Updated New Housing Units Handouts Copyrighted
May 4, 2026
City of Dubuque ACTION ITEMS # 5.
City Council
ITEM TITLE: Updated New Housing Units Handouts
SUMMARY: City Manager providing updated New Housing Units
handouts that collectively provide insight into housing trends,
identified gaps, and projected demand within the community.
SUGGUESTED Receive and File
DISPOSITION:
ATTACHMENTS:
1. MVM Memo Updated New Housing Units Handout
2. Staff Memo
3. Housing Incentives - New Units Handout - April 9 2026
4. October 2025 Dubuque County Housing Needs Assessment
5. April 2022 Dubuque Housing Need Assessment
6. 2022 lowa State Dashboard Slide
Page 582 of 668
Dubuque
THE CITY OF �
uhA�eMa cin
DuB E ; . � ,
I � � I.
Maste iece on the Mississi t 2oo�•zoiz•zois
�P Pp zoi�*zoi9
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Updated New Housing Units Handout
DATE: April 24, 2026
Planning Services Director Wally Wernimont is providing an updated New Housing
Units handout.
Included with this memo are the following documents:
■ October 2025 Dubuque County Housing Needs Assessment
■ April 2022 Housing Needs Assessment
■ A slide from the 2022 lowa State Profile identifying a need for 1,100 housing
units by 2030
These materials collectively provide insight into housing trends, identified gaps, and
projected demand within the community.
v
Mic ael C. Van Milligen
MCVM:sv
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Wally Wernimont, Planning Services Director
Page 583 of 668
Dubuque
THE CITY OF �
All•A�eriea Ciry
DuB E .�r,�� :,k�,.�.�
' � II ��'
Maste iece on the Mississi 1 Zoo��zoiz�zois
YP PP zoi�*zoi9
TO: Michael C. Van Milligen, City Manager
FROM: Wally Wernimont, Planning Services Director �
DATE: April 15, 2026
RE: Updated New Housing Units Handout
INTRODUCTION
This memo transmits the updated New Housing Units handout for your review and
reference.
DISCUSSION
As a result of discussion during the Housing & Community Development Department
budget presentation, additional supporting materials are being provided to give broader
context to current and projected housing needs.
Included with this memo are the following documents:
■ October 2025 Dubuque County Housing Needs Assessment
■ April 2022 Housing Needs Assessment
■ A slide from the 2022 lowa State Profile identifying a need for 1,100 housing
units by 2030
These materials collectively provide insight into housing trends, identified gaps, and
projected demand within the community.
REQUESTED ACTION
No action is requested at this time. This memo is being provided for information
purposes only.
Page 584 of 668
• • •
• � � • �
IIIQ �
° 5 -
T} � ,
�-��1 ,�-," _ - �,i"7°.�0- - _- _i�u
� - ... - 1 �r]�+L
- - - .�'.a-��_ - _ ��'.-- ' � i� . �► .� _
_ �,�_m�s
�'� �—_ _'_�._' . - ' �
� 7
,1 .. ,. �� i ,.
I I y 11 11 11 li �_F �� ����i��
- • • • • , ,. _ • v ����� �_ - �� n;_ n �� , .
•�u,-��n_ u� � � a' er ° �
�, - _ � �' *�,�� - .
: y�
- .�-�_-:
. - . . . . . - - _ . ,-�:- � ���`�� _
t G 1 �-'���, w.. 4���h 5� �'_
�L �(�� __ `�+, t-'"�`'ii���
----_:r..r�`�'��.__ _iuu��� �'— � ----�_
2,5 2 0 Tota I Lots/U n i ts
as of April 9, 2026, including
390 Workforce Units
Development Location Lots/Units Available Use
North Grandview Estates North Grandview/32nd Street 32 Lots/Units Single-Family/Apartment
Rustic Point Estates#2 Derby Grange/Kennedy Roads 40 Units Single-Family/Duplex
Sky Blue Estates* Sky Blue Drive 4 Lots Single-Family
Silver Oaks Subdivision Elmwood/Silver Oaks Drive 127 Lots Single-Family/Duplex
South Pointe Estates* Rockdale Road/South Pointe Drive 37 Units Single-Family/Duplex
Timber-Hyrst Estates Creekwood Drive/Cherry Ridge 21 Lots Single-Family/Duplex/Townhomes
The Farm/Switch Homes End ofTiffany Court 18 Lots Single-Family
*Subdivision has additional phases TOTAL' 279
- - � - - - -
Development Location #of Lots/Units Use
Visitation/AHNI 900 Alta Vista Street 25 Units Workforce Apartments �
Carter Road Apartments Carter Road 40 Units Market-Rate Apartments
Farley&Loetscher, LLC 801 Jackson Street 126 Units Market-Rate Apartments
Bridge Lofts 35 Locust Street 106 Units Market-Rate Apartments/Mixed Use
Hitzler Rental LLC Apartments 2541 Central Avenue 5 Units Market-Rate Apartments
Millwork Flats 1065 Jackson Street 76 Units Market-Rate Apartments �
Corridor DBQ 1527 Central Avenue 10 Units Market-Rate Apartments
Wilson House Apartments 1243 Locust Street 5 Units Market-Rate Apartments �
Fifth&Main St.Apartments 200 W. Fifth Street 102 Units Market-Rate Apartments/Mixed Use
Miller Five-Plex Eastgate Court 5 Units Market-Rate Apartments
Williams Four-Plex Key Way/Keystone Drive 4 Units Market-Rate Apartments
Ellis Mixed-Use Development JFK Road/Northwest Arterial 28 Units Market-Rate Apartments/Mixed Use
TOTAL: 532
Development Location #of Units Use
Sky Blue Estates#3 Sky Blue Drive 15 Lots Single-Family
TOT : 15
Development Location #of Units Use
The Farm/Switch Homes End ofTiffany Court 84 Lots Single-Family
South Pointe Phase 2 South Pointe Drive 21 Lots Single-Family
22 Units Duplex
TOTAL: 127
ADDITIONAL DETAILS ON BACK Page 585 of 668
CONTINUED FROM PAGE 1
- - . - - - -
Development Location #of Units Use
Carich Property LLC Apartments 1734-36 Central Avenue 8 Units Workforce/Market-Rate Apartments
Cedar Lake Apartments Lake Ridge Drive 14 Units Market-Rate Apartments
CK Construction Four-Plex 1104 Lincoln Avenue 4 Units Market-Rate Apartments
Fox Hills Apartments End of Plaza Drive 390 Units Market-Rate Apartments
1701 Central Ave.Apartments 1701 Central Avenue 4 Units Market-Rate Apartments
Plastic Center, Inc. 408 W.5th Street 9 Units Market-Rate Apartments
1301 Central Ave.Apartments 1301 Central Avenue 30 Units Market-Rate Apartments
Union at the Marina 1860 Hawthorne Street 101 Units Workforce Family Housing
Habitat for Humanity Rosalynn Carter Place 14 Units Workforce Single-Family Homes
The Landings at Cedar Cross 380 Cedar Cross Road 150 Units Market-Rate Apartments/Mixed Use
lowa Street Lofts 1248 lowa Street 13 Units Market-Rate Apartments
Novelty Iron Works Condominiums 333 E.Tenth Street 34 Units Market-Rate Condominiums
TOTAL: 771
.-
Development Location #of Units Use
Estates of Dubuque Barnwood Lane/Lasso Court 35 Units Single-Family/Cooperative Community
T�T- � . ��
- - . - -
Development Location #of Units Use
1706 Central Apartments 1706 Central Avenue 11 Units Market-Rate Apartments
799 Main Street Apartments 799 Main Street 36 Units Market-Rate Apartments
Gardens of Dubuque 1895 Radford Road 50 Units Workforce Family Housing Apartment
Kretschmer Lofts 895 Washington Street 48 Units Market-Rate Apartments
Roosevelt West 1865 Radford Road 44 Units Workforce Senior Housing Apartment
Miller 4-Plex 3545 East Gate Court 4 Units Market-Rate Apartments
Mount Carmel-Sisters of Charity I 1100 Carmel Drive 60 Units Skilled Nursing
Phase 1 46 Units Assisted Living
22 Units Memory Care
Mount Carmel-Sisters of Charity II 1100 Carmel Drive 116 Units Independent Living
Chadwick BlockApartments 249 W.1st Street 4 Units Market-RateApartments
Old Prescott School 1199 Central Avenue 12 Units Market-Rate Apartments
1047 Bluff Street Apartments 1047 Bluff Street 2 Units Market-Rate Apartments
1398 White Street Apartments 1398 White Street 2 Units Market-Rate Apartments
South Pointe Rowhouses Rolling Creek Lane 6 Units Market-Rate Townhomes
744 Main Street 744 Main Street 2 Units Market-Rate Apartments
HG Apt LLC Apartments 2901 Central Avenue 18 Units Market-Rate Apartments
Century Square Apartments 1504 Bies Drive 54 Units Market-Rate Apartments
South Point Rowhouse 1368-1378 Autumn Ridge 4 Units Market-Rate Townhomes
Padua Place Apartments 2175 Rosedale Avenue 14 Units Market-Rate Apartments
Emri Apartments Radford Road 48 Units Workforce Family Housing Apartments
Cedar Lake Apartments Lake Ridge Drive 28 Units Market-Rate Apartments
The Landings at Cedar Cross 380 Cedar Cross Road 30 Units Market-Rate Apartments/Mixed Use
Union at the Marina 1860 Hawthorne Street 100 Units Workforce Family Housing
TOTAL: 761
. ��
Y ,. � -" � � -
--- ` - , a. �.',�- � � 'sS��5 ,� �. �:'� ��'y �`.� � �� ■�- �
��ti" �,,_ ..- _ ...
- y . � �
. . . : . � , .` > . -� ;�� ^'�7y,;. � ,.�� ..
x �(.;. . � �-; '. .._.+���F-.3� :.,�;. . � '!Y�4W.:� �.�.�
� ��..�Y„� , .. 'a�' .
�.�:1_ _ w+ f. ... , v��rem� - - �ir.e ;.�".,f��.. ❑■ = - '. .
. _ . " �.+r � '�: s: .. - - ;s+�.`e:+G
� +� � !r`i.-"�_ - •���/:�\�._ ��\/ ,�p, ��c. ��-� �
_ __ . : _. .: � _
- y _. --- �.
���- �' _,� � ,�',, - � � '��-� ��, .. . i �y_-' � i �'��/` _" . ,.m�',R w� .
-1 - I -,�
� ��:.�, - � �!� � r ��,—�- � e� . �` �y��.,�ry ,
�, � ��it�j . ,.F��, � ��`T—�,I t_�1• �M�� �,_
'` oP. � , _ i_�..
-•-_._. _� i � , � ��� � '� _ - __
� ,,,,,, �- '� � 1- age586of6
�..��` �' �_��� —'—� �� ,_�:.��:
i.. �.
F
ti_ �
4.
' ��_,. i�.� - � � ;,- �`?
4, t` '�. ! T 3 L.:�'
3, �,,, ` <
- �'�,,,�,.���� ,i�`;
k` t,,.... i y:,, �7.�' . ',"r 3 ' �
'' t� �� �� A 1.. �' � �
r: � �^. _
��w
s 1r � �A;�r ` �, _ - /•
� �� �� -.�,c-:- � ,..
u n' 't'`"r
I _ ��,.
� � � ' � � �. ^._ _ _ ,s. -
� `
� � �.
� �i I �
�I�
� ' / / �
, .
,, .. . -
_=� :.►
�
' x�{,� r '• �` �,
� � , �
�Y-"�,\ �.,� t �:'yS���� _�v,`++��� � . __.. �w lYy� � � � '.� �� �, ...
\ . -' � �' t���
�I.�• I.I �li'i I..1 � � �
'� f� ��
�' ��"� 1� . � .- ► � � � �D .. ,t'�► '�'- .
.�-- ..� ._ v / \ .�r' �� �, �S
.! � _ . � . ��� � �,+� ! W � �' °� � �,�;
-'-- �=�`�. , ' '� �� �
- . -',. ��-�_� _ _._� -
: , , - . , . .� .--- � y - � /� , �
. ,
. . ,
�,;�-�. .� . . . � . o . - � �t ��. ��-
���/�II'!/ ' , � ';7L � _ -/r � -
��c. . .___— _�— !/I /' ,'� rl !"�• 'i 1�� ' ' � .. - \
_ �. - � 1Ij_ � _,', t, �� i �
� • _`�' -
� �
..� � � :. . � :" .
������ - -_ '` _ _ _� �. _.�, ,
- '���_ r�. — _ -s�_�__ ��7 ,� �
__ -� � _.- -'. ._-.- ��- _ � � —�
�z' '
" s
- . �� ' I � — i
::F u`� �l � / — : �- . l�-
October 2025 �
1
Prepared by: Prepared for: �jreater �UbUqVe
DEL'E_CPV�t�F�IT CORP
East Central Intergovernmental Greater Dubuque Development
Association Corporation
7600 Commerce Park 900 Jackson St, Suite 109 -
Dubuque, lowa 52001 Dubuque , lowa 52002 '1
ECIA �
Page 587 of 668
� � � � � - � �
Contents
1. Introduction ..............................................................................................................3
2. Demographic Trends..................................................................................................6
3. Economic Trends.....................................................................................................12
4. Housing Trends .......................................................................................................21
5. HousingMarket.......................................................................................................28
6. Housing Affordability ...............................................................................................39
7. Forecasts................................................................................................................44
8. Key Findings............................................................................................................47
9. Housing Programs ...................................................................................................50
Cover Image: Blue Sky Estates and Eagle Valley subdivisions in the city of Dubuque.
Photo provided by Greater Dubuque Development Corporation.
October 2025 2
Page 588 of 668
� � � � � - � �
1 . Introduction
Greater Dubuque Development Corporation has contracted with the East Central Intergov-
ernmentalAssociation (ECIA)to produce a housing needs assessment for Dubuque County,
lowa.
Purpose
The purpose of this housing needs assessment is to review the most accurate and up-to-
date information available in order to better understand the current housing conditions and
provide a forecast of future housing production needed to achieve a balanced housing mar-
ket over the next ten years.
The assessmentwill provide a macro level assessment of housing in Dubuque County, offer-
ing a broad perspective that examines overarchingtrends and systematic factors ratherthan
focusing on specific neighborhoods or submarkets.
The assessment will include a review of data from a variety of sources including the U.S.
Census Bureau, State of lowa, real estate professionals, and local governments. Analysis of
these data trends will provide a foundation for future population and housing forecasts that
will help guide future housing-related decisions.
Greater Dubuque Development Corporation
Greater Dubuque Development Corporation is an economic development organization that
is dedicated to serving Dubuque County, IA and committed to assisting its partners in Clay-
ton, Delaware, Jones, Jackson, Jo Daviess, and Grant counties to elevate the economic and
community development of our region.
Greater Dubuque Development Corporation's mission is to serve as the premier economic
development organization in the region. Greater Dubuque drives economic prosperity by at-
tracting, retaining, and growing businesses, serving as a convener and catalyst of strategic
collaboration and population growth.
East Central Intergovernmental Association
East Central Intergovernmental Association (ECIA) is an organization of counties, cities and
other localgovernments serving a five-county area in eastern lowa that includes Cedar,Clin-
ton, Delaware, Dubuque, and Jackson counties.
Established in 1974, ECIA provides services and programs across six broad categories in-
cluding: Community Development, Economic Development, Housing Assistance, Special
Programs,Transit,and Transportation and Planning. ECIA's mission is to proactively enhance
October 2025 3
Page 589 of 668
� � � � � - � �
the well-being of our region by forging strong county and community partnerships, develop-
ing innovative solutions, and delivering essential services.
Components of a Balanced Housing Market
Generally, a balanced housing market is one where new housing construction keeps pace
with population growth. In a balanced market, housing costs typically move at a steady, sus-
tainable pace ratherthan swinging sharply up or down, and vacancy rates stay in a range that
is neither too high or too low.
Key features of a balanced market include:
• Neither buyers and sellers or landlords and renters have an overwhelming advantage.
• Housing costs don't grow faster than wages.
• New construction generally keeps pace with population growth and vacancy rates
stay in the balanced range.
Balanced Vacancy Rate
Vacancy rates are a key measure of the balance between housing supply and demand.A low
vacancy rate indicates that demand is exceeding supply, leading to rising rents and home
prices, affordability issues, and difficultyfinding a home.A high vacancy rate can signal over-
supply, weak demand, or economic challenges which can discourage investment.
A balanced vacancy rate is key for mobility. Available housing units allow people to move
when they need to for a new job, upgrade to bigger home for a growing family, or downsize
when their needs change.A healthyvacancy rate can also help keep housing prices in check
by encouraging competition in the housing market. A vacancy rate that is too low will tilt the
market toward sellers and landlords, while too many vacancies will tilt it to buyers and
renters.
Balanced Housing Costs
In a balanced housing market, rents and home prices typically move in at a steady sustain-
able pace that benefits both sellers and landlords and buyers and renters without giving one
too much of an advantage. Growth is steady enough to allow landlords to maintain proper-
ties and cover costs, but not too fast to price out renters. For the owner-occupied market,
the balanced market encourages investment and allows owners to build equity and while
keeping homes prices attainable for new buyers.
Further discussion of balanced market vacancy rates and costs is provided later in this re-
port in in Section 5 HousingMarket.
October 2025 4
Page 590 of 668
� � � � � - � �
With this report focused on broad, county-wide trends, we will not be able to conduct a de-
tailed analysis of individual communities, neighborhoods, or specific housing submarkets
by type or price point. It is important to recognize that while overall market conditions may
appear balanced, there may still be areas within the county or particular segments of the
housing market where imbalances persist.
October 2025 5
Page 591 of 668
� � � � � - � �
2. Demographic Trends
Dubuque County Overview
Dubuque County is located in northeast lowa Table2.1. Dubuque CountyPopu(ation
along the Mississippi River in a tri-state area City Population
that borders Illinois and Wisconsin. The Dubuque 59,667
Asb u ry 5,943
county's 2020 decennial census population Dyersville 4,477
was 99,266, representing a six percent in- Cascade 2,3s6
crease since 2010. Dubuque was the first Epworth 2,023
area in what eventually became the State of Peosta 1,908
lowa to be settled by Europeans. Early set- Farley 1,766
New Vienna 382
tlers were drawn to the area by lead mining, Worthington 382
trading, and river transportation. Today's Holy Cross 356
economy is driven by a diverse collection of Luxemburg 245
industries including healthcare and manufac- Rickardsville 202
Sherill 189
turing. Centralia 116
Dubuque County is home to 21 incorporated gernard 114
Sageville 95
cities. The city of Dubuque is the county's Zwingle 84
most populous with just under 60,000 resi- Balltown 79
dents at the 2020 census. The next largest in- Graf 76
cludes a group of six cities with populations gankston 23
between 1,000 and 6,000. The remaining Durango 20
City Total 80,533
communities have populations under 400, in-
cluding six with fewer than 100. Approxi- Unincorporated Population 18,733
mately 80,000 Dubuque County residents live
in incorporated cities, while the remaining Total County Population 99,266
18,000 live in the unincorporated areas of the
county. Table 2.1 provides the 2020 census
population of Dubuque County and its cities,
and Figure 2.1 provides a map of the county.
October 2025 6
Page 592 of 668
� • � � � - � �
Dubuque County
Balltown
�
Luxemburg Holy Cross Sherrill
� � Rickardsville �
3 �
Durango
New Vienna � Sageville Dubuque
L�
�s"z;
Bankston Asbury
Dyersville �
Graf
�
Centralia
zo;sz? Epworth `'�Peosta 5z
�rley �
,'zo;;ez`;,
Worthington 5z
�13\ � �
.J tsi s�'
Bernard
Cascade �
Zwingle
o zs s
Legend � ��iiies
Q County Boundary 0 City Boundary � ����,p c�c�,tcd �y Ec_A,zozs
Figure 2.1. Dubuque County Map
Population Change
Dubuque County's population has grown steadilyfor most of its history, reaching 56,000 res-
idents by the start of the 20t" century, and 93,745 by 1980. This growth pattern was inter-
rupted in the 1980s,when a downturn in the farm economy resulted in a period of population
decline. Over time, the county regained its economic footing and began to grow again, add-
ing approximately 12,800 residents between 1990 and 2020.
In the most recent decennial census period (2010 to 2020), Dubuque County added 5,613
residents, a faster rate than the county's long-term growth average of about 4,500 additional
residents every ten years. Figure 2.2. charts Dubuque County's historical population from
1850 to 2020, with a trend line representing long-term growth.
October 2025 7
Page 593 of 668
� � � � � - � �
Dubuque County Historical Population
120,000
100,000 y=4499.1 x+22543
80,000
60,000
40,000
20,000
0
�O �O ,�O �O �O �O ,�O �O �O �O �O �O ,�O �O �O �O ,�O �O
,��b ,��b ,��b ,��b ,��b ,�� ,�� ,�°� ,�� ,�� ,�� ,�� ,�� ,�� ,�� �O �O �O
Figure 2.2. Dubuque County Historical Popu(ation
Source: US Census Bureau, Decennia(Census
Since 1990, most of Dubuque County's population growth has occurred in its smaller cities
and unincorporated areas, while the city of Dubuque's population held steady at around
57,000. This trend shifted in the 2010-2020 period where growth continued in the smaller
communities, but the city of Dubuque also grew, adding 2,030 residents in the decade. Fig-
ure 2.3 shows the population change in Dubuque County, compared with population change
in the City of Dubuque, cities in Dubuque Countywith over 1,000 people, and cities in Dubu-
que County under 1,000 people (classified in the figure as"small cities").
Dubuque County Historical Population
120,000
99,266
100,000 90,609 93,745 gg,143 93,653
86 403
80,000
62,309 62,374 59,667
57,538 57,686 57,637
60,000
40,000
20,424 20,830 18,558 19,601 20,855 21,096
20,000
� 7,876 10,541 10,307 11,856
15,161 18,503
1970 1980 1990 2000 2010 2020
r-City of Dubuque Cities 1 K+ Small Cities and Unincorp Dubuque County
Figure 2.3. Dubuque County Historica(Population with Sub Areas
Source: US Census Bureau, Decennial Census
October 2025 8
Page 594 of 668
� � � � � - � �
U.S. Census Bureau annual population estimates suggest that the county's population
growth rate may have slowed since 2020.The July 1, 2024 estimate placed the county's pop-
ulation at 99,242, essentially unchanged from the 2020 Census count. While these annual
estimates provide an indicator of recent trends,they are less precise than the decennial cen-
sus, and have previously underestimated Dubuque County's population. Therefore, should
be interpreted with some caution.
Age and Sex
Figure 2.4 shows the distribution of age and sex within Dubuque County as of the 2020 de-
cennial census. Dubuque County's population increased with people over 65(4,416 people)
and people 20 to 34 (1,916 people). Dubuque County's population decreased with people
under 20 (-49 people) and 35 to 64 (-670 people). Males made up a slightly larger share of
the population growth (3,148 people)than women (2,465 people).
Dubuque County Age and Sex, 2020
85 years and over 859 _ 1,755
80to84years 1,114 - 1,414
75 to 79 years 1,463 - 1,834
70 to 74 years 2,143 � 2,395
65 to 69 years 2,762 � 3,032
60 to 64 years 3,265 � 3,335
55 to 59 years 3,329 - 3,354
50 to 54 years 2,896 ' 2,868
45 to 49 years 2,560 - 2,587
40 to 44 years 2,656 ' 2,569 Female
35 to 39 years 2,991 i 2,951 ■Male
30to34years 3,169 - 3,058
25 to 29 years 3,211 2,982
20 to 24 years 3,962 3,441
15 to 19 years 3,531 3,267
10 to 14 yea rs 3,248 3,198
5 to 9 years 3,135 - 3,028
Under 5 years 2,986 � 2,918
6000 4000 2000 0 2000 4000 6000
Figure 2.4. Dubuque CountyAge and Sex,2020
Source: US Census Bureau, Decennia(Census
Race and Ethnicity
Table 2.2 shows the percentage of Dubuque County's population by race and ethnicity.
Dubuque County, while still predominantly white, has been steadily growing more diverse
since 2000.
October 2025 9
Page 595 of 668
� � � � � - � �
Tab(e 2.2. Dubuque County Race and Ethnicity from 2000 to 2020
. � . .
. .
� . . . � . • . . .. .
.
� - � . .. . . .
. - . .- . .
. . -
2020 4.2% 0.3% 1.0% 0.8% 1.1% 3.7% 88.0% 3.0%
2010 2.7% 0.2% 0.9% 0.3% 0.5% 1.3% 92.9% 1.9%
2000 0.9% 0.1% 0.6% 0.1% 0.5% 0.8% 96.5% 1.2%
Source: US Census Bureau, Decennia(Census
Households and Families
A household is a group of people who live together, while a family is a group of people who
live together and are related. A household can contain multiple families, or no families. A
household has a designated householder, who is usually the person who owns, rents or is
buying the home. A family household is a householder and one or more other people who
are related by birth, marriage or adoption. A family group is two or more people who are re-
lated by birth, marriage or adoption.
Household Size
Changes in household size can affect housing demand. When average household size de-
creases, additional units are needed even if the overall population remains the same, since
each unit houses fewer people.
The average household size in Dubuque County has gradually declined over the long term,
with little change in recentyears.The most recent ACS estimate places the county's average
household size at 2.3 persons, compared to 2.62 in 1990. Table 2.3 provides the average
household size for all occupied units in Dubuque County and four other metropolitan coun-
ties in eastern lowa for comparison. The data show that similar average household sizes
across the five counties, with only minor changes between the 2009-2013 and 2019-2023
periods.
Table 2.3.Average Househo(d Size in Se(ected lowa Counties
. � �• � � � � �
Dubuque 2.4 2.4 2.3
Black Hawk 2.4 2.4 2.3
Johnson 2.3 2.4 2.4
Linn 2.4 2.4 2.4
Scott 2.4 2.5 2.4
Source: US Census Bureau,2019-2023 American Community Survey Estimates, Table 825010
Figure 2.5 compares average household size by housing tenure. Household sizes are typi-
cally larger in owner-occupied units than in renter-occupied units. In Dubuque County, the
October 2025 10
Page 596 of 668
� � � � � - � �
average household size for owner-occupied units has remained stable at 2.5, while the av-
erage size in renter-occupied units declined from 2.1 to 1.9. A similar trend can be seen in
the other peer comparison counties in the figure.
Household Size byTenure
3
2.5 � �
2
1.5
1
0.5
0
� -o � � a -o � -a � � -o -a � -a -o
a� a� a> a� a� a� a� a� a� a�
� �a 'a � �a 'a o �a 'a � �a 'a � �a 'a
� � � � � � � � � � � � � � �
U U U U U U U U U U
U U U U U U U U U U
� � � � � � � � � �
N N N N N � N N N �
C � C � C � C � C �
� � � � � � Q � � �
Dubuque County Black Hawk County Johnson County Linn County Scott County
■2009-2013 ■2014-2018 ■2019-2023
Figure 2.5.Average Househo(d Size by Tenure in Selected lowa Counties
Source: US Census Bureau,2019-2023 American Community Survey Estimates, Table 825010
Migration
The US Census Bureau's ACS 2023 5-year estimates for population migration in the previous
year shown the following table. Dubuque County was in line with peer counties outside of
Black Hawk County and Johnson County, possibly due to the presence of the University of
Northern lowa in Black Hawk and University of lowa in Johnson. Both universities have large
numbers of new students moving in each year.
Table 2.4. Percent of Popu(ation that Migrated to Selected lowa Counties in past year
. - . . .
Dubuque 5.1%
Black Hawk 6.2%
Johnson 11.9%
Linn 5.0%
Scott 5.6%
Source: US Census Bureau,2019-2023 American Community Survey Estimates, Tabfe 825010
October 2025 11
Page 597 of 668
� � � � � - � �
3. Economic Trends
This section provides an overview of the economic trends that influence Dubuque County's
housing market.
Employment Trends
Employment is closely linked to population growth and housing demand. Newjob opportu-
nities attract people to the area and encourage existing workers to stay. In turn, the housing
industry supports economic activity and job creation. Home construction, sales, mainte-
nance all generate additional employment, creating a feedback loop between housing de-
velopment and economic growth.
Over the past several decades, Dubuque County has experienced some fluctuations in total
employment, though the long-term trend reflects steady growth. Figure 3.1 presents Dubu-
que County's total monthly nonfarm employment data from lowa Workforce Development.
On average, the county added approximately 560 jobs per year between January 1990 and
January 2019.
The COVID-19 pandemic caused a sharp and rapid decline in total employment beginning in
the spring of 2020. However,the county regained most of those jobs between 2021 and 2023.
Employment growth has leveled off some in 2024 and the first half of 2025, with total em-
ployment stabilizing around 52,000.
Dubuque County Employment and Unemployment
55,000
56,000
54,000
52,000
50,000
48,000
46,000
44,000
42,000
40,000
2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025
O Employment Unemployment Labor Force
Figure 3.1. Dubuque County Month(y Emp(oyment, Unemployment, and Labor Force. Not
Seasonal(y adjusted.
Source:lowa Workforce Deve(opment
October 2025 12
Page 598 of 668
� � � � � - � �
Unemployment
The county's labor force includes the people employed plus those who are unemployed and
looking for work. In recent years the unemployed percentage of the county's workforce has
generally aligned with the statewide unemployment rate. Figure 3.2 charts Dubuque
County's annual average unemployment rate along with the statewide rate for comparison.
Prior to the pandemic, unemployment was on a downward trajectory. COVID-19 caused an
unemployment spike in 2020 followed by a slow recovery over the next two years. Since then,
unemployment rates have been near pre-pandemic levels, around 3%.
Annual Average Unemployment Rate
7.0%
6.0%
6.0%
�
�' 4.2%
� 5.0%
�
c
� 4.0% 4.5% 4.5% 3.1% 3.3%
0
T 4.1% o
3.0/o
Q 3.0% 3.6% 3.7/0 3.1%
a�i 2.0% 2.6% 2.7%
c
�
1.0%
0.0%
2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
State of lowa Dubuque County
Figure 3.2. Dubuque CountyAnnual Average Unemployment Rate
Source:lowa Workforce Development
Retirement and Labor Force Participation
An underlying factor in Dubuque County's recent labor force trends is an increase in retire-
ments.While some workers opted to retire during the pandemic, the trend predates COVID-
19 and is largely driven by long-term demographic changes.
The post-World War II baby boom generation represents one of the largest age cohorts in the
county's population and a significant portion of its workforce. Organizations like Greater
Dubuque Development have been monitoring this demographic shift for years, anticipating
an impact on the area's workforce. The first segment of this cohort reached ages 65-69 in
2020. Larger portions of this cohort are now reaching traditional retirement age 65, likely ac-
celerating the pace of the retirements over the next decade.
Although data on retirees is limited,the Social Security Administration publishes data on re-
tired beneficiaries that helps illustrate this trend. As shown in Figure 3.3, the number of
October 2025 13
Page 599 of 668
� � � � � - � �
retired beneficiaries has increased steadily each year, reaching roughly 15% of the county's
population in 2024. This share is slightly under the statewide percentage of about 16%.
A growing retired population has the potential to impact housing in several keyways:
• Housing preferences: Many retirees may choose to downsize, seek low-maintenance
housing, or move into multifamily or senior-oriented developments.
• Specialized housing needs: Over time, demand may increase for assisted living or
nursing care facilities.
• Labor force replacement: As more workers retire, employers will need to attract new
employees, eitherfrom within the county or through in-migration,which could create
additional housing demand.
Dubuque County Retired Workers
20,000
18,000
0 16,000
.�
� 14,000
a
� 12,000
� 10,000
° 8,000
�
� 6,000
.�
� 4,000
2,000
0
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Figure 3.3. Dubuque County Retired Worker Socia(Security Beneficiaries
Source: US Socia(SecurityAdministration, OASDI Beneficiaries byState and CountyReport
Unemployment Comparison
Figure 3.4 compares the unemployment rate for the civilian labor force in Dubuque County
and other peer counties usingACS 5-year estimates from 2009-2023. Dubuque County's un-
employment rate fell from 4.8%to 3.8%, in line with peer counties aside from Black Hawk.
Note: ACS employment and unemployment estimates may vary from the official labor force
data released by lowa Workforce Development because of differences in survey design and
data collection. The civilian labor force does not include members of the Armed Forces.
October 2025 14
Page 600 of 668
� • � � � - � �
Unemployment Rate
9
8.2
8
�
+�
c�
oC 7
+J
c
�
E 6 5.8
T 5.5
0
a
E 4.8 4.8
a� 5 n F
� 4.3 4.2
� 4.1
4 3.8 3.7 3.5 3.7 3.7
3.3
3
Black Hawk Dubuque Johnson Linn Scott
■2009-2013 ■2014-2018 2019-2023
Figure 3.4. Unemp(oyment Rate in Se(ected lowa Counties
Source: US Census Bureau,2009-2023 American Community Survey Estimates,
Employment By Industry
The table below shows a 15-year comparison of employment by occupation for Dubuque
County based on ACS 5-year estimates for 2009-2023. Most workers in Dubuque County
work in management, business, science and arts occupations, and is the second-fastest
growing sector behind production, transportation, and material moving occupations.
Tab(e 3.1. Employment by Industry in Dubuque County,2009-2023
� � . � � � i � �
Management,business,science,and arts occupa- 16,731 17,792 19,589 2,858 17.1%
tions
Service occupations 9,319 8,403 8,255 -1,064 -11.4%
Sales and office occupations 11,996 11,752 10,721 -1,275 -10.6%
Natural resources,construction,and maintenance 4,012 4,079 3,671 -341 -8.5%
occupations
Production,transportation,and material moving
occupations 7,614 8,362 9,327 1,713 22.5%
Source: US Census Bureau,2009-2023 American Community Survey Estimates,
Household Income
A person's income determines their ability to afford the necessities: shelter, food and water,
medical care and more. Income is a critical housing-related factor because it drives key de-
cisions including whether to rent or buy, as well as how much a household can reasonably
afford to spend each month on rent or a mortgage.
October 2025 15
Page 601 of 668
� � � � � - � �
The Figure 3.5 provides a comparison of income distribution for four15 household income
ranges within Dubuque County: under$50,000;$50,000 to$100,000; $100,000 to$200,000;
and over$200,000 based on ACS 5-year estimates for 2019-2023. A majority of households
in Dubuque County fall below$100,000 in income. Median household income for Dubuque
Countywas $75,919 in 2023.
Median Household Income, Dubuque County
14,000 13,172 12,736
12,000 11,537
10,000
�
�
0 8,000
�
a�
� 6,000
0
2
4,000 3,140
2,000
0
Under$50K $50K-$100K $100K-$200K Over$200K
Figure 3.5. Distribution of Median Househo(d Income in Dubuque County
Source: US Census Bureau,2019-2023 American Community Survey Estimates,
Table 3.2 provides a 2023 regional comparison of inedian family income in the past 12
months by family type by the presence of own children under 18 years (5-year period esti-
mates). Median Family Income is for the past 12 months in 2023 inflation-adjusted dollars.
. - . . . � . . . . .
Total Family $86,319 $98,842 $115,914 $97,372 $99,650
Married Couple Family $103,122 $110,197 $130,469 $115,133 $119,857
With own children under 18
$113,930 $131,387 $145,462 $132,560 $134,262
years
No own children under 18 years $96,120 $98,430 $118,963 $105,837 $109,120
Male householder, no wife present $57,157 $70,386 $61,439 $62,315 $64,795
With own children under 18 531 $71,023 $52,121 $54,824 $61,699
years
$47,
No own children under 18 years $72,162 $63,750 $67,196 $71,780 $69,487
Female householder, no husband 205 $43,731 $50,223 $50,220 $41,311
present $37'
With own children under 18 321 $36,810 $44,458 $42,816 $35,015
years
$32,
No own children under 18 years $47,280 $58,712 $52,440 $66,140 $52,268
Tab(e 3.2. Median Fami(y Income by Fami(y Type in Dubuque County,2019-2023
Source: US Census Bureau,2019-2023 American Community Survey Estimates.
October 2025 16
Page 602 of 668
� � � � � - � �
In addition to household income and family income,the US Census Bureau collects data on
nonfamily income and per capita income.Table 3.3 is a regional comparison for allfourtypes
of income based on ACS 5-year estimates from 2009-2023. All types of income have risen
about 35-50% within Dubuque County which has been very competitive compared to peer
counties.
Table 3.3. Comparison of Incomes in Se(ected lowa Counties,2009-2023
� . • .
Income type 2013 2018 2023 Change %
Median household income $51,475 $61,321 $75,919 $24,444 47.5%
Median family income $66,046 $76,319 $98,842 $32,796 49.7%
Median nonfamilyincome $30,499 $32,148 $42,232 $11,733 38.5%
Percapita income $26,254 $31,096 $40,624 $14,370 54.7%
.
Income type 2073 2018 2023 Change %
Median household income $45,747 $52,688 $64,581 $18,834 41.2%
Median family income $61,495 $69,922 $86,319 $24,824 40.4%
Median nonfamily income $29,252 $32,008 $37,409 $8,157 27.9%
Per capita income $24,273 $29,100 $42,099 $17,826 73.4%
. . .
Income type 2073 2018 2023 Change %
Median household income $53,424 $61,640 $74,721 $21,297 39.9%
Median family income $79,964 $92,284 $115,914 $35,950 45.0%
Median nonfamily income $30,135 $32,789 $43,147 $13,012 43.2%
Per capita income $29,592 $34,310 $44,699 $15,107 51.1%
Income type 2013 2018 2023 Change %
Median household income $57,260 $64,862 $76,421 $19,161 33.5%
Median family income $75,761 $84,320 $97,372 $21,611 28.5%
Median nonfamily income $32,884 $38,007 $45,888 $13,004 39.5%
Per capita income $29,943 $34,289 $42,497 $12,554 41.9%
Income type 2013 2018 , 2023 Change %
Median household income $52,735 $58,803 $76,363 $23,628 44.8%
Median family income $70,480 $76,123 $99,650 $29,170 41.4%
Median nonfamily income $30,624 $33,725 $46,284 $15,660 51.1%
Per capita income $28,948 $31,873 $42,754 $13,806 47.7%
Source: US Census Bureau,2009-2023 American Community Survey Estimates,
Pove rty
Poverty rate is the ratio of the population whose income falls below the poverty line.The pov-
erty line is taken as half the median household income of the total population. Poverty rates
are used to determine eligibility for programs and benefits, such as Medicaid, Children's
Health Insurance Program, and savings on marketplace health insurance.
October 2025 17
Page 603 of 668
� � � � � - � �
Dubuque County's poverty rate has decreased from 10.9% to 9.4%, the second highest
change compared to peer counties.
Table 3.4. Poverty Rate in Selected lowa Counties,2009-2023
. � � �
Dubuque 10.9% 11.7% 9.4% -1.5% -13.8%
Black Hawk 17.0% 16.0% 14.7% -2.3% -13.5%
Johnson 17.7% 17.8% 16.7% -1.0% -5.6%
Linn 9.7% 9.5% 9.9% 0.2% 2.1%
Scott 13.1% 12.1% 11.6% -1.5% -11.5%
Table 3.4. Poverty Rate in Selected lowa Counties,2009-2023
Source: US Census Bureau,2009-2023 American Community Survey Estimates.
Commuting— Inflow and Outflow
Figure 3.6 highlights the 15,511 workers living in Dubuque County(the light green circle) and
22,147 workers employed in Dubuque County(the dark green circle). The intersection of the
two circles represents the 36,369 workers living and working in Dubuque County.
Inflow/Outflow �ob Counts in 2022
All Workers
� 22,147 - Employed in Selection Area, Live Outside
15,511 - Live in Selection Area, Employed Outside
36,369 - Employed and Live in Selection Area
Figure 3.6. Inf(ow/OutffowJob Counts in 2022, Dubuque County
Source: US Census Bureau, Census On The Map
October 2025 18
Page 604 of 668
� � � � � - � �
Table 3.5 shows the counts and percentages of Dubuque County's workers and residents
that flow in and out of the city. 70.1% of residents also work in Dubuque County, and 62.2%
of Dubuque County's workers live in the city.
Table 3.5. Worker Tota(s and F(ows in 2022, Dubuque County
. . . . .
Employed in the Selection Area 58,516 100%
Employed in the Selection Area but Living Outside 22,147 37.8%
Employed and Living in the Selection Area 36,369 62.2%
Living in the Selection Area 51,880 100%
Living in the Selection Area but Employed Outside 15,511 29.9%
Living and Employed in the Selection Area 36,369 70.1%
Source: US Census Bureau, Census On The Map.
The Home to Work map in Figure 3.7 indicates the commutes of Dubuque County residents
in the workforce to their jobs. The table on the map shows that 59.8% of workers travel less
than 10 miles from home, and 75.1% commute less than 25 miles.
� � . �
- --- _ — _ - 6t
i �
•I1 �S
J�Du_buque p�
� �� �.
'1"ii�t:. '
1•� � �R ��..
isi �
� 5-300 Jobs/Sq.Mile
301-1,168 Jobs/Sq.Mile
�7,789•2,667 JobS/$q.Mile
�2,668-4,739 Jobs/Sq.Mile
f—+ �1,740-7,402 JObi/Sq.Mll!
Home Area
Figure 3.7. Home to Work in 2022, Dubuque County
Source: US Census Bureau, Census On The Map.
The Home to Work map indicates the commutes of Dubuque County residents in the work-
force to their jobs. Table 3.6 shows that 55.7% of workers travel less than 10 miles from
home, and 73% commute less than 25 miles.
October 2025 19
Page 605 of 668
� � � � � - � �
Table 3.6. Distance to Work for Dubuque County residents,2022
. . . .
Less than 10 miles 32,568 55.7%
10 to 24 miles 10,103 17.3%
25 to 50 miles 3,829 6.5%
Greater than 50 miles 12,016 20.5%
Source: US Census Bureau, Census On The Map
Dubuque County commuting patterns have remained fairly consistent over the last several
years. Figure 3.8 illustrates the home location of workers employed in Dubuque County,
showingthat the share who live and work in the county and those commuting into the county
from outside. The percentages have remained fairly consistent since 2010.
Home location of workers employed in Dubuque County
�oo�io
so�ro
60% • : : • : • • : •
40%
2p% o 0 0 0 0 0 0 0 0 0 0 0 0
� �O CO (O I� � CO I� I� CO CO I� �
M M M M M M M M M M M M M
�%
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
—Employed in Dubuque County but Living Outside ■Employed and Living in the Dubuque County
Figure 3.8. Home(ocation of workers emp(oyed in Dubuque County
Source: US Census Bureau, Census On The Map
October 2025 20
Page 606 of 668
� • � � � - � �
4. Housing Trends
There are many factors that go into understanding an area's housing supply, including an-
swers to questions like: how much housing is there,where is it located,what kind of housing
is there, who lives there, and how new is it?
Number of Housing Units
According to US Census Bureau Decennial Census, the total number of housing units in
Dubuque County grew from 35,505 in 2000 to 42,630 in 2020. Figure 4.1 shows a comparison
between housing unit growth and growth in number of households between 1970 and 2020.
Households and Housing Units
45,000 42,630
38,951
40,000
35,505 39,891
35,000 31,506 32,053 36,815
30,000 33,690
25,280 30,021 30,799
25,000
24,279
20,000
15,000
10,000
5,000
0
1970 1980 1990 2000 2010 2020
Total Households Total Housing Units
Figure 4.1. Number of Househo(ds and Housing Units, Dubuque County 1970-2020
Source: US Census Bureau, Decennia(Census
Units in Structure
Based on US Census Bureau ACS estimates for 2009-2023,the 15-year mix of housingtypes
was predominantly single-family detached housing units in Dubuque County(72.3%).
The US Census Bureau ACS 5-year estimates provide housing data on owner- occupied and
renter-occupied housing by the number of units for different housing structures.
October 2025 21
Page 607 of 668
� � � � � - � �
Table 4.1 shows the predominant owner-occupied housing by units in structure for Dubuque
County from 2009-2023. On average, over 90% of owner-occupied housing in Dubuque
County from 2009-2023 was single-family detached housing.
Table 4.1. Owner-Occupied Units in Structure, Dubuque County2009-2023
� � �
1, detached 24,837 24,853 26,987 2,150
1, attached 633 873 1023 390
2, attached or detached 135 221 224 89
3 or 4 271 243 157 -114
5 to 9 162 78 28 -134
10 to 19 13 28 33 20
20 to 49 36 45 5 -31
50 or more 61 44 39 -22
Mobile home 1,108 1,351 1,199 91
Boat, RV,van,etc. 7 0 0 -7
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Table 4.2 shows the predominant renter-occupied housing by units in structure based on
ACS 5-year estimates from 2009-2023. Renter-occupied households have shifted from lower
unit structures to higher unit structures from 2009 to 2023.
Table 4.2. Renter-Occupied Units in Structure, Dubuque County2009-2023
� � � -
1, detached 2,429 2,828 2,345 -84
1, attached 503 467 521 18
2, attached or detached 1,540 1,320 1,122 -418
3 or 4 1,675 1,892 1,924 249
5 to 9 1,218 1,256 1,429 211
10 to 19 999 907 1,181 182
20 to 49 760 845 1,111 351
50 or more 846 895 1,048 202
Mobile home 133 184 209 76
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Tenure
Housing tenure describes the arrangements under which a household occupies a housing
unit, with the two tenure types being owner-occupied and renter-occupied.
Figure 4.2 shows the growth in housing units from 1970 to 2020 in Dubuque County as well
as the distribution of tenure. Dubuque County grew from 24,279 occupied units to 39,891
units in this time period, a growth of 64.3% or 1.29% year-over-year. The share of renter-
October 2025 22
Page 608 of 668
� � � � � - � �
occupied units grew larger in this time period, expanding from 6,502 to 11,522, an increase
of 77.2% or 1.54% year-over-year and making up 28.9% of total occupied units in 2020. In
contrast, owner-occupied units grew from 17,777 to 28,369 units, an increase of 59.6% or
1.19%year-over-year and making up 71.1% of total occupied units in 2020.
Occupied Housing Units by Tenure
45,000
40,000
� 35,000 28.9%
� 26.7% 11,522
� 30,00� 26.5% 9,846
c
�� 27.9% 28.8% 8,943
0 25,00� 8,366 8,868
= 26.8%
� 20,000 6,502
.Q
�
� 15,000 �, '�
O '�
.
,� �, � .�. .
. .
10,000 '� .
5,000
0
1970 1980 1990 2000 2010 2020
■Owner Occupied ■Renter Occupied
Figure 4.2. Occupied Housing Units by Tenure, Dubuque County 1970-2020
Source: US Census Bureau, Decennial Census
Group Quarters
The US Census Bureau classifies people not living in a housing unit as living in group quar-
ters. Group quarters housing is defined by the Census as a group living arrangement that is
owned or managed by an organization. Group quarters arrangements include college resi-
dence halls, skilled nursing facilities, military barracks, and correctional facilities, among
others. In 2020, Dubuque County had 4,157 people living in group quarters or about 4.2% of
the total county population.
Age of Housing Units
As one of the oldest communities in the state of lowa, it is not surprising that the county's
housing stock includes many older structures. Table 4.3 provides the age of housing for
Dubuque County units by the year the structure was built based on the 2023 US Census Bu-
reau ACS 1-year estimate. Dubuque County's housing stock is a mixture of newer and older
housing structures with almost one quarter of the county's units built prior to 1939. While
October 2025 23
Page 609 of 668
� � � � � - � �
older structures can provide excellent housing options, these older units often require spe-
cial care and ongoing maintenance to ensure a safe living environment and meet the needs
of today's residents. Older housing units that are in poor condition may provide an oppor-
tunity for rehabilitation. This could help elevate the quality of its existing housing stock and
bring home values up in undervalued neighborhoods.Similar opportunities may be available
in older non-residential structures which could be rehabilitated and converted for residential
use. Dubuque's Historic Millwork District is a prime example of this type of project.
Table 4.3. YearStructure Built, Dubuque County2023
Built 2020 or later 1,007 2%
Built 2010 to 2019 3,296 8%
Built 2000 to 2009 4,939 12%
Built 1990 to 1999 4,838 11%
Built 1980 to 1989 2,263 5%
Built 1970 to 1979 5,164 12%
Built 1960 to 1969 6,003 14%
Built 1950 to 1959 3,927 9%
Built 1940 to 1949 1,262 3%
Built 1939 or earlier 10,190 24%
Total 42,889
Source: US Census Bureau,2023American CommunitySurvey 1-YearEstimate
Table 4.4 shows Dubuque County housing units by year structure built and tenure. Histori-
cally, a large majority of the county's housing units have been owner-occupied. In recent
years, however,this trend has shifted with 52%of units constructed since 2020 being renter-
occupied.
Table 4.4. Year Structure Built by Tenure, Dubuque County 2023
• • - • . - . • . -.
• • - . • . - . - -
Built 2020 or later 485 522 48% 52%
Built 2010 to 2019 2,567 729 78% 22%
Built 2000 to 2009 3,443 1,496 70% 30%
Built 1990 to 1999 3,781 1,057 78% 22%
Built 1980 to 1989 1,472 791 65% 35%
Built 1970 to 1979 4,202 962 81% 19%
Built 1960 to 1969 4,654 1,349 78% 22%
Built 1950to 1959 3,102 825 79% 21%
Built 1940 to 1949 1,212 50 96% 4%
Built 1939 or earlier 6,876 3,314 67% 33%
Total Units 31,794 11,095
Source: US Census Bureau, 2023 American Community Survey 1-Year Estimate
October 2025 24
Page 610 of 668
� � � � � - � �
Housing Construction Trends
Housing construction activity is tracked using data from the U.S. Census Bureau's Building
Permits Survey(BPS).The BPS collects data on new housing units authorized by building
permits and serves as an indicator of residential construction activity.
BPS data is reported monthly at multiple geographic levels, including for metropolitan
counties such as Dubuque County. The reports provide the number of housing units au-
thorized, categorized by the number units in the structure.
The data has some limitations. Not alljurisdictions issue building permits, and participa-
tion in the survey is voluntary. As a result, some housing units may not be captured. De-
spite these limitations, BPS data is valuable because it provides a long term-measure of
housing construction trends over time.
Figure 4.3 presents the BPS data for Dubuque County from 2015-2025. The data indicates
that during this period, the number of single-family homes constructed each year has de-
creased while the number of multi-family units has increased, especially units in buildings
with 5 or more units. The construction numbers have fluctuated from year to year, but over-
all, the county has continued to add housing units at a steady pace with larger multifamily
developments accounting for larger increases in years such as 2021 and 2024.
New Housing Unit Building Permits
600
500
�
� 400
� .� 300
.�
0 200
_
100 ,
0
2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025*
■1 Unit ■2 Units ■3 and 4 Units ■5 Units or More *YDT through August 2025.
Figure 4.3. New Housing Unit Bui(ding Permits, Dubuque County
Source:Bui(ding Permits Survey, U.S. Census Bureau. 2015-2025.
In addition to the BPS data, information on recent and planned housing construction is
available directly from localjurisdictions.This data can be more accurate because it is
coming directly from the communities that are issuing the permits. However, it may not be
consistently available from all jurisdictions over time making it more difficult to track long-
term trends.
October 2025 25
Page 611 of 668
� • � � � - � �
City of Dubuque Construction Reports
Table 4.5 provides the City of Dubuque's construction permit data for new housing units from
2014 to 2025.The table shows both the number of permits issued and the number of housing
units authorized underthose permits. Overall,trends in the citygenerallyalign with Dubuque
County: the number of single-family units has declined over time, while multi-family devel-
opment has increased, with significant spikes in 2021 and 2024.
It is important to note that this data is reported based on the year the permit was issued and
not the year construction was completed. For example, the large number of multi-family
units permitted in 2024 are likely under construction in 2025.
Table 4.5. City of Dubuque New Construction Permits and Units
- � � � � � � � � � � � � �
Single 82 76 98 67 70 72 40 40 51 39 39 35
Duplex 0 0 1 0 0 0 0 0 0 0 0 1
Multi-Family 0 0 2 0 0 1 2 2 0 2 6 2
Total 82 76 101 67 70 73 42 42 51 41 45 38
� � � � � � � � � � � � �
Single 82 76 98 67 70 72 40 40 51 39 39 35
Duplex 0 0 2 0 0 0 0 0 0 0 0 2
Multi-Family 0 0 84 0 0 6 56 160 0 44 333 18
Total 82 76 184 67 70 78 96 200 51 83 372 55
Source:City of Dubuque 2014-2025.
In addition to past construction activity, the City of Dubuque also tracks ongoing and
planned housing development in its Creating Housing Opportunities Report. The data used
in this assessment comes from the September 22, 2025 version of the report.
Table 4.6 highlights the residential subdivisions in Dubuque that currently have lots or units
available. As of the report data there 279 lots/units available. Several subdivisions have fu-
ture phases planned add would additional capacity.
Table 4.5. Residential LotAvai(abi(ityin the CityofDubuque
.
Development Locatian Lots/Units Available Use
North Grandview Estates North Grandview/32nd Sireet 32 Lots/Units Single-Family/Apartment
Rustic Point Estates#2 Derby Grange/Kennedy Roads 40 Units Single-Family/Duplex
Sky Blue Estates" Sky Blue Drive 4 LoTs Single-Family
Silver Oaks Subdivision Elmwood/Silver Oaks Drive 127 Lots Single-Family/Duplex
South PoinTe Estates" Rockdale Road/South Pointe Drive 37 Units Single-Family/Duplex
Timber-Hyrst Estates Creekwood Drive/Cherry Ridge 21 Lots Single-Family/DuplexlTownhomes
The Farm/Switch Homes End of Tiffany Court 18 Lots Single-Family
'Su6divieion hae addRional phasee
T L 2 7�:-�
Source:Creating Housing Opportunities Report, City of Dubuque, 9/22/2025.
October 2025 26
Page 612 of 668
� � � � � - � �
The City of Dubuque's report also tracks of multi-family development. Table 4.7 shows that
eight construction projects, with 384 total units, were active in September 2025.
Table 4.7. Multi-Fami(y Deve(opment-Under Construction
. � • . . . • . .
Development Location #of Units Use
Carich Property LLC ApartmenTs 1734-36 Ceniral Avenue 8 Units Workforce/Market-Rate Apartments
Cedar Lake Apartments Lake Ridge Drive 42 Units Market-Rate Apartments
799 Main STreet Apartments 799 Main Street 36 Unfts Market-Rate Apartments
St.Anthony's School 2175 Rosedale Avenue 22 Units Market-Rate Apartments
1706 Central Apartments 1706 Central Avenue 11 Units Market-Rate Apartments
Emri Apartmenh Radford Road 48 Units Workforce Family Housing Apartmenis
Union at ihe Marina 1860 Hawihorne Street 201 Units Workforce Family Housing
Habitat for Humanity Wood Street 16 Units Workforce Single-Family Homes
Source:Creating Housing Opportunities Report, City of Dubuque, 9/22/2025.
High(ighted rows identify workforce housing projects
The report additionally provides information on other projects in various stages of the devel-
opment review process. Altogether, more than 2,600 units citywide are approved, under re-
view, under construction, or recently completed. While this offers a useful snapshot of the
current development pipeline, many of these units are still early in the process. Some pro-
jects maytake years to reach construction, and others may not ultimately be completed.
Other City Housing Construction
Cascade
• City of Cascade has added 16 single-family homes and 2 multi-family homes in the
last three years.
Dyersville
• 54 new housing structures were constructed in Dyersville between January ,1 2022
and August 31, 2024.This included the following:
o Single Family-42
o Duplex- 1
o Tri-plex- 3
o Manufactured Home-8
Peosta
• The City if Peosta issued building permits for 432 housing units from 2020-2024 as
follows:
0 108 single-family(1 unit, detached))
0 30 duplexes (2 units)
0 212 apartments (12-18 units)
o Student housing(82 units)
October 2025 27
Page 613 of 668
� � � � � - � �
5. Housing Market
This section uses a collection of indicators to help understand housing supply and demand
in Dubuque County.
Occupancy and Vacancy
Vacant housing units are a key indicator of demand for a housing market. Lowvacancy rates
signal that demand is exceeding supply, which leads to rising rents and home prices, re-
duced affordability, and difficulty finding available housing. High vacancy rates can indicate
oversupply,weak demand,or broadereconomic challenges. In a balanced market, rents and
home prices increase at a steady, sustainable pace that benefits both housing providers and
consumers.
Target vacancy rates are a general rule of thumb that help us understand a housing market.
The target rates are not intended to be a hard rule but are meant to be a general rule of thumb
that can help us analyze data.Target vacancy rates vary bytenure. Rental units typically have
a higher vacancy rate than owner-occupied units as rental units typically have more unoc-
cupied time between tenants. Target vacancy rates will change depending on who you ask,
but for the sake of this report the following rate ranges will be used:
• 1-2%forOwner-Occupied Units
• 5-9%for Renter-Occupied Units
Whilethesetarget rates provide a helpful rule ofthumb, it is also importantto rememberthat
every housing market is unique and current market trends vacancy rates should also be
compared to historical trends within the same market.
Overall Vacancy
Tables 5.1-5.3 provide a comparison of housing occupancy between Dubuque and peer
counties for total housing units as well as overall vacancy rates using ACS 5-year estimates
from 2009-2023. Each county saw an increase in total and occupied housing units from
2009-2023.The overall vacancy rate for Dubuque Countywent from 5.4%in 2009-2013 to 6%
in 2019-2023. This is the lowest vacancy rate between the selected counties.
Table 5.1. Housing Occupancy and Uacancy Rates in Se(ected lowa Counties,2009-2013
• . . � �• � � . . . . •
Total Housing Units 39,388 56,079 56,543 92,848 72,127
Occupied Housing Units 37,366 52,276 54,005 86,052 67,049
Vacant Housing Units 2,022 3,803 2,538 6,796 5,078
Overall Vacancy Rate 5.4% 7.3% 4.7% 7.9% 7.6%
Source: US Census Bureau,2009-2013 American Community Survey Estimates
October 2025 28
Page 614 of 668
� � � � � - � �
Table 5.2. Housing Occupancy and Uacancy Rates in Se(ected lowa Counties,2014-2018
• . . � � � . . . . .
Total Housing Units 41,065 57,603 62,280 96,473 73,869
Occupied Housing Units 38,330 52,976 58,163 89,807 67,025
Vacant Housing Units 2,735 4,627 4,117 6,666 6,844
Overall Vacancy Rate 7.1% 8.7% 7.1% 7.4% 10.2%
Source: US Census Bureau,2014-2018 American Community Survey Estimates
Tab(e 5.3. Housing Occupancy and Uacancy Rates in Selected lowa Counties,2019-2023
• . . � � � . . . . .
Total Housing Units 43,003 58,748 67,211 101,989 78,130
Occupied Housing Units 40,585 53,740 62,214 95,051 72,675
Vacant Housing Units 2,418 5,008 4,997 6,938 5,455
Overall Vacancy Rate 6.0% 9.3% 8.0% 7.3% 7.5%
Source: US Census Bureau,2019-2023 American Community Survey Estimates
Housing vacancy status can be due to several factors:
• For rent
• Rented, not occupied
• For sale only
• Sold, not occupied
• For seasonal, recreational, or occasional use
• For migrantworkers
• Othervacant
Table 5.4 provides a comparison in Dubuque Countyof housingvacancystatus usingACS 5-
year estimates from 2009-2023. The most common reasons for housing vacancy in the
Dubuque County were"For rent" and "Other."
Tab(e 5.4. Housing Uacancy Status in Dubuque County,2009-2023
. � � • � � � � � -
For rent 780 759 619 -161
Rented, not occupied 21 77 108 87
For sale only 111 198 178 67
Sold, not occupied 87 119 134 47
For seasonal, recreational or occasional use 360 369 250 -110
Formigrantworkers 0 0 0 0
Othervacant 663 1213 1129 466
Source: US Census Bureau,2019-2023 American Community Survey Estimates
October 2025 29
Page 615 of 668
� � � � � - � �
Rental Vacancy
A rentalvacancy rate can be estimated from ACS data usingthe followingformula:
Units For R.ent
Units Rented, Not Occupied+Units For Rent +Renter-Occupied Units
Results from the formula are provided in Table 5.5. The results indicate a declining rental
vacancy rate between 2009 and 2023.The most recent rate of 5.3%for the 2019-2023 period
has fallen to the low end of the balanced range of 5-9%.
Table 5.5 ACS Rental Vacancy Rates
��• � � � � � • �
Renter Vacancy Rate 7.2% 6.6% 5.3%
Source: US Census Bureau,2019-2023 American Community Survey Estimates
Results from the rental property owner and manager survey were used to provide a more
current estimate of rentalvacancy rates in 2025. Of the 1,143 units included in the survey, a
total of 70 were vacant, resulting in an overall vacancy rate of 6.12%.
The survey rates shown in Table 5.6 were calculated using a different methodology than the
ACS rates shown in Figure 5.5 and do not provide a direct comparison. However,the survey-
calculated vacancy rate does fall in the middle of the balance market range, suggesting that
the new rental units added in recent years are being absorbed and the area rental market
continues to maintain a healthyvacancy rate. Goingforward, continued surveys rental prop-
erty owners and managers could help establish a vacancy rate trend line that can be used to
monitorvacancy rates in rental properties.
Table 5.6. Survey Uacancy Rates
. . -
Studio 21 4 19.05%
1 Bedroom 277 12 4.33%
2 Bedroom 567 43 7.58%
3 Bedroom 204 8 3.92%
4 Bedroom 61 2 3.28%
5 or more bedrooms 13 1 7.69%
Total 1,143 70 6.12%
Source:ECIA, Dubuque County Rentaf Property Owner and Manager Survey,2025
Homeowner Vacancy
The homeowner vacancy rate can be calculated using ACS data and the formula below:
Units For Sale Ouly
Uiuts Sold,Not Occupied+Uuits For Sale Ouly+ Owner-Occupied Units
October 2025 30
Page 616 of 668
� � � � � - � �
Results from the homeowner formula are provided in Table 5.7.The results show some fluc-
tuations in the vacancy rate between 2009-2013 and 2019-2023. The most recent rate of
0.6%for the 2019-2023 period, down from 0.71% in the 2014-2018.
Table 5.7.ACS Homeowner 1/acancy Rates
� � • � � i � �
Owner Vacancy Rate 0.41% 0.71% 0.60%
Source: US Census Bureau,2019-2023 American Community Survey Estimates
Rates from allthree estimates are belowthe target balanced range for owner-occupied units
of 1-2%. This could be an indicator of higher demand, but there are also a couple of other
items to keep in mind.
Item one is that there is some variation in the target rates across markets, and it is also im-
portant to keep local trends in mind.With all three rates are below 1% it could be that that is
the normal range for Dubuque County.
The second item is that this formula is only looking at units that are for sale. There are other
types of vacant units, includingthose that are abandoned or unoccupiable for one reason or
another. The ACS includes these units in the"Other Vacant" category. The ACS does not tell
us if these units are rental or homeowner units, so we can't factor them into our analysis, but
we can note that these units could bump the overallvacancy rate up into that 1-2% range.
Based on available data, it seems that Dubuque County is in a currently in a generally bal-
anced position for homeowner vacancies., however there are some signs of a tightening
market.
Housing Prices and Sales
Home prices and sales volume are another key housing market indicator. Rapid price in-
creases can indicate high demand while stagnant or falling prices can indicate low demand
or poor economic conditions. Balanced market conditions are characterized by steady price
increases that benefit both housing producers and consumers.
Median housing value refers to the middle price point of all homes in a specific area, mean-
ing that half of the homes in that area are valued at or above that price, and half are valued
at or below it.This represents the"typical"home price in a given location. Unlike the average
home price, the median is less affected by extreme values, making it a more accurate repre-
sentation of the typical home price in a market.
Table 5.8 provides a regional comparison of the median value of owner-occupied housing
units using 2009-2023 ACS 5-year estimates.
October 2025 31
Page 617 of 668
� � � � � - � �
Tab(e 5.8. Median Home Ua(ue in Se(ected lowa Counties,2009-2023
� � � � � �
Dubuque $145,900 $160,900 $226,100 $80,200 55.0%
Black Hawk $123,600 $143,100 $182,400 $58,800 47.6%
Johnson $186,000 $216,900 $293,100 $107,100 57.6%
Linn $144,300 $153,700 $204,400 $60,100 41.6%
Scott $143,600 $158,200 $212,500 $68,900 48.0%
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Table 5.9 shows the distribution of value of Dubuque County's owner-occupied housing
stock using 2019-2023 5-year ACS estimates. Most of Dubuque's owner-occupied units have
a value that lies between $100,000 and $499,999.
Tab(e 5.9. Distribution of Housing Ua(ue of Owner-Occupied Units in Dubuque County,2019-2023
. � . . .
Owner-Occupied Units 29,695 100.0%
Less than$50,000 1,694 5.7%
$50,000 to$99,999 1,495 5.0%
$100,000 to$149,999 3,897 13.1%
$150,000 to$199,999 5,014 16.9%
$200,000 to$299,999 8,551 28.8%
$300,000 to$499,999 6,814 22.9%
$500,000 to$999,999 1,856 6.3%
$1,000,0000 or more 374 1.3%
Source: US Census Bureau,2019-2023 American Community Survey Estimates
Figure 5.1 provides a map of estimated home values for Dubuque Countyfrom Realtor.com.
generally lower valued homes are located in the center of Dubuque, while higher values
properties are located around the edges of Dubuque and in the communities and rural areas
surroundingthe city.
October 2025 32
Page 618 of 668
� � � � � - � �
� " �
Estimate O ��
X 6:-� ' .
�-�3!� i •, �roa��._�-- • - . .�.. .
1 a �S''. Ii�ISTi �+ �s `- 7yy„fR��*�
�t. r � �I?�� � � ,�.�� � L�1 �r��'��I`
��� . �:� e�, � ;l. :� �' Zht�,�, y�
l}�i.�' i � � . �� � . �^�.� �'� _
�+` �� �'��i r. � '• , � ,� � � . � � .. Y��,• •
`�,��� � � �' �-,-�..,..t � . ' '�J ��. '.�i J��1j`�
Tf'� _- ,ir������., � �� j ���� - '� � � �� . .� }.
...��i�, .Lt�_ .:_;.-.-_t;1=w:M� f ��a;' � �' n
r '� , �'J� ��r ,t ,� .i '�_.� 'ayr ��,� sp6r• , i�
� � ' ° �• � .1.1gp. ' ��.5
. _�`.r�y� _" ��,�f - . :��� � � � i �'4K��s.5�74K '� �, i�`. � �.
�; �:� � �.+� �. �� � � r »52K � — � * �
Ys' � �-1 .� . '�i .'�" 'y �'.,..lp .�. �lj"7�('�. Tw�
� � . Ir � , � � . �-��.�-1.��_'L.S�l.y � � :_� . .: 1� t. ��, i''. 4
� � /i
t . ,
•~ �� �,�-�.,�� � V 't � '� +��..1 �1 �ttRJ.,, :�,� �V•.' � ,I��` �
'J � i F_X.(,,,� .� •Y J�� .� �� ' 1� .. .. ' S 7�: •
:� _ �, -. . � .�. � � �$519K ' M 7
�' �:a � "f���P�� 1 .`� � :.p - - �h
�f Q.��.�. � � >>.� iS-J.�'_���'�ll� .���� R-. (���,^�7
� � .i?t. G
� -rL � ♦ -��1 � �S.SiK ��
�` � i ' � ."� .k� �.~ ��9.� .d
� '� � � �� ��*.k�,�`>„IA '' " l I � ,� �,,� p
'r ,, � 'l� k� � '�,s � � e '�; �+{,'.�
I � _.h . , , �_ , y . � . : `. y h`°-��, - a- r
i�-,L'• , � x,�, ,�•� ,<:e , 1 J r#� ;� y -
� �t � r f ' �p ��yl �
ti R
�7':-'� � � , 4 + � .i. }� ' �� �.� •-� _1.'
�' .�. 4- ry C'�.. K iJI� � �v �� .
. - k � .�� � .w - —,;�„�V'�.'��
.�:�,,, � _ �. ._ �;� - �
.
� �3 p �'' .�.,�-.., � � �° .
�� 'y.• �r, � �
�, �
Nearby , Schools + Neighborho- � ��'►T '(dJ=�;t: • ,
� �� q�' ,,a �'' •2 �r'�..'"�
��►�.,,,'�7ic``�''�._s _ Y ==cor.3 mao error
Figure 5.1. Estimated Home Ua(ue in Dubuque County
Source:Realtor.com
The East Central lowa Association of Realtors (ECIAOR) provided Multiple Listing Service
(MLS) MarketStatistics of residential propertyfor sale in Dubuque Countyfrom 2017 to 2024.
Table 5.10 shows the total amount of properties listed and sold in Dubuque Countyfrom that
time period.
Table 5.10. Tota(Listings and Sales in Dubuque County,2017-2024
- . - . . . . - . .
2017 1,470 1,188 80.8%
2018 1,368 1,148 83.9%
2019 1,255 1,074 85.6%
2020 1,300 1,216 93.5%
2021 1,384 1,281 92.6%
2022 1,273 1,161 91.2%
2023 1,060 921 86.9%
2024 1,155 974 84.3%
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
The median list price is the price where half the listed prices are higher and the other half are
lower. This is in contrast to the average list price, which is the mean of all home prices. List
October 2025 33
Page 619 of 668
� � � � � - � �
price and sale price can differ because the list price reflects what sellers hope to get, influ-
enced by their expectations and market optimism. Table 5.11 shows average list and sale
prices from 2017-2024 in Dubuque County. Table 5.12 shows median list and sale prices for
Dubuque County from 2017 to 2024
Table 5.11.Average Listand Sale Price in Dubuque County, 2017-2024
�
2017 $199,237 $194,285 -$4,952 0.98
2018 $201,469 $196,766 -$4,703 0.98 $2,232 1.1% $2,481 1.3%
2019 $220,597 $214,825 -$5,772 0.97 $19,128 9.5% $18,059 9.2%
2020 $230,147 $219,166 -$10,981 0.95 $9,550 4.3% $4,341 2.0%
2021 $243,143 $239,665 -$3,478 0.99 $12,996 5.6% $20,499 9.4%
2022 $259,255 $258,919 -$336 1.00 $16,112 6.6% $19,254 8.0%
2023 $269,931 $266,741 -$3,190 0.99 $10,676 4.1% $7,822 3.0%
2024 $284,398 $280,333 -$4,065 0.99 $14,467 5.4% $13,592 5.1%
Change $85,161 $86,048 $85,161 42.7% $86,048 44.3%
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
Table 5.12. Median Listand Sale Price in Dubuque County, 2017-2024
- . .
2017 $169,050 $166,000 -$3,050 0.98
2018 $174,222 $170,000 -$4,222 0.98 $5,172 3.1% $4,000 2.4%
2019 $179,900 $176,500 -$3,400 0.98 $5,678 3.3% $6,500 3.8%
2020 $179,900 $178,000 -$1,900 0.99 $0 0.0% $1,500 0.8%
2021 $194,900 $206,000 $11,100 1.06 $15,000 8.3% $28,000 15.7%
2022 $217,500 $220,000 $2,500 1.01 $22,600 11.6% $14,000 6.8%
2023 $225,000 $224,000 -$1,000 1.00 $7,500 3.4% $4,000 1.8%
2024 $243,750 $240,000 -$3,750 0.98 $18,750 8.3% $16,000 7.1%
Change $74,700 $74,000 $74,700 44.2% $74,000 44.6%
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
Figure 5.2 tracks Dubuque County's residential list and sale prices from 2017 to 2024. Gen-
erally, prices have been on an upward trajectory. The rate of increase accelerated duringthe
pandemic, and the median sale prices exceeded median list prices in 2021, indicating that
demand was outpacing supply at that time. The median sale price increased by$28,000 or
15.7% between 2020 and 2021.
October 2025 34
Page 620 of 668
� • � � � - � �
Dubuque County Home List and Sale Prices
$300,000
$280,000 ��•
'____—���
$260,000 �
-���i
$240,000 ��� ♦�
__��� �i
i
$220,000 '���i� '������ �
$200,000 ������� ��
�•
��
$180,000 ��
___���������—����i
$160,000
$140,000
$120,000
$100,000
2017 2018 2019 2020 2021 2022 2023 2024
Average Sale Price --- Average List Price
Median Sale Price --- Median List Price
Figure 5.2. Dubuque CountyHome Sa(e Prices
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
Days on the Market
Days on the market(DOM)is a key indicator of housing market conditions. Fewer days on the
market indicate high demand relative to supply, a tighter housing market, and an advantage
for sellers. Conversely,when homes remain on the marketfor longer periods of time, it could
indicate lower demand relative to supply and an advantage to buyers.
An average DOM value of around 30 generally viewed as an indicator of a balanced market.
However, this number can vary widely between markets, so it can be more meaningful to
compare current values to historical trends.Values can also fluctuate seasonally, so annual
or seasonally adjusted values can provide a clearer picture of overall trends.
Figures 5.3 and 5.4 show annual median and average DOM for residential properties sold in
Dubuque County from 2017 to 2024. Both figures identify 2020 as a clear inflection point.
DOM values were consistently higher before 2020 and have remained significantly lower
since, suggesting that the tighter housing market may represent a long-term trend, rather
than a short-term market disruption caused bythe pandemic.
October 2025 35
Page 621 of 668
� • � � � - � �
Average Days on Market
50
45 43 43
41
� 40
Y 35
� 35
�
p 30 25 26
>, 25 22
� 20
� 20
on
� 15
a�
Q 10
5
0
2017 2018 2019 2020 2021 2022 2023 2024
Figure 5.3.Average Days on Market in Dubuque County,2017-2024
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
Median Days on Market
16 15 15
14
+�
� 12
� 10
� 10
c
0
�n $
a
� 6
0
� 6 5 5
� 4 4
a> 4
�
2
0
2017 2018 2019 2020 2021 2022 2023 2024
Figure 5.4. Median Days on Market in Dubuque County,2020-2024
Source:Dubuque County MLS Data, East Centra(lowa Association of Rea(tors
Outside Market Assessments
Several outside firms, including Realtor.com and Zillow, evaluate conditions in local housing
markets. These firms provide various assessments of local housing markets at varying geo-
graphic levels, offering additional context to locally collected data.
October 2025 36
Page 622 of 668
� � � � � - � �
In September 2025, Realtor.com rated the Dubuque County housing market as "balanced",
based on the metric of Sale-to-List-Price Ratio. According to the site, homes in Dubuque
County Sold for 1.69% below asking price, indicating a balanced market.
Sale-to-list price ratio:98.31%
Homes in Dubuque County,IA sold for1.69%below asking price on average in
September 2025
Buyer Balanced Seller
�
�
Figure 5.5. Realtor.com Dubuque CountyHousingMarketAssessment
Source:Realtor.com,Accessed 10/9/2025
Zillow provides an overview of owner-occupied and rental housing markets. For owner-oc-
cupied units, the Zillow Home Value Index (ZHVI) represents the typical home value for a
specified region. ZHVI typical home value for Dubuque County is provided in Figure 5.6. The
figure shows an increase in the value of a typical home from approximately$170,000 in June
2017 to$270,000 in September 2025. Zillow's one-year market forecast expects the ZVHI to
continue to increase. Zillow's sale-to-list-price ratio of 0.995 is in line with the ratio reported
by Realtor.com, providing another indication of a balanced market.
Dubuque County Housing ZillowHomeValuelndex � Allhomes � 1-yr 5-yr Max
Market Overview �o�b�q�e�o�ntY
�,,��r
J-- 1-year Market Forecas[
225 For sale inventory _
102 New listings
0.995 Median sale to lis[ratio .>:31,_'_:'��. ��`'��
$269,333 Median sale price -'-�t 2ri5-�,
$278,300 Median list price - fi 1`_���1 K
31.5% Percent of sales over list price
50.9% Percent of sales under list price _ _ $�y�k
2018-03 2019-01 2019-11 2020-09 2021-07 202b05 2023-03 2024-01 2024-11 2025-09
9 Median days to pending
���e«��a�-a�iaed��ry��seasedo�Ma�ke_�oVe�a�ea�ddara) � Compare �
� How does this da[a help me?
Zillow's metrics provide valuable market data by
tracking market changes in different locations and
housing types.
Figure 5.6.Zi((ow Dubuque County Housing Market Overview
Source:Zi(low.com,Accessed 10/9/2025
October 2025 37
Page 623 of 668
� � � � � - � �
The Zillow Observed Rent Index(ZORI) measures changes in asking rents over time, control-
ling for changes in the quality in the available rental inventory. The Observed Rent Index,
shown in Figure 5.7 has increased from $802 in December 2021 to $1,031 in September
2025. As of September 2025, the index has increased 7.3%year-over-year.
Dubuque County Rental ZillowObservedRentlndex � 1-yr 5-yr Max
Market Trends �DubuqueCounry
,,.
$1,031 Average rent in Dubuque County mber
s1,979 National average rent '025)
-0.6% Month-over-month change -�bcr 30,20?
7.3%Year-over-yearchange 22 $<; ,:
� How does this data help me? gg=,'
The Zillow Observed Rent Index(ZORI)measures
changes in asking rents over time,controlling for
changes in the quality of the available rental
inventary. $��`
202b05 2022-10 2023-03 2023-08 2024-01 2024-06 2024-11 2025-04 2025-04
� _._ -�_._ _ �
Figure 5.7.Zi(low Dubuque County Renta(Market Trends
Source:Zi(low.com,Accessed 10/9/2025
Balanced Housing Costs
In a balanced housing market, rents and home prices typically move in at a steady sustain-
able pace that benefits both sellers and landlords and buyers and renters without giving one
too much of an advantage.
For rental units in a balanced market, rents generally rise with the rate of inflation which is
usually around 2-3% annually. This growth is steady enough to allow landlords to maintain
properties and cover costs, but not too fast to price out renters. According to the Zillow Ob-
served rent index rents increased by 7.6% between September 2024 and September 2025.
For the owner-occupied market, home values increase in line with long-term wage growth,
usually 3-5% annually. This pace encourages investment and allows owners to build equity
and while keeping homes prices attainable for new buyers. Between 2020 and 2024 home
sale prices increased 7% per year on average, higher than the target range of 3-5%.
Generally, Dubuque County's housing costs are rising faster than typical balanced-market
targets, suggestingtightening affordabilityfor both renters and buyers.
October 2025 38
Page 624 of 668
� � � � � - � �
6. Housing Affordability
Housing affordability is the ability of a household to payfor housing while still having money
left over for other necessities. The U.S. Department of Housing and Urban Development
(HUD) defines affordable housing as housing that costs no more than 30% of a household's
gross income.This includes rent, utilities, mortgage payments,taxes,and insurance. House-
holds that spend more than 30% of their income on housing are considered cost-burdened.
There are many other factors, however, that affect housing affordability that this definition
does not consider.
The lowa Finance Authority notes: "Homeownership presents one of the most powerful op-
portunities for building generational wealth. The ripple effects of homeownership are far-
reaching, extending to various aspects of life, such as financial, social, and physical well-
being, while also delivering significant economic benefits to the broader community. When
families have access to homes they can afford, as their income changes over time, it's
proven to lead to success in other areas, including health, education, career opportunities
and civic engagement, which in turn strengthens our neighborhoods and communities:'
Renters are far more likely to be cost-burdened compared to homeowners.
Homeownership most often requires financing with a mortgage. Table 6.1 provides a com-
parison of the number of owner-occupied housing units with and without a mortgage, and
the number of occupied units paying rent based on 2009-2023 ACS 5-year estimates in
Dubuque County.
Tab(e 6.1. Number of Housing Units with and without a Mortgage and Number of Occupied Units
paying Rent,2009-2023
. . - � � • � � � � � -
Housing units with a mortgage 17,330 16,854 18,376 1,046 6.0%
Housing units without a mortgage 9,933 10,882 11,319 1,386 14.0%
Occupied units paying rent 9,769 10,061 10,411 642 6.6%
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Housing Costs
Table 6.2 shows the median housing costs for owner-occupied units with a mortgage in
Dubuque County and peer counties from 2009-2023.
Table 6.2. Median Housing Costs for Owner-Occupied Units with a Mortgage in Selected lowa
Counties
. � � �
Dubuque $1,198 $1,258 $1,540 $342
Black Hawk $1,083 $1,163 $1,396 $313
Johnson $1,439 $1,607 $1,936 $497
October 2025 39
Page 625 of 668
� � � � � - � �
Linn $1,282 $1,332 $1,558 $276
Scott $1,235 $1,278 $1,538 $303
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Table 6.3 shows the median housing costs for owner-occupied units without a mortgage in
Dubuque County and peer counties from 2009-2023.
Table 6.3. Median Housing Costs for Owner-Occupied Units without a Mortgage in Se(ected lowa
Counties
. � � �
Dubuque $432 $486 $636 $204
Black Hawk $391 $450 $580 $189
Johnson $501 $533 $692 $191
Linn $458 $520 $670 $212
Scott $437 $509 $607 $170
Source: US Census Bureau,2009-2023 American Community Survey Estimates
Table 6.4 shows the distribution of gross rentfor rented units in Dubuque Countyfrom 2019-
2023 estimates.
Table 6.4. Distribution of Gross Rent in Dubuque County, 2019-2023
. - � . . - . - -
Occupied units paying rent 10,411 100.0%
Less than$500 735 7.1%
$500 to$999 5,199 49.9%
$1,000 to$1,499 3382 32.5%
$1,500 to$1,999 824 7.9%
$2,000 to$2,499 67 0.6%
$2,500 to$2,999 43 0.4%
$3,000 or more 161 1.5%
Median(dollars) $944
No rent paid 479 4.6%
Source: US Census Bureau,2019-2023 American Community Survey Estimates
Table 6.5 shows median gross rent for rented units in Dubuque County and selected lowa
counties from 2009-2023.
Table 6.5. Median Gross Rent in Se(ected lowa Counties,2009-2023
. � � � -
Dubuque $670 $763 $944 $274
Black Hawk $671 $769 $962 $291
Johnson $819 $968 $1,104 $285
Linn $672 $743 $915 $243
Scott $685 $779 $958 $273
Source: US Census Bureau,2009-2023 American Community Survey Estimates
October 2025 40
Page 626 of 668
� � � � � - � �
The Center for Neighborhood Technology's Housing and Transportation (H+T°) Affordability
Index provides a more complete measure of affordability by considering housing plus trans-
portation costs. While housing alone is affordable when consuming no more than 30% of
income, transportation costs can be a household's second largest expenditure. Table 6.6
shows the H +T Indexforthe Dubuque County and selected lowa counties usingACS 5-year
estimates for 2022.
The H +T Index benchmark is 45%of household income.All 5 counties have similar housing
and transportation costs.
Tab(e 6.6. Housing and Transportation Index in Selected lowa Counties,2022
. . . . . . .
Dubuque 44% 22% 21%
Black Hawk 44% 22% 22%
Johnson 46% 26% 20%
Linn 42% 22% 20%
Scott 46% 25% 21%
Source:Center for Neighborhood Technology,Housing and Transportation Affordability Index
Analysis of housing costs by income level can help determine affordability.Typically, house-
holds with higher incomes tend to proportionately spend less on housing than households
with lower incomes. The higher the household income, the less likely a household will be
cost-burdened. Table 6.7 provides the monthly housing costs as a percentage of household
income (HHI) for all households in Dubuque County based on ACS 5-year estimates for
2019-2023. Note that the households making less than $50,000 are most likely to be cost
burdened, spending more than 30% of their income on housing.
Table 6.7. Comparison of Month(y Housing Costs as a Percentage of Household Income(HHI)by
Income Leve(forA(l Occupied Units,2019-2023
%HH Income spent on housing
Household Income Number of Units
Less than 20% 20%to 29% 30%or more
Less than$20,000 3,810 3.1% 6.2% •� '�
$20,000 to$34,999 3,927 12.0% 22.1%
$35,000 to$49,999 4,817 27.3% 32.1% 40.6%
$50,000 to$74,999 5,870 51.0% 31.2% 17.9%
$75,000 or more 20,372 �'� 15.5% 3.5%
Source: US Census Bureau,2019-2023 American Community Surveys
Housing Affordability Analysis
Table 6.8 shows the HousingAffordabilityAnalysis for Dubuque County based on ACS 5-year
estimates for 2019-2023 and mortgage rates accessed from Zillow. It provides an estimate
ofthe minimum household income required to afford a home at different price levels for both
30% and 20% of income. The monthly payment was calculated assuming a good credit
October 2025 41
Page 627 of 668
� � � � � - � �
score, a 30-year fixed-rate mortgage with a 6.642% annual interest rate, and 10% down pay-
ment. The analysis also considers additional housing costs including 1.5%for property tax,
an annual 0.5% private mortgage insurance, and $250 per month for utilities.
Table 6.8. Dubuque County HousingAffordabi(ityAnalysis
. .
. . . -
. - . .
Median Home Value $200,000 $250,000 $350,000 $226,100
Down Payment 10% $20,000 $25,000 $35,000 $22,610
Loan Amount $180,000 $225,000 $315,000 $203,490
30-Year Fixed-Rate Mortgage 6.642% 6.642% 6.642% 6.642%
Interest Rate
Number of Payments 360 360 360 360
Monthly Costs
Monthly Payment ($1,282.87) ($1,603.59) ($2,245.02) ($1,450.29)
PropertyTaxEstimate ($250.00) ($312.50) ($437.50) ($282.63)
Monthly Costs
Monthly Utility Estimate ($250.00) ($250.00) ($250.00) ($250.00)
Private Mortgage Insurance Est. ($83.33) ($83.33) ($116.67) ($75.37)
Subtotal Monthly Costs ($1,866.20) ($2,249.42) ($3,049.19) ($2,058.28)
Affordability
Housing Cost as 30%of Income 30% 30% 30°/o 30%
Minimum Income Required $74,648 $89,977 $121,968 $82,331
Affordable to Dubuque County 41% 38% 28% 38%
Owner-Occupied Households
Housing Cost as 20%of Income 20% 20°/o 20°/o 20%
Minimum Income Required $111,972 $134,965 $182,951 $123,497
Affordable to Dubuque County 27% 19% 15% 27%
Owner-Occupied Households
Median Household Income $131,154
Source: US Census Bureau,2019-2023American CommunitySurveys
Using 2019-2023 5-Year American Community Survey estimates, Table 6.9 shows compara-
tive affordability in selected lowa counties for renter-occupied housing units. The $944 me-
dian gross rent in Dubuque County required an annual income of$37,360,which was 93.5%
of the median house-hold income of$39,367.
October 2025 42
Page 628 of 668
� � � � � - � �
Tab(e 6.9. Median Househo(d Income For Renter-Occupied Housing Units and Medan Gross Rent
Se(ected Counties, 2019-2023
. . .
. - . .
. . .
Dubuque $39,967 $944 $37,760
Black Hawk $40,066 $962 $38,480
Joh nson $39,271 $1,104 $44,160
Linn $40,602 $915 $36,600
Scott $41,116 $958 $38,320
Source: US Census Bureau,2019-2023American CommunitySurveys
Table 6.10 provides a comparison of income levels and housing affordability for renter-oc-
cupied units in Dubuque County. The data indicates a shortage of affordable rental units
for households earning under $25,000 per year. The table also shows an under supply of
units at the upper income households making$75,000 and up.
Higher-income often choose lower-priced units, increasing competition for those units
with middle- and lower-income households. Because of this downward movement, the
negative balance in the $75,000 and up categories, may indirectly reflect affordability
challenges for households earning under$75,000 per year.
Table 6.10. Income Distribution and HousingAffordability Ranges for Renter-Occupied Units in
Dubuque County, 2019-2023
. . . . . . . .
$0 to$24,999 3,385 Less than$500 735 -2,650
$25,000 to$49,999 3,265 $500 to$999 5,199 1,934
$50,000 to$74,999 1,774 $1,000 to$1,499 3,382 1,608
$75,000 to$99,999 1,237 $1,500 to$1,999 824 -413
$100,000 to$149,999 976 $2,000 to$2,499 67 -909
$150,000 or more 253 $2,500 or more 204 -49
Source: US Census Bureau,2019-2023 American Community Surveys
Note: The unit counts in this tab(e were estimated using the assumption that households wi((
occupy a housing unit in their affordab(e rent range. This is not always true in practice as
househo(ds may occupy units outside of the assumed affordable range. So, a negative ba(ance at a
high-income range can indicate displacement of(ower-income househo(ds rather than a(itera(
shortage of higher rent units.
October 2025 43
Page 629 of 668
� � � � � - � �
7. Forecasts
Population and housing forecasts were developed to help Dubuque County understand fu-
ture housing needs and plan for future development.The forecasts estimate how many new
housing units will be needed over the next ten years to accommodate future population
growth and to maintain a balanced market.
The forecasting method used applies the county's historical annual population growth rate
to future years to estimate population change. The projected population is then divided by
the average number of people per household to get an estimate of the number of housing
units needed.
Population Forecast
The Dubuque County population forecast is based on the most current available data and
historical trends. Two scenarios were developed:
• Scenario 1 -Assumes that the county's population will continue to grow at a rate con-
sistentwith the long-term historicaltrend (1990-2020),averaging430 people peryear.
• Scenario 2—Assumes a higher growth rate based on the most recent decade (2010-
2020), where the county grew by approximately 560 people per year.
The following data and assumptions were used to develop the forecasts:
• The forecast uses a 2025 base-year population estimate of 100,227, produced by
ESRI Demographics.
• ESRI's population estimates are based on U.S. Census data with additional infor-
mation from public and private sources.
• In Scenario 1, the county's population grows at a rate of 430 people per year.
• In Scenario 2, the county county's population grows at a rate of 560 people per year.
Figure 7.1 provides Dubuque County's historical census population data, ESRI's 2025 popu-
lation estimate, and the future population forecasts.
October 2025 44
Page 630 of 668
� • � � � - � �
Dubuque County Population Forecast
110,000
105,827
103,027
105,000 '�i!
.
99,266 100,2�r�r'' 104,527
100,000 97,685 102,377
c
0
3 95,000 93,65
0 90,769
a 88,938 89,143
90,000
86,403
85,000
80,000
1990 1995 2000 2005 2010 2015 2020 2025 2030 2035
Historical ESRI 2025 Estimate Scenario 1 Scenario 2
Figure 7.1. Dubuque CountyPopulation Forecast
Source: US Census Bureau Decennia(Census, ESRI Demographics
Housing Needs 2026-2035
The population forecast is converted into an estimate of future housing unit needs based on
the following assumptions.
• Group Quarters Population - In 2020, Dubuque County had 4,157 people living in
group quarters, about 4.2o/0 of the total county population. When estimating housing
unit demand, the population estimate is reduced by 4.2% to account for the group
quarters population.
• Household Tenure - Of the remaining 95.8% of the county's population that resides
in a household, approximately 78% lives in an owner-occupied housing unit and 22%
lives in a renter-occupied unit. However, recent construction activity has been more
evenly split between renter-occupied and owner-occupied units. According to
2019-2023 ACS estimates, housing units built since 2020 are roughly 50% owner-
occupied and 50% renter-occupied.
• Average Household Size -Average household size differs by tenure, with 2.5
people per household for owner units and 1.9 for renter units.Assuming a 50/50 split
for new housing unit construction, the projected population will have 57% living in
owner-occupied units and 43% in renter-occupied units.
October 2025 45
Page 631 of 668
� � � � � - � �
• Vacancy Rate-The forecast assumes that some of the new units constructed will be
vacant at any given time. To account for this the forecast applies a 5% vacancy rate
for renter-occupied units and a 2%vacancy rate for owner-occupied units.
Forecasts are provided in Table 7.1 and 7.2.
Table 7.1. Forecast-Population in Households by Tenure
. . .
Population Growth Forecast 4,300 5,600
Population in Group Quarters 4.2% 150 235
Population in Households 95.8% 4,120 5,365
Renter Household Population 43% 1,772 2,306
Owner Household Population 57% 2,348 3,059
Table 7.2. Forecast-Households and Housing Units by Tenure
- - � •
- . . - . - . -
Renter Households 1.9 932 49.8% 5% 979
Owner Households 2.5 939 50.2% 2% 958
Total 1,783 1,937
I " ' " I I I I I I
Renter Households 1.9 1,214 49.8% 5% 1,275
Owner Households 2.5 1,224 50.2% 2% 1,285
Total 2,438 2,560
The two scenarios estimate that the countywill need between 1,937 and 2,560 new housing
units between 2026 and 2035.
October 2025 46
Page 632 of 668
� � � � � - � �
8. Key Findings
The Dubuque County Housing Needs Assessmentwas prepared to provide a data-driven un-
derstanding of current and future housing conditions in Dubuque County.This section of the
highlights the insights and lessons learned through the assessment.
KeyFindings
Demographics
Population Growth: Dubuque County's population reached 99,266 in 2020, up 6% since
2010. Growth seems to have slowed slightly over the first have of the new decade, but future
growth is expected to align with the county's historical trends over the next ten years. Popu-
lation forecasts project that the county will add between 4,300 and 5,600 residents over the
next ten years.
Aging population: The county's population has been aging over time with retired Social Se-
curity beneficiaries making up 15% of the country's population in 2024. The aging trend is
expected to accelerate over the comingyears with more of the Baby Boomer cohort reaching
retirement age.
Household Size: the average household size in Duque County has decreased recently with
owner-occupied households holding steady at 2.5 people per household and renter-occu-
pied households falling from 2.1 to 1.9 people per household.This brings the overall average
household size down from 2.4 to 2.3.
Economic Conditions
Employment: Employment for Dubuque County Residents has generally grown steadily,
adding an average of 560 jobs per year over the last 30 years. Employment fell during the
pandemic but has recovered and stabilized at around 52,000 jobs.
Unemployment: Prior to the pandemic, Dubuque County's unemployment rate had been
trending downward. COVID-19 caused an unemployment rate spike in 2020 followed by 2
years of slow recovery. Unemployment has since stabilized at near pre-pandemic levels.
Income: Median Household Income grew to $75,919 in the 2019-2023 ACS, representing
a 47.5 percent increase over the 2009-2013 ACS estimate, outpacing peer counties.
October 2025 47
Page 633 of 668
� � � � � - � �
Housing Trends
Housing Supply: The number of housing units in Dubuque County has been increasing
steadily over the last 30 years. The 2020 Census reported a total of 42,630 housing units in
2020, up from 38,951 in 2010.
Tenure:The majority of the Dubuque County's housing units are owner-occupied. However,
the share of renter-occupied units has been growing over time. Renter-occupied housing
units accounted for 28.9%of all occupied housing units in 2020, up from 26.7%in 2010.This
trend seems to be accelerating with 52% of the units constructed since 2020 being renter-
occupied.
Construction: Dubuque County communities have continued to add new housing units
each year. Construction numbers have fluctuated year to year, but the general trend has
been that new units continue to be built every year, with single-family home construction
declining slightly, and multi-unit construction increasing, especially over the last five years.
Housing Market
Vacancy Rates:
Rental vacancy: 5.3% (ACS 2019-2023), 6.12% (Rental Owner & Manager Survey).
Both are within the balanced range of 5-9%.
Owner vacancy: 0.6%, below the balanced range (1-2%), indicating tight supply.
Rates below 1% are in line with historical trends.
Sale Prices:The median home sale price was $243,750 in 2024, up 44o/o since 2017. Prices
rose rapidly duringthe pandemic with the median price increasing$28,000 (15.7%) between
2020 and 2021. Since then prices have continued to grow, up 7.1% between 2023 and 2024.
Days on Market: Fell sharply in 2020 and have remained low, suggesting persistent demand
pressure and limited supply.
RentalCosts: Rents have increased steadily,with Zillow's rental index rising7.3%year-over-
year, reaching an average rent of$1,031 in September 2025.
Housing Needs
Population Growth: Population growth scenarios estimate that Dubuque County's popula-
tion will increase by 4,300 to 5,600 residents between 2026 and 2035.
Housing Units: An estimated 1,937 to 2,560 additional housing units will be needed to ac-
commodate this growth.
October 2025 48
Page 634 of 668
� � � � � - � �
Affordability
Cost Burden: With increasing home prices and rents, housing affordability is an increasing
challenge in Dubuque County, especially for lower income households. 2019-2023 ACS es-
timates show that households making under$50,000 per year are the most likely to be cost
burdened. Generally, renters are more likelyto be cost burdened than homeowners.
Homeownership Opportunities: Rising home prices, higher interest rates, and lowvacancy
ratees may be limiting home ownership opportunities and pushing more households toward
renting. Currently a median priced home ($226,100) is affordable to 27-38% of Dubuque
County households.
Conclusion
The Dubuque HousingNeedsAssessmentfinds that the local housing market is performing
well, supported by a growing population, strong employment, and steady construction ac-
tivity. However, the county also faces emerging pressures related to the following:
• Growing retired population that will require more accessible and low maintenance
housing options. Replacing retirees in the workforce will require in-migration which
will require more housing.
• Limited home vacancies, lower days on the market, and rising prices indicate a low
for-sale inventory.
• Rising prices and declining affordability for low and moderate income households.
• Ongoing need for diverse housing options, including workforce, senior, and middle-
market owner-occupied housing.
• Continued population growth that will require an estimated 1,937 to 2,560 additional
housing units between 2026 and 2035.
Continued monitoring and support for housing rehabilitation new housing construction will
be essential to sustain balance and ensure that all residents have access to safe, attainable
housing in the coming decade.
October 2025 49
Page 635 of 668
� � � � � - � �
9. Housing Programs
Local, state, and federal housing programs as well as regional partner agencies are de-
scribed below.
Local Housing Programs
Communities across Dubuque County offer a variety of housing programs designed to ad-
dress a variety of housing needs. While these programs generally follow the framework es-
tablished by state law, the details of each program willvaryfrom communityto community.
Interested parties should contact check with their city or with Dubuque County for details
about available programs.
The lowa Code provides several options for cities and counties to create housing programs.
The City of Dubuque,for example, offers a range of programs and resources for homeowners,
commercial property owners, and rental property owners. These programs may serve as
models for other communities as well. Learn more at www.cityofdubuque.org/incentives
Tax Increment Finance (TIF) Districts
TIF districts can be created by cities and counties per lowa Code Chapter 403, Urban Re-
newal Law. TIF can be used for three main purposes: promoting economic development,
eliminating slum and blight, and facilitating housing development. TIF districts are estab-
lished within approved urban renewal areas (URA).
Urban Revitalization Districts
Urban Revitalization Districts are allowed by lowa Code Chapter 404. They can target areas
with slum or blight conditions to improve housing, infrastructure, and overall quality of life.
Owners of eligible residential or commercial properties can receive a propertytax exemption
on the value added by improvements, for a specified period of years.
Voluntary Assessment Agreements
Voluntary Assessment Agreement as per lowa Code Chapter 384 allows property owners to
petition their city to levy a special assessment to pay for public improvements for new sub-
divisions.This agreementwould authorize a cityto issue bonds that can payfor upfront costs
of public improvements while in turn the cost of each property's improvement is assessed
to that property within the subdivision. The developer is then allowed 10 years to repay the
cityfor improvement costs, but a lien is placed on each propertythat prohibits the sale until
the improvement costs are repaid in full.
October 2025 50
Page 636 of 668
� � � � � - � �
State of lowa Housing Programs
The lowa Finance Authority (IFA) offers mortgage and down payment assistance to help ap-
plicants with homeownership, and programs for rental assistance and community develop-
ment. Learn more at https://o�portunityiowa.gov/housin�/
Homeownership Assistance
FirstHome Program: Assists first-time homebuyers, connecting them with affordable mort-
gages and local lenders.
Homes forlowans Program: Helps both first-time and repeat homebuyers purchase homes,
potentially offering a $2500 grant.
Military Homeownership Assistance Program: Provides a $5,000 grant to eligible service
members and veterans for down payments and closing costs on qualifying homes, usable in
conjunction with FirstHome and Homes for lowans.
Rental Assistance
Tenant-Based Renta(Assistance (TBRA): Allows nonprofit and local government entities to
assist families with monthly rent, security deposit, and utility deposit.
Home & Community-Based Services (HCBS) Rent Subsidy Program: Provides applicants
with monthly rent assistance.
Family Self-Sufficiency(FSS): A voluntary program for Housing Choice Voucher (HCV) par-
ticipants to help families improve their economic situations and reduce their dependence
on welfare programs.
lowa HousingSearch:Awebsite to locate affordable rental housing units within the state of
lowa.
Community Programs
Community-Based Housing Revo(ving Loan Fund: Promotes affordable housing and sup-
portive services for eligible individuals.
HOME Program: Awards through a competitive process to help communities with a wide
range of affordable housing.
Housing-UpperStoryConversion: Helps communities preserve existing housing stock and
create new housing opportunities.
Housing Tax Credit Program: Helps develop affordable rental housing for individuals and
families with fixed or limited incomes.
October 2025 51
Page 637 of 668
� � � � � - � �
Multifamily Loan Program: Provides financing options to multifamily property owners and
developers to preserve and create new affordable units in lowa.
Project-Based Section 8 ContractAdministration: Partners with private rental property own-
ers to help provide affordable rents to low-income families living in lowa.
Workforce Housing Tax Credit: Tax benefits to developers to provide housing in lowa com-
munities,focusing especially on those projects using abandoned, or dilapidated properties.
Federal Housing Programs
The US Department of Housing and Urban Development (HUD) provide other homeowner-
ship, rental, and community programs. Learn more at https://www.hud.gov/states/iowa
Homeownership Assistance
Federa(HousingAdministration (FHA) Loans: Insures loans, allowing lenders to offer mort-
gages to a wider range of borrowers, including those with lower credit scores or down pay-
ments.
Pub(ic Servant Next Door Program: Offers exclusive benefits, including grants to assist with
closing costs and expenses, to help city, county, state, and federal employees become
homeowners.
Rental Assistance
HousingChoice I/oucherProgram (Section 8): Largestfederal rental assistance program, al-
lowing eligible families to find their own housing and receive a voucher to cover part of the
rent.
Pub(ic Housing: Federally funded and locally managed, public housing provides affordable
rental units for low-income individuals and families.
Project-Based Rentaf Assistance: Provides rental assistance for specific properties, ensur-
ing affordability for low-income tenants.
National Housing Trust Fund: Helps increase and preserve the supply of affordable housing
for extremely low-income and homeless families in lowa.
Family Self-Sufficiency(FSS): A voluntary program for Housing Choice Voucher (HCV) par-
ticipants to help families improve their economic situations and reduce their dependence
on welfare programs.
October 2025 52
Page 638 of 668
� � � � � - � �
Community Programs
HOME Investment Partnerships Program (HOME): Provides federal funds to state and local
governments to develop and support affordable housing for low-income residents.
Community Development Block Grants (CDBG): Provide funding to communities for eco-
nomic development,job opportunities, and housing rehabilitation.
Low-Income HousingTax Credits(LIHTC): Incentivize developers to build affordable housing
by providing tax benefits.
Dubuque County Housing Partners
City of Dubuque Housing and Community Development Department
The Housing&Community Development Department oversees a collection of programs and
services aimed at ensuring housing opportunity, improving existing housing stock, and sup-
porting neighborhood quality. Key functions include:
• Housing Programs — These programs assist various stakeholders (homeowners,
renters, developers)through programs such as the Housing Choice Voucher(Section
8), home improvement grants/loans, homebuyer assistance, and security deposit
support.
• Community Development — The department administers community-wide initia-
tives, including Community Development Block Grant (CDBG) and urban revitaliza-
tion efforts.
• Inspection & Construction Services —the department manages building permits,
rental licensing and inspections, vacant building licensing, code enforcement, and
related regulatory oversight.
• Support Resources—The department provides resources and guidancefortenants,
landlords, and contractors.
Regional Housing Partners
Below is a list of partners associated with the East Central Intergovernmental Association
(ECIA), which provides staff and administrative support. The service area for each program
varies within Dubuque County with some serving the whole county while others only serve
the areas outside the city of Dubuque. The following section provides a short description of
each program with more information available at www.ecia.org
Eastern lowa Regional HousingAuthority(EIRHA)serves Cedar, Clinton, Delaware, Dubu-
que, Jackson,Jones, and Scott Counties, excluding the cities of Clinton, Camanche, Daven-
port, and Dubuque. EIRHA provides decent, safe, and affordable housing to eligible
October 2025 53
Page 639 of 668
� � � � � - � �
households; promotes self-sufficiency; creates economic independence; and provides
homeownership opportunities for Housing Choice Voucher and Public Housing Program par-
ticipants.
Eastern lowa Regional Housing Corporation (EIRHC) acquires, constructs, provides, and
operates rental housing and related facilities suited to special needs and living require-
ments.
EIRHC Housing Trust Fund (HTF) develops and preserves decent, safe, and affordable
housing for low-income households, as well as access to the resources for creating housing
opportunities for the families served in eastern lowa.The emphasis is on the moderate,very
low, and extremely low-income residents of Dubuque, Delaware, Jackson, Cedar, and Clin-
ton Counties.
Eastern lowa Development Corporation(EIDC) is a for-profit entity and wholly owned sub-
sidiary of EIRHC formed to be a general partner in all Low-Income Housing Tax Credits pro-
jects.
East Central Development Corporation (ECDC) is a non-profit focused by serving low to
moderate income communities and households and working with underserved neighbor-
hoods that have experienced significant disinvestment. ECDC projects include affordable
housing development and rehabilitation in Dubuque, Delaware,Jackson, Cedar, and Clinton
Counties.
CommunitySolutions of Eastern lowa(CSEI) promotes and encourages publicwell-being;
provides homeless prevention resources to those living in poverty and threatened with
homelessness; helps individuals and families survive and exit homelessness; and expands
opportunities and empowers people to be self-sufficient in east central lowa cities and
counties. CSEI is a nonprofit subsidiary of the East Central Intergovernmental Association
(ECIA).
October 2025 54
Page 640 of 668
�i�;' ti,� �"� ' - �'y` , .�
<
,'
r � � � � � - ;
� ,t� +r=' ,�' 'r' �� �'�'
� ,� �, � ,
� s �1 T> T:',: - '`��� ri i f � '�S'� � Kt+"S{j�.`." f� 4 �'
� — �i� '•�� nc' ,� , -,. �k }a{ �' .r� 1�����y ���` �� / .
r -� � ->• ` ; �- i. �-. ;
�- ��' - . S? a�'i`�.�.c. ���� 'r-iF _I w�'_ ,y e��.�.Y�'r �,��V�� ._'�.
� � �52� _ `e1� � - '-�. a., � � .� . �4 �.
��1� rar _ " '���'G_ � ...� �.
�j�,~, ���y . � d_ .�- - �:_� � !`�7 ._ _ . 1._ .- _, .•`" '�
� �. .1'j' .�f' . - _�. . � �
�•`�.`�ti-��"1.�F���. -1-- _ 'Y �� =L� - "ra
f 7Si . ,
� .�l �•- � � - .� - ♦:��•
;� ~. .;�„t'��w - �� j
=;p�' �,,s -
,�;� �.., � s_ .
i`'''.�'' , - ` � • • '
^.�.: � � -�r v.
��'.�. �;;� _ f�e,: . -
,,,,
�. � � , ,
r � �.
_ .�b� � j� ��_
;r��x�;`�� • • • �+'��� "��r�4 �"r
�4 � �
�� ,,,,���-� ..— .�f �, '�'�:•• _,
` '�, _ , . --.
- . . ��'+,�- '.; �
, . ,��;;� 1 � � „ =
.:i."����`",�y-� •'��`'Y" `�, -
;'�'_,�,�,;;�5'� = a;` ; � � , �
�II�. e �r-��`•� ��� I ��- L _ _
\ R'��
��v
. �+�r, �'X / � � �
� ���: � �� ��- . �_
.,�� -}.�-.��•��--�. r - =�j�
�` ?.'+t�=��� -_ _ .�� - --
, ,_�- _ �
� :.���� $ _ � � - v
��-c_� �� �'j:�.- � I ,-:..� � .
�lu4
� _, • . • �' � ��
j ..
s =��____�-_._- ., � .�, .
� j - ' -�' � - • I : !1 � ■ ;
-_- �� — --_ �}.
�,:v-..�r= � — -
,,,._-� . _ .�
�
•�_ ��_ x, —— —
-�� >,��
�. � _._-_ � . .,� .,�,,.. r - --- - �- �'��'�, ��' f�
�-- �.-- ' _ 1 - - - . �v' � ...
� - "-- + � - „?'��`'�'�'�
�----.--�>=.r�� . — -, ,�.� _ _ __I = _ , -
- �- � ' ? - c ;�.
_� _ _ _ , _ � ,
.�
--- ___ �-- - —_ -- - - -i - I r1 � � ��,�a' � 'i '�`
; .�= -_ - - _ _- _ ���; ;;��� �; � ,� ► ,�
:.� _�, �_ - - - .
.
_ _ .�� �.
_ _ _ _
-��-�- � � �- � � � -- =_ - _ � :, r��
_= _ , �.� . —� _ — — -- ,�-_- � =
T=� --_ `_ -- � �— . — — _
�
, ;I �_� _ _ .
„ � ��� � ..
+`r� � a _ ir.�
� . � � �
- - — � J . - _ _ •_ 1 -- --
_ _ �� � _ � _ -- - - - ,� E �p _
- C
_ _ - _ _ s
_ _ ,�.�
��.'.s�� -
� �� � ', . -__ �Pag�lo 668
�■t ' rrr , � � -���� �'
Acknowledgements & Contributions
East Central lowa Association of Realtors
Melissa Groth, Executive Officer
Quad Cities Area Association of Realtors
Sharon Smith, Executive Officer
Cedar Rapids Area Association of Realtors
Kevin Platz, Executive Officer
City of Dubuque, Economic Development
lan Hatch, Assistant Economic Development Director
2 � Page
Page 642 of 668
Table of Contents
Acknowledgements & Contributions ..........................................................................2
Introduction ...............................................................................................................4
StudyProcess .............................................................................................................5
CommunityProfile......................................................................................................6
Distressed Community Assessment ............................................................................8
Conclusion................................................................................................................18
Document Prepared by East Central Intergovernmental Association in partnership with Greater Dubuque Development
Corporation
3 � Page
Page 643 of 668
Introduction
The City of Dubuque is located in northeastern lowa, along the Mississippi River. Due to its location at
the border of Illinois and Wisconsin it is considered to be within the Tri-state region. Dubuque is the
primary city in the Dubuque Metropolitan Statistical Area (MSA) and is the Dubuque County Seat.
This study examines the City's residential resources and needs as they pertain to the Workforce
Housing Tax Incentive Program (WHTIP). This assessment will include consideration of the following:
whether or not the community has a severe housing shortage relative to demand, low vacancy rates,
and/or rising housing costs combined with low unemployment.
The City of Dubuque has not been designated as a "distressed housing community" historically. This
designation would allow builders and developers to apply for tax credits towards the construction of
new workforce housing units on greenfield or undeveloped sites.
The City intends to apply for this designation in order to support and promote the development of
workforce housing projects in the community. This 2022 Workforce Housing Study is submitted as a
part of the application which seeks to obtain the "distressed housing community" designation.
4 � Pa � e
Page 644 of 668
Study Process
The 2022 Distressed Housing Community Study was completed by the East Central
Intergovernmental Association. Data assistance was provided by East Central Association of
Realtors, Quad Cities Area Association of Realtors, and Cedar Rapids Area Association of Realtors.
Following the WHTIP administrative rules provided by the lowa Economic Development Authority
(IEDA), the primary data points considered for a "distressed workforce housing community" are the
most recent three-year (2019-2021) data collected. However, the report uses 5-year estimates in
instances where data is sourced from the American Community Survey (ACS). At the time this report
was created, ACS 2016-2020 estimates were the most current data available.
The required criteria and data for this housing assessment are outlined below in Table 1.
Table 1. Distressed Housing Community Criteria and Data Sources
Data Source
1 Annual number of building permits issued in the City of Dubuque, Economic Development
city for the most recent three-year period
2. Homeowner vacancy rate in the city American Community Survey(ACS) 5-Year estimates 2016-
2020
3 The annual volume of homeowner unit sales in East Central lowa Regional Board of Realtors
the city for the most recent three-year period
The annual length of time it takes to sell
4. homeowner units in the city for the most recent East Central lowa Regional Board of Realtors
three-year period
5. The annual average rental vacancy rate in the city American Community Survey 5 Year estimates 2016-2020
The annual average length of time it takes to
6. lease rental units in the city for the most recent Western Economic Services
three-year period
7. The average housing costs in the city East Central lowa Regional Board of Realtors
8. The average unemployment rate in the city U.S. Department of Labor, Bureau of Labor Statistics
9. The laborshed wage applicable to the city lowa Economic Development Authority; lowa Workforce
Development
5 � Page
Page 645 of 668
Community Profile
A community's population trends often provide insights on its housing market. As Figure.1 and Table
2 show, Dubuque saw a great deal of growth up until the 1980's where the population peaked at
62,374. For the following two decades Dubuque saw a significant decline in population until 2000
when the population began to stabilize and now as of 2020 there has been stable growth of about
3.5%.
�o,000
60,000
50,000
40,000
30,000
20,000
10,000
0
1920 1940 1960 1980 2000 2020
Figure 1: City of Dubuque Historic Population (1920-2020)
Source: US Decennial Census (1920-2020)
Table 2 Population Change
1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2020
Population 39,141 41,679 43,892 49,671 56,606 62,309 62,374 57,538 57,686 57,637 59,667
Population
Change - 2,538 2,213 5,779 6,935 5,703 65 -4,836 148 -49 2,030
Percentage - -
Change - 6.48% 5.31% 13.17% 13.96% 10.07% 0.10% 7.75% 0.26% 0.08% 3.52%
Source: US Decennial Census (1920-2020)
The housing stock in the City of Dubuque has largely followed the population trends that are
illustrated in Figure 1. The data presented in Table 3 show that approximately 62% of the housing
stock in Dubuque was built when the City was experiencing positive growth in the first half of the 20tn
Century. After the City's population decline in the 1980's the number of homes being built was
reduced significantly.
Of the occupied units within the City of Dubuque, 33% are renter occupied, which is nearly 8% larger
than the average for Dubuque County and the State of lowa. Table 4 compares the number of renter
and owner-occupied units in the City of Dubuque, Dubuque County, and the State of lowa. Table 5
shows how the proportions of renter and owner-occupied units have changed in these areas between
6 �
Page 646 of 668
2010 and 2020. From 2010-2020 the percentage of renter occupied units increased significantly
compared to the percentage of owner-occupied units for the City of Dubuque, Dubuque County, and
the State of lowa.
Table 3: Housing Stock Structure Age Comparison
Label Estimate Percent Estimate Percent Estimate Percent
Year Structure Built City of Dubuque Dubuque County State of lowa
Built 2014 or later 403 1.5% 945 2.3% 50,845 3.6%
Built 2010 to 2013 835 3.2% 2,070 5.0% 41,384 2.9%
Built 2000 to 2009 1,781 6.8% 5,628 13.6% 153,068 10.9%
Built 1990 to 1999 2,071 7.9% 4,255 10.2% 150,637 10.7%
Built 1980 to 1989 1,115 4.3% 2,015 4.9% 103,539 7.4%
Built 1970 to 1979 3,662 14.0% 5,689 13.7% 199,487 14.2%
Built 1960 to 1969 3,697 14.1% 4,922 11.9% 141,706 10.1%
Built 1950 to 1959 3,298 12.6% 4,108 9.9% 141,925 10.1%
Built 1940 to 1949 1,444 5.5% 1,860 4.5% 70,413 5.0%
Built 1939 or earlier 7,908 30.2% 10,026 24.1% 354,815 25.2%
Total housing units 26,214 41,518 1,407,819
Source:American Community Survey 5-year Estimates (2020); City of Dubuque
Table 4: Owner and Rental unit Comparison
City of Dubuque Dubuque County lowa
Owner-Occupied 15,582 59% 28,382 68% 906,967 64%
Renter Occupied 8,569 33% 10,273 25% 366,974 26%
Source:American Community Survey 5-Year Estimates (2020)
Table 5: Housing Trend Comparison
City of Dubuque Dubuque County lowa
2010 2020 Change 2010 2020 Change 2010 2020 Change
Total Occupied
Housing Units 23,623 24,151 2.24% 36,787 38,655 5.1% 1,215,954 1,273,941 4.8%
Owner-
Occupied 15,878 15,582 -1.9% 27,493 28,382 3.2% 889,912 906,967 1.9%
Renter
Occupied 7,745 8,569 10.6% 9,294 10,273 10.5% 326,042 366,974 12.6%
Source:American Community Survey 5-Year Estimates (2010, 2020)
7 � Page
Page 647 of 668
Distressed Community Assessment
Building Permits
The City of Dubuque Economic Development Department provided building permit data for the most recent
three years(2019-2021). Single family/duplex permits saw a decrease over the last three years while multi-
family permits saw increased growth.
The three-year average for the housing permit volume accounted for 0.51%of the existing housing stock. This
average is well below the threshold outlined in the administrative rules which was 1%or less of the city's
currently available 26,214 housing stock.
Table 6: Issued Building Permits (2019-2021)
Year Single Family& Duplex Multi-Family Total Housing Percent of Total
Units Units Permits Housing
2019 72 8 80 0.31%
2020 40 80 120 0.46%
2021 40 160 200 0.76%
Average 51 83 133 0.51%
Source: City of Dubuque, Economic Development
Homeowner Vacancy Rate
To examine the City of Dubuque's vacancy rate, Dubuque County and the State of lowa were used as
comparisons.The American Community Survey(ACS) estimates show that the City of Dubuque, Dubuque
County, and the State of lowa all saw a slight decrease in vacancy rates of the 2018-2020 period.
The criterion for the WHTIP administrative rules considers a vacancy rate of one percent to be low and a
vacancy rate of two percent to be an acceptable rate.The City of Dubuque has consistently maintained a
vacancy rate below the 1%threshold.
Table 7: Comparison Homeowner Vacancy Rates (2018-2020)
Year City of Dubuque Dubuque County lowa
2018 0.9 0.7 1.5
2019 0.5 0.5 1.4
2020 0.5 0.6 1.3
Average 0.6 0.6 1.4
Source:ACS 5-Year Estimates (2018-2020)
8 � Pa � e
Page 648 of 668
Homeowner Unit Sales
The East Central lowa Association of Realtors provided home sales data from the Multiple Listing Service
(MLS).The data, shown in Table 8, shows an average of 927 units sold in Dubuque during the most recent
three-year period 2019-2021. For comparison,the Cedar Rapids Association of Realtors provided data on
Marion, and the Quad Cities Association of Realtors provided data on Bettendorf. Data from the two
communities is provided in Tables 9 and 10.The three communities have seen similar annual unit sale totals
and population sizes and therefore are fair comparisons for the purposes of this assessment. Compared to
Marion and Bettendorf, the City of Dubuque's volume of sales are a much smaller percentage of existing
housing units by over a percentage each year(2019-2021), indicating a shortage of available housing.
Table 8: Dubuque City Annual Volume of Sa/es (MLS)
Percent of Existing Housing
Year Residential Units Units
2019 846 3.2%
2020 944 3.6%
2021 992 3.8%
Source: MLS Database via East Central lowa Association of Rea/tors
Table 9: Marion Annual Volume of Sales (MLS)
Percent of Existing Housing
Year Residential Units Units
2019 775 4.7%
2020 826 5.0%
2021 869 5.3%
Source: MLS Database via Cedar Rapids Area Association of Realtors
Table 10: Bettendorf Annual Volume of Sales (MLS)
Percent of Existing Housing
Year Residential Units Units
2019 709 4.6%
2020 779 5.0%
2021 812 5.2%
Source: MLS Database via Quad Cities Area Association of Realtors
Selling Homeowner Units
During the most recent three-year period, Dubuque homes spent an average of 30 days on the market (DOM)
before selling. Following the WHTIP administrative rules, an average time of 90 days or less indicates a high
demand for available housing;The City of Dubuque's 3-year average illustrates a sustained, high demand for
housing in the community. Figure 2 shows the average DOM for lowa homeowner units, which illustrates the
large difference between the City of Dubuque and the state as a whole.
9 � Pa � P
Page 649 of 668
Table 11:Annual Average length of Time to Sell Homeowner Units
Year City of Dubuque
2019 40 DOM
2020 30 DOM
2021 20 DOM
3-Year Average 30 DOM
Source: MLS Database via East Central lowa Association of Realtors
so
70 63 68 65.5 66
62
60 58 —
50
50 — 43.5 —
40 37 —
30
20
10 —
0
2019 2020 2021
■Single-Family Detached ■Townhouse-Condo ■Combined Average
Figure 2: State of lowa Average Days on Market Until Sale
Source: lowa Association of Realtors, Statewide Monthly Report(2019-2021)
Rental Vacancy Rate
Dubuque County and the State of lowa and are used again here in comparison of with the City of Dubuque to
examine the magnitude of the City's annual average vacancy rate.The workforce housing program criteria
consider a rental vacancy of five percent or less to be a low vacancy rate.
While the State of lowa on average has a constant vacancy rate, the City of Dubuque and Dubuque County
have had fluctuating numbers, both areas had increased vacancy rates in 2019 and then saw a substantial
decrease in 2020. All three areas did have a rental vacancy rate that was higher than the five percent threshold
that is identified in the program guidelines.
Table 12:Annual Average Vacancy Rate - Rental
Year City of Dubuque Dubuque County lowa
2018 7.50% 6.60% 6.50%
2019 10.60% 9.20% 6.50%
2020 9.00% 7.90% 6.50%
3-Year Average 9.03% 7.90% 6.50%
Source:ACS 5-year Estimates (2018-2020)
10 � Page
Page 650 of 668
More recent data suggests that the vacancy rates may be decreasing in the future. As a part of the Volume III:
Dubuque City, city—lowa State Profile, Western Economic Services (WES) conducted the lowa Statewide
Rental Vacancy Survey with rental property managers in 2021. In the City of Dubuque, 26 surveys representing
1,159 rental units were collected.The vacancy rate was found to be substantially lower than what was
estimated using the ACS 2018-2020 data. The rental vacancy rate is broken down by type in Table 13.This data
serves to provide a more holistic picture of vacancy in the City of Dubuque.
Table 13: Western Economic Services Rental Vacancy Survey Results by Type
Unit Type Total Units* Vacant Units Vacancy Rate
Single-Family 26 1 3.8%
Apartments 1,123 14 1.2%
Mobile Homes 0 0 0%
"Other" Units 10 0 0%
Don't know 0 0 0%
Total 1,159 15 1.3%
Source: Western Economic Services, 2021 Survey of Rental Properties (Volume 111: Dubuque City,
city— lowa State Profile)
Rental Lease Units
The average length of time it takes to lease rental units in a community can indicate high demand for rental
housing in a particular community. In accordance with the program's guidelines, an average time of 30 days or
less on the market indicates a high demand for available housing.
Using the 2021 Survey of Rental Properties conducted by Western Economic Services, the 26 surveys
representing 1,159 rental units found there was an absorption rate of 17 indicating a slightly above average
demand, this is a sharp decrease from 2019 where the absorption rate was exceptionally high,this variability
may be attributed to the difference in sample size between the 2019 and 2021 surveys.
Table 14: Western Economic Services Rental Absorption Rate
Year Completed Surveys Total Units Vacancy Rate Absorption Rate
2019 71 2,419 4.3% 30.3
2021 26 1,159 1.3% 17
Source: Western Economic Services, 2021 Survey of Rental Properties (Volume 111: Dubuque City,
city— lowa State Profile)
11 � Page
Page 651 of 668
Housing Costs and Affordability
Over the past three years the cost of housing in Dubuque has increased significantly.The data in table 15
shows that the average sale price of homes sold in Dubuque increased by more than $25,000 between 2019
and 2021. Rising housing prices can place an additional cost burden on households within the community.This
report estimates housing affordability using a Housing Affordability Index methodology developed by the
National Association of Realtors (NAR).The index measures the degree to which a typical family can afford the
monthly mortgage payments on a typical home. It should also be noted that the qualifying income is calculated
assuming a 20% down payment,which is above the national average. According to NAR data,the average
down payment for first time buyers was 7% and 17%for repeat buyers in 2021.
The formula of the Housing Affordability Index(HA1J:
HAI = (Median Family Income/Qualifying Income) * 100
City of Dubuque's HAI:
118.6= ($54,938/$46,312.77) * 100
Using local data on median home values and interest rates to calculate the qualifying income,the City of
Dubuque's HAI is 118.6.This HAI indicates that the typical 2020 Household in Dubuque has 118.6 percent of
the income necessary to purchase a home at the median value.The National Association of Realtors (NAR)
provides the monthly HAI estimates for the Midwest, in June 2020 the HAI the average was 215. This shows
that housing affordability in Dubuque falls below the Midwest regional average. However, it is acknowledged
that the average qualifying income was calculated for the year 2021,which is a limitation of this index
calculation when compared to 2020 census data. More information on the NAR methodology can be found at:
https://www.nar.realtor/research-and-statistics/housin�-statistics/housing-affordability-index/methodology
Table 15:Average Sale Price City of Dubuque (2019-2021)
Year Housing Units Sold Average Sale Price Percent Change from Previous Year
2019 846 $ 211,209 11.40%
2020 944 $ 212,684 0.70%
2021 992 $ 236,390 11%
Source: MLS Database Via East Central lowa Association of Realtors
Table 16: City of Dubuque Housing Affordability(2010 & 2019)
Data Less Than 30% 31%-50% Above 50% Not Computed
Source %Of %Of %Of %Of Total
Households Total Households Total Households Total Households Total
2010
Five-year
ACS 16,643 70.50% 4,040 17.10% 2,610 11% 330 1.40% 23,623
2019 Five
Year ACS 16,778 71% 3,396 14.40% 2,991 12.7% 455 1.90% 23,620
12 � ' age
Page 652 of 668
Source: Western Economic Services, Total Cost Burden and Severe Cost Burden (Volume lll:
Dubuque City, city— lowa State Profile)
Table 16 gives a more granular view of housing affordability in Dubuque. In 2019, 14.4%of household were
spending between 31%-50%of their income on housing and 12.7%were spending more than 50%of their
income on housing.
Table 17: Selected Monthly Owner Costs as Percentage of Household Income (SMOCAPI)
City of Dubuque Dubuque County lowa
Housing units with a mortgage g,522 17,769 545,689
(excluding units where SMOCAPI cannot be
computedJ
Estimate Percent Estimate Percent Estimate Percent
Less than 20.0 percent 5,056 53% 9,701 55% 305,701 56%
20.0 to 24.9 percent 1,576 17% 2,800 16% 85,256 16%
25.0 to 29.9 percent 869 9% 1,673 9% 48,949 9%
30.0 to 34.9 percent 565 6% 1,021 6% 29,837 5%
35.0 percent or more 1,456 15% 2,574 14% 75,946 14%
Source:ACS 5-Year Estimates (2020)
Table 17 shows the selected monthly owner costs as percentage of household income (SMOCAPI) across the
City of Dubuque, Dubuque County, and the State of lowa.This shows the percentage of owner income that is
going towards housing for owners who have a mortgage.The City of Dubuque has just slightly more
households that are paying 35%or more of their income on housing compared to the state average.
Table 18: Gross Rent as a Percentage of Household Income (GRAPI)
City of Dubuque Dubuque County lowa
Occupied units paying rent (excluding g,569 9,656 338,023
units where GRAPI cannot be computedJ
Estimate Percent Estimate Percent Estimate Percent
Less than 20.0 percent 2,633 31% 3,107 32% 108,091 32%
20.0 to 24.9 percent 1,156 13% 1,420 15% 47,743 14%
25.0 to 29.9 percent 731 9% 935 10% 37,736 11%
30.0 to 34.9 percent 598 7% 705 7% 27,083 8%
35.0 percent or more 3,451 40% 3,489 36% 117,370 35%
Source:ACS 5-Year Estimates (2020)
Table 18, breaks down the percentage of household income that renters are paying in each jurisdiction. It can
be seen that the percentage of renters in Dubuque that are paying 35%or more is 4-5% larger than the
Dubuque County and the State of lowa respectively.
13 � Page
Page 653 of 668
Unemployment Rate
Table 19 shows the City of Dubuque's unemployment rates in comparison to Dubuque County and the State of
lowa. During the 2019-2021,the unemployment rates in the City of Dubuque, MSA, Dubuque County, and
lowa have been consistently below the national average during this same time frame. Each jurisdiction saw a
very large jump in unemployment in 2020 due to Covid-19.
Per the 2021 statistics,the City of Dubuque still has not returned to its pre-covid unemployment number
though it has seen significant improvement from 6.5% in 2020 to 4.2% in 2021. Still,the significant decrease in
unemployment in just a year, despite the Covid-19 pandemic, shows the high demand for jobs within the City
of Dubuque. A strong local economy is likely an important factor behind recent housing price increases.
Table 19:Annual Average Unemployment (Not Seasonal/y Adjusted)
Year City of Dubuque Dubuque County lowa
2019 2.7% 2.7% 2.6%
2020 6.5% 5.8% 5.1%
2021 4.2% 4.0% 4.2%
3-Year Average 4.5% 4.1% 4.0%
Source: U.S. Department of Labor, Bureau of Labor Statistics
Laborshed Wage
The final criteria that is needed for this study is the laborshed wage analysis.The lowa Economic Development
Authority(IEDA) calculates laborshed wages based on the employment area's actual commuting patterns.
Table 20 shows IEDA's FY 2022 wage requirements for the City of Dubuque and comparable lowa communities
Table 20: Laborshed Wage Comparison
City County 120%Wage 100%Wage 90%Wage
Dubuque Dubuque $ 25.36 $ 21.13 $ 19.02
Sioux City Woodbury $ 24.67 $ 20.56 $ 18.50
Council Bluffs Pottawattamie $ 27.53 $ 22.94 $ 20.65
Waterloo Black Hawk $ 24.01 $ 20.01 $ 18.01
Source: lowa Economic Development Authority
Annual Salaries in Dubuque fall below the statewide average and the city's median salary ranks in the lower
half of lowa's metropolitan areas. Table 21 lists the median annual salary for the State of lowa and its
metropolitan areas. Lower annual salaries in Dubuque could negatively impact housing affordability in the
community.
14 � Page
Page 654 of 668
Table 21: Median Annual Salaries 2021
City Median Annual Salary(2021)
Council Bluffs $75,500
Cedar Rapids $74,500
Waterloo $70,000
State of lowa $70,000
lowa City $68,500
Ames $65,000
Dubuque $65,000
Davenport $65,000
Sioux City $62,000
Des Moines $61,000
Source: lowa Workforce Development
The laborshed analysis also shows that there is a large gap in median wages and education attainment
between the different industries in the City of Dubuque.Table 21 presents each industry's median hourly wage
and median annual salary. Figures 3-4 show the lowest median hourly wage that workers are willing to accept.
Finance, Construction, and Manufacturing had the highest hourly wages,while Health Care and Professional
Services had the highest salaries.
Table 22: Education of Available Labor by Industry
Some
Education Trade Bachelor's
Industry Education geyond HS, No Certification/Vocational Associate Degree or
Beyond HS Degree Training Degree qbove
Obtained
Agriculture, Forestry, & ** ** ** ** **
Mining
42.9% 28.6% 14.3% 0.0% 0.0%
Construction
100.0% 15.4% 0.0% 7.7% 76.9%
Education
Entertainment& 66.7% 0.0% 0.0% 0.0% 66.7%
Recreation
Finance, Insurance, & 85.7% 14.3% 0.0% 14.3% 57.1%
Real Estate
Government& Public 100.0% 0.0% 0.0% 0.0% 100.0%
Administration
15 �
Page 655 of 668
Healthcare &Social 84.0% 8.0% 4.0% 16.0% 56.0%
Services
Manufacturing 64.5% 22.6% 3.2% 12.9% 25.8%
83.4% 33.3% 16.7% 16.7% 16.7%
Personal Services
Professional Services �0.5% 17.6% 0.0% 0.0% 52.9%
Transportation, g4.7% 46.2% 7.7% 0.0% 30.8%
Communication, &
Utilities
Wholesale & Retail
Trade �2•3% 30.6% 5.6% 16.7% 19.4%
Top percentages among industries per education level are highlighted in the table. **Insufficient survey data/refused
Source: lowa Workforce Development, City of Dubuque Laborshed Report(2021)
Table 23: Median Hourly Wage &Annual Salary
Industry Median Hourly Wage Median Annual Salary
Agriculture, Forestry, & Mining ** **
Construction $ 21.08 **
Education $ 14.55 $ 55,000.00
Entertainment& Recreation $ 15.00 **
Finance, Insurance, & Real Estate $ 21.52 $ 60,000.00
Government& Public Administration ** **
Healthcare &Social Services $ 15.50 $ 67,000.00
Manufacturing $ 20.00 $ 60,000.00
Personal Services ** **
Professional Services $ 11.35 $ 68,500.00
Transportation, Communication, & Utilities $ 19.78 $ 54,146.00
Wholesale & Retail Trade $ 13.00 $ 48,000.00
Source: lowa Workforce Development, City of Dubuque Laborshed Report(2021)
16 � ^ � �- �
Page 656 of 668
�"�leciar-lo��l;�'siage
HourlyWages( -,e e..___ -___-____ �_o•:;est'Azcar�ouriy';uage,4'uillingto�ccE�=
=— -= 519-25 520-00
-- �-' S16E=
515-88
514_73
u _ �
� ''__' '_ �
�
T
J
O
� _ _
___._., . � �� . � ��
q •�
a
°1 ••
�
�
5J�:
._c _3 =rv=-.:7Ti'_:'S'i:= I'c'S=eri519'A7 F-Od.�-ie�' �:_orit'.,=:r'. - .v5°.iorc. _51Eic^�F.cc:e�C _cr:�iCE
�.='G:�" ,.[^ll'1�rd:l�:�� c � ...:� cl��.'�":I^i_ -� �:'1=�'�S�i��'1.�.=�
Figure 3: /owa Workforce Development's Laborshed Analysis by Occupational Category (Hourly)
Source: lowa Workforce Development, City of Dubuque Laborshed Report(2021)
■ =_� - - _-<
Hourly 4'Jages�=_;:-,:::.� ----_ ---- �_�..�_. .�_�����-_ .>>= , :-_-__��:
�,_3-; szs o0
- szz%s
519 31 519.00
515-00 518 00
51'.00
o� � 510 GC 516_00 �
� � � S15 G0
? _1�`„ 513 00 � �
x
��
c . ��
�
a �l'�',S�� �•
�
" �� ��
SC-00
?.gricut��e,�.. Corstr�eion °cucato� E�tzK�irr-iznt Fi�an�_e -zalch Jznuf�et�r�.. Pe.;o��l ProtE�sio�=_I P�b �_ T�anspo-c�t�.. '�Jrozc=le3
Figure 4: lowa Workforce DevelopmenYs Laborshed Analysis by Industry Category (Hourly)
Source: lowa Workforce Development, City of Dubuque Laborshed Report(2021)
*Visualizations of Annual Salary Data were unavailable on the lowa Workforce Development website during
the writing of this report.
17 � Page
Page 657 of 668
Conclusion
In accordance with the WHTIP's administrative rule,this study's goal was to evaluate whether or not the City
of Dubuque has a severe housing shortage relative to demand, low vacancy rates, or rising housing costs
combined with low unemployment.
The data and subsequent analysis included in this report show a high need for housing units within the City of
Dubuque. Housing permits within the City of Dubuque have increased significantly between 2019-2021,yet
new construction only makes up 0.76%of the existing of the total housing in Dubuque. An exceptional housing
demand is marked by statistics regarding the days on market (DOM);from 2019-2021 there was an average
DOM of 30 days which is significantly less than the state average at the same time. Cost overburdened renters
and relatively low unemployment despite the Covid-19 pandemic, show a sustained need for workforce
housing in the City of Dubuque.
By submitting this report, we request your consideration for the City of Dubuque to gain the designation as a
distressed housing community under the IEDA Workforce Housing Tax Incentive Program.
18 � Page
Page 658 of 668
THE NEED IN NVMBERS
�
New housing units New units built by 2030,
needed by 2030 following present trend
Source: lowa State Profile, Volume III: Dubuque City, 14.56; lowa Dashboard
.
Page 659 of 668