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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. 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' � � 5 � ,3' \�`� �� Residential(157) ' o r?�' ^ � . . � _ �'�.�- �� �� � ' qP�'. � �o';� � �� , �'` � ,� �� ..;r w �,q-,, �' -� ^�,� a �YRr ''" �. � �" �;�,».' ,La. ,�d�;�vJE�AN ' �, ��'}- ��N s i s �,� R� `� 4'� ^_' .�' �S-._ .+ .: � , . �as�C"'R`' �, � RISING� �4 4 r 'l'� ��,E ,Q,,`��` Y+,- O . i _. t�� .N ;— ' _+yu�l.� a ei; ra' '��- ^� � �� � _ �� ° ;,a, .,�. �,. 2 , • . � ' • • � • • ' 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 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