Downtown Comprehensive Planning to Plan Group
J.D. COMMUNICATIONS INC.
publishers of
Julien's Journal
- The Dubuque Area Magazine -
700 Locust, Suite 850. P.O. Box 801, Dubuque, Iowa 52004-0801. Ph. (319) 557-1914 Fax (319) 557-9635
Date: April 24, 2000
To: Hon Mayor and City Council
City of Dubuque
From: Dave Rusk, Downtown Comprehensive Planning to Plan Group
(An Action Initiative Task Force from the
Community Housing Summit Action Conference)
Subject: Request for inclusion on agenda of council meeting of 5/1/2000.
This is to request approximately ten minutes on the agenda of the council
meeting of May I, 2000 to present the attached request for council action.
Media in receipt of this request and attached materials are asked to hold for
coverage until after the May 1st council meeting. 0
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Date:
May 1,2000
To:
Hon. Mayor and City Council, City of Dubuque
Downtown Comprehensive Planning to Plan Group
(An Action Initiative Task Force from the Community Housing Summit
Action Conference.)
From:
Subject:
City sponsorship of comprehensive downtown planning process
INTRODUCTION
This communication is to formally request that the City Council officially endorse
and sponsor a comprehensive planning process for the area known and to be defined as
"Downtown Dubuque" and that that process be implemented through the City of Dubuque
Long Range Planning Advisory Commission with assistance from the Downtown
Comprehensive Planning to Plan Group, and, further, that the process include a highly
participative and inclusive visioning element, an assessment of the resulting shared vision
relative to current realities and also to existing plans, and, finally, the creation of an updated
comprehensive master plan for the downtown based on the shared community vision.
BACKGROUND
On February 11, approximately 80 individuals came together at a Housing Summit
Action Conference sponsored by the City of Dubuque Housing Services Department The
invited attendees included realtors, landlords, tenants, community leaders, representatives
from commerce, essential services, housing development and management, and
government interests. From that ten-hour day of committed citizens working in pairs, in
mixed groups, in stakeholder groups, and together as a whole, came seven Action Initiative
Task Forces whose work is to provide the strategic directions and actions that will form the
heart of the city's Five Year Consolidated Plan for Housing, Community and Economic
Development, and will consequently guide the investment of over $20 million over the next
five years.
The Downtown Comprehensive Planning to Plan Group is the name adopted by
one of the seven task forces and was chosen to clearly reflect its mission of spurring the
creation of a comprehensive master plan for Downtown Dubuque. The group has had
several meetings since the February conference to discuss the state of downtown plans and
planning, the need for a fresh and reenergized downtown planning effort that would engage
the broader community, and strategies for approaching and implementing truly
comprehensive downtown master planning.
The group has reviewed our community visioning and comprehensive planning
efforts of the 1990's and also the Downtown Development Strategy of January 1998 which
included an overview of downtown districts and recent activity relative to them, the
downtown traffic circulation study, ten prior downtown studies, and a downtown
redevelopment strategy which in turn included an historic overview of recent and future
initiatives, and potential initiatives.
The group also discussed "Smart Growth" concepts and strategies and the
confluence of community development issues that have a focus on the downtown. These
include provision for housing alternatives across the affordability scale, commercial
development and redevelopment, neighborhood revitalization, and historic properties
preservation, among others.
DISCUSSION
The Downtown Comprehensive Planning to Plan Group is a broad cross section of
community interests and leadership that came together over a common interest in seeing
Downtown Dubuque reach a potential beyond what it today enjoys. The group was actually
rooted in the Housing Action Conference through a shared recognition that the availability
of adequate housing is critical to community growth and quality of life. The group has
concluded that our downtown is a leverage opportUnity relative to meeting the housing
challenge but also to meeting other community needs as well.
It is our downtown, nestled below the magnificent bluffs that shape its western
border, and proximate to the great river that runs just to its east, that is the true heart of our
city. It best reflects our community's character and its heritage. It best defines the sense of
place that is Dubuque. The downtown belongs to our entire community. It is the traditional
center of our community and a key source of our community pride.
There have been a number of events recently, in addition to the Community
Housing Summit Action Conference, which point to the good timing for a renewed focus
on downtown planning: The Council tabled ambitious renovation plans for Town Clock
Plaza over a continued lack of agreement over the best approach to revitalizing the area. A
recent seminar on historic preservation initiatives toward providing for affordable housing
in downtown and other older neighborhoods brought together a unique partnership of the
Center for Dubuque History, the City of Dubuque Historic Preservation Commission, the
Dubuque County Historical Society, the State Historical Society, City of Dubuque Housing
Services, the Dubuque Board of Realtors and the Dubuque Area Chamber of Commerce.
Dubuque Main Street Ltd. held what has become an annual seminar of upper level
residential/lower level commercial use of existing, often historically significant, buildings
in the downtown. Recent initiatives toward further expanding our community commitment
to riverfront development and other growth strategies bring with them a need for thoughtful
dialogue on impacts and opportUnities relative to the downtown. As a backdrop to all of
this, the annual budget presentation of the City of Dubuque Economic Development
Department featured as a major theme, a "Smart Growth" approach to community
development and redevelopment, representing a balanced approach to urban growth which
includes among its stategies investment and reinvestment in our city center.
There have been many plans and programs toward fostering downtown
development and redevelopment. We would like to recommend building on these efforts
with a highly inclusive and highly participative process of building consensus and
ownership of plans and programs in the broader community. We have learned through
Vision 2000 that the process of community engagement is a powerful engine. The broader
community deserves an opportunity to help determine what kind of downtown we have.
This concept of community visioning is at the heart of a process we recommend for the
development of a comprehensive master plan for the downtown.
The recommended Downtown Comprehensive Planning Process consists of four
basic elements:
. Create a Shared Community Vision for Downtown Dubuque
. Assess the Vision relative to reality
. Assess the Vision and Reality relative to existing plans
. Create a Comprehensive Downtown Master Plan
The final product could be something on the order of a mini version of the City
Comprehensive Plan. This is consistent with the strategy of the City Long Range Planning
Advisory Commission in implementing neighborhood planning initiatives.
CONCLUSION
City Council sponsorship is crucial to ensuring the success of this effort. The
Council, representing the interests of the city of Dubuque, is a key stakeholder in the future
of Downtown Dubuque. City resources in the form of staff support and funding will be
necessary. The council is itself an experienced visioning and planning body and can help
guide the process. Clearly this effort is in need of city ownership and authorization to
proceed.
RECOMMENDED ACTION
It is recommended that the City Council officially endorse and sponsor a
comprehensive planning process for the area known and to be defined as "Downtown
Dubuque" and that that process be implemented through the City of Dubuque Long Range
Planning Advisory Commission with assistance from the Downtown Comprehensive
Planning to Plan Group, and, further, that the process include a highly participative and
inclusive visioning element, an assessment of the resulting shared vision relative to current
realities and also to existing plans, and, finally, the creation of an updated comprehensive
master plan for the downtown based on the shared community vision.
Attachments: Roster, Downtown Comprehensive Planning to Plan Group
Downtown Development Strategy, January 1998.
Downtown Comprehensive Planning to Plan Group
(An Action Initiative Task Force
from the Community Housing Summit Action Conference)
Jim Burke
City CED Department
Laura Carstens
City Planning Department
Bob Felderman
Continental Realty
Giesen, Jim
City Community Development Block Grdllt Advisory Commission
Hingtgen, Doris
Duggan Realty
Holz, Jim
MSA Professional Services
Pam Jochum
State Representative
Dan LoBianco
Dubuque Main Street Ltd.
Ann Michalski
City Council
Ruth Nash
Dubuque County Fine Arts Society
Art Roche
Mercy Health Center
David Rusk
Julien's Journal
Rich Russell
City Building Department
John Walsh
DB&T
TABLE OF CONTENTS
1. Overview of the Downtown Business District
A. Historic Old Main District
B. Cable Car Square District
C. Upper Main District
D. Town Clock Plaza
E. Ice Harbor District
2. Overview of Recent Business Activity
A. Old Main District
B. Cable Car Square District
C. Upper Main District
D. Town Clock Plaza
E. Ice Harbor District
3. Review of Downtown Traffic Circulation Study
A. Traffic Issues
B. Parking Issues
C. Gateway and Streetscape Issues
D. Town Clock Plaza Issues
4. Review of Prior Downtown Studies
A. Dubuque Development Program
B. Economic Development Plan
C. Old Main Neighborhood Reinvestment Strategy
D. Old Main Place Marketing Plan
E. Dubuque Comprehensive Plan
F. Freeway 61/151 Corridor Plan
G. Riverfront Plan
H. Heritage Trail Master Plan
I. Cable Car Square Development Plan
J. Convention and Meeting Market Study
5. Downtown Redevelopment Strategy
A. Historic Overview
B. Recent and Future Initiatives
C. Potential Initiatives
1
1.' OVERVIEW OF THE DOWNTOWN BUSINESS DISTRICT
A. Historic Old Main District
The Historic Old Main District is an area from the Jones Street Connector to 5th Street
and Locust Street to Highway 151/61. The area was the original commercial district in
Dubuque and contains many historical buildings. The area has a mix of uses including
retail stores, small offices and housing. The Five Flags Civic Center and the Five Flags
Holiday Inn are also in the Historic Old Main District.
B. Cable Car Square District
The Cable Car Square area is an eight block area from 1st to 5th Streets and Locust
Street to the bluff. The primary function of the Cable Car Square area is retail to serve
the tourism market and the general population. The businesses are relatively small
specialty shops. There is some residential housing in this area. Raphael's Cathedral is
in this area.
C. Upper Main District
The Upper Main District is an area from 9th Street to 14th Street from Iowa Street to the
bluff. There is a mix of uses in this area, led by housing, retail and commercial
business and office use. The area also houses churches, non-profit organizations and
governmental institutions. There is some weakness in the retail sector of this district,
with higher than average vacancy rates. There is also vacant upper story residential
space.
The areas east and west of the Town Clock Plaza are primarily office and commercial
businesses. There is some housing along Bluff Street. The area includes the
Courthouse and the Law Enforcement Center.
D. Town Clock Plaza
The Town Clock Plaza is an eight square block area from 5th to 9th Streets between
Locust and Iowa Streets. The Town Clock Plaza is a pedestrian mall constructed in the
late 1960's. The primary function of the TCP is commercial office. The secondary
function of the TCP are commercial and retail businesses which serve the office
businesses and their employees. There are a few retail businesses which serve a
clientele outside of the TCP and the downtown area.
E. Riverfront District
The Riverfront area is located on the south end of the Fourth Street Peninsula along the
Ice Harbor. The businesses are the casino and related river businesses, retail shops in
the Ice Harbor Emporium and commercial businesses.
2
2: OVERVIEW OF RECENT BUSINESS ACTIVITY
The information on the downtown business districts used in writing the Business Activity
Overview was prepared by the staff of Dubuque Main Street Ltd. It includes the time
period of 1986-1996. The overview is presented to provide information on the levels of
business activity in each district which can be used to determine potential trends and
develop possible goals and'strategies for future actions.
A. Historic Old Main District
The Historic Old Main District showed a net gain of 164 employees and construction
improvements of $2,406,866 in the past ten years. Two-thirds of the employment
growth was generated from hotel development. The other one-third of employment
growth carne from the various small businesses in the district. There was a net
increase of ten new businesses in ten years.
The district has a strong concentration of small business which serve the retail and the
service markets. The business district is relatively stable with many long time
businesses. The district has experienced growth in the number of residential units.
B. Cable Car Square District
The Cable CClr Square District experienced a net increase of twenty-eight new
businesses since 1987, with six expansions. Most of the new businesses to the district
were retail establishments who capitalized on the developing retail market. There was
an increase of twenty-one jobs in the district in this time period.
The district has a reputation as a center for tourists and for specialty items for local
residents. This has contributed to the retail growth and to a certain amount of stability
among the businesses.
C. Upper Main District
The Upper Main District experienced growth of 113 jobs from 1986-90 with much of the
increase coming from three businesses. However, this increase was negated from
1991-95 with the decrease of 124 jobs in the district. There was a net loss of 23
businesses since 1986, with 27 business losses corning since 1992. There were
several small businesses who located in the district in the past, but this was offset by a
larger number of decreases in businesses. The Upper Main District experienced a
higher level of business turnover than did the other downtown districts.
The businesses in the district are not concentrated, but are spread throughout the area.
There are a large number of residential units and several religious and non-profit
organizations in the district. The reconstruction of the Dubuque Bank and Trust
building was a major recent investment in this area.
3
D. Town Clock Plaza District
The Town Clock Plaza District experienced significant growth in total employment and
construction expenditures from 1987-96. There was a net increase of 406 jobs and
investment in remodeling and new construction of $12,666,705. The majority of the
increases in employment were generated from the businesses with office workers.
There was a net gain of only 6 new businesses in the period, however, there were 53
expansions by the businesses in the district.
An analysis was conducted of the kinds of businesses on the Town Clock Plaza to
identify the employment levels in the different business functions. The analysis was
confined to the businesses located in an area from Fifth Street to Ninth Street and
Locust Street to Iowa Street. Five categories were used to define the businesses
including: Large Office (generally businesses with over 50 employees); ModeratelSmall
Office (businesses with 50 employees or less); Professional (law firms, medical offices
and mental health offices); Government (City, County and State; etc.); Non-profit
(agencies etc.); Retail; Food and Beverage(Restaurants).
Below is a summary of the results:
Business
Function
Number of Number of Percentagel Percentagel
Businesses Emplovees Businesses Emoloyees
Large Office
Moderate ISmail Office
Professional Office
Government Office
Non-Profit Office
Retail
Food and Beverage
10
66
18
8
7
8
--.3.
120
1,525
369
188
143
50
48
---1J1
2,341
8%
55 %
15%
7%
6%
7%
25%
65 %
16 %
8%
6%
2%
2%
.76%
Some interesting aspects of the summary are that the ten businesses classified as
Large Office represent 65% of the employees working on the Town Clock Plaza and the
total employment of all of the offices represents 97% of the employees and 90% of the
businesses. Retail and Food and Beverage represent the rest. The totals do not
include a current plan to create an additional 120 office jobs on the Town Clock Plaza.
The levels of each of the functions of the businesses on the Town Clock Plaza have
changed in the past several years. In the early 1980's the area had several retail
businesses and food and beverage businesses, which occupied the storefronts. The
Town Clock Plaza has seen the addition of new Large Office businesses and growth in
the Large Office businesses since the early 1980's.
4
Another interesting aspect of Town Clock Plaza is the difference in the occupancy rates
in the past thirteen years. The occupancy rates in 1984 were between fifty and sixty
percent, but now stand at over ninety percent. Much of the increase in Occupancy can
be attributed to the growth of the office businesses on the Town Clock Plaza,
E. Ice Harbor District
The primary businesses of the Ice Harbor District are located at the Portside and in the
Ice Harbor Emporium.-'The'employment'growth of 356 and the investment in the district
of $8,638,705 came from the addition of the casino,
5
3.' REVIEW OF DOWNTOWN TRAFFIC CIRCULATION STUDY
The Downtown Traffic Circulation Study began in 1995, The purpose of the study was
to identify the current needs of the downtown area in terms of traffic, parking,
streetscapes, and the Town Clock Plaza, The Urban Renewal Street System was
established in the late 1960s and may not serve the current traffic needs for this area,
The establishment of riverboat gambling, a new parking ramp in the downtown, the
construction of the Trilog Building, and the Clarion Hotel are a few examples of
developments which have had a major impact on the services and needs of the
downtown area,
The opening of U,S, 61 has shifted the highway traffic from the downtown area to east
of the downtown, Travel patterns leading to and from U,S, 61 through the area have
also changed, The Locust Street connector, in tying in Dodge Street (U,S, 20) with the
new US 61 has physically separated the Historic Old Main and the South Main districts
from each other, The connector acts as a barrier between these two neighborhoods,
A, Traffic Issues
Sianalize the intersection at Seventeenth and White Streets
Traffic volume and capacity studies were performed on the streets and intersections
within the study district. They revealed that there are no intersections in which the
traffic signals should be removed, They did reveal, however, that the intersection of
Seventeenth and White Streets warrants the installation of a traffic signal. The traffic
signal was installed in December, 1997,
Convert One-way Streets to Two-wav Streets
Traffic volume and capacity studies were conducted on the streets with one-way traffic,
The studies concluded that the traffic system would benefit if the one-way traffic on
Iowa, Main, Fourth and Fifth Streets was converted to two-way traffic, City staff held a
public meeting with business and property owners adjacent to the above streets to
receive their input on the potential conversions, Their responses were very positive to
the potential changes, The conversion of the streets to two-way will be completed by
June 1, 1998,
B, Parking System Issues
Response to Current and Future Parkina System Needs
The consultant conducted a study of current and future parking demand, including a
review of business growth trends, They concluded that the demand for parking may
increase in certain areas and create the need for additional parking in the two to five
year time period, They have identified specific areas in which business growth may
create the need for additional parking, The consultant also worked with City staff, the
Chamber of Commerce and Dubuque Main Street Limited to identify potential sites for
development as parking lots or parking ramps,
6
The basis for future parking demand is based on predicted business growth. There are
five sites that are identified as having potential for future development. They are in
different areas of the downtown. A process is being developed to col/ect and review
downtown employment data in five years, and then make a determination if there is an
increase in parking demand which necessitates the development of one or more of the
five sites.
The City Council approved the use of the approach for the parking lot and ramp system
to continue a dialogue with the local businesses on their parking needs and to look for
opportunities to infil/ the downtown area with parking spaces to meet the needs of
businesses.
Based on business expansion in the Town Clock Plaza, the construction of an addition
to the Fifth Street Parking Ramp is proposed in the Fiscal Year 1999 Budget. This
improvement would add 250 spaces to the parking system. The budget also includes
funds in Fiscal Year 1999 for the construction of 24 parking spaces nedr Third ,"nd
\.',,:.. T'-" "." '.,,~- ~~~~~. '-':--:-,,,--,,-: ;:'2--,--: ..:,,~ '..--.:,;-,g ioT -;6 Plf"'I1Q spaces 111
Fiscal Year 2003 and 88 parking spaces beyond Fiscal Year 2003.
C. Gateways and streetscapes issues
The City Council approved the recommendation for addressing the gateways and
streetscapes. which included building partnerships between the City and the Dubuque
Main Street Ltd., the Dubuque Area Chamber of Commerce, the property owners and
businesses, and the public to study the issues and develop plans for consideration by
the public and the City Council.
Gateways
The City Council reviewed the proposals in the study for potential gateway
improvements and selected the LocusUDodge connector, the Fourth/Fifth Street and
Highway 61/151 intersection and the Ninth Street and Highway 61/151 intersection as
the three community gateways for improvements.
City staff is working with the stakeholders in a process to develop the plans for the
community gateway improvements. The funding for the improvements is in the Fiscal
Year 1999 Budget.
Streetscapes
City staff is beginning discussions with the Historic Old Main property owners, Dubuque
Main Street Ltd. and the Dubuque Chamber of Commerce on the benefits streetscape
improvements would have for the district. If there is a consensus for making
streetscape improvements, City staff would work with the stakeholders to determine the
location of the improvements, the type of improvements and a plan to finance the
improvements. This would be presented in the Fiscal Year 2000 budget process.
D. Town Clock Plaza Issues
The City Council approved the recommendation of the Downtown Traffic Circulation
Study for making improvements to the Town Clock Plaza. The plan includes five
primary points:
7
1. Form a partnership with the businesses on the north end of the Town Clock
Plaza to develop a plan to open to traffic Eighth Street from Iowa to Locust and
Main Street from Eighth Street to Ninth Street. Also to determine the nature of
the improvements and the methods to finance them.
2. Leave Sixth and Seventh Streets and Main Street from Fifth Street to Eighth
Street closed to traffic.
3. Review the impact of the opening of the Eighth Street and Main from Eighth
Street to Ninth Street in future years and determine if it would be beneficial for
the Town Clock Plaza to open additional streets.
4. Consider a plan to make cosmetic improvements to the Town Clock Plaza,
including replacing the light posts with more historic lighting, installing historic
benches and trash receptacles, replacing the overgrown trees with new trees
and replacing any overgrown landscaping and clearing obstructions, like the
kiosks, from the center of the Town Clock Plaza.
5. Do not make any improvements to the existing pavement in the Town Clock
Plaza, outside of general maintenance and leave the Town Clock in its current
location.
Meetings have been held between City staff and the property owners on the Town
Clock Plaza to develop a plan for the improvements to the Town Clock Plaza and to
finance any improvements. The plans will be presented to the City Council at the
February 4, 1998 budget hearings. Minutes of the meetings are attached.
8
4. REVIEW OF PRIOR DOWNTOWN STUDIES
A. Dubuque Development Program
The Dubuque Development Program was prepared for the City of Dubuque and the
Dubuque Chamber of Commerce in 1965 by Victor Gruen and Associates. The
Dubuque Development Program was a comprehensive study relating all aspects of the
city's future physical development and improvement into a single coordinated program
of public investment directly proportioned to the community's development potentials
and resources.
The Dubuque Development Program was a condensation of eleven separate technical
reports, one of which was a Downtown Study. The Downtown Study included:
. an economic analysis and evaluation of downtown functions, identification of
opportunities for growth, and projections of land use requirements.
. detailed land use and circulation analysis, physical plan and design, and
scheduled development program in relation to the projections for economic base,
population and land use requirements.
The Dubuque Development Program outlined a downtown development program for the
regional business center and its immediately adjacent and interrelated residential and
industrial areas, to include:
. a compact, business center developed along Main Street with a central
pedestrian mall.
. a new department store site on the east side of Main Street between Fifth and
Sixth Streets.
. immediately adjacent, off-street parking facilities along the parallel north-soLjth
streets.
. a concentration of offices at each end of the business center, with a new County-
City Building at the entrance to downtown from U.S. 20.
. a renewed automotive service area adjacent to the east side of the retail core.
. organization of institutional, public and quasi-public uses adjacent to the
business center between Bluff and Locust Streets.
. rehabilitation of the Jackson Park area as a residential neighborhood.
. limitation of any further business encroachment north of Eleventh Street. except
for neighborhood business directly servicing the Jackson Park residential area.
. clarification of neighborhood business between the Jackson Park and
Washington Street neighborhoods.
. redevelopment around the St. Raphael Cathedral as a new apartment area.
. eventual creation of a civic center at the southern end of the retail core between
the Julien Hotel and the proposed County-City Building.
. definition to the existing wholesale-industrial areas south and east of the
business center.
9
B. Economic Development Plan
The Economic Development Plan prepared by Welton Becket/Peat Marwick was
completed in 1984. The study was initiated by the Dubuque Area Economic
Development Steering Committee, a coalition of the local Dubuque business
community, government and organized labor. As a result of this plan, the Steering
Committee formed the Greater Dubuque Development Corporation.
The basic purpose of this study was to determine the best overall strategy for economic
development in Dubuque. A five-year plan for economic development and a one-year
action plan were prepared. The study recommends initiation of a master development
planning process for a tourism complex at the Ice Harbor, through the following actions:
1) Designate the Ice Harbor as a special planning district with the possibility of
declaring the area as a redevelopment zone/tax increment district.
2) Prepare development guidelines and standards for the area.
3) Continue to monitor and coordinate with the State on the planning and
construction of new highway extension.
4) Identify any parcels of land that must be acquired for development.
5) Prepare financing strategy to fund land acquisition, necessary site clearance and
infrastructure.
6) Solicit proposals for a master developer of the site.
C, Old Main Neighborhood Reinvestment Strategy
The Old Main Reinvestment Strategy was the product of a neighborhood-based
planning effort supported by Dubuque Main Street, Ud. and the City. This strategy was
adopted by the City Council as part of the amended Downtown Dubuque Urban
Renewal Plan on May 2, 1994.
The primary goals of the strategy are:
1) Creation of a thriving commercial and residential neighborhood,
2) Preservation of historic Old Main,
3) Creation of a clean attractive streets cape,
4) Improved pedestrian and vehicular traffic, and
5) Improved parking opportUnities.
To achieve these goals, twenty-four tasks were identified including a marketing plan,
facade design projects, loan programs, building inspection program, removal of
overhead wires, traffic and parking study, and a streetscape plan. The Strategy
included a provision that three years after adoption of the Strategy there would be a
10
review of the efforts of property owners to bring their buildings into compliance with
codes.
D. Old Main Place Marketing Plan
The Old Main Place Marketing Plan was completed in November 1996. This plan was
prepared by Real Estate Planning Group and Clarion Associates for Dubuque Main
Street, Ltd. and the City of Dubuque asan element of the Old Main Neighborhood
Reinvestment Strategy. The purpose of the study was to assess the potential market
support and to develop a comprehensive marketing, recruitment and redevelopment
strategy for the Old Main District.
The plan includes demographic and economic analysis and a qualitative analysis of the
downtown market. The results of focus group meetings, a telephone survey and a
visitor intercept survey are presented,
The plan recommends two priorities for the Old Main area:
1) find tenants for the two adult business uses on the street, and
2) focus business planning efforts on the intersection of 3rd and Main Street.
Six objectives are outlined. These include:
1) Create activity in the Old Main area by introducing live-work lofts that will
encourage small business to occupy the upper floors as residences and provide
ground floor business and commercial space.
2) Develop tourism on Ice Harbor with active museums and entertainment.
3) Develop a theme for promotion of Old Main as a "Live Work" area
4) Remember the details - package the image
* provide a visual closure to the cul-de-sac on Main
* signage is needed to direct people to parking
* provide interpretation of the historical significance of the area
* create excitement through lighting, signage, and outdoor activity
. develop uniform design of street furniture with Cable Car Square
* connect Cable Car, downtown and Ice Harbor with Old Main by a trolley
* beautify the bridges over the freeway - planters
5) Business recruitment program
. target new start-up businesses
* recruit business services that support live-work environment: prinUcopy
shops, photo stores, travel agencies, computer shops, restaurants.
. to recruit retail tenants:
- begin "Live and Work on Old Main" promotion program
11
- prepare leasing support materials
- encourage existing retailers to help recruit
6) Risk mitigation
. the greatest risk is to do nothing
. an alternative is to associate more strongly with the Ice Harbor
. must have full commitment and participation of community to be
successful
H. Dubuque Comprehensive Plan
Adopted by the City Council in two phases in 1994 and 1995, the Dubuque
Comprehensive Plan builds on the Vision 2000 community planning process
conducted in 1991 and 1992. The Comprehensive Plan contains policies, goals and
objectives for physical, economic and social aspects of the community, and a systems
map that identifies development in potential groW1h areas.
Dubuque's Comprehensive Plan consists of fourteen elements represented in three
categories: Physical Environment -- Land Use and Urban Design, Transportation,
Infrastructure and Environmental Quality; Economic Environment __ City Fiscal and
Economic Development; and Social Environment -- Health, Housing, Human Services,
Education. Cultural Arts, Recreation, Public Safety and Diversity.
The Comprehensive Plan includes a number of goals and objectives related to
downtown Dubuque. Here are a few examples:
. Protect downtown commercial core and encourage continued reinvestment and
redevelopment.
. Provide, maintain and improve a parking system designed to meet the neeqs of
the patrons of downtown business and retail establishments and downtown
employees.
. Continue to encourage and enhance downtown development by striving to meet
current parking needs and providing expansion programs that are cost-effective
and innovative.
. Support downtown revitalization and neighborhood business development.
F. Freeway 61/151 Corridor Plan
The Freeway Corridor Plan was adopted in February, 1990 by the City Council. The
plan was developed as a land use and development guide for public and private
property along the freeway corridor by the Planning and Zoning Commission and the
Freeway Planning Committee. The purpose of the plan was to study the potential
impacts and opportunities the new Freeway 61/151 would present the City.
12
The Freeway Corridor IOlan addresses the three-mile long corridor as a whole made up
of twelve specific target areas. The plan makes recommendations which primarily
affect the physical appearance and the economic redevelopment of lands adjacent to
the new roadway. The majority of the recommendations presented in the plan require
some form of public intervention, whether in terms of public policy, public funds or staff
time.
Six target areas of the Freeway Corridor Plan overlap the boundaries of the Downtown
Circulation Study. These are: Flat Iron Park, Little Dublin, Historic Old Main, Ice
Harbor, CentralfWhite Corridors and 9th Street/11 th Street Interchanges.
For each area, the Freeway Corridor Plan provides background information on existing
conditions: physical constraints and opportunities, development history, property
ownership, current land use, and current zoning. The plan also delineates goals and
recommended policy/implementation steps for each target area.
G. Riverfront Plan
The Riverfront Plan represents a compilation of ideas generated from surveys of the
general public, riverfront property owners and businesses, as well as brainstorming
sessions and public meetings coordinated by the Long Range Planning Commission.
Several meetings were held between the property owners and City staff on the future of
the Fourth Street Peninsula. The City Council adopted the plan and its action agenda
in March 1994. Implementation of the plan depends on both public and private sector
efforts to improve the riverfront.
Based on a site analysis and a market demand assessment, the goals of the Riverfront
Plan are grouped into four planning components: (1) Recreation, Entertainment,
Culture and Education; (2) Public Infrastructure; (3) Environmental; and (4) Economic
Development. The Riverfront Plan recommends focusing redevelopment on the 4th
Street Peninsula, adjacent to the downtown employment base. The plan also .
recommends protecting and enhancing links between the 4th Street Peninsula,
downtown and the extension of Heritage Trail through the community.
In February of 1993, the Fourth Street Peninsula property owners recommended to the
City Council to put into place techniques for the cooperative public/private efforts for the
development and revitalization of the area. It also called for a review after the five
years to determine if the cooperative efforts were successful. The City Council
approved the proposal on February 15, 1993.
Riverwalk and Amenities
The City, Chamber of Commerce, and Convention and Visitors Bureau developed the
private sector Riverfront Development Committee to conduct public information,
marketing, and fundraising. These efforts will augment the City's financial commitment
to three major riverfront development projects: Heritage Trail, Mississippi Riverwalk,
and Water Works Park.
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C.ity Staff and tile consulting firm of BRW, Inc., have developed and evaluated design
alternatives for tile Mississippi Riverwalk and Amenities project on the Fourth Street
Peninsula. In July,! 997, the City Council approved designs for:
. A riverside walkway along the floodwall and levee;
. A river's edge plaza on both sides of the floodwall gate to the riverboat landing
outside the Ice Harbor;
. A decorative plaza and public amphitheater at the Star Brewery and urban
design and streetscape elements;
. Designs for a harbor walkway linking the river's edge plaza and Iowa Welcome
Center with the south rim of the Ice Harbor are being developed by BRW, Inc.,
and City staff to coordinate with the River Discovery Center.
City efforts on the Riverwalk project are being coordinated with the Dubuque County
Historical Society's River Discovery Center and the Dubuque Museum of Art's Floodwall
Mural Project.
H. Heritage Trail Master Plan
The Heritage Trail Master Plan was adopted by the City Council in October 1996. The
principal route will extend Heritage Trail 7.5 miles from 32nd Street from the north end
of the City through neighborhoods and downtown Dubuque to the Ice Harbor, and then
south to the Mines of Spain State Recreation Area. The principal route is the backbone
of an 18-mile Heritage Trail riverfront system, with connections to riverfront parks and
attractions.
The Heritage Trail will be another element in the City's tourist economy and a link
between downtown and the riverfront. The Heritage Trail Riverfront System also may
become the spine of a citywide bike and hike trail system with links through downtown
neighborhoods and historic districts to the west and south ends of town. .
I. Cable Car Square Development Plan
The Cable Car Square Development Plan was prepared in July of 1991 by the Dubuque
Main Street Ltd. The Design Committee of the DMSL reviewed many aspects of the
Cable Car Square area and used property owner and resident input to create the plan.
The purpose of the plan is to provide strategies, design guidelines and a design
concept for retaining and enhancing the historic character of the Cable Car Square
area.
The Design Committee wrote the plan in the context of meeting several objectives,
Including: (1) Preserve and enhance the historical integrity; (2) Increase the quality of
the streetscape and structures; (3) Create an identity of visual consistency, festiveness
and ambience; (4) Facilitate access to, and involvement with, the area; (5) Increase
economic viability and attractiveness; (6) Create public amenities.
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The Design Committee made several recommendations to improve the appearance
and the viability of the Cable Car Square area. Many of the recommendations related
directly to the initiatives of the City of Dubuque, which resulted from the Downtown
Traffic Circulation Study. They include: (1) Increase the number of two hour parking
meters; (2) Create two-way traffic on 4th Street; (3) Provide theme for surfacing
sidewalks; (4)
Maintain the historic style of existing structures; (5) Improve directional and
informational signage; (6) Visually connect Cable Car Square, Historic Old Main
District, and the Third Street Overpass with historical lights; (7) Develop a street
planting plan; (8) Install benches, a clock, and plantings.
The plan recognizes Cable Car Square's special character and the need to create
specific improvements to maintain and enhance its vitality.
J. Convention and Meeting Market Study
The Dubuque Convention and Visitors Bureau contracted with Certec Inc. in 1994 to
conduct a study of the potential of the convention and meeting market in Dubuque.
The study resulted in the following findings: (1) There is a strong potential to increase
the number room nights in Dubuque; (2) There is a lack of sufficient meeting space to
compete effectively for convention business; (3) Several modifications to the Five. Flags
Civic Center were suggested to increase meeting space. The study concluded that,
"The primary limitation [to increasing the convention market is the lack of sufficient size
and quality to compete effectively against other communities that offer such a facility."
The study suggested a growth strategy to increase the number of conventions in
Dubuque each year. The growth strategy is to: (1) Remove the ice rink and let other
facilities meet this need; (2) Expand the Five Flags Civic Center west across Fifth
Street with meeting rooms for 1,500 to 2,500 delegates; (3) Use the existing Five Flags
Civic Center for exhibition space; (4) Undertake community initiatives to make
Dubuque more attractive to groups holding conventions and meetings by; (1) Improving
the downtown; (2) Developing the riverfront; (3) Completing the highway improvements;
(4) Increasing shopping opportunities for attendees; (5) Improve tourism signage.
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5 DOWNTOWN REDEVELOPMEf\1T STRATEGY
A. Historic Overview
In 1967, tile City of Dubuque began redevelopment of its downtown core to revitalize
the region serving retail activities of the area. The plan, as contained in the Downtown
Dubuque Urban Renewal Plan, was comprehensive in scope. It sought not only to
provide cleared sites for construction of new commercial facilities, but also addressed
needs for additional parking facilities and other public works, for improvement of traffic
access and for creating a new sense of identity.
Much of the early momentum of the plan was lost when some major retail tenants,
Rosheks and Montgomery Wards, relocated out of the downtown area in the early
1970's. However, the decade of the '70s was a period of rapid growth in the Dubuque
economy. After a brief period of limited downtown development activity, there was
renewed confidence that an expanding economy would support the new regional retail
complex envisioned in the City's Urban Renewal Plan. The years 1976-1983 witnessed
a series of attempts to capture that perceived development opportunity. Those efforts,
however, stalled due to the lack of a timely commitment to construction of primary
highway entrances to downtown and the inability of developers to gain commitments
from department stores to occupy the project.
The onset of the 1981-1983 recession caused a significant loss of local economic
momentum. At the same time, major retailers were reassessing their regional
development strategies. In late 1982, the designated retail center developer, withdrew
from the project. Shortly thereafter, JC Penney, the key target department store tenant,
announced its plan to occupy a vacated space in the Kennedy Mall. With the lack of
interest by other major retailers, including Van Maur and Dillards, the redevelopment
plan, based solely on major retail development had to be re-examined.
In May, 1983, the City arranged a round-table discussion of the downtown situation.
This meeting was attended by key players in downtown Dubuque, including the banks,
retail interests, and property owners as well as the City. Don Zuchelli of Zuchelli,
Hunter Associates facilitated the discussion which ultimately reached consensus that:
1) Development of major new retail facilities in downtown Dubuque was not feasible
for sometime to come, and
2) The community should refocus its downtown redevelopment efforts to a mixed-
use strategy.
It was agreed that it would still be possible to achieve the City's underlying purpose in
the original Urban Renewal Project which was to re-establish downtown Dubuque as a
center of community activity and, thereby, to generate support for the continued
maintenance and redevelopment of the adjacent areas, which might otherwise suffer
growing obsolescence and blight. This essential goal did not have to rely exclusively on
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new retail investment. It could be served as well by more diverse types of
development.
B<Jsed on these conclusions, the City concentrated its redevelopment efforts downtown
on recruitment of service and information industry employers, development of a hotel
adjoining the Five Flags Center, and enhancement of the Ice Harbor area as a tourist
destination. The Holiday Inn, Fifth Street Parking Ramp, Trilog, and Ice Harbor casino
projects are the result of these efforts.
In addition to pursuing physical development projects, the City determined that a
successful downtown strategy must include a broader base of participants. This was
based on the recognition that downtown development is a process which requires
ongoing management and coordination of private as well as public resources and that
there needs to be a strong private sector partner. For this reason, the City sponsored
a local site for a National Trust video conference on downtown development and
submitted an application for selection as a Main Street pilot city in 1984. Since that
time, the City has provided annual financial support for Dubuque Main Street Ltd.
B. Recent and Future Initiatives
With a mixed-use strategy for downtown redevelopment and a new partner in place, the
City since 1984 has undertaken a number of initiatives within the various areas 'which
make up downtown. These areas include Town Clock Plaza, Old Main, Cable Car
Square, Upper Main, and Ice Harbor.
Town Clock Plaza. In the Town Clock Plaza area a tax increment financing district is in
place and a building rehab loan program has been created. Future initiatives include
opening 8th Street and Main Street between 8th and 9th to traffic; providing streetscape
improvements throughout Town Clock Plaza; and, expansion of parking through
construction of another level on the 5th Street Parking Ramp.
The keys for success in this area include: improving access for employees and
customers; creating a campus-like atmosphere with improved amenities; increasing
parking; and, encouraging a mix of businesses, including retail and eating
establishments, which will support the primary office activity within this area.
Old Main. In Old Main, the City continues to work with property owners and Dubuque
Main Street, Ltd. to implement the Neighborhood Reinvestment Strategy. Current
programs include a building rehab loan program, building facade improvement grant
program, enhanced code enforcement, and the improvement of the freeway frontage by
burying overhead wires.
Dubuque Main Street Ltd. Is currently developing an action plan for improving
downtown, including str"fc:~:; . !~ifleSS retention and recruitment. The property
owners from the Old Main area have been the most active thus far in the process. This
has led to the emergence of their issues as the center of the discussions. Staff is
working in partnership with Main Street and property owners in this process.
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I'uturc initiatives will include: ~ateway improvernents along Locust Street and the
freeway; streetscclpe improvements along Main Street; acquisition and disposition of
the Merchant's I-Iotel and Cinema X buildings; development of off-street parking; and,
enhancing linkages to the Ice Harbor and Cable Car areas.
The keys for success for redevelopment of this area include: addressing the
deteriorated condition of the Merchant's Hotel and Cinema X buildings; improving the
public streetscape on Main Street; development of upper floor housing; expansion of
off-street parking; and, provision of improved directional signage.
Cable Car Square. The Cable Car Square area has benefitted from past projects
including rezoning to the OC Office-Commercial District and funding for improvements
to the Redstone Inn. Future initiatives include the installation of historic lights funded
partially by property owners and through an ISTEA grant.
The keys to success in this area are: continued collaboration with property owners;
improved traffic circulation; and, improvements to directional signage and parking
throughout the area.
lmR-er Main. The Upper Main area has benefitted from the City's designation as an
urban revitalization area; modification in parking regulations: and, funding for
rehabilitation of housing. The Farmers' Market, now managed by Dubuque Main Street,
Ltd. continues to be an important part of the vitality of this area and the entire
downtown.
Future initiatives will include: the renovation of the Iowa Inn as the Stout Place
Apartments; and, work with Prescott School for possible conversion of 12th Street to
school grounds.
The keys to success in this area include: increasing housing opportunities; intensifying
code enforcement, particularly for older under-utilized properties; and continued
collaboration with neighborhood organizations and institutions.
Ice Harbor. The Ice Harbor and adjoining 4th Street Peninsula Area have been the
focus of significant public improvements including development of docking facilities for
the casino gambling boat, improvements to 5th, 6th, and Bell Street, and construction of
the 3rd Street overpass. Private development activities have included development of
the Iowa Welcome Center and National River's Hall of Fame as well as the Diamond Jo
Casino facilities. The City has supported continued development of the area through
establishment of a special zoning district which permits flexible use of property and by
engaging property owners in ongoing dialogue about the area. The five year timeframe
in which the City Council agreed to review efforts for further development of the Fourth
Street Peninsula will end in February of 1998.
The City, Chamber of Commerce, and Convention and Visitors Bureau developed the
private sector Riverfront Development Committee to conduct public information,
marketing, and fund raising. These efforts will augment the City's financial commitment
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