Work Session - Consolidation and Expansion of Urban Revitalization Districts Copyrighted
September 3, 2019
City of Dubuque Work Session - Top # 1.
ITEM TITLE: Consolidation and Expansion of Urban Revitalization
Districts
SUM MARY: City staff will conduct a work session with the City Council
on the consolidation and expansion of Urban Revitalization
Districts.
SUGGESTED DISPOSITION:
ATTACHMENTS:
Description Type
Consolidation and Expansion of Urban Revitalization City Manager Memo
Districts-MVM Memo
Staff Memo Staff Memo
ExhibitA- Urban Revitalization DistrictSummary Supporting Documentation
History
Exhibit B - Urban Revitalization Map Supporting Documentation
Exhibit C - Urban Revitalization Map- Current Supporting Documentation
Participants
Exhibit D - Urban Revitalization - List of Participating Supporting Documentation
Properties
Exhibit E - UR Districts & CDBG EligibleAreas Map Supporting Documentation
Exhibit F - Urban Revitalization Map- Option 1 Supporting Documentation
Exhibit G - Urban Revitalization Map- Option 2 Supporting Documentation
Exhibit H - Urban Revitalization Map - Option 3 Supporting Documentation
Presentation Supporting Documentation
Dubuque
THE CITY OF �
uI�AaMca cih
DuB E � �
I � � I
Maste iece on the Mississi i Zoo�•zoiz•zois
YP pp zoi�*zoi9
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: City Council Work Session for the Consolidation and Expansion of Urban
Revitalization Districts
DATE: August 29, 2019
Housing and Community Development Director Alexis Steger is transmitting information
for the work session on the proposed Consolidation and Expansion of the Urban
Revitalization Districts.
v
Mic ael C. Van Milligen
MCVM:jh
Attachment
cc: Crenna Brumwell, City Attorney
Teri Goodmann, Assistant City Manager
Cori Burbach, Assistant City Manager
Alexis M. Steger, Housing and Community Development Director
Dubuque
THE CITY OF �
AII�Aneriea Ciq
DuB E ;�r�,l�.�,��;
Maste iece on the Mississi i zoo�.zo�z.zo�3
rP PP 2017*2019
TO: Michael C. Van Milligen, City Manager
FROM: Alexis M. Steger, Housing & Community Development Director
SUBJECT: City Council Work Session for the Consolidation and Expansion of
Urban Revitalization Districts
DATE: August 26, 2019
INTRODUCTION
This memo transmits information for the September 3, 2019 City Council work session
on the proposed Consolidation and Expansion of the Urban Revitalization Districts. The
work session is intended for City Council discussion and feedback regarding the
proposed consolidation and expansion of the Urban Revitalization Districts.
With direction from the City Council, Housing and Community Development Staff can
prepare the required urban revitalization work plan, present the plan to the Long-Range
Planning Advisory Commission for review, send notification to property owners, hold a
public hearing and seek final adoption of the plan from the City Council. If approved
prior to the end of the new year, property owners who have made qualified
improvements can take advantage of the Urban Revitalization Program for this current
year.
BACKGROUND
Urban Revitalization Tax Exemptions Chapter 404 of the lowa Code allows the creation
of Urban Revitalization Areas. The intent of these Urban Revitalization Areas is to
stimulate private development and investment within targeted neighborhoods which
might otherwise continue to deteriorate, thereby stabilizing and eventually increasing
the tax base within those areas by providing property tax relief on improvements to
residential or commercial properties. Urban Revitalization Areas in Dubuque have
historically provided a 10-year tax abatement for improvements that increase a
residential property value by 10-15% and 3-year tax abatement for improvements that
increase commercial property value by 10-15%.
lowa Code Chapter 404.1 lists five reasons for which a city or county may establish
urban revitalization plans. These include:
1) The existence of numerous buildings that are dilapidated or deteriorated.
2) The need for preservation and restoration of buildings due to their historical
significance.
3) The area is appropriate as an economic development region as defined in lowa
Code 403.17.
4) The need for public improvements related to housing.
5) The encouragement of housing and residential development.
The City of Dubuque currently has 17 designated Urban Revitalization Areas. The
following is a list of these districts and when the City Council approved them.
Urban Revitalization Area Ordinance # Council Date
1 . Jackson Park 74-80 12/22/1980
2. West Eleventh St 15-81 03/23/1981
3. Upper Main 69-95 11/06/1995
4. Stout Place 13-01 03/05/2001
5. Langworthy 87-02 11/04/2002
6. Old Main 87-02 11/04/2002
7. Cathedral 87-02 11/04/2002
8. Garfield Place 07-04 02/16/2004
Garfield Place II 12-06 02/20/2006
9. Mannasseh House 13-06 02/20/2006
10. Lange Estate 12-16 04/18/2006
11 . Washington St 34-08 04/21/2008
12. Salvia House 35-08 06/02/2008
13. Kunkel and Associates 05-15 01/20/2015
14. Paragon Square 11-16 04/18/2016
15. 210 Jones St 57-16 11/07/2016
16. Radford Road 05-19 01/07/2019
17. Nativity Place 06-19 01/07/2019
Exhibit A is a matrix of these urban revitalization districts showing a breakdown of
residential, multi-family residential and commercial tax exemptions, eligible
improvements, district expiration and the reason for creation of the district.
There are approximately 1772 properties located in these 17 districts. Of these 1772
properties, there are 200 properties participating in the program. Attached to this memo
you will find a map of the Urban Revitalization Districts (Exhibit B) and a map with a list
of properties currently participating in the program (Exhibit C & D).
The following is a summary of the information provided in the spreadsheets and
property tax impact.
2
. . . . . -
. .- .- . . . - . . -. � .. -.
Residential 157 $8,012,620 $46,0441
Multi-Residential 36 $3,091,420 $25,151 Z
Commercial 7 $3,562,180 $33,1223
Total 200 $14,666,220 $104,318
City Tax Portion Abated - The following formulas corresponded to the amount of city tax
abated. This number was calculated by taking the total exempted value x the taxable
value x the city levy tax rate.
Residential' — 8,012,620 X .556209 = 4,456,691 X .01033144 = $46.044
Multi-familyz — 3,019,420 X .7875 = 2,434,493 X .01033144 = $25,151
Commercial3 — 3,562,180 X .9 = 3,205,962 X .01 0331 44 = $33,122
Based on the above data, which was obtained from the City Assessor, the properties
participating in the Urban Revitalization Program have a total exempted value of
$14,666,220 with $104,318 in City property tax abated.
A basic question that arises with Urban Revitalization Districts is if the investment would
be made into the properties if the district didn't exist. This question is sometimes hard
to quantify.
When we look at properties taking advantage of the commercial tax abatement, we see
properties that have received the district designation to help create economic growth
(Kunkel and Associates - 401 Data Court), provide large scale residential development
(Applewood Senior Apartments - 3275 Pennsylvania Avenue) and significant
improvements to large scale residential buildings (Mary of the Angels Home - 605 Bluff
Street). In addition, Urban Revitalization Districts were created for future large-scale
residential developments (Radford Road, Paragon Square & Nativity Place). Urban
Revitalization Areas also give the city the ability to provide incentives to new
developments.
When we look at properties taking advantage of the multi-residential tax abatement, we
see dilapidated buildings that were significantly improved and are slowly helping to
revitalize a neighborhood. For example, properties in the Jackson Park Historic District
improved by Stepflugs located at 326 W. Locust Street &1576 Locust Street and Full
Circle Communities improvements to the former St. Patrick's School (15�h & Main
Streets).
When we look at properties taking advantage of the residential tax abatement, we see a
large investment in areas that may not have been improved without the incentive. If you
refer to the map, you see a large grouping of properties in the Washington
Neighborhood. In addition, you see the former St. Raphael's School Building (205 Bluff
Street) converted to condominiums and taking advantage of the program to create
market rate housing.
3
Expansion of Urban Revitalization Districts
When we refer to the map of the Urban Revitalization Districts and compare it to the
2011-2015 Community Development Block Group Districts (Exhibit E), we notice a large
area of the community were 51 °k or more of the residents are below average median
family income and are not being provided the opportunity to take advantage of the
Urban Revitalization program.
The Washington Neighborhood Urban Revitalization closely resembles the condition
and type of housing stock that can be seen through-out these CDBG Eligible Areas.
Expansion of these Urban Revitalization Districts to include the CDBG Eligible Areas
will help build our community to be a more viable, livable and equitable, especially for
the residents and potential residents of these low/mod areas.
The following sections will outline three Urban Revitalization Area expansion options
and the potential tax implications. These areas will include portions of the existing
Urban Revitalization Districts with the exception of Radford Road, Nativity Place, Kunkle
& Associates, and Lange Estates which lie outside of the proposed boundaries. The
proposed Urban Revitalization districts are based on CDBG Eligible Census Block
Groups which will help track outcomes after designation of the area. These expansion
options are as follows:
Option 1 — Expansion of Existing Urban Revitalization Districts to include all CDBG
eligible areas in the downtown area.
Option 2 — Expansion of the Existing Urban Revitalization Districts to include CDBG
eligible areas in the northern portion of the city.
Option 3 — Expansion of the Existing Urban Revitalization Districts to include CDBG
eligible areas of the city, Census Tract 1 Block Group 1 (Residential
Properties) and the inclusion of Census Tract 3 Block Group 1 .
These are not the only options and further discussion may create a hybrid of these
options.
Option 1 — Expansion of Existing Urban Revitalization Districts to include all
CDBG eligible areas in the downtown area (Exhibit F).
This option would expand the existing Urban Revitalization Districts to include all the
CDBG eligible areas in the downtown. This area also encompasses almost all of
Dubuque's True North Focus area apart from the Flexsteel Property. The area also
includes the Kerper Court Industrial area, Chaplain Schmitt Island, the Port of Dubuque
and the Historic Millwork District.
There are approximately 5713 properties in the proposed expansion area. With
exception of the Urban Revitalization Districts that were created for new construction,
the following table is an extrapolation of the information based off the current Urban
Revitalization data on the previous table. It assumes the same ratio of properties to
total exempted value as shown in table 1 .
4
• • •
. . - .- . . . - . . -. � .. -.
Residential 499 $23,923,689 $137,476
Multi-Residential 116 $9,959,001 $81,027
Commercial 16 $648,622 $6,031
Total 631 $34,531,312 $224,534
Option 2 — Expansion of the Existing Urban Revitalization Districts to include
CDBG eligible areas in the northern portion of the city (Exhibit G).
This option would expand the existing Urban Revitalization Districts to include all the
CDBG eligible areas located north of the downtown. This area would encompass a
portion of Dubuque's True North Focus Area that focuses primarily on residential
property. A majority of the industrial and commercial properties have been removed in
this option. These non-residential properties are located in Urban Renewal Districts and
have the advantage of using TIF Funding. A majority of the area has had an In-depth
Architectural/Historic Survey/Evaluation which identified architecturally and historically
significant properties. This area also receives a concentration of funding sources due to
its CDBG eligibility and location in the Bee Branch Creek Watershed.
There are approximately 3191 properties in the proposed expansion area. The
following table is an extrapolation of the information based off the current Urban
Revitalization data on table 1 .
� • •
. . - .- . . . - . . -. � .. -.
Residential 279 $13,362,592 $76,787
Multi-Residential 65 $5,562,607 $45,257
Commercial 9 $362,288 $3,369
Total 353 $19,287,487 $125,413
Option 3 — Expansion of the Existing Urban Revitalization Districts to include
CDBG eligible areas of the city and the inclusion of Census Tract 3
Block Group 1 and Census Tract 1 Block Group 1 (Residential
Properties) (Exhibit H).
This option would expand the existing Urban Revitalization Districts to include all the
CDBG eligible areas located downtown. This area would encompass a portion of
5
Dubuque's True North Focus Area that focuses primarily on residential property. A
majority of the industrial and commercial properties have been removed in this option.
However, the residential portion of Census Track 1 Block Group 1 is included. The area
includes Census Track 3 Block Group 1 which is a natural continuation of the Point
Neighborhood. This inclusion is not a CDBG eligible block group but has 48.70°k
Low/Mod residents and inclusion in the urban revitalization area may stabilize property
values and prevent it from reaching the 51 °k Low/Mod threshold for CDBG eligibility.
Also, a majority of the area has had an In-depth Architectural/Historic Survey/Evaluation
which identified architecturally and historically significant properties.
There are approximately 5706 properties in the proposed expansion area. The
following table is an extrapolation of the information based off the current Urban
Revitalization data on table 1 .
� • •
. . - .- . . . - . . -. � .. -.
Residential 499 $23,894,376 $137,308
Multi-Residential 116 $9,946,798 $80,927
Commercial 16 $647,827 $6,024
Total 631 $34,489,001 $224,259
The following table lists the potential Urban Revitalization District Requirements.
. .- . . . -
. . � . � . .
.- . -. . .
Residential 10% 100% 10 years Until it is determined that
Multi- Rehabilitation the revitalization of the
Residential 15% 100% 10 years* and Building neighborhood has been
Additions attained or 10 years
Commercial 15% 100% 3 years whichever comes first.
* Max 10 year Allowed by State Code. Maybe be reduced to less than 10 years.
RECOMMENDATION
I respectfully recommend the City Council provide direction on which proposed option or
alternative option they would like Housing & Community Development Staff to prepare
for the required urban revitalization work plan, present the plan to the Long-Range
Planning Advisory Commission for review, send notification to property owners, hold a
public hearing and seek final consideration of the plan from the City Council at a future
meeting.
6
The Housing & Community Development Staff highly recommends preparing an urban
revitalization plan based on Option 3 and the district requirements listed in the previous
table.
The benefits of Option 3 are the following:
1) It includes all the CDBG eligible areas located downtown; and
2) encompasses significant portions of Dubuque's True North Focus Area; and
3) it includes the natural extension of the Point Neighborhood; and
4) the majority of the area has had an In-depth Architectural/Historic
Survey/Evaluation which identified architecturally and historically significant
properties.
Enclosures
cc: Wally Wernimont, Assistant Planner
Chris Lester, Community Development Specialist
Prepared by Wally Wernimont, Assistant Planner
7
Tax Exemption
� Residential Increase assessed Tax Exemption on Duration Multi-Family Increase assessed Tax Exemption on Duration Commercial Increase assessed on increase Duration Eligible District Expiration Reason for Creation
Eligible valuebywhat�O increasevalue Eligible valuebywhat�O increasevalue Eligble valuebywhat�O value Improvments
Until it is determined that
Rehabilitation and the revitalization goals of Historic Buildingsworthyof
the neighborhood have preservation and a significant if
lacksonPark Yes 10% 100%upto$20,000 10Years Yes 15% 100% 10Years No N/A N/A N/A buildingadditions beenattained.Athreeto ofdeterioratingbuildingswith
only
fiveyeartimeframewas substandardhousing
anticipated.
Until it is determined that
therevitalizationgoalsof HistoricBuildingsworthyof
Rehabilitation and
West11th5treet Yes 10% 100%upto$20,000 10Years Yes 15% 100% 10Years No N/A N/A N/A buildingadditions theneighborhoodhave preservationandasignificantif
only beenattained.Athreeto ofdeterioratingbuildingswith
fiveyeartimeframewas substandardhousing
anticipated.
Rehabilitationand Untilitisdeterminedthat
BuilidngAdditions the desired level of Amendingthe Washington UR
Washington Neighborhood Yes 10% 100% 10Years Yes 15% 100% 10 Years Yes 15% 100% 3 Years Only-No additional Plan and removed 2160 Elm
residential units revitalization has been Street UR District.
added attained.
Intended to bring back to useful
UpperMain Yes 15% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A Rehabilitationonly November6,2020 purposethevacantor
NoAdditions
underutilized buildings
Rehabilitation or Full Rehabilitation or3 Rehabilitation ofthe lowa
StoutPlace Yes 10% 100% 10Years Yes 15% 100% 10Years Yes 10% 100% 10Years buildingadditions
only YearsfromMarch2001 Inn/FormerYWCABuilding
Assist in rehabilitation efforts of
Langworthy Yes 15% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A Rehabilitationonly NoExpiration5tated severalvacantordeteriorating
NoAdditions properties in Langworthy
Historic District
Rehabilitation or
buildingadditions
and only 100%or Assist in rehabilitation efforts of
OldMain Yes 15% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A greaterofthetotal NoExpiration5tated severalvacantordeteriorating
square footage must properties in Old Main Historic
be used for District
residential purposes
Rehabilitation Only-
No building
additions
Commerical Assist in rehabilitation efforts of
Cathedral Yes 15% 100% 10Years Yes 15% 100% 10Years Yes 15% 100% 10Years quailifiesif75%or NoExpiration5tated severalvacantordeteriorating
greater of the total properties in Cathedral Historic
square footage must District
be used for
residential purposes
� Residential Increase assessed Tax Exemption Duration Multi-Family Increase assessed Tax Exemption Duration Commercial Increase assessed Tax Exemption Duration Eligible District Expiration Reason for Creation
Eligible valuebywhat�O Eligible valuebywhat�O Eligble valuebywhat�O Improvments
1st Yea r-SO%
2nd Year-70%
3 rd Yea r-60%
4th Year-50% Assist Kunkel&Associae with an
New Construction of
Sth Year-40% Time period specified on expansion of the company's
Kunkel&Associates No N/A N/A N/A No N/A N/A N/A Yes No%Stated 10Years aBuildingonVacant
6thYear-40% ��d approvedapplication wrrentfacilityandCreationof
7th Yea r-30% 10 Jobs
Sth Year 30%
9th Year 20%
10th Year 20%
Assist the development of
NewConstruction of affordable housingfor
lange Estates Yes 10% 100% 10 Years Yes 15% 100% 10 Years No N/A N/A N/A a Building APril 1S,2021 vulnerable poplulations by
providing needed housing units
for seniors
Unitlthedesiredlevelof qssistthedevelopmentof
Rehabilitation or revitalization has been affordable housingfor
attained,orforfiveyears,
Pargon5quare Yes 10% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A buildingadditions whicheveroccursfirst. �ulnerablepoplulationsby
only providing needed housing units
Five Years end on April
for seniors
1S,2016
1st Yea r-SO%
2nd Year-70%
3 rd Yea r-60%
4th Year 50%
210JonesStreet No N/A N/A N/A No N/A N/A N/A Yes No%Stated SthYear-40% gOYears RehabilitationOnly- NoneStated Assistwiththerehabilitationof
6thYear-40% NoAdditions 210JonesStreet
7th Year-30%
Sth Year 30%
9th Year 20%
10th Year 20%
NewConstruction Unitlthe desired level of Encourage new in-fill
NativiryPlace Yes 10% 100% 10Years Yes 15% 100% 10Years Yes 15% 100% 3Years Only-Considered revitalizationhasbeen constructiontoprovideneeded
Infilled attained houisngunits
Unitl the desired level of Encourage new construction to
New Construction
Radford Road Yes 10% 100% 10 Years Yes 15% 100% 10 Years Yes 15% 100% 3 Years Onl revitalization has been provide needed houisng units
Y attained and supportingcommercial uses
Assistthe redevelopment efforts
of deteriorated property which
Until the area is fully
redeveloped orforthree will provide forthree buildings
New Construction on for Single Room Occupancy
Garfieldl Yes 15% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A VacantLand Yearswhicheverocwrs housingformalesonly. Two
first.Threeyearsended builidngcontainsl9occupants
on February 20,2007 each and one buildingfor 12
occupants
Untiltheareaisfully Assisttheredevelopmentefforts
NewConstructionon redevelopedorforthree ofdeterioratedpropertywhich
Garfieldll Yes 15% 100% 10Years Yes 15% 100% 10Years No N/A N/A N/A VacantLand Yearswhicheverocwrs willprovideforonebuildingfor
first.Three years ended Single Room Occupancy housing
on February 20,2009 for 12 males only.
� Residential Increase assessed Tax Exemption Duration Multi-Family Increase assessed Tax Exemption Duration Commercial Increase assessed Tax Exemption Duration Eligible District Expiration Reason for Creation
Eligible valuebywhat�O Eligible valuebywhat�O Eligble valuebywhat�O Improvments
Untiltheareaisfully Assisttheredevelopmentefforts
NewConstructionon redevelopedorforthree oftheareabyprovidingfora
ManassehHouse Yes 15% 100% 10years Yes 15% 100% 10Years No N/A N/A N/A VacantLand Yearswhicheverocwrs NewSingleRoomOccupancy
first.Threeyearsended Buildingtohousel9female
on February 20,2009 occupants
Untiltheareaisfully qssisttheredevelopmentefforts
redeveloped orforthree
NewConstructionon yearswhicheverocwrs oftheareabyprovidingfora
SalviaHouse Yes 15% 100% 10years Yes 15% 100% 10Years No N/A N/A N/A VacantLand first.Threeyearsended NewSingleRoomOccupancy
Buildingto house 1Sfemale
on June 2,2011.
Ordinance repealed occupants
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_ Cathedral Jackson Park Lange Estates Nativity Place Radford Road Upper Main
Garfield Place I 210 Jones St Langworthy Old Main Salvia House Washington Nbad
Garfield Place II Kunkel&Associates Manasseh House Paragon Square Stout Place West 11th
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Parcel Number Primary Owner Property Class Legal Exempt Total Amount Exempt Type
1022354010 APPLEWOOD IV LLC C LOT 2 LANGE ESTATE 1789860 Urban Revitalization
1024256008 RICHARD TAFT 1812 LLC C S 1/5 OF CITY LOT 436 17079 Urban Revitalization
1024261009 HITZLER RENTAL LLC C N 43.2' N1/5 OF CITY LOT 435 67420 Urban Revitalization
1024261010 HITZLER RENTAL LLC C LOT 1 NM 1/5&S 8' N 1/5 OF CITY LOT 435 27900 Urban Revitalization
1024439001 SCHUSTER, DANIEL D&STACY M C LOT 1 -N 1/5 -CITY LOT 480 29570 Urban Revitalization
1025207036 THE ANGELS LLC C CITY LOTS 618, 619, 620, N 7.2"-N 1'6"-N 64' CITY LOT 617, LOT 14 & N113'OF LOT 13 CORIELL'S DUB 60771 Urban Revitalization
1512451007 KBA PROPERTIES LLC C LOT 6 BLK 2 DUBUQUE TECHNOLOGY PARK 1569580 Urban Revitalization
3,562,180
• . � ' • � ' • � • • '
Parcel Number Primary Owner Property Class Legal Exempt Total Amount Exempt Type
1024184004 HANTEN, RONALD J M LOT 1-4-2 OF CITY LOT 673 23410 Urban Revitalization
1024213001 LAKESIDE INVESTMENTS LLC M W 1/2-LOT 43 &S 28'-W 1/2-LOT 42 L H LANGWORTHY'S ADD 86130 Urban Revitalization
1024256008 RICHARD TAFT 1812 LLC M S 1/5 OF CITY LOT 436 39080 Urban Revitalization
1024256008 RICHARD TAFT 1812 LLC M S 1/5 OF CITY LOT 436 65390 Urban Revitalization
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3,091,420
• . � ' • � ' • ' � • • '
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8,012,620
Low/Moderate Income Areas
City of Dubuque, IA
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Any Questions ?