB) 2.4 Create an informational clearinghouse that coordinates job training, placement and skills development. (LIB) (EDU) 2.5 Continue to develop and deliver educational programming over the widest array of media. (LIB) (EDU) 2.6 Provide information on work skills development and available employment opportunities through print, electronic and telecommunications media. (LIB) (IN) 3 To concentrate on retaining and expanding existing local businesses. 3.1 Continue an active partnership of business, educational institutions, community organizations and government to provide information to local businesses. (CED) 3.2 Assist local firms in finding appropriate development sites for expansion. (CED) (LU) (IN) 3.3 Encourage existing neighborhood employers to grow "in place", keeping jobs close to where people live. (CED) (LU) (HOUS) 3.4 Retain existing manufacturing firms and facilitate their expansion. (CED) 3.5 Maintain and strengthen Dubuque's position as a retail center in the trade area. (CED) 3.6 Maintain and expand the local health care industry's share of the regional market. (CED) (HE) 3.7 Retain and expand the base of service industry employment. (CED) 3.8 Support downtown revitalization and neighborhood business development. (CED) (LU) (IN) 4 To increase the number of small firms within Dubuque by fostering local entrepreneurship. 4.1 Support start-up businesses with both financial and technical assistance. (CED) 4.2 Remove barriers to allowing in -home businesses to be successful. (CED) (LU) 4.3 Strengthen programs which provide business development, information and technical assistance. (CED) CoNOrYtkC OEVELO?WtE 5 To recruit businesses that are suited to the area, require a highly skilled work force or are willing to train an entry-level work force and are experiencing growth. 5.1 Offer assistance to businesses and industries that produce exports or import substitutes and that provide higher wages and benefits to their employees. (CED) (CF) (HS) 5.2 Promote opportunities in the Dubuque area to targeted businesses and industries. (CED) 5.3 Continue a collaborative recruitment strategy among business, non- profits and government. (CED) 6 To work toward identifying [identify and meet] the economic needs of the chronically unemployed and underemployed in Dubuque, and encourage programing -- including education and retraining -- to meet those needs. 6.1 Understand the impediments to employment for this sector of the population. (CED) (HS) 6.2 Collaborate with unemployed and underemployed persons and potential employers to find creative ways to overcome barriers. (CED) (HS) 6.3 Target unemployed young adults (ages 18-24) for job/skills training, providing supportive services as needed. (CED) (HS) 6.4 Promote access to resources and tools for education, training and supportive services through a variety of means and media. (CED) (HS) (EDU) 6.5 Bring business, labor, education and government together to solve work force development problems. (CED) (HS) (EDU) 7 To maintain and strengthen Dubuque's position as a tourist destination. [To promote existing attractions and to establish additional year-round tourist attractions to enhance Dubuque's position as a center of tourism.] 7.1 Promote existing attractions. (LRPC) 7.2 Establish a variety of additional year-round tourist attractions. (LRPC) 7.3 Implement recommendations in the Riverfront Plan to add amenities for both citizens and tourists along the Mississippi River. (CED) (REC) (IN) E&&Ncmtc DE4 s pM EN 8 To strengthen the local tax base. 8.1 Expand and diversify the tax base. (CED) (LU) (CF) 8.2 Attract and retain capital intensive industries for increased property values. (CED) (CF) 8.3 Encourage property improvements and revitalization throughout the City. (CED) (HOUS) (LU) 8.4 Annex additional land, as necessary and as possible, to accommodate projected commercial and industrial expansion. (CED) (LU) (IN) 9 To establish and maintain housing and transportation, communication, and utility systems which support and foster quality development. 9.1 Coordinate the provision of supportive infrastructure in concurrence with new development. (CED) (IN) (LU) 9.2 Evaluate new development impacts on existing City infrastructure and services to ensure adequate capacity and compensation. (CED) (IN) (LU) 9.3 Capture the opportunities of the information superhighway for economic development. (CED, LIB) (IN) (EDU) 9.4 Continue efforts to link Dubuque with major transportation networks. (CED) (TRN) (IN) 9.5 Coordinate infrastructure investment strategy with government, business and local institutions. (CED) (IN) (CF) 10 To promote the provision of [ensure] an adequate supply of vacant, development -ready land for commercial and industrial use. 10.1 Evaluate potential commercial and industrial development sites, based on the City's Future Land Use Map. (CED) (LU) 10.2 Protect development potential of appropriate sites. (CED) (LU) 10.3 Provide for aeronautical and non -related industrial park development at the airport. (AIR) (LU) (TRN) 10.4 Annex growth areas, as necessary and as possible, to ensure adequate supply of developable land and to control development on the city's fringe. (CED) (LU) (IN) 11 To utilize the riverfront as an outstanding economic development opportunity. 11.1 Coordinate the implementation of the Economic Development planning component of the Riverfront Plan with other public and private organizations. (RP) (LU) (IN) 11.2 Promote a vision and development consensus for the Fourth Street Peninsula. (CED) (LU) (IN) 11.3 Promote retention and expansion of river -dependent uses, while recognizing environmental constraints. (CED) (LU) 11.4 Foster enhanced recreational access to the river as an economic development strategy. (CED) (REC) 12 To encourage development that is environmentally sensitive. 12.1 Target environmentally sensitive business and industry in recruitment efforts. (CED) (EQ) 12.2 Facilitate development of businesses and industries that are committed to enhancing local environmental quality. (CED) (EQ) ECONOMIC DEVELOPMENT EXISTING CONDITIONS/FACTS • • • • Dubuque is centrally located in one of the nation's largest population centers being approximately 200 miles from Chicago, Milwaukee, Des Moines and Minneapolis and 300 miles from Kansas City and St. Louis. Dubuque's economy is in transition from a manufacturing base to that of a more diversified city providing a growing number of services. Although Dubuque remains a major manufacturing center, in recent years this sector of the economy has provided fewer and fewer jobs. Those manufacturers who survive have streamlined their operations and increased their productivity. The substantial increase in office construction and expansion around the city's two medical centers signal the growth in the service and information sector. City government has forged a close working partnership with the private sector and other governmental bodies which has been effective in securing sizable business investment in Dubuque. This also has helped to stem the tide of job loss which has occurred over the last decade. A physical and economic revitalization has taken place. The City's Community and Economic Development Department (CED) serves to coordinate federal, state and local development programs, chair the local economic development group, acquire and develop industrial property, advise the City Council about economic development matters and apply for assistance from state and federal agencies on behalf of area businesses and industries. A host of federal, state and local financial assistance programs are available to existing and prospective businesses and industries in the Dubuque area. These programs are administered by CED and East Central Intergovernmental Association (ECIA). ECIA packages financial assistance programs to local businesses and industries and also coordinates job training assistance programs. Dubuque City and County governments are required by the Federal government to develop a regional economic development plan to receive funds from the federal Economic Development Administration. ECIA is responsible for final completion of this plan. Dubuque In-Futuro Inc. is a non-profit development corporation established to assist the community in its economic development efforts to acquire, develop and manage industrial property. The Greater Dubuque Development Corporation (GDDC) is a forum for area groups and enterprises such as hospitals, colleges, labor organizations, local government, business and industry interested in economic development. The GDDC's goal is to organize a broad -based coalition linking all key sectors in the economic development process and to recruit new development projects. The Dubuque Area Chamber of Commerce surveys area businesses, eliciting needs and concerns as part of a business retention and expansion program. The Chamber also operates the Convention and Visitors Bureau which is partially funded by the local hotel/motel tax. Professional guidance is provided to existing and prospective businesses locally through programs like SCORE (Service Corps of Retired Executives) and the Small Business Development Center. Local utilities, including Interstate Power Company and Peoples Natural Gas, retain economic development professionals to provide technical and financial assistance not only for themselves but for the entire community. Since 1985, Dubuque Main Street LTD. has created a public and private sector partnership that focuses its efforts on the development and revitalization of the central business district. The Main Street program is a four -point approach involving promotion, design, organization and business retention and recruitment. Job Training Partnership of Dubuque and Delaware Counties is a partnership of local businesses, elected officials and state government that assesses employment needs and matches applicants, employers and jobs. Employers can design their own training program, qualify for up to 50% reimbursement for the on-the-job training period and take advantage of additional incentives, including tax credits, when targeted groups are hired. Residents are offered Job Lab, classroom training and on-the-job training. According to the Small Business Administration, Iowa was second nationally in the rate of new business incorporations for 1989, and 90% of Iowa's businesses are classified as small (with fewer than 20 employees). Small firms are an important part of economic development in Dubuque. CED offers programs to help create small businesses in the city to provide jobs for local citizens. • Dubuque's community college and educational institutions are working to customize training programs to suit the particular needs of local firms. • Steadily improving road, air and rail freight connections to the area, along with increased barge fleeting and services, have made Dubuque attractive to business, industry and tourism. A four -lane connection west to Waterloo is complete. Funds for studying a four -lane link east to Freeport, IL have been allocated, and a connection south to the Quad - Cities will be completed by 1997. The "Avenue of the Saints", a new federal highway connection between St. Louis and St. Paul, has been proposed to pass through Waterloo, about 85 miles west of Dubuque. Two area industrial parks, the West Dubuque Industrial Park in Peosta and the Dubuque Industrial Center, have over 200 acres and 40 acres, respectively, available for development. The City's 1993 Development Needs Study indicates, however, a shortage of currently zoned and additional reserve necessary for multi -family, commercial and industrial development, with the greatest acreage deficit for industrial uses. Total taxable sales for the city of Dubuque grew at an annual rate of 4.6% between 1981 and 1992. The inflation rate for the same period was just over 4.0%. This indicates that sales growth slightly outpaced inflation in the 1980's and early 1990's. In 1990, retail sales in Dubuque totalled $506,139,085, a 6.0% rise over 1989 sales, while inflation posted a 6.1% increase. Total sales continued to climb to $610,499,000 in 1991, a 20.6% jump, and to $647,676,000 in 1992, an increase of 6.0%. The Consumer Price Index (the inflation rate) rose only 3.1% in 1991 and 2.9% in 1992. Retail leakage, which is the difference between actual and expected sales created by people shopping elsewhere, also rose for the Dubuque trade area from $23,547,000 (-3.7%) in 1991 to $36,295,000 (-5.3%) in 1992. After little growth in 1989 and 1990, the eating and drinking place and home furniture sales experienced strong growth in 1991 and 1992. Sales were flat in the apparel sector in 1992, after experiencing moderate growth, approximately 3.2%, in 1991. Dubuque serves as the retailing center for a trade area consisting of an estimated 30 mile radius, but with a 1990 population of only 195,510. The focus of retail activity is centered around Kennedy Mall, with a second major shopping zone in the 70 blocks of downtown. Shopping patterns are well -established. When Wal-Mart and Sam's Club open for business on the west side of the city in late 1993 and 1994, major changes in retail consumption patterns are expected to affect retailing health, especially that of downtown. As of January, 1992, Dubuque banks, savings and loans and credit unions had savings and deposits totalling $1,205,277,918 (up 9.3% over January, 1991) and loans totalling $756,278,835. In March, 1993, financial deposits for the Dubuque area, which includes banks, savings and loans, and some credit unions in Dubuque, East Dubuque and Asbury, rose to $1,286,927,248. 1990 Census data indicate that the city of Dubuque's resident labor force totaled 29,100, with civilian employment of 27,639. Of those, 1,461 of which were unemployed; this translates to an unemployment rate of 5.0%. Although Dubuque County unemployment rates have fluctuated throughout the last half of the 1980's, the trend has been downward from a high of 9.6% in 1985 to 5.5% in 1992. The city's 1980 rate was 6.5%. Dubuque is evolving from a predominately manufacturing to a service - oriented economy, reflecting the national trend of the last decade. In the 1980 Census, services employed 10,713 (38%) and wholesale/retail trade 5,923 (21%), with a peak of 8,349 (29%) in manufacturing. The 1990 Census shows this shift, with over half the work force employed in the services (11,798) and wholesale/retail trade (6,673) sectors, and about one in four employed in manufacturing (5,964). Services include finance, insurance, real estate, business, repair, personal, entertainment, recreational, health, educational and other professional services. Manufacturing is comprised of facilities producing both durable and nondurable goods. The 1990 Census indicates that approximately 80% of Dubuque's population have graduated from high school and 40% have achieved some post -high school education. The 1991 Greater Dubuque Area Labor Survey indicates that among those 7,213 area residents interested in working for new or expanded industry, 90% have a high school education and 47% have some college education. Of those that responded to the Labor Survey, 50% had worked for their current or most recent employer for more than five years, 52% of the available work force is between the ages of 20 and 39 and their work experience and job skills are highly varied and evenly distributed. In 1990, the per capita income for workers in the city of Dubuque was $12,377 and in Dubuque County it was $12,331, compared to the statewide figure of $12,422. In 1980, the city's per capita income was $7,341, and Dubuque County's was $7,063. The 1991 Labor Survey shows the average service occupation hourly wage varies between $8.68 (janitor) and $3.93 (waiter/waitress) and the average manufacturing wage varies between $16.84 (tool and die maker) and $6.31 (press operator) per hour. In cost of living comparisons, the GDDC determined that food, housing and health care in Northeast Iowa was less expensive than that of Los Angeles, CA, Naperville, IL, St. Paul, MN, Columbus, OH and Harrisburg, PA (with the exception of food cost in Los Angeles). The GDDC reports that the City's labor force is 35% more productive than the national average, has an absentee rate of 2.4% and a turnover rate of 6%. 0f those firms which are unionized, 80% reported good to excellent union/management relationships. In August, 1990, 65 primarily manufacturing firms responded to a labor survey and indicated that 33% had expanded during the last 20 years and 67% had expanded within the last 10 years. In addition, 88% of the companies had hired additional employees during that time period. Local companies can take advantage of single factor corporate income tax, tax exemptions on machinery and equipment, absence of personal property tax and, at 1%, workmen's compensation and unemployment compensation insurance that are among the region's lowest. Dubuque also offers a simplified tax abatement program for industrial development. Dubuque successfully attracted several national and regional businesses and industries in the late 1980's and early 1990's, including the Clarion Hotel, Nordstrom Midwest Regional Distribution Center, CIGNA/Trilog and Wal-Mart. Also, local business and industry such as Eagle Manufacturing, Robert's River Rides, Brown Publishing/Kendall Hunt, Eagle Point (formerly Engineering Data Systems), Georgia Pacific and Uelner Tool and Die have expanded. County business establishments have grown in number from 2,035 in 1980 to 2,273 in 1989; however, the number of employees declined from 42,224 in 1980 to 40,917 in 1989. In calendar year 1980, total valuation of all development (as determined by valuation listed on building permits) within the city limits was $16,750,087. This compares with total valuation of $25,158,507 in 1985, $56,657,609 in 1990, $32,827,288 in 1991 and $43,404,890 in 1992. The travel and tourism industry has become a "new" industry in Dubuque, with approximately 1 million visitors each year (an 80% increase over 1984) infusing over $400,000,000 dollars into the local economy. Tourism is Iowa's third largest industry. The typical tourist spends $80 per day in Dubuque, with conventioneers spending $120 per day. With new downtown facilities to accommodate conventions, that market has grown substantially from 125 conventions in 1989 to 300 in 1992. The Convention and Visitors Bureau projects 300 conventions again in 1993, a 240% increase since 1989. For the 1993 season, the Chamber of Commerce estimates that due to a combination of the temporary loss of a gaming boat and the regional impact of flooding, the number of visitors to the Dubuque area has decreased significantly. The Chamber estimates that hotel/motel occupancy rates are down 15-20% and projections of 1.25 million tourists for the 1993 season have been reduced to 750,000. Even though Dubuque avoided the severe flooding that other communities experienced in 1993, longer term economic repercussions are expected in the retail, lodging, tourism, marina, barge fleeting, agricultural and commodities sectors of the city and the tri-state region. Despite protection from its floodwall, the City of Dubuque incurred at least $750,000 in expenses directly related to the Flood of 1993. ECONOMIC DEVELOPMENT CRITICAL ISSUES/TRENDS • • • • • • • The local economy and work force have undergone a major economic and psychological restructuring over the previous two decades. The local transition from an industrial to a service -oriented economy has and will continue to affect average income, tax base, employment and labor force characteristics and job training/retraining requirements well into the next century. An aging population will cause a general decrease in earned income and increased reliance on transfer payments, dividends, interest and rent as sources of income. Area labor force characteristics, including an educated work force, strong work ethic, the city's central location and proximity to major markets should make Dubuque attractive to business and industry. An analysis of vacant land in the community has identified a limited inventory of vacant, developable land appropriate for residential, commercial and industrial development within the current city limits. The lack of complete four -lane connections north, east and south of the Dubuque area may hinder new commercial and industrial development in the immediate future. Diversification of the service and industrial base is essential to the continued economic health of the area; however, the most likely increases will come in service -related business activity. In an effort to diversify the local economy, the Greater Dubuque Development Corporation will actively recruit biological and botanical pharmaceutical companies, chemical, food processing, and recycling companies and distribution facilities. These enterprises are desirable and well suited to this area because many are agriculture based, require a highly skilled work force and are experiencing rapid growth nationally. Chasing increasingly limited "industry", however, may be difficult; local economic development efforts may have to shift to the commercial/ service sectors and/or concentrate on retaining and expanding the existing business and industry in the community. Local business and industry may need to adopt specialized manufacturing and marketing capabilities to create new market niches, especially in light of the increasing international economic arena in which the United States now competes. New or expanded tourist attractions that offer year-round opportunities will help maximize growth in the local tourist industry. • • Today's employer may need to build a highly skilled but flexible "core" of permanent employees, develop on -going training programs and involve employees in the decision -making process to stay competitive. The changing demographics of the community and the work force may mean that work schedules must offer greater flexibility and benefits must be tailored to meet changing needs if employers wish to recruit new and retain valued workers. • Efforts must be made to address the special needs of the chronically unemployed and underemployed. • The jobs/housing link must be better understood to ensure that workers can find suitable housing that they can afford in the community. • New local sources of economic development assistance funds must be found as state and federal dollars becomes less reliable. If the use of Urban Renewal and its tax increment financing mechanism is unavailable, other local means to finance economic development projects or to make necessary public improvements will be needed. HEALTH GOALS must address health and medical issues that fall within the scope of both public and private providers. Government often cites "health, safety and the general welfare" as necessary and important public purposes. The public's health and continued wellness must be of concern to the community as a whole. The promotion of good public health practices and lifestyles and the provision of necessary and adequate private health care to all members of the community must be the shared responsibility of both the public and private sectors. 1 To reduce and prevent the occurrence of disease, disability and years of potential life loss [death] in the community. 1.1 Decrease smoking and tobacco use by people of all ages and increase the number of tobacco -free sites in Dubuque County. (HD) 1.2 Increase the proportion of people age 40 and over who receive regular exams for colon, breast and uterine cancer. (HD) 1.3 Reduce the hospitalization rate for pulmonary disease through pulmonary rehabilitation and pneumonia vaccination. (MHC) 1.4 Reduce the number of adults in Dubuque County with high cholesterol and high blood pressure through increased screenings, education and follow- up procedures. (HD) 1.5 Increase community awareness, testing and treatment of sexually transmitted diseases (STD's) and Human Immunodeficiency Virus (HIV). (HD, PC) 1.6 Increase the proportion of people of all ages who follow preventative measures for skin cancer. (HD) 1.7 Develop a quality diabetes management program. (MHC) 1.8 Continue a preventative health program which includes public information and education on current health issues. (HE) 1.9 Continue to control the spread of communicable disease in the community through information, investigation and immunization. (HE) 1.10 Encourage participation in age and risk based preventative health care tests, screenings and practices. (HE) 2 To promote the physical and mental health and wellness of the citizens of Dubuque through educational and outreach efforts. 2.1 Maintain citizen participation in the implementation of a community health care plan. (HD) 2.2 Continue to evaluate and assess the health status of the community to update health goals. (HE) (HS) 2.3 Increase community awareness that injuries caused by violent behavior are a public health issue. (HE) (PUB) (HS) 2.4 Increase the proportion of Dubuque County employers/work sites that offer nutrition education, weight management, stress reduction and/or wellness programs. (HD) 2.5 2.6 2.7 2.8 2.9 Educate the community that mental illnesses are real, can be diagnosed, and can be effectively treated in affordable ways. (HD) Develop a comprehensive mental health service delivery system for Dubuque County. (HD) Create community participation designed to reduce the prevalence of sedentary lifestyles in Dubuque County. (HD) Reduce the prevalence of being overweight (based on Body Mass Index) among people aged 18 and over in Dubuque County. (HD) Develop an interagency strategic plan to increase the availability of and access to a full continuum of substance abuse prevention and treatment services. (HD) 3 To promote access to adequate health services for all members of the community. [To ensure that all members of the community have access to and receive necessary and adequate health services.] 3.1 Expand current programs and services for underserved and high risk populations, i.e., persons isolated in rural settings, culturally - diverse individuals, and other groups with special needs. (HD) 3.2 Create access to community mental health treatment (on an equal basis with medical treatment) through a collaborative effort of federal, state, local, private and charitable agencies for individuals with diagnosable mental illness delivered in a timely and confidential manner. (HD) 3.3 Promote health, safety and wellness by developing and helping to establish model community and workplace -based programs. (HCC) 4 To address the special health needs of pregnant women, children and the elderly. 4.1 Develop a system for obtaining and reporting reliable data for maternal and infant health across all Dubuque County providers. (HD) 4.2 Increase awareness of the definition of domestic violence and community resources for intervention. (HD) 4.3 Reduce substance abuse of alcohol, tobacco, cocaine, marijuana and other drugs among youth (12-18 years of age) and pregnant women in Dubuque County. (HD) 4.4 Improve children's health and mortality through increased use of car seats, breastfeeding and health screenings, and through fewer teenage pregnancies. (HD) 4.5 Continue to provide a health maintenance service whereby the elderly can be treated at home rather than institutionalized. (HE) (HS) 5 To create safe and sanitary work, play and housing environments. 5.1 Strive for a community which provides a variety of easily accessible recreational programs and opportunities at moderate or no cost to participants. (HD) 5.2 Increase the number of employers and organizations offering safety, prevention, substance abuse and employee assistance programs. (HD) 5.3 Work with area schools to expand educational programming for a preventative health program. (HD, HE) (EDU) 5.4 Continue to promote a safe and healthy environment by ensuring sanitary conditions and practices in accordance with municipal public health, housing and environmental ordinances, codes and regulations. (HE) (PUB) (EQ) 5.5 Continue to protect and promote safe and sanitary conditions at food service establishments and by food purveyors. (HE) 6 To contain the rising costs of health care in an equitable, efficient and collaborative manner through community -wide planning. 6.1 Stress the efficient delivery of high -quality health care. 6.2 Develop a data base of community health resources of Dubuque area providers and payers, including information on benefit plans, utilization and cost mechanisms. (HCC) 6.3 Facilitate active, responsible participation by health care consumers. (HCC) 6.4 Educate the community regarding the health status of the community and the existing health care system in Dubuque. (HCC) 6.5 Continue an ongoing forum to address health care quality, reform and cost containment at the community level. (HCC) 7 To retain and recruit quality health and medical personnel for our community. 7.1 Improve satisfaction ratings of health and medical personnel with health care administration and facilities. (MHC) 7.2 Work to retain and recruit quality health and medical personnel, especially in occupations with a shortage of skilled workers. (PC) (ED) 7.3 Use satisfaction surveys from health care system users to improve services, facilities and employee performance. (MHC) 8 To become a regional health care center providing a full -range of both general and specialty health and medical services. 8.1 Provide health and medical services coverage to area rural hospitals. (MHC) 8.2 Network area rural hospitals' information systems with Dubuque providers. (MHC) 8.3 Improve access to primary care physician services through recruitment assistance to area medical community. (MHC) 8.4 Provide secure and simplified access to financial, clinical, administrative and management data from any location in the health care information system. (MHC) (IN) 8.5 Provide quality services and/or facilities as needed, including an emphasis on outpatient care. (MHC, HE) 8.6 Evaluate the need for expanded mental health, behavioral health, rehabilitation and occupational health services. (MHC) HEALTH EXISTING CONDITIONS/FACTS Health Care Workers • In 1991, Dubuque was served by approximately 200 doctors, 55 dentists and 15 chiropractors • In 1991, approximately 3,800 people were directly employed in the local health care industry, or 9% of the non-agricultural workforce. • Dubuque physicians are predominantly specialty -oriented rather than family practice -oriented. Facilities • In 1991, the City's two hospitals provided 570 beds as a secondary care provider in a three -tiered health care system. As a regional medical center, Dubuque must remain competitive to maintain or expand its regional market share. • In 1991, nursing home beds were available for approximately 800 people; however, there were few openings for new placements. Death/Disease • Both the Iowa and Dubuque County infant mortality rates are lower than the national rate, which suggests a healthy population with good access to medical care and effective public health services. • The leading public health problems in Dubuque County identified in a 1987 community health assessment were: tobacco use, alcohol dependency and environmental pollution. Since then, the City of Dubuque has banned open air burning, instituted DARE programs to help school children resist substance abuse and enacted more restrictive regulations for liquor establishments. • The leading cause of death in the 15-44 age group in Dubuque County is motor vehicle accidents, not disease; however, the use of alcohol is often a leading accident -related factor. The Dubuque County rate is lower, however, than the state and national rates. The Alcohol Dependence Syndrome rate is above the state rate for this age group. Dubuque had higher rates than the state on a consistent basis for arrests while driving intoxicated, drunkenness offenses, alcoholism hospital discharges, and morbidity for alcoholism (1985-1989). Heart disease and cancer remain the leading causes of death to the local population generally and are higher than the state and national averages. Mental disorders are a leading cause of illness in Dubuque County in the 25- 64 age group. Dubuque County has a slightly higher rate of hospitalization for psychiatric illnesses than the State of Iowa as a whole from 1985 to 1989. The Sexually Transmitted Diseases (STD) per capita rate for Dubuque County is ranked 10th in the State of Iowa. Other than chicken pox, STD's have the highest number of any communicable diseases reported (256 cases/year). AIDS cases are increasing locally. As intravenous (IV) drug use is thought to be limited in Dubuque, sexual transmission seems to be the leading cause based on state trends. Dubuque school aged children have a high compliance rate for immunizations against communicable diseases. However, the goal for Dubuque and the State of Iowa is to have children up to date on immunization by age 2 years. The Iowa Infant Immunization Initiative program is being carried out by the Dubuque Visiting Nurse Association (VNA). Cost • While technology is a driving force in health care advances, it also is driving up the basic cost of health care. • In 1992, an average family in Des Moines with no employer -provided health insurance paid $3,275 for a health insurance plan, even if it was healthy. • In 1980, a typical family spent $1,826 on all its health care. In 1991, the same family spent more than $4,025 on health care, and by the year 2000, it can expect to pay more than $9,020. This would be a 394 percent increase from 1980. During the last decade, a typical Iowa family's health payments rose 245 percent faster than its wages. • In 1980, Iowa businesses spent more than $976 million on health care. By 1991 this number had increased by 167 percent to more than $2.6 billion. It is expected to reach more than $4.7 billion by the year 2000. This would be a 382 percent increase in health spending by businesses since 1980. • 459,000 Iowa residents (16 percent) will have no health insurance at some point during 1993. While hard data on the number of Dubuque area residents without health insurance is not available, the 16% rate would mean there are approximately 13,800 uninsured people in Dubuque County. • "Healthy Dubuque 2000" is a community -wide planning process that will begin in 1993. The Tri-State Health C.A.R.E. Coalition, which involves Dubuque area health care providers, labor and management, seeks to address health care cost containment in the tri-state area. Since the City Health Services Division does not receive input from any boards or commissions, this planning process will serve as a vehicle for citizen input on health. 2 HEALTH CRITICAL ISSUES/TRENDS Health Care Workers Dubuque suffers a shortage of skilled workers, especially physicians, radiology technicians, lab technicians, occupational therapists, physical therapists and pharmacists. An aging population will mean increased demand for elder care and the services of a new specialist, the "geriatrician". Facilities Competition in the future between the two existing hospitals, and within the region, may demand their specialization. Each may carve market niches for service providers which will enable them to reduce duplication of services, maintain quality and survive the competition. A shift to home care and outpatient care from routine hospitalization may allow hospitals to concentrate exclusively on intensive/critical care. Both Finley and Mercy Hospitals are taking steps to remodel their facilities in the 1990's to meet this shift. The growing need for long-term residential care for the elderly and severely disabled may mean additional demand for nursing home and skilled care beds. Death/Disease Indicators of chemical dependency for alcohol and drug use in Dubuque County point to a drug problem similar to the rest of the state and a more serious alcohol problem. With one exception, all alcoholism rates are higher for Dubuque County than the state rate. A "wellness" lifestyle should continue to improve community health generally, as prevention and education become as important as treatment and cure. New hope for medical cures through genetic engineering may both extend life and increase the quality of life. • Ethical dilemmas will continue to be faced as advanced technologies push life and death decision -making to new frontiers. Cost • A national health care costs crisis exists; however, patients have come to expect and demand the best, at any cost. • A national health policy is needed to determine if quality health care is indeed a right or a privilege. Questions of entitlement, responsibility, service delivery and cost must be addressed. 3 • Mental disorders are a leading cause of illness in Dubuque County in the 25- 64 age group. Dubuque County has a slightly higher rate of hospitalization for psychiatric illnesses than the State of Iowa as a whole from 1985 to 1989. Cost The Sexually Transmitted Diseases (STD) per capita rate for Dubuque County is ranked loth in the State of Iowa. Other than chicken pox, STD's have the highest number of any communicable diseases reported (256 cases/year). AIDS cases are increasing locally. As intravenous (IV) drug use is thought to be limited in Dubuque, sexual transmission seems to be the leading cause based on state trends. Dubuque school aged children have a high compliance rate for immunizations against communicable diseases. However, the goal for Dubuque and the State of Iowa is to have children up to date on immunization by age 2 years. The Iowa Infant Immunization Initiative program is being carried out by the Dubuque Visiting Nurse Association (VNA). While technology is a driving force in health care advances, it also is driving up the basic cost of health care. In 1980, a typical family spent $1,826 on all its health care. In 1991, the same family spent more than $4,025 on health care, and by the year 2000, it can expect to pay more than $9,020. This would be a 394 percent increase from 1980. During the last decade, a typical Iowa family's health payments rose 245 percent faster than its wages. In 1980, Iowa businesses spent more than $976 million on health care. By 1991 this number had increased by 167 percent to more than $2.6 billion. It is expected to reach more than $4.7 billion by the year 2000. This would be a 382 percent increase in health spending by businesses since 1980. 459,000 Iowa residents (16 percent) will have no health insurance at some point during 1993. While hard data on the number of Dubuque area residents without health insurance is not available, the 16% rate would mean there are approximately 13,800 uninsured people in Dubuque County. • "Healthy Dubuque 2000" is a community -wide planning process that will begin in 1993. The Tri-State Health C.A.R.E. Coalition, which involves Dubuque area health care providers, labor and management, seeks to address health care cost containment in the tri-state area. Since the City Health Services Division does not receive input from any boards or commissions, this planning process will serve as a vehicle for citizen input on health. 2 • Dubuque will follow the trend of an aging population. This will mean that home health care services, transportation services, nursing home services and adult protective services (including legal and advocacy) will be needed more as time goes on. There is still a significant youth population in Dubuque, and services for this population also will be needed. This situation puts part of the population in the position of caring for two dependent groups at the same time. • Although treatment and related health services exist in Dubuque for most health problems, they are not always readily available or affordable to persons with limited or no health insurance. 4 i-AoUSING— HOUSING GOALS must address the issues of housing availability, affordability and accessibility for all members of the community. Public intervention in the private housing market is sometimes necessary to [ensure] promote and/or encourage quality, safe, sanitary and affordable housing, to [provide] administer federal income assistance to those in greatest need or to spur reinvestment and renewal in existing, older neighborhoods. The provision of shelter is a basic human need that demands special attention in the arena of human services delivery and stands alone as an important element. Our community's very image is reflected in large measure by the pride and well- being displayed in our neighborhoods. 1 To preserve existing housing and existing, older residential neighborhoods. 1.1 Enforce minimum housing quality standards in all rental housing through systematic code enforcement. (HC) 1.2 Monitor and seek to control loss of viable rental housing stock. (HC) 1.3 Expand the City's use of housing preservation programs whenever appropriate and possible. (HC) 1.4 Promote programs to improve energy efficiency and enlist the participation of utility companies in promotional efforts. (HC) (EQ) 1.5 Maximize participation in and use of low -interest rehabilitation loan funds. (HC) 1.6 Recycle existing vacant or under-utilized structures, such as convents and industrial buildings, into affordable housing, where appropriate. (HC) 2 To promote the creation and maintenance of an adequate supply of sound, affordable housing integrated throughout the community. 2.1 Promote City partnerships with private sector, non-profit, other government agencies and neighborhood groups to access available public funding and attract private capital for affordable housing development. (HC) 2.2 Promote mixed -income, mixed -rental housing developments. (HC) (LU) 2.3 Administer the Section 8 Rental Assistance Program to benefit lower - income families seeking affordable rental housing. (HC) 2.4 Encourage local lenders to work with senior homeowners to convert existing single-family dwellings into two or more residential units, where appropriate, through the use of equity conversion programs. (HC) 3 To expand the opportunities for homeownership, especially for low income households. 3.1 Encourage the use of flexible development regulations in order to assist affordable housing production and decrease housing costs. (HC) (LU) 3.2 Encourage local lenders to participate in programs designed to assist first-time home buyers. (HC) 3.3 Promote infill housing development opportunities, in the city's older neighborhoods, through a combination of public subsidy, affordable housing incentives and owner sweat equity. (HC) (LU) 4 To promote fair housing opportunity for residents in all city neighborhoods. 4.1 Provide for effective implementation of existing fair housing programs. (HC) 4.2 Involve neighborhood residents to the fullest extent possible when planning affordable housing developments. (HC) (LU) 4.3 Monitor, evaluate and work to minimize federal, state and local codes and regulations that are possible barriers to development of housing, particularly for persons with disabilities or low income. 5 To assist local service agencies in providing shelter and semi- independent living for persons in need of supportive services. 5.1 Monitor and evaluate homeless and other special needs populations in order to document needs and design assistance programs. (HC) (HS) 5.2 Provide technical assistance to agencies in preparation of applications for program funding. (HC) (HS) 5.3 Continue to develop partnerships with area agencies in sponsorship of housing initiatives for special needs populations. (HC) (HS) 6 To promote the understanding, [understand] that the availability and affordability of housing [for employees] is an important key to successful economic development. 6.1 Promote corporate participation in employer -assisted housing, for home purchase assistance for employees. (HC) (ED) 6.2 Encourage local institutions, i.e., hospitals, colleges, to establish replacement housing programs for housing lost to corporate expansions. (HC) (ED) %thus t r�1CT 6.3 Encourage corporate participation in the Federal Low Income Tax Credit Program, for purposes of investment in affordable housing development. (HC) (ED) 6.4 Encourage use of corporate pension funds for investment in affordable housing development. (HC) (ED) 7 To promote the public's awareness of housing needs and issues through informational and educational efforts. 7.1 Serve as a clearinghouse of information for housing issues and information, to include providing educational programs for tenants and landlords. (HC) 7.2 Monitor housing market conditions and availability of housing. (HC) (ED) 7.3 Provide workshops for area housing industry members (contractors, lenders, realtors) regarding changing regulatory mandates, i.e., lead - based paint, asbestos removal. (HC) (PUB) (HLTH) 7.4 Work to combat the "Not In My Back Yard", or NIMBY, syndrome by dispelling stereotypes associated with affordable housing. (HC) (LU) 7.5 Continue to develop linkages with housing industry groups (Board of Realtors, Mortgage Lenders Association, Landlords for Fair Housing) to promote cooperation and consensus -building regarding housing issues. (HC) HOUSING EXISTING CONDITIONS/FACTS • The 1990 Census reports 22,377 housing units, representing an increase of 217 units from the 1980 Census. • • • Of total housing units in 1990, approximately 66% are owner -occupied leaving 34% renter -occupied which compares to 67% owner -occupied and 33% renter -occupied in 1980.* Over 6% of Dubuque's population live in "group quarters" which are not counted as individual housing units. This includes housing arrangements such as convents, nursing homes, group homes, college dormitories and correctional institutions. In 1980, the numbers were similar.* Average household size decreased to 2.52 (1990) persons per household from 2.77 (1980). While there were fewer persons per household in owner -occupied units, the number of persons per household increased slightly for rental units.* • Over 45% of Dubuque's housing stock was built pre-1940.* • • • • The median value of owner -occupied units was $51,600 in 1990 compared to $47,500 in 1980. The average sale price for single-family structures in 1990 was $54,185.* Median contract rent increased from $180/month (1980) to $255/month (1990). The number of units renting for less than $250/month decreased from 5,785 (1980) to 3,363 (1990). These numbers are unadjusted for inflation; however, real income decreased in the past decade.* The median gross cost of housing (taxes and utilities included) in Dubuque, as a percentage of total household income in 1989, varies greatly between owners and renters: owner without mortgage spends owner with mortgage spends renter spends 12.1% of income 16.1% of income 24.2% of income* When housing costs exceed 30% of income, they are deemed "not affordable" by federal standards. While only 7.7% of owners moved into their units between 1989-90, 40.9% of renters moved into their units during that time period. And while 37.7% of owners had remained in their units over 20 years, only 3.1% of renters had occupied the same unit for over 20 years.* In the 1992 market, a conventional mortgage on a $60,000 house required a household income of at least $25,000/year with little other debt and the ability to make a 5-10% down payment. Annual income for a $6/hour job is $12,400, making this person eligible for only a $23,000 mortgage. Underwriting practices and interest rates will affect this example. In Fiscal Year 1992, approximately $711,000 in CDBG funds were expended by the City for housing and supportive housing projects. The following activities were completed in support of improving the quality and affordability of housing by the City's Housing Services Department: 34 rental units rehabilitated 33 owner -occupied units rehabilitated 27 homes provided free paint/Operation Paintbrush 3 vacant single-family units rehabbed No additional rental assistance vouchers were approved by the Department of Housing and Urban Development (HUD) although 90 were applied for. These housing activities generally reflect the same level of service in previous years. In Fiscal Year 1993, a new City home ownership program called "DREAMS" pooled over $2,000,000 in public and private mortgage funds for low- income home buyers. The program puts together first time buyers and vacant houses in need of rehabilitation. Habitat for Humanity and the Dubuque Housing Initiative represent new private sector action which has increased the supply of affordable housing. Rental assistance payments were provided to 899 households through the Housing Services Departmemt. While some assistance is tied to an actual unit, rental assistance certificates and vouchers allow tenants to select a unit of their choice. Assistance is available for the following unit types: City: Private: 11 single room occupancy units (SRO) 300 248 1 bedroom units 406 132 2 bedroom units 182 52 3+ bedroom units 899 432 Total 1,331 Grand Total This translates into approximately $2.7 million federal dollars spent by the City that go directly to local landlords. The waiting list for rental assistance has grown in the past year, ranging from over 500 applications in 1990 to almost 900 by December, 1992. The list represents valid applications meeting all requirements but may include a certain percentage of persons who have moved during the year, found adequate housing in the meantime, or are already receiving assistance but wish to change units. A 1991 survey of 300 households from this waiting list found that average shelter costs equaled 42% of income. While the actual numbers of persons on the waiting list for rental assistance may vary, there are additional "needy" people whose applications do not meet the strict requirements of age (62 and older), income (less than 50% of medium income), familial status (must have family), or be handicapped or disabled. Those households whose incomes are between 50 and 80% of medium income --still meeting federal eligibility standards for "low-income"-- do not meet local requirements due to limited resources and the local demands for assistance. Housing discrimination cases reported to the Human Rights Commission numbered 3 in 1992, 6 in 1991 and 4 in 1990. The complaints alleged discrimination by race, familial status or disability. The Dubuque Housing Coalition networks agencies and individuals interested in housing issues and serves as a research, education and advocacy forum. * Source: U.S. Census HOUSING CRITICAL ISSUES/TRENDS • • • • • • • • • As the cost of housing increases (e.g., due to inflation, market pressure, construction and maintenance costs), the affordability of housing becomes critical for people on fixed incomes or who are already in low to moderate income brackets. As the percent of income utilized for housing expenses exceeds 30% of gross income, that housing becomes less "affordable". Many lower income households must pay over 50% of their gross income for housing. The availability of housing does not address the 'affordability' concerns of housing advocates. Existing vacant units may not meet the 30% of income test for affordability, they may not be in appropriate locations or the needed size of unit, or they may not be desirable for other reasons. The question of providing new, permanently "affordable" units versus providing rent assistance payments for tenants which enable them to "afford" existing vacant units should be addressed. Either option impacts the local housing market in terms of competition, price and choice. Census Tracts 1 and 2, the older, downtown district, have a concentration of affordable, rental units. Locational choice is limited for low income households if efforts are not made to increase the supply of affordable units throughout the city. The increased demand for commercial and industrial development sites may result in redevelopment pressures applied to downtown residential neighborhoods. The age of Dubuque's housing stock negatively impacts the cost of both rehabilitation and maintenance of these older structures; however, the continued use of existing housing stock is found to be the most cost- efficient in terms of providing affordable units versus new construction, which has to be heavily subsidized to remain affordable. An increase in the formation of households, as indicated in the 1990 census even though the City's population has declined, impacts the housing market as demand for additional units has increased. The local college communities impact the rental housing market (supply and cost) as school enrollments increase, less on -campus dormitories are available and students make social and cultural choices to live independently. The need for special purpose housing for homeless persons, for people in transition due to circumstances such as domestic violence or eviction and for special populations such as the disabled or mentally ill must be assessed and monitored to meet changing community needs. • "Over-housed/under-utilized" is used to describe in general the situation of a single person living alone in a large single-family home; therefore, the "capacity" of the housing resource is not maximized. This must be balanced by a trend to encourage the elderly to "stay at home" and receive in -home services versus moving to a retirement center or nursing home. The Community Reinvestment Act, which requires banks to reinvest in the neighborhoods of its customers, may spur new activities in low to moderate income neighborhoods in terms of rehabilitation and ownership opportunities. The preservation of existing low-cost housing stock, while upgrading its quality, is seen as the most cost-effective way to provide needed, affordable low to moderate income housing. Downzoning certain residential areas which are zoned for other than residential uses would be one means to protect this existing stock. • Housing discrimination by race, sex, age, disability or income must continue to be monitored and eradicated. • The cost of regulation must be assessed as it impacts housing costs to see if this is significant. Past zoning difficulties and neighborhood opposition to rezonings which would allow "low income" or even market rate multi -family housing projects have made some housing a "Not In My Back Yard (NIMBY)" issue. External national and international economic factors which affect finance availability, mortgage rates, raw material prices and income impact the local housing market and influence the degree and nature of public intervention to keep housing available and affordable. Determining the appropriate type and amount of public intervention needed to assist low and moderate income persons in securing adequate and affordable shelter, without public housing ownership by the City, is needed. The growth in service sector jobs (replacing higher paying manufacturing jobs) and single -parent households may increase the need for additional affordable housing. Creating a link between economic development and housing may help address this situation. Mandated state and federal regulations (e.g., lead -based paint, asbestos) will continue to increase maintenance and rehabilitation costs. The need continues to identify new funding sources for housing as federal and state resources are uncertain. HUMAN SERVICES GOALS must address a variety of needs resulting from societal changes, economic restructuring and demographic shifts. These goals strive for an optimum level of service, that is, the greatest degree attainable under local conditions and acknowledging competition for limited available resources. While other Comprehensive Plan elements deal more directly with economic development, housing, health, environmental quality, education, transportation and public safety, City government has an indirect role in the provision of needed human services to community residents as it works with and is supportive of area providers. 1 To work with area providers to promote optimum health care services for community residents. 1.1 Increase the number of Dubuque area citizens with health care financing and health insurance. (NA) (HLTH) 1.2 Foster prescription drug assistance or coverage for the poor. (NA) (HLTH) 1.3 Support services to improve mental health. 1.4 Reduce substance abuse/chemical dependency. (NA) (HLTH) (NA) (HLTH) 2 To work with area providers to promote optimum services to meet food, clothing, shelter, transportation and other basic material needs. 2.1 Encourage food assistance and nutrition programs for people 2.2 Increase the supply of adequate, affordable housing for low income households and the homeless. (NA) (HOUS) 2.3 Foster services that meet basic material needs of the elderly, disabled and children. (NA) 2.4 Encourage a public/private coalition to address human services needs. (PC) (NA) in poverty. and moderate 3 To work with area providers to promote optimum individual and collective safety. 3.1 Reduce the rate of domestic violence in the community. (NA) (PUB) 3.2 Promote the provision of emergency shelter and protective services programs. (NA) (PUB) 3.3 Facilitate the provision of foster care and legal services programs (NA) (PUB) Nuukt:. SEe�LU 3.4 Recognize that this is not a law enforcement problem, and emphasize prevention and treatment to address substance abuse and similar problems, when possible. (NA) (PUB) 4 To work with area providers to promote optimum social and family relationships. 4.1 Increase the supply and range of available, affordable day care, especially for low and moderate income households. (NA) 4.2 Increase the opportunities for the elderly to maintain an independent lifestyle. (NA) 4.3 Support the continuation and expansion of family services and foster care. (NA) 5 To work with area providers to promote optimum income security and economic opportunity for community residents. 5.1 Target economic development efforts at creating jobs that pay salaries adequate to support a family. (NA) (ED) 5.2 Support the provision of job training, personal financial security and job support programs. (NA) (ED) 5.3 Decrease the number of area residents who live below the poverty level. (NA) (ED) 5.4 Encourage local educational institutions to adequately prepare the local work force to meet the needs of a changing economy. (NA) (ED) 6 To work with area providers [to ensure] so that human services are supported and delivered in an [adequate and] effective and efficient manner. [through organized, coordinated action.] Improve effective coordination and citizen involvement in service delivery. (NA) 6.1 6.2 6.3 Continue to coordinate, jointly plan, and improve services through organized community action. (NA) Encourage more self-reliance, to reduce the need for subsidized human services. (PC) HUMAN SERVICES EXISTING CONDITIONS/FACTS • The Dubuque Area Human Services Delivery System (DAHSDS) consists of a number of agencies designed to meet a variety of needs in Dubuque and the surrounding area. DAHSDS is regional, serving six counties in two states. The local system shares resources with other cities in the area. DAHSDS is a mix of public, voluntary or non-profit and for -profit agencies. Perhaps the largest funder of voluntary agencies is the United Way which raises and allocates funds for the community through 18 local member agencies. The United Way distributed over one million dollars to these agencies in the Fiscal Year ending October 31, 1991. Financial contributions to the United Way have generally increased over the last five years. There are a number of local human services coordination efforts. Included are the Friends of the Community Program (a council of social agencies and service providers) and the Decategorization Program (coordinators of children and youth services). In addition, there is a significant number of interagency task forces and informal groups that coordinate various human service efforts. Area income support programs include Aid to Families with Dependant Children (AFDC), Food Stamp Program, General Assistance Funds, Women, Infants and Children Program (WIC), Section 8 Housing Assistance, Social Security Retirement and Disability Benefits, Energy Assistance and various other private funds available from several voluntary agencies and churches. Locally, programs for rehabilitation and job location are provided by the Iowa State Department of Education Division of Vocational Rehabilitation Services, the Job Services and Job Training and Partnership Act (JTPA). The Department of Human Services (DHS) provides protective services for children, foster care and adoption services. There is a wide range of non- profit agencies, including Gannon Mental Health Center, Catholic Charities, Hillcrest Services, Lutheran Family Services and Families of Northeast Iowa, that provide marital and family counseling. In addition, several private practitioners and self-help groups provide services for families experiencing difficulties. • Mental health and substance abuse programs are provided by the Gannon Mental Health Center and the Mercy Health Center. Mental health hospitalization is provided by Mercy Hospital. The Gannon Mental Health Center service fees are based on a sliding scale, and 30% of the clients paid $5 or less in 1992. • Area Residential Care is a non-profit agency that provides a wide range of services for the mentally handicapped, including housing, training, volunteer support, sheltered workshops and job training. • Hillcrest Services is a private, non-profit agency that provides both residential and non-residential child welfare and child mental health services. • Scenic Valley Area Office on the Aging is the primary coordination and service agency for the elderly. DHS provides adult protective services and case management. Home health services are provided by Visiting Nurses Association and Amicare. Project Concern provides a number of access and volunteer services for the elderly. Housing services are provided through the City Housing office and the Eastern Iowa Regional Housing Authority which serves Dubuque County. • The Dubuque County Law Enforcement Center is the principal local correctional facility. There are also an Office of State Parole and Probation and a Department of Correctional Services Residential Facility located in Dubuque. The DHS provides services through Hillcrest Services to CINA (Children In Need of Assistance) children, some of whom are juvenile offenders. • Crisis intervention is provided through Project Concern/Phone a Friend, the Mercy Mental Health Center, Mercy Hospital, Medical Associates and DHS. Emergency housing and material supplies are available through the Salvation Army, Dubuque Rescue Mission, the American Red Cross and several other local agencies. • Local churches, self-help/mutual aid groups and voluntary associations comprise an informal network of services that complement area agencies. Area agencies have identified children and the elderly as the two groups most in need of social services. Dubuque has substantial elderly (over age 65) and frail elderly (over age 80) populations. National trends suggest these two groups are growing. While rates of divorce, infant mortality and births to unwed teenage mothers generally were lower than the state rate from 1985-1989, incidents of domestic violence and alcoholism were higher than average. Suicide rates for the area are unstable, but do indicate a slightly higher than state average while chemical dependency rates are slightly lower. Local agency representatives estimated 17% of area residents are receiving human services assistance. They also estimated an additional 17% require, but do not receive, needed services. The City Housing Services Department estimated in 1992 that it serves 1 out of every 3 eligible households. When asked to identify the top ten unmet needs in the City in 1992, agency representatives identified: health care coverage/insurance, affordable/adequate housing, employment, chemical dependency, day care, transportation, food/nutrition, domestic violence, assistance with prescriptions, foster care, homelessness and in -home services/elderly. • A poll of human service agencies identified the following services offered in this area: Educational programs, emergency services, counseling, substance abuse treatment, family counseling, volunteer programs, residential treatment, recreation, emergency shelter, foster care, outreach, transportation, support groups, employment, adoption, income support, probation supervision, emergency income, inpatient substance abuse, information and referral, community development, budget counseling, child support enforcement, nursing care, in -home counseling, economic development, refugee programs, in -patient psychiatric care, homemakers, meals on wheels, legal services, respite care, and abuse/neglect (child and adult). Recent state-wide budget cuts have affected local human service agencies. Actions taken, or planned actions, aimed at addressing these cutbacks include: reduced services, tightened eligibility, increased waiting lists, reorganization and reductions in staff, training and administration. The most frequently identified risk groups were the elderly, children, low income people, single mothers, single women over age 50, the mentally ill, families and the working poor in a 1992 needs assessment/analysis. HUMAN SERVICES CRITICAL ISSUES/TRENDS The growing elderly population will require additional and increased services to maintain their independence. This is especially true of the "frail elderly" (those over 80 years of age). In -home services, transportation, Meals on Wheels and other programs that serve an older, lower income population will be in greater demand in the near future. Because of the efficiency of the area human service agencies, the system has less "defense in depth" and is very vulnerable to budget cuts. Future loss of funding could curtail or eliminate some services and are likely to lead to service gaps. Economic changes, notably the conversion of manufacturing to service jobs, may increase the number of households living at or below poverty level. This may tax service agencies and change the nature of the demands placed upon it. The most frequently identified human service needs in the next ten years include: health care coverage/insurance, affordable/adequate housing, housing for the homeless/mentally ill, transitional housing, programs for the elderly, programs for children/families and food/nutrition programs. Increased employment opportunities directly correlate with the level of need in each of these areas. Agency representatives feel new programs should be targeted at affordable housing/homelessness, health care financing, employment, alcohol abuse, day care, domestic violence, transportation and in -home services for the elderly. Programs in foster care, food/nutrition, psychiatric care and family services will also be important. The most frequently identified impacts on the future of human services include: state, federal and local funding levels, unfunded state and federal mandates, government regulatory policies, an aging population, decategorization (pooling of children's services funds to allow more flexibility in allocation) and the economy generally. • While lack of funding, the economy, insurance regulation and unemployment have been identified as major problems that will effect the future of human services, cost control/money management, lobbying/advocacy, cutting back services and education have been offered as possible solutions to such problems. • Given the increasing number of single parent and two -income households, day care will be in increasingly greater demand. • An effort to coordinate and improve services through organized action in the Dubuque area is a positive development and represents an important resource for adapting to the future. Z O I- Q U 0 i W EDUCATION GOALS must address the educational and informational needs of all members of the community as life-long learning opportunities are made available at many levels of interest and for all ages and abilities. Education must not be relegated to the schools alone but must become a collaborative experience that weds public and private sector, business and government, parent and child in partnership with each other and our educational institutions. A community's quality of life and ability to attract and retain both economic growth and residents often depends on the quality and quantity of educational facilities and services. 1 To support opportunities for life-long learning for residents of all ages. 1.1 Support efforts to increase adult literacy. (LIB) 1.2 Promote access to all levels of education for all persons. (V2) 1.3 Support individuals of all ages in pursuit of a sustained program of learning independent of any educational provider. (LP) 2 To provide access to timely, accurate and useful information and both audio- visual and reading materials through the public library. 2.1 Provide and enhance quality on -site, telephone and electronic reference services. (LP) 2.2 Coordinate and share resources to serve better the needs of the public. (LP) 2.3 Feature current, high -demand, high -interest materials in a variety of formats for persons of all ages. (LP) 2.4 Promote use and awareness of the public library. (LIB) 3 To create and deliver a quality education that allows all students to reach their highest potential. 3.1 Promote a variety of assessment tools, methods and strategies to evaluate and/or document student progress. (DCSD) 3.2 Champion superior standards of academic excellence, in which values are integrated in the lives and work of all members of the school community. (CS) 3.3 Support a comprehensive educational program that provides services to students ranging from severely and profoundly disabled programs through gifted programs and advanced placement courses. (EDS) 3.4 Strive to prepare students for careers, lifelong learning and citizenship in contemporary international society. (NICC) 4 To address the special pre-school educational needs of children in the community. 4.1 Promote and enhance programs for parent education. (LIB) 4.2 Encourage families' use of the public library through services for parents and parents and children together. (LP) 4.3 Encourage pre-school children to develop an interest in reading and learning. (LP) 4.4 Enhance programming activities for pre-school children. (LIB) 5 To increase the involvement of parents and the community in our schools. 5.1 Promote parental and other citizen ownership and participation in the educational system. (V2) 5.2 Involve parents in helping students to achieve their educational goals. (DCSD) 5.3 Provide a safe school environment. (LRPC) 6 To build partnerships between the private sector and schools to ensure that educational outcomes meet the needs of both future employers and employees. 6.1 Encourage employment programs that promote partnerships among business, social services and educational institutions to train and educate the workforce. (V2) (ED) (HS) 6.2 Foster business and industry involvement in the educational process. (PC) (ED) 6.3 Seek the support of the entire community to meet the educational challenges of the future. (CS) 6.4 Respond to the changing educational and human needs of the community, with emphasis on quality higher education. (NICC) 6.5 Expand business and industry initiatives for delivery of customized training and other workforce development activities. (NICC) (ED) 7 To develop responsible citizens and leaders to meet the challenges of a changing world and global society. 7.1 Promote opportunities for all segments of the community to participate in leadership activities. (V2) 7.2 Facilitate the recruitment of youth for leadership roles in all segments of the community. (V2) u c.Ano 7.3 Emphasize in the learning process the global nature of the work environment. (PC) (ED) 7.4 Promote quality global, multi -cultural, non-sexist education at all levels. (V2) (DIV) 8 To provide quality [adequate] educational facilities in appropriate locations throughout the community to meet changing demographic and development patterns. 8.1 Improve and expand college facilities, including student housing, as a result of increased enrollments. (NICC) (LU) 8.2 Extend informational opportunities beyond the walls of existing institutions. (LIB) 8.3 Enhance the capability of educational facilities to meet the needs of citizens, as changing demographic projections indicate. (LIB) 8.4 Foster a learning environment that utilizes state-of-the-art technologies. (LRPC) 9 To identify new sources of funding and increased efficiencies to maintain and/or expand educational programs and facilities. 9.1 Integrate, coordinate and pool resources among private and public educational institutions at all levels. (V2) 9.2 Identify innovative strategies to seek major funding from new sources to supplement shrinking traditional local, state and federal funding. (NICC) (CF) 9.3 Foster quality management of educational services and facilities. (PC) EDUCATION EXISTING CONDITIONS/FACTS Public Schools • The Dubuque Community School System consists of 12 elementary schools, 2 junior high schools, 1 shared -time junior high, 2 senior high schools and 1 alternative high school. In 1991-92, the Dubuque Community School System had a total staff of 1,450 employees, including 636 certified teachers, 9 nurses, 7 specialized teachers and 45 administrators. There are also approximately 300 assistant teachers and substitutes (including teachers, nurses and coaches), 200 maintenance, custodial and transportation workers and 100 clerical staff. • Public school enrollment in Dubuque County fell from 14,644 in 1980 to 11, 869 in 1990, a loss of 2,775 students or a change of-18.9%. Since 1990, student enrollment has increased steadily at an average rate of 1 to 1.5% per year. In general, these changes mirror nation-wide demographic trends. • In 1992, Dubuque had one of the largest special education programs in the state providing services to over 1100 handicapped individuals ages 1 to 24. • The Dubuque Community School System's general operating budget for 1991-92 was $45,284,700.00. The School District received $3,210 of state aid per student, and average overall expenditures, including general fund expenditures, were budgeted at $4,653 per student. The 1991/92 statewide average cost per pupil was $4,590. • The Dubuque Community School System and the Dubuque Metropolitan System of Catholic Education have one of the largest shared -time programs in the State of Iowa. There are 435 shared timers at Jones Junior High School alone. The two systems have developed a positive working relationship and they share special education programs, drivers education classes, health services, lunch programs, printing services and Dalzell Field. The Dubuque Community School System receives a full-time equivalent reimbursement for provision of these services. • The 1991-92 public school teacher to student ratio for grades K through 6, was 1 to 23. The junior high and high school teacher to student ratio varied from 1 to 15-28. • Dubuque public school students test above the national average on the ACT national standardized test and 60% of all eligible students take the exam. The national composite average is 18.0 and Dubuque's public school students scored a composite average of 21.0 over a five-year period (1984-85 to 1988- 89). Iowa's ACT college entrance exam average score of 20.3 (1988) is 1st in the nation. • The Dubuque public secondary school dropout rate has generally decreased from 4.0% in 1980 to 1.03% in 1992. This compares with a statewide average of 2.3% in 1992. The Iowa high school graduation rate of 86.4% (1987-88) was 5th in the nation. • Every school in Dubuque has a lunch program with free and reduced lunches for economically disadvantaged children. Prescott is the only public school offering a breakfast program, but expansion of this program into all Chapter 1 schools (those in lower socioeconomic target areas) is being considered. Nativity and Downtown Catholic Schools are the only parochial schools offering a breakfast program. In 1991-92, 34 dual enrolled and approximately 70 home schooled students were monitored by the Dubuque Community School System. Those home schooled students that are tested do well on standardized tests. Although home schooling is growing in popularity, the number of students involved has remained relatively low. A barrier -free school system is a high priority of the school district as it meets the mandate for full integration of students with disabilities. Between 1975 and 1991, in general, enrollment levels for both public and parochial schools in Dubuque have steadily fallen (A 28.5% and 41% decline in enrollment respectively). Since 1991, enrollment numbers have stabilized and School District projections, to the 1995-96 school year, indicate this stability will continue. Public Library • In 1991, the Carnegie -Stout Public Library contained 150,000 publications and had 21 FTE employees with an annual budget approaching one million dollars. Volunteers donated 3,500 hours of service to the library in 1991. Although the library's mission is primarily informational, a significant portion of its resources are dedicated to education. • The Carnegie -Stout Public Library offers a number of preschool educational programs including formal orientation sessions for groups of children and parents from area preschools. Children's reading programs, aimed at developing communication skills, are also provided. • The Carnegie -Stout Public Library's computer system can be accessed by modem and information sources such as the card catalog can be checked. • The Carnegie -Stout Public Library is a member of a cooperative committee with local schools and colleges and shares resources such as a data base with them. The Carnegie -Stout Public Library's philosophy is that learning is a life-long pursuit with goals being individually defined. Private Schools • The Dubuque Metropolitan System of Catholic Education is part of the larger Archdiocese of Dubuque which covers 1/4 of the state's land and includes 56 elementary/junior high schools and 8 high schools with a total student population of 16,690 and a preschool population of 3,215. The Dubuque Metropolitan System of Catholic Education consists of 11 primary/junior high schools and 1 high school. In 1991-92, the Dubuque Metropolitan System of Catholic Education employed 262 teachers and 20 administrators. 2 Private school enrollment in Dubuque County fell from 8,762 in 1980 to 6,148 in 1990, a loss of 2,614 students or a change of-29.8%. The 1991-92 teacher to student ratio at the parochial high school was 1 to 14. At parochial schools with grades K through 8, the ratio averages 1 to 20 The 1989/90 operating budget of the Dubuque Metropolitan System of Catholic Education was $7.3 million. Over the same period, the archdiocese cost per pupil was $1,417 for elementary students and $2,600 for high school students. In addition to private tuition, alternative financing methods include subsidies, gifts, fund-raising, capital fund drives, archdiocese grants, recruitment funds, alumni support and the adopt -a -student program. 42% of Wahlert High School students receive financial aid. No student who desires entry into the Dubuque Metropolitan System of Catholic Education is denied for financial reasons. • The Dubuque Metropolitan System of Catholic Education offers many classes and programs such as adult education (parenting classes), adult Formation in Faith Seminars, Catechetical instruction and handicapped education that are peripheral to conventional K through 12 education. The system has a "Womb to Tomb" educational philosophy. • Wahlert students scored an average of 22.9 in 1991-92 on the ACT national standardized test, with 90% of eligible students taking the exam. • The Wahlert High School drop -out rate for 1991-92 was less than 1%. Higher Education • Dubuque's two colleges and one university are collectively known as the tri- colleges. The tri-college concept represents a cooperative effort in which the three schools share a common schedule and calendar and allow cross - registration. The schools also have a joint education department, graduate education programs and social work program. Students are provided bus service between schools and other joint programs are currently being studied. • In 1991-92, the population of the University of Dubuque was 1,050 students and 75 faculty, the population of Loras College was 1,900 students and 151 faculty and the population of Clarke College was 850 students and 75 faculty. • Northeast Iowa Community College's Peosta Campus enrolled over 1,000 regular daytime students in 1991-92, and several thousand continuing education evening students. NICC offers business, health occupations and industrial technology education with an 80% placement rate (within one year) and 21% of NICC graduates continue their education at other institutions. • NICC offers a host of adult classes in their adult basic skills education and literacy program including one-to-one tutoring for illiterate adults, G.E.D. preparatory classes, job and coping skills and reading, writing and 3 math enhancement. In 1990-91, this program served 1,105 adults at 13 area locations. In 1991-92 the University of Dubuque had 174 full-time and 172 part-time graduate students. Of the 346 total graduate students, 155 are seminary students. Loras College had 69 graduate students and Clarke College's graduate student population fluctuated seasonally between 25 and 60 students. Three seminaries are located in Dubuque: the University of Dubuque Theological Seminary, Wartburg Seminary and Emmaus Bible College. The three schools collectively had 539 students and 50 faculty in 1991-92. The Dubuque College of Business trained 65 individuals in 1991. All programs are geared to provide job skills and training for the office environment including clerical, secretarial, computer, word processing and data processing. Elementary foreign language programs are being offered by the Tri-Colleges to all area students grades 3 through 8. 4 EDUCATION CRITICAL ISSUES/TRENDS • Between 1980 and 1988, the population aged 18 to 24 fell by 11 percent; however, college enrollment rose 6%. Census Bureau projections show an additional decline of 10% through 1995 in the population aged 18 to 24, yet the National Center for Education statistics expects a decline of less than 1% for college students in that age group. Between 1995 and 2000, the number of 18 to 24 year olds in college should increase by 8 percent. The number of students aged 35 and older are expected to increase by 26% between 1988 and 2000. College financing, scheduling and programs for these "non- traditional" students will be in demand. • "Expeditionary learning", to be instituted in the 1993/94 school year, represents an opportunity to restructure the teaching/learning process through a pilot study in four of Dubuque's public schools. The program, being implemented in four other U.S. cities, has national support and foundation funding. Other changes being examined and implemented in the public schools include clustering at the junior high level and an alliance of three elementary schools. • Year-round schools may offer advantages to both students and the school system. Greater retention and relief from overcrowding are two such advantages. Parental support and involvement are necessary to the plan and some of its drawbacks include funding for additional staff and the necessity to retrofit many buildings with air conditioning. Audubon Elementary School will experiment with this schedule during 1993-94. • Full -day, everyday kindergarten is being evaluated by the Dubuque Community School System. There are programs underway at Hoover, Irving, Kennedy, Eisenhower, and Sageville Schools. No parochial schools offer full -day kindergarten. • While overall Iowa ranks well nationally on Iowa Tests of Basic Skills (ITBS) and Iowa Tests of Educational Development (ITED) scores, several of Dubuque's public elementary schools rank low relative to schools state-wide. The Dubuque Community School District is currently studying demographic shifts as part of its redistricting efforts. Growth is projected on the south side in the Kelly Lane area and on the west side in the Embassy West/ Sunny Slope Acres area. Special attention may be needed for at -risk students including identification and intervention, outreach to parents, counseling services, special remedial programming, occupational preparation and vocational training and limited class size. Teen pregnancy, drug abuse and the high school drop out problem must also be aggressively addressed. A recent trend in education that is gaining popularity nation-wide is "parental choice". In one scenario, tax vouchers are issued directly to parents enabling them to send their children to a school of their preference, whether public or private. 5 • Elderly and pre-school populations may need new and/or expanded educational programs and resources as these age group populations increase. • New technologies, especially exposure to computers, must remain available as learning tools for students in order to prepare them for the demands of tomorrow's workplace. School/community interaction should be encouraged with students playing an active part in local service projects that involve direct experience outside the traditional classroom setting. Private sector/school partnerships may be the key to successful future employer -employee relationships. Preparing students for the workplace with appropriate and necessary skills will be the challenge. At a recent series of roundtable meetings on education entitled "World -Class Schools: The Iowa Initiative", business leaders and educators made several suggestions aimed at improving education and making Iowa's schools more globally competitive. Some suggestions included emphasizing results, holding school districts accountable with a reward and penalty system, measuring student performance with a variety of methods (not only standardized tests), encouraging parental involvement and providing pre- kindergarten programs. Dubuque schools are moving forward in many of these areas. • Core curriculums in Dubuque schools are emphasizing global and multi- cultural non-sexist education. • Site -based management is a trend that allows decentralization of authority and encourages team building and decision making. Principals, teachers, staff, parents and students will have a greater say in their schools but also may be asked to accept greater responsibility. • With more two -worker and single -parent households, latchkey programs may be increasingly in demand to provide before and after school safehavens for children. • Increased parental involvement in the educational process may be a key link between school/student performance that should be enhanced. • The spirit of cooperation between public and parochial schools and the tri- colleges has been strengthened by cutbacks and declining student enrollment. Shared -timed programs and joint programs allow schools to pool scarce resources and more efficiently use state and federal grant monies. Even greater cooperation and increased joint ventures may be necessary in the future while new sources of revenue will remain an issue at all levels of education. 6 CULTURAL ARTS CULTURAL ARTS GOALS must address the arts as an important aspect of our community's basic quality of life. The cultural arts not only enrich our experiences but educate us about the world we live in. The diversity of the world as represented through the cultural arts is one way to share the culture and knowledge of different peoples and places. The freedom and opportunity to create and explore the cultural arts should not be understated or ignored. 1 To celebrate the arts as an opportunity to enjoy and enrich community life. 1.1 Promote opportunities for residents of and visitors to Dubuque to enjoy the arts. (DAA) 1.2 Encourage arts and cultural programming year-round for children and adults in the Dubuque area. (DAA) 1.3 Foster multi -cultural, multi -disciplinary artistic and educational opportunities to expand cultural horizons and improve the quality of life. (DAA) (DIV) (EDU) 1.4 Encourage opportunities for personal, educational, cultural and recreational enrichment. (LP) (EDU) (REC) 1.5 Promote collections, services, experiences and programs that respond to individual and community needs. (LP) 1.6 Promote the arts as a common ground for all members of the community. (DAA) (DIV) 2 To provide a variety of affordable and accessible cultural arts activities and resources for all ages. 2.1 Expand cultural and recreational opportunities for youth and senior citizens. (V2) (REC) 2.2 Coordinate and increase public and private support of wide-ranging, affordable cultural and recreational events and organizations. (V2) (REC) (CF) 2.3 Support affordable access to cultural arts activities and resources, whenever possible. (LIB) (CF) 2.4 Promote accessible arts activities for members of the community, regardless of disabilities. (DAA) (DIV) 2.5 Develop expanded, affordable use of public facilities. (V2) (CF) 3 To promote affordable and accessible spectator and participatory arts experiences and cultural events. 3.1 Continue and expand the opportunities to bring cultural events to community facilities. (CC) (REC) 3.2 Promote art, drama, music and dance experiences for audiences and participants of all ages. (DAA) (REC) 3.3 Continue and expand the role of the Five Flags Center as a major center for cultural events, conventions and arts experiences. (DAA) (REC) 3.4 Develop and strengthen a strong community base of support. (DAC) 4 To utilize the arts to encourage a better understanding of the cultural diversity of the world. 4.1 Encourage presentations of minority artists and arts reflecting ethnic traditions. (DAA) (DIV) 4.2 Foster global awareness activities and intercultural education. (DAA) (DIV) (EDU) 4.3 Foster the celebration of cultural diversity. (HRC) (DIV) 5 To support the expression of the cultural arts and access to that expression. 5.1 Promote the concept of intellectual and general cultural and artistic freedom of expression. (LIB) 5.2 Foster accessible cultural opportunities which increase appreciation and broaden perspectives. (DCHS) (DIV) 5.3 Provide the recorded wisdom, experiences and ideas of others assembled, organized and made accessible to all. (LP) 5.4 Maintain opportunities for arts groups to utilize the Five Flags Center and Five Flags Theater for the expression of art. (CC) 5.5 Promote free expression of and full access to that expression of artists worldwide. (LIB) 5.6 Promote and improve public awareness and appreciation of the arts. (DAC) 5.7 Preserve, collect and interpret the fine arts. (DAA) (EDU) 6 To safeguard the cultural and historic resources of the community as critical to the quality of life and the attractiveness of Dubuque. 6.1 Promote the preservation of historic buildings and architectural resources in the community. (CED) (LU) 6.2 Educate the community about the benefits of historic preservation to the community's quality of life, economic development efforts, tourism and tax base enhancement. (CED) (ED) (CF) 6.3 Explore, preserve and interpret for present and future generations, the history of Dubuque and the Mississippi River. (DCHS) (EDU) 6.4 Increase appreciation, education, technical assistance and funding for the community's historical and architectural heritage. (V2) (EDU) 7 To encourage the availability of adequate facilities to support arts activities. 7.1 Promote preservation and reuse of historic buildings and sites in the community for the cultural arts. (LS) (LU) 7.2 Strive to maintain cultural arts, entertainment and continuing education services offered by local cultural and educational institutions. (NARFE) (EDU) (REC) 7.3 Encourage coordinated services and shared resources among cultural arts organizations in the Dubuque area. (DAA) CULTURAL ARTS EXISTING CONDITIONS/FACTS Organizations • The Dubuque Arts Alliance is an association of area arts groups offering arts and cultural programs to area residents. The Alliance was established in 1990 to discuss, plan and coordinate services to the community and to share resources among its members. The Alliance consists of fourteen art groups: The Barn Community Theatre, Carnegie -Stout Public Library, Clarke College, Colts Drum and Bugle Corps, Dubuque Symphony Orchestra, Dubuque Museum of Art, Dubuque Arts Council Artists -in -Residence, Five Flags Civic Center, Heartland Ballet, Loras College, University of Dubuque, Very Special Arts, Dubuque County Fine Arts Society and Dubuque County Historical Society. The total budget for these Alliance groups in 1990 was an estimated $4.5 million, including $1 million in grants. Events sponsored by member organizations attracted 503,135 people in 1990. These organizations employed 40 full-time and 370 part-time employees in 1990. • Dubuque art, music, cultural and educational organizations are extensively networked by over 350 board members who work together to attract and promote cultural art activities. • In 1990, 172,599 hours were volunteered in the major art organizations. The national average volunteer value of $6.50 per hour times the hours volunteered equals $1,898,233 worth of volunteered labor. • The Dubuque County Historical Society, in existence for over 25 years, works on preserving the history of Dubuque County and the Mississippi River. It provides guided tours of the area's architecture and historical sites. The Dubuque County Fine Arts Society focuses on cultural needs which are not served by other organizations. It has sponsored art exhibits, one act plays and the annual DubuqueFest. The Dubuque Museum of Art preserves, collects and teaches fine arts which reflect the cultural activities of Dubuque. The museum provides monthly exhibits, Living Landmark tours, annual juried Art Sale, Members' Annual Exhibition, workshops and a Brown Bag luncheon series that covers many topics. The City's Historic Preservation Commission regulates exterior changes to buildings within the City's five historic preservation districts which include over 700 properties. Three of the local districts are also listed on the National Register of Historic Places. The Colts Drum and Bugle Corps has provided musical performance and training experience for over 2,000 members since 1963. The Colts have placed in the top 25 of over 300 corps internationally for the past 10 years. The Heartland Ballet is a company of 40 pre -professional dancers who have performed many popular full-length ballets and collections of one -act ballets. • The Dubuque City Youth Ballet is responsible for developing, promoting and presenting the art of ballet to youths in the Dubuque area. • The Dubuque Symphony Orchestra performs both free and subscription classical, pop, ballet and holiday concerts to audiences in Dubuque. • The Dubuque Arts Council sponsors and encourages a variety of artistic, cultural, and educational activities in the area. It is highly acclaimed for the Artist -in -Residence program which attracts talented artists who give performances in schools, nursing homes, churches and businesses. • The Very Special Arts are dedicated to providing cultural art activities for persons with disabilities. It is a co-sponsor of the DubuqueFest/Very Special Arts festival which reaches approximately 50,000 people each year. • The Barn Community Theatre provides opportunities for children and adults to participate in production and performance of plays during the Community Theatre Season. • Some specialized arts organizations include: Cable Car Quilters Guild, Dubuque Fine Arts Players, Dubuque Musicians Association, Dubuque Writers Guild and Fly by Night Theatrics which provide a variety of art and cultural activities. • The Land of Festivals is an umbrella group that provides organizational support, publicity and marketing for the festivals and cultural activities occurring throughout the community. Facilities • The Five Flags Civic Center and Theater host concerts, sporting events, circuses, exhibitions, banquets, conventions, dance, drama and comedy. The Theater has a capacity of 700; the Bijou Room seats 150. The theater, restored to its historic grandeur, is the oldest of its kind in Iowa and has provided a stage for public entertainment continuously since 1840. The Carnegie -Stout Public Library provides resources in a variety of formats: books, videos, audio -cassettes, compact disks and a collection of fine art. Several gallery areas in the Library provide opportunities for the public to view and appreciate different forms of art work, including two Grant Wood originals. The Grand Opera House offers community theatre productions and has provided continuous entertainment since 1890. It has a 700 person capacity. An estimated 32,000 people attended productions in 1991. • The Tri-Colleges, Clarke, Loras, and University of Dubuque, offer an array of local and international arts, lectures, concerts, theatrical productions and dance performances to Dubuque. The Tri-Colleges have a total of four theaters: Clarke College -Terence Donoghoe Hall and Jansen Music Hall; Loras College -St. Joseph Auditorium; and University of Dubuque -Blades Hall. These theaters combined have a total capacity of 1,525 people. The Tri-Colleges also provides two exhibit areas for art: University of Dubuque -Alumni Hall and Clarke College -Quigley Gallery. The Dubuque Museum of Art/Old Jail Gallery is Dubuque's only National Historic Landmark and was built in 1857-58. The Museum exhibits were viewed by an estimated 17,000 people during 1991. 2 • The Dubuque County Historical Society operates the Woodward Riverboat Museum complex featuring 300 years of river adventures, the new Iowa Welcome Center and the Mathias Ham House Historic Site, which includes Iowa's oldest log cabin and a one -room school house. Educational Opportunities • Several cultural arts organizations sponsor a program called Arts Trek, which grew out of a 1972 program called "Flight 4". It exposes private and public elementary school students to live performances, art galleries and museums. This program is a cooperative effort with each organization providing its own funding. • Two access television programs, Artscape and Artstart, provide local information about art. Artscape is a weekly half hour television program which focuses on the arts in Dubuque. Artstart is a half hour television program which features young people creating and performing art. These programs are funded in part by the Iowa Arts Council. • The Dubuque Museum of Art offers art classes to children and adults year round. Approximately 447 people attended classes in 1991. • The Academy of Ballet provides professional ballet training for 125 students who range from 6 years old to adult. • The Colts and Dubuque Youth Symphony provide musical training and performance opportunities to youths. • Both private and public schools provided music, art and literature classes to 18,017 students in Dubuque County. • Carnegie -Stout Public Library has created a five year plan (1993-1997) centered around four major tasks: 1) the provision of timely, accurate and useful information, 2) the provision of current, high demand materials in a variety of formats, 3) the development of children's interest in reading, and 4) the support of individuals of all ages who are pursuing an independent program of learning. • The Tri-Colleges provide classes in art, art education, English, modern foreign languages, music and drama to interested students. • The DubuqueFest/Very Special Arts has celebrated cultural diversity in the city of Dubuque since 1977. The Dubuque County Fine Arts Society, in conjunction with Very Special Arts, sponsor the festival and provide live music, an art fair, poetry reading, children's art stops, ethnic food and dance to people of all ages each May. • A new cultural arts program called KALEIDOSCOPE, sponsored by various established arts organizations, promotes intercultural understanding and appreciation through a variety of arts experiences. The program will introduce arts into the workday environment of all segments of the community. Music, dance, poetry, drama and visual arts either created by or depicting minority cultures will be utilized. 3 c. R Sad loN RECREATION GOALS must address the provision of facilities and activities for leisure time enjoyment by all members of the community. Both public and private resources are needed to provide a full range of recreational experiences. The community's overall health, wellness and quality of life are interrelated with the variety and availability of parks, open space and recreational opportunities that are accessible to all. Accessibility includes both physical and financial access to recreational facilities and activities. Recreation can serve to meet positive human needs and is one of the key factors in Dubuque's livability. 1 To provide [develop] a safe park and recreation system that continues to meet the community's needs for useable and accessible park and open space. Maintain the existing high -quality, safe park and recreation system. (LS) (LU) (PUB) Identify the type of parks, park facilities and hike/bike trails lacking in the community. (PARK) (LU) Identify potential park and recreation sites and hike/bike trails to meet the needs identified in the Comprehensive Plan. (PARK) (LU) Identify funding sources for land acquisition and development. (PARK) (LU) 2 To promote and encourage the wholesome and enjoyable year-round use of leisure time. 2.1 Update periodically the marketing plan to promote the City's Leisure Services. (LS) 2.2 Develop a marketing plan to promote the benefits of proper use of leisure time. (PARK) 2.3 Identify the times and locations to offer programs so as to make them easily accessible to users. (PARK) 3 To offer a variety of affordable and accessible spectator and participatory events and experiences. 3.1 Identify potential users and promoters to provide sporting events, concerts and floor shows in the Five Flags Center. (PARK) (CA) 3.2 Identify sponsors to host softball tournaments at the McAleece Park and Recreation Complex. (PARK) 3.3 Continue to meet the needs of the community for adult leagues in a variety of sports. (PARK) 4 To provide a variety of affordable and accessible recreation classes and activities for people of all ages. 4.1 Identify the needs and interests of people of all ages and the types of programs they desire. (PARK) 4.2 Maintain an inventory of organizations and groups identifying what programs they are offering in the community. (PARK) 4.3 Provide a varied program offering activities and programs not being provided by other organizations and groups. (PARK) 4.4 Assess the facility needs of the community (including the need for a recreation center building) so as to meet the recreational needs of the community. (PARK) 5 To provide opportunities for young people to learn the skills of various sports and leisure activities. 5.1 Identify the needs and interests of young people as to what sports they would like to participate in. (PARK) 5.2 Review periodically the concept of offering programs that stress fundamentals, skills development and sportsmanship. (PARK) 6 To improve and expand recreational opportunities for adults, the elderly and the disabled. 6.1 Assess the needs and interests of adults, elderly and the disabled as to what programs they would like to see offered. (PARK) (HLTH) 6.2 Assess what other groups and organizations in the community are doing to provide programs for these individuals. (PARK) (HLTH) 6.3 Develop a program that will offer activities not presently being offered in the community. (PARK) (HLTH) 7 To enhance the visual attractiveness of the community and park system. 7.1 Maintain all park areas in a manner that fosters community pride in the park system. (PARK) 7.2 Provide flowers and other landscaping accents to enhance the beauty of all park areas and City -owned property. (PARK) 7.3 Review periodically the street tree program and policy to provide plantings on right-of-way on all streets in the city. (PARK) 8 To optimize the recreational amenities offered by the city's riverfront. 8.1 Coordinate the implementation of the Recreation, Entertainment, Culture and Education Planning component of the Riverfront Plan with other public and private organizations. (RP) (TRN) (IN) (ED) (CA) (EDU) 8.2 Coordinate the implementation of the Environment Planning component of the Riverfront Plan with other public and private organizations. (RP) (EQ) RECREATION EXISTING CONDITIONS/FACTS Public The City's Leisure Services Department provides leisure opportunities to Dubuque residents and consists of three divisions: Civic Center, Parks and Recreation. The Civic Center Division provides sporting, musical and dramatic spectator events, commercial and educational activities at the Five Flags Civic Center. The Five Flags facility provides 3 conference rooms, which can be rented, a theater with 717 seats and 1 arena, which has the maximum capacity of 5,200 occupants. The Parks Division is responsible for maintaining park areas, the Ice Harbor, Town Clock Plaza, the freeway corridor and trees on city right- of-ways, as well as performing city-wide landscaping. The Recreation Division offers year-round activities through seasonal programs, including: aquatics, softball, baseball, football, soccer, basketball, tennis, volleyball, golf, ice skating, cross-country skiing, adult activities and recreational classes. These programs are offered to age groups ranging from 3 years to senior citizens. Programs for the handicapped also are offered. Three programs, aquatics, golf and adult activities, are 100% self- supporting. Adult activities include: football, basketball, softball, tennis and other sporting events. Other programs are estimated to be 70-80% self-supporting. • The Recreation Division operates one 18 hole golf course, Bunker Hill (39,000 rounds played 1991), and two swimming pools, Sutton (54,000 admissions 1991) and Flora (101,000 admissions 1991). These facilities are open to the public but require a user's fee. Other area public golf courses include Fillmore (9 holes), Timberline (9 holes) and Lacoma (2- 18 hole and 2-9 hole courses). • McAleece Park and Recreation Complex is a 42 acre facility with three lighted softball fields, a lighted regulation baseball field and bleacher seating for 1,700 spectators. Located on Schmitt Island, the multi -purpose complex also has playground equipment, picnic tables and volleyball courts. • The City has 7 major parks which total 438 acres and 18 minor parks/playgrounds which total 45.2 acres, making a combined total of 483.2 acres. The city also leases two parcels of property, Four Mounds Park and E.B. Lyons Nature Center, which total 92 acres and has Roosevelt Park which is closed for public use, with another 207 acres. Combined park acreage, leased park acreage, and closed park acreage is 782.2 acres. • The National Recreation and Park Association (N.R.P.A.) has established a guide for park development in cities. The guide establishes three categories of parks with a recommended number of acres per 1,000 residents in each category: 1) mini -parks (1 acre or less) 0.25 to 0.5 acres per 1,000 population, 2) neighborhood parks (1 to 10 acres) 1 to 5 acres per 1,000 population and 3) community parks (over 10 acres) 5.0 to 8.0 acres per 1,000 population. The city has nine parks in the first category totaling 6.4 acres (.11 acre per 1,000 residents), nine parks in the second category totaling 37 acres (.64 acre per 1,000 residents) and seven parks in the third category totaling 438 acres (7.6 acres per 1,000 residents). When the three leased or closed parks are added to the third category, the acreage total is 737, or 12.7 acres per 1,000 residents. The federal and state governments do not require cities to provide certain acreage of park/open space. A 1991 guide to park and recreation facilities lists 603 acres of park and recreational land (which includes the 105 acre Bunker Hill Golf Course) which constitutes 6.3 of the total developed land within the City. If Four Mounds and E.B. Lyons Nature Center, which total 92 acres and Roosevelt Park (207 acres of park area which is currently closed) are included in park and recreation area totals, 9.4% of the City's developed area is currently devoted to park/rec use. City parks are in good condition overall, but some of the smaller parks offer fewer activities and facilities are generally in poorer condition. The Dubuque Community School District provides physical education programs for 11,869 public school students (1990). The School District does not offer any recreational programs to the general public. The School District has the following recreational facilities: 1 swimming pool, 1 football field, 2 baseball fields, 2 softball fields, 2 tracks and each elementary and high school has a gymnasium. School recreation facilities can be rented when school and city recreation programs are not in session. The School District has no plans to expand its recreational facilities in the near future. The Mississippi River provides opportunities for boating, water skiing, swimming, sailing and fishing to the general public. There are also four marinas in the Dubuque area, some of which provide camping and boat rental. The Mines of Spain is 1,380 acres of public land owned and operated by the Iowa Department of Natural Resources. It includes the E.B. Lyons Prairie Woodland Preserve and the Julien Dubuque Monument. The E.B. Lyons Preserve is a 37 acre tract of land which provides opportunities for hiking and picnicking. The County -owned Swiss Valley Park and Nature Preserve provides a near- by visitor center and 60 acres of wooded land for educational and recreational uses. The Heritage Trail, owned and operated by the Dubuque County Conservation Board, provides 26 miles of compacted surface for bicycling and hiking between Dyersville and Dubuque. Abandoned railroad right-of- way extends into the City of Dubuque, but the trail is not complete. Between 1990 and 1991, the trail was used by approximately 118,000 bicyclists and pedestrians. 2 Private • The YMCA and YWCA provide the following recreational programs: football, basketball, wresting, track, volleyball, racquetball, karate, aquatics, gymnastics, weight training and camping for all ages, while the majority of participants are 7-10 years old. • Although there has been an increase in the number of adult participants, the YMCA and the YWCA offer a limited number of adult programs. • Area camps, including Y-Camp, Camp Little Cloud and Albrecht Acres, provide activities and camping to youths and handicapped children during the summer months. • The Special Olympics Winter Games are hosted by the city of Dubuque each year. These Winter Games provide activities to handicapped individuals between the ages of 10 and 60. An average of 150 individuals participate in the games each year. • The Dubuque Boys Club offers recreational programs to 8-18 year old boys from October to July. The Boys Club has an open program system for its 1,100 members which allows them to chose the recreational activity they wish to engage in. • The Dubuque Girls Club offers recreational activities to 5-18 year old girls year-round. The Girls Club provides sporting activities and educational classes to 438 members. • The area colleges provide recreational facilities that are sometimes available for public use. • The Boy Scouts of America provide recreational activities for an average of 3,500 boys in Dubuque County between the ages of 6 and 18. Membership has remained constant of the past ten years. The Girl Scouts provide educational and recreational activities to 1,800 girls in Dubuque County ages 5 to 18. Membership has increased since 1987. The Dubuque area has 2 private golf clubs, Dubuque Golf and Country Club and Thunder Hills, which provide facilities for tennis, swimming and golfing. The city has a number of private health/athletic clubs which offer exercising, weight training and racquetball. Downhill skiing opportunities are available at Sundown Ski Slope for city residents of all ages, including the handicapped. The ski slope is located approximately 5 miles west of Dubuque and averages 115 skiing days per season. 3 • The American Youth Soccer Organization (AYSO) provides a soccer league for approximately 2500 boys and girls between the ages of 5-18 from May to August. In addition to the City's recreational baseball program, the boys' Independent League schedules approximately 500 games per year for approximately 700 to 750 players ages 8 to 15. The girls' Independent League provides a baseball program for approximately 240 players ages 8 to 14. 4 RECREATI O N CRITICAL ISSUES/TRENDS • While the community may exceed the N.R.P.A. acreage standards for large parks, Dubuque does not meet the acreage standards for small and mid -sized parks. Meeting raw acreage standards does not necessarily mean that park land is readily useable or accessible or that facilities offered at the parks are adequate to meet local demands. • As the number of residents on the south and west sides of Dubuque increase, the need for neighborhood recreational areas in these areas of the community will continue to become more apparent. • Over the past 30 years, the 65 year and older age group in Dubuque has increased. From 1980 to 1990, it was the only age group to experience any growth. This trend is creating a need for more activities and facilities, both public and private, for an aging population. • Golfing as a form of recreation has grown and is creating demand for additional public golf courses and a driving range. • Daizell Field, located at Senior High, is the only high school football field equipped with lights and bleachers to accommodate spectators and inter -school games. Overuse of the field may become a problem that should be assessed. • The Recreation Division programs are currently provided largely within School District facilities. If recreational demand increases, the City may need to expand its facilities to include a recreational center providing gymnasiums, racquetball courts, exercise rooms, swimming pool and program rooms. • As the cost to maintain City recreational facilities increases, so may user fees. • As the demand for the Five Flags Center increases, the need for separate ice facilities must be evaluated. • Bicycling as a recreational use has increased in popularity in Iowa and the nation. The extension of Heritage Trail and/or development of other hike/bike trails may be warranted. • Soccer has become a popular form of recreation which has created a need for more practice and playing areas. • Summer baseball programs have experienced an increase in the number of participants over the past 5 years. This increases the usage of the city's baseball fields and may create a need for more fields in the future. • The advent of technology and the flexible work week are predicted to increase the amount of leisure time available to an individual, which 5 will in turn create a greater demand for recreational activities and facilities. The general physical fitness trend being experienced nation-wide may increase demand for more recreational activities and facilities. 6 PUBLIC SAFETY GOALS must address acceptable and appropriate levels of risk and response. As the city grows and equipment and facilities age, the need for quality public safety services continues and may increase. Current and potential residents and businesses are attracted to the community in part because they wish to have a sense of security about their lives, families and properties. Public safety efforts should seek to reduce the amount and effect of external harm to individuals and damage to property, as well as to promote an atmosphere of personal security from external events. 1 To ensure the fair, equitable and uniform enforcement of rules, regulations and laws. 1.1 Continue to work toward uniform interpretation of City codes for all building, fire, housing, health and development services reviews and inspections. (BS) 1.2 Respond to citizen inquires about practices and procedures of public safety agencies. 1.3 Investigate and respond to complaints about public safety and inspection personnel. 1.4 Maintain information and records to document the public safety situation of the City and to record the public safety agencies' response to events. (PD) 1.5 Inform and cooperate with agencies and groups that have a similar goal. 1.6 Strive for a more diverse workforce. (PD, FD) (DIV) 1.7 Continue to serve the public with integrity, compassion, competence and open mindedness. (FD, PD) (DIV) 2 To maintain adequate and appropriate readiness response capabilities in all areas of public safety. 2.1 Provide effective and efficient dispatch for public safety personnel for prompt, appropriate responses to calls from the public. (COM) 2.2 Provide adequate, safe and efficient buildings, facilities, vehicles, and equipment to support efforts of public safety agencies. (PD, FD) 2.3 Ensure communications capabilities with operational personnel and equipment. (COM) 2.4 Maintain the readiness status of all public safety personnel by monitoring their operational status and providing adequate training. (COM) 3 To prevent, control and investigate hazardous situations, and criminal behavior and activities. 3.1 Provide professional police service in the city which protects life and property and enhances the peace. (PD) 3.2 Respond to crimes, accidents and other emergency situations and take the appropriate action. (PD) 3.3 Identify criminal activity and hazardous conditions, and take appropriate action. (PD) 3.4 Provide comprehensive investigation of criminal offenses, apprehension of offenders, recovery of stolen property and deterrence of criminal activities. (PD) 3.5 Collaborate with community members to provide law enforcement services that meet the needs of various neighborhoods and segments of the community. (PD) 4 To create a safe community environment through increased awareness and education to eliminate gang activity, drug use and juvenile crime. 4.1 Inform and cooperate with community groups and agencies having a similar goal. (PD) 4.2 Deter organized crime activity and decrease the availability of illegal substances and vice activities to citizens. (PD) 4.3 Foster a positive attitude in persons under 18 years of age toward their own welfare and the welfare of others, and toward police officers. (PD) 4.4 Emphasize prevention as the preferred and primary method to eliminate gang activity, substance abuse and juvenile crime. (PD) 4.5 Recognize that this is not just a police problem, and solicit the assistance of other community groups and City departments. 5 To prevent, control and investigate fires. 5.1 Prevent fires through public education, fire code enforcement, property inspections and incident pre -planning. (FD) 5.2 Protect the lives and property of Dubuque citizens through the use of trained personnel and adequate equipment. (FD) 5.3 Provide education for firefighters for the performance of their duties through training, drilling and instruction. (FD) 6 To prevent or minimize the impacts of natural or man-made disasters. 6.1 Continue to develop and maintain multi -hazard disaster planning for the county/municipal agencies which include severe weather, major mass casualties, hazardous material incidents and nuclear attack. (EM) tUESUC SAFE'T 6.2 Minimize injury, property damage and the loss of life from natural or man-made disasters. (EM) 6.3 Maintain an adequate level of disaster preparedness, to meet state and federal requirements. (EM) 6.4 Develop mitigation programs and activities which will lessen possible catastrophic results from possible disaster occurrences. (EM) 6.5 Provide an appropriately trained and equipped staff for firefighting, law enforcement, emergency medical services and disaster response. 6.6 Provide hazardous material response. (FD) 7 To provide emergency first responder and advanced life support medical care to the community. 7.1 Assure the provision of first responders to provide medical aid for emergency medical calls and accidents. (FD) 7.2 Assure the provision of prompt and efficient ambulance services and emergency medical care to those in need. (FD) 7.3 Maintain readiness status of personnel through adequate training to meet required certifications. (FD) 8 To provide review and inspection services that regulate the safe and sanitary construction and maintenance of buildings and structures. 8.1 Regulate and control the design, construction, quality of material, use, occupancy, location and maintenance of all buildings, structures and signs (BS) 8.2 Regulate and control the design, construction, installation, quality of material, location, operation and maintenance of plumbing, heating, ventilating, air conditioning, electrical, and fire suppression equipment and systems. (BS, FD) 8.3 Assure that rental dwelling units, the buildings in which they are located and the building sites meet housing quality standards. (HSD) 8.4 Monitor vacant and/or dangerous buildings to return all suitable buildings to code compliance. (HSD, BS) 8.5 Assure sanitary conditions and practices in accordance with municipal public health and environmental codes and regulations. (HE) 8.6 Continue coordinated review and inspection services of zoning, housing, building, fire, engineering, health and water codes and regulations for buildings, structures and sites. 8.7 Collaborate with law enforcement, social service, housing and other agencies to respond to public safety problems and issues. (HE) 9 To educate the community in areas of law enforcement, fire prevention, emergency response, disaster preparedness and building safety. 9.1 Educate elementary school students to foster a positive attitude, lawful behavior and cooperation with law enforcement efforts. (PD) 9.2 Educate school children and the general public about fire safety, fire prevention, emergency response, severe weather and other subjects related to health and safety. (FD) 9.3 Provide ongoing public education programs to licensed care facilities and citizens regarding appropriate disaster preparedness, disaster response and available resources. (EM) 9.4 Develop educational programs and outreach services to inform targeted groups and the general public of minimum housing standards and building safety codes. (HSD) PUBLIC SAFETY EXISTING CONDITIONS/FACTS Fire • The Dubuque Fire Department in 1992 had 90 full time equivalent employees and 20 vehicles for provision of fire prevention and protection services. • 0n average, the Fire Department responds to 2.25 fire calls and 4.0 medical emergencies per day or 820 and 1,475 per year, respectively. The Fire Department provides ambulance services, with the City of Asbury providing back-up ambulance services if needed. • In Dubuque over a 10 year period between 1982-1992, there have been 7 fire related civilian deaths and 45 civilian injuries and 110 firefighter injuries with no deaths. • Between July, 1991, and June, 1992, the Fire Department responded to 85 brush/refuse fires, 79 structure fires and 73 vehicle fires. During this period, the Fire Department responded to 1,079 inhalator calls (breathing and heart related incidents) and 368 additional medical emergencies. Of the 5,238 responses made by the Fire Department between January 1, 1990, and February 10, 1993, 57.8% were made within 5 minutes and 85% were made within 7 minutes. Longer response times generally indicate calls of a non -emergency nature. In 1993, the Fire Department initiated use of its "Hazmat" hazardous material trailer to mitigate hazardous material spills in the city, and completed hazardous material response training for all 3 shifts. The Fire Department is capable of responding to small spills in harbors or detention basins with the help of the Iowa Department of Natural Resources (DNR). Booms used to contain such spills are warehoused in LaCrosse, WI and Keokuk, IA. Larger spills, or spills in the channel, would be handeled by the Upper Mississippi Response Team which includes the DNR, U.S. Coast Guard and the Environmental Protection Agency. Area railroads also have personnel and equipment at various locations to address rail related spills. Railroad equipment is also available to local agencies. The Fire Department presents fire safety programs to Dubuque area schools and fire extinguisher classes to area businesses on request. The Fire Department performs rental housing inspections in conjunction with Housing Services Division. It also does commercial, service station and bulk storage inspections as part of a licensing requirement. The Insurance Service Office, Inc. (ISO) provides a class rating for municipal fire departments. The ISO's fire insurance classifications are used to develop property insurance premiums. They apply to properties with a needed fire flow of 3,500 gallons per minute or less. Public and private protection at properties with larger needed fire flows are evaluated individually. • Pol ice • • Class ratings are done every 10 years, or upon request. The City Fire Department's rating in 1989 was Class 3 on a scale of 1 to 10, with 1 being the highest. The ISO's classification system is based on a broad set of criteria and not meant to rate fire department response and efficiency throughout the city in every situation. Twelve cities nation wide have achieved a Class 1 rating. The Dubuque Police Department in 1992 had 84 full time equivalent employees and 23 vehicles, of which 14 were patrol cars, for provision of crime prevention and protection services. The Police Department made 3,203 adult arrests in 1991, and 3,071 in 1992. In 1992, 78 adult and 29 juvenile arrests were for violent crime (murder/non-negligent homicide, manslaughter by negligence, aggravated assault, forcible rape and robbery). The majority of adult arrests in 1992 were for public drunkenness (601), violation of liquor laws (395), assaults (285) and larceny (228). The Police Department also made 440 drunken driving arrests in 1991 and 524 in 1992. The Police Department made 1,020 juvenile arrests in 1991, and 1,214 in 1992. The majority of juvenile arrests in 1992 were runaway violations (314), alcohol related violations (228) or larceny -theft violations (218). There were 2,983 recorded traffic accidents in 1991 and 2,460 in 1992. It is important to note that non -injury accidents may not be consistently reported. As of November 1, 1992, the Police Department no longer investigates or tallies non -injury accidents unless they involve OWI (operating a motor vehicle while intoxicated), Hit and Run, Reckless Driving or spills of hazardous materials. There were 457 injury accidents reported in 1991 and 445 in 1992. The City averages approximately two traffic deaths per year. The Police Department responded to 35,172 calls in 1991 (96.4 per day) and 37,060 in 1992 (101.2 per day). The Police Department in 1992 formed a "task force" to respond to an increase in gang activity in the previous 2 years. The task force coordinates the efforts of city and county law enforcement agencies and probation officers, shares information and provides educational support to officers and area schools. The task force also aids schools in identifying and reducing gang related activity. Police are encountering increasing numbers of child sexual abuse investigations, with 67 cases in 1992 as compared to an average of 35 per year for the previous 3 years. Forty-eight of those cases were determined to be founded and within the statute of limitations; 35 of those cases were cleared by arrest. The "Police Actively Supporting Schools" (P.A.S.S.) program is an educational program that sends a uniformed officer to each school grades K through 4 one day annually. The program provides positive contact between school children, teachers and police officers. • "Drug Abuse Resistance Education" (D.A.R.E.) is a 17 lesson program presented to all area sixth graders by the Dubuque Police Department in cooperation with private and public school educators. Lessons include building self-esteem, making wise choices and how to say "no" to drugs. All Dubuque Police officers are trained to recognize and respond to domestic abuse situations and are mandated by state law to arrest abusers if probable cause exists. The Police Department also refers victims to the victim witness referral in the County Attorney's office and to area shelters on a case by case basis. The "Serious Traffic Offenders Program" (S.T.O.P.) concentrates patrols at problem areas where there is a high incidence of accidents or violations. The S.T.O.P. program also targets safety restraint, drunken driving and serious moving violations and is responsible for random traffic safety checkpoints. • In 1993, the City Council authorized a Memorandum of Understanding between the City of Dubuque, the Police Department and the Dubuque branch of the National Association for the Advancement of Colored People (NAACP). The agreement includes the formation of a community advisory panel, policies for police recruitment and supervision, sensitivity training for police officers, a citizen's guide for filing complaints of police misconduct, and cooperation between the Police Department and the NAACP to resolve conflicts and promote racial harmony and peace in the community. Emergency Management • • The Communications Center, which is jointly funded by the City and County, dispatches all emergency vehicles and personnel to the entire county. The Communications Center has 14 employees, answers police, fire and ambulance calls, manages the E911 facility and issues weather watches and disaster alerts. The Municipal Emergency Management Agency (formerly Disaster Services) coordinates city and county emergency service such as fire, police, ambulance and hospital in the event of a natural or man-made disaster. Although all emergency service providers have standard operating procedures, the Emergency Management Agency provides direction in the event of a large scale disaster that requires a response from multiple emergency service providers. The Emergency Management Agency offices serve as the emergency operations center during a disaster and also contain backup Emergency 911 (E911) and county -wide radio dispatch equipment in the event of a failure of the primary systems at the Dubuque Law Enforcement Center. The offices also contain a computerized inventory of area hazardous materials and instructions as to how they should be handled during a fire or spill (this information is available in the field to firefighters on a state of the art lap -top computer system). The Emergency Management Agency stages and coordinates disaster drills twice yearly. The agency also developed a multi -hazard manual that contains contingency plans for a host of potential disasters. • • • • The Emergency Management Agency maintains a "skeleton" civil defense program that could be revitalized in the event of a national emergency. The city-wide enhanced E911 emergency response system was activated in January of 1992. The system enables the dispatcher to identify the phone number and address of the caller and "lock in" the line so that it can be immediately rung if the telephone is hung up. The E911 system reduces false alarm responses, identifies those agencies responsible for emergency response, improves response time and will ultimately save lives. The Coast Guard Auxillary aids the U.S.Coast Guard in search and rescue efforts on the Mississippi River in the Dubuque area. The Auxillary also conducts courtesy boat safety checks, public boating safety classes and assists with traffic control for special events. There are two Auxillary flotillas in the Dubuque area (one in Dubuque and one in East Dubuque). Along with the Coast Guard Auxillary, local agencies including the Dubuque County Sheriff's Department rescue team and the Iowa Department of Natural Resources respond to river related emergencies. Inspection Services Dubuque Housing Services in 1992 had 5 full-time housing inspectors including one full-time inspection supervisor and one full-time construction specialist for the rehabilitation program. The inspectors are responsible for monitoring Section 8 (subsidized) and general housing rental units throughout Dubuque for compliance with City housing codes. Housing Services inspects 7,468 rental units and 1,574 rooms (dormitory and single -room occupancies) on a 5 year cycle. The Department conducts Section 8 housing inspections on an annual basis. In FY '91/92, Housing Services performed approximately 1,630 inspections and 1,914 reinspections, and the Dubuque Fire Department supplemented this by performing an additional 753 inspections and 684 reinspections. Housing Services also performed 239 inspections and 200 reinspections that were complaint generated. During 1991 and 1992, Housing Services inspectors corrected approximately 14,000 Housing Code violations. These included both interior and exterior mechanical, structural, fire safety and environmental violations, many of which were potentially life -threatening. In cases where serious health threats are imminent, Housing Services can act quickly to resolve problems, including the provision of relocation funds to remove people from potentially hazardous situations. Housing Services often works with both the Health Services Division and the Fire Department using the "team approach" to deal with elderly and indigent citizen health and safety problems. Part of the Housing Services inspection responsibilities include making residents aware of potential hazards within the home. Staff concentrate on fire safety and smoke detector placement and maintenance. The City's Building Safety Division (formerly Building Services) in 1992 had 6 full time inspectors. In addition to performing building, mechanical, plumbing, and electrical inspections, Building Safety monitors beer and liquor license regulation compliance in conjunction with the Health Services Division and issues sign permits in collaboration with the Planning Services Division. In 1992, Building Safety performed 2,620 building, 2,946 plumbing, 1,545 mechanical and 1,820 electrical permit and non -permit inspections. Total inspections performed were 6,712 in 1991 and 8,931 in 1992. From 1980-1989, the Building Safety Division issued 698 permits (an average of 70 per year) for new single-family, duplex, multi -family, commercial and industrial buildings. From 1990-1992, 524 permits were recorded for new construction (an average of 175 per year). This 3-year total represents 75% of the permit issued in the prior 10 years. Additions to residential, commercial and industrial buildings remained constant during the 1980's and into the 1990's. 10,850 permits were issued from 1980-1989, and 3,291 were issued from 1990-1992 for work on existing structures. Building Safety staff issued permits for residential structures 4 times more often than for commercial and industrial projects. Health Services performed over 700 inspections of restaurants, taverns, schools, commissary/catering services, hotels/motels, swimming pools/spas and temporary food stands in FY'90/91. The Division also conducted 3 food borne illness investigations and answered over 300 garbage and illegal dumping complaints. PUBLIC SAFETY CRITICAL ISSUES/TRENDS Fire • • The proposed fire station relocation study will be completed in FY '96 to determine if Fire Station 5 (South Grandview Avenue) should be moved to another southwest location. Although Dubuque does not need an additional fire station at this time, it is important to note that receiving and handling alarms, Fire Department operations (training, equipment, response facilities and personnel), and water supply are considered by the Insurance Service Office, Inc. (ISO) when evaluating Dubuque's Class 3 rating. Class ratings affect the rate commercial insurance carriers pay. Class ratings range from 1 to 10, with 1 being the highest. • Increased use of ambulance services may indicate a need to evaluate response capabilities in the future. Police The demands of an increased workload and continued expansion of the physical city may indicate a need to evaluate the number of police officers and vehicles, as well as space utilization and needs. The Dubuque Law Enforcement Center is experiencing a shortage of space and may need room for expansion in the near future. The center may require a study of space utilization and needs for detention capabilities and public safety administrative facilities. The P.A.S.S. and D.A.R.E. programs were formed in part as a response to an increase in drug and gang related activity. Expansion of these programs, and/or additional enforcement measures, may be needed to counteract the growth of such activity locally. A computer link for patrol cars that would improve patrol and response efficiency and vehicle -mounted video cameras that would provide live footage evidence may be technological improvements considered in the future. The Police Derpartment has experienced a significant increase in child sexual abuse cases, but has limited capacity to respond to this increase. The continuing affects of local economic restructuring from higher -paying manufacturing jobs to lower -wage service sector employment, and the aging of the local population, may place a greater demand on City, County and State protective services due to a possible increase in the number of victims of domestic violence and elder abuse locally in the future. Emergency Management The Municipal Emergency Management Agency has stressed a need for additional warning siren facilities on the west end and in other fringe areas where growth has been occurring and is likely to occur in the future. Increased barge activity on the Mississippi, in addition to rail activity, may increase the potential for toxic/hazardous materials spills locally. Inspection Services The Housing Services inspection service was "operating at capacity" in 1992. When the City receives more federal Section 8 vouchers for subsidized housing units, additional funds will be made available for staffing. The City Council has authorized Housing Services to add another inspector and vehicle to handle these additional annual inspections, should a grant be awarded. Increased Federal regulation regarding lead base paint and asbestos testing and abatement may require expenditures to train inspectors, purchase and maintain equipment and fund the additional staff time to conduct such inspections. A relative building "boom" for new construction during the early 1990's as compared to the 1980's may indicate a need to evaluate the number of Building Safety staff and vehicles and/or the timing of their inspections. Residential, commercial and industrial expansions remained steady through the 1980's and into the 1990's, suggesting that redevelopment and expansions in Dubuque may be "recession -proof" and unrelated to interest rates. This steady permit history also may indicate the need for a base level of Building Safety services. UIVLKSITY DIVERSITY GOALS must address the differences and the similarities found in our community. As citizens of Dubuque, we share common hopes and dreams for our future even though we may not look or dress or think alike. Our diversity can be our strength as we learn new ways and forge new friendships. The world is no longer a place where Dubuque, or any other community, can exist in isolation; rather, the world has come to Dubuque in all its many colors, its many ideas, its many challenges and opportunities. 1 To promote community understanding of the content and spirit of the City's Human Relations [Rights] Ordinance. 1.1 Identify and clarify the more complex provisions of the Human Relations Ordinance, Chapter 27. (HRC) 1.2 Educate the community on their rights and responsibilities, as protected and as legislated in the Human Relations Chapter. (HRC) 1.3 Strive to eliminate misconceptions about the Human Relations Ordinance. (HRC) 1.4 Expand the public relations efforts of the Human Rights Commission in the community, to increase the public's awareness of the Commission, its mandate and its spirit. (HRC) 2 To ensure compliance with anti -discrimination laws. 2.1 Increase community knowledge of discrimination laws. (HRC) 2.2 Reduce the number of violations of the Human Relations Ordinance. (HRC) 3 To understand, respect and welcome diversity and eliminate [not base] fear based on [racial, cultural or gender -based] differences. 3.1 Foster a harmonious, diverse community. (HRC) 3.2 Cultivate public acceptance and appreciation of diversity. (HRC) 3.3 Identify problems of the community and attempt to coordinate efforts to lessen the tension resulting from those problems. (HRC) 3.4 Provide an avenue for citizens to manage their conflicts in a manner that fosters a win -win outcome. (HRC) 3.5 Identify tools which citizens can utilize to resolve conflict peacefully. (HRC) 4 To educate community members about diversity and open avenues of communication and interaction within the community. 4.1 Encourage a spirit of openness and cooperation among the diverse citizenry of the community. (HRC) 4.2 Discourage the stereotype that differences among people are negative. (HRC) 4.3 Inform the community of the advantages to a community which welcomes and encourages diversity. (HRC) 4.4 Support a community that values all citizens and promotes a comprehensive education that includes multi -cultural diversity. (HRC) (EDU) 5 To recognize, appreciate and celebrate diversity as an opportunity to experience and share both our differences and our similarities as a unified community. 5.1 Promote the positive results of accepting and sharing diversity among community members. (HRC) 5.2 Strengthen the City's working relationship with the neighborhoods, local agencies, businesses and schools, to increase productivity and effectiveness through joint effort, and to foster the spirit of cooperation and collaboration. (HRC) 5.3 Foster a recognition [of the fact] that, although people are different, they share many similar experiences and values. (HRC) 5.4 Foster a community atmosphere that is non -threatening and open to change, challenge, diversity -- a community that offers people the opportunity to experience diversity. (HRC) 5.5 Continue to provide forums at which citizens celebrate diversity and discuss things which make them different, yet which also enrich them. (HRC) (CA) 6 To promote [affirmative action and] equal opportunity hiring practices in both the public and private sectors as a means to diversify the workplace and expand role -model and leadership opportunities. 6.1 Encourage a more diverse workforce. (HRC) (ED) 6.2 Encourage community employers to continue to take full advantage of all of the citizens eligible to become members of the community workforce. (HRC) (ED) 6.3 Encourage employers' recognition that development and growth are dependent on a diverse and tolerant workforce. (HRC) (ED) DIVERSITY EXISTING CONDITIONS/FACTS The diversity movement seeks to increase sensitivity, understanding and cooperation between all people including persons with disabilities, both genders and people of different races, cultures, religions and economic classes. Both established groups such as the NAACP, the Human Rights Commission, the Campus Ministry, the Black Presidium, the International Friendship Club and newer groups such as the Council for Diversity, Citizens United for Respect and Equality (C.U.R.E.), the Dubuque Area Churches United (D.A.C.U.) and the Multi-Cultural/Non-Sexist Advisory Committee on Curriculum Development work to promote diversity, sensitivity and education. • Established in 1967, the Dubuque Human Rights Commission is a quasi-judicial City agency whose goal is to eliminate discrimination in the areas of employment, housing, education, credit and public accommodation. The Human Rights Commission is responsible for holding public hearings, writing proposals and making determinations on discrimination complaints. Staff support is provided by the City's Human Rights Division, whose primary duty is to receive, investigate and finally determine the merits of complaints alleging unfair or discriminatory practices. The Human Rights Division is also involved in education and community outreach. • The 1990 Census reports that Dubuque's minority population is 920 persons, or 1.6% of the total population of 57,546. Iowa's minority population represents 3.4% of total population, while national statistics indicate that 19.7% of the U.S. population is a minority. • Many programs have been developed to educate and promote diversity in the Dubuque community. These include federally mandated programs such as Equal Opportunity Employment and Fair Housing requirements, affirmative action hiring practices in both the private and public sectors, curriculum development in the Dubuque Community School System (DCSS), creation of the Constructive Integration Plan and the Council for Diversity, DubuqueFest\The Very Special Arts and Kaleidoscope. • The Chamber of Commerce has provided hospitality training sessions to employees in the tourist and retail trades to better prepare them to serve their customers, especially those of a different race or culture. Local colleges have hosted lectures, exhibits and performances, open to the community, that feature the arts of other cultures. In 1992, the Dubuque Community School System embarked on a comprehensive two-part, three-year training program for all elementary and secondary teachers in an effort to educate, heighten sensitivity and aid in curriculum development. The programs are entitled GESA (Gender\Ethnic Expectations and Student Achievement) and REACH (Respecting Ethnic and Cultural Heritage). Their objective is to address issues of multi-culturalism and diversity, help integrate these into the classroom and provide a balanced curriculum designed to meet the educational needs of all students. The Multi- Cultural/Non-sexist Advisory Committee on Curriculum Development is creating a conflict resolution training video that will help teachers recognize and deal with racial incidents in the schools. • The Dubuque Chapter of the NAACP was formed in 1989 and in 1992 it had approximately 400 members. The NAACP has aided the Dubuque Community School System with curriculum development, has worked with City government to encourage the use of sensitivity training for city administrators and police and has worked with the community at large to educate and activate. The NAACP has also joined with both the private and public sector to encourage affirmative action in hiring policies. • Both City government and the public and parochial school systems have enlisted the aid of C.T. Vivian, a nationally known race relations instructor, to conduct intensive sensitivity training sessions over the last 15 years. Approximately 90% of all City employees and a majority of private and public school teachers and administrators have attended these sessions. Between 1988 and 1991, 16 cross burnings were reported in Dubuque. These incidents were labeled hate crimes and have resulted in the convictions, and imprisonment, of several individuals. Hate crimes legislation was strengthened in Iowa in 1992 partially in response to cross burning incidents across the state. The Church Ministry League Basketball, Education and Jobs Program was formed in 1993 to offer recreational opportunities to minority youth. The program also stresses job training and education and serves to improve the relationship between local law enforcement agencies and minority youth. The Council for Diversity, a private sector initiative to address diversity issues, plans to create a community based not -for -profit corporation to promote and enhance the cultural diversity of Dubuque. The Council plans to support City government and other interested parties in efforts to expand job opportunities for all. It will also work to facilitate community -wide educational opportunities, introduce and retain the newly employed and their families and to promote awareness of the benefits of cultural diversity in an effort to ensure that all of Dubuque's citizens are treated fairly and with respect. Dubuque has developed a sister city relationship with both Pyatigorsk, Russia and Mandan, Peoples Republic of China. This relationship not only encourages economic ties between the cities but also fosters cultural exchange and education. DIVERSITY CRITICAL ISSUES/TRENDS • Local colleges and universities have attracted increased numbers of minority and foreign students who have a new and visible presence in the community. Their acceptance by and involvement in the community may affect Dubuque's ability to recruit not only future students but also permanent residents and new businesses and industry. • Economic development and tourism efforts continue to bring minority and foreign visitors to Dubuque. The reception and hospitality that they receive as "customers" in our city will leave lasting impressions. • Regional and national demographics are changing rapidly and by the year 2000, it is estimated that the U.S. workforce will no longer be predominately white and male. • Economic alliances are creating a global economy where national economic interests are highly interdependent. Consequently, those in business, industry and education will be working more closely with people of other races and cultures. • The advent of global mass media and shared technology has allowed the people of the world instantaneous exposure to news and information world-wide. This trend will serve to bring all peoples in greater contact with each other. • While predominantly a Judeo-Christian country, immigration from the Near and Far East is rapidly introducing other religions into the United States and changing the traditional religious composition of communities nation-wide. • Increased efforts to open lines of communication between the City's Police Department and the minority community are an attempt to alleviate local racial tensions. • The Americans with Disabilities Act (ADA) has mandated full integration of individuals with disabilities into the community. Businesses, employers, public transportation and local government must adapt and provide equal access and opportunities to all people regardless of physical or mental disabilities. Government and the business community must be aware of their responsibilities and formulate action plans aimed at compliance with the ADA in a timely manner. SYSTEMS MAPS for the COMPREHENSIVE PLAN The Comprehensive Plan consists of fourteen elements, each with a policy statement, goals, objectives and inventory analysis for physical, economic and social aspects of the community. The inventory analysis of the plan also includes a series of five systems maps: potential growth areas, existing land use, future land use, transportation and utility systems. These maps help the City identify the best types of future development for potential growth areas in and around Dubuque. The future land use, transportation and utility systems maps were developed through public comment sessions and focus group meetings over a two year period, from 1993 to 1995. Potential Growth Areas Map The City prepared a Development Needs Study in 1993 and 1994 that identified 38 potential growth areas in and around Dubuque. The potential growth areas map shows about 4,000 acres of vacant, developable land within and adjacent to the city limits. These sites have the capability for development and represent future annexation possibilities. They were identified and evaluated based on: o their physical characteristics --they are relatively flat, for Dubuque o their access to transportation --streets, highways, railroads o their access to water and sewer services of the city o their compatibility with surrounding land uses o their annexation possibilities --their owners are likely to consider voluntary annexation, to capitalize on development opportunities Existing Land Use Map The City conducted a 1990 windshield survey of existing land use and existing structural conditions for the approximately 30,000 parcels in the city. This map records 1990 land use patterns as a base reference point for future growth and development. Future Land Use Map The Future Land Use Map identifies the best future physical development for the community. It will become the City's guide for zoning, annexation and subdivision decisions. While not a zoning map or an annexation strategy, it will help the City Council to evaluate rezoning and annexation requests. The proposed Future Land Use Map shows five major land uses, with these colors: o Yellow: Single -Family Residential o Orange: Multi -Family Residential o Pink: Commercial/Office o Blue: Industrial o Green: Parks and Open Space The proposed Future Land Use Map suggests a mix of more than one land use for many potential growth areas. Parameters are established for some growth areas, to help guide their future development --such as no arterial access, location of commercial centers or nodes, or incorporation of "green space" within neighborhoods. Some growth areas have preferred and alternative scenarios, based on site characteristics and the city's development needs. To handle anticipated growth and development, the City projected that a twenty year development reserve for each type of land use would require approximately the following number of acres: Single -Family Residential: Multi -Family Residential: Commercial/Office: Industrial: Parks and Open Space: Total: 600 - 700 acres 200 - 300 acres 500 - 800 acres 700 - 800 acres 500 - 650 acres 2,500 - 3,250 acres While the growth areas total 4,000 acres, the locational needs of the five land uses still presents a challenge to meet these future development needs Transportation Systems Map The Transportation Systems Map inventories and analyzes the community's transportation network. This map shows proposed extensions and links for the community's street, highway, and bicycle/pedestrian routes. This map also incorporates the planned improvements to the regional street and bike/pedestrian transportation network developed by the Dubuque Metropolitan Area Transportation Study, or DMATS. Analyses and projections of the region's population, housing and economic characteristics for the DMATS Long Range Transportation Plan indicate the need for a Southwest Arterial. The Iowa Department of Transportation will help DMATS and the City to evaluate the best possible route for the Southwest Arterial, beginning in 1995. The Southwest Arterial does not have a definite route at this time. A general corridor for the possible routes of this link is shown on the conceptual maps for future land use and transportation systems. The proposed Future Land Use and Transportation Systems Maps show three conceptual routes for the Southwest Arterial. These routes are not approved. They are shown on the maps to help the City better understand how the potential growth areas might be developed, if there was a Southwest Arterial somewhere in this corridor. Utility Systems Map The Utility Systems Map analyzes the current and future distribution needs for the City's water and sanitary sewer systems. This map shows the proposed extensions to City water and sewer systems that will best serve the future land uses suggested for development in the potential growth areas. TEILC[Ty OF DUB larrr,N. HOODS 321-1 ACRES woww v AS/I.IRY HILL LR EST RD. NEMPSTE wD NlGN SCHOOL MICOLC RD 21n T ACRES KEY IGO ACRES -- CORPORATE LIMITS C7 GROWTH AREAS JOMx F • MRLOS RQ REMNEDY MALL ._ DARLARD FARMS RC HIGANE ERT H SCHOOL MILLCRLST LMVERSITY Or OLDUOLS 22.11 ACR[T r 29 ■ ACRES ♦J 376.9 ACRES JONN DEER( LEAMDR RD Mr CAR He( JMLIE9 Ou.U1 ........... r 97 TI IL CITY OF A/A,nr n WICIOLF 11.0 1,1111.61,Olven1 EMS -HMG LAND USE 990 ier t •CIIE3 ram. OP ASIEgt, 0 Inn. 6.451 &CO MIMI ...7-. _... W." 3,-- ,---/ 1 1 - % EN un, no' 41 V., IN.\ APIA ti a mrif M --------------__ (Ann+ cnanGt nD ti g PM PM Minn .....1 11 e rsi.19en. 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Ar LAND USES D 0 100 Acne s 150.4 /CAC, SNGLE FAMILY MULTI - FAMILY COMMERCIAL INDUSTRIAL PARK / OPEN SPACE r T79G C[TY OF UdLIE FUTURE L 1/4110 1 USE RRL7 r.R. b0002 OAROnr Ir0005 ocneT Gn 113 R6 ILIDRL[ RR 4SG AI,RP 24Ins oOuseS SARATOGA nD no. [ie Acne3 EST Re, • 21 L ESL, c oo Rlr.�io:l on. nrarOneran 1 n4LT lo-nl boar C[q 131^_! 12= =Qp -.w-. CORPORATE LIMITS C9 GROWTH AREAS 4° LRNn 11 R[RRCOL RO MILLCnelT R RR TLVARIA en Se.5 ACRES RCnRCOr n4L1 rvnan(R PLAZA e0I. G SCPFi OAKLARD [ARMS nR 1S-B ACRE IVRRCA HILL PGWWMcsPAL foil c0[IRse £CAIAO5 On COL L Cif CLMRC oR. PLAZA 20 [C1KASLrr a [zaRe[( 41 7.a ACM 0Gc sr 2! ! ACRES N S-S.0 DOPES 2OHN of CRC CLAARi COLLEGE' 001400 VC AIIR 301nae GRARRrI[L. w- LOCUST Sl. 0SI0002 00L1' Ann C0l17Rr CLUE S'.A ACRES oe.A ncncr !o ® - EM MA [ONd cnLZq (11 ELEANOR ne zienCREe LAND USES J 0 ra rn CAP Cm= c. pspan SINGLE FAMILY MULTI © FAMILY COMMERCIAL INDUSTRIAL PARK / OPEN SPACE' 12 nP 'El IL CITY OF Du TPANSPORTATDO@J r. SYSTEMS 'SSA 1h[nl! ] T—!' e[e[! IA DNA _n0 �. r]V 4[n71 .7116172.1%.01 Wtn+w]TO41 an ren afndra earl O(R6+ Inn nG[ no ]0 a a[n[1 .n AOnr n OOnT LCC ST no. M£55 i£A0 NLL51M SCNOOL i L.e •Cn. r \ I \ L. I "")h� I �`-- t I 10.9 /ANR \ a1 11.60 75 IL 68G � L £r Ni6A» i SGNOOL nAaf W l/+" eV[ £5rt A0E +16L S CO C[new}LYei114 bet NfLL u — 4gMYC W 6171.7 ray271£ [Lena[ on , acCv rr at00L ONN ar£n£ CIL man. Colt ea[ sosunw saw aura cswrnr rtu® t \ r 3 '. 1 I • .� L (WAS L OL Lace 150.4 ecnE! GA. 701f uLnn ousvo'� oe, . t7r1 p!a Fa [ ma boa ma MI KEY 1 ESSMJ [�1 CORPORATE LIMITS GROWTH AREAS MAJOR STREETS PROPOSED STREET EXTENSKMS PROP•SED [ VKE/C1BKE PATHWAY THE CITY OF TGRw m• asEM1 •�la(a0w[li DA11R1RAT0a 04 @AONINITON A I0t KEY 11117 ACRE Dens. CR•MGt RD 1--- CORPORATE LIMITS Q GROWTH AREAS .rnarar MRdi MARREN PLAY 701.12 ■CRQS o,RL ARO L4Rus RR O MR TIYALIIA AVE EVNRra RILL A!' µ col EOlR CtM TE CUM a DR 1E• ACRES wash EERE Ct ARLT COL- EGE n eR.mmntw I cocutt 1. OV/VOOE SW SSD rout row EWE CCn`/Eif h1 — a Om ® m [Ers[1 r AA0R nu IROLA[Res «r CAN arr +- ........ PROPOSED WATER MAIN EXTENSIONS PROPOSED SANITARY SEWER EXTENSIONS PROPOSED SANITARY SEWER LIFT STATIONS