FY2005 Consolidated Annual Performance and Evaluation Report (CAPER)
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MEMORANDUM
September 9, 2005
TO:
The Honorable Mayor and City Council Members
FROM:
Michael C. Van Milligen, City Manager
SUBJECT: Consolidated Annual Performance and Evaluation Report (CAPER)
July 1,2004 to June 30, 2005
Housing and Community Development Department Director David Harris is
recommending approval of the Consolidated Annual Performance and Evaluation
Report (CAPER) for the period of July 1, 2004, through June 30, 2005.
The following are the most significant points of the report:
1. CDBG funds were used to meet the priority housing and non-housing community
development needs identified in the Consolidated Plan and Annual Action Plan
for Fiscal Year 2005 as amended.
2. The City expended 70% of CDBG funds on activities which benefit low/moderate
income persons. A minimum of 70% is required for use of CDBG funds. This
increases to 81 % for the two-year certification period from Fiscal Years 2004 and
2005.
3. The City expended $2,590,112 or 62% of the CDBG funds available during the
reporting period. The City was able to meet the timeliness target for expenditure
of CDBG funds as set by HUD for May 1, 2005, due to amendments to the
Annual Plan which expedited the expenditure of funds.
4. The City spent 13% of its CDBG funds for public service activities. The cap for
public services set by HUD is 15%.
5. The City expended 18% of its CDBG funds for Planning and Administration. The
cap for these activities is 20%.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
(dJt~~ /
Mic ael C. Van Milligen
MCVM/jh
Attachment
cc: Barry Lindahl, Corporation Counsel
Cindy Steinhauser, Assistant City Manager
David Harris, Housing and Community Development Department Director
(U
CITY OF DUBUQUE, IOWA
MEMORANDUM
September 9, 2005
FROM:
Mich~l~' Van Milligen, City Manager
David ~ris, Housing and Community Development Department
TO:
SUBJECT: Consolidated Annual Performance and Evaluation Report (CAPER)
July 1, 2004 to June 30, 2005
INTRODUCTION
The purpose of this memorandum is to request City Council approval of a resolution
authorizing the Mayor to sign the Consolidated Annual Performance and Evaluation
Report (CAPER) for the period of July 1, 2004 through June 30, 2005. Such action is
required by the regulations governing the Community Development Block Grant
(CDBG) Program.
DISCUSSION
As a Community Development Block Grant (CDBG) recipient, the City is required to
submit a performance report within 90 days of the close of each program year. The
U.S. Department of Housing and Urban Development (HUD) requires the submittal of
the Consolidated Annual Performance and Evaluation Report (CAPER), which is based
on the computerized HUD system for CDBG management known as the Integrated
Disbursement and Information System (IDIS). IDIS provides for grantee data
processing for CDBG projects and disbursement of funds.
The CAPER provides information on how the City actually used its entitlement funds
during the most recently completed program year. It provides a description of each
activity for which funds were budgeted as well as information on activity
accomplishments. Regulations require that the report be made available to citizens in
time to comment prior to submission to HUD.
A public notice was published in the Telegraph Herald on August 23rd and in the
Dubuque Advertiser on August 24th informing the public a draft copy of the CAPER
was available for public review. Copies were placed at the public library reference
desk, the City Clerk's office, and the Housing and Community Development Department
office. As of the date of this memorandum, no inquiries or written comments have been
received as a result of these notices.
The CAPER, which accompanies this memorandum, was prepared from data supplied
by various City departments and by organizations, agencies, and companies who
utilized CDBG funds over the twelve-month period ending June 30,2004. This
information was aggregated as required.
The Community Development Advisory Commission conducted a public hearing on the
CAPER on Thursday, September 8,2005 at the Carnegie Stout library. At the hearing,
staff reviewed the format and content of the report and responded to questions from the
Commission.
The following are among the most significant points of the report:
1. CDBG funds were used to meet the priority housing and non-housing
community development needs identified in the Consolidated Plan and
Annual Action Plan for Fiscal Year 2005 as amended.
2. The City expended 70% of CDBG funds on activities which benefit
low/moderate income persons. A minimum of 70% is required for use of
CDBG funds. This increases to 81% for the two-year certification period from
Fiscal Years 2004 and 2005.
3. The City expended $2,590,112 or 62 percent of the CDSG funds available
during the reporting period. The City was able to meet the timeliness target
for expenditure of CDBG funds as set by HUD for May 1, 2005 due to
amendments to the Annual Plan which expedited the expenditure of funds.
4. The City spent 13% of its CDBG funds for public service activities. The cap
for public services set by HUD is 15%.
5. The City expended 18% of its CDBG funds for Planning and Administration.
The cap for these activities is 20%.
Following the public hearing and its discussion, the Community Development Advisory
Commission voted unanimously to approve the CAPER and to recommend City Council
approval.
RECOMMENDATION
It is recommended that the City Council approve the attached resolution, providing for
the submission to HUD of the Consolidated Annual Performance and Evaluation Report
(CAPER) for July 1, 2004 to June 30, 2005.
ACTION STEP
The action step is for the City Council to adopt the attached resolution.
Prepared by Aggie Tauke, Community Development Specialist
att.
F:\Users\A T AUKE\COBG\CAPER\COUNCIL.doc
RESOLUTION NO. -05
RESOLUTION AUTHORIZING THE SUBMISSION OF A CONSOLIDATED
ANNUAL PERFORMANCE AND EVALUATION REPORT (CAPER) FOR THE
PERIOD COMMENCING JULY 1, 2004 AND CONCLUDING JUNE 30, 2005.
Whereas, the City of Dubuque, Iowa, is an entitlement grant recipient under the
Community Development Block Grant (CDBG) Program of the U.S. Department of
Housing and Urban Development (HUD); and
Whereas, the CDBG regulations require that no later than ninety (90) days after
the completion of a program year, each entitlement recipient must submit a
performance and evaluation report, Consolidated Annual Performance and Evaluation
Report (CAPER); and,
Whereas, the City has 1) prepared a CAPER for the program year commencing
July 1, 2004 and concluding June 30, 2005; 2) published notice of availability of the
CAPER in the Telegraph Herald on August 23,2005 and in the Dubuque Advertiser on
August 24, 2005; 3) made copies of the CAPER available for public review at the
Carnegie Stout Public library, City Hall, and Housing and Community Development
Department; 4) held a public hearing pursuant to published notice before the
Community Development Advisory Commission on September 8, 2005; and
Whereas, the Community Development Advisory Commission has voted to
approve the CAPER and to recommend City Council approval.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY
OF DUBUQUE, IOWA:
Section 1. That the Consolidated Annual Performance and Evaluation Report
(CAPER) for the period commencing July 1, 2004 and concluding June 30, 2005, a
copy of which is attached, is hereby approved for submission.
Section 2. That the Mayor of the City of Dubuque is hereby authorized and
directed to execute the Consolidated Annual Performance and Evaluation Report
(CAPER) on behalf of the City of Dubuque, Iowa.
Section 3. That the City Manager is hereby authorized and directed to submit
the Consolidated Annual Performance and Evaluation Report (CAPER) to the U.S.
Department of Housing and Urban Development.
Passed, approved and adopted this _ day of September 2005.
Terrance M. Duggan
Mayor
Attest:
Jeanne F. Schneider, City Clerk
F:\Users\A T AUKE\COBG\CAPER\CaperResoIutlon.doc
CITY OF DUBUQUE, IOWA
CONSOLIDATED ANNUAL PERFORMANCE AND
EVALUATION REPORT
(CAPER)
COMMUNITY DEVELOPMENT BLOCK GRANT
PROGRAM
Fiscal Year 2005
(Program Year 2004)
July 1, 2004 to June 30, 2005
August, 2005
Prepared by the Housing and Community Development Department
1805 Central, Dubuque, Iowa
563-589-4239
comdev@cityofdubuque.org
FY05 ANNUAL ACTION PLAN-EXPENDITURE SUMMARY -CAPER
Amd FY05 FY05 FY05
Housina DeveloDment Proarams: Annual Plan Expenditures Balance
First Time Homebuyer Program 125,000 15,000 110,000
Historic Preservation Rehab Grant 50,705 15,000 35,705
Homeowner Rehab Program 600,000 148,500 236,627
Lump Sum 0 214,873
Housing Administration 54,678 53,584 1,094
Housing Code Enforcement 133,167 102,698 30,469
Housing Rehabilitation Services and Staff 280,679 240,395 40,284
Housing Trust 127,288 40,271 87,017
Lead Paint Hazard Abatement Project 90,000 29,359 60,641
Purchase/Rehab/Resale DREAMS 27,672 27,672
Rental Unit Rehabilitation 293,499 66,258 227,241
Washington Court Project- Acquisition 200,000 200,000
Housing Totals 1 ,982,688 925,937 1,056,751
Economic Development Programs:
Commercialllndustrial Building Rehab Loans 650,000 650,000 0
ED. Financial Assistance Program 300,000 300,000
Economic Development Services and Staff 124,844 125,807 -963
Economic Development Totals 1,074,844 775,807 299,037
Neighborhood and Community Development Programs:
Accessible Curb Ramps 91,920 59,803 32,117
Bishop Block Community Room 13,000 13,000
Child. Care Resource/Referral-Project Concern 9,291 8,576 715
Community Partnership Program (CP2)* 157,058 70,678 86,380
Deer Management Food Program 500 495 5
Downtown Resource Guide 3,500 3,500 0
Dubuque Dispute Resolution Center 2,000 1,845 155
Dubuque Area Labor Harvest- Acquisition 78,000 78,000 0
Historic District Public Improvement Projects 154,687 120,718 33,969
Information & Referral - Project Concern 26,367 24,339 2,028
Leadership Training 5,000 666 4,334
Neighborhood Development Services and Staff 83,483 78,764 4,719
Neighborhood Infrastructure Improvements 50,000 46,260 3,740
Neighborhood Recreation Program 131,434 104,391 27,043
Neighborhood Support Grants 45,394 18,646 26,748
Senior Center 21,667 16,667 5,000
Washington Tool Library 16,692 15,292 1 ,400
Zoning Inspection/Enforcement 13,260 12,884 376
Neighborhood & Comm. Develop. Totals 903,253 661,524 241,729
Planning & Administration Programs:
CDBG Admin. Services and Staff 111,765 96,424 15,341
Finance 10,036 10,036 0
City Planning Services and Staff 0 0
Planning Administration 14,208 13,286 922
Planning City Planning 106,535 107,099 -564
Planning and Administration Totals 242,544 226,844 15,700
Continguency (Uncommitted funds) 2,467 -1,859
Totals 4,205,796 2,590,112 1,611,358
CONSOLIDATED ANNUAL PERFORMANCE AND
EVALUATION REPORT (CAPER)
Summary of Consolidated Plan Projects
For The Use of Fiscal Year 2005
Community Development Block (CDBG) Grant Funds
HOUSING DEVELOPMENT PROGRAMS
Homeowner Rehab Program
Operation Paintbrush
Operation UpKeep
Sanitary Sewer Installation
Housing Code Enforcement
First Time Homebuyer
Rental Unit Rehab
Moderate Income Rehab
Historic Preservation Rehab Loans
Actual
Units
12
5
20
17
799
3
14
3
ECONOMIC DEVELOPMENT PROGRAMS
Consolidated
Plan Priority
Medium
Medium
Medium
Medium
Medium
ED Financial Loans
Commercial Industrial Building Rehab
36 Jobs Medium
Brewery Rehabilitation
NEIGHBORHOOD and COMMUNITY DEVELOPMENT PROGRAMS
Actual
Consolidated
Plan Priority
Medium
Community Partnership Program (cp2)
15 At-risk youth received vocational training (4 Oaks/4Mounds)
112 After school program - Kids Connection (St Mark Community Center)
148 Mentally ill persons assisted with outpatient group therapy and transportation (Gannon Center)
54 Home-bound elderly received oral health care (Visiting Nurse Association)
110 Students attended guided reading summer program (Audubon)
Accessibility ramp and restroom for Ryan House (Dubuque County Historical Society)
Neighborhood Recreation
Day Camp
Music lessons for low-income youth
Community Basketball
Low Income Swim Passes
Playtime for Tots
Information and Referral
Child Care Resource and Referral
Zoning Enforcement
Washington Tool Library
Street Overlays
Sidewalk/wall Improvements
Accessible Curb Ramps
Mediation by Dispute Resolution Center
Assisted Senior Center Operating Costs
(Dubuque Area lifeTime Center)
Leadership Training
St. Stephen Food Bank (Deer Management Food Program)
Dubuque Area Labor Harvest- Acquisition of 423 West Locust
Free Food Giveaways
Downtown Resource Guide
2018 youth
159 youth
19 youth
42 persons
335 persons
99 persons
2743 families
1305 referrals
87 properties
596 households
7 streets
40 sidewalks
71 ramps
41 persons
650 persons
1 organization
137persons
318 persons
4000 guides
Medium
High
High
Medium
Medium
Medium
Medium
Medium
Medium
Medium
High
NEIGHBORHOOD and COMMUNITY DEVELOPMENT PROGRAMS (continued)
Historic District Public Improvements
Loras Boulevard Historic Lights
Jackson Park Historic District
Langworthy Historic District
Neighborhood Support Grants
North End Neighborhood
Downtown Neighborhood
with Dub Main Street L TD
with St Mark Community Center
with St Mark Community Center
with St Mark Community Center
With Boys and Girls Club
Historic Bluffs Neighborhood
Valley View Neighborhood
Hispanic Ministry
Dub County Extension
St Mark Community Center
Actual
Consolidated
Plan Priority
12 lights
34 planters, 4 benches, 12 trash receptacles
66 planters
Medium
Newsletters; Resource Fair,
2004 Youth Summer Enrichment
Neighborhood Cleanup
2004 Summer Kids Connection
Summer Think Together
Jackson Park Neigh Concert
2004 Summer Reading Enhancement
Neighborhood Cleanup; Newsletter
Communication; Avon Park
Communications; Neighborhood Beautification
Cinco De Mayo Neighborhood
Family Nights- Audubon
Neighborhood Concert
Consolidated Plan for Housing and Community Development adopted for FY 2006-2010.
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Dubuque's Housing and Community Development Department
"Working for You"
An activity report for Fiscal Year 2005
Affordable Housing
Economic Opportunities Families and Neighborhoods
Rental Assistance Program
The primary means of directly providing affordable rental housing is available through HUD's
Section 8 Program, which offers rental assistance to lower-income families. The Housing
Department provides area landlords approximately $4 million annually, with funds received
from HUD, to subsidize rents for 1,085 tenant households. This program has been
operational in Dubuque since 1976.
The Section 8 Program received a fourth consecutive "High Performer" housing authority
rating from the HUD Regional Office, using their statutory assessment system. The 100%
score indicates that procedures and policies were in place and enforced according to HUD's
regulations.
A third annual "Road to Success" jobs fair for Family Self-Sufficiency Program participants
was held. At this event, FSS families participate in mock job interviews, receive critical
feedback and also "shop" for good business clothing donated by Housing Department and
other City staff. This prepares Section 8 renters for entry into the job market and eventual
graduation from welfare assistance.
For the Self-Sufficiency Program, we obtained a $25,000 HUD grant to provide
homeownership and financial counseling for all FSS participants. With these funds, we
subcontracted with the ISU-Dubuque County Extension Office. Extension counselors meet
with all 45 FSS families throughout the year, preparing them for financial independence and
possible homeownership. This marked the twelfth consecutive year of operations for our
Family Self-Sufficiency Program.
Home Purchase Assistance
The Housing Department assisted three first-time homebuyers, using $15,000 in CDBG
funds.
With the $100,000 award received in FY04 from the Des Moines Federal Home Loan Bank,
we provided $40,000 in grants to 10 very low-income (<50% median) families to purchase
and improve their first homes.
Total private investment match for homebuyer programs - from the buyer families, State
funds, and area lenders - equaled more than $822,000 million during the fiscal year.
1
Rehabilitation
We continued administration of a number of housing rehabilitation-loan programs, for both
owner-occupied housing and rental units. Fourteen apartments were completed or in the
process of rehabilitation, using $87,000 (CDBG and HOME Program) in City funds, matched
by $173,000 in owner/lender financing. CDBG-funded rehabilitation assistance was
provided to 46 low-moderate income homeowners, using a combination of programs.
In all, the City invested more than $373,000 in homeowner improvement projects in FY2005.
Work on the Five Points comprehensive neighborhood revitalization project continued. The
first of three Four Mounds Foundation-owned homes being rehabilitated under the Housing
Education And Rehabilitation Training (HEART) Program was completed at year-end. This
will be sold to a low-income, first-time buyer family. This collaboration included construction
labor performed by students from the Four Oaks high school classroom, supervised by a
Dubuque Community School District teacher. Four Oaks staff reported a high level of
academic achievement for their students, with all seniors graduating and over 80% intending
to enroll in post secondary schooling.
The Four Mounds-supplied construction supervisor, subsidized for two previous years by
Community Partnership (cp2) grants from the CDBG program, was funded full-time by the
School District. Planning for the coming school year included expanding this carpentry skills
program from one to two crews of students.
Additional rehab work accomplished in the Five Points included restoration of three rental
and two homeowner dwellings.
The Gateways to Home non-profit purchased the former Washington Neighborhood Center,
assisted with a $30,000 grant from Dubuque's Housing Trust Fund. The former homeless
shelter will be converted into a duplex rental. Gateways, a "community housing
development organization" (CHDO) organized with City assistance in 1990, continues to
grow, now owning and operating seven rental units.
FY2005 marked the kick-off of our Washington Revitalize! initiative, a comprehensive project
designed to address many housing and social problems in the Washington Neighborhood.
This has been met with great enthusiasm by neighborhood residents. By year-end, a
neighborhood association had been formed and a board of directors elected, facilitated
through the efforts of the City's Neighborhood Development Specialist.
Central to success in this area will be redevelopment of the former Dubuque Casket Factory,
long a blighting influence. A development partnership including Gronen Restoration secured
approximately $5.4 million in financing, for an adaptive re-use conversion of this historic
building into 35 affordable apartments. Primary in this funding was a $2.6 million tax credit
award from the Iowa Finance Authority (IFA). The Community Development Commission
and City Council approved a $200 000 CDBG award in support of this project.
Dubuque's Housing Trust Fund secured another award from IFA, in the amount of
$163,335. These funds will be used as grants and loans to lowest-income homeowners in
the Washington Neighborhood, to assist with rehabilitation of structures in need of extensive
up-dating.
2
Another key element in place was the announcement by Dubuque Bank & Trust of a $1
million low-interest mortgage loan fund commitment for purchase and rehabilitation of homes
in this area. In addition, the City Council approved a 5-year, $500000 allocation of general
fund revenues to assist moderate-income (80-100% of area median) families to purchase
homes in this neighborhood. This was approved in recognition of the need to increase
homeownership and to encourage more of a mix of household incomes in this predominantly
low-income rental area.
Finally, additional good news for the Washington Neighborhood was the opening of the
Multi-Cultural Center, funded with a FY 06 $43,700 grant in from the Community
Development Commission. The Center will serve as a focal point for family-oriented
activities for neighborhood residents and particularly encourage newcomer families to share
their cultural backgrounds and traditions.
Housing Code Enforcement
CDBGF funds are used for housing code enforcement in targeted downtown neighborhoods.
800 inspections and 680 re-inspections of rental units were completed, with a total of 8000
violation notices cited and/or corrected. Inspectors adhere to the "broken window" theory,
which holds that code enforcement must be vigilant to the first signs of disrepair in a
neighborhood. Whether these be graffiti, an abandoned vehicle or a broken window, if left
unattended they will signal a lack of civic commitment to maintaining a neighborhood.
Lead Paint Hazard Reduction
Dubuque's Childhood Lead paint Poisoning Prevention Program continued operations with
renewed HUD funding. 254 units have been inspected and 100 completed since the grant
was received in October 03. Trainings and certification classes provided to 318 contractors,
workers and property owners, totaling 762 hours of both classroom and on-site training by
Department inspection staff. CDBG funds in the amount of $29,360 were used for lead paint
removal in five housing units.
Under the $2.4 million HUD award received in FY04 for lead hazard reduction activities, we
completed 91 housing units, making them "lead-safe" for occupancy by young children. This
program is co-administered by the Health Department with support from the Visiting Nurses
Association and the Lead Coalition. A total of $945,000 was expended on lead remediation
efforts during the year.
Additional Program Activities
The City's first "affordable housing subdivision" Eagle Valley, continued with build-out. As of
year-end, 13 single family and duplex homes were under construction or occupied. In
addition, Dubuque's Housing Trust Fund awarded the Cedar Rapids-based Mid-America
Housing Partnership (MAHP) a $44 000 grant to subsidize purchase of lots for 16
townhomes in Eagle Valley. These funds were matched by MAHP to obtain another $120
000 grant from the Iowa Finance Authority, from "American Dream Downpayment Initiative"
(ADDI) funding first offered this year by HUD. Eight of these townhomes will be sold to first-
time buyer, lower-income families; eight others will be purchased by moderate-income
households.
The City Council approved a third affordable subdivision in FY04, offering financial
incentives to developers who agree to limit lot and house sizes. The purpose of this initiative
is to produce new single family homes affordable to moderate-income families. The new
3
Grandview Estates Subdivision is now in initial development stages and will provide 35
additional homes for working families.
The Housing and Community Development Department continued relocation of families on
32nd Street, as part of the City's Bee Branch Drainage Basin Master Plan activities. Fifteen
houses on 32 Street will be purchased and either relocated or demolished in order to double
the storage capacity of the existing storm water detention basin. In addition to acquisitions,
staff work with these families to provide relocation benefits and to assist them in locating and
moving into replacement homes. At year end, purchase agreements had been settled with
13 owners.
In a partnership with the Dubuque Landfill Agency and Environconn, a 32nd Street
demonstration "deconstruction" project was funded. Materials from the purchased homes are
salvaged and resold and diverted from the Landfill, lessening demands on Landfill capacity
to receive the construction debris. Two other 32nd Street homes were moved to new
locations.
The third Davis Place single room occupancy (SRO) facility was constructed and completed,
on Garfield Avenue. This complex now provides needed housing for 50 low-income single
men. The owner has now purchased the former Garfield Hotel and is planning another SRO
project for that site.
Another new initiative in FY05 was planning for a downtown residential home for mobility-
impaired women. To be named "Step by Step," envisioned is establishment of a Dubuque
center for independent living, as a non-profit corporation and owner of the facility. There are
currently seven other similar centers operating in Iowa; Dubuque's would be linked to that
network. Independent living centers are consumer-controlled and -managed, designed to
advocate forthe needs of the disabled and to educate the general public. At year-end, a
consumer group had formed and established an ambitious agenda, including incorporation
and purchase of a residential site.
A final developing initiative concerns the need to address emergency shelter for women and
children. During the year, a coalition of women religious, community agencies and the
Housing Department came together and committed to establishment of a new shelter. This
is intended to be a project under the corporate sponsorship of Opening Doors (as is Maria
House). As of fiscal year-end, an executive director had been selected, funded through the
women religious congregations. A downtown site has been tentatively identified, and
Housing rehab staff are now putting together the feasibility and design analysis, preparatory
to grant writing and fund raising activities to commence this year.
Community Development Activities
The Community Development Commission approved $89,215 in Community Partnership
(cp2) Program awards to six agencies; Audubon Elementary School for a summer school
reading program ($17,244); Visiting Nurse Association for elderly home-based dental care
($5,114); Four Oaks Inc. for the Housing Education And Rehabilitation (HEART) program for
vocational training for at risk youth ($30,000); St Mark Community Center for expansion of
the after school program Kids Connection ($7,000); Dubuque County Historical Society for
an accessible restroom and ramp at the Ryan House ($17,580); and the Gannon Center for
transportation costs and outpatient skill building sessions for persons with mental illness
4
($12,177). The Commission also extended the cp2 grant for the Tri-State community health
center ($50,000) to allow time for reapplication for federal funding.
In reallocating prior year CDBG funds, the Commission approved $200,000 for the
Washington Court project, the adaptive reuse of the Dubuque Casket Company Building into
35 affordable rental housing units and office space. The Commission also funded $78,000
to the Dubuque Labor Harvest for the acquisition of a new facility for their food distribution
program, as their former building was acquired by the School District for a new downtown
school; and $13,000 for the development of a community room at the Bishop Block
apartments.
Economic Development Activities
The City expended $650,000 in Community Development Block Grant funds for the Brewery
restoration project, under a contract with the Madison-based Alexander Company.
leisure Services/Parks and Recreation Activities
The neighborhood recreation program expended $104,391 for programs including the
community basketball league, day camp, music lessons, low-income swim passes, playtime
for tots and after school programs at Audubon and Prescott schools.
Neighborhood Activities
The Neighborhood Grant Program provided $18,646 in assistance to four neighborhood
organizations for four non-profit community organizations to support 12 programs and
projects in the low-moderate income areas of the downtown and North End. Funded
neighborhood projects included summer enrichment programs for youth resource fairs,
family concerts, newsletters and neighborhood clean-ups and beautification programs.
Other Community Development Activities
Other CDSG assistance throughout the year included the following; Information and Referral
($24,339) and Child Care Resource and Referral ($8,576) programs administered by Project
Concern; Dubuque Area lifeTime Center- a center for senior citizens ($16,667);
Washington Tool Library ($15,292); construction of accessible curb ramps ($59,802);
asphalt street overlays in low-income neighborhoods ($25,000); sidewalk improvements for
low-income property owners ($21,260); Downtown Resource Guide ($3500) and the Deer
Management Food Program administered by St Stephen Food Bank ($495).
CONSOLIDATED PLAN
The FY 2006-2010 Consolidated Plan for Housing and Community Development was
completed in April, 2005 after extensive public input and comprehensive review by the
Community Development Advisory Commission. The Consolidated Plan is required by the
U.S. Department of Housing and Urban Development (HUD) for communities receiving
CDBG funds. It is a five year plan providing for services and programs in support of lower-
income citizens.
The Plan provides an analysis of local housing needs in a number of areas including:
Housing and Market Analysis, Housing Needs, Homeless Needs Assessment, Barriers to
Affordable Housing, Community Development Needs, Special Needs Population and an
Antipoverty Strategy.
5
A Strategic Plan was also completed to address the housing, economic and community
development needs identified through this citizen participation process. The Plan identifies
three themes: Affordable Housing Opportunities, Families and Neighborhood Revitalization,
and Economic Opportunities. Goals and objectives were identified using community input,
Commission priorities and anticipated funding projections.
CITY OF DUBUQUE
ANNUAL PERFORMANCE REPORT -FY2005
CDBG BENEFICIARIES
PERCENTAGES 0-30% 31-50% 51-80% 81-100% TOTAL
area area area area
median median median median
income income income income
HOUSING 45 56 47 1 149
(HOUSEHOLDS)
NON HOUSING 7023 2064 4627 1662 15376
(PERSONS)
HOUSING
PERCENTAGES 0-30% 31-50% 51-80% 81-100% TOTAL
area area area area
median median median median
income income income income
RENTERS 4 6 0 0 10
OWNERS 6 18 30 0 54
EMERGENCY CODE 0 0 0 0 0
REPAIR lOANS
TOTAL 10 24 30 0 64
Continuum of Care
Dubuque's "Continuum of Care" consortium, comprised of approximately 20 area homeless
service agencies, meets periodically throughout the year. Staff at Project Concern and Maria
House coordinate the consortium, operating as a "homeless coordinating board" and acting to
network and share information among local non-profits.
Other Actions
1. Public Policies
Barriers to affordable housing exist in Dubuque. These barriers have been identified
by various reports and studies performed by or on behalf of the City of Dubuque. A
report of the Affordable Housing Task Force identified some of the barriers as follows:
6
. Opposition by property owners to development of affordable housing in their
neighborhoods.
. The necessity of subsidy in order to make projects feasible, as affordable rents
cannot pay the costs of new developments.
. Increasing prevalence of service sector jobs, resulting in reduced real income
growth. Nationally, young households (aged 18-34) had lower real income
in 1989 than in 1974. (State of Nations HousinQ, 1991 ). In Dubuque, adjusted
per-employee earnings actually decreased 11 % during the 1980-1990 period.
. Opposition by the City to directly providing publicly owned housing.
. A strong real estate economy, pushing up home prices and making upper-end
housing construction a demand market.
. The age of Dubuque's housing (45% built pre-1940) resulting in increased
maintenance and operating costs.
The City Council-appointed Affordable Housing Committee issued a report in late
2002 which presented recommendations for the Council's review.
Among these were recommendations for City subsidy in support of new affordable
home development, including suggestions for use of tax increment financing, general
fund revenues and for a utility fee surcharge to capitalize a development fund. These
were proposed to address the "affordability gap" in the Dubuque market identified in
the report for households earning 80% of area median income, of more than $22,000
for a modestly-sized new home.
Another significant proposal was for the City to sponsor development of an affordable
homes subdivision, including purchase of available land and soliciting proposals from
for-profit and nonprofit developers.
Other barriers identified in the report included the lack of developable land, due to the
rugged nature of local topography; the high price of available land; and the perception
that City standards for materials and installation of subdivision utilities and roadway
infrastructure are more demanding than those of outlying communities, resulting in
higher development costs in Dubuque.
Report recommendations which were approved by the Council included reducing
minimum lot width requirements, reducing street widths, waiving water/sewer
connection fees, expanding the City's existing O-interest loan program for assistance
to developers for installation of sewer and water systems and adoption of the
International Residential Code and Wisconsin Code for Historic Buildings.
2. Institutional Structures
The Housing Department works cooperatively with a number of other agencies
participating in the housing delivery system in Dubuque. The Department is
represented on the Alternative Services Family Self-Sufficiency Task Force and on
the area Homeless Coordinating Board. The Department Manager serves on the
7
City's Section 504/ADA Advisory Committee, which oversees compliance activities
relative to accessibility of City facilities and programs. Staff serves on the board of the
Statewide Iowa Association of Housing Officials (IAHO) organization. Two additional
staff serve on the board of directors of the Iowa-National Association of Housing and
Redevelopment Officials (NAHRO), one serves as a board director of the Des
Moines-based Iowa Coalition for Housing and Homeless (ICHH) and one staff serves
on the board of directors of the National Community Development Association
(NCDA).
3. Intergovernmental Cooperation
The Department works with other governmental entities participating in the housing
delivery system. As a member of the Family Self-Sufficiency Task Force, the Housing
Department participates with the East Iowa Regional Housing Authority (EIRHA) in
FSS policy development.
The Department enjoys positive working relationships with a number of State-wide
housing providers, including: the HUD Area Office in Des Moines; the Iowa Finance
Authority; the State Department of Economic Development (IDED), which administers
the HOME Investment Partnership Program; the Des Moines Federal Home Loan
Bank, which administers the Affordable Housing Program for the district; the Iowa
Coalition for Housing and Homeless; and the Iowa Fannie Mae Partnership Office.
4. Lead-Based Paint Hazard Reduction
The Housing Department and the Health Services Department worked closely with
the Iowa Department of Public Health (DPH) in the eleventh year of Dubuque's
Childhood Lead Paint Poisoning Prevention Program, monitoring the incidence of
lead paint in dwellings occupied by children identified with elevated blood levels. All
rental units with young children are tested and lead paint removal is required as a
condition of participation in the City's rehab loan programs.
In addition, a second HUD Hazard Reduction Program Grant was awarded to the
City, in the amount of $2.4 million. Activities were initiated under this program during
FY04.
5. Affirmatively Furthering Fair Housing
The City completed another housing impediments analysis in FY02, under contract with
the John Marshall Law School Legal Support Center. In addition, the City independently
investigates discrimination complaints, having been designated by HUD as a
substantially equivalent human rights agency.
Assessment
The assessment of the City's reporting period efforts to assist in affordable housing
development is as follows:
The Section 8 Program was rated a "High Performer" according to HUD's SEMAP annual
housing authority assessment for the fourth consecutive year. However, at year-end we were
leasing at about 90% of utilization, with a 97% utilization rate for the full year. An annual rate
less than 96% will result in a lower SEMAP rating the following year. This problem has been
primarily caused by HUD funding cuts for the Program.
8
In FY04-05, successive Section 8 funding cuts have totaled 9% for rental assistance and
10% for administrative expenses. The latter has resulted in insufficient revenues to
administer the Program; in response, expenses have been cut across the board and capital
purchases delayed. This has still resulted in deficit spending, meaning a spend-down of our
accrued administrative reserves.
The rental assistance reductions have caused hardships for tenants and landlords. In a
series of responses approved by the Housing Commission, we reduced both payment
standards (the maximum rent we pay for a Program unit) and occupancy standards (the
number of bedrooms we can subsidize for the family). This caused landlords to have to rent
for less and our tenants to pay a greater share of their income for rent. While this addressed
serious deficit spending projections, by year-end unforeseen effects of these new policies
were realized. The lower rents, coupled with HUD restrictions on the percentage of income
our participants may pay as their share, resulted in increasing vacancies. Tenants in many
cases were unable to find units they could afford; landlords were unwilling to rent smaller-
bedroom units to larger families, or to accept lowered rents.
The crux of the problem is that, if payment and occupancy standards are increased - and
we raise the utilization (occupancy) rate - HUD doesn't fund us sufficiently to meet our
costs. If we had not lowered those standards during FY05, we would have deficit-spent by
more than $120 000 for the year. Yet lowering the standards results in higher vacancies-
which means that HUD will fund the program at a lower level next year. Until or unless the
federal government resolves this problem, we will continue in this operational crisis mode,
with an uncertain future.
Production totals for the home purchase and rental rehab loan programs remained at a
lower level again this year. For homebuyer loans, the primary reason is that lenders now
have a variety of subsidized programs which compete with our First Time Buyer program,
and in some cases offer more attractive terms. 97-100% financing is now available. Our
programs have always required a buyer cash downpayment of no less than 5%; the basis for
this policy is that this buyer contribution establishes a commitment and provides for a greater
long-term ownership success rate. It could be argued that increasing national delinquency
and foreclosure rates support that rationale.
The bottom line, however, is that we made only three homebuyer loans this past year. This
performance will be considered by the Community Development Commission as we craft the
FY07 budget.
Beginning in FY02, we committed all of our HOME- and CDBG-funded rental rehab
programs for the Five Points comprehensive revitalization project, in an effort to promote
participation by landlords and create an impact in this neighborhood. Where we were able
to convince owners to make investments, this approach has resulted in beautifully-restored
dwellings. However, participation has been at a lower rate than we hoped, with the result a
continuing unspent balance in these programs.
With the initiation of the Washington Neighborhood effort, we requested the Iowa
Department of Economic Development to expand the target area for use of our HOME
Program funds we received for the Five Points project. This was approved at the close of
the fiscal year. As well, we have expanded the target area for use of the CDBG rental rehab
9
funds. And we have received additional grants from the Federal Home Loan Bank and the
Iowa Finance Authority's Housing Trust Fund. With this complement of funding sources, we
hope to be able to market our rental rehab funds to Washington Neighborhood owners and
increase loan production totals.
Also as previously noted, our staff assumed responsibility for acquisitions and relocations for
the 32nd Street homes adjacent to the storm water detention basin. This work has
consumed an increasing amount of rehab staff time, resulting is less availability for loan
production activities. The target date for completion of these acquisitions is October 2005.
By year-end, owners of all but two properties have agreed to City purchase. Sometimes
difficult negotiations have been conducted by our rehab staff, in the interest of finding
suitable replacement houses and supporting these families through the stressful process of
loss of their homes. Particularly for owners of older homes, the experience has resulted in
relocation to properties of substantially higher value and amenities. In that respect, we have
achieved our goals.
However, this has come at a cost, that being the time consumed from loan production
activities for rehab staff. This also serves to explain the reduced loan totals. At year-end, in
discussion was additional staffing to assist with this effort, particularly as we look toward the
acquisition-relocation work plan for the Bee Branch Creek realignment project, scheduled to
begin full-scale in FY07.
A continuing concern is our inability to qualify as a "Participating Jurisdiction" under the HUD
HOME Program. Dubuque is the largest city in Iowa not currently so designated. This
means we cannot establish entitlement status for HOME funds and must otherwise apply for
annual grants in state-wide competition. With PJ status, Dubuque would receive a
substantial ($350-500,000) annual HOME grant to support our housing and community
development program. This is particularly important, as decreasing CDBG entitlement
awards, decreasing program revenues and increasing internal demands on the $1.4 million
Block Grant budget limit the HCD Department's allotment of these funds and consequent
ability to otherwise address affordable housing and neighborhood issues.
Dubuque's Continuum of Care, is a success story. We received a $609,000 award from this
HUD funding source in FY02. Since that date, we have established a working network of
homeless shelter and service providers which is now better able to respond to the needs of
the City's homeless population. The successful development of Maria House, the two Davis
Place SROs and Hillcrest's transitional housing facility have provided significant new shelter
opportunities. We will continue to address homeless issues through better provider network
communication, assessment and evaluation of needs and preparation of applications for
future HUD Continuum funding awards.
The Lead Hazard Reduction Program, was refunded in FY04, in the amount of $2.4 million.
This enables us to continue efforts to reduce lead paint poisoning in Dubuque's young
children. Building the infrastructure for this effort includes training contractors, workers and
landlords in safe paint removal methods. Of equal importance, it includes building a
coalition of medical practitioners, inspectors and other related professional service providers
to raise awareness and educate the general public in knowledge of practical interventions.
Refunding the program means we will be able to keep the "Lead Coalition" fully functioning
for another three years. And if HUD contract performance goals are met, we will be eligible
10
for additional funding, for a third three-year grant.
An identified need, which merits the City's attention, is provision of additional housing
opportunities to persons with disabilities or special needs. The strategy is to promote and
form partnerships with area non-profit providers to seek and obtain funds for this housing.
The Housing Department's participation on the Dubuque County Stakeholders Housing Sub-
committee facilitates idea sharing and needs assessment. A high priority will be to continue
efforts to develop these partnerships, assess needs, identify opportunities and increase the
supply of housing and services for this population.
Finally, the Department will continue to place a high priority on developing the capacity of
the not-for-profit sector, to rehabilitate, build, maintain and manage affordable housing. As
federal assistance to the City is declining, it is essential that the capacity of these groups be
developed to help meet the housing needs of the City's low-and moderate-income persons.
This also includes building the capacity of neighborhood associations for neighborhood-level
response to social and housing conditions. And it includes helping the many area non-profit
providers, through the Community Partnership Program, who assist this same population
through a variety of support services.
Total Exoenditures - FY2005
City:
CDBG
HOME
Iowa Dept. Of Public Health
Section 8 Rental Assistance
HUD Lead Hazard Reduction Program
FSS Coordinator/Homeownership Counseling
HUD Special Purpose Grant
Relocation
Federal Home Loan Bank PATH Program
IFA Housing Trust Fund
$ 2,590,112
$ 21,630
$ 20,140
$ 4,572,628
$ 945,369
$ 63,706
$ 43,899
$ 836,689
$ 40,000
$ 66,667
$ 9,200,840
Total City Investment:
Private/lender Match:
$ 995,000
$10,195,840
Total Housing Investment:
Aoolications for Fundina
Family Self-Sufficiency Coordinator
Iowa Dept. of Public Health
IFA State Housing Trust Fund
HUD Healthy Homes Program
Iowa Fannie Mae Partnership Office
$ 65,508
$ 20,140
$ 200,000
$ 976,359
$ 4,000
F:IUsersIATAUKEICDBGICAPERICAPER 05 Narrative Final.doc
11
CONSOLIDATED ANNUAL PERFORMANCE AND
EVALUATION REPORT
(CAPER)
COMMUNITY DEVELOPMENT BLOCK GRANT
PROGRAM
Fiscal Year 2005
(Program Year 2004)
July 1, 2004 to June 30, 2005
FINANCIAL SUMMARY
(PR26)
COSG Financial Summary
FISCAL YEAR 2005 (PROGRAM YEAR 2004)
Part I
1 Unexpended CDBG funds previous GPR
2 Entitlement FY01
3 Surplus Urban Renewal Funds
4 Section 108 Funds
5 Program Income Received
6 Returns
7 Adjustment to compute total Available
8 Total available (1+2+...7)
Part II
9 Disbursements other than 108 repays or planning/adm
10 Adjustment to compute total amount subject to L/M benefit
11 Amount subject to Low/Mod Benefit (9+10)
12 Disbursed in IDIS for Planning and Adm
13 Disbursed in IDIS for 108 Repayments
14 Adjust to compute total expenditures
15 Total Expenditures (11+..14)
16 Unexpended balance (8-15)
Part III Low/Mod Benefit
17 Expended for I/m housng in special areas
18 expended for I/m multi-unit housing
19 disbursed for other I/m activities
20 adjustment to compute totall/m credit
21 totall/m credit (17+..20)
22 percent I/m credit (21/11)
Low/Mod Benefit for Multi-Year Certifications
23 Program Years (PY) covered in Certification
24 Cumulative Net Expenditures Subject toLow/Mod Benefit Calculation
25 Cumulative Ependituers benefiting Low/Mod Persons
26 Percent Benefit to Low/Mod Persons (Line25/Line 24)
Part IV Public Service(ps) Cap calculations
27 ps disbursements in idis
28 ps unliquidated obligations at end of current py
29 ps unliquidated obligations at end of previous py
30 adjustment to compute total ps obligations
31 total ps obligations ((27+28-29+30)
32 entitlement grant
33 prior year program income
34 adjustment to compute total subject to ps cap
35 total subject to ps cap (sum, lines 32-34)
36 percent funds obligated for ps activities (31/35)
Page 1 of 2
FY05 1015
2,090,709 2,090,709
1,481,000 1,481,000
780,843 784,323
-3,480
4,352,552 4,352,552
2,183,878 2,246,005
-62,127
2,183,878 2,183,878
406,234 406,234
2,590,112 2,590,112
1,762,440 1,762,440
94,196 94,196
1,439,682 1,501,809
-62,127
1,533,878 1,533,878
70.2% 70.2%
PY 2003,2004
3,449,195 3,449,195
2,799,195 2,799,195
81.2% 81.2%
264,429 264,429
49,794 49,794
24,871 24,871
289,352 289,352
1,481,000 1,481,000
651,514 667,829
(16,315)
2,132,514 2,132,514
13.6% 13.6%
Part V Planning and Program Adm (PA) Cap
37 pa disbursements in idis
38 pa unliquidated obligations at end of current py
39 pa unliquidated obligations at end of previous py
40 adjustment to compute total pa obligations
41 total pa obligations (33+34-35+36)
42 grant
43 current year program income
44 adjustment to compute total subject to pa cap
45 total subject to pa cap (38+39+40)
46 percent funds obligated for PA Activities (37/41)
F:IUsers\ATAUKEICDBGICAPERI[CAPER 05.xls]FY05 Fin Sum
Page 2 of 2
FY05
1015
406,234
2,274
408,508
1,481,000
780,843
2,261,843
18.1%
406,234
2,274
408,508
1,481,000
784,323
-3,480
2,261,843
18.1%
FY 2005 CAPER FINANCIAL SUMMARY ATTACHMENTS
Item C Loans and Other Receivables
Loans and Other Reserves
2.(a) Total number of loans outstanding and principal balance
owed as of the end of reporting period.
FY05
Single -Unit Housing Rehab Program
Loans Outstanding
Principal Balance
Multi-Unit Housing Rehab Program
Loans Outstanding
Principal Balance
266
2,960,430
66
1,530,628
In-Fill Housing
Loans Outstanding
Principal Balance
11
486,302
First Time Homebuyer
Loans Outstanding
Principal Balance
107
401,756
Historic Preservation Rehab Grants
Loans Outstanding
Principal Balance
22
185,375
Economic Development Activities
Loans Outstanding
Principal Balance
6
1,048,963
Homeowner Rehab Lump Sum Account
FY 2004 Balance
Lump Sum Deposit-
Current Year Expenses
Interest Income (Current & Prior Years)
Fy 2005 Balance
153,133
277,000
214,873
23,418
238,677
Page 1 of 2
4
ITEM D
Reconciliation of lines(s) of credit (LOC) and cash balances
to unexpended balance of CDBG funds shown on GPR
FY05
Unexpended Balance shown on CAPERS
1,762,440
Add:
LOC balance(s) as of CAPERS Date
Cash on Hand:
1,549,231
-127,103
Grantee Program Account
Subrecipients Program Accounts
Lump Sum Balance
Revolving Fund Cash Balances
Section 108 Accounts
June Drawdown not credited until July
238,677
110,900
1,771,704
Subtract:
Grantee CDBG program Liabilities
( Include any reimbursements due to the
Grantee from Program funds)
Subrecipient CDBG Program Liabilities (payroll)
9,262
TOTAL RECONCILING BALANCE
1,762,442
UNRECONCILED DIFFERENCE
(2)
ITEM E
CALCULATION OF BALANCE OF UNPROGRAMMED FUNDS
FY05
Amount of funds available
during the reporting period
(from Line 8 of CAPER Financial Summary
4,352,552
Less: Total budgeted amount
As per Annual Plan Amendment # 2
4,200,862
UnproQrammed Balance
151,690
Page 2 of 2
.
COBG Adjustment Sheet FY 2005
COBG Fund Balance June 30 2004
Prior Year Entitlement (B03) $ 68,231.00
Entitlement PY 04 $ 1,481,000.00
June 30, 2005 Balance 10lS $ 1,549,231
City Fund Balance Fund 6/30/05 $ 1,660,130
FY 05 Draws received in FY 06
7/19/2005 $ 82,658.01
7/26/2005 $ 28,241 .54
$ 110,900
June 30 2005 City COBG balance $ 1,549,231
FY05
BeginningLump Sum 04 Balance $ 153,132.53
April Draw $ 277,000.00
Sub Total $ 430,132.53
FY 05 Lump Sum Ex $ 214,873.37
Lump Sum Difference(C (Line 10 & 20 adjustml $ (62,126.63)
Interest Income (05 and Prior years) $ 23,417.69
Lump Sum Balance June 30, 2005 $ 238,676.85
Line 7 & Line 44 Adjustment
Program Income Adjustment
City Revenue $ 780,843.15
IDIS $ 784,323.46
Difference $ (3,480.31 )
Line 34 Adjustment
Prior Year Program Income $ 651,513.82
IDIS Prior Year Program Income $ 667,828.56
Difference $ (16,314.74)
lOIS/City COBG Balance
$ 1,762,440 June 30,2005 Unexpended CAPER Balance
$ 1,660,130 City HUO Balance June 30, 2004
$ (127,103) Fund 210 Balance
$ 238,677 Lump Sum Balance June 30, 2004
$ (9,262) Payroll Liability
$ 1,762,442 Balance of unexpended HUD Funds
$ (2) Difference
F :\Users\A T AUKE\CDBG\CAPER\[CAPE R 05.Xls]Adjustment