Analysis of Impediments to Fair Housing Copyrighted
February 4, 2020
City of Dubuque Action Items # 8.
ITEM TITLE: Analysis of Impediments to Fair Housing
SUMMARY: City Manager transmitting the Analysis of Impediments to
Fair Housing. The City Council will be asked to adopt this
analysis as part of the Community Development Block
Grant Consolidated Plan on February 26.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File
ATTACHMENTS:
Description Type
Analysis of Impediments to Fair Housing-MVM Memo City Manager Memo
Staff Memo Staff Memo
Summary Handout Supporting Documentation
Analysis of Impediments to Fair Housing Supporting Documentation
Dubuque
THE CITY OF �
uI�AaMca cih
DuB E � �
I � � I
Maste iece on the Mississi i Zoo�•zoiz•zois
YP pp zoi�*zoi9
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Analysis of Impediment to Fair Housing
DATE: January 29, 2020
Housing and Community Development Director Alexis Steger is transmitting the
Analysis of Impediments to Fair Housing. There will be a brief presentation by City
staff. The City Council will be asked to adopt the Analysis of Impediments to Fair
Housing as part of the Community Development Block Grant 5-Year Consolidated Plan
at the Public Hearing scheduled for February 26.
v
Mic ael C. Van Milligen
MCVM:jh
Attachment
cc: Crenna Brumwell, City Attorney
Teri Goodmann, Assistant City Manager
Cori Burbach, Assistant City Manager
Alexis M. Steger, Housing and Community Development Director
Dub�uqu.�e Housing and Community Development
TxE ciTY oF Assisted Housin Pro ram
u��Americ�cib � g g
D�� � �����r � 350 W. 6�' Street, Suite 312
Dubuque, IA 52001
Masterpiece on the Mississippi 20°7�2°'� �oP oR uNs'r"Y Office (563) 589-4230
wii�zoi,
TO: Michael C. Van Milligen, City Manager
FROM: Alexis M. Steger, Housing and Community Development Director
DATE: January 28, 2020
RE: Analysis of Impediments to Fair Housing
INTRODUCTION
This memo transmits the Analysis of Impediments to Fair Housing and summarizes its
purpose and content.
BACKGROUND
An Analysis of Impediments to Fair Housing is required to be completed every 5-years
in conjunction with the 5-year Community Development Block Grant (CDBG)
Consolidated Plan as well as the 5-year Public Housing Authority Plan. The City of
Dubuque last completed the Analysis of Impediments to Fair Housing in 2015 and
therefore were required to complete an Analysis prior to FY 2021.
DISCUSSION
The Analysis of Impediments to Fair Housing is a report that is culminated through the
analysis of census data, local data and community input. A survey was conducted as
well as meetings with stakeholder groups to receive community input. The draft Analysis
of Impediments to Fair Housing was brought before the Human Rights Commission
December 9t", 2020 for their review and comment. The Community Development
Advisory Commission held a public hearing on December 18t" to review and receive
comments, and the Housing Commission held a public hearing on December 17t". The
Housing Commission reviewed the final draft of the Analysis of Impediments again on
January 28t" submitting the following recommendation to council through a 7-0 vote:
1. Recommend the City Council adopt the Analysis of Impediments as presented
2. Recommend City Council consider continued analysis and furthering of the
Source of Income Ordinance being explored by Housing Staff that would require
housing providers to accept Housing Choice Vouchers for tenants under a
current lease to honor the remained of that lease.
The Housing Commission also discussed the importance of moving forward with fair
housing testing soon, as recommended in the Analysis of Impediments to Fair Housing.
The goals identified in the Analysis of Impediments to Fair Housing are:
1. Advance equity with fair housing advocacy, education and enforcement
2. Increase and promote safe, affordable housing
3. Implement local government policies that encourage equity and decrease
disparate impacts
4. Increase access to opportunity and the building of social capital
Some key actions identified to further these goals:
. Continue obtaining accurate Housing Choice Voucher data from landlords such
as number of units, location of units, vacancies and denials of rental applications.
. Assess Human Rights Commission and support capacity for effectiveness
. Establish an external independent fair housing testing program
. Audit background check process for disparate impact
. Continue exploring Source of Income Ordinance
There are several other actions that can be taken as identified in the analysis involving
childcare access, negative perceptions about poverty, arrest rate review, and ways to
reduce the Gender Wage Gap.
The Analysis of Impediments to Fair Housing also reviews progress on past goals in the
last analysis completed in 2015 (assessment of past goals, page 23). Overall;
. Seven fair housing goals were established in 2015.
. Of those goals, there has been solid progress with respect to two goals.
. Three additional recommendations from the past two analysis of impediments
are discussed, one of which (transportation/transit improvements) has
experienced progress.
Progress made on the last Analysis of Impediments to Fair Housing largely resides with
the Housing & Community Development Departments pursuit of providing choice to
Housing Choice Voucher holders and greater options for affordable housing.
Although part of the Consolidation Plan, the Analysis of Impediments to Fair Housing is
being presented separately, as it will also be used to prepare the 5-Year Public Housing
Authority Plan. The City Council must be able to certify that the 5-year Public Housing
Authority Plan addresses impediments to fair housing as stated in the Analysis of
Impediments to Fair Housing.
RECOMMENDATION
I respectfully request City Council receive and file the Analysis of Impediments to Fair
Housing, and allow a summary of the document from city staff.
The City Council will adopt the Analysis of Impediments to Fair Housing as part of the
Community Development Block Grant 5-Year Consolidated Plan at the Public Hearing
scheduled for February 26�n
Cc: Cori Burbach, Assistant City Manager
Teri Goodman, Assistant City Manager
Crenna Brumwell, City Attorney
Kelly Larson, Human Rights Director
I �-�MENTpF
THE CITY OF Q�eP yON
� I I �
1 Z
. II
DuB E
� * i * �
' ' 2a I I �z
aste iece on the ississi i II �
M � M pp Anal sis of Im ediments G� Q
Y p e� ��o
N pEV
PV RPOSE OF TH E AI
• The City of Dubuque is an entitlement community under the U.S. Department of Housing and
Urban Development's (HUD) Community Development Block Grant Program (CDBG).
• HUD requires entitlement communities to update their Analysis of Impediments to Fair
Housing Choice (AI) to coincide with their Five Year Consolidated Plan.
• The AI serves as both an assessment and a planning tool related to fair housing choice and
access to opportunities for Dubuque residents.
� METHODOLOGY
� Public Works LLC facilitated the AI development process. Data was collected
•
� from a broad range of sources and evaluated through four general approaches:
� Primary and Secondary Research; Quantitative and Qualitative Analysis.
• . . . . � � 1 ' � � � '
COM M V N ITY CONSV LTATION
STAKEHOLDER INTERVIEWS = COMMUNITYWIDE SURVEY
-
• � 16 people from local organizations = 328 responses from community
- focused on affordable housing, members regarding their
education, employment, people � perceptions on poverty
with disabilities, and homelessness
PUBLIC MEETINGS . FOCUS GROUPS
�•� 6 ublic meetin s and web ostin 57 artici ants includin low to
� p g p g , p p g
'� of drafts allowing residents to � � medium income residents and
review and provide input on the AI service providers
�� PROJECT INITIATION & DISCOVERY MEETINGS
� � 27 City personnel & non-governmental community stakeholders participated in a
� � series of discovery sessions to set the sta e for AI development
g
. • � � � . . . � .
. � . . .
of renters spend 50% or more of community survey respondents
� of their income on rent � believe poverty is a 'problem'
0 Source:U.S.Census Bureau 2013-2017 0 Source:City of Dubuque Equitable Poverty Prevention
,
American Community Survey 5-Year Estimates Plan,Dubuque Insights on Poverty Survey,2019
CITY OF DUBUQUE HOUSING & COMMUNITY DEVELOPMENT DEPARTMENT
PHONE: 563.589.4230 WWW.CITYOFDUBUQUE.ORG
�.�MENTpF
THE CITY OF QeP yON
vi I I �
1 Z
. II
DuB E
� * i * �
' ' 2a I I �z
aste iece on the ississi i II �
M � M pp Anal sis of Im ediments G� Q
Y p e� ��o
N pEV
KEYIMPEDIMENTTHEMES
'• - • : • • . • . •
.
• � • • • C • - • • • • '
_ -
� • � • -
� � � � � • • �
� • • . • ' • � � • ••
G OA LS & ACT I O N S
Goal 1: Advance equity with fair housing advocacy, education, and enforcement.
1.Continue obtaining accurate Housing Choice Voucher data from landlords as to the number of units,location of units,vacancies,and
denials of rental applications;identify landlords unwilling to accept HCVs and conduct targeted outreach and education.
2.Publish HCV program information,particularly vacancies,in real time via a website.
3.Implement communication and trust-building activities for landlords and HCV program participants such as"Meet and Lease"events
or other national promising approaches.
4.Conduct an assessment of Human Rights Commission and support capacity building efforts,including publication of a strategic plan.
5.Review the inventory of fair housing education materials(e.g.fact sheets),and update to reflect the languages spoken in the
community and what community members say they most want and need.
6.Establish an external fair housing testing program for residential,accessibility,sales and lending or insurance discrimination to
identify the problems members of protected classes face when seeking housing in Dubuque.
Goal 2: Increase and promote safe, affordable housing.
1.Continue implementation of the Imagine Dubuque strategies,and the City Housing and Community Development Department's
efforts to affirmatively further fair housing through licensing and tiered inspections,making decisions more transparent.
2.To build community trust,publish short(e.g.one pagers or data dashboard if possible)updates regarding the increase in safe,
affordable housing.
3.City Council should take any and all appropriate action to protect the residents in mobile home communities.This protection may
come in the form of an ordinance or other action that promotes safe,affordable housing for the over 800 Dubuque residents who
live in mobile homes.
Goal 3: Implement local government policies that encourage equity and decrease
disparate impacts.
1.Audit the background check process required by local Ordinance for disparate impact.
2.Implement quarterly review of eviction data to evaluate for disparate impact.
3.Educate regarding the impact of the state's minimum wage and conduct activities to increase wages.
4.Continue exploring a Source of Income Ordinance.
5.Evaluate the potential for including child care proximity into housing development proposals and assess the feasibility of a local
subsidy to support child care and/or preschool accessibility,affordability and quality.
Goal 4: Increase access to opportunity and the building of social capital.
1.Assess,develop and implement metrics and strategies to reduce the Gender Wage Gap.
2.Increase community awareness about the impact of poverty and toxic stress on the brain;develop measurable equity and inclusion
metrics.
3.Evaluate disparities in arrest rates by race and detail metrics and actions to decrease racially disproportionate arrest rates.
4.Use assessments currently underway(Equitable Poverty Prevention Plan process and another group's review)regarding the
nonprofit services array and gaps to make necessary improvements that increase access to opportunity.
5.Assess the need for public transit to Northeast lowa Community College programs in Peosta and make improvements as indicated.
HOUSING INSECURITY IS ASSOCIATED WITH POOR HEALTH, LOWER
WEIGHT& DEVELOPMENTAL RISK AMONG YOUNG CHILDREN.
. . � . � . ; � . .
Analysisof Impedimentsto Fair
Housing Choice
2019
PSMENiOs
THE CITY OF ¢P tio
DuB E9 * II *�z
? illidl ��
Masterpiece on the Mississippi
Housing& Community Development Department
350 West 6�' Street, Suite 31 � Dubuque, IA 52001
.
Table of Contents
ACKNOW LEDG EM ENTS.................................................................................................................................0
EXECUTIVE SUMMARY..................................................................................................................................1
2019 PROPOSED FAIR HOUSING PLAN .........................................................................................................3
I. I NTRODUCTION.....................................................................................................................................6
HUD Voluntary Compliance Agreement...............................................................................................9
Summary.....................................................................................................................................................11
II. COMMUNITY PARTICIPATION.............................................................................................................12
Overview.............................................................................................................................................12
Community Participation Results................................................................................................................16
Discovery Sessions: Community Issues Takeaways............................................................................16
Focus Groups Input Themes...............................................................................................................16
StakeholdersInput..............................................................................................................................17
Community Survey Results.................................................................................................................18
Sum ma ry.....................................................................................................................................................20
PotentialSolutions......................................................................................................................................20
Snapshot of Survey Respondents Comments.....................................................................................21
III. ASSESSMENT OF PAST GOALS.........................................................................................................23
2015 Fair Housing Goals: Progress &Action...............................................................................................24
Summary & Potential Solutions..................................................................................................................29
IV. FAIR HOUSING ACTIVITIES..............................................................................................................31
Summary & Potential Solutions..................................................................................................................33
V. DEMOGRAPHICS..................................................................................................................................35
PopulationTrends...............................................................................................................................35
Race & Ethnicity..................................................................................................................................36
Age......................................................................................................................................................37
Sex.......................................................................................................................................................38
NationaI Origi n....................................................................................................................................39
Persons with Limited English Proficiency............................................................................................40
FamilialStatus.....................................................................................................................................41
Disability..............................................................................................................................................42
Other Vulnerable Populations ............................................................................................................43
Poverty........................................................................................................................................................44
EducationalAttainment......................................................................................................................46
Employm ent........................................................................................................................................47
Sum ma ry.....................................................................................................................................................48
VI. HOUSING PROFILE...........................................................................................................................50
HousingOverview...............................................................................................................................50
HousingTypes.....................................................................................................................................50
AgeWhen Housing Built.....................................................................................................................51
HousingProblems...............................................................................................................................54
Imagine Dubuque Strategies for Expanding Affordable Housing.......................................................59
Potential Private Sector Discrimination..............................................................................................60
Summary of Barriers & Potential Solutions................................................................................................61
VII. ACCESSTOOPPORTUNITY..............................................................................................................63
Low Poverty Index & Income..............................................................................................................64
SchoolProficiency Index.....................................................................................................................67
Jobs Proximity Index & Labor Market Index.......................................................................................69
Low Transportation Cost Index &Transit Trips Index.........................................................................73
Environmental Health Index...............................................................................................................76
Racially or Ethnically Concentrated Areas of Poverty.........................................................................77
DissimilarityIndex...............................................................................................................................77
IsolationIndex.....................................................................................................................................77
Non-HUD Factor: Child Care ...............................................................................................................78
Sum ma ry.....................................................................................................................................................79
VIII. 2019 FORWARD: DUBUQUE FAIR HOUSING...................................................................................80
2019 Proposed Fair Housing Plan...............................................................................................................81
CONCLUSION...............................................................................................................................................84
ENDNOTES..................................................................................................................................................85
APPENDIX....................................................................................................................................................87
A. Definitions and Key Data Sources...............................................................................................87
B. Table of Figures...........................................................................................................................90
C. Community Participation Tools...................................................................................................92
D. Focus Group Notes......................................................................................................................98
E. Survey: Open-Ended Comments...............................................................................................100
ACKNOWLEDGEMENTS
The City of Dubuque contracted with Public Works LLC to develop the Analysis of Impediments (AI) and
Consolidated Plan. This AI benefitted greatly from the contribution of Dubuque residents. Given the
sensitive issues discussed, residents' honesty and frankness were especially appreciated and invaluable
to understanding the fair housing context in Dubuque. We are also grateful for the assistance of City
staff in multiple departments. In particular, members of the Departments of Housing and Community
Development and Human Rights provided data, reports and insights, and the City Communications'
personnel made photographs of Dubuque available for our use in this document.
•
�%l'V'�`1����' ,,�^,n���Ll _J
f.J L J�J 9 v v \_. �
www.Public-Works.org � (610) 296-9443
EXECUTIVE SUMMARY
This document is an Analysis of Impediments to Fair Housing Choice (AI) for the City of Dubuque, lowa.
An AI is required by the U.S. Department of Housing and Urban Development(HUD) for any community
that receives federal housing and community development funds.Those funds flow from the
Community Development Block Grant(CDBG) which invests in affordable housing, anti-poverty
programs, and infrastructure development. Dubuque is required to conduct an analysis in conjunction
with their Five-Year CDBG Consolidated Plan.
This Executive Summary presents major findings from the 2019 analysis of what stands in the way of
housing choice and access to opportunity in Dubuque. It also offers action items to address the barriers.
This AI is comprised of seven primary sections that provide data,trends, maps and analysis. Generally,
this AI is organized as a look back, an examination of the current ecosystem, and a look forward. Each
major section includes a summary of findings and potential solutions.
Housing is not simply shelter. Where we live has a profound impact on our lives. Housing choice affects
child well-being, economic mobility, and our community's economic growth. The AI contains all
elements of HUD's suggested format. One section,Access to Opportunity,was affected by federal
technology system issues; HUD's Affirmatively Furthering Fair Housing that enables extraction of
opportunity indices data tables was not functional.
The City of Dubuque is aware of significant impediments to fair housing choice. Through its
comprehensive plan,Imagine Dubuque, the City sets forth strategies to expand affordable housing,
improve the conditions of aging housing stock,and ensure that the Housing Choice Voucher ('Section 8')
program implementation doesn't result in segregation and the concentration of poverty in isolated
neighborhoods. Additionally, the City's forthcoming Equitable Poverty Prevention Plan will provide best
practice approaches to address poverty that hurts Dubuque's youngest and oldest residents,women,
and communities of color the most.
As HUD's Fair Housing Planning Guide notes, community members know their community best. Over
400 Dubuque residents provided input into this AI through discovery sessions,focus groups, stakeholder
interviews, a communitywide survey,and public meetings. AI citizen participation was integrated with
the City's Equitable Poverty Prevention Plan activities because poverty and housing choice are
inextricably linked. Residents' insights, along with analysis of U.S. Census Bureau and other relevant
data,drove the proposed five-year fair housing goals.
Dubuque's issues mirror nationwide issues.The widened wealth gap, both minimum wages and median
incomes that have not kept pace with the cost of living, and the results of mass incarceration and
systemic racism all contribute to the Dubuque's fair housing context. This analysis finds that persons of
color and low income residents in Dubuque experience a greater housing cost burden, more housing
problems, and inequitable access to opportunity.
But Dubuque is a community that has galvanized to collaboratively solve problems in the past. Building
upon Imagine Dubuque and integrating efforts with the forthcoming Equitable Poverty Prevention Plan,
this analysis serves not simply as a means to meet federal requirements, but as support for the City of
Dubuque as it strives to create a more equitable,viable and livable community for all residents.
Key Themes
• Cost Burden & Living(Self-Sufficiency) Wage
• Available, Affordable Housing
• Substandard Housing
• Access to Opportunity
• Potential Bias & Discrimination
Impediments and Contributing Factors
1. Lack of affordable,safe housing.
2. Housing Choice Vouchers(HCVs) are not accepted as source of income for rental units; lack of a
Source of Income Ordinance and/or state legislation creates disparate impact on protected
classes.
3. Lack of information about available units that accept HCVs and lack of communication and
relationships between HCV tenants/applicants and landlords.
4. Fair housing materials not available in languages other than English; low complaints indicate low
Human Rights Commission effectiveness.
5. Residents report they perceive bias and discrimination in public and private housing practices.
6. Recent predatory practices by Mobile Home community owners are pricing people out of their
residences.
7. Community participants perceive that arrest records are a barrier to acceptance of HCVs and also
report that they find the background check process confusing.
8. Lack of eviction data and analysis to assess disparate impact based on protected class.
9. Lack of living wage that empowers self-sufficiency; state law prohibits local control over minimum
wage setting; and lower median earnings and wages for women (Gender Pay Gap).
10. Lack of access to child care is a barrier to opportunity such as employment.
11. The nonprofit service array is confusing to consumers (e.g. no single point of entry).
12. Negative community perceptions about poverty impact fair housing and access to opportunity.
13. Law enforcement actions disproportionately impact people of color.
14. Lack of public transit may negatively impact access to educational opportunity.
15. Lack of confidence that the City is focused on equitable housing choice for all residents.
Proposed Fair Housing Goals
• Advance equity with fair housing advocacy,education,and enforcement.
• Increase and promote safe,affordable housing.
• Implement local government policies that encourage equity and decrease disparate impacts.
• Increase access to opportunity and the building of social capital.
2019 PROPOSED FAIR HOUSING PLAN
: � • • • � •
Goal One: Advance equity with fair housing advocacy, education and enforcement.
Housing Choice Vouchers are High Continue obtaining accurate Housing Choice Voucher
not accepted as source of data from landlords as to the number of units, location
income for rental units. of units,vacancies, and denials of rental applications;
identify landlords unwilling to accept HCVs and conduct
targeted outreach and education.
Lack of communication and Medium Implement communication and trust-building activities
relationships between HCV for landlords and HCV program participants such as
tenants/applicants and "Meet and Lease' events or other national promising
landlords. approaches.
Human Rights Commission High Conduct an assessment of HRC and support capacity
effectiveness. building efforts, including publication of a strategic
plan.
Fair housing materials not High Review the inventory of fair housing education
available in languages spoken in materials (e.g. fact sheets) and update to reflect the
the community. languages spoken in the community and what
community members say they most want and need.
Residents report they perceive High Establish an external, independent fair housing testing
potential bias and/or program for residential,accessibility, sales and lending,
discrimination in public and or insurance discrimination to identify the problems
private housing practices. members of protected classes face when seeking
housing in Dubuque.
Goal Two: Increase and promote safe, affordable housing.
Lack of affordable,safe High Continue implementation of the Imagine Dubuque
housing. strategies, and the City Housing and Community
Development DepartmenYs efforts to affirmatively
further fair housing through licensing and tiered
inspections, making decisions more transparent.
Lack of confidence that the Medium To build community trust, publish short(e.g. one pager
City is focused on equitable and/or data dashboard if possible) updates regarding
housing choice for all the increase in safe,affordable housing.
residents.
Recent predatory pricing High City Council,as at least one member has publicly stated,
practices by Mobile Home should take any and all appropriate action to protect
community owners are pricing the residents in mobile home communities.This
people out of their residences. protection may come in the form of an ordinance or
other action but promotes safe,affordable housing for
the over 800 Dubuque residents who live in mobile
homes.
Goal Three: Implement local government policies that encourage equity and decrease disparate
impacts.
Arrest records used as a High Audit the background check process for disparate
barrier to landlord acceptance impact.
of HCVs and background
check process is confusing to
residents.
Lack of eviction data and High Implement quarterly review of eviction data to evaluate
analysis to assess for disparities/discriminatory impact.
discrimination and disparities
and provide support to
residents facing evictions.
Lack of living wage that Medium Educate regarding the impact of the state's minimum
empowers self-sufficiency; wage and conduct activities to increase wages.
state law prohibits local
control over minimum wage
setting.
Lack of a Source of Income High Continue exploring a Source of Income Ordinance.
Ordinance and/orstate
legislation creates disparate
impact on protected classes.
Lack of access to child care is a Medium Evaluate the potential for including child care proximity
barrier to opportunity such as into housing development proposals and assess the
employment. feasibility of a local subsidy to support child care and/or
preschool accessibility,affordability and quality.
Goal Four: Increase access to opportunity and the building of social capital.
Lower median earnings and High Assess,develop and implement metrics and strategies to
wages for women. reduce the Gender Wage Gap.
Negative community High Increase community awareness about the impact of
perceptions about poverty poverty and toxic stress on the brain; develop
impact fair housing and access measurable equity and inclusion metrics.
to opportunity.
Law enforcement actions High Evaluate disparities in arrest rates by race and detail
disproportionately impact metrics and actions to decrease racially disproportionate
people of color. arrest rates.
The nonprofit service array is Medium Use assessments currently underway (Equitable Poverty
confusing to consumers. Prevention Plan process and another group's review)
regarding the nonprofit services array and gaps to make
necessary improvements that increase access to
opportunity.
Lack of public transit may Low Assess the need for public transit to Northeast lowa
negatively impact access to Community College programs in Peosta and make
educational opportunity. improvements as indicated.
Rgure 1 2019 Proposed Falr Housing Plan
CDBG Catchment Area Map
City of Dubuque Community Development Block Grant is shown below as a reference. It should be
noted that the CDBG jurisdiction does not exactly align to City boundaries.
Durengo
Sagevllle
&
¢
f tf y 11
2g
.> s>�+
Asbury wys�
h
�
�ubuGue
No vuea�si o„aees` tasi
,4NNryi ouououe
Ceniralia
�5 Hvy xo
�N
'eosta �
Pl
U9 Hwy�
�b�
a♦{
Jg
�Saual&DIOIPfInC m
Rgure 2 Cityof Dubuque City Llmlts:Social Explorer
i
��� �� �y �hl � �
.: . ,:_.-N.-, ^�
PFGh� �� I � .t f�:lt . �y.
... Cc�-kFri �,i i F.n�I�i�fi �� ��� .
' '11' 8 �-,..'_"p,��
�h�nr i � �i � f It � � .
,� S
�I�� I i � � ��tl6� i� I '� ��� � A
v.,.-�i �,i I� �.. �' � . , ,{�+i` ,�^+
�r-� 61 �
. — .� a ,Y• � r , „�w�F I ���� �
r _
���'�" . � k �'�$�h, r , r�— `�F j' 'I '
..� e;�, � � � ''* ��6i1 C
,
,� p� e _ ��,�,
� .�
`a ,�i , .�. -�� � 'r' ,�
� � _
- __ y � ,.�s�,W _. _� �' i
I. INTRODUCTION
This section provides the context for the Analysis of Impediments document with a brief overview of:
• Fair Housing Law
• Methodology Used
• Race Relations
• Voluntary Compliance Agreement with HUD
• City of Dubuque's plans and initiatives
Lead Agency
The City of Dubuque is the lead agency responsible for preparing the analysis(AI),the Community
Development Block Grant (CDBG) 5-Year Consolidated Plan and subsequent Annual Action Plans.The
City's Housing &Community Development Department(HCD) is responsible for managing CDBG
activities, funding and policies.The City contracted with Public Works LLC to assist in the AI and
Consolidated Plan development.
The U.S. Department of Housing and Urban Development(HUD) has not issued regulations defining the
scope of analysis and the format to be used by CDBG grantees when they prepare their Als. HUD does
provide a Fair Housing Planning Guide'which includes a 'Suggested AI FormaY which was used in AI
report development. HUD's Affirmatively Furthering Fair Housing information technology system was
not fully functional during the development of this AI,affecting the accessibility of HUD Opportunity
Index data.
Fair Housing Choice
Historically access to housing has been a powerful tool for discrimination and segregation in the United
States.To combat this,Title VIII of the United States Civil Rights Act of 1968, more commonly known as
the Fair Housing Act(FHA),was passed by Congress to prohibit discrimination concerning the sale, rental
and financing of housing based on race, religion, national origin or sex. The FHA was amended in 1988
to provide stronger penalties, establish an administrative enforcement mechanism and to expand its
coverage to prohibit discrimination on the basis of familial status and disability.
"Fair housing choice' is the ability of persons or households to have the same or similar housing choices
regardless of federal protected class. The lowa Civil Rights Act or ICRA(Chapter 216 of the lowa Code)
expands protected classes.
FEDERAL—FHA STATE—ICRA
The Fair Housing Act lowa Civil Rights Act of 1965
(Title VIII of the Civil Rights Act of 1968) (lowa Code Chapter 216
Race Sexual Orientation
Color Gender ldentity
Religion/Creed
Sex
National Origin
Familial Status
Disability
HUD generally defines impediments to fair housing choice to include acts or omissions in three
categories:
1. Actions which constitute violations or potential violations of the Fair Housing Act;
2. Actions which are counter-productive to fair housing choice such as resistance to the introduction
of minority, immigrant, disabled,or low income populations into a community;
3. Actions which have the effect of restricting housing opportunities on the basis of protected
classifications.
As an entitlement city that receives CDBG funds, Dubuque must also certify that it takes actions to
affirmatively further fair housing. AFFH entails:
• Analyzing and eliminating housing discrimination within the jurisdiction;
• Promoting fair housing choice for all persons;
• Providing opportunities for racially and ethnically inclusive patterns of housing occupancy;
• Promoting housing that is physically accessible to all persons to include those persons with
disabilities; and
• Fostering compliance with the nondiscrimination provisions of the FHA
There are two types of discrimination:
• Intentional discrimination against a protected class; and
• Disparate impact, practices not necessarily intended to discriminate but that have a
disproportionately adverse effect on a protected class.
AI Methodology
The AI development process involved looking at a variety of data sources related to housing and persons
who are in protected classes under civil rights law. The U.S. Census Bureau's American Community
Survey 5-year estimates (2013-2017) is the primary dataset used consistently throughout the AI unless
noted as unavailable or where other reliable data sources were utilized.
Data was collected and evaluated through a mixed-method approach:
1. Primary Research—the collection and analysis of raw data that did not previously exist;
2. Secondary Research—the review of existing data and studies;
3. Quantitative Analysis—the evaluation of objective, measurable, and numerical data; and
4. Qualitative Analysis—the evaluation and assessment of subjective data such as people's beliefs,
feelings, attitudes,opinions, and experiences.
AI community engagement activities were integrated with the launch of the City Council's high-priority
initiative: Equitable Poverty Prevention Plan (EPPP). The decision to integrate AI community
engagement activities with EPPP is in recognition that poverty and fair housing are inextricably linked
and to mitigate stakeholder engagement fatigue.
Local GovernmenYs Role
The 2019 fair housing plan (barriers, goals and actions) is designed to provide the City with the
necessary framework to strategically reduce identified impediments to fair housing choice over the next
five years while continuing to make modifications based on events and activities in the community
during that time period. The actions recommended are robust. However, many of the steps have been
recommended over the past decade or longer.
It is understandable that as a local government there are limitations on what the City of Dubuque is able
to do to address impediments. At times the City's role may be primarily one of influencer, convener and
fair housing educator. In other instances,such as policymakers'CDBG investment decisions to reduce
disparities, direct action is possible. Effectively reducing obstacles to fair housing requires coordination
and commitment from policymakers, government personnel, housing providers,advocacy groups, law-
enforcement,and residents.
AboutDubuque
The City of Dubuque became a 5-time All-America City award winner in 2019. A historic community on
the Mississippi River, Dubuque is lowa's oldest and 11`" largest city and 'Dubuquers' take pride in having
their community recognized as one of America's best places to live and raise a family. Additional honors
the City of Dubuque has received include:
• LEED-Certified City- 2018
• Driftless North End Designated as lowa Great Place- 2018
• Leading Environmentalism and Forwarding Sustainability (LEAFS) Award - 2018
• Livability Award for Bee Branch Project- 2017
• Ranked #12 of"30 Best Small Cities in the United States" - 2017
• Bee Branch Project Recognized for Excellence and Innovation in Clean Water Infrastructure -
2017
• National Diversity Award - March 2016
At the same time, Dubuque's race relations are a longstanding community concern:
• The late 1980s and early 1990s were a particularly trying period of racial divide in the City of
Dubuque when fourteen cross-burnings fueled mistrust and conflict.
• In 2011,the City's Housing Choice Voucher policies were found to have a disparate impact on
African Americans. The City entered into a 2014 Voluntary Compliance Agreement with the HUD
to address findings,which are discussed throughout this AI.
• Another cross burning incident occurred in April 2016, and "[s]uddenly,one of the bleakest
chapters in Dubuque's past— a spate of cross burnings and racial strife 25 years ago —snapped
back into sharp, ugly focus. Older residents felt as if they had returned to square one in
Dubuque's struggle to reorient itself as a more progressive,whole community,"
• As the Des Moines Register(April 22, 2016), reporting notes, Dubuque's topographical-divide
lends itself to "two worlds roughly defined by the wealthier and whiter scenic blufFs above and
'the flats' below. There remains a palpable bogeyman paranoia about an influx of blacks and
other minorities from Chicago.""'
Dubuque has actively sought ways to understand and bridge its poverty and racial divides. The Dubuque
2010 Studv on Crime & Povertv details residents' perceptions that more crime is committed by those
living in poverty—and using Housing Choice Vouchers ("Section 8"). Researchers found that not to be
the case: more people in poverty are likely to be victims than perpetrators of crime and there is no
causation between poverty and crime in Dubuque. Soon after, Sustainable Dubuque 2012: Portrait of
Poverty Study"researchers found that"[r]esidents described Dubuque as parochial and frequently
unwelcoming to those who are different particularly racial and ethnic minorities, LGBT persons, and the
disabled". Community residents engaged in interviews, focus groups and the survey for this analysis
echoed these statements.
Finally, in 2018 the Greater Dubuque Development Corporation's True North program commissioned
Loras College to conduct an opinion poll to understand community perceptions."
Poll results also found a strong majority of residents — 68 percent— support the notion
that "diversity is beneficial to our community;' but they feel more could be done to
improve race relations. Nearly 40 percent of those polled picked race relations as the
biggest challenge facing the community. Respondents were asked to choose from a list
of issues that included limited employment options—which ranked second at 21 percent
— followed by poverty and substandard housing"
That a majority of residents support the notion that diversity is beneficial to the community is a positive
sign for a city that has struggled with race relations over several decades.
HUD Voluntary Compliance Agreement
The City of Dubuque entered into a Voluntary Compliance Agreement with HUD after a Letter of Findings
(June 17, 2013) concluded that a series of City policy decisions regarding its Housing Choice Voucher(HCV)
program collectively had a disproportionately negative impact on African American families. City policies at
issue included implementing residency preference points, limiting the number of vouchers available to 900,
eliminating the very-low income preference allotment, and purging an outdated waiting list. "'
The City has taken actions to remedy the disparate impact of past actions and to provide an analysis on the
racial composition of Housing Choice Voucher applicants and participant pools.The following is a summary
of actions and timeline of activities derived from the City's bi-annual reports to HUD on progress.
Dubuque's steps to address HUD findings include:
• Eliminating local residency preference points.
• Maximizing voucher lease ups for five years.
• Maintaining a monthly accounting of the voucher waiting list, including information on
applications received, rejected and accepted,and applicant information such as race/ethnicity,
and current or originating address.
• Conducting concerted outreach under a re-branded HCV program.
• Contracting with Fair Housing Center of Nebraska to have 20 matched pair tests for race
discrimination conducted.
• Increasing City staff's understanding of fair housing, discrimination, and the history of racism in
the nation and community as part of the fair housing training programs (200+employees have
participated in training to date;trainings are held annually).
• Establishing a Source of Income (SOI) Committee of public and private partners that conducted a
two-year study of changes necessary. A February 2017 report to the City Council resulted in
continuation of the SOI Committee and approval of collective impact efforts guided by eight key
performance indicators:
Voucher Lease-up Rate
Assisted Units by Census Tract
Location of Assisted Housing Units vs All Licensed Rental Properties
New Affordable Units Created
Landlord Participation Rates
All Available Vacant Units
Rent Reasonableness
Analysis of Essential Services Throughout Community
The development of this AI included review of the City's Human Rights Department report(January 15,
2019) which offered a detailed narrative timeline of actions the City has taken under the VCA.The City of
Dubuque respectfully requested early release from the VCA in January 2019. HUD has approved reduced
reporting requirements.
City Comprehensive Plan: Imagine Dubuque
Key barriers identified in 2019 related to expanding affordable housing make it imperative to include
information about the City's comprehensive plan. Imagine Dubuque is the city's plan that serves as a
guide for the community's physical, social,and economic development. Adopted by the City Council in
September 2017, over 12,500 ideas were generated from 6,000 community participants; ideas were
narrowed into themes in seven categories, under which 110 community recommendations were
grouped. Recommendations are then prioritized by the City Council for investment and action in three
year increments.
Most pertinent to reducing barriers to fair housing choice, Imagine Dubuque strategies include
developing new housing; adopting a mix of financial incentives for the creation of Housing Choice
Voucher units across the community; and looking to increase wages and self-sufficiency opportunities in
the community to make housing more attainable.
Community Inclusion Initiative
The City knows that long-term success to eradicate racism and create a more inclusive community will
require collective efforts.To that end,one such effort is Inclusive Dubuque.
Inclusive Dubuque is a local peer-learning network of more than 50 organizations and individuals from
faith, labor,education, business, nonprofit and government dedicated to advancing justice and social
equity.This network launched an initiative to develop a "Community Equity Profile' in 2015 using 2000
to 2010 Census data and feedback from community members in seven different focus areas: economic
wellbeing, housing, education, health,safe neighborhoods, transportation and arts/culture.
Inclusive Dubuque's goal in sharing the equity profile was to inform community leaders, community
members and policymakers in order to transition from gathering information to creating an action plan
that will support Dubuque's growth as an equitable and inclusive community. Inclusive Dubuque is
currently working on an update to its 2015 Community Equity Profile.The City has not formally adopted
Inclusive Dubuque's Community Equity Profile but has used the data to inform goals and priorities.
The network also catalyzed the 'I'm a Dubuquer'campaign which focuses on inclusion of all residents in
the City:
For as long as anyone in our city can remember, people from Dubuque have referred to
themselves as "Dubuquers." The term is deeply embedded in our community and our
language. At times, it has also been used to draw a line between insiders and outsiders.
To be a Dubuquer is a good thing. As our city changes and grows, it is time to expand our
imagination about what it means to be a Dubuquer. Instead of using this word to draw a
line, IeYs expand the circle and open our hearts to all who call Dubuque home.
Nonetheless,the communitywide survey conducted for this analysis of impediments study elicited
comments like: "Remove public housing and food stamps and poverty in Dubuque goes down" and
"Reduce the incentive to be nonproductive slugs."Stakeholders interviewees reinforced that"there's a
secret handshake' in Dubuque.That secret handshake is effectively social capital, the relationships,
connections and bonds that create networks and often,our ability to thrive. One successful African
American in Dubuque summed up his experience this way, "I always know I'm just one mistake away
from losing it all."
Summary
• The City remains under a VCA with HUD but has taken actions to correct issues found.
• Racial and 'outsider'divides are part of the community's culture; there have been citywide
efforts to increase inclusion.
• The City's comprehensive plan addresses affordable housing and provides positive strategies for
making substantial progress; the future Equitable Poverty Prevention plan will be invaluable.
� �i � � �`��'�9"�� � II
�`
�
� � A ��� w.' �.' ..
,"�b�N`� ' "�-�" i ����
"�,., �1 „� 'a �
� I��i �' � �I � i
� �
� � , - � ' �
,, . ,��� �� � � ' '
y
� �
�' -' � � ", ' i ,
n
� µ � }� �,' �� ; l � � � ' I{ ��� �� 1 , k .' ���Ii ' �
, � �, ,
�N1x�!.�� ��,���-,ih , °i, � �� � � .��li a i.�l
o � � �, � �� �, �, �'
- e � y ,a .. i-.� °""k�,��"�'�, y�'' �t�3 �
"IA{+M�,�+ �':��` . � 7��i�;k 'c��,'*1 ..�.�r1°.
�Wlkti. ,� ` .L�� ,
II. COMMUNITY PARTICIPATION
HUD encourages meaningful citizen participation in AI development.This section provides details on
Dubuque's efforts to engage the community around poverty and impediments to fair housing choice.
• Methodology
• Participants
• Summary of Input and Potential Solutions
Overview
A variety of engagement methods were used to obtain citizen participation: discovery sessions, focus
groups, stakeholder interviews,a community-wide survey,and public meetings. Public hearings
participation numbers are an estimate; additional consultations will include discussion of the
Consolidated Plan with the Community Development Advisory Commission (CDAC) and Dubuque's City
Council.
Community Participation
■ FOCUSGROUPS ■ STAKEHOLDERINTERVIEWS
■ SURVEY ■ PUBLIC MEETINGS
�
�
Rgure 3 Community Engagement(particlpants)Summary
1. Project Initiation/Small Group Discovery Sessions (Week of September 16,2019)
A series of discovery sessions set the stage for AI development. Meeting topics included communicating
important stakeholders'contact information for consultation interviews, the review of previous actions
taken and to collect other relevant data.
Twenty-seven (27) participants took part in discovery sessions. Participants represented:
City Government Non-Government
City Manager's Office Community Foundation of Great Dubuque
Housing and Community Development Department Greater Dubuque Development Corporation
Planning Department Fountain of Youth
Attorney's Office
Economic Development Department
Human Rights Department
Multi-Cultural Family Center
My Brother's Keeper Program
Office of Sustainability
Neighborhood Development Specialist
2. Focus Groups (Week of October 14,2019)
Eight focus groups were held to collect input from groups of residents and professionals with specific
backgrounds and unique perspectives on poverty and the fair housing choices.The core community
engagement guide for focus groups and stakeholder interviews and survey questions may be found in
Appendix to this study. In most cases, the consultant project team worked with local agencies and
organizations to host and promote the focus groups to their respective members or clients, resulting in a
total of 57 participants.
Host Attendees
United Way Funded Partners Community Nonprofits
lowa Legal Aid
Hillcrest
Opening Doors
Regional Transit Authority
East Central Intergovernmental Association
SASC Behavioral Health
Foundation for Dubuque Public Schools
Visiting Nurses Association
United Way Community Impact
City of Dubuque Higher Education
Northeast lowa Community College
University of Dubuque
City of Dubuque K-12 Education - Principals &Assistant Principals
Audubon Elementary
Jefferson Middle School
Washington Middle School
St. Anthony& Our Lady of Guadalupe
Mazzuchelli Catholic Middle School
Alta Vista Campus
Community Action Agency Operation New View's Low-Income Consumers
Fountain ofYouth Dubuque's Formerly Incarcerated PersonsConsumers
Opening Doors/Theresa Shelter's Homeless Women Consumers
Crescent Health Center Marshall & Pacific Islanders—Consumers &Service Providers
The Lantern Center Hispanic/Recent Immigrants—Consumers&Service Providers
Participants were offered,and accepted,confidentiality to encourage openness. As such,demographic
information is not provided; the term 'consumers' generally refers to persons self-identifying as living in
or having the lived experience of poverty.
3. Stakeholder Interviews (October 14,2019—November 14, 2019)
Individual and small group stakeholder interviews were held with 16 persons. For people unable to
attend an in-person interview,telephone/virtual interviews were offered. Stakeholders were identified
by the local government staff and represented a variety of viewpoints including affordable housing,
community development and planning, education, employment, homelessness, people with disabilities,
and others.
Organizations from which one or more representatives participated in interviews include:
• Dubuque Rescue Mission • Resources Unite
• City of Dubuque Economic Development • State of lowa Department of Human
Depa rtme nt Se rvices
• City of Dubuque Transportation • City of Dubuque Department of Housing
Department and Community Development
• City of Dubuque Planning Department • Community Foundation of Greater
• City of Dubuque Human Rights Department Dubuque
• NAACP, Dubuque Chapter • lowa Legal Aid
• Dream Center • Community Activist
4. Communitywide Survey(October 17—October 25,2019)
A broad approach was used to enlist citizen participation. The survey was open to anyone interested in
participating. This means that results are based on non-probability sampling methods. Unlike a
statistically valid, random probability sample,the results are not necessarily reflective of all Dubuque
residents. Comments are provided verbatim from the open-ended survey question. The survey was
shared at the City Expo event on October 17-18, 2019 via laptops provided by the City's Housing and
Community Development Staff, and was also shared on the City's website.
5. Consultations—Public Meetings
October 14& Human Rights Commission Overview of poverty project and fair
December 9. 2019 housing intersect; review and approval of
AI.
October 16& Community Development Review 1�`high level draft of Consolidated
December 18, 2019 Advisory Commission (CDAC)* Plan and Analysis of Impediments; review
and approval of AI.
The *CDAC is comprised of 9 members,four must reside in areas where over 51%of residents earn less
than 80%area median income (AMI),four are from the community at large, and one member is also a
member of the Housing Commission. Members of the commission advise on the strategies, use,and
effectiveness of activities and programs funded with CDBG and on the plan itself. Note that
recommendations are forwarded to the City Council for final adoption into the approved plan.
Other Events Attended
Gainin�Opportunities(September 17, 2019)
The City's Housing &Community Development Department administrates "Gaining Opportunities," that
encompasses three programs that help participants move toward prosperity: HUD's Family Self-
Sufficiency (FSS) Program,Getting Ahead in the Workplace (GA),as well as individual coaching and goal
setting for individuals that do not receive HCV,focused around the six areas to improve self-sufficiency.
The City's FSS program provides services to HCV families aimed at increasing their earnings and reducing
dependency on social services entitlement programs and rental subsidies. Once participants obtain
employment and their portion of the rent increases, HUD invests the participanYs portion of the rent
into an escrow account. City FSS staff provide one-on-one coaching,goal-setting and referrals so that
participants can achieve their goals. Upon goal attainment, participants graduate from FSS and receive
the HUD escrow money. The average monthly HUD investment into escrow accounts is$250 per
participant.
Twelve (12) adult female participants (and their children) attended GO social capital and skill building
night. A meal was provided and a speaker from Northeast lowa Community College (NICC) shared
information about Opportunity Dubuque.
Barriers raised by participants: unreliable transportation; already working two jobs; child care/not
having time with children now and this means more time away from them; and some courses take much
longer (welding) than something like child care provider.
Race in the Heartland Conference (October 17 & 18, 2019)
A member of the consulting team also attended the Race in the Heartland conference on October 18-19,
2019 in Dubuque. included sessions on fair housing laws, restorative justice, inclusion and diversity,
implicit bias and more.The Dubuque Human Rights Commission facilitated a community forum at the
close of the conference.
Barriers raised: the lack of affordable and safe housing, lack of fair housing enforcement, racial bias and
discrimination, and evictions.
Community Participation Results
Discovery Sessions: Community Issues Takeaways
• Service Array, is it right-sized,are there gaps?; processes and accessibility are confusing.
• Racism and equity are chief concerns, as is the growth and deepening of poverty.
• Past successful programs (Bridges Out of Poverty-based program) have been eliminated.
• Dubuque has been traditionally unwelcoming to outsiders and has a history of racial incidents
(especially cross burnings and hate crimes like assaults that are well-publicized).
• The community is resilient in that economic downturns have been overcome.
• The most vulnerable residents are put in the most vulnerable housing stock.
• Recommended actions, such as Source of Income Ordinance, are not moved forward; perception
that a few influential voices are typically heard and acted upon.
• The City studies issues but doesn't always take action.
• Imagine Dubuque was encouraging because so many people were involved.
Focus Groups Input Themes
The fifty-seven (57) focus group participants provided invaluable input. Barriers to fair housing choice
shared were a wide and deep range, from affordability to living wages, perceived discriminatory
treatment by City law enforcement,to ordinances and laws they believe are needed. Detailed notes
from the focus groups are provided in the Appendix.
Key Themes
• Need for Increased Safe,Affordable Housing
• Few Landlords Accept HCVs
• Lowest Cost Housing is Substandard
• Most in Need of Affordable Housing: Seniors, Persons with Disabilities, and Persons of Color
• Inability to Purchase Housing, Build Wealth
• Barriers to Renting: Arrests, Background Checks and Source of Income
• Perceptions of Discrimination: Arrests, Nuisance Calls,and Evictions
• Disparate Treatment of Discrimination: Rent to Own &Access to Financial Services (Home Loans)
• Mobile Home Communities & Predatory Pricing
• Students Learning is Negatively Impacted by Moves, Unstable Housing
• Landlords Lack Empathy
• Child Care Unavailable, Cannot Accept Employment
• Inability to Locate Affordable Housing Impacts Health, Mental Health
Stakeholders Input
- - - •
• Institutional racism is holding people back.
•The neighborhoods and schools are segregated.
• Economic class divisions in schools and segregation exist.
•The community is comfortable with charity but not inclusion.
•We don't really talk about race here.
. . - . - � ..
•There are simply not enough Housing Choice Vouchers to meet the need.
•Too few landlords accept vouchers.
. . - -
•The City is not tackling source of income, background checks,and fair housing enforcement in a
way that eliminates bias and discrimination.
•The City has not acted upon the last analysis of impediments in a meaningful way.
• Discriminatory practices like redlining are occurring here which may explain the low rate of
homeownership for people of color.
• Evictions are happening frequently and there may be bias and/or discrimination at work.
- - . �. - . . ..
•There is little access to traditional banking because the first line of providers is not welcoming.
• Barriers to economic mobility include generational poverty,transient population, housing,
transportation,childcare,artificially low wages, and the system itself is limiting people's movement
from poverty to self-sufficiency.
_ , � _
•Women make a lot less than men and that is hurting all of us.
• People are fixated on the low unemployment rate and the prevalent community viewpoint is that
Dubuque "doesn't need more jobs,we have plenty of jobs,just not enough workers."
• Opportunity Dubuque needs to be reviewed for how it attracts participants and how it includes
people of color and women; are people getting and keeping jobs?
• Minorities who complete training programs are still not being hired.
• . . -
•We need a Source of Income ordinance. Landlords won't accept vouchers; a Source of Income
ordinance is critical to protect low-income residents.
•We haven't seen movement on the last analysis of impediments related to ordinances we need in
Dubuque.
- . �. -
• lowa does not allow anyone to get benefits unless born in the U.S.
•The state passed a law that will not allow local governments to exceed the state minimum wage.
- - . _ , .
•Services exist but are hard to access and understand who to go to for what.
•There are two 'deserts' happening: lack of child care and no full service grocery store for downtown
residents.
•Too many points of entry and no coordination between nonprofits.
•There is disconnect between programs like Opportunity Dubuque and First Time Homebuyer
progra ms.
-. .- .
•There is very little diversity in community leadership.
•A small minority of naysayers hold too much power, like the Landlords Association.
•The City's initiatives seem more focused on 'looking good' than on doing the work of community
transformation thaYs needed,especially around poverty and racism.
•Women are not given chances to develop as leaders.
•The community involvement in Imagine Dubuque was exciting. I just hope we take action.
Community Survey Results
The survey was posted on the City of Dubuque website and featured at the City 6cpo with available
laptops to take the survey. It was available to take during the weeks of October 11th to October 29,
2019. A total of 328 people responded to the survey. Results of the survey are provided below. Open-
ended comments are contained in the Appendix.
Survey participant demographics:
• The age range of respondents was evenly distributed among 18-34, 35-45,46-55 and 56-69 years
with an average of 22 percent each age cohort while 12 percent were 70 plus years.
• The majority(59%) are female and 40% male. The vast majority (91%) report as White while
3.14% identify as Black or African American.
AgP Range Race Sex
I
`
�
•18-34 •35�45 •4655 •5669 •7M WM1ile �Black or Afritan Ameritan •Uhar •Female .Maie •Unknown
Rgure 4 Communitywlde Survey Particlpant Demographlcs
Key Findings
• Of poverty perceptions survey respondents 72
percent believe that poverty is a problem in • N E A R LY 3
r
Dubuque. One-quarter of them believe it is a O U T 4 O F
"Large Problem."
Younger people (18-34 years) significantly differ F O U R 5 U R V E Y
• among all other age groups (30%vs. 20%) that R E S P O N D E N T 5
poverty is a "Large Problem" in Dubuque. • • B E L I E V E T H AT
• Survey-takers were given a list of eleven P O V E R T Y I 5
strategies to reduce poverty.They were asked to A P R O B L E M
choose the top three that they felt would be
most effective. The top three strategies: I N D U B U Q U E
1. Expand subsidized day care (45 percent)
2. More affordable housing (43 percent)
3. Better access to (physical and mental) health care (40 percent) and more workforce
training programs (39 percent).
• Respondents were also asked to what degree the following twelve factors lead to poverty. The
following cites the ranking among those given a "Very High" and "High Degree' rating. The top
two responses were poor mental health and substance abuse/addition,closely followed by low
wages.
• Survey participants were then invited to provide responses on "other" ways to reduce poverty in
addition to the 12 suggested strategies. Comments are provided verbatim in the Appendix and
over one-third indicate a negative perception of people in poverty and persons of color. Key
words are captured in the word cloud image that follows.
s
" �� 't wnaoo s
e e -
'�ne,a nn e°"°""aua" nm �sHmnni
�e�e�' .ar,o�eR,mw<: . i nv ax�
��: o�!�j�,entitlements �0 �,"""ar �'
, ��
�,�e a O increased p �.,K"'o,,,;,;y'��
� stamps�7j •��CJ 6 m
a aae-..9o�e,���, 0 'ay...Get�incentivery�
`�;�°�e?�C ; �ubu uego��Teach����;§
� ,k o O� ] �d
u d'�'ti id_r 7�a�' C m5
O (p
i r�n yo� �i h�D�ce0aov
eR . ���, �peop eWa ,a� ��� »� ,
� ar a� �sfkids ���°����',,�,.
�� ���ut �w� ���� r�k.c�� o��
�a� � life � .�� °�.�,Weo=,a�
s,w�'�9 s�U �-o�ms � � �awi(�.. � °Le, �a""�
� �public�Qb� t;/ Y�, � soc�etY,^,�3
�o e�welfare ,e„�, `" ��_like lL� alrea y,a,�,o�
� � � fBSt \,�/'+� \, �V' Q�°°°m,mages
� �O Y.�V �1 n•g��(�a�m�n0y�
cn `�°o
h,� . -0 oh `^m,. p�j�p�v�c ecksda„�o�,�
ea�uesryceN J�4./5�1/V �Ily IIP.�UCi��F«a
������ �� `� °°�'� �tk(@@p �nonp oductive"'
�;°`°�None
o+n �ro��areh��..�.5. �ng'.., n�varomws�am�a�.. .., ��_
°e � cre mow�ia . �� �_
�educationreS(�OflSlblllty�fe�'
„��o,,,o.aP, , vo��9
T'a^'^e asa�mo V✓ages gEliminate �ame?"s�`^
�a�e
-ve,"�e:.e,a°�"e"°"° rm�o-�meea�erw
x�m:�ramn °°"`^Y-s��sen aeco�mM sys�en.c
vrwrrotarenamoo�a straieg�s
��ii.n.�comv�rnn�si�e
Rgure 5 Worddoud Image summaryof responsesto"Other"Strategies
Summary
. . . . . . . • .
, , . ,
•Substandard Housing • Living/self-sufficiency wages •State legislation prohibiting local
•Affordable Housing and the gender pay gap jurisdictions from raising the
• Discrimination (potential ' Negative perceptions regarding minimum wage
blanket denial for arrests and people of color and the poor •Source of Income Ordinance
convictions or"check the box') • No single point of entry and desired
• Disparate impact (or possible lack of coordination • Background check policies
discrimination) related to for services •Specific'crisis' related to Mobile
nuisance calls,arrests, and • Food and child care deserts Home communities
evictions • Lack of inclusion in decision-
• Lack of information about how making and a community
to locate affordable housing culture that is not inclusive
(language barriers)
• Potential redlining and other
financial services practices
Potential Solutions
Potential solutions are addressed through new fair housing goals and actions,as well as a continuation
of several 2015 (and earlier) goals. Imagine Dubuque strategies and progress could be promoted in a
more effective way (dashboard metrics, results that are easy to find and understand).
Addressing the negative perceptions of people in poverty and people of color will be vital to creating a
healthy quality of life for all in the community. It is anticipated that the Equitable Poverty Prevention
Plan will recommend evidence-based and promising approaches. A few cost-effective approaches could
begin immediately,such as:
• Posting new videos monthly on the City website like those shared by Harvard Center on the
Developin�Child, organize events to play the "Resilience Game' designed to help communities
positively respond to change,and share infographics like "What We Can Do About Toxic Stress."
• City-sponsored showing of films on adverse childhood experiences and resilience (e.g. Resilience:
The Biology of Stress &the Science of Hope at https://kpirfilms.co/resilience/) paired with
community conversations.
• City and community partners lead a Community Poverty Simulation
(povertysimulation@communityaction.org) in order to:
Promote Poverty Awareness
Increase Understanding
Inspire Local Change
Transform Perspectives
To begin addressing the gender pay gap, Dubuque might look to the City of Cincinnati. In 2015 Cincinnati
became the seventh city to join the Convention on the Elimination of all Forms of Discrimination Against
Women. One action step was evaluating city programs and budgets to ensure they effect women and
men equitably. The City of Dubuque could consider a similar process,which for Cincinnati initially
started with an ordinance and then a study of the internal gender equity disparities.
The simplest way to positively impact the gender pay gap, however, is to raise the minimum wage for all
people. See,e.g., Wa�e Growth for Low-Wa�e Workers Stron�est in States with Minimum Wa�e
Increases:
Raising the federal minimum wage to$15 by 2024 would disproportionatelv raise pav
for women. Although men make up a slightly larger share of the overall U.S. workforce,
the majority of workers who would be affected by a raise to the federal minimum wage
(57.9 percent) are women. Raising the federal minimum wage would also
disproportionatelv benefit black workers because they are overrepresented among low-
wage workers and are less likely to live in states or localities that have passed a
minimum wage that is higher than the current federal minimum. As a result, increasing
the minimum wage to$15 by 2024 would mean a pay increase for 38.1 percent of all
black workers""
The City should examine survey takers' comments provided in the Appendix (a snapshot is also provided
below). While not representative of all Dubuquers,over a third of the comments indicated what can be
called negative perceptions of people in poverty; potential racial undertones are involved in some
responses. One approach to shifting community perceptions is to increase the diversity of City staff,
boards,commissions and other groups to catalyze a community culture shift. Further,addressing
diversity and inclusion through continuing education of current elected leaders, landlords,and residents
may be beneficial.
Since race is a longstanding community concern, and within the context of the rise in white nationalist
crime across the country, reaching young children is important. One resource for schools is Confronting
White Nationalism in Schools:A Toolkit. Continuing community conversations,such as ones held by
Fountain of Youth, would also be beneficial if conversation moves to meaningful action.
Last,the City should consider improving its transparency through a real-time data dashboard on a
simple set of equity measures and fair housing actions. Publishing actions and results routinely could
help build greater trust in City government. Transparency may potentially diminish the perception that
leadership is not taking action in an equitable and inclusive manner.
Snapshot of Survey Respondents Comments
Solutions to Poverty, Open-Ended Question Verbatim Responses
Remove public housing and food stamps and poverty in Dubuque goes down. This will encourage
people to get jobs. Employers all over Dubuque are already looking for workers.
Send them back to Chicago.
Have more checks and balances on the government programs that subsidize assistance to recipients.
Drug testing, wellness checks,etc. Opportunities are available.
Teach parents to teach their kids how to achieve a middle-class lifestyle.
Until parents/guardians step up and instill work ethic in their children, poverty will persist.
Give more to the working poor and less to those who do not want to work.
Lack of personal accountability.
Cut welfare. Stop making it easy!!!
Eliminate entitlements and get to work.
Cut assistance if they cannot pass a drug test
Reduce the incentive to be nonproductive slugs.
Reduce greed.
Keep your pants on, both male and female.
Teach people to live within their means.
Make a job (they are out there),a requirement after so long on welfare. Still get assistance but they
need to put in sweat equity like the rest of us.
Take drug tests to get anything free.
Get a job...or two. Make ends meet and become a contributing member of society instead of a drain
on it.
Crack down on the drug problem that is engulfing the US. It is the worst problem we as a nation face!
Change the mentality of those already in poverty.
Build a program that enables poverty-stricken people to learn how to better themselves, and move
forward in life. Giving people more things doesn't do them any good,or the rest of society.
Rgure 6 PovertySurvey 2019 Responses(snapshot)
��,� .-+Ft
;�� � .� � � LL -
�;`` � � �'� - � �' -� � � ,
T�` � �� •r ..�I ��
iF ��,- ���� "'`LRI t � . � � �_ _
�=1}i - ��i��t� � ti, � � �. � _� � t ;
�i �� � i �y rt � � 11 -� I � (
�+;q��� ��. LI --�ai � �i ,� i
� y �� � � , i �` - - � - � � � ji � ����� ' �
.��� �� �-•. � �, �._ �� � �I ��� � � �. i �
� � ;� a �
`"�:i+r+`�`=�'�i�,i�- �..c _ :'+� '. , �i �-1,�':�'� . � �. '�.
. � : ' ` ..:- ..._ :_� .. `-�. � '�I ..9_. .. . ' .. .
'll " _ 7, - ,. �,I ...�9�_�, _
�.«�
_ ` r,,,. '
__ --��
III. ASSESSMENT OF PAST GOALS
This section examines Dubuque's past goals and the actions taken:
• Seven fair housing goals were established in 2015.
• Of those goals, there has been solid progress with respect to two goals.
• Three additional recommendations from the past two analysis of impediments are discussed,
one of which (transportation/transit improvements) has experienced progress.
• A summary with potential solutions concludes this section.
The City's Housing and Community Development DepartmenYs (HCD) serves as the Public Housing
Authority (PHA) for the community.The City of Dubuque does not own and operate public housing.
Instead, it administers the Section 8 Housing Choice Voucher Program, Mod-Rehab, Project Based Rental
Assistance,and Special Needs Assistance Continuum of Care Program. It should be noted that the HCD
experienced a leadership change within the last 2 years and that the Imagine Dubuque plan was created
in 2017.
The City, under lowa law, maintains a Human Rights Commission (HRC) that is staffed by the City's
Human Rights Department(HRD) that focuses on fair housing complaints intake and fair housing
education.The HRD then refers formal complaints to the City Attorney's Office for investigation, part of
fair housing enforcement activities.
Context: Housing Choice Voucher Program
The Housing and Community Development Act of 1974 created Section 8 rental assistance programs.
Section 8, also referred to as the Housing Choice Voucher(HCV) program. Tenant-based vouchers are
the process by which voucher recipients have the opportunity to find and receive help paying for rental
housing on the private market. The City's HCD,as the Public Housing Authority, makes monthly housing
assistance payments to landlords to help the voucher-holder households pay their rent each month.
Participating households pay a minimum of 30%of their adjusted income for rent and utilities.
According to the National Low Impact Housing Coalition, "for every 100 of the lowest-earning renter
households in the country —those at or below the federal poverty line or 30 percent or less of the
median income in their area — there are only 37 available and affordable rental units."'x Inadequate
federal funding to meet the HCV need negatively impacts Dubuque residents too.
Also a nationwide issue, relatively few landlords in Dubuque are willing to accept vouchers as rental
applicants "source of income." In 2015,the City reported just 17%of property owners accepted HCVs;
however, this data was found to be an unreliable assumption based on poor data.To obtain accurate
data,the City of Dubuque passed an Ordinance January 22, 2019 that requires landlords report if and
where they will accept HCVs in order to receive a rental license.
The voucher program in Dubuque provides affordable housing options for low (<50%) AMI and very low
income (<30%) households. Following HUD findings of discriminatory policies impacting African
Americans,the City moved to a lottery-drawing system where applications are accepted monthly and
applicants are put on a waitlist with the opportunity to have their application drawn.
The City opened the waitlist for lottery drawing most recently in July 2019, and every month that
followed. July 2019 was the first month the waiting list was reopened after being closed on February
2018. As of January 2019, the HCV waiting list was at 591.
2015 Fair Housing Goals: Progress & Action
. . - - - - . - . - . . . . - . • . . .. - . . -
Progress has been made. The following information was provided by the City's Housing and Community
Development Department(HCD) through a December 2018 report to the Source of Income Committee.
HCD did not have an update to this information at the time of Al development.
• As of December 2018, 425 new units were slated for approval and/or approved.
• Three affordable housing developments proposed in 2018 are set to be completed in the next
two years,an additional 137 affordable units will be available that accept Housing Choice
Vouchers.
Of those 137 units, 77 units are located outside an area of concentrated poverty.
Of the 77 units, 52 will be added in census tract 101.04, which currently has no publicly
assisted rental units.
• There were six affordable housing projects approved by the City Council between 2013-2018 for
an Urban Revitalization Area (URA) Designation in connection with an application to the State of
lowa for the LIHTC program. Note that there has been a focus on protected classes (seniors,the
disabled) and other groups vulnerable to homelessness (Veterans). The expansion of affordable
housing units combines for 102 units, of which 60 are senior apartments and 52 family affordable
housing units.
• New requirement that housing developers must accept Housing Choice Vouchers in conjunction
with approval of an affordable housing development agreement.
While the preceding data is derived from HCD's December 2018 SOI Committee Report, in October
2019, HCD proposed a policy change to the City Council whereby property owners participating the Lead
& Healthy Homes and the Bee Branch & Healthy Homes programs will be required,for the term of the
forgivable loan, for any funded unit,to give preference to low to moderate income families and accept
HCVs if the prospective tenant is otherwise qualified. Property owners will certify the above preference
at specified intervals provided by the City and failure to comply will result in remaining balance of
forgivable loan becoming due and payable on the date of notification of non-compliance. This proposed
change is also to be included in the City's new Consolidated Plan.
Imagine Dubuque includes a variety of strategies to expand housing:
• Adopt and implement a mix of educational/outreach programs to increase housing provider
participation in Housing Choice Voucher program.
• Adopt and implement a mix of financial incentives/policies for creation of Housing Choice
Voucher units throughout community.
• Foster partnerships with private and non-profit housing developers to provide affordable,quality
housing units.
Suggestion: It would be beneficial for the City to be transparent about progress so that community
members are not relying upon word-of-mouth for information. One solution is to report to the public on
these increases, improvements, and progress toward fair housing goals through a website, a public-
facing data dashboard, or other transparent method.
. . - - - . - . - . . . . . . - .- . - . .
. . - . . - . . -
Action taken:The City's rental licensing process now requires landlords to report the number of units, in
the structure,for which housing choice vouchers are accepted (pending codification: Title 14-1J-3 Rental
Licenses). While data were not made available to researchers regarding the number of landlords who
included this information on licensing applications, this step could produce positive results.
Suggestion: Included in the 2019 fair housing plan is a specific targeting of landlords who do not
currently accept HCVs for outreach and education,as well as consideration of implementation of
national promising practices (see Summary to this section). It may also be helpful to understand where
there are any issues with the City's administration of HCVs, such as payment processing delays, that
affect landlords willingness to accept HCVs.
Revisiting City policies and a Source of Income ordinance around HCVs and landlord participation is
included in the 2019 fair housing plan as a continuation of goals from 2015,with additional
recommendations that exposing data in a public-facing way(website,dashboard or other method)
would not only inform the public but foster communication and trust.
. . .. . . . - . . - . - . . -
A local Source of Income component has not been incorporated into the human rights ordinance.
Following HUD findings of policies that have a disparate impact and practices within Dubuque's HCV
program, the City created a Source of Income (SOI) Committee. The SOI Committee studied this barrier
to fair housing and ultimately recommended a rebranding of the HCV program, a collective impact
approach to adopt and implement a mix of educational,outreach, and financial programs to increase
housing provider participation in the HCV program. A SOI ordinance was, however, cited as in past fair
housing goals and in the current Dubuque Human Rights Commission goals for 2018-2019. In the
community engagement conducted to inform this AI,stakeholders raised their desire for a Source of
Income Ordinance.
. . - - . - . . - . .. - . - . . .-
. - . . - . . . . -
Action not taken.
. . � - . . . - . . - - . - - . - -
- . . - . - - . . . - - .- -. • - - •
• Alternatively, Human Rights Commission could publish guidelines that would not be binding but
would establish prima facie standards to determine what crimes are related to tenancy and how
far back a housing provider may go in determining that a past offense has continuing relevance.
The Human Rights Commission has not taken action. Please note that:
"Most criminal records cannot be removed from a person's lowa criminal history. However,
as of January 1, 2016,a new law provides that, in cases resulting in either a dismissal or
acquittal, the court can enter an order expunging the record of the case. This means that
these records will no longer be accessible to the general public. However, it does not mean
that a record of the case will cease to exist completely. It may remain on a special list
available to the court, prosecutors and law enforcement.
The defendant, the prosecutor,or the court itself may request to have this done. The
following conditions must also be met:
• All court costs and other financial obligations ordered by the court have been paid.
• A minimum of 180 days has passed since the acquittal or dismissal (the court may
waive this requirement if it finds good cause,such as identity theft or mistaken
identity).
• The case was not dismissed due the defendant being found not guilty by reason of
insanity.
• The defendant was not found to be incompetent to stand trial.
The new law will apply to all criminal cases that occurred prior to,on, or after January 1,
2016. This means that as of the first of the year, persons can file a motion to have their
record sealed in a case that occurred before the law went into effect. Going forward from
that date, it will be the job of the court to inform the defendant at the time of the acquittal
or dismissal of his or her right to have the record sealed."x
Suggestion: Should the Dubuque's Human Rights Commission wish to pursue action on this past goal, it
will likely want to work with the Housing and Community Development Department to incorporate
information about expungement into fair housing education rather than addressing as an ordinance
change.
Action not taken. Included in the 2019 fair housing plan is the establishment of an independent testing
program that identifies discrimination and disparate impact. As part of that program,the background
checks process and results need to be analyzed.
. . . . - • . . • -
Addressed to a limited extent.The City contracted with the Fair Housing Center of Nebraska to have 20
matched pair tests for race discrimination conducted. Eleven of the tests included the addition of HCV to
the testing; 13 tests showed no evidence of discrimination and 7 were inconclusive, showing some
difference in treatment but not enough to file an administrative charge with the lowa Civil Rights
Commission.The small independent test was a start. Creating an independent testing program,as
mentioned above, is part of the 2019 fair housing plan.
Although not stated as goals,additional recommendations in the 2015 Analysis of Impediments were
considered in this five-year analysis:
• Addressing concerns of community policing.
• Addressing transportation concerns.
• Addressing the need for periodic self-analysis.
Addressing Concerns Of Community Policing.
The City reports a variety of actions have been taken by its Police Department such as implementation
of an "early warning system" as part of their data collection to catch any apparent disparate impact
from a particular officer's actions. Further, there has been focus on diversifying the workforce and
providing officer training around equity, inclusion, and emotional intelligence.
However, stakeholders in focus groups raised the issue of disproportionate arrests of African Americans
(about 10:1 white for males and 9:1 white for females) which in turn may impact fair housing choices;
community participants and key stakeholders stated that arrest records alone—not conviction records—
have been the basis for denial of rental applications.The City will want to analyze arrest data further,
address drivers behind these disproportionate arrest rates,and implement action steps as deemed
necessary.
Further, stakeholders shared concerns about nuisance reports that HCD will want to explore further. In
September 2016, HUD issued the new final harassment rule titled Quid Pro Quo and Hostile Environment
Harassment and Liability for Discriminatory Housing Practices under the Fair Housing Act. The final rule
specifies how HUD will evaluate claims of"hostile environmenY' and "quid pro quo" harassment in both
private and publicly-assisted housing. HUD's Guidance on Application of Fair Housing Act Standards to
the Enforcement of Local Nuisance and Crime-Free Housing Ordinances Against Victims of Domestic
Violence, OtherCrime Victims, and Others Who Require Police orEmergency5ervices is intended to
inform state and local governments, as well as private and public housing providers, as to how HUD will
assess nuisance or crime-free housing ordinances, policies, or practices alleged to be discriminatory
under the Fair Housing Act. These local ordinances may be used to evict domestic violence survivors and
others who seek police or emergency assistance x'
The HCD reports that they had not heard concerns about nuisance reports and that most of nuisance
calls are not related to policing but to housing health and safety issues. It is advisable that the City
further explore stakeholders'comments and concerns. One approach HCD may wish to take, in
partnership with City law enforcement, is to bring together a group of lived-experience stakeholders to
gain further insights.
As part of the 2019 fair housing plan, a priority action item is to analyze arrest rates by race and
ethnicity,detailing metrics and actions to reduce disproportionate rates. Likewise, HCD may also analyze
nuisance reports data and if indicated, data-driven action can be taken. Approaching systemic issues and
providing continuing education will be beneficial. Public transparency in this area will be especially
important to help build greater community trust and positively impact fair housing choice.
Addressing The Need For Periodic Self-Analysis.
In the past AI, it was strongly suggested that an independent audit or review of the Human Rights
Commission's functioning and effectiveness be conducted. This suggestion is included in the 2019 fair
housing actions and importantly,an independent review will want to take a human-centered design
approach, meaning,ask community residents how they want to make reports, attend HRC meetings,
and give feedback routinely to the HRC on how effectively it is performing.
Although HRC action was not reported, the HCD does a self-analysis quarterly with a dedicated equity
group in the department. Other equity teams meet monthly focusing on specific areas to implement and
evaluate programs, policies and service.There is one group specifically dedicated to data that is needed
to ensure equitable outcomes and analyzing that data once collected. The entire HCD also meets weekly
just to train on equity and to discuss any issues that have come to the City's attention through our
equity groups or the public.
The City's Human Rights Department (HRD) does report that they are working with departments to
apply an equity lens to their services, programs, policies, practices but are in the very early stages of
implementation. Training with other departments (Police,City Manager's Office, Human Resources and
Planning Services) on fair housing is occurring; the HRD is striving to get to a point where they are
analyzing who is and is not better off as a result of how they are doing their work. This is a positive step
and Fair Housing training with City personnel offers a vital chance for self-analysis. Analyzing post-
training evaluations,comments made during the session(s),and external trainers' assessment of the City
audience would be beneficial.
In sum, it appears that City staff would be aided by the establishment of equity/fair housing metrics and
technologies that reduce manual tracking and report creation. With the right tools,staff can focus more
on progressive actions, transparency, and enhancing information sharing that builds community trust.
Addressing Transportation Concerns.
Transit services and public transportation have been improved since the 2015 Analysis of Impediments.
The City reports that over the past 5 years,the public transportation system has been expanded to
increase accessibility for individuals with disabilities and low income populations. Routes have been
changed and "The Jule;' public transit,offers fixed route bus and door-to-door paratransit mini-bus
service throughout the City.
However, stakeholders report that transportation is more difficult for households who are unable to
utilize an individual automobile to get to a full service grocery story from "the Flats'and the Washington
Neighborhood,for instance, or to Peosta where a branch of Northeast lowa Community College is
located. This is issue is discussed in Section VII: Access to Opportunity.
Summary & Potential Solutions
Imagine Dubuque strategies and City actions to expand affordable housing options constitute progress.
However, as seen in this assessment of past goals, focused action was not taken on several goals. In
particular, community calls for a Source of Income Ordinance and greater fair housing enforcement
activities constitute a call for renewed energy to affirmatively further fair housing.
A chief impediment, Source of Income, is a term that springs from the practice of landlords requesting
an identifying source of income to pay rent prior to leasing an apartment. This is a nationwide
impediment to fair housing choice. Yet for residents needing affordable housing,that is little comfort.
Nationwide, local jurisdictions have passed ordinances, referred to as source-of-income protections.
These ordinances make it illegal for landlords to discriminate against voucher holders. 6camples include
nearby communities like lowa City, IA and Champaign, IL.
Despite local and national calls for protections by fair housing advocates,the American Bar Association's
resolution in 2017,x"and the introduction of federal legislation in 2018,x"'currently, only 1 in 3 HCV
holders are protected. Notably, the Washington State Legislature banned source of income
discrimination statewide in 2018.The enacted legislation may be reviewed at House Bill 2578.
In February this year, HUD released a Landlord Participation Studv.The purpose of the study was to
identify factors influencing landlord decisions about whether to participate in the HCV program and
identify promising and innovative practices to increasing landlord participation. The study,focused
largely on large metropolitan cities,found that the most common method for incentivizing landlord
participation is increasing payment standards. (Please note that Dubuque's HCD reports that the
payment standards in the city are in line with average rent rates.)
Promising alternatives to source of income ordinances being tested across the country include:
• Helping tenants pay security deposits or negotiating other arrangements regarding damages.
• Offering bonuses to landlords for joining the program.
• Making it easier to complete administrative steps and communicate with the Public Housing
Authority.
• Using an array of strategies to change negative views of tenants, most of which are based on
strengthening communication and building relationships between landlords and tenants. For
example, the most evidence-based activity for overcoming negative stereotypes is the District of
Columbia Housing Authority's"Meet-and-Lease evenY' model, in which PHAs bring landlords and
tenants together to facilitate lease-ups.
• Assessing the feasibility of implementing promising models such as King County, Washington's
"Landlord Liaison ProjecY' is another alternative to a source of income ordinance. This is a cross
collaborative effort between the Seattle Metropolitan Chamber of Commerce, King County,and
the City of Seattle.The King County Housing Authority stafFs three Owner Liaisons who build
relationships with new partners and strengthens existing partnerships with landlords to
encourage participation in the HCV Program x"
Landlords' unwillingness to accept HCVs and the concept of a Source of Income ordinance should be
explored again. If an ordinance cannot be proposed due to lack of political feasibility,or is proposed and
rejected, the City's needs to be transparent about what actions it can take. For example, publication of
results of education and outreach efforts,or the testing of promising alternative approaches seen
nationwide.
Transparency about actions is strongly encouraged and with dashboard and website technologies
inexpensive, data can be pushed out to the public in a relatively cost effective manner. This, and other
actions such as advocacy for a state law that makes source of income (SOI) a protected class,are
included in the fair housing plan.
To support improved progress, tracking and reporting, the City is strongly encouraged to take the 2019
fair housing goals and create action plans using SMART criteria (specific, measurable, achievable,
relevant, timebound),or some other effective method for tracking metrics and assessing progress.
Putting metrics and technological tools in the hands of City staff would be extremely helpful so that
manual counts and gap analyses between the overwhelming number of plans and reports is made
easier.
National Advocacy Agenda
The 50`"anniversary of the Fair Housing Act was celebrated in 2018.A leading advocacy group,the
National Low Income Housing Coalition,called for next steps:
• We must hold HUD accountable for enforcing fair housing policies by providing public
comment on changes to their policies and bringing them to court if warranted.
• We must improve access to credit and fight for s[ronger consumer protections,especially for
people of color and low income individuals. It is unacceptable that in 2018 individuals still face
discrimination when they try to get loans from banks or apply for housing.
• We must update the Fair Housing Act to provide legal protection against discrimination based
on sexual orientation,gender identity, marital status,source of inwme,veteran status,
domestic violence survivor status,or criminal record.
• We must continue to collect data and establish clear goals to determine if we are making
progress in ending housing discrimination and segregation.
"Fair Housing Overview and Challenges"Octo6er 23, 2018
Source: https://nlihcor¢/resource/fair-housinQ-act-overview-and-challen¢es
"J s. !1"�' " �
' (�,y'.I�' Ilf p yliS�`��'S / 1 �+'� �� , ��.
i L �
..i � � �
.,y 9
a x .
� �a �i P
� i �� ��i��� � R
�b ¢t �y�t ,,�
- '•-- ''�+•��'.-�� '
� �;, -��, . A ..a �'- „: �
,
�- � k
{� 1 { � �
1 h} �
1�I n ��. t 6� r p i i� �� . i C .
- .,+,-...-�A& -'�' �, , �,. f I FI r Raaa J° ! A ^��� � .,.,,I-iwi � ,,,;�
.�.
' , ..t.. ..,.., � I y k �� i�i�i ..�.
c �^ ' i
,: -. ` :.. . � � � ��� .. ,_ ,. . :
�e� . . _. . ... �.'I�M:�:. :.,.�.(Nai���'�:..*.���h a�.i�'.'t ....,. W ,_
IV. FAIR HOUSING ACTIVITIES
This section describes the City of Dubuque's fair housing activities and provides suggested ways to
strengthen fair housing activities in Dubuque.
• Complaints & Hate Incidents
• Lawsuits
• Inspections
• Resources/Materials
Under lowa law, a city with a population of twenty-nine thousand, or greater, must maintain an
independent local civil rights agency or commission. As a qualifying community, the City of Dubuque's
Human Rights Commission (HRC), comprised of 9 members appointed by the City Council to 3-year
terms, holds the powers and duties that are detailed in Title 8 Dubuque Code of Ordinance. The City's
fair housing ordinances comport to the ICRA provisions, per Section 8-2-12.
The City of Dubuque's Human Rights Department(HRD) reports to HUD on VCA actions,staffs the
Human Rights Commission,and is responsible for enforcing City ordinances that include fair housing
reports and complaints. The HRD forwards formal complaints to the Dubuque City Attorney's Office for
investigation. The HRC sees its role as one of education with the City Attorney's Office providing
investigation and enforcement.
Fair Housing Complaints
From January 1, 2015 to October 8, 2019, Human Rights Commission/Human Rights Department reports
that in roughly four years there were the 222 fair housing intakes of complaints,of which 55% involved
Race and 22% involved Disabilities; intakes could involve more than one issue. In nearly five years, a
total of 18 complaints moved to formal complaint stage.
City of Dubuque Fair Housing Complaints:Jan 1, 2015 to October 8,2019
Total Intakes: 222 Moved to Formal Complaint: 18 Breakdown of Formal
Intakes w/bias identified: 108 Complaints%
Basis of Complaint Formal Housing Complaint Percentage by Basis of
Note:Some complaints may Number by Basis Complaint
involve more than one issue.
Disability 4 22%
Ra ce 10 55%
Gender ldentity 1 5%
Age 1 5%
Religion 1 5%
Sex 2 11%
Retaliation 1 5%
SexualOrientation 2 11%
Resolution Status of Formal Formal Complaint by# Percentage Breakdown
Complaints
Administrative Closure 11 61%
Referred 3 17%
Backlogged for Investigation 4 22%
Action Taken Breakdown by# Percentage Breakdown
(More than one action may
have been taken per intake.)
Intake Identified Bias 108 49%
Housing Intakes Referred to 75 8%
either the Landlord or for
Housing Inspection
Referred to LegalServices 45 60%
Referred to Housing for 17 23%
Inspections or questions related
to HCV
Referred to both Legal Services 13 17%
and Housing
Rgure 7 Falr Housing Complalnts Source:Cityof Dubuque Human Rlghts Department
Hate Incidents
The Human Rights Commission reported the following data for the past two years:
• 8 of 12 were regarding Race/Color;
• Nearly half were about social media posts (i.e. Facebook);
• Graffiti in the city was reported four times; and,
• The HRC's primary response was educational sessions, four of the responses including writing
opinion editorials.
Lawsuits
More than 40 tenants filed suit against a pair of Dubuque landlords (Greg and Bridget Prehm) in October
2018, claiming multiple clauses in the lease agreements they signed with the Prehms' company were
illegal. Specifically, the class of tenants alleged that the lease terms violated lowa's Uniform Residential
Landlord Tenant Act. Lease terms included, but were not limited to exempting the landlords from
housing and building code mandates requiring residences be kept fit and habitable,and allowing the
landlords to create liens on household goods,withhold security deposits in bad faith,and hold tenants
liable for damages in excess of what is allowed by law. At the time the suit was filed, the Prehms had
about 180 rental units in more than 90 properties in Dubuque, and used at least 17 different business
names or LLCs.
In July 2019, a Dubuque County judge ruled 19 provisions that the rental company made tenants sign
were unlawful. In November 2019, the Prehms agreed to pay nearly$30,000 in order to settle the class-
action lawsuit over the use of an illegal lease agreement. Further, the Prehms will pay$23,000 in
attorney fees incurred by the named plaintifFs in the suit; the agreement is pending approval by the
court. The settlement prohibits the Prehms from increasing rents of current tenants for one year,allows
those tenants to demand new, lawful leases and puts landlords who rely on predatory lease agreements
"on notice;' according to attorney Sam Wooden who represented the plaintifFs.x"
Housing Inspections
In 2016 the City adopted the International Property Maintenance Code (IPMC),a three-tiered process to
increase inspections and licensing, and in June 2019, HCD reported to the City Council that 654
structures have been identified that are not yet licensed, with 95%of housing units failing first
inspection and 62%failing re-inspection.
Fair Housing Resources/Materials
A robust set of fair housing fact sheets are offered via the City's website involving a variety of issues
such as advertising,disabilities, hate crimes and harassment, and more. An online complaint form is also
provided. Materials are somewhat dated in appearance, largely in English,and somewhat difficult to
find. The City's website is currently being updated, offering an ideal chance to review the full set of fair
housing resources provided and the languages used.
Many nonprofits in Dubuque provide fair housing resources and connections, chief of which are lowa
Legal Aid and the local chapter of the NAACP—Friends of Fair Housing.
Summary & Potential Solutions
The need to improve and build capacity of the HRC were recommendations in past Als. The HRC is
building its capacity as a resource and lowa Legal Aid also received a grant to focus on fair housing
issues.
Stakeholders during this AI development provided input regarding the HRC:
• Hold HRC meetings within neighborhoods of the community;
• Provide reports on fair housing trainings and other activities in real-time as part of a set of equity
metrics;
• Develop approaches so that residents can easily report complaints in person;
• Increase anti-discrimination and inclusion activities; and
• Improve fair housing enforcement, reporting efforts to the public transparently.
HCD reports that these stakeholder suggestions have been or are being addressed as part of HRC
capacity building efforts.The 2019 proposed fair housing plan includes the recommended action,
"Conduct an assessment of HRC and support capacity building efforts, including publication of a strategic
plan." An external assessment,creating a multi-year strategic plan, and publicizing HRCs capacity
building efforts will support the progress underway.
Currently, the City is working on a review and updating of the content on its official website. This
provides an opportunity to review and update fair housing materials to ensure languages spoken in the
community. For instance, more fact sheets in languages other English would be highly beneficial for the
community—during this AI research,just one fact sheet in Spanish was located on the City's website.
It would be cost-effective to simply use effective materials that other entities have available, such as the
lowa Human Rights Commission,or adapt materials that other cities use. It would also be helpful for fair
housing materials to be tested with lived-experience consumers for value, redesign, languages needed,
and website placement.
Other critical work involves the gathering of eviction data and analysis of those affected. Researchers,
through the City Attorney's Office, made a FOIA request to the county court but that data was not
received in time to be included in this AI. Because evictions are a nationwide problem,the City of
Dubuque will want to analyze jurisdictional data and determine action steps that should be taken if
indicated.
.
:��„ -_
:, �
��„' ��
� �� �
�•
'�; � y � �ti
' � ,;;,� ' ' ,�
, � �� �-�; � , �
� ���• r � �i �
- � �� �� � j � � - � ° ' '� �c
, � �� � � � � . -�--,� __ � � � �~ � � �� ,
� � , , � �, ; _ � �� �,�., �
� � °� '3 � �� � � � - �- -- - ' � ' � �' i
� ,�
# 3 O � -
�y.,;��a7...�3 ���� � .�- _ __.ra � � . . . � � ?`'.-.:pn �. �� I �.. ';� '.r��..
V. DEMOGRAPHICS
This section provides a look at demographics trends and analyzes the interplay between demographics
and housing.
• Population • Race & Ethnicity
• Age • Sex
• National Origin • Persons With Limited English Proficiency
• Familial Status • Disability
• Other Vulnerable Populations • Poverty
• Educational Attainment • Employment
Population Trends
The most significant changes:
• Population Decline. Dubuque's population rose and fell between 2010 and 2018 with a total net
loss of 326 residents per ACS 5-year estimates (2013—2017).This is in contrast to overall growth
in lowa's population of 4%.
• Net Increase of Racial/Ethnic Diversity. Between Census 2010 and ACS 5-year estimates there
was a net increase of 929 persons of color; there was a loss of 96 Hispanics. Of the net increase,
the largest rise is in persons identifying as Two or More Races, a population that is predominantly
children under 18.
• � � � - � ' � � •
• ��
.�
��
.�
: ���
��
���
� � � � � � � � � . � � :
Rgure 8 CRyof Dubuque Populatlon Change OverTlme 2010-2018
Race & Ethnicity
Dubuque's population is predominately White non-Hispanic. There has been only a slight gain (1.1
percent) in diversity from 2010. Outside of Black or African Americans and Hispanic or Latino
populations, no other segment comprises more than 2%of the total population.
Notably there is a rise in diversity of children:
• For children aged 18 and under, the white population is 82.6%with 8.4 percent African
American,an estimated 6%two or more races, and 3 percent are Hispanic.
• This change in race/ethnicity among Dubuque is significantly lower than racial/ethnic diversity in
the U.S.
According to the U.S. Department of Education's National Center for Education Statistics. in fall 2019
children from racial and ethnic minority groups were projected to make up 52.9%of public K-12
students in the nation. The City previously studied the impact of greater diversity and neighborhood
poverty on schools and student outcomes. It is anticipated the Equitable Poverty Prevention Plan will
provide additional insights and strategies.
Demographic Change: Race&Ethnicity
� � - � � -
White 52,007 92.5% 51,949 90.6%
Black 2,256 4.0% 2,539 4.4%
American Indian 123 .2% 25 0.0%
Asian 652 1.2% 864 1.5%
Native Hawaiian & Pacific Islander 266 .5% 357 .6%
Other 38 .1% 122 .2%
Two or More Races 912 1.6% 1,267 2.2%
Hispanic 1,383 2.4% 1,287 2.2%
Figure 9 US Census Bureau American CommunitySurvey5-Year Estimates 2013-2017
African Americans in Dubuque
African Americans in Dubuque, while a small percent of the overall population, are the largest
community of color and 60.1% live in poverty. Having a lower income decreases a household's ability to
prepare a financial foundation for long-term stability. In terms of inedian net worth nationwide, "White
households are about 13 times as wealthy as black households—a gap that has grown wider since the
Great Recession."x"
The following mapping shows concentrations of poverty in the city for African Americans. As The Pew
Charitable Trusts' Economic Mobility national study found, "Neighborhood poverty alone accounts for a
greater portion of the black-white downward mobility gap than the effects of parental education,
occupation, labor force participation, and a range of other family characteristics combined."""'
Map Legend
%Low Income Householtls
� 0-1570%
� 1570-2&71°k
� 26 7139 09°/,
� � 39 09-54.18%
1 -�--
, >54.18%
Black or Afncan Amencan aloni
Hispanic)
� 0-489%
� 4.89-13.3396
� 13.33-27.82%
� 27 82-53.08%
, >53.08%
Rgure 10 Low Income Black orAfrican American Alone Populatlon Source:ACS 2017 5-Year Estlmates, HUD CPD Maps
Age
Historically in the U.S., with age came homeownership of detached single family homes—for whites.
Federal to local policies long promoted restrictive zoning that resulted in segregation and the
intergenerational transfer of wealth for white Americans.
Today,the widening gap between income and home value combines with scarcity of housing to make
homeownership for younger populations increasingly unlikely. Millennials are challenged like no
previous generation. An interesting compilation of studies published by Debt.com (Gregory Cox,August
13, 2019) calls out four primary nationwide reasons that Millennials are unable to purchase homes:
1. Student Loan Debt.The latest data from the Federal Reserve shows that from 2005 to 2014 the
average student loan debt per person ages 24-32 doubled.
2. Low Housing Inventory. Last year, inventory was down 20 percent from the previous year.
3. Rising Home Prices. Home prices rose by 8 percent last year. (Home values rose in Dubuque from
$133,400 to$135,800 between 2016 and 2017.)
4. Delaying Marriage. After accounting for age, income,education,and ethnicity—marriage
heightens the chances of becoming a homeowner by 18 percent.
For the Boomer generation, housing needs change because with age often comes disabilities and thus
the need for housing modifications. And for families with school aged children, living near a quality
school can be important. According to a growing body of research, walkability is becoming a key priority
for all age groups.
This context impacts Dubuque, where the Key Demographic Changes are:
• The median age decreased from 38.5 years (2012) to 37.1 years (2017),younger than the
national median age of 38.2 years.
• The largest segment of the population, 14.5%, is age 25 to 34 years.
�IGE 2017
16.096
14,096
12,096
c
0
4 10.096
3
n
e
a S.0%
9
O
� G.0%
�
a�
4,0%
2.0%
0,0°5 �
Vnd�i Sle7 1Ple 1Sto ZUto 2Sto 3Sto Sy�r� SSto 6Uto 6Sto lSto 85
Syears �ars ]4years 14Vr�rs 25years 34years 6qyears 5�years 54yrsrs 64years 74Years 84yearsyearsand
pyn(
Rgure 11 Age&Sex as Percentage of Populatlon.Source:Census Bureau
Sex
Key demographic trends in Dubuque by Sex include:
• Females are the majority of Dubuque residents at over 51%of the population.
• Females account for 60.7%of the population of 65 years and over.
• Females make up a greater share of the communitWs poor(17.7%female, 14.7% male) even
though the highest rate of poverty is seen in males ages 18 to 24. A total of 794 Dubuque
Females over 75 Iive in poverty.
Poverty by Age &Sex
io^,a
a�
� e% �
, �
,�� ■ ■ �� � 1 , �
� S : 1' le 1.: i6 I6 P _ _1 _' '4 ._ �1'' " " _c 6M1 66
■ Female ■ Malc
1^ _...
Rgure 12 Source: Data USA Dubuque Proflle at https://datausa.lo/proflle/geo/dubuque-la#housing
Importantly, with greater life expectancy for women,senior women are becoming at greater risk of
homelessness in Dubuque. This is due in part of the lifelong gender pay gap, less Social Security benefits,
and other factors. Community Participants anecdotally reported an increase in senior women in
shelters. However, recent approved development projects (discussed in Section III Assessment of Past
Goals),show that there is intentional expansion of affordable housing for seniors.
National Origin
An estimated 97.1 percent of the people living in Dubuque are U.S. natives and 98.4%are U.S. citizens,
which is higher than the national percentage.The median age of foreign-born residents is 34 years and
native-born is 37 years.
Key Data:
• Sixty-nine percent of the City's population is living in the state where they were born and 27%
were born in other states.
• Foreign-born residents of Dubuque come from different parts of the world with a third of all
foreign-born residents arriving since 2010.
• Dubuque residents from Oceania increased as a percentage from 1.7%to 12.3%for the same
period.
Notably,some U.S. cities have studied the economic impact of'outsiders'and immigrants. For instance,
St. Louis is well known for being a hermetic city where the first question thaYs asked is, "where did you
go to high school?"A report, The Economic Impact of Immigration in St. Louis,argued that the reason
the St. Louis region had fallen behind other big U.S. cities was its strikingly low rate of immigration.
(Straus, 2012.)That grabbed city leaders'attention. Also attention getting was the fact that cities like
Nashville,TN and Louisville, KY had launched broad campaigns to better integrate immigrants into the
business community, and both Cleveland and Philadelphia had established immigrant resource centers
designed to ease the transitions of newcomers. Although Dubuque is a much smaller city, it could
similarly consider ways in which a decline in population can be reversed by attracting immigrants and
others considered 'outsiders.'
It should be noted that the influx of Marshall Islanders has brought new diversity to the Dubuque
community. Recently (2018), HCD outreach was conducted with the Marshall Island population in
Dubuque regarding home buying. This is a positive step that HCD will want to expand if residents found
it to be valuable.
Key Takeaway
Where Dubuque's foreign-born population originates from has changed:
.� � . . • . � . . • . � . . - .
� �
2013-2017 American Community Survey 5-Year Estimates 2013-2017 2008-2012
Estimates Estimates
WORLD REGION OF BIRTH OF FOREIGN BORN
Foreign-born population,excluding population born at 1,700 1,445
sea
Europe 14.8% 23.0%
Asia 44.5% 54.3%
Africa 7.0% 4.5%
Oceania 12.3% 1.7%
Latin America 18.4% 11.5%
Northern America 3.0% 5.1%
Rgure 13 World Region of Blrth of Forelgn Bom Resldents.Source:ACS 2017 5-Year Estlmates, Census Bureau
Ensuring that fair housing resources, homebuyer outreach,and City efforts around affordable housing
are culturally and linguistically appropriate is vital to inclusion of these newcomers. It also would benefit
the City to assess why iYs had a significant loss of Hispanic residents if that is unclear.
Persons with Limited English Proficiency
The vast majority of Dubuque residents,95.8 percent,speak only English. An estimated 0.5 percent of
the population speaks Other Asian and Pacific Island languages at home, followed by 0.4 percent
Chinese speakers while at home.
Key Data:
• Within LEP households nearly half(47.6%) speak Asian and Pacific Island languages at home.
• Following English, Spanish is the second most common language spoken at home by Dubuque
residents 2.4%of households or 1.6%of the total population.
• Language demographics have remained virtually unchanged between 2012 and 2017. A 0.5%
decrease in the number of residents speaking English-only was observed.
• Fair Housing materials on the City's website are all in English with the exception of one in
Spanish.
Familial Status
"Familial status' refers to the presence of at least one child under 18 years old,and also protects
prospects and tenants who are pregnant or in the process of adopting a child. More than 6,500 (27.4%)
households fit this profile in City of Dubuque.
Families and Households with Children
� • • � � � � . .
2013-2017American Total Married- Male Female Non-
Community Survey 5-Year couple householder, householder, family
Estimates family no spouse no spouse household
household present, present,
family family
household household
Estimate Estimate Estimate Estimate Estimate
Total households 23,974 10,538 1,066 2,635 9,735
Average household size 2.27 2.92 3.08 3.01 1.27
FAMILIES
Total families 14,239 10,538 1,066 2,635 (X)
Average family size 2.86 2.90 2.68 2.80 (X)
SELECTED HOUSEHOLDS BY
TYPE
Households with one or 27.4% 37.2% 72.9% 69.3% 0.4%
more people under 18 years
Households with one or 37.2% 38.3% 22.0% 24.0% 41.4%
more people 60 years and
over
Householder living alone 32.6% (X) (X) (X) 80.3%
65 years and over 11.8% (X) (X) (X) 29.0%
UNMARRIED-PARTNER
HOUSEHOLDS
Same sex 0.0% (X) (X) (X) (X)
Opposite sex 6.7% (X) (X) (X) (X)
Rgure 14 Households and Famllles.Source:ACS 2017 5-Year Estlmates,Census Bureau
Disability
The Census Bureau defines"disability' as a lasting physical, mental,or emotional condition that makes it
difficult for a person to conduct daily activities or impedes her from being able to go outside the home
alone or to work. Among the civilian noninstitutionalized population 12.8%percent reported a disability.
The disability rate for females was 14 percent,compared to 11.5 percent for males. The likelihood of
having a disability varies significantly by age. As is generally the case, adults aged 75 and older have the
highest rate (46.6 percent) of disabilities, something for Dubuque to continually assess as Boomers in
the community age.
Key Data:
• More than 3,000 residents(across all age groups) reported a disability.
• In terms of disabilities by type Ambulatory(6.6 percent) followed by Cognitive (5.3 percent) and
Independent Living (5.3 percent) are the most common.
• The disability rate for females was 14 percent, compared to 11.5 percent for males.
• 29.8 percent (944) of Dubuque's veterans reported a disability.
Disabity by Type - All Ages
� Withahearingdifficulty • Withavisiondifficulty
• With a cognitive difficulty • With an ambulatory difficulty
• With a self<are difficulty • With an independent living difficulty
Rgure 15 Count of Dlsabll Ity by Type(all ages)
From January through April of 2019, the lowa Finance Authority conducted a telephone survey with
rental property managers throughout lowa; about 40%of Dubuque landlords responded. The findings
regarding Dubuque and rental unit accessibility included that of single-family units a reported 6.5%are
accessible, 13.8%of apartment units are accessible,and one Mobile Home was reported accessible by
the property manager. The City can take administrative policy steps to ensure accessibility is part of the
review of housing development proposals prior to approval.
Additional lowa Protected Class Members and Other Vulnerable Populations
Under lowa law, projected classes include Sexual Orientation and Gender ldentity. Members of these
protected classes and other vulnerable populations should also be acknowledged as City of Dubuque
residents likely to face greater challenges in securing safe,stable and affordable housing. In particular,
Dubuque is making progress to address the affordable housing needs of Veterans.
Veterans
Dubuque is home to 3,425 veterans of whom 1,881 are age 65 years or over and 195 are female
Veterans. 'Veterans are far more likely to experience homelessness than other Americans, in part
because of their high rates of posttraumatic stress disorder, physical injuries and disabilities,and other
factors that make reintegrating into civilian life and employment difficult."""' According to HUD, 13
percent of all homeless adults are veterans.
Key Data:
• The majority(1,115) of Dubuque's veterans served in Vietnam.
• Dubuque is also home to veterans who saw action in the First(476) and Second (529) Gulf Wars,
Korea (463),and World War II (191).
• More than one in four veterans (28.9%)has a disability which is a significantly higher rate than
the total civilian noninstitutionalized population with disability of 12.8%.
Recent approved development projects(discussed briefly in Assessment of Past Goals section),show
that there is intentional expansion of affordable housing for Veterans.This is a positive step for Veterans
in the community.
Homeless
High housing costs, low vacancy rates for affordable housing, and poor quality housing are most
associated with instability and increased risk of homelessness. Single female head of households are
more likely to be cost-burdened; many individuals and families in the City of Dubuque may sleep in
temporary arrangements (on the floors or couches of friends and family) due to the high cost burden
and low availability of affordable housing. Stakeholders report that Marshall Islanders often join other
family members, making for crowded conditions.
The City has eight organizations providing access to emergency and transitional shelter services. Some
of these organizations serve specific populations, such as pregnant women and victims of domestic
violence.The bed capacity for these organizations is 167 and 116 persons were sheltered. Hope House,
Dubuque Rescue Mission,and Hillcrest Family Services were at full or over capacity at the time of the
survey.These organizations serve men and families, representing high need in the community. Overall,
during the January 2019 point-in-time homeless count 69%of the available beds were full. Programs
with vacancies on the day of the survey included: Dubuque Rescue Mission Transitional,Teresa Shelter
(Emergency), the Dubuque Community Y Domestic Violence Program, Maria House, Mary's Inn
(pregnant women), Francis Apartments, and Almost Home.
The homeless population, while not a protected class per se, is often disproportionately comprised of
persons of color. While the Consolidated Plan provides more information about homeless and the
Continuum of Care,as part of the AI development a focus group was held with homeless women.
Stakeholders talked about shelter age limits resulting in families not being able to stay together. Women
discussed that the lack of child care and inability to pay for care had caused them to turn down jobs. In
another focus group,the issue of the rising number of elderly women in poverty was emphasized. The
Equitable Poverty Prevention Plan research will look at homelessness and offer suggestions for
strengthening how Dubuque can effectively serve this vulnerable population.
Poverty
The Dubuque City Council has made the Equitable Poverty Prevention study and plan a top priority for
2020. The City is concerned about its level of poverty and thus little of what follows is 'new' news. To
reduce duplication of effort and information shared,this AI narrowly focuses on key data and does not
offer suggestions for reducing poverty in Dubuque.
The latest data show that poverty has risen in Dubuque from 9.5% in 2000 to 16.3% in 2017. Nearly
9,000 residents of Dubuque live below the poverty level which is higher than the national rate of 12.3%.
Key Findings:
• Females in Dubuque experience poverty at a greater rate (17.1%) than males (14.7%).
• Black orAfrican American residents represent 5%of Dubuque's population and experience a
significantly larger degree of poverty; among the African American community 60.1% live in
poverty.
• More than 3,000 residents could be considered as `working poor' with 2.7%who worked full-
time, year-round and 24.0%who worked part-time or part-year in the past 12 months still living
in poverty.
• Dubuque's youngest residents are severely impacted by poverty with nearly 30%of the children
under 11 making up over half the Dubuquers living in poverty.
• Dubuque's seniors age 75 and older make up 43%of the residents living in poverty.
As the City is acutely aware, the poverty rate for the community's protected classes and most vulnerable
residents requires action. The need for safe, affordable housing increases with the rise of poverty.
Specific aspects of the population,such as seniors,demand greater attention to ensuring there is
accessible housing.
Dubuque's poverty rate and lower median income impacts whether Dubuquers own or rent a home.
Homeownership in the United States has long been considered part of the 'American Dream'and a
pathway to intergenerational wealth. Persons of color and females are more likely to live in poverty in
Dubuque.
Poverty by Location in Dubuque
Pamilies:lnmme Below Poverty Level
AC5201]IS-VearEstimatesj
ngo
Sagavluo
ktlll
11 0'G y�
� �
y��
2
tt-01 �"s �� �f
Asbury
6
� � 1'101
1[Of �
9
Y�
�zaz �oe
East
zo o�o�v�e
Legend
A'01 �/ Dubuque,lA
° � ° zoz
�sNn i-s�r:o�imo
m:m�uu
j f%m5Y:
1 i 5':W1p'y
i
U9 Mxy c �T:W 15'F
_ �5":m 2G?.
,u25":
.�0 3�]`:
_ ..�0 10':
�0�.06 � i:'�.�a50g
_ Si•.:W JS`:
l�`4
JS >%516
1 mi '�'avn.nni
�€Socblisplore�Inc
Rgure 16 Famlly Households Llving Below Poverty LeveL Source:ACS 2017 5-Year Estlmates, Soclal Explorer
As a result of higher rates of poverty and lower median incomes, most persons of color are renters in
Dubuque; whites own 98.4%of the total owner occupied housing units.
Owner v. Renter Occupied Housing Units by Race& Ethnicity
` - - • - • - • . -. - - • . -. - -
� • . -. • . -. '
Estimate Estimate Estimate Estimate
Occupied housing units 15,175 15,175 8,799 8,799
RACE AND HISPANIC OR
LATINO ORIGIN OF
HOUSEHOLDER
One race--
White 14,926 98.4% 7,366 83.7%
Black or African 63 0.4% 722 8.2%
American
American Indian and 0 0.0% 5 0.1%
Alaska Native
Asian 88 0.6% 289 3.3%
Native Hawaiian and 12 0.1% 97 1.1%
Other Pacific Islander
Some other race 6 0.0% 52 0.6%
Two or more races 80 0.5% 268 3.0%
Hispanic or Latino origin 99 0.7% 281 3.2%
White alone, not Hispanic 14,842 97.8% 7,158 81.4%
or Latino
Figure 17 ACS 2017 5-Year Estimates, U.S Census Bureau
ACS data clearly shows areas with higher concentrations of families living in poverty, unsurprisingly
including the census tracts in east Dubuque,colloquially called 'The Flats'which has:
• Poverty rates of over 30%
• Unemployment ranging from 6 to 10 percent,
• Median Household Income at$23,814.
• Low income households with severe house burden over 35%
• Moderate Income households with severe house burden 34%
Educational Attainment
Education is fundamental to sustainable development,contributes to individual's economic status and
impacts where they live. A snapshot of Dubuquers shows that:
• 93.2%of households in City of Dubuque had a high school education.
• The majority(nearly 62%) of Dubuquers have educational attainment beyond high school.
• 20.49% have some college,and 30.5% have bachelor's degrees and above.
• Dubuque students perform better at 88.95%than the national average of 84.6 percent.
However, the rate has declined slightly year over year since 2013-2017.
• English Language learners experience significantly higher high-school drop-out rates 52.38%.
• Dubuque's post-secondary education level is lower than national levels. According to the Census
Bureau (2017) 33.4%of Americans 25 or older had earned a bachelor's degree.
Educational Attainment Levels in Dubuque
� • � � • � � • � � � . . .
2013-2017 American Community Survey 5-Year Estimates Estimate Percent
College or graduate school 5,969 38.7%
EDUCATIONAL ATTAINMENT
Population 25 years and over 38,897 38,897
Less than 9th grade 802 2.1%
9th to 12th grade, no diploma 2,516 6.5%
High school graduate (includes GED) 12,601 32.4%
Some college, no degree 7,969 20.5%
Associate's degree 3,133 8.1%
Bachelor's degree 7,687 19.8%
Graduate or professional degree 4,189 10.8%
Percent high school graduate or higher (X) 91.5%
Percent bachelor's degree or higher (X) 30.5%
Rgure 18 Educatlonal Attalnment Source: ACS 2017 5-Year Estlmates, Census Bureau
In the recent 2019 Washington Neighborhood Market Analysis report,Teska Associates, Inc. noted that
education levels in that revitalization area have improved with adults over age 25 without a high school
degree or equivalent declining from 28%to 17%,while adults with college degrees have increased from
9%to 13%. (August 27, 2019,City Council Work Session). This may be positive news for the city's core
which has historically been a concentrated area of poverty with lower educational attainment rates.
However, it is also something for the City to pay attention to. With revitalization can come the positive
benefits of'gentrification,'such as decreased crime and improved housing and street conditions.Yet,
cities around the nation have also experience pitfalls for protected classes who are displaced due
property values rising and being priced out of revitalized areas.
Teska Associates, Inc. reports in this geographic area:
• The median income has declined between 3%and 6%since 2007.
• Unemployment is higher in the Washington Neighborhood, ranging from 4.1%to 6.24% based on
the Census Tract compared with 2.3%citywide.
• Unemployment in surrounding Census Tracts in the Washington Trade Area range from 2.7%to
10.3%.
Employment
Dubuque's economy employs 30,131 people.
• The largest industries in Dubuque are Manufacturing(4,405 people), Retail Trade (4,360 people),
and Health Care &Social Assistance (4,138 people).
• The highest paying industries, by median earnings,are Utilities ($63,359) and Public
Administration ($56,676), and Professional, Scientific and Technical Services ($49.071).
• Median household income in Dubuque is$50,171. Males in Dubuque have an average income
that is 1.34 times higher than the average income of females, which is$44,006.
• The unemployment rate was at 2.4% in September 2019; per the USA Labs study in 2019,
unemployment for people of color"hovers around 15%."x'x
Employment by Industry in Dubuque
Total:5o.8k
� i • i . � OtherServices.
� � � � � � � � � � ' � EzceptPuhlic
Atlminisiration
� � '
� � atawo �
�
vumi�
adminisvation
Manufacturing nccommodation E�,e�a�me�, ' ' �
2 32%
&FoodServices 6Pecrea�ion I I '�I
�fi9�,a soa�,o zeba,o ConstruBction
0 0..00� �, o m
ID13 0014 IDt5 3016 IOIJ
Rgure 19 Source: Data USA https://datausa.lo/proflle/geo/dubuque-la#economy
Notably,the State of lowa the state ranks 37`" in the nation for gender pay equity. The wage bygender
in common jobs (2017):
saq000
�ssq000
E
�
v Saqooa
`sza,000 ��
so
Miscellaneousmanagers Elemenlary&miGdleschool Dilvei.,sxle�workeis8iw��.k SrrreiTne�kTdn�InutrNihre Laborers&Geighl,sti
teachers dmers assistznis matenal mavers,h:
Occupation
■Female ■Male
x0�4 �015 2016 201)
Rgure 20 Source:Source: Data USA Dubuque Proflle at https://datausa.lo/proflle/geo/dubuque-la#housing
Summary
• Dubuque has seen a decline in population despite the low unemployment rate.
• Slight growth in diversity,especially among African Americans and Pacific Islanders.
• Median income is lower than the national level and poverty is high, perhaps attributable in part
to lowa's minimum wage* (lowest in nation,along with just 13 other states).
• The largest population sector, Millennials, face a rise in home values without an increase in
wages/incomes.This makes homebuying a remote possibility for many.
• Females experience more poverty than males in Dubuque; senior women are hit the hardest.
*The State of lowa's minimum wage is the federally-established rate of$7.25 per hour. Community
participants emphasized that the minimum wage is the chief obstacle to fair housing choice. In the City's
comprehensive plan, increasing "economic prosperity" is cited. It is crucial to educate, as the lowa Policv
Proiect explains,even median wage in lowa is not enough for self-sufficiency;xx
• A single parent with 2 children would need to earn$22.19 per hour to live above the poverty
line;
• For a married couple with 1 child and just one parent working,the self-sufficiency wage is
$22.41;
• The average wage of a single lowan is$12.99; and
• The median wage is$17.84.
The lowa State Legislature passed House File 295 in 2017 to prohibit cities and counties from
implementing policies at odds with state law, including the setting of minimum wages that exceed the
state/federal rate, currently$7.25 an hour. Proponents of the bill argued that the wages should be set
by employers and that permitting local control would create a patchwork of varying minimum wages
across the state. Opponents of the legislation argued for local control and local values to be used to
address wage issues,fair housing and civil rights issues. The wage issue and associated activities may
more deeply considered through Dubuque's Equitable Poverty Prevention Plan work.
T�Y �� � �
�`t- ,T-cFi� ��{.. �L��{`''�.l4�1r�9�'���°--�` r-� - -- ,_— -
Y
L LL 1�Y.� � �r . �.
+._ � � -r�.iy 'C� ���I � �_�I , "�`'°`�"� �_c� ` I ��
�k � �.. � +, .. � �-`� . . � i._ �.�� .� .
�'�:. 1�_,_ ��� ry _ t� �-�: -r-�en.�r^r"� sfL' �.'.. -�� S �, 4� � � �,�y
Y�'� - �t`-a[!�� . :g�ile
. � . -� �., e � .
I '� T'' � �� r. �:;.� +l,.�T� "tj'i�� _�� �-i �
.y
__ �� -�r � ._,rtt +t � -�.� - �
����
�Y y _ ,�trr� � �LLe �•9 �� T�+� � 1� �� �� � +_ �
�� i ��,�+�+ �� - i�� t � !� _
��'i i � '����� � �� �� T�
_ .. _
� : � �� ;
��..r�_-a, ��
VI. HOUSING PROFILE
This section provides an overview of housing, types and locations of units.The four HUD-defined
housing problems are addressed in several subsections, chief of which is the cost burden impediment.
Key Impediments
• Low number of vacant units;
• Prevalence of HUD-defined housing problems, including cost burden; and,
• Publicly supported housing concentration.
• Further, community participants report private sector financial services obstacles to
homeownership.
Housing Overview
Dubuque's total housing units have increased since 2010, from 24,985 to 25,932 in 2017, an increase of
947 units. Nonetheless,vacancy rates are an impediment(housing scarcity) particularly impacting
Dubuquers seeking affordable housing. Vacant units are spatially dispersed throughout Dubuque with
the largest clusters on the east side and downtown, areas mentioned throughout this AI for density of
poverty and racial/ethnic diversity.
Imagine Dubuque includes strategies for expanding land use,the preservation of historic housing stock,
and developing new housing units.
Housing Types
A profile of the types of housing in Dubuque shows that single family units are most prevalent per the
following chart.
Housing Types
Mobile Home
�
Duplex
�
Tri-or Four-Plex
�
Apartment
-
Single Family Units
0 5,000 10,000 15,000 20,000
Rgure2l Chart9HousingbyType(count),IowaHousingRnanceAuthority2019
Because Dubuque is predominantly white, a look at housing types by race and ethnicity holds few
surprises. Of note is that Pacific Islanders,while renters, are not residing in apartments. Also, mobile
home residents are whites.
Single 70.4% 46.1% 0% 33.% 45% 10.3% 41.4%
Family
Duplex 5.8% 19.2% 0% 2.7% 19.3% 43.1% 10.6%
Tri or 4- 6.1% 22.4% 0% 32.9% 35.8% 34.5% 21%
Plex
Apartment 14.3% 12.2% 100% 27.3% 0% 12.1% 27%
Mobile 3.4% 0% 0% 3.4% 0% 0% 0%
Home
Rgure 22 HousingTypes&Household Race and Ethnlclty.Source:ACS 2017 5-Year Estlmates
While mobile home residents make up a small percent of households in Dubuque,as Community
Participants discussed, mobile home communities have been purchased and prices have been raised,
making them unaffordable and putting residents at risk of homelessness.
The Dubuque City Council is aware of this crisis situation and it appears addressing this issue may be
state legislative priority. This issue is included in the 2019 proposed fair housing plan.
Age When Housing Built
Dubuque's historic structures lend to the community's charm and beauty. However,aging housing stock
also becomes an issue: nearly 30 percent of Dubuque's housing structures were built in 1939 or earlier.
Housing Structures Built
_ �
• 1939or earlier • 1940to 1959 ■ 19601979
• 1980to 1999 • 2000to 2009
Rgure73 HousingStructuresYearBulltPercentages
The City has been tackling the aging stock issue using CDBG funds and partnerships with effective
community organizations like the Greater Dubuque Development Corporation's True North program.
Additionally, for over a decade significant investments have been made in the Washington
Neighborhood. Investment and preservation strategies, including with the use of CDBG funds, Low
Income Housing Tax Credit(LIHTC) and other funding is a community strength. Examples follow:
The C.H.A.N.G.E. Initiative (Comprehensive Housing Activities for Neighborhood Growth and
Enrichment) identifies and rehabilitates downtown housing units. It is a $19 million plan to improve 739
homes. Key partners include Community Housing Initiatives and Greater Dubuque Development
Corporation's True North initiative. It encompasses:
• Homebuyer Program • Homeowner Rehabilitation Program
• Housing Choice Voucher Home Ownership • Homeowner Rehabilitation Loan Program
• Home Repair Loan • First-Time Homebuyer
• Accessibility Rehabilitation
Greater Dubuque Development Corporation's True North program is focuses on:
• Removal of blight and creation of affordable housing
• Pursuit of redevelopment, reuse and repurposing of commercial and/or industrial Infrastructure
Improvements
The following map shows where Public Housing(none in Dubuque), project-based and LIHTC properties
are located (in purple):
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
Legend
a i
II�II� � � � .., ,j' Jurisdiction
�Ilidl���� � .x� �
Public Housing
' ej Pu61ic Housing
Scattered Sites
� ProjecbBased Sec[ion 8
�+
�''� �� Low Income Housing Tax C
� � O �
� TRACT
0
�
Percent Voucher Units
<7A6°io
P 7169o�92io
P , 9 2%-13.6%
�-� , 136%-1822%
- � - , . . . ..'-. �I'��� Datecrea�ed'.1V16l2019 � �822%-100%
Ilame�.I.I��c-4-ud d.;Su__�aed Housing and Race�E�hmci�y
�esuiption:Public Housing.ProjecPBased Sedion 8.Other Multifamily.and LIHTC locations mapped wilh
raceielhnicity dot density map with R/ECAPs.dislinguishing categories of publicly supparted housing by color
Jurisdiaion:Dubuque(CDBG)
Region:�ubuque.lA
HU�-Provided Data Version:AFFHT0001
Rgure 24 PubllclySupported Housing.Source: HUDAFFHT0004
However, mapping patterns continue to show that publicly assisted housing(particularly the Housing
Choice Voucher program tenants) continues to be clustered in older housing stock.
As Dubuque's Director of the Housing and Community Development Department noted,the most
vulnerable residents live in the oldest, most vulnerable housing stock. The City provided the heat map
that follows shows where all rental units are located, and the left-side shows where units are available
to persons receiving housing assistance: the bulk of the assisted housing units are located in the area
where there is a high concentration of poverty and oldest housing stock.
t
r ,'�t • �
1 \ � '�
�
�
- , i
�.
' ,�.
♦
, r
� �
Rgure 75 Heat Map of Publlcly Supported Rental Housing.Source of Income Commlttee Report(December 2018)
Housing Problems
The four HUD-defined housing problems are: (1) Incomplete kitchen facilities, (2) Incomplete plumbing
facilities, (3) more than 1 person per room (overcrowding), and (4) cost burden greater than 30%.The
four severe housing problems are: incomplete kitchen facilities, incomplete plumbing facilities, more
than 1 person per room,and cost burden greater than 50 percent.
Cost burden is the ration of housing costs to household income. For renters, housing cost is gross rent
(contract rent plus utilities). For owners, housing cost is 'select monthly owner costs' which includes
mortgage payment, utilities,association fees, insurance, and real estate/property taxes.
HUD defines cost-burdened families as those who pay more than 30 percent of their income for housing
and may have difficulty affording necessities such as food,clothing, transportation, and medical care.
Severe rent burden is defined as paying more than 50 percent of one's income on rent.
HUD includes overcrowding as a housing problem it correlates to more health issues and accidents. In
Dubuque, 99%of owner occupied units have 1 person per room and 98.2%of renter occupied units
have 1 person per room.
A map view of all housing problems, including cost burden,follows.
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
Legend
-,;Iililll ���csa��uo�,
�
` TRACT
� RIECAP
� � � Pe�rcent Households with
� Burden
<20 52%
i
��� 2052%-23.81 %
, 23 61 %-28 55%
, 28.55%-32.62%
, 3262%-100%
Percent Households with
Burden:Data not Available
—_ ,� . Date rr-ate^�.11'P�Zp'IP - _
dame: I,la;;o-I-I��usmg Fm�bz�—s
Description:Househalds experiencing one or more housing burtlens in Jurisdiction and Region with RlECAPs and
race�e�hnicity dal density
Jurisdic[ion:�ubuque(CDBG)
Region:Dubuque IA
HUD-Provided Da[a Version:AFFHT0004
Rgure 26 Percent of Householdswlth Housing Problem.Source: HUD AFFHT0004
According to the most recent Comprehensive Housing Affordability Strategy ("CHAS") data* for
Dubuque (2012-2016 ACS) 27.5%of all households have at least one of 4 housing problems and nearly
15% have at least one severe housing problem. The following table provides details for the entirety of
Dubuque households.
Housing Problems Overview 1 Owner Ren[er Total
Household has at least 1 of 4 Housing 2,q55 4,160 6,615
Problems
Household has none of 4 Housing Problems 12,685 4,480 17,165
Cost burden not available, no other problems 105 165 270
Total 16,250 8,8W 24,050
Severe Housing Problems Overview 2 Owner Renter Total
Household has at least 1 of 4 Severe Housing
Problems 955 2,600 3,555
Householtl has none of 4 Severe Housing �4,185 6,040 2Q225
Problems
Cost burden not available, no other problems 105 165 270
Total 15,250 8,800 24,050
Rgure 27 Comprehensive Housing Affordablllty Strategy Data Report 2019
Cost Burden and Income
Nearly one-third of all Dubuque households are cost burdened:
• Renters, 21.0%of Dubuque's renter households are paying 30%-49%of their income on rent.
• A greater number of renter households 24%(2,111) spend 50%or more of the household income
on rent.
• Owners without a mortgage had a cost burden rate of 6.7 percent and a severe cost burden rate
of 4.3 percent.
• Owner occupied households with a mortgage had a cost burden rate of 15 percent, and severe
cost burden at 5.8 percent.
HAMFI Classification
Extremely Low-Income<30%
Very Low-Income< 50%
Low-Income<80%
Low-and Moderate Income< 100%
An owner or rente�'s income is closely correlated to housing problems. Inherently,cost burden is going
to affect those in poverty more readily. HUD's HAMFI is the measure of inedian income by household
calculated by HUD-determined housing markets, largely based on metropolitan statistical areas. While
HAMFI does not provide the precision of a County Median Income or City Median Income, HAMFI offers
HUD the ability to adjust median income by known household size in CHAS tabulations, providing more
consistent data metrics across demographics.
In the lowest income category 0-30 percent, more that 90%of Dubuque's households have one or more
of the housing problems: technically no one group has a disproportionate share(more than 10%).
However, poorer residents inherently experience more housing problems.
Housing Problems for Renters
Household
Household has Cost Burden not
Income by Housing Problems (Renters only) has at least 1 Total
of 4 none of available,
Housing 4 Housing no other housing
Problems Problems problem
Household Income less-than or= 30% HAMFI 2,050 245 165 2,460
Household Income>30%to less-than or=50%
HAMFI 1,195 575 1,775
Household Income>50%to less-than or=80%
HAM FI 750 1,245 2,000
Household Income>80%to less-Ihan or= 100% 95 715 810
HAMFI
Household Income>100% HAMFI 65 1,695 1,760
Total 4,160 4,48D 165 8,800
Rgure 28 Income by Housing Problems(Renters).CHAS Report 2019
For owners, the situation is similar.The lowest two income categories experiencing more housing
problems,as seen in the following CHAS data table.
Housing Problems for Owners
Household Household has Cost Burden not
Income by Housing Problems(Owners only) has at least 1 Total
of4 noneof available,
Housing 4 Housing no other housing
Problems Problems problem
Hausehold Income less-than or=30% HAMR 670 65 105 845
Household Income>30%to less-than or- 50%
HAMFI 650 735 1,385
Household Income>50%to less-than or= 80%
HAMFI 700 2,065 2,765
Household Income>80%to less-than or= 100%
HAMFI 230 1,710 1,940
Household Income>100% HAMFI 205 8,110 6,315
Total 2,455 12,685 105 15,250
Rgure 79 Income by Housing Problems(Owners).CHAS Report 2019
As expected,the prevalence of housing problems is concentrated in areas where poverty is the highest.
This can put place significant financial strain on residents' ability to afford basic necessities and which is
then exacerbated when any large unexpected expense (such as car repairs) occur.
Location ofAffordable Rental Housing to 50%AMI.
HUD Affirmatively Furthering Fair Housing Data and P�1�ppinc� Tool
r ..: , . r �--_.. Leaend
_ ..il�:ll,...
��99IIIIIIII..._ _.�il: . Ju�risdiction
Re9ion
— �
TRACT
dR
� R/ECAP
�
� Percen[Afforda6le Ren[er Units
�'- . <24.14%
24.19°6-4323%
' J3.23%-58.14%
, 58.1A%-75.0%
�. .c.
, 750%-100%
AFFHT0004 Esn HERE NPS D�'e�rea�etl IP2d^0'p PercentAffordableRenterUnits:
�ata not Available
Name:Map 17-Localion ofAffordable Rental Housing f°o Rental UnitsAffordable to 50°�oAMI) �
Description:Map of percent of renial units affordable,defned as units renting af or less than 30%of household income
for a household wdh income at 5�%of AMI.
Jurisdiction:Dubuque fCDBG)
Region:Dubuque,IA
HUD-Provided Data Version:AFFHT0004
Figure30 HUDAFFHMapping
Housing Problems by Race & Ethnicity
The small number of minority households makes it difficult to make inferences, however it is worth
noting that in several income categories, for some minority groups more households than not have
housing problems:
• For households with 0-30%and 30-50%of Area Median Income Black/African American, Asian
and Hispanic households have more housing problems than not.
• All 25 American Indian and Native Alaskan Households (100% percent in this income category)
had housing problems.
• 61%of households with 30%to 50%of Area Median Income had one or more housing problems.
• Thirty-two percent of households with 50%to 80%of Area Median Income had one or more
housing problems. Pacific Islanders had a disproportionate share at 100%.
• 13%of households with 80%to 100%of Area Median Income had one or more housing
problems. American Indian/Alaska natives had a disproportionate share at 71.4%,and Pacific
Islanders at 100%.
• All 65 Pacific Islander households had housing problems in the income categories in which they
appear.
As stated, while small numbers make it difficult to establish disproportionality and cost-burden is a
prevailing issue in Dubuque, all broad strategies to increase the affordability and accessibility of housing
would likely benefit these small minority groups as well as the City as a whole.
Zoning
In concert with the development of Imagine Dubuque, a comprehensive review of zoning and land use
occurred. Within the Dubuque city limits, 2,490 acres (18%) of total land area remained vacant and
developable based on 2017 zoning designation. Because there are fewer units available than households
in need for those who make<30% Household Area Median Family Income, land use and development
decisions will make affordable housing a priority.The following map details the City Council-approved
future land use map that Imagine Dubuque strategies build upon.
.� �' �� � � -� Future Land Llse
► I )i �s(ic,�t �r zoso
— Qtyo(Dubuque
'�� 0 s.��u�M���.�,;r_
� W � �
!, O .�,�,,.�.,:��
` � • j � �i�.:n.:�,::.::
. �s'., �,ii
y `1 f w �F .�� Nasconsm - t � .,,,,
1 � ,�
4 u r � , � \ 0 �
� � � .: .:�L fj � lninas
—�'r� � F ' �! ,v a'� � v .�u.;
��1,r!�m �. /.�•� s
r0 F ,�, i � 1;�,�1 � c��,.n.�..,�,�
A � A"
_ -- �w � � � y � e.,-,r..a,:,.,.
� �r
� r; � �.,__;.�
l� r '
- o n,.�
�
0 0 �...:�:,,:r..<.�,.,,
' o
, a���ry..
z o c Q }laewiq.i ILver bFL-3 Fu4
� ,� Pcvn�'alG�wthAmvs
�:y o/Pe:a:c Lm.!llsr.iar
-- " m:n3arves
� � I
' .❑� .. ..,. F — �kr.:{ �i
� . lfbiutii. ... k:vi<�
� Aa 3
0
0 1 2 3 Miles
Rgure 31 Future Land Use 2030 Map.Source: City of Dubuque
Imagine Dubuque Strategies for Expanding Affordable Housing
Single Family
Serve neighborhood needs such as education, housing, and recreation equitably while maintaining a
viable, livable atmosphere and reducing environmental impacts. Access to trails,open space, and other
recreational and educational amenities,connections to needed goods and services,and protecting
significant woodland, prairie, and wetland areas and avoid steep slopes are all strategies.
Multi Family
Encourage a mix of housing affordable for all segments of Dubuque's population throughout the
community, including options for those who might be saving for their first home,taking into account
proximity to jobs to minimize transportation costs, and increasing access to goods and services in a
walkable environment.
Mixed-Use
Create a vibrant environment where residents can live, work, and play within walking and biking
distance of their home at opportunity sites throughout the community. Integrate a variety of residential
product types in mixed-use areas, including multi-family products such as townhomes and apartments,
but also incorporating some single-family housing. Imagine Dubuque's mixed use strategies also
provides for walkable neighborhoods, with convenient access to goods,services, parks,and schools,
without the need to use a car for every trip.
Potential Private Sector Discrimination
Prohibited practices include:
• Redlining, refusing to extend home loans/insurance or offering less favorable terms to someone
based on the race of their neighborhood.
• Blockbusting, persuading owners to sell property cheaply based on fear that people of another
race will move into the neighborhood,and thus profiting by reselling at a higher price.
• Steering, housing providers guide prospective buyers/renters towards or away from certain
neighborhoods based on race.
Among home loan applicants of color,the ability to achieve homeownership is impeded by higher rates
of mortgage application denials. Black and Hispanic households in lowa were denied mortgages at
higher rates than white households,even when controlling for income. And, higher cost loans were
more prevalent among lower income households than upper income households.
According to Home Mortgage Disclosure Act(HDMA) nationwide data (2017), in terms of conventional
loans African Americans are 2.6 times and Hispanic applicants are 2 times more likely than white
applicants to be denied. Non-white buyers did a little better with FHA mortgage loans,yet African
American are 1.8 times more likely and Hispanic applicants are 1.4 times more likely than white
applicants to be turned down. Although a small percentage of Dubuque's population is a race/ethnicity
other than white, homeownership is disproportionately low, even by national standards. The
homeownership rate for Dubuque's black citizens is just 8%,down from roughly 10% in 2015."�"
Dubuque Home Mortgage Disclosure Act data do not clearly signal obstacles, largely because for
conventional loans race and ethnicity were not reported, Community Participants in this AI reported
that redlining is occurring, indicating that an independent fair housing testing program would be helpful
in terms of a deeper analysis to ascertain if prohibited discriminatory practices are occurring.
" ; Forecast
The lowa Finance Authoritv forecasts that in 2030 there will be a projected 25,147 households of which
15,918 are projected to be owner occupied,and 9,230 are expected to be renter-occupied. Dubuque
households are projected to reach 25,192 occupied units by 2050.The expansion of affordable housing
will need to be equally strong. Implementation of Imagine Dubuque strategies and fair housing goals are
crucial for the community to thrive.
Summary of Barriers & Potential Solutions
Key Barriers:
• Cost burden,the most prevalent impediment.
• Poorer households, particularly among person of color, also experience a greater number of
HUD-defined housing problems. As noted previously, cost burden is inherently higher in low
income households.
• Concentration of Housing Choice Voucher participants in older housing stock.
• No data indicates that HCV acceptance is city-wide; current locations of HCVs show high usage in
concentrated areas of poverty.
• Homeownership is predominantly among Whites.
Potential Solutions:
Imagine Dubuque lays out strategies for preserving and reinvesting in structures built early in the 20`"
Century.The community partnerships are strong and will continue the work of rehabilitating housing
stock. The issue of public assisted housing, particularly the HCVs, is addressed in Assessment of Past
Goals section of this AI, as well as in the 2019 fair housing actions. Finally, actions such as an
independent testing and focus on public transparency for inspections decisions will strengthen fair
housing in Dubuque.
Housing patterns of owner occupied versus renter occupied housing are critical as homeownership is
thought to have a substantial access to opportunity impact.The HUD-defined opportunity indices are
addressed in the next section of this report. As one Dubuque resident said, not being able to get a
mortgage for a small house means nothing to leave one's children.This speaks to the historical lens to
homeownership in the U.S.: owning a home has been thought of as integral to achieving the American
Dream.
With homeownership lowest for people of color, further examination of practices and approaches in
Dubuque is needed. The City of Dubuque and its community partners have solid home buying
programs. Analysis of racial/ethnic disparities is advisable and improved outreach and supports for
potential homebuyers could be necessitated. Outreach that is culturally competent should come in the
form of greater down payment assistance,a homebuying "coach," or other promising approaches used
in lowa and across the nation. One valuable resource is HUD's randomized trial results from a multi-year
demonstration project: First Time Home Buvers Education and Counselin�(June 2016)
The cost burden for Dubuque residents is untenable. However,this is an issue across the nation and
promising approaches are being tested; some are similar to Imagine Dubuque strategies. Further, the
expectation is that the Equitable Poverty Prevention Plan will offer insights on best practices, specific
approach to increasing wages. This AI's fair housing goals offer a set of actions that will help ensure that
discrimination and disparate impact is mitigated.
i � �� , �
� --� L•h-+`L I xT' ' � yt �`
f �r � �� y _yq,❑'
. ��` � .}�nti � T 'Y �� .� � L �
n .� Y' . . ' L .
�"�p' I .� ,
.. 'r""' �7' �� � � � ' 1 -L - L L
, � ti �� Ert �� .�
�� 1f � a _ � , �� _
.. � � I� T� F : '
. • � �_ .� �T _��
i �.��`� � 1�� �➢� �._ - � . `
'� '�"'
� ��-a..� ;� � � � -]� - '. ��
� �� � 5�-. - . 1 � 1 y.t � ;
T� `�,�,!`�t��`� -, �� ' I a t = _
, .
,; -
-, i , -� �� �� n�4 � , —
.,. ,
t ;�r��— � * ' `I �La =E_�. �.
<
- , _ _ •• �
VII. ACCESS TO OPPORTUNITY
Among the many factors that drive housing choice for individuals and families are neighborhood factors.
HUD refers to these factors within communities as 'areas of opportunity.'To thrive one needs living
wages, good schools,affordable housing,efficient public transportation, safe streets,good services,
adequate parks, and full-service grocery stores. While not mentioned by HUD,child care has increasingly
become a factor that impacts one's ability to thrive.
HUD has developed a series of indices to help inform communities about segregation in their jurisdiction
and region, as well as about disparities in access to opportunity. Each opportunity index is percentile
ranked on a 0-100 scale, with a score closer to 100 indicating a higher level of opportunity. During AI
development researchers were hampered by HUD's AFFH technology system non-functionality
(extraction of data tables not possible).Thus, mapping is used throughout to capture indices ratings; in
some instances older is used, including 2000 Census Data.
The HUD opportunity indices are:xx"
. �
Low Poverty Index Tract , Captures poverty in a neighborhood using the
poverty rate.
School Proficiency Index Block Group Uses fourth-grade performance to assess the quality
of an elementary school in a neighborhood.
Jobs Proximity Index Block Group Quantifies the accessibility of a neighborhood to job
locations within the larger region, with larger
employment centers weighted accordingly.
Labor Market Engagement Tract Describes the relative intensity of labor market
Index engagement and human capital in a neighborhood,
using the unemployment rate, labor force
participation rate, and educational attainment.
Low Transportation Cost Index Tract Estimates the transportation costs for a three-person
single-parent family with income at 50 percent of the
median income for renters.
Transit Trips Tract Quantifies the number of public transit trips taken
annually by a three-person single-parent family with
income at 50 percent of the median income for
renters.
Environmental Health Tract Describes potential exposure to harmful toxins at the
neighborhood level.
Dissimilarity Index CDBG A measure of community-level segregation which
HOME represents the extent to which the distribution of any
CBSA two groups differs across census tracts or block-
groups.
Low Poverty Index & Income
Poverty significantly impacts access to opportunity. Dubuque's poverty rate of 16.3% is both higher than
the county (11.9%) and the state (12%). One in five lowans cannot meet basic needs and the poverty
rate is higher in Dubuque. The Low Poverty Index is based on the poverty rate and captures poverty in a
given neighborhood with the poverty rate is determined at the census tract level. Poverty Index values
are inverted meaning the higher the score, the less exposure to poverty in a neighborhood.
Census tracts 5 (11 index score) and 1 (13 index score) hold the poorest neighborhoods in city of
Dubuque. Conversely the neighborhoods least impacted by poverty are located in census tracts 001204
and 001205 in the Western Edge both with poverty index scores of 93.
HUD Affirmatively Furthering Fair Housing Data and it9apping Tool
_ _ Legend
-��������. �: � � � ��, J�irisdicfion
II�II�II ` � �
� �•<'_ (�•. �� �
� � RACT
� Law Povertylndex
v 0-10
= = _ _ -- " 10.1-20
".F=. ��::;;!�,_.,ti.!�. .: ... . a'!.:. :'. �.' . .. .....
.c.§� :. ..� .... .: .n: : �.�- ,x: �.,
.-� . `.k ::.�- 20.1-30
30.1-d0
30.1-50
50.1-60
�,� G0.1-70
,¢';� 70.1-80
, 80.1-90
, 90.1-100
-FFHTOOud�Een_HEREf1P- __ _�,(.�7�.����,/Zp�B LowPovertylndex:�atanot
Name:Map 12-Demogrephics and Poverty Avsilable
Oescrip�ion:Luv+Po�rertg Index with raceiethnicity.national origin.famity status and RlECAPs � ��
Jurisdiction:�ubuque(WBG)
Region:Dubuque.lA
HUO-Provided Data Version:AFFHT0004
Rgure 32 Low Poverty Index Map.Source: HUD AFFHT0004
The map that follows adds further context to poverty in Dubuque by mapping the percentages of
families within block groups who are living below the poverty level. At 36.7% Block Group 1—Census
Tract 1 has the highest rate of families in poverty.
mm.._m<am.x.ieW�e..m�.v.i .. . , '.
Y.S'Crt[SYm�s'i=�ees _
I � i.
I
I I'
. � ��� \ 4. � '1
l �§( �/
1 �' � " I
�, � - '� � " � }
�
- J�-.� - - `°e° �.
� �
� � ,�. �, � n�.,n rw. ma.....
�/ I4 rk+.+.1e
. .. " .• . Q.w FK�Q�1 WN�v]
� - - .. L ' 3-7 �� n.�ax.vo
�
. . . �f/�� S¢ *.n�
= .. -� .�.y...�
.. . ,...._ ....�.v'
_ :......�:',
- ' _ '....:��
: � � _. � _ ��'���-�'
� _ :... :.:.
_ :..,
Rgure 33 Percentage Famllles Llving Below Poverty LeveL Source:ACS 2017 5-Year Estlmate, Soclal Explorer
The Poverty Thresholds for 2018* are provided below for additional real-life context. As an example,
the poverty threshold for a family household with two adults and two children is$25,465 annual income
or less.
Povvrty Thrasholds f:�r90�R by Si�e of Family�nd Number of Relaied Children Under 18 Years
One oe¢on(unrela[ed fndWfdual): 12,754
Underzge65.............................. 17,064 -3,064
Aged65ondoldec....._.._.._.._._ 12p�3 _2,043
Two aeople: 16,24
I louse�older u nder age 65..._.... 16,&II9 :6,915 1�,70II
House�olderaged65andolder... 15,103 C5,1'8 1],242
ThreepecPle._.._.___.._.__._._.... 19�85 :9,642 2Q2_2 2q231
Fourpeople................___.___._ 25,701 25,��00 26.323 25,465 'S,554
Faep2oPle.........................__....... 30,459 31.84 31659 30,I1S 29,96� -L9.509
Sixueaole..._.._._.._.._....._.__._... 34.`33 35825 36.068 35,324 34,612 33.553 32925
Sea=iPeoPle..............__.....__._. 39794 A1,33G 31.594 40,'OS 4Q085 3$929 37,Sd1 3Q102
Eishtpeopla........__.................._.. 43,602 �6,�31 46,640 45.800 45,064 44,021 42,690 41,3ll 40,967
�in2peopleormore.._.___.._....... 5_,393 55,613 55883 55,_40 54,516 53,491 52,082 SC,80� 50,491 4&,54E
Sewrce: U.S.CensusBureau.
Rgure 34 2018 PovertyThresholds.Source:Census Bureau
*Note:This table provides the most recent(2018) Census Bureau guidelines whereas most of this AI
uses ACS Five Year 2013-2017 data.
A significant variance is reported between the Median Household income:
• The median income is$50,171 (ACS 2017)
• For White Alone householders, the median income is$52,346 (in 2017 inflation adjusted dollars)
and for African American householders it is$14,818.
• The 22%Gender Income Gap(females less than males) disparately impacts all households but
especially female-led households (2,617) which are nearly 19%of the percent of total family
households (13,888) in Dubuque.
Median income for families highlights the differences between census tracts with median income
generally increasing as distance from the downtown area increased. In 2017,the place with the highest
Median Household Income was Census Tract 101.05 with a value of$83,050,followed by Census Tract
8.02 and Census Tract 8.01,with respective values of$72,404 and $65,114.
School Proficiency Index
School proficiency is viewed by HUD as an indication of the quality of education that is available to
residents of an area. High quality education is thought to be a vital community resource that may lead to
more opportunity and improved quality of life. Importantly, Dubuque uses a neighborhood schools
model, meaning that schools are typically populated with the children from surrounding residences and
neighborhoods.
The school proficiency index uses school-level data on the performance of 4th grade students on state
exams to describe which neighborhoods have high-performing elementary schools nearby and which are
near lower performing elementary schools.The index ranges in values from 0 to 100. The higher the
score, the higher the school system quality is in a neighborhood.
The Dubuaue Communitv School District provides K-12 education through 11 elementary schools,three
junior high schools,one middle school,and three high schools. Dubuque also offers two private school
systems accredited by the State of lowa.
It should be noted that a growing body of research "debunks the idea that school quality is the main
determinant of economic mobility."xx"' UC Berkeley economist Jesse Rothstein's research found that
"differences in local labor markets—for example, how similar industries can vary across different
communities—and marriage patterns, such as higher concentrations of single-parent households,
seemed to make much more of a difference than school quality."�`"
Rosenstein concludes that factors like higher minimum wages,the presence and strength of labor
unions, and clear career pathways within local industries are likely to play more important roles in
facilitating a poor child's ability to rise up the economic ladder when they reach adulthood."�"'
Rosenstein's research, confirmed by international researchers and reinforced by the lowa Policy
ProjecYs 2019 "State of Workin� lowa" report, provides fodder for reflection as the City of Dubuque
undertakes its poverty prevention planning. In short,traditional thinking and poverty programming may
not advance its goal of equity and increased economic prosperity.
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
Legend
��.�III+III . '.����� 0 1 Jurisdiction
- II�II�II - � p
TRACT
� \
�
1�� School Proficienry Index
0-10
10.1-20
� 20 1-30
` 30 1-40
i
,401-50
, 50 1-60
� , 60.1-70
t�q�
' �� ' 70.1-80
�' , 80 1-90
, 90.1-100
-�- . - � School Proficienry Indez:Oata
[1ainE I�a_' '_ y epl.c ai I ����r�5ri�no,
not Available
Description:School Pmfinency Intlex for Junsdiction and Region with race/ethniciry.national ongin.family staws. � -
and RlECAPs
Jurisdiction:Dubuque(CDBG)
Region:�ubuque.lA
HU�-Provided Data Version:AFFHT0004
Rgure 35 School Proflciency Index.Source: HUD AFFHT0004
School Proficiency Index mapping above shows large areas in and around the downtown area only have
access to lower performing schools. These same areas also experience the highest levels of poverty
and/or racial/ethnic diversity. Lower performing neighborhoods include Lincoln, Prescott,Audubon,
Fulton and Marshall Elementary Schools and Thomas Jefferson Middle School.
One notable area is Block Group 4,Tract 5 which encompasses parts of the Washington and North End
neighborhoods. It has the lowest school proficiency ranking(1 index score), reports more than a quarter
(25.57%) of families live below the poverty level and where 37.32%of the population are children under
18 years (compared to the city as a whole with 20.9%under 18 years as of July 1, 2018, per U.S. Census
Bureau data): Dubuque residents are struggling with multiple barriers.
For additional context the map below shows percentages of children (all residents age under 18 years)
by block group as an indicator of where the concentrations of Dubuque's school attendees live (with the
exception of the under 5 years population).
mtalGopulation:Uneerlevears o�rd�q� �
Aa son IsvearEmmate.7
9+Nerille'
�
�% �Y
����
AsOury �0� ��
�+ �
N o�o�q�� . �
ovae.s��' ' ces� EE:� � e�d
o��o es
d �+buque,lA
-
!Aan�mi
Cumrnua
t�nwvxe ��'
.la 5':
Pr�-.�.a VS rvY �� S � �ti�bpSF
_ �
30i b NK
.� _ aC^:bB0':
_ a.n�5.
_ - .�oW�
uim� :9 _ .n�.
.d, < o��.ir.eie,ri��
Rgure 36 Percentage ofTotal Populatlon Underl8 Years.Source:ACS 2017 5-Year Estlmate, Soclal Explorer
School proficiency data from the Dubuque Community School District further highlights the challenges
that poor, English language learner, disabled and/or homeless students face. Further,disparity in
proficiency is seen based on race and ethnicity. An additional critical indicator,the lowa Department of
Education performance data English Language Learners dropout rate at significantly higher rates. (For
complete details, please see lowa Department of Education, Dubuque Community Schools Performance
State District School Performance (Dubuauel 2018.)
Finally,during community engagement that informed this AI,a focus group of school principals noted
how critical safe,stable housing is for their students. In particular, educators discussed how having to
move frequently for reasons of safety or affordability negatively impacts their students' learning. The
voices of Dubuque's educators confirm that housing has a profound impact on students and a
forthcoming survey of Dubuque educators as part of the Equitable Poverty Prevention Plan will shed
more light.
Jobs Proximity Index & Labor Market Index
The Jobs Proximity Index quantifies the accessibility of a given residential neighborhood as a function of
its distance to all job locations within a specific proximity. Values are percentile ranked with values
ranging from 0 to 100. The higher the index value, the better the access to employment opportunities for
residents in a neighborhood.
HUD Affirmatively Furthering Fair Housing Data and h1ap{�ing Tool
Legend
III�III����� - . _. � W7j E Jruisdiclion
y II�II�U >- �
r �
�5���� iRACT
� Jobs Proximily Index
�. � 0-10
� � 10.1 -20
� � 20 1 -30
i . � 30_1-40
10_1 -50
, 50 1 -60
, 60_1 -70
, 70.1 -BO
� 80-1 -90
, 90_1 -10�
— E_ —E-.E ',_'_ �at=_�reatad�.77,hEi2019 Jo6s Proximity Index:
Name:PAap"o-�emoyraplGcs and.h�b Fruai--ity Available
Description:Jobs Pmximlty Index firJuned'mtion and Region with race�ethnldi�y_netionel ongin_femlly atatus and �
RiECAPs
Jurisdiction:�ubuque(CDBG)
Region:Oubuque.lA
HU�-Provided�ata Version:AFFHT0004
Rgure 37 Jobs Proximlty Index.Source: HUD AFFHT0004
The Labor Market Engagement Index provides a summary description of the relative intensity of labor
market engagement and human capital in a neighborhood.This is based upon the level of employment,
labor force participation, and educational attainment in a census tract. Values are percentile ranked
nationally and range from 0 to 100. The higher the score, the higher the labor force participation and
human capital in a neighborhood.
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
Legend
:`���.�III�I'I .. � � ' � Jurisdiction
`, II�II�D �
TRA�T
- N,� Labor Market Ind
- F'- ���'7 / 0-10
t ,�{ii
.� �. _ � 10_1 -20
. _. .. 20.1 -30
,.��=
� 30.1 -40
��", ' 40.1 -50
, 50.1 -60
, 60-1 -70
, 70 1 -80
� , 60.1 -90
, 90.1 - 100
- - �- - - � -� Labor Market Ind
>__._.
Idame: r�1ap 5-G.,�o�rapFn�s and Lahor P.1arket Available
Description:Labor Engagement Index with race/ethnicity.national origin_family sta[us and R�ECAPs � �-
Jurisdiction:Dubuque(CDBG)
Region:Dubuque.lA
HUD-Provided Data Version:AFFHT0004
Rgure 38 Labor Engagement Index.Source: HUD AFFHT0004
In 2017, 31,687 residents or 66.6%of Dubuque's population aged 16 Years and Over were employed.
The unemployment rate was 3.2% in 2017 but has subsequently decreased to roughly 2.3% (reported
August 2019) which is lower than the national average of 3.5 percent and just below the lowa
unemployment rate of 2.5%. The unemployment rate for African Americans in Dubuque hovers around
15%.�""
In the recent study commissioned by the Community Foundation of Greater Dubuque around workforce
issues, human resources and business leaders stated that the most common barriers to unemployment
or under employment were for people of color and other Dubuque residents "soft skills."x""'City leaders
and residents should be aware that there is ample research on soft skills coaching and training, as well
as research that examines how racial discrimination and/or bias affects to employers naming"soft skills"
as the reason for not hiring or terminating employees. Scientific American's November 2019 edition
provides a simple roadmap for helping employers improve how they define and look at"soft skills."�`""
Importantly, community perceptions of poverty and people in poverty illustrate a negative orientation
that may have an equally detrimental and disparate impact on labor market engagement. The Equitable
Poverty Prevention Plan will provide evidence-based and promising approaches to creating greater
economic prosperity that will have a positive impact on poverty in Dubuque,thus labor market
engagement is not fully examined here.
Neighborhoods with jobs in close proximity are often assumed to have good access to jobs. However,
distance alone does not capture any other factor such as transportation options,the type of jobs
available in the area,or the education and training necessary to obtain them. There may be
concentrations of jobs and low-income neighborhoods in urban centers, but many of the jobs are
unattainable for residents of low-income neighborhoods. For example,Teska Associates, Inc.'s 2019
market analysis shows that unemployment is higher in the Washington Neighborhood, ranging from
4.1%to 6.24% based on the Census Tract compared with 2.3%citywide. Unemployment in surrounding
Census Tracts in the Washington Trade Area range from 2.7%to 10.3%.
tia•;�r:dlr
Map Legend
°/ Unemplayment
� [2.19°�0
�
` � 2.19-3.68%
� 3.68-5.33°/a
� 5.33-7.29°10
, >Z29°/
Rgure 39 Unemployment Rate.Source: HUD CPD MappingTool
None of these data will be surprises to Dubuque leaders who have carefully studied the issues of
poverty for over a decade. Further, Inclusive Dubuque's Equity Profile has already provided the
community with critical information about the impact of race/ethnicity on opportunities. Nevertheless,
the fair housing plan includes key actions that, in concert with other community plans and actions, can
advance equity.
Low Transportation Cost Index & Transit Trips Index
The Low Transportation Cost Index estimates transportation costs for a family that meets the following
description: a 3-person single-parent family with income at 50%of the median income for renters for
the region. Values are inverted and percentile ranked nationally,with values ranging from 0 to 100.The
Transit Trip Index considers trips taken by a family that meet the following description: a 3-person
single-parent family with income at 50%of the median income for renters. Values are percentile ranked
nationally,with values ranging from 0 to 100. The higher the transit trips index, the more likely residents
in that neighborhood utilize public transit.
Community participants in the development of this AI commented that transportation can still be an
issue. Several women in the Gaining Opportunities workshop mentioned that they need a reliable
vehicle to access the Peosta branch of Northeast lowa Community Colleges in order to take advantage
of Opportunity Dubuque courses.
Imagine Dubuque incorporates some strategies for more transportation options and City staff need to
be cognizant that something other than single-occupancy vehicles are needed for those who cannot
drive or afford to maintain a reliable vehicle. Multimodal projects should be prioritized in Dubuque's
transportation improvement plan. For transit services, Dubuque may wish to consider community
mobility hubs,which incorporates features to facilitate several modes of a trip. Mobility hubs would
include transit service, bike storage, bikeshare stations, parking for car sharing services, parking for taxis,
parking for private vans or shuttles,and electric car charging stations.
Per HUD, the average auto ownership costs per year are between approximately$4,500 and $9,500 per
year depending on household type and assumptions.
•
1. Median-Income Family MHHI 4 2 $ 8,746 $ 120
2.Very Low-Income Individual Nat'I poverty 1 1 $ 4,451 $ 44
line
3. Working Individual 50%of MHHI 1 1 $ 5,556 $ 31
4. Single Professional 135%of MHHI 1 1 $ 7,035 $ 20
5. Retired Couple 80%of MHHI 2 0 $ 5,283 $ -
6. Single-Parent Family 50%of MHHI 3 1 $ 6,184 $ 68
7. Moderate-Income Family 80%of MHHI 3 1 $ 6,920 $ 61
8. Dual-Professional Family 150%of MHHI 4 2 $ 9,541 $ 109
Source:Location Affordability Index(LAIJ data(v.3J,2012-2016
Rgure 40 Average Auto and Translt Costs by Household Proflle. Source: HUD
Transportation and Transit maps that follow show households more likely to take public transit.
HUD Affirmatively Furthering Fair Housiny Data ac� Nl�:pp�ny Tool
- Legend
—z���
�.�III�III . W� Ju�risdic[ion
TRACT
,,:{ Low Transporta[ion Cos�Index
F' � :.
0 10
� '(" ��7� ID.1-20
' .,,�i' 20_t-30
� �-�(� . 301-40
W
,401 50
, W 1-60
, 60.1-70
, 70 1-80
� ���� � 80,.90
, 90 1-100
���' -�Fnl . . .i�i.HFF.E PIFS -sr-_a�e n�Pi�201� LowTransporta[ionCos�lndex:
Hame:fNap 11 �Damo�;�raphics and Lmti T�anspotla�lvn Coe� �am nolAvallable
Descrip�io¢Lo;v Transportation Cost Index•ni�h ace/e�hnicity na�ional ongin family s�a�us and FIEGAPs '�
Jurlsdicllon:�ubuque(CDBG�
Region:Dubuque.lA
HU�.Provided Ua[a Version:AFFHT0004
Rgure 41 LowTransportatlon Cost Index.Source: HUD AFFHT0004
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
-a�_. . . �e9eiie
` IIIGVI•..' ..�JY o I W� J�saitlion
TPAQ
iransi�Tripslntlex
0-10
t01-ID
� 20 1-30
30 1-d0
JO 1-50
��01�fi�
Veoi��o
\�o i so
P \aoi-so
V eo i-ioa
. . .rFHi���= t,�.�t.t.u�s �i ._�:.i i ��_ i���sar,nsi�ae.:oe��m
xeme:Mapio-o3�oeapm�sa�ara�s��r,�ru n�ensoie
oeu��vno��,r�a�,sn r��v�ioaex ro�d���sm�no�,a�,a�ee�o�,�,�n�a�we�n�,���ry.�avo�,ai o�;e�o ram�ii s�aws a�,a
wecaas
d���:ai�noo:o�e�q�e�coac�
aee�o��:o�m��a��e.in
xuo a�o�mea oere ve�:�o�:nFFrrt000a
Rgure 42 TransitTrips Index.Source: HUD AFFHT0004
According to the Center for Neighborhood Technology's Housin�+Transportation Affordabilitv Index,
Dubuque housing and transportation combined costs consume 44%of the families'total incomes.
Single-occupancy driving of car, truck or van is the most common form of commuting(80.3 percent) and
the average work commute for City residents is 14.5 minutes. Compared to the rest of the country,
Dubuquers spend much less time in their cars going to and from work.
Transit services and public transportation have been significantly improved since the 2015 Analysis of
Impediments.The City reports that over the past 5 years, the public transportation system has been
expanded to increase accessibility for individuals with disabilities and low income populations. Routes
have also been changed. The Jule now offers fixed route bus and door-to-door paratransit mini-bus
service throughout the City:
• Rack & Ride. All Jule buses are equipped with bike racks for passengers to use free of charge with
the purchase of a regular bus fare ticket.
• Nightrider. During the college school year fixed route and minibus weekend evening service is
available 9 p.m. to 2:40 a.m.
• Accessibility. All Jule buses are equipped with ramps and/or lifts to accommodate mobility
devices. All Jule facilities and bus stops are accessible in compliance with the Americans with
Disabilities Act(ADA).
Additionally, a door-to-door service for seniors is provided by a local nonprofit: DuRide. DuRide offers
private car service 365 days a year and all DuRide volunteers complete a background check, hold a valid
driver's license,and proof of insurance.
However, as mentioned above, community participants in this AI reported that transportation is more
difficult for households who are unable to utilize an individual automobile to get to a full service grocery
store for instance, or to Peosta (where a branch of Northeast lowa Community College is located).
Food Access
� �
�Low Income 8 Low Access Layers 2015 � _ �� �
°e
LI and LA at 1 and 10 miles ! . � , �..
LI and LA at 1/2 and 10 miles � — � l.�.hur; '-���-- �
i
LI and LA at t and 20 miles � �� �_�U F � '
a �.
LI and LA using vehicle access � �� ak �,e`� . �'��k ��E,75� pUbllqUc
\
" ' c
/���NO
;-f _
Rgure 43 USDA Food Access Research Atlas
While slightly older data,the U.S. Department of A�riculture's Food Access Research Atlas map above
gives a spatial overview of food access indicators for low-income and other census tracts using different
measures of supermarket accessibility. The map shows food access by census tract based on 2015 data
and distance one would need to travel to reach a full service grocery store—the same areas within
Dubuque where residents are more likely to live in poverty and rely upon public transit.
Environmental Health Index
The Environmental Health Index measures exposure based on EPA estimates of air quality carcinogenic,
respiratory and neurological toxins by neighborhood. Values are inverted and then percentile ranked
nationally. Values range from 0 to 100. The higher the index value, the less exposure to toxins harmful to
human health. Therefore, the higher the value,the better the environmental quality of a neighborhood,
where a neighborhood is a census block-group.
Unfortunately, large parts of lowa do not have any data, and there is little to no variance among the
areas that do have data available. For Dubuque, there are variances again in the tracts where poverty is
most concentrated.
HUD Affirmatively Furthering Fair Housing Data and Mapping Tool
� Legend
-���III� Jurisdiction
�
�
� HACT
`. .
Enuimnmental Healt.
/ 0-10
10_1 -20
� 20_1 -30
�0_i -40
i
�1 90_1 -50
�`Yt .
50_1 -60
GO_1 -70
� ?0_1 -BO
� � b0_i -90
' SO_i -100
_._� ,;
-, . ���:imnmen[alHealt.
tlame: L-la_ 1 G o�rarri �an�Bv.im�� �erital Health Jata notAvailable
Oescription:Envimnmental Health Index with rece�ethnicity.na[ional origin.family sta[us and RrECAPs -
Jurisdiction:Oubuque jCDBG)
Region:Dubuque, lA
HU�-Provided�ata Version:AFFHT0004
Rgure 44 Environmental Health Index.Source: HUD AFFHT0004
Racially or Ethnically Concentrated Areas of Poverty
HUD's Racially or Ethnically Concentrated Areas of Poverty (HUD R/E-CAP) indicator requires
identification of any geographical area that exceeds concentrated areas with residents who are not non-
Hispanic Whites. Analyzed at the block group level, the HUD R/E-CAP benchmark for Dubuque is a
concentration of residents of color greater than 50% because Dubuque is considered a micropolitan
area. No block group or tract in Dubuque reaches the R/E-CAP criteria.
Dissimilarity Index
The dissimilarity index is a commonly used measure of community-level segregation. The dissimilarity
index represents the extent to which the distribution of any two groups (frequently racial or ethnic
groups) differs across census tracts or block-groups. Index values range from 0 to 100.A high value
indicates that the two groups tend to live in different tracts. A value of 60 (or above) is considered very
high. It means that 60% (or more) of the members of one group would need to move to a different tract
in order for the two groups to be equally distributed. Values of 40 or 50 are usually considered a
moderate level of segregation, and values of 30 or below are considered to be fairly low.
Due to HUD's technology system's data tables and some maps (AFFH) being nonfunctional during this AI
report development, alternative and older data sources for Dubuque are used below. What is crucial to
note is that some indices become unreliable or have little meaning where a specific racial/ethnic group
is very small in Dubuque.
NJhite-Black�Black-White '`�,y�
o;z
White-HispanicfHispanic-White �_8
zss
White-AsianJAsian-White ��
u.6 � 1980
rsa � 199�
�s8i �2000
Black-Hispanic!Hispanic-Black �2WS�9AC5
188 3t5 ��10
38 9
Black-As ianJAsian-Black
46 9
3f.1
HlspanlrAslsnlAslan-Hlspanlc '_��� __
� 20 4� 60 SO la0
Rgure45 Dlssimllaritylndex.Source: https://s4.adbrown.edu/prolects/dlversltv/Indexhtm
Isolation Index
The isolation index is the percentage of same-group population in the census tract where the average
member of a racial/ethnic group lives. It has a lower bound of zero (for a very small group that is quite
dispersed) to 100(meaning that group members are entirely isolated from other groups). It should be
kept in mind that this index is affected by the size of the group-- it is almost inevitably smaller for
smaller groups, and it is likely to rise over time if the group becomes larger. With Dubuque's
overwhelming white population,the isolation index provides minimal value.
��
VJhite-�°lhlte :°�.s'e
9'S
.6
Black-Black s � �y�
9] � 1990
a� �2000
Hispanic-Hispanic �����6 �2W5-09ACS
33 �2(110
as
Asian-Asian
'a'
D 20 40 60 SO 1�0
Rgure 46 Isolatlon Index.Source: https://s4.adbrown.edu/prolects/dlversltv/Indexhtm
Non-HUD Factor: Child Care
While HUD does not include child care within its indices, it arguably has a greater impact than
transportation and transit. Of Dubuque households that have children under 6 Years,81.3 percent
report that All Parents from that household are in the labor force, presumably creating a demand for
child care. According to the lowa Child Care Resource and Referral,the number of child care programs
have declined across lowa by 42%from 2013 to 2018. In Dubuque, an estimated 37 percent of child care
facilities have closed over the past 5 years.
The community is well aware of child care scarcity and its impact on employment opportunities. The
2016 Child Care Needs Assessment commissioned by the Community Foundation of Greater Dubuque,
included a survey of residents and found that:
• Almost half(48.8%) of respondents reported that child care responsibilities had caused them to
turn down a job or work fewer hours;
• Over a quarter(25.2%) reported doing so as a result of not being able to afford child care; and,
• A little more than one in five (21.7%) turned down a job or worked fewer hours when they could
not find child care. Survey results also show that low-income families have turned down jobs at
significantly higher rates than middle- to high-income families.
Finally,the lowa Policy Project reports that for a single parent, child care makes up 18 to 19%of the
family budget expenditures.�"x
Opportunity Zones
Established by Congress in the Tax Cuts and Jobs Act of 2017, the Opportunity Zones initiative is a
community development tool that provides investors with tax benefits for making long-term
investments in economically-distressed communities nationwide.The census tracts designated as
Opportunity Zones include some of the most impoverished neighborhoods in both urban and rural
areas, containing roughly 10 percent of the nation's population.
Dubuque has two tracts designated at Opportunity Zones with the Washington Neighborhood spanning
these. Not surprisingly much of this AI report focuses on these areas of need.
�.,,.
�_ ,�
�,�y
�,.,
�.�.,
���_. ��w••
$ a"�a..:d
wew.. n�",- t
�t
e�° w'
+�'.M � '
n e`..::. e d �
� M aMue,u
� ���rA M.p rpa �m.. I r��rm oueueu� �PoUMe�biR
J
Y I
��S I,. oau.iwv..m. R .m.n�o.�.....er�
Rgure 47 OpportunityZones.Source:Social Explorer
Summary
Access to opportunity will be a key component of poverty prevention planning and thus is not detailed
fully here.The City has long been aware of the concentration of poverty and its impact on the
community. With respect to students, some successful action has been taken through the grade-level
reading initiative. Dubuque will collaboratively tackle poverty and race through the Equitable Poverty
Prevention Plan in the coming year. Meanwhile, it is suggested that the City begin taking steps to incent
a full service grocery store into the downtown core.
-�� ,: _, �--�-
- -. - �,
� � ' _tii i� �^- L
r� .�'�`� � w `�
Ert-f +� � y � '.� �s , �
� �4 6 t ,i� � —� i . Sti _
��. �� :� i. � �� � y �
�-�,'�,"�bj�-�F, y�_ ,a � - ` ` I� � � � _, �� ,,�. _ ,_ ��
.. � � � �T#'� 'tl ' _ '�j � 7 � 4_
� �r �, � �`�
y a ' � +�-�i �, -�' r -�� ti ' }I S.i ' '7� ..
�j 1 3
� .-_� .�I �.._�t4;1 � �`, ` ,`4T� � � ��R:_�,�1 —I � 'T � �`-L
' .'.��, �� � � � �.i -n . � . �d� F '�yQL �7
_,.
ti � ( .�� � . ' .� .� �� : �...�i t �'.I
_ 1 � �L -r�. L ;�� -� -n$&iG��+� ��p . �'�'y�.� —`���''� � . �51""'� d i° ;.� � r-
� ' �79.��� ... . . ..
fet�-r_ i `- `1d
- ����-�� � � _� � ��.�a—,,,.i ,_� •iy .
, r ' _ _ - _'
_ ' ��
VIII. 2019 FORWARD: DUBUQUE FAIR HOUSING
The fair housing barriers identified through AI research are provided in the table below. A priority
ranking of actions, per HUD's AFH tool,are assigned based on:
• The significance of the barrier in limiting housing choice,
• The significance of the barrier in contributing to segregation, and
• Ease of implementation (12-24 months).
Generally speaking, medium priorities are equally vital but cannot be implemented with the timeframe
of High Priorities.This plan and its activities span a five year period.
Key themes that serve as the foundation for 2019 plan include:
• Potential Bias & Discrimination
• Available, Affordable Housing
• Cost Burden & Living Wage
• Substandard Housing
• Access to Opportunity
The 2019 proposed fair housing plan embodies fewer goals than the City of Dubuque's last plan but
includes a greater number of action items. Some goals and actions are carried forward from the last
plan. Other action items are already underway, such as assessing the service array and considering
better coordination and thus are assumed to be achievable in the near-term. Last, making fair housing
progress will strengthen the city and accelerate it toward reaching the vision of a more viable, livable
and equitable community.
Importantly, the City should establish a clear structure and process for overseeing the implementation
of actions to overcome the impediments identified. This can involve two things: (1) creating a SMART
plan (specific, measurable,agreed upon and time-bound); and (2) creating a new accountability group
responsible for oversight of progress under the fair housing plan.
Given the number of housing recommendations generated by the community for Imagine Dubuque,and
the robust interest of residents who participated in this AI, it appears that the community is compelled
by housing needs and fair housing choice issues. If the City chooses to create a new group or sub-
commission to oversee the fair housing SMART plan,the group's composition should be diverse in terms
of age,sex, race and ethnicity. It should include residents that have been advocates for fair housing in
the past and engage other individuals not be currently involved in committees and commissions.
Benefits of this approach include advancing a new civic leadership opportunity, increasing City
transparency, and building greater trust.
2019 Proposed Fair Housing Plan
: � • •• � •
Goal One: Advance equity with fair housing advocacy, education and enforcement.
Housing Choice Vouchers are High Continue obtaining accurate Housing Choice Voucher
not accepted as source of data from landlords as to the number of units, location
income for rental units. of units,vacancies, and denials of rental applications;
identify landlords unwilling to accept HCVs and conduct
targeted outreach and education.
Lack of communication and Medium Implement communication and trust-building activities
relationships between HCV for landlords and HCV program participants such as
tenants/applicants and "Meet and Lease' events or other national promising
landlords. approaches.
Human Rights Commission High Conduct an assessment of HRC and support capacity
effectiveness. building efforts, including publication of a strategic plan.
Fair housing materials not High Review the inventory of fair housing education materials
available in languages spoken (e.g. fact sheets) and update to reflect the languages
in the community. spoken in the community and what community
members say they most want and need.
Residents report they High Establish an external, independent fair housing testing
perceive bias and program for residential,accessibility, sales and lending,
discrimination in public or insurance discrimination to identify the problems
assisted and private housing members of protected classes face when seeking
practices. housing in Dubuque.
Goal Two: Increase and promote safe, affordable housing.
Lack of affordable,safe High Continue implementation of the Imagine Dubuque
housing. strategies, and the City Housing and Community
Development DepartmenYs efforts to affirmatively
further fair housing through licensing and tiered
inspections, making decisions more transparent.
Lack of confidence that the Medium To build community trust, publish short(e.g. one pager
City is focused on equitable and/or data dashboard if possible) updates regarding
housing choice for all the increase in safe, affordable housing.
residents.
Recent predatory pricing High City Council should take any and all appropriate action
practices by Mobile Home to protect the residents in mobile home communities.
community owners are This protection may come in the form of an ordinance or
pricing people out of their other action that promotes safe, affordable housing for
residences. the over 800 Dubuque residents who live in mobile
homes.
Goal Three: Implement local government policies that encourage equity and decrease disparate
impacts.
Arrest records used as a High Audit the background check process for disparate
barrier to acceptance of HCVs impact.
and background check process
is confusing to residents.
Lack of eviction data and High Implement quarterly review of eviction data to evaluate
analysis to assess for disparities/discriminatory impact.
discrimination and disparities
and provide support to
residents facing evictions.
Lack of living wage that Medium Educate regarding the impact of the state's current
empowers self-sufficiency; minimum wage and conduct activities to increase
state law prohibits local wages.
control over minimum wage
setting.
Lack of a Source of Income High Continue exploring a Source of Income Ordinance.
Ordinance and/orstate
legislation creates disparate
impact on protected classes.
Lack of access to child care is a Medium Evaluate the potential for including child care proximity
barrier to opportunity such as into housing development proposals and assess the
employment. feasibility of a local subsidy to support child care and/or
preschool accessibility,affordability and quality.
Goal Four: Increase access to opportunity and the building of social capital.
Lower median earnings and High Assess, develop and implement metrics and strategies
wages for women. to reduce the Gender Wage Gap.
Negative perceptions about High Increase community awareness about the impact of
poverty impact fair housing poverty and toxic stress on the brain; develop
and access to opportunity. measurable equity and inclusion metrics.
Law enforcement actions High Evaluate disparities in arrest rates by race and detail
disproportionately impact metrics and actions to decrease racially
people of color. disproportionate arrest rates.
The nonprofit service array is Medium Use assessments currently underway (Equitable
confusing to consumers. Poverty Prevention Plan process and another group's
review) regarding the nonprofit services array and gaps
to make necessaryim provem entsthatincrease access
to opportunity.
Lack of public transit may Low Assess the need for public transit to Northeast lowa
negatively impact access to Community College programs in Peosta and make
educational opportunity. improvements as indicated.
Rgure 48 2019 Impedlments, Goals and Actlons
CONCLUSION
Housing is a community's greatest asset and arguably the key indicator of a community's health. The
City of Dubuque is an award-winning community that has earned positive recognition to be proud of:
• All-America City- 2019, 2017, 2013, 2012, 2007
• LEED-Certified City- 2018
• Driftless North End Designated as lowa Great Place- 2018
• Leading Environmentalism and Forwarding Sustainability (LEAFS) Award - 2018
• Livability Award for Bee Branch Project- 2017
• Ranked #12 of"30 Best Small Cities in the United States" - 2017
• Bee Branch Project Recognized for Excellence and Innovation in Clean Water Infrastructure -
2017
• National Diversity Award - March 2016
Despite these honors, one in six Dubuque residents lives in poverty (16.3%). With poverty and housing
inextricably linked, impediments to fair housing choice include the lack of affordable housing,
substandard housing and excessive cost burden of housing. A chief concern is landlords' reluctance to
accept housing vouchers as the source of income for renters. Residents' housing choices are also
restricted by poverty and the low State minimum wage that have not kept pace with the cost of housing
and cost of living.
The City wishes to attract new businesses and ensure that current residents have the opportunity to
thrive. IYs comprehensive plan, Imagine Dubuque, provides strategies to improve housing choice and
the livability of neighborhoods. A forthcoming Equitable Poverty Prevention Plan will provide additional
strategies for increasing equity within the jurisdiction.
This analysis notes that progress was not made on some past fair housing goals. Consequently, actions
toward those goals are included in this proposed five-year fair housing plan. In particular, fair housing
enforcement and source of income protections will be important building blocks to making the
community more equitable for all residents. It almost goes without saying that the expansion of safe,
affordable housing units is key to the future of Dubuque. Together with Imagine Dubuque and the
forthcoming Equitable Poverty Prevention Plan,addressing fair housing impediments and related
contributing factors can result in community transformation and ultimately, the achievement of
Dubuque's vision for a viable, livable and equitable community.
END NOTES
" U.S. Department of Housing and Urban Development Office of Fair Housing and Equal Opportunity. Fair Housing
Planning Guide:Volume 1,Chapter 1:Fair Housing Planning Historical Overview page 13.Accessed at
https://www.hud.aov/sites/dfiles/FHEO/documents/Fair%20Housina%20Plannina%20Guide 508.pdf.October
2019.
"Munson, Kyle. "Cross Burnings in Dubuque Show the City is Still in Turmoil Over Race." Des Moines Register(April
22, 2016; https://www.desmoinesreaister.com/storv/news/local/kvle-munson/2016/04/22/cross-burninas-
dubuque-show-citv-still-turmoil-over-race/83229444/.Accessed October 2019.
Id.
'"Babb, Daniel, Bailey,Jody et al. "Portrait of Poverty in Dubuque, IA" 2010.
https://outreach.uiowa.edu/proiects/dubuque-portrait-povertv-dubuque.Accessed November 2019.
"Barton,Thomas. "EXCLUSIVE: New poll shows safety, race relations top concerns for Dubuque residents,
Telegraph Herald,January 28, 2018. https://www.telearaphherald.com/news/tri-state/article e6bfb8c2-529f-
Sc67-8913-f0e16baa14d3.html.Accessed October2019.
"Id.
"'City of Dubuque, HUD Voluntary Compliance Agreement.
https://www.citvofdubuque.ora/DocumentCenter/View/22707/VCA FuIlvExecuted 033114---Web?bidld=.
Accessed October2019.
""Gould, Elise. "Wage Growth for Low Wage Workers Has Been Strongest in States With Minimum Wage
Increases." Economic Policy Institute. March 5, 2019.Accessed at https://www.epi.ora/publication/waae-arowth-
for-low-waae-workers-has-been-stronaest-in-states-with-minimum-waae-increases/. November 2019.
"National Low Income Housing Coalition, "The Gap:A Shortage of Affordable Homes March 2019."
https://reports.nlihc.ora/aap.Accessed November 2019.
'lowa Legal Aid. https://www.iowaleaalaid.ora/resource/can-i-expunae-mv-adult-criminal-conviction-in-
1?ref=v3uf1. Accessed December 2019.
xi U.S. Departmentof Housingand Urban Development, HUDANNOUNCESNEW PROTECTIONSFORVICTIMSOF
HARASSMENTAND SURVIVORS OF DOMESTIC VIOLENCE(September 16, 2016).
https://archives.hud.�ov/news/2016/pr16-134.cfm and also see Office of General Counsel Guidance on
Application of Fair Housing Act Standards to the Enforcement of Local Nuisance and Crime-Free Housing
Ordinances Against Victims of Domestic Violence, Other Crime Victims, and Others Who Require Police
or Emergency Services. https://archives.hud.eov/news/2016/pr16-134-FinalNuisanceOrdGdnce.pdf.
Accessed November 2019.
"'American Bar Association, "Resolution,August 14-15, 2017." https://www.housinamobilitv.ora/aba-resolution-
119a-urai na-u-s-aovern ments-to-e nact-leai sl ati on-p roh i b iti na-d iscri m i nati on-i n-housi na-on-the-basi s-of-I awfu I-
source-of-income-adopted-bv-aba-housina-of-deleaates-auaust-14-15-2017/.Accessed October 2019.
"" Fair Housing Improvement Act of 2018 (5.3612), introduced by Senators Hatch and Kaine,
https://www.conaress.aov/bill/115th-conaress/senate-bill/3612,American Housing and Economic Mobility Act(5.
3503), introduced by5enator Warren, https://www.conaress.aov/bill/115th-conaress/senate-bill/3503,and a
companion bill (H.R.7262) introduced in the House by Reps. Richmond,Cummings, Lee,and Moore
https://www.conaress.aov/bill/115th-conaress/house-bill/7262.Accessed October 2019.
""HUD Office of Policy Development and Research, "Landlord Participation Study." February 11, 2019.
https://www.huduser.aov/portal/pdredae/pdr-edae-research-052819.html. Accessed November 2019.
'"Jacobson, Ben. "Dubuque landlords to pay more than$50,000 to settle class-action lawsuit over illegal lease."
Telegraph Herald (November 6, 2019). https://www.telearaphherald.com/news/tri-state/article 85b50dbd-7db8-
51b4-816f-be9ab334f60d.html. Accessed November2019.
'"Sharkey, Patrick. Neighborhoods and the Black-White Mobility Gaps.July 2009.
https://www.pewtrusts.ora/"'/media/leaacv/uploadedfiles/wwwpewtrustsora/reports/economic mobilitv/oewsh
arkevvl2pdf.pdf.Accessed October2019.
"' Id.
'""HUD User Portal. https://www.huduser.aov/portal/periodicals/em/summerl2/hiahliahtl.html.Accessed
October 2019.
"'Alter, Ethan;Avre,Zack;and Slovin, Illan. Building a Lattice to Success:Workforce Inclusion &Community Co-
Creation in Dubuque, IA(May 2019).
https://www.dbqfoundation.ora/sites/default/files/reports/usa lab dubuque final report 2019.5.13.pdf.
Accessed October2019.
"lowa Policy Project, 2019 Research.Accessed at http://www.iowapolicvproiect.ora/2019Research/190924-COL-
Partl.html. November 2019.
"' Id.
�"'Gourevitch, Ruth;Greene,Solomon; Pendall, Rolf. "Place and Opportunity: Using Federal Fair Housing Data to
Examine Opportunity across US Regions and Populations,"June 28, 2018.
https://www.urba n.org/resea rch/p u bl icati on/p la ce-a nd-op portun ity-usi ng-fede ra I-fa i r-housi ng-da ta-exa m i ne-
opportunity-across-us-regions-and-populations.Accessed October 2019.
"'" Cohen, Rachel M. "Education Isn't The Key to a Good Income."The Atlantic. September 26, 20ll.
https://www.theatlantic.com/education/archive/2017/09/education-and-economic-mobilitv/541041/. Accessed
October 2019.
..�..�Id.
'" Id.
'""Alter, Ethan;Avre,Zack;and Slovin, Illan. Building a Lattice to Success:Workforce Inclusion &Community Co-
Creation in Dubuque, IA(May 2019).
https://www.dbqfoundation.ora/sites/default/files/reports/usa lab dubuque final report 2019.5.13.pdf.
Accessed October2019.
' " Id.
'""" Haubenstock, Luke, Lawrence,Jennifer,and Talanian, Karla. Scientific American blog. "Soft Skills in the Life
Sciences:To Reduce the Talent Gap, Companies Must Invest In Developing These Abilities." November 1, 2019.
Accessed at https://bloas.scientificamerican.com/observations/soft-skills-in-the-life-sciences/. November 2019.
""lowa Policy Project. Research 2019.Accessed at http://www.iowapolicvproiect.ora/2019Research/190924-COL-
Partl.html.October 2019.
APPENDIX
A. Definitions and Key Data Sources
Affordable Housing
Affordability of housing is relative to income generated per household. The most commonly used
statistic for gauging affordability is 30%of a household's income, meaning that a household spending
up to 30%of their income towards housing related expenses equates to affordability. Renters housing
costs, for example, may include utilities. Homeowner costs may include things like insurance, mortgage
payment and anticipated costs of repair,taxes and also utilities.
American Community Survey(ACS)
ACS is an ongoing survey conducted by the US Census Bureau that provides data estimates every year.
ACS data is used to show characteristics and trends in populations, not hard counts. In this AI,five-year
data is used when available to increase the accuracy and readers' understanding of trends; ACS five-year
estimates 2013-2017 are the primary data source in the City's 2019 Analysis of Impediments.
Community Development Block Grant(CDBG)
CDBG is a federal grant program administered by the US Department of Housing and Urban
Development(HUD) that provides funding for community development opportunities. For municipalities
with populations over 50,000 are called entitlement communities. The goal of the CDBG program is to
provide benefit to low- and medium income households to ensure affordable housing opportunity,
provide services to vulnerable populations,and support economic development opportunities.
Comprehensive Housing Affordability Strategy(CHAS)
CHAS data is a US Department of Housing and Urban Development(HUD) custom tabulation of ACS data
from the US Census Bureau that are not available through standard Census products. Datasets are
typically released a year behind ACS tabulations, but have increased precision of tabulations, especially
among housing-related data. These data are meant to demonstrate the extent of housing problems and
housing needs, particularly for low-income renter households.
Fair Housing Act(FHA)
The FHA is a broad statute that prohibits discrimination based upon race,color, religion, sex, national
origin, disability,or familial status in the majority of housing transactions. Everyone is covered by the
FHA.
Home Mortgage Disclosure Act(HMDA)
The HMDA is a data source supplied in part by mandatory reporting of loan applications within
metropolitan statistical areas. HMDA data is used in this report to show loan originations and denials
only, by race, for first-liens on owner-occupied housing.
87
Housing Choice Voucher(HCV)
HCV is a major program by the federal government to assist the very low income families,the disabled
and the elderly to access safe, sanitary and decent housing available in the private market. Often
referred to as "Section 8."
Housing Cost Burden
When a household spends more than 30%of adjusted gross household income on housing,they are
considered cost burdened. Households that spend more than 50%of their household income on housing
are considered severely cost burdened.
HUD Area Median Family/ncome(HAMFI)
HAMFI is a measure of inedian income by household calculated by HUD determined housing markets,
largely based on metropolitan statistical areas. While HAMFI does not provide the precision of a County
Median Income or City Median Income, HAMFI offers HUD the ability to adjust median income by
known household size in CHAS tabulations, providing more consistent data metrics across
demographics.
CDBG programs define"low-income' households as earning below 50%of the Area Median Income,
while under Section 8 Housing Assistance Payments a household earning 50%of the Area Median
Income or under would be considered "very low-income'. These income definitions vary by program
across all income levels. For the purposes of this report,a variation of the most common definitions is
used to describe the income levels of households of various sizes. These income categories are:
ExrrtEnnE�v Low-IruconnE (ELI) ELI households earn less than or equal to 30%of the HUD Area Family
Median Income as measured by MSA,adjusted for family size. Per HUD 2018 FY Income Limits,a
household of four(4) in Dubuque, IA MSA earning less than or equal to$27,500 annually would be
considered an extremely low-income household. These households fall into the broader low-income
classification.
VErtv Low-IruconnE (VLI) VLI households earn greater than 30% but less than or equal to 50%of the
HUD Area Family Median Income as measured by MSA,adjusted for family size. Per HUD 2018 FY
Income Limits, a household of four (4) in Dubuque, IA MSA earning greater than $27,500 but less
than or equal to$45,850 annually would be considered a very low-income household. These
households fall into the broader low income classification.
Low-IruconnE (LI) LI households earn greater than 50%but less than or equal to 80%of the HUD
Area Median Family Income as measured by MSA,adjusted for family size. Per HUD 2018 FY Income
Limits,a household of four(4) earning greater than $45,800 but less than or equal to$71,900
annually would be considered a low-income household.These households fall into the broader low-
income classification.
MooErtarE-IruconnE (MI) MI households earn greater than 80% but less than or equal to 100%of the
HUD Area Median Family Income as measured by MSA,adjusted for family size. Per HUD 2018 FY
Income Limits, a household of four (4) earning greater than $71,900 but less than or equal to
$91,700 annually would be considered a moderate income household.
88
MooErtarE ro Hi�ti-IruconnE (MHI) MHI households earn greater than 100% but less than or equal to
140%of the HUD Area Family Median Income as measured by MSA,adjusted for family size. Per
HUD 2018 FY Income Limits,a household of four (4) earning greater than $91,700 but less than or
equal to$128,400 annually would be considered a moderate to high-income household.
VErtv Hi�ti-IruconnE (VHI) VHI households earn greater than 140%of the HUD Area Family Median
Income as measured by MSA,adjusted for family size. Per HUD 2018 FY Income Limits,a household
of four (4) earning greater than $128,400 annually would be considered a very high-income
household.
lowa Finance Authority(IHFA)
IFA administers statewide affordable housing programs including mortgage and down payment
assistance,as well as programs that assist in the development and preservation of affordable rental
properties. IFA also offers programs to assist in community development and maintains a searchable
database—lowa Interactive Dashboard—a key data source for this AI.
U.S. Department of Housing and Urban Development(HUD)
The federal government agency that implements law, policies and programs related to housing and
community development. HUD was created to strengthen the housing market and fair access to it.
89
B. Table of Figures
FIGURE 1 2019 PROPOSED FAIR HOUSING PLAN..........................................................................................................4
FIGURE 2 CITY OF DUBUQUE CITY LIMITS:SOCIAL EXPLORER......................................................................................5
FIGURE4 COMMUNITYENGAGEMENT(PARTICIPANTS)SUMMARY.........................................................................12
FIGURES COMMUNITYWIDESURVEYPARTICIPANTDEMOGRAPHICS......................................................................18
FIGURE 7 WORDCLOUD IMAGE SUMMARY OF RESPONSES TO "OTHER"STRATEGIES...............................................19
FIGURE 9 POVERTY SURVEY 2019 RESPONSES(SNAPSHOT) ......................................................................................22
FIGURE 10 FAIR HOUSING COMPLAINTS SOURCE:CITYOF DUBUQUE HUMAN RIGHTS DEPARTMENT....................32
FIGURE 11 CITY OF DUBUQUE POPULATION CHANGE OVER TIME 2010-2018..........................................................36
FIGURE 12 US CENSUS BUREAU AMERICAN COMMUNITY SURVEY 5-YEAR ESTIMATES 2013-2017.........................36
FIGURE 13 LOW INCOME BLACKORAFRICAN AMERICAN ALONE POPULATION SOURCE:AC520175-YEAR
ESTIMATES, HUD CPD MAPS...............................................................................................................................37
FIGURE 14 AGE &SEX AS PERCENTAGE OF POPULATION. SOURCE:CENSUS BUREAU..............................................38
FIGURE 15 SOURCE: DATA USA DUBUQUE PROFILE AT HTTPS://DATAUSA.10/PROFILE/GEO/DUBUQUE-
IA#HOUSING .......................................................................................................................................................39
FIGURE 16 WORLD REGION OF BIRTH OF FOREIGN BORN RESIDENTS.SOURCE:ACS 2017 5-YEAR ESTIMATES,
CENSUSBUREAU.................................................................................................................................................40
FIGURE 17 HOUSEHOLDS AND FAMILIES.SOURCE:ACS 2017 5-YEAR ESTIMATES, CENSUS BUREAU.......................41
FIGURE 18 COUNT OF DISABILITY BY TYPE (ALL AGES)...............................................................................................42
FIGURE 19 FAMILY HOUSEHOLDS LIVING BELOW POVERTY LEVEL.SOURCE:AC520175-YEAR ESTIMATES, SOCIAL
EXPLORER............................................................................................................................................................45
FIGURE 20 ACS 2017 5-YEAR ESTIMATES, U.S. CENSUS BUREAU ...............................................................................46
FIGURE 21 EDUCATIONAL ATTAINMENT. SOURCE:ACS 2017 5-YEAR ESTIMATES, CENSUS BUREAU .......................47
FIGURE 22 SOURCE: DATA USA HTTPS://DATAUSA.10/PROFILE/GEO/DUBUQUE-IA#ECONOMY..............................48
FIGURE 23 SOURCE:SOURCE: DATA USA DUBUQUE PROFILE AT HTTPS://DATAUSA.10/PROFILE/GEO/DUBUQUE-
IA#HOUSING .......................................................................................................................................................48
FIGURE 24 CHART 9 HOUSING BY TYPE (COUNT). IOWA HOUSING FINANCE AUTHORITY 2019 ...............................51
FIGURE 25 HOUSING TYPES&HOUSEHOLD RACE AND ETHNICITY. SOURCE:ACS 2017 5-YEAR ESTIMATES............51
FIGURE 26 HOUSING STRUCTURESYEAR BUILT PERCENTAGES.................................................................................52
FIGURE 27 PUBLICLY SUPPORTED HOUSING.SOURCE: HUD AFFHT0004..................................................................53
FIGURE 28 HEAT MAP OF PUBLICLY SUPPORTED RENTAL HOUSING.SOURCE OF INCOME COMMITTEE REPORT
(DECEMBER 2018)...............................................................................................................................................54
FIGURE 29 PERCENT OF HOUSEHOLDS WITH HOUSING PROBLEM.SOURCE: HUD AFFHT0004.................................55
FIGURE 30 COMPREHENSIVE HOUSING AFFORDABILITY STRATEGY DATA REPORT 2019..........................................56
FIGURE 31 INCOME BY HOUSING PROBLEMS(RENTERS). CHAS REPORT 2019 .........................................................57
FIGURE 32 INCOME BY HOUSING PROBLEMS(OWNERS).CHAS REPORT 2019.........................................................57
FIGURE 33 HUD AFFH MAPPING.................................................................................................................................58
FIGURE 34 FUTURE LAND USE 2030 MAP. SOURCE:CITY OF DUBUQUE....................................................................59
FIGURE 35 LOW POVERTY INDEX MAP. SOURCE: HUD AFFHT0004...........................................................................65
FIGURE 36 PERCENTAGE FAMILIES LIVING BELOW POVERTY LEVEL SOURCE:ACS 20ll 5-YEAR ESTIMATE, SOCIAL
EXPLORER............................................................................................................................................................66
FIGURE 37 2018 POVERTYTHRESHOLDS.SOURCE:CENSUS BUREAU........................................................................66
FIGURE 38 SCHOOL PROFICIENCY INDEX. SOURCE: HUD AFFHT0004........................................................................68
FIGURE 39 PERCENTAGE OF TOTAL POPULATION UNDER 18 YEARS. SOURCE:ACS 2017 5-YEAR ESTIMATE,SOCIAL
EXPLORER............................................................................................................................................................69
FIGURE 41 JOBS PROXIMITY INDEX.SOURCE: HUD AFFHT0004.................................................................................70
FIGURE 42 LABOR ENGAGEMENT INDEX. SOURCE:HUD AFFHT0004........................................................................71
FIGURE 43 UNEMPLOYMENT RATE.SOURCE: HUD CPD MAPPING TOOL..................................................................72
FIGURE 44 AVERAGE AUTO AND TRANSIT COSTS BY HOUSEHOLD PROFILE. SOURCE: HUD ....................................73
90
FIGURE 45 LOW TRANSPORTATION COST INDEX.SOURCE: HUD AFFHT0004 ...........................................................74
FIGURE 46 TRANSIT TRIPS INDEX.SOURCE: HUD AFFHT0004....................................................................................74
FIGURE 47 USDA FOOD ACCE55 RESEARCH ATLAS.....................................................................................................75
FIGURE 48 ENVIRONMENTAL HEALTH INDEX.SOURCE: HUD AFFHT0004.................................................................76
FIGURE 49 DISSIMILARITY INDEX.SOURCE:HTTPS://54.AD.BROWN.EDU/PROJECTS/DIVERSITY/INDEX.HTM .........77
FIGURE 50 ISOLATION INDEX.SOURCE: HTTPS://54.AD.BROWN.EDU/PROJECTS/DIVERSITY/INDEX.HTM ...............78
FIGURE 51 OPPORTUNITYZONES.SOURCE:SOCIAL EXPLORER.................................................................................79
FIGURE52 20191MPEDIMENTS,GOALSANDACTIONS..............................................................................................83
91
C. Community Participation Tools
--� nI� II �<���� ���,Jrr,�
✓�JL'��'�,�'�_> `T;'��_iJ�pc:'
Focus Groups and Stakeholder Interviews Guide
Introduction
We're here today to gather your insights on the state and nature of poverty in Dubuque and your
thoughts on ways to address it, so that those living in poverty can move forward and enjoy financially
secure lives and well-being such security yields.
COMMUNITY PARTNER PROVIDERS & PUBLIC SERVICE SECTOR QUESTIONS
1. According to most recent data from the City, the poverty rate in Dubuque is 16.3% (2019).
[60%poor among Blacks (4% population)] 26% poor among(non-white) Hispanics (2% population).
What would you say are the three leading causes of poverty in Dubuque? (Write down their three
answers and then go around the room with each person citing whaYs on their list, omitting
duplicates as you go).
Background for Facilitator: Explore for common causes cited by past surveys and reports.
A. Policies that create barriers or block access
B. Lack of Education � Poor performing schools
C. Lack of workforce training
D. Lack of childcare and/or cost of childcare
E. Transportation (can't afford car, poor public transportation to job)
F. Health Issues and conditions (drug addiction,substance abuse,chronic illness, physical
needs), disabilities, high medical bills.
G. Mental Health Needs
H. Low wages
I. Unemployment/Underemployment/Limitedemploymentopportunities
J. Lack of services to raise out of poverty
K. Substandard Housing
L. Racial and/or gender bias and discrimination
M. Language Skills (ELL)
N. Inability to Pay Utility Bills
[Poverty house of 4 is annual income of$25,750. Individual is$12,490.]
2. According to the annual Loras College's "Community Perception Survey' between 2017/2018 one
out of four respondents agreed that poverty is the "biggest challenge for the Dubuque community."
92
Do you agree with this assessment? Is there something else thaYs a bigger challenge for the
Dubuque community? (Explore for what it is).
On a scale from 1 to 5—with one being Poor and five as Outstanding how would you rank the
Dubuque community's performance in addressing poverty issues.
3. What community services or programs do you believe are exceptionally successful in raising people
out of poverty?
Explore for how any of these relate back to (A-N) from Question 1
Hand-Out of Flyer with potential strategies for alleviating poverty:
A. Increase the minimum wage
B. Increase tax credits for low-income workers
C. Increase cash assistance for families
D. Expand subsidized daycare
E. Spend more for medical benefits
F. Spend more for affordable housing
G. Make food stamps more available
H. Guarantee everyone a minimum income
4. Are there any services or programs that are missing in Dubuque that could help eradicate poverty?
Are there any services needed that are simply beyond your current capacity to provide?
Explore for how any of these relate back to (A-N) from Question 1
5. Do you think there is a connection between poverty and race? If so, how? If not, could you tell us
why you believe there is no relationship between them?
Black respondents in the Community Perception Survey saw Race Issues as the "Biggest
Challenge for the Dubuque Community significantly more than others (68%vs. 36%) —do
you have any insights for the difference in this point of view?
6. How can diversity strengthen the Dubuque community's capacity to address issues of poverty?
Please describe the kind of diversity you're speaking of. (e.g. Gender, race, religion,cultural). How
can diverse groups contribute to the problem-solving of poverty in Dubuque?
CONSUMER VERSION OF QUESTIONS
1. What do you think are the three major causes that lead people into poverty and keep them there?
Explore for:
A. Policies that create barriers or block access
B. Lack of Education � Poor performing schools
C. Lack of workforce training
D. Lack of childcare and/or cost of childcare
93
E. Transportation (can't afford car, poor public transportation to job)
F. Health Issues and conditions (drug addiction,substance abuse,chronic illness, physical
needs), disabilities, high medical bills.
G. Mental Health Needs
H. Low wages
I. Unemployment/Underemployment/Limitedemploymentopportunities
J. Lack of services to raise out of poverty
K. Substandard Housing
L. Racial and/or gender bias and discrimination
M. Language Skills (ELL)
N. Inability to Pay Utility Bills
2. What programs or services do you think are most helpful to people living in poverty?
Are there any programs or agencies that are known as the "go to' place to get help?
Do you have any experience with these services or know others who have—whaYs been
their experience?
3. What barriers get in the way of people accessing services to address issues of living in poverty?
Explore for obstacles related to Question One (A-N)
4. Are there any services or programs that are missing in Dubuque that could help eradicate poverty?
Are there any services needed that are simply beyond your current capacity to provide?
Explore for how any of these relate back to (A-N) from Question 1
5. What could government provide, facilitate or regulate that could help those living in poverty?
Please look at the list and choose the three that you think are the most impactful to raise people out
of poverty. Is there anything on the list that Dubuque could do more of?
Explore for:
A. Increase the minimum wage
B. Increase tax credits for low-income workers
C. Increase cash assistance for families
D. Expand subsidized daycare
E. Spend more for medical benefits
F. Spend more for affordable housing
G. Make food stamps more available
H. Guarantee everyone a minimum income
6. Do you think there is a connection between poverty and race? If so, how? If not, could you tell us
why you believe there is no relationship between them?
Black respondents in the Community Perception Survey saw Race Issues as the "Biggest
94
Challenge for the Dubuque Community significantly more than others (68%vs. 36%) —do
you have any insights to explain the difference in this point of view?
7. How can diversity strengthen the Dubuque community's capacity to address issues of poverty?
Please describe the kind of diversity you're speaking of. (e.g. Gender, race, religion,cultural).
How can people with the lived experience of living in poverty contribute to the problem-solving of
poverty in Dubuque? How can their voices be heard?
95
Poverty Survey
�,� �c ����
G�;fl f1 r�.�:� W�'��-��1r���
� � � • •. • -
I.When it comes to poverty in Dubuque,would you say i['s:
A Very Large Pmblem
A Problem
Unsure
Somewha�ol a Problem
No�a Pmblem
2.To what degree does each of Ihe following lead[o poverty?
very High Degree High�egree Unsure Matlerate Oegree Minimum Degree
Lack of Etluca�ion
Poor Heallh
Poor Mental Heallh .. � � � �
Lack o�]ob Tralning � � � �
Lack of Transportalion . O O O �
Non Enylish SPeaking � ' '
Subslance
AbuselAdtlic�ion
3.To what degree do each of the following lead to poverry?
Minimum
Very High Degree High oegree Unsure Motlerate Degree Degree
Racial antllor gentler
bias
UnaHortlable or lack o�
chlltl cere �� �' ��
Lowwages . O O O
Lack of services to raise O O O
people aul oi poverry '
Lack of Jobs � . � O O
Subslance abuse antllor O O O
adtlimion
O��er(please specify)
�
96
4.Do you Ihink there's a connection between poverry and race7(Move[he slider)
No Connec[ion Somewhat Connected Absolutely Connected
5.Choose the top three strategfes tha[you think reduce poverty the most(Onty check[hree)
Increase ihe minimum v:age Guarantee everyone a basic income
Improve race relations More aifortlable housinp
Increasecas'hassis'[aricelorfamilies Increa5e�cretlitsbNow�incomnworknrs
Expantl subsitlizetl day care detter public vansportation
Bener access to health care(physical&mental) More workforce vaining proqrams
Make food slamps niore nvnilable
Other(please specity)
ABDUT YOII
6.Please share your gendeR
Female
Male
other(please specity)
7.Please share your age�.
18-34 years 5669 yevs
35-AS years �0-plus years
46-55 ycars
97
D. Focus Group Notes
Affordable Housing/Cost Burden/Living Wage
• There's a gap between wages and housing costs; a living wage is needed.
• We need safe and affordable housing(safe meaning pest-free, lead-free,etc.)
• Middle-class people who look better on paper are moving their way into affordable housing that
low-income people need, leaving us with even fewer options.
• Most of the less expensive housing is downtown,concentrating poverty and fueling a culture of
generational poverty.
• The Housing Authority switched from waitlist prioritization to lottery(not needs-based). Why?
• There are years-long waiting lists for housing.
• Quality housing is very hard to come by.
• Landlords do not maintain properties well and it is difficult for tenants to know how to go after
them through the right channels/to afford to.
Impacts
• Only a few landlords currently accept residents on public assistance. The two landlords in town
that do accept it are "the biggest slumlords in town"and if they are kicked out of the system, no
one will accept it.
• Moving between rentals is very expensive. IYs hard to come up with money required for deposit
and first month; old landlord may keep last deposit.
• A lack of stability and good conditions in housing negatively contributes to students' mental
health and ability to learn.
• Properties are being left in such poor condition that it causes hopelessness.
• Financial institution was not willing to loan us money to get a small house,so we have to keep
paying money for rent(which often increases); we have no house to pass down to our children.
• The families of the most at-risk learners are not connected to a mortgage and many students'
families move around to several apartments. This means they may often hop between schools,
impacting their learning.
Protected Classes/Other Vulnerable Populations
• There's a huge need for affordable disability housing because so many people in the Marshallese
community have health problems—very high rates of diabetes, high rates of cancer,others(result
of U.S. testing nuclear bombs on the islands,causing illnesses from radiation and devastating the
food supply, replacing with highly processed food).
• Undocumented people are afraid to speak up about bad landlords because their options for
housing are limited and they worry landlords will take advantage of their status.
• Affording housing is a big issue for seniors,too (rent around$1,000 a month). Elderly can't afford
to move into assisted living or pay for nursing home care. There have been increases in elderly
people—especially elderly women—at shelters.
• Lots of income-based housing is specialized for seniors, people with disabilities, etc. IYs hard to
find affordable housing if outside of these categories.
• The Marshall Islander population "doubles up' with family members.
98
• There were recently some changes allowing Marshallese to qualify for some housing assistance,
the only type of government assistance that they are allowed to receive (no citizenship, no
healthcare, no childcare,can't vote.)
Law/Ordinances
• Dubuque has a "nuisance ordinance" and a landlord can get fined if the cops have been called to
an apartment a certain number of times; there is a stereotype that Section 8 residents are the
ones for/on whom the police are called.
• Mobile Homes: lot rent prices have increased significantly across the state (48% in two years) with
residents having only three days to pay before receiving an eviction notice. Rents raised from
$400 to$900 with utilities no longer included. I've heard a state legislator is looking into this.
Corporations come in with "rent to own"deals and people get loans, but not mortgages. If you
are evicted and have to abandon it, you get in trouble/are held accountable for it.The profiting
landlord takes the trailer(which has been classified as"abandoned") and resells it. Not illegal, but
it seems to require changes in state law and local ordinance.
Arrests& Convictions: Checking the Box
• It is very difficult to get housing as a formerly incarcerated person because you have to wait 7
years to get record expunged; arrests for marijuana for Black men seem high in Dubuque.
• The extremely high rates that Dubuque, and lowa overall, incarcerates black men for marijuana
severely affect the ability of this population to get housing.
• IYs confusing, the background checks. Landlords are asking for arrest records—not even
convictions—to deny rental applications.
• Can't get housing(mostly due to "checking the box') and it leads to mental health problems.
Suggestions
• Landlords lack empathy/understanding for us(low-income people); they need mandatory
training.
• An anonymous donor from Re-Engage focused primarily on supporting single mothers pays for
fully furnished apartments for these students,which makes a significant difference for them
• A new complex opening soon (15`" Street Apartments) with low-income housing that doesn't have
a checklist for formerly incarcerated, people with substance use histories, people with an eviction
on their record; welcomes all.
• The Washington Neighborhood Project is a successful initiative where money was fronted the cost
of renovating some homes (lead regulations, electrical) and then sold them for reasonable prices,
filling the area with more single-family units; "slumlords' had been using the houses in this
neighborhood.
• Housing with childcare built-into the building(s) would be extremely helpful.
99
E. Survey: Open-Ended Comments
These are verbatim comments to 'Other' solutions to poverty survey question.
Solution-Focused
All of the above.
Allow people to work and receive assistance. Often it is a choice of one or the other.
None of the above reduces poverty. It is a mindset that needs to change and take responsibility to
improve your life and the life of your family.
Make the billionaires redistribute their wealth.
Increase all wages across the board, lowa and Dubuque have depressed wages that are not
competitive with other states.
Develop perseverance in young adults.
Also encourage other companies to come to Dubuque with tax breaks to create more/better paying
jobs.
More mentoring/job shadowing so when get a job keep it.
Educate on how to work your way up from a low paying job to a higher paying one. What may a
career path look like? Increased income means increased work and increased responsibility.
Totally de-commodify health care (or at least health insurance).
Create safe, beautiful,enviable public housing,which will decrease the demand for for-profit
housing.
Public transportation needs to go where the jobs are. Like Peosta and the big factories that are hiring.
Access to education.
Education on money management,cycle of poverty.
Better balance between assistance and work income (cliff effect) to allow people to move out of
poverty and away from assistance.
Education.
Comprehensive Immigration Reform.
Train workplaces to be trauma informed.
Having the city council adopt the source of income; and ban the Box, which is clearly a way to help
reduce the systemic racism.
Some can't afford upkeep on home.
Promote trades education.
Basic Life Skills.
Financial management.
There are three factors will keep you from poverty: 1) Graduate High School 2) get a job any job and
3) don't have kids until you're married.
Problem-Focused
None of those would fix it.
Personal Responsibility.
Training with money management and strategies to get off of welfare/food stamps.
Get and keep a job.
If you have to work 3 jobs to get by then do it and don't expect other people to pay your way through
life.
Some people have to want to get out of poverty rather than being content to rely on assistance.
Accept personal responsibility and not rely on assistance.
100
Many employers cannot find employees, lack of motivation is a large problem.
Negative Perceptions
Remove public housing and food stamps and poverty in Dubuque goes down. This will encourage
people to get jobs. Employers all over Dubuque are already looking for workers.
Send them back to Chicago.
Have more checks and balances on the government programs that subsidize assistance to recipients.
Drug testing, wellness checks,etc. Opportunities are available.
Teach parents to teach their kids how to achieve a middle-class lifestyle.
Until parents/guardians step up and instill work ethic in their children, poverty will persist.
Give more to the working poor and less to those who do not want to work. -
Lack of personal accountability.
Cut welfare. Stop making it easy!!! �
Eliminate entitlements and get to work.
Cut assistance if they cannot pass a drug test
Reduce the incentive to be nonproductive slugs.
Reduce greed.
Keep your pants on, both male and female.
Teach people to live within their means.
Make a job (they are out there),a requirement after so long on welfare. Still get assistance but they
need to put in sweat equity like the rest of us.
Take drug tests to get anything free.
Get a job...or two. Make ends meet and become a contributing member of society instead of a drain
on it.
Crack down on the drug problem that is engulfing the US. It is the worst problem we as a nation face!
Change the mentality of those already in poverty.
Build a program that enables poverty-stricken people to learn how to better themselves, and move
forward in life. Giving people more things doesn't do them any good,or the rest of society.
101