Fiscal Year 2011-2015 Consolidated Plan_Long Range Planning CommissionPlanning Services Department
City Hall
50 West 13th Street
Dubuque, IA 52001 -4864
(563) 589 -4210 phone
(563) 589 -4221 fax
(563) 589 -6678 TDD
planning @Cityofdubuque. org
The Honorable Mayor and City Council
City of Dubuque
50 W.13 Street
Dubuque, IA 52001
RE: FY 2011 -2015 Consolidated Plan
Dear Mayor and City Council Members:
Introduction
The Long Range Planning Advisory Commission reviewed the recommended FY 2011-
2015 Consolidated Plan.
Background
One of the roles of the Long Range Planning Advisory Commission is to report on the
consistency of the Consolidated Plan with the adopted Comprehensive Plan.
Recommendation
By a vote of 4 - 0, the Long Range Planning Advisory Commission finds the FY 2011-
2015 Consolidated Plan is consistent with the 2008 Dubuque Comprehensive Plan.
Respectfully submitted,
Jim Prochaska, Chairperson
Long Range Planning Advisory Commission
cc: Michael Van Milligen, City Manager
Masterpiece on the Mississippi
February 22, 2010
THE CITY OF
DUB
Masterpiece on the Mississippi
To: Long Range Planning Commission ts
From: Aggie Tauke, Housing and Community Development ,, !
Subject: FY2011 -2015 Consolidated Plan and [
Analysis of Impediments to Fair Housing
Date: February 6, 2010
Dubuque
� City
1 ►
2007
This memo is to provide the Long Range Planning Advisory Commission with the draft FY
2011 -2015 Consolidated Plan and the Analysis of Impediments to Fair Housing for your
review and comment. The Commission is requested to review the proposed Plans and to
comment on its conformance with the general plan for the community.
FY 2011 -2015 Consolidated Plan
The Consolidated Plan is required by the U.S. Department of Housing and Urban
Development (HUD) for communities receiving Community Development Block Grant
(CDBG) 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 housing and
community development actions.
The Plan provides the City an opportunity to shape the various housing and community
development programs into effective, coordinated neighborhood and community
development strategies. It also creates the opportunity for strategic planning and citizen
participation to take place in a comprehensive context, and to reduce duplication of effort
at the local level.
The FY 2011 -2015 Consolidated Plan has been prepared based on a format provided by
HUD in a "Five Year Strategic Plan ". The Plan contains an analysis of various
components, such as housing and homeless needs, barriers to affordable housing,
community development needs, special needs population, antipoverty strategy and other
components to address community needs. An outline of the priorities, objectives and
outcomes are also attached.
The Consolidated Plan is the implementation tool for the use of CDBG funds. Please
review the objectives and outcomes that are presented throughout the Plan. The
strategies proposed in the Consolidated Plan support numerous goals of the
2008Comprehensive Plan, as follows:
Housing
• To promote the preservation, rehabilitation, and investment in our city housing
stock and neighborhoods.
• To promote the creation and maintenance of an adequate supply of sound,
affordable housing integrated throughout the community.
• To expand the opportunities for homeownership, especially for low to moderate
income households.
• To promote fair housing opportunity for residents in all city neighborhoods.
• To assist local service agencies in providing shelter and semi - independent
living for persons in need of supportive services
• To promote the understanding that the availability and affordability of housing is
an important key to successful economic development.
• To promote the public's awareness of housing needs and issues through
informational and educational efforts.
Economic Development
• To reduce unemployment, achieve economic stability, and increase the standard
of living for all citizens.
• To work toward identifying the economic needs of the chronically unemployed
and underemployed in Dubuque, and encourage programming — including
education and retraining — to meet those needs.
• To establish and maintain housing and transportation, communication, and utility
systems which support and foster quality development.
Land Use and Urban Design
• To protect and enhance the viability, livability and affordability of the city's
residential neighborhoods while integrating multifamily development throughout
the community.
• To encourage the concept of mixed use development to create diverse and self -
sufficient neighborhoods.
• To encourage redevelopment opportunities within the City in an effort to revitalize
unused or underused property while promoting its preservation for viable and
affordable housing stock.
• To provide physical accessibility throughout the City.
Human Services
• To promote optimum services to meet food, clothing, shelter, transportation, and
other basic material needs.
• To promote optimum income security and economic opportunity for community
residents.
• To work with area providers so that human services are supported and delivered
in an effective and efficient manner.
Education
• To build partnerships between the private sector and schools to ensure that
educational outcomes meet the needs of both future employers and employees,
enabling the Dubuque area to have the highest skilled incumbent workforce in
the state.
• To develop responsible citizens and leaders to meet the challenges of a
multicultural America and global society.
Analysis of Impediments to Fair Housing
HUD requires the City of Dubuque create an Analysis of Impediments to Fair Housing (Al)
in conjunction with the Consolidated Plan to ensure that local communities are partners in
affirmatively furthering fair housing. The purpose of the Fair Housing Act is to ensure that
people are not denied housing opportunities because of their race, color, national origin,
religion, sex, disability, or familial status. Fair housing impediments are those things that:
1) are done because of race, color, national origin, religion, sex, disability or familial
status, or 2) have the effect of restricting available housing choices for people of a
particular race, color, national origin, religion, sex, disability, or family status.
The attached Al has been prepared to update the Al completed by the John Marshall Law
School Fair Housing Legal Support Center for Dubuque in 2001. Review of studies
completed by Alta Vista Research was used in its preparation. The Al identifies
impediments and proposes a fair housing action plan to eliminate these impediments.
The Al supports numerous goals of the 2008Comprehensive Plan, as follows:
Diversity
• To promote community understanding of the content and spirit of the city's
Human Relations Ordinance.
• To ensure compliance with civil and criminal anti - discrimination laws.
• To understand, respect, and welcome people and eliminate fear based on
differences.
• To educate community members about diversity and open avenues of
communication and interaction within the community.
• To recognize, appreciate and celebrate diversity as an opportunity to experience
and share both our differences and our similarities as a unified community.
• To promote equal opportunity hiring practices and inclusiveness in both the
public and private sectors as a means to diversify the workplace and expand
role -model an leadership opportunities.
Housing
•To promote fair housing opportunity for residents in all city neighborhoods.
•To promote the understanding that the availability and affordability of housing is
an important key to successful economic development.
•To promote the public's awareness of housing needs and issues through
informational and educational efforts.
The Long Range Planning Advisory Commission is requested to transmit to the
Community Development Advisory Commission its recommendations on the proposed
Consolidated Plan and Al prior to the March 3rd public hearing. Your input and comments
are needed to create a functional document. Following their review, the Consolidated Plan
will be forwarded to the City Council, who will hold a 30 day public comment period prior to
final approval at a public hearing. The Consolidated Plan must be submitted to HUD by
May 15
Prepared by Aggie Tauke, Community Development Specialist
F: \USERS\ATAUKE \CDBG \Cons Plan 2011- 2015\LRPC Memo.cons plan.doc
Consolidated Plan FY 2011 -2015
Priorities /Objectives /Outcomes
HOUSING PRIORITIES
1) Expand home - ownership opportunities for extremely low to low income
households
DH -2.1 Objective: Provide down payment assistance to extremely low to low
income households
Outcome: Affordability (DH2)
75 households have affordable housing through a down payment
assistance program for the purpose of providing decent housing
Annual Plan Activity :First Time Home Buyer Program
2) Preserve and maintain existing affordable housing through rehabilitation of
properties for extremely -low to low- income households
DH -1.1 Objective: Provide housing opportunities to maintain, improve and/ or
obtain affordable housing for all income eligible residents.
Outcome: Availability /Accessibility (DH1)
2500 people have improved access to affordable housing through services
which assist in providing decent affordable housing.
Annual Plan Activity: Washington Tool Library, Housing
Planning /Administration Services /Staff, and Housing Rehabilitation Services
and Staff
DH -1.2 Objective: Restore existing vacant or under - utilized structures into
affordable housing units, especially larger residential units, for income eligible
households.
Outcome:: Availability /Accessibility (DH 1)
5 households have new access to affordable housing through the
rehabilitation of vacant or under - utilized structures for the purpose of
creating decent affordable housing.
DH -2.2 Objective: Maximize participation in and use of low- interest
rehabilitation loan /grant for rental housing units.
Outcome: Affordability (DH2)
50 households have access to sustained affordable housing by
rehabilitation loans for the purpose of providing decent affordable housing
Annual Plan Activity: Rental Unit Rehabilitation
DH -1.3 Objective: Create lead safe housing units.
Outcome: Availability /Accessibility (DH1)
20 households have access to safe, affordable housing by creating lead
safe housing units for the purpose of decent affordable housing.
Annual Plan Activity: Lead Paint Hazard Reduction
DH -2.3 Objective: Provide assistance to qualified low and moderate - income
homeowners, including elderly, for the rehabilitation of housing units.
Outcome: Affordability (DH2)
100 households have affordable owner - occupied housing through
rehabilitation for the purpose of providing decent affordable housing.
DH -1.4 Objective: Develop affordable housing to increase the housing
opportunities.
Outcome: Availability /Accessibility (DH1)
5 households are able to obtain affordable housing through rehabilitation
of derelict properties for the purpose of creating decent affordable
housing.
Annual Plan Activity: Purchase /Rehabilitation /Resale
DH -2.4 Objective: Provide assistance to qualified homeowners, including
elderly, for the rehabilitation of housing units.
Outcome: Affordability (DH2)
100 owner - occupied households have affordable housing through
rehabilitation for the purpose of providing decent affordable housing.
Annual Plan Activity: Homeowner Rehabilitation
3) Increase the housing options and related services for special needs
populations.
DH -1.5 Objectives: Provide for implementation of fair housing for all
populations.
Outcome: Availability /Accessibility (DH1)
50 persons have available housing through fair housing practices for the
purpose of creating decent affordable housing. .
Annual Plan Activity: Dubuque Dispute Resolution Center
SL -1.1 Objectives: Increase opportunities for the elderly, disabled and
persons with special needs to maintain an independent lifestyle.
Outcome: Sustainability (SLI)
3000 elderly, disabled and persons with special needs have access to
social programs and services for the purpose of creating a suitable living
environment.
Annual Plan Activity: Senior Center
DH -1.6 Objectives: Modify existing and /or create accessible housing units
Outcome: Availability /Accessibility (DH1)
10 disabled residents have accessible, affordable housing by modifying or
rehabbing housing units for the purpose of creating decent affordable
housing.
4) Create and maintain emergency shelters, transitional housing and
permanent supportive housing and support services for persons and
families who are homeless or at risk for homelessness.
DH -1.7 Objectives: Build capacity of local agencies to support the creation of
emergency and transitional housing and homeless services, especially for
women and children.
Outcome: Availability /Accessibility (DH1)
25 women and children access to transitional housing and services
for the purpose of providing decent housing.
Annual Plan Activity: Opening Doors
5) Preserve existing housing and residential neighborhoods.
DH -1.8 Objective: Enforce minimum housing quality standards in all rental
housing through systematic code enforcement.
Outcome: Availability /Accessibility (DH1)
3500 households have access to safe housing through compliance
with building and housing codes for the purpose of providing decent
affordable housing.
Annual Plan Activity: Housing Code Enforcement
DH -3.1 Objective: Assist low- income homeowners to improve and preserve
historic character of residential structures.
Outcome: Sustainability (DH3)
10 households sustained the historic character of affordable
residential structures for the purpose of providing decent affordable
housing.
Annual Plan Activity: Historic Preservation Rehabilitation Grant
NEIGHBORHOOD AND COMMUNITY PRIORITIES
1) Provide services to families for optimum health, safety, social and human
needs.
SL -1.2 Objective: Partner with local agencies to facilitate affordable and
quality childcare and early education opportunities.
Outcome: Availability /Accessibility (SL1)
3000 citizens have access to quality childcare and early education through
services that create a suitable living environment.
Annual Plan Activity: Child Care Resource and Referral
SL -1.3 Objective: Provide services to improve the education, health, and
human service needs of children and families of all ages, including special
needs population.
Outcome: Availability /Accessibility (SL1)
4000 persons have access to education, health and human services
through programs that create a suitable living environment.
Annual Plan Activity: Information and Referral Services
SL -1.4 Objective: Provide programs for increased opportunities for healthy
youth interaction, educational advancement and /or recreation.
Outcome: Availability /Accessibility (SL1)
2000 youth have access to community programs and services for the
purpose of creating a suitable living environment.
Annual Plan Activity: Neighborhood Recreation Programs
2) Preserve and promote the character and assets of neighborhoods in
income - eligible areas.
SL -1.5 Objective: Provide technical assistance to local organizations to
guide neighborhood development, revitalization and redevelopment.
Outcome: Availability /Accessibility (SL1)
10 organizations have access to technical assistance for the purpose of
creating suitable living environments.
Annual Plan Activity: Neighborhood Development Services & Staff
SL -1.6 Objective: Provide resources for organized neighborhoods in low /mod
income areas to encourage self- initiated revitalization efforts.
Outcome: Availability /Accessibility (SL1)
10 organizations have access to resources for the purpose of creating
suitable living environments.
Annual Plan Activity: Neighborhood Support Grants
DH -3.2 Objective: Provide inspection and enforcement of zoning and land
use regulations to provide support for neighborhood revitalization efforts.
Outcome: Sustainability (DH3)
500 households sustain compatible neighborhoods through compliance
with zoning and land use codes for the purpose of providing decent
affordable housing.
Annual Plan Activity: Zoning Inspection /Enforcement
3) Improve the infrastructure and physical environment in income eligible
areas.
SL -3.1 Objective: Improve and replace sidewalks, and public infrastructure in
income eligible areas.
Outcome: Sustainability (SL3)
150 public facilities are sustained through improvements for the purpose
of creating a suitable living environment.
Annual Plan Activity: Accessible Curb Ramps and Neighborhood
Infrastructure Improvements
SL -3.2 Objective: Provide planning for community needs and administration
of programs to insure maximum public benefit and community enhancements.
Outcome: Sustainability (SL3)
The community has sustained viability and livability through planning and
administration of programs for the purpose of creating a suitable living
environment.
Annual Plan Activity: CDBG Administration, Finance Services and Staff,
and Planning
ECONOMIC DEVELOPMENT PRIORITIES
1) Increase economic opportunities through business retention and/or
expansion.
EO -3.1 Objective: Support local economic development efforts to create or
retain jobs that pay benefits and a livable wage to their employees.
Outcome: Sustainability (E03)
10 persons have access to new jobs through financial assistance to
business for the purpose of creating economic opportunity.
Annual Plan Activity: Economic Development Financial Assistance
Program & Revolving Loan Fund
2) Encourage redevelopment of existing commercial and industrial buildings
EO -3.2 Objective: Correct commercial /industrial building code violations and
rehabilitate buildings in older neighborhoods and downtown.
Outcome: Sustainability (E03)
2 commercial /industrial buildings sustained through code enforcement and
rehabilitation for the purpose of creating a suitable living environment.
Annual Plan Activity: CommerciaUlndustrial Building Rehab Loans
3) Encourage workforce development to ensure equity in employment and
economic opportunities.
E01.1 Objective: Support transportation programs to maintain access to
education, employment, shopping, and health care for low- income persons.
Outcome: Availability /Accessibility (EO1)
Performance Outcomes & Objectives Codes
Availability /Acessibility
Affordability
Sustainability
Decent Housing
Suitable Living Environment
Economic Opportunity
DH -1
SL - 1
EO -1
DH -2
SL - 2
EO -2
DH -3
SL - 3
EO -3
10 persons have access to transportation for the purpose of creating a
suitable living environment.
E01.2 Objective: Promote workforce development through employment
training and programs.
Outcome: Availability /Accessibility (EO1)
10 persons have access to new jobs through workforce development for
the purpose of creating economic opportunity.
F: \USERS\ATAUKE \CDBG \Cons Plan 2011 - 2015\ Priorities .objectives.outcomes.cons plan.doc
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Draft for Public Review and Comment
FY 2011 -2015
Consolidated Plan
For
Housing and Community Development
City of Dubuque, Iowa
Housing and Community Development Department
350 West 6 Street Suite 312
Dubuque Iowa 52001
563- 589 -4239
www.citvofdubuque.org
Masterpiece on the Mississippi
1
Dubuque
M4medcacar
'I ''
2007
Dubuque Consolidated Plan 2011 -2015
City of Dubuque, Iowa
CONSOLIDATED PLAN FY 2011 -2015
April, 2010
Dubuque City Council
Roy D. Buol, Mayor
Ric Jones
David Resnick
Kevin Lynch
Karla Braig
Joyce Connors
Dirk Voetberg
COMMUNITY DEVELOPMENT ADVISORY COMMISSION
Hilary Stubben, Chair
Ann Michalski,Vice Chair
Paula Maloy, SVM
Thomas Wainwright
Michael Gukeisen
Theresa Caldwell
Janice Craddieth
David Shaw
Char Eddy
City Manager
Michael Van Milligen
Housing and Community Development Department
David Harris, Director
Aggie Tauke, Community Development Specialist
Kris Neyen, Rehabilitation Assistant
Assistance:
Alta Vista Research
2
Dubuque Consolidated Plan 2011 -2015
Table of Contents Page Number
Executive Summary 5
Geographic Description 9
Basis for Allocating Funds 10
Basis for Assigning Priority 11
Obstacles to meeting Underserved Needs 11
Managing the Process 12
Citizen Participation 13
Institutional Structure 14
Monitoring 15
Outcome Performance Measurement System 16
Priority Needs Analysis & Strategies 17
Lead Based Paint 18
Housing Needs 20
Affordability 20
Rental Housing Loss 26
Changes in Rental Units and Contract Rents 26
Over - crowding 27
Areas of Racial /Ethnic Minorities and Low - Income Population 28
Priority Housing Needs 30
General Housing Market and Inventory 32
Housing Supply 33
Vacancy 34
Available Housing 35
Housing Age 35
Housing Value /Costs 36
Demand for Multi - Family Housing 40
Housing Development 41
Specific Housing Objectives 42
Needs of Public Housing 43
Public Housing Strategy 45
Barriers to Affordable Housing 45
Fair Housing Action Plan 47
Homeless Needs Assessment 51
Homeless Population 53
Priority Homeless Needs 54
Homeless Inventory 54
Housing Activity Chart 55
Homeless Strategic Plan (Continuum of Care) 57
Fundamental Components of C of C System
Component: Prevention 59
Component: Outreach 60
Component: Supportive Services 61
Present Strategy for Ending Chronic Homelessness 62
Discharge Coordination Policy 62
Community Development Needs 63
Anti - Poverty Strategy 64
Specific Special Needs Objectives 65
Non - Homeless Special Needs 69
Special Need Population 71
3
Dubuque Consolidated Plan 2011 -2015
Housing for Persons with Special Needs 72
Special Needs Population- Facilities 73
Special Needs Population- Services 74
Transportation 75
Other Narrative 77
Appendix
Housing Needs Table
Housing Market Analysis Table
Continuum of Care Homeless Population and Subpopulations Chart
Housing and Community Development Activities Table
Summary of Specific Annual Objectives
Certifications
Action Plan FY 2011
4
- Fv�iaitNr0 ; -- -lidated Plan 2011 -2015
* 1 F ive Year Strategic Plan
j*I!'19 z
Th is document includes Narrative Responses to specific questions
9 4 that grantees of the Community Development Block Grant, HOME
o Investment Partnership, Housing Opportunities for People with AIDS
and Emergency Shelter Grants Programs must respond to in order to be compliant
with the Consolidated Planning Regulations.
GENERAL
Executive Summary
The Executive Summary is required. Include the objectives and outcomes identified
in the plan and an evaluation of past performance.
Introduction
Consolidated planning is a collaborative process whereby 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 to complete a Consolidated Plan. Currently the City of
Dubuque is an entitlement city only for Community Development Block Grant (CDBG)
funds on an annual basis.
The Consolidated Plan integrates economic, physical, environmental, community and
human development in a comprehensive and coordinated fashion. 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 provides a planning tool for policymakers as they consider
decisions impacting the city. The Plan provides a guide to the conditions and needs of
the city, and such documents provide an invaluable opportunity to assess change and
trends, always with an eye toward the proper course for agencies and the city. Looking
at the current statistical indicators it is clear that Dubuque continues to exhibit strengths
and face increased challenges and pressures. One such challenge is the need for
quality housing which is both available and affordable for Dubuque residents.
The Consolidated Plan for the City of Dubuque is for a five (5) year period, from July 1
2010 (FY 20011) to June 30 2015 (FY 2015). 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.
5
Dubuque Consolidated Plan 2011 -2015
Plan Summary
The federal statues set three basic goals against which community performance under a
Consolidated Plan is evaluated by HUD: - provide decent housing, provide a suitable
living environment, and expand economic opportunities.
The Strategic Plan has incorporated these goals into three specific categories: Housing,
Neighborhood and Community Development and Economic Development. Specific
priorities, objectives and outcomes have been identified under each category as follows:
HOUSING PRIORITIES
Expand home - ownership opportunities for extremely low to low
income households.
DH -2.1 Objective: Provide down payment assistance to extremely low to
low income households
Preserve and maintain existing affordable housing through
rehabilitation of properties for extremely -low to low- income
households
DH- 1.1Objective: Provide housing opportunities to maintain, improve
and/ or obtain affordable housing for all income eligible residents.
DH -1.2 Objective: Restore existing vacant or under - utilized structures
into affordable housing units, especially larger residential units, for income
eligible households.
DH -2.2 Objective: Maximize participation in and use of low- interest
rehabilitation loan /grant funds for rental housing units.
DH -1.3 Objective: Create lead safe housing units.
DH -2.3 Objective: Provide assistance to qualified low and moderate -
income homeowners, including elderly, for the rehabilitation of housing
units.
DH -1.4 Objective: Develop affordable housing to increase the housing
opportunities.
DH -2.4 Objective: Provide assistance to qualified homeowners, including
elderly, for the rehabilitation of housing units.
Increase the housing options and related services for special needs
populations.
DH -1.5 Objectives: Provide for implementation of fair housing
opportunities for all populations.
SL -1.1 Objectives: Increase opportunities for the elderly, disabled and
persons with special needs to maintain an independent lifestyle.
DH -1.6 Objectives: Modify existing and /or create accessible housing units
6
Dubuque Consolidated Plan 2011 -2015
Create and maintain emergency shelters, transitional housing and
permanent supportive housing and support services for persons and
families who are homeless or at risk for homelessness.
DH -1.7 Objectives: Build capacity of local agencies to support the
creation of emergency and transitional housing and homeless services,
especially for women and children.
Preserve existing housing and residential neighborhoods.
DH -1.8 Objective: Enforce minimum housing quality standards in all rental
housing through systematic code enforcement.
DH -3.1 Objective: Assist low- income homeowners to improve and
preserve historic character of residential structures.
NEIGHBORHOOD AND COMMUNITY PRIORITIES
Provide services to families for optimum health, safety, social and
human needs.
SL -1.2 Objective: Partner with local agencies to facilitate affordable and
quality childcare and early education opportunities.
SL -1.3 Objective: Provide services to improve the education, health, and
human service needs of children and families of all ages, including special
needs population.
SL -1.4 Objective: Provide programs for increased opportunities for healthy
youth interaction, educational advancement and /or recreation.
Preserve and promote the character and assets of neighborhoods in
income- eligible areas.
SL -1.5 Objective: Provide technical assistance to local organizations to
guide neighborhood development, revitalization and redevelopment.
SL -1.6 Objective: Provide resources for organized neighborhoods in
low /mod income areas to encourage self- initiated revitalization efforts.
DH -3.2 Objective: Provide inspection and enforcement of zoning and land
use regulations to provide support for neighborhood revitalization efforts.
Improve the infrastructure and physical environment in income
eligible areas.
SL -3.1 Objective: Improve and replace sidewalks, and public
infrastructure in income eligible areas.
SL -3.2 Objective: Provide planning for community needs and
administration of programs to insure maximum public benefit and
community enhancements.
ECONOMIC DEVELOPMENT PRIORITIES
Increase economic opportunities through business retention and /or
expansion.
7
Performance Outcomes & Objectives Codes
Availability /Accessibility
Affordability
Sustainability
Decent Housing
DH -1
DH -2
DH -3
Suitable Living
Environment
SL -1 -
SL -2
SL -3
Economic
Opportunity
EO -1
EO -2
EO -3
Dubuque Consolidated Plan 2011 -2015
EO -3.1 Objective: Support local economic development efforts to create
or retain jobs that pay benefits and a livable wage to their employees.
Encourage redevelopment of existing commercial and industrial
buildings
EO -3.2 Objective: Correct commercial /industrial building code violations
and rehabilitate buildings in older neighborhoods and downtown.
Encourage workforce development to ensure equity in employment
and economic opportunities.
E01.1 Objective: Support transportation programs to maintain access to
education, employment, shopping, and health care for low- income
persons.
E01.2 Objective: Promote workforce development through employment
training and programs.
General Questions
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 City has used the past
Consolidated Plan to implement programs that have assisted our citizens and will
continue to do so with this Plan.
1. Describe the geographic areas of the jurisdiction (including areas of low income
families and /or racial /minority concentration) in which assistance will be directed.
2. Describe the basis for allocating investments geographically within the
jurisdiction (or within the EMSA for HOPWA) (91.215(a)(1)) and the basis for
assigning the priority (including the relative priority, where required) given to
each category of priority needs (91.215(a)(2)). Where appropriate, the
jurisdiction should estimate the percentage of funds the jurisdiction plans to
dedicate to target areas.
3. Identify any obstacles to meeting underserved needs (91.215(a)(3)).
Dubuque Consolidated Plan 2011 -2015
Geographic Description'
Dubuque's population has remained stable since the 2000 Census, currently
estimated between 55,965 and 57,741, but substantial growth in population has
occurred in the western communities of Asbury and Peosta, likely as a result of
outmigration from the City of Dubuque. Between 2000 and 2007, Asbury grew by 53.2%
and Peosta by 73.4 %. Those new residents of Asbury and Peosta have tended to mirror
many of the extant demographics.
Nestled amongst the bluffs and shores of the Mississippi River, across from the
border of both Wisconsin and Illinois, the City of Dubuque is home to an estimated
57,250 (2008 Population Estimate, U.S. Census Bureau). The city is currently Iowa's
8th largest city and serves as a regional economic, medical, educational, and tourism
center of the tri -state area. Despite its size, the city boasts two hospitals, three
accredited four -year colleges, as well as a regional community college and other
numerous institutions of vocational training. The city is located roughly 200 miles east of
Chicago IL and Milwaukee WI, and northwest of Des Moines, IA. It is also only 90 miles
from Madison, Wisconsin. While it is often not considered a populated region, 2.9 million
people live within only 100 miles of Dubuque.
Dubuque spans nearly 30 square miles and enjoys atypical Iowa topography by Iowa
standards. Steep bluffs, valleys, and ubiquitous winding streets mark Dubuque's
landscape, in addition to the city's roughly 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.
In 2007 Dubuque was awarded the distinction of All America City by the National
Civic League. The award, one of the oldest and most prominent community recognition
awards in the country, is awarded yearly to only 10 communities across the country.
The award recognizes communities where community members, city officials,
businesses and nonprofit organizations work collaboratively to tackle local issues for the
growth and strengthening of the community. Other recent notable awards for the city
include America's Top 100 Places to Live (relocate.com), Most Livable Small City
(United States Conference of Mayors), 100 Best Communities for Young People
(America's Promise Alliance). Such awards speak to the progress made by the city and
its attractiveness. The outward evidence of the city's successes and growth can be
seen most tangibly in the development of the Port of Dubuque and its growing diversity
of businesses and amenities. Dubuque has been very successful in garnering state and
federal funds for growth and development, including development in the Port of
Dubuque. This trend appears to be continuing as the additional phases of riverfront
expansion move forward, AMTRAK connection to Chicago comes on -line, and
infrastructure spending increases for the west end of the city.
In regard to the relative livability and affordability of Dubuque, the American
Chamber of Commerce Researchers Association (ACCRA) reported Dubuque's (First
quarter 2008 to first quarter 2009) composite standard of living index (COLI) at 96.7
(with the national average at 100—as such, this 96.7 is Dubuque's cost as a percentage
of the average of all participating places in the U.S.). Dubuque, by national comparison
has a lower cost of living. By comparison to other municipalities in the region, however,
1 Alta Vista Research, Inc.
9
Dubuque Consolidated Plan 2011 -2015
Dubuque is often a more costly place to live. The ACCRA COLI includes six categories
of goods and services: grocery items, housing, utilities, transportation, health care, and
miscellaneous goods and services. For comparison sake, the ACCRA COLI composite
costs for cities proximate to Dubuque include: 91.3 for Rockford, IL, 92.4 for Cedar
Rapids, IA, 89.5 for Waterloo -Cedar Falls, and 95.0 for the Quad Cities, IA -IL. In
particular regard to housing costs and cost of living, ACCRA calculates Dubuque's
housing cost at 90.9. This housing cost is weighted as approximately 30% of the cost of
living model employed by ACCRA. All of the cities listed above also have lower housing
costs as indicated in the ACCRA cost of living index (for example, 82.4 for Waterloo -
Cedar Falls and 68.7 for Rockford).
Those entering the city and replacing citizens who have left for western communities
have different demographic traits. For example, from 2000 to 2005/20007 the ACS
estimates a 72.3% increase (from 700 to 1,206) in the number of African American
residents, a 48.5% increase (from 390 to 579) in Asians, a 43% increase (from 553 to
791) in community members of 2 or more races, and a 23.1% increase (from 911 to
1,121) in the Hispanic population of Dubuque. The margin of error for each of these
groups, African American, Asian, Multi -race, and Hispanic, are +/- 273, 151, 240, and
260, respectively.
Dubuque experienced a $7,212.00 increase in its median family income (to $53, 758)
from the 2000 Census, but significant demographic pockets of poverty remain among
female single parents with children under the age of 5 (60 %1), female single parents
with children under age 18 (45.1 %), all children under age of 5 (22.8 %), children 5 -17
years of age (13.9), and those 5 years of age or older who have disabilities (20 %).
Among those families below the poverty line 77% live in renter occupied housing. In
addition, the ACS estimates that 9.6% of families have incomes below the poverty level,
a notable increase from the 5.5% figure cited in the 2000 Census. The margins of error
should be noted for all the data above, and are provided in the text of this report.
Basis for Allocating Funds
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. These areas are targeted for assistance to create a greater impact with
the use of CDBG funds. The majority of CDBG funds are proposed to be expended for
the benefit of low /moderate income persons but some funds are also allocated on a
limited basis to slum and blight areas.
Where the City utilizes CDBG funds on a geographic allocation basis, these allocations
are made only in areas where 51 % or more of the population meets the 80% or lower
income requirement.
The Low /Moderate Income Area map below defines the area in the City of Dubuque
where a minimum of 51% of the residents is low /moderate income persons as per the
2000 U.S. Census data. The map shows 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
10
Dubuque Consolidated Plan 2011 -2015
Tract 11.02, Block 2; Census Tract 101.1, Block 2 and Census Tract 101.3, Block 2.
DISC Inbmuimlw s ceviw
m. CS, • ,iaMln cera B a
m wolpmsye ebW+ti
most v.neYand
mpolort do
sloguaboloor
g enet, ono. not bo bold Babb know i,a wine Noanu.
n. oel. p.txe, cc woo Mie,egie n t s ntt
n.
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Bo &low Olt Yltigb m R.eiY x
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LEGEND
Low/Mod Population at least 51 %
Dubuque City Limits
City of Dubuque, Iowa Low /Moderate Income Areas based on Census 2000 data
Basis for Assigning Priority
Citizen input and census data analysis were the rationale for establishing the priority
rankings in the Consolidated Plan. Public input was received during the process to assist
in determining high, medium and low priorities. The Community Development Advisory
Commission annually convenes the process to assess needs, set priorities and
recommend CDBG budget allocations based on the adopted Citizen Participation Plan.
Funds are allocated based on the needs identified in the Consolidated Plan. All
programs must meet the national objectives of the Community Development Block Grant
program.
Obstacles to meeting Underserved Needs
Anticipated obstacles to meeting underserved needs are lack of sufficient resources,
11
Dubuque Consolidated Plan 2011 -2015
including federal funding reductions, which limit the ability to provide programs and
services.
Managing the Process (91.200 (b))
1. Lead Agency. Identify the lead agency or entity for overseeing the development
of the plan -and the mayor public and pri vate,agencies responsible e,
administering programs covered by the consolidated plan.
2. Identify the significant aspects of the process by which the plan was developed,
and the c
e
a n iz and agencies, ,groups organization and others who participated in the
process.
3. Describe the jurisdiction's consultations with housing, social service agencies, and
other entities, including those focusing on services to children, elderly persons,
persons with disabilities, persons with HIV /AIDS and their families, and homeless
persons.
*Note: HOPWA grantees must consult broadly to develop a metropolitan -wide strategy and other
jurisdictions must assist in the preparation of the HOPWA submission.
Lead Agency
The City of Dubuque Housing and Community Development Department is the 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, monitoring oversight of all public and private agencies that administer
programs that will implement the Action Plans, 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 meets in a public forum to ensure citizen involvement in the use of
federal funds.
Plan Process
Staff from the Housing and Community Development Department began the
Consolidated Planning process by meeting with 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. Staff prepared a Housing and Community Development Survey which
was posted on the City website, translated into Spanish, distributed at community and
neighborhood meetings, and various meetings with City departments and agencies. A
copy of the survey is included in the Appendix.
The quality and quantity of citizen participation in charting the future, identifying needs
and proposing strategies to meet those needs has been substantial. Two Community
Needs meetings were held which provided a forum for citizen input to identify and
prioritize needs to be addressed in this Plan. Public and private agencies were identified
as stakeholders in the process and were invited to attend the community needs
meetings. A copy of those invited to attend and the results are included in Additional
12
Dubuque Consolidated Plan 2011 -2015
Information — Appendix A. City Staff consulted with local non - profit agencies and
organizations who provide services to children, elderly persons, persons with
disabilities, persons with. HIV /AIDS and their families, and homeless persons.
The City hired a consultant to analyze data for the Consolidated Plan using census
information and housing market information. Alta Vista Research, Inc prepared the .
following studies: "Consolidated Population, Housing, and Market Analysis Plan ";
"Analysis of 2008 Home Mortgage Disclosure (HMDA) Data "; "Rental Property Housing
Impediments" and "Conclusions and Recommendations Concerning Housing
Impediments in the City of Dubuque ". Results of these studies assisted in the
preparation of this Plan. Portions of these studies are also included in this Plan.
Staff consulted with Project Concern, the local administrator of the Continuum of Care,
and homeless coordinator and administrator of Homelessness Prevention and Rapid Re
Housing Program (HPRP) and the Shelter Plus Care grants.
The public provided input during the 2006 -2007 update for the 2008 City of Dubuque
Comprehensive Plan, which consists of fourteen elements in three categories: Physical
Environment- Land Use and Urban Design, Transportation, Infrastructure, and
Environmental Quality; Economic Environment - City Fiscal and Economic Development;
and Social Environment- Health, Housing, Human Services, Education, Cultural Arts,
Recreation, Public Safety and Diversity. Review of this input assisted in the preparation
of this five -year strategy to address the community's quality of life.
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, Emergency Shelter Grant (ESG), or Housing
Opportunities for People with AIDS (HOPWA) funds, although HOME and ESG funds
are received through competitive applications to the State of Iowa.
Citizen Participation (91.200 (b))
1. Provide a summary of the citizen participation process:
2. Provide a summary of citizen comments or views on the plan.
3. Provide a summary of efforts made to broaden public participation in the
development of the consolidated plan, including outreach to minorities and non-
English speaking persons, as well as persons with disabilities
4. Provide a written explanation of comments not accepted and the reasons why
these comments were not accepted.
*Please note that Citizen Comments and Responses may be included as additional files within the CPMP
Tool.
An active citizen participation process was used to develop both housing and community
development priority needs. Public notices were posted on the City website
(www.cityofdubuque.org), in the Telegraph Herald, a local newspaper, and in the free
weekly publication, the Dubuque Advertiser. The Community Development Advisory
Commission held public meetings for input throughout the development of this Plan
13
Dubuque Consolidated Plan 2011 -2015
Community needs meetings were held on September 30, 2009 and October 7, 2009 at
the Comiskey Center, 225 East 24 Street, Dubuque, Iowa entitled "CDBG: Moving
Dubuque Forward ". Notices were published on the City website www.cityofdubuque.org,
published in the local newspaper the Telegraph Herald, and sent via email and regular
mail to all City Departments, neighborhood organizations, the mulit- cultural family center,
press, non - profit organizations, educational institutions, businesses and other interested
parties. Notice was also placed in the Dubuque Community School District
"Visible /Available weekly events calendars which is distributed throughout the
community. The October 7 meeting was co- facilitated with the North end
Neighborhood Association, with invitations for participation to all neighborhood
associations. The Community Development Advisory Commission members attended
sessions as well as other city staff. The goal was to identify and prioritize the needs
and /or wants of the community.
The City consulted with public agencies, neighborhood organizations, non - profit
organizations, educational institutions, businesses and other interested parties to identify
the needs and priorities of the community. Results from the Housing and Community
Development Survey also assisted in this process. The survey was placed on the City of
Dubuque website (www.cityofdubuque.org), translated to Spanish, and distributed at
community meetings.
The Community Development Advisory Commission reviewed the elements of the
Consolidated Plan at their meetings in 2009 and 2010. They reviewed the housing
market study in November 2009, identified priority needs in December 2009, and
reviewed the draft Consolidated Plan in February.
Citizen Comments
Comments on the Consolidated Plan will be added after the public review period.
Responses to the comments will also be added at that time.
Institutional Structure (91.215 (i))
. Explain the institutional structure through which the jurisdiction will carry out its
consolidated plan, including private industry, non- profit organizations, and public
institutions.
2. Assess the strengths and gaps in the delivery system:
3. Assess the strengths and gaps in the delivery system for public housing, including
a description of the organizational relationship between the jurisdiction and the
public housing agency, including the appointing authority for the comm
or board of housing agency, relationship regarding hiring, contracting and
'procurement; provision of services funded by the jurisdiction; review by the
jurisdiction of proposed capital improvements as well as proposed development,
demolition or disposition of public housing developments.
The City of Dubuque will implement the Consolidated Plan through numerous
partnerships. The City works closely with the Area HUD Office in Omaha and enjoys
positive working relationships with a number of State -wide housing providers, including:
the HUD Area Office in Des Moines; the Iowa Finance Authority (IFA); the State
Department of Economic Development (IDED), which administers the HOME Investment
14
Dubuque Consolidated Plan 2011 -2015
Partnership Program; and the Des Moines Federal Home Loan Bank, .which administers
the Affordable Housing Program for the district.
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.
• As a member of the Family Self- Sufficiency Task Force, participates with the
Eastern Iowa Regional Housing Authority (EIRHA) in FSS policy development.
• 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 IFA's Housing Trust Fund.
• Administers the Section 8 Housing Choice Voucher Program
• Works cooperatively with area lending institutions in developing programs and
securing funds to promote partnership housing initiatives.
Strengths & Gaps
The City's ongoing initiatives and partnerships with other local, state and federal
agencies are critical to the implementation of innovative programs and services for the
citizens of Dubuque. The City's working relationships with local financial institutions
enables many innovative programs that assist low and moderate income property
owners.
With limited funds available from federal and state sources, the City must continue to
encourage participation from other members of the community and establish more
partnerships with entities willing to share the costs,
Monitoring (91.230)
1. Describe the standards and procedures the jurisdiction will use to monitor its
housing and community development projects and ensure long -term compliance
with program requirements and comprehensive planning requirements.
The City of Dubuque follows federally prescribed standards and procedures to monitor
CDBG activities. This ensures Tong -term compliance with the requirements of the CDBG
program and other federal programs as necessary.
Agencies allocated funding from the City of Dubuque submit progress reports toward
meeting stated goals and objectives for their program on a quarterly basis. The specific
reporting periods were established according to the federal program requirements and
the fiscal year of the funding sources.
Sub - recipients receiving CDBG funds are monitored annually 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 is reviewed on a continual basis to insure compliance with program regulations.
The Community Development Advisory Commission reviews the annual performance
15
Dubuque Consolidated Plan 2011 -2015
report. Presentations, updates, and status reports are presented at Commission
meetings as requested throughout the program year.
Outcome Performance Measurement System
Based on HUD guidance, the City of Dubuque utilizes 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. For each activity that
the City funds, it determines the goal of the activity based on local needs and identifies
an objective and outcome for each activity. The results are reported in HUD's Integrated
Disbursement and Information System (IDIS) reporting system and the City's
Consolidated Annual Performance and Evaluation Report (CAPER).
Goals are defined as proposed solutions to problems or needs that are identified as part
of a planning process. Objectives quantify measurable stepping- stones targeted for
attainment as progress is made through activity implementation toward solution of the
problem or need. Three specific objectives are relative to CDBG funding. These include:
• Creating Suitable Living Environments. Applicable to activities that are designed
to benefit communities, families, or individuals by addressing issues in their living
environment. This objective relates to activities that are intended to address a
wide range of issues faced by low -and moderate - income persons, from physical
problems with their environment to social . issues such as crime prevention,
literacy, or elderly health services.
• Providing Decent Housing. Applicable to housing programs where the purpose is
to meet individual family or community needs, and not programs where housing
is an element of a larger effort, such as would otherwise be applied under the
"Creating Suitable Living Environment" objective.
• Creating Economic Development Opportunities. Applicable to activities that are
related to economic development, commercial revitalization, or job creation.
Outcomes are the benefits that result from a program. Three specific outcomes are
relative to stated objectives. These include:
• Availability /Accessibility. Activities which make services, infrastructure, housing,
or shelter available or accessible to low -and moderate income people, including
persons with disabilities. In this category, accessibility does not only refer to
physical barriers, but also to making the affordable basics of daily living available
and accessible to low- and moderate- income people.
• Affordability. Activities which provide affordability in a variety of ways in the lives
of low- and moderate- income people. It can include the creation or maintenance
of affordable housing, basic infrastructure hook -ups, or services such as
transportation or day care. Affordability is an appropriate objective whenever an
activity is lowering the cost, improving the quality, or increasing the affordability
of a product or service to benefit a low- and moderate - income household
• Sustainability. Activities aimed at improving communities or neighborhoods,
helping to make them livable or viable by providing benefit to low- and moderate -
income persons or by removing or eliminating slum or blighted areas.
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. Because each activity will be implemented with
16
Dubuque Consolidated Plan 2011 -2015
varying intent and purpose, unique to its particular mission, at least one objective and
outcome will be proposed for annual plan activity.
Priority Needs Analysis and Strategies (91.215 (a))
1. Describe the basis for assigning the priority given to each category of priority
needs.
2. Identify any obstacles to meeting underserved needs.
Basis for Assigning Priorities
Dubuque receives approximately $1.2 million in federal CDBG funds annually. 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.
Due to the limited amount of CDBG funds available to the City of Dubuque, not all the
City's housing and community development needs can be addressed over the next five
years. However, priorities were established to ensure that scarce resources are directed
to the most pressing housing and community development needs in the City.
The City undertook a variety of steps to establish the priorities for the use of federal
funds. The City of Dubuque consulted with public agencies, neighborhood organizations,
non - profit organizations, educational institutions, businesses and other interested parties
to identify the needs and priorities of the community. City Council priorities were also
reviewed.Results from the Housing and Community Development Survey also assisted
in this process. The survey was placed on the City of Dubuque website
(www.citvofdubuque.orq), translated to Spanish, and distributed at community meetings.
Data was collected and grouped into one of four major categories: Housing, Public
Improvements, Public Services and Economic Development. Second, the data was
analyzed and priorities were established by the Community Development Advisory
Commission using the following definitions:
• High priorities are those activities that WILL be funded with CDBG funds
• Medium priorities are those activities that MAY be funded with CDBG funds, but
only after high priorities have been funded or if sufficient need is further identified.
• Low priorities are those activities that will NOT be funded with CDBG funds but may be
funded with other City or local funds.
Medium and low priority activities are still important and are not meant to be understood
as unnecessary but are needs that may have other more appropriate funding sources.
17
Dubuque Consolidated Plan 2011 -2015
The City has identified a limited number of priorities to provide a focus for activities that
will be funded in the next five years. There are a sufficient number of medium priority
needs to ensure that funds can be spent in a timely manner. Priorities were established
by the Community Development Advisory Commission (CDAC) during the public review
process, as shown in the attached needs tables.
The priorities identified were developed by:
• Weighing the severity of the need
• Analyzing current housing, economic, social and community conditions
• Analyzing the needs of low and moderate income persons and families
• Asessing the funding resources available over the next five years
• Evaluating input from community meetings, interviews, studies and surveys,
City department staff, City Council priorities, and public hearings.
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
annually 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.
Obstacles to Meeting Underserved Needs
Anticipated obstacles to meeting underserved needs are lack of sufficient providers, and
lack of sufficient resources, which limit the ability to provide programs and services.
Lead -based Paint (91.215 (g))
1. Estimate the number of housing units that contain lead -based paint hazards, as
defined in section 1004 of the Residential Lead -Based Paint Hazard Red uction Act
of 1992, and are occupied by extremely low- income, low- income, and
moderate- income families.
2. Outline actions proposed or being taken to evaluate and reduce lead -based paint
hazards and describe how lead based paint hazards will be integrated into
housing policies and programs, and how the plan for the reduction of lead -based
hazards is related to the extent of lead poisoning and hazards.
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.
There are approximately 14,143 residential properties built before 1978 located in the
city limits. Of these 14,143 residential properties, approximately 9,917 or 70% are 50
years or older. Of the 9,917 properties that are at least 50 years old, approximately
3,982 or 40% are located in the Target Lead Area.
The City of Dubuque 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. These grants provided for 719 housing units made lead safe with an
18
Table 4d —Very Low- and low- Income Population
Very Low- and Low Income Population for. TARGET AREA(S)
Name of Target Area(s): Census Tracts 1, 2, 5, 6, 7.01, 7.02, 101.01 and 101.03
Target Area
(Census Tracts)
Number of Families+
<50% of AMI*
%
Number of Families+
>50% - <80% of AMI*
%
Total Number of
Families+
<80% of AMI*
%
Tract 1
125
26%
50
10%
175
36%
Tract 5
186
18%
259
26%
445
44%
Tract6
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
Dubuque Consolidated Plan 2011 -2015
additional 51 treated using an interim control method. The City has also received a $2.9
million grant beginning in January 2008. The current lead grant will provide for 220
housing units to be made lead safe upon completion in 2010.
Census tracts 1, 5, 6, 7.01, 7.02, 101.01 and 101.03 were selected as the target area for
the Lead Grants. According to Census 2000 data, 61 % of the residents in this area are
low /moderate income persons. This area includes the oldest housing stock in Dubuque,
and in the State of Iowa. Of the housing stock in the target area, ninety -three (93 %) was
built prior to 1978, with sixty -one (61 %) percent built prior to 1940. The Washington
Neighborhood Revitalization area, roughly Census Tract, pre -1940 era housing is
approximately seventy -five (75 %) of the total housing units in the tract.
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 are
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.
The City's Lead Hazard Reduction program has helped the Housing and Community
Development Department promote lead safe housing thru certification and training of
dust clearance testing for housing inspectors. A pool of certified contractors, workers,
and renovators is now available in our community 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 City is also
19
Dubuque Consolidated Plan 2011 -2015
reviewing additional healthy home training for such things as indoor air quality, pest
management, moisture prevention, and home safety.
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.
Housing Needs (91.205)
*Please also refer to the Housing Needs Table in the Needs.xls workbook
1. Describe the estimated housing needs projected for the next five year period for
the following categories of persons: extremely low- income, low- income,
moderate- income, and middle- income families, renters and owners, elderly
persons, persons with disabilities, including persons with HIV /AIDS and their
families, single persons, large families, public housing residents, victims of
domestic violence, families on the public housing and section 8 tenant -based
waiting list, and discuss specific housing problems, including: cost - burden, severe
cost- burden, substandard housing, and overcrowding (especially large families).
2. To the extent that any racial or ethnic group has a disproportionately greater
need for any income category in comparison to the needs of that category as a
whole, the jurisdiction must complete an assessment of that specific need. For'
this purpose, disproportionately greater need exists when the percentage of
persons in a category of need who are members of a particular racial or ethnic
group is at least ten percentage points higher than the percentage of persons in
the category as a whole.
The Housing Needs Table (formerly called HUD Table 2A) is included in the
Appendix.
The City of Dubuque hired Alta Vista Research, Inc to prepare an analysis of the City's
housing market for this Consolidated Plan. The study, entitled "Consolidated Population,
Housing, and Market Analysis Plan" was completed in November 2009. It provided an
analysis of the supply, demand, conditions and cost of housing for families and
households, renters and owners, minorities, elderly, and disabled. In addition, the study
analyzed specific housing problems such as cost burden and overcrowding. The results
of this study are included in part throughout this Plan and assisted in identifying the
housing needs as described in this Plan.
Affordability of Rental, Owner - occupied, and Vacant Units 2
As with previous Consolidated Plans, relative housing affordability can be
determined through HUD's State of the Cities Data System (SOCDS) interface. The
2 Alta Vista Research, Inc.
20
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•= .,..., �.a..Mr .^ c,n < "'.r. .�. r..,.,', ,.,..:o.- :,...�,..+r,. ..r: ,- .r.. >.u>S;
, O wned or for sale units by' #' o f bedrooms``
Y ..r . .- k,:'
Housing Units by
Affordability
- .. ... t ...
0 -1
2
3+
Total
-
0=I
2
Total
CA)
,..:n
(B)
' .A A:M
.(C
.d:4..
.,.. rwAA. .+
'4Ls't;Rr2'.c'.tr. •.. _ ,, .,
:.^4t-d ,.
_ t
,.r. lYlyl.
'i;G..'i'
I. R < =30%
:t,,
.. ..,
t.',e•,'
i - --
u. ,
.
,/ .
r .,::. 'd�
a1714(Z.1:43-0 % '
R '�Mk�,.Y
\ ^lV..
.,, .,w
AYZ�".
x:14
', *W, •-i'#Y
K_..
# occupied units' •
� '
` - 4 15
: 3
r 47
..
*A
N/A
`N%A
N/A
% oc 4; 30%
59
•,. :. .o.,
3 8 74,75
,,,;,c- , - ..aa,
9
'ar. �:i a -t .:
Y,t�_wii..... . _, ..
; N
,M::+ •,
N(A
..' -w
V A
t 4
b uilt before 100-
64 :8
74
721
-..:rm...,r1.
N %.4
NA
3
NA
. .•rvw��.
tfrg someproblem3
4 '
'331
:, `t " ' '�„
22:9 .173
.: '.'� � .
2Sc9
;r '. n:.w', .�,. .�
..t
;fir ...,.
NYA
_
VN /A
.u*-
= °R7
rN
- Ydl}"IK ey4Fr;• re' ..,s n m}ar
#vacant jor rent
:!,►
T 5
.. ,,=+k.+
'.�'A'v
.,; 0 , . , T i
,....A i'1 n -i+&:
e' .,e
`26
•Li'2iit: 'RK.^'e�x
y VS�!,�.pY -' M"�'r"+W,
vacant for -.. sale, ..
k*."Ai:&V.' I`.i., ..fG3''rr .
�y..,
, V'
$,..,.*
TO
,with,„
p�.-r
1�!
2`. Rini >30% io <=50%
VValue `- f e ; , ,
Dubuque Consolidated Plan 2011 -2015
CHAS data for consolidated plans are 'special tabulations' performed by the Census
Bureau for HUD and the data are largely not available in the general public Census
products. (see http:// www .huduser.org/datasets/cp.html). However, this HUD data
includes only the 2000 Census and does not include the more recent American
Community Survey (ACS) data. This is likely to change as the ACS housing questions
replace the Census enumerations and the data set for the ACS increases. The first
several tables below are generated through the HUD system, while the subsequent
tables come from the AC) and other more recent data sources. At this point, all the
variables are not directly comparable across data sets and years (e.g., the ACS for
Dubuque does not provide a reliable breakdown of renter type of household, e.g., elderly
v. large related, as the HUD SOCDS data provides from the 2000 Census). The
SOCDS data on housing problems pulls from numerous disaggregated data sources and
creates a customized tabulation. Such tabulation cannot be duplicated with ACS data
given the sample sizes.
The SOCDS generated tables below provide some illuminating information on
housing affordability. The "Affordability Mismatch" table below provides information on
the relative affordability of the city's housing inventory using 2000 Census data. The
affordability standard employed in the tables includes the HUD-Adjusted Median Family
Income (HAMFI). The HAMFI figure reflects HUD's adjustment of the income levels to
account for location and household size.
SOCDS CHAS Data: Affordability Mismatch Output for All Households
21
14 occupied units
1,675
1,875
575
4,125
145
1,325
2,605
4,075
occupants < =50%
42.7
33.1
31.3
36.7
34.5
20.0
19.0
19.9
% built before 1970
71.9
70.4 82.6 72.7
71.0
69.4
87.7
81.2
% some problem
31.9
30.4 34.8
31.6
6.9
2.6
3.5
3.3
# vacant for rent
140
110
45
295
# vacant for sale
10
30
40
80
3. Rent >50% to < =80%
Value >50% to
< =80%
# occupied units
350 790 360
1,500
88 1,650 6,285
8,023
% occupants < =80%
57.1
51.3 66.7 56.3
55.7 37.6 25.0
27.9
built before 1970
52.9
43.0
84.7
55.3
101.1
85.8
80.3
81.6
some problem
50.0
39.9
37.5
41.7
17.0
3.3
1.9
2.4
# vacant for rent
40
45
0 85
# vacant for sale 10 25 40
75
4. Rent >80%
I
I
Value >80%
[
# occupied units
1
120
48
23
191
65
310
2,767
3,142
# vacant for rent
25
10
0
35 # vacant for sale
4
8
44
56
Dubuque Consolidated Plan 2011 - 2015
Definitions:
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. 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.
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 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.
22
Name of Jurisdiction:
Dubuque city, Iowa
Source of Data:
CHAS Data Book
Data Current as oft
2000
Renters
Owners
Household
by Type,
Income, &
Housing
Problem
Elderly
(I & 2
members)
Small
Related
(2 to 4
members)
Large
Related
( or
more
members)
All
Other
Total
Renters
Elderly
(I & 2
members)
Small
Related
(2 to 4
members)
Large
Related
( or
more
members)
All
Other
Total
Owners
Total
ouseholds
(A)
(B)
(C)
(D)
(E)
(F)
(G)
(H)
(
(J)
(
1.
Household
ncome <=
50% MFI
833
767
122
1,197
2,919
1,090
311
123
249
1,773
4,692
2.
Household
Income
< =30
MFI
451
1
393
5.
1
679
1,579
354
88
24
135
601
2,180
3. % with
any
housing
roblems
63.4
82.2
82.1
76.4
74.4
59.3
88.6
100.0
66.7
66.9
72.3
4. % Cost
Burden
>30%
58.1
82.2
82.1
72.8
71.2
59.3
88.6
100.0
66.7
66.9
70.0
5. % Cost
Burden
>50%
I
37.5
11
57.0
67.9
48.6
I
48.2
i i
36.7
■
72.7
83.3
44.4
45..
47.5
6.
Household
Income
>3010
< =50%
MFI
382
374
66
518
1,340
736
223
99
114
1,172
2,512
Z % with
any_ .
64.7
63.9
47.0
46.9
56.7
13.9
68.6
74.7
52.6
33.2
45.7
Dubuque Consolidated Plan 2011 -2015
SOCDS CHAS Data: Housing Problems Output for All Households
23
housing
roblems
8. % Cost
r urden
>30%
63.6
61.2
34.8
46.1
54.8
13.3
62.3
74.7
52.6
31.7
44.0
9. % Cost
urden
>50%
20.7
13.1
6.1
5.8
12.1
7.5
35.9
10.1
13.2
13.7
12.8
10.
ousehold
ncome
>50 to
< =80%
FI
409
679
195
810
2,093
1,293
793
191
590
2,867
4,960
H.% with
any
housing
.roblems
24.2
15.3
38.5
12.3
18.1
9.9
30.6
27.2
38.1
22.6
20.7
12.% Cost
Burden
>30%
24.2
11..
0.0
10.5
12.6
9.9
30.6
25.1
38.1
22.5
18.3
13. % Cost
Burden
>50%
3.7
0.0
0.0
0.0
0.7
1.5
3.0
2.1
5.9
2.9
2.0
14.
Household
ncome
>80% MFI
313
834
93
1,030
2,270
2,211
6,068
1,070
1,215
10,564
12,834
15.% with
any
ho using
roblems
8.9
3.5
15.1
4.4
5.1
4.1
6.0
7.0
6.6
5.8
5.6
I6. % Cost
Burden
>30%
8.9
0.5
0.0
1.5
2.1
3.6
5.6
3.7
6.6
5.1
4.6
17. % Cost
urden
0.0
0.5
0.0
0.0
0.2
0.2
0.2
0.0
1.6
0.3
0.3
Dubuque Consolidated Plan 2011 -2015
24
Dubuque Consolidated Plan 2011 -2015
Definitions:
Any housing problems: cost burden greater than 30% of income and/or overcrowding and/or without
complete kitchen or plumbing facilities.
Other housing problems: overcrowding (1.01 or more persons per room) and/or without complete kitchen
or plumbing facilities.
Elderly 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.
Compounding the concerns over general availability of housing for families,
according to the data provided in the foregoing tables, of the vacant 2+ bedroom rental
units, only 115 are affordable rents for those households with incomes at or below 30%
of HAMFI. Beyond the rental pressures on larger families indicated above, the data
suggest likewise pressure on 0 -1 bedroom units.
Across all the HUD affordability categories ( <30% MFI to >80% MFI), the percentage
of households listed as having housing problems (i.e., cost burdens, overcrowding, etc.)
via the 2000 Census is provided in the following table.
Table 30. 2000 Census: Percentage of Households with Housing Problems by Income Level and Tenure
Income Level
<30% MFi
>30% to < =50% MFI
>50% to < =80% MFI
>80 %MFi
Total Households
% with Housing Problem
By Tenure
Renters Owners
74.4% 66.9%
56.7% 33.2%
18.1% 22.6%
5.1% 5.8%
33.3% 13.5%
Source: U.S. Census Bureau
25
H o use ho lds
. ., ... ..-
: r t+.wnw.
1;355
.r. -.,,w. ' -,�,.
` 2 ; 280
n:'. s a .. �„„
'.410
...,.:. <.
3,037
,n.. x.. ,,.
' 7
..
..s. , - r..... fl. "i
4,594
�aI ••.Ma
.....,.
7,172
.ara +. ^.r
. ' . r . ., .
, 1,384
.w .w r:q. ±w HM.Y
.: .....
2,054
•.6n':.
.,�: •.....y...
'13;204
, » a
.. - ..:.
22,486
�.. - .._.
D. %with
any
housing
problems
..
.. 45.4
ea.i :xiAr-.iit
30.5
. ++tn.i�a•.. ,,
40:5
.. ai ., .. i' �.
29.9
33:3
, .-
r, . ..., v.'
.. 11.6
s:. •. e. ,., ...
11.7
. :x..i.:.. ->
16.3
.,.t .. .� F.+:. r.
'' 2
Lrr
, %se•SiE ^$s
1 : 5
,;_
...;v,; &+�4"iw�
. .
19 :9
.. ... ...
.
20. � Cost`
Burden
>30
k
''« X •
40.6
. , t
4
' 27.9
. r.
' 16.8
.,.
27 :4
,...; i•�,;•c,q,
29.8
-
' 11:2
..,, tu.,.tr_�.
11:1
Y g '
1 3 :4
4 '�
. 22:2
12:9
18.3
21. % Cost
Burden
>50
16.9
12.1
10.2
11.9
12.9
4.5
2.5
2 :: S
6.3
.3:6
6.6
Dubuque Consolidated Plan 2011 -2015
Definitions:
Any housing problems: cost burden greater than 30% of income and/or overcrowding and/or without
complete kitchen or plumbing facilities.
Other housing problems: overcrowding (1.01 or more persons per room) and/or without complete kitchen
or plumbing facilities.
Elderly 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.
Compounding the concerns over general availability of housing for families,
according to the data provided in the foregoing tables, of the vacant 2+ bedroom rental
units, only 115 are affordable rents for those households with incomes at or below 30%
of HAMFI. Beyond the rental pressures on larger families indicated above, the data
suggest likewise pressure on 0 -1 bedroom units.
Across all the HUD affordability categories ( <30% MFI to >80% MFI), the percentage
of households listed as having housing problems (i.e., cost burdens, overcrowding, etc.)
via the 2000 Census is provided in the following table.
Table 30. 2000 Census: Percentage of Households with Housing Problems by Income Level and Tenure
Income Level
<30% MFi
>30% to < =50% MFI
>50% to < =80% MFI
>80 %MFi
Total Households
% with Housing Problem
By Tenure
Renters Owners
74.4% 66.9%
56.7% 33.2%
18.1% 22.6%
5.1% 5.8%
33.3% 13.5%
Source: U.S. Census Bureau
25
Dubuque Consolidated Plan 2011 -2015
The data from SOCDS suggest that housing burdens impact not only those in the
lowest income bracket, but that those in the middle - income bracket 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.
According to the SOCDS data of those renter households with an income of < =30%
MFI, nearly half face a cost burden of 50% of their income. In that same income
category nearly three quarters of households are spending more than 30% of their
income on housing. Of those households with >30 to < =50% MFI, roughly half of all
households registered a cost burden greater than 30 %. In general, as the percentage of
renter households facing serious/extreme cost burdens decreases, household income
increases. In regards to cost burdens for households in owner - occupied units, the same
general trends exist.
Residential Housing Loss 3
Since 1989, when the Dubuque Housing and Community Development Department
began tracking the loss of housing units, the city has experienced a loss of 521 units.
For the last five years the losses total 155 units. Losses can come from a number of
sources, including changes in infrastructure (e.g., highways, etc.), expansions of existing
facilities such as hospitals, business, or colleges/universities, or other processes such as
condemnation.
Changes in Rental Units and Contract Rents 4
Unlike in previous consolidated plans employing full Census data, the ACS data
cannot yet provide a detailed picture of rental units and contract rent by census tract.
Looking back at the 2000 Census data on the changes in median contract rent for
selected census tracts (chosen because of their high concentration of housing
affordability concerns - tracts 1, 3, 4, 5, 6, 7.01 and 7.02), it should be noted that while
absolute increases in contract rent were experienced in all of these census tracts, the
changes from 1990 to 2000 kept pace with inflation. This is not to say that the wages of
individuals in these rental units did likewise, however.
Beyond the data and reports provided by the Census Bureau, HUD, and the Federial
Financial Institutions Examination Council (FFIEC), there are research and interest
groups who study and advocate for housing affordability. One such group, the National
Low Income Housing Coalition (NLIHC), compares HUD Fair Market Rent (FMR)
estimates for localities with estimated renter income and minimum wage levels to
determine what they call the "housing wage." This housing wage is the level of hourly
income required t a ff or d a 2 b e d room apartment without paying more than 30% of
income on housing (thereby avoiding the established level of housing cost burden).
NLIHC calculates these figures at the national, state, and MSA level. While the data is
not presented for the City of Dubuque separate from the MSA, the figures are largely
comparable and very illustrative. It should be noted that the MSA may create increases
in FMR, but such influence on Dubuque is likely marginal (given the limited rental
inventory beyond the corporate limits of Dubuque). The most recent NLIHC rent data
was published in Out of Reach (2009).
3 Alta Vista Research, Inc.
4 Alta Vista Research, Inc.
26
Dubuque Consolidated Plan 2011 -2015
According to the NLIHC most recent data, Iowa FMR for 2 bedroom apartments in
2009 is $629. To afford this housing, including utilities, would require a monthly income
of $2,097 or $25,162 annually. Then LIHC assumes a 40 hour work week for 52 weeks
per year to determine the so- called housing wage of $12.10. The estimated average
wage for renters in Iowa is $11. As such, a renter must work 44 hours a week to afford
the 2 bedroom apartment at FMR without experiencing a cost burden.
The NLIHC also calculated housing wage for the Dubuque MSA. Based on HUD
estimates, Dubuque FMR for a two bedroom apartment is $581. To avoid cost burdens
would require a housing wage of $11.04. For a minimum wage worker, 61 hours a week
would be needed to achieve this housing wage. However, the estimated average wage
for renters in the Dubuque MSA is $10.28 requiring a 43 hour work week to afford a 2
bedroom apartment at current FMR levels. The picture is less rosy for those on
Supplemental Security Income (SSI) as their sole income. At current SSI payment
levels for Dubuque, an individual could only afford a rent of $202 without incurring a cost
burden. However, FMR for one bedroom apartments in Dubuque MSA is $442.
A couple of cautions are appropriate when using the NLIHC data. While the FMR
values are provided by HUD, the calculation of housing wage is determined by NLIHC
and represents only what an individual would have to earn to avoid a cost burden for a
two bedroom apartment. However, this calculation does not account for households with
more than one wage eamer or the FMR for units other than two bedrooms. It is
reasonable to believe that there are many renters who comprise only one part of full time
wage earners of the household and /or who live and desire or need something other than
a two bedroom apartment. With these cautions aside, the data is still useful for
Dubuque's projections and consideration of housing affordability. It is certainly likely that
minimum wage earners or those with fixed subsidies will face housing affordability
issues. The LIHC data provides a clearer picture of this phenomenon and translates the
data into usable and understandable metrics such as a "housing wage."
OVERCROWDING 5
The U.S. Census Bureau defines an overcrowded housing unit as any in which there
is more than one occupant per room (excluding bathrooms, porches, etc.). For the ACS,
the national overcrowding rate estimate was 3% (Margin of Error + /- .1) and for Dubuque
the estimate was 0.6% ( +/- .2 to .5). The Census Bureau does not provide a fully
collapsed category table for the Margin of Error (MoE) occupant per room calculations,
so the +/- .2 to .5 is a statement of the MoE for the two categories collapsed here (1.01
to 1.50 occupants per room and 1.51 or more occupants per room).
Owing to the limited sample size, it is currently impossible through the ACS to
provide a precise tabulation of overcrowding in owner - occupied versus renter - occupied
units for the city of Dubuque (the MoE is too broad to determine reliable averages across
categories— renter and owner). As the dataset expands this impediment will likely be
removed. However, the national figures are discernible and indicate (accounting for
lower and upper bounds of MoE) an overcrowding rate in owner occupied units of 1.6-
1.7% and in renter - occupied units of 5.7 -5.8 %. The Dubuque data provides a similar
impression, with renter occupied units some 3 times more likely to experience
overcrowding. Overall, however, it appears that the lack of overcrowding in housing
5 Alta Vista Research, Inc.
27
Dubuque Consolidated Plan 2011 -2015
units, renter - occupied or owner - occupied, identified in the previous consolidated plan is
present currently as well.
As noted in the previous consolidated plan, one possible explanation for the lower
than average overcrowding in Dubuque housing units may be the city's household and
family size. The average household size in Dubuque is estimated to be 2.27 persons
( +/- .04) and family size is 2.89 persons ( +/- .07). Both household and family size
estimated in the ACS for Dubuque are smaller than the national ACS estimates of
household size - -2.6 persons ( +/- .01), and family size -3.19 ( +/- .01).
Areas of Racial /Ethnic Minorities and Low - Income Population 6
Data is not currently available for a direct comparison of census block and tracts
from the 2000 Census. ACS data at the block and tract level will likely be available in
2010.
A 2009 transit study by LSC Transportation Consultants, Inc. commissioned by the
City of Dubuque for the city's Keyline Transit System provides an estimate of minority
and poverty populations by census tract and blocks. Important and relevant elements of
the report from LSC Transportation Consultants, Inc. are cited below.
Beyond the recent transit study, the FFIEC publishes yearly census data highlighting
demography, income, population and housing information by census tract. This data is
compiled from both the census and HUD. The FFIEC provides data by census tract for
Dubuque and updates several areas of the data yearly (e.g., median family income).
However, these updated areas are used in addition to static 2000 Census figures such
as minority population. So, the FFIEC data updates on several economic indicators by
census tract - including estimates, but there is not a new estimate of the racial
composition of the same tract, for instance. Only the updated FFIEC categories are
included in the table below. As such, while the LSC estimates are 2008 figures, the
FFIEC Medium Family Income (MFI) figures (both MSA MFI and the tract percentage of
MSA MFI) are 2009 figures.
Table 18 below merges LSC estimates with FFIEC data on the same selected
census tracts. The table provides a picture of estimated economic and demographic
conditions, including race, poverty, and MFI for tract and its relative percentage of
Dubuque MSA MFI.
Table 18. Estimated Minority Population, Poverty. and MFI with MSA Comparisons by Census Tract
2008* 2008* 2008* 2009 **
Est.**
Census Est. Est. % Pop. Est. % Pop. Est. Tract Tract MFi as
Tract Pop. Minority in Poverty MFI %MSA MFI
1
3
4
5
6
7.01
7.02
8.01
8.02
9
11.01
11.02
2,980
2,256
4,169
4,266
3,746
3,825
3,597
4,927
3,443
3,998
3,663
5,770
6 Alta Vista Research, Inc.
16.5% 23.9%
6.3% 4.3%
<1% 11.2%
6% 15.6%
6.3% 10.3%
8.2% 14%
2.4% 11.5%
2.5% 9.4%
1.2% 2.7%
3.1% 6.3%
1.2% 2.1%
3.5% 6.1%
$33,300 53.3%
$55,313 88.5%
$53,869 86.2%
$45,025 72%
$63,531 101.7%
$58,519 93.6%
$53,881 86.2%
$67,931 108.7%
$77,406 123.9%
$59,294 94.9%
$68,863 110.2%
$61,150 97.9%
28
2009
Dubuque Consolidated Plan 2011 -2015
12.01 4,197 4.3% 6.6% $65,756 105.2%
12.02 2,053 2.2% 7% $59,800 95.7%
12.03 6,282 4.3% 3.9% $73,794 118.1%
101.01 2,015 2.2% 6.7% $53,513 85.6%
101.03 2,734 1.4% 4.6% $59,638 95.4%
Sources: *LSC, * *FFIEC
There is much of interest in table 18, but one thing of note is that four of the five most
racially diverse census tracts are also among the top five tracts for the prevalence of
poverty, and the single most diverse census tract is also clearly the most impoverished.
Simply put, Dubuque's most racially mixed areas are its most impoverished. *
MAPS & CHARTS
The chart below shows the comparison of poverty and minority population.
25.0% -/
20.030 �•
15.0% --
10 030
50%
0.0%
1111!P'f rp
e-i m C VI V N N K n ci r1. N ti H DI
r fl o 0 0 o c o a c
�5 Ta ri 4 m Di tii 4 n K n
I- r r r r g 1 1 V it l'g N M
F= H F F F F H 1- 1-
Pct Minority
■ Pct Minority
• Pct Poverty
29
Dubuque Consolidated Plan 2011 -2015
The map below shows the minority population by Census Tract as a percent of the City's
total population.
; z..dtx •
�t; k6 'Tract ..4-
0102
�:� ....aer ' L22%
40 trio 4 WE. mkt
r feH fi7 „' edeatl ic"ktiut, '
=< t'' us a afr a
ara >. P F.�� �.�,
tar*
1117x1-tut[ ga-. st3- rn1111Twsr•tM
as Tus -ears _— ems � n,a - �+
=704 CR•244 IMINcl net- tax
RLTS6 CC'i r Tee Ur- :P4 .1 tetC• t1SY
figno Nuts mu. ir.-4
�T.c ce•e:;e' to -:sat: 111174= 1sa,faa
= "a:1:r•;5r\ ® .CJ -19t.R -' Cakte:ptsa
Priority Housing Needs (91:215 (b))
1. Identify the priority housing needs and activities accordance with the
categories specified " in - the Housing . Needs Table (formerly T ble y 2A). These
categories correspond with special tabulations of U.S. census data provided by
HUD for the preparation of the Consolidated Plait,.
2. provide an analysis of how Characteristics � of,the housing and the
s ev x enty of housing pro andnee each category of residents provided
the basis for determining the relative priority of each priority housing need
Note: No .Family and income types may be grouped in the case of closely related categories of residents
where the analysis would a I to more than'one family or income type
3. Describe the basis for assigning the priority given to each category of priority
needs.
30
Dubuque Consolidated Plan 2011 -2015
4. Identify. any obstacles to` rneeting `underserved needs:
Priority Housing Needs
The funding priorities are shown on the Housing Needs Table. Funding for meeting the
needs of these priorities is expected to be provided with Community Development Block
Grant (CDBG) 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.
Based on the housing market data, the City of Dubuque proposes to focus its CDBG
funds towards improving the quality of life in neighborhoods for extremely low, very low
and low income households, and to preserve and increase the stock of affordable owner
and renter housing units. The following housing priorities have been established:
Expand home - ownership opportunities for extremely low to low income
households
Preserve and maintain existing affordable housing through rehabilitation of
properties for extremely -low to low- income households
- Preserve existing housing and residential neighborhoods.
- Increase the housing options and related services for special needs populations.
- Create and maintain emergency and transitional housing and support services
for persons and families at risk for homelessness.
Basis for Priority
The housing priorities were identified based on the Alta Vista study data on housing
availability and affordability that is referenced throughout this document. Public input
was also reviewed. The Housing data was analyzed and priorities were established by
the Community Development Advisory Commission using the following definitions:
• High priorities are those activities that WILL be funded with CDBG funds
• Medium priorities are those activities that MAY be funded with CDBG funds, but
only after high priorities have been funded or if sufficient need is further identified.
• Low priorities are those activities that will NOT be funded with CDBG funds but may be
funded with other City or local funds.
Medium and low priority activities are still important and are not meant to be understood
as being unnecessary but those needs may have other more appropriate funding
sources.
The City has identified a limited number of priorities to provide a focus for activities that
will be funded in the next five years. There are a sufficient number of medium priority
needs to ensure that funds can be spent in a timely manner. The priorities identified
were developed by:
• Weighing the severity of the need
• Analyzing current housing, economic, social and community conditions
• Analyzing the needs of low and moderate income persons and families
• Assessing the funding resources available over the next five years
• Evaluating input from community meetings, interviews, studies and surveys,
City staff, City Council priorities, and public hearings.
31
Dubuque Consolidated Plan 2011 -2015
Obstacles to Meeting Underserved Needs
Anticipated obstacles to meeting underserved needs are lack of sufficient resources,
which limit the ability to provide programs and services, and lack of sufficient providers.
Two major obstacles that can make acquisition and rehabilitation of older downtown housing
infeasible for low- moderate income households are 1) the combined costs of purchase and
rehabilitation which exceeds the borrowing capacity of lower- income households and 2) 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. 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 with the help of our Neighborhood Development Specialist.
Washington Neighborhood: Revitalize Initiative
The Washington Neighborhood has been locally designated as an area in need of
assistance. The area is a 55 square block area bounded by 1 1 th and 22 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 14 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
continues to be the focus of City initiatives to encourage home ownership and
redevelopment. A comprehensive, citizen based plan for the neighborhood has been
approved and is currently being implemented.
The Washington Neighborhood Development Corporation, a new non - profit corporation
was formed in 2009 to promote revitalization efforts in the Washington Neighborhood.
The WNDC is staffed by a fulltime executive director, initially funded by the City of
Dubuque. A board of directors has been recruited to represent the interests of
stakeholders, including the Washington Neighborhood Association, landlords,
businesses and lenders, and city government. The corporation will promote activities to
improve the neighborhood in a variety of ways.
Housing Market Analysis (91.210)
*Please also refer to the Housing Market Analysis Table in the Needs.xls workbook
1. Based on information available to the jurisdiction, describe the significant
characteristics of the housing market in terms of supply, demand, condition, and
the cost of housing; the housing stock available to serve persons with disabilities;
and to serve persons with HIV /AIDS and their families. Data on the housing
market should include, to the extent information is available, an estimate of the
number of vacant or abandoned buildings and whether units in these buildings
are suitable for rehabilitation.
32
Dubuque Consolidated Plan 2011 -2015
2. Describe the riurnbei id targeting" (Meade , level anti aype'of hou "seliold, served)
VWoi� >s Yu" '
o f u n can, assisted. b coca I;t sta depogramand;an
ass ssmenttofW hetherrany s ch uni e'ex ectedwto:bejlostxfro ,the assisted.
: � t4. 4.-ye : dsR ' : t rRRa r
housing Inventory fon ny reason, (i.e:,expiration of Section' 8.contracts)
3. Indicate how t e characteristics of the housing or e market will influence the use of
K r4PE 9S+ ut(,W;�JE R P�=�S � °" °.;
abb fnta ass ogduc of �r un ts; a a b'litaton
ti i
^r,rxfi"Ft�C
fu ds made a ai 3t
lease note; the.ggal of affordable
Of old u
housing„ is, not beds .ri nursing h pines
t..�..fY .. �q( �` isb'l . • ) h . S�fiY . '�°.1'nw -.
4._,Desc bete u be .a d to eti co e. le el a d type of ousehold se ed
of units current y assisted by local, s ate, or fede y u ded progra i s a ' an
assessment of whether any i such' units are diipected toe lost from t e assisted
housin inventory for any reason,.(i_e_ expirati of Section 8 contracts).
5. Indica e Novi the cth`aracte k � x;�s ai tI��,tr, = rnar ; WiII in i �. ru:' f s
s of.the oursng rrmarke airinfluence'fi e use of
°i�C�r��tRtro� , � yy +�,, aca�ac �,v s.. Q
to , i
ado c i e for rental assistance, i produ ton of new n ,
;s' r eh <, , i w ta
of old units, or acquisition of existing units. Please note; the goe o f affordable
housing is not met by beds in nursing homes.
Based on the data below, the City of Dubuque expects to focus its CDBG entitlement
funds on preserving and increasing affordable housing for extremely low, very low and
low income households.
7 Alta Vista Research, Inc.
33
General Housing Market and Inventory
Housing Supply
According to the 2005 -7 ACS, Dubuque contains 25,273 housing units ( +1-266). This
marks an increase from the 2000 Census total housing unit figure of 23,819. Taking into
consideration the MoE, this represents an increase of 5.8 %, with the upper limit of
change being 7.2% and the lower limit 5 %. This change in total housing units largely
mirrors the change from the 1990 to 2000 Census (roughly a 6% change).
Of the housing units identified in the ACS, 23,651 ( +/- 499) were classified as
occupied, with 1,622 ( +/- 446) classified as vacant. In relation to the total housing units,
occupied units represent 93.6% ( +/- 1.8) with vacant units representing 6.4% ( +/- 1.8).
The ACS reports a rental vacancy rate of 9% ( +/- 4.8) and a homeowner vacancy rate of
0.4% ( +/- 0.5). The ACS occupancy rate marks a decrease from the 2000 Census figure
of 94.7% occupancy rate.
Of the total occupied housing units identified by the ACS, 16,590 ( +/- 529) were
identified as owner - occupied, with 7,061 ( +/- 639) identified as renter - occupied. Of the
total occupied units, owner - occupied represent 70.1 % ( +/- 2.4) and renter - occupied the
remaining 29.9% ( +/- 2.4).
The Dubuque Housing Department's current assessment of total rental stock is
7,800 units. In the previous assessment of total licensed rental stock in 2004, the city
had 7,626 total rental units. This represents a 2.3% increase in licensed rental units
from 2004 to 2008. This full enumeration is consonant with the findings of the ACS
considering the estimated vacancy rates and margin of error.
Dubuque Consolidated Plan 2011 -2015
It is important to note the relative population of Dubuque within renter - occupied and
owner - occupied units respectively. According to the ACS, 39,759 individuals ( +/- 1,332)
are in owner - occupied housing units and 13,980 ( +/ -1, 429) are in renter - occupied units.
Therefore, roughly 66% of the population resides in owner - occupied units.
Vacancy 8
A 'vacant' housing unit is one in which no one is living during the interview period
unless its occupants are only temporarily absent. Following the Census Bureau's
definition of vacancy, the ACS indicated a total of 1,622 ( +/- 446) vacant housing units.
As a total of all housing units this represents 6.4% ( +/- 1.8) of housing stock. For
comparison, the 2000 Census indicated a vacancy rate of 5.3% and an absolute number
of vacant housing units of 1,259.
Of the estimated 1,622 vacant housing units, 836 ( +/- 395) are indicated to be
offered for rent or sale only and rented or sold but not yet occupied. All other vacant
units total 786 ( +/- 272). Included in these other vacant units are those for which the
occupant is residing elsewhere 135 ( +/- 107). This category could include individuals
with more than one residence.
The ACS estimates do not yet allow for a full accounting of the conditions
surrounding the vacancy. While the 2000 Census provided data indicating the type of
housing vacant in terms of "seasonal, recreational, or occasional use" housing units, in
its current state the ACS does not provide that same data. in addition, the ACS does not
yet provide reliable estimates for the various conditions of vacant property (e.g., age of
structure, plumbing facilities, etc.). Regardless, it is clear that not all of the vacant
housing units identified present active and available rental stock. From the ACS data it
appears that the vacant units actively open on the sales or rental market do not even
include all of the estimated 836 ( +/- 395) given that this total includes those already
rented /sold but not yet occupied. Also, the category of `other vacant' includes those not
for rent or sale, etc. While it is impossible from the ACS data to determine the exact
number of housing units for sale remaining vacant (thus speaking to the supply issues in
the housing market and inventory), it is clear that the number of units available is
certainly quite less than the total vacant housing unit figure estimated by the ACS.
In addition to the limitations of current ACS data to identify the exact characteristics
of the vacant properties, it is also not possible currently to impute the rental vacancy
rates by census tract. This was done for the 2000 Census, but cannot be accurately
replicated here. However, it is reasonable to expect that current patterns of vacancy
largely follow the past trends. In addition, data from other studies may shed some light
on the question.
The City's vacancy rate is markedly higher for its rental units than its owned units
(9% for rental units and 0.4% for owned units, +/- 0.5 and 4.8 respectively).
Dubuque's housing inventory as estimated in the ACS continues to be older than
both the state and national averages.
Available Housing 9
8 Alta Vista Research, Inc.
9 Alta Vista Research, Inc.
34
Dubuque Consolidated Plan 2011 -2015
The U.S. Census Bureau classifies housing types in a number of ways. One of the
more important forms is classification by number of units within a structure. Such figures
provide a way to understand the forms of housing predominant in a given location. The
ACS estimates for Dubuque are provided in the table below:
Table 20. ACS Estimated Housing Type and Percentage of Total Housing Inventory
Estimate (MoE) %Total Units (MoE)
Total Housing Units
Total Structures:
Owner occupied:
Built 2005 or later
Built 2000 to 2004
Built 1990 to 1999
Built 1980 to 1989
Built 1970 to 1979
Built 1960 to 1969
Built 1950 to 1959
Built 1940 to 1949
Built 1939 or earlier
Renter occupied:
Built 2005 or later
Built 2000 to 2004
Built 1990 to 1999
Built 1980 to 1989
Built 1970 to 1979
Built 1960 to 1969
Built 1950 to 1959
Built 1940 to 1949
10 Alta Vista Research, Inc.
25,273 (+1-266) 100%
1 unit, detached 16,050 ( +1-537) 63.5% ( +1-2.1)
1 unit, attached 1,261 ( +1-341) 5% ( +1-1.4)
2 units 1,853 ( +1-380) 7.3% ( +1- -1.5)
3 or 4 units 1,700 (+1-328) 6.7% (+1-1.3)
5 to 9 units 1,649 ( +1-285) 6.5% ( +1-1.1)
10 to 19 units 708 ( +1-213) 2.8% (+1-0.8)
20 + units 1,287 (+1-226) 5.1% ( +1-0.9)
Mobile home 765 ( +1-191) 3.0% ( +1-0.8)
Boat, rv, van, etc. 0 ( +/ -127) 0.0% (+1-0.1)
35
Source: U.S. Census Bureau
Considering the estimates above, roughly 2/3rds of Dubuque housing units are
single units. The largest category of housing unit complexes, 20+ units, accounts for a
smaller percentage of housing units than many other categories of multi -unit structures.
Housing Age 10
The ACS provides estimates for the age of housing units. The structure data
collected refer only to when the structure was first constructed, and does not consider
any renovations since the original construction. The current ACS data indicate that over
1 /3rd of structures were built 70+ years ago (37.1 %, +/- 2.2), and roughly 2/3rds having
been built 40+ years ago. As indicated elsewhere in this report, Dubuque has an older
than state and national average age of its housing structures.
The following table provides a breakdown of estimates of housing structure age of
occupied units by tenure of occupants (owner v. renter).
Table 21. ACS Estimated Age of Structure by Tenure of Occupant
Estimate (MoE)
23,651 ( +1-499)
16,590 (+1-529)
143 ( +/ -95)
624 (+1-167)
1,320 ( +1-196)
876 ( +1-219)
2,413 (+ 1-306)
2,612 ( +1-274)
2,539 ( +1-359)
928 ( +1-221)
5,135 ( +1-511)
7,061 ( +1-639)
90 ( +/ -86)
356 ( +1-173)
401 (+1-157)
518 (+1-171)
1,177 ( +1-199)
482 ( +1-166)
525 ( +1-170)
347 ( +1-133)
Dubuque Consolidated Plan 2011 -2015
Built 1939 or earlier
Total Housing Units:
Owner occupied:
With one selected condition
With two selected conditions
With three selected conditions
With four selected conditions
No selected conditions
Renter occupied:
With one selected condition
With two selected conditions
With three selected conditions
With four selected conditions
No selected conditions
11 Alta Vista Research, Inc.
36
3,165 ( +/ -558)
From the data above, up to 50% (considering MoE) of renter - occupied structures
were built 70 years ago or more, while roughly 30% of owner - occupied structures were
built 70 years ago or more. It is simply the case that a greater percentage of renters
than owners occupy the oldest housing units in Dubuque's inventory.
According to ACS estimates, the median year structure built for owner - occupied units
is 1959 ( +/- 2) and for renter occupied units the median year built is 1950 ( +/ -8). Given
the MoE it is not appropriate to claim a significant difference in median age of structure.
However, as the ACS data set expands the MoE for renter occupied units will likely
decrease and allow a more exact comparison.
It is also of interest to consider the relative condition of the structures either owned or
rented. One concern for aging housing stock is the suitability of either /both the physical
condition of the structure or the fiscal condition of the householder relative to housing
costs. The following table provides the ACS estimates for data on housing condition by
renter versus owner (Le., tenure). Physical conditions could include incomplete
bathroom or kitchen facilities, while fiscal conditions could include a housing cost burden
of greater than 30 %.
Table 22. ACS Estimated Selected Physical or Economic Condition by
Estimate
23,651
16,590
3,210
91
0
0
13,289
4,242
7,061
2,614
156
49
0
Source: U.S. Census Bureau
Tenure
(MoE)
(+1-552)
( +/ -501)
( +/ -499)
( +/ -529)
(+1-458)
( +/ -74)
(+1-127)
(+1-127)
(+1-639)
(+1-435)
(+1-117)
(+1-73)
(+1-127)
Source: U.S. Census Bureau
From the data above, it is clear that renters are more likely than owners to face a
physical or fiscal condition creating a housing burden.
Housing Value /Costs 11
The ACS estimate of the median value of owner - occupied units in the City of
Dubuque is $115,100 ( +/- $3,442). As with the 2000 Census, the ACS figures represent
an estimate by the homeowner of combined value of dwelling and land and are not
checked against assessments, appraisals, etc. The 2000 Census determined median
value at $88, 400. Even considering inflation and valuation difficulties, this change does
represent a measurable increase in median value.
Looking further into the ACS estimates, a picture of the distribution of value within
the owner - occupied housing emerges. The distribution is provided in table 23 below.
Dubuque Consolidated Plan 2011 -2015
Table 23. ACS Estimated Housing Values and Number of Units
Estimate (MoE)
Total Units: 16,590
Estimated Value
Less than $50,000
$50,000 to $99,999
$100,000 to $149,999
$150,000 to $199,999
$200,000 to $299,999
$300,000 to $499,999
$500,000 to $999,999
$1,000,000 or more
992
5,403
5,882
2,268
1,431
349
265
0
The data above conforms with standing trends in housing values found in previous
consolidated plans. The clear plurality -to- possible majority of housing units are self -
reported to be valued between $100,000 to $200,000. Taking into consideration the
reported MoE, units in this range account for an estimated 43 -55% of the total. Units in
the lowest two categories account for anywhere from 33 -44 %. This range was
calculated using MoE for both total units and the discrete category. Those with the units
in the lowest category composed roughly 4 -8% of the total.
In regards to costs, perhaps the most significant concern for the Dubuque Housing
Department in its assessment of needs, the picture for both owner - occupied households
and renter - occupied households shows cost pressures. As with previous examinations,
housing costs continue to rise at a pace faster than general income trends. However,
Dubuque still demonstrates lower than state and national average housing costs
pressures. Unfortunately, the ACS cannot yet provide a fully comprehensive picture of
housing burden. As such, the SOCDS HUD data employing the 2000 Census will be
presented as well as the newer, yet not as complete, ACS data.
The Census Bureau, HUD, and numerous other housing agencies and interest
groups accept a 30% of household income as a threshold for housing burden. Housing
costs should not account for more than 30% of income according to this standard. A
look at the distribution of housing costs as a percentage of household income for owner -
occupied units with/without a mortgage provides a picture, albeit incomplete, of the costs
pressures within Dubuque. Table 24 provides this data.
Table 24. ACS Estimated Owner - occupied Unit
Total Owner - occupied Units:
With a mortgage
Less than $20,000 Household Income
30 percent or more Cost Burden
$20,000 to $34,999 Household Income
30 percent or more Cost Burden
$35,000 to $49,999 Household Income
30 percent or more Cost Burden
$50,000 to $74,999 Household Income
30 percent or more Cost Burden
$75,000 or more Household Income
30 percent or more Cost Burden
Without a mortgage
Less than $20,000 Household Income
30 percent or more Cost Burden
$20,000 to $34,999 Household Income
30 percent or more Cost Burden
$35,000 to $49,999 Household income
30 percent or more Cost Burden
$50,000 to $74,999 Household Income
Cost Burdens by Household Income and Mortgage Status
16,590 ( +1-529)
10,335 ( +1-556)
839 ( +1-228)
839 (+1-228)
970 (+1-316)
477 ( +1-149)
391 ( +1-167)
67 (+1-65)
6,255 ( +1-421)
662 ( +1-169)
110 ( +/ -87)
(+1-127)
37
0
(+1-529)
(+1-228)
(+1-473)
(+1-471)
(+1-282)
(+1-236)
(+1-130)
( +/ -95)
(+1-127)
Source: U.S. Census Bureau
1,492
1,756
3,194
3,054
1,281
1,663
1,023
977
(+1-325)
(+1-308)
(+1-430)
(+1-356)
(+1-241)
(+1-293)
(+1-224)
(+1-205)
Dubuque Consolidated Plan 2011 -2015
30 percent or more Cost Burden
$75,000 or more Household Income
30 percent or more Cost Burden
0 (+1-127)
1,264 ( +1-258)
0 (+1-127)
Source: U.S. Census Bureau
To present the data without specific regard for household income categories but with
consideration of more detailed cost levels, table 25 is provided below. The table
presents owner - occupied housing units by mortgage status and percent of monthly
owner costs as percentage of household income.
Table 25. ACS Estimated Owner - occupied Units by Mortgage Status and Cost Burden
Estimate (MoE)
Total Owner - occupied Units: 16,590 ( +1-529)
Housing units with a mortgage 10,335 (+1-556)
20.0 to 24.9 percent Cost Burden 2,250 ( +1-350)
25.0 to 29.9 percent Cost Burden 1,242 ( +1-270)
30.0 to 34.9 percent Cost Burden 837 ( +1-221)
35.0 to 39.9 percent Cost Burden 463 ( +/ -162)
40.0 to 49.9 percent Cost Burden 567 ( +1-168)
50.0 percent or more Cost Burden 877 ( +1-235)
Housing units without a mortgage 6,255 ( +1-421)
20.0 to 24.9 percent Cost Burden 603 ( +1-197)
25.0 to 29.9 percent Cost Burden 339 ( +1-158)
30.0 to 34.9 percent Cost Burden 220 ( +1-105)
35.0 to 39.9 percent Cost Burden 182 ( +1-116)
40.0 to 49.9 percent Cost Burden 180 ( +1-89)
50.0 percent or more Cost Burden 190 ( +1-81)
Source: U.S. Census Bureau
From the data above, some rather intuitive observations can be made. It is clear that
the estimates paint a picture in which those households with the lowest level of
household income are more likely to face housing costs at 30% or greater. This is true
regardless of mortgage status of the owner - occupied unit. It is, of course, more acute
for those owner - occupied households with a mortgage. Given the ACS standing as
estimates with a margin of error, the range of households with costs burdens needs to
be accounted for. Even with the margin of error considered, however, it is clear that
nearly all households with a mortgage in the bottom household income category face
housing costs at 30% or greater.
It is essential to consider the cost burdens of renter - occupied households versus
owner - occupied households. Data on housing cost burdens in Dubuque County
(broader than the city) indicate that 25% owners with a mortgage, 11% of owners without
a mortgage, and 38% renters face housing cost burdens. Again, a housing cost
threshold of 30 percent or greater of household income is considered a housing burden.
The following table provides a comparison of the two groups, owners and renters, in
terms of household income and percent of housing costs.
Table 26. ACS Estimated Monthly Housing Costs as Percentage of Household Income by Tenure and
Household Income Level
Estimate (MoE)
Total Occupied Housing Units 23,651 ( +1-499)
Total Owner-occupied Units 16,590 ( +1-529)
With a mortgage 10,335 (+1-556)
Less than $20,000 Household Income 839 ( +1-228)
30 percent or more Cost Burden 839 (+1-228)
$20,000 to $34,999 Household Income 1,492 ( +1-325)
30 percent or more Cost Burden 970 ( +/ -316)
38
Dubuque Consolidated Plan 2011 -2015
$35,000 to $49,999 Household Income 1,756 ( +1-308)
30 percent or more Cost Burden 477 (+1-149)
$50,000 to $74,999 Household Income 3,194 ( +1-430)
30 percent or more Cost Burden 391 ( +1-167)
$75,000 or more Household Income 3,054 (+1-356)
30 percent or more Cost Burden 67 ( +1-65)
Without a mortgage 6,255 ( +1-421)
Less than $20,000 Household Income 1,281 (+1-241)
30 percent or more Cost Burden 662 ( +1-169)
$20,000 to $34,999 Household Income 1,663 ( +1-293)
30 percent or more Cost Burden 110 ( +/ -87)
$35,000 to $49,999 Household Income 1,023 ( +1-224)
30 percent or more Cost Burden 0 ( +1-127)
$50,000 to $74,999 Household Income 977 ( +1-205)
30 percent or more Cost Burden 0 (+1-127)
$75,000 or more Household Income 1,264 (+1-258)
30 percent or more Cost Burden 0 ( +1-127)
Total Renter - occupied housing units 7,061 ( +1-639)
Less than $20,000 Household Income 3,063 ( +1-448)
30 percent or more Cost Burden 2,364 ( +1-420)
$20,000 to $34,999 Household Income 1,563 ( +1-346)
30 percent or more Cost Burden 337 ( +1-154)
$35,000 to $49,999 Household Income 931 ( +1-242)
30 percent or more Cost Burden 82 ( +1-86)
$50,000 to $74,999 Household Income 760 (+1-231)
30 percent or more Cost Burden 0 (+1-127)
$75,000 or more Household Income 277 (+1-141)
30 percent or more Cost Burden 0 ( +1-127)
Beyond cost burdens by household income levels, looking at gross rent and fair
market rent (FMR) can provide some general insights into housing cost burdens. Gross
rent is defined as the sum of rent paid to the owner plus any utility costs incurred by the
tenant - excluding phone service. FMR is determined by HUD and represents the 40th
percentile of gross rents for a typical, non - substandard rental unit occupied by recent
moves in a local housing unit. FMR excludes public housing, substandard housing,
housing less than 2 years old, etc.
Table 27. Gross Rent as Percentage of Household Income
Renter - occupied Units
Gross Rent
< 15 Percent Household Income
Gross Rent
15 to 19.9 Percent Household Income
Gross Rent
20 to 24.9 Percent Household Income
Gross Rent
25 to 29.9 Percent Household Income
Gross Rent
30 to 34.9 Percent Household Income
Gross Rent
35 Percent Household Income or More
Not Computed
39
Source: U.S. Census Bureau
7,061 (+1-639)
1,318 ( +1-105)
699 ( +1-207) 9.9% ( +/ -2.7)
904 ( +1-245) 12.8% ( +/ -3.4)
890 ( +1-251) 12.6% ( +/ -3.5)
518 ( +1-183) 7.3% ( +/ -2.5)
18.7% ( +1-4.1)
Z265 ( +1-419) 32.1% ( +/ -5)
467 ( +1-209)
Source: U.S. Census Bureau
From the table above, the most significant finding is the size of the renting population
experiencing a cost burden. Roughly 30% of renters face extreme cost burdens with
Dubuque Consolidated Plan 2011 -2015
gross rent 35% or more of household income. A further 7.3% of renters face burdens
above the 30% threshold commonly employed by housing agencies and interest groups.
In all, a third to nearly half of all renters had gross rents creating a cost burden of more
than 30% of household income.
Beyond the problem of cost burden, households may face additional pressures
leading to inadequate housing security. Additional pressures tracked by the ACS
include overcrowding, inadequate plumbing or kitchen facilities, etc. The ACS provides
an estimate of housing units and the presence of such conditions. Table 28 below
presents this data.
Table 28. Housing Units by Tenure with Selected Physical and Financial Conditions
Estimate (MoE)
Total Occupied Units 23,651 (+1-499)
Owner occupied 16,590 (+1-529)
With one selected condition 3,210 ( +1 -458)
With two selected conditions 91 ( +/ -74)
With three selected conditions 0 (+1-127)
With four selected conditions 0 ( +1 -127)
No selected conditions 13,289 (+1-552)
Renter occupied 7,061 ( +1-639)
With one selected condition 2,614 ( +1-435)
With two selected conditions 156 (+1-117)
With three selected conditions 49 ( +/ -73)
With four selected conditions 0 ( +1-127)
No selected conditions 4,242 (+1-501)
Source: U.S. Census Bureau
These conditions correspond to burdens associated with the physical condition of the
unit and/or the financial condition of the household. Such conditions include excessive
cost burden (over 30% housing costs as percentage of household income,
overcrowding, incomplete facilities, etc.). From the data above it is clear that renters
face a greater likelihood of physical or financial burdens than owners. This observation
should not be surprising considering the data on table 27 indicating the prevalence of
cost burdens on renters (and such a burden is embedded in the data in table 28).
Demand for Multi- family /Household Structures
It is clear from the data that single- family detached units still dominate Dubuque's
housing landscape. However, as the population changes there may be an increase in
demand for alternatives to the traditional single- family detached housing units.
Alternatives may be sought for financial reasons as well as others. The demand for
multi - family/household structures is present, of course, among renters, but may also be
found in certain segments of those seeking or holding homeownership (via
condominiums, etc.). For example, demand for multi - family/household structures
(anything from condominiums to assisted living communities) across the nation
increasingly can come from the elderly. In short, as more individuals seek to establish
separate households the demand may increase.
According to the ACS, Dubuque's median age is 38.3 ( +/- .4) In regards to
household types, family versus non - family households, the ACS estimates 66.8% ( +/-
1.6) were family households (those places of residence where related, by blood or law,
individuals reside), while 33.2% ( +/- 1.6) were non- family households. An estimated
12 Alta Vista Research, Inc.
40
Dubuque Consolidated Plan 2011 -2015
30.2% of family households have children <18 years of age ( +/- 1.5), an estimated
55.1% ( +/- 1.9) are married couples. Average household size is estimated to be 2.42
( +/- .03) and average family size of 3 ( +/- .06).
It is likely that Dubuque will continue to experience an increase in single - parent
households, an aging population, and those seeking housing altematives. An estimated
18% ( +/- 0.3) of the population is 62 years or older, 15% ( +/- 0.1) are 65 years or older,
5.5% ( +/- 0.3) are 75 to 84 years of age, and 2.3% ( +/- 0.3) are 85 years or older. Given
the continued desire by city officials to increase Dubuque's appeal and affordability, it is
likely to face a need for multi - family/household housing developments. Both
redevelopment and development will likely be needed.
Housing Development 13
Data on building permits obtained through HUD's SOCDS indicate that single - family
buildings continue to be the single largest category for building permits. This is not all -
that surprising, however, it is of interest to note the permit activity across categories.
Table 29 below provides building permit information by unit type for the years 2004
through June 2009.
Table 29. Housing Unit Building Permits 2004 -2009: HUD SOCDS
2004 2005 2006 2007 2008 2009 Total
(2004 -June 2009)
Total Units 531 156 127 120 56 36 1026
Units in 86 104 93 77 44 24 428
Single - Family
Structure
Units in Multi- 445 52 34 43 12 12 598
Family Structures
Units in 2 Unit 38 38 22 22 12 12 144
Multi- Family
Structures
Units in 3 and 4 6 9 6 9 0 0 30
Unit Multi - Family
Structures
Units in 5+ Unit 401 5 6 12 0 0 424
Multi- Family
Structures
13 Alta Vista Research, Inc.
41
Source: HUD SOCDS
One concern in the data above involves the large multi- family structure constructed
in 2004. That structure is an important outlier and stands in stark contrast to the permit
patterns across the rest of the time period. If one excludes the anomalous 2004 multi-
family figure, it is clear that the strong majority of building permits in the past four years
are for single - family structures. Exclusive of 2004, 69.1% of permits were for single -
family structures. Keeping 2004 in the analysis, 41.7% of structures were single- family
and 58.3% multi - family (with 2 unit structures accounting for 24.1 % of multi- family
structures, 3 and 4 units 5% of multi - family structures, and 5+ units accounted for 70.9%
of multi- family structures).
Dubuque Consolidated Plan 2011 -2015
Specific Housing Objectives (91:215,(b))
1. Describe the priorities and specific o bjectives the'.jurisdiction hopes to achieve
over a specified time period.
.: Describe Flow: Federal, Statei and .11ocaJ o blic'and- pri e��
vate s ctor resources that
. .e'�tt;vras:�' : v r . x:a_yr,c« -: •f° r
afe be :available ;mo be used to address identified needs
for, the period . covered by the "st'rateglc plan.
Priorities and Objectives
The City of Dubuque will focus its CDBG entitlement funds towards improving the quality
of life for extremely low, very low and low income households by establishing the
following priorities and objectives.
HOUSING PRIORITIES
Expand home - ownership opportunities for extremely low to low income
households.
DH -2.1 Objective: Provide down payment assistance to extremely low to low
income households
Preserve and maintain existing affordable housing through rehabilitation of
properties for extremely -low to low- income households
DH -1.1 Objective: Provide housing opportunities to maintain, improve and / or
obtain affordable housing for all income eligible residents.
DH -1.2 Objective: Restore existing vacant or under - utilized structures into
affordable housing units, especially larger residential units, for income eligible
households.
DH -2.2 Objective: Maximize participation in and use of low- interest
rehabilitation loan /grant funds for rental housing units.
DH -1.3 Objective: Create lead safe housing units.
DH -2.3 Objective: Provide assistance to qualified low and moderate - income
homeowners, including elderly, for the rehabilitation of housing units.
DH -1.4 Objective: Develop affordable housing to increase the housing
opportunities.
DH -2.4 Objective: Provide assistance to qualified homeowners, including
elderly, for the rehabilitation of housing units.
Increase the housing options and related services for special needs
populations.
DH -1.5 Objectives: Provide for implementation of fair housing opportunities
for all populations.
42
Dubuque Consolidated Plan 2011 -2015
SL -1.1 Objectives: Increase opportunities for the elderly, disabled and
persons with special needs to maintain an independent lifestyle.
DH -1.6 Objectives: Modify existing and /or create accessible housing units
Create and maintain emergency shelters, transitional housing and
permanent supportive housing and support services for persons and
families who are homeless or at risk for homelessness.
DH -1.7 Obiectives: Build capacity of local agencies to support the creation of
emergency and transitional housing and homeless services, especially for
women and children.
Preserve existing housing and residential neighborhoods.
DH -1.8 Obiective: Enforce minimum housing quality standards in all rental
housing through systematic code enforcement.
DH -3.1 Objective: Assist low- income homeowners to improve and preserve
historic character of residential structures.
Federal, state, and local public and private sector resources will be used to address
these identified needs.
Needs of Public Housing (91.210 (b))
In cooperation with the public housing agency or agencies located within its
boundaries, describe the needs of public housing, including the number of public
housing units in the jurisdiction, the physical condition of such units, the restoration
and revitalization needs of public housing projects within the jurisdiction, and other
factors, including the number of families on public housing and tenant -based waiting
lists and results from the Section 504 needs assessment of public housing projects
located within its boundaries (i.e. assessment of needs of tenants and applicants on
waiting list for accessible units as required by 24 CFR 8.25). The public housing
agency and jurisdiction can use the optional Priority Public Housing Needs Table
(formerly Table 4) of the Consolidated Plan to identify priority public housing needs
to assist in this process.
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 low income persons with affordable housing through HUD's Section 8
program, which offers rental assistance to Tower- income families in privately owned
housing.
1 w�u Ia
Section 8 Housing Assistance
The City of Dubuque administers 1,063 Section 8 Housing Choice Vouchers and 14
Moderate Rehabilitation units, all of which are currently utilized. The Voucher Payment
Standard is 110% of Fair Market Rent. Seven of the Housing Choice Vouchers are
current participants of the Section 8 Homeownership Program.
All landlords and property owners are encouraged to participate in the HCV program.
Currently approximately 350 landlords are providing units for participants.
43
Dubuque Consolidated Plan 2011 -2015
As of January 2010, there were 981 applicants on the Section 8 waiting list. The waiting
list is currently closed except to applicants qualifying for local preference points. Local
Preference Points are provided for elderly (aged 62 +), disabled, applicants receiving
community support services and local residents. Single persons will not be assisted
until all elderly, disabled and displaced singles have been assisted. Therefore, the
waiting period for single persons and persons remaining on the waiting list without local
preference points is indefinite. The average waiting period for applicants qualifying for
local preference points is approximately two to ten months.
Approximately 98% of applicants are extremely low income; others are Very Low
Income. Head of household are primarily female, with 812 females and 169 adult males
residing in Section 8 housing.
The Family Self- Sufficiency (FSS) program is a federal program designed to teach low
income families how to become financially self sufficient. It is a HUD sponsored program
that is funded through a yearly grant. The FSS program works with welfare agencies,
schools, businesses, and other local partners to develop a comprehensive program that
gives participating family members the skills and experience to enable them to obtain
employment. Family Self- Sufficiency is a voluntary program for current participants.
During FYE 2009 four participants graduated from the Family Self - Sufficiency (FSS)
program with combined total earnings of $12,614 in HUD escrow monies. An escrow
account is another benefit of the FSS program. Every time a participant has an
increase in earned income and the rent increases based on the earned income, the
participant receives a portion of this difference in a savings or escrow account
maintained by the City of Dubuque. This account continues to earn interest and builds
until the participant graduates from the FSS program. Graduation from the program
occurs when either the head of household is working full time (or part time if receiving
disability), has been free of cash welfare assistance (FIP) for one full year and has met
all of their goals. Upon graduation, the participant is entitled to use their escrow account
however they see fit. Often, the escrow check is used as a down payment on their new
home.
The City of Dubuque has sponsored a series of trainings to increase awareness of class
differences and reduce barriers to economic opportunity for lower- income persons. The
"Bridges Out of Poverty" and "Getting by in a Just Gettin' Ahead World" workshops have
been expanded to include City employees, area social service professionals and
consumers. The Gettin' Ahead program completed its second year with a total of 72
graduates who have completed the class. Next year's classes are projecting to engage
over 60 participants. Two FSS participants and the FSS Coordinator became national
certified trainers in Bridges Out of Poverty. The "Getting Ahead in a Just Gettin' -by
World" training curriculum has been offered to 93 consumers, with a 77% graduation
rate for the 20 -week course. Graduates report a major change in attitude and perception,
with 48% employed by the end of class. Partners include the Dubuque Rescue Mission,
Community Foundation, Project HOPE, First Baptist Church and Iowa Workforce
Development Center.
The City of Dubuque's Section 8 program continues to be rated as a "high performer"
housing authority according to HUD Semap rating criteria.
44
Dubuque Consolidated Plan 2011 -2015
Public Housing Strategy` (91:210)'
7.6X .un �6 � - +n,>e. - - - • ati+.s. � ✓. r.+. , k [t.-. ....5" Gi.l.n '' . -:..a. i .. . w,f•. S - -- -. P
10 bescnbe publie hot "sing ag serve the needs of extremely
-Y - - '�rCvraa� �F�ieS: ���pr�4$, it�2 `aiv'`f"��'`�`'4tiui�t
evt income and moderate iteli a lfhli esresidi the
risd c io a . e� b " „th ublic ousing°ag
t uding. a flies o = t e,publie
ho' sin a d sect on 8 to ant -base siting; list w',the, blic4iousi g'agency =s
strategy fora dressing the rev , est on. needs pu hou
`]®iSp�.w�C m.: ?,� 2 S'xx.'e, >7F a v4M.1`iro?q.+acrri a ep€;8, � `{,�aS:.'+QR'�S: +M , y s:..
projects the ju # and i th�e, ent anni operat on of
suc . pub F%ous,, a, the publi i o in gYag e y �c s gy f p o v i n g t : F e
liv environment of;ext low, income; l incom and . mo d era t e families
3. If the Ohne housing agencY is designated aS rtroUbled'.' by HUD - or otherv,vise is
Wooing poorly, s the , ju nsclictiop shall describe Will .
Dubuque has no public housing. See the above section on Section 8 assistance and
associated programs.
Barriers td Affordable' Hou (91.210 (e) and ` 91.215`(f))
1. Explain whether the.cost of housing or the incentives to develop, maintain, or •
i m p rove, affordable housing are affected by public policies, particularly t of
the local jurisdiction. Such policies include tai policy affectipg land and other
property, land use controls, zoning ordinances, building codes, fees and charges,;
growth limits, and policies that affect the return on residential investment:
2. Describe the strategy to remove or ameliorate negative effects of public policies
that serve as barriers to affordable housing, except that, if a State requires a unit
of general local government to submit a regulatory barrier assessment that is
substantially equivallent to the information required under this part, $ as _
rm
deteined by HUD, the unitof general local `government submit that
assessment to HUD and it shall be considered to have complied with this
requirement.
Public Policies
Many public policies have been adopted by the City that assist affordable housing. The
City of Dubuque adopted a Unified Development Code (UDC) in October, 2009 which
combines the City's previous Zoning Ordinance, Subdivision Regulations, Historic
Preservation Ordinance, and portions of the Building Code into one document. The
UDC eliminated contradictory and redundant regulations while updating City Codes to
reflect new approaches in land use regulation and city initiative for sustainability. The
new code was developed after much public input and will assist in the development of
affordable housing.
The City of Dubuque has established large areas of downtown as both historic districts
45
Dubuque Consolidated Plan 2011 -2015
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.
The City will continue to assist developers in obtaining Low Income Housing Tax Credits
from the Iowa Finance Authority and e 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 continue to work
in collaboration with other organizations to create housing opportunities that provide
assistance to low and moderate income persons.
Strategy to Remove Barrier
The John Marshall Law School Fair Housing Legal Support Center completed an
Analysis of Impediments to Fair Housing (Al) for Dubuque in 2001. In 2009, Alta Vista
Research conducted an Al to identify the extent to which certain impediments identified
in 2001 continue to exist and to identify additional potential impediments. They
completed a Rental Property Survey, an Analysis of 2008 Home Mortgage Disclosure
Act Data, and a Consolidated Population, Housing, and Market Analysis. In addition, in
preparing the final AI, the City reviewed the 2009 Rental Market Overview for Dubuque,
completed by Real Property Research Group for the Iowa Finance Authority. The final Al
report resulted in the completion of a Fair Housing Action Plan as described below.
46
OBJECTIVE
ACTIVITIES
DEPARTMENT
RESPONSIBLE
TIME
FRAME
A. Increase the
develo and
preservation of
decent, affordable
and accessible
housing.
1. Encourage the development
of high quality, market rate
multi - family rental
communities.
2. Reduce the number of rental
properties with undesirable
features through improved
code enforcement and
rehabilitation assistance.
Economic
Development
Housing &
Human Rights
Ongoing
B. Increase the
amount of
accessible housing
and housing with
universal design
features.
1. Encourage inclusion of
accessibility and universal
design features in all new
and renovated housing, even
if not legally mandated,
including in the Historic
Millwork District.
Economic
Development
Housing
Human Rights
Ongoing
C. Support the
development and
disbursement of
housing options for
the more needy
residents of
Dubuque.
1. Provide strong, positive
leadership when new
developments are
challenged by neighbors in
the developing areas.
2. Encourage disbursement of
developments to avoid
concentrations of poverty.
3. Apply for HUD rent -
exceptions to allow those
with Section 8 rental
assistance access to a
broader range of units
throughout the community.
4. Encouraged mixed income
housing units in the Historic
Millwork District.
Housing
Planning
Economic
Development
Ongoing
Dubuque Consolidated Plan 2011 -2015
Fair Housing Action Plan for City of Dubuque
Impediment No.1 — The Lack of a Diverse Stock of Accessible Affordable Housing
Dispersed Throughout Dubuque
47
OBJECTIVE
ACTIVITIES
DEPARTMENT
RESPONSIBLE
TIME
FRAME
A. Increase and
1. Continue to attract new
Economic
Ongoing
retain the number of
new residents in the
community.
residents by increasing the
economic base of the
community.
Development
2. Welcome and connect new
residents of all backgrounds
through the Distinctively
Leisure Services
Ongoing
Dubuque program and the
Multicultural Family Center.
Ongoing
3. Support the efforts of
Dubuque Works and
encourage a specific focus
on attracting and retaining a
diverse workforce.
Human Rights,
City Manager
Dubuque Consolidated Plan 2011 -2015
Fair Housing Action Plan for City of Dubuque
Impediment No.2 — An Environment Where There are Few Minorities to Serve as
Role Models
48
OBJECTIVE
ACTIVITIES
DEPARTMENT
RESPONSIBLE
TIME
FRAME
A. Continue to work
to improve the
image of Dubuque
as a diverse
community both
internally and
externally
1. Support the work of the
Multicultural Family Center.
Leisure Services
Ongoing
B. Increase positive
interaction amongst
diverse populations
in housing and
employment, with a
particular focus on
reducing racial
tension.
1. Welcome and connect new
residents of all backgrounds
through the Distinctively
Dubuque program and the
Multicultural Family Center.
2. Support cross - cultural events
at the Multicultural Family
Leisure Services,
City Manager
Leisure Services
Ongoing
Ongoing
Center
3. Continue the Speakers'
Human Rights
Ongoing
Bureau
4. Continue the City's ICC
efforts, including training
initiatives
Human Rights
Personnel
Ongoing
g g
Dubuque Consolidated Plan 2011 -2015
Fair Housing Action Plan for City of Dubuque
Impediment No.3 — The Perception That Dubuque is not a Welcoming and
Inclusive Community for Outsiders and Particularly Minorities to Locate
49
OBJECTIVE
ACTIVITIES
DEPARTMENT
RESPONSIBLE
TIME
FRAME
A. Continue and
expand the
education and
outreach program
of the Human
Rights Commission
1. Distribute brochures and
market fair housing at City
Expo.
2. Continue media outreach
on fair housing issues.
3. Continue use and
distribution of Fair Housing
video and Guide.
Human Rights
Human Rights
Human Rights
Every
April
Every
April
Ongoing
B. Establish a fair
housing audit or
testing program
1. Human Rights Commission
to investigate whether to
recommend that City
Council establish a fair
housing testing program
and, if so, under what
circumstances.
Human Rights
2011
C. Take strong
enforcement action
in fair housing
cases where there
has been a finding
of probable cause.
1. Pursue current case
involving sexual harassment
of women with disabilities
that is pending in district
court.
Legal Dept.
2010
Dubuque Consolidated Plan 2011 -2015
Fair Housing Action Plan for City of Dubuque
Impediment No.4 — The Failure of Victims of Housing Discrimination to File
Complaints and the Absence of a Deterrent for Subtle Discrimination
50
OBJECTIVE
ACTIVITIES
DEPARTMENT
RESPONSIBLE
TIME
FRAME
A.
A Increase Incre home
minority ownership
1 . Encourage active outreach
and marketing to minority
community regarding the
range of available products
and the availability of
assistance.
Housing
Human Rights
Ongoing
B. Promote mixed
income
homeownership in
the most diverse
census tracts
1. Continue the Washington
Neighborhood Revitalization
efforts and home purchase
incentives.
Housing
Ongoing
Dubuque Consolidated Plan 2011 -2015
Fair Housing Action Plan for City of Dubuque
Impediment No.5 – The Small Number of Minority Home Owners in Dubuque
HOMELESS
Homeless Needs (91.205 (b) and 91.215 (c))
*Ple also refer to the Homeless Needs Table in the Needs.xls workbook
Homeless Needs -,.The
addition, tot t
jurisdiction must provide a concise summary of the nature
and extent of homeless in the
., a, "' s ` � ` urisdiction, (including r'ural, an d
mss .. ,.,� .,� .. _.., ._,._ , s_, .max � :�.� �*..�
chronic homelessness where applicable); addressing separately the need fo`facIlities
and ser for homeless persons and homeless families with children; bot
.;^. � ib,7 : 1. , �... v
sheltered and unsheltered; and ho Ble subpopulat ons or with Table
1A The su ary must includ the c haracerist cs a nee of low- income
:! � �. ti - . 3"+^ " n .: • • ,. yr . < >.. . ., ,�,., i . °...'. ". . + f .?-,: a t
individuals and chi dren,.(espec y.extremely. lo wd n come) who a e cuu rently, housed
• -: -4 xt + < f�� u- Z uc t++- ' "A ,
but a at Imminen risk of a er res Ins elters or becoom
e extet;r fo able; the plan
the ature an ent of racial and et
anal sis is'not • ed esti
3cS. ~ .
populatio
at_r sk group an' the ' met _odo ogy us
Homeless Population
The homeless present another special population of concern for the community and
for reporting. Data from both the HUD - mandated annual reporting to both state and
federal authorities as well as the "Point in Time" (PIT) report (a snapshot of
homelessness on a given day —in 2009 this day was January 28th) is referenced in this
report. Both of these reports were provided by Project Concer, a local non-profit agency
providing referral and other services to those with unmet needs in the community —
including the homeless. The data provided only reflects those who have sought services
from community groups and agencies, and cannot be taken as a full enumeration of the
homeless population. In addition, the annual reporting referenced here does not include
1
s)
ex
re
it
UI
should
a
0
If
so
a
atio
e
•ju
inc
essness
isdiction
e
is avai
a
b
rov
descrl
des
on
of
t
e
n
ates
0
0
t
e
erational
14 Alta Vista Research, Inc.
o "generate t
51
rig e;)
ust it clude descrl tionof.
Vim
group. t quantitative
at s,
definition, of the
:e estimates!
Dubuque Consolidated Plan 2011 -2015
the City's largest homeless shelter, the Dubuque Rescue Mission. Given their funding
status, the Rescue Mission, as well as the Hope House Shelter, are not required to
follow the HUD reporting requirements. The annual reporting requirements are
mandatory for those agencies and groups receiving government monies for providing
services to homeless. The agencies included in the annual reporting data are as
follows: Hillcrest Family Services, Maria House, Project Concern and Manesseh House.
Both the Rescue Mission and Hope House are, however included in the PIT report.
Again, that PIT report is merely a one day snapshot of homelessness.
For the calendar year 2008 -2009 the agencies listed above reported 455 unique
individuals (referred to in the data and reporting mechanisms as `clients') seeking
assistance. In total during this time period, 618 individuals sought services. Given the
difference between unique individuals seeking assistance and the total number of
clients, it appears that at most 156 individuals sought services on more than one
occasion. It may be that the difference is made up of a smaller number of individuals
who were in and out of these shelters on multiple occasions within the year. This does
not imply, however that the 455 individuals simply sought shelter for one night, but rather
they registered with the shelter for assistance, whether that translated to one night or
longer.
Table 8. Homeless Population in Dubuque Calendar Year 2008 -2009: Selected Characteristics*
(n =618)
Race Gender Age Length of Stay **
56% White 62% Female 34.6% <18 y/o 22% >1 week < 1 month
30% Black 36% Male 62.3% > =18 y/o 15% >3 months <1 year
7% Multi -race 2% No Response 3% Unknown 15% 1 -3 months
2% American Indian/ 34% <1 week
Alaskan Native 11% 1 year or more
2% Native Hawaiian/
Pacific Islander
2% No Response
*Due to rounding all categories do not equal 100%
* *Categories are not mutually exclusive, so category total does not equal 100%
Source: Project Concern
Importantly, children comprise 34% of the homeless population reported in the
annual data (211 of 618 clients). In addition, adults in families comprise 18% of the
homeless population in the annual data. All told, essentially half of all the homeless in
this annual report are either children in families or adults in families. One way to express
this is to say that of all the people seeking homeless services, half of them are
individuals in families. it must be re -noted and re- stressed here, however, that these
annual figures do not include the single largest homeless shelter in Dubuque, and that
this shelter is not a family shelter and houses adults only.
Additional items of note reveal themselves in the Project Concern data for calendar
year 2008 -2009. Of those seeking services in this period, 86% were listed as homeless.
Furthermore, 40% indicate a disability. Those reported with a disability are those
individuals who indicate they receive services for a disability. Additionally, 54% of those
seeking services were registered as unemployed. In all, 48% of individuals were listed
as first time homeless, with 31% as experiencing their second or third period of
homelessness. Thirty -one individuals were listed as chronic homeless (corresponding to
roughly 5% of total population seeking services). Chronic homelessness is a HUD term
for someone who is homeless for one year or longer or who has had four episodes of
52
Dubuque Consolidated Plan 2011 -2015
homelessness within the last two years. It should be noted here, however, that per HUD
definitions families are not classified as being homeless.
In general, females and African - American individuals are disproportionately
represented in the homeless population in Dubuque compared to their general presence
in the total population.
Examining the PIT data from January 28th, 2009, 96 individuals were homeless, with
66 adults and 30 children comprising that total number of clients. Again, this data
represents merely a one night survey of homelessness.
A picture of the City's homeless is incomplete without consideration of the largest
shelter in Dubuque, the Dubuque Rescue Mission. The Mission is open only to adult
male, and is a 31 bed facility also open for meals. The Rescue Mission compiles
statistics on what they call "bed nights." This statistic corresponds not to the number of
unique individuals who are provided shelter, but rather the total number of used beds
(this figure does not allow for a determination of how many people received a bed, just
how many beds were provided). The Mission has registered a high -level of activity in
2008 -9 and in the current year. In 2008 the Rescue Mission provided 8,671 bed nights
and 44,233 meals. While there are certainly times when beds are used at a higher
frequency (e.g., winter months), it is clear that the shelter sees a high rate of use
throughout the year. Given the size of the facility, in a given year the shelter could
provide a maximum of 11,315 bed nights. In all, 76.6% of these possible bed nights
were accounted for. And as stated, the use of the facility is not evenly distributed across
the year. So, the shelter clearly spends a good deal of its year at or very near its
capacity for beds. In terms of meals, across the year the Rescue Mission averaged 121
meals per day.
Looking at this year's data, the Rescue Mission has already provided 7,748 bed
nights (as of Nov. 4) and has served over 36,287 meals. Considering the date of the
data, the shelter was operating for 308 days. This provides a possible 9,548 bed nights
so far this year, and an 81 % rate of use of possible bed nights. Looking at these
averages across the year so far it is clear that the Rescue Mission is running ahead of its
previous year's bed night count. Furthermore, it has served 36,287 meals. Considering
the number of days in the year so far, this corresponds to a daily average of 118 meals,
essentially unchanged from the previous year. Again, all of these annual averages mask
the very real phenomena that the use of such shelters and services is not uniformly
distributed throughout the year. In addition, individual level data, if available, would
provide a strong contribution to the efforts to define and delimit the homeless population
in Dubuque. Regardless, it is clear from this data that the Dubuque Rescue Mission is
the central provider of shelter to the homeless male population and is also a mainstay in
the efforts to feed those who cannot otherwise feed themselves. Without their work the
strains on the community would be even greater.
Priority H me ee s:rNeeds
1: Using the resin s of the y onti,r uz m, of, G M ple ing I dentify th
jurisdiction h m,�eles d omeJ,ess pre a n p s sp ified ,-Aot4 .• 1A
•
t he Homelessand Special Needs Populations Chart: ; d e scn do of the
ta ds . do s ° � s °f p ri o rit y . . a allocation p iO �s•+ � >bbe b ed o
reliable dat meeting HUD standards and should refl the required consultation
53
Dubuque Consolidated Plan 2011 -2015
With omeless assistance providers; homeless personv and otother - .concerned
citizens regarding the needs of toritelmarQiim,mooficejiAro, viduals;
The jurisdiction must provide an analysis of how the needs of each category of
reside i prov tlae s o basi det91ng tlie, ei p iaty o h p riority
h Bless eel catego _se arate,b ' e f narrative:s ould be.d
irected.
addressing gaps in services and housing or the sheltered and u'ns 'eltered
chronic homeless.
2. A coiPr un ty sh d A hggh d t ch`roiikei eless ,where
the jurisdiction identifies sheltered a unsheltered o is omeless persons in
m
c t �cet't€xv�i= Ac. .
its Homeless Needs Table - Homeless Popations and Subpopulaions:
The Homeless and Special Needs Populations Chart (formerly HUD Table 1A) is
included in Appendix
The City of Dubuque will focus its CDBG entitlement funds towards improving the quality
of life for the homeless by establishing the following priority and objective.
Homeless Priority
Create and maintain emergency shelters, transitional housing and
permanent supportive housing and support services for persons and
families who are homeless or at risk for homelessness.
DH -1.7 Objectives: Build capacity of local agencies to support the creation of
emergency and transitional housing and homeless services, especially for
women and children.
The City of Dubuque will address any gaps in services and housing for the chronically
homeless by supporting the efforts of the Continuum of Care system. Homeless
prevention activities will be assisted with the Homelessness Prevention and Rapid Re-
Housing Program (HPRP) grant received by the City in 2009. The HPRP program
provides financial and other assistance to prevent individuals and families from
becoming homeless and helps those who are experiencing homelessness to be quickly
re- housed and stabilized. The funds target individuals and families who would be
homeless if not for this assistance.
Homeless Inventory, (91:210 ;(c))
t y .,.ii . :< - ..: ... .. .:: arid _,. d
The jurisdiction shall k' vide a concise summa of the ezisting`faci ities "and services
set �+�s:
(in a r eff invento that assist homeless neersons and families with _children
and `sub o ulations identified in Table 1.7C These include out each a'nd assessment
emerge cyshel ers and services trensi ona housing `permanent su portive
housin access to ousun , an ;•. actI' ties t'oreveg low- income
individuals and families with children extrem .
(espe e low. income) from
fro,
{f 'F. 4 >: � Fns
becoming homeless. The jurisdiction can use the bOtiorial CO 'ti i un of Care
Housing Activity Chart and Service Activity Chart to rnee_ isreq urement1
54
Dubuque
The attached the existing facilities
and services
HOUSING ACTIVITY CHART
Emergency Shelter
The Dubuque Rescue Mission has been in continuous operation since the
1930's. It currently has 31 beds for men only.
Hope House provides 12 beds for emergency housing for men age 18 and over.
55
Prevention
Outreach
(4)
Supportive Services
Provider Organizations
Mortgage Assistance
Rental Assistance
Utilities Assistance
Counseling /Advocacy
1
Legal Assistance
Street Outreach
Mobile Clinic
Law Enforcement
Case Management
1
Life Skills
I Alcohol & Drug Abuse
I Mental Heath Counseling
Healthcare
SaIV /AIH
Education
4uawAoldwg
Child Care
1 Transportation
Project Concern
X
X
X
X
X
[
Hillcrest Family Services
X
X
X
X
X
X
X
X
X
X
X
X
X
Maria House
X
X
X
X
x
X
X
X
X
X
X
X
Iowa Department of Human
Services
X
X
X
X
Dubuque Rescue Mission
?
X
X
X
Visiting Nurses Association
X
X
X
Dubuque County of Veteran's
Affairs
X
X
X
X
X
X
Iowa Workforce and
Development
X
X
Dubuque County General
Relief
X
X
X
X
City of Dubuque Housing
X
X
X
X
ECIA /County Housing
X
X
X
Dubuque
Police Department
X
X
Operation New View
X
X
X
X
X
X
YWCA Domestic Violence
Program
X
X
X
X
X
X
Substance Abuse Services
Center
X
X
Four Oaks
X
X
X
X
Teresa Shelter
X
X
X
X
Manasseh House
X
X
X
Iowa Legal Aid
X
X
Hope House
X
X
Crescent Community Health
Center
X
X
Dubuque
The attached the existing facilities
and services
HOUSING ACTIVITY CHART
Emergency Shelter
The Dubuque Rescue Mission has been in continuous operation since the
1930's. It currently has 31 beds for men only.
Hope House provides 12 beds for emergency housing for men age 18 and over.
55
Dubuque Consolidated Plan 2011 -2015
>Josiah House provides 12 beds in 4 units for families.
The Dubuque Y domestic violence shelter provides 18 beds for women or
women with children.(No men or male children over 12).
Hillcrest Family Services has a 20 -bed emergency youth shelter for youth for
youth ages 7 -17.
Teresa Shelter provides 30 beds and supportive services for homeless women
(with or without children).
Transitional housing
• 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 Family Services provides five transitional units for homeless families
with 22 beds.
• Hillcrest Family Services owns and operates two, five -bed adult homes as
transitional residential programs for adults diagnosed with a serious mental
illness. Programs are staffed 24 hours a day, 7 days a week.
Permanent supportive housing
• Davis Place currently consists of four single room(SRO) occupancy facilities
totaling 62rooms, constructed in 2000 and 2002 with City- sponsored IDED-
Local Housing Assistance Program grants and in 2004 and 2009 with IDED
HOME grant, providing supported housing to homeless and indigent males.
• Manasseh House provides 19 SRO units for low- and - moderate income
women.
• Salvia House is an SRO facility with 18 rooms for low and moderate income
women that is currently under construction, funded with an IDED HOME grant,
with completion scheduled for 2010.
Homeless Strategic Plan (91.215 (c))
1. Homelessness— Describe the jurisdiction's strategy for developing a system to
address homelessness and the priority needs of homeless persons and families
(including the subpopulations identified in the needs section). The jurisdiction's
strategy must consider the housing and supportive services needed in each stage
of the process which includes preventing homelessness, outreach /assessment,
emergency shelters and services, transitional housing, and helping homeless
persons (especially any persons that are chronically homeless) make the
transition to permanent housing and independent living. The jurisdiction must
also describe its strategy for helping extremely low- and low- income individuals
and families who are at imminent risk of becoming homeless.
2. Chronic homelessness— Describe the jurisdiction's strategy for eliminating chronic
homelessness by 2012. This should include the strategy for helping homeless
persons make the transition to permanent housing and independent living: This
strategy should, to the maximum extent feasible, be coordinated with the
strategy presented Exhibit 1 of the Continuum of Care (CoC) application and any
other strategy or plan to eliminate chronic homelessness. Also describe, in a
narrative, relationships and efforts to coordinate the Conplan, CoC, and any other
56
Dubuque Consolidated Plan 2011 -2015
strategy or plan to address chronic homelessness.
3. Homelessness Prevention— Describe the jurisdiction's strategy to help prevent
homelessness for individuals and families with children who are at imminent risk
pf becoming homeless:
4. Institutional Structure — Briefly describe the institutional structure, including
'private industry, non- profit organizations, and public institutions, through which
the jurisdiction will carry out its homelessness strategy:
5. Discharge Coordination Policy —Every jurisdiction receiving McKinney -Vento
Homeless Assistance Act Emergency Shelter Grant (ESG), Supportive Housing,
Shelter Plus Care, or Section 8 SRO Program funds must develop and implement
a Discharge Coordination Policy, to the maximum extent practicable. Such a
policy should include "policies and protocols for the discharge of persons from
publicly funded institutions or systems of care (such as health care facilities,
foster care or other youth facilities, or correction programs and institutions) in
order to prevent such discharge from immediately resulting in homelessness for
such persons." The jurisdiction should describe its planned activities to
implement a cohesive, community -wide Discharge Coordination Policy, and how
the community will move toward such a policy.
Homelessness
Homelessness in the City of Dubuque is monitored under the Continuum of Care model
by the local Homeless Advisory Board. The CoC carries out its homelessness strategy
through a combination of public and private sector organizations, including state and
local government agencies, the City's housing department, schools, law enforcement
and correctional agencies, non - profit and faith -based organizations, local businesses,
medical and social service providers, and advocacy groups. Project Concern provides
the coordination for a single point entry for homeless in our community and employs a
homeless coordinator to assist homeless access to services including shelter, food,
medical, employment, and education opportunities.
A HUD Continuum of Care grant pays for a homeless coordinator on the staff of Project
Concern. A working network was established of homeless shelters and service
providers, which respond to the needs of the City's homeless population. The Continuum
of Care Strategy is summarized below.
Dubuque's Continuum of Care funds four programs: Legal Advocate and Follow Up
Staff for Maria House, Homeless Hotline /Homeless Coordinator through Project
Concern, Operation Empower with Manasseh House and the Hopes Project through
Hillcrest Family Services.
1) Proiect Concern provides a 24 Hour Homeless Hotline and Homeless Coordinator
thru the Continuum of Care grant. Staff is available 24 hours a day to assist
homeless individuals and families access services. Clients are referred to local
shelters, if the shelters are full, clients are then assisted with an overnight stay
at a hotel. The next day clients meet with the Homeless Coordinator to assess
their needs, provide appropriate referrals, and provide financial assistance if
necessary. The Homeless Coordinator is the single point of entry for homeless
in our community. The Homeless Coordinator assists homeless in connecting
with services including shelter, food, medical, employment, education
57
Dubuque Consolidated Plan 2011 -2015
opportunities. The Homeless Coordinator assists clients being evicted to
obtain new housing and assists clients from becoming homeless by preventing
evictions. The Homeless Coordinator coordinates the Shelter Plus Care
program for the City of Dubuque and Project Concern. The Shelter Plus care
Program provides rental subsidies and supportive services to homeless individual
with disabilities and their families. Participants live in housing leased from private
landlords and pay 30% of their adjusted annual gross income for rent and maintain
consistent and ongoing supportive services.
2) Manasseh House /Operation Empower provides supportive services to low- to
medium - income women in single room occupancy (SRO) housing. The program
seeks to empower women through housing, education, and employment and offers a
variety of services to enable them to succeed.
3) Maria House /Opening Doors provides more than a transitional housing initiative.
Women are encouraged to make choices that are appropriate for them, to develop
personal responsibility, to live independently in permanent housing and to achieve
their full potential. They are expected to stay at least six months, but no more than
two years. During this time, staff works closely with the women to set developmental
goals and create strategies to achieve them. Existing community resources are
utilized for job training, education,
employment, individual and family counseling plus access to safe, affordable,
permanent housing. In addition, staff at Maria House offers life- skills training
and many supportive services on -site. These services include: budgeting, parenting
skills, women's health issues, social skills, communication skills, anger management,
legal services, computer skills, housing advocacy, and tutoring.
About 75% of the women who live at Maria House have been evicted from their
home, 15% come from institutions (i.e. jail, treatment centers, hospitals) and 10%
from emergency shelters.
4) Hopes Proiect/Hillcrest Family Services provides transitional housing to homeless
families, including families containing males over the age of 12. This is the only
project in eastern Iowa that includes males.Family apartments are provided in a safe
and secure location, with supportive services and 24 hour available supervision. The
building has five apartments.
10% of the persons served come from the street or other locations not meant for
human habituation, 30% come from emergency shelters, and 60% are persons are in
transitional housing who come directly from the street, emergency shelters or safe
havens.
The CoC Homeless Advisory Board meets on a quarterly basis to access immediate
problems and provide continuity for those serving the homeless population. The
Continuum of Care facilitates community wide planning, prioritization and program
monitoring. The Continuum, through the work of the HAB conducts point -in -time studies
showing a dramatic seasonal fluctuation in homelessness. Dubuque Community
Schools is now providing homelessness information to the HAB.
The coordination of services for the homeless was established thru the 24 -hour
Homeless Hotline designed and implemented by the CoC HAB in conjunction with
58
Dubuque Consolidated Plan 2011 -2015
Project Concern. The system is used by Project Concern, Maria House, Operation: New
View, Hillcrest Family Services, Catholic Charities, City of Dubuque Housing and Police
Departments, Lantern Center, Rescue Mission and others.
FUNDAMENTAL COMPONENTS IN C of C SYSTEM
Prevention
The Workforce Development Center offers an array of counseling, testing, training, and
referral programs for the unemployed. Hillcrest Mental Health and Counseling Centers
provide mental health counseling services to individuals, families and children, with
medication management, different kinds of therapy, peer support, crisis support and
follow -up services for those discharged from mental health institutions.
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 and Community
Development Department provides HUD Section 8 rent - assisted units. Scenic Valley
Agency on Aging provides numerous services to senior citizens. The Substance Abuse
Services Center (SASC) 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. Catholic Charities, Hillcrest
Family Services and Lutheran Social Services offer case management and counseling
services.
CofC /Homeless Advisory Board (HAB) members regularly meet monthly and monitor the
CofC- funded single - point -of -entry system. This includes communication of on -going
agency issues and coordination of service delivery. The Board continues 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 manages the
the Homeless Management Information System (HMIS).
The City of Dubuque received $502,294 in Homeless Prevention and Rapid Re- Housing
Program (HPRP) funds from the America Recovery and Reinvestment Act of 2009. The
HPRP program provides financial and other assistance to prevent individuals and
families from becoming homeless and helps those who are experiencing homelessness
to be quickly re- housed and stabilized. The funds target individuals and families who
would be homeless if not for this assistance.
Institutional Structure - How homeless access services:
With the single - point -of -entry (SPE) system, Project Concern employs 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.
59
Dubuque Consolidated Plan 2011 -2015
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
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.
How Homeless Access Services:
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.
The goal is to ensure that no client falls "between the cracks" in the system.
Outreach
Hillcrest Family Services 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.
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 Center(SASC) and
the Dubuque County CPC Coordinator. The City of Dubuque Keyline Transit System
provides subsidized transportation services through metro buses and minivan service.
Project Concern's Childcare 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 (NICC) 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.
60
Dubuque Consolidated Plan 2011 -2015
Supportive Services
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
Hillcrest Family Services provides psychiatric outpatient services for mentally ill persons.
Active local chapters of Alcoholics Anonymous and Narcotics Anonymous assist their
client populations. The Crescent Community Health Center was opened in 2005 and
provides health and dental services for indigent persons.
• Substance Abuse Services Center: SASC receives annual federal funding to
provide outreach and counseling services to substance abusers.
• The Crescent Community Health Center (CCHC) achieved Federally Qualified
Health Center (FQHC) status in 2007. The primary populations it serves are individuals
and their dependents on Medicaid and Medicare, as well as those who are uninsured
and underinsured. An Increased Demand for Service (IDS) grant for two years allowed
the hiring of an additional dentist and dental hygienist, along with increased payments
for Medicaid and uninsured patients seen. Through a 2008 Congressionally directed
funding allocation, along with a National Association Community Health Center Grant
and a private donation, CCHC expanded its facilities with a meeting room, administrative
offices, an additional dental suite and two additional medical exam rooms. Federal 2009
ARRA money will provide for remodeling of the lower level of Crescent for storage and a
community training and education room to provide educational opportunities for staff
and clients, with additional preventative and wellness services for patients and citizens
of the Washington Neighborhood..
• 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
• PATH Program: Hillcrest Family Services PATH (Projects to Assist in Transition
from Homelessness) Program assists persons with mental illness and /or substance
abuse disorder and are homeless or at imminent risk of becoming homeless. Services
available include: outreach; assistance in obtaining income support services, housing
services- including assistance in obtaining shelter or apartment searching, security or
utility deposit assistance (as funds are available), applying for Sect. 8 housing program;
help with prescription medication costs (as funds are available); assistance in obtaining
basic needs; referrals for other community resources, including mental health or drug
and alcohol treatment and case management.
• The Shelter Plus are Program offered by Project Concern provides rental
subsidies and supportive services to homeless individual with disabilities and their
families. Participants live in housing leased from private landlords and pay 30% of their
adjusted annual gross income for rent and maintain consistent and ongoing supportive
services.
61
Dubuque Consolidated Plan 2011 -2015
The City of Dubuque assisted each of the Davis Place SRO buildings, Manasseh House
and Salvia House with "urban revitalization district" designation, providing each property
a 10 -year property tax abatement.
Maria House received annual Homeless Shelter Operating Grant (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 Hillcrest Transitional -SHP Facility received a 2003 HSOG grant for shelter
operations.
Present Strategy for Ending Chronic Homelessness by 2012
Chronic homelessness is not as readily apparent in our community as in larger urban
areas. The few chronically homeless population in Dubuque is 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.
The most difficult segment of the homeless population to track is the individuals and
families that double up. We are unable to count these persons 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 families that are doubled up whose children are enrolled.
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. The strategy must assess 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, permanent "supportive" housing must be offered.
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
persons not only need to learn or relearn life skills but also vocational skills to become a
productive citizens. Once a foundation has been established and implemented, more
thorough assessment and follow up programs must be established.
Discharge Coordination Policy
In establishing discharge policies to protect the homeless and those vulnerable to the
risk of homelessness, the Homeless Advisory Board applies the policies adopted by the
Iowa Council on Homelessness in March 2005 and implemented by the State of Iowa.
The Iowa's Council on Homelessness was created by executive order in 2003 to
evaluate policies, programs, statues and regulations to better coordinate efforts and
resources to address and prevent homelessness.
Iowa law requires that a case permanency plan for children in foster care include a
written transition plan for services for youth, 16 years and older and the establishment of
local transition committees to address the transition needs of youth at the time they
62
Dubuque Consolidated Plan 2011 -2015
leave foster care. In 2008, the Community Foundation of Greater Dubuque was awarded
a Shared Youth Vision grant with the goal of improving outcomes among Dubuque youth
(14 -24) who are currently involved in or who have "aged out" of foster care. Since
receiving the grant, Dubuque has established a Shared Youth Committee which includes
over 30 local service providers. The Committee meets quarterly to share information and
develop resources to improve outcomes for youth aging out of care. The Committee
focuses on improving outcomes for youth in the areas of education, employment,
financial literacy, housing, mentoring, community connections, and research and data
collection.
The Iowa Administrative Rules define the protocol for those being released from health
care treatment facilities. Discharge planning begins at admission and provides for
ongoing patient needs post- treatment, including housing, with the goal of insuring that
the discharged patient is provided adequate housing..
Emergency Shelter Grants (ESG)
(States only) Describe the process for awarding grants to State recipients, and a
description of how the allocation will be made available to units of local government.
COMMUNITY DEVELOPMENT
..,.y ve
Community Delopment (51:215
*Please also refer to the Community Development Table in the Needs.xls workbook
1. Identify the.j r sdic io priority n housing nit
• ,commuy deveiopment needs,,
eligible for assistance by, CDBG eligibility category specifle R he Commun ty
Development Needs Table ( formerly Table 2B), i.e.; public facilities, public
improvements, public services and econori
2. Describe the basis for as signing the priority given t� each category of priority
needs.
3. Identify any obstacles to meeting underserved needs.
� .,}, . �.: y .r )i$+�Ri�" !y "aa31 �Ati '= '�. ".. , �YY SYa�...m•., ,i..t'Y „�'e�' .� � wi }{.'{
4. Identi specific' long-terr>�. and" short =term..communievelo�ment objective
(i ncluding economic developm 4,':45.,x4 nt a ivities�that cre �obs), }in
accordan ith the stat als d i s ection. 24 C FR 91. and the
p ob ec a o a : C program o pro ecen t, sing a
living env ronment -an expa econo oppor uniti p for l ow - an
moderate income persons.
NOTE' Eac be"cifjje o bjec developed to add r s prior ed; ust be iden by. nu�,rrberr
a n d , contal n p ro� se d a ccol n pljshme n tse , tnetjme peri�o e , o ,=,,,.- , th ree,_or mor years } anr+ • annual p� ra ear u e is goals the jurisd'ct on lio es to achieve in quarititattive terms; or .1n other
measurabb e terms as ._entified an • defined b t. ,e ur,sd ct on.
The Community Development Needs Table (formerly Table 2B) is attached in the
Appendix.
63
Dubuque Consolidated Plan 2011 -2015
The City has identified the following non - housing community and economic development
priorities and objectives:
NEIGHBORHOOD AND COMMUNITY PRIORITIES
Provide services to families for optimum health, safety, social and human needs.
SL -1.2 Objective: Partner with local agencies to facilitate affordable and quality
childcare and early education opportunities.
SL -1.3 Objective: Provide services to improve the education, health, and human
service needs of children and families of all ages, including special needs
population.
SL -1.4 Objective: Provide programs for increased opportunities for healthy youth
interaction, educational advancement and /or recreation.
Preserve and promote the character and assets of neighborhoods in income -
eligible areas.
SL -1.5 Objective: Provide technical assistance to local organizations to guide
neighborhood development, revitalization and redevelopment.
SL -1.6 Objective: Provide resources for organized neighborhoods in low /mod
income areas to encourage self- initiated revitalization efforts.
DH -3.2 Objective: Provide inspection and enforcement of zoning and land use
regulations to provide support for neighborhood revitalization efforts.
Improve the infrastructure and physical environment in income eligible areas.
SL -3.1 Objective: Improve and replace sidewalks, and public infrastructure in
income eligible areas.
SL -3.2 Objective: Provide planning for community needs and administration of
programs to insure maximum public benefit and community enhancements.
ECONOMIC DEVELOPMENT PRIORITIES
Increase economic opportunities through business retention and /or expansion.
EO -3.1 Objective: Support local economic development efforts to create or
retain jobs that pay benefits and a livable wage to their employees.
Encourage redevelopment of existing commercial and industrial buildings.
EO -3.2 Objective: Correct commercial /industrial building code violations and
rehabilitate buildings in older neighborhoods and downtown.
Encourage workforce development to ensure equity in employment and economic
opportunities.
E01.1 Objective: Support transportation programs to maintain access to
education, employment, shopping, and health care for low- income persons.
E01.2 Objective: Promote workforce development through employment training
and programs.
64
Dubuque Consolidated Plan 2011 -2015
Many financial programs funded through multiple sources have been established to
assist in our community growth. The City has established two enterprise zones that
encompass the downtown area within whic property is eligible for state assistance for
redevelopment and construction projects. The Urban Revitalization program offers a
property tax exemption for new improvements made to qualified residential and
commercial properties. The Downtown Rehabilitation Loan program provides financial
incentives needed to eliminate conditions of blight, encourage revitalization efforts, and
to retain or create employment opportunities and /or new housing units within the district.
Historic Preservation Revolving Loan funds provide low interest loans for exterior work
that meets the Secretary of the Interior's Standards and Guidelines for Rehabilitation for
properties located in local Historic Preservation Districts and Conservation Districts.
Historic Preservation forgivable loans are available on a competitive basis to income -
qualifying owner - occupants and to qualified non - profit organizations in any local historic
district or for any City- designated Landmark for specific rehabilitation projects that
preserve the original building materials and character - defining features of the home.
Historic Millwork District
Dubuque's Historic Millwork District is a major community revitalization effort to
create an urban mixed -use neighborhood in a 17 -block area adjacent to downtown
Dubuque. The area has 28 historic buildings that were constructed prior to 1935 and
were once part of two major mill working businesses that made Dubuque the largest
mill working operation in the United States during the 1920's. Most of the mill
working industry has left the area leaving approximately one million square feet of
underutilized space. The revitalization of the Historic Millwork District is being
designed to address the issues of sustainability, workforce and economic
development, historic preservation, and arts and culture. The revitalization of this
District will also help the City address the critical shortage of rental residential units.
Antipoverty Strategy (91.215 (h))
1. Describe the jurisdiction's goals, programs, and policies for reducing the number
of poverty level families (as defined by the Office of Management and Budget and
revised annually). In consultation with other appropriate public and private
agencies, (i.e. TANF agency) state how the jurisdiction's goals, programs, and
policies for producing and preserving affordable housing set forth in the housing
component of the consolidated plan will be coordinated with other programs and
services for which the jurisdiction is responsible.
2. Identify the extent to which this strategy will reduce (or assist in reducing) the
number of poverty level families, taking into consideration factors over which the
jurisdiction has control.
5. 3 -5 Year Strategic Plan Antipoverty Strategy response:
Low - income Population 75
The ACS provides estimates on poverty and Dubuque's population. The ACS
estimates 9.6% ( +/- 2.2) of all families had income in the past 12 months below the
15 Alta Vista Research, Inc.
65
Dubuque Consolidated Plan 2011 -2015
poverty line. The U.S. Census Bureau recommends caution when comparing poverty
figures in the ACS with the decennial censu.
Of all families with related children under 5 years of age only, an estimated 23.7%
( +/- 11.2) are below the poverty line, while the percentage of impoverished families was
estimated to be even greater among those families composed of non - married mothers
with related children under 5 years of age only (60% +/- 6.5 for this subgroup). The
picture is only slightly better for those non - married mothers with related children less
than 18 years of age as 45.1% ( +/- 12.3) were estimated to be below the poverty line. In
composite, 39.6% ( +/- 9.6) of female householders (no husband present) families were
estimated to be below the poverty line.
Beyond the consideration of poverty and families, the ACS also provides data on
poverty among people. Of those less than 18 years of age, the ACS estimates 17.2%
( +/- 4.9) are below the poverty line. For all people an estimated 11.9% (+1-1.7) are
below the poverty line, with the subgroups of 18 -64 years of•age and 65 years of age
and older, estimated to have lower rates of poverty (10.3 %, +/- 1.2 and 8.8 %, +/- 1.8,
respectively).
Additional and more detailed information on poverty and census tract and block level
data cannot currently be directly taken from the ACS via the public microdata system.
However, additional localized poverty estimates have been made as part of a recent
Keyline Transportation study provided for the City of Dubuque by LSC Transportation
Consultants, Inc. Those estimates for selected census tracts (those commonly identified
as having distinct populations in need or worse than average conditions) are provided
below. Tract 8.01 was added in the table below given its relatively high estimate of
poverty (9.4 %). In addition to these estimates, data from FFiEC related to 2009
estimated MFI of the same tracts is provided in the same table. The LSC transportation
study also estimated minority population concentrations and those estimates are
referenced in sections below.
Table 15. Estimated Poverty Status and MFI in Selected Census Tracts
Census Tract Estimated % in Poverty* Tract MFI**
1 23.9% $33,300 53.3%
3 4.3% $55,313 88.5%
4 11.2 $53,869 86.2%
5 15.6% $45,025 72%
6 10.3% $63,531 101.7%
7.01 14% $58,519 93.6%
7.02 11.5% $53,881 86.2%
8.01 9.4% $67,931 108.7%
Sources: *LSC, * *FFIEC
Tract MFI
Dubuque MSA
MP ($62,500)**
Looking beyond the level of census tract, table 16 below provides a basic
comparison of estimated families in poverty by tenure (owner v. renter). To gain a richer
understanding of poverty in Dubuque as estimated in the ACS, it may be beneficial to
examine poverty status by type of family and tenure. This data is provided in table 17.
Table 16. ACS Estimated Poverty Status for Families by Tenure
Total (MoE)
Total Families 14,534 ( +/- 507)
66.
Dubuque Consolidated Plan 2011 -2015
Income in Past 12 Months
Below Poverty Line
Owner - occupied
Renter - occupied
Table 17. ACS Estimated Poverty Status by
Total Households:
Households with income in the past
12 months below poverty level:
Married - couple family:
Owner occupied
Renter occupied
Other families:
Male householder, no wife present:
Owner occupied
Renter occupied
Female householder, no husband present.
Owner occupied
Renter occupied
Households with income in the past
12 months at or above poverty level:
Married- couple family:
Owner occupied
Renter occupied
Other families:
Male householder, no wife present:
Owner occupied
Renter occupied
Female householder, no husband present
occupied
Renter occupied
1,396 ( +/- 328)
320 ( +/- 146)
1,076 ( +/- 299)
Household TM? and Tenure
•
t :
Total (MoE)
14,534 (+1-507)
1,396 ( +1 -328)
215 (+1-128)
93 (+1-81)
122 (+1-98)
1,181 (+1-317)
198 (+1-129)
68 (+1-51)
130 (+1-111)
983 (+1-283)
159 (+1-117)
824 (+1-249)
Source: U.S. Census Bureau
13,138 (+1-543)
11,099 (+1-530)
10,081 (+1-506)
1,018 (+1-286)
2,039 (+1-386)
539 ( +1- -187)
330 (+1-135)
209 (+1-133)
1,500 (+1-324)
950 (+1-240)
550 ( +1 -213)
Source: U.S. Census Bureau
A few observations from the preceding two tables are that renter families are more
than 2 times more likely to be reported with income below the poverty line, roughly 75%
of all households determined to be below poverty line are renter occupied, and female
householders (no husband present) are significantly more likely to have household
income below the poverty line.
Anti - Poverty Strategy
Local partnerships are continually being formed to provide services for job skill
development, job training, education and other programs that may help families gain
self - sufficiency and alleviate poverty. The City works with numerous agencies and
organizations to promote and attain these goals.
City Staff are 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.
67
Dubuque Consolidated Plan 2011 -2015
Project HOPE (Helping Our People Excel) is a city initiative designed to serve as a
catalyst that brings together service providers, employers and individuals seeking
employment. Project HOPE encourages and facilitates collaboration among existing
community resources and supports organizations that are expanding resources to share
the mission of Project HOPE. The program encourages and facilitates collaboration,
communication and advocacy to ensure equity in employment and economic
opportunities.
Dubuque Works is a workforce initiative comprised of seven community partners, who
collaborate to address the workforce challenges within our community. Partners analyze
and revitalize existing strategies, identify and address gaps, and work together to
seamlessly provide the strongest workforce solutions for companies that choose to make
the Greater Dubuque area their home.
The Housing Education and Rehabilitation Training Partnership (HEART) program 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 program teaches self - reliance and instills a strong
sense of accomplishment, and provides support for a segment of our population that
would otherwise face chronic unemployment.
The City and its partners have applied for a Department of Labor grant in order to
expand HEART to become a YouthBuild program. This expansion would allow us to
serve a larger number of at -risk youth and greatly expand the number of services offered
to participants. The growth would also allow the program to revitalize more of
Dubuque's historic homes and fill a gap in affordable home ownership needs for families.
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 and encourages an increase in savings through an escrow savings
program.
Every Child 1 Every Promise was founded in 2004 as an umbrella organization to
connect people to resources and assist service providers in delivering the Five Promises
(caring adults, safe places, healthy start, effective education and opportunities to serve)
to the children of our community. The organization facilitates collaboration among youth
serving agencies to eliminate duplication of services, promotes more efficient use of
limited funds and builds a more effective delivery system. In 2007 and 2008, Dubuque
was named one of the "100 Best Communities for Young People ".
The Dubuque County Youth Master Plan developed in 2006 as a result of the
collaboration of numerous organizations to define and measure the service gaps for the
youth of our community. A Dubuque Community Growth Chart was created in 2008 to
make available a community network of supports, opportunities and activities focused on
specific, well- defined and jointly held goals and outcomes. Schools, non - profit agencies,
parents, public and private sector leaders, healthcare providers and faith -based groups
are engaged in the comprehensive effort.
68
Dubuque Consolidated Plan 2011 -2015
Dubuque Mentoring Partnership was established to promote a one -to -one relationship
between a youth and an adult that occurs over a prolonged period of time. The mentor
provides young people with support, counsel, friendship, reinforcement and constructive
example. The partnership is comprised of St. Mark Community Center, Dubuque
Community Schools, Holy Family Schools, Helping Services of Northeast Iowa,
Dubuque Community Y, Visiting Nurse Association, Project Concern, Big Brothers Big
Sisters, AmeriCorps, Every Child Every Promise, RSVP, and the Court Appointed
Special Advocate Program.
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. Also, our homeowner rehab programs enable
lower- income families to maintain and improve their homes, reducing energy costs and
protecting their investment.
The City has recently built a new Multicultural Family Center to empower diverse
neighbors, families and individuals by promoting personal growth and participation. The
City invested over a million dollars, including CDBG funding, in the rehabilitation of a
building to expand the Center. The Center's programs include cross - cultural educational
and family activities. The City has hired a full -time director to staff the Center.
The City continues to increasing economic opportunities through business retention and
/or expansion and addresses the gap from welfare to work. The CDBG financial
assistance program to businesses supports economic development efforts to create jobs
that pay a livable wage.
Low Income Housing Tax Credit (LIHTC) Coordination (91.315
(k))
1. (States only) Describe the strategy to coordinate the Low - income Housing Tax
Credit (LIHTC) with the development of housing that is affordable to low- and
moderate - income families.
3 -5 Year Strategic Plan LIHTC Coordination response:
Not applicable
E
EC
Specific Special Needs Objectives (91.215)
1. Describe the priorities and specific objectives the jurisdiction hopes to achieve
over a specified time period.
2. Describe how Federal, State, and local public and private sector resources that
are reasonably expected to be available will be used to address identified needs
for the period covered by the strategic plan.
69
Dubuque Consolidated Plan 2011 -2015
The City of Dubuque will focus its CDBG entitlement funds toward improving the quality
of life for extremely low, very low and low income households by establishing the
following priorities and objectives.
70
•
Dubuque Consolidated Plan 2011 -2015
Increase the housing options and related services for special needs
populations.
DH -1.5 Objectives: Provide for implementation of fair housing for all
populations.
SL -1.1 Obiectives: Increase opportunities for the elderly, disabled and
persons with special needs to maintain an independent lifestyle
DH -1.6 Obiectives: Modify existing and /or create accessible housing units
Anals s ncllud ng HOPUVA) (91:205(d) and 91.210 (d))
y (
*Please also refer to the Non - homeless Special Needs Tabl in the Needs.xls workbook
m
1. Estimate, to the extent practicable; the' number of persons in v arious
suppopulations�that.are not ho mele's's but ay ng or suppo ive
serv includ the elderly, frail elderly, persons with di (mental;
physical, deVelopmeentaI, persons with HIV /AIDS and their fa persons with
alco or other drug addiction; victims of domestic violence; and any oth
.. ,,.= ":.'.: ... . ... -. s , :.. s ,..:, .:, `i.t" ?r... . .
categories the jurisdictio may specify and desc ibe.their supportive housing
needs: The jurisdict can uset eNon- Homeless Speci Needs Tab (formerly
Table 1B) of their Consolidated Pian o help identify these needs:
ti ' � ^• t s, .cwa vr•- �
* Note: HOPWA `recipients must iden the sze a nd' characteristics of the HI
population with V /AIDs .
and their families that will be served in the ' metr " "opolitan area.
2. Identify the priority housing and supportive service needs of persons who are not
homeless but may or Mai.* rtOdire supportive housing, i.e.; elderly :(trail
elderly, persons with disabilities (mental, physical, developmental,' persons with
HIV /AIDS and their families), person swith alcohol or other•drug addiction by
using the Non= homeless Special Needs-Table.
3. Describe the basis for assigning the priority given to each category of priority
needs.
4. Identify any obstacles to meeting underserved needs.
5. To the extent information is available' 'describe the facilities and ed S
assist persons ^ who are hot liomeles s but AOUire supportive housing; and
programs for ensu' i�ng that pe so s eturning from mental and physical health
institutions receive appropriate suppo ive housing.
}'.1 i«v. V: Yt .. y .y ?ti ,a rw .'� =1- d.t .M :.. w a ' .. .K
6. If the jufisdiction laps to use 0M .. 6r,_ot er t ant based rental assistance to
.
� ' '. #�."."n�- a4;'nSv"Y.� APR =t tek,. xara :,gr,�.
assis - ,r ,,,tj•t
t one or more of these subpopulations it must , justify the need for such
r.e�. . , .. ..., ..:
assistance in the plan.
The Non - Homeless Special Needs Table (formerly Table 1B) is included in the
Appendix.
Dubuque Consolidated Plan 2011 -2015
Special Needs Population 16
Of the population in so- called special categories (e.g., students, military, etc.), the
ACS provides estimates for the disabled population, students, and the military. The ACS
estimates 56 individuals ( +/- 55), or roughly .1% of the population are military, while
roughly 4,000 individuals are estimated to be enrolled in college as undergraduates, 600
in graduate school, and roughly 10,000 other students are enrolled from preschool
through high school.
Beyond the military and students, another special category of population are those
with disabilities. From the ACS, 16.5% ( +/- 1.6) of the population 5 years or older are
estimated to have one or more disabilities, 10.1% ( +/- 3.1) of those 5 to 15 years of age,
and 12.9% ( +/- 1.8) of those 16 to 64 years of age are estimated to have one or more
disabilities. These disabilities include sensory, physical, mental, and employment
disability. Disability is more concentrated in the population 65 years of age or older, with
37.5% of these persons estimated to have one or more disabilities ( +/- 3.9).
Employment status is often a concern within the disabled population and those agencies
tasked with providing for the special needs within a community. Of those 16 -64 years of
age, the ACS estimates 48.1 % of those with one or more disabilities are employed ( +/-
5.6), whereas an estimated 82.3% ( +/- 2.0) of population without disability are employed.
The following is a detailed table on disability gathered from 2005 -7 ACS data.
Table 6. 2005 -7 ACS Estimates Disabled
Age
Population 5 years and over
Without any disability
With one type of disability
With two or more types of disabilities
Population 5 to 15 years
With any disability
Population 16 to 64 years
144th any disability
With an employment disability
Population 65 years and over
With any disability
With a sensory disability
With a physical disability
With a mental disability
With a self -care disability
With a go- outside -home disability
16 Alta Vista Research, Inc.
Population bvAge: City of Dubuque
Total (MoE)
52,144 (+1-832)
83.5% ( +1-1.6)
7.8% (+1-0.9)
8.7% (+1-1.2)
72
7,197 ( +/ -422)
10.1% ( +1 -3.1)
36,522 (+1-714)
12.9% (+1-1.8)
7.1% ( +/ -1.3)
8,425 ( +/ -363)
37.5% ( +/ -3.9)
16.1% (+1-2.8)
24.5% (+1-3.8)
10.0% ( +1-3.0)
6.9% (+1-1.9)
13.4% ( +/ -2.5)
Source: U.S. Census Bureau
From the data above it is clear that there is a not - insignificant number of disabled
persons, and the number of disabled amongst the elderly is more than twice that of other
groups.
The following table provides insight into the connection between poverty status and
disability in Dubuque.
Dubuque Consolidated Plan 2011 -2015
Table 7. 2005 -7 ACS Poverty Status and Disability
Population 5 years and over for
whom poverty status is determined
With any disability
Below poverty level
With a sensory disability
Below poverty level
With a physical disability
Below poverty level
With a mental disability
Below poverty level
With a self -care disability
Below poverty level
No disability
Below poverty level
Population 16 to 64 years for
whom poverty status is determined
With an employment disability
Below poverty level
Total (MoE)
50,483 ( +/- 820)
8,432 (+1-829)
20.1% ( +/ -4.2)
2,495 ( +/-399)
12.7% ( +/ -5.9)
4,438 ( +/ -639)
20.9% ( +1 -5.0)
3,695 ( +/ -579)
27.9% (+1-7.2)
955 ( +/ -180)
8.4% ( +/ -6.3)
42,051 ( +1- 1,085)
9.3% (+1-1.5)
34,969 ( +/- 714)
2,543 (+1-469)
27.0% (+1-7.5)
Source: U.S. Census Bureau
One general note of interest is the higher than average rates of poverty for those with
a disability. Individuals in Dubuque with a disability are roughly twice as likely to be in
poverty as those without a disability. Likewise, according to the ACS data, a person with
a disability in Dubuque is roughly twice as likely to be unemployed than an individual
without a disability.
Housing for Persons with Disabilities /Special Needs
An identified need is provision of additional housing opportunities to persons with
disabilities or special needs. The strategy is to promote and form partnerships
with area non - profit providers to seek and obtain funds to provide this housing.
The City's support of the Step by Step project is an example of this strategy.
The Step by Step project, completed in 2009, provided for the renovation of an
historic apartment building as a residence for persons with disabilities. The $1.6
million financial package included HOME, RRP Program fund, an Enterprise Zone tax credit
award, funding from the Iowa Finance Authority and the Des Moines Federal Home
Loan Bank, and federal and State, historic rehabilitation tax credits. Occupants are
currently being recruited. The City will continue to pursue funding opportunities to
assist persons with disabilities and /or special needs.
FACILITY
DESCRIPTION
Alverno Apartments
3525 Windsor Avenue
563 - 582 -2364
Section 8 housing for elderly and disabled, subsidized by HUD. 100
residential units (10 accessible)
Applewood Apartments
3125 -3175 Pennsylania Avenue
563- 588 -3693
93 Apartments for seniors (all but 7 are income eligible)
Area Residential Care (ARC)
1170 Roosevelt Street
563 - 556 -7560
10 community living homes,2 Home and Community Based Services
homes and Kennedy Point apartments and supervised apartments
Dubuque Retirement Community
Matthew John Drive
185 assisted living units
Bethany Home
1005 Lincoln Avenue
563 - 556 -5233
Retirement center featuring apartments, room rental and nursing
facility providing 60 apartments, and 54 health care beds.
Cathedral Gardens
469 Emmett
563- 582 -6663
18 Accessible apartments
Dubuque County Julien Care Facility
3066 Seippel Road
563 - 583 -1791
Provides institutional residential care with 81 beds
Dubuque Nursing and Rehab Center
2935 Kaufmann
563 - 556 -0673
Provides health and convalescent care needs for the elderly: 108 ICF
or skilled level beds
Ecumenical Housing Inc/St Mary's Home
2671 Owen Court
563- 556 -5125
Ecumenical Tower, 6`" & Locust- low income housing for elderly,
89 units rent - assisted (4 units accessible)
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
2000 Pasadena Drive
563- 557 -1076
Extended nursing care facility with 102 beds
Henry Stout Senior Apartments
125 West e Street
563 -557 -2079
32 apartments for elderly
Heritage Manor
4885 Asbury Road
563- 583 -6447
80 Elderly nursing care units; 17 apartments for independent living
Hillcrest Family Services
2005 Asbury Road
563- 583 -7357
Provides residential support services 63 beds for adolescent
residential treatment, and 10 beds for residential treatment of
mentally ill adults and 23 emergency youth shelter beds.
Hills and Dales Child Development Center
1011 Davis Street
563 - 556 -7878
Residential development treatment center for physically and mentally
disabled children and young adults, containing 42 beds with 24 hour
nursing service.
Luther Manor
3131 Hillcrest
563 - 588 -1413
Nursing care facility with 103 beds (16 for Alzheimer patients) and 33
apartment units for seniors.
Manor Care Health Care Center
901 West 3` Street
563- 556 -1161
Extended Care facility providing health care services, included skilled
nursing. (92 beds)
Marthas Haus
2217 Queen
563- 556 -1605
19 Elderly apartment units
Mount Pleasant Home
1695 Mt Pleasant
563 - 582 -4144
Retirement home for elderly men and women; 43 apartment units (40
accessible)
Oak Park Place
Oak Park Drive
133 units of elderly living units, consisting of 22 independent condos,
50 independent apartments and 61 assisted living units
Stonehill Care Center
3485 Windsor Avenue
563- 557 -7180
Intermediate nursing facility, with 168 beds and a residential facility
with 82 beds. Provides respite care, elder day care
Dubuque Consolidated Plan 2011 -2015
Special Needs Population Facilities
74
SERVICE
DESCRIPTION
Area Residential Care (ARC)
1170 Roosevelt Street
563 - 556 -7560
Provides residential treatment services and vocational
training programs for mentally disabled persons aged 18
and older; developmental work activities; sheltered
workshop; supported employment and a services training
program.
Catholic Charities
1229 Mount Loretta
563- 556 -2580
Provides adoption, foster care homes, living arrangements
for pregnant unmarried women, refugee resettlement,
independent living for elderly and disabled persons.
Cozy Corner Adult Day Care
2785 Pennsylvania Avenue
563- 690 -6900
Adult day care
Hills and Dales Lifetime Center
3505 Stoneman Road
563- 556 -3305
Provides services, educational opportunities and social
interaction for the elderly.
Dubuque Regional AIDS Coalition
1454 Iowa St
563 -556 -6200
Provides support for those who have tested HIV positive
Finley Home Healthcare
3385 Hillcrest Road
563- 583 -5833
Skilled nursing in -home care
Goodwill Industries of Northeast Iowa
2300 JFK Road
563 - 557 -3158
Provides vocational and supporting living services to
persons with disabilities.
Helping Services for Northeast Iowa
2728 Asbury Road
563- 582 -5317
Provides substance abuse prevention education
Hillcrest Family Services
2005 Asbury Road
563- 583 -7357
Provides residential support services, including treatment
for adolescents
Hillcrest Mental Health Center
200 Mercy Drive Suite 200
563- 582 -0145
Provides an array of mental health services including
counseling and support groups
Hillcrest Wellness Center
255 West 6 Street
563- 690 -1239
The wellness center serves adults and aging adults in recovery
from mental illness, substance abuse, physical injury/illness, and
persons coping with acculturation stress (veterans, persons
released from prison, immigrants).
Hills and Dales Child Development Center
1011 Davis Street
563- 556 -7878
Provides in -home supportive services for physically- and
mentally - disabled children and young adults
Lutheran Social Services
2255 JFK Road
563- 582 -0044
State accredited mental health provider for individual,
couple, family or child.
Julian Care Facility
13034 Seippel Road
Residential care facility for disabled individuals requiring
licensed residential services. 72 beds.
Mental Health America of Dubuque County
PO Box 283
563- 584 -0730
Support services for family and persons with mental illness.
Sunnycrest Manor
2375 Roosevelt
563 -583 -1781
Intermediate care nursing facility with 88 beds for long term care, 15
beds for residential care and 28 beds for mentally retarded residents.
FACILITY
DESCRIPTION
Sunset Park Place
3730 Pennsylvania Avenue
563 -583 -7939
54 Assisted living units for the elderly, including respite care (7 are
Alzheimer's units)
The Woodlands
3460 Starlite Drive
563 - 556 -1188
42 elderly apartments
Dubuque Consolidated Plan 2011 -2015
SPECIAL NEEDS POPULATION — SERVICES
75
Mercy Home Care
200 Mercy
563 - 589 -8118
Skilled in -home nursing care
Scenic Valley Area VIII Agency on Aging
3505 Stoneman Road
563- 588 -3970
Network of elderly services
Substance Abuse Services
799 Main Street
563- 582 -3784
Substance abuse outpatient services
Seventh Heaven
1321 Tomahawk Drive
563 - 557 -9110
Elder Group Home
Stonehill Adult Center
3485 Windsor Avenue
563 -57 -7180
Adult Day Care
Visiting Nurse Association
1454 Iowa Street
563 - 556 -6200 (24 hours)
Provides elderly and disabled services, including case
management; home care aids, respite; homemaker; private
duty; adult health maintenance nursing and representative
payee program.
Community Circle of Care
799 Main Street Suite 230
563- 556 -3700
Coordination, diagnosis, and assessment services to
children and youth with emotional and behavioral
challenges
Dubuque Consolidated Plan 2011 -2015
The City partners with Proudly Accessible Dubuque (PAD) and independent organization
that builds awareness, educates the public and assists businesses with the goal of
improving accessibility. PAD provides information about common accessibility issues in
four general areas: parking, entrances, internal circulation /access to goods and services,
and restrooms, and accessible lodging. PAD provides businesses information about tax
credits for making accessibility improvements, facts about the size of the disability
market and encourages good faith efforts toward compliance with accessibility laws.
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. In addition to the fixed route service, the
City provides a mini -bus, or para- transit, service that provides `origin to destination'
transportation and passenger assistance for seniors and persons with disabilities. CDBG
funds assisted in the implementation of the DuRide program, which provides
personalized private car service 24 hours a day, seven days a week for seniors.
The City of Dubuque contracted with LSC Transportation Consultants, Inc. to complete
an Operational Analysis of the Keyline Transit system, with a focus on determining the
needs for future service expansion; indentifying efficiencies on providing both current
and future services; and providing recommendations on system improvement. The City
currently is in the process of reviewing an implementation for a preferred service, facility
and capital plan that will service the residents of Dubuque efficiently and effectively.
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.
76
Dubuque Consolidated Plan 2011 -2015
Basis for Priority
The priorities were identified based on the Alta Vista study data analysis and public input
received. The data was analyzed and priorities were established by the Community
Development Advisory Commission using the following definitions:
• High priorities are those activities that WILL be funded with CDBG funds
• Medium priorities are those activities that MAY be funded with CDBG funds, but
only after high priorities have been funded or if sufficient need is further identified.
• Low priorities are those activities that will NOT be funded with CDBG funds but may be
funded with other City or local funds.
Medium and low priority activities are still important and are not meant to be understood
as being unnecessary but those needs may have other more appropriate funding
sources.
The City has identified a limited number of priorities to provide a focus for activities that
will be funded in the next five years. There are a sufficient number of medium priority
needs to ensure that funds can be spent in a timely manner. The priorities identified
were developed by:
• Weighing the severity of the need
• Analyzing current housing, economic, social and community conditions
• Analyzing the needs of low and moderate income persons and families
• Accessing the funding resources available over the next five years
• Evaluating input from community meetings, interviews, studies and surveys,
City staff, City Council priorities, and public hearings.
Obstacles to Meeting Underserved Needs
Anticipated obstacles to meeting underserved needs are lack of sufficient resources,
which limit the ability to provide programs and services, and lack of sufficient providers.
Housing Opportunities for People with AIDS (HOPWA)
*Please also refer to the HOPWA Table in the Needs.xls workbook.
1. The Plan includes a description of the activities to be undertaken with its HOPWA
Progra funds to add housing ; - needs fo'r:the. eligible
population:, Activities ill-assist persons who 'are' not. noomeless but require
s upportivehousn g s f � as efforts t� prevent low-ir come individual§ and
from :,-. Acti homelessand may ddress the housing needs of pe
who are homeless in order to help homeless persons make t transit onto
permanent housing an Independent Irving The pl wo identify any
obstacles to es
meeting " underserved needs and summarize the , pr d
• 6v mot
spe ec ob ivjtdescribing h c c
o w rf u ns m ad e av awe will b toradd
identified: needs.,
77
2. The.Pla; must establ sh:annual HOPWA output goals
house o to be assisted d ng the yea i n l( {1 s o
Utility pay to avoid homelessness; A ( - 2); a to
i lousing facilities; such as communi esidence i
>� G =�x6* "* .'.X46't- ,4'' . •Y ..
s - .ck..
funds are to devel and/or opera e
describe develop
specie .featue o
perso sw oa
used in co
stability; reduced risks of homelessness and improve.
ng _addressed
e
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be
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Dubuque Consolidated Plan 2011 -2015
3. For housing facility projects being developed, a target date for the co npletion. ..of
each develoOnentactiVity development must be included and inf m,at on n the continued
usee, tkese t
u s. fob t a ei g popu ati based oft ei ste a ds i ,
p
requirements (e.g wi th the ten ,y�ear,p r. projects !RN/plying acquisition, new.construction or. substantial, rehabilita ion).
4. The Plan i eludes a ex a do of ho h un will be allocate inc u di n g a .
d s cri p n f tth of egeog ap is a ea in whit assistance will be directed and t he
- w "T 9,�
ration for these geographic allo and priorities. Include the name of
• each i p � roject T sponsor, the zip Code y f r the primary are a(s) of nn act t es;
a mounnts sc committ, e d � t w o th spon and w he t he r th sponsor is a faith -base
and / grassroots organizat
5. The , Plan r describes . the role of the lead jurisdiction inthe eligible ya metropolitan
s tat ist ic a l area ( m (a) cons tord a metro wide
.g "�1;a.s,� ' �..ddre
� " .? ..,Er +xs» ` ° v . t� ..a.� -+at 761. �.a ' : _ > ,
s trate gy for assing the needs Persons with HIV /AIDS and their families
living`'thi Ctigliout the EMSA`with the other jurisdictions within the EMS■;'(b) the
standards and procedures to be used to monitor HOPWA Program activities in
order to ensure compliance by project sponsors of the requirements of the
program.
78
6. The Plan includes the certifications relevant to the HOPWA Program.
The City of Dubuque does not receive HOPWA funds.
Specific HOPWA Objectives
1. Describe how Federal, State, and local public and private sector resources that
are reasonably expected to be available will be used to address identified needs
for the period covered by the strategic plan.
The City of Dubuque does not receive HOPWA funds.
UTTER NARRATIVE
Include any Strategic Plan information that was not covered by a narrative in any
other section.
CDBG - Recovery
The City of Dubuque received $328,269 in CDBG- Recovery (CDBG -R) funds from the
America Recovery and Reinvestment Act of 2009. Funding has been allocated to the
Green Alley Pilot Project for the reconstruction of three existing asphalt alleys with
pervious pavement surfaces to allow rainfall from low- intensity storms to pass through
the pavement structure. Funding is also proposed for oversight and administration of the
grant. All funding shall be spent by 2012
Neighborhood Stabilization Program (NSP)
The City of Dubuque received a $444,328 from the Iowa Department of
Economic Development for a Neighborhood Stabilization Program (NSP) grant in
April 2009. The grant will provide emergency assistance to purchase foreclosed
Dubuque Consolidated Plan 2011 -2015
or abandoned homes and to rehabilitate, resell or redevelop these homes in
order to stabilize neighborhoods and deter decline in valuation of neighboring
homes.
Unified Development Code (UDC)
The City of Dubuque adopted a Unified Development Code in October, 2009 which
combines the City's previous Zoning Ordinance, Subdivision Regulations, Historic
Preservation Ordinance, and portions of the Building Code into one document. The
UDC eliminates contradictory and redundant regulations while updating City Codes to
reflect new approaches in land use regulation and City initiatives for sustainability. The
objectives of the UDC were to conform to local, state, and federal codes, be relevant for
Dubuque, be user - friendly and streamline the process. The new code that was
developed after much public input reduces obstacles and incorporates sustainable
design provisions.
Sustainable Community
The City of Dubuque identified Sustainable City designation as one of its top priorities in
2006. Since then, multiple strategies and practices have been implemented to make
Dubuque a more sustainable community. The City is a member of Climate
Communities, and joins all of its members in supporting local government action on
climate change as essential for America to achieve energy independence, renew
economic prosperity and preserve biodiversity
The City of Dubuque has adopted a sustainability policy focusing on the three elements
of Sustainability; Environmental and Ecological Integrity, Economic Prosperity, and
Social and Cultural Vibrancy. The City believes that development in Dubuque should
achieve all three elements to ensure that the future of Dubuque is viable, livable, and
equitable for all.
HOME Designation
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 CDBG entitlement awards, decreasing program
revenues and increasing internal demands on the CDBG budget limit the ability to assist
affordable housing and economic development activities.
Appendix (To be added later)
F: \USERS \ATAUKE \CDBG \Cons Plan 2011 - 2015 \StrategicPlan (Draft) 1.06.doc
79