Proposed Revised Housing Incentive ProgramsCity of Dubuque
City Council
ACTION ITEMS # 2.
Copyrighted
September 8, 2026
ITEM TITLE: Proposed Revised Housing Incentive Programs
SUMMARY: City Manager recommending City Council approve the
proposed revisions to the City's housing creation incentive
program, with an effective date of January 1, 2027.
SUGGUESTED Receive and File; Approve
DISPOSITION:
ATTACHMENTS:
1. MVM Memo Proposed Revised Housing Incentive Programs - Updated 9.4.26
2. Staff Memo - Updated 9.4.26
3. 2022 Dubuque Housing Need Assessment
4. 2025 Dubuque County Housing Needs Assessment
5. Housing Incentives - New Units Handout - Aug 19 2026
6. Housing Availability Info - August 2026
7. Income -Targeted Housing Data - August 2026
8. Dubuque Housing Employer Visit Data Summary - August 2026
9. Housing Alignment - GDDC Analysis - August 2026
10. Presentation -Uploaded 9.8.26
THE CITY OF
DUB E-E
Masterpiece on the Mississippi
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Proposed Revised Housing Incentive Programs
DATE: September 3, 2026
Dubuque
All -America Ciq
IIIr
II
2007.2012.2013
2017*2019
Economic Development Director Jill Connors is recommending City Council approve the
proposed revisions to the City's housing creation incentive program, with an effective
date of January 1, 2027. The proposed changes will allow the City to continue
supporting affordable and workforce rental housing outside of downtown, support all
types of owner -occupied housing throughout the community, maintain incentives that
are important to downtown redevelopment, and more strategically target public
resources as housing market conditions evolve.
Beginning in 2022, the City Council approved more robust housing incentive packages
designed to encourage housing construction across all price points, including both
market -rate and affordable/workforce housing. At the time, the expanded incentives
were intended to address the need for additional housing of all types and to encourage
development in a market where new construction was challenging to achieve.
The program has been successful in generating significant new housing activity. Over
the past four years, a total of 2,598 units has been approved, are under review, are
under construction, or have been completed in Dubuque. However, only 390 of those
units are considered workforce/affordable. This indicates that while the city has made
meaningful progress in increasing the overall supply of housing, the need for housing
that is affordable to working households remains significant.
The continued need for "missing middle" housing — housing that is affordable to working
households but is not necessarily subsidized or income -restricted — suggests that the
City should periodically reassess where its limited incentive resources can have the
greatest impact. With the overall housing supply having increased substantially since
2022, it is appropriate to consider whether the same level of public incentive is still
necessary for every type and location of housing development.
Staff is proposing a revised incentive "menu" that would target City housing incentives
more strategically. Under the proposed changes, incentives for market -rate rental
housing outside the Greater Downtown Urban Renewal Area would be eliminated, while
incentives for affordable/workforce rental housing would continue, as well as for market-
rate owner -occupied housing. Existing incentives within the Downtown Urban Renewal
Area would also remain unchanged.
The intent is not to discourage market -rate rental housing construction outside of
downtown, but rather to recognize that the City's housing needs and development
conditions have changed since the current incentive structure was established. Where
the private market is increasingly capable of supporting market -rate rental housing
without public assistance, City incentives can instead be focused on housing types and
locations where an incentive is more likely to make a meaningful difference.
This approach also benefits the City's long-term property tax base. When a property is
included in a Tax Increment Taxing (TIF) district, its increased value is "captured" for
the district rather than counted as new valuation on the City's tax rolls. Market -rate
housing built outside the Downtown Urban Renewal Area avoids this capture, so its full
value counts as new taxable growth without a city incentive. This matters more under
Iowa's new property tax legislation (Senate File 2472), which caps most annual growth
in city general fund levies at 2% of the prior year's property tax dollars but excludes new
valuation from that cap. Any valuation included in a TIF or abatement district is not
counted as new growth when it is released from the district. Declining to offer the TIF
and Urban Renewal incentive preserves that benefit for the City's general fund instead
of diverting it to a TIF fund.
No changes are proposed to the current housing incentives within the Downtown Urban
Renewal Area. Downtown continues to present different development challenges,
particularly the rehabilitation and adaptive reuse of existing buildings and the
development of infill projects. Maintaining the current incentives will continue to support
these projects, which contribute to increased residential density, a more walkable and
bikeable downtown, use of existing infrastructure like sewer, water and electricity, use of
existing public transportation routes, available public parking, and the continued
revitalization of the area.
Maintaining the downtown incentives is also important as the city prepares for
significant nearby investment, including but not limited to the University of Dubuque's
new John and Alice Butler College of Osteopathic Medicine. Increasing the number and
variety of housing options within walking distance of downtown and other major
employment, educational, and cultural destinations will help support these investments
and strengthen the downtown as a place to live, work, and visit.
This continued focus on housing is also supported by feedback from Dubuque
employers. The Greater Dubuque Development Corporation's multi -year employer
interview program, which engages approximately 250 to 305 employers annually, has
shown a consistent increase in the importance of housing availability and affordability.
Housing access moved from the third most frequently identified concern in 2020-21 to
the number one concern in each of the past three years. The employer feedback, along
with ratings of community services and findings from the 2023 Next Gen survey of
2
Dubuque -area residents age 30 and under, reinforces the need to continue increasing
the availability of housing options that are attainable to the local workforce.
The new menu of incentives will provide the following:
Outside the Downtown Urban Renewal Area
• Market -rate owner -occupied housing — Retain the current incentive, which is a
10-year public infrastructure TIF.
• Market -rate rental housing — Remove incentives entirely.
• Affordable/workforce owner -occupied housing — Maintain the existing 15-year TIF
incentive.
• Affordable/workforce rental housing — Maintain the existing 15-year TIF incentive.
Within the Downtown Urban Renewal Area
• Maintain all existing housing incentives as currently structured, including the 15-
year TIF incentive.
The proposed changes would therefore shift the City's housing incentives from a broad -
based approach toward a more targeted strategy. Outside of downtown, public
incentives would be reserved for affordable/workforce housing and market -rate owner -
occupied homes, while market -rate rental housing would be allowed to proceed without
City housing incentives. Downtown would remain an exception because of the
additional challenges and community benefits associated with redevelopment,
rehabilitation, infill, and increased residential density.
Staff will continue to monitor the market for market -rate rental development, including
both senior and general -occupancy housing. Staff can return to the City Council with
recommendations for further changes if market conditions indicate that additional or
different incentives are warranted in the future.
Staff recommends that the revised incentive menu take effect January 1, 2027. This
effective date provides a reasonable transition period for projects that are already being
planned or have incurred significant costs in reliance on the current incentive structure.
Projects submitted prior to January 1, 2027, would continue to be considered under the
existing incentive menu.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
MCVM:sv
k�4
Micliael C. Van Milligen
3
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Jill Connors, Economic Development Director
Ian Hatch, Assistant Economic Development Director
Wally Wernimont, Planning Services Director
Madeline Haverland, Housing & Community Development Director
12
THE CITY OF
DUB E
Masterpiece on the Mississippi
Dubuque
Economic Development
Department
1300 Main Street
AII-Anerig90
Dubuque, Iowa 52001-4763
1 I
Office (563) 589-4393
I III®
TTY (563) 690-6678
http://www.cityofdubuque.org
2007-2012.2013
2017*2019
TO: Michael C. Van Milligen, City Manager
FROM: Jill M. Connors, Economic Development Director
SUBJECT: Proposed Revised Housing Incentive Programs
DATE: September 3, 2026
INTRODUCTION
The purpose of this memorandum is to provide an update on housing construction in
Dubuque and recommend changes to the City's "menu" of housing creation incentives. The
proposed changes are intended to better align the City's housing incentives with current
housing needs and market conditions, while continuing to support housing development in
areas where public incentives remain important to achieving broader community
development goals.
I_TO]"'O]:00] Ll I llf�
Beginning in 2022, the City Council approved more robust housing incentive packages
designed to encourage housing construction across all price points, including both market -
rate and affordable/workforce housing. At the time, the expanded incentives were intended
to address the need for additional housing of all types and to encourage development in a
market where new construction was challenging to achieve.
The program has been successful in generating significant new housing activity. Over the
past four years, a total of 2,598 units have been approved, are under review, are under
construction, or have been completed in Dubuque. However, only 390 of those units are
considered workforce/affordable. This indicates that while the City has made meaningful
progress in increasing the overall supply of housing, the need for housing that is affordable
to working households remains significant.
The continued need for "missing middle" housing — housing that is affordable to working
households but is not necessarily subsidized or income -restricted — suggests that the City
should periodically reassess where its limited incentive resources can have the greatest
impact. With the overall housing supply having increased substantially since 2022, it is
appropriate to consider whether the same level of public incentive is still necessary for
every type and location of housing development.
DISCUSSION
Staff is proposing a revised incentive "menu" that would target City housing incentives more
strategically. Under the proposed changes, incentives for market -rate rental housing
outside the Greater Downtown Urban Renewal Area would be eliminated, while incentives
for affordable/workforce housing would continue, as well as for market -rate owner -occupied
housing. Existing incentives within the Downtown Urban Renewal Area would also remain
unchanged.
The intent is not to discourage market -rate housing construction outside of downtown, but
rather to recognize that the City's housing needs and development conditions have
changed since the current incentive structure was established. Where the private market is
increasingly capable of supporting market -rate housing without public assistance, City
incentives can instead be focused on housing types and locations where an incentive is
more likely to make a meaningful difference.
This approach also benefits the City's long-term property tax base. When a property is
included in a TIF district, its increased value is "captured" for the district rather than counted
as new valuation on the City's tax rolls. Market -rate housing built outside the Downtown
Urban Renewal Area avoids this capture, so its full value counts as new taxable growth
without a City incentive. This matters more under Iowa's new property tax legislation
(Senate File 2472), which caps most annual growth in city general fund levies at roughly
2% of the prior year's property tax dollars but excludes new valuation from that cap.
Declining to offer the TIF incentive preserves that benefit for the City's general fund instead
of diverting it to a TIF fund.
No changes are proposed to the current housing incentives within the Downtown Urban
Renewal Area. Downtown continues to present different development challenges,
particularly the rehabilitation and adaptive reuse of existing buildings and the development
of infill projects. Maintaining the current incentives will continue to support these projects,
which contribute to increased residential density, a more walkable downtown, and the
continued revitalization of the area.
Maintaining the downtown incentives is also important as the City prepares for significant
nearby investment, including but not limited to the University of Dubuque's new Butler
College of Osteopathic Medicine. Increasing the number and variety of housing options
K
within walking distance of downtown and other major employment, educational, and cultural
destinations will help support these investments and strengthen the downtown as a place
to live, work, and visit.
This continued focus on housing is also supported by feedback from Dubuque employers.
The Greater Dubuque Development Corporation's multi -year employer interview program,
which engages approximately 250 to 305 employers annually, has shown a consistent
increase in the importance of housing availability and affordability. Housing access moved
from the third most frequently identified concern in 2020-21 to the number one concern in
each of the past three years. The employer feedback, along with ratings of community
services and findings from the 2023 Next Gen survey of Dubuque -area residents age 30
and under, reinforces the need to continue increasing the availability of housing options
that are attainable to the local workforce.
NEW MENU
The new menu will provide the following:
Outside the Downtown Urban Renewal Area
• Market -rate owner -occupied housing — Retain the current incentive, which is a 10-
year public infrastructure TIF.
• Market -rate rental housing — Remove incentives entirely.
• Affordable/workforce owner -occupied housing — Maintain the existing 15-year TIF
incentive.
• Affordable/workforce rental housing — Maintain the existing 15-year TIF incentive.
Within the Downtown Urban Renewal Area
• Maintain all existing housing incentives as currently structured, including the 15-year
TIF incentive.
The proposed changes would therefore shift the City's housing incentives from a broad -
based approach toward a more targeted strategy. Outside of downtown, public incentives
would be reserved for affordable/workforce housing and market -rate owner -occupied
homes, while market -rate rental housing would be allowed to proceed without City housing
incentives. Downtown would remain an exception because of the additional challenges and
community benefits associated with redevelopment, rehabilitation, infill, and increased
residential density.
PHASING/EFFECTIVE DATE
Staff will continue to monitor the market for market -rate rental development, including both
senior and general -occupancy housing. Staff can return to the City Council with
3
recommendations for further changes if market conditions indicate that additional or
different incentives are warranted in the future.
Staff recommends that the revised incentive menu take effect January 1, 2027. This
effective date provides a reasonable transition period for projects that are already being
planned or have incurred significant costs in reliance on the current incentive structure.
Projects submitted prior to January 1, 2027, would continue to be considered under the
existing incentive menu.
RECOMMENDATION
I respectfully recommend that the City Council approve the proposed revisions to the City's
housing creation incentive program, with an effective date of January 1, 2027. The
proposed changes will allow the City to continue supporting affordable and workforce
housing, maintain incentives that are important to downtown redevelopment, and more
strategically target public resources as housing market conditions evolve.
CC: Madeline Haverland, Housing and Community Development Director
Wally Wernimont, Planning Services Director
4
=�1 !'"i�i
Dubuque_-
Housing Needs
Assessment
....................................
AP R I L, 2022
ON BEHALF OF THE
CITY OF DUBUQUE, IA
0
Acknowledgements & Contributions
East Central Iowa 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
Ian Hatch, Assistant Economic Development Director
21 age
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
31Page
Introduction
The City of Dubuque is located in northeastern Iowa, 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 1 P a g e
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 Iowa 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 Iowa 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 Iowa 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 Iowa 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
Iowa Economic Development Authority; Iowa Workforce
Development
51Page
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%.
70,000
60,000
50,000
40,000
30,000
20,000
10,000
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
1 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 Iowa. Table 4 compares the number of renter
and owner -occupied units in the City of Dubuque, Dubuque County, and the State of Iowa. Table 5
shows how the proportions of renter and owner -occupied units have changed in these areas between
61 age
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 Iowa.
Table 3: Housing Stock Structure Age Comparison
Label
Estimate
Percent
Estimate
Percent
Estimate
Percent
Year Structure Built
City of Dubuque
Dubuque County
State of Iowa
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
Iowa
Owner -Occupied
15,582
59%
28,382
68%
9061967
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
Iowa
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
1 7,745
8,569
1 10.6%
1 9,294
1 10,273
10.5%
326,042
366,974
12.6%
Source: American Community Survey 5-Year Estimates (2010, 2020)
71Page
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
Units
Multi -Family
Units
Total Housing
Permits
Percent of Total
Housing
2019
72
8
80
0.31%
2020
40
80
120
0.46%
2021
1 40
1 160
1 200
1 0.76%
Average
1 51
83
133
Source: City of Dubuque, Economic Development
Homeowner Vacancy Rate
To examine the City of Dubuque's vacancy rate, Dubuque County and the State of Iowa were used as
comparisons. The American Community Survey (ACS) estimates show that the City of Dubuque, Dubuque
County, and the State of Iowa 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
Iowa
2018
0.9
0.7
1.5
2019
0.5
0.5
1.4
2020
0.5
0.6
1.3
Average
1 0.6
0.6
1.4
Source: ACS 5-Year Estimates (2018-2020)
81Page
Homeowner Unit Sales
The East Central Iowa 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 Sales (MLS)
Year
Residential Units
Percent of Existing Housing
Units
2019
846
3.2
2020
944
3.6%
2021
992
3.8%
Source: MLS Database via East Central Iowa Association of Realtors
Table 9: Marion Annual Volume of Sales (MLS)
Year
Residential Units
Percent of Existing Housing
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)
Year
Residential Units
Percent of Existing Housing
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 Iowa homeowner units, which illustrates the
large difference between the City of Dubuque and the state as a whole.
El
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 Iowa Association of Realtors
80
70 63
60
50
40
30
20
10
0
68 65.5 66
62
58
37
411
in son old
2019 2020 2021
■ Single -Family Detached ■ Townhouse -Condo ■ Combined Average
Figure 2: State of Iowa Average Days on Market Until Sale
Source: Iowa Association of Realtors, Statewide Monthly Report (2019-2021)
43.5
Rental Vacancy Rate
Dubuque County and the State of Iowa 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 Iowa 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
Iowa
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 1 Page
More recent data suggests that the vacancy rates may be decreasing in the future. As a part of the Volume III:
Dubuque City, city — Iowa State Profile, Western Economic Services (WES) conducted the Iowa 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 Ill: Dubuque City,
city — Iowa 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 Ill: Dubuque City,
city — Iowa State Profile)
111 age
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 (HAI):
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.na r.rea Itor/research-a nd-statistics/housing-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 Iowa 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 1 Page
Source: Western Economic Services, Total Cost Burden and Severe Cost Burden (Volume 111:
Dubuque City, city — Iowa 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
Iowa
Housing units with a mortgage
(excluding units where SMOCAPI cannot be
computed)
9,522
17,769
545,689
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 Iowa. 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
Iowa
Occupied units paying rent (excluding
units where GRAPI cannot be computed)
8,569
9,656
338,023
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%
1 37,736
11%
30.0 to 34.9 percent
598
7%
705
7%
27,083
80
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 Iowa respectively.
13 1 age
Unemployment Rate
Table 19 shows the City of Dubuque's unemployment rates in comparison to Dubuque County and the State of
Iowa. During the 2019-2021, the unemployment rates in the City of Dubuque, MSA, Dubuque County, and
Iowa 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 Seasonally Adjusted)
Year
City of Dubuque
Dubuque County
Iowa
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 Iowa 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 Iowa 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: Iowa Economic Development Authority
Annual Salaries in Dubuque fall below the statewide average and the city's median salary ranks in the lower
half of Iowa's metropolitan areas. Table 21 lists the median annual salary for the State of Iowa and its
metropolitan areas. Lower annual salaries in Dubuque could negatively impact housing affordability in the
community.
14 1 Page
Table 21: Median Annual Salaries 2021
City
Median Annual Salary (2021)
Council Bluffs
$75,500
Cedar Rapids
$74,500
Waterloo
$70,000
State of Iowa
$70,000
Iowa City
$68,500
Ames
$65,000
Dubuque
$65,000
Davenport
$65,000
Sioux City
$62,000
Des Moines
$61,000
Source: Iowa 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
Education
Associate
Industry
Beyond HS, No
Certification/Vocational
Degree or
Beyond HS
Degree
Degree
Training
Above
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 1
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
70.5%
17.6%
0.0%
0.0%
52.9%
Professional Services
Transportation,
84.7%
46.2%
7.7%
0.0%
30.8%
Communication, &
Utilities
Wholesale & Retail
72.3%
30.6%
5.6%
16.7%
19.4%
Trade
Top percentages among industries per education level are highlighted in the table. **Insufficient survey data/refused
Source: Iowa 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: Iowa Workforce Development, City of Dubuque Laborshed Report (2021)
16 1 Page
Median Hourly Wage
Hourly VJages (Data released:August2021): Lowest Median Hourly Wage, WillingtoAccept
$20.19 $19.25 $20.00
- 516-88
$15.88
$14.73
x
5S 00
$0.00
Clerical and Administrative Managerial and Production, Construction, Professional, Sales and Relate -
Support Administrative and Material Moving ='a raprofessi oral, an..
Figure 3: Iowa Workforce Development's Laborshed Analysis by Occupational Category (Hourly)
Source: Iowa Workforce Development, City of Dubuque Laborshed Report (2021)
Hourly Wages (Data released.-Auyust2021):
4» 7c
m $20.00
m
515.00
x
a 510.00
Median Hourly Wage
Lowest Median Hourly Wage, Willing to Accept
523.75 $25.00
$15.00
$5.00
-.griculture/.. Construction Education Entertainment Finance, Health Manufacturi.. Personal Professional Public Transportati.. Wholesale&
andRecrea.. Insuranc.. Care/Soci.. Services Services Administratior Retail Trade
Figure 4: Iowa Workforce Development's Laborshed Analysis by Industry Category (Hourly)
Source: Iowa Workforce Development, City of Dubuque Laborshed Report (2021)
*Visualizations of Annual Salary Data were unavailable on the Iowa Workforce Development website during
the writing of this report.
17 1 Page
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 1 Page
October 2025
Prepared by:
East Central Intergovernmental
Association
7600 Commerce Park
Dubuque, Iowa 52001
Prepared for:
Greater Dubuque Development
Corporation
900 Jackson St, Suite 109
Dubuque, Iowa 52002
1
Greater Dubuque
El
Contents
1. Introduction..............................................................................................................3
2. Demographic Trends..................................................................................................6
3. Economic Trends.....................................................................................................12
4. Housing Trends.......................................................................................................21
5. Housing Market.......................................................................................................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
1. Introduction
Greater Dubuque Development Corporation has contracted with the East Central Intergov-
ern mental Association (ECIA) to produce a housing needs assessment for Dubuque County,
Iowa.
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 assessment will provide a macro level assessment of housing in Dubuque County, offer-
ing a broad perspective that examines overarching trends and systematic factors rather than
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 Iowa, 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 local governments serving a five -county area in eastern Iowa 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
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 healthy vacancy 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 Housing Market.
October 2025 4
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
2. Demographic Trends
Dubuque County Overview
Dubuque County is located in northeast Iowa
along the Mississippi River in a tri-state area
that borders Illinois and Wisconsin. The
county's 2020 decennial census population
was 99,266, representing a six percent in-
crease since 2010. Dubuque was the first
area in what eventually became the State of
Iowa to be settled by Europeans. Early set-
tlers were drawn to the area by lead mining,
trading, and river transportation. Today's
economy is driven by a diverse collection of
industries including healthcare and manufac-
turing.
Dubuque County is home to 21 incorporated
cities. The city of Dubuque is the county's
most populous with just under 60,000 resi-
dents at the 2020 census. The next largest in-
cludes a group of six cities with populations
between 1,000 and 6,000. The remaining
communities have populations under 400, in-
cluding six with fewer than 100. Approxi-
mately 80,000 Dubuque County residents live
in incorporated cities, while the remaining
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.
Table 2.1. Dubuoue Countv Population
City
Population
Dubuque
59,667
Asbury
5,943
Dyersville
4,477
Cascade
2,386
Epworth
2,023
Peosta
1,908
Farley
1,766
New Vienna
382
Worthington
382
Holy Cross
356
Luxemburg
245
Rickardsville
202
Sherill
189
Centralia
116
Bernard
114
Sageville
95
Zwingle
84
Balltown
79
Graf
76
Bankston
23
Durango
20
City Total
80,533
Unincorporated Population
18,733
Total County Population
99,266
October 2025 6
Dubuque County
BaTcv,ii
71Sherrill
Luxemburg
Holy Cross
Rickardsville
3
Durango
New Vienna
Sageville
D
Dubuque
Bankston
Asbury
Dyersville
Graf
4
CC,ep�ntralia
20 52 rley EpWorth "•eosta 52
20 52
Worthington
52
'136 i
151
61
/
Cascade
Bernard
Zwingle
A 0 2.5 5
Legend
I Miles
O County Boundary
City Boundary
N Map created by ECIA, 2025
Figure 2.1. Dubuque County Map
Population Change
Dubuque County's population has grown stead ilyfor 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
Dubuque County Historical Population
120,000
100,000 y = 4499.1 x + 22543
80,000
60,000
40,000
20,000
0
�O �O 10 �O �O DO ,�O �O �O �O �O 6O 0� 56O CP
Figure 2.2. Dubuque County Historical Population
Source: US Census Bureau, Decennial 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 County with 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 86403 89,143 93,653
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
18, 503
0 7,876 10,541 10,307 11,856
15,161
1970 1980 1990 2000 2010 2020
-City of Dubuque Cities 1 K+ Small Cities and Unincorp Dubuque County
Figure 2.3. Dubuque County Historical Population with Sub Areas
Source: US Census Bureau, Decennial Census
October 2025 8
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
2,951 ■ Male
30 to 34 years
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 years
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 County Age and Sex, 2020
Source: US Census Bureau, Decennial 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
Table 2.2. Dubuque County Race and Ethnicity from 2000 to 2020
Source: US Census Bureau, Decennial 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 recent years. 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 Iowa 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. Avera-ae Household Size in Selected Iowa Counties
County
00•
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 B25010
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
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.
3
2.5
2
1.5
0.5
J
Dubuque County
Household Size by Tenure
Y (1) W
Y a)
Q
Y a%
�
Y (1)4%
0 .Q .Q
o 1
1
o .Q
-Q
o .Q 1
U U
U
U
U
U
U U
O O
O
O
O
O
O O
N N
N
N
N
N
N N
O cc
O
cc
O
cc
O cc
Black Hawk County
Johnson County
Linn County
Scott County
■ 2009-2013
■ 2014-2018
■ 2019-2023
Figure 2.5. Average Household Size by Tenure in Selected Iowa Counties
Source: US Census Bureau, 2019-2023 American Community Survey Estimates, Table B25010
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 Iowa in Black Hawk and University of Iowa in Johnson. Both universities have large
numbers of new students moving in each year.
Table 2.4. Percent of Population that Migrated to Selected Iowa Counties in past year
Dubuque
MigratedCounty % to County
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, Table B25010
October 2025 11
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. New job opportu-
nities attract people to the area and encourage existingworkers 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 Iowa 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 ofthosejobs 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.
58,000
56,000
54,000
52,000
50,000
48,000
46,000
44,000
42,000
40,000
2015
Dubuque County Employment and Unemployment
2016 2017 2018 2019 2020 2021 2022 2023 2024 2025
= Employment Unemployment Labor Force
Figure 3.1. Dubuque County Monthly Employment, Unemployment, and Labor Force. Not
Seasonally adjusted.
Source: Iowa Workforce Development
October 2025 12
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%
a�
4.2%
5.0%
c
T4.0% 4.5% 4.5% 3.1 % 3.0% 3.3%
4.1% o
a 3.0% 3.6% 3.7 /o �3.
m 2.0% 2.6% 2.7%
c
Z)
1.0%
0.0%
2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
State of Iowa Dubuque County
Figure 3.2. Dubuque County Annual Average Unemployment Rate
Source: Iowa 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
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, either from within the county or through in -migration, which could create
additional housing demand.
20,000
18,000
0 16,000
14,000
a
a° 12,000
10,000
O 8,000
6,000
4,000
2,000
0
Dubuque County Retired Workers
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Figure 3.3. Dubuque County Retired Worker Social Security Beneficiaries
Source: US Social Security Administration, OASDI Beneficiaries by State and County Report
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 Iowa 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
Unemployment Rate
9
8.2
8
ca
+a
oC 7
c
0
E 6
T 5.5
0
a
E 5 4.8 4.8
0 4.5
4.3
� 4.1
4 3.8 3.7 3.5 3.7
3.3
3
Black Hawk Dubuque Johnson Linn
■ 2009-2013 ■ 2014-2018 w 2019-2023
Figure 3.4. Unemployment Rate in Selected Iowa Counties
Source: US Census Bureau, 2009-2023 American Community Survey Estimates,
Employment By Industry
5.8
L
3.7
Scot
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.
Table 3.1. Emplovment by Industry in Dubupue County, 2009-2023
Occupations
Management, business, science, and arts occupa-
tions
16,731
17,792
19,589
2,858
17.1%
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
occupations
4,012
4,079
3,671
-341
-8.5%
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
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
County was $75,919 in 2023.
Median Household Income, Dubuque County
14,000
13,172 12,736
12,000
11,537
10,000
0
0 8,000
a�
6,000
0
2
4,000
3,140
2,000
Under$50' $50K- $100K-$200K
Over$200K
Figure 3.5. Distribution of Median Household Income in Dubuque County
Source: US Census Bureau, 2019-2023 American Community Survey Estimates,
Table 3.2 provides a 2023 regional comparison of median 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.
Family Type and Presence of Children
Black
Hawk
Dubuque
Johnson
Linn
Scott
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
$47,531
$71,023
$52,121
$54,824
$61,699
years
No own children under 18 years
$72,162
$63,750
$67,196
$71,780
$69,487
Female householder, no husband
$37,205
$43,731
$50,223
$50,220
$41,311
present
With own children under 18
$32,321
$36,810
$44,458
$42,816
$35,015
years
No own children under 18 years
$47,280
$58,712
1 $52,440
1 $66,140
$52,268
Table 3.2. Median Family Income by Family Type in Dubuque County, 2019-2023
Source: US Census Bureau, 2019-2023American Community Survey Estimates.
October 2025 16
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 Selected Iowa Counties. 2009-2023
Income type
2013
Dubuque
2018
County
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 nonfamily income
$30,499
$32,148
$42,232
$11,733
38.5%
Per capita income
$26,254
$31,096
$40,624
$14,370
54.7%
Income type
2013
Black
2018
Hawk County
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
2013
Johnson
2018
County
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
Linn County
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
Scott County
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, 2009-2023American Community Survey Estimates,
Poverty
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
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 Iowa Counties, 2009-2023
County
Dubuque
2013
10.9%
2018
2023
Change
Percent Change
-13.8%
11.7%
9.4%
-1.5%
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 Iowa 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 Job 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. Inflow/OutflowJob Counts in 2022, Dubuque County
Source: US Census Bureau, Census On The Map
October 2025 18
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 Totals and Flows in 2022, Dubuque County
Worker Totals and Flows
Employed in the Selection Area
Count
58,516
Share
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.
NO
h.
ON
El
1
u4' T
e'
• L�1�LAJ�;LA�
5-300 Jobs/Sq.Mile
I 301.1,188 Jobs/Sq.Mile
1,189 - 2,667 obs/Sq.Mile
2,668-4,7Jo
bs
obs/Sq. Mile
4.740-7,402 Jobs/Sq.Mile
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
Table 3.6. Distance to Work for Dubuque County residents, 2022
Jobs
Less than 10 miles
Count
32,568
Share
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
100%
80%
60% '
40%
20%
0%
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 location of workers employed in Dubuque County
Source: US Census Bureau, Census On The Map
October 2025 20
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
3
40,000 8,951
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 Households and Housing Units, Dubuque County 1970-2020
Source: US Census Bureau, Decennial Census
Units in Structure
Based on US Census Bureau ACS estimates for 2009-2023, the 15-year mix of housing types
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
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 Countv2009-2023
Units in Structure
1, detached
2013
24,837
2018
24,853
2023
26,987
Change
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 Countv2009-2023
Units in Structure
1, detached
2013
2,429
2018
2,828
2023
2,345
Change
-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
Mobile home
846
895
1,048
202
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
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.
45,000
40,000
35,000
c
Z)
30,000
W
p 25,000
= 26.80
Q
20,000 6,502
D
0 15,000
O
10,000
5,000
0
1970
Occupied Housing Units by Tenure
26.5%
27.9% 28.8% 8,943
8,366 8,868
1980 1990 2000
■ Owner Occupied ■ Renter Occupied
28.9%
73.3% 71.1 %
26,969 28,369
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 Iowa, 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
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. Year Structure Built, Dubuque Countv2023
Year Buitt
Built 2020 or later
Units
1,007
Percent
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, 2023 American Community Survey 1-Year Estimate
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 Countv 2023
Year Buitt
Built 2020 or later
•
Occupied Units
485
Occupied Units
522
• •Renter
Percent
48%
-Occupied
Percent
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
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 all jurisdictions 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 overtime.
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.
600
500
400
300
Cn
200
100
0
New Housing Unit Building Permits
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 Building Permits, Dubuque County
Source: Building 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 local jurisdictions. 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
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. Theta ble shows both the number of permits issued and the number of housing
units authorized underthose permits. Overall, trends in the city generally align 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
Permits
2014
2015
2016
2017
2018
2019
2020
20
2022
2023
2024
2025
Units
2014
I2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
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 LotAvailability in the City of Dubuque
Development
North Grandview Estates
Residential..Availability
location
North Grandview/32nd Street
Lots/Units Available Use
32 Lots/Units Single-Family/Apartment
Rustic Point Estates #2
Derby Grange/KennedyGrange/Kennedy Roads
40 Units
Sin le-Fami /Du lex
Sky Blue Estates*
Sky Blue Drive
4 Lots
Single -Family
Silva Oaks Subdivision
Elmwood/Silver Oaks Drive
127 Lots
Sin le-Fami /Du lex
South Pointe Estates*
Rockdale Road/South Pointe Drive
37 Units
Sin le-Fami /Du lex
Timber-Hyrat Estates
lCreekwood Drivo/Chorry Ride
21 Lots
Sin le-Fami /Du lex/Townhomes
The Farm/Switch Homes I End of Tiffany Court 18 LotstSingle-Farnily
*Subdivision hm adai"onai phosm TOTAL: 279
Source: Creating Housing Opportunities Report, City of Dubuque, 912212025.
October 2025 26
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 -Family Development- Under Construction
Development
Location
# of Units
Carich Property LLC Apartments
1734-36 Central Avenue
8 Units
Cedar Lake Apartments
Lake R i g ive
42—n1TSF
799 Main Street Apartments
799 Main Street
36 Units
St. Anthony's School
2175 Rosedale Avenue
22 Units
1706 Central Apartments
1706 Central Avenue
11 Units
Emri Apartments
adfor
46 Units
Union at the Marina
1860 Hawthorne Street
201 Units
Habitat for Humanity
Wood Street
16 Units
Rate
Workforce Family Housing Apartments
Workforce Family Housing
Workforce Single -Family Homes
TOTAL: 384
Source: Creating Housing Opportunities Report, City of Dubuque, 912212025.
Highlighted 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 may take 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
e 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
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% for Owner -Occupied Units
• 5-9%for Renter -Occupied Units
While these target rates provide a helpful rule of thumb, it is also important to remember that
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. Housino Occupancv and Vacancv Rates in Selected Iowa Counties. 2009-2013
Occupancy 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
Table 5.2. Housing Occuaancv and Uacancv Rates in Selected Iowa Counties. 2014-2018
Occupancy
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
Table 5.3. Housing Occuoancv and Uacancv Rates in Selected Iowa Counties. 2019-2023
Occupancy
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 migrant workers
• Other vacant
Table 5.4 provides a comparison in Dubuque County of housingvacancy status usingACS 5-
year estimates from 2009-2023. The most common reasons for housing vacancy in the
Dubuque County were "For rent" and "Other."
Table 5.4. Housimz Uacancv Status in Dubuque County, 2009-2023
For rent
00•
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
For migrant workers
0
0
0
0
Othervacant
663
1213
1129
466
Source: US Census Bureau, 2019-2023 American Community Survey Estimates
October 2025 29
Rental Vacancy
A rental vacancy rate can be estimated from ACS data using the following formula:
Units For Rent
Units Rented, Not Occupied + Units For Rent + Reenter -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%forthe 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 17.2% 16.6% I 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 rental vacancy 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
monitor vacancy rates in rental properties.
Table 5.6. Survev Vacancv Rates
Studio
Total Units
21
Vacant Units
4
Vacancy Rate
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 Rental 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 Only
Units Sold, Not Occupied + Units For Sale Only + Owner -Occupied Units
October 2025 30
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 Vacancv Rates
Owner Vacancy Rate 1 0.41 % 1 0.71 % 1 0.60%
Source: US Census Bureau, 2019-2023 American Community Survey Estimates
Rates from allthree estimates are below theta rget 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 factorthem into our analysis, but
we can note that these units could bump the overall vacancy 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
Table 5.8. Median Home Value in Selected Iowa 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
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-yearACS estimates. Most of Dubuque's owner -occupied units have
a value that lies between $100,000 and $499,999.
Table 5.9. Distribution of Housing Value of Owner -Occupied Units in Dubuque County, 2019-2023
HousingValue
Owner -Occupied Units
Dubuque County
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 County from 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
surrounding the city.
October 2025 32
Figure 5.1. Estimated Home Value in Dubuque County
Source: Realtor.com
The East Central Iowa Association of Realtors (ECIAOR) provided Multiple Listing Service
(MLS) Market Statistics 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. Total Listings and Sales in Dubuque County, 2017-2024
Year
2017
Total Listed
1,470
Total ..
1,188
Percent Sold
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 Central Iowa Association of Realtors
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
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 List and Sale Price in Dubuque County, 2017-2024
Year
2017
Prices
Average List
Price
$199,237
Average Sate
Price
$194,285
Sate to
Difference
-$4,952
List
Ratio
0.98
Year
List Price
over Year
Change
Sate Price
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 Central Iowa Association of Realtors
Table 5.12. Median List and Sale Price in Dubuque County, 2017-2024
Year
2017
Prices
Median List
Price
$169,050
Median
Sate Price
$166,000
Sate to List
Difference Ratio
-$3,050 0.98
Year
List price
over Year
Change
Sate Price
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 Central Iowa Association of Realtors
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 during the
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
Dubuque County Home List and Sale Prices
$300,000
$280,000
• • •
$260,000
$240, 000
• ♦ • •
$220,000
♦♦♦♦
$200,000------♦
♦♦♦♦♦•••
♦♦
$180,000
'100
-----------•'Iwo
$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 County Home Sale Prices
Source: Dubuque County MLS Data, East Central Iowa Association of Realtors
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 market for 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 by the pandemic.
October 2025 35
50
45
0
40
35
c 30
0
>, 25
co
0 20
5
0
41
Average Days on Market
43 43
35
22
20
25
2017 2018 2019 2020 2021 2022 2023
Figure 5.3. Average Days on Market in Dubuque County, 2017-2024
Source: Dubuque County MLS Data, East Central Iowa Association of Realtors
16
14
12
m
10
0
0 8
a
ca
0
15 15
Median Days on Market
10
5 5
26
2024
4 4
0 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 Central Iowa Association of Realtors
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
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. Realtorcom Dubuque County Housing Market Assessment
Source: Realtorcom, Accessed 101912025
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
Market Overview
�D -- 1-year Market Forecast
225 For sale inventory (September 30, 2025)
102 New listings (September 30, 2025)
0.995 Median sale to list ratio (August 31, 2025)
$269,333 Median sale price (August 31, 2025)
$278,300 Median list price (September 30, 2025)
31.5% Percent of sales over list price (August 31, 2025)
50.9% Percent of sales under list price (August 31, 2025)
9 Median days to pending (September 30, 2025)
;Metric availability is based on market coverage and data)
How does this data help me?
Zillow's metrics provide valuable market data by
tracking market changes in different locations and
housing types.
Zillow Home Value Index
— Dubuque County
All homes v 1-yr 5-yr Max
$280K
$22%
$194K
$159K
2018-03 2019-01 2019-11 2020-09 2021-07 2022-05 2023-03 2024-01 2024-11 2025-09
Compare
Figure 5.6. Zillow Dubuque County Housing Market Overview
Source: Zillow.com, Accessed 101912025
October 2025 37
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
Market Trends
$1,031 Average rent in Dubuque County (September 30, 2025)
$1,979 National average rent (September 30, 2025)
-0.6% Month -over -month change (September 30, 2025)
7.3% Year -over -year change (September 30, 2025)
How does this data help me?
The Zillow Observed Rent Index (ZORI) measures
changes in asking rents overtime, controlling for
changes in the quality ofthe available rental
inventory.
LZillowObserved Rent Index
o Dubuque County
v 1-yr 5-yr Max
$1K
$928
$853
$778
2022-05 2022-10 2023-03 2023-08 2024-01 2024-06 2024-11 2025-04 2025-09
® Compare
Figure 5.7. Zillow Dubuque County Rental Market Trends
Source: Zillow.com, Accessed 101912025
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, suggesting tightening affordability for both renters and buyers.
October 2025 38
6. Housing Affordability
Housing affordability is the ability of a household to pay for 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 Iowa 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.
Table 6.1. Number of Housing Units with and without a Mortgage and Number of Occupied Units
paying Rent, 2009-2023
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 Iowa
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
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 Selected Iowa
Counties
2023
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 rent for rented units in Dubuque Countyfrom 2019-
2023 estimates.
Table 6.4. Distribution of Gross Rent in Dubuque County, 2019-2023
Gross Rent
Occupied units paying rent
Dubuque County
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%
$1,500to $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 Iowa
counties from 2009-2023.
Table 6.5. Median Gross Rent in Selected Iowa 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
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 Index for the Dubuque County and selected Iowa counties using ACS 5-year
estimates for 2022.
The H +T Index benchmark is 45% of household income. All counties have similar housing
and transportation costs.
Table 6.6. Housing and Transportation Index in Selected Iowa Counties. 2022
Dubuque
H + T Costs % Income
44%
Housing
22%
TransportationCounty
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 Monthly Housing Costs as a Percentage of Household Income (HHI) by
Income Level for All Occupied Units, 2019-2023
Household Income
Number of Units
HH Income spent on housing
Less than 20%
20% to 290%,Io
or more
Less than $20,000
3,810
3.1 %
6.2%
$20,000 to $34,999
3,927
12.0%
22.1 %
*30OZo
$35,000 to $49,999
4,817
27.3%
32.1 %0.6%
$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 Housing Affordability Analysis for Dubuque County based on ACS 5-year
estimates for 2019-2023 and mortgage rates accessed from Zillow. It provides an estimate
of the 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
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 Housing Affordability Analysis
Median Home Value
Entry Level
$200,000
Move Up
$250,000
Executive
$350,000
Dubuque
County $226,100
Down Payment 10%
$20,000
$25,000
$35,000
$22,610
Loan Amount
30-Year Fixed -Rate Mortgage
Interest Rate
$180,000
$225,000
$315,000
$203,490
6.642%
6.642%
6.642%
6.642%
Number of Payments
360
360
360
360
Monthly Costs
Monthly Payment
($1,282.87)
($1,603.59)
($2,245.02)
($1,450.29)
Property Tax Estimate
($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%
30%
Minimum Income Required
$74,648
$89,977
$121,968
$82,331
Affordable to Dubuque County
Owner -Occupied Households
41%
38%
28%
38%
Housing Cost as 20% of Income
20%
20%
20%
20%
Minimum Income Required
$111,972
$134,965
$182,951
$123,497
Affordable to Dubuque County
Owner -Occupied Households
27%
19%
15%
27%
Median Household Income
$131,154
Source: US Census Bureau, 2019-2023 American Community Surveys
Using 2019-2023 5-Year American Community Survey estimates, Table 6.9 shows compara-
tive affordability in selected Iowa 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
Table 6.9. Median Household Income For Renter -Occupied Housing Units and Medan Gross Rent
Selected Counties. 2019-2023
Dubuque
HouseholdMedian
Income
$39,967
Median Gross Rent
$944
Annual Income to
Afford Average Rent
$37,760
Black Hawk
$40,066
$962
$38,480
Johnson
$39,271
$1,104
$44,160
Linn
$40,602
$915
$36,600
Scott
$41,116
$958
$38,320
Source: US Census Bureau, 2019-2023American Community Surveys
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 Housing Affordability Ranges for Renter -Occupied Units in
Dubuque County, 2019-2023
Range
$0 to $24,999
$25,000 to $49,999
$50,000 to $74,999
$75,000 to $99,999
# HH in range
3,385
AffordableIncome
Less than $500
$500 to $999
$1,000 to $1,499
$1,500 to $1,999
of rental units
735
Balance
-2,650
1,934
11608
-413
3,265
5,199
1,774
3,382
1,237
824
$100,000 to $149,999
976
$2,000 to $2,499
67
-909
-49
$150,000 or more
253
$2,500 or more
204
Source: US Census Bureau, 2019-2023 American Community Surveys
Note: The unit counts in this table were estimated using the assumption that households will
occupy a housing unit in their affordable rent range. This is not always true in practice as
households may occupy units outside of the assumed affordable range. So, a negative balance at a
high -income range can indicate displacement of lower -income households rather than a literal
shortage of higher rent units.
October 2025 43
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 historicaItrend (1990-2020), averaging430 people per year.
• 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
Dubuque County Population Forecast
110,000
105,827
105,000
103,027 ! I
1
�'1�
99,266 100,20*��.1'** 104,527
100,000 97,685 102,377
c
0
95,000 93,65
0 90,769
a 90,000 88,938 89,143
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 County Population Forecast
Source: US Census Bureau Decennial 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 4.2% 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
• 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
Scenario
Population Growth Forecast
Scenario 1
4,300
Scenario 2
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
1
Average HH
HouseholdsScenario
Renter Households
Size
1.9
932
49.8%
Rate
5%
Units
979
Owner Households
2.5
939
50.2%
2%
958
Total
Scenario 2
1,783
1,937
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
8. Key Findings
The Dubuque County Housing Needs Assessment was 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.
Key Findings
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
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 44% 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.
Rental Costs: 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
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 likely to 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 Housing Needs Assessment finds 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 essentialto sustain balance and ensure that all residents have access to safe, attainable
housing in the coming decade.
October 2025 49
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 will vary from community to community.
Interested parties should contact check with their city or with Dubuque County for details
about available programs.
The Iowa Code provides several options for cities and counties to create housing programs.
The Cityof Dubuque, forexample, offers a range of programs and resourcesfor homeowners,
commercial property owners, and rental property owners. These programs may serve as
models for other communities as well. Learn more at ✓ww.cityofdubuque.org/incentives
Tax Increment Finance (TIF) Districts
TIF districts can be created by cities and counties per Iowa 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 Iowa 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 Iowa 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
city for improvement costs, but a lien is placed on each property that prohibits the sale until
the improvement costs are repaid in full.
October 2025 50
State of Iowa Housing Programs
The Iowa 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' ttps://opportunityiowa.gov/housing/
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 Iowans.
Rental Assistance
Tenant -Based Rental 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.
Iowa Housing Search: A website to locate affordable rental housing units within the state of
Iowa.
Community Programs
Community -Based Housing Revolving 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— Upper Story Conversion: 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
Multifamily Loan Program: Provides financing options to multifamily property owners and
developers to preserve and create new affordable units in Iowa.
Project -Based Section 8 Contract Administration: Partners with private rental property own-
ers to help provide affordable rents to low-income families living in Iowa.
Workforce Housing Tax Credit: Tax benefits to developers to provide housing in Iowa 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 ittps://www.hud.gov/states/iowa
Homeownership Assistance
Federal Housing Administration (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.
Public 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
Housing Choice Voucher Program (Section 8): Largest federal rental assistance program, al-
lowing eligible families to find their own housing and receive a voucher to cover part of the
rent.
Public Housing. Federally funded and locally managed, public housing provides affordable
rental units for low-income individuals and families.
Project -Based Rental Assistance: Provides rental assistance for specific properties, ensur-
ing affordabilityfor low-income tenants.
National Housing Trust Fund: Helps increase and preserve the supply of affordable housing
for extremely low-income and homeless families in Iowa.
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
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 Housing Tax 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 guidance for tenants,
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 Iowa Regional Housing Authority(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
households; promotes self-sufficiency; creates economic independence; and provides
homeownership opportunities for Housing Choice Voucher and Public Housing Program par-
ticipants.
Eastern Iowa 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 Iowa. The emphasis is on the moderate, very
low, and extremely low-income residents of Dubuque, Delaware, Jackson, Cedar, and Clin-
ton Counties.
Eastern Iowa 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.
Community Solutions of Eastern Iowa (CSEI) promotes and encourages public well-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 Iowa cities and
counties. CSEI is a nonprofit subsidiary of the East Central Intergovernmental Association
(ECIA).
October 2025 54
kaj 7—il I 10 team MM[o
2,598 Total Lots/Units
as of August 19, 2026, including
390 Workforce Units
Residential Subdivision Lot Availability
Development Location
North Grandview Estates North Grandview/32nd Street
Lots/Units Available
Use
32 Lots/Units
Single-Family/Apartment
Rustic Point Estates #2
Derby Grange/KennedyGrange/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 Rd./South Pointe Dr.
137 Units
Single-Family/Duplex
Timber-H rst Estates
Creekwood Drive/Cherry Ride
121 Lots
Sin le- Famil /Du lex/Townhomes
The Farm/Switch Homes
End of Tiffany Court
118 Lots
Single -Family
Villas on Valeria
Valeria Street
18 Units
Market Rate Townhomes
'Subdivision has additional phases TOTAL: 287
Rebiuential Development - Under
Review
Development
Location
# of Lots/Units
Use
Visitation/AHNI
900Alta 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
Millwork Flats
1065 Jackson Street
76 Units
Market -Rate Apartments
Corridor DBQ
1527 Central Avenue
10 Units
Market -Rate Apartments
Thunder Valley Development, LLC
Radford Road
72 Units
Market -Rate Apartments
Williams Duplex
Key Way/Keystone Drive
2 Units
Market -Rate Apartments
Ellis Mixed -Use Development
0 FK Road/Northwest Arterial
28 Units
Market -Rate Apartments/Mixed Use
TOTAL: 485
SubdivisionResidential
Development Location # of Units Use
the Farm/Switch Homes End of Tiffany Court 84 Lots Single -Family
iouth Pointe Phase 2 South Pointe Drive 21 Lots Single -Family
22 Units Duplex
TOTAL:127
ADDITIONAL DETAILS ON BACK
CONTINUED FROM PAGE 1
Residential Development - Under Construction
Development (Location # of Units jUse
Carich Property LLC Apartments 1734-36 Central Avenue 18 Units Workforce/Market-Rate Apartments
Fox Hills Apartments
End of Plaza Drive
1390 Units
Market -Rate Apartments
1701 Central Ave. Apartments
1701 Central Avenue
4 Units
Market -Rate Apartments
1301 Central Ave. Apartments
1301 Central Avenue
30 Units
Market -Rate Apartments
Workforce Single -Family Homes
Market -Rate Apartments/Mixed Use
abitat for Humani Rosalynn Carter Place
The Landings at Cedar Cross 380 Cedar Cross Road !712�nits
Iowa Street Lofts
1248 Iowa Street
its
Market -Rate Apartments
Novelty Iron Works Condominiums
333 E. Tenth Street
34 Units
Market -Rate Apartments
Hitzler Rental LLC Apartments
2541 Central Avenue
5 Units
Market -Rate Apartments
Rider on Main
200 W. Fifth Street
102 Units
Market -Rate Apartments/Mixed Use
Miller Five-Plex
jEastgate Court
5 Units
Market -Rate Apartments
Wilson House Apartments
11243 Locust Street
5 Units
Market -Rate Apartments
TOTAL: 727
TOTAL: 35
. - -. Constructed .-
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
ar ens of Dubuque
a ord Road
ni s
Workforce Family Housing Apartment
Kretschmer Lofts
895 Washington Street
48 Units
Market -Rate Apartments
oosevel
Miller 4-Plex
1865 RadforSLR
3545 East Gate Court
AA Unit
4 Units
orkforce Senior Housing Apartment
Market -Rate Apartments
Mount Carmel - Sisters of Charity 1
Phase 1
1100 Carmel Drive
60 Units
46 Units
22 Units
Skilled Nursing
Assisted Living
Memory Care
Independent Living
Mount Carmel - Sisters of Charity 11
1100 Carmel Drive
116 Units
Chadwick Block Apartments
249 W. 1st Street
4 Units
Market -Rate Apartments
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 Apartment:11111
Cedar Lake Apartments
Lake Ridge Drive
42 Units
using Apartments
Market -Rate Apartments
Plastic Center, Inc.
408 W. 5th Street
9 Units
Market -Rate Apartments
CK Construction Four-Plex
1104 Lincoln Avenue
4 Units
Market -Rate Apartments
The Landings at Cedar Cross
380 Cedar Cross Road
160 Units
Market -Rate Apartments/Mixed Use
Union at the Marina
860 Hawthorne Street IV
1201 Units
lWorkforce Family Housing
Habitat for Humanity
Roslyn Carter Place
13 Units
lWorkforce Single -Family Homes
TOTAL: 922
Housing Availability & Affordability:
A Growing Concern Among Area employers, 2020 to Present
2020-2021
305
Companies
Interviewed
Housing
Access =
13 Concern
2021-2022
307
Companies
Interviewed
Housing
Access =
#2 Concern
2024-2025
255
Companies
Interviewed
Housing
Access =
#1 Concern
2025-2026
252
Companies
Interviewed
Housing
Access =
#1 Concern
140 FY2024-2025 InfoActions
115 255 Employer Interviews
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117 FY2025-2026 InfoActions
107106106 252 Employer Interviews
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FY2023-2024
270 Employer Interviews
Fire
Ambulance
Police
Colleges & Universities
Schools (K-12)
Community College
Health Care
Trucking
Highways
Streets IF
Traffic Control/Flow
Community Planning
Regulatory now
Zoning/Building
Property Taxes
Child Care
Public Trans orta '
Housing
Air argo
Air Passenger Service
FY2024-2025
255 Employer Interviews
Fire
Ambulance
Police
Colleges & Universities
Schools (K-12)
Community College
Trucking
Health Care
Highways
Streets
Community Planning
Zoning/Building
Regulatory
Traffic Control/Flow
Child Care
Property Taxes
Public Transportation
Air Carn
Housing
Air Passenger Service
FY2025-2026
252 Employer Interviews
Fire
Ambulance
Police
Colleges & Universities
Schools (K-12)
Community College
Trucking
Highways
Health Care
Streets
Child Care
Community Planning :
Traffic Control/Flow
Zoning/Building
Public Tr
usln (Amount/Affordability)
Property Taxes
Air Passenger Service
= Trending down from prior year * = Trending up from prior year /or = No change from prior year
Access to quality healthcare
Affordable home ownership
Top 10 Factors Ranked Great schools and education
by Importance When � 3.3U
Considering Where to Low crime rate 3.19
Live / Work in the Variety of restaurants
Future �
Affordable, quality It:
housing
3.00
i Future Community Natural features
3.52
Greater Dubuque Region Farmer's markets
3.75
Shopping/commercial districts
3.03
Pet -friendly community
3.41
Job
Skills Gap Education
Median
Starter
Starter Annual
Starter Affordable Starter Affordable Rent
Affordable Home Price
Affordable Home Price
Analysis Requirement
Hourly Wage
Hourly
Wage
Income
Rent
No Utilities
Starter Wage
Starter Wage
One Income
Dual Income
Assemblers and Fabricators
184 On the Job Training
$ 20.91
$
17.77
$
36,968.88
$
924.22
$
774.22
100,000 to 120,000
230,000 to 350,000
Restaurant Cook
137 Certificate
$ 15.48
$
13.16
$
27,368.64
$
684.22
$
534.22
80,000 to 95,000
165,000 to 220,000
Pharmacy Tech
37 Associates
$ 18.60
$
15.81
$
32,884.80
$
822.12
$
672.12
103,000 to 158,000
190,000 to 230,000
Middle School Teacher
21 Bachelor's Degree
$ 25.61
$
21.77
$
45,278.48
$
1,131.96
$
981.96
140,000 to 215,000
270,000 to 370,000
Post Secondary Teacher
93 Advanced Degree
$ 33.49
$
28.47
$
59,210.32
$
1,480.26
$
1,330.26
180,000 to 280,000
350,000 to 500,000
GREATER DUBUQUE DEVELOPMENT CORPORATION
Housing in the FY2026 Employer Visit Data
A Data Summary from the InfoAction Business Retention & Expansion Visit Program
Prepared for City Council I August 28, 2026 1 252 completed employer visits, FY2026
Purpose
This summary presents what Dubuque -area employers reported to Greater Dubuque Development
Corporation through the InfoAction business retention and expansion visit program between July 1,
2025 and June 30, 2026. It covers 252 completed visits spanning manufacturing, financial services,
healthcare, legal, real estate, utilities, government, and other sectors across the Greater Dubuque region.
It reports what the responses show and does not draw conclusions about what the community should do
in response. Multi -year survey trends and county housing market and affordability data are covered in
the accompanying materials and are not repeated here.
InfoAction uses a structured questionnaire with several pre-set answer options relevant to housing,
including which community investments employers believe should be prioritized and what they consider
barriers or weaknesses in the community. Because these are fixed answer options rather than open-
ended prompts, responses can be counted and compared across the full set of visits rather than treated as
one-off comments.
Headline Findings
117 / 252
companies named increasing workforce housing
as a top community investment priority the
single most -cited priority of 20+ options offered
58%
of all 252 visits included a housing -related
comment somewhere in the conversation
Housing Across Three Survey Questions
Housing appeared in responses to three separately worded questions: which community investments
should be prioritized, what employers see as weaknesses of the community, and what they identify as
barriers to their own growth. Counts for each are shown below.
Greater Dubuque Development Corporation I Page 1 of 3
Housing Surfaced Across Multiple, Independent Survey Questions
FY2026 InfoAction Visits (7/1/25-6/30/26)
Top community investment
priority (Q87)
Weakness of the community
as a place to do business (Q74)
Barrier to company growth (Q73)
Employer Comments
117
Pill
19
20 40 60 80 100 120
Number of companies (of 252 visits)
The comments below are drawn directly from InfoAction visit notes. The visit program covers the
Greater Dubuque region; the comments shown here are limited to employers located in the City of
Dubuque. Employer names have been withheld for this public document; sector is shown instead.
The community is focused on building apartments, but there is a greater need for affordable single-
family homes.
Leading manufacturing employer, Dubuque
Workforce housing, particularly affordable housing, is a significant challenge... more candidates
often choose Des Moines.
— Professional services / accounting firm, Dubuque
Dubuque [is] seen as attractive once people arrive, but housing/rental barriers exist for newcomers
without local history.
Food manufacturer, Dubuque
Housing and community amenities are needed to attract and retain talent.
Construction / real estate firm, Dubuque
They face challenges with child care, affordable housing, and retaining minority candidates.
Furniture manufacturer, Dubuque
Greater Dubuque Development Corporation I Page 2 of 3
Housing to buy (not rent) for entry level buyers, under $175k range... an employee's son tried to
find a quality home in Dubuque and had a very difficult time.
— Lab -equipment manufacturer, Dubuque
Comment Categories
• Housing type: several employers said the community is building apartments while describing the
greater unmet need as affordable, entry-level single-family homes to buy.
• Price point: one respondent identified roughly $250,000 as a target price point for workforce
housing and reported that builders find that price point financially infeasible to build at current
costs.
• Newcomers: multiple employers said Dubuque is attractive once people arrive, and that out-of-
town recruits without local history or credit relationships have difficulty finding rentals or homes
quickly.
• Recruiting: several employers said candidates from outside the region chose competing metro
areas, citing relative housing cost and availability among the reasons.
• Child care: several employers described housing and child care together when discussing barriers
to hiring and retaining staff.
Recommendation
We believe there is merit in developing a standard return -on -investment analysis for TIF-assisted
housing projects (and TIF-supported projects, generally) that documents the financing gap, the need the
project meets, and a reasonable range of public assistance as a share of total project cost.
Greater Dubuque Development Corporation I Page 3 of 3
To: File
From: Dave and Hannah Lyons
Date: August 28, 2026
Re: Updated GDDC Housing Alignment
Housing misalignment is when a community's housing stock and prices do not match the
needs and incomes of its population. In 2025, the Dubuque County Housing Assessment
(DCHA) found that Dubuque's housing stock was out of alignment with the needs of its
current population of 99,242, projected 2035 population of 104,527, and significantly
below the needs of its targeted population of 105,827. The DCHA estimates that between
1,937 and 2,560 new housing units will be needed between 2026 and 2035 to support
projected and target population growth.
While there is anecdotal information being presented that more housing capacity has
created higher vacancy rates, there are no data sources to support that. The "natural"
vacancy rate, at which prices remain steady, is estimated at 7% to 8% (source). DCHA
identifies target vacancy rates at 1-2% for owner -occupied units and 5-9% for renter -
occupied. Rates below these can be indicative of a housing shortage. In the past three
years, vacancy rates in Dubuque County for owner -occupied units remained steadily
below the target rate and rental vacancy rates have increasingly declined, with the most
recent data placing us below the target rate.
Vacancy Rates
2018-2022
2019-2023
2020-2024
Owner -occupied
0.7
0.6
0.7
Renter -occupied
6.4
5.3
2.1
Overall
6.3
5.6
5.3
Source: US Census Bureau, 5-year American Community Survey Estimates
While there is an 18-month lag between data collection and publishing for the ACS, this is
the best data available. Moreover, more recent market information appears to reflect these
trends. If the anecdotal statements about excess capacity and increasing vacancy rates
were true, we would expect to see prices decrease and time on the market increase.
However, home purchase opportunities appear to remain tight. Days on Market have
remained steady at the lower end of a balanced market, considered to be 30-60 days
(source). Realtor.com Economic Research actually has median days on market having
decreased by 11 % in the past year (source).
7/23-6/24
7/24-6/25
7/25-6/26
Average Days on Market
33
36
36
Source: Redfin Dubuque, IA Housing Market Trends
In the last 12 months, the average home price in the City of Dubuque has increased around
$10,000, ($241,624 to $251,952) and over $35,000 from this time in 2022 ($215,850)
(source). The County faces a similar trend — increasing nearly $15,000 ($266,555 to
$281,283) in the last year and over $40,913 since 2022 ($240,370) (source). These price
increases make sense in the context — according to Ruh[ & Ruh[ Realtors, for the last 12
months Dubuque has 2.6 months of inventory, putting us solidly in a Seller's Market.
(source). For context, a balanced market has 4 to 6 months of inventory.
Rental costs also continue to rise with demand. Median monthly rental prices have
increased from of $997.5 in 2025 to $1,075 in 2026 (source). Realtor.com Economic
Research identifies that while the number of rental properties have gone up by 9.38% in the
last year, median rents have also increase by 10.33% in the same period (source).
Apartments.com also identifies an increase in rental prices in the last year but at a lesser
rate, around 1.2% (source).
So, it appears from the data available that housing in Dubuque continues to be in
misalignment. Misalignment appears to be most prominent in households earning less
than $50,000. The percentage of households spending more than 30% of their gross
income on housing — what HUD -defines as affordability — for households earning between
$50,000 and $35,000, $35,000 and $20,000 is 40.6% and 65.9%, respectively. Such
misalignment negatively impacts quality of life for current residents, hinders recruitment of
prospective residents, and slows economic growth.
Housing misalignment can intensify when housing capacity does not support future
workforce population growth. By taking 85% of the median wage among all occupations
with sufficient data in Dubuque County (source), we estimate that the entry level wages for
anew employee in the Dubuque MSA would be $21.51. Some industries will be higher
(such as Management Occupations) and some will be lower (such as Food Preparation and
Serving Related Occupations). And some industries will contain both (such as Healthcare
Practitioners and Technical Occupations with average starting wages ranging from $13.21
to $163.49). If we accept that the average starting wage in Dubuque is $21.51, resulting in
an annual income of approximately $44,740, only around 10% of homes sold in Dubuque
last year (source) would have been affordable for those seeking new employment here,
even with a $15,000 downpayment (source). In addition, this average income would also
require rental costs above 30%
With no monthly debts and a $20,000 downpayment, purchasing the average cost
Dubuque home requires a household income of approximately $74,000 (source) for the
home to be considered affordable. The majority of starting wage positions in Dubuque do
not produce that income. A significant percentage of dual -income starting wage
households do not produce that income (see attachment). In addition, a large percentage
of starting wage positions will be required to pay more than 30% for their rental housing.
Housing capacity continues to be a critical issue for Dubuque. However, if housing policy
is to shift, data would suggest a shift toward creation of housing units (both rental and
owner -occupied) designed to support existing and future demand for housing affordable to
entry and mid -level working individuals and families.
CITY OF DUBUQUE • ECONOMIC DEVELOPMENT DEPARTMENT
Housing Incentive Program:
Proposed Revisions
Targeting City incentives to where they matter most, as Dubuque's
housing market evolves.
City Council Presentation I September 2026
THE CHALLENGE
Housing has become employers' top concern
Each year, Greater Dubuque Development Corporation asks 250-305 local employers
which community investments should be prioritized. Housing access has climbed
steadily — and has now ranked #1 for three years running.
2020-21
#3
housing
concern rank
305 employers
interviewed
2021-22
#z
housing
concern rank
307 employers
interviewed
2022-23
#z
housing
concern rank
305 employers
interviewed
Source: Greater Dubuque Development Corporation, InfoAction Business Retention & Expansion Program, 2020-2026
EMPLOYER VOICE
What employers are telling us — FY2026
58%
of all 252 employer visits
included a housing -related
comment somewhere in the
conversation
"The community is focused on building apartments, but
there is a greater need for affordable single-family
homes."
— Leading manufacturing employer, Dubuque
"Workforce housing, particularly affordable housing, is a
significant challenge — candidates often choose Des
Moines instead"
— Professional services / accounting firm, Dubuque
"Housing to buy, not rent, for entry-level buyers under
$175K — an employee's son had a very difficult time
finding a home here."
— Lab -equipment manufacturer, Dubuque
Source: GDDC, "Housing in the FY2026 Employer Visit Data," prepared for City Council, August 2026 (252 completed visits, City of Dubuque
employers only)
MARKET CONDITIONS
The housing market remains tight
1,937-21560
new housing units
needed 2026-2035to
meet projected &
target population
growth
0.7% / 2.1%
owner -/renter -
occupied vacancy
rates (2020-24) —
well below healthy
targets of 1-2 % / 5-
9%
$251,952
average City of
Dubuque home price
— up—$10,000 in the
last year, —2.6 months
of inventory (seller's
market)
$1,075
median monthly rent,
up from $998 a year
ago; days -on -market
holding at 36, near
the tight end of
balanced
Bottom line: anecdotal claims of oversupply aren't supported by vacancy, price, or days -on -
market data — Dubuque's housing stock remains out of alignment with resident and workforce
needs.
Source: 2025 Dubuque County Housing Assessment; U.S. Census ACS 5-Year Estimates; Redfin, Zillow, Realtor.com, Ruhl & Ruhl Realtors market data,
2026
THE AFFORDABILITY GAP
Local wages and the cost of a home
Assemblers & On-the-job
Fabricators training $17.77/hr $36,969 $100K-120K $230K-350K
Restaurant Cook Certificate $13.16/hr $27,369 $80K-95K
Pharmacy
Technician Associate's $15.81/hr $32,885 $103K-158K
Middle School
Teacher Bachelor's $21.77/hr $45,278 $140K-215K
Post -Secondary Advanced
$28.47/hr $59,210 $180K-280K
Teacher degree
$165K-220K
$190K-230K
$270K-370K
$350K-500K
A median -wage entry-level position in Dubuque pays about $21.51/hr ($44,740/yr). At that income, only
—10% of homes sold locally last year were affordable — even with a $15,000 down payment — and a
household needs roughly $74,000 in income to comfortably afford the average -priced home.
Source: City of Dubuque Income -Targeted Housing Data, Aug. 2026; GDDC 2025 Wage & Occupations Report; Ruhl & Ruhl Realtors; Zillow
affordability calculator
PROGRESS TO DATE
The current incentives have driven real growth
1000
M
M
400
200
I
Units by Development Status
(as of Aug. 19, 2026)
Completed Construction Review Lots Available
Source: City of Dubuque, "Creating Housing Opportunities" incentives handout, August 19, 2026
1ECOMMENDED CHANGES
A more targeted incentive menu
Staff recommends shifting from a broad -based approach to a strategy that targets incentives where they still
make a difference — while protecting Downtown redevelopment and the City's general fund.
Outside the Downtown Urban Renewal Area
Market -rate owner -occupied — Retain current
incentive (10-yr public infrastructure TIF)
Market -rate rental — Remove incentives entirely
Affordable/workforce owner -occupied — Maintain
the 15-yr TIF incentive
Affordable/workforce rental — Maintain the 15-yr TIF
incentive
Why remove market -rate rental incentives outside downtown? Market is performing. Additionally,
housing built there without a TIF counts its full value as new taxable growth right away. That matters
more under Iowa's SF 2472, which caps most annual growth in city general -fund levies but excludes new
valuation from the cap — so skipping the incentive preserves that growth for the property taxes paid to
DCSD, City of Dubuque, Dubuque County, NICC, and others.
Recommended effective date: January 1, 2027. Projects submitted before that date continue under the
existing incentive menu.
Source: Memo to City Manager — "Proposed Revised Housing Incentive Programs," City of Dubuque Economic Development Department (Sept. 3,
2026)
CITY OF DUBUQUE • ECONOMIC DEVELOPMENT DEPARTMENT
Housing Incentive Program:
Proposed Revisions
Questions?
Sk A
City Council Presentation I September 2026