Housing Action Conference Report
CITY OF DUBUQUE, IOWA
MEMORANDUM
April 27, 2000
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Housing Action Conference Report
Housing Services Manager David Harris has presented the final report of the
Housing Action Conference.
In the summer of 1998, the Housing Department--in partnership with the
Intercongregational Housing Project (HIP)--began an ambitious project to contact
"housing stakeholders" throughout the community. The purpose of these contacts
was to assess the quality and effectiveness of the Department's operations, and to
learn of "best experiences" that our customers had shared in the area of customer
service. This eventually produced more than 220 interviews with persons
throughout the Dubuque area.
With this background of information, a "Housing Summit" was held in February,
1999, attended by 80 persons representing a variety of community housing
interests. At this two-day conference, visions of a desired Dubuque community
were developed.
The following summer preparations began for the next step, a "Housing Action
Conference", to develop achievable action plans. In advance of the Housing Action
Conference, nine focus group meetings were held, attended by nearly 100 persons.
The Housing Action Conference was held on February 11, 2000 with 80 persons in
attendance representing housing, neighborhood and economic development
interests. Seven action initiatives were created and seven committees of
committed staff and citizens are meeting regularly to further develop action
planning initiatives.
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The Honorable Mayor and City Council Members
Housing Action Conference Report
Page 2
This community planning process was done in conjunction with a consultant,
Lavern Dees Webb of Encompass LLC and was recognized by the U.S. Department
of Housing and Urban Development with a "Best Practices Award."
I respectfully recommend that Housing Services Manager David Harris be allowed to
give a brief summary of the process results and that the Mayor and City Council
accept the report and await further work of the committees developing these action
planning initiatives. In fact, a report from the Downtown Planning Committee is on
tonight's City Council meeting agenda.
Michael C. Van Milligen
MCVM/dd
Attachment
cc: Barry Lindahl, Corporation Counsel
Tim Moerman, Assistant City Manager
David Harris, Housing Services Manager
25 April 00
To: Mike Van Milligen, City Manager
From: David Harris, Housing Services Department
Re: Housing Action Conference Report
Introduction
The purpose of this memorandum is to present the final report of the Housing Services
Department's "Housing Action Conference."
Background
In the summer of 1998, the Housing Department - in partnership with the lntercongregational
Housing Project (IHP) - began an ambitious project to contact ''housing stakeholders" throughout
the community. The purpose of these contacts was to assess the quality and effectiveness of the
Department's operations, and to learn of 'best experiences' that our customers had shared in the
area of customer service. Working with a model introduced by the consultant, Laverne Dees
Webb, a steering committee designed a survey instrument which became the basis for the
"appreciative inquiry" process. Sixty interviewers were trained, including many sisters from the
six women religious congregations participating. This eventually produced more than 220
interviews with persons throughout the Dubuque area.
With this background of information, a 'Housing Summit' was held in February 99, attended by
80 persons representing a variety of community housing interests. At this two-day conference,
visions of a desired Dubuque community were developed. These included:
a facility for transitional housing and services for homeless women with children;
accessible public services;
mutual stewardship of housing, by landlords and tenants;
a quality of life emphasizing mutual respect among citizens, acceptance of diversity and
the best educational systems;
fumily values;
available housing opportunities for all citizens;
preservation and enhancement of all of Dubuque's unique neighborhoods; and
available employment for all Dubuquers;
The following summer, efforts began in preparation for the next step: the holding of a "Housing
Action Conference," to transform these visions into achievable action plans. Another planning
committee was convened, the consultant was again retained and a decision was made to hold a
series of pre-Conference focus groups. Nine focus group meetings were eventually held, attended
by nearly 100 persons, representing housing, neighborhood and economic development interests.
By February, we were ready to host the Action Conference, with another 80 persons committed
to spending an intensive day preparing specific action plans.
Discussion
The report of the Conference, authored by Laverne Webb, is entitled "A Public Policy Change
Process: Housing, Community and Economic Development 2000-2005." It summarizes the two-
year process orchestrated by the Housing Department, other City staff and the many citizens who
volunteered their time and ideas. In particular, the Conference produced commitments from many
of those in attendance to continue the work of this community planning process. Seven "Action
Initiatives" were created by the end of the day. These included:
Developing a downtown comprehensive master plan
Developing "mixed" neighborhoods, emphasizing a mix of property uses, owner- and
renter-occupied housing and a variety of incomes
Creating livable neighborhoods through emphasizing quality of life initiatives
Providing adequate affordable housing opportunities
Making the downtown a more desirable place to live
Establishing a clearinghouse for information exchange
Encouraging youth to participate in community life and become part of the workforce
Today, seven committees of committed staff and citizens are meeting regularly to further develop
these action planning initiatives. One will be speaking to the Council at its I May meeting to seek
endorsement of its proposals: the Downtown Planning Committee. All are working hard to
gather information and develop ideas into actions. Some of these 'action ideas' include:
Perform a comprehensive 'housing needs assessment,' to better determine the need for
affordable and other special needs housing. A local lender has preliminarily committed
to underwriting the costs of this survey.
Develop a plan to "eliminate" vacant and abandoned structures from neighborhoods
Form a tenants association, to promote better landlord-tenant communications
Organize an information clearinghouse to better inform persons how to access financial
assistance for housing
Strengthen existing neighborhood associations and work to form new ones in other areas;
this will include a proposal for an ordinance providing for the structure and boundaries
of participating associations.
Form a 'youth city council;' sponsor teen dances downtown; develop opportunities for
creating a teen center
Last summer, this community planning process was recognized by HUD with a "Best Practices
Award" for the City of Dubuque. More important, I think it has sent a clear message to citizens:
the Housing Department, and staff from many other City departments, are committed to working
in a participatory process to plan for the best possible future for Dubuque. This process honors
diverse values; it seeks common ground. And it "brings into the room" all the voices from the
community that must be heard.
A quote from the appreciative interviews done in late 1998 is included, summarizing the themes of
this two -year planning and consensus - building effort:
What is valuable and meaningful to us is the experience of working together to improve our
community's quality of life. When we can find ways of overcoming obstacles and forge new
partnerships to work for the common good. When city government can become a partner with
community groups and private citizens. When innovative and creative ways of doing things
can be encouraged and accepted. When we can ask `why not ?' instead of `why ?' When we
accept that assisting the Tess fortunate is an integral part of improving our community. And
that these efforts are in themselves personally rewarding and the essence of citizenship.
Action Step
The action requested of the City Council is to receive and file the final report of the Housing
Action Conference.
A Public Policy Change Process:
Housing, Community and Economic Development
2000 -2005
FINAL REPORT
Prepared for
City of Dubuque, Iowa
Department of Housing Services
by
ENCOMPASS
Bethesda, Maryland
115f-raG
Executive Summary
TABLE OF CONTENTS
Section 1. Introduction
Section 2. Background
Section 3. Stakeholder Focus Groups
Section 4. The Action Conference
Section 5. Action Planning
Section 6. Evaluation
Section 7. Historian Report Summary
Section 8. From the Summit to the Action
Conference: A Retrospective Analysis
Appendices:
i. Housing Summit Agenda
ii. Summit Participants
iii. Final Focus Group Summary Reports
iv. Action Conference Agenda
v. Action Conference Participants
vi. Event Historian's Final Report on the Action
Conference
vii. Methodology
EXECUTIVE SUMMARY
In the fall of 1998 the City of Dubuque's Housing Services Department began a
11/2 year -long process to strengthen and improve contentious relationships with
customers and to achieve a community -wide consensus on public policy for a
Consolidated Plan for Housing, Community and Economic Development for 2000-
2005 that will set priorities for expenditure of $20 million. The Housing Services
Department contracted with the consulting firm, ENCOMPASS to guide this
process.
The Housing Department worked with the Intercongregational Housing Project
and two different citizens' planning committees to engage in a series of
processes and large -scale events that brought several hundred key stakeholders
in the housing, community and economic development system together in
dialogue about affordable housing needs and the future.
Using an approach to managing change called appreciative inquiry, key
stakeholder groups explored their past history through interviews and stories
about the best of the past and the factors of their success. Coming together in
focus groups and in large, diverse, dialogue and action groups, they built on their
positive past and understood their present situation through shared stories,
experiences, data, and analysis. They created new possibilities for the future
through the exploration and discovery of their common ground. In an Action
Conference in February 2000, 82 key stakeholders in this system came together
and set priorities for the future and made commitments to continue their work
in task forces to realize the implementation of the changes they desired. The
ororities for action are: downtown comprehensive master plan; develop/
enhance mixed neighborhoods; create livable neighborhoods; affordable housing
opportunities and partnerships; improve occupancy rates and make downtown a
desirable place to live; clearinghouse on programs and needs; workforce
retention and youth participation.
Through an Affirmative Customer Service process, the Department listened to
customers and began "reinventing" itself through changes in policies, processes
and practices. They changed the way they communicated with key customers
and constituents and the processes used for code interpretation and
enforcement. They developed new collaborative relationships with other
departments and invited stakeholders into policymaking processes. The
Department launched new initiatives to improve neighborhoods and affordable
housing.
Throughout this process, it became increasingly clear to many participants that
affordable housing issues are inextricably woven into the larger web of political,
economic, and social life in the community. Thus they are complex, and
solutions are not simple. Like many other cities throughout the US and the
world, Dubuque is challenged by the speed and pace of change and the by the
growing diversity of its population and their needs. This process has
demonstrated the effectiveness of engaging diverse citizens and stakeholders
with competing needs and interests in dialogue to achieve collaboration,
discover common ground, and create solutions to difficult public policy issues.
ENCOMPASS LLC
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ENCOMPASS `
section 1, rage 1 of
INTRODUCTION
In the fall of 1998, the Dubuque City Council approved a
Housing Services Department request for an ambitious
program to strengthen customer relations. In the summer of
1999 they approved a second phase of this work to achieve a
community-wide consensus on a 5 -year strategic plan.
The Housing Department wanted to confront difficult and
controversial housing, and related community and economic
development issues by engaging the entire community in a
dialogue about the kind of future they wanted to create.
They made a commitment to take a "whole systems" view
that would include all the customers and stakeholders in the
system and would address both public policy issues and
internal organization change issues, e.g., culture,
management, performance, policies, procedures, processes.
The City engaged the services of ENCOMPASS"`, a
management consulting firm, to design and guide a whole
systems strategic planning process that would:
• build on past successes and current assets and strengths
• focus on solutions, best practices, and preferred future
scenarios
• bring a customer focus to regulatory functions of
government
• identify unmet housing needs
• clarify the role of the Housing Department in providing
affordable housing
• promote collaboration and new partnerships between
the Department and the larger community
• bring the community together to discover common
ground, develop a strategic plan, and set priorities for
the best investment strategies for over $20 million in
federal and other funds for 2000 -2005.
ENCOMPASS' proposed an approach to this work called
appreciative inquiry, a change management method that
begins with inquiry about positive past history (what works
and the causes of success), then, by building on past
successes, and current assets, helps a system engage in a
dialogue to discover common ground, new possibilities and
ways to move toward a shared future. This process energizes
and motivates groups to act in new ways together. The
appreciative inquiry approach is based on empirical
evidence about the power of positive images and beliefs in
"1 have been struck by the
appreciative inquiry.
Instead of getting bogged
down in the negative like
other communities, we
focused on what has
worked and how that can
catapult us into
envisioning the future. We
focused on the positives
instead of focusing on
what is dysfunctional
which actually creates
conflict."
(Focus Group Participant)
creating and sustaining positive change in individuals and in
organizations and systems.
Over the course of one and one -half years, the Housing
Department engaged in a series of processes and large -scale
events that brought more and more of the key stakeholders
in the housing, community and economic development
system together in dialogue about needs. Using appreciative
inquiry and an Affirmative Customer Service process, they
teamed about customer service needs and relationships and
housing needs. In a Summit Conference with 82 people, they
explored their common past history through interviews and
stories, their present situation through shared experiences,
data and analysis, and the possibilities for the future
through the exploration and discovery of their common
ground. These processes are outlined and discussed under
Section 3, "Methodology ". An analysis of the changes and
impact on values, expectations and readiness for change and
action is presented in Section 5, "From the Housing Summit
to the Action Conference: A Retrospective Analysis ".
Throughout this time, the Housing Services Department
leadership and staff were "reinventing" itself, changing the
way they did their business with the public. They changed
rules, policies, procedures, work processes, bureaucratic
language, paperwork and forms, and most importantly, their
approach to doing business. They transformed a rule -bound
bureaucracy into a responsive, customer- focused
organization that not only listened in new ways to their
constituents, but also acted in new ways. They actively
sought customer input. A summary of "Customer Service
Initiatives in 1999" and analysis of results are found in
Section 3, "Methodology ".
In February 2000, some 80 citizens, representing the "whole
system" related to housing, community and economic
development, came together in an Action Conference. They
determined the strategic directions and specific actions that
will guide the City of Dubuque's Consolidated Plan for
Housing, Community and Economic Development, and the
expenditure of some $20 million for 2002 -2005. Many made
individual commitments and group plans to continue working
in task forces toward the realization of their shared visions
for 2005, and the specific plans of action they created
together.
Task forces that formed during the Action Conference met
the week following the Conference to organize and move
forward the action agendas they created. Six weeks after
the Action Conference, participants will gather for
presentations and dialogue about their progress on plans,
CO
ENComwASs uc
Section 1, ?age 2 of 3
"The best thing about living
in Dubuque, 1 think different
from other places where 1
have lived, is that there is a
willingness of people to work
together for the common
good of all. People in
Dubuque are willing to
donate time and energy and
talents to make a difference
in the lives of others."
(Summit Conference
Participant)
and to plan the next steps they will take together as a
community.
The Action Conference report of the process and outcomes
is in Section 4.
Emily Kearns, Ph.D., Professor of Sociology, Clarke College,
who has been a participant throughout the entire two -year
process, served as the "Event Historian" for the Action
Conference. She has made a significant contribution to the
learnings from this process and the Action Conference that
can serve to guide the Dubuque community as it continues
to engage citizens and key stakeholders in dialogue and
planning for the future. Dr. Kearns' report is summarized at
the end of Section 4, and appears in full in Appendix vi.
This project was funded by the City of Dubuque through the
Community Development Block Grant program, Section 8
funds, and the Iowa Housing Corporation.
ENCOMPASS u.c
section 1, rage .s of s
"One of the foremost problems
that housing providers deal
with...is overzealous,
unreasonable Code interpretation
and enforcement by the Housing
Office...
We submit to you that to help
solve the affordable housing
issues, this adversarial
relationship between the housing
providers and the Housing Office
must be improved. The Housing
Office should be working in
partnership with the housing
providers toward solutions to the
issue of affordable housing."
(Letter to Housing
Commission from housing
providers)
Clearly, enforcement of a housing
code in older dwellings must
effect a compromise between
interests of public safety,
neighborhood and downtown
revitalization efforts and financial
concerns of owners attempting to
generate positive cash flows.
(memo from David Harris,
Housing Department
Manager, to City Manager)
Section 2, Page 1 of 3
BACKGROUND
Like many American cities, the
City of Dubuque's needs for
affordable housing for low -
income families have increased
over the last decade. There are
vacant and blighted buildings
and the existing stock of
unsubsidized, lower -cost housing
has been reduced by
demolitions and conversions.
Much of the downtown housing
stock is aging, expensive to
maintain, energy inefficient,
and suffers from deferred
maintenance, deterioration and disinvestment. No new rent -
assisted housing has been built in the last 20 years. There is
increasing homelessness, especially among women and
children, and there is a growing immigrant population that
frequently lives in overcrowded conditions. The economy is
increasingly shifting to lower -wage, service sector jobs,
making it difficult for the changing workforce to afford
housing.
At the same time, there is a relatively high vacancy rate
(estimates 81/2-13 %) of unsubsidized rental housing units, an
economic liability for the housing providers. While there is
debate in the community about these statistics, a state -
sponsored annual survey indicates that Dubuque has one of
the highest relative rental costs in the state. Developers also
report that Dubuque has one of the highest new construction
costs in the state.
It is in this overall environment that the rental housing
providers (landlords) challenged the government to loosen
up on its rulemaking and enforcement policies promulgated
to protect the health, safety and welfare of renters. They
felt that the City's adoption of higher standards than
required by the federal Department of Housing and Urban
Development and their application to all rental housing was
unfair, unjustified, and contributed to the rising cost of
rental housing. From the City's perspective, higher
standards helped to preserve and maintain the housing stock
and contributed to downtown revitalization.
As this debate was continuing, the Intercongregational
Housing Project, a project of six women religious
congregations, had planned to conduct a community -wide
needs assessment on housing needs of women and children.
ENCOMPASS LLC
The Housing Department is
also interested in improving
relationships. This year they
are partnering with the Inter -
Congregational Housing
Project to contact area
landlords and conduct a
customer services survey...to
learn how to better deliver
services to rental property
owners...Please participate in
this process."
(letter from Michael
C.van Mil(igen, City
Manager, to housing
provider)
'There is a big need in this
community for housing for
women and children. Aside
from Sr. Helen's project
under development at this
time, there is nowhere for
homeless women and
children to go. There are
places for dogs and men,
but not emergency housing
places for women."
(Story from appreciative
interviews)
'The strength of our
community is made up, in
part, of the history of our
neighborhoods..."
(Story from appreciative
interviews)
"Neighborhood
development is a really
big deal. The Noshes have
done wonders on lower
Loras. Because they stay
here and they care and
they are out walking in
the area. They set up an
art center in that area.
All these things are a
great help. So it is
important to get
neighborhood groups -
people - talking to one
another."
(Focus Group Participant)
Section 2, Page 2 of .3
They joined with the Housing Department to help plan and
implement the first phase of the Department's work, to
include a dialogue with more than 220 representatives of
identified housing stakeholder groups. This collaboration
helped to bring a broader, more diverse group of citizens
and organizations into the first phase of this process. It also
brought a moral voice to the public policy arena.
There were no organized constituency groups for affordable
housing in Dubuque at that time. Further, there was no
organized tenant's association or group. Two non - profit
organizations have worked on affordable housing in Dubuque
over the past decade: Habitat for Humanity has a small
volunteer corps that builds about one house a year. The
Heartland Housing Initiative has developed 35 units of
affordable housing and supportive services. Only the
landlords had an organized constituency, the Landlords
Association, to speak on behalf of their interests to the
government.
In the fall of 1999 when the Planning Committee for the
Action Conference began developing a strategy for the
strategic action planning phase of this work, they struggled
with how to keep the focus of their work on affordable
housing issues. They saw housing as inextricably linked to so
many other issues - the economy, jobs, growth and
opportunities, transportation, accessible services, quality of
life and school quality, to name only a few. They saw that it
was impossible to directly address housing issues outside the
context of the whole system, and that the best solutions
would be discovered by bringing together the broadest, most
diverse perspectives on some of the critical issues affecting
the quality and availability of affordable housing.
Affordable housing concerns are linked to the broader
economic and public policy issues. One key economic factor
is the out - migration from the city to the county and small
adjacent towns. Most residential development is occurring
outside the city where taxes are lower and the quality of life
is increasingly more attractive, and where there is very little
rental housing. This also has the effect of exporting part of
Dubuque's tax base. January 2000 housing starts in
Dubuque, where lot prices are high and there is a scarcity of
developable land, were the lowest in fifteen years.
At the same time, there are significant changes planned and
new ideas being created for the downtown area - riverfront
development, reinvestment in the Ice Harbor, increased
development of recreation and tourism opportunities, and
others. And there are also many conflicts.
Dubuque joined with many other American cities in the
1970's downtown design experiment called the "main
ENCOMPASS LLC
"Greater cohesiveness
among financial leadership
is needed. Use the model on
the mortgage lender side -
those leaders get together
and discuss common
solutions to community
needs. Look at the
leadership of the religious
communities of sisters as a
model."
(Focus Group Participant)
"We need the community
leaders to be risk takers. As
well as looking at the
history and the national
trends or cutting edge
models. Someone who will
do that exploration and get
ideas about how to
replicate them here. I am
sure the people are here.
This process can be an
affirmation of them to go
for it."
(Focus Group Participant)
"Beautiful land. Land where
I always will return. Land
where heart is at ease. That
is what the Native
Americans said about
Iowa."
(Focus Group Participant)
street" concept and created a downtown plaza closed to
traffic. After much debate, the plaza was partially opened
last year and the City began planning to beautify the rest of
the plaza. Business leaders have recently raised opposition
to this plan and now urge that the plaza should be
completely reopened, and the streets opened to through
traffic.
Downtown is increasingly becoming an office park
destination with few after hours amenities. However, with
the City's current plans to increase the availability of
parking, it is hoped that additional cultural and social
resources will be attracted to the area.
Strong debates about historic preservation, what to do about
urban blight, and continuing progress in developing the
down area continue, as many voices join in the struggle over
these difficult pubic policy issues.
The Department of Housing and Urban Development requires
cities to develop a Consolidated Plan for Housing,
Community and Economic Development, 2000 -2005. This is
the comprehensive "master plan" that describes housing
needs, market conditions, and housing strategies. Its
purpose is to provide "decent housing, a suitable living
environment and expanded economic opportunities for low
and moderate - income persons." This plan will guide the
expenditure of over $20 million over the next five years.
HUD also requires citizen participation in this planning
process. The City of Dubuque has taken this requirement
seriously because they understand that the best public
policy comes when the greatest number of stakeholders join
in creating the kind of future they desire most.
"Economic growth alone does not lift all boats when it
comes to housing the poor. If housing opportunities are to
be extended to the disadvantaged and to newcomers, more
must be done - by the federal government, the
communities, and the poor families themselves."' The
Dubuque community has risen to the challenge to bring the
whole system together in search of answers and solutions to
the complex issues that surround the question of affordable
housing.
"Housing Low - Income Families: Problems, Programs, Prospects, Journal
of Housing and Community Development, Morton J. Schussheim, Ph.D.
ENCOMPASS LLC
Section 2, rage s of .t
Focus Grp Methodology
Foam Group Moderators
conducted a.series of seven
focus groom:
• fords
• Bowing
Developmenti Mnnagement
• Government
• Commerce
• Essential Community
Services
• Tenants
• Community Leaders
"We could use some of the
wealth of the community to
consider investing in quality
development and management
of housing in Dubuque."
(Focus Group Participant)
"You need a partnership
between commerce and
government to develop
affordable housing. We've
had some good successes in
past years."
(Focus Group Participant)
"We really need to learn what
the sticking points are for
developers in Dubuque."
(Focus Group Porticipont)
STAKEHOLDER FOCUS GROUPS
Study Questions
1.
ENCOMPASS 11C
Section 3, Page 1 of 2
The Planning Committee (the second planning committee in
this systems change process) for the Dubuque Housing Action
Conference commissioned Art Roche and Karen McCarthy to
conduct a series of focus groups of specific stakeholder
groups who would be involved in the Action Conference. The
Planning Committee wanted to reduce the length of the
conference to one day to ensure attendance by people with
heavy schedules. With a shorter conference, the opportunity
for the different factions and stakeholder groups to listen,
engage in dialogue, and come to understand one another
across their boundaries and differences was compromised.
However, because the Action Conference was building on a
1 year long dialogue process amongst many, but not all
stakeholders, the use of focus groups provided an
opportunity for all voices to speak and to be heard even
before the Conference began. It also got the reports of
specific issues and concems of each group out for advance
review by all the conference participants, planners, and
facilitators. The message of inclusion was imbedded in the
very process of conducting focus groups. Holding focus
groups may also have supported development of new
alliances within some of the stakeholder groups. This may
have enabled the Conference participants to work together
more effectively and creatively in a very short timeframe.
The impact of the focus groups is discussed and analyzed
further in Section 5 of this report, "From the Housing
Summit to the Action Conference: A Retrospective Analysis."
The focus group moderators, Planning Committee, and
conference facilitators developed these questions for the
focus groups:
Data questions for all groups:
A. What seems to be going right; what can we
build on?
B. Whose needs are being met, and whose could
be better met?
C. What are your hopes and expectations for
housing in Dubuque?
D. What do we need from each of the other
stakeholder groups in order to improve
housing in Dubuque?
"We were blunt today.
I think we need the
ability to be as blunt
as we need to be. 1
wonder if that would
be hampered if they
(landlords) were sitting
here."
(Focus Group Participant)
"The focus group process
sends a message that
staff really want to
know about what
tenants think."
(Focus Group Partidpant)
"One of the strengths of
the community is the
Housing Services
Department. They've been
very progressive in trying
to attract funds to help us
revitalize the downtown."
(Focus Group Partidpant)
Section 3, Page 2 of 2
E. In general, what will our stakeholder group
need to contribute to this effort in order to
assure success?
2. "Homework" questions for all groups:
A. What have you seen elsewhere that works?
B. Are there others who are absolutely critical to
the process?
A summary report for each focus group is included in
Appendix iv. The Housing Services Department has complete
data for each focus group and a paper that provides a
detailed explanation of the methodology used and the level
of data that can be expected from focus group research.
The Action Conference
The purpose of the Action Conference was to build on the
past work described above and to bring about a community
consensus for strategic directions and actions to guide the
Consolidated Plan for Housing, Community and Economic
Development for 2000 -2005. The Action Conference is
reported in detail under Sections 4 and 5.
ENCOMPASS u.c
Stakeholder Grays
• Community
Leaders
• Landlords
• Tenants
• Commerce
• Government
• Essential
Community
Services
• Housing
Development!
Management
"Why are we here today?
Because housing is every-
body's business 117
Dubuque. We know that it
plays a role in defining
our sense of self and our
sense of place. And we
know that it plays a big
part in determining our
community's quality of
life. 1 think, in one way or
another, all of us in this
room have a passion for
housing...By being here
today, what we are saying
is, to be successful in the
business of housing, we
know that we are going to
have to do it together_
Our goal is to find a way
to fill the needs for all
housing for all the people
of Dubuque. By the end of
today, that's our
expectation."
(David Harris,
Housing Services
Department
Manager)
Section 4, Page 1 of 4
THE ACTION CONFERENCE
After a six -month long planning process by a 22- member
Planning Committee, the "Invest Yourself in Dubuque: A
Housing Action Conference," convened on February 11,
2000, with 82 participants (see participant list in Appendix
v.) representing seven different stakeholder constituencies.
The Planning Committee had worked hard to determine
which stakeholder groups and whose voices needed to be at
the table. These citizens came together ready to focus on
solutions and willing to collaborate across their differences.
The Event Historian, Emily Kearns, Ph.D., was a
"participant /observer" in this Conference. Her report of this
process and the Action Conference is summarized in Section
7, and reported in full in Appendix vi.
Building Collaboration and Setting Priorities
Art Roche, a member of the Planning Committee, with
contributions from Housing Department staff, set the tone
for the day with a poetic orchestration of stories about
housing and community, taken from the Summit Conference
and poems. After ten -hours of dialogue and discovery of
common ground, the day ended on a high note. The
conference participants had created new strategic
directions, plans and initiatives, which they presented in
creative, theatrical styles.
The very first task of the Conference was to create a
framework for working collaboratively across boundaries and
differences. Together participants designed the "high road"
that they would travel throughout the day. They wanted
conversations based on trust, respect, and inclusion. They
sought to be open to new ideas that took them beyond the
ideas they carried into the room. And they wanted to move
to actions that embraced their individual interests and their
shared interests. As one member said, "We are all in this
together."
Through conversations about "best possible outcomes,"
participants identified and discussed many ideas in self -
managed, small, mixed groups. Each small group selected
the top three outcomes they wished to pursue, and
presented them to the whole group. Some of the key
outcomes were: downtown planning and development;
public /private investment to increase affordable housing;
comprehensive needs assessment; improving occupancy
rates; establishing a tenants' organization; code
enforcement; personal choice; affordable, quality housing;
r
Priorities for Action
1. Downtown
comprehensive
master plan
11. Develop /enhance
mixed neighborhoods
III. Create livable
neighborhoods
IV. Affordable housing
opportunities and
partnerships
V. Improve occupancy
rates and make
downtown a desirable
place to live
VI. Clearinghouse on
programs and needs
VII. Workforce retention
and youth
participation
Section 4, Page 2 of 4
livable neighborhoods; mixed neighborhoods; diversity and
participation (race, ethnicity, youth); green space;
transportation; centralized information and clearinghouse on
services; and workforce recruitment and retention.
Once the whole group organized these priority outcomes
into categories, each participant voted for his or her top 5
priorities. From these, seven priorities emerged that would
guide the group's action planning work for the rest of the
day.
Stakeholder groups were then asked to meet together to
consider which of these priorities were most significant to
their interests and concerns. They discussed what they were
doing now to promote that priority, and what they should be
doing in the future to support it.
The chart on the next two pages gives an overview of the
stakeholder groups' dialogue and responses to this exercise.
CZ
ENCOMPASS LLC
Stakeholder Group
Essential
Community
Services
[data is merged from
two groups]
Government
[data is merged from
two groups]
Community Leaders
[data is merged from
two groups]
Housing
Development
Exhibit 4.1
Priorities for Action by Stakeholder Group
Priorities
Create livable
neighborhoods (mixed
incomes, comprehensive
quality); become a
community where people
reach their full potential and
where young people become
vital citizens
Create livable
neighborhoods (with "sense
of home" through public and
private investment to
increase affordable housing
units, both new construction
and rehab); self contained
neighborhoods /communi-
ties; needs assessment;
developing and encouraging
housing choices (rent/own
accessibility, mixed
neighborhood locations)
develop partnership
Ensure /increase affordable
mixed neighborhood
housing; comprehensive
needs assessment (ensuring
inclusivity); create /update
housing strategy; increased
public /private investment;
passion and power from
Riverfront to other projects;
encourage pride in property
owners; green space as
symbol for a comprehensive
plan; H &W buildings —
apartments and shops
Comprehensive downtown
plan (housing and
commerce); affordable
housing; lower density;
mixed income; quality of life
ENCOMPASS LLC
Doing now
Providing health
services; encouraging
peace and harmony;
providing services to
allow persons to remain
in their homes; PATH
program; wellness
education; community
networking; Come Home
to Dubuque; Dubuque
education; local agencies
Health homes initiatives;
PATH Program;
neighborhood specialist;
code enforcement; rehab
programs; $8 M public/
private /year in housing;
COP; neighborhood
infrastructure
improvements
Housing Trust Fund is
beginning process
Should be doing
Use education to reduce
needs for special
services; promote
neighborhood "owner-
ship"; promote
partnerships with
essential services and
city agencies
Zoning changes for
mixed use; invest $ in
new construction of
affordable housing;
building code changes;
tax abatement
Meetings /collaborating; "WE ARE THE
pay bills; doing our jobs COMMUNITY"
Decent, livable housing;
macro vs. micro in terms
of redevelopment;
nothing being done to
lower density; educate
landlords on reinvest-
ment; comprehensive
. housing plan
Section 4, Page 3 of 4
Stakeholder Group Priorities
Landlords
Tenants' Group
Commerce
Reduce vacancy rate
Upgrade and improve and
possibly remove blighted
properties (results in less
density); make
Community Development
Block Grant money
available to property
owners to achieve first
two objectives above; use
available funds and
programs to improve
properties
Quality housing (personal
choice; enforcement of
codes)
Excited about opportunity
that private and public
investment provides to
address the issues
presented today
ENCOMPASS LLC
Doing now
Consulting; lending;
education; donating funds;
leadership
Section 4, Page 4 of 4
Should be doing
City-wide tenant
organization (desire;
cooperation/collaboration;
take ownership and
responsibility
Reaching out to the
wealthy, more educated
through employers; more
communication
ACTION PLANNING
Before breaking into action planning groups for the
afternoon, every participant was asked to provide ideas
about what successful implementation of each of these
priorities would look like. They wrote their ideas on Post - it
notes and placed them under the Priorities title mounted on
the wall. Thus everyone had the opportunity to state his or
her expectations about what real progress and success
looked like to them across many of the priority areas. This
data became available to the action planning groups that
organized and met through the afternoon. Thus while
participants could not be in several groups at once, their
ideas could be.
Once everyone had chosen a priority action group to work
with, David Harris charged the groups to find consensus on
their best ideas and to produce specific, actionable plans to
guide the City's Consolidated Plan for Housing, Community
and Economic Development for 2005. He said that the next
steps would follow on this conference, with task force
leaders meeting the following week, and all willing
participants coming together again in the next six weeks to
present their progress on action plans and next steps.
Action Planning Task Forces
Section 5, Page 1 of 9
Participants self- selected the Action Planning Task Force
they wished to be a part of, and formed seven groups of
varying sizes. Over the course of the afternoon, each group
produced a future goal statement and short and long - term
specific action plans. These reports represent a beginning
for most of the groups for significant work that will continue
beyond this conference. The work is presented in the
language of the Task Force groups, thus there is some
variation in the presentation style of the reports. Some, but
not all, groups included timeframes and assigned
responsibility for actions. These details are not included in
this report, but are available through each Task Force
Coordinator, and from the Housing Services Department.
Future Goal Statement
Comprehensive Downtown
Master Plan
It is February 11, 2005. Our Comprehensive
Downtown Master Plan addresses the heart
of our community. As the gateway to Dubuque,
the downtown is our identity.
It is a unique architectural resource and cultural
corridor, vital to economic development and
reflecting the pride of our community.
The Comprehensive Downtown Master Plan
utilized:
• highly inclusive public input
• a consortium of community, business and
other leaders
• reductions of administrative red tape
• other cities' experiences
• public and private investment and
marketing
inventory and assessment via GIS database
As a result, downtown Dubuque is a great place
to live, work, and go to school because we've
achieved the following:
• maximum occupancy of buildings through
mixed and upper story redevelopment
• expansion and availability of green space
and parking
• exterior renovations and preservation by
public /private sources
• successful integration of housing choices
from including market rates
to affordable condo units
• new downtown school with neighborhood
outreach
• availability of services, school,
medical, grocery and childcare to create a
self- contained community
a thriving arts and entertainment corridor
the perfect solution to the Town
Clock Plaza was completed
• the intermodel transportation system,
including affordable and accessible
public transit, reduced congestion
and parking demand.
This master plan allows the downtown
to combine its diverse micro - communities into
one, vibrant macro- community - Dubuque, Iowa
• review Vision 2000
• identify key players and stakeholders
• get City documents, reports, plans of zoning, etc
• identify lead persons and agencies
• define the downtown boundaries
• survey other cities' accomplishments
• primary research to determine what's needed
• process subcommittee to recommend plan process
• get ownership of City Council
• market idea of master plan
• identify $ -- City, State, Federal
• identify project manager
ENCOMPASS LLC
Action Initiative: Develop a Downtown
Comprehensive Master Plan for Dubuque
Coordinator: Art Roche
Participants: Laura Carstens, Jim
Giesen, Jim Holz, John Walsh,
Doris Hintgen, David Rusk, Jim
Burke, Pam Jochum, Ruth Nash,
Art Roche, Rich Russell, Bob
Felderman, Ann Michalski
Action Steps:
"For the past several years I've been
convinced of the wisdom of developing a
comprehensive master plan for downtown
Dubuque, and I'm really excited about its
inclusion as an action plan from this
Conference. This will become even more
important in the near future as significant
development begins. We've got to build a
consensus with community leaders,
stakeholders and citizens about the shape
of our downtown, and we have to keep
working until we get there."
(John Walsh, Action Conference
Participant)
Section 5, Page 2 of 9
Future Goal Statement
Develop /Enhance "Mixed"
Neighborhoods
In looking at the future vision
we fully understand everyone's
needs. We are a community
that welcomes and is
comfortable with diversity of
people, housing, and
neighborhoods such that there
is a mix of residential and
commercial. People can get
their needs met in the
neighborhoods. Neighborhoods
have cohesiveness Its needs are
defined by or in conjunction
with people (the neighbors)
themselves. Neighborhood
associations could be public
relations opportunities for new
businesses, community
education needs, etc.
Community services and city
government can disperse
information as completely and
efficiently as possible. These
efforts ensure personal,
employment, and financial
investment in Dubuque. The
fabric of Dubuque's life is held
together by all the diverse
people and economics and
commerce being maintained in
these welcoming, open,
accepting neighborhoods.
Action Initiative: Develop /Enhance "Mixed"
Neighborhoods
Action Steps:
Coordinator: Karen McCarthy
Participants: Ruth Clark, Emily
Kearns, Karen McCarthy,
Rachael Daack Riley, Jeanne
Wickam, Janet Walker
Neighborhood Associations
• create new associations
• smaller, old
• leadership training
• set boundaries
• big buildings (church, etc.), neighborhood businesses
• setting times that work for neighbors
Public Relations from Neighborhood Associations
• create opportunity for growth, business
• support local businesses
Section 5, Page 3 of 9
Information shared should be complete and efficient
Understand needs
• interview
• GIS (Global Information Satellite)
• neighborhood
Comfortable with diversity
• education
ENCOMPASS LLC
Future Goal Statement
Create Livable
Neighborhoods
The neighborhoods in
Dubuque have formed an
aesthetically pleasing
community by improving the
conditions of proper -ties
along with the construction
of affordable new housing.
Properties that are no longer
in use or abandoned have
been taken down.
The environmental aspects
of Dubuque's neighborhoods
have been enhanced with
pedestrian friendly walkways
and lanes designated for
bicycle traffic. Further
enhancement has been
achieved by careful planning
of adequate green spaces and
playgrounds. All appropriate
and available space has been
utilized for additional
parking.
Communication and
interaction within
neighborhoods and its
residents are continually
improving through strong
neighborhood associations
that take an active part with
city government in addressing
problems and offering
suggestions in regard to short
and long -term planning.
The City of Dubuque
recognizes the need for
adequate public transpor-
tation, specifically to
neighborhoods where income
levels are not enough to
support private
transportation. The City
adjusts schedules, routes and
fares to accommodate those
with the most need.
Action Initiative: Create Livable Neighborhoods
Action Steps:
c
ENCOMPASS LLC
Coordinators: Cory Sommer,
Kathy Lamb
Participants: Mary Rose
Corrigan, John Davis, Evelyn
Jackson, Kathy Lamb, John
Mauss, Kathy Pothoff, Cory
Sommer
Section 5, Page 4 of 9
• support expansion of Boys /Girls Club (Neighborhood
Association, individuals)
• seek input from neighborhood groups by assigning issues
through Neighborhood Development Specialist
• distribute information at City Expo about neighborhood
programs /opportunities (City)
• encourage neighborhood fairs /get - togethers
(Neighborhood Specialist /other City staff)
• increase Homestead Exemption (Legislature)
• provide incentives for demolition of abandoned and
blighted properties (private owners, City Council)
• establish time limits for how long an owner can let
abandoned and blighted properties stand
• extend bike trails /lanes to Riverfront, Mines of Spain and
points west (City Council, private groups)
• priority will be given for green space when vacant
abandoned buildings are demolished (City Council)
Future Goal Statement
Affordable Housing
Opportunities &
Partnerships
We have a vital partnership
between landlords, tenants,
potential homeowners, the
government, and the
business community.
Dubuque has more
opportunities for home
ownership at all economic
levels and there is housing
available for tenants at fair
prices as well. These
opportunities are available
throughout the city, such
that tenants and potential
owners have a wide set of
options. There continues to
be increasing development
and rehabilitation of
existing units.
Action Initiative: Affordable Housing Opportunities and
Partnerships
Action Steps:
Coordinators: Jane Steele,
Joleen Patterson
Participants: Sid Blum,
Steve Boge, Kelly Larson,
Tim Moerman, Mary
Kmucha, Pat Thies, Tom
Goric, Jane Steele, Joleen
Patterson, Dennis Tressel,
Joe(len Reed, Pablo
Ramirez, Peter Eck
• find out what programs are available
• Karen to visit with existing neighborhoods to see if
tenant association is to be established
• send out a summary of city programs to business
• provide adequate housing opportunities to serve
industrial parks population
• develop the under - utilized property downtown, such as
upper floor housing
• build viable partnerships with businesses to disseminate
information on available programs
• establish a tenant association
ENCOMPASS LLc
Section 5, Page 5 of 9
Future Goal Statement
Improve Rental
Occupancy Rates & Make
Downtown a Desirable
Place to Live
Within five years our
downtown would be a
desirable place to live and
rental occupancy rates
will have improved
significantly.
"They need to address our
issues, just as we need to
address theirs, or we are
just going to keep battling
each other."
(Focus Group Participant)
"1 am excited by what took place.
Tenants have talked before about
having a Tenants Association. 1 was
pleasantly surprised to see support
from landlords in our group. We were
able to come together rather quickly
on this as we thought it would be a
tool to bring the two sides together.
Another issue was lowering the
vacancy rates. We were able to talk
honestly back and forth about what
would change the numbers and we
generated 3 -4 good ideas. One of the
nicest feelings 1 got about the
landlords was that they were
concerned about providing a quality
home, not just something to make
them money. It was a really nice,
valuable process to go through."
(Action Conference Participant)
Action Initiative: Improve Rental Occupancy Rates and
Make Downtown a Desirable Place to Live
Action Steps:
ENCOMPASS LAC
Coordinator: Suzanne Wright
Participants: Michelle Clemens,
John Herrig, Steve Jacobs, Iry
Koethe, Lu Koethe, Patty Smith,
Cheryl Kieffer, Robert Fisch, David
Harris, Suzanne Wright
Section 5, Page 6 of 9
• establish Tenants Association
• address building codes
• improve desirability of downtown
• encourage investment in older buildings by relaxing
building codes
• encourage units to condos conversion
• additional public programs for external appearance
improvements
• create multiple listing service
• develop a downtown marketing plan
• encourage entrepreneurial spirit
• long -term assessments for anticipating market trends for
apartment needs
Future Goal Statement
Clearinghouse on Programs
and Needs
To have all services
accessible through a
clearinghouse to those in
need:
• education
• collaboration
if we can match the
investment dollars in our
community with the
greatest unmet housing
needs and concerns, we can
go a long way to solving a
lot of our problems. I'm
willing to take on that task
and see if we can't get
some folks together from
the investment and banking
community to work with
those in the religious
communities who have a
social interest." (Jeff
Mozena, Action Conference
Participant)
Action Initiative: Clearinghouse on Programs and Needs
Action Steps:
Coordinator: Donna Bauerly
Participants: Laura
Roussell, Jeff Mozena, Bob
Klein, Michael Muir, Barb
Moran
• gather interested groups to research and share
information
- Housing Services
- Empowerment Group
- Dubuque Community School District
- Healthy Dubuque 2010
- local agencies
- Information & Referral
- Project Concern
- DECAT Group
- tenants
- landlords
- youth
• determine actual needs
• set up clearinghouse (start with Information and
Referral)
• design logo
• small storefront, then expand to Early
Childhood Care Center
• develop City Ombudsman position
• business seminars
ENCOMPASS LLC
Section 5, Page 7 of 9
Future Goal Statement
Youth Participation and
Workforce Retention
To provide more social,
economic and outreach
opportunities so that
workers and youth stay in
and are encouraged to
come to Dubuque to make
their home and become
vital, involved citizens.
Themes:
• Youth/teen activities
& facilities
• Youth decision - making
• Link between school
and jobs and
volunteerism
• Active marketing and
recruitment of
workforce
Action Initiative: Youth Participation and Workforce
Retention
Action Steps:
Coordinator: Pam Myhre
Participants: Joe Hopkins,
Rae Ann Parks, Sr. Inez
Turnmeyer, Pam Myhre,
Michelle Brown, Mirgaol
Causevic, Kim Accola
• start teen center - survey high school students (Council
of Kids)
• start dance center for college kids off - campus (Student
Life Center)
• discussion group (Joe Hopkins)
• encourage volunteerism starting in junior high (schools
to include it as part of curriculum)
• permanent Youth Council (auxiliary City Council and
School Board)
• flexible worker accommodations
• outreach to new immigrants
• higher wage scale
ENCOMPASS LLC
Section 5, Page 8 of 9
Plans for Action
• Increase occupancy rates by
increasing jobs
• Do a needs assessment of
existing programs and
increase dissemination of
programs and activities
• Develop neighborhood
associations focused on mixed -
income neighborhoods
• Invest in Dubuque through
"vital partnerships"
• Create a downtown that is a
"gateway to our community...a
vibrant, macro- community"
• Market and recruit youth and
workers to Dubuque, focusing
on providing activities and
services for youth
• Embrace newcomers to
Dubuque, including those
speaking other languages and
sharing different cultures
From the Event Historian's
Report
Perhaps the most powerful
moment was when a Bosnian
participant stood to present his
group's action plan and spoke
only in his native language,
leaving the room silent and still,
confused for a moment as to
how to respond....! observed it as
an invitation for Dubuque to
stretch itself to embrace
newcomers with languages and
cultures that may seem strange
and confusing to us - a stretch
that could be a bridge to our
future as we work towards
greater diversity and inclusion."
(Emily Kearns, Ph.D.)
Action Plan Presentations
Section 5, Page 9 of 9
At the end of the day, each of the seven action planning
groups was asked to present a report on its action planning
to the whole gathering, and to do so in a creative way that
would get people's attention. A unique version of "Little
Red Riding Hood" reminded the group of the need for
coordinated services. A play on "Who Wants to be a
Millionaire ?" confronted participants with how they saw the
opportunities and constraints that would influence their
future, and challenged people to make commitments.
Another group took a 2005 tour of Dubuque on the "magic
tour bus" and pointed out the remarkable aesthetic changes
in neighborhoods and downtown, including new
transportation systems and environmental progress with
bicycle trails, green spaces, and playgrounds. Perhaps the
most poignant presentation was from a group concerned
with youth participation and attracting and retaining a
strong workforce, including youth and immigrants. A Bosnian
gentleman began the presentation of his group's action
plan. He spoke only in his native language, leaving the room
in silence for a while. No one understood a single word of
what he was saying. No one was certain about what to make
of his point. But his message soon became clear to
everyone. The future of Dubuque is about all of us.
One week following the Action Conference the task force
leaders met with the City Housing Department to discuss the
next phases in implementing their action plans. They have
begun planning for a six -week follow -up work session of all
Conference participants who are willing to continue to work
toward the realization of the action plans presented above.
The Dubuque community has demonstrated the power and
effectiveness of a well - organized process to engage citizens
and stakeholders in public policy issues that can move an
entire community from conflict, struggle and debate to
dialogue, understanding, and collaborative action for
change.
ENCOMPASS LLC
"What will be different in
6 weeks because of what
we did here today ?"
(Laverne Webb,
Conference Facilitator)
EVALUATION FEEDBACK FROM ACTION CONFERENCE
Section 6, Page 1 of 3
The Action Conference Evaluation asked three questions:
1. What did you most appreciate about the Action Conference?
2. What did you find most useful?
3. What would have made it better?
For each of these questions, responses were reviewed and grouped into themes or
categories. Then the frequency of responses that supported one or more of the
categories was calculated.
1. Appreciation
Participants' answers fell into one of the following categories (in descending order of
emphasis):
• Communication and collaboration: participants appreciated working with other
community leaders, community services, government, commerce, landlords, and
tenants; also listening to others and being heard.
• Inclusion and diversity participants liked hearing from different points of view
and, to the extent that there was diversity, they appreciated that inclusion.
• Enthusiasm and openness: participants repeatedly stressed that particular aspect
of communication and the positive orientation of the conference.
• Taking charge: participants felt proud that this was for and 12y the people of
Dubuque.
• Action focused: participants were pleased by the practical nature of the
conference and its grounding in reality and follow up.
• Methodology and organization: participants appreciated the process and the way
the conference was ran.
2. Usefulness
Participants found most useful (in descending order of emphasis):
• Methodology and organization: participants found useful the focus and clear
direction provided by the structure and facilitation of the conference, the clarity
and order of the materials, the small groups, and moving around that gave them a
chance for intimate conversation with a maximum number of people.
ENCOMPASS "r
ENCOMPASS Ile
Exhibit 6.1
fs.gwnl.. In Alden Continuum Evahstlen P..elsM
Most evprenatee
Most useful
Section 6, Page 2 of 3
• Communication and collaboration: participants found useful that, regardless of
opinions, most people were able to discover a common goal —to make Dubuque a
better place —and were able to collaborate around that.
• Inclusion and diversity: participants found useful to listen to views they might
otherwise not be exposed to.
• Take charge: participants found useful the "responsibility" this event placed upon
the citizens of Dubuque.
• Action focused: participants found useful that the work was tied to planning.
• Enthusiasm and Openness: participants found useful that there was a positive spirit
throughout the conference.
The stacked -bar chart is a visual representation of the frequency with which these
various themes appeared in response to each of the first two questions.
3. Made the conference better
Responses about what would have resulted in a better conference were as follows (in
descending order of emphasis):
• Diversity should have been greater. Participants felt strongly that including more
youth, ethnic minorities and tenants would have made it a much better
conference.
• The Time should have been longer. Participants felt rushed and needed more time
to put together more thoughtful plans.
• Greater Clarity would have made the conference better. This issue might have
been linked with the need for more time —since things had to happen in a shorter
period, clarity might have been short- shifted a little.
ENCOMPASS u.c
Section 6, Page 3 of 3
• Technology support, e.g., computers at the tables would have made it more
efficient.
• More hard data would have made for more informed plans. This might also be
related somewhat to the need for more time.
The need for greater diversity is echoed in the results from the Action Conference
"unresolved issues." It is an important issue that needs attention as Dubuque citizens
forge ahead with their plans on affordable housing and economic development.
SUMMARY OF ACTION CONFERENCE HISTORIAN'S REPORT
CS
ENO: seam "C
Section 7, Page 1 of 2
The purpose of the Historian's report was to analyze the Action Conference and
evaluate its results. Overall, the Historian experienced the Conference as one
where unusual collaboration produced significant outcomes including:
• linking employment to housing
• creating a comprehensive downtown development vision
• forging new relationships between tenants, landlords and housing services
• identifying the need for a housing needs assessment
• identifying opportunities for all sectors of the community
While these outcomes were important, far more significant for the Historian were
pivotal shifts that occurred in community decision- making processes. A new form of
collaboration is creating a sense of community agency, the ability to dream and
make the dream of affordable housing a reality. The Historian's report documents
and examines both process and outcomes emerging from this groundbreaking
collaboration and is presented in its entirety in Appendix vi.
Important points include:
• The Action Conference emerged as an altemative model to making policy
through "non - control planning." Several key elements were to some extent
present consensus of values, decentralization of power, widespread
participation in decision - making, cultural diversity and inclusion, building trust,
work in non - hierarchical model, based on a belief of self- reliance, integration of
diverse activities outside of the workday such as song, dance, and poetry, and
listening with a genuine belief in the intelligence of others.
• Successful facilitation created a situation in which polarized groups have been
participating together in change. Facilitators Webb and Finegold were not
"controlling" but listened openly to the Planning Committee and adjusted the
design of the process to meet Dubuque's unique needs.
• Although the Planning Committee tried to be inclusive of minorities, many were
left out. Youth, ethnic minorities, and low - income tenants were
underrepresented, and those present were clustered in one table. In the future,
instead of "issuing invitations" the Planning Committee might consider holding
open meetings at more accessible places to all —such as church basements and
neighborhood community centers.
• The roving storytellers created a sense of shared history and a consensus
around the value of home.
• Director of Dubuque's Housing Services David Harris provided a powerful
introduction to the conference by declaring, "Housing is everybody's business in
Dubuque." He not only gave participants direction but also invited all to
participate as equals in the process.
• The process of framing collaboration through appreciative interviews and stories
of successful collaboration was very successful. This was important to ensure
Section 7, Page 2 of 2
inclusiveness among all present at the Action Conference, especially
participants who were new to this type of collaboration.
• Articulation of best outcomes worked well for most, except possibly for the
tenants group which seemed tense. It was later revealed to the Historian that
this group was concerned that the Conference diversity needed to be improved.
• Prioritization worked well and even inhibited individuals could go up and vote.
• By mid -day several issues came up, including some participants feeling rushed,
and some wishing they had more information to prepare for addressing some of
the issues.
• In Action Planning, large groups allowed some of their participants to become
complacent.
• Presentation of Action Plans were powerful, especially when a Bosnian
participant stood to present his group's action plan and spoke in his native
language leaving the room silent and still, and confused for a moment as to how
to respond. The Historian observed the experience as an invitation for Dubuque
to stretch itself to embrace newcomers with languages and cultures that may
seem strange.
• The Conference ended with reflection about "What will be different in six
weeks because of what we did here today ?" Answers included: enthusiasm,
booklets distributed, more responsive government, invest in the community,
motivate the wealthy to be more involved, thank David for his leadership.
• The Historian's final advice through the words of Leonard Duhl were: Go to
strange places to get information!
6
ENCOMPASS
FROM THE HOUSING SUMMIT CONFERENCE TO THE ACTION
CONFERENCE: A RETROSPECTIVE ANALYSIS
Section 8, Page 1 of 6
Participants in the Housing Summit Conference, Focus Groups and Action Conference
in Dubuque documented various results as they worked on the issue of affordable
housing. These documents were reviewed to investigate whether they reflected any
significant changes in the issues emphasized at each gathering, and in the overall
direction set out at the Summit. Issues documented by participants were grouped into
larger categories and the number of times an issue was mentioned was recorded.
Information was recorded in four areas:
1. Values participants emphasized that they wished to see reflected in their work
and their process of collaboration
2. Hopes and expectations for the future of affordable housing in Dubuque
3. Actions participants were prepared to undertake to implement their visions
4. Important unresolved issues
Even though participants in the groups changed —some people were part of all three
gatherings, others two, and others only one —the community as a whole was exposed
to the effects of this new process of conducting government business. The effect of
the process was felt by many citizens who had not participated directly in the
gatherings, but became aware of it through word -of- mouth, media coverage, and
specific changes in policy and behavior by Housing Department staff. The following
discussion presents some hypotheses in an attempt to interpret the changes in the way
the community conducted its business.
Values
The values emphasized by participants could be organized in the following categories:
• Inclusion /Equity/Participation
• Communication /Listening /Openness
• Commitment /Accountability
• Practical plans based on reality
• Honoring the past /building on existing assets
d
ENCOMPASS 1
ENCoApass
Exhibit 81
Changes in Frequency of Citizens' Values
Housing Summit Focus Groups Amon Corneren
Section 8, Page 2 of 6
• Honanng pastmui &,g ,n assets
❑ PraRia i Fans based on reality
o CommmentfA¢oonmt hty
SCpmmunraton&stenmgtOpenness
cintlusa'Equitylpartic,pa on
As can be seen by the table above, there was a shift in emphasis on different values as
the citizens of Dubuque moved through the appreciative inquiry process.
At the Summit, participants emphasized inclusion, equity, and participation
overwhelmingly. Significant emphasis was also placed on communication, listening and
openness. This is not surprising, as participants were embarking on a process that
demanded of them a new type of communication and collaboration. Some of the
stakeholder groups might not have been accustomed to collaborating with each other
and, through their discussion and dialogue about values, articulated their commitment
to communication and collaboration across boundaries.
By the time the Focus Groups were convened, participants and the community had
experienced the power of collaboration. Communication and listening were very
important in all three gatherings, actually increasing in importance at the Action
Conference. Although participants remained committed to inclusion in the Summit,
emphasis begins to shift to a newly emphasized value: honoring the past and building
on assets. Two explanations are possible for this: (1) participants demonstrated
increased confidence in their credibility as representing the whole community, or (2)
the less powerful constituencies were silenced by those with more power who took
over the action planning. It might be a little of both. Evidence of their confidence in
their ability to do good work together was their open celebration of their past history,
culture and identity. As a result, participants demonstrated increased readiness for
action evident in their stronger articulation of the need for practical plans based on
reality. On the other hand, as we see in the documented "Unresolved Issues" (from
the Parking Lot, see this Section, page 6), inclusion was an important unresolved
issue.
In the future, participants will continue to develop comfort about their collaboration,
and there is a danger they might forget to challenge themselves to make sure all
stakeholder voices are heard. As they carry forward their plans with enthusiasm and a
mind for action, they will ensure greater credibility and support for their plans if they
remember to stay open and reach to those who might find it more difficult to
participate. Supporters of economic development priorities recognized the need to
embrace diversity as a pre - requisite to successful economic growth and "staying
competitive" in a tight labor market. Thus, finding ways to understand and work
together with ethnic minorities, youth, and others will be critical for the economic
future of Dubuque.
In the Action Conference, participants expressed two dominant values:
communication/ listening /openness and practical plans based on reality. Their
readiness to act and their ability to communicate effectively are evidenced by the
specific practical and ambitious plans that are developed at the Action Conference.
Commitment and accountability are emphasized less than the Summit or the Focus
Groups, probably because they are already committed.
Hopes and Expectations
The hopes and expectations emphasized by participants throughout the process were
organized in the following categories:
ENCcwnss
Exhibit 8.2
Chingos in Frequency dCases' Hopes and ExpeWtlo s
® Excellence in Public Senesce
o Ece nomt D.va word
Diwc-
o See ReepctP"Je
O GYpaNaefnmmwity
Section 8, Page 3 of 6
CO
ErwCoMVnss "c
Section 8, Page 4 of 6
• Collaboration /Community
• Self Respect /Pride
• Diversity/Empowerment
• Economic Development
• Excellence in Public Service
In the Summit, most dominant in the hopes of participants were plans and actions that
would emphasize collaboration and community support/action, and that would
promote pride, self - reliance, and self - respect. A need for embracing diversity and
empowering those who had not been at the discussion table was also expressed.
Finally, there was recognition of the importance of economic development and the
role the government could play in promoting participants' priorities (see the
Excellence in Public Service issue). Hopes and visions inspire ambitious goats and
participants seem enlivened by the power of their collaboration to help everyone
increase pride in the community and its environment, and to discover the love citizens
feel for their city.
in the Focus Groups, there was greater emphasis on what the government can do to
support participants' priorities and perceived needs. There was also continued
emphasis on collaboration and community (although less strong), and a significant
increase in emphasis on economic development. Here participants repeatedly
expressed anxiety about the complexity of the issues. They might have experienced
some level of powerlessness reflected in the shift in emphasis (and responsibility) from
the individual to the government.
In the Action Conference, support for each of the goal areas was almost equal.
Compared to the Focus Groups, there was equal emphasis on economic development
and diversity and empowerment, and a relative increase in self- respect and pride. This
supports the hypothesis that participants were more prepared to take a greater share
of responsibility for the success of their plans than earlier. The increased emphasis on
economic development might also demonstrate an increased preparedness to be
practical, and a greater understanding of the complexity and interrelationship of the
issues.
Visions and Plans
The following table shows the relationship between the visions articulated in the
Summit, the priority given to these issues in the Focus Groups, and the plans
developed in the Action Conference.
Exhibit 8.3
Relationship between Housing Summit Visions, Focus Group Emphasis,
and Action Conference Plans
Action Conference Plans
Youth Participation Empowerment (2)
"Mixed" Neighborhoods (3)
Second most emphasized no specific plans
area by the focus groups.
Third most emphasized "Mixed" Neighborhoods (3)
Improve Downtown (5)
Livable Neighborhoods (6)
Develop Downtown Master Plan (7)
Affordable Housing Action Plan (1)
Summit Visions
Action Education/Inclusion
Family Life (with an emphasis on
supporting healthy families)
Pridc/R....ct the
Environment/Improve
Neighborhoods
Housing Needs (emphasis on
offering affordable housing to all)
Communication
Economic Development
Transitional Housing
Service
Stewardship/Community
ENCoMPASs ut
Focus Group Emphasis
Most emphasized
Important
Important
Important
Important
Important
Important
Clearinghouse on Programs (4)
"Mixed" Neighborhoods (3)
Improve Downtown (5)
Livable Neighborhoods (6)
Develop Downtown Master Plan (7)
"Mixed" Neighborhoods (3)
reflected in all specific plans
on8, Page 5of6
An interesting progression can be seen in comparing the visions articulated in the
Summit Conference, the emphasis of the focus groups, and the pions prepared in the
Action Conference. All Summit visions were reflected in different ways in the plans
prepared at the Action Conference. By the time of the Action Conference, participants
focused on fewer initiatives through which they could articulate specific plans and
actions to realize their visions.
Section 8, Page 6 of 6
Unresolved Issues
The "unresolved" issues listed on the Parking Lot at the Action Conference
demonstrate the struggle of participants with the complexity of their undertaking.
These issues fall into the following categories:
1. Inclusion: Participants expressed concern about the extent to which they were
representative of their community. Specifically, participants were concerned
that:
• tenants' rights were respected and tenants were empowered in this process
• landlord needs were met
• those with power to make decisions were indeed engaged
• landlords were committed to this process "for real"
• disenfranchised groups (based on race, ethnicity, youth) were included
2. Confidence: Participants questioned their preparedness to do the work.
Specifically, they expressed concern of the fast pace of change, fear that they
do not have enough information to do the work, and fear that their needs
might not be met through this process.
3. Specific interests: Participants listed priorities they supported strongly to
ensure that these priorities are underscored. For example, they expressed
support for under - funded programs, programs that offer tenants more choice,
and increasing support for trailer classrooms for schools.
The Parking Lot, or "unresolved issues" board, was used effectively to help express
and contain fears and feelings of individual participants throughout the process and to
enable the process to move along. The items listed also represent issues that, if left
unresolved, might become obstacles for the successful implementation of plans and
actions around the affordable housing issue. Thus, task force coordinators and
participants would be well advised to incorporate addressing the issues listed above in
their task forces and planning for the future.
ENCOMPASS uc