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Consolidated Plan Housing Comm Dev. FY 2006-2010 DU~~E ~~~ MEMORANDUM April 12, 2005 , . __.>.J I ") ; , , TO: The Honorable Mayor and City Council Members i i FROM: Michael C. Van Milligen, City Manager SUBJECT: Consolidated Plan for Housing and Community Development FY 2006-2010 The Consolidated Plan is required by the U.S. Department of Housing and Urban Development for communities receiving Community Development Block Grant (CDBG), HOME Investment Partnerships and certain other federal grants. It is a five year plan that is designed to be a collaborative process whereby a community establishes a unified vision for community development actions. Housing and Community Development Department Director David Harris recommends City Council approval of the Consolidated Plan for Housing and Community Development FY 2006-2010. The process for creating the Consolidated Plan began last fall and has been comprehensive and intensive. Three focus group meetings were held on August 31, September 1 and September 8 at the Comiskey Center in partnership with the Community Foundation of Greater Dubuque. The Commission also received community input at their regular meetings over the course of the past year. Staff met with neighborhood groups, distributed CDBG surveys, and met with members of the numerous committees and organizations. The Community Development Advisory Commission established a Consolidated Planning Committee to provide input and oversight on the planning process. The Committee met in June, August and October to assist in the initial planning process. A Housing Market Analysis was completed by Len Decker and Chris Budzisz at the Center for Business and Social Research, Loras College, which became a part of the final Consolidated Plan. This study analyzed 2000 census data in relation to housing needs in the City of Dubuque. The Housing Commission provided review and input during the preparation of the plan and approved the final draft at their February 22, 2005 meeting. The Long Range Planning Commission reviewed and approved the final document at their March 16, 2005 meeting. The Community Development Advisory Commission held two public hearings on the Consolidated Plan. The February 23rd public hearing received input prior to the 30-day public comment period. The final Commission public hearing was held on Wednesday April 6th, when the Commission approved the Consolidated Plan. I concur with the recommendation and respectfully request Mayor and City Council approval. ilL! [('1 ~ Michael C. Van Milligen MCVM/jh Attachment cc: Barry Lindahl, Corporation Counsel Cindy Steinhauser, Assistant City Manager David Harris, Housing and Community Development Department Director Dii~~E ~<k~ rJlEMORANDUM April 11, 2005 To: Micha~ y~.r n Milligen, City Manager . ~\ \-\ David Harris, Housing and Community Development Department From: RE: Consolidated Plan for Housing and Community Development FY 2006-2010 INTRODUCTION This memo requests the City Council to approve and adopt the Consolidated Plan for FY 2006-2010, authorize the Mayor to sign the document and all necessary certifications required by HUD and direct staff to submit the Consolidated Plan to the U.S.Department of Housing and Urban Development prior to May 15, the submission deadline. BACKGROUND The Consolidated Plan is required by the U.S. Department of Housing and Urban Development (HUD) for communities receiving Community Development Block Grant (CDBG),HOME Investment Partnerships (HOME) and certain other federal grants. It is a five (5) Year plan that is designed to be a collaborative process whereby a community establishes a unified vision for community development actions. PROCESS The process for creating the Consolidated Plan began last fall and has been comprehensive and intensive. Three focus group meetings were held on August 31, September 1 and September 8 at the Comiskey Center in partnership with the Community Foundation of Greater Dubuque. The Commission also received community input at their regular meetings over the course of the past year. Staff met with neighborhood groups, distributed CDBG surveys, and met with members of the numerous committees and organizations. The Community Development Advisory Commission established a Consolidated Planning Committee to provide input and oversight on the planning process. The Committee met in June, August and October to assist in the initial planning process. A Housing Market Analysis was completed by Len Decker and Chris Budzisz at the Center for Business and Social Research, Loras College, which became a part of the final Consolidated Plan. This study analyzed 2000 census data in relation to housing needs in the City of Dubuque. The Housing Commission provided review and input during the preparation of the plan and approved the final draft at their February 22, 2005 meeting. The Long Range Planning Commission reviewed and approved the final document at their March 16, 2005 meeting. The Community Development Advisory Commission held two public hearings on the Consolidated Plan. The February 23rd public hearing received input prior to the 30-day public comment period. The final Commission public hearing was held on Wednesday April 6th, when the Commission approved the Consolidated Plan. CONSOLIDATED PLAN The FY 2006-2010 Consolidated Plan is divided into numerous sections. The Executive Summary provides a brief overview of the mission. The Plan is an analysis of various components as required by HUD: Housing and Market Analysis, Housing Needs, Homeless Needs Assessment, Barriers to Affordable Housing, Community Development Needs, Special Needs Population, Antipoverty Strategy and other components to address community needs. The Strategic Plan is the portion of the Consolidated Plan that establishes the strategies to address the housing, economic and community development needs identified through our citizen participation process. The Plan identifies three themes: Affordable Housing Opportunities, Families and Neighborhood Revitalization, and Economic Opportunities. Goals and objectives have been identified using community input, previous commission priorities, and anticipated funding projections. The Plan also includes activities from our proposed FY 2006 Annual Action Plan that correspond to the identified outcomes. ACTION STEP I recommend that the City council approve the attached resolution adopting the Consolidated Plan for Housing and Community Development FY 2006-2010, authorize the Mayor to sign the document and all necessary certifications required by HUD and direct staff to submit the Consolidated Plan to the U.S. Department of Housing and Urban Development. F:\Users\AT AUKE\CDBG\Consolidated PIan\Consolidated Plan CDAC.mem.doc RESOLUTION NO. 177-05 A RESOLUTION ADOPTING THE CONSOLIDATED PLAN FOR HOUSING AND COMMUNITY DEVELOMENT FY 2006-2010; AUTHORIZING THE MAYOR TO EXECUTE SAID PLAN AND ALL NECESSARY CERTIFICATIONS; DESIGNATING THE CITY MANAGER AS THE AUTHORIZED CHIEF EXECUTIVE OFFICER FOR THE CONSOLIDATED PLAN; AND DIRECTING THAT SAID PLAN BE SUBMTITED TO THE U.S. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT. Whereas, the U.S. Department of Housing and Urban Development requires each entitlement city to submit a Consolidated Plan for Housing and Community Development, including the proposed use of its Community Development Block Grant funds at least 45 days prior to its program year; and Whereas, the City of Dubuque has, through a series of public meetings and hearings, finalized a Consolidated Plan addressing both housing and non-housing needs in the community; and Whereas, copies of the draft Consolidated Plan have been available for public comment 30 days prior to City Council action; and Whereas, the Housing Commission and Long Range Planning Commission have reviewed and recommended adoption of the Plan; and Whereas, the Community Development Advisory Commission has held a public hearing on the proposed plan on April 6, 2005 and approved the Consolidated Plan; NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF DUBUQUE, IOWA: Section 1. That the City of Dubuque Consolidated Plan for Housing and Community Development FY 2006-2010 be and the same is hereby approved and adopted. Section 2. That the City Council authorizes the Mayor to sign the document on behalf of the City of Dubuque, Iowa; directs the Mayor to provide all the necessary certifications required by the U.S. Department of Housing and Urban Development; designates the City Manager as the authorized Chief Executive Officer for said Consolidated Plan; and further directs the City Manager to submit said Consolidated Plan to the U.S. Department of Housing and Urban Development by the submission deadline. Passed, approved and adopted this 18th day of April 2005. Terrance M. Duggan, Mayor Attest: Jeanne F. Schneider, City Clerk ~~~E ~<k~ Consolidated Plan For Housing and Community Development FY 2006-2010 HUD Program Year 2005-2009 Housing and Community Development Department 1805 Central Avenue Dubuque Iowa 52001 563-589-4239 comdev@citvofdubuQue.ora City of Dubuque, Iowa CONSOLIDATED PLAN FY 2006-2010 April, 2005 Dubuque City Council Terrance Duggan, Mayor Roy Suol Joyce Connors Patricia Cline John Markham Anne Michalski Daniel Nicholson COMMUNITY DEVELOPMENT ADVISORY COMMISSION Paula Maloy, SVM, Chair Jim Giesen Vice-Chair Walter Pregler Thomas Wainwright Harry Neustadt Charles Isenhart David Shaw David Oliver Michael Gukeisen City Manager Michael Van Milligen Housing and Community Development Department David Harris, Director Aggie Tauke, Community Development Specialist Kris Neyen, Rehabilitation Assistant Jean Noel, Secretary Assistance from: Leonard R. Decker & Christopher Budzisz Center for Business & Social Research (CBSR), Loras College 2 Table of Contents Page Number Executive Summary......... .................... ........................... ................... ........................5 Themes, Goals, Objectives ................ ................................. ............. .............6 Managing the Process .......................... .................................. ............................... ....10 Citizen Participation........... ................... ......................... ........................ ................ ....10 Institutional Structure.......... ................... ......... ................................................. ..........11 Monitoring........................... ................... .............................................. .................... .12 Priority Needs Analysis & Strategies ........................................................................12 General Priorities for Allocating Funds .........................................................13 Basis for Assigning Priority .........................................................................13 Lead Based Paint................. .................... ............................................. ..................... .13 Housing and Market Analysis....................................................................................18 General Characteristics... ......................... ..................................................... .20 Demographics: Low-Income and RaciallEthnic Characteristics ...................23 Population and Household Data .... ........................ ....... ................. ......... ......23 Areas of Racial/Ethnic Minorities and Low-Income Population...................28 General Housing Market and Inventory ........................................................29 Units & Occupancy.............. ............................................. ............. ....29 Vacancy............................... ................ ......... ..................... ................ .30 Over-crowding ................. ................. .......... ................... .................. .33 Housing Type................... ................. ............................ .................... .34 Housing Age ................... ................. ............................. ................... .34 Number and Types of Available Housing ........................................35 Housing Value/Costs ..................... .......... ................... ..................... .36 Demand for Multi-Family Housing .................................................37 Housing Development......................................... ..............................38 Zoning and Land Use ........................................................................40 Affordability of Rental, Owner Occupied and Vacant Units ............40 CHAS Data: Affordability Mismatch ................................................41 CHAS Data: Housing Problems ........................................................42 Residential Housing Loss ........ ........... ............ ............................ ......45 Changes in Rental Units and Contract Rents ...................................46 Housing Needs Assessment ...................................... .............. .......................... ........48 Current Estimate of Housing Need ................................................................48 CHAS Data: Housing Problems ........................................................51 Households with Income <30% MFI ............................................................53 Households with Cost Burdens> 50% Gross Income ..................................54 Future Housing Needs............................ ................... ................ .................. ...56 Victims of Domestic Abuse ...... ......... ................ ................................ .......... .56 Dependent Population ............ ......................... ......................... .....................56 Housing Needs Table.................... ................. .................................. ............ ..61 Proposed Housing Assistance....... ................. .......... ................................ ................. .64 Low/Moderate Income Area Map................. ................................. ........................... .66 Maps: Percentage of Persons White/Black/ African American ..................................67 Public Housing Strategy..................... ............................ ........... .................. ............68 Barriers to Affordable Housing ....................................................... ........................ .68 Public Policies ............................. .................... .................. ....................... .....68 Tax Policy ................... ............ ..................... .................................... .............69 Land Use Controls and Zoning .....................................................................69 3 Rehab Costs ....................... .................. ................................... ......................70 Targeted Redevelopment ..................... ........................ ............ .......... .......... 70 Affirmatively Furthering Fair Housing ........................................................70 F air Housing Action Plan ......... .................. .................. ..................... 71 Homeless Needs Assessment (Continuum of Care) ..................................................73 Continuum of Care's Accomplishments ................... .................... ................73 Planning Process for Continuum of Care Strategy....................................... 74 Methods for Collecting Info on Housing Gaps..............................................75 Chronic Homelessness Strategy/Goals ...... .......................................................... ..... 78 Past Performance ..... .............................. ............................. ..........................78 Current Chronic Homelessness Strategy...................................................... 79 Future Goals........... ................................ ............................. .................... .......80 Fundamental Components of C of C System Component: Prevention ......................... ............................ ........................... .83 Component: Outreach ... ........................ ............................. .......................... .84 Component: Supportive Services............ ...................................................... .85 Housing Activity Chart ........ ................. ........................... ............................ .86 Use of Mainstream Resources ............. ............................. ........................... .88 Community Development Needs ............ ................................. ......................... ........89 Community Development Needs Table .........................................................90 Anti-Poverty Strategy ........ .................... ....... .......................... ...................... ............ 91 Population in Poverty......................... ............................ .................. ............. .91 Special Needs Population ................... ............................................. .........................94 Special Need Facilities and Services ............................................................95 Transportation ............... ................ .......................... ................... ...................95 Housing for Special Needs Population ..........................................................97 Housing Opportunities for People with AIDS ..............................................98 Non-Homeless Special Needs............................................... .........................98 Strategic Plan............................... .................. ............................. ................ ...............99 Mission .................................. ................... .............. ............. ..........................99 Priorities for Investment ....................... ............................. .................... .......99 Housing and Homeless .....................................................................100 Homeless ............................................ .................. ...................... ........100 Special Needs Population .................................................................100 Community Development Needs ......................................................100 Performance Measures.................... ........................ ..................... ..................101 Goals-Objectives-Outcomes ....... ............................. ................ ................. ...102 Theme One - Affordable Housing Opportunities .............................103 Theme Two - Family and Neighborhood Revitalization ...................107 Theme Three - Economic Opportunities ...........................................111 Certifications........................... .............. .......................... ........................ ............... ....114 Action Plan FY 2006 ................................................... ..............................................120 Appendix 4 EXECUTIVE SUMMARY Consolidated planning is a collaborative process whereby a community like the City of Dubuque establishes a unified vision for community development actions. The U.S. Department of Housing and Urban Development (HUD) requires communities who receive funding under the HUD programs - Community Development Block Grant (CDBG), HOME Investment Partnerships (HOME), Emergency Shelter Grant (ESG), and Housing Opportunities for Persons with AIDS (HOPWA) - to complete a Consolidated Plan. Currently the City of Dubuque is an entitlement city for CDBG funds on an annual basis. The Consolidated Plan integrates economic, physical, environmental, community and human development in a comprehensive and coordinated fashion so that families and communities can work together and thrive. The planning process allows for broad citizen input into developing the overall strategic plan for the community, building upon local strengths and assets and coordinating a response to the needs of the community. The Consolidated Plan for the City of Dubuque is for a five (5) year period, from July 1 2005 (FY 2006) to June 30 2010 (FY 2010). The City of Dubuque Housing and Community Development Department is the lead agency responsible for the development and administration of the Consolidated Plan. The Community Development Advisory Commission has ongoing review for the planning, implementation and assessment of the CDBG program to ensure citizen involvement of the use of these federal funds. The federal statues set three basic goals against which community performance under a Consolidated Plan are evaluated by HUD: - provide decent housing, provide a suitable living environment, and expand economic opportunities. The Strategic Plan has incorporated three themes, which emulate the federal goals: Affordable Housing Opportunities Family and Neighborhood Revitalization Economic Opportunities Under each theme, goals and objectives are listed as described below. The full document also includes outcome targets. Annual progress will be undertaken toward these outcomes through implementation of the Annual Action Plan each of the five years. Since this is a plan based on the best available data, it is understood that as more data becomes available or as strategies are evaluated, the Plan may be amended through the public process during the five-year period. The intent is for the Plan to be the most efficient and effective in addressing the needs of the community and strengthening Dubuque. The federal assistance received by the City of Dubuque is used within the geographic boundaries of the City. CDBG funds are allocated based on the need of the persons receiving direct assistance and also allocated to low and moderate-income areas as defined by the 2000 Census, where at least 51% of the City residents are low/moderate income persons. A map of the 'Low/Moderate Income Area" is shown on page 66. These areas are targeted for assistance to create a greater impact with the use of CDBG funds. Funds are also allocated on a limited basis to slum and blight areas as defined by urban renewal districts. 5 THEME 1. AFFORDABLE HOUSING OPPORTUNITIES Goal 1. Expand the opportunities for home-ownership, especially for extremely low to low income households T1 G1.1 OBJECTIVE: Provide down payment assistance to households. T1G1.2 OBJECTIVE: Encourage acquisition and rehabilitation of owner-occupied housing in low- income areas of the community. Goal 2. Preserve and maintain existing affordable owner and rental housing through rehabilitation of properties for extremely low to low-income households (Under 80% MFI). T1 G2.1 OBJECTIVE: Provide housing opportunities to maintain, improve or obtain affordable housing for all income eligible residents. T1G2.2 OBJECTIVE: Increase availability of housing units, especially larger residential units, for income eligible households. T1 G2.3 OBJECTIVE: Build local capacity to provide permanently affordable housing through partnerships with housing providers to address identified local housing needs. T1G2.4 OBJECTIVE: Maximize participation in and use of low-interest rehabilitation loan/grant funds for rental housing units. T1 G2.5 OBJECTIVE: Create lead safe housing units. T1G2.6 OBJECTIVE: Develop affordable housing to increase the housing opportunities. T1G2.7 OBJECTIVE: Provide assistance to qualified low and moderate-income homeowners, including elderly, for the rehabilitation of housing units. 6 THEME 1 AFFORDABLE HOUSING OPPORTUNITIES (CONTINUED) Goal 3. Increase the range of housing options and related services for special needs populations. TlG3.1 OBJECTIVES: Modify existing and create new accessible housing units. T1G3.2 OBJECTIVES: Provide for effective implementation of existing fair housing programs. T1G3.3 OBJECTIVES: Increase opportunities for the elderly, disabled and persons with special needs to maintain an independent lifestyle. GOAL 4. Create and maintain the availability of emergency and transitional housing and maintain support services for individuals and families. T1G4.10BJECTIVES: Build capacity of local agencies to support the creation of emergency and transitional housing and homeless services, especially for women and children. GoalS. Preserve existing housing and residential neighborhoods T1G5.1 OBJECTIVE: Enforce minimum housing quality standards in all rental housing through systematic code enforcement. T1G5.2 OBJECTIVE: Assist low-income homeowners to improve and preserve historic character of residential structures. 7 THEME 2. FAMILY AND NEIGHBORHOOD REVITALIZATION Goal 1. Work with area providers to promote services to families for optimum health, safety, social and human needs. T2G1.1 OBJECTIVE: Partner with local agencies to facilitate affordable and quality childcare and early education opportunities. T2G1.2 OBJECTIVE: Provide services to improve the education, health, and human service needs of children and families of all ages, including special needs population. T2G1.3 OBJECTIVE: Provide programs for increased opportunities for healthy youth interaction, educational advancement and/or recreation. Goal 2. Preserve and promote the character and assets of neighborhoods in income-eligible areas. T2G2.1 OBJECTIVE: Provide technical assistance to local organizations to guide neighborhood development, revitalization and redevelopment. T2G2.2 OBJECTIVE: Encourage neighborhood groups to build the capacity of area residents. T2G2.3 OBJECTIVE: Provide resources for organized neighborhoods in low/mod income areas to encourage self-initiated revitalization efforts. T2G2.4 OBJECTIVE: Educate community members about diversity and integration to create culturally integrated neighborhoods and community understanding. T2G2.5 OBJECTIVE: Provide inspection and enforcement of zoning and land use regulations to provide support for neichborhood revitalization efforts. GOAL 3. Improve the infrastructure and physical environment in income eligible areas. T2G3.1 OBJECTIVE: Improve and replace sidewalks, and public infrastructure in income eligible areas. T2G3.2 OBJECTIVE: Support the improvement and creation of recreation/ park facilities and green space for income eligible neighborhoods. T2G3.3 OBJECTIVE: Provide planning for community needs and administration of programs to insure maximum public benefit and community enhancements. 8 THEME 3. ECONOMIC OPPORTUNITIES GOAL 1.1ncrease economic opportunities through business retention and/or expansion. T3G1.1 OBJECTIVE: Support local economic development efforts to create or retain jobs that pay benefits and a livable wage to their employees. T3G1.2 OBJECTIVE: Acquisition, disposition and/or clearance of blighted commercial/industrial properties for business redevelopment as needed. Goal 2. Redevelop commercial and industrial buildings to attract redevelopment of blighted areas. T3G2.1 OBJECTIVE: Provide grants and low interest loans to stimulate commercial/industrial business revitalization in city target areas. T3G2.2 OBJECTIVE: Correct commercial/industrial building code violations and rehabilitate buildings in older neichborhoods and downtown. Goal 3. Increase economic opportunities to address the gap from welfare to work. T3G3.1 OBJECTIVE: Promote partnerships with businesses to provide job/skill training to meet the needs of local employers. T3G3.2 OBJECTIVE: Promote workforce development through education and training of low-income individuals. T3G4.3 OBJECTIVE: Support transportation programs to maintain access to education, employment, shopping, and health care for low-income persons. T3G4.4 OBJECTIVE: Provide for the formulation, coordination and implementation of local economic development strategies. 9 MANAGING THE PROCESS The City of Dubuque Housing and Community Development Department is the lead agency responsible for development and administration of the Consolidated Plan. This department coordinates the citizen participation process, researches the analysis of the needs and prepares the Five-Year Consolidated Plan and annual Action Plan document. It is also the lead entity responsible for coordinating the administration of the funding allocation process and monitoring oversight of all public and private agencies that administer programs that will implement the Action Plans for the Five-Year Consolidated Plan and prepares the CAPER report. The Council-appointed citizen advisory board, the Community Development Advisory Commission, reviews the Five-Year Consolidated Plan and the annual Action Plans. The CDAC provides ongoing review of the planning, implementation and assessment of the CDBG program and meet in a public forum to ensure citizen involvement in the use of federal funds. This Housing and Community Development Department began the Consolidated Planning process by meeting with other department leaders and the Community Development Advisory Commission to design a comprehensive strategy for collecting data, hearing citizen and social service agency needs and concerns, assimilating information, and prioritizing community needs. The quality and quantity of citizen participation in charting the future, identifying needs and proposing strategies to meet those needs has been substantial. Focus groups and public meetings provided a forum for citizen input and suggestions in establishing goals and objectives for continued improvement to our community. The Plan represents citizen input on the use of federal CDBG funds to address the identified needs of our community. The City of Dubuque is currently a CDBG entitlement city and not an entitlement for HOME, ESG, or HOPWA funds, although HOME and ESG funds are received through competitive applications to the State of Iowa. CITIZEN PARTICIPATION An active citizen participation process was used to develop both housing and community development priority needs. Community wide focus groups were held in partnership with the Community Foundation of Greater Dubuque to identify and prioritize community needs. The three focus group meetings were held August 31S\ September 1 and 8, 2004 with attendance from non-profit organizations, financial institutions, neighborhood associations, education, realtors, developers and community residents. Community Development Advisory Commission members attended the sessions as well as city staff from various departments. A notice for publiC input was published in the Telegraph Herald on Tues Aug 24, 2004, the Dubuque Advertiser on August 24th and the City of Dubuque website from August 23rd to Sept 8, 2004. A mailing regarding the focus groups was sent to Community Development Advisory Commission, City of Dubuque departments, neighborhood associations, developers, Section 8 tenants, housing providers, supportive service agencies, homeless providers, service organizations, schools and colleges, banks, non-profit organizations, downtown churches, and Continuum of Care members. Participation by the non-English speaking population was encouraged through meeting notices to the Lantern Center and Hispanic Ministry office. A list of agencies, groups, organizations, and others who participated in the process is included in Appendix 1 10 The Community Development Advisory Commission established a Consolidated Planning subcommittee. This subcommittee met periodically to review the process for preparing the Consolidated Plan and establish necessary components of the Plan. Community surveys were distributed at the focus group meetings, at the annual City Expo in April 2004, and to recipients of Section 8 rental assistance at their initial briefings. Public notices were posted on the City website (cityofdubuque.org), in the Telegraph Herald, a local newspaper, and in the free weekly publication, the Dubuque Advertiser. Input was also received during the preparation of the City's Comprehensive Plan, amended in 2002, which includes goals for fourteen sectors of the community, including housing, land use, transportation, environmental quality, economic development, health, human services, city fiscal, education, cultural arts, recreation, public safety, and infrastructure. Review of this input assisted in the preparation of this five-year strategy to address the community's quality of life. Downtown development is part of the overall strategy to enhance and expand providers and services in proximity to the downtown population. In December 2001, the City Council adopted the Vision Downtown document as a community consensus for growth and development in the downtown area. In March 2002, the Council approved funds to create a Downtown Master Plan based on this vision. The Plan was a partnership between the City of Dubuque, the Iowa Department of Economic Development, private contributors, Dubuque Main Street Ltd., Dubuque Area Chamber of Commerce, and Dubuque Initiatives. It identifies general strategies and current conditions, catalyst opportunities, barriers to investment, and priority actions for each of the six elements based on Vision Downtown: Commerce; Culture, Education and Entertainment; Historical Features; Public Space and Open Areas; Residential Living; and Transportation. The public commented on the proposed Consolidated Plan goals and objectives at the November 10, 2004 meeting of the Community Development Advisory Commission, with comments shown in Appendix- Table A. The Community Development Needs table was also reviewed and priorities were established for future activities at this meeting. A draft Consolidated Plan was presented to the Community Development Advisory Commission at its February 9 2005 meeting. A public hearing was held by CDAC on February 23, 2005. A 30-day public comment period commenced with notices published in the Dubuque Advertiser and Telegraph, and placed on the website. Copies were available for public viewing at the offices of the City Clerk, Carnegie Stout Library and Housing and Community Development Department. Following preparation of the draft Consolidated Plan, local Commissions and agencies received notice of the availability for review of this Plan and their comments were encouraged. Their comments are shown on Appendix Table B. The Homeless Advisory Committee was consulted during the preparation of the Consolidated Plan for input on homeless assistance. A Continuum of Care grant application in 2004 has been incorporated into this plan. INSTITUTIONAL STRUCTURE The City of Dubuque will implement the Consolidated Plan through numerous partnerships. The Housing and Community Development Department works with other governmental entities participating in the housing delivery system. As a member of the Family Self-Sufficiency Task Force, the Housing and Community Development Department participates with the Eastern Iowa Regional Housing Authority (EIRHA) in FSS policy development. 11 The City enjoys positive working relationships with a number of State-wide housing providers, including: the HUD Area Office in Des Moines; the Iowa Finance Authority; the State Department of Economic Development (IDED), which administers the HOME Investment Partnership Program; the Des Moines Federal Home Loan Bank, which administers the Affordable Housing Program for the district; and the Iowa Coalition for Housing and Homeless. The Housing and Community Development Department works cooperatively with a number of other agencies participating in the housing delivery system in Dubuque. ~ Staff is represented on the local area Homeless Coordinating Committee. ~ Staff serves on the City's Section 504/ADA Advisory Committee, which oversees compliance activities relative to accessibility of City facilities and programs. ~ Administers the Housing Trust Fund ~ Administers housing rehabilitation-loan programs, both for owner-occupied housing and rental units, including Moderate Income Rental Rehab, Emergency Repair, Accessibility Rehab, Single Room Occupancy Rehab and Rental Rehab (HOME). The City investment sources are CDBG, the Iowa Department of Economic Development's HOME Program and HUD Special Purpose Grant funds. ~ Administers the Community Partnership (cp2) program, funded with CDBG that provides for new and expanded service programs or accessibility projects. ~ Administers the Section 8 Moderate Rehabilitation program, currently at 49 units. ~ Administers the Section 8 Housing Choice Voucher Program, currently at 1031 units. ~ Works cooperatively with area lending institutions in developing programs and securing funds to promote partnership housing initiatives. ~ Is a member of the Affordable Housing Task Force to create affordable housing options in Dubuque. MONITORING The City of Dubuque will follow federally prescribed standards and procedures to monitor activities carried out to implement the Consolidated Plan, and will ensure long-term compliance with the requirements of the CDBG program and other federal programs as necessary. Any agency allocated funding from the City of Dubuque will submit progress reports toward meeting stated goals and objectives for their program on a quarterly basis. The specific reporting periods will be established according to the federal program requirements and the fiscal year of the funding sources. Programs will be monitored for contract compliance with all regulations governing their administrative, financial and programmatic operations and to ensure performance objectives within schedule and budget. Timely expenditure of funds will be reviewed on a continual basis to insure compliance with program regulations. The Community Development Advisory Commission reviews the annual performance report. Presentations, updates, status reports are presented at Commission meetings as requested. PRIORITY NEEDS ANALYSIS AND STRATEGIES The City of Dubuque's Five-Year Plan is an ambitious program of action strategies, which attempts to address clearly identified needs. Numerous players, besides City government, will be instrumental in the completion of the five-year Plan. The Strategic Plan is a program of action strategies, which identifies housing, jobs and services for low-income residents for the next five years. 12 GENERAL PRIORITIES FOR ALLOCATING FUNDS Dubuque historically has received a total of approximately $1.4 million in federal CDBG funds annually. Due to recent federal budget cuts affecting entitlement cities, this amount was reduced in FY 2006 and additional cuts may result during this five-year planning period. The City has established a citizen-oriented method for allocating CDBG funds. The Community Development Advisory Commission is a nine-member citizen advisory commission to the City Council. The Commission is comprised of four representatives from the community at-large, four residents from census tracts and block groups where at least 51% of residents are low/moderate income persons with lowest median income, and a representative from the Housing Commission. As funding annually becomes available, this Commission convenes the process to assess needs, set priorities and recommend CDBG budget allocations based on the adopted Citizen Participation Plan. It receives and reviews public input and recommends the adoption of a spending plan. The Commission begins the public input process with a series of public meetings in the fall of each year, with final adoption by the City Council. The Commission reviews how the proposed activities will meet the needs and priorities as identified in the Five Year Consolidated Plan. BASIS FOR ASSIGNING PRIORITY Citizen input and census data analysis were the rationale for establishing the priority rankings. Public input was received during the process to assist in determining high, medium and low priority for Community Development needs. Funding is proposed as per the Capital Improvement Project budget established by the City of Dubuque during the annual budget process. Priorities for housing needs were established by the City of Dubuque Housing Commission in October 2004 and affirmed by the Community Development Advisory Commission (CDAC) during the public review process. The CDAC established the priority needs as shown in the needs tables. The Homeless needs priorities were established by the members of the Homeless Advisory Committee at a meeting on October 8, 2004 and during the Continuum of Care application process. With reductions in federal funding, even greater negative impact will be seen on the low-income residents. Anticipated obstacles to meeting underserved needs are: - Lack of sufficient resources, including federal funding reductions, which limit the ability to provide programs and services - Lack of sufficient providers LEAD BASED PAINT The City of Dubuque has some of the oldest housing stock in Iowa. The City of Dubuque takes great pride in retaining and maintaining a rich historic heritage of century old homes and buildings. However with the historic housing stock comes a vast amount of aging lead-based painted surfaces. Of the 23,819 housing units in the city, approximately 8,885 or 37% of these units were built prior to 1940. 87% of all residential units were built prior to 1978, the year lead-based paint was banned. This aged housing is expensive to maintain and rehabilitate, and is more energy- inefficient and therefore more costly to renter occupants. 13 Using HUD calculators of incidence, the percentage of these units containing lead-based paint is estimated as follows: Pre-1940 90% 1940-1959 80% 1960-1979 62% Applying these guidelines to Dubuque's housing, estimates of the number of units with lead- based paint include the following: Pre-1940 1940-1959 1960-1979 Total Renters 2,715 936 1.339 4,990 Owners 4,607 2,715 2.868 10,190 It is estimated that 15,180 housing units, or about 67% of the City's housing stock, have some incidence of lead-based paint. Most are located within the larger downtown area. The City of Dubuque has received a $3.69 million grant in 1997 and a $2.4 million award in October 2003 from HUD's Lead Hazard Reduction Program to reduce lead paint in local housing units. The 1997 grant provided for 464 housing units made lead safe with an additional 51 units made lead-safe using an interim control method. The 2003 grant will provide for an additional 255 housing units. Census tracts 1, 5, 6, 7.01, 7.02,101.01 and 101.03 were selected as the target area for these grants, which includes the largest percentage of renter-occupied properties, the largest number of children under six, the oldest housing stock in the city and includes persons with the lowest median household income. The majority of the City's older housing and low-income residents are located within the downtown neighborhoods. Within the larger downtown area these characteristics apply: · Pre-1940 housing units: 88% of the city total · Number of families below poverty level: 69% of the city total · Rental-occupied households: 70% of the city total Table 4a - Housina Aae and Condition Housing data for TARGET AREA Name of TARGET AREA (S): Census Tracts 1,5,6,7.01,7.02, 101.01 and 101.03 Year Built Number % ofTotal Pre - 1940 5,820 61% 1940 - 1949 599 6% 1950 - 1959 752 8% 1960-1969 675 7% 1970 -1977 1049 11% 1978 or newer 717 7% Total 9,612 100% Source and Date 2000 Census Data and 1995 Consolidated of Estimate: Plan 14 Table 4b - Housinc Ace and Condition Housing data for JURISDICTION WIDE Name of JURISDICTION WIDE: Dubuaue, Iowa Year Built Number % ofTotal Pre - 1940 8,888 37% 1940 - 1949 1,658 7% 1950 - 1959 3,077 13% 1960 -1969 3,572 15% 1970 -1977 3,444 15% 1978 or newer 3,174 13% Total 23,813 100% Source & Date of 2000 Census Data and 1995 Consolidated Estimate: Plan Table 4c - Very Low- and low-Income Population Very Low- and Low Income Population for: JURISDICTION WIDE Name of Jurisdiction: DubuQue Iowa Jurisdiction Number of % Number of Families % Total Number of % (City, County, Families ~50% - <80% of AMI" Families State) ~50% of AMI" <80% of AMI" Totals oer Tvoe City of Dubuaue 2,531 18% 2,658 19% 5,189 36% Source and Date of Estimate: 2000 Census Data "AMI- Area Median Income Table 4d - Very Low- and low-Income Population Very Low- and Low Income Population for: TARGET AREA(S) Name ofTaraet Area(s): Census Tracts 1,2,5,6,7.01,7.02, 101.01 and 101.03 Target Area Number of Families+ % Number of Families+ % Total Number of % (Census Tracts) ~50% of AMI" ~50% - <80% of AMI" Families+ <80% of AMI" Tract 1 125 26% 50 10% 175 36% Tract 5 186 18% 259 26% 445 44% Tract 6 110 15% 158 21% 268 35% Tract 7.01 124 20% 108 17% 232 37% Tract 7.02 122 15% 211 26% 333 41% Tract 101.01 83 16% 125 23% 208 39% Tract 101.03 88 12% 201 27% 289 38% Source and Date of Estimate: Census Report 2000 "AMI - Area Median Income 15 Median Household Income -Table 9 Census Tract Median Household Income In 1999- Median Household Income In City of Dubuaue 1999 - Selected Census Tracts Census Tract 1 20,295 20,295 Census Tract 3 39,385 Census Tract 4 32,930 Census Tract 5 27,255 27,255 Census Tract 6 35,395 35,395 Census Tract 7.01 33,750 33,750 Census Tract 7.02 32,634 32,634 Census Tract 8.01 45,581 Census Tract 8.02 54,803 Census Tract 9 38,525 Census Tract 11.01 47,864 Census Tract 11.02 38,856 Census Tract 12.01 34,007 Census Tract 12.02 33,646 Census Tract 12.03 50,423 Census Tract 101.01 33,819 33,819 Census Tract 101.02 53,750 Median Median Census Tract 101.03 36,495 Family 36,495 Family Income Income Total Median $790,268 $ 43,904 $219,643 $ 31,378 Family Income Citywide, over 87% of the housing stock was built prior to 1978 compared to 97% of the housing stock in the target area for the Lead Hazard Reduction Grant. Of the 7,679 buildings located in the target area, only 245 residential properties have been built since 1978 compared to 2,676 jurisdiction-wide. Of the 11,768 residential properties built prior to 1940, approximately 50% of those properties are located within the target area. Of the 22,377 residential properties built prior to 1978, approximately 25% of those properties are located within the target area. The target area for the grant includes the largest percentage of the very oldest housing stock in the city, with over 50% of the residential properties being built prior to 1940. INTEGRATION OF LEAD HAZARD REDUCTION IN OTHER HOUSING PROGRAMS The City's Residential Housing Code requires that interim control activities be under taken whenever defective painted surfaces are detected during all routine housing inspections. This includes all of the City's assisted housing units that are inspected at least annually and all other rental-housing units in the City inspected on a five-year cyclical basis. The strong, local housing code has been an important component in the maintenance of the local housing infrastructure. The Housing and Community Development Department's rehabilitation activities also require that lead hazards will be remedied. Using CDBG funding, low interest loans were previously offered to make properties lead safe during the course of other rehabilitation activities. Currently, HUD lead grant funding is being offered for use in combination with rehabilitation funding to make properties lead safe. Early in the Round 4 program, a lead-safe housing registry was developed and addresses are continually added to the list as properties are made lead-safe. This registry is made available to prospective tenants and particularly to families of lead poisoned children to assist them in finding lead-safe units. This registry is posted at the Housing and Health Services Offices and is forwarded to other service providers, such as the Housing Department Assisted Housing program, Visiting Nurse Association (VNA) , Iowa Department of Human Services, WIC, area pediatricians and the Childhood Lead Paint Poisoning Prevention (CLPPP) Coalition members. 16 This Lead-based Paint Hazard Reduction Program provides the Fair Housing Strategy Committee with an excellent avenue to overcome impediments to fair housing. Housing providers, who rent to families, including minority families with young children and low-income families, receive information about the lead hazard control grant. The Dubuque VNA, Department of Human Services, and the local WIC Office distribute preprinted information about the program. One impediment that will be addressed through the Lead Hazard Reduction program is "the lack of a large stock of decent, affordable housing in Dubuque.' The Analysis of Impediments (AI) noted that Dubuque has a large stock of older housing. The AI also stated that the scarcity of good affordable housing has a major effect on the mobility of persons in the classes protected by the fair housing laws. Dubuque's Lead Hazard Reduction program has helped the Dubuque Housing and Community Development Department promote lead safe housing in to other housing programs in the following ways: · Because the Lead Hazard Control Program is one of the work activities of the Housing and Community Development Department, other Housing staff have been trained and certified. · Because the Lead Hazard Reduction Program is located in the same building with other housing programs, all of the housing inspectors have been trained and certified in dust clearance testing. · Funding is readily available for staff to offer for properties that could benefit from rehabilitation or lead funds to address deteriorated painted surfaces. · A pool of certified contractors, workers, and renovators is available to make properties lead-safe. The Lead Hazard Reduction Program enables the City of Dubuque to continue efforts to reduce lead paint poisoning in Dubuque's young children. Building the infrastructure for this effort includes training contractors, workers and landlords in safe paint removal methods. Of equal importance, it includes building a coalition of medical practitioners, inspectors and other related professional service providers to raise awareness and educate the general public in knowledge of practical interventions. The recent grant will provide enable the "Lead Coalition" to function for another three years. Also, if HUD contract performance goals are met, the City will be eligible for additional funding for a third three-year grant. The Housing and Community Development Department and the Health Services Department work closely with the Iowa Department of Public Health (DPH) in Dubuque's Childhood Lead Paint Poisoning Prevention Program, monitoring the incidence of lead paint in dwellings occupied by children identified with elevated blood levels. All rental units with young children are tested and lead paint removal is required as a condition of participation in the City's rehab loan programs. 17 HOUSING AND MARKET ANALYSIS The City of Dubuque is changing. From its riverfront projects to its continuing transition from an industrial based economy to a service based economy, Dubuque is changing. These changes have ushered in challenges. Government agencies and policymakers have had to address and manage the altering economic and social landscape. The planning skills of Dubuque's agencies and political authorities have been tested in the past decades. One planning tool utilized by policymakers is the city's Consolidated Plan. The Consolidated Plan provides a framework for future decisions and serves as a guide to the relative condition of the city. Such documents provide an invaluable opportunity to assess change and to project possible future trends, always with an eye toward the proper course for agencies and the city. A look to the 2000 census data and other statistical measures provides further evidence of change in Dubuque. While in many areas the amount of change is slight, in others the change is great. The city experienced only the slightest amount of population growth since the 1990 census, but within the general population diversity increased at important rates. For instance, the number of Hispanics and African-Americans increased dramatically (over 100% increase for each) as a percentage of the whole population. Dubuque continued to experience an increase in average age of its population, and the city also saw a rise in single-parent households and single adult households. Beyond demography, both income and owner/renter costs for housing increased. While poverty decreased, there is evidence of continued affordability and availability pressures for those in the lowest economic ranks and for those with large families with modest incomes. These changes and numerous others are chronicled in more detail within the pages of this report. Upon this backdrop of change, a few constants remain. One of these constants is the need for quality housing which is both available and affordable for all residents of Dubuque. The city's Housing and Community Development Department is tasked with addressing such needs. This mission is vital, and it requires an accurate accounting of the condition of the community-not just its buildings, but also its people. This accounting must also include the future as well as the present. The following data is provided to facilitate the process of meeting the housing needs of the current residents of Dubuque, as well as help prepare for the needs of those who will call Dubuque home in the decades to come. The following report focuses on demography of Dubuque, the city's housing market and inventory, areas of concern within that inventory (overcrowding, etc.), assessment of housing concerns and needs (current and future), and the special needs population. Some of the more noteworthy items presented in the following pages include: Demoaraohv ~ The City of Dubuque is projected to experience a 29.4% increase in its population from 2000 to 2030, and the city's median age is also expected to continue to increase. This will create a larger, older, and more likely more diverse population than at present. ~ For the African-American and Hispanic communities the 2000 population was more than double its 1990 size (a 105% and 146% increase, respectively). The Hispanic population now ranks as the largest minority population (1.6% of total, with African- Americans comprising 1.2%) ~ Black and Hispanic households are more likely than white households to fall below the 30% and 50% Median Family Income standard. Individuals in these categories include the most economically depressed and usually those in the most desperate need of social and housing services. 18 ~ Between 1990 and 2000 Dubuque experienced a 9.9% increase in the number of female-headed single parent households. ~ Dubuque's population continues to increase its median age. In 2000, the city's median age was 36.9 years ~ Economic and social diversity, while limited, exists in Dubuque and can be seen when comparing census tracts and blocks. Downtown tracts and blocks indicate the highest concentrations of economic and housing problems, thus signaling the areas for increased and continued assistance. Housing Market and Inventorv ~ Dubuque experienced an increase between 1990 and 2000 of more than 6% in its total number of housing units. ~ Dubuque's overall housing occupancy rate decreased slightly between 1990 and 2000 (from 95.8% to 94.7%, respectively). ~ In 2000, 15,221 housing units (67.5%) were classified as owner-occupied, while 7,339 (32.5%) were classified as renter-occupied. This marks a 1.5% increase from 1990 census totals of owner-occupied units, and a decrease of 1.5% in renter-occupied units. ~ The self-estimated median house value for 2000 was $88,400. This figure represents a 71.3% increase from the 1990 figure for median value ($51,600). ~ The overall vacancy rate increased over 1 % to 5.3% between 1990 and 2000, and can vary widely dependent upon location within the city. In addition, the rental vacancy rate for 2000 was 8%. ~ Exoansion Maaazine ranked Dubuque as a "five-star" community-the highest ranking on a nationwide study of cities. Exoansion measured housing affordability and other quality of life issues (crime, etc.) to determine the relative quality of life experienced by residents. ~ The American Chamber of Commerce Researchers Association (ACCRA) has ranked Dubuque as one of the more expensive cities in Iowa to live (more expensive than Cedar Rapids and Des Moines, for example), but still is more affordable than some in the Midwest. The ACCRA figures otten consider cost without reference to income and other "quality of life" variables such as traffic congestion. Current Housina Concerns and Needs ~ A greater percentage of Dubuque's vacant housing units have construction dates from 1939 or before as compared to the national average. In addition, Dubuque has a higher percentage of vacant units without complete kitchen and plumbing facilities than the national rate. These incomplete facilities numbers are indicative of the relative agedness of the City's housing inventory and some of the remaining issues related to its condition. These conditions and strength of quality inventory remain areas of concern for the Dubuque Housing and Community Development Department as it works to ensure quality and affordable housing. ~ 56.4% of Dubuque's occupied housing units (rental and owned) were constructed in 1959 or earlier, with 57.2% of all housing units constructed more than 50 years ago. 37.3% of all structures were built in 1939 or earlier. Renters are more likely to live in older units than owners. ~ While Dubuque enjoys a below-national average overcrowding rate within its housing inventory, there has been a substantial increase (56%) in the number of overcrowded rental units from 1990 to 2000. ~ Rental units for larger households are in the shortest supply. ~ Dubuque's median contract rent experienced an increase of 45% between 1990 and 2000. This increase outpaced the 41.6% increase in MFI for the same period. 19 ~ Over 70% of those households reporting income below or equal to 30% MFI were listed as having "housing problems" (e.g., too high of cost relative to income, overcrowding, lacking complete facilities, etc.). ~ Housing problems (including overcrowding, high cost burdens, and incomplete kitchen and/or plumbing facilities) were most acute for renter households. ~ Almost 30% (29.8%) of all renter households reported cost burdens greater than 30% gross income and 12.9% reported burdens greater than 50%. ~ The issues of housing problems and cost burdens were also most acute for those households (both renter and owner) with low to extremely low-income levels 0-50% MFI). For example, 74.4% of renter households with extremely low income reported housing problems, with 71.2% reporting cost burdens greater than 30% gross income and 48.2% reporting cost burdens in excess of 50% gross income. ~ Housing problems are also being felt by those in the >50% to <=80% MFI bracket (with 20.6% of such households listed as experiencing housing problems). ~ Elderly renters face higher rates of housing problems and cost burdens than do other categories of renters. Proiected Housina Need ~ According to population and housing needs projections, 3,723 additional units beyond those replaced at current rate will be needed by the year 2010. On current pace of replacement, 25,031 housing units will be available by 2010, while 27,754 are needed. ~ Considering the relative age of Dubuque's housing inventory, maintenance remains a vital concern for the future viability of the city's housing market. ~ An increase in multi-family residential unit construction and renovation of existing housing stock will be needed to address availability and affordability concerns. ~ Economic stratification will likely continue and exert affordability and availability pressures on those in the lowest income classifications. Special Needs Population ~ Dubuque has experienced an increase in its "special needs population" (e.g., elderly, disabled, etc.) since 1990. ~ The City's disabled population (age 5 years and older) continues to increase to its 2000 level of 9,171, with over 1/3rd of these individuals age 65 or older. The size of this population is likely to continue its increase. From the information highlighted above, and discussed in more detail below, it is clear that in many significant ways Dubuque's housing picture is changing. Changes in demography, housing inventory, and special needs populations pose challenges to the city's continuing goal of providing quality and affordable housing to its residents. GENERAL CHARACTERISTICS Community Descriotion Clinging to the bluffs and shores of the Mississippi River, across from both Wisconsin and Illinois, the City of Dubuque is home to 57,686 people (2000 Census). The city is located roughly 200 miles from Chicago, IL, Milwaukee, WI, and Des Moines, 1A. It is slightly further to Minneapolis, MN, and the city is approximately 300 miles from St. Louis, MO. 20 Dubuque serves as a regional retail, medical, and educational center. Despite its size, the city boasts three accredited four-year colleges, as well as a satellite campus for a regional community college. The city is also home to a seminary and bible college. The city is also home to two full service hospitals. Dubuque spans 27.5 square miles, and enjoys an atypical topography by Iowa standards. Steep bluffs, valleys, and ubiquitous winding streets mark Dubuque's landscape, in addition to the city's six miles of riverfront. The Mississippi serves as the eastern boundary of the city, while the landscape gives way to more typical rolling farmland out beyond the city limits to the west, north, and south. The west end has experienced the lion's share of residential and commercial development in recent years. For the past sixteen years Dubuque has been designated a Tree City USA, and the city maintains numerous parks and green spaces throughout. Matching its topographic aesthetics, the city displays an impressive architectural heritage, which is being rediscovered as downtown revitalization programs continue. In 2004, the American Chamber of Commerce Researchers Association (ACCRA) reported Dubuque's composite standard of living cost at 95.1 (with the national average norm at 100), with the city's seven year average (1995-2002) being 103.9. While Dubuque remains, compared to some of its peers, a more costly place in which to live, the 2004 figure marks a decrease in the cost of living from the 1998 ACCRA study. For comparison: final quarter ACCRA 2004 reports for Cedar Rapids indicate a composite standard of living cost of 91.5, Des Moines 93.1, and Waterloo/Cedar Falls 93.7. Regardless of comparison to specific cities, however, Dubuque's cost of living remains attractive when compared to the normed national cost. The composite cost of living scores do not tell the whole story however. Dubuque is also more expensive than many of its peers in terms of grocery, but not always for housing costs. For example, while 2004 ACCRA data scores Dubuque at 94.4 and 88.9 for grocery and housing costs respectively, Cedar Rapids (90.6, 78), and Des Moines (85.1, 94) rank substantially more affordable in some terms but not all. Overall, Dubuque remains competitive in its costs compared to other cities The ACCRA data is balanced, however, by a study on quality of life released in the May 2004 issue of Exoansion Maaazine. The magazine defined criteria for affordable housing, access to quality schools, and additional factors such as tax burden, crime, traffic congestion, unemployment rates, and others, to create a "quality of life quotient." The magazine compared cities throughout the United States on the criteria listed above and created a scale of "stars" (with five stars being the highest ranking) for reporting purposes. Those with five stars had the most affordable access to home ownership or quality rentals, the highest quality public education, and the best performance on those general social and economic indicators such as crime and unemployment. According to Exoansion, Dubuque is a "Five Star" community in which residents could enjoy a high quality of life for an affordable price. The magazine called this living the "American Dream." Other five star communities in the tri-state area include: Iowa City, IA, Cedar Rapids, lA, Des Moines, lA, Madison, WI, and Waterloo-Cedar Falls, IA. The Quad Cities and La Crosse, WI were ranked as four-star communities. The difference in the ACCRA and the Exoansion results may be a function of data used. ACCRA's cost of living index, unlike the Exoansion quality of life quotient, does not provide for comparison of school quality or relative levels of crime, for instance. In the end, if one believes affordability alone is not enough to determine the attractiveness of a place, the Expansion results may be of more interest to residents, potential residents, and policymakers. 21 Labor Force Dubuque maintains an educated, skilled, and efficient workforce. The 2000 Census indicates the City of Dubuque's total labor force is 30,592 persons, with all but 35 of these people employed in civilian positions. These 35 include full time military. For those within the workforce, 1,655 were unemployed (approximately 5% of total). According the 2000 Census, education, health and social services represented the single largest employment sector (6,942, or 24%, of total employed workforce), and the manufacturing sector accounting for 5,168 employees (17.9%), with the retail trade rounding out the top three employment categories (with 3,905 employees, or 13.5%). While the predominate number of individuals within the city's workforce reside in the city or immediate surroundings, a 2004 report by the Greater Dubuque Development Corporation (GDDC) on the Dubuque laborshed indicates an increase in the number of individuals traveling into Dubuque for employment, and a slight decrease from 2002 data in so-called out-commuters (individuals residing in the Dubuque region but work beyond the local zip codes). Emolover Base Over the last fifteen years changes have occurred in Dubuque's employer base. In keeping with national trends, Dubuque has moved from a more traditional industrial/manufacturer base to a service and retail oriented economy. The rise of insurance, finance, and travel/tourism industries has been among the more significant areas of growth. This said, the local manufacturing segments of the economy remain strong and significant areas of employment. The city has also been witness to growth in high-tech sector employment. According to a 2003 Milken Institute study, the Greater Dubuque area ranks number one in high-tech gross domestic product growth (among a field of 96 small U.S. metropolitan areas). The city continues to experience a significantly higher than average high-tech growth rate. Forbes recently recognized Dubuque's inviting business climate, as the city was listed at number 40 (out of 168 cities) on its "Best Place for Business and Careers List" published in its 2003 Best Places edition. The city's largest employers (400+ employees) include: John Deere Dubuque Works (1,600), Dubuque Community School District (1,600), Mercy Medical Center (1,487), Finley Hospital (920), Flexsteellndustries, Inc. (845), City of Dubuque (705), Medical Associates Clinic, P.C. (700), Eagle Window & Door, Inc. (655), CIGNA Retirement & Investment Services (620), Greater Dubuque Riverboat Entertainment Company (550), Advanced Data Comm (550), McKesson Corp (435), and Barnstead-Thermolyne (400). Dubuque has seen significant expansion in several pre-existing businesses, as well as the rise of new businesses. For example, over the last five years expansion has occurred in the manufacturing sector at Eagle Window and Door and Medline Industries, the insurance-related sector at CIGNA (now Prudential), and in the tourism sector through the opening of the National Mississippi River Museum and Aquarium, the Grand River Center and the Grand Harbor Resort and Waterpark. The growth in many sectors over the last several years has been accompanied by the closure of the city's traditional meatpacking industry and downsizing at other manufacturing facilities, such as John Deere. However, there have been some recent trends in rehiring and expansion at some traditional Dubuque establishments such as John Deere. Beyond the increase in insurance, finance, and general services related employment opportunities, the travel and tourism segment of Dubuque's economy has experienced the most significant increase in the past decade. In particular, the city is well into its riverfront revitalization program, entitled "America's River at the Port of Dubuque." The estimated $186 22 million dollar-plus project, a joint venture of the City of Dubuque, the Dubuque County Historical Society's Mississippi River Museum and the Dubuque Area Chamber of Commerce, secured initial funding through a $40 million grant from the Vision Iowa Program. The program, an Iowa community attraction and tourism endeavor begun by an act of the Iowa legislature in 2000, is intended to provide major funding for "projects that build on Iowa's unique assets and values and expand the recreational, cultural, educational, and entertainment opportunities in the state." The Dubuque riverfront project's central components include: the Grand River Events Center, National Mississippi River Museum and Aquarium (an affiliate museum with the Smithsonian Institute), an outdoor amphitheater, riverwalk, and hotel with an indoor waterpark. The City of Dubuque offers a wide variety of services. Despite its size, the City operates a citywide transportation program, local library, a municipal airport, parking structures, and an extensive parks program (including pools, baseball and soccer fields, river walk, nature trails, skateboard park, hockey and skating facility, and public docking facilities). In addition to these more unique services, Dubuque offers police and fire protection, sanitation services (including a recycling program), a maintenance and construction division, housing services, and numerous other programs and services. During the summer the City holds, along with private sponsors, an array of outdoor public celebrations and festivals. Summarv of Communitv Descriotion ~ Dubuque serves as a regional manufacturing, educational, medical, service, and retail center for northeast Iowa, southwest Wisconsin, and northwest Illinois. ~ The city's cost of living, including housing costs, remains higher than other comparable cities. A recent study employing a broader measurement of affordability as it relates to quality of living measures, found Dubuque amongst the most attractive and affordable places to live in the United States. ~ Dubuque's labor force and business climate remain significant strengths. ~ Through city and community partnering, Dubuque's economy continues to experience diversification, a dramatic increase in the size and scope of the service and travel and tourism industries, and a solidification of its riverfront renewal. ~ The municipal government provides an array of services and amenities, making Dubuque an attractive community for residents and businesses alike. DEMOGRAPHICS -LOW-INCOME AND RACIAUETHNIC CHARACTERISTICS Pooulation and Household Data Following requirements by the U.S. Constitution and federal law, the U.S. Census Bureau conducts a decennial enumeration of the population. This enumeration has been understood to require the actual counting of individuals (via mail response, door-to-door census takers, etc.). The Census Bureau, however, accumulates data beyond simple population figures. The Bureau also collects data regarding housing, economic and social standing of individuals, education levels, occupations, family relationships, etc. Across many categories of information (e.g., housing, income, and employment) the Census Bureau employs sampling techniques to gather data (limiting time and cost concerns of a full-scale enumeration across these categories). These techniques allow the Census Bureau to use a select subset of responses to draw a conclusion regarding the whole population. While more refined and with less potential for error, the sampling procedures in the Census are roughly similar to those employed in other sample-based research projects (e.g., calculations of public opinion). The Census Bureau takes 23 several steps to severely limit error rates in the data (where the data reported via sample is out of step with complete and actual data). Given the procedural and statistical safeguards employed by the Bureau, the information reported via sample techniques is treated by researchers and policymakers as accurate. Wherever needed, the type of census data employed (1 OO-percent versus sample) is noted in the text below. According to the 2000 Census 1 OO-percent data figures, Dubuque experienced a .2 percent increase in population between 1990 and 2000. This percentage translates to an increase of 140 persons in absolute terms. While the city experienced a population increase, its 1990 ranking as the state's seventh largest city slipped as Council Bluffs experienced a population increase of more than seven percent. Dubuque is now ranked as the eighth most populous city in Iowa. While the city experienced a 41.6% increase in its Median Family Income (MFI) between the 1990 and 2000 census, Dubuque's MFI remains lower than both the national MFI and the Metropolitan Statistical Area (MSA) MFI. The rate of increase in MFI for Dubuque is lower than that of the MSA (51.4%), but is higher than that for the national MFI (39.3%) during this same period of 1990 to 2000. MFI, and the related term Median Household Income (MHI), reflects the Census Bureau's separate consideration of families and households. According to the Census Bureau, a household "includes all of the people who occupy a housing unit. A housing unit is a house, an apartment, a mobile home, a group of rooms, or a single room occupied (or if vacant, intended for occupancy) as separate living quarters." In contrast, a family is defined as "a householder and one or more other people living in the same household who are related to the householder by birth, marriage, or adoption. All people in a household who are related to the householder are regarded as members of his or her family." Households do not include a requirement of familial relation, while the family category does. As applied in MFI and MHI, the MFI figure corresponds to the median income for a family, while the MHI corresponds to the median income for a household. The median is the number at which an equal number of units (in this case families or households) are above and below the figure. The median is the center point above and below which there is an equal number of families or households. The median serves as a more accurate measure than a mean (simple average) income (given the mean's ability to be skewed by outliers-those with extreme wealth or extreme poverty). The city's population has been projected to increase over the next decades. According to data provided from the East Central Intergovernmental Association (ECIA), the City of Dubuque's populations are projected as follows: 2005: 60,529, 2010: 63,368, 2015: 66,202, 2020: 69,030, 2025: 71,853, 2030: 74,666. From this data, the city is expected to experience a 29.4% increase in its population from 2000 to 2030. In addition to a general increase in the total population, the City of Dubuque is poised to experience continued aging of its population. The median age for 2000 was 36.9. This marks an increase of 2.9 years from the 1990 census figure of 34 years (an 8.5% increase). While this increase may not seem overwhelming, it is higher than the notable 7.3% increase in the national median age from 1990 to 2000 (national age moved from 32.9 years to 35.3) and the state increase of 7.6% (34 years to 36.6 years). Most demographers point to the aging of the baby- boomers for an explanation to the increase in median age. The data presented in Table 1 below provide a more detailed account. What makes Dubuque's higher-than-state increase most striking is that in 2000 the state of Iowa ranked second in percentage of population over 85 years of age, third in percentage over 75 years, and fourth in the percentage of population over 65 years of age. Dubuque is a city with a large population experiencing increased longevity within a state also experiencing a remarkable aging trend. 24 Table 1. Aae Cohorts as Percent of Total Population: 1990 and 2000 (All numbers correspond to cohort's percentage % of total population) 1990 2000 Dubuaue Iowa U.S. Dubuaue Iowa U.S. <5 years 6.6 7 7.7 6.2 6.4 6.8 5 to 9 years 7.2 7.5 7.3 6.6 6.9 7.3 <18 years 24.8 26.6 25.6 23.6 25.1 25.7 18-64 years 59.2 58.8 61.9 59.8 60 61.9 65 years + 16 15.3 12.6 16.5 14.9 12.4 75-84 years 5.4 5.1 4.1 6.1 5.4 4.4 85+ 2.2 2 1.2 2.7 2.2 1.5 The pattern of a population with a definable large and aging cohort is clear from the data presented above. What is also clear is that Dubuque's population tends to be older than both the state and national averages. The potential strain that these individuals, through the aging cohorts, may place on the city's social services bears consideration. Continuing the trend toward demographic diversity that was initially indicated during the 1990 census, Dubuque's minority populations experienced across-the-board increases in population during the 1990's, while the white population experienced a decrease. Table 1A highlights the population, household and income composition of the City. The data is derived from the 2000 census and was generated through the Department of Housing and Urban Development (HUD) State of the Cities Data System (SOCDS) (and includes reference to the 1990 Census in regard to population change experienced from census to census). The SOCDS data is generated from the CHAS Data Book. CHAS TABLE 1A A. Population 1990 Census 2000 Census %Change White 56,367 55,035 -2% Black 328 674 105% Hispanic 370 911 146% Native-American 61 104 70% Asian and Pacific 368 449 22% Islander Other 32 30 -6% Total Pop. 57,546 57,686 <1% Household Pop. 53,977 53,519 <-1% Non-Household 3,569 4,167 17% Pop. B. Special Categories (e.g., students, military, migrant farm workers, etc.) 25 C. Households Total % of Total Lowest Lower Moderate Above Income Income Income 80% MFI <30%MFI >30% to <=50% >50% to <=80% MFI MFI White 21,880 97.3% 2,010 2,460 4,765 12,645 Black 226 1% 79 30 58 59 Hispanic 198 .8% 44 14 67 73 Native American 18 <.1% 4 4 10 0 Asian 68 .3% 8 0 20 40 Pacific Islander 4 <.1% 0 0 4 0 Other 92 .4% n/a n/a n/a n/a All Households 22,486 2,180 2,512 4,960 12,834 1990 Totals 1,157 * 4,637** 16,692** % Change from 1990 (+5.4) (+ 1.2) ( +6.6) *In the 1990 Census, the numbers of non-white households were all negligible, with white households comprising 99% of total. For comparison, in 1990 there were 65 Black households, 54 Hispanic households, 31 native American households, and 79 Asian households reported. Given changes in race categories from 1990 census to 2000, and the small number of cases per group, it is difficult to present these changes more than anecdotally. It is important to note increases in diversity, and such increases have been chronicled in more detail in this report. **Given changes in data categories between 1990 and 2000, accurate comparisons can only be derived by compressing the income categories into <=50% MFI and >=50% MFI. D. Relative Median Income of Jurisdiction MSA Median Family Income $51,200 Jurisdiction's Median Family income $46,564 National Median Family Income $50,046 1990 Totals 33,828 32,881 35,939 % Change from 1990 (+51.4) (+41.6) (+39.3) The data in section "A" refers to total population (the sum of individuals), while data from section "C" corresponds to the number of households identified along racial lines. Because of this distinction, household and total population percentages do not mirror each other. For the Black and Hispanic communities the population growth was more than double its 1990 size (105% and 146% increase, respectively). Most significantly, Hispanics now stand as Dubuque's largest minority group (comprising 1.6 percent of the population, with African- Americans comprising 1.2 percent). The accurate assessment of this population can be difficult. aften such populations in cities such as Dubuque are "moving targets" difficult to gauge. The populations tend to be more transient. Given the need for services by many in this population, mobility poses problems for service providers. Given the trends over the past decades, and current impressionistic evidence, it is likely that Dubuque will experience even more growth in these populations at the time of the 2010 enumeration. 26 Even with these changes and considerations, Dubuque remains a predominately white community with roughly 96 percent of the total population white, despite a 2% decrease in this group's population. Dubuque's population composition largely mirrors that of Iowa. The statewide White population is roughly 93 percent, and the state has likewise seen its Hispanic population overtake African-Americans as the largest single minority population. While Dubuque's population is not as diverse as the nation as a whole, it does include important variations, which do mirror some of the national trends. As with the nationwide figures for urbanized areas, the city's minority population faces economic pressures contributing to special housing needs. In regards to distributions within household racial classification, certain trends emerge. Within the African-American population of households, nearly 40% had household income at levels at or below 30% MFI, and 48.2% registered household income levels at <=50% MFI. As such, according to the 2000 eensus, nearly half of African-American households in Dubuque registered incomes at less than 50% MFI. The figures are slightly better for Hispanic households: 22.2% of such households had incomes <30% MFI, while 29.3% had incomes at <=50% MFI. As the next largest identified household race category, Asian households fare better than either black or Hispanic households. For Asian households, 11.7% report having incomes <30% MFI or <50% MFI, and 88.2% report incomes >50% MFI. The relatively small numbers associated with all three of these racial categories must be remembered, however. Even with the relative boom in the number of individuals in these ethnic/racial classifications, the absolute number is still small (roughly 1,000 individuals for each ethnic/racial classification). With such small absolute populations, reported percentages may appear starker than they really are. The relative distribution of households in the lowest-to-Iower income brackets within African- American and Hispanic households is in stark relief to those of the white community. Of white households, 9.2% of such households had incomes <30% MFI, and 20.4% had incomes <=50% MFI. While African-American households only comprise 1% of the Dubuque's total, and Hispanics .8% of total, African-American households comprise 3.6% of all households with incomes <30%MFI, and 2.3% of households with incomes of <=50% MFI. In other words, the African- American population is over-represented in such income brackets compared to its overall distribution within the city's household population. For Hispanic households, the trends are similar. While Hispanic households comprise .8% of the city's total, they comprise 2% of households with incomes <30% MFI, and 1.2% of households with incomes <=50% MFI. It should be noted, however, that direct proportionality is not likely to occur within a community, and proportionality is not in itself desirable. The issue to be aware of is the standing of certain groups within the community. . To summarize the sianificant Doints concernina DODulation and household data from the 2000 census: >> Dubuque experienced a 41.6% increase in its MFI between the 1990 and 2000 census. >> According to projections, the city is expected to experience a 53.5% increase in its population from 2000 to 2050. >> For the black and Hispanic communities the population was more than double its 1990 size (a 105% and 146% increase, respectively). The Hispanic population now ranks as the largest minority population (1.6% of total, with blacks comprising 1.2%) 27 >> 9.2% of white households had incomes <30% MFI, and 20.4% had incomes <=50% MFI. >> Nearly 40% of black households had income levels at or below 30% MFI, and 48.2% registered household income levels at <=50% MFI. >> 22.2% of Hispanic households had incomes <30% MFI, while 29.3% had incomes at <=50% MFI. Areas of Racial/Ethnic Minorities and Low-Income Population The 2000 Census divided the City of Dubuque into 18 census tracts. Seven of these tracts will be examined in further detail below. These tracts have been identified as containing relatively large concentrations of racial/ethnic minorities and lower income populations as compared to the rest of the city. These areas also possess a higher than citywide average of older housing units. Such populations and units tend to be objects of greater need for housing programs. The census tracts chosen for further examination are as follows: tracts 1, 3,4, 5, 6, 7.01, and 7.02. Tract 1 runs an expanse bordering the Mississippi River from the Julien Dubuque Bridge leading across to Illinois, to an area beyond the bridge leading to Wisconsin. Tract 3 runs alongside Tract 1 and contains a tightly packed residential area near to the industrialized sections of the northeast parts of town. Tract 4 covers a broad area of the city's North end running roughly parallel to the east of the central North/South route through town, while Tract 5 runs a similar course but is marked by more densely packed homes directly along the North/South route through town. Tracts 1, 3, 4, and 5 are all in the lowland regions of the city. Tract 6 serves as part of the northern edge of the central city and partly encompasses the central bluff area overlooking the Mississippi. Tracts 7.01 and 7.02 are residential areas atop the bluffs of the central residential areas of Dubuque. Out of the selected tracts, only two exceeded the Median Household Income (MHI) for the jurisdiction ($36,785) and only one exceeded the jurisdiction's Median Family Income (MFI) of $46,564. The MFI for the areas listed are all below the Dubuque MSA MFI of $51 ,200, and the national MFI of $50,046. Given that housing assistance is only available to those with less than 80% of MFI, the percentage of households within each tract below this threshold is listed in the table below. Because the Census Bureau reports household and family income in interval fashion, the 80% MFI standard is difficult to assess with precision (80% equals to $37,251). As such, the Census interval closest to this figure will be utilized below (the closest interval is $35,000, or 75% of MFI). Using this standard, only two of the tracts below have a majority of households above the 75% of MFI threshold. Given the interval system employed by the Census, it is likely that the percentages for each tract are slightly higher than as reported below. To combat this imprecision, the additional data of percentage of households with public assistance income is also provided below. All but two of the tracts contained a greater number of households receiving public assistance income than the citywide average (3.0% of all households in Dubuque reported receiving public assistance income). These select tracts also include higher than average levels of poverty for both individuals and families as compared to the rest of Dubuque. Table 2 provides the data across census tracts. Table 2 Persons Hshlds % % MHIMFI % Hshlds %Hshld White Minority <75% MFI W/Pub Asst. Inc. Tract 1 2848 1501 85.5 14.5 20,295 25,978 78.4 10.2 Tract 3 2133 800 96.9 3.1 39,386 43,147 42.0 .06 Tract 4 3984 1548 98.1 1.9 32,930 42,022 53.4 3.7 Tract 5 4077 1714 93.5 6.5 27,255 35,122 63.4 4.4 Tract 6 3580 1274 94.6 5.4 35,395 49,559 49.3 3.1 Tract 7.01 3655 1063 93.6 6.4 37,750 45,647 51.4 3.1 Tract 7.02 3437 1334 96.2 3.8 32,634 42,028 56.5 2.4 28 The following map provides a visual representation of the distribution of MFI across the city by census tract. D.t. CI..... Dollars II 25978 - 25978 15122 - 43147 45647 - 49559 51292 - 51750 57216 - 60180 F..tw.. /Y" ""lor _ ....- Street _ Stream/w.tterbody >_A/ Stream/Waterbody Source: U.S. Census Bureau, Census 2000 Summary File 3, Matrix P77. Map reprinted from U.S. Census Bureau. General Housing Market and Inventory Analysis of Existing Housing Stock The 2000 Census provides a wealth of data on the city's existing housing stock. Comparison between the 1990 and 2000 data offers insight into changes and trends within the city's housing stock. Both the 2000 data and the trends as compared to the 1990 figures provide an essential snapshot to help determine the housing needs of the jurisdiction. The categories analyzed in detail include: number of housing units, occupancy and vacancy rates, housing types, and housing age and value. Units and OCCUpanCY The Census Bureau defines a housing unit in the following manner: "A housing unit may be a house, an apartment, a mobile home, a group of rooms, or a single room that is occupied (or, if vacant, is intended for occupancy) as separate living quarters" (factfinder.census.gov). Both occupied and vacant units are included in the census housing inventory, and occupied rooms in hotels, motels, etc. are only counted as housing units if the room serves as the usual place of residence for a particular individual. Occupants in care facilities, boarding houses, etc. are considered as living in a separate housing unit if the individuals live separately from others and have direct access to their individual quarters. Housing units are understood by the Census Bureau as a subset under the general heading of "Living Quarters." As such, housing units are treated distinctly from the other general form of living quarters, "Group Quarters." Both are discussed and differentiated below as they apply to the population of Dubuque. According to the 2000 Census, Dubuque contains 23,819 total housing units. This 2000 figure marks an increase of 1,442 units from the 1990 Census total of 22,377, an increase of more than 6%. Almost 95% (94.7%) of these housing units surveyed in the 2000 Census are occupied, while 5.3% remained vacant (in absolute terms: 22,560 housing units occupied and 29 1,256 units vacant). The 94.7% occupancy rate for the 2000 Census marks a decrease of 1.1 % from the 1990 rate of 95.8%. Of the total occupied housing units surveyed, 15,221 (67.5%) are classified as owner-occupied, while 7,339 (32.5%) are renter-occupied. The owner-occupied rate marks an increase of 1.5% from the 1990 Census, and the renter-occupied rate marks a decrease of the same magnitude (1.5%). Both the number of owner-occupied and renter-occupied units increased in absolute terms from their 1990 census levels. There were 949 more owner-occupied units in 2000 than 1990-a 7% increase, and 74 more renter-occupied units in 2000 than 1990-an increase of 1 %. These figures may reflect the favorable mortgage interest rates and growing single-family housing market in the city. In its 2004 assessment of rental units, the Housing and Community Development Department reports licensed rental units as follows: single family rentals: 697 units, duplex rentals: 1755, multi-family: 5174. From this data, Dubuque has a total of 7626 licensed rental units. This 2004 survey indicates an increase of roughly 2% in total licensed rental units from the 2000 census. To summarize the sicnificant ooints concerninc occuoancv: ~ Dubuque's overall housing occupancy rate decreased slightly between 1990 and 2000 (from 95.8% to 94.7%, respectively). ~ Of all occupied housing units enumerated in 2000, 15,221 (67.5%) were classified as owner-occupied, while 7,339 (32.5%) were classified as renter-occupied. This marks a 1.5% increase from 1990 census totals of owner-occupied units, and a decrease of 1.5% in renter-occupied units. The 1990 figures were 66% owner occupied, 34% renter- occupied. ~ Dubuque experienced an increase between 1990 and 2000 of more than 6% in its total number of housing units. Vacancy A "vacant" housing unit is one in which no one is living during the taking of the census, unless its occupants are only temporarily absent. Following the Census Bureau's definition of vacancy, the City of Dubuque had a total of 1,259 total vacant housing units for the 2000 Census (marking a total vacancy rate of roughly 5%). This 2000 number of total units marks an increase of 319 total vacant units from the 1990 Census (a 30% increase), and the 5.3% total vacancy rate for 2000 marks an increase of over 1 % from the 1990 rate of 4.2%. Since 1990 the Census has created separate classifications for "seasonal, recreational, or occasional use," "migratory workers," and "other vacant." According to the 2000 census, almost 30% of the City's vacancy rate is explained by vacant housing units classified as for "seasonal, recreational or occasional use" (5.7% of total vacant housing units) and "Other vacant" (23.7% of total vacant housing). According to the Census Bureau, "this category [of 'other vacant'] includes units held for occupancy by a caretaker or janitor, and units held for personal reasons of the owner" (factfinder.census.gov). As such, these units do not directly participate in the available rental or sales market as traditional owner-occupied or renter-occupied housing units. In addition, the census also now distinctly lists those rental or sale properties for which rent has commenced or a sale has been listed, but for which the new renter or owner has not moved into the dwelling. Such property at the time of the 2000 enumeration accounted for 9.2% of the 2000 vacancy rate. All told, 38.6% of the 2000 vacancy rate can be explained by non-traditional vacant housing units (those who have been sold or rented, but not yet lived in, those for 30 occasional/recreational use, those expressly for migrant workers, or other non-typical uses-the so called "other vacant"). MaD 2: Rental Vacancy Rates bv Census Tract: 2000 Dat. CI..... I Source: u.s. Census Bureau, Census 2000 Summary File 1, Matrices H4, and H5. Map reprinted from U.S. Census Bureau. i~~~C~;'7 3.6 - S.l 6.2 - 7.7 8.9 - ILl 15.5 - 17.4 F..t.... /V'" ... i or ...... . '"'. Street __ Stre.../Waterbody /^-/ Stre.-JWa-terbody As indicated via the graphic above, the vacancy rates vary across the city. For illustrative purposes, the seven tracts identified previously for closer examination indicate such variation. These tracts contain some of the areas of highest vacancy in the city. This vacancy rate is important to note given the relative economic disadvantage faced by individuals and families in these areas of the city. Such vacancy rates may signal the existence ofsubstandard units available for habitation. For example, in census tract 1, of vacant units enumerated in 2000, 23.3% lacked complete kitchen facilities, while 16.8% lacked complete plumbing facilities. Following the Census definitions, complete kitchen facilities include all the following: 1. sink with piped water, 2. range or stove, and 3. refrigerator. If a housing unit is found to lack anyone of these three it is considered as having incomplete kitchen facilities. Complete plumbing facilities include all the following: 1. piped hot and cold water, 2. flush toilet, and 3. shower or tub. If a housing unit is found to lack anyone of these three it is considered as having incomplete plumbing facilities. The housing picture is not much rosier if one looks to all housing units within the tract (including occupied and vacant housing units). Within tract 1 's complete housing inventory, the 2000 Census sample data find 6.4% of all units lacking complete plumbing facilities, while 9.4% lacked complete kitchen facilities and 7.9% lack telephone service. These numbers are markedly higher than the city averages (of all housing units in the city, 1.1 % lack complete kitchen facilities, while 0.9% lack complete plumbing facilities). It should be noted, however, that vacant units account for the majority of those lacking complete facilities (either plumbing or kitchen). For clarity, of the vacant housing units in Tract 1 (total of 387), 90 lack complete kitchens (177 total units-vacant and occupied--Iack such facilities in Tract 1) and 65 vacant units lack complete plumbing facilities (121 total units-vacant and occupied-lack such facilities in Tract 1). These figures do reveal a matter of concern for the Housing and Community Development Department. According to the "Physical Housing Characteristics" sample data for Tract 1 (both all units and vacant units) reveal that 87 occupied units in Tract 1 lack complete kitchens, while 56 occupied units in the tract lack complete plumbing facilities. 31 Table 3 Census Tract Total Units Occupied Vacant %Vacant Tract 1 1,879 1,492 387 20.6% Tract 3 864 833 31 3.6% Tract 4 1,588 1,512 76 4.8% Tract 5 1,862 1,719 143 7.7% Tract 6 1,349 1,277 72 5.3% Tract 7.01 1,134 1,060 74 6.5% Tract 7.02 1,417 1,333 84 5.9% City 23,819 22,560 1,259 5.3% As indicated above, all but two of these tracts exhibit vacancy rates equal to or higher than the city average. Upon disaggregating the data, it becomes clear that the city's vacancy rate is markedly higher for its rental units than its homeowner units (.8% for homeowner vacancy rate and 8% rental vacancy rate). Dubuque has historically maintained a lower-than average homeowner vacancy rate (a homeowner vacancy rate of 2% is considered normal), and has long demonstrated a higher vacancy rate for its rental properties than its owned units. The 2000 Census figure of 8% for rental vacancy rate is well above the 5% threshold considered important to ensure rental mobility. The characteristics of a large percentage of the vacant housing units may also speak to the reasons for their vacancy (and also call into question their role within the City's housing inventory). While not as thorough as the Dubuque Housing and Community Development Department's past "walking inventories" of the City's rental properties, the 2000 Census does provide data derived through sampling procedures indicating many of the vacant units are older and in less satisfactory condition. For instance, 59% of all vacant units were built in 1939 or before, and over 10% of vacant housing units lack complete kitchen facilities, while 7.2% lack complete plumbing facilities. Despite making up more than one-third (37.3%) of the total housing inventory, structures built in 1939 or before account for more than one-half of all vacant housing structures (59%). Some of the needs within Dubuque's housing inventory come to light more clearly when one compares the housing characteristics figures to the nation as a whole. In 2000, nationwide only 15.8% of vacant housing units consisted of structures built in1939 or earlier, and 7.7% of these vacant housing units lacked complete kitchen facilities, and 6.4% lacked complete plumbing facilities. Data from the 2000 Census indicate that Dubuque's vacant housing is, compared to national averages, older and more likely to lack complete plumbing and kitchen facilities. These conditions, and what they mean for the housing inventory and the residents of Dubuque, remain vital concerns for the Dubuque Housing and Community Development Department as it strives to ensure quality affordable housing to all residents. 32 To summarize the sianificant Doints concernina vacancy: ~ The overall vacancy rate increased over 1 % to 5.3% between 1990 and 2000 ~ The rental vacancy rate for 2000 was 8%, an increase of more than 2% from 1990, and the homeowner vacancy rate continued to its decline through the 1980s and 1990s, to a rate of .8% ~ Since the 2000 Census, Dubuque has experienced an increase in its number of licensed rental units. ~ A greater percentage of Dubuque's vacant housing units have construction dates from 1939 or before as compared to the national average. In addition, Dubuque has a higher percentage of vacant units without complete kitchen and plumbing facilities than the national rate, and in the census tract sampled above the problem is seen in starker relief. These incomplete facilities numbers are indicative of the relative agedness of the City's housing inventory and some of the remaining issues related to its condition. These conditions and strength of quality inventory remain areas of concern for the Dubuque Housing and Community Development Department as it works to ensure quality and 'affordable housing. Overcrowdina The U.S. Census Bureau defines an overcrowded housing unit as any in which there is more than 1 occupant per room (excluding bathrooms, porches, etc.). For the 2000 Census, the national overcrowding rate was 6%. Dubuque's overcrowding rate for occupied housing units is significantly below the national rate, and stood at 1.5% for 2000. The general overcrowding figures do not tell the complete story, however. While less than 1 % of owner-occupied housing units are overcrowded, over 3% of all renter-occupied housing units are overcrowded. While 94 owner-occupied units are considered overcrowded, 229 renter- occupied units are considered overcrowded. The 2000 data indicate a continuation of the overcrowding trends in Dubuque. In 1990 there were 128 overcrowded owner-occupied units and 147 overcrowded rental units. This change translates to a 56% increase in the number of overcrowded rental units between 1990 and 2000. One possible explanation for the relative lack of overcrowding pressures is the city's household and family size. The average household size in Dubuque is 2.37, while the average family size if 2.99. As with comparisons to national averages on overcrowding, Dubuque's average household and family size is below the national averages of (2.59 and 3.14, respectively). To summarize the sianificant Doints concernina overcrowdina: ~ While Dubuque enjoys a below-national average overcrowding rate within its housing inventory, there has been a substantial increase (56%) in the number of overcrowded rental units from 1990 to 2000. ~ Dubuque's has more renter-occupied units (224) classified as overcrowded than it has owner occupied (94). 33 Housina TVDe The U.S. Census Bureau classifies housing types in a myriad of ways. One of the more important forms is classification by number of units within a structure. Such figures provide a way to understand part of the housing landscape, including the forms of housing predominate in a given location. The 2000 Census employed a 10 part classification regime (a slight modification from previous enumerations). The classification begins with 1 unit, detached, and moves to 1, attached, 2, 3 or 4, 5-9, etc. In 2000, 1 unit, detached structures comprised 61.6% of the housing inventory, and 1 unit, attached accounted for another 2.9%. As such, 64.5% of Dubuque's housing units consist of single unit dwellings. Structures with 2-9 units increased in size from 19% of all units in 1990 to 23% in 2000. Structures with more than 10 units (excluding mobile home parks, etc.) increased from 7.5% of all units in 1990 to over 12% of 2000 units. This increase in large-scale multi-unit housing structures indicates a pOint of diversification for Dubuque's housing market. The percentage of mobile homes within the inventory of all housing structures has decreased over the last decade, from 4% in 1990 to 3.5% in 2000. To summarize the sianificant Doints concernina housina tVDe: ~ While single unit structures make up the majority (64.5%) of Dubuque's dwellings, there has been an increase since 1990 in the inventory of large-scale multi-unit structures (10 units or more per structure). Such units comprise 12% of the housing structures in Dubuque as of the 2000 Census. ~ In addition to the percentage increase in structures of 10 units or more, there has likewise been an increase over the last decade in the percentage of structures with 2-9 units. Such units now comprise 23% of all units. ~ The number of mobile homes has decreased over the last decade, and such dwellings represented only 3.5% of all structures in the 2000 Census. Housina Aae Following its established sampling procedures, the U.S. Census Bureau collected data on the age of housing structures in the City of Dubuque. The structure date collected refers only to when the structure was first constructed, and does not consider any renovations since the original construction. The 2000 data indicate that well over 50% of Dubuque's occupied housing structures date from 1959 or earlier (56.4%). Even more significant as an indicator of the character of Dubuque's housing inventory, 36.1 % of all structures were constructed in 1939 or earlier. Slightly below 9% (8.7%) of the City's inventory was constructed since the 1990 Census. The issue of housing age is especially pressing for the renter population in Dubuque. Of all renter-occupied units 41.4% were built in 1939 or earlier, with 57.5% built in 1959 or earlier. Both of these figures are higher than that for owner-occupied units (33.6% built 1939 or earlier, and 55.9% built in 1959 or earlier). As referenced in the vacancy and occupancy sections above, Dubuque's housing inventory tends to be older than the national and state averages. Nationwide, 14.2% of owner-occupied housing units were built in 1939 or earlier, while 16.3% of renter-occupied housing units were built in 1939 or earlier. Dubuque's median construction age for all owner-occupied units is 1956, and for renter-occupied units it is 1951. The national median construction date for owner- occupied units is 1971, while for renter-occupied units it is 1969. For Iowa, 31.1 % of occupied housing units were built in 1939 or earlier, and 50.8% were built in 1959 or earlier. 34 These 2000 Census numbers do not reflect any housing start data since 2000. Data from 2000- 2003 on building permits is included in the Housing Development section below. To summarize the sianificant Doints concernina housina aae: ~ More than half (57.2%) of the City's total housing inventory (includes vacant and occupied units) consists of structures constructed more than 50 years ago. And more specifically, 37.3% of the structures were constructed in 1939 or earlier (in some cases, these structures are over 100 years old). ~ 56.4% of Dubuque's occupied housing units (rental and owned) were constructed in 1959 or earlier. ~ The issue of housing age is especially pressing on renters. 41.4% of renter-occupied units were built in 1939 or earlier, with 57.5% built in 1959 or earlier. Both of these figures are higher than that for owner-occupied units (33.6% built 1939 or earlier, and 55.9% built in 1959 or earlier). ~ Dubuque's owner-occupied units had a median construction year of 1956, and a renter- occupied median construction year of 1951. Both figures indicate a housing inventory notably older than the national median. ~ Compared to state and national averages, Dubuque's housing inventory contains higher percentages of structures constructed over 50 years ago (and of structures created 65 years ago). Number and Tvoes of Available Housina The City of Dubuque contains 23,813 total housing units. Of these units, 61.6% were single- detached, while 31.9% consisted of 2+ units within a structure. The remaining housing units were mobile homes and additional single, attached units. Within the general inventory, 41.2% of units contained 3 bedrooms, 28.6% contained 2 bedrooms, and 15.7% contained one or no bedroom. Units of 4 or more bedrooms account for the remaining 14.6%. According to the 2000 Census, the City's overall occupancy rate stood at 94.7% (a decrease from 1990's figure of 96%). Of the 1,259 vacant units, rental units account for 51.0% of the vacancies, while the remaining 49% is accounted for by a combination of vacant sale properties (10.3%), rented or sold properties not yet occupied (9.2%), seasonal or occasional use properties (5.7%), and "other vacant" (23.7%). From the 2000 figures, the homeowner vacancy rate stands at .8%, while the rental vacancy rate stands at 8%. Given the focus of housing assistance, a more detailed picture of the available rental properties is needed (especially important is the needs of families). Of the renter-occupied units in Dubuque, 39.2% contain 1 or no bedrooms. Adding the 2 bedroom renter-occupied totals, the city's rental inventory contains 82.1 % renter-occupied units of 2 or fewer bedrooms. Less than 20% contain 3 or more bedrooms. In regards to owner-occupied units, the greatest number of units contain 3 bedrooms (55.6%), while 23.5% of these units contain 2 or fewer bedrooms. Coupled with the renter-occupied unit data above, concerns over availability of housing for families (of moderate to large size) exist. Data on the physical characteristics of the city's vacant properties echo this concern. According to 2000 figures, 9.2% of vacant units contained no bedroom, while 35.1 % contained 1 bedroom, and an additional 32.7% contained 2 bedrooms. In sum, 44.3% of vacant units contained 1 or no bedrooms, while a full 77% contained 2 or fewer bedrooms. 35 To summarize the sicnificant Doints recardino Number and TVDes of Housinc: ~ Rental units in the shortest supply are those for larger households (2+ bedrooms). The shortage is most acute for rental properties. HUD 2000 Census data reveals a total of 903+ bedroom units available for rent across all affordability categories (from <30% MFI to >80% MFI). Across the same categories, there were 235 2 bedroom units vacant in 2000. ~ The City's homeowner units face a lower vacancy rate (.8%) compared with the rental market (8%). ~ According to the 2000 Census, the City's overall occupancy rate stood at 94.7% (a decrease from 1990's figure of 96%) Housina Value/Costs The median value of owner-occupied units in the City of Dubuque, as reported in the 2000 Census sample data, rose to $88,400. As with all data created with sampling techniques, the figures may not match the results of a full enumeration. The Census Bureau employs techniques to combat sampling error, however. Also, in regards to property value, the answers compiled by the Census were offered by respondents and not checked against assessments, current appraisals, etc. Respondents to the Census long form were asked to estimate the combined sale value of their home and accompanying land (up to 10 acres). As such, the values are self-reported estimates of what the property would sell for and are not controlled for inflation. This procedure necessarily involves a subjective estimate, but a noteworthy estimate nonetheless. Significantly, the 2000 figure corresponds to a 71.3% increase from the 1990 figure of median value (1990 figure was $51,600). Some of the greatest changes in housing values occurred at the lowest and highest ends of the spectrum. The number of units valued at less than $50,000 fell from its 1990 number of 5,649 to 1,047. In all, such units accounted for less than 8% of the City's owner-occupied housing units. The number of homes valued at $100,000 increased from its 1990 figure of 812 to its 2000 number of 4,686. This change corresponds to a 477% change. For a sense of the central range of values, owner-occupied housing units valued from $80,000 to $150,000 accounted for 49.8% of the city's total. As such, nearly 50% of all such units in the city's inventory have self- reported values of $80,000 to $150,000. Based on the 2000 Census sample, Dubuque's median contract rent was $370 for renter- occupied units. This number is an increase from the 1990 figure of $255. This $115 corresponds to a 45% increase from 1990. During the same period, the city's MFI increased from its 1990 level of $32,881 to $46,564, or 41.6%. As in past studies, the change in contract rent outpaced the increase in MFI, and the number of lowest rent units decreased. 36 To summarize the sionificant ooints concernino Housino Value/Cost: ~ The self-estimated median house value for 2000 was $88,400. This figure represents a 71.3% increase from the 1990 figure for median value ($51,600) ~ The greatest change in housing value statistics between 1990 and 2000 occurred in the lowest and highest ends of the value spectrum. Over this period the city experienced a loss of over 4,000 units in the <$50,000 value category, and experienced an increase of nearly 4,000 units in the category of $100,000 or more. ~ Nearly 50% of all owner-occupied units in the city's inventory have self-reported values of $80,000 to $150,000 ~ Dubuque's median contract rent experienced an increase of 45% between 1990 and 2000. This increase outpaced the 41.6% increase in MFI. As of 2000, the city's median contract rent stood at $370 for renter occupied units. Demand for Multi-Familv Housino According to the 2000 census, Dubuque's population has continued to increase its median age from a 1990 figure of 34.0 years to its 2000 level of 36.9 years. In regards to the city's household types, the 2000 census reports a total of 22,560 households (units serving as the usual place of residence for those individuals therein). Of these, 63.4% were family households (those places of residence where related individuals reside), while 36.6% were non-family households. Of the non-family households, 12.9% of male householders in non-family households lived alone, while 18.2% of female householders in non- family households lived alone. Given concerns with affordability pressures and economic risk factors, the 2000 Census found 2,258 female households with no husband present. Of this population, 68.4% lived with related children under 18 years of age. The 2000 Census figures mark a 9.9% increase from the 1990 level (2,055). It is likely that Dubuque will continue to experience an increase in single-parent households, an aging population, and those seeking alternatives to traditional single-family units (e.g., "empty nesters," singles, etc.). Given the desire by city officials to increase Dubuque's position as a regional medical, employment, tourist, and education center, it is likely to face a continued need for multi-family housing developments. Given concerns for affordable housing, simply having new development may not be enough. Redevelopment with an eye towards affordability may be necessary. To summarize the sionificant ooints reoardino the demand for multi-familv housino: ~ Dubuque's population continues to increase its median age. In 2000, the city's median age was 36.9 years. ~ The city continues to show significant numbers of single households, with single female households occurring at a greater rate amongst all non-family households. ~ Between 1990 and 2000 Dubuque experienced a 9.9% increase in the number of female-headed single parent households. ~ Given the trends toward diversification in the city's economic and demographic base, it is likely that pressures for multi-family housing will increase. 37 Housina Develooment The development and redevelopment of housing units has continued to increase in several sections of the city since the last Consolidated Plan. Development of new single-family units has continued to increase in the western and southwestern areas of the city. Spurred on by the recent completion of the northwest arterial (linking the northern reaches of Dubuque to Route 20), development has also increased near this thoroughfare. Beyond development of single- family units, the city has also experienced some increase in duplex construction in the same corridor. The inventory of condominiums within the city has also increased. A number of downtown housing renovations have also taken place. A note of caution must remain, however, as the new housing development in much of the city remains beyond the purchase reach of low and moderate-income families. Data on building permits obtained through HUD's SOCDS indicates that since the last Consolidated Plan (published in 2000), single-family buildings continue to be the main focus of development. The following table outlines permits issued by the city from 1995 up to and including the year 2000. Table 4. New Privatelv-Owned Residential Buildina Permits 1995-2000 Year Type Units 1995 Single-family Multi-family 84 125 1996 Single-family Multi-family 69 57 1997 Single-family Multi-family 59 73 1998 Single-family Multi-family 67 73 1999 Single-family Multi-family 55 29 2000 Single-family Multi-family (source: HUD, SOeDS) 40 68 Given the market and economic conditions covering the 2000 census period, and subsequent years (especially factors impacting housing such as lower mortgage rates), it is of interest to note in more detail the housing development in Dubuque from 2000 to 2003 (the last year for which there is currently complete data). According to annual building permit data compiled by the U.S. Census Bureau, Dubuque issued the following number and type of permits for the years 2000-2003: 38 Table 5. New Privatelv-Owned Residential Buildina Permits 2000-2003 Year Type Buildings Units 2000 Single Family 40 40 Two Family 12 24 3-4 Family 8 32 5+ Family 1 12 Total 61 108 2001 Single Family 67 67 Two Family 11 22 3-4 Family 6 21 5+ Family 0 0 Total 84 110 2002 Single Family 76 76 Two Family 18 36 3-4 Family 2 6 5+ Family 5 61 Total 101 179 2003 Single Family 78 78 Two Family 17 34 3-4 Family 0 0 5+ Family 9 70 Total 104 182 (source: U.S. eensus Bureau) From the data presented in Table 5, it is clear that the largest single group of privately-owned housing unit development from 2000-2003 has come in the form of single family housing (45%), while units intended for 5+ families accounted for 24.7% of units, two-family units accounted for 20%, and 3-4 family units 10.2%. The unit percentage aside, of all building of privately owned housing, single-family dwellings accounted for 74.6% of all buildings for which a permit was issued, with 5+ family buildings accounting for only 4.3%. As such, the preponderance of buildings permitted during this period were for single-families, while the unit percentages indicate a significant percentage of units came from the buildings for 5+ families. As the need will likely rise for multi-family units (given demographic shifts and other factors outlined above), the need for increased buildings accommodating such a population also will increase. Concerns have been raised over the impact of the focus on single-family housing. Some contend that while the city's housing inventory continues to be focused on single-family owner- occupied units, the new development is largely priced out of the range of low-to-moderate income households. To summarize the sianificant ooints regardina housina develooment: >> Single-family buildings remain the focus of new housing construction. >> Between 1995 and the end of 2000, the city issued permits for 799 privately-owned residential units. While less than half of these permits were issued for single-family units (46.8%), the nature of multi-family residential unit construction means that more single- family buildings were constructed than multi-family buildings. >> From 2000-2003, single-family units accounted for 74.6% of all residential buildings for which a permit was issued. During this same period, multifamily buildings with units for 5+ families accounted for only 4.3% of residential buildings for which a permit was issued. 39 Zonina and Land Use There are 17,600 acres within Dubuque's corporate limits. Of the parcels delineated from this total acreage, approximately 9.6% (1687) are zoned commercial, another 9.6% are zoned for industrial (with 1,395 heavy industrial, and 294 light industrial). Over one-third (36%) of the city's parcels are zoned for residential structures (5,274 acres zoned for R-1 single family, and 662 multi-family). An additional 20% of the city's acreage is classified as infrastructure (including roads, alleys, etc.). Approximately 60% of Dubuque's land is actually developed. The city possesses floodplains, detention basins, wooded bluffs, and other vacant and undeveloped properties. Affordabilitv of Rental. Owner Occupied and Vacant Units The following tables, produced through HUD's SOCDS interface, provide some illuminating information on housing affordability and households facing housing problems in Dubuque. Table 6 provides information on the relative affordability of the city's housing inventory. The affordability information below uses the HUD-Adjusted Median Family Income as the affordability standard (e.g., <=30% corresponds to <=30% HAMFI). The HAMFI figure reflects HUD's adjustment of the income levels to account for location and household size. Definitions (oer HUm: Rent 0-30% - These are units with a current gross rent (rent and utilities) that are affordable to households with incomes at or below 30% of HUD Area Median Family Income (HAMFI). Affordable is defined as gross rent less than or equal to 30% of a household's gross income. Rent 30-50% - These are units with a current gross rent that are affordable to households with incomes greater than 30% and less than or equal to 50% of HUD Area Median Family Income. Rent 50-80% - These are units with a current gross rent that are affordable to households with incomes greater than 50% and less than or equal to 80% of HUD Area Median Family Income. Rent> 80% - These are units with a current gross rent that are affordable to households with incomes above 80% of HUD Area Median Family Income (HAMFI). Value 0-50% - These are homes with values affordable to households with incomes at or below 50% of HUD Area Median Family Income. Affordable is defined as annual owner costs less than or equal to 30% of annual gross income. Annual owner costs are estimated assuming the cost of purchasing a home at the time of the Census based on the reported value of the home. Assuming a 7.9% interest rate and national averages for annual utility costs, taxes, and hazard and mortgage insurance, multiplying income times 2.9 represents the value of a home a person could afford to purchase. For example, a household with an annual gross income of $30,000 is estimated to be able to afford an $87,000 home without having total costs exceed 30% of their annual household income. Value 50-80% - These are units with a current value that are affordable to households with incomes greater than 50% and less than or equal to 80% of HUD Area Median Family Income. Value> 80% - These are units with a current value that are affordable to households with incomes above 80% of HUD Area Median Family Income (HAMFI). As may be expected, Table 6 indicates that those households in the lowest income brackets face the most pressure to find affordable housing. For instance, no owner-units were rated as affordable to households with incomes <=30% HAMFI. The data also reveal that those renters with the lowest household incomes are more likely to face housing problems (incomplete facilities, etc.) as they search for housing within their HUD assessed affordability range. Table 7 below provides a more detailed picture of the problems faced by renters and owners across income levels, types of households, and conditions. 40 Table 6. SOCDS CHAS Data: Affordabili Mismatch Out ut for All Households Source Of Data: ' r:-~.;~,:=: ~Data OataC:-et:' ' I Rente=:tJor I OWned or for.. . I 0-1 IUJI 3+ U .,... II II ~(~R' I, n, ft] . (]&][]i[]1 (C) UiOI n' n. Jl.;,I'Iu'1IJ c:=Jc:=JI It " 1~<ttIII U::::Jc::Jl' '1,':1 C1!2ICilllI '~I "4ZiI J' · ' ")OMrWlI:. , r st.91~1 ' 24AlI '" ..011 "'u~..r~W4i.. 1 64.8n 14.11l 84.~U 12.111. ' , . .I[]ilJ:HlAtKII1 I 33,'1 em 1 14.511 ~5.9U ". '"U'Mf~[~[1I1 I 1451 c:zg 1 4511 28Q1l1vacant__lf)ilJ\ll.'YWAl( ,III CJc::::JI II IlV."" ~; '11. :11' It", '~;t 11.675/11.87511 515114.~aU ';. . .n .J~IIIJ I 42.711 33.111 31.311 ,..~ 1 71.sll 70.41~1 '72.~ 1 31.sll 30.411 34.811 31.~1 I 1401~~I' 2951 vacant' ~~ DDDO[=.>MW IDO I 35011 7901~1 I, .1 occupants<a8O% 1 51.11~1 88.111 '5."~1 II s5.~ built before 1970 I 52.sl[~1 84.711" 55.~I'1 1-ia1 I 5O.01~1 37.~141.~ll ~GDI' ~~YaCant...1 ~ DDDI 1~.....>8ft. IDDD 11201~~1 191.11 "I[B~~ ~[3DI ~~"..nt""IDO[3 41 Table 7. SCCDS CHAS Data: Housina Problems CutDut for All Households ..... till ..........on: , Iowa ..... of DIda: CHM DIta.. 42 Table 7. SOCDS CHAS Data: Housina Problems OutDut for All Households (con'tl ....... 0..,. ...., ('1&2 .........) Imd ......... (2 tD .. All ToIII 0Ihtr ..ntlp. Definitions (oer HUD): Anv housing Droblems: cost burden greater than 30% of income and/or overcrowding and/or without complete kitchen or plumbing facilities. Other housinG Droblems: overcrowding (1.01 or more persons per room) and/or without complete kitchen or plumbing facilities. Elderlv households: 1 or 2 person household, either person 62 years old or older. Renter: Data do not include renters living on boats, RVs or vans. This excludes approximately 25,000 households nationwide. Cost Burden: Cost burden is the fraction of a household's total gross income spent on housing costs. For renters, housing costs include rent paid by the tenant plus utilities. For owners, housing costs include mortgage payment, taxes, insurance, and utilities. 43 Compounding the concerns over general availability of housing for families, the "Affordability Mismatch" and "Housing Problems" data provided in Tables 6 and 7 indicate further areas of concern. According to these figures compiled by HUD from the 2000 census, of the vacant 2+ bedroom rental units, only 115 are affordable rents for those households with incomes at or below 30% of the HUD area MFI. Of these units (2-3+ bedrooms), HUD has identified 37.4% with housing problems (meaning the cost burden is greater than 30% of specific household's income, and/or there are overcrowding and/or inadequate facilities in the unit--e.g., incomplete kitchen or plumbing facilities). In the rent category of greater than 30% but less than 50% MFI, 155 2+ bedroom units were vacant, while 65.2% of these units registered as having housing problems (same definition as above). Of those units with a current gross rent affordable to households with incomes greater than 50% and less than or equal to 80% of MFI, there were 45 vacant 2+ bedroom units, while 77.4% of these units were labeled as having housing problems (same definition as above). For units with a current gross rent affordable to households with incomes above 80% of MFI, 102+ bedroom units were vacant, and none were reported as having housing problems. Beyond the rental pressures on large families indicated above, the data suggest likewise pressure on 0-1 bedroom units. According to data provided in Table 6, of those 0-1 bedroom units in the <30% MFI affordability category, 33.1 % of occupied units were listed as having housing problems. In addition, this category comprises only 855 units (of which 145 were listed as vacant). For those 0-1 bedroom units affordable at the >30% to <=50% MFI, 140 were listed as vacant, while 31.9% of occupied units were listed as facing housing problems. In the >50% to <80% MFI category, there were 40 0-1 bedroom units available, and 50% of occupied units were listed as facing housing problems. One hundred-twenty 0-1 bedroom units were listed as in the >80% MFI affordability category, with 25 vacant for rent and 0 reporting housing problems. Across all the HUD affordability categories (from <30%MFI to >80% MFI), the percentage of households listed as having housing problems are as follows: Table 8. Percentaae of Households Facina Housina Problems oer Income Level Income Level % With Housina Problem <30% MFI: 25.9% >30% to <=50% MFI 31.6% >50% to <=80% MFI 41.7% >80% MFI: 0% The data suggest that housing pressures affect not only those in the lowest income bracket (less than 30% MFI), but that those in the middle-income bracket (>50 to <=80%) also face problems. This middle- income group may be especially problematic given the income limits for rental assistance programs. It is likely that the housing problems most often faced by households within this income level relate to cost burden or overcrowding, and not incomplete kitchen or bathroom facilities. Shifting to concerns over cost burdens for households, there are a few notable items. Of those renter households with an income of <=30% MFI, 48.2% face a cost burden of greater than 50% of their income. Cost burden is defined as "the fraction of a household's total gross income spent on housing costs. For renters, housing costs include rent paid by the tenant plus utilities." factfinder.census.gov) This means that nearly half of those renter households in this lowest income bracket are spending more than 50% of their income on housing alone. In the same income bracket of <=30% MFI, 71.2% of renter households are spending greater than 30% of their income on housing (the >30% cost burden is important given that this figure leads to the household's inclusion as facing "housing problems"). As reported, those 44 households with incomes of >30 to <=50% MFI, 54.8% registered a cost burden greater than 30%. The percentage of renter households facing extreme and moderate/serious cost burden levels (>50% to >30% burdens) decreases as the household income increases (e.g., of those households reporting >50% to <=80% MFI, only .7% indicate a cost burden at >50%, and 12.6% indicated a cost burden >30%). Such trends are expected, and they highlight the strain specifically facing those households at the lowest levels of income. In regards to cost burdens for households in owner-occupied units, the same general trends exist. For those owner-households with household incomes <30%MFI, 45.6% report cost burdens at greater than 50%, and 66.9% reported cost burdens >30%. For owner-households with income at >50% to <=80% MFI, 2.9% report cost burdens at greater than 50%, and 22.5% at a cost burden >30%. Another item of note is the particular affordability pressures faced by elderly renters. The affordability pressures for the elderly trend in the inverse compared to largelrelated renter households. While 82.1 % of large/related renter households with incomes <=30% MFI are listed as having housing problems, 63.4% of elderly households do so. While 67.9% of large/related renter households with incomes <=30% MFI report cost burdens >50%, 37.5% of the elderly-renter households report such burden levels. However, the affordability pressures for the elderly, as compared to other groups, change as income levels increase. For renter-households with income >50% to <=80% MFI, 24.2% of elderly-renter households indicate a cost burden >30%, while 0% of large/related households report such levels of cost burden. As household income levels increase beyond the lowest levels, elderly- renter households demonstrate higher than average levels of cost burdens. The exact reason(s) for such a trend is not readily apparent in census data, however, higher-income elderly may be more likely to avail themselves of more expensive and amenity filled communities with services such as assisted living arrangements, etc. To summarize the sianificant points concernina the affordabilitv of and availabilitv of housina: >> Over 70% of those households reporting income below or equal to 30% MFI were listed as having "housing problems" (e.g., too high of cost relative to income, overcrowding, lacking complete facilities, etc.) >> Of those renter households with an income of <=30% MFI, 48.2% face a cost burden of greater than 50% of their income, while 71.2% of such renter households are spending greater than 30% of their income on housing. >> For owner-households with income at >50% to <=80% MFI, 2.9% report cost burdens at greater than 50%, and 22.5% at a cost burden >30%. >> Elderly renters tend to face increasing cost burdens as household income levels rise. >> Housing problems are also being felt by those in the >50% to <=80% MFI bracket (with 20.6% of such households listed as experiencing housing problems). Residential Housina Loss Since 1989, when the Dubuque Housing and Community Development Department began tracking the loss of housing units, the city has experienced the loss of 369 units. The majority of these demolitions have occurred due to Iowa Department of Transportation demolitions, and those spurred by development at Loras College and University of Dubuque. While the demolitions associated with the two colleges has been offset to a degree by development of group quarters housing (Le., dormitories and student housing complexes), such development does not translate into increases in housing for families and others in need of traditional housing. Additional losses have been realized as a result of expansions at the city's two hospitals, Mercy Medical Center and Finley Hospital 45 ~ Dubuque experienced losses in its older housing stock due to demolition and expansion of local institutions. ~ The loss of older dwellings is important to note given the relative affordability of most such buildings Chanoes in Rental Units and Contract Rents Table 9 provides data on changes in the number of rental units and the median contract rent amounts between 1990 and 2000 for selected census tracts (where data available). The data for the 2000 census was derived through a sampling technique, so the exact number of rental units listed below (7,280) does not match with the 100-percent data presented earlier (in which there listed 7,339 rental units). The sample for the information below is limited to those specified units for which contract data was available. Comparisons across time and tracts must be mindful of slight alteration in the subdivision of a place into tracts from one census to another. The tract division employed by the Census Bureau for the 1990 Census was altered slightly for the 2000 Census (e.g., while the 1990 Census included a tract 2 and 10, there are no such tracts in the 2000 census-they have been subsumed into others). As such, tracts compared for the City's previous Consolidated Plan were renumbered and assigned for the 2000 Census. The tracts below, however, were fairly consistent in geographic area represented across the 1990 and 2000 enumerations. Tract 1 for the 2000 census largely includes what was previously tract 2 in the 1990 census (and highlighted below), and the area of tract 10 is now reported in 12.01 (not included in tracts identified for further investigation below). Table 9. Chanoes in Rental Unit and Contract Rent by Selected Census Tract: 1990-2000 1990 Median 2000 Median Change %Change Census 1990 2000 Change %Change Contract Contract Tract Units Units Rent Rent Tract 1 1,036 1,239 203 22% $207 $290 $83 40% Tract 3 274 252 -22 -8% $271 $382 $111 41% Tract 4 392 467 75 19% $233 $349 $116 49.8% Tract 5 806 835 29 3.5% $219 $316 $97 44.7% Tract 6 549 519 -30 -5.5% $235 $295 $60 25.5% Tract 7.01 491 472 -19 -3.9% $269 $373 $104 38.7% Tract 7.02 630 566 -64 -10.1% $251 $380 $129 51.4% City 7,265* 7,280* 15 .2% $255 $370 $115 45.1% *Starting in 2000, the Census Bureau began collecting contract rent information through sampling techniques. The 1990 Census information was obtained through 1 OO-percent data. From the data above, several observations can be made. First, over half of the selected tracts experienced net losses of rental units. Given the below-city-average economic and physical housing characteristics of these tracts, this may translate into fewer units available to a largely renting population. Second, all of the tracts experienced increases in the contract rent costs. In all but three cases, this increase amounted to over $100 (with percentage increases ranging from a low of 25.5% to a high of 51.4%). This change was not neatly accompanied by a commensurate increase in income, however. Coupled with the decrease in the number of renter-occupied units, this may signal a second pressure on the population in these tracts. Not only are fewer units in existence, but their cost has increased. This situation is especially important given the relative economic disadvantage experienced by many in these tracts. For example, in tract 1 78.4% of households earn less than 75% of the jurisdiction's MFI. All but two of the tracts listed above have more than 50% of their households at less than 75% MFI. 46 For those rents in these tracts that are well below the city average, concerns may be raised about the quality of the rental inventories. To summarize the sianificant Doints concernina chanaes in rental units and contract rents: ~ In all, 4 of the 7 census tracts examined in detail exhibited net losses in the number of rental units ~ All the tracts examined above experienced significant increases in the amount of contract rents. Some tracts experienced increases at or above 50%. ~ Given that these tracts generally contain higher-than-city-average levels of economic disadvantage, these changes in number and cost of rental units is of special concern for the goal of affordable housing in Dubuque. ~ There is likelihood that the lower-rent properties may also be older and/or substandard (a claim bolstered by data revealing a housing inventory in the areas which are older and more likely than city or national averages to contain incomplete kitchen and/or plumbing facilities) . M Vf>)r ~"'for, 1,2 u ___ Housing Market Analy". OcCupied Units: Renter OcCUpied Untts; Ow,.,... Vaalnt Units: For R..,t Vacant Units; For Sel. Total Un,ts OXuptad ,. Vec:ant RAnt"s' AoDlicabIA FMR.s. {In I.s\ ".nt Arto,..bMo .t JO'Mt of SOIlM. or MFI (in ..) Pu~Hc ........... u_ Occupied UnIts Vacant Unit. Total Units Occ.upt-=i &. V.cant ._~IIIt.._ _. In..& Houa.tng Stock Inventory ---,~ ney R... 47 HOUSING NEEDS ASSESSMENT Current Estimate of Housina Need Table 1 provides data on the numbers of different types of rental households possessing housing problems and rental costs at various levels of median family income. For the purposes of discussion, the following income categories correspond to the following income levels: extremely low income refers to 0-30% MFI; very low income refers to 31-50% MFI; low income refers to 51-80% MFI; and moderate to above median income refers to greater than 80% MFI. This last category is the most problematic one to label given its inclusion of those with above median income levels. Given the relative focus of housing assistance on those below 80% MFI, the problems associated with the broad labeling of this last income level are somewhat mitigated. Of all occupied units in the 2000 census, 67.5% were owner-occupied while 32.5% were renter occupied. The general occupied unit breakdown from the 2000 census is used here to identify the general distribution of renter versus owner-occupied units within the city's inventory, while the more exacting SOCDS data from HUD is used in the following discussion of households by income classifications and existence of housing problems. There is a slight variation between the 2000 census occupied unit figures versus the SOCDS data on household types (most likely an artifact of comparison across units and households-even so, the difference in the numbers is only 74 and therefore does little to change the general percentages of renter v. owner units within the city). To further negate any concern with the difference between the census unit percentages versus the SOCDS household breakdowns, if one were to simply use the SOCDS data to calculate household distribution, the figures are such: 67.6% are owner-households, while 32.4% are renter households. Of all the city's households (22,486), 42.9% (9,652) were listed as having incomes in the low to extremely low levels of income as a percentage of MFI (0-80% MFI), while 57% (12,834) of all households reported incomes at greater than 80% MFI. Within the low to extremely low income (0-80%MFI), 22.6% (2,180) have incomes 0-30% MFI, while 26% (2,512) are in the very low income range of 31-50% MFI and 51.4% (4,960) are in the low income range 51-80% MFI. As such, within the population of households with income levels below 80%,48.6% of households reported income in the lowest two levels. This means that nearly 1 in 2 low income individuals finds themselves in the more dire economic circumstances of earning less than 50% MFI. While the percentage of households in the moderate to above median income levels is the largest single category within Dubuque, a substantial portion of Dubuque's households have income levels of less than 80% MFI, and out of these households, nearly half are in the most problematic economic categories of less than 30% MFI and 31-50% MFI. All this data relates that there is income stratification within the city, and there is a sizable population at economic risk. The relative levels of income disparity occur at different rates between renter and owner households. As to be expected, the percentage of renter households with extremely low levels of income is greater than that for owner households. Of the city's 7,282 renter households in 2000,21.7% reported income at 0-30% MFI, while 4% of the city's 15,204 owner-households report such income levels. Slightly over 18% (18.4%) of renter households reported very low income (31-50% MFI), while 7.7% of owner households reported such income levels. On the opposite end of the economic spectrum the relationship between owner and renter households is the same. Slightly over 30% (31.2%) of renter households reported income at greater than 80% MFI, while 69.5% of owner households reported such income levels. This indicates that a greater percentage of renter households experience the lowest income levels compared to owners and that a smaller percentage of renter households enjoy the highest level of income. 48 Looking to the owner household data, it becomes clear that such households are not without income pressures, however. Of all owner households, 30.5% (4640) report incomes less than 80% MFI. The GHAS data provide detailed information beyond income distributions. Included in the data are indicators of housing problems and cost burdens (definitions per HUD are provided below the table). As with the distribution of income levels discussed above, there is a great difference between the distribution of households with high cost burdens and housing problems between renter households and owner households. While 33.3% of renter households reported having any housing problems, 13.5% of owners were listed as having such problems. The cost burden figures continue this difference. While nearly a third (29.8%) of renter households reported cost burdens greater than 30%, 12.9% of owner households reported such burdens. At the more dramatic cost burden level of greater than 50% gross income, 12.9% of renter households reported such burdens while 3.6% of all owner households reported burdens at the greater than 50% level. Within the category of renter households with extremely low incomes nearly three-quarters (74.4%) report housing problems. Slightly over 56% (56.7%) of renter households in the very low-income range were listed as having housing problems, while 18.1 % of those renter households in the low-income category were listed as having housing problems. The general trend towards more housing problems the lower the income level is shared across owner and renter households. Within the category of owner households with extremely low incomes 66.9% report having housing problems. Within the very low category 33.2% report problems, while 22.6% of owner households in the 51-80% MFI category report such problems. The relative distribution of housing problems and cost burdens is not in a normal distribution. The elderly and small and large related renter households and owners face special housing pressures. In regards to the relative income levels of the elderly, the above table provides some important information. Over 20% (21.4%, or 1,555) of the city's renter households are classified as elderly (1 and 2 member) households. In 2000, of all renter households with income at or below 50% MFI (2,919), 28.5% (833) were classified as elderly households. At the extremely low-income level, of 1,579 such renter households, 28.6% (451) were elderly households. Of all elderly renter households, 53.6% (833) had income less than 51% MFI, while only 20.1% (313) reported income levels at greater than 80% MFI. Most importantly, 29% (451) of all elderly renter households reported extremely low-income levels. Elderly renter households registered higher-than-average rates of housing problems compared to other renters. Of all elderly renter households, 42.4% reported having housing problems, while the rate across renter categories was 33.3% Elderly renter households also registered the highest percentages with cost burdens greater than both 30% and 50%. In terms of cost burden at greater than 30% of gross income, 40.6% of elderly renter households registered such burdens, and 16.9% of such households registered burdens greater than 50%. These figures compare unfavorably to the general burden rates across renter household categories. In 2000, 29.8% of all renter households reported cost burdens greater than 30% and 12.9% reported burdens greater than 50%. In regards to elderly owner households, while such households make up a large percentage of extremely to low-income households, they do not have cost burden or housing problem rates uniformly higher than other categories of owner households. In fact, a smaller percentage of elderly owner households show cost burdens and housing problems than do small and large related owner households. This relative lack of cost burden and problem pressure may reflect the mortgage-free status of the elderly owner households. This said, the elderly make up the 49 largest single group of owner households with incomes 0-50% MFI. Of the 1,773 owner households with incomes of 0-50% MFI, 61.5% (1,090) are categorized as elderly (1 and 2 members). Of owner households with extremely low incomes (601 total), 58.9% (354) are elderly households. As with the lower levels of cost burdens, this income distribution may be related to the age and status of those within the households. Such elderly owner households likely rely on fixed incomes reflecting a lower level of income (e.g., Social Security or pension income). As elderly household income increases the likelihood of housing problems and cost burdens largely mirror other household categories (e.g., while of those households with very low income 13.9% of elderly households report housing problems and 74.7% of large related households in the same income category report problems, of households with moderate to above median incomes 4.1 % of elderly households report housing problems and 7% of large related households report such problems). In regards to the pressures faced by large related households, the issues of cost burden and housing problems are most acute for those in the lowest income levels. Of large related renter households with extremely low income, 82.1 % report cost burdens greater than 30% and 67.9% report cost burdens greater than 50%. However, in the very low-income category, large related renter households experience lower than average rates of cost burden and housing problems. Interestingly, the cost burden and housing problem figures for large related renter households are above average when the household income increases to the moderate to above median level of greater than 80% MFI. This finding may be a function of the relative dearth of rental units for large families. While across all renter households in this highest income category 5.1 % report having housing problems, 15.1 % of large related households report such problems. A full 100% of large related owner households with extremely low-income report housing problems. The number is also higher than average for large related renter households in the extremely low-income category. For such households, 82.1 % report housing problems. The figures are not much better for small related households (both renter and owner) in the extremely low-income range. Of such renter households, 82.2% report cost burdens greater than 30% and 57% report cost burdens greater than 50%. In addition, 82.2% of small related renter households report housing problems. Amongst owner households, small related households within the extremely low and very low-income levels have higher than average rates of cost burdens and housing problems. For example, while 33.2% of owner households in the very low-income bracket report housing problems, 68.6% of small related households report such problems. 50 Table 1. SCCDS CHAS Data: Housina Problems CutDut for All Households 51 Table 1. SCCDS CHAS Data: Housin .... ""1 . I' .... 'iii.... . ......... "'4111 ~ fl, lII,lm --- (1&2 ......) .... ........ (UI:>> .. &U ....... ......, -- '- ('I&t, OIhtrfbll.... .111111 uat Definitions (oer HUD): Anv housina Droblems: cost burden greater than 30% of income and/or overcrowding and/or without complete kitchen or plumbing facilities. Other housina Droblems: overcrowding (1.01 or more persons per room) and/or without complete kitchen or plumbing facilities. Elderlv households: 1 or 2 person household, either person 62 years old or older. Renter: Data do not include renters living on boats, RVs or vans. Cost Burden: Cost burden is the fraction of a household's total gross income spent on housing costs. For renters, housing costs include rent paid by the tenant plus utilities. For owners, housing costs include mortgage payment, taxes, insurance, and utilities. 52 To summarize the sianificant Doints concernina the CHAS data in Table 1: ~ Over two-thirds (67.5%) of Dubuque's housing units are owner-occupied while nearly one-third (32.5%) are renter occupied ~ Of all households with income levels below 80% MFI, 48.6% of such households reported income in the lowest two levels. ~ Almost 30% (29.8%) of all renter households reported cost burdens greater than 30% gross income and 12.9% reported burdens greater than 50%. ~ Housing problems (including overcrowding, high cost burdens, and incomplete kitchen and/or plumbing facilities) were most acute for renter households. While 33.3% of renter households reported housing problems, 13.5% of owner households reported such problems. More specifically, 42.4% of all elderly renter households reported having housing problems, 30.5% of small related renter households reported such problems, and 40.5% of large related renter households reported problems. ~ The issues of housing problems and cost burdens were also most acute for those households (both renter and owner) with low to extremely low-income levels. For example, 74.4% of renter households with extremely low income reported housing problems, with 71.2% reporting cost burdens greater than 30% gross income and 48.2% reporting cost burdens in excess of 50% gross income. ~ Importantly, 66.9% of owner households with extremely low income reported housing problems, while 66.9% reported cost burdens greater than 30% and 45.6% reported cost burdens in excess of 50% gross income. For renter households with income greater than 80% MFI, 5.1 % report housing problems while 2.1 % report cost burdens greater than 30% and .2% report burdens in excess of 50% gross income. ~ For owner households with income greater than 80% MFI, 5.8% report housing problems, with 5.1 % reporting cost burdens greater than 30% and .3% with burdens in excess of 50% gross income. ~ The elderly make up the largest single group of renter and owner households with incomes 0-50% MFI. Of those extremely low income renter households, 28.6% are elderly, 58.9% of owner-occupied households are labeled as elderly. Households with Income <30% MFI Information from the CHAS data presented in Table 1 is repeated below for households with incomes <= 30% MFI. The "All Others" category below refers to single renters and non-related renters. 53 Table 2. Renter and Owner Households with Incomes <=30% Renter Households Elderly Small Related Large Related All Others Total !ll.l (2-4) (5 or more) Renters 451 393 56 679 1579 28.6% 24.9% 3.5% 43% 100% Table 2. Renter and Owner Households with Incomes <=30% Owner Households Elderly Small Related Large Related All Others Total !ll.l (2-4) (5 or more) Owners 354 88 24 135 601 58.9% 14.6% 3.9% 22.5% 99.9%* *Due to rounding loss, total does not equal 100% According to the 2000 Census, Dubuque had 2,180 households with income <=30% MFI; 72.4% (1,579) of these were renter households and 27.6% were owner households. The greatest number of renters in this high-risk category were the "all others," with elderly comprising the second largest discrete group and small related and large related following in size. The elderly comprised the largest single group of extremely low-income households, with "all others," small related, and large related following in proportion. Elderly households stood as the largest identified discrete group of both owners and renters in this lowest income classification (58.9% of extremely low owner households and 28.6% of renters). Households with Cost Burdens> 50% Gross Income The following table provides a more detailed breakdown of the cost burden figures provided in the CHAS Table 10. The absolute figures for households were computed based on the percentages provided in the CHAS data. Table 3. Renter Households With Cost Burdens >50% Elderly Small Large All Others Total % Related Related Renters Income (2-4) (5 or more) 0-30% MFI 169 224 38 330 761 80.8% 31-50% MFI 79 49 4 30 162 17.2% 51-80% MFI 15 0 0 0 15 1.6% >80% MFI 0 4 0 0 4 .4% Total 263 277 42 360 942 100% % 27.9% 29.4% 4.5% 38.2% 100% 54 From this data it is clear that the largest percentage of renter households with cost burdens greater than 50% come in the lowest income bracket (80.8% of those renter households with cost burdens greater than 50% are in the 0-30% MFI category). By household type, the greatest percentage of households at risk, beyond the "all others" category is the small related households (29.4% of all households with burdens greater than 50% are in this category). This type of household is followed closely by the elderly renter households (comprising nearly 28% of all renter households with burdens greater than 50%). Table 4. Owner Households With Cost Burdens >50% Elderly Small Large All Others Related Related Owners Income (2-4) (5 or more) 0-30% MFI 130 64 20 60 31-50% MFI 55 80 10 15 51-80% MFI 19 24 4 35 >80% MFI 4 12 0 19 Total 208 180 34 129 % 37.7% 32.7% 6.2% 23.4% Total % 274 49.7% 160 29% 82 14.9% 35 6.4% 551 100% 100% As indicated in the table above, of those owner households reported as having cost burdens in excess of 50%, the greatest percentage is comprised of elderly (37.7%), with small related (32.7%), "all others" (23.4%) and large related households (6.2%) following. As with the data on renter households with cost burdens greater than 50%, those households with the lowest income comprise the largest percentage of extremely burdened households. Nearly half (49.7%) of severely burdened households are in the extremely low-income level. Table 5. Total Households With Cost Burdens >50% Type 0-30%MFI 31-50%MFI 51-80%MFI 80%+MFI Total % Renter 761 162 15 4 942 63.1% Owner 274 160 82 35 551 36.9% Total 1,035 322 97 39 1 ,493 100% % 69.3% 21.6% 6.5% 2.6% 100% From the 2000 Census data provided in the foregoing table it is clear that the largest percentage of households with extreme cost burdens come from the lowest income bracket. Of those households, renter and owner, with cost burdens in excess of 50%, 69.3% came from the extremely low-income bracket. In all, 21.6% came from the very low bracket, while 6.5% came from the low-income bracket with the remaining 2.6% coming from the moderate to above median average income level. Perhaps most importantly, the data reveals that renter households comprise the lion's share of households with extreme cost burdens. 63.1 % of all households with cost burdens greater than 50% were renter households, while the remaining 36.9% were owner households. 55 Future Housina Needs Moving beyond concerns over existing housing stock and affordability, Dubuque may face even more demanding housing pressures. The future of housing in Dubuque, both its affordability and its availability, must be addressed by planning and foresight. According to projections from DMA TS, Dubuque's population will rise to 66,000 by the year 2010. Following this projection, 27,754 housing units will be needed. As of the 2000 census, however, only 23,819 units existed. Projecting out the total number of housing units available on current pace of replacement and demolition (ratio of replacement to demolition as determined from City of Dubuque Building Services Department), 25, 031 housing units will be available by 2010. As such, 3,723 additional units beyond those replaced at current schedule will be needed by the year 2010. The foregoing data and projections do not tell the whole story, however. Given the already aged nature of the city's housing inventory, the average age of the housing stock will only increase by the year 2010. Along with this age comes the greater likelihood of problems with housing (facilities, maintenance concerns, etc.). Not only must Dubuque address the availability of housing to serve the future demands of the population, but it must also concern itself with the continued upkeep and viability of its aging housing inventory. Victims of Domestic Abuse The following table provides domestic abuse statistics for Dubuque County in comparison to surrounding counties. Table 6. Domestic Abuse Rates. 2002 County Incidents Rate (per 100,000 population) Clayton Delaware Dubuque Jackson Jones o 8 68 11 17 o 43.3 76 179.3 83.8 State 7,607 283.8 Source: Iowa Department of Public Safety, 2002 UCR Annual Report As evidenced in the data provided in Table 6, Dubuque experienced more incidents of domestic abuse than that of it neighbor counties. In terms of rate, however, Dubuque had fewer per capita incidents of domestic abuse in 2002 than both Jackson and Jones County. Deoendent Pooulation Given their status, it is often important for social service and housing agencies to accurately gauge the dependent population within a jurisdiction. The two major dependent groups (children/youth and the elderly) are often the targets for unique social and income support services. Given this, the following table provides more information on the size and composition of Dubuque's dependent population. These figures are from the 2000 census. 56 Table 7. DeDendent PODulation Classification Number Population Under Age 18 13,637 Population 65 and Over 9,547 Total Dependent Population 23,184 Population Age 18-64 34,502 Ratio Dependent to Non .67 to 1 % of Total Population 23.6% 16.5% 40.2% 59.8% While children continue to comprise the largest group within the dependent population (13,637 or 23.6% of total population), there is a substantial elderly population in Dubuque (9,547 or 16.5% of total population). Of the city's elderly population, 3,085 are age 80 or older. This segment of the population accounts for 5.3% of the city's total population, and 32.3% of the elderly population. Those 80 years or over are mostly female (2,295) rather than male (790). As such, of those 80 years or over, 74.4% are female and 25.6% are male. Compared to national 2000 census figures, Dubuque has a higher rate of elderly within its local population than that found within the total national population. Most importantly for discussions of need, Dubuque has a greater percentage of individuals 80 years of age and older as compared to the national figures. Nationally, 12.4% of the population is 65 years or over, 3.3% 80 years or over, and 25.7% of the national population is under 18 years of age. Dubuque's population has larger than national rates of elderly, while it has a slightly lower rate of children when compared to the nation as a whole. According to 2000 Census reports, Dubuque had a population of 8,025 persons 65 years and over. Of this population, 2,211 (or 27.6%) were females living alone, with 625 (or 7.8%) males reported as living alone as non-family householders. This disparity likely reflects the longer life expectancy of females. Both groups, male and female, highlight a group traditionally at risk requiring special attention and services (including home health care, transportation, meals on wheels, information, and referrals). This is also especially true for those in the advanced age group of 80 years and over. 57 Table 8. Problematic Households ComDosition 1990 and 2000 Status Number % of Total Households 1990 2000 1990 2000 Single parent Households 2,568 2,975 12% 13.2% Female Head 2,055 2,258 10% 10% Male Head 513 717 2% 3.2% Householders Living Alone 5,931 7,004 28% 31% Over age 65 2,694 2,836 13% 12.6% Female 2,165 2,211 10% 9.8% Male 529 625 2% 2.8% Total Households 21,437 22,560 Total Household Population 53,977 53,519 (excludes those in group quarters) Total Population 57,546 57,686 People Living in Group Quarters 3,569 4,167 Selected Categories: Nursing Homes 975 867 Correctional Institutions 63 91 Juvenile Institutions 12 0 College Dormitories 1,578 2,054 As demonstrated above, there have been some demographic changes of note since the 1990 census. For instance, the number and percentage of single-parent households increased. The same is true for those single-parent households which have males as parent. While the total population for Dubuque increased between 1990 and 2000, the household population did not. The most notable trend outlined above is the marked increase in householders living alone. Dubuque is home to an increasing percentage of individuals living alone, without children or other adults (either related or non-related). The number of householders living alone is an area of traditional concern for social service agencies. Such populations run the risk of social isolation. While some of these householders living alone are students at the city's colleges, there is still cause to believe a significant portion comprise more permanent residents. Approaches to combat social isolation include recreational programs, referral services, and social programming. It is also doubtlessly true that many, if not most, of such householders require no special programming. Other variables such as income, education, health indicators, may be more highly correlated with the need for special services. Dubuque also is home to a sizeable population within group quarters. Of the city's total population of 57,686,4,167 (or 7.2%) live in group quarters. This figure includes 1,047 (25.1%) institutionalized persons, and 3,120 (74.9%) non-institutionalized individuals. Within the institutionalized population 867 individuals are in nursing homes and 91 are in correctional institutions. Among the non-institutionalized population, the vast majority are in college dormitories. Beyond concerns with poverty, overcrowding is also a particularly important consideration. Those facing overcrowding are often a target population for social and housing service agencies. It is generally thought that overcrowding is related to relative economic pressures (those in overcrowded housing are in such a condition due to lack of economic means), and highlight a group which has specific housing assistance needs. Overcrowding is often correlated with social, physical, and mental limitations. The U.S. Census Bureau defines an 58 overcrowded housing unit as any in which there is more than 1 occupant per room (excluding bathrooms, porches, etc.). For the 2000 Census, the national overcrowding rate was 6%. Dubuque's overcrowding rate for occupied housing units is significantly below the national rate, and stood at 1.5% for 2000. According to the 2000 census, of Dubuque's 22,538 occupied housing units, 323 (or 1.5%) were overcrowded. The following table provides more detailed information on the overcrowding rates for both renters and owners. The data is presented below using income levels corresponding to HUD adjusted median family income (HAMFI). Table 11. Incidence of Overcrowded Households: 2000 Census Income Level Renters % (Persons Per Room) 0-30% HAMFI 45 (1.01-1.5) 25 (1.51 or more) 20 31-50% HAMFI 25 (1.01-1.5) 10 (1.51 or more) 15 51-80% HAMFI 105 (1.01-1.5) 80 (1.51 or more) 25 >80% HAMFI 50 (1.01-1.5) 35 (1.51 or more) 15 Owners % 2.8% 4 .06% 4 o 1.8% 15 1.3% 5% 15 o 20 20 o .7% 2.2% 54 .5% 50 4 Overcrowding is only one form of housing problem. To better gauge the level of housing need, the following table provides a breakdown of households reporting any housing problem. The Census Bureau categorizes a household as experiencing a housing problem if it faces a "cost burden greater than 30% of income and/or overcrowding and/or without complete kitchen or plumbing facilities." As such, the following table includes the overcrowding statistics listed above. A separate table has been generated for renters and owners. Table 12. Incidence of Housina Problems: Renters (in Dercentaaesl Income Level Elderly Small Related (1 & 2) (2 to 4) Large Related (5 or more) Total 0-30% MFI 63.4 82.2 82.1 74.4 31-50% MFI 64.7 63.9 47.0 56.7 51-80% MFI 24.2 15.3 38.5 18.1 >80% MFI 8.9 Source: CHAS data book 3.5 15.1 5.1 59 Table 13. Incidence of Housina Problems: Owners (in oercentaaes) Income Elderly Small Related Large Related Total Level (1 & 2) (2 to 4) (5 or more) 0-30% MFI 59.3 88.6 100 66.9 31-50% MFI 13.9 68.6 74.7 33.2 51-80% MFI 9.9 30.6 27.2 22.6 >80% MFI 4.1 6.0 7.0 5.8 Source: CHAS data book One important, but often overlooked, demographic subdivision is the category of "subfamilies." The Census Bureau defines subfamilies as "A married couple (with or without children) or a single parent with one or more never-married children under the age of 18, residing with and related to the householder, but not including the householder or the householder's spouse." Grown children moving back to the parental home with their own children or spouse are considered a subfamily. The census further classifies the subfamilies by type: married-couple subfamilies, with or without children; mother-child subfamilies; and father-child subfamilies. Table 14. Subfamilv Tvoes and Pooulation: 2000 Number of Total Subfamilv Tvpe Subfam. PoP. Married Couple 71 164 (-with children) (15) (27) (-no children) (56) ( 113) (-children) (nfa) (24) Mother -ch ild 126 314 Father-child 28 60 Total 225" 538 Number of Parents Number of Children Average Size 27 24 2.3 126 28 188 32 2.5 2.1 2.3 Source: U.S. Census *Due to inclusion of a small number of undifferentiated subfamilies, the 2000 census reports a total of 236 households having a subfamily. As such, average size of family across subfamilies has been calculated with the 236 figure. 60 Housi Needs Table Houslno Needs . NUMBekOP PEOPUl > 5. Cost Burd"" >SO~ . NUMBER OFPEOP'l.e > 5. Cost Burden> SO'll. . NUMBeIl OF PEOPLe co '" ~ u: U 5. Cost Burden > SO~ 2 ~ . NUMBeR OF PEOPLE .. #. ii 0 ~ ~ V ci 5. Cost Burden >SO~ N ! . NUMBeR OF PEOPlE 3. Any houslna Droblems 4. Cost Burd > 30% 5. Cost Burden> SO'll. i 2. NUMBER OF PEOPlE , .. $I > J IlIi 5. Cost Burden >SO~ 0 2. NUMBek OF PEOPLE ;: co I!' .=l U 5. Cost Surdlln >SO~ ~ 2. NUMI!lI!ROF PIOPLI! .. .r; ~ ;;: > ci 5. Cost Burden >50~ HSGNeed 1 CPMP 61 Housin Needs Table HSGNeed Housing Needs . HUMBErt OF PEOPLE 9. Cost !Surden >so~ . NUMBER OF PEOPLE > 9. Cost Burden > 50~ . NUMBER OF PEOPLE t rdn> 9. Cost Burdlll1 >50~ . NUMBER OF PEOPlE 9. Cost !Surden >50~ . HUMBER OF PEOPlE! 7. AnY housinc Droblems 9. Cost Burcllln >50~ . NUMBI!R Of' PEOPLE 9. Cost Burden >SO~ . NUMBER OF PEOPLE 9. Cost !Surd"" > SO'll> . NUMBek OF PIOPI.E 7. Any housinc Drob/ems <i > ci 9. Cost Burden >SO~ > 2 CPMP 62 Houain Needs Table Houslna Needs 10. NUMIlI!R Of" Pf!Oll\J! c e M Y C T_' D......... T_I a..I/"'. T_ILHd-...... T_I HlV/AIIlS _1215 HSGNeed 3 CPMP 63 PROPOSED HOUSING ASSISTANCE Currently the following housing facilities are assisted by local, state or federally funded programs. FACILITY DESCRIPTION A1vemo Apartments 100 elderly rent-assisted units 3525 Windsor Avenue 563-582-2364 Ecumenical Towers 89 elderly rent-assisted units 250 West 6111 Street 563-556-8476 Hillcrest Apartments 108 rent-assisted units 3290 Hillcrest Road 563-556-3900 Kennedy Manor 73 rent-assisted housing units 2671 Owen Court 563-556-5125 St Mary's Home, Inc 79 elderly units rent-assisted 2671 Owen Court 563-556-5125 Sheridan Village 60 family units rent-assisted 701 Hogrefe Street 563-557-7706 Currently the City of Dubuque assists 1080 housing units through Section 8 Voucher and Mod Rehab funding. Reduction of Section 8 funding due to budget cuts may affect the number of units that will be assisted in the future. There is no expectation that the City will lose any units due to expiration of project-based contracts. The use of funds made available for rental assistance, production of new units, rehabilitation of old units, or acquisition of existing units is determined by the age of housing and incidence of lead-based paint. The City's priority is to use CDBG and HOME funds for rehabilitation of housing. City resources are not used for new construction. The existing policies supporting historic preservation, older neighborhood revitalization and adaptive re-use of historic structures for housing uses supports the continued rehabilitation of housing in older residential areas and downtown. Based on the findings of the housing market analysis and housing needs study, the use of federal funds will be directed to the goals and objectives as identified in our strategic plan. Local partnerships with public and private agencies will be pursued to assist in increasing the availability of housing. An obvious need is to add larger bedroom (3+) units to the market, either through rehab, conversion or new construction. Even though Census demographics indicate a declining household size, more recent (post-2000) immigration of larger families is creating local demand for this type of housing. Traditionally, landlords have had less interest in larger units, as more rental income can be generated with more (smaller) units. Larger bedroom units also are associated with more intensive management operations. To overcome this resistance, greater subsidy of capital costs may be necessary. Area non-profits can be approached to partner in this effort. These include our local CHDO Gateways to Home or our existing Iowa Finance Authority Housing Trust Fund partner, the HEART/Four Mounds/Four Oaks consortium. An objective of any rental project is to reduce costs sufficient to permanently provide affordable rents. Given the unavailability of additional housing vouchers or project-based rental subsidy, the only way to address these problems in rent burdens for lower-income households is to lower capital costs. 64 Another area of need is accessible housing for persons with disabilities. This is a particular area of concern in Dubuque, as the housing stock is so old and expensive to modify for accessibility. The City's hilly topography contributes to this problem. The Housing and Community Development Department currently maintains a list of 354 accessibly rehabbed buildings, which is made available to callers seeking this type of housing. The demand continues to exceed supply. The Housing Department and a local lender recently co-funded a consultant study to determine the feasibility of establishing a community development financial institution (CDFI) for specialized lending activities in Dubuque. The consultant's recommendation was to capitalize a loan fund to provide subsidized financing for acquisition-rehab of owner-occupied housing in the downtown. The target market would be households earning 60-80% of area median income. The intent of the subsidized financing (in the form of forgivable loans) would be to fill the "gap" between the costs of necessary rehabilitation and the borrowing capacity of this low-moderate income family. The intent of such a CDFI - using pooled funds from a consortium of local lenders - would be to encourage more homeownership in downtown neighborhoods, more extensive rehabilitation of 1 DO-year old housing in danger of functional obsolescence, additional private reinvestment in the area, stabilization of the population, enhancement of the customer base for new downtown retail businesses and recruitment of new families for the new downtown elementary school to be constructed next year. The activities of Dubuque's Housing Trust Fund have centered on assistance to housing non- profits, in the interest of building local capacity to provide permanently affordable housing. These include the Gateways CHDO, Mercy Housing Midwest (affiliated with Denver-based Mercy Housing,) the Center for Public Ministry's SRO and a number of shelter providers. This latter group includes the Dubuque Rescue Mission, Maria House, Hillcrest Family Services, the domestic violence shelter and Hope House. The HEART/Four Mounds consortium is a new non-profit partner in developing affordable housing. The Housing Trust Fund may attempt to develop a partnership with one or more of these providers in addressing identified local housing needs. 65 MAPS City of Dubuque, Iowa Low/Moderate Income Areas based on Census 2000 data "","-<d&S<<<l * ..EC~ -'- SCUlC[ AOO LIS celSUS The above map is derived from the Census 2000 data indicating the following census tracts and blocks where at least 51 % of the residents are low/moderate income persons: Census Tract 1, Blocks 1 thru 4; Census Tract 4, Block 1; Census Tract 5, Blocks 1,3,4 and 5; Census Tract 6, Block 2; Census Tract 7.01 ,Blocks 1 and 2; Census Tract 7.02, Blocks 1 and 4; Census Tract 11.02, Block 2; Census Tract 101.1, Block 2 and Census Tract 101.3, Block 2 66 Data Cia.... ;:;~~~t 85.5 93.5 - 94.6 96.2 - 96.4 97.3 - 97.9 98.1 - 98.8 F..twe. ;vi Ita j or Roacl ,'. Street .Streillll/Waterbody /'/Streillll/Waterbody i Source: U,S. Census Bureau, Census 2000 Summary File 1, Matrices P1, and P7. D.t. CI..... ;:~~~~. 3 0.5 - 0,9 1.4 - 1.7 2.5 - 2,7 5.f> - 5.f> Feat we. ;vi ltaj or Roacl . .". 5 treet .Streillll/Waterbody /'</ Stream/Waterbody 67 PUBLIC HOUSING STRATEGY The City of Dubuque has no public housing. The Housing and Community Development Department serves as the public housing authority (PHA) for the City of Dubuque. The City assists poor persons with affordable housing through HUD's Section 8 program, which offers rental assistance to lower-income families in privately owned housing. 14 % of the families assisted are elderly and 34 % disabled. The number of minorities in the Section 8 program in Dubuque has almost doubled in recent years, with most minority Section 8 recipients African- American. Whites comprise 80 % of the recipients. At the time of writing of this Plan, funding cuts for the Section 8 program are being initiated by HUD, resulting in a reduction of revenues to the program and contributing to an annual operating deficit. This reduction may result in fewer tenants being assisted and increased costs for the low income recipients. Assessment of the Section 8 Program indicates that it is performing at a high capacity, that it is effectively utilizing resources and that it is maintaining cooperative working relationships with the city's landlords. BARRIERS TO AFFORDABLE HOUSING This Plan is required to address public policies of the City of Dubuque that affect the provision of affordable housing in the community and to describe a strategy over the next five years to remove or ameliorate any negative effects. Barriers to affordable housing have been identified by various reports and studies performed by or on behalf of the City of Dubuque. Obstacles have been identified in the "Fair Housing Planning Guide for the City of Dubuque, Iowa" completed in December 2001 by the John Marshall Law School and the City of Dubuque Affordable Housing Task Force. PUBLIC POLICIES An Affordable Housing Task Force was established by the City to research and recommend ways to produce new single-family housing that is "affordable" to a moderate-income household. A report was reviewed by the City Council in December 2001 and updated in June 2003. The report identified barriers to affordable housing as follows: >> Opposition by property owners to development of affordable housing in their neighborhoods. >> The necessity of subsidy in order to make projects feasible, as affordable rents cannot pay the costs of new developments. >> Increasing prevalence of service sector jobs, resulting in reduced real income growth. >> Opposition by the City to directly providing publicly owned housing. >>A strong real estate economy, which has pushed up home prices and made upper-end housing construction a demand market. >>The age of Dubuque's housing (45% built pre-1940) resulting in increased maintenance and operating costs. >> Other barriers included the lack of developable land, due to the rugged nature of local topography; the high price of available land; and the perception that City standards for materials and installation of subdivision utilities and roadway infrastructure are more 68 demanding than those of outlying communities, resulting in higher development costs in Dubuque. The City Council adopted recommendations of the Affordable Housing Task Force report in June 2003, adopting recommendations for comprehensive assistance to developers of new single-family housing affordable to moderate-income families. To qualify for these incentives, developers must adhere to maximum lot size and home square footage limits. In exchange, the City provides interest-free loans for sewer-water infrastructure installation, waiver of hook-up fees and assessments and reduced street width requirements TAX POLICY The City will continue to assist developers in obtaining Low Income Housing Tax Credits, from the Iowa Finance Authority. Since 1990, we have assisted developers obtain more than $17 million in housing tax credits from IFA for affordable housing projects in Dubuque. The City works additionally works with developers to utilize other existing tax credit programs for assistance to affordable housing projects. These include State of Iowa Enterprise Zone credits, and the State of Iowa and federal historic rehabilitation credits. The City will continues to work in collaboration with other organizations to create housing opportunities that provide assistance to low-and moderate -income persons. The City of Dubuque has established large areas of downtown as both historic districts and urban revitalization districts. These designations assist owners with costs of rehabilitation and maintenance of older properties, through eligibility for special grants and tax abatements. The Urban Revitalization Program allows owners who upgrade their residential properties to receive a ten-year exemption from the property tax increase that would normally accompany property improvements. An urban renewal district has also been established in the downtown, offering a tax increment financing capitalized low-interest loan pool for residential rehabilitation projects. LAND USE CONTROLS AND ZONING Neighborhood opposition to multi-family housing limits construction and redevelopment of affordable housing. Many neighborhoods have a 'not in my back yard' (NIMBY) attitude that limits the placement of affordable housing in many areas of the community. Opposition to proposed zoning changes affects housing choice. The City of Dubuque has also begun a comprehensive update of Zoning Ordinance and the Subdivision Ordinance with the intent to provide a user-friendly ordinance format that implements the goals and objectives of the Comprehensive Plan, recognizes the diverse physical characteristics of Dubuque's neighborhoods, and encourages planned and managed growth. The City will look at the feasibility of combining zoning and subdivision regulations in a comprehensive Land Development Code. The objectives of the rewrite are conformity with local, state and federal codes, be relevant for Dubuque, be user friendly and streamline the process. The Comprehensive Downtown Master Plan - first proposed at the 2000 Housing Summit sponsored by the Housing Department - was approved by the City Council in 2004. This plan provides a blueprint for a comprehensive approach to improving the downtown as a place to work, to live and to recreate. A multi-year implementation process is now in design, which will include Capital Improvement Budget requests for Council consideration plus additional partnerships with other private partners in the downtown community. REHAB COSTS Two major obstacles can make acquisition and rehabilitation of older downtown housing infeasible for low-moderate income households: the combined costs of purchase-rehab exceed 69 the borrowing capacity of lower-income households; and the total costs can exceed market values, making conventional financing difficult to obtain. In addition, meeting federally required historic standards for rehabbing older, historic homes can be costly when using federal assistance programs. The City places a high priority on developing the capacity of the not-for-profit sector, to rehabilitate, build, maintain and manage affordable housing. As federal and state assistance to the City may stabilize or decline in future years, it is essential that the capacity of these groups be otherwise nurtured and developed to help meet the housing needs of the City's low-and moderate-income persons. This also includes building the capacity of neighborhood associations for neighborhood-level response to social and housing conditions. In addition, it includes helping the many area non-profit providers, through the Community Partnership Program, who assist this same population through a variety of support services. TARGETED NEIGHBORHOOD REVITALIZATION The Washington Neighborhood has been locally designated as an area in need of assistance. The area is a 55 square block area bounded by 11th and 22nd Streets on the south and north; and by White and Elm Streets on the west and east respectively. At its eastern and western boundaries, uses tend to be more commercial, with the residential core located along Washington and Jackson Streets. Housing uses begin to intensify north of 14th Street and become increasingly more concentrated toward the north end of the area. Scattered small businesses and institutional structures are located throughout the neighborhood. Although no CDBG recognized designation will be initiated, the area will be the focus of city initiatives to encourage home ownership and redevelopment. AFFIRMATIVELY FURTHERING FAIR HOUSING The City of Dubuque entered into a contract with the John Marshall Fair Housing Legal Support Center to perform an update to the Analysis of Impediments to Fair Housing (AI). The prior analysis had been completed in March 1996. The final report for the updated analysis was received in December 2001. In response, the City has compiled a Fair Housing Action Plan to address the impediments identified. Fair Housing Enforcement - the Dubuque Human Rights Commission will continue to process fair housing complaints under its ordinance, which is substantially equivalent to federal law. Fair Housing Education - The Dubuque Human Rights Commission will engage in the following fair housing education activities: ~ Fair housing training to housing providers ~ Create informational brochures on the Fair Housing Act for distribution to contractors through the Building Services Department ~ Mail Fair Housing booklets to all Section 8 rental recipients ~ Provide a housing workshop on improving accessibility in housing. ~ Run public service announcements on a variety of television and radio stations and display fair housing billboards. ~ Present a segment on fair housing as part of the Crime Free Multi-Housing Seminar for housing providers. ~ Distribute fair housing information at City Expo, an annual event that draws approximately 3,000 city residents. ~ Distribute fair housing information local events. ~ Display fair housing placards on local buses. 70 FAIR HOUSING ACTION PLAN Impediment No.1 - The Lack of Large Stock of Decent Affordable Housing in Dubuque OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Increase the development and 1. Continue to seek financing for home Housing Ongoing ownership and home improvement initiatives preservation of decent, affordable for low-income residents. and accessible housing. 2. Continue to improve and expand the section Housing Ongoing 8 program, removing negative perceptions. 3. Pursue plan of affordable housing committee for production of new single family housing B. Increase the amount of 1. Recommend amendment to the City's Building Services Not done accessible housing. building code to include, at a minimum, the yet accessibility standards of the fair housing act. 2. Educate architects, builders, and developers Human Rights Fall on the accessibility standards. 2006 C. Support the development of 1. Provide strong, positive leadership when new Housing, Ongoing housing options for the more developments are challenged by neighbors in Planning needy residents of Dubuque. the developing areas. Impediment No.2 - An Environment Where There are Few Minorities to Serve as Role Models OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Increase and retain the 1. Attract new residents by increasing the Economic Ongoing number of new residents in the economic base of the community. Development community. 2. Welcome and connect new residents of all Human Rights, Ongoing backgrounds through the Community Action City Manager Academy and efforts of AmeriCorps Vista Program. B. Increase the number of 1. Proactively recruit protected class members Personnel Ongoing qualified minorities in positions for employment with the City. of prominence in the community. 2. Continue police recruitment efforts and Personnel, Human Ongoing expand those efforts to include other Rights, Police positions where members of protected classes are underrepresented. 71 FAIR HOUSING ACTION PLAN (continued) Impediment No.3 - The Perception That Dubuque is not a Hospitable Community for Outsiders and Particularly Minorities to Locate OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Continue to work to 1. Develop and utilize PSAs on fair Human Rights Every improve the image of housing and on welcoming new April Dubuque as a diverse residents. community both internally and externally 2. Faces & Voices Annual Conference Human Rights Ongoing B. Continue to expand fair 1. Commission request that City Council Human Rights February housing enforcement by add sexual orientation to the 2005 expanding classes ordinance. protected by the Dubuque Human Rights Ordinance C. Increase positive 1. Welcome and connect new residents Human Rights, City Manager Ongoing interaction amongst of all backgrounds through the diverse populations in Community Action Academy and housing and employment. efforts of AmeriCorps Vista Program. Human Rights 2. Support community-wide human Ongoing relations event: Faces & Voices: A Cultural Celebration Human Rights Ongoing 3. Actively collaborate with protected class organizations. Impediment No.4 - The Failure of Victims of Housing Discrimination to File Complaints OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Continue and expand fair 1. Adopt Commission policy on commission- Human Rights Ongoing housing enforcement by having initiated complaints. the Human Rights Commission Ongoing file commission-originated 2. Review intakes for appropriateness of Human Rights complaints when warranted commission-initiated complaints. B. Continue and expand the 1. Distribute brochures and market fair Human Rights Every education and outreach housing at City Expo. April program of the Human Rights Human Rights Commission 2. Increase media outreach on fair housing Every issues. April 72 FAIR HOUSING ACTION PLAN (continued) Impediment No.5 - The Lack of an Effective Deterrence for Those Who Engage in Subtle Forms of Housing Discrimination OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Establish a fair housing 1. Partner with RECCR on regional testing Human Rights Spring initiative to perform tests for race, family 2003 testing and education program. status, and disability discrimination and educate housing providers where subtle discrimination is found. B. Establish a fair housing audit 1. Partner with RECCR on regional program Human Rights Spring and enforcement program. to audit condominium associations for 2003 family status violations, and to audit covered multi-family dwellings for accessibility violations. Impediment No.6 - The Small Number of Minority Home Owners in Dubuque OBJECTIVE ACTIVITIES DEPARTMENT TIME RESPONSIBLE FRAME A. Increase minority home 1. Meet with lenders in community to Housing/Human Rights Spring develop action plan for addressing 2002 ownership items in the Greene Report Analysis of HMDA Data Human Rights/ Housing Summer 2. Encourage active outreach and Housing, Human 2002 marketing to minority community by March lenders and also Housing Rights 2005 Department. Fall 2002 3. Collaborate with protected class groups to provide information on how to prepare for and obtain loans. B. Guard against predatory 1. Develop informational folder for Human Rights Summer lending practices lenders. 2002 Human Rights/Neigh. Summer 2. Publish tips on avoiding predatory Spec. 2002 lending in neighborhood newsletter 73 HOMELESS NEEDS ASSESSMENT CONTINUUM OF CARE (September 2003) Introduction Dubuque has an active Continuum of Care consortium, comprised of more than 20 local housing and supportive service agencies. It is co-facilitated by the Housing and Community Department, Maria House and Project Concern. The Homeless Advisory Board (HAB) is a subcommittee of the Continuum of Care and meets on a monthly basis, to network and share information among local non- profits A HUD Continuum of Care grant for $ 609,000 was received in 2002. A working network was established of homeless shelter and service providers, which can now respond to the needs of the City's homeless population. This grant pays for a homeless coordinator on the staff of Project Concern. The Continuum of Care Strategy is summarized in the following information submitted in Dubuque's 2004 application for annual funding. Continuum of Care's Accomolishments Three years ago, the Dubuque Continuum of Care secured funding for three new programs: Legal Advocate and Follow Up Staff for Maria House, Homeless Hotline/Single Point of Entry Program through Project Concern and Transitional Housing for families through Hillcrest Services. Assessment and Planning: Specific roles for Continuum of Care and Homeless Advisory Board (HAB) were determined and implemented. The Homeless Advisory Board meets on a monthly basis solving more immediate problems and providing continuity for those serving the homeless population. The Continuum of Care facilitates community wide planning, prioritization and implementation monitoring for the community. The Continuum, through work of HAB has conducted three point-in-time studies showing a dramatic seasonal fluctuation in homelessness. The Continuum has done three gaps analyses. Dubuque Community Schools is now providing homelessness information to the HAB. Currently; the Continuum of Care through HAB is seeking incorporation as a 501c(3) NPO for the purposes of broader participation and enhanced financial backing for homeless initiatives. Funding: Emergency shelter is a major need in our community. A special Homeless Fund initiative raised $5000 in order to meet some of the emergency housing needs that have increased in the past two years. A drive to locate low cost emergency lodging secured nearly 50 nights lodging through local businesses. Two successful Project Concern HSOG applications have brought $29,250 for emergency shelter. The Continuum also supported successful mainstream grant proposals including the Path Grant for Gannon Center for Community Mental Health, four annual HSOG Grants for Maria House and the Jail Diversion Grant for Gannon Center and Dubuque County. Facilities: The Continuum supported three new successful facilities projects at Davis Place II (SRO for men), Davis Place III (SRO for men) and Hillcrest Transitional Housing Program (for families). Education: The Continuum of Care, through HAB, has created many community awareness venues including "Trading Places" an experiential learning device, a national speaker, homelessness workshop, poverty simulation and two Homeless Blanket Drives. Each of these was timed to occur during National Homelessness Week. These efforts brought hundreds of students, activists and community leaders together to look more closely at the homelessness issue in Dubuque. Procedures: One major stumbling block to coordination of services was the absence of common intake policies and procedures. A 24-hour Homeless Hotline Protocol was designed and implemented by the HAB in conjunction with Project Concern. The procedure is used by Project 74 Concern, Maria House, Operation: New View, Gannon Center, Catholic Charities, City of Dubuque Housing and Police Departments, Lantern Center, Rescue Mission and others. Plannina Process for Develooina a Continuum of Care Strateov Lead Entitv has evolved over time. The City of Dubuque Housing Department was the lead entity from 2000 to 2002, calling together a coalition of housing and homeless service providers and sponsoring the Continuum of Care applications in 2000 and 2001. In October 2002, Maria House took a leadership role in resurrecting the Homeless Advisory Board as an activist subcommittee of the Continuum of Care consortium. The Homeless Advisory Board, which meets monthly, took the lead in calling together and informing the Continuum membership of initiatives pertaining to homeless issues. In October 2003, Project Concern took over the role of lead agency for the Continuum of Care. In the spring of 2004, the Homeless Advisory Board began looking at formal incorporation of the Continuum of Care partnership as a separate 501c(3) organization. If this is pursued, the role of leadership will enter another evolutionary phase. Continuum of Care olanning orocess: Since September of 2000, one process has brought together the varied interest groups serving the homeless. A series of meetings from Sept 2000-Mar 2001, convened by the City of Dubuque Housing Department, resulted in a formal GAPS analysis, needs assessment, two applications for Supportive Services grants, as well as a ranking and submission of those applications. Representatives of nearly 20 area organizations providing housing or homeless services attended these meetings. In September 2001, the same organizations met again for another series of meetings to discuss homeless issues, assess current services and facility inventory, redo the GAPS analysis and resubmit the Supportive Services applications from Project Concern and Maria House. This time, Hillcrest chose to address the severe need for transitional housing. Three applications were submitted and funded through the Iowa State Homeless Services competitive process. By the fall of 2002, the three Continuum of Care grantees organized and helped to establish the Homeless Advisory Board as the activist element of the Continuum of Care consortium. Meeting on a monthly basis, the HAB formed the communications link with the membership of the larger Continuum of Care Consortium. The broader membership of the Continuum was encouraged to attend meetings regularly to remain informed of the many issues facing homeless service providers. All meetings included a variety of elements like planning, needs assessment, community education, service development and funding opportunities. In the fall of 2002, the Homeless Advisory Board made the decision to broaden participation and sent invitations to other stakeholders in the housing continuum. The goal was threefold: 1) To educate the community about the Homeless Advisory Board/Continuum of Care and it's mission; 2) To develop standards and procedures as a Continuum; and 3) To ask for their support and participation. The need for collaboration among Continuum members was stressed. Twenty-five agencies are now represented. 75 METHODS FOR COLLECTING INFO ON HOUSING GAPS Housing Gaps Analysis Chart- Three different methods were used to help identify housing gaps- ~ A group assessment was done by the membership of the Continuum of Care. ~ A point in time survey was done by membership of the Homeless Advisory Board. ~ The Homeless Hotline Coordinator tracked homeless information for a year via the HMIS (Homeless Management Information System) The Continuum met as a group in September 2003 to establish existing inventory and ascertain gaps. The Continuum members identified a homeless need for 300 individuals and 450 persons in families. Each provider present at the September meeting contributed figures for the gaps they saw in the system. In the case of emergency shelter for individuals, the total number listed is the sum of each member's gap. The projection for Transitional and Permanent Supportive Housing for Individuals included a large extrapolation for the influx of urban transplants from Illinois and Wisconsin. The projection for Emergency and Transitional Housing for Families was also based on warm weather urban migration from Illinois. Projection for Permanent Supportive Housing for Families was based on the 600-name waiting list for housing vouchers. That information was summarized reviewed and modified in April 2004 by the Continuum membership. The summary of this information is in Table A below. T bl A C f fC H G A . Ch rt a e on muum 0 are: ousmg aps nalVSIS a Individual Current 2004 Develop Unmet 2004 Total 2004 2004 Emergency 35 0 52 87 includes Alzheimer's Transitional 32 0 150 182 includes urban migration Permanent Supportive 46 12 100 158 includes urban migration TOTAL 113 12 302 427 Families Current 2004 Develop Unmet 2004 Total 2004 2004 Emergency 22 0 200 222 includes urban migration Transitional 32 0 150 182 includes urban migration Permanent Supportive 0 0 100 100 based on voucher waiting list TOTAL M !l ~ ~ Grand Total 167 12 752 931 The Homeless Advisory Board also conducted a Point in Time Homeless Survey on February 26, 2003. At that time, 74 homeless persons were identified. 31 of them completed surveys. 43 others were identified through telephone interviews with local emergency shelters and transitional housing facilities. 72 of the homeless were found in emergency shelter or transitional housing. Two were living in unsheltered circumstances. The statistics from the Homeless Point in Time were compared with statistics obtained by the Homeless Coordinator over a period of time. The two methodologies uncovered similar statistics, helping to affirm the inherent accuracy of each. Four teams conducted an unsheltered street count at 6AM. This involved canvassing the streets of Dubuque as well as locations that homeless persons are known to congregate- abandoned buildings, parks, cars, under bridges, etc. In addition, surveys were conducted by other volunteers at local facilities and shelters to garner information on those persons sheltered the previous night. Members of the Homeless Advisory Board conducted one on one interviews with homeless individuals at key locations they would frequent such as the Rescue Mission and congregate meal sites. For purposes 76 of the survey, only those persons defined as homeless under HUD guidelines were counted. This was ascertained through the survey process itself. The results appear below in Table B. TABLE B Point in Point in Time Point in Time Coordinator Total 2004 Time Survey Non-Survey Info Survey- Homeless Homeless Others Emergency 0 17 33 14 50 known quantity Transitional 0 12 10 4 22 known quantity Permanent Supportive 0 0 0 known quantity Unsheltered 0 2 18 2 Double, Friends 11 0 0 33 Observed by Homeless Coordinator Rentl Own 34 0 0 3 Occurs only in warmer weather TOTAL 45 31 43 72 74 Unmet Need 0 2 0 72 74 reflective of numbers annually seen by Homeless Coordinator The Homeless Advisory Board wanted to research a number of factors pertaining to causes and prevention of homelessness in Dubuque. It was already known that many persons in Dubuque who end up homeless had been living doubled up. Information collected by the Homeless Coordinator supports this information. The Homeless Advisory Board decided to complete detailed personal surveys of homeless persons. The questionnaires were given to all persons found in places commonly frequented by homeless individuals. These would include rescue missions, day treatment facilities, congregate meal sites, pantries and shelters. The following chart summarizes the surveys completed. A substantial number were given to at risk persons. The Homeless Advisory Board believes that the information gleaned from all persons will help the community better respond to homelessness in the future, focusing community energy on strategies that affect the near homeless and keep them from becoming homeless. The community believes that preventing a problem is more cost effective than addressing the problem after it occurs. 77 Facilitv ~ general shelter 16 domestic violence shelter 1 juvenilel runaway shelter 0 transitional housing 12 public building 0 abandoned building 0 car or truck 1 the streets 1 park or public area 0 tunnel, bridge, overpass, sewer 0 riverfront, forest, field 0 tent or camp ground 0 house or apartment (owned) 1 house or apartment (rent) 8 rented room 8 doubled up 11 other 17 Surveved Homeless 31 Other Living 45 TOTAL SURVEYS 76 CHRONIC HOMELESSNESS STRATEGY/GOALS Past Performance Our community has taken several steps in an effort to eliminate chronic homelessness. >> Over 13 different agencies in the community have collaborated to bring the Jail Diversion Program to Dubuque County. The Jail Diversion Program provides alternatives to incarceration for persons with co-occurring disorders to break the cycle of repeated entry into the criminal justice system. The program goals include the need to increase attendance in appropriate coordinated treatment programs, decrease the number of police contacts and arrests, and improve the overall quality of life for its participants. >> The Davis Place Single Room Occupancy (SRO) facility for men provides rooms for 48 men. >> The Dubuque community has applied for a grant to operate a Community Health Center, which will provide a variety of medical services to individuals who are uninsured or under insured. >> A transitional and supported housing program for homeless families was developed through Hillcrest Family Services. Up until this time, our community did not have any shelter that was specifically designed for families that include males over age 12. Their program objectives include; o To provide a safe, temporary housing environment for families. o To assist families in obtaining the necessary community resources to build upon their strengths. o To assist families in increasing their educational/skill levels in order to obtain and keep gainful employment. 78 o To connect families to medical networks so that their medical, mental health, dental and nutritional needs are met. o To assist families in becoming peer supporters for other program residents and graduates. o To collaborate with other community partners for the benefit of families in the program. Current Chronic Homelessness Strateav Present Strategy for Ending Chronic Homelessness by 2012 Chronic Homelessness is not as readily apparent in our community as in larger urban areas. Over the last few years however, we have seen the effects of the demolition of some of the housing developments in the larger urban areas nearby and the migration of those tenants and their families to Dubuque. Because of this influx of displaced families, our community has had to become somewhat reactive instead of proactive in our ability to provide services. Many times when people arrive from an urban area, they will find that Dubuque may lack adequate shelter, housing and services needed to fill the needs of the increased numbers of people and they will move on to another community. The few chronically homeless we have seen in our area have been mostly transient. They tend to access a variety of services and then leave the area. A majority of the chronic homeless individuals have mental illness, substance abuse or co-occurring disorders. Unfortunately the hardest segment of the homeless population to track is the individuals and families that double up. We are unable to count those people as homeless according to HUD guidelines. However it is an increasingly growing sector of homeless in our community and often precedes actual homelessness. The Dubuque Community School District is able to count those families that are doubled up. Their current number of homeless children exceeds 100. Due to a lack of "affordable" housing in Dubuque, there are large vacancy rates of apartments, but they are too expensive for one family to afford on their own. So in many cases, families are doubling up and seem to be doing so in increasing numbers. As part of our community's present strategy for ending chronic homelessness by 2012, we need an overall seamless system for accessing services. Our community also must become proactive instead of reactive. We need to identify the chronic homeless as well as those who are at risk and focus on prevention. Those at risk include individuals being released from prison, mental health institutions, treatment centers, foster care, veterans, victims of domestic violence and those individuals with mental illness, substance abuse issues or both. We need to determine what services are currently in place and refine those as well as develop programs. In conjunction with identifying the chronic homeless, we need to obtain and offer permanent "supportive" housing. Support services needed include but are not limited to counseling, therapy, treatment, healthcare and assistance in obtaining benefits. Long-term success of individuals would also include education and employment. Some people not only need to learn or relearn life skills but also vocational skills to become a productive member of the community. Once a foundation has been established and implemented, we need more thorough assessment and follow up programs. 79 Future Goals Goal: End Chronic Homelessness Action Steps ('What" are you trying to ("How" are you to go about accom lish accom lishin it 1. Point in Time Surveys (street count) 2. Catch those who may "fall Goal 1 : Identify the "Chronic through the cracks" by Homeless" in our implementing community wide communi use of HMIS Goal 2: Continue to improve A grant for a Community Health access to health care Center has ro rams been a lied for. 1. Seek out fundin Responsible Person/Organization ("Who" is responsible for accom Iishin it 1. Continuum of Care/Homeless dvisory Board 2. Project Concern (Point of Ent Pro ram Tri-State Community Health Center for Health Resources Services Administration Davis Place 3 (a SRO for single men) has recently being constructed Private Owner 1. Seek out funding 2. Research potential buildings or sites for a facilit 1. Look for possible federal funding Community wide effort: streams. City Housing 2. Educate developers, private Homeless Service investors as well as contractors on Providers the needs in our communi. Cofc artners Goal 4: Build affordable ermanent housin Goal 5: Develop a Transitional Housing Program for individuals ith CMI/Substance abuse or co-occurrin disorders Goal 6: Develop more supportive housing facilities. Other Homelessness Goals Chart Accomplishments NEEDS ASSESSMENT Point in Time Surve Community wide effort: Homeless Service Providers Mental Health Providers Substance Abuse Providers Target Dates (mo/yr will be accom Iished 1. Ongoing 2. Over the next 18 months Ma -04 On oin Janua 05 Over the next 18 months Over the next 18 months s set u ,conducted, evaluated Surve set u ,conducted, evaluated Surve Set u CofC- did GAPS CofC- did GAPS CofC- did GAPS GAPS anal sis EDUCATION/AWARENESS Homeless Awareness Week Tradin Places Maria House 12-Nov-02 80 26-Feb-03 Continuum Homeless Awareness Week Tradino Places HAB 20-Nov-03 Homeless Awareness Week Blanket Drive Proiect Concern 12-Nov-02 Homeless Awareness Week Blanket Drive Proiect Concern 20-Nov-03 Homeless Awareness Week FADS Workshop HAB 20-Nov-03 Homeless Awareness Week Concerti Dinner HAB 20-Nov-03 EducatinQ the Community Friends of Community nresentation Maria House 24-Jan-03 Educatino the Communitv Citv Expo HAB 15-Apr -03 MAINSTREAM RESOURCES support applications for fundino PATH, ICHH, HSOG, SHP HAB 1-MaY-03 EMERGENCY SHELTER Project add emeroencv shelter funds collect $$$ from area non-nrofits Concem, HAB 4-Feb-03 seek emerQency fundinQ annlv for HSOG Proiect Concern 15-Dec-02 seek emeroencv fundino applv for HSOG Proiect Concern 15-Dec-03 TRANSITIONAL HOUSING increase transitional housinQ facilities aDo Iv for SHP fundinQ Hillcrest 4-Apr-02 increase transitional housinQ facilities investiaate Operation HOAP HAS 1-Jan-03 WORKING WITH AT-RISK POPULATIONS improve service to mentally ill assess need HAB 12-Nov-02 COORDINATING SERVICES recruit and train volunteers to operate Establish Sinole Point of Entry 24n hotline Proiect Concern 1 O-Apr -03 draft in created brochures, PSA's- distributed to April 02- social services, police, medical distribute Homeless Hotline Marketino institutions, churches Proiect Concem onQoinQ POLICY AND PROCEDURE Establish working relationship between Define roles of HAB and Cote Cote and HAB HAB, CofC 8-0ct-02 define Homeless Hotline Protocol emeroencv shelter protocol develooed Proiect Concern 21-Jan-03 PERMANENT HOUSING increase SRO facilities Davis Place 3 comnletion Private Owner Jan-05 Oth G I fA f St t Add H er oas cion eps 0 ress ome essness NEEDS ASSESSMENT Point in Time Survey set un, conducted, evaluated Survev Homeless Advisorv Board 1-Jul-Q4 GAPS analvsis Set un CofC- did GAPS Continuum 4-Sep-Q4 increase agencies utilizing standard data Turning Point, SASC, Mission, collection Gannon, VA Proiect Concem 1-Jul-05 81 increase agencies utilizing standard data Continue to implement Service Point. collection Data System Iowa Coalition for Homeless 1-Sep-04 EDUCATION/ AWARENESS Educatina the Community consider other venues for educating public HAB 8-AuQ-04 Homeless Awareness Week olanninQ for 2004 HAB 1-Sep-04 MAINSTREAM RESOURCES as support applications for fundino PATH, ICHH, HSOG, SHP HAB needed seek homeless vouchers seek new voucher options City Housina 1-Aor -05 lack of vouchers assess imoact of Illinois miaration City Housina, HAB 1-Aor-05 EMERGENCY SHELTER Project Concern, Hillcrest, Maria House, Domestic reaoolv for emerQencv fundino aoolv for HSOG Violence onaoina research emergency shelter in other Proiect Concem, HAB communities tour Hesed House - Illinois Mav-04 increase emerQencv shelter caoacitv investioate Washinoton Park Place HAB 1-Sep-04 identify hotels, motels, rental create additional emeroencv shelter properties, churches willing to provide occasional emerQencv shelter Proiect Concem, HAB 1-Apr -05 TRANSITIONAL HOUSING maintain transitional housina facilities applv for SHP fund inn Hillcrest 1-Apr -05 increase transitional housino facilities identify ootential arantees Continuum 1-Aor-05 ~ORKING WITH AT-RISK POPULATIONS "doubled up families" and risks of work with schools, HAB to identify Dubuque Comm Schools, homelessness risks and assess extent of problem HAB onQoinQ identify resources to serve these at Boys/Girls Club, St Marks, unsuoervised homeless children risk youth America Promise 1-Aua-04 identify all community impacts of this City Housina influx of urban transolants miaration onaoinQ improve service for substance abuse and mentally ill obtain fundino to increase services HAB onQoinQ POLICY AND PROCEDURE Define roles of HAB and Cote and recruit refine roles and recruit business new members members HAB, Cote onooinQ investigate incorporation of Homeless complete research with Clinton and Advisory Board Ohio, assion task force, move ahead HAB 1-Nov-04 COORDINATING SERVICES 82 Homeless Hotline Marketin created brochures, PSA's- distributed to social services, police, medical institutions, churches Pro"ect Concern Iicants HAB PERMANENT HOUSING investigate Washington Neighborhood seek additional leas in ro erties Center HAB 1-Nov-04 FUNDAMENTAL COMPONENTS IN C ofC SYSTEM Component: Prevention Services in olace: The Workforce Development Center offers an array of counseling, testing, training, and referral programs for the unemployed. The Gannon Center for Community Mental Health Center provides outpatient mental health counseling and a drop-in center for adults. The Rescue Mission and the Visiting Nurses Association operate a joint health clinic in cooperation with area volunteer physicians. Two food pantries operate in the City. The County Veteran's Office assists area veterans. The General Relief office offers emergency financial assistance. The Department of Human Services provides a variety of income maintenance and case management programs to assist persons and families. The Housing Department contracts with HUD for 1083 Section 8 rent- assisted units. Scenic Valley Agency on Aging provides numerous services to senior citizens. The Substance Abuse Services Center (SASe) offers substance abuse counseling and therapy groups. Project Concern's Information and Referral activity staffs a 24-crisis line and a computer-generated referral directory of all available supportive services in the area. The Red Cross, Salvation Army, Operation New View CAA and St Vincent de Paul offer emergency funds and a variety of crisis- oriented services. And Catholic Charities, Hillcrest Family Services and Lutheran Social Services offer case management and counseling services. CofC/Homeless Advisory Soard (HAS) members regularly meet and continue to refine the CofC- funded single-point-of-entry system implemented in 2001. This includes communication of on-going agency issues and coordination of service delivery. We continue to assess how to address gaps in the system, particularly how to provide more effective outreach to homeless persons and families. Project Concern staff continue to work out implementation of the HMIS system. How homeless access services: The single-point-of-entry (SPE) system funded by the CofC grant has fundamentally improved Dubuque's system for homeless assistance. Previous to 2001, homeless persons and families had to learn to "negotiate" this system to their advantage, overcoming inter-agency barriers to coordinated service delivery. With the SPE system, Project Concern has employed a full-time homeless coordinator staff. All agency requests for initial homeless assistance are referred to the coordinator, who performs intake and assessment. The coordinator then makes decisions regarding the housing needs of the applicant and makes the referral to the appropriate agency. The coordinator provides the intake information to the referral agency; transportation may also be provided, as necessary. And any needed follow-up and advocacy services are also provided through the coordinator's efforts. 83 This system works 24 hours/day, seven days/week, through Project Concern's crisis line. Trained volunteers handle off-hours phone coverage. An inventory of emergency housing options has been compiled by the coordinator and is kept current. This inventory includes all area agencies and also hotel/motels, which are willing to accept referrals for emergency stays. The Dubuque Police Department utilizes this system regularly. An important sub-set of this system is Dubuque's "Jail Diversion" program, a $900 000, three-year SAMHSA-funded grant made to the local (Gannon) community mental health center in 2002. Police and Jail Diversion/Gannon Center staff coordinate service response closely to assess and refer the chronically mentally ill and/or substance abusers to emergency housing as an alternative to incarceration or hospitalization. The SPE coordinator also serves as principal staff to the Homeless Advisory Board, which meets monthly; and oversees the HMIS responsibilities performed by Project Concern. The coordinator serves as the hub of the year-round "Continuum" process, which coordinates intra-agency service delivery and planning functions. Component: Outreach Services in olace: The Gannon Community Support Center provides a homeless outreach staff, funded through a State Division of Mental Health PATH grant, emphasizing services to homeless chronically mentally ill persons. The outreach worker maintains regular hours at the Rescue Mission homeless shelter and weekly visits places where homeless persons are known to "reside" under bridges and in abandoned buildings. Operation New View Community Action Agency employs three full-time outreach workers. The staff visits persons in homes or on the street to link them with services; provide deposit funds, furnishings or clothing; and walk them through the service system. Project Concern provides referral services, either through drop-ins at their office or by phone. The Crisis Line operates 24 hours/day. The Dubuque Regional AIDS Coalition (DRAC) coordinates services to persons with AIDS/HIV, through a staff person at Finley Hospital. Intake and assessment is provided by a number of agencies, including DHS, General Relief, Lutheran Social Services, Alternative Services, Four Oaks/Cornerstone, Catholic Charities, Helping Services of Northeast Iowa, Hillcrest Family Services, Operation New View CAA, Scenic Valley Area Agency on Aging, Substance Abuse (SASe) and the Dubuque County CPC Coordinator. The City of Dubuque Keyline Transit System provides subsidized transportation services through metro buses and mini van service. Project Concern's Child care Resource and Referral Program provides assistance to families in need of childcare. Project Concern's homeless coordinator provides advocacy and education services in connection with McKinney-Vento Act education rights and protections; the Community School District is a Continuum partner in this effort. The downtown Northeast Iowa Community College (NICe) Learning Center provides GED and ESL classes. All these services are coordinated as appropriate with the Visiting Nurse Association, the Red Cross, County Veterans Office, Salvation Army and the City Health Services Department 84 Component: Supportive Services Services in olace: In addition to the supportive services system in place in Dubuque that has been previously described, treatment services are provided as well by the two area hospitals - Mercy Health Center/Medical Associates and Finley Hospital. Mercy operates a psychiatric unit and a "Turning Point" in-patient program for substance abusers. The Gannon Center provides psychiatric outpatient services for mentally ill persons. Active local chapters of Alcoholics Anonymous and Narcotics Anonymous assist their client populations. Services olanned: An application has been submitted by the Tri-State Community Health Center for Health Resources Services Administration (HRSA) funds. The planning board for this center has been working for the past two years to fund a facility and has received $100 000 to-date from HRSA, for planning and equipment grants. This application has been matched by $150 000 in City CDBG and private (hospital) funds. It is anticipated that a significant benefit to area homeless persons and families will be provided by this new health center. The new community health center will provide full dental services for indigent persons. In addition, City CDBG funds were provided to the Visiting Nurse Association to establish a small dental clinic in their facility, in 2002. This was completed in 2002 and has been operational since that time, serving homeless and other indigent persons. City CDBG assistance has also been provided to the Gannon Community Mental Health Center for mental health outpatient services for chronically mental ill persons. How Homeless Access Services: As mentioned, the single-point-of-entry (SPE) system has greatly enhanced coordination of services to homeless persons and families. With a single agency intake/assessment! referral function, supportive service needs are identified and referrals made to appropriate agencies. Follow-up and advocacy services are provided by the homeless coordinator, including transportation as needed. The goal is to ensure that no client falls "between the cracks" in the system. HOUSING ACTIVITY CHART Emeraencv Shelter ~ The Dubuque Rescue Mission has been in continuous operation since the 1930's. It currently has six emergency (three-day) beds for men and 12 longer-term beds for men enrolling in the Mission's Personal Employment (PEP) Program. ~ Hope House provides emergency housing for families that do not include men. Longer-term stays may be allowed. Approximately 8 persons may be served at capacity. ~ The YMCA domestic violence shelter allows stays up to 60 days, with a capacity to serve as many as three victim families. ~ Hillcrest Family Services has a 23-bed emergency youth shelter for youth; 3D-day stays are allowed. Hillcrest's "Safe Haven" program has four emergency beds for children ages 3-12. 85 ~ The Jail Diversion Program provides for two beds, for adult males or females, at the Elm Street Correctional Facility. Transitional housino ~ The Rescue Mission provides transitional housing for 12 men participating in their PEP Program. ~ Maria House provides housing for up to 18 women and children. Stays from six months to two years are allowed. Funding for this facility was provided by the Housing Department, through an IDED Local Housing Assistance Program grant and a grant from the Des Moines Federal Home Loan Bank. The facility operates at capacity. ~ Hillcrest also runs two five-bed group homes for chronically mentally ill adults. Their Family Empowerment Program operates three apartments for families in transition, with stays up to six months. The Teen Shelter Program operates 5 group homes, with 64 beds, for transitional housing with an on-campus school. ~ The Substance Abuse Services Center operates a 12-bed halfway house (Stepping Stone) for men and women participating in a recovery program. Stays of up to six months are allowed. ~ With a 2000 CofC grant, Hillcrest purchased and renovated a facility providing four transitional units for homeless families. Supportive services provided include counseling, crisis intervention and referrals to other agencies. Stays are allowed for up to two years. A live-in counselor provides 24-hour support. Permanent suooortive housino ~ Davis Place currently consists of SRO facilities totaling 48 rooms, constructed in 2000 and 2002 with City-sponsored IDED-Local Housing Assistance Program grants and in 2004 with an IDED HOME grant, providing supported housing to homeless and indigent males. ~ ~ The Center for Public Ministry owns and operates a 10 room SRO facility, for homeless and indigent men and women. 86 Fundamental ComDOnents In Cofc SYStem - Houslna Actlvltv Chart Component: Emeroencv Shelter Provider Name Facility Name Geo Code Target Bed Capacity ~. Population 1914641A Individuals Families with Children _Inventorv A B :88m& ..i:. .. i II :,.,88m&:. ......::., .F(: < :..ii ii, YWCA Domestic FC DV 12 12 Violence Shelter Hillcrest Famllv Services Youth Shelter YMF 13 23 Hillcrest Safe Haven YMF 4 4 Marla House Same FC 2 2 Jail Diversion Program Elm St. Facllitv SMF 2 Subtotal 23 35 22 22 Under Development : :: I J :1 I J :t :.. :1 :1 Subtotal 1 J ..<>1 Component: Transitional Housing Provider Name Facility Name Geo Code Target Bed Capacity ~. Population 1914641A Individuals Families with Children Current Inventory A B 2002 1 2003 2002 2003 .~fjc_i,iIIII8Icm SlIme 8M .: : Marla House Same FC 5 5 11 11 Hillcrest Family Dana Place FC 12 12 Empowerment Program Hillcrest Group Homes Peterson Lodge YMF 64 64 Molitore Home Pathways Home New Hope Home River View Home Hillcrest Group Homes Marywood Home SMF 10 10 Vlzaleea Home Hillcrest Transitional Same FC 9 Housing. SHP Substance Abuse Services Stepping Stone SMF 12 12 Center Halfway House Subtotal 103 103 23 32 Under Develooment I I 1 1 I :1 I, ..::.......,:,1 I Subtotal 1 1 ,:::i::. >1 Component: Permanent SUDDortive Housino.. Provider Name Facility Name Geo Code Target Bed Capacity ~. Population 1914641A Individuals Families with Children Current Inventorv A B 2002 2003 2002 2003 ........SRO ..J:88m& 8M : Center for Public Ministry Same SM 10 10 SRO Subtotal 28 46 Under Development 2004 Davis Place SRO Same 1 1 SM 1 12 I ,:I 1 1 <<.1 J ..:] Subtotal 1 12 I, :I Communitv Definitions: Emergency shelter is any facility designed and maintained specifically to provide for temporaryl short-term shelter for individuals or families who are homeless by HUD's definition of homeless. Length of stay is determined both by the individual need and program requirements. Transitional housing is any facility recognized by HUD as a transitional housing facility providing shelter and a range of other services designed to integrate the homeless persons into the community economically and socially, providing them with services to meet their individual needs for 87 training, assistance, financial resources, employment and housing. The length of this service can be from a few weeks to two years, depending on individual need and program terms. USE OF OTHER MAINSTREAM RESOURCES - 2002-2004 CDBG The City of Dubuque has provided Block Grant funding to the following projects assisting homeless persons and families: ~ Visiting Nurse Association: $20,300 grant was made to assist in equipment purchase to establish a small dental services clinic, in 2002. This is a 2-chair clinic, staffed part-time on a voluntary basis by area dentists. ~ Gannon Community Mental Health Center: An $18,500 grant was made to fund additional outreach and counseling services for chronically mentally ill persons. Gannon established a drop-in center for this purpose, with extended hours of operation, to provide added services to its clients. ~ Community Health Center: A $50,000 commitment has been made to assist in the costs of building renovation, to establish a new community health center. Announcement of award is due in June 2005. HOME ~ Davis Place: The City of Dubuque sponsored an application for HOME Program funds from the Department of Economic Development, for $500 000 in 2004, to construct an additional 12 bed SRO facility, part of the Davis Place SRO complex. Two previous 18-bed facilities were constructed, in 2000 and 2002. This facility was completed in September 2004. Substance Abuse Block Grant ~ Substance Abuse Services Center: SASC receives annual federal funding in the amount of $400 000 to provide outreach and counseling services to substance abusers. Using these funds, $90 000 annually is allocated for operation of the SASC Stepping Stone halfway house for recovering abusers, with 12 beds. Jail Diversion Proaram ~ The Gannon Center received a 3-year, $900,000 federal grant in 2002 to provide a comprehensive array of services designed to divert chronically mental ill, homeless and substance abusers from incarceration or hospitalization. The Substance Abuse/Mental Health Services Administration (SAMHSA) provides this grant. Social Services Block Grant ~ Community Health Center: The Tri-State Community Health Center has applied to the Health Resources Services Administration (HRSA) for a $650 000 grant to establish a community health center, to provide needed primary and dental health services to homeless and indigent persons. Communitv Services Block Grant ~ Operation New View: The community action agency employs three outreach workers who provide direct services to homeless persons and families, including assessment and referral. As well, small cash grants are made to these persons, for basic necessities, using local funds. It is estimated that 10% of staff time is directly related to contact with the homeless. This is provided through CSBG funding State-Funded Proarams ~ PATH Program: The Gannon Center receives an annual $18,000 grant from DHS-Division of Behavioral, Developmental & Protective Services (BDPF) for outreach services to homeless, chronically mentally ill persons. These services include payment of rent and utility deposits, bus 88 tickets and cab fares, etc, as well as staff costs for a homeless outreach worker. Gannon additionally matches this grant 25% by provision of clinical services to these clients. PATH is the acronym for "Projects for Assistance in Transition from Homelessness." Private ~ Community Health Center: Mercy Hospital and Finley Hospital have each committed $50,000 toward costs of establishing the new community health center. The City of Dubuque additionally assisted each of the Davis Place SRO buildings with "urban revitalization district" designation, meaning each property obtained 10-year property tax abatement. The accrued value of this abatement is approximately $250,000 for each facility. Homeless Shelter Operating Grant Program: Maria House has received HSOG funds for shelter operations. Project Concern has received HSOG grants for homeless assistance, including rent and security deposits and over-night stays at local hotels. The Community Y Domestic Violence Shelter receives HSOG grants for shelter operations, and the new Hillcrest Transitional-SHP Facility received a 2003 HSOG grant for shelter operations. ftf"SfOfl Continuum of Care Homel_. Population and Subpopulatloft8 Chart . Total 21 4 Sheltered 1. _ . ........ III . ChroniC Sub&tance Abuse . 11--.... . Wi HV . Victims d ~ VIOlence . Youth Under 1 Pert~. Ho___ T.....: 1__ J II ! Emer c SNlIl:a" .. Tr.I'WiUoNI Hout; J: .....mltnent Supportiy. Ho.... Tom' ron'caII HomeIeM .,. 31 OJ 46 415 1&4 Pert 4: H~_ T_. ,....,,_ e...... She..... .; Tr."..bOnaJ .! P..-maMnt Supporuw. I To~1 COMMUNITY DEVELOPMENT NEEDS The City of Dubuque has identified the non-housing community development needs eligible for CDBG assistance in the Community Development Needs table below. The Community Development Advisory Commission assigned priorities for each category based on the needs identified through the community input and the analysis of the census data as previously 89 presented. - five-year fur Action Plan specify the ( Community Development Needs i B .. !: .. .. :;; ~ 8~ 13 Direct HomeownershlD Asslstlnce 570.20fiiil H 435.000 14.\ RWb: Slnale-Ult Resldenllal 570.202 H 13~ 148 Rob.b' Muhl-Unt Rllldenlill 570.202 H 320 1'" ""blle HousInG ModellllUllon 570.202 L 14D Rehlb' OIlIer P-OWned Raidenllll Bulkl-.;;;s 570.202 L HE Rehlb: Pubklv or "'IY'IIl'l-OWned CommercliUtlldu 570.202 M 300 .000 14F en..... efIlele"'" lmorcwemenls 570.202 L 14G AcaulSRlOft - for RehlbilbtlOft 570.202 M 75 000 14H Rehlblllllllon Admlnlllnllcll 570.202 H 1 200 000 14lLNd-8ued/LeId Hwrd Test/AblIe 570.202 H 90 000 15 Code Enforcement 570.2021cl H 480 .000 16A Residential Historic Preservation 570.202Idl M 100 .000 168 Non-Residential HislDric P_vllion 570.2021d) M 17A C1 ~1Id -u_n/D1S"""'llon 570.20~.\ M 178 CllnfrlltIVclure DlYeloom..t 570.2Olifl M 17C C1BuIId.... k.;U1slllon COtIIt- RehlblUtlI570.20~.\ M 500 000 170 Other Commerclllllndllltr1lllm--;;;;;:';;-m.n1s 570.20)11\ M leA ED DIrect FlnIndll AIIIIlInc>> to For-ProfIIs 570.201Ibl H 469 300 IIl1l ED TechnlCll AlIlstInce 570.203tbl M 18C MlCro-Entll'IlttI. AIIiIlInce M IlIA HOME Admln/PIan- CClIls 01 PJ Inot ...rt 01 5~ Ad NA 191 HOM! CHDO O.....tiNI Costs not...rt 01 5'lil Admin CI NA 19C CDlIG Noft-- OftUInlr.tlOft C.-.tt,;D.;jIllIll. H l80 1lDO 190 CDIG AssIsllftce to Institutes 01 ~her EdlClllon M 19E CDIG OftOratlOll llId Renalr 01 FONCIOSed P_!tv M 19F Planned Re....ment III SectIcn 101ll.oln P~ NA 19G UnDllnMd RlOIvm.nt of 5ectIon 108 LOin PrtIlC"'l NA 1911 StIle CDIlG TecllnlClI Aselltlnce to erant_ NA 20 Plannlna 570.205 H 1 261 000 21A Generl' -rim Admlnlstrllloa 570.206 H 483 655 2181ndinlcl Cosls 570.206 M 210 fair Hcu....AclIYItIes 1..- to 20.. Adlllll Clol 570.206 M 21E SubmllllOM or AlIoIlCIlIOns lor FederlI P,;;;;-..ms 570.206 M 21F HOME Rental ~ll<Idv ',vm.nts rsuhio!t'tllo 5"4 Clo\ NA 21G HOME Securl ty Deooslls lluhlocl to ,.. w;\ NA 21H HOME Admin "IIMIn. Cosls of PJ IlUhWt to 5'Jb Clft NA 211 HOME CHDO Oae..ana Ex- suhWt to 5'lil Clft\ NA 22 Unoroarammed Funds M )lJ F,dIlIv blsed hcluolna - cleve""'menl NA 31K Facllllv blssd houslna . _..lions NA C 31G Shaft Nnn rent mClltalM ullHtv ....lIIInIs NA f 31F Tlntnl biNd rentllllliltlnce NA 31E SUDDOrave Hrva NA 0 311 Hau.... InlonllltlOft ""al NA :z: 31H Resource ldentlfiCltton NA 318 Admlnlslll- - nllnt" NA 310 AdmlnllttltlOn - DrOIIcl """"SIll' NA Totals 9,958.955 CommunityDev 2 CPMP 90 Community Development Needs 1 B VI l ~ .. .. .. . 11 L ;3j 13 Direct Homeown.lSh;" Auislllnc. 570.201ln H 435 000 4A Rellllh, smnlo'Unll R-....n'..' '<70.202 H 9 00Il 148 R....b. Mula-Unit Reoldenlllol 570.202 H 320 000 14C Public H"".lnn M_muttoo 570.202 L 14D Ileh.b' Olllar PubMclw-OWned Ileoldenlllllulld""'s 570.202 L 14E R....b. Publlel. or PrlvsteIY-OWnecl commerciliitNlu 570.20 M 3DO 000 14F Ene.... E111e..n.... Imftr....menls 570.202 L 14G ""ulslllon . for R....bMllItlon 570.202 M 75 000 14H Rellllblllbllon AdmlnlotraUan 570.202 H 1 200 DOO 141 LaIld-..Md/....sd Hszsrd T..t/AblIa 570.202 H 90 000 15 Code Enforcement 570.202/c H 480 000 16A Residential HlstDrlc Preservation 570.202 d\ M 1 DO 000 168 Non-Residential HlstDrlc P,..,."aUon 570.202Id M 17A CI unci ArnulSlI1on/Dlr;"""llIon 570.203'.' M 171 Cllnrrastrudure oevelolllllenl 570.2iYi11\ M 17C C1 Bulldlna kaulslttan Construction IlellllbMlgt 570.2Cl->l.' M 5DO 000 17D Other COmmsrclslllndust....llm-..ments 570.203'.'- M leA ED Direcl An.nclsl A_nee 10 For-ProIllI 570.20) b\ H 469 300 I. ED Technics! AlSlsllncs 570.2OW M lie Mlero-Ents....... Mslstllncs M 1!lA HOME Admln'P1.n n"'" COlts of PJ nat ...rt of 5% Ad NA 9R HOME CHDO ODOr_IIn" Cast. ;;;;; ~rt of 5'l1t Admin .. NA ll1C CD8G Non.....ofIt tlm.nlz.tlon CI cIt- Bulldlna H 380 000 190 COllC AaIstInce '''Instltut.. of H her EduCllIon M 9E CDBG '-rltton and Re"''' of Fa lolled P-- M Iff Plonned Ile~....nl d Section 101 Loon Prlnel-' NA 11lG Uonllnnell R"'''m.ol of SIcllon 108 Looo Pmcl-I NA 19H S!at@ CDBG TechnlC.1 AsslStlnce to Grlnt@es NA 20 Plann;n" 570.205 H 1 261llM 21A Gener.1 Pmarlm Admlnlstr.lJon 570.206 H 483 655 2111ndll'eCt CClOtS 570.206 M 2'D F.1r Housln" ActIvIt_I.uht.cllo 20'lb Admin Cln' 570.206 M 21E Submissions or A-Ilcsaons for Federtl P-lIms 570.206 M 21F HOME Renlll 51_. P..ments su- III 5'lb ..,a\ NA 21G HOME Secun" Do"""'" .u....;;:+1o 5'lb Clft\ NA 21H HOME Admln'Ploonlno CoolIO d PJ sub set III 5'lb ..,ft NA 211 HOME CHDO '-"11"" EV-nlle. ISU"'ect III 5'lb taft' NA 22 Un .rnrorammed Funds M 313 Flc:tIllY biNd houslna - d...Io-.nt NA 31K FICU"" blsed ROUSI'" . OIIIrllIOM NA f 31G Short lerm renl mo_ utlU'" ft'.ments NA 31F Ten.nt bsNd r,olll ...Istlne. NA 31E su.""mve service NA 0 311 Hausln" Inform.tlon services NA % 31H Ile_rce IdentlflcallOn NA 311 AdmlnlStr.llon . "..ot.. NA 310 Admlnlslrsllon . o...tect SDOrlsor NA Totals 9,958,955 CommunltyDev 2 CPMP ANTIPOVERTY STRATEGY Population in Povertv Few indicators have as much relevance for social and housing service need as does poverty. Communities with relatively high levels of poverty often find their social services strained. In those jurisdictions in which poverty rates may not appear unusually high, those in poverty 91 remain at risk. Services may need to be targeted more effectively and agencies may combat assumptions amongst the public about the lack of a poverty problem (and hence see no need for significant funding, concern, etc.). For those in poverty, however, the poverty is real. The following table provides data on the number of persons in poverty as determined in the 1990 and 2000 census enumerations. The 1990 Census data is provided as a means of seeing trends within Dubuque's population and reflects data as of 1989. The 2000 Census data reported information as of 1999, and is provided for comparison across select groups. Such comparisons indicate, for example, that according to the 2000 Census, the city experienced a net percentage loss between 1989 and 1999 of 13.9% in regard to its population in poverty. The changes in poverty rates in Dubuque experienced since 1990 mirror the general trends of the time. Nationally, the population below the poverty line during the same period of 1990-2000 decreased nearly 2.2%. Across Iowa during the same period, the poverty rate for individuals declined from 11.5% in 1989 to 9.1 % in 1999, and the family poverty rate went from 8.4% in 1989 to 6.0% in 1999. As such, Dubuque's experience mirrors that of the nation and the state, and is likely the product of increased employment and general economic expansion (two developments cited for national changes). Table 9. Poculation in Poverty 1999: 2000 Census Group 1990 % 2000 % Change % Census Pop. Census Pop. Change Persons 5,985 11 % 5,152 9.5% (833) 13.4% 1,232 9.3% (299) (13.9%) (19.5%) Related Children 1,531 Age 65 and Over 1,017 12.3% 1,102 12.5% 85 8.4% One observation is that between 1989 and 1999 (years used in reporting for the 1990 and 2000 Census) the city experienced a general decline in those living in poverty. However, in spite of this decrease in general figures of those in poverty, the city experienced an absolute and relative increase in its population 65 years and over who lived in poverty. Of the city's population 65 years and over for whom poverty status was determined, 12.5% were in poverty. This marks an increase from the 1990 figure of 8.4%. In addition, the city saw an absolute increase of 85 individuals 65 years and over living in poverty. These poverty figures do not tell the whole story, however. For example, of the 2,338 individuals under 18 years of age in families with female householder (no husband present), 34.9% (or 815) were in poverty. Even more dramatically, of the 716 related children under 6 years in families with female householders (no husband present), 48.6% (or 348) were below poverty level. Figures for unrelated individuals for whom poverty status was determined likewise demonstrate poverty's existence in Dubuque, and its special pressures on females and the elderly. The Census Bureau defines an unrelated individual as "(1) a householder living alone or with nonrelatives only, (2) a household member who is not related to the householder, or (3) a person living in group quarters who is not an inmate of an institution." (factfinder.census.gov). Among this population of unrelated individuals (11,426 total), 24.2% (or 2,762) fall below the poverty level. Furthermore, of the 6,438 females in this category of unrelated individuals, 27.8% (or 1,790) live below the poverty line, while 19.5% of males in this category fall below the poverty line. In addition, of the 3,684 unrelated individuals age 65 years and over for whom poverty status was determined, 917 (or 24.9%) were reported as below the poverty line. These observations indicate that while Dubuque has enjoyed a decline in its general poverty rate, poverty continues to be a real concern for the elderly, female-headed households and those living alone. 92 The following table provides context for Dubuque County's poverty rates. The table also includes unrelated individuals as well (a group separately calculated by the Census Bureau, but of interest to appreciate overall poverty). The percentage of those below the poverty line within the County is also provided. Table 10. Persons and Families Below the Poverty Line 1999: 2000 Census Unrelated Countv Individuals % Individuals % Families % Clayton 1,568 8.6% 615 21.4% 295 5.7% Delaware 1 ,436 7.9% 436 19.1% 317 6.3% Dubuque 5,152 9.5% 2,762 24.2% 788 5.5% Jackson 2,048 10.3% 614 19.5% 432 7.7% Jones 1,596 8.6% 611 20.2% 328 6.2% State 258,008 9.1% 107,718 21.3% 46,641 6% Compared to neighboring counties, Dubuque exhibits higher levels of poverty. Dubuque had a higher rate of individuals below the poverty line than all but Jackson County, and had the highest percentage of unrelated individuals below the poverty line. The one bright spot is that Dubuque had the lowest percentage of families below the poverty line in comparison to the selected counties and the general state rates. STRATEGY Local partnerships are continually being formed to provide services for job skill development, job training, education and other programs that may help the family gain self-sufficiency and alleviate poverty. The Housing and Community Development Department teams with community members and other organizations to promote and attain these goals. The City is actively involved in numerous community committees. Staff from the Housing and Community Development attends weekly meetings of the Friends of the Community, thereby coordinating activities with non-profit organizations and social service agencies. City staff is on the board of Operation New View, the community action agency for Dubuque County, which by charter is dedicated to implementing anti-poverty programs. The City also works closely with the Homeless Advisory Board and Continuum of Care consortium agencies, referring and receiving clients, to assure continued housing and prevent homelessness. The Housing Education and Rehabilitation Training Partnership (HEART) is a public/private partnership that provides vocational construction training and education through rehabilitation of blighted residential properties. The partnership includes the Four Mounds Foundation, Four Oaks, Dubuque Community School District, Loras College and the City of Dubuque. The City has a Family Self Sufficiency (FSS) Program that promotes self-sufficiency and asset development by providing supportive services to participants' to increase their employability, to increase the number of employed participants and encourages an increase in savings through an escrow savings program. In FY 2004, there were over 54 participants. The City's CDBG programs further reduce poverty. Our first-time homebuyer programs for lower-income households help these families participate in the "American Dream," accumulating equity and building wealth. Since 1994, the City of Dubuque has placed over 240 families into their first homes, using about $1.5 million in CDBG funds and grants from the Federal Home Loan Bank; matched by $13 million in private investment. Also, our homeowner rehab programs 93 enable lower-income families to maintain and improve their homes, reducing energy costs and protecting their investment. The Strategic Plan addresses increasing economic opportunities through business retention and lor expansion and addresses the gap from welfare to work. The CDBG financial assistance program to businesses support economic development efforts to create jobs that pay a livable wage. SPECIAL NEEDS POPULATION When considering the population to be served by housing and welfare agencies, much attention is directed towards those classified as part of the "special needs population." This population, given its status and incumbent requirements for services, is important to accurately determine. While the Census Bureau does not determine status in all of the categories of "special needs," it does provide information on many within this population. Traditionally the "special needs" population includes the elderly, persons with disabilities (mental, physical, etc.), persons with HIV/AIDS, and those with alcohol or other drug addiction. The following table summarizes available information for such populations. Information has been taken from the 2000 census (sample data) and supplemented with other data sources where indicated. Table 16 Soecial Needs Pooulation (Non-institutionalized): 2000* Status Number Elderly (65 years and older) Disabled Population (5 years and older) Percentage of 5 years and older population with disability 9,547 9,171 17.3% Disabled Population (5 to 15 years of age) Percentage of 5-15 year old population with disability 620 7.3% Disabled Population (16 to 64 years of age) Percentage of 16-64 year old population with disability 5,082* 14.3% Sensory Disability Physical Disability Mental Disability Employment Disability 744 1881 1424 3,137 3,469* 39.3% Disabled Population (65 years and over) Percent of 65+ with Disability Sensory Disability Physical Disability Mental Disability 1,139 2,414 914 HIVlAIDS Population (living HIV/AIDS cases in DUbuque County as of December 31,2002) ** 21 *Sub-categories of disability are not mutually exclusive. Individuals may respond that they have more than one disability (e.g., physical and mental disability). As such the sub-categories will not add to the total number of disabled in the population. In addition, the Census enumerates other sub-categories admitted for the table presented. *.AII figures from 2000 census except HIV/AIDS data. The HIV/AIDS data includes data from 2002 and was compiled by Iowa Department of Public Health and published in the 2002 Epidemiological Profile for Iowa. In addition all data except the HIV/AIDS figures are for the City of Dubuque. The Iowa Department of Health reported HIV/AIDS in their 94 2002 report by county. Given the distribution trends between urban and rural areas, it is likely that the vast majority of the 21 cases cited in Dubuque County reside in the City of Dubuque. SPECIAL NEED FACILITIES AND SERVICES The number and types of supportive housing and related services for the non-homeless populations with special needs are described in the inventory below. This inventory complements the inventory of supportive services for the homeless as described in the Continuum of Care section. SPECIAL NEEDS POPULATION -- FACILITIES FACILITY DESCRIPTION Alvemo Apartments Section 8 housing for elderly and disabled, subsidized by HUD. 100 3525 Windsor Avenue residential units (10 accessible) 563-582-2364 Applewood Apartments 93 Apartments for seniors (all but 7 are income eligible) 3125-3175 Pennsylania Avenue 563-588-3693 Area Residential Care (ARC) 16 community living homes, and 12 supervised apartments; 16 units 1170 Roosevelt Street supervised 24 hours/day 563-556-7560 Angelus Retirement Community 185 assisted living units Matthew John Drive (Under construction) Bethany Home Retirement center featuring apartments, room rental and nursing 1005 Lincoln Avenue facility providing 60 apartments, and 54 health care beds. 563-556-5233 Cathedral Gardens 18 Accessible apartments 469 Emmett 563-582-6663 Dubuque County Julien Care Facility Provides institutional residential care with 81 beds 3066 Seippel Road 563-583-1791 Dubuque Nursing and Rehab Center Provides health and convalescent care needs for the elderly: 108 ICF 2935 Kaufmann or skilled level beds 563-556-0673 Ecumenical Housing InclSt Mary's Home Ecumenical Tower, 6m & Locust-low income housing for elderly, 2671 Owen Court 89 units rent-assisted (4 units accessible) 563-556-5125 Kennedy Manor, 2671 Owen Court -73 residential housing units, with elderly and disabled given priority for one bedroom units (21 units accessible) (All units rent-assisted) Ennoble Manor Care Center Extended nursing care facility with 102 beds 2000 Pasadena Drive 563-557-1076 Henry Stout Senior Apartments 32 apartments for elderly 125 West 9111 Street 563-557-2079 Heritage Manor 80 Elderly nursing care units; 17 apartments for independent living 4885 Asbury Road 563-583-644 7 Hillcrest Family Services Provides residential support services 63 beds for adolescent 2005 Asbury Road residential treatment, and 10 beds for residential treatment of 563-583-7357 mentallv ill adults and 23 emeraencv vouth shelter beds. Hills and Dales Child Development Center Residential development treatment center for physically and mentally 1011 Davis Street disabled children and young adults, containing 42 beds with 24 hour 563-556-7878 nursing service. Luther Manor Nursing care facility with 103 beds (16 for Alzheimer patients) and 33 3131 Hillcrest apartment units for seniors. 563-588-1413 Manor Care Health Care Center Extended Care facility providing health care services, included skilled 901 West 3'd Street nursing. (92 beds) 563-556-1161 Marthas Haus 19 Elderly apartment units 2217 Queen 563-556-1605 Mount Pleasant Home Retirement home for elderly men and women; 43 apartment units (40 1695 Mt Pleasant accessible) 563-582-4144 95 Oak Park Place 133 units of elderly living units, consisting of 22 independent condos, Oak Park Drive 50 independent apartments and 61 assisted living units (Under construction) Stonehill Care Center Intermediate nursing facility, with 168 beds and a residential facility 3485 Windsor Avenue with 82 beds. Provides respite care, elder day care 563-557-7180 Sunnycrest Manor Intermediate care nursing facility with 88 beds for long term care, 15 2375 Roosevelt beds for residential care and 28 beds for mentally retarded residents. 563-583-1781 FACILITY DESCRIPTION Sunset Park Place 54 Assisted living units for the elderly, including respite care (7 are 3730 Pennsylvania Avenue Alzheimer's units) 563-583-7939 The Woodlands 42 elderly apartments 3460 Starlite Drive 563-556-1188 SPECIAL NEEDS POPULATION - SERVICES SERVICE DESCRIPTION Area Residential Care (ARC) Provides residential treatment services and 1170 Roosevelt Street vocational training programs for mentally disabled 563-556-7560 persons aged 18 and older; developmental work activities; sheltered workshop; supported emolovment and a services training program. Catholic Charities Provides adoption, foster care homes, living 1229 Mount Loretta arrangements for pregnant unmarried women, 563-556-2580 refugee resettlement, independent living for elderly and disabled oersons. Cozy Corner Adult Day Care Adult day care 2785 Pennsylvania Avenue 563-690-6900 Dubuque Area Lifetime Center Provides services, educational opportunities and 3505 Stoneman Road social interaction for the elderly. 563-556-3305 Dubuque County Mental Health/Developmental Coordinates planning and paying for services to Disability - Central Point Coordinator adults with mental illness, mental retardation and Dubuque County Courthouse, 720 Central developmental disabilities. 563-589-7870 Dubuque Regional AIDS Coalition Provides support for those who have tested HIV Mercy Medical Center positive 250 Mercy Drive 563-589-8254 Finley Home Healthcare Skilled nursing in-home care 3385 Hillcrest Road 563-583-5833 Gannon Center for Community Mental Health Provides an array of mental health services including 1449 Central Avenue 2nd Floor counseling and support groups 56i3-582-8001 Goodwill Industries of Northeast Iowa Provides vocational and supporting living services to 2300 JFK Road persons with disabilities. 563-557-3158 Helping Services for Northeast Iowa Provides substance abuse prevention education 2728 Asbury Road 563-582-5317 Hillcrest Family Services Provides residential support services, including 2005 Asbury Road treatment for adolescents 563-583-7357 Hills and Dales Child Development Center Provides in-home supportive services for physically- 1011 Davis Street and mentally-disabled children and young adults 563-556-7878 Lutheran Social Services State accredited mental health provider for individual, 96 2255 JFK Road couple, family or child. 563-582-0044 Mental Health Association of Dubuque County Support services for family and persons with mental PO Box 283 illness. 563-557-7937 Mercy Home Care Skilled in-home nursing care 200 Mercy 563-589-8118 Scenic Valley Area VIII Agency on Aging Network of elderly services 3505 Stoneman Road 563-588-3970 Substance Abuse Services Substance abuse assessment and treatment 799 Main Street 563-582-3784 Seventh Heaven Elder Group Home 1321 Tomahawk Drive 563-557-9110 Stonehill Adult Center Adult Day Care 3485 Windsor Avenue Visiting Nurse Association Provides elderly and disabled services, including 1454 Iowa Street case management; home care aids, respite; 563-556-6200 (24 hours) homemaker; private duty; adult health maintenance nursinc and representative payee program. TRANSPORTATION Accessible transportation for poor and low-income persons and for persons with disabilities and special needs is a challenge. Affordable housing is closely linked to access to jobs and other necessary services. The City has attempted to locate new industry where it is accessible to lower income neighborhoods. However, new industrial parks have recently been created in the west and south periphery of Dubuque's city limits and not in close proximity to the low-income population. The City is currently working to resolve the high cost of public transportation and the relatively few numbers of persons who use public transportation. A recent study "Improving Fringe Area Public Transportation Services for Persons with Disabilities in the Dubuque, Iowa Area" by East Central Intergovernmental Association (ECIA) was completed in March 2004. The intent of the study was to identify the location of disabled populations throughout Dubuque County and the City of Dubuque; to determine the unmet transportation needs for people with disabilities; and to design rural and urban transit strategies to improve their transportation. The study found that the barriers to improving the public transit services included the cost associated with maintaining and improving the transit services, lack or reduction of ridership in rural areas, limited bus routes, scheduling difficulties, and lack of understanding by influential community members on the living and quality of life constraints placed on persons living with disabilities. The study concluded with strategies to remove the barriers to transportation, including the creation of pick-up/drop-off points on the edge of Dubuque's city limits, coordinating route and schedules between transit service providers to enhance travel time reductions, costs and wait times, expanding future market strategies, and driver-training programs to enhance services to persons with disabilities. 97 HOUSING FOR SPECIAL NEEDS POPULATION Currently the City has identified the need for additional housing opportunities for persons with disabilities or special needs. Our strategy is to promote and form partnerships with area non- profit providers to seek and obtain funds for this housing. A high priority will be to continue efforts to develop these partnerships, assess needs, identify opportunities and increase the supply of housing and services for this population. The Housing and Community Development Department's participation on the Housing subcommittee of the Dubuque County Stakeholders facilitates idea sharing and needs assessment for people with disabilities. This organization implements the Dubuque County Management Plan for mental health, mental retardation and developmental disability services, which provides initiatives to expand housing opportunities that maximize community integration under a central point of coordination (CPC) The three primary initiatives of the management plan are: (a) expansion of housing opportunities and employment opportunities in settings that maximize community integration; (b) encouragement of natural supports; (c) provide increased transportation. In FY 2004, 178 individuals with long-term mental illness and/or mental disability were living in an apartment setting with community support, an increase of 7.6% from the previous year. HOUSING OPPORTUNITIES FOR PEOPLE WITH AIDS According to the City of Dubuque Health Department, as of Sept 30,2004 Dubuque County had 21 persons living with HIV or AIDS. The cumulative AIDS cases in Dubuque County since February, 1983 is 34. OTHER Dubuque has been unable to qualify as a "Participating Jurisdiction" under the HUD HOME Program. Dubuque is the largest city in Iowa not currently so designated and therefore does not have entitlement status for HOME funds, having to apply for annual grants in statewide competition. With PJ status, Dubuque would receive a substantial annual HOME grant to support our housing purchase and rehabilitation programs. This is particularly important, as decreasing CDSG entitlement awards, decreasing program revenues and increasing internal demands on the CDSG budget limit the ability to assist affordable housing activities. ;'~. 1..,.:..".,,> , - 'M" ., I NMt-.......... ~. I I i Ui ~ ItIC...... .....-wit .. ) J ; . J . J - J I . I . NonHornel__ COM_ 98 STRA TEGle PLAN MISSION The Strategic Plan is part of the Five-Year Consolidated Plan for FY 2006-2010 for the City of Dubuque. It establishes strategies to address the housing, economic and community development needs identified through our citizen participation process. Our mission is to establish goals, objectives and outcomes that meet the needs of our community by providing decent housing, creating a suitable living environment and expanding economic opportunities. These strategies will comply with the funding requirements of the U.S. Department of Urban Development's (HUD) Community Development Block Grant (CDBG) program The Strategic Plan has incorporated three themes for this purpose: Affordable Housing Opportunities; Family and Neighborhood Revitalization; and Economic Opportunities. Under each theme, goals, objectives and outcomes are listed. Annual progress will be undertaken toward these outcomes through implementation of the Annual Action Plan each of the five years. Since this is a plan based on the best available data, it is understood that as more data becomes available or as strategies are evaluated, the Plan may be amended through the public process during the five-year period. The intent is for the Plan to be the most efficient and effective in addressing the needs of the community and strengthening Dubuque. PRIORITIES FOR INVESTMENT The funding priorities are shown on the Housing Needs Table, Housing Market Analysis Table, Continuum of Care Homeless Population and Subpopulations Chart, Non- Homeless Special Needs, Community Development Needs Table and Housing Needs Table. These tables are shown at the end of the corresponding section in the Consolidated Plan. Funding for meeting the needs of these priorities is expected to be provided with Community Development Slock Grant (CDSG) funds. Additional HOME funding is applied for through the State of Iowa for specific projects. Section 8 funds are used to provide rental assistance to low-income persons but are not included in these funding estimates. Although additional partners will be needed to assist in this energetic plan, their participation is not shown since they have not been specifically identified. The following priorities have been designated by action of the Community Development Advisory Commission: HOUSING AND HOMELESS High Priority Needs ~ Improve the affordability of housing for 0-30% and 31-50 % MFI renter and homeowner households. ~ Increase the availability of 3+ bedroom rental units affordable to 0-30% MFI and 31-50 % MFI households. ~ Preserve and protect the city's existing inventory of affordable housing. 99 ~ Assist non-profit organizations in providing permanently affordable renter and owner occupied housing. ~ Direct homeowner assistance. ~ Rehabilitation of single and multi-family residences for 0-80% MFI households. ~ Lead-based paint reduction in 0-80% MFI households. Medium Priority Needs ~ Improve the affordability of housing for 50-80% MFI renter and homeowner households. ~ Fair housing activities. ~ Tenant/landlord counseling. ~ Lead based paint screening. ~ Indirect homeownership assistance. ~ Acquisition for housing rehabilitation. HOMELESS High Priority Needs ~ Increase the availability of emergency shelter for individuals and families, especially women and children. ~ Provide permanent supportive housing for individuals and families. Medium Priority Needs ~ Help homeless people make the transition to permanent housing and independent living. SPECIAL NEEDS POPULATIONS High Priority Need ~ Increase the availability of housing and supportive services for persons with severe mental illness, physically disabled and alcohol or drug addictions. Medium Priority Need ~ Increase the availability of housing and supportive services for the elderly, frail elderly, developmentally disabled and persons with HIV/AIDS and their families. COMMUNITY DEVELOPMENT NEEDS High Priority Needs ~ Homeless facilities ~ Health services and facilities ~ Operating costs for homeless programs ~ Public service activities ~ Senior services ~ Youth services ~ Transportation services ~ Employment training ~ ~ Child Care Services ~ Services for abused and neglected children ~ Mental health services ~ Economic development financial assistance ~ Capacity building for neighborhoods 100 Medium Priority Needs >> Site acquisition, disposition, clearance and demolition >> Public facilities and improvements >> Centers for seniors, disabled, neighborhoods, childcare and youth >> Park and recreational facilities >> Street, sidewalk and public improvements >> Services for the disabled, persons with substance abuse, abused spouses >> Legal services >> Interim assistance >> Relocation >> Removal of architectural barriers >> Rehab of commercial/industrial buildings >> Historic preservation >> Commercial/industrial development >> Economic development technical assistance >> Assistance to higher education The following tables outline the plan to address the above stated needs and priorities. Three themes have been identified, with goals, objectives, and outcomes. The justification of need and obstacles to meeting that need have been identified earlier in the Consolidated Plan. OUTCOME PERFORMANCE MEASURES In accordance with HUD Notice CPD-03-09, the Five-year Strategy of this Consolidated Plan establishes a performance measurement system. The purpose of this system is to assist in determining if funded programs are meeting identified needs by measuring the extent the activities yield the desired outcomes in the community or in the lives of the persons assisted. The basis of this performance measurement system is to identify themes, goals, objectives, outcomes and performance measure indicators that can be implemented within the next five years. The Plan identifies the following: >> Three themes: Affordable Housing Opportunities, Families and Neighborhood Revitalization, and Economic Opportunities. >> Goals that identify solutions to meet the community needs. >> Objectives that incorporate three categories: Creating Suitable Living Environments; Providing Decent Affordable Housing: and Creating Economic Opportunities. >> Outcomes that include the categories: Accessibility/Availability, Affordability and Sustainability. Each specific outcome combines an outcome category with an objective category. >> Performance measure indicators will be identified during implementation of the annual plan. This performance measurement system identifies broad outcomes that relate to eligible HUD program activities. The purpose of these broad and generalized outcomes is to serve as a guide for funding activities. 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S Ii ~ ~ is: '8 '8 ~ :i:::j: ~ ~ ~ <C ....J....J :g 'i; <( > :i::i: ... ....J....J (t"~1..tAENT O"c--'YO ~ ~ OJ i ::J * * Q "7 ,.. a $ ~ ~ ., 6+" D E'J ~ \.0 o 181 certlftcetion certification LOCAL GOVERNMENT CERTIFICATIONS In accordance with the applicable statutes and the regulations governing the consolidated plan regulations, the jurisdiction certifies that: Affirmatively Further Fair Housing -- The jurisdiction will affirmatively further fair housing, which means it will conduct an analysis of impediments to fair housing choice within the jurisdiction, take appropriate actions to overcome the effects of any impediments identified through that analysis, and maintain records reflecting that analysis and actions in this regard. Anti-displacement and Relocation Plan -- It will comply with the acquisition and relocation requirements of the Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970, as amended, and implementing regulations at 49 CFR 24; and it has in effect and is following a residential antidisplacement and relocation assistance plan required under section 104(d) of the Housing and Community Development Act of 1974, as amended, in connection with any activity assisted with funding under the CDBG or HOME programs. Drug Free Workplace -- It will or will continue to provide a drug-free workplace by: 1. Publishing a statement notifying employees that the unlawful manufacture, distribution, dispensing, possession, or use of a controlled substance is prohibited in the grantee's workplace and specifying the actions that will be taken against employees for violation of such prohibition; 2. Establishing an ongoing drug-free awareness program to inform employees about - a. The dangers of drug abuse in the workplace; b. The grantee's policy of maintaining a drug-free workplace; c. Any available drug counseling, rehabilitation, and employee assistance programs; and d. The penalties that may be imposed upon employees for drug abuse violations occurring in the workplace; 3. Making it a requirement that each employee to be engaged in the performance of the grant be given a copy of the statement required by paragraph 1; 4. Notifying the employee in the statement required by paragraph 1 that, as a condition of employment under the grant, the employee will - a. Abide by the terms of the statement; and b. Notify the employer in writing of his or her conviction for a violation of a criminal drug statute occurring in the workplace no later than five calendar days after such conviction; 5. Notifying the agency in writing, within ten calendar days after receiving notice under subparagraph 4(b) from an employee or otherwise receiving actual notice of such conviction. Employers of convicted employees must provide notice, including position title, to every grant officer or other designee on whose grant activity the convicted employee was working, unless the Federal agency has designated a central point for the receipt of such notices. Notice shall include the identification number(s) of each affected grant; 6. Taking one of the following actions, within 30 calendar days of receiving notice under subparagraph 4(b), with respect to any employee who is so convicted - a. Taking appropriate personnel action against such an employee, up to and including termination, consistent with the requirements of the Rehabilitation Act of 1973, as amended; or b. Requiring such employee to participate satisfactorily in a drug abuse assistance or rehabilitation program approved for such purposes by a Federal, State, or local health, law enforcement, or other appropriate agency; 7. Making a good faith effort to continue to maintain a drug-free workplace through implementation of paragraphs 1, 2, 3, 4, 5 and 6. Anti-Lobbying -- To the best of the jurisdiction's knowledge and belief: · No Federal appropriated funds have been paid or will be paid, by or on behalf of it, to any person for influencing or attempting to influence an officer or employee of any agency, a Member of Congress, an officer or employee of Congress, or an employee of a Member of Congress in connection with the awarding of any Federal contract, the making of any Federal grant, the making of any Federal loan, the entering into of any cooperative agreement, and the extension, continuation, renewal, amendment, or modification of any Federal contract, grant, loan, or cooperative agreement; . If any funds other than Federal appropriated funds have been paid or will be paid to any person for influencing or attempting to influence an officer or employee of any agency, a Member of Congress, an officer or employee of Congress, or an employee of a Member of Congress in connection with this Federal contract, grant, loan, or cooperative agreement, it will complete and submit Standard Form-LLL, "Disclosure Form to Report Lobbying," in accordance with its instructions; and . It will require that the language of paragraph 1 and 2 of this anti-lobbying certification be included in the award documents for all subawards at all tiers (including subcontracts, subgrants, and contracts under grants, loans, and cooperative agreements) and that all subrecipients shall certify and disclose accordingly. Authority of Jurisdiction -- The consolidated plan is authorized under State and local law (as applicable) and the jurisdiction possesses the legal authority to carry out the programs for which it is seeking funding, in accordance with applicable HUD regulations. Consistency with plan -- The housing activities to be undertaken with CDBG, HOME, ESG, and HOPWA funds are consistent with the strategic plan. Section 3 -- It will comply with section 3 of the Housing and Urban Development Act of 1968, and implementing regulations at 24 CFR Part 135. Signature/Authorized Official Date Name Terrance M. Duggan Title Mayor, City of Dubuque, Iowa Address 50 West 13th Street City/State/Zip Dubuque Iowa 52001 Telephone Number 563-589-5210 it-~1.I"'ENT O"e- ~O~ fIJ "i ='* *(i) 7 10- t, $ (,~ o~ Specific CDSG Certifications 6""" DE'I~ \: The Entitlement Community certifies that: Citizen P_rticipation -- It is in full compliance and following a detailed citizen participation plan that satisfies the requirements of 24 CFR 91.105. Community Development Plan -- Its consolidated housing and community development plan identifies community development and housing needs and specifies both short-term and long-term community development objectives that provide decent housing, expand economic opportunities primarily for persons of low and moderate income. (See CFR 24 570.2 and CFR 24 part 570) Following _ Plan -- It is following a current consolidated plan (or Comprehensive Housing Affordability Strategy) that has been approved by HUD. Use of Funds -- It has complied with the following criteria: · Maximum Feasible Priority - With respect to activities expected to be assisted with CDBG funds, it certifies that it has developed its Action Plan so as to give maximum feasible priority to activities which benefit low and moderate income families or aid in the prevention or elimination of slums or blight. The Action Plan may also include activities which the grantee certifies are designed to meet other community development needs having a particular urgency because existing conditions pose a serious and immediate threat to the health or welfare of the community, and other financial resources are not available); · Overall Benefit - The aggregate use of CDBG funds including section 108 guaranteed loans during program year(s) 2Q.Q.5., 2QQ2, 2Q.Ql, (a period specified by the grantee consisting of one, two, or three specific consecutive program years), shall principally benefit persons of low and moderate income in a manner that ensures that at least 70 percent of the amount is expended for activities that benefit such persons during the designated period; · Special Assessments - It will not attempt to recover any capital costs of public improvements assisted with CDBG funds including Section 108 loan guaranteed funds by assessing any amount against properties owned and occupied by persons of low and moderate income, including any fee charged or assessment made as a condition of obtaining access to such public improvements. However, if CDBG funds are used to pay the proportion of a fee or assessment that relates to the capital costs of public improvements (assisted in part with CDBG funds) financed from other revenue sources, an assessment or charge may be made against the property with respect to the public improvements financed by a source other than CDBG funds. The jurisdiction will not attempt to recover any capital costs of public improvements assisted with CDBG funds, including Section 108, unless CDBG funds are used to pay the proportion of fee or assessment attributable to the capital costs of public improvements financed from other revenue sources. In this case, an assessment or charge may be made against the property with respect to the public improvements financed by a source other than CDBG funds. Also, in the case of properties owned and occupied by moderate-income (not low-income) families, an assessment or charge may be made against the property for public improvements financed by a source other than CDBG funds if the jurisdiction certifies that it lacks CDBG funds to cover the assessment. Excessive Force - It has adopted and is enforcing: · A policy prohibiting the use of excessive force by law enforcement agencies within its jurisdiction against any individuals engaged in non-violent civil rights demonstrations; and · A policy of enforcing applicable State and local laws against physically barring entrance to or exit from a facility or location which is the subject of such non-violent civil rights demonstrations within its jurisdiction; Compliance With Anti-discrimination laws -- The grant will be conducted and administered in conformity with title VI of the Civil Rights Act of 1964 (42 USC 2000d), the Fair Housing Act (42 USC 3601-3619), and implementing regulations. Lead-Based Paint -- Its activities concerning lead-based paint will comply with the requirements of part 35, subparts A, B, J, K and R, of title 24; Compliance with Laws -- It will comply with applicable laws. Signature/Authorized Official Date Name Terrance M Duggan Title Mayor City of Dubuque Address 50 West 13tn Street City/State/Zip Dubuque Iowa 52001 Telephone Number 563-589-521 0 1t-~1..~ENT O,t:' ~O~ f1J 'i =' * * Q Instructions Concerning Lobbying and Drug-Free Workplace Requirements .,. ~ l, ~$ Lobbying Certification ,,~ O"l~- This certification is a material representation of fact upon which reliance was 8-W DE"~\; placed when this transaction was made or entered into. Submission of this certification is a prerequisite for making or entering into this transaction imposed by section 1352, title 31, U.S. Code. Any person who fails to file the required certification shall be subject to a civil penalty of not less than $10,000 and not more than $100,000 for each such failure. APPENDIX TO CERTIFICATIONS Drug-Free Workplace Certification 1. By signing and/or submitting this application or grant agreement, the grantee is providing the certification. · The certification is a material representation of fact upon which reliance is placed when the agency awards the grant. If it is later determined that the grantee knowingly rendered a false certification, or otherwise violates the requirements of the Drug-Free Workplace Act, HUD, in addition to any other remedies available to the Federal Government, may take action authorized under the Drug-Free Workplace Act. · Workplaces under grants, for grantees other than individuals, need not be identified on the certification. If known, they may be identified in the grant application. If the grantee does not identify the workplaces at the time of application, or upon award, if there is no application, the grantee must keep the identity of the workplace(s) on file in its office and make the information available for Federal inspection. Failure to identify all known workplaces constitutes a violation of the grantee's drug-free workplace requirements. · Workplace identifications must include the actual address of buildings (or parts of buildings) or other sites where work under the grant takes place. Categorical descriptions may be used (e.g., all vehicles of a mass transit authority or State highway department while in operation, State employees in each local unemployment office, performers in concert halls or radio stations). · If the workplace identified to the agency changes during the performance of the grant, the grantee shall inform the agency of the change(s), if it previously identified the workplaces in question (see paragraph three). 2. The grantee may insert in the space provided below the site(s) for the performance of work done in connection with the specific grant: Place of Performance (Street address, city, county, state, zip code) Check if there are workplaces on file that are not identified here. The certification with regard to the drug-free workplace is required by 24 CFR part 21. Place Name Street City County State Zip Citv Hall 50 West 13m St DubUQue DubUQue IA 52001 Housing and Community 1805 Central Dubuque Dubuque IA 52001 Development Avenue Deoartment Leisure Services Office 2200 Bunker Hill Dubuque Dubuque IA 52001 and Citv Parks Road and citYWide Public Works 925 Kerper Dubuque Dubuque IA 52001 Deoartment City Hall Annex 1300 Main Street DubUQue Dubunue IA 52001 · Definitions of terms in the Nonprocurement Suspension and Debarment common rule and Drug-Free Workplace common rule apply to this certification. Grantees' attention is called, in particular, to the following definitions from these rules: "Controlled substance" means a controlled substance in Schedules I through V of the Controlled Substances Act (21 U.S.C. 812) and as further defined by regulation (21 CFR 1308.11 through 1308.15); "Conviction" means a finding of guilt (including a plea of nolo contendere) or imposition of sentence, or both, by any judicial body charged with the responsibility to determine violations of the Federal or State criminal drug statutes; "Criminal drug statute" means a Federal or non-Federal criminal statute involving the manufacture, distribution, dispensing, use, or possession of any controlled substance; "Employee" means the employee of a grantee directly engaged in the performance of work under a grant, including: All "direct charge" employees; all "indirect charge" employees unless their impact or involvement is insignificant to the performance of the grant; and a. temporary personnel and consultants who are directly engaged in the performance of work under the grant and who are on the grantee's payroll. This definition does not include workers not on the payroll of the grantee (e.g., volunteers, even if used to meet a matching requirement; consultants or independent contractors not on the grantee's payroll; or employees of subrecipients or subcontractors in covered workplaces). Note that by signing these certifications. certain documents must completed, in use, and on file for verification. These documents include: 1. Analysis of Impediments to Fair Housing 2. Citizen Participation Plan 3. Anti-displacement and Relocation Plan Signature/Authorized Official Date Name Terrance M Duggan Title Mayor City of Dubuque Address 50 West 13th Street City/State/Zip Dubuque IA 52001 Telephone Number 563-589-421 0