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NOTICE OF PUBLIC HEARING FOR THE
COMPREHENSIVE HOUSING AFFORDABILlTY
STRATEGY (CHASI FOR THE CITY OF IOWA
CITY. 1994.199B,
This year the City of Iowa City must prepare
a Five-Year Comprehensive Housing
Affordabllity Strategy (CHAS), as required by
the 1992 National Affordable' Housing Act,
The CHAS Is a comprehensive planning
document that Identifies community needs for
affordable housing, and outlines a flve'year
strategy to address those needs, The CHAS Is
required as a condition for funding for many
federal housing programs,
A public meeting will be held to hear
comments on the draft CHAS on Tuesday,
October 26. 1993, at 7:30 p,m, In the City
Council Chambers, Civic Center, 410 E,
Washington Street, iowa City, Comments may
also be made In writing and sent to the above
address, attention Marianne Milkman, All
interested citizens are encouraged to review
the draft CHAS and attend the meeting on
October 26.
October 21, 1993
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NOTICE OF REPORT AVAILABILITY AND
PUBLIC COMMENT PERIOD FOR THE
COMPREHENSIVE HOUSING AFFORDABILlTY
STRATEGY lCHAS) FOR THE CITY OF IOWA
CITY, 1994-199B.
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This year the City of Iowa City must prepare
a Five-Year Comprehensive Housing
Affordabllliy Strategy lCHAS), as required by
the 1992 National Affordable Housing Act,
The CHAS Is a comprehensive planning
document that Identifies community needs for
affordable housing, and outlines a flve'year
strategy to address those needs, The CHAS is
required as a condition for funding for many
federal housing programs,
A 30.day public comment period will begin
October 11, 1993. Drafts of the CHAS will be
available for review at the following City
offices: City Clerk's oHice; the Department of
Planning and Program Development; the Iowa
City Housing Authority; and the Department of
Housing and Inspection Services, It will also be
available at: the Iowa City Public Library; the
Johnson County Department of Human
Services 1911 N, Governor Street); the
Broadway Street Neighborhood Center (2105
Broadway Street); and the Pheasant Ridge
t-Jelghborhood Center (2530 Bartelt Road),
A public meeting will be held to. hear
comments on the draft CHAS on Tuesday,
October 26, 1993, at 7:30 p,m, in the City
Council Chambers, Civic Center, 410 E,
Washington Street, Iowa City, Comments may
also be made In writing and sent to the above
address, attention Marianne Milkman, AII'
Interested citizens are encouraged to review
the draft CHAS and attend the meeting on
October 26,
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City of Iowa City
MEMORANDUM
Date:
October 22, 1993
To: City Council
From: '\-IJ.1arianna Milkman, Community Development Coordinator
\~Marci lindsay, Community Davelopment Consultant
Ae: Draft Comprehensive Housing Affordability Strategy (CHAS)
Enclosed is the most current draft of the FFY1994-1998 Comprehensiva Housing Affordability
Strategy (CHAS) for Iowa City. If the Council adopts this document on November 9, 1993,
it will become the City's affordable housing policy and will be submitted to the U,S.
Department of Housing and Urban Development (HUD), We were originally to do a new five-
year CHAS this year bacause of the newly-available 1990 Census data, Sometime later In tha
summer, HUD announced that cities did not have to do a five-year CHAS this year, but could
chose to do a single yaar's plan, Since we had already done a considerable amount of work
on this plan, we decided to complete a five-year plan,
In advance, we would like to apologize for the repetition and cumbersomeness that plaguas
this raport; this is a result of the requirements in the HUD instructions for preparing the CHAS,
We have tried as much as possible to fulfill HUD requirements while still having a fairly
readable and useful document; that in itself is quite a balancing act. (A guide to the CHAS
is attached as a separate page.)
We want to call your attention to some of the important points that are made in this CHAS.
First, this CHAS reiterates that Iowa City's primary policy directive is to help those most In
need Ilrst, as was stated in the last CHAS, The priorities for housing assistance, then, will
continue to be to expand tha stock of affordable housing, maintain existing affordable housing
units, and to asalst people In staying In housing, Finally, planning and research activities will
focus on the numerous barriers to affordable housing in the community and how to house the
"hard,to,house" section of the populetion,
One of the most difficult segments of the population to house is very low-income single
people, This group Includes paopla truly living on the edge, who may be evicted from housing
with some frequency, end/or stay temporarily In emergency shelters at times, They likely
have no jobs or low-paying jobs, as well as other problems such as substance abuse, They
may have bad histories as tenants and so have difficulty finding housing for that reason, One
research activity cited In the CHAS will be the study of the need for and feasibility of
daveloping single'room occupancy units, or SRO housing, It Is the general impression of many
that this type of housing is needed In Iowa City and is virtually non-existent at present.
One big Impediment to, accomplishing the priorities mentioned continues to be the lack of
available vacant land zoned for manufactured and multi'family housing. This problem has
been exacerbated by the summer flooding, which has affected soma mobile home parks, and
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the possible demise of the Towncrest Mobile Home Court. With careful zoning modifications
and some additional subdivision requirements, the development of more affordeble housing
types might be feasible where they presently are not.
The City's current zoning policy, which reflects community attitudes, has tended to result in
the segregation of housing by types as well as incomes, This is a difficult but not impossible
problem to overcoma. One way is to modify zoning In some areas, as mentioned above,
Another option is to require the construction of affordable units os a percentage of total units
in a new development, Beginning on -page 44 of tha CHAS, the section called "Relevant
Public Policias" describas public policies that can potentially eddress the barriers to affordable
housing devalopment In Iowa City, Zoning options, in particular, are discussad baglnning on
page 45, In any case, the hope is that with more affordable housing units, and with more
integration of low.cost housing with other housing types, some of the more negative
stereotypes of affordable housing can be overcome,
According to the housing needs enumerated in this CHAS, it appears that the market Is not
providing housing that is effordable to a significant portion of the community's population,
The City Council must decide if and to what extent It will be the City's responsibility to essist
in the provision of housing for all its citizens,
We look forward to discussing these Issues with you on Monday, October 25. Meanwhile,
if you have questions please call Marianne at 356.5244.
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GUIDE TO THE CHAS
· The executive summary Is a bare bones description of the CHAS.
· The Community Profile provides background information and basic 1990 census
demographic data on population and housing market characteristics,
· The Needs Assessment (p. 24 et seq,) is mainly an analysis of HUe Table Ie (p, 21A)
and emphasizes the cost burden of housing as well as needs of the homaless,
· The proposed Five Year Stretegy begins on p, 38, the Investment Plan starts on p, 41,
and priorities for assistance are in the HUe Table 2 (p, 44A).
· Relevant Public Policies (pp, 44-50) list some of the City's options in carrying out Its
affordable housing strategy, This is an important area for discussion,
· The Annual Plan (p, 58 et seq.) details affordable housing activities anticipated during
FFY94.
· The Antipoverty Strategy (p. 69 et seq,) is an entirely new requirement this year. It
provides good information on where the needs are for persons living In poverty,
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CITY OF IOWA CITY
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COMPREHENSIVE HOUSING
AFFORDABILITYSTRA TEGY
'.. FFY 1994-1998
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November 1993
Department of Planning
and Community Development
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IARGET SERIES WI-8
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CITY OF IOWA CITY
COMPREHENSIVE HOUSING
AFFORDABILITY STRATEGY
FFY1994-1998
DUfF
November 1993
Department of Planning
and Community Development
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TABLE OF CONTENTS
~
Executive Summary .,......... . . , . , . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . " 1
Development of the 1994-1998 CHAS , .. , , . , . , . \ .. . .. , , , , . .. , . , .. , , , .. " 3
I, COMMUNITY PROFILE ,.".."..",.,.,...".,. , , , . . . , . . , , , , , " 4
a. Market and InventorY,Characteristics ""',...,.,.,.,.".""" 4
1. Community Description . . . . . . . . . . . . . . . . , . I . . . . . . . . . . .. 4
I. Background and Trends, , . , , . . , . . . , , , , , , , , . , , . . ,. 4
ii, Demographics. . . . . . . . . , . , . . . . . . . . . . . . . . . . . . .. 6
iii. Areas of Concen,tration: Minorities and Low'lncome , . . , , , 8
2,
Market and Inventory Conditions ..".".".,.,.."""., 9
L Gensral Mciiket iind Inventory .,.....,...........,. 9
ii, Assisted Housing Inventory " . . , , . . , , , . . . , . . , . . " 16
iii. Inventory of Facilities and Services for the Homeless
and Persons Threatened with Homelessness , , , . . , . , " 22
,
iv, Inventory of Supportive Housing for Non'Homeless
Persons with Special Needs . , . , , , , . . , . , . . . , . , , , " 22
b, Needs Assessment , , . . . . . , , , , , , , . , . . . . . , , . . , . . , . , , . , , . " 24
1, Current Estimate/Five-Year Projections ,.,'"""".".", 24
2,
Nature and Extent of Homelessness " , , , . . , , , , , . , . , , . , ., 26
i,
Needs of Sheltered and Unsheltered Homeless. , , , , . . " 26
ii,
Subpopulations .. I . . . , .'. . . . . . . . . . . . . . . . . . . . .. 30
iii, Needs of Persons Threetened with Homelessness ,.,." 30
3,
Populations with Special Needs Other than Homeless . , . , , , , , , 31
C. Available Resources f........ . . . . . . . . . . . . . f . . . . . , . . . . . . .. 32
1.
Programs for Housing Acquisition , , . , , , , , . , , , , , , , , . , , , " 32
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Programs for Housing Rahabilitation "., , . , . . , , , , , . , , , , " 33
Programs for New Construction .."."',',,,. , , . , . , . , , , ., 34
Programs for Homebuyer Assistance .,..,.,.,.,..".,.,. 34
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Programs for Rental Assistance ".'",.".,..,."'.,,., 35
Programs for Homeless Assistance and Prevention . , , , , . , , . " 36
II. FIVE"YEAR STRATEGY. . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . , . . , . . . . . 38
a. Summary ..,..........................,.... .... ...... 38
b, Priority Analysis and Strategy Development ..'....... ..,. ...,... 38
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Relevant Public Policies, Court Orders, and HUD Sanctions , , , . , , , , . , 44 ,
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i, Relevant Public Policies . . . . . . . . , . . . . . . . . . . . . . . . . , . . . . 44 11
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ii. Court Orders/HUD Sanctions . , . , , , . , , . , , , . , , , , , , . , , , , , 49 !I
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d, Institutional Structure and Intergovernmental Cooperation 50 "
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i. Description ....... ..... ................ .... ...... 51 'I[:
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ii. Overcoming Gaps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 il
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e, Public Housing Improvements ..............,.,... .... ...... 55
i, Management and Operation . . . . . . . . . . . . . . . . . . , . . . . . . . , 55
ii. L" E ' 55
IVlng nvlronment.....'...,..,......,..............
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\ f, Public Housing Resident Initiatives ........ ... ...... .,. ......, 55
g, Lead.Based Paint Hazard Reduction .,.............. ..,. ...... 56
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h, Monitoring Standards and Procedures . . . , , . . , , , , , , , , , , . . , . . , , , 57
III, ANNUAL PLAN ............................. .",.. ..,. ...... 58
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a, Strategy Implementation , . . , . . . . . . . . . . . . . . . . . . . . . . . . , . . . . . 58
i. Invastment Plan (Activities and Programs) , , , , , , . , , . , , , , , " 58
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ii. Geographic Distribution , . , . . , . , , . , . .. , " , . , .. , , .. , . ., 62
iii. Service Delivery and Management ,.,."",.,..,.".".. 62
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b, Other Actions "',.".,',.,..,."",.""",..,.""". 62
j, Public Policies ,.,',..,.,::."."".,..".".,.".. 62
ii, Institutionel Structure , " , , . , , , , , . . . , . , , , , . . , , , . , , , " 64
iii, Public Housing Improvements .....,."..,.".""..." 67
iv. Public Housing Resident Initietives ...,',.,.,."..""", 67
v, Lead.Basad Paint Hazard Reduction "",.,."...".."., 68
c, Anti-Povarty Strategy , , , , , , , , , . , . , , , , , . , , , , . , " , , , , . . , , " 69
d, Coordination Efforts ,.,.,..,."..."".".",.."."" ,',' 75
e. Certifications '. .,'...,........ ._.... ............ .'....,..... 77
f, Summary of Citizen Comments ,.".,"',...".",..."."" 78
g, Glossary of Terms .,."...,.,.,..."",.."".,..,.."" 79
APPENDICES
Appendix 1: Community Development Block Grant Program.
Projects - 1993 Program Year ,.,..,',.,',.,.."...."",.,..", 85
Appendix 2: Minutes from June 23, 1993 CHAS Public Meeting ',.,.,.".,.", 89
HUD TABLES
Table lA: Population end Household Data. . . . , , . . . . , . , , . , . , . . . , . . . . . . " 6A
Table 1 B: Market and Inventory Conditions , . , . , , , , , .. . , , . , . , , .. , , , . , " 11 A
Table 1 C: Housing Assistance Needs of Low- and Moderate-Income Households, ,21 A
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Tabla 1 0: Homelass Populations and SUbpopulations ,...,..",...,..."" 29A
Table 1 E: Non'Homeless Spacial Needs Populations, . , , , . , . , , , , , . . . , , , . ,. 31 A
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Tabla 2: Priorities for Assistance - Five-Year Plan "",.".."."...", 44A
Table 3A: Investment Plan ',.".,",..,',.""..,."."",.",. 62A. B
Tabla 3B: Goals for Households and Persons to ba Assisted with Housing ,.,.,. 62C
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I. COMMUNITY PROFILE
1.1. Population by Age and Household Type, , . , . , , . , , , , , , , , . . , . , . . , , , " 7
1-2,
Occupied Housing Units I.'..... I I . . . . . I I . I , . , . . . . . I I . . . . . . .. 10
'-3. Rental Vacancy Rates , I . , . . . . I . . . . . I I . I . . I . . . . . I . I , . . . , . . . . I 11
1-4.
Vacancy Rates . . . . I . . . . . . . . , . I . . . . . . . . . . , . . . . . . . . . I I I I . I .. 11
1.5. Oegree of Overcrowding by Race and Hispanic Origin, 1990 '" , , , . . , , ,. 14
1-6, Lead.Basad Paint Hazards, Iowa City ."."."...,...,..",."." 15
1-7,
1-8,
1-9,
1-10.
1.11.
1-12.
1.13,
1.14,
II,
11-1.
Lead-Based Paint Hazards by Census Tract ,.,.,.,...,.".."""., 16
Iowa City Assisted Housing Programs . , . , . , , , , . . , . , , . , . . , , , . , , , ,. 17
Average Wait for Assisted Housing by Bad room Size "'.,.,.,,.,..... 18
Waiting List for Ass!sted Housing by Bedroom 5izs ....,... I . . . . . , . .. i 8
Assisted Households by Type .....,..,.,.".."".,.."",.,.. 19
Assisted Families by Race and Ethnicity ,.,..,.""",..",...",. 20
HUD-Funded Apartments: Private Ownership .,..".,...,.,.,.".,. 21
Sheltered Homaless: Unduplicated Count ." , , , , , , , . . , . , , , , , . . , , ,. 28
FIVE.YEAR STRATEGY
Five-Year Investment Plan to Meet Priorities .,.,.""."".",."" 41
III. ANNUAL PLAN
111-1. Poverty Distribution by Age Group ",..."".".,.."",..""" 70
11I.2,
MAPS
Children In Poverty by Age and Household Type. , , , , , . , , . , . , . . , , , , " 70
, M-1. High Concentrations of Units with Lead-Based Paint . . . , , , , . . . , . , . . ., 16A
M.2, Concentrations of Low,Moderate Income Households , , . . , . . , , . , . , , " 16B
M-3.
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Low.Moderate Income Parsons .,...".""".,.",."...., 16C
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C-2, Owner-Occupied Housing: Comparative Values . , . . , , . . , . , . , . , . , , .. '28
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EXECUTIVE SUMMARY
Introduction
The City of Iowa City Is preparing a Comprehensive Housing Affordablllty Strategy (CHAS), as
required by the 1992 National Affordable Housing Act for federal funding of most housing
- programs, The CHAS Is a comprehensive planning document that Identifies a city's overall need
for affordable and supportive housing, and ouUlnes a five-year strategy and a one-year action plan
to address those needs, The Act requires each local jurlsdlction's CHAS to describe the housing
needs and market conditions In a community profile; set out a flve.year strategy that determines
prlorltles for meeting those needs; and establish a short-term Investment plan for the coming year.
The CHAS Is more than a prerequisite for funding or a monltorlng tool for the Department of
Housing and Urban Development's (HUD) own use, The major purpose of the CHAS Is to
encourage Jurisdictions to develop a comprehensive, long.term strategy for addressing their
affordable and supportive housing needs, The process of developing a CHAS represents an
opportunity to Involve citizens and community groups In Identifying and assessing the Jurisdiction's
overall housing needs, establishing priorities, and developing a plan to meet the Identified goals,
Once In place, the CHAS serves as a useful tool for guiding the City's housing decisions.
Summary of Identified Needs
Housing In Iowa City Is expensive and there are not enough affordable units. Census data
Indicate that 36 percent of all households In Iowa City experience some kind of housing problem -
. either unaffordable (costing over 30 percent of monthly Income), overcrowded, and/or
substandard housing. Most of these households have housing that Is unaffordable, according to
HUD's definition, For renter households, this number climbs to 53 percent. The greatest burden
falls on large renter families of five or more people.
Of approximately 6,500 very low.lncome renter households (below 50 percent of the Median
Family Income), which Includes many students, thirteen percent, or 820 households, are assisted
with public housing, or Section 8 vouchers or certificates through the City's Assisted Housing
Program, The Program has a waiting list of another 550, For any assisted housing unit, the walt
Is at least nine months; for a three,bedroom unit, the walt averages over fifteen months, Even
II the Public Housing Authorlly were to acquire enough assistance from the Federal government
to meet this need, the actual supply of rental housing units would be Inadequate,
Iowa City also has a substantial homeless population that needs assistance to find permanent
affordable housing. The un duplicated count of homeless persons In FV93 Is 1,201. In the
coming year, some of the need for emergency shelter will be addressed through the construction
of a new 50.bed shelter for victims of domestic abuse, but permanent solutions must be found
for the homeless population,
Five-Year Strategy
Iowa City's affordable housing priorities will continue to be to expand the stock of affordable
,housing, maintain existing affordable housing units, and to assist people In staying In
housing. In addition, planning and research activities will be focused on the numerous barriers
to affordable housing In Iowa City, and strategies for aSSisting the hard.to.house segment of the
population, Including the feasibility of developing more single. room occupancy (SRO) housing.
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As In previous years, the prImary polley directive of this CHAS will be to serve those most
In need,
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Maintenance of the affordable housing stock Is crucial In Iowa City. Although Iowa City has
re/aUvely few substandard, vacant, or dilapidated housing units, rehabilitation of housing Is
extremely Important In order to keep up the units that do exist. New conslrucUon of affordable
rental and owner-occupied units Is another priorlly because of the extremely light housing market.
Third, assisting those organizations that help keep people In houslng'Wlth support services wllJ
continue to be a priority since for many special needs populations, just finding housing Is not
enough, Finally, more work Is needed In researching new ways to overcome the barriers to
expanding the supply of decent, affordable housing unlls In Iowa City, In Particular barriers
associated with a lack of vacant land zoned for mulU-famlly and manufactured housing, financial
and land resources, and community altitudes, ' ,
OnHear Annual Plan
To Implement the goals outlined above, the City and other actors wllJ undertake specific projects
' In the 1994 federal fiscal year, In the following areas: acquisition, new construcllon, rehabilltaUon,
flood damage repair, rental assistance, homebuyers assistance, support facillUes and services
for special needs populaUons, and research and planning. The esllmated nurnber of households
to be affected are:
Acquisition 5
New construction (rental & owner,occupled) 58
Rehabilitation (rentaYhomeowner) 212"
Rental assistance 850
Homebuyers assistance 6
" 80 of these are homeowners that will be asslsled due to flood damage,
In addition, support facilities and services will continue to be provided by Systems Unlimited,
ICARE, Youth Homes, Domestic Violence Intervenllon Program, Emergency Housing Project,
LIFE Skills, MECCA, Elderly Services Agency, and the Mary 0, Coldren Home,
Research and planning will focus on the feasibility of development of SRO housing, the locallon
and zoning for additional manufactured hOUSing sites, affordable multi-family rental housing, and
associated development and zoning Issues,
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DEVELOPMENT OF THE 1994-1998 CHAS
. On April 19, 1993, City of Iowa City Department of,Plannlng and Community Development staff
began work on the CHAS with a meeting with approximately 20 human service providers to
discuss methods for collecting data on the homeless. On June 18, 1993, a notice of public
meeting was published In the Iowa City Press-CItizen, and a public meeting was held at 6:30 p,m,
on June 23, 1993, The meeting was co-sponsored by both the Iowa City Housing Commission
and the Committee on Community Needs, Approximately 90 letters of,lnvltatlon were mailed to
human service agencies, affordable housing agencies, local lending Inslltutlons, housing builders
and developers, and others.
On June 29, 1993, City staff from various City departments met to discuss the sections In the
CHAS on lead-based paint hazard reduction, On July 13, August 10, September 21, and October
12, 1993, the Iowa City Housing Commission reviewed and discussed draft sections of the CHAS
during Its regular monthly meetings, which are open to the public, On August 10, a draft CHAS
was sent to City staff In Planning and Community Development (urban planning, human services,
and rehab), Housing and Inspection Services (assisted housing and Inspections), and the Human
Rights Coordinator,
A notice for the beginning of the public comment period and to announce the availability of the
draft report was published In the Press-Cltlzen on October 7, 1993, Also on that day, a summary
of the five-year CHAS was 'published In the paper, On October 11, 1993 the 30-day public
comment period began. A public hearing notice was published on October 21, and the Iowa City
City Council hold a public hearing on the CHAS at Its regular meeting of October 26, 1993. On
November 9, 1993, the City Council adopted the 1994.1998 .Iowa City CHAS,
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I,a, Market and Inventory Characteristics
l,a,l. Community DeSCription
l.a,1.I. Background and Trends
For years, Iowa City has had unique housing needs due to the presence of the University of Iowa
as well as Its large medIcal complexes, The demands created by these Institutions often
negatively affect the elderly, new households and lamlllf:;;i inany compete with students for
housing In and around the downtown, close 10 both the University and other main centers of
employment. The University Is the largest employer In the City (21,000) and the student
population accounts for approximately a third of Iowa City's 59,738 residents, The University of
Iowa Hospitals and Clinics (UIHC) attract patients from well beyond the county limits, many of
whom require long-tenn outpatient care and, likewise, housing In Iowa City,
In addition to the hospitals themselves, Iowa City Is a regional center for the provision of many
social and supportive services. Even when hospital care Is no longer needed, clients may find
It beneficlal to stay In the City for other services. Families and Individuals often come to Iowa City
to take advantage of the social services available, These persons need housing and often come
with few resoutces of their own, Quantifying this phenomenon Is nearly Impossible, but the
anecdotal evidence Is abundant.
Demand Exceeds Supplv
There are several noticeable trends In the history 01 the Iowa City housing market. The tenuous
balance between supply, demand and affordablllty began to shift with the first major Infiux of
university students In the lale 1940s and throughout Ihe 1950s. These students came on the GI
BII/, many with young families, The University responded to the students' housing needs by
building 'temporary' housing, some of which was used for several decades, In the private
housing market, developers quickly built small single-family 'starter houses,' Many older houses
were converted Into rental units to meet the ongoing need for student housing, Over time, these
conversions also lead to deterioration of the Inner city housing stock,
The City Responds
In the seventies, the City responded by Instituting a program of biannual rental housing Inspection
In order to enforce housing codes, The Housing Inspection Program began with a survey of the
City In 1976, The program continues tOday and Is Instrumental In maintaining decent, safe rental
housing, The 'student ghetto' around the University was highlighted as part of the urban renewal
of the late 1960s and 1970s. extensive changes downtown resulled In removal of a portion of
Inexpensive and substandard student housing, Apartment complexes began to line the streets
of nearby older residential neighborhoods al the expense of slngle.famlly dwellings, Until the mid.
1980s, the University grew continuously, The steady expansion almost doubled the number of
students as well as slaff. This Increased the pressure on the housing market, causing prices to
Increase markedly,
The City's Public Housing Authority was organized /n the 1970s to meet the diverse housing
needs of the growing community, The PHA has aggressively pursued funding to address the
ever-mounting need In Iowa City, According to the 1990 Census, over 30 percent of Iowa City
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households are In need of housing assistance (see HUD Table lC, page 21A), This figure does
Include student renter households, many of whom are temporarily 10w,Income, At present there
are nearly 820 households receiving housing assistance and another 550 are on waiting lists,
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Preservlna Houses and Nelahborhoods
As the cost of new housing continues to rise, the viability of the existing housing stock becomes
Increasingly Important, Continued upgrading and maintenance of the housing stock Is critical.
In some cases, lower-Income homeowners, as well as persons who are elderly or disabled, need
assistance In maintaining their homes and making them accessible. In rehabilitating and
maintaining older homes, consideration must also be given to preservation of historic structures
and to energy conservation measures that will reduce heating and cooling costs. Some
moderate.lncome homeowners also need assistance In maintaining older homes, In addition,
there Is a need to help first-time homebuyers with rehabilitation, Frequently, moderate-Income,
first-time homebuyers can only afford those older homes that are In need ~f considerable repairs.
The City's Housing Rehabilitation Program, which works to preserve and maintain affordable
housing, began In 1976. In addition to assisting homeowners, the program has been committed
to the upgrading and maintenance of the City's rental housing stock, Most of these units are
located In structures In the central part of the City, These structures are generally older, single-
family homes converted to three or more rental units.
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The great demand for affordable housing threatens not only the economic viability but also the
architectural Integrity of the Iowa City housing stock, Broad-based historic preservation efforts
In Iowa City were without formal organization or municipal structure until the 1980s, Increased
public awareness of the architectural richness of Iowa City lead to efforts to protect local
landmarks as well as maintain private residences, In 1983, the City appointed a Historic
Preservation Commission and approved a Preservation Ordinance, A Historic Preservation Plan
was approved by the City Council In 1992,
Today, preservation efforts Include the total neighborhood environment, Neighborhoods that
originally rallied In support of historic recognition and In reaction to undesired changes began to
organize for ongoing neighborhood advocacy, Currently the City has a Neighborhood Services
Coordinator who assists in the organization of the newly,formed neighborhood associations,
Iowa City Is literally growing In size through annexation and development In Johnson County has
also skyrocketed, The local economy Is growing as new businesses locate In the area and
eXisting businesses expand, and the University Hospitals continue to grow. The strong economic
base of Iowa City has maintained housing prices while elsewhere In the State and In the nation,
the market declined, It has also contributed to the extremely low vacancy rates that translate Into
a shortage of affordable housing In Iowa City,
1993 Flood Damaae
The summer 1993 flood In the Midwest has affected over 270 homes In Iowa City, many of which
are owned by low-Income persons, In particular, the Baculls and Thatcher mobile home parks
and the houses In the 'Showers Estates' area sustained heavy damage,
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l,a,1.II, Demographics
General Profile
The University of Iowa and the University Hospitals and Clinics, as well as other local businesses
have an Impact not only on the housing situation but also on the character of Iowa City. In the
last decade, Iowa City experienced an unanticipated population growth of 18 percent. This
Increase has resulted In additional stress on the housing market as It strains to meet mounting
housing needs,
Iowa City has a predominantly young population. The median age of 24,9, which Is lower than
both the state (34,0) and national level (32,9), reflects the student population, The Increased
, number of graduate students, whose median age Is 30 years, contributes to a sllghlly older
median age than In 1980. Approximately 25 percent of the population Is under eighteen or over
65 years, compared to the state and natlona/levels which hover around 40 percent. Although
there are proportionately fewer persons who are elderly In Iowa City, their housing needs are less
likely to be adequately met, because they compete with students for housing, too,
A majority of all households In Iowa City are 'non'famlly' households and more than half are
renters, Many students are renters, but It Is difficult to discern exactly what number of renters are
students, Only 45 percent of the housing units In Iowa City are owner-occupied, This compares
with a state level of 64 percent. and a natlona/level of 70 percent.
Minority Pooulatlon Trends
Over the last decade, Iowa City experienced an 18 percent growth In population, It Is expected
that Iowa City will sustain some of this population growth In the coming years, Nearly a/I minority
populations Increased between 1980 and 1990, The percentage of Asian and Pacific Islanders
In Iowa City Increased by 188 percent, Many people In this group either attend or work for the
University, Percentages of both Black (non,Hlspanlc) and Hispanic (all races) populations grew
by over 50 percent, According to the 1990 Census, over 50 percent of households In these
minority groups are very low-Income (see HUD Table lA), Overall, minority groups represent 9
percent of the tota/ population in Iowa City.
Ace and Household Tvoe
There are several notable fluctuations among specific population groups In Iowa City over the last
decade, Using the overall 18 percent population Increase as a measure, It Is possible to note the
age groups and household types that changed, The age cohort of 19 years and under is the only
group to register a loss as a percentage of the total population, Among households, there was
a four percentage point decrease In total population of both family households and marrled,couple
households, Female-headed households are stili only six percent of the total population, Many
female-headed households may reside elsewhere In the area due to Iowa City's cost of housing,
Concurrenlly, there was an Increase of non-family households, This type of household showed
the greatest Increase In the percentage of the total population, with a 3,7 percent Increase in
percent of the population, Presently, 50 percent of Iowa City households are non'famlly
households. This may reflect an Increase of non-traditional, unrelated 'families', and has
occurred despite a decline In University enrollment.
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NImI of JurI,dictlon:
City of low. CIty,low.
A, Population
U,8, Oep,""",,' 01 H....1nQ end UIb.. Oev"_
Office 01 C""""",,,y P1enn1no end Oev"-'
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990
1 Tot" " ofTot"
I Houllholdt Hou."'oIdI
1990
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3 0"
1,160 6"
21,904 100"
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1.010 72"
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139,606
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The most stable group Is the age cohort of 65 years and older, Often, these people are life-long
residents of Iowa City, However, there Is a slight decrease In the number of elderly single-person
households, This may reflect the Increase of congregate elderly housing In the area,
Table 1-1, Populallon by Age and Household Type
1980
Total populallon 50,508
Median age 24,5
19 years and under 13,811
65 years and older 3,313
Total households 18,575
Family households 9,900
Married couple hlh 8,294
Families/male hlh N,A,
Families/female hlh 1,252
Non-family households 8,719
Householders living 5,791
alone
Householders alone 1,117
and 65 or over
Persons living In group 7,211
quarters
I Sources: Census, 1980 and 1990
I
The University of Iowa
%
1990
%,
25,9
6,6
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59,738
24.9
15,500
3,923
21,951
53,3 10,836
27,3
6,6
44,7 8,917
N,A, 423
6.7 1,496
46.9 11,115
31.2 6,523
6,0 1,306
14.3 8,368
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Almost one-third of Iowa City's total population are unlverslly stu'dents, This group affects every
dimension of life In Iowa City, Throughout the 1980s, the total University enrollment topped
29,000 students. The University provides housing for fewer than 8,000 students, The prlvate
housing market responded with a surge of building apartment complexes In the mld-1980s.
Over the last five years overall enrollment has decreased by approximately 1,800 students, The
undergraduate population declined by almost 2,000 students, while the graduate population
Increased by 200. In times of depression or recession, the graduate populallon often swells with
'special students' who take only one or two courses to Improve their Job potenllal and security,
7
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or with recent graduates who have not found good Job prospects, Although many married
graduate students live In Hawkeye Courts (married student housing with 749 units), the University
does not offer designated graduate housing for unmarried graduate students, Graduate students
can apply for limited space In undergraduate dormitories, If desired, Older students commonly
prefer to live Independently In more peaceful environments, Affordable and available housing Is
also a problem for families that relocate to the area while the head of the household attends
school. The situation Implies a temporary stay In Iowa City as well as a substantial reduction In
earnings.
The 1992.1993 Fall Enrollment was 27,463 students, Of these approximately 77 percent, or
21,147, live In Iowa City. About 5,500 students reside In University housing, 1000 students live
In fraternity or sorority houses, 749 live In family housing, while the rest of the resident population
(approximately 13,900 students) find lodging on the private market. The University anticipates
a slight decline In enrollment over the next few years, Enrollment Is expected to stabilize at
between 26,000 to 27,000 students,
Local Economv
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Iowa City managed to prosper at a time when the nallonal and state economies stagnated,
American College Testing (ACT), a local firm, announced In 1992, plans to expand Its corporate
headquarters In Iowa City, The University of Iowa Hospitals and Clinics began construction of
the Eye Institute and Family Care Center In 1992 and General Mills Is preparing to open a
processing facility that will employ between 50 and 60 workers,
These few examples demonstrate the continued growth of the Iowa City area economy, This
growth has kept the unemployment rate low and sustained a livable median Income level, In
1989, the median family Income for Iowa City was $39,605, The highest percentage of the total
population falls within the $15,000'24,999 Income bracket (1980: 22,8%, 1990: 18,6%), This
percentage may be Indicative of the student population and the abundance of part.tlme, minimum
wage Jobs In service sector Industries that support the University and Its students such as copy
services, restaurants, bookstores and clothing and specialty shops,
While the abundant part.tlme service Jobs are appropriate for the student population, they do not
provide a livable wage for many other households, Although difficult to document, It Is the opinion
of many experts that underemployment Is a slgnlllcant problem In Iowa City. There Is a need to
create more employment opportunities that offer a living wage and utilize the skills and training
of the work force. The City's Community Development Plan for 1993-1998 Indicates thai
economic development should be directed In part toward Increasing the affordable housing stock
In Iowa City, Local employers complain about hiring difficulties because of the high cost of living
In Iowa City, In addition, a dlversllled tax base would lessen the burden for low- and moderate-
Income homeowners and renters, These measures would not only Improve Iowa City's Job
outlook but also Increase the stock of affordable housing, '
l,a.1.III, Areas of Concentration: Minorities and Low.lncome
When considering the minority population of Iowa City, It Is valuable to note the low proportions
of minorities throughout the State, Iowa Is predominantly White with 1,7 percent Black, 1.2
percent Hispanic, and less than one percent each of Native American and Asian populations,
Iowa City's academic, medical, athletic and business environments attract a wide variety of
peopla. Blacks (non. Hispanic) make up 2,5 percent of the population while Asians (nqn-Hlspanlc)
8
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are at 5,6 percent and people of Hispanic origin account for 1.7 percent. The only minority group
less than the State level Is the Native American population.
Concentrations of minority groups are determined to be any tract with a percentage greater than
the citywide proportion. Not surprisingly, the areas surrounding the University show the greatest
concentrations of minorities. Even so, It Is perhaps misleading to label these 'minority
concentrations,' since the total numbers are so small. Tracts 4 and 6 consist of University-owned
student housing and apartment complexes close to the University, For a discussion of the City's
fair housIng policies and activities, see Part II,c.l.
Concentrations of low-Income populations are defined as tracts where the poverty level Is greater
than the citywide number, Overall, 23.4 percent of Iowa City's population Is living below the
poverty level, The map titled 'Concentrations of Low-Moderate Income Households' shows that
most of the tracts of high concentration of low- and moderate-Income households are adjacent
to the University campus. There are several reasons that we find minority and low,and moderate-
Income 'households highly concentrated In the same tracts around the campus, First, many of
the 10w,Income concentration areas are student neighborhoods, It Is expected that many of these
people are 'temporarily poor' and once done with college, will move Into a higher eamlng bracket.
Second, there are more apartment complexes with high turn,over rates In these tracts therefore
allractlng the temporary citizens of Iowa City, Finally, It appears that location may be more
Influential than housing costs In these tracts, A quick survey comparing median housing costs
In these tracts with the citywide median housing costs reveals that there .Is IIl1le difference
between areas cost-wise,
The only difference between minority and Income concentration Is Tract 9; This area has a high
concentration of Asians and persons of Hispanic origin, many of whom are presumed to be
professionals associated with the University and the hospital because of the value of the housing
stock and the proximity to tho University, Thus there Is a high concentration of minority
households without a corresponding low-Income level,
l,a,1.lv. Table 1 A . Population and Household Data
See HUD Table tA, p, 6A.
l.a,2, Market and Inventorv Conditions
l.a,2,I, Geneml Merket and Inventory
SUDDlv and Demand
There are 22,464 housing units In Iowa City, not Including dorniltories and University of Iowa
family apartments, or that number, only 513 units are vacant. More than half of the vacant units
ere for sale, Mostthree.bedroom units are owner-occupied; the opposite Is true for two,bedroom
units, Overall, almost 80 percent of the two.bedroom units are rental units while close to 50
percent of the vacant two.bedroom units are for rent. Nearly all efficiency and one,bedroom units
are rental units, Of all units, this size has the lowest vacancy rate,
Construction of new housing units nearly doubled In the last five years, In 1992,210 single-family
dwellings were constructed, That number Is up 47 percent from 1991 and the first time that more
than 200 new slngle.famlly homes have been added to Iowa City since 1977,
9
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Because the University of Iowa Is the largest el1)ployer In the area, many homebuyers are
University employees. Some people affiliated with the University, such as graduate students or,
resident Interns, plan to live here only two or three years. They find It financially beneficial to buy
rather than rent a home.
Other homebuyers come Irom the West or East coasts, where they sold their homes and need
to reinvest that money to avoid tax liabilities. Stili others are lamllles already established In the
community who move up to a larger home. Another trend Is parents of college students are
buying homes (often condominiums) lor one or more 01 their children to live In while attending the
University.
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Table 1.2. Occupied Housing Units
Status 1980 % 1990 % % Change
Owner-occupied 8,773 35.1 9,823 34.8 12.0
Rental units 9,821 39.4 12,128 43.0 23.5
UI dormitory (# beds) 5,617 22.5 5,508 19.5 -1.8
Ullamlly apts. 749 3.0 749 2.7 0.0
Total 24,960 100% 28,208 100% 13.1"
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UI Dorms and family apts: The University 01 Iowa ' '
An alternative to homeownershlp Is renting. Over half the residents of Iowa City are renters. The
rental market has a cyClical rhythm based on the University calendar. At certain times of the year
such as October when leases have been signed and students have settled Into almost all
'available units, It Is nearly Impossible to find adequate and allordable housing. The highest rents
are lor units located within one mile of the campus. Outlying areas are somewhat more
reasonably priced.
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Table 1-3. Rental Vacancy Rates
Unit Size 1982 1984 1986 1989
Efficiency 0.7 2.2 6.2 1.7
One bedroom 1.3 4.0 6.6 2.1
Two bedrooms 1.9 5.0 5.0 0.6
Three bedrooms 2.1 3.0 3.1 0.3
Sources: 10Wll City Rental Housing Survey; 1982, 1984, 1986, 1989
Note: The surveys used to compile these vacancy rates Included Coralville In the samples. The
percentage 01 the samples that are Irom Coralville are different, however, lor each year.
1982: not available 1986: 26%
1984: 26% 1989: 16%
The rental housing market In Iowa City has historically had very low vacancy rates, resulting In
high rents. In 1982, the Iowa City Rental Housing Survey showed that the vacancy rate lor rental
housing was about 1.5 percent. The 1986 Rental Housing Survey showed a higher rate 01 about
. 5.2 percent. The results 01 the 1986 Survey reflect the surge 01 apartment construction.
However, the 1989 rate 01 about 1.2 percent Indicated room In the market lor additional rental
housing, especially apartments larger than one bedroom. The average vacancy rate lri 1989 lor
two. andthrea-bedroom apartments, shown InJable 1-3, Is extremely low at about 0.4 percent.
Although computations In HUD Table 1B (page 11A) show the rental vacancy rate at 2.18
percent, the 1990 Census 01 Housing figured the rental vacancy rate at 1.7 percent. The latter
number Is considered by experts to most accurately represent the situation. The vacancy rate
lor owner-occupied units hovers at .8 percent.
Apartment construction continues at a great pace In the City, with approximately 500 units built
, ' In the last eighteen months. Hopefully this will help to Increase the vacancy rate, stabilize, and
, eVBntually lower rents. landlords have Indicated that belore the 1993 Flood, their projected
vacancy rate lor August 1993 was closer to five percent. "
Table 1-4. Vacancy Rates
Unit Type Iowa Iowa U.S.
City
Rental Units 1.7 6.4 8.5
Homeowner Units 0.8 1.5 2.1
Source: 1990 Census 01 Housing
11
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U,S. Department 01 HOUling and Urban Development
Olflcl 01 Con'm.Inity P1lflnlng and Development
Comp..hon.iv. HOIIIltlil AII"dobillty SUllogy ICHASI
Inllruc:tIon. for local Juriadictlolll
Market A Inventory ConditloOl
--..-..--......................--...--...........-....-....
0_____..
Name of Jurl.dlctlon:
City of low. City, lowI
A. Houllng Stock Inveniory
Cllogory
I. Tol~ V....Round H""itlil
2, Tot~ Occu~od Unk.
3. Renter
4. Owner
6. Tot" Vac.,t Unitt
6. FOIRent .
7, F"B~.
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, Cllogory
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2. All Ownlt
c. Publio Houllng
Cllogory
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2. V.ClIlt
Rdllbilklllon
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0, Rill"
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o Btdrooml
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Check One: 16 VIlli Period lente, flleal ytl.1
X 1990C."UI I
X Other 'Source: lowI City HOlJllng Authotity I FY: 1994
X Oil. . 01: 1993 IICHA 011.1 I
..._._-~-_._--.._.__._-_.
I I
I To'~ ' V"ancy RII. 0 ood 1 bodroom /
1_ fAl 22.4841' 191, " , ICI 6,219/
I 21.961/ , 6,099
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283
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I E.tlmated HItd COItl .. PhYlicallmprovlmentl:
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Cost 01 Houslna
Iowa City has the housing cost problems of a major metropolitan area without the resources to,
solve the problem. Both median rent and value 01 owner-occupied units are comparable to the
nationwide levels. (See Chart C-1, page 12A.)
, The median monthly contract rent lor Iowa City Is $368 which Is only $6 less than the national
median. The state's median contract rent Is $261. The value 01 owner-occupied housing repeats
the same scenario. The median value 01 owner-occupied housing In Iowa City Is $79,000;
nationwide, the number Is $79,100 while on the state level It Is only $45,900.
There are very lew homes In Iowa City valued at less than $50,000 while statewide more than
hall 01 the homes Iallln this category. Sixty-four percent 01 owner-occupied homes In Iowa City
are valued between $50,000 and $99,999. On the national level, 63 percent of all owner-
occupied homes are $99,999 or less. (See Chart C-2, page 12B.)
In order to afford a median cost home ($79,000) In Iowa City In 1990, the homebuyerwould have
to earn a minimum annual salary of approximately $32,000 assuming lew other debts. .The
median household Income is $24,565, while non-family households, which are the majority 01
households In Iowa City, earn $15,270. Taking Into account that many non-family households
quite possibly are students or post-graduate young adults, this Is stili very difficult for first-time
homebuyers. .
Renters and homebuyers alike face this housing crisis. If the cost 01 housing Is more than 30
percent 01 the households' monthly Income, the household Is considered by HUe to have a
housing problem. In Iowa City, 61 percent of all related households of five or more members
have some housing problem. Fifty-nine percent of all other renting households are In the same
predicament Overall, fourteen percent 01 homeowners and 53 percent 01 renters encounter
housing problems.
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Manulacturoo homes are some of the least costly homes to purchase In Iowa City. At present,
there are approximately 1,000 mobile homes In Iowa City. During the 1993 flooding, two mobile
home parks, which are In the floodplain, sustained damages. In addition, a park 01 approximately
70 homes Is currently being closed.
Condition ol,Houslna
Most housing In Iowa City Is In fairly good condition. Only one percent 01 housing, both rental
and owner-occupied, Is considered by experts to be 'substandard." Much of this housing Is In
the City's mobile home parks. Sixty-three percent 01 owner-occupied structures were built after
1959. The median age 01 all housing stock Is 26 years.
In Iowa City, the amount of rental housing will consistently be greater than owner-occupied units
because 01 the nature of the market. Only In the 1950s did the number of owner-occupied
housing units built outweigh rental units lor the same period. This may be attributed to the post-
war building boom and lederal financing for first-time homeowners The University's growth and I
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Chart 1-1. Comparison of Contract Rents'
Iowa City, Iowa & United States: 1990
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. Iowa City II Iow~
Source: ' 1990 Census of Housing
$500.749 $750-999
IJUnited States
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Chart 1-2. Owner-Occupied Housing
Comparative Values
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Less than $50,000 $100,000-149,999 ' $200,000-299,999
$50,000-99,999 $150,000-199,999
. Iowa City . Iowa . United States
Source: 1990 Census of Housing
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subsequent need lor housing Is reflected In the large number of rental unlls bulltlrom the 1970s
to the present.
There Is a significant number 01 rental units that are among the oldest housing In the City.
However, housing code enlorcement has Improved the condition 01 rental housing overall, and
because 01 the high demand, units are almost never abandoned, but rather maintained and
Improved to meet the minimum code requirements.
Imoedlments and OODortunllles
There are several Impediments to building low- and moderately-priced housing In Iowa City. First,
there Is limited vacant land within the City boundaries that Is suitably zoned. Second, land costs
are high and dramatically Increase the price 01 the home. Third, the market demand lor upscale,
custom-buill homes deters construction 01 affordable housing. The lourth problem Is complicated
government programs lor affordable housing. Many levels 01 government try to provide Incentives
to developers with programs designed to promote the building 01 affordable housing but these
programs require extra work lor the developer and complicated financial packaging. A five- to
20-year commitment to keep rents In the project affqrdable may enter Into the decision lor some
for-profit developers, too.
The housing market has long been off-limits to low- and moderate-Income families seeking to
purchase a home. The relatively high price 01 housing, high Interest rates (currently low, but high
In the past and possibly again), a limited supply 01 homes under $100,000, and an Inab1l1ty to
accumulate the necessary ten percent In downpaymentfunds have kept most 01 these larnllles
paying rent to a landlord.
All levels 01 government as well as the private sector are exploring options to Increase
affordablllty 01 both owner-occupied and rental housing. For a description 01 programs, especially
those local efforts, see Part I.e., 'Available Resources." Also see Part H.c.!., 'Relevant Public
Policies' lor a discussion of barriers to affordable housing and policies to address them.
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Overcrowdlno
Based on the 1990 census, overcrowding Is slightly more 01 a problem than It was In 1980. The
number 01 people per household has Increased In the past ten years, especially In rental units.
A substantial Increase Is seen In the number 01 unlls with more than one person per room, which
Increased by 93 percent In ten years, but Ills still only a very small percentage 01 all units.
1980 2.5 persons per owner-occupied unit
1.7 persons per rental unit
366 units wllh more than 1 person per room
(2.0 percent of all occupied housing units are overcrowded)
1990 2.7 persons per owner-occupied unit
2.1 person per rental unit
73 owner-occupied units with more than 1 person per room
635 renter-occupied unlls with more than 1 person per room
(3.2 percent of all occupied housing units are overcrowded)
Source: Census, 1980 and 1990
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We can look at relative overcrowding by race and Hispanic origin by comparing the racial
composition olthe overall population to the racial composlllon 01 occupied housing units. As seen
In Table 1-5, Whites are the only group where the percentage 01 occupied housing units Is greater
than the corresponding percentage of the population, I.e., 90 percent 01 the white population
occupies over 91 percent of the total available housing units. Based on this, overcrowding seems
to be sllghtiy worse In minority households, although this does not take Into consideration any
other factors, such as average lamlly size.
Table 1.5. Degree of Overcrowding by Race and Hispanic Origin, 1990
Percent Percent 01
of Total ' Occupied
Race Population Housing Units
White' 90.0 91.1
Black' 2.5 2.1
American Indian, Eskimo, Aleut' 0.2 0.1
Asian or Pacific Islander' 5.6 5.2
Hispanic 1.7 1.5
'non-Hispanic
Lead-Based Paint Hazards
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The presence 01 lead poisoning In children Is an Important problem nationally. Iowa City has kept
abreast of lead-based paint (LBP) Issues and regulations through several City divisions Including
Planning and Community Development, Housing and Inspection Services, and the Public Housing
Authority. Lead-based paint has not, to date, been a significant problem with children In Iowa
City.
The Community Development Division has done limited testing of children and structures through
Its Housing Rehabilitation Program. Four or five paint tests and three tests on children have been
conducted In the last lour or live years. To date all units owned by the Public Housing Authority
have had lead abatement and therelore do not pose a threat to low-Income children In Iowa City.
According to the Johnson County Department 01 PUblic Health there have been extremely few
cases 01 lead poisoning In ,Iohnson County. Statistics are not available however because due
to the lack 01 cases 01 lead poisoning In children, they have not been tested on a wider basis.
The Johnson County Department of Public Health also leels that the threat of lead poisoning Is
slIgllt-lA-low IRGOme-tamIUes-dl.le-to IRe a1JatemeRls-eemplelecllly I~e Publle-HeuslAg A~thorlt
anrl t~9 upkeeHffiotlGe&4-ll1e-CI~/s laAolords-{fJue to eAloroeEl-feAlal-OOttslng eocles). One
recent study tested children at six day care facilities and lound only one child with an elevated
lead blood level. Because 01 the small number of cases, no generalizations can be made as to
locations or neighborhoods In Iowa Clly that might be considered hazardous.
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Linn County (an urbanized county adjacent to Johnson County which Includes the City 01 Cedar
Rapids) conducted a study In cooperation with the Iowa Department of Public Health that showed
only two to five percent 01 children In that county had elevated lead blood levels. This figure is
significantly lower than the State 01 Iowa level which Is approximately seven percent and the
national level which Is estimated at ten to fifteen percent. '
Iowa City's situation Is unlqu'e In that a high number of the City's housing units are occupied by
, university students who are not at risk 01 lead poisoning. Many of these housing units, generally
rentals, are also located In the downtown neighborhoods which are the oldest In the City. To
complicate the situation, these students, tradlllonally, are low. to moderate-Income households.
Because 01 this, Iowa City shows a large number of low- and very low-Income persons living in
units with the greatest risk 01 lead-based paint hazard due to the age 01 the structure, as
evidenced by the maps below. This lact skews the locus on LBP In Iowa City. The number 01
children actually affected by lead-based paint In Iowa City may be comparable to or smaller than
the numbers obtained by the Linn County study.
Table 1.6 shows the estimated number of units In Iowa City containing lead. This number was
calculated using Census and HUD data. In addition, the table estimates the number of units
occupied by larnllles with children under seven years of age who may be at risk. Also, Table 1.7
shows the census tracts that have a higher Incidence 01 LBP than the citywide average. It must
be noted that these tables show only estimates ollead.based paint hazards In Iowa City
based on national statistics and may not be an accurate reflection 01 Iowa City's housIng
stock.
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LEAD.BASED PAINT
Iowa CIty
Estimated Range
01 Units with
*Probablllty . Estimated Range LBP Hazards
Age 01 Number 01 Units of Units to Children
Housing Units of Units with LBP with LBP Under Age 7
Pre.1940 4,402 90% (3,522-4,402) (599.748)
(:1:10%)
1940.1959 3,449 80% (2,414.3,104) (410-528)
(:1:10%)
1960.1979 9,664 62% (5,025-6,958) (854.1,183) ,
(:1:10%)
TOTALS 17,515 72.58% (10,961.14,464) (1,863.2,458)
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LBP HAZARDS BY CENSUS TRACT
Approximate
Number 01 Units Number 01 Units
Census Tract Built Before 1980 with LBP Percent
1 pl. 1,450 1,063 '73.3
4 962 616 64.0
5 1,123 719 64.0,
6 1,559 1,054 67.6
7 26 21 '80.8
9 985 732 '74.3
10 81 66 '81.5
11 1,766 1,504 '85.2
12 838 644 '76.8
13 1,017 646 63:5
14 1,469 960 65.4
15 1,239 1,006 '81.2
16 1,858 1,479 '79.6
17 1,178 904 '76.7
18 1,749 1,118 63.9
106 215 180 '83.7
TOTALS 17,515 12,712 72.6%
'Higher Incidence 01 LBP than city-wide occurrences.
The data displayed In these tables and maps provide an overview of Iowa City's assessment 01
lead-based paint hazard and the areas 01 probable concentration. The City's Five. Year Strategy
" and Annual Plan to reduce lead.based paint hazards In Iowa City are detailed In Parts II and III
' 01 the CHAS.
I.B.2.II. Assisted Housing Inventory
Iowa City's polley Is to provide housing opportunities lor alllow.lncome persons. Overall, the
greatest need Is lor low-cost rental and owner-occupied housing, and assistance In obtaining such
housing In locations that are accessible to schools, Jobs, shopping areas, and public transporta-
,tlon. HUD Table 1 C (page 21 A) gives an overview 01 the housing needs 01 low- and moderate-
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Income households. As Indicated In the table, 6,385 renters experience housing problems (see
Section l.b.1. for a definition of housing problem).
Housing and housing assistance In Iowa City Is currently provided through both publicly and
privately lunded programs as lollows:
Assisted Houslna: Public Houslna and Section 8
Presently the Assisted Housing Program (administered by the Iowa City Public Housing Authority),
provides rental assistance to 820 units In three programs, Section 8 Certificates and Vouchers
and Public Housing, to larnllles and Individuals that are eligible under the 50 percent 01 median
Income guidelines. All three programs have operated at 96 to 103 percent occupancy levels.
Assistance under the three programs Is distributed as Indicated In Table 1-8.
Table 1-8. Iowa City Assisted Housing Programs (6/15/93)
Program
Eft.
1.BR
2.BR
3.BR
4.BR
Total
Public Housing
Section 8 Existing
(Certificates)
Section 8 existing
(Vouchers)
24
243
48
40
10
5
82
494
10
196
o
125
94
24
244
Totals
10
321
361 112
16
820
The Public Housing Authority owns 82 units scattered throughout the City. Twenty units were
purchased In 1992 and 1993. The Housing Authority has applied lor lundlng to buy and/or
construct 40 additional units: 30 three-bedroom and ten four-bedroom units. Twenty 01 these
units will require the sale 0120 existing public housing units. 'All public housing Is In generally
good condition but has modernization needs. The Housing Authority Is applying lor Comprehen-
sive Improvement money to meet this need. Four 01 the units, are handicapped-accessible.
According to ADA regulations, every newly-constructed unit must be accessible and older units
must be adaptable. When older units are repaired, the changes are made In compliance with
ADA.
There Is a great demand lor one. and two-bedroom apartments. The average walt lor housing
assistance lor two-bedroom units Is over a year. Although there are many units of this size In
Iowa City, students compete lor them and often live In overcrowded sltuallons In order to make
the rent affordable.
Many housing and human service providers In Iowa City agree that there Is also a shortage of
three- and lour-bedroom units, both In the Assisted Housing Program, and In the market as a
whole. Only 14 percent 01 all housing units have lour or more bedrooms. There are only ten
public housing units with lour-bedrooms or more and twelve families on the wailing list lor these
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units. The walt lor lour-bedroom apartments Is currently nine months which Is the shortest waiting
period lor all size units.
Table 1.9. Average Walt by Bedroom Size (All Programs)
# bedrooms waiting time (months)
1
2
3
4 or more
11.2
13.1
15.3
9.3
According to Table 1.9, the longest wallin the Assisted Housing Program Is lor three-bedroom
apartments, closely lollowed by the walt for two-bedroom apartments. However, a substantial
number of lamllles (108) are waiting lor unlls 01 three bedrooms or more. In addition, the rental
vacancy rate lor three-bedroom apartments In Iowa City overall was 0.3 percent In 1989. Many
housing advocates leel that one 01 the greatest needs Is additional affordable rental units 01 three
bedrooms. this size unit Is very attractive to students who are only able to afford the rent by
Sharing. A recent development of three. and lour-bedroom units has largely been rented by
students. Since there Is a high demand lor these units, landlords can afford to be choosy.
Table 1.10. Waiting List for Assisted Housing by Bedroom Size, 6/15/93
With Federal Prelerences
1.BR 2.BR 3.8R >3.BR
Elderiy, disabled
and handicapped' 100 16 1 1
Families 32 142 66 9
Total 132 158 67 10
Without Federal Prelerences
1.BR 2.BR 3.BR >3.BR
Elderiy, disabled
and handicapped 69 9 0 1
Families 26 63 27 3
Total 95 72 27 4
Total All 227 230 94 14
, Handicapped Is defined for the Assisted Housing Program to be a person having a physical or mental
Impairment that Is expected to be of long-continued and Indefinite duration, substantially Impedes the ability
to live Independently, and Is 01 a nature that the ability to live Independently could be Improved by more
suitable housing conditions. For purposes of this program, a disabled Individual Is defined as one who has
an Inability to engage In any substantial gainful activity by reason of any medically determinable physical
or mental Impairment, which Is expected to last for a continuous period 01 not less than twelve monihs.
18
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The number ollamllles and Individuals who had applied lor assistance but were waiting to be
served as of June 15, 1993 was 367 with Federal Prelerences', 198 with no Federal
Preferences, and 637 who had started the application process.
The University 01 Iowa has a considerable Impact on the mobility of the community, seen In the
annual turnover rate 0127 percent In the Assisted Housing Programs. Table 1-11 shows Ihat
currently a large number 01 all households assisted are headed by lemales. Figures In Table 1.11
lor Households and Percent of Total Households do overlap. However, the table shows Ihat of
the 820 assisted households, neariy one-third (30%) are considered DIsabled, for example.
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Table /.11. Assisted Households by Type
Percent of
Type of Households' Persons Total
Household HousehOlds.
Male Head 01 Household5 254 584 31%
Female Head H/H 551 1,287 67%
Disabled 246 318 30% ..' ,
Handicapped 10 11 1% ,
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Elderlt 72 97 9% Ii
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'There are three Federal Preferences lor Assisted Housing. Applicants must be either 1) Involuntarily
displaced, 2) living In substandard housing, or 3) paying more than 50 percent of their Income on rent. The
Iowa City Housing Authority has no local preference system, All Federal Preferences are treated as equal
with no Increased prelerence for muUlple Federal Preferences. Quamled Individuals and famll/es are served
by bedroom size on a first-come, first-served basis.
Public Housing and Section 8 vacancies are filled from one list. Applicants may choose to wall lor a
specnlc assistance program and are not penalized lor refusing an offer 01 a certificate, voucher, or p'Jbllc
housing unit. Public housing offers are based on social and financial payment histories.
3 Assisted households can belong to one or more categories, such as Male Head of Household and
Disabled; therefore, the households In this table overlap and add up to more than the 820 households that
are actually assisted by the Iowa City Housing Authority.
4 Represents household type (which overlaps In this table) as a percentage of the number 01 assisted
households, which total 820; therefore percentages do not add up to 100 percent (see previous lootnote).
For example, 67 percent of all assisted households are lemale'headed households, Thirty percent of all
assisted households are considered disabled; some of these may also be female-headed.
5 According to HUD, the head of household Is that member actually looked to and held accountable for
laml/y needs. A female head of household may be married, for example.
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Many of the disabled, handicapped, and elderly clients receiving assistance through the Assisted
Housing Program have received some type of supportive services. Of those receiving assistance,
three handicapped and lour disabled Individuals are Identified as requiring assistance In dally
living to the extent that they must have live-In helpers.
Table 1-12 shows racial and ethnic breakdowns 01 families assisted by the Iowa City Housing
Authority. Overall, 85 percent of those assisted are White and approximately twelve percent are
Black.
Table '.12. Assisted Families by Race and Ethnlclty (Percentages)
Program Native Am.!
(# units) White Black Indian Asian Hispanic'
Public Housing (82) 75.0 22.2 2.8 0 8,3
Section 8 Certificates (502) 86.5 10.0 0.6 2.0 2.6
Section 8 Vouche':$ (246) 86.5 12.0 0.4 1.1 2.5
All 85.7 12.0 0.7 1.6 3.1
· Persons 01 Hispanic origin may be of any race, therelore percentages do not total 100.
Since the last CHAS, there has been a notable Increase In the percentage 01 Black larnllles
assisted as well as slight Increases In the other minority groups, resulting In a decrease In the
percentage 01 White lam Illes assisted.
Proportionately, a greater percentage 01 White persons receive assistance through Section 8
Certificates and Vouchers rather than through Public Housing. However, the small number 01
housholds In Public Housing may skew the distribution. In addition, Public Housing Program
requirements dictate the distribution 01 minority households throughout projects; this can lead to
a higher percentage 01 minority households In Public Housing units.
Section S certificates and vouchers are valid for 60 days and are renewable for an addlUonal 60
days, I.e., households have a maximum of 120 days to locate a suitable unit. The local housing
market poses an enormous challenge to certificate and voucher holders, especially those with
special needs. Section 8 housing units must meet HUD regulations and the landlord must be
cooperative. Although many local landlords accept vouchers, 40 percent 01 voucher or certificate
holders are unsuccessful In locating housing within the first 60-day period. There are many
possible reasons lor this problem Including the tenant's desire for a specific location and overall
availability of housing. The Housing Authority continues to reissue the vouchers or certificates
unll/ all are used.
Family Self.SUfflclency Program. The Asslsled Housing Program Is In the process 01
developing the HUD-Inltlated Family Self-Sulflclency (FSS) Program. The purpose Is to promote
' the development of local strategies to coordinate the use of Public Housing and Section 8
programs with public and private resources, to emible eligible lamllles to achieve economic
Independence and self-sufficiency. Future funding to establish any addlUonal Public Housing and
Section 8 hOUSing units In Iowa City Is dependent upon the Incorporation of the FSS program.
20
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Persons Waiting
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Waiting Outside Size Apt.
Complex # Units # Vacant Ust I.C. Needed Race
Cedarwood 63 0 25 10 25-2 BR 13.W
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Awards will be based on the effectiveness and success of a comprehensive service delivery
system established through partnerships with other service providers.
.
In February 1993, the Public Housing Authority created the FSS Program Coordinating
Committee, which Is made up of representatives Irom human service agencies, employment
services, Johnson County, Iowa City, and the Public Housing Authority.
In June 1993, a letter was sent to all Public Housing tenants to get an Idea 01 how many lamllles
might be Interested In participating In the FSS program. The Public Housing Authority, along wllh
the Coordinating Committee, Intend to submit a proposal to HUD lor the FSS Program within 90
days 01 being awarded any new units.
Private Low.lncome Houslna
For.proflt. There Is an effort In the private housing market to meet the need lor affordable
housing. Two apartment complexes In Iowa City receive HUD lundlng lor the original construction
as well as on-golng operating costs, and serve low.lncome residents. Table 1.13 shows the
numbers they serve, and the need lor additional units as Indicated by the waiting lists lor these
units.
Table 1.13. HUo.Funded Apartments: Private Ownership (6/9/93)
Pheasant
Ridge
231'
15
40
10
18.1 BR N.A.
12-2 BR
5.3 BR
5-4 BR
'20 01 the Pheasant Ridge units are Section 8 unlls that have been counted In Table 1-8 as well.
In June 1993 the Villa Garden apartment complex was completed. this project comprises 48
units of affordable rental housing - sixteen throe.bedroom units and 32 two-bedroom units ..
provided by a local for.proflt housing developer using a variety 01 funding sources. CDBG lunds
were used as well as Low.lncome Housing Tax Credlls, Iowa Finance Authority and Federal
Home Loan Bank funds, as well as private bank loans and Tax Increment Financing Irom the City
of Iowa City.
Non.proflt. The Greater Iowa City Housing Fellowship (GICHF) Is a nonprofit organization
devoted to Increasing the stock of affordable rental housing. The GICHF constructs, rehabilitates
and manages rental unlls targeted lor low.lncome residents of Johnson County. Sponsored by
local churches, the group has rehabilitated three unlls. One house Is leased to a local agency
lor transitional housing while the other properties are Section 8 unlls.
21
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Currenliy, the GICHF Is In the process of acquiring and rehabilitating lour duplexes; three two-
bedroom units and live three-bedroom units. This project Is lunded with $325,000 01 HOME
monies. In addition, they are constructing lour duplexes that will provide lour two-bedroom units
and lour three-bedroom units. This development Is lunded with a combination 01 HOME and
CDBG money. All 01 these units will be rented to lamllles on Section 8 assistance.
These projects are funded with CDBG and HOME money as well as no- or low-Interest loans from
the City and a consortium 01 local lending Instltulions. All properties will be rented to Seclion 8
recipients while the debt Is being paid. After the debt Is retired, the GICHF will reduce rents to
below lalr market rates and make the units available to very low-Incom~ persons.
l.a.2.m. Inventory of Facilities and Services for the Homeless and Persons Threat.
ened with Homelessness
Iowa City and Johnson County provide numerous lacllltles and services lor the homeless and
persons threatened with homelessness. The available services are considered by many to be
some 01 the best In the State. Available services range Irom the necessities (food, clothing, and
shelter) to chlldcare and house repair. Emergency services are available to all persons needing
assistance In Iowa City and Johnson County. These organizations, both public and private, fill
some need and are necessary to assist Individuals and lam Illes In emergency situations.
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Emergency Housing Project
Domestic Violence Intervention Program
Youth Emergency Shelter
30 beds
20 beds
12 beds
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with homelessness, and their capacities.
1.8.2.lv. Inventory 01 Supportive Housing for Non-Homeless Persons with Special
Needs
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persons with special needs. These resldentlallacllltles serve persons with physical and mental
dlsabllllies, persons who are elderiy, youth, and substance abuse patients. The IOllowlng Is a list
01 the facllllies In Iowa City and the populations they serve.
Coffelt Place (closed 5/93)
Youth Homes Group Home
Hillcrest Residence
Hillcrest Boarding House
Mary O. Coldren Home
Greenwood Manor
Systems lJnllmlted-Group Homes, SAL
Structure4communlty Independent Living
Domestic Violence Intervention Project
Iowa Veterans Home
Mld-Eastem Council on Chemical Abuse
Chatham Oaks, Inc.
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Juvenile delinquent boys
Troubled youth
Persons with mental Illness
Persons with mental Illness
Frail elderly women and men
Convalescent care
Persons with developmental disabilities
Homeless youth aged 16-21
Victims of domestic abuse
Persons with a variety 01 problems
Substance abuse patients
Persons with mental Illness, mental retardation or
physical disabilities
22
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The City 01 Iowa City has used CDBG funds to asslslthese,lacllllles'ln the past and will continue
' to support their activities. There Is a need lor added capacity or specialized housing units for
several of these lacllltles, In order to accommodate the needs 01 persons In these subpopulatlons.
In addition to the supportive housIng lacllltles listed, the citizens 01 Iowa City are also eligible lor
services at other Slale or regional resldentlallacllltles. These lacllltles are located outside of Iowa
City. The lollowlng Is a listing 01 some supportive housing facilities used regularly by residents
01 Iowa City:
Four Oaks. Cedar RapIds
Mental Health Inslltute . Independence
Orchard Place. Des Moines
REM. Iowa . Coralville
Tanager Place. Cedar Rapids
Altemative Services. Cedar Rapids
Woodlands. Burlington
Troubled youth
Persons with mental Illness
Persons with mental Illness
Persons with developmental disabilities
Troubled youth
Troubled youth
Youth with substance abuse problems
l.a.2.v. HUD Table 1 B . Market and Inventory Conditions
SeeHUD Table 1B, page 11A.
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23
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I.b. Needs Assessment
l.b.1. Current EstlmateslFlve-Year Prol.!!ctlons
thirty-six percent 01 all households In Iowa City experience some klnd 01 housing problem; either
unaffordable (defined by HUD as spending more than 30 percent or monthly Income on monthly
housing costs), overcrowded, and/or physically Inadequate houslng7. Given that over 50 percent
01 Iowa City households rent, and that many of these are low-I~come households, It Is not
surprising that 53 percent or all renter households experIence diffiCulty meeting housing costs,
while only fourteen percent of owner households do..
Renter households. The most afflicted group of renters Is large faml/Jes of five or more
members; 61 percent (175 households) encounter housing problems (see HUD Table 1C). Fifty.
nine percent (4,577) of unrelated renter households (64 percent 01 all renter households are
unrelated) endure similar circumstances. Forty-one percent 01 both elderiy and small related
households (339 and 1,303, respectively) also experience a need for more affordable rental
housing.
Of the 21 ,964 households In Iowa City, 29 percent or 6,467 households (see HUD Table 1 C, page
20A) are renter households eamlng 50 percent or less of the median lamlly Income (MFI) and are
considered very lOW-Income, and 24 percent 01 the total households In Iowa City are very low.
Income renter households with housing problems. For renters, eighty-two percent (5,289
households) of all very low-Income households have some housing problem. Non-family
households make up 70 percent (4,559 households) 01 very lOW-Income renter households with
housing problems and can be assumed to Include a considerable number 01 university students.
The other 30 percent, or 1,908 households, are family renter households below 50 percent 01 the
median Income.
Among other low-Income renter households (51 to 80 percent of MFI), 35 percent overall (914
households) experience housing problems, but.eleven 01 seventeen (65 percent) large related
renter households (5 or more persons), even In this Income category, have some housing
problem. In fact, among moderate-Income renter households (81 to 95 percent 01 MFI), two 01
every three large related households (fourteen households) have some housing problem, as do
68 percent of elderly one. and two-person households (21 households) In the same Income
category. This means that hIgh percentages of large related and elderly renter households have
cost burdens at Income levels as high as 95% percent or MFI.
Of 6,467 very low-Income renters (below 50 percent MFI), only thirteen percent (820) receive
rental assistance through the Iowa City Public Housing Authority. This leaves approximately
5,650 very lOW-Income renter households without any assistance; according to HUD Table 1C,
96 percent of households In this category, or some 5,420 households, might have excessive cost
burdens (over 30 percent 01 Income Is spent on housing costs) and mIght be In need of
assistance. This number Includes many student households and other one-person (non-elderly)
7 ACCOrding to the national CHAS, National Anal sls of Hous/n Affordabllit Ade ua and Avallabllll :
A FrameWork for local Houslna Slrafealea (May 1993), of the three housing problems, excessive cost
burden, overcrowding, and physical Inadequacy, excessive cost burden Is by far the most prevalent.
· Again, these figures assume that all the households In Iowa CiIy wllh hOUSing prOblems suffer from
the problem 01 affordablllly rather than overcrowding or physical Inadequacy, The ligures may be slightly
hIgh for affordablllly only.
24
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households not currently eligible lor housing assistance under the City's program and could be
misleading. In order to better determine the number 01 low-Income renter households with cost
burdens not receiving assistance, It will be necessary to look more closely at client records In all
programs. It Is also Important to determine how many of the very low-Income households Ialllnto
the hard-to-house category.
Owner households. The situation continues to be critical lor very low-Income homeowners.
Filly-one percent 01 this group of homeowners (528 households) have some housing problem,
nearly half (513 households) pay more than 30 percent 01 their Incomes for housing, and almost
one In lour (250 households) pay more than 50 percent. This may result In delerred maintenance
and deterioration 01 the housing stock.
Cost burden affects other 10w-ln~Jme owner households, too, although severe cost burden (over
50 percent 01 gross Income on housing) Is negligible. Among moderate-Income elderly
homeowner households, only seven percent (fifteen households) have some housing problem and
cost burden, although 20 percent 01 all other moderate-Income owner households (133
households) stili have some housing problem. Further, lor many elderly homeowners, even II
their mortgage has been paid off, reducing their monthly housing costs, a large repair Item, such
as a new rool, Is likely to result In a considerable burden. Especially on a fixed Income repaying
a loan may be very difficult. Even one In five ollhe typical moderate-Income family (81-95
percent MFI) living In Iowa City and owning their own home spends more than 30 percent 01 their
Income on housing costs.
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The next five years. Housing costs continue to rise, placing low- and moderate-Income
households at Increasing risk. Rental costs routinely rise $15 to $25 per unit each year. At the
same time, HUD's Fair Market Rent Index Is proposed to decrease In FFY94, making the
management 01 affordable rental units less leaslble lor many developers and landlords, and
probably putting assisted renters In an Increasingly burdensome situation. Also, In one year alone
(April 1992 to April 1993) the median home price rose by twelve percent Irom $90,000 to
$101,000. Few people find similar Increases In Income In one year. (In Johnson County, home
prices rose by nine percent, Irom $84,000 to $91,500.)'
As Indicated by Increasing demands lor housing assistance, more Iowa Cltlans are unable to
afford the housing costs In the City. If an effort Is not made to Increase the stock of affordable
housing, we can expect to see greater numbers 01 households with housing problems In the
luture and a greater number of households will be forced to seek assistance which, if unavailable,
could result In relocation or even homelessness. '
The rental assistance that exists must be expanded, too, If we are to meet the housing needs of
the neediest, I.e., very low-Income below 30 percent and especially those below the poverty line.
(For a discussion of poverty In Iowa City, see the Antl-Poverlv Slrateov, Part IIl.c.) The priority
will be to lower the rent burdens on very low-Income renters to below 30 percent of their Incomes.
With public housing and Secllon 8 certificates, we can be sure that Is achieved lor those who are
assisted. With the Section 8 voucher program, It cannot be assured that this goal Is reached; with
this program tenants have some choice 01 the units they rent and some may voluntarily choose
to pay more than 30 percent of their Incomes. In addlllon, It Is necessary to determine whether
existing assisted housing programs actually help those most In need, which cannot be done with
Census figures alone. In the next five years, It will be Important to determine what types of
housing assistance best serve the various very low-Income households In need.
25
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l.b.2. Nature and Extent 01 Homelessness
l.b.2./. Needs 01 Sheltered and Unsheltered Homeless
Nature of Homelessness. In Iowa City the problem 01 homelessness has been perceIved by
shelter providers as growIng over recent years due to many lactors that Include an Increasing
population, depressed state and national economies, the availability 01 social and medical
services, and geographic location. This section will briefly address these factors as they relate
to homelessness.
As stated In the Community Profile, Iowa City's population Is Increasing more rapidly than many
communities In the mldwest. This Increase can be attributed to the University 01 Iowa, Including
the UI Hospitals and Clinics, and several major employers. These lactors act as a magnet,
drawing In persons Irom rural Iowa and out of State. According to national statistics, demographi-
cally the percentage 01 homeless persons has remained relatively stable; however, because of
Iowa City's rapid population growth, the number 01 homeless persons has Increased.
The State and national economy Is stagnant and depressed In many areas. Iowa's economy Is
very slow and may be getting worse due to the poor weather (natural disasters) this year. This
will Impact the rural areas, which In turn will affect Iowa City's economy and population, due to
the additional persons coming to Iowa City In search of employment. Iowa City Is lortunate to
have several major employers, as listed In the Community Profile. In addition to these major
employers there are numerous support Industries and service-oriented businesses. These smaller
businesses, typically customer service related, provide a high number 01 jobs, but many of them
are low-paying or minimum wage jobs. Persons who hold these low-paying Jobs, especially If
they are heads of households, cannot afford the cost 01 housing In Iowa City. The combination
01 low pay and high housing costs cause many Individuals and lamllles to be homeless or
threatened with homelessness.
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Iowa City's wide array of social and medical services serve people Irom not only Iowa but
surrounding states. A number 01 the homeless In Iowa City are In town lor medical assistance
or with someone who Is In the hospital. These transient homeless persons (who cannot afford
a hotel room) place a burden on the City's emergency shelters. Also, Iowa City and Johnson
County have a comprehensive variety of services available that attract persons Into the area.
Many times persons coming to Iowa City lor these services are homeless or In need of temporary
shelter.
Last, Iowa City's location along major transportation routes makes It an attracllve stopping point
lor many travelers and transients. An Increasing number of persons using the City's emergency
shelters are Irom another state. According to the Chairman of the Board of Directors of the
Emergency Housing Project (a homeless shelter) only 31 percent 01 their clients come Irom
Johnson County. A combination 01 these and other lactors has greatly Influenced the extent 01
homelessness In Iowa City, which Is discussed In the next section.
Extent of Homelessness. In 1992 the number 01 homeless persons served by emergency
shelters In Iowa City Increased from the 1991 level by neariy 60 percent, from approximately
1,100 to 1,754. Drake University, In Des Moines, has been researching homelessness lor several
years and presents an annual study lor Iowa counlles. The Drake studies have shown a steady
Increase In the number 01 homeless persons In Johnson County. In addition, the most recent
United Way VisIon study (September 1992) shows that the homeless population In Iowa City,
, 26
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John~on County, Is 6.81 persons per 1,000 or 652 persons. This figure Is higher than the State
01 Iowa rate which Is 5.16 per 1,000.
Sheltered Homeless. At present Iowa City has three active emergency shelters for homeless
persons and victims 01 domestic violence.
1. Emergency Housing Project (EHP)
2. Domestic Vlqlence Intervention Program (DVIP)
3. Youth Emergency Shelter (YES)
These three shelters were at capacity or overflowing throughout the past year (July 1992 to June
1993). The limits 01 these shelters' capacities were tested on many nights, housing two to three
times the number of persons the shellers are designed to house. At the Emergency Housing
Project there are 30 beds, 13 at Youth Homes, and 20 at the Domestic Violence Intervention
Program laclllty.
Statistics gathered Irom Emergency Shelter Grant Program (ESGP) final reports Irom these three
shelters shows that they housed 1,754 persons Irom July 1, 1991 to June 30, 1992. These same
reports Irom 1993 show that the shelters housed 1,500 persons Irom July 1,1992 to June 30,
1993. This Is a decrease over last year, probably due to a change In State polley necessitating
the temporary closure 01 one shelter by Youth Homes and structural rehabilitation activities at the
Emergency Housing Project.
Iowa City did not conduct an olllclallndependent homeless count, however, we can confidently
count the number 01 undupllcated homeless persons from agency records by lollowlng this simple
methodology: 1) Count only single adult men Irom EHP; 2) Count only women and accompanied
minor children at DVIP; and 3) Count only unaccompanied minors at YES. With these
undupllcated counts Irom the agencies' records we can confldentiy obtain a reasonable,
undupllcated number 01 homeless persons who were housed In Iowa City's shelters. Table 1.14
shows \I1e results of this accurate, but unofficial, count 01 the sheltered homeless. It should be
noted that this method of counting results In an undercount 01 the sheltered homeless.
27
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Table 1.14. Sheltered Homeless: Un duplicated Count
July 1, 1992 to June 30, 1993
Homeless Popula. Emergency Hous. Domestic Violence Youth Homes, Inc.
tlon Ing Project Intervention
Program
Unaccompanied 745 0 0
Adult Males
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Accompanied Minor 02 168 0
Children
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Minor Males
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Minor Females
SUBTOTAL 745 273 183
GRAND TOTAL OF SHELTERED HOMELESS 1,201
1 Adu~ females wele not counted at EHP because this categoiY was counted at DVIP, and an undupllcated count was
the priority.
I Children were not counted at EHP because this catagoiY was counted at DVIP, and an undupllcatad count was the
priority.
Unsheltered Homeless. Although we have been able to count sheltered homeless persons,
there Is a segment of the homeless population that' Is nearly Impossible to count .. the
unsheltered homeless. At any time In Iowa City there are a _number 01 homeless persons !<
living on the street or In places not meant lor human habitation. During the summer months there
are a large number 01 transients passing through Iowa City because of Interstat& 80. Additionally,
migrant workers Irequently pass through or stop In Iowa City on their way to other parts of the
country, and many 01 these persons are sleeping In their vehicles. The combination 01 these
lactors makes counting the urisheltered homeless population a difficult task.
Because this unsheltered population Is very difficult to count the City asked, the Pollee Department
to do an unofficial street count. The Pollee Department's count was conducted while they were
on normal late night patrol. They were not asked to seek out this population, but to simply report
the number of (presumed) homeless persons they saw on the City streets. During the late
evening hours on August 13 and August 19, 1993, the Iowa City Pollee reported seeing five
unsheltered homeless males (four White and one Black) each evening.
The S.nlght count by the U.S. Census Bureau, conducted on March 21, 1993, showed seven
visible unsheltered homeless persons on the streets. This census count Is consistent with the
unofficial Iowa City Police Department count.
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One thing Is certain, the number 01 unsheltered homeless persons In Iowa City Is very difficult to
ascertain. Another significant factor that should also be addressed Is the high number 01 persons
who are attending the Iree meal programs, currently provided by the Wesley House and EHP six
days per week. As an example, Wesley House's free lunch program serves an average of 80
meals per day, which Is 24,960 meals annually, and EHP typically served 70 meals per evening
at Its shelter, more than 21,840 meals each year. The evening meal Is now being served by the
Salvation Army Corps. This may provide a more accurate plclllre 01 the unsheltered homeless
populallon. However, many people eallng at these lacllltles do have shelter. Conducting an
official count is beyond the resources 01 the emergency shelters and the City at this time.
Homelessness In Iowa City has not traditionally been an overwhelming problem lor this
community, however, as this document has shown It Is an Increasing problem that must be
continually addressed, The City of Iowa City, Johnson County, the State 01 Iowa, and many
private organlzallons and Individuals contribute to the operation of the emergency shelters. A
commitment of continued support Is necessary to maintain the existing shelters. Through
numerous government programs and private contributions many Improvements have been
possible, However, due to an Increasing need these shelters must expand. At present the DVIP
shelter Is In the process 01 constructing a larger laclllty, and YES Is 100kJng into acquiring a larger
laclllty for Its use. In addition, the Salvation Army is taking over the evening soup kitchen at Its
laclllty, which is better equipped to handle the demand than EHP's small home but Is not as
conveniently located. Hopelully these Improvements In Iowa City's emergency shelters will enable
them to better address the needs of their clients. .
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Needs 01 the Sheltered and Unsheltered Homeless. The needs 01 the sheltered and
unsheltered homeless begin with the basic necessities 01 load and shelter. In addition, other
services are necessary for a number 01 homeless persons In Iowa City, which Include but are not
limited to the lollowing: chlldcare, medical services, psychological treatment, substance abuse
counseling, Job training, educallon, transportation, rent assistance, and financial resources.
There are government and local programs that are set up to provide lor some of these needs, but
not all of the service agencies have the capacity or financial resources to assist everyone In need.
In order lor homeless persons to use the services available to them, two primary needs must be
provlded-.food and shelter. The emergency shelters and Iree meal programs are trying to meet
these needs lor the homeless population; however, a more stable or long-term housing
environment Is needed.
At present the City Is working on a study to determine the need and leaslblllty 01 a transitional
housing laclllty. Many human service agencies feel that Iowa City has a need lor Single Room
Occupancy (SRO) units, which may be used to provide housing lor single persons or transients.
If one or more SRO buildings are a leaslble option, It may ease the pressure on the emergency
shelters and provide lor transitional and, In some cases, permanent housing. To provide this
housing lor the homeless population the costs lor development and operation must be subsidized,
and the tenants probably need to be provided rental assistance. The HUD Shelter Plus Care and
Supportive Housing programs may be able to provide assistance In this area.
One trend In the homeless population is that there are more single parents with children arriving
at emergency shelters. Due to the limited capacities 01 the shelters and types 01 persons served,
the arrival 01 a large number 01 children presents another series of problems. Chlldcare' Is
becoming one 01 the fastest growing needs 01 the homeless. In order for the parents to work,
attend class, counseling or Job training, or to look for a Job they need to have chlldcare available.
In addition, HUD Table 1 D shows that many 01 the sheltered and unsheltered homeless are In
29
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need 01 counseling or services. While services In these areas exist, limits on capacity and
financial resources reduce the number 01 persons who can be served.
Job skllls and education are other needs of the homeless. Many of these Individuals lack not only
lood and shelter, but sufficient education and job skills that would allow them to become
employed. Iowa City Is lortunate to have numerous educatlonallacllltles providing lor all levels
01 job training.
Another subject that has been addressed by Iowa City Is the prevention of homelessness. Many
persons In the emergency or homeless shellers are there because they have recently been
evicted or cannot locate a rental unit. Iowa Clly has used Community Development Block Grant
(CDBG) resources to lund LIFE Skllls, Inc. LIFE Skllls has a housing coordinator who works wllh
persons receiving rental assistance who are having problems locating suitable housing In the City.
The LIFE Skllls program also helps them with budgeting, housekeeping, and social skllls that will
enable them to stay In a unit.
As outlined above, there are numerous needs of the homeless population. There Is no one
solution to the problem of homelessness. A combination 01 housing opportunities and services
will reduce the homeless population. Iowa City will continue to address the problem 01
homelessness and provide support lor the existing emergency shelters and human service
agencies.
l.b.2.II. SUbpopulatlons
Homeless Subpopulatlons. HUD Table 1 D Identifies six subpopulations of homeless persons
with service needs. Individuals In this group are In need of additional assistance, other than those
listed In the section above, lor their dally living. Three groups In particular have been Increasing
In the last lew years; persons with severe mental Illness (SMI), persons with HIV/AIDS, and
persons abusing drugs or alcohol. Persons who have SMI have typically been released Irom a
State or private mental hospital and are now on their own with lew If any supportive services.
The spread of HIV/AIDS In Iowa City has been relatively low, with 41 reported cases, according
to the Johnson County Department of Public Health. This problem, although seemingly small,
may cause severe housing and medical problems, especially among the homeless. Last, the
IncIdence 01 drug and alcohol abuse among persons at the emergency shelters has been
Increasing, which causes problems lor the shelter providers and other homeless resIdents.
The percentages of homeless persons fitting Into these subpopulatlons are Identified In HUD
Table 1 D. These figures/estimates are based on expert opInion and agency records. Again,
arriving at a figure lor the unsheltered homeless Is difficult at best. National statistics are the only
available resource In the study of unsheltered homeless with special needs.
J.b.2.1II. Needs 01 Persons Threatened wllh Homelessness
Persons threatened with homelessness, as Identified In the CHAS, are mainly families and
Individuals who are earning less than 50 percent 01 the median Income and low. to moderate-
Income persons paying more than 30 percent of their Incomes lor housing. The overwhelming
need lor persons In this group Is access to affordable housing.
Providing affordable housing lor persons threatened with homelessness may be accomplished
through methods such as new construction, rental assistance, or public housing. Iowa City has
been working on affordable housing Issues for several years. The City has maintained a very
30
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active rehabilitation program, assisted with new construction, acquired land for affordable housing,
and moved houses scheduled for demollllon. At present the provision 01 aflordable housing Is
a pr!mary objective 01 the City's Community Development Division.
Another need lor persons threatened with homelessness Is the ability to keep their existing
housing. Many Individuals and larnllles are laced with eviction each month, due to disputes with
landlords and neighbors. As mentioned above, the City has used CDBG resources to lund a half.
lime housing coordinator at LIFE Skills. The LIFE Skills housing program Is designed to assist
Individuals with housekeeping, budgeting and other skills belore they are faced wIth evIction.
LIFE Skills has put together a ten.week training and educational course lor hard-to.house
Individuals and lam Illes. In Its first year, 1992 to 1993, It assisted 31 households to locate
housing and/or participate In Its housing program. LIFE Skills Is working toward developing a
relationship with the area landlords so that when problems begin, landlords have someone to
contact who will assist the tenant belore evlcllon becomes necessary. However, the problems
01 the hard.to.house population are not easily resolved, and Increasing lederal and local
assistance Is required to assist these households.
l.b.3. Populations with Special Needs Other than Homeless
Iowa City's excellent services, medlcallacllllles, and the University 01 Iowa results In persons with
special needs moving to the community. Because 01 these lactors the need lor housing and
supportive services In this area Is always Increasing. As more capacity Is developed or services
offered there Is an Increasing population to be served.
The need lor supportive housing Is divided Into six subpopulatlons of persons lor the purpose 01
this CHAS. These categories are shown below on HUD Table 1 E. Gathering local data lor the
complellon of this table was difficult, since little comprehensive data Is available locally. The
majority of the ligures on this table were generated using nallonal statistics and norms, however,
local data was used when it was available. The numbers that were calculated using national
statistics, In our opinion, may be low lor Iowa City given the lactors described In the preceding
paragraph.
31
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l.e.1. PROGRAMS FOR HOUSING ACQUISITION
Federal Programs
. HOME Investment Partnershlo Prooram. For Iowa City, HOME Is a competitive program.
Applications are submitted by either the local govemment or nonprolil or lor-profit developers to
the Iowa Department 01 Economic Development, which administers the program. Funds can be
used for acquisition, new construction, rehabilitation, tenant-based rental assistance, as well as
other affordable housing needs.
Public Houslna Develoomenl. The Iowa City Public Housing Authority will apply to the U.S.
Department 01 Housing and Urban Development lor $3.4 million lor the acquisition and/or
construction of 40 units, under Section 5(h) and the Fair Share Program.
Community Develooment Block Grant Proaram. Cilles with populations over 50,000 may be
eligible to receive block grants Irom th& lederal govemment lor neighborhood revitalization,
economic development, community lacl/llles, and other actlvilles aiding low. and moderate-Income
lam Illes. Housing acquisition lor low. to moderate-Income persons Is an eligible activity. For the
1993 program year, Iowa CIty's CDBG entitlement was $892,000. The total amount that the City
has allocated was $1,244,000 (Includes carryover and program Income). It Is expected that Iowa
City's entitlement lor the 1994 program year will be over $900,000.
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The SUOOortlve Houslna Prooram. Grants to public and private nonprolil entities to promote the
development of suPPortive housing and services. Funds can be used lor: acquisition,
rehabilitation, some new construction, leasing of structures, operating costs, and supportive
services costs. Compelillon lor grants Is nationwide; submissIon dates are established by Notice
of Fund AVailability (NOFA).
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Hous/na OODOrtunilles lor Persons with AIDS (HOPWAI. Compelillve grant (some states and
cilles qualify as entitlements) for housing assistance and supportive services lor low.lncome
persons with AIDS or related diseases and their laml/les. Funds can be used lor: acqulsillon;
rehabilitation; conversion, lease, and repair oflacllltles; new construction; project-based or tenant-
based rental assistance; planning; support services; operating costs; short.tenn rent, mortgage,
and utility pa~ent; and administrative expenses.
Low./ncome Houslna Preservation Proaram. This competitive grant program provides financIal
Incentives to either retain subsidized housing projects whose lederal assistance Is expiring or to
sell to a purchaser who will keep the project for lOw-Income persons. Eligible applicants Include
owners of low.lncome housing, nonprolil organizations, state or local agencies, or any entity that
agrees to maintain low-Incomeaffordablllty restrictions.
State Programs
Houslna Assistance Fund (HAF1 The Iowa Finance Authority (IFA) administers this program to
develop and maintaIn decent, sale, affordablo housing and to create suitable living environments
for low. and moderate.lncome lamllles. All projects assisted must directly benefll low. and
mOderate.lncome famlllee (50 percenl or more). Eligible proJects Include: group shelters lor the
homeless; home maIntenance and repair programs; acqulsillon, rehab, and construction of single.
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lamlly and multl-Iamlly rental properties; and home ownership programs, Eligible applicants
Include cities, counties, or housing developers.
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Private Programs
Affordable Houslna Proaram (AHP). The purpose 01 this program, run by the Federal Home loan
Bank 01 Des Moines Is to subsidize the Interest rate on advances or provide direct subsidies to
member Institutions engaged In lending lor long-term, very low-, low-, and moderate-Income,
owner-occupied and affordable rental housing at subsidized Interest rates. Subsidies may be
used In conjunction with other sources of funds such as the Bank's Communlly Investment
Program (see listing below), the lederal low-Income Housing Tax Credit, and others. AHP
subsidies must be used to either 1) finance the purchase, construction, and/or rehab 01 owner-
occupied housing lor very low-, low-, or moderate-Income households, or 2) to finance the
purchase, construction, and/or rehab 01 rental housing, at least 20 percent of the units of which
will be occupied by and affordable' for the remaining uselulllle 01 such housing or the mortgage
term.
l.c.2. PROGRAMS FOR HOUSING REHABilITATION
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HOME Investment Partnership Proaram. For Iowa City, HOME Is a competitive program.
Applications are submitted by either the local government or nonprofit or lor-profit developers to
the Iowa Department 01 Economic Development, which administers the program. Funds can be
used lor acquisition, new construction, or rehabilitation as well as other affordable housing needs.
, In FFY93, the City, a nonprofit, and a lor-prolll developer were awarded approximately $1 million
lor rehab projects (some of the monies will go to acquisition).
Public Houslna Development. See listing under 'Programs lor Housing Acqulsltlon.'
Community Development Block Grant Proaram. For the 1993 program year, Iowa City's CDBG
entitlement was $892,000. The total amount that was allocated was $1,244,000 (Includes
carryover and program Income). Of that, $357,000 was allocated to the City's Housing
Rehabilitation Program, lor owner-occupied rehab projects. Another $1 02,000 wenlto other rehab
projects.
CDBG Section 108 loan Guarantee. This program allows CDBG entitiement communities to use
their CDBG lunds to guarantee loans or notes lor development projects, Including housing
rehabilitation and rehabilitation 01 publicly-owned real property. All CD8G rules apply, and
applicants pledge current and future CDBG lunds as principal security lor the loan guarantee.
This program has not been used before In Iowa City.
The Supportive Houslna Proaram. See listing under 'Programs lor Housing Acquisition'.
Houslna Opoortunltles lor Persons with AIDS (HOPWAI See listing under 'Programs lor Housing
Acquisition'"
Lead Based Paint Abatement. This competitive grant program seeks to develop cost-effective
community strategies. Funds can be used lor rehabilitation, planning, and operating costs.
Eligible applicants Include states and local governments. In FFY93, $100 million were
appropriated lor this program.
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Houslna Assistance Fund (HAF1. See listing under 'Programs lor Housing Acquisition'.
Private Programs
Communltv Investment Proaram. Financial Institutions that are members 01 the Federal Home
loan Bank can apply for lunds In the lorm 01 advances, which are provided at fixed rates priced
at the Bank's cost of lunds (one month to 20 years). The purpose Is to encourage member banks
to provide favorable financing In the community lor homeownershlp opportunities, rental housing
opportunltles, home Improvements, and economic development opportunltles to low. and
moderate-Income persons or families.
Affordable Houslna Proaram. See listing under 'Programs lor Housing Acquisition'.
l.c.3. PROGRAMS FOR NEW CONSTRUCTION
Federal Programs
HOME Investment Partnershlo Proaram. See listing under 'Programs lor Housing Acquisition'.
Public Houslna Develooment. See listing under 'Programs for Housing Acquisition'.
Communltv Develooment Block Grant Proararn. See listing under 'Programs lor Housing
Acquisition'.
The Suooortlve Houslna Proaram. See listing under 'Programs lor Housing Acquisition'.
Houslna Oooortunlties lor Persons with AIDS (HOPWA). See listing under 'Programs lor Housing
Acquisition'.
low.lncome Houslna Tax Credits. The Iowa Finance Authority administers this federal program
In Iowa. Tax credits or a reduction In tax liability Is available each year lor ten years lor owners
and Investors In low-Income housing. Projects must have a minimum 01 either 20 percent of Its
units occupied by households with Incomes under 50 percent 01 the area median Income, or 40
percent of Its units occupied by households with Incomes under 60 percent 01 the area median
Income.
'State Programs
Houslna Assistance Fund (HAF1. See listing under 'Programs for Housing Acqulslllon'.
Private Programs
Affordable Houslna Proaram. See listing under 'Programs lor Housing Acqulslllon'.
l.c.4. PROGRAMS FOR HOMEBUVER ASSISTANCE
Federal Programs
HOME Investment Partnershlo Proaram. See listing under 'Programs lor Housing Acquisition'.
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CommunllV Develooment Block Grant Proaram. See listing under 'Programs for Housing
Acquisition'.
State Programs
Houslna Assistance Fund (HAFl. See listing under 'Programs lor Housing Acquisition'.
Individual Home Acaulsltlon Proaram {IHAP}. Provides grants lor closing costs, matching
downpayments up to $2,750, and repairs necessary lor low-Income buyers to obtain financing.
Administered by the Iowa Finance Authority.
Local Programs
Downoavment Assistance Proaram. CDBG funds In the amount 01 $15,000 were allocated to this
program which provides up to $3,000 In a matching loan to low- to moderate-Income homebuyers
In Iowa City. There Is a maximum mortgage amount In addition to the Income guidelines.
Applicants apply through the lending Institution.
Private Programs
CommunllV Investment Proaram. See listing under 'Programs lor Housing Rehabilitation'.
l.c.S. PROGRAMS FOR RENTAL ASSISTANCE
Federal Programs
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HOME Investment partnershlo Proaram. See listing under .programs for Housing Acquisition'.
CommunllV Develooment Block Grant Proaram. See listing under 'Programs lor Housing
Acquisition'.
Public Houslna. The Iowa City Housing Authority applies to the lederal government lor lunds to
purchase housing units to be owned and maintained by the Housing Authority. Low-Income
lamllles apply to the Housing Authority for these low-cost rental units.
Section 8 Certificates and Vouchers. With Section 8 certificates, lamllles with Incomes below 50
percent of the area median Income pay 30 percent 01 their Income lor rent and the lederal
government pays the difference between that amount and the Fair Market Rent (FMR) on the unit,
using a certificate. With Section 8 vouchers, recipients are permitted to supplement the voucher
beyond the FMR or to keep the difference lor lower rents. Families apply to the Iowa City
Housing Authority (ICHA). The ICHA applies to the U.S. Department 01 Housing and Urban
Development lor additional certificates and vouchers.
Suooortlve Houslna lor Persons with Disabilities (Section 8111. Funding to expand the supply 01
housing with supportive services, such as group homes, Independent living lacllltles, and
Intermediate care lacllltles. Two types 01 financing Include Capital Advances based on the
development cost limits published In the Federal Register, and Project Rental Assistance to cover
the difference between HUD approved operating costs and 30 percent 01 residents' adjusted
Income. Development methods, Include new construction, rehab, and acquisition. Private,
nonprofit organizations are eligible to apply lor this competitive grant when an Invitation Is
published.
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Supportive Houslna for Elderlv Persons (Section 202). Funding to expand the supply of housing
with supportive services lor elderly persons. See Section 811 Program, above.
Shelter Plus Care. this competitive grant program provides lor rental assistance that Is offered
with support services to homeless with disabilities. Support services must match rental
assistance and must be provided by lederal, state, local, or private sources. Rental asslstilflce
can be sponsor-based, tenant-based, or project-based.
Sectlon 8 Moderate Rehabllltatlon Proaram lor Slnale Room Occupancy (SRO). This program
provides rental assistance on behalf 01 homeless Individuals In connectlon with the moderate
rehabilitation 01 SRO dwellings. Resources to fund the cost 01 rehabllltatlng the dwellings must
be Irom other sources. Grants are awarded based on need and ability to undertake the SRO '
program through a nationwide competition.
Houslna Opportunities lor Persons with AIDS (HOPWAI. See listing under "Programs lor Housing
Acquisition". '
Private Programs
GICHF Rental Deposit Revolvlna Loan Proaram, The Greater Iowa City Housing Fellowship has
a loan program lor rental deposits. Two thousand dollars are available each month for loans,
which average $300 per loan ($400 Is the maximum loan allowed), and approximately five loans
are made each month.
l.e.6. PROGRAMS FOR HOMELESS ASSISTANCE AND PREVENTION
Federal Programs
Community Development Block Grant Proaram. See listing under 'Programs lor Housing
Acquisition'.
Emeraencv Shelter Grants Proaram (ESGPl. This program provides grants to Improve the quality
01 existing emergency shelters and to Increase the number 01 developing shelters lor the
homeless. Funds can be used lor renovation, conversion, rehabllltatlon, essential social services,
and operating costs (excluding staff payroll). The program Is administered In Iowa by the Iowa
Department 01 Economic Development. In 1993, the amount received by Iowa City was 60
percent less than In 1992. The first reason lor this was a decrease In congressional appropria.
tlon, and the second was an Increase In the number 01 applicants across the state.
The Supoortlve Houslna Proaram. See IIstlng under "Programs lor Housing Acquisition'.
Sectlon 8 Moderate Rehabllltatlon Proaram lor Slnale Room Occupancy (SRO). See listing under
'Programs lor Rental Assistance'.
Houslna Opportunities lor Persons with AIDS (HOPWAI. See listing under "Programs lor Housing
Acquisition".
State Programs
Houslna Assistance Fund (HAFl. See listing under "Programs lor Housing Acquisition'.
36
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program provides one-time emergency assistance to persons at risk of becoming homeless, lor
utility, rent or mortgage payments.
Private Programs
Mortoaoe Foreclosure Prevention Prooram. This program Is sponsored by the Northwest Area
Foundation and the United Way 01 Southeast Iowa and Is designed to preventloreclosure,
personal hardship, and vacant homes by providing Inlormatlon, relerral, counseling, case
management, and emergency financial assistance to homeowners In danger 01 losing their
homes.
GICHFRental Deooslt Loan Prooram. See listing under 'Programs lor Rental Assistance'.
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II. FIVE.YEAR STRATEGY
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1I.s. Summary
Iowa City's affordable housing priorities continue to be to expand the stock of affordable
housing, maIntain existing affordable housIng units, and to assist people In staying In
housing. A lourth priority w1l1 be planning and research activities that w1l1 be locused on the
numerous barriers to affordable housing In the community and how to help the 'hard-to-house"
section of the population. As In previous years, the primary polley directive of this CHAS will be
to serve those most In need.
Maintenance of the affordable housing stock I~ Important In any community, but It Is especially
crucial In Iowa City. Although Iowa City has relatively lew substandard, vacant, or dilapidated
housing units, rehabilitation of housing Is crucial to maintain the units that do exist In the City.
Because 01 the extremely tight housing market In Iowa City, new construction 01 affordable rental
and owner-occupied units Is another priority. This tight supply cannot meet the demands 01 a
range of people, and has many repercussions In the community. Third, assisting those
organizations that help keep people In housing with support services will continue to be a priority
since lor many special needs populations, just finding housing Is not enough. Finally, more work
needs to be done In researching new ways In which to overcome the barriers to expanding the
supply of decent, affordable housing units In Iowa City.
lI.b. Priority Analysis and Strategy Development
Expansion of the affordable houslna stock
,/
I. Analysis
Expansion of the affordable housing stock Is a top priority. The affordable housing market In Iowa
City Is so tight, the laws 01 supply and demand work against all efforts to combat other housing
problems, such as discrimination against families and tenants with poor rental histories, and a
shortage of nursing home space for the Irall elderly, which could be alleviated with the creation
of more housing space. At present, landlords, nursing homes, and other housing providers can
afford to be very selective. Those who are most In need, the homeless and those needing
supportive services, lor example, are most likely to lace discrimination, eviction, or simply be
unable to find a suitable, affordable small unit. Economic development Issues arise, too; major
Iowa City employers have Indicated a problem attracllng workers because prospective employees
cannot find suitable housing In the City.
There are several factors that discourage affordable housing development In Iowa City. One
problem that Is not unique to Iowa City, Is that financial resources are few and what does exist
Is either decreasing In amount, not growing wllh the need, or difficult to access. Iowa City has
another problem In that very little developable and affordable land at a suitable density lor
affordable rental housing exists In the City. The land that does exist Is owned by just a lew
people. These barriers are addressed under "Feasibility studies and planning."
To help correct the problem, the City w1l1 continue to work with providers of new and affordable
housing, such as nonprofit and lor-profit developers, as well as the local lenders and others who
have expressed Interest In this area. A subsidy will be needed for any new construction, so It will
be necessary to pursue as many options as possible to ensure cost-effective new development.
The proposed large decrease In Fair Market Rents for Iowa City makes the flnanclalleaslbllity
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for new construction even more tenuous. The options discussed below In the priority 'Feasibility
studies and planning' will also be Important to explore lithe City Is to expand the affordable
housing stock when little available land and shrinking financial resources exist. .
Creating rental housing lor very low- and low-Income persons and homeless persons will be given
a higher priority than creating affordable owner-occupied homes. The exception to this will be
very low-Income households living In substandard housing, such as substandard manulactured
housing. The priority will be those Individuals and families who are either living In substandard
housing, overcrowded conditions, or who are paying more than 30 percent of their gross Income
lor housing. (See HUD Table 1C, page 21A.) It should be noted that supportive housing, lor
persons who are mentally III, lor example, would lall under this priority, If new construction were
to take place to house this population. Also, the purchase 01 additional public housing units will
Increase the number of rental housing units affordable to low-Income households, as will
additional Section 8 vouchers. (Priorities lor Assistance, HUD Table 2, can be found on p. 44A.)
lI.b.lI. Investment Plan
See Table 11-1, page 41 , Five-Year Investment Plan to Meet Priorities.
Rehabilitation of the exlstlna affordable houslna stock
I. AnalysIs
Given the tight housing situation In Iowa City, the maintenance 01 our existing affordable housing
stock Is as Important as new construction. There Is not a need lor rehabilitation 01 vacant or
abandoned structures, but lor moderate and comprehensive rehab 01 housing units that have
been allowed to deteriorate to some degree. Iowa City has very little substandard housing, and
almost every unit In the clty Is rehabable. However, II rehab efforts are not kept up, that situation
could quickly change, leading the affordable housing stock to shrink even lurther.
Assistance lor very low- and low-Income existing homeowners receives a high priority (See HUD
Table 2). The City's Housing Rehabilitation Program continues to be very busy, bulls making
time to explore ways to reach those homeowners occupying the structures most In need 01
rehabilitation. For example, recently awarded HOME Program lunds will be used for a new
program to assist homeowners with little or no equity In their homes. It Is the case that families
with Incomes under 80 percent 01 the area median Income can often only afford houses that are
In need of major rehab, but cannot qualify lor loans, even through the City's programs, because
they have no equity. Many of these homeowners are elderly living on fixed Incomes which do
not permit them to make major repairs to their homes. The City's Community Development
Division Is also working with lenders and realtors on a homebuyer education program. This Is
aimed both at teaching people about the process 01 buying a house and about maintaining a
home. Efforts such as these will be supported and continued.
Rehabilitation 01 the rental housing stock Is also Important. The older sections 01 the city consist
primarily of rental units Inhabited by students attending the University of Iowa. Many landlords
do not live In these structures, which are not maintained as they Ideally should be. The City's two
programs lor rental rehabilitation will be discontinued after June 30, 1994. For the Iowa
Department of EconomIc Development Rental Rehab Program, the lunds will no longer be
available. For the Iowa Finance Authority Rental Rehab Program, the City may choose to reapply
lor funds. However, the City's current contract had to be extended lor one year because It was
39
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unable to attract landlord participation and use available lunds. This may be due to the low
Interest rates now obtainable via private bank loans, as well as the City's effective Housing Code
Enlorcement program, which ensures the Inspection 01 most rental units every two years. It has
also been difficult to find applicants that met all the eligibility guidelines. If the need arises In the
luture, another option may be to use CDBG funds lor rental rehab. Finally, HOME funds could
be used lor slte-speclllc projects.
One nonprofit organization Is In the process of acquiring and rehabilitating eight units of rental
housing In order to keep them affordable to low-Income households In perpetuity. A for-prom
developer Is working to acquire and rehab (convert) an historic property Into small apartments lor
persons who are disabled or elderiy. This property Is located downtown lor easy access to
services and transportation.
Rehabilitation 01 emergency shelters and various group homes and residential facilities Is also a
priority. It should be note~ that supportive housing, lor persons who are mentally III, lor example,
would lall under this priority, II rehabilitation of such a laclllty were to take place to house this
population.
II. Investment Plan
See Table 11-1, page 41, Five-Year Investment Plan to Meet Priorities.
SUDDort aaencles that Drovlde services to helD DeoDle secure and stav In houslna
I. Analysis
Although expanding the stock 01 affordable housing Is needed In an extremely tight real estate
market, there are Individuals and families that would continue to be without housing even II
hundreds 01 new units were to appear overnight. These people need some type 01 support
service to help them stay In housing and/or they may need assistance In Ilndlng housing.
Needed services range from basic household skllls training, to rental assistance, to those lor
persons with severe mental Illness. The many social service agencies In Iowa City do a
tremendous Job with lewer resources every year, and their vital contribution to the provision 01
housing lor alt people cannot be overestimated. This priority Is targeted especially to very low-
Income renters and existing homeowners who are elderly or handicapped.
In addition to assisting agencies providing support services, efforts to coordinate services lor
people with multiple problems should also be supported. Just a lew of the current efforts Include
the Family Sell-Sufficiency Committee and the Local Homeless Coordinating Board. Some 01 the '
goals 01 these groups are to overcome barriers to finding and staying in housing, working with
families to build basic life skllls, and to coordinate services lor clients.
, Another way to help people to find and stay In housing Is through rental assistance. The City w11l
continue Its efforts at expanding the stock 01 public housing (It is in the process 01 beginning a
Family Sell-Sufficiency Program In order to be able to do this), and will continue to apply lor
Section 8 vouchers and certificates. The Public Housing Authority along with some non profits will
continue to work with landlords to educate them and to lend them support with problem tenants.
One nonprofit educates hard-to-house renters In how to find housing. Another nonprofit has In
the past year begun a loan program for rental deposits, and at present has a very good record
01 repayments.
40
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See Table 11-1 , Five-Year Investment Plan to Meet Priorities. this page.
Feaslbllltv studies and plannlnQ
I. Analysis -
The greatest emphasis needs to be placed on the lact that expansion 01 the affordable housing
stock and the provision 01 support services to help keep people In housing will not be greatly
Improved II we do not address certain problems and barriers. Therelore, the planning and
research done by the Community Development Division and others must locus on the barriers
to affordable housIng lor all Iowa City residents. These barriers range Irom a lack 01 financial and
land resources to community attitudes. There may be no way to. remove some 01 these barriers.
Options that staff will focus on will Include land acquisition, planned development, the feasibility
01 modifications to development standards and zoning, additional zoning for manulactured
housing, the leaslblllty 01 SROs and other options lor addressing the most difficult to house
populallons, and enhancing the publlrJprivate partnerships that have begun Inlormally, through
several projects, with the local lInanclal Inslltutlons.
II. Investment Plan
See Table 11-1, Five-Year Investment Plan to Meet Priorities. this page.
Table 11.1. Flve-Yesr Investment Plan to Meet Priorities
Activities Purpose ProgramsJResources
,
Acquisition (land and properly) -address Shortage of afford- -CDBG
able, developable vacant sites -HOME
-Infllllots to move older -Public Housing Development
homes/construct new homes -Supportive Housing
-Improve and keep substandard -Secllons 811 and 202
structures affordable -HOPWA8
-Increase public housing stock -Public Housing & See, 8
-Low-Income Housing
Preservallon Program
-StatelLocaVPrlvate
New Construction -ease very light housing market -CDBG
-house special needs popu- -HOME
lations (large units, SRO, -Public Housing Development
elderly, physically disabled) -L1HTC
-Supportive Housing
-Sections 811 and 202
-HOPWA
-State/LocaVPrlvate
8 Housing lor Persons with AIDS
41
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Rehabllilatlon -preserve affordable owner- -Public Housing (ClAP)
occupied housing -CDBG (Incl. Sec. 108)
-preselVe affordable rental -HOME
housing .Publlc Housing Development
-preselVe emergency shelters, -L1HTC
group homes and residential -Supportive Housing
lacllltles -HOPWA
-See 8 Mod Rehab
-Lead-Based Paint Abatement
-Slate/Private
Rental Assistance -help people out of homeless. -Sections 811 and 202
ness -Section 8
-prevent homelessness -Public Housing
-LocaVPrIvate
Homebuyer Assistance -leverage conventional -CDBG
mortgage lending -HOME
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-loosen rental market
-educate potential and flrst.flme
homebuyers
Support SelVlces & Facilities -provide housing for persons .CDBG
with disabilities -HOME
-provide housing lor special -Stuart B. McKinney
needs homeless and non. -Supportive Housing
homeless -Sections 811 and 202
-help people find and stay In -State/LocaVPrIvate
housing
Transitional and Emergency -Get people off the street and -CDBG
Shelters lor Homeless Into emergency shelters -HOME
-Get people out of emergency -Supportive Housing
shelters Into transitional -ESGP'O
housing -FEMAll ,
-Provide shelter space for -State/CountylLocaVPrivate
victims of domestic violence
and runawaylhomeless youth
Prevention of Homelessness -Keep people sheltered -CDBG
-HOME
-FmHA
-Supportive Housing
-Stale/County/LocaVPrivate
Transition of Homeless to -Develop selt.sufflclency and
Pennanent Housing economic Independence for
homeless
10 Emergency Shelter Grants Program
11 Federel Emergency Management Agency
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III. HUD Table 2 . PrIorities lor AssIstance
See HUe Table 2, Prlorllles,lor Assistance. page 44A.
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/I.c. Relevant Public Policies
lI.c.l. Relevant Public Policies
Once the Clty'spriorilles and strategies lor Investment are determined, the City must look closely
at the coordination 01 policies, goals, administration, and Implementation. This section and the
next, 'Institutional Structure and Intergovernmental Cooperation' will look at these Issues.
Iowa City has Its own unique set 01 barriers to affordable housing, many 01 which can be
addressed, at least partIally, through local public policies. These policies are discussed under
the lollowlng categories: 1) Availability 01 Resources; 2) Development Standards; 3) Zoning; 4)
Building Codes; and 5) Community Attitudes. The City Intends to deal In some way, In the next
live years, with all 01 the pOlicy options discussed.
AVAILABILITY OF RESOURCES
This Is generally the most lundamental problem, with a lack ollinanclal resources and available
land at Issue. The Increase In homelessness and serious affordable housing Issues has caused
the creation and limited funding 01 state and federal housing programs. Iowa City will continue
to try to capture as many 01 these lunds as possible, but more private and City funds are needed.
In Iowa City the availability 01 developable residential land (particularly lor multi-family structures)
that Is relatively close to Jobs, schools and shopping Is nearly nonexistent. In addition, developers
who are constructing housing on the available land are targeting the mlddle- to upper-Income
owner-occupied housing' market, and the student rental market. To lurther aggravate the
problem, the land that Is available Is owned by a relatively small number 01 landowners, many 01
whom are not Inclined to develop their land. This tends to drive up the cost 01 land offered lor
development.
Polley Optfons
1. Acquisition 01 Available Vacant Parcels
Unlike many communities, the City does not own any vacant land available lor housing
development. In 1992, the City Council adopted a pOlicy lor property acquisition through an
ongoing lot acquisition program; however, these lunds ($75,000) will not allow lor the purchase
01 more than live to seven Infilllots. The City has not yet been successful In acquiring any such
lots. The Council also approved $30,000 of CDBG funds lor this activity In the City's 1994 Ilscal
year (the 1993 CDBG program year). Even combining these City funds, the resulting $105,000
will not buy enough land, and addltlonallinanclal resources are necessary to complement City
and CDBG allocations.
Possible sources of funding In addition to lederal resources are the general revenue lund, general
obligation bonds, revenue bonds, tax abatement, or tax Incrementlinanclng. Although the City
Council has recentiy approved the use of both tax Increment financing and tax abatement, the
use of bonds or general revenue funds seems less likely due to a State-Imposed property tax
Ireeze lor the next two years. '
44
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2. Annexalfon
This has been an option !hat has been considered very recently. Annexation Is relatively easy;
however, Illnvolves extension of Inlrastructure and services, and In many cases, envIronmental
lactors such as wetlands and steep slopes create additional development expenses. Annexation
lor affordable housing may be politically Infeasible due to the addltlonal costs 01 development,
such as Infrastructure, which must be subsidized by !he City or passed on to the consumer In !he
lorm of hIgher home prices.
3. Communfty Land Trust (CL 1)
CL Ts are beCOming popular throughout the country and may be organIzed by the City or other
actors such as a publIc or private nonprofit organIzation. The difficulty with CLTs are that !hey ,
requIre relatively large amounts of Initial capital funding to secure !he necessary properties and
maIntain aVailable resources lor staffing. CL Ts generally are 99-year leases; a long-term
. commitment Is necessary to ensure the proper sale and resale of properties. This may be an
option to explore further.
DEVELOPMENT STANDARQ2
Historically, development standards have been used to ensure the pUblIc safety and maintaIn !he
status quo or Integrity 01 a neIghborhood. Overly stringent development standards Increase the
land costs of residential developments. Because times, teChnOlogy, and needs change, updates
and revisions In development standards are appropriate.
POltcy Oplfons
1. AllOWIng Development on Non.Conformlng Lots
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conlormlng lots, especially where two or more of these lots are adJoinIng. An ordinance
amendment regarding this ISsue was approved by !he City Council In May 199Zf lor these
situations to be examined on a case-by-case basis. Additional regulatory barriers WI/J be
addressed as they are IdentifIed.
2. Changing Development Standards for Aflordable HOUsIng
Developmentstandards for new construction are often expensive, thus prohibiting the construction
of affordable housing. An alternative to !hIs may be Incentives lor greater use of Planned
Development Housing (PDH), which might allow for narrower streets, elImination 01 curb and
gutter, or sidewalks on one side of !he street only, and cluster housing. These modWcatlons In
development standards could be Incorporated Into a neIghborhood cost effectIvely while
maintaining hIgh levels 01 pUblic salety. The use of !he PDH (similar to the Planned Unit
Development) lor affordable housing Is currentiy being examined lor a partiCUlar location In Iowa
City.
ZONING
Municipal zoning laws and comprehensive land use planning are aimed at directing growth. To
assist In the development of affordable housing, the fOllowIng three zoning changes may be
considered.
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1. More High Density Zones
There Is very little developable land which Is zoned lor high density residential development. High
density zones allow land costs to be offset by a greater number of units, making them more
affordable. Attractive single and mulll-famlly development, Including manulactured housing, Is
possible at densities Irom eight to 20 units per acre. Another option Is to have developments with,
a mixture 01 housing types.
Community aflltudes In Iowa City will have to be overcome In pursuing this option; many citizens
react negatively not just to housing for low-Income people, but to higher density development In
general (and not only because the two are sometimes associated). Other Issues recently on the
City Council agenda, such as street wldenlngs, and school bond elections to construct a much-
needed elementary school (many are severely overcrowded) will make Increasing densllles In
some areas even more politically unpalatable.
2. Incluslonary Zoning
Incluslonary zoning Is a relatively new concept to the Midwest, where most communities have
housing within the reach 01 most residents. It requires developers to construct a number 01
affordable units proportional to the size 01 the development. The decision to pursue this polley
would require a study 01 when and where such a requirement might be appropriate. Considering
the large growth In residential development occurring at the high end of the scale, It would most
likely still be possible lor market-rate developers to continue to build and to make a reasonable
profit, even with an Incluslonary zoning polley.
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With Incentive zoning, a developer would be granted density bonuses lor providing public
amenities such as affordable housing, walkways, or chlldcare. Iowa City Is experimenting with
this type of zoning with Its PRM and CB-5 zones'2. This Is ~nly a limited use 01 Incentive
zoning, however; a more extensive experiment of this In the housing area may be Justified. This
option would be one way to Increase the density 01 certain development without Increasing the
overall allowable density In an area.
BUILDING CODES
Building code regulations directly Influence all commercial and residential construction. The main
purpose lor bUilding code regulations Is to proteclthe public health, salety, and welfare. Changes
In these codes must be met with Intense scrutiny because public salety Is the basic responsibility
01 a govemlng body. The City's standards are and will continue to be updated every three years
to take advantage of the latest teChnOlogy In bUilding materials and construction techniques. The
City will need to balance housing affordablllty and the health and salety of all Its citizens. The
12 The Planned High Density Multl.Famlly Resldenllal Zone (PRM), In Ihe Near South Side, allows a
density of 50 dwelling units per acre, but contains a provision allowing higher densities for one-bedroom
units (approximately 62 units per acre) and efficiencies (approximately 87 units per acre). In the CB-5
zone, also In Ihe Near South Side, resldenllal units Ihat are part of a City-approved affordable housing
program are exempt from Ihe minimum par1dng requirements, provided that those unlls do not oxceed 30
percent 01 the building's lolal units.
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regarding the use of less expensive building materials. The loll owing Issues can be addressed:
. codes and building regulations
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. possibly antiquated requirements
. environmental and state regulations
. rehabilitation guidelines
Policy Options
1. Modify Codes Related to Building and Development
Overly restrictive building codes can hinder efforts to provide affordable housing. Such Is the
case In Iowa City when a house Is moved. existing codes require moved houses to meet new
construction codes, which In some Instances Is not leaslble, and In other cases results In such
extensive rehabilitation that the house becomes unaffordable. Health and salety concerns must
be carefully weighed against the dire need lor affordable housing. Additional flexibility In Iowa
City's building code regulations may be needed to allow lor a balance between salety and
affordablllty. Also, the City will work with the Board of Appeals to Increase awareness In the
building community 01 the need lor affordable housing and the IIexlb11lty In the current building
code that may not be common knowledge.
COMMUNITY ATTITUDES
A more subtle barrier to affordable housing Is the attitude 01 the community. Rules and
regulations concerning housing and discrimination can be passed by governing bodies, but a
persistent, unlavorable stigma Is attached to public and low.cost housing projects and the people
who live In them. II higher densities are used to laster affordable housing development, the
greatest concern 01 existing residents will be that property values will be lowered. Concern about
property values Is also raised with the development of certain housing types: housing lor persons
with severe mental 11Iness, single-room occupancy units, and low-Income rental complexes.
In addition, community attitudes affect the decisions of the City Council and Influence the strength
01 commitment to resolving affordable housing problems. II community attitudes are going to
change, the City Council must encourage broad measures lor educating the community, and be
prepared to experiment with unpopular solutions.
Policy Options
1. Continued Commitment Irom City for Affordable Housing Opportunities
Reaffirming Iowa City's commitment to Increasing affordable housing opportunities may be the
simplest method 01 addressing negative attitudes. Some residents may be willing to have more
01 an open mind about housing lor low-Income people lithe City Council demonstrates that
affordable housing Is a top priority. The commllment of the private sector Is also Important. The
City will continue 10 work with local financial Institutions and private nonprofit and lor-profit
developers In creating affordable housing opportunities. These Joint ventures have Increased In
the last year or two, and w11l continue to be the most Important way In which the low-cost housing
stock Is expanded.
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The Iowa City Human Rights Commission and the Tenant/Landlord Association both report that
a number 01 housing discrimination complaints deal with lamlly size. For a large, lower.rent
apartment, landlords would often times prefer to rent to a group 01 students than a large family
on rental assistance. There Is also the perception that Section 8 assistance comes with a great
deal 01 paperwork or added Inspections. The Human Rights Commission followed through on five
official complaints last year, but they received numerous calls on this and other lair housing
Issues.
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One Issue that the Human Rights Coordinator hears complaints about Is racism encountered
when trying to rent an apartment In Iowa City. According to the Human Rights Commission, there
have been only one or two complaints In the last lour years about discrimination based on
disabilities. It Is not the case that some areas 01 the City are Ignored by local lending Institutions.
It Is not known whether members 01 the real estate community 'steer' renters or purchasers to
certain areas. Since Iowa City has neither areas 01 blight nor high concentrations 01 minority
groups, Ills likely that little steering would occur. this Is extremely difficult 10 document In any
case.
As mentioned belore, the tight market In Iowa City, especially lor lower.cost rental units,
encourages discrimination by makJng it possible lor landlords to be highly selective. The high
demand lor lew units means landlords wllllollow the path 01 least resistance - that Is, choose
tenants that will not require additional paperwork, will pay rent on time, will not upset the other
neighbors, etc. Populations that require some flexibility or understanding will lose out. The
number one way to address this problem Is through the expansion 01 the affordable housing
stock.
The City has attempted to deal with these fair housing Issues, some that are unique to Iowa City
(relative to the rest 01 the state), by legislating against certain types 01 discrimination that are
perceived to be widespread (such as discrimination based on source 01 Income, I.e., Section 8
rental or AFDC assistance). The City, through the Human Rights Coordinator, will continue to
monitor and Investigate all housing discrimination complaints, review housing advertisements,
distribute Inlormatlon to local realtors, landlords, tenants, and housing developers, and provide
Input Into City actions that may have an Impact on specific populations. Housing discrimination
problems are best attacked through education, Changes In local polley, and lollow.through on
complaints. The City will continue to do all three, as it has In the past.
48
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lI.d. Institutional Structure and Intergovernmental Cooperation
The Institutions described below are only those Involved In a direct way with the provision of
housing In Iowa City, either through programs, projects, or financing. There are dozens of entities
that are Involved In providing services that Indirectly (but no less Importantly) keep people Irom
losing housing or allow them the opportunity to look lor housing In the Ilrst place. Many of these
services are catalogued In Part l.a.2.1II.
The largest provider of affordable housing In Iowa City Is the Iowa City Housing Authority.
Through public housing units and Section 8 assistance, over 800 persons are currently assisted
with rental housing (see Part l.a,2.1I). The City's Department 01 Planning and Community
Development Is a major actor, too, with Its Housing Rehabilitation Program, planning and research
activities, technical assistance lor housing providers, some housing development, and the
administration 01 Community Development Block Grant lunds, many 01 which go to housing-
related projects.
The Greater Iowa City Housing Fellowship (GICHF) Is currently the only nonprofit organization
devoted solely to housing low-Income persons, and It has so lar concentrated on very low-Income
renters. This relatively young organization has greatly Increased Its capacity In the last year,
hiring a full-time housing specialist and receiving $650,000 In HOME Program funds In FFY93.
Now the GICHF Is proposing to work on a Joint venture with Robert Burns and Associates, a
private developer that has recently completed a 48-unlt complex 01 affordable rental units. The
City will be Involved In this new project, as It has with these two developers' previous projects.
this new three-way partnership, however, Is a very exciting new opportunity lor affordable
housing In Iowa City.
The local lending Institutions have played an Increasingly Important role 01 late In the development
01 affordable housing. A consortium of lenders assisted the GICHF In a project last year and
again this year agreed to assist with Its current project (which will use $326,000 In HOME lunds
and $75,000 In CDBG funds). A group 01 lenders, along with the City and the Board 01 Realtors,
presented a Iree Homebuyer Education Seminar In July 1993, which will be continued due to Its
Initial Interest and success.
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The Importance 01 the emergency shelters In Iowa City goes without saying. These lacllltles
provide a much-needed service and do so with resources that are always shrinking. (This year
Iowa City shelters received a total 01 $18,770 Irom the Emergency Shelter Grants Program, as
opposed to last year's total of $46,770 .. a 60 percent reduction I)
Supportive housing providers playa vital role serving special needs populations In Iowa City.
These agencies deal with not only dwindling resources, like the emergency shelters, but
philosophical changes In the way they are mandated to serve their populations (such as the
State's shift away Irom group homes lor persons with developmental disabilities).
Finally, the community's housing rehabilitation programs are extremely Importanlln maintaining
the City's affordable housing stock as well as upgrading It, as Is the case with accessibility
Improvements. The City's Housing Rehabilitation Program has a total budget of about $700,000
($250,000 was recently awarded Irom the HOME Program, and some $350,000 comes Irom
CDBG funds this year). Elderly Services Agency runs the Small Repair Program, which assists
persons with physical handicaps and/or elderly with small repairs to their homes. These repairs
are small enough that they are too expensive to administer through the City's Housing Rehab
Program.
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PUBLIC INSTITUTIONS
U.S. Department of Housing and Urban Development (HUD)/Iowa Department of !:conomlc
Development. Through the Iowa Department of Economic Development, the City, nonprofit and
lor-profit developers will be administering close to $1.3 million In HOME Investment Partnership
lunds from HUD. Approxlmat~ly half Is lor rehab projects and the other halt lor new construe.
tlon/converslon.
Iowa Finance Authority. In addition to administering a Rental Rehab Program, which the City will
finish running In FFY93, IFA administers the Housing Assistance Fund lor acqulsltlon, rehab, new
construction and home ownership programs (see Part I.e.). H.8
Iowa City Public Housing Authority. The Public Housing orlty owns and manages 82 units of
public housing, dispersed throughout the City plus certificates and vouchers. More than 500
households are on the waiting list lor rental assistance (see Part l.a.2.1I.). The Housing Authority >--
has more contact with Individuals and families wllh housing problems than any other agency In
the community. It also has almost' dally contact with local landlords, through the Section 8
program, and with human service agencies. '
Department of Planning and Community Development. Five full-time members 01 the Community
Development Division will continue Its affordable housing activities: 1) research and planning; 2)
administer CDBG funds; 3) prepare the CHAS, CHAS Annual Performance Report, Grantee
Performance Report and CDBG Program Statement (the latter two lor the Community
Development Block Grant program); 4) technical assistance lor and cooperation with housing
nonprofit and lor-profit developers; 5) rehabilitation program; and 6) other affordable housing
projects.
NONPROFIT ORGANIZATIONS
Domestic Violence Intervention Program (DVIP). DVIP serves women and men victims 01
domestic abuse and their children. Using In part $120,000 In CDBG lunds, DVIP will construct
a new laclllty In FFY94 that will house approximately 45 people, many more than Its currently
overcrowded shelter. This Is the only emergency shelter of Its type In Iowa City. ,
Ecumenical Consultation of Churches. The Consultation consists 0119 member congregations
and Is the umbrella organization lor the Ecumenical Towers Housing Project, the Emergency
Housing Project (see below), and the Common Fund (see Part lI.d.II).
!:Iderly Services Agency. Elderly Services Agency runs several programs dealing with housing
people who are elderiy. The Shared Housing program provides elderly persons with housing
alternatives, support services and a safe environment, by sharing their home with another person.
Each person has private space and shares common areas such as the kitchen and living room.
Elderly Services Agency also runs the Small Repair Program, which does small repairs to homes
so that low. Income elderiy or handicapped persons can stay safely In their own homes.
Emergency Housing Project (!:HP). EHP Is an emergency shelter serving homeless local people
or people passing through town. EHP provides shelter, showers, telephone, and referrals to
appropriate agencies.
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Greater Iowa City Housing Fellowship (GICHF). The goal of the GICHF Is to develop and provide
decent, affordable housing lor low-Income residents 01 the Iowa City area, especially to holders
01 Section 8 vouchers and certificates. The GICHF also has a new program providing loans for
rental deposits. The program has been averaging five loaos at $300 each month.
Iowa Valley Habitat for Humanity. A brand new affiliate of this International housing ministry has
begun In Iowa City this year, and has purchased a lot on the east side 01 Iowa City. A low-
Income lamlly will be selected to work with Habitat In the construction of a new home lor the
lamlly. Habitat lor Humanity receives gilts, volunteer time, and no-Interest loans to build or
renovate sImple, decent homes lor people who are Inadequately sheltered. Construction Is a
cooperative venture between volunteers and homebuyers. Houses are sold at no profit and with
a no-Interest mortgage repaid over a 15- to 25-year period. The house payments are then
recycled to build more houses.
Hawkeye Area Community Action Program. HACAP provides a variety 01 programs to help those
In need In the Iowa City area, several 01 which are housing-related: Energy Assistance;
Weatherization; Homeless Outreach and Support; Utility, Shelter and Financial Related
Counseling; Mortgage Resolution Assistance, and Transitional Housing. HACAP's Transitional
Housing Program provides housing and supportive services lor lamllles lor up to eighteen months
to enable them to become sell-sufficient through counseling, relerrals, job training, and household
management skills. '
Hillcrest Family Services. Hillcrest Residence (a program 01 Hillcrest Family Services) has as Its
mission to help clients become successlulln the living, learning, and working environment ot their
choice, with maximum leaslble Independence Irom helping prolesslonals. Hillcrest serves adults
with histories 01 psychiatric or emotional problems that prevent them Irom living Independently.
Independent Living, Inc. This private, nonprofit agency teaches dally living skills to adults with
developmental disabilities to greatly enhance their ability to participate Independently In the
community. Skills are taught through sell-advocacy, support groups, counseling, and educational
and vocational programs.
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LIFE Skills, Inc. LIFE Skills provides services In many areas to many different groups, but one
01 Its newest programs assists people by teaching the skills needed lor both looking lor and
staying In housing.
Systems Unlimited, Inc. Systems Unlimited provides permanent, long-term hOUSing lor people with
developmental disabilities In group home and apartment settings. Respite care Is available on
an emergency basis, II space Is available. In-home care Is also available.
Youth Homes, Inc. Youth Homes provides emergency and short-term care, counseling, and
supervision to troubled or homeless unaccompanied adolescents. Its services Include crisis
Intervention counseling; emergency residential services; and group and Individual counseling to
youth Including pregnant teens or teenage mothers who are homeless.
PRIVATE INDUSTRY
Local developers. Most 01 the new affordable housing In Iowa City (not Including the Public
Housing Authority) has come Irom 10CRI lor-profit developers. In particular, Bums and Associates
constructed 48 two- and three-bedroom units at the Villa Garden apartment complex, which Was
completed In June 1993. That project leveraged lunds from many sources, Including CDBG and
52
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tax Increment financing from the City of Iowa City. The developer has several new projects In the
works, Including one with a housing nonprofit.
Locallendlng Institutions. With the City's Involvement, several 01 the local lending Institutions have
lormed consortia to help fund several recent projects by the Greater Iowa City Housing
Fellowship, for affordable rental housing rehabilitation and new construction. They have Indicated
Interest In continuing assistance lor rental and owner-occupied housing projects. Several lenders
were also Involved In starting up a homebuyers educational seminar, begun In July 1993.
lI.d.lI. Overcoming Gaps
ASSESSMENT AND ACTIONS
Public Sector. The public sector Includes many very different organizations, but, In general, the
strength 01 public Institutions Is that they are made up 01 Individuals with technical expertise.
They develop and administer successlul housing programs, have knowledge 01 what the housing
needs and programs are, and have experience working In a political setting. Governments, In
addition, have regulatory power, taxing capabilities, and often have capital assets, such as land.
However, as already mentioned, the biggest gap In adequately sheUering the residents 01 Iowa
City Is simply the lack 01 affordable housing. The number 01 households with Incomes 95 percent
01 the median or below who are paying more than 30 percent lor housing Is 7,158 or 54 percent.
Creative solutions to the lack 01 land available lor affordable housing development Is needed,
most likely In the form 01 modification to zoning (see Relevant Public Policies. above). In addlUon,
the state has Imposed a property tax Ireeze lor the next two years, which will hurt the City's ability
to carry out certain actlvllles, InClUding housing activlUes.
Atlhe lederal and state levels, especially, resources In the lorm of funding and staff are being
cut. Perhaps the greatest weakness 01 public Institutions Is the Inability 01 localities to rely on
them In the development 01 a long-range strategy. The Inflexibility 01 state and federal regulations
and funding has been Identified by local nonprofit agencies In Iowa City as a deterrent to the
efficient provision 01 their services. The largest portion of lunds for housing stili come Irorn the
lederal government and will probably continue to do so. Although the uncertainty surrounding
some lederal programs has eased with the current administration, the push to address the
country's debt, plus a few natural disasters, could put federal housing programs In jeopardy.
The State provides less In funding, but could potentially be of great assistance to localities In the
coordination of housing delivery on a regional basis. Regionally, the City has discussed hOUSing
strategies on a regional level with several groups and will conllnue to do so. These groups
Include: the Institute lor Social and Economic Development; Ecumenical Consultation; East
Central Iowa Council 01 Governments; Johnson County Council of Governments; the Local
Homeless Coordinating Board; and the Iowa Valley Habitat for Humanity.
At the local level, the Departments 01 Planning and Community Development (PCD) and Housing
and Inspection Services (HIS) are responsible for preparing and monitoring the CHAS. PCD Is '
also the coordinating body to which local financial Institutions came In 1992 and 1993 In order to
poollunds to assist a private nonprofit agency to rehab and construct affordable rental units. HIS
administers the PUbtlc Housing Authority; It Is active In Public Housing acqulslllon, the Family
Self-Sufficiency Program, and a Drug Elimination Grant.
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Private For.Proflt. Private lor-profit Institutions .. lenders, developers, contractors, and local
corporations -- have tremendous resources that could be put toward aflordable housing, but they
have certain weaknesses as well. The government's need to provide affordable housing comes
Irom the private sector's Inability or unwillingness to do so. The provision of affordable housing
Is not the primary mission 01 these Institutions, so they will not undertake that activity unless It
results In a sufficient profit. They also tend to have limited knowledge about the housing needs
01 low-Income lamllles and the special needs of persons with physical and mental problems. A
lack 01 suitable land on which to build hinders the private sector as well as the public sector.
The private sector's strengths and resources are many_ and Include financial resources,
underwriting capabilities, community recognltlon, fund raising ability, skilled people, tax credits,
and technical skills In Ilnance and construction. The private sector Is an essential component In
any affordable housing strategy In Iowa City. All sectors 01 a community need to partiCipate In
the provIsion of affordable housing for Its citizens. The resources and expertise 01 lor-profit
Institutions should be tapped, perhaps In the lorrn of a public/private partnership.
Recently the City and the private sector have Increased efforts at cooperation. In 1992, several
lInanclallnslitutlons Joined to assist the Greater Iowa City Housing Fellowship (GICHF) to acquire
and rehab affordable rental units (see part I, 'Description', above). In 1993, these Institutions
came together again to help the GICHF acquire eight lots lor the construction 01 eight more rental
units to be available lor very low-Income families on Section 8 rental assistance. Several banks,
In conjunction with the City and the Board 01 Realtors, have also begun a series of homebuyers
education seminars. The GICHF and a lor-profit developer are also working on a project lor new
rental construction. Local lenders have shown their Interest In assisting with this project, and the
City will also be Involved In some way. One lender has provided a no-Interest loan to the GICHF
lor Its Rental Deposit Loan Program, to be used as a revolving loan pool.
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Private Nonprollt. Iowa City's nonprofit agencies have many advantages; they are run by
knowledgeable and committed Individuals. Many agencies have successfully run programs for
housing and supportive services lor long periods of time and often have reputations that reach
lar beyond the city limits. The nonprollls have experience In lund raising, and In dealing with
persons with special needs.. the elderly, persons with disabilities and mental illness, runaway
youth and single, teen parents, and people who have been abused. The GICHF Is one nonprofit
housing developer that has been steadily gaining a great deal of experience and making a strong
and successful reputation with local lenders. lis staffing capability has been Increased In 1993,
to help administer the $650,000 In HOME lunds that It has been awarded.
Nonprofit organizations are struggling and scrambling lor lunds more than ever belore. limited
resources mean that there are severe Shortages of time, stall, lundlng, and space. As this
happens, more people who need help go without It, making bad situations even worse. The City
will work with these agencies to assist In the coordination of lundlng source Information, review
01 certain regulations and other actions. For example, a Security Bill (SF 398) was recently
passed by the Iowa Legislature that allows landlords to collect two.month security deposits on
rental units In the state and allows Increased Interest on late payments, up to $40 per month.
Other. First, resources should be made available lor emergency needs, lunds for problems that
cannot be met any other way. One such resource that exists already Is the Common Fund, an
emergency lund administered by the Ecumenical Consultation that can be used lor needs that
can't be met through other sources ollunds. Also, the Greater Iowa City Housing Fellowship has
started a loan program for rental deposits. Approximately $2,000 Is available each month for a
maximum loan of $400. Thus lar, their repayment rate Is very high.
54
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Second, work needs to be done toward better communication with local landlords once Section
8 tenants are In place. There seems to be the perception that many landlords are reluctant to
accept Section 8 vouchers and certificates. The state-mandated Local Homeless Coordinating
Board Is currently looking at barriers to housing and Is greatly concerned with better coordination
and cooperation with landlords to encourage them to accept Section 8 vouchers and certificates.
However, there Is 100 percent use 01 Section 8 vouchers and certificates with additional landlords
participating In the program every year; the problem appears to relate more to the dlfflculUes of
hard-to-house tenants Jn fInding housing (J.e. It Is theIr vouchers and certll/cates that are not
being accepted). There Is a housing gap lor these households.
For low- to moderate-Income potential first-time homebuyers, there Is a gap In Inlormatlon
regarding 1) what assistance lor downpayments (as well as rehab) exists; 2) how to know what
Is affordable to them; and 3) how to purchase and maintain a home. All three 01 these issues are
addressed In a new homebuyers education seminar jointly offered by local lending Institutions,
the Board 01 Realtors, and the City. The first seminar In July 1993 was extremely successlul, and
more are planned.
II.e. Public Housing Improvements
lI.e.l. Management and Operation
The Iowa City Housing Authority Is lacing a changing public housing program. HUD Is no longer
developing large complexes and Is stimulating PHAs to sell public housing units. Under the
tenant initiatives of HUD, homeownershlp will change the mlxhJre of housing units within the
program. Through the Section 5 (h) and HOPE programs the Iowa City Housing Authority Is
working toward translerrfng some of the existing property. These changes will create a
management task focused on single lamlly and semi-detached housing units. Over the next five
years, the strengths of the tenants and management will be used to Improve the program.
lI.e.lI. Uvlng Environment
The living environment 01 the public housing and Section 8 tenants Is higher than one would
expect In the Ilnanclal climate of Johnson County. Although the County has one 01 the highest
median Incomes In the State, the scattered site nature 01 the Iowa City Housing Authority units
provides the tenants and participants the same living environments 01 the larger population. With
little segregation of public housing units, there are no major activities planned lor this segment
01 the CHAS.
11.f. Public Housing Resident InltlaUves
The Iowa City Housing Authority (ICHA) Is commlltJng to a homeowners hip program that will entail
the transfer of units from public control to private ownership. The program Is driven by
replacement awards provided by HUD. The Initial offering under this program will be replaced
by newly constructed public housing units. There will not be a net decrease In the number of
public housing units available to very low-Income families. The mix of units will gradually change
to scattered site single or duplex units.
The ICHA's plan will recognize the choice of the tenant to participate In the management 01 the
complexes In which they live. For those tenants for whom homeownershlp Is an option, tenant
groups have been started at the two major complexes 01 the ICHA and plans are laid lor tenant
or condominium associations to be lormed at other apartment units operated by the Housing
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Authority. As the transfer 01 property begins, stalling efforts will be relocused on the complexes
and other multi-family units. The first-year objective Is to begin the program wllh 20 single-family
and duplex units; the second year will begin the transler 01 the multl-Iamlly units to the control and
operation 01 the tenants. The third and subsequent years will continue the transler 01 the old and
the replacement units In the program.
For tenants not wishing homeownershlp options, programming will be directed toward creating
tenant support groups and lamlly self-sufficiency programming to support them In their tenancy.
Il.g. Lead.Based Paint Hazard Reduction
The,reductlon of lead poisoning In children and abatement 01 lead based hazards Is a task with
so many lacets that a community-wide effort must be Instituted. The strategy 01 the City Is to
organize a public/private partnership to seek solutions lor this problem. The education 01 City
residents as to the actual problem will need to parallel efforts to organize the community response
so that a responsible plan may be obtained.
Current abatement 01 lead-based paint hazards on a systematic level has only been achieved
through the Iowa City Housing Authority. The public housing stock 01 the City 01 Iowa City Is
certified l1-s being Iree of lead-based paint hazards. In recognition, local owners and contractors
have on their own Initiative abated some other properties. The demolition of older houses stili
remains as the operative method 01 lead-based paint abatement In Iowa City. Housing and
Inspections Services In the Rental Permit Program Identifies and cites rental units with chipping,
peeling, cracking paint and requires abatement of the problem. Prior to Issuance 01 a rental
permit, Housing and Inspection Services also requires the owner to certify that tho property
complies with 24 CFR, Part 35 as It applies to lead.based paint. There are no requirements lor
mandatory testing and abatement 01 older housing stock.
The lollowlng Is a five-year plan lor the reduction of lead-based paint hazards In Iowa City.
YEAR 1. Organize a committee 01 public and private Interests to address the community's
response to lead-based poisoning hazards. This committee could consist 01 representa-
tives Irom the Iowa City Department 01 Planning and Community Development, Housing
and Inspection Services, the Iowa City Community School District, the Apartment Owners
Association, the Johnson County Department of Health, the Housing Commission, and
one or more citizen representatives.
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This committee wllllorm the loundation 01 a larger community effort locused on the results
01 the first year. The goals that are Identifiable are organizational In nature. During the
first year attention should be given to lacllltatlng the Identification and organization 01
testing services lor both people and property. Concurrently material for public dissemina-
tion can be studied and approved. Use of schools, cable, television, radio, and written
material will expose the general public as to the risks and the prevention 01 lead hazards.
Collection 01 data as to the size 01 the problem would lead to an understanding 01 the
resources that will eventually need to be committed to this problem,
YEAR 2. The second year would be characterized as the response of the community to
the problem. Subgroups would need to work on local responses In such areas as lead-
based paint reduction In privately owned homes, In rental property, In manufacturing,
waste disposal and other Identified areas of lead-based poisoning hazards. A community-
wide effort would be required to assert universal testing of all children. Coupled with this
56
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activity would be an Inventory 01 possible lead-based hazard properties that are not
abated, so that the community can assure the prevenllon of luture or prolonged poisoning
of children.
Voluntary compliance with abatement requirements will be assls\ed by the committee
Identifying or developing lundlng sources. Random testing 01 property and community
common spaces such as parks, City properties, and private areas will need to be Identified
to understand the scope of lead poisoning hazards. These activities would complete the
Inventory 01 problems the community laces.
YEAR 3. Statutory responses of local Jurisdlcllons would characterize the third year of the
lead-based hazard abatement plan. Responses of the different overlapping Jurisdictions
can be addressed as the Rehabilitation Program, Public Health Department, and Housing
Authority come under more stringent state and federal requirements and guidelines. The
City Council may wish to entertain local ordinances lor the Identification, testing, and
abatement In housing and structures within Iowa City. City departments and services may
move toward mandated lead hazard abatement In their acllvltles.
YEARS 4 AND 5. Begin to Implement standards and ordinances lor all lead hazard
problems Idenllfled by community organizations. Idenllfy targets lor the continuing effort
In ameliorating the problems.
lI.h. MonitorIng Standards and Procedures
Federallunds from the U.S. Department of Housing and Urban Development (HUD) come through
CDBG, the HOME Investment Partnership Program, and the Emergency Shelter Grant Program.
These three programs are monitored on a regular basis by the Community Development Division
01 the City's Department 01 Planning and Community Development according to the procedural
guidelines oulllned by HUD. The Assisted Housing Program, Elimination 01 Drugs In Public
Housing Program, and Youth Sports Program are administered and monitored by the Department
of Housing and Inspection Services.
Monitoring of the Clly's subreclplents 01 the first three grant programs by the Community Develop-
ment DivisIon also occurs regularly. Subreclplents are required to submit monthly reports on the
number of people and households assisted, and Irequent site visits are done by members of the
Community Development Division. The Division's accounts are audited by the City's auditor on
an annual basis, and HUD field representatives make regular visits as well.
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III. ANNUAL PLAN
lII.a. Strategy Implementation
lII.a.l. Investment Plan (Activities and Programs)
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ACQUISITION
1. The City 01 Iowa City will continue to acquire vacant Infllllots
as they become available and are affordable. Both rental or
owner-occupied housing lor very low- to low-Income house-
holds may be built by either the City or another developer.
Older houses may also be moved to Inlllllots. Up to live lots
may be purchased.
NEW CONSTRUCTION
2. Eight duplex rental units will be constructed by the Greater
Iowa City Housing Fellowship In the Whispering Meadows
Subdivision. The units will be rented to small lamllles on
Section 8 assistance with Incomes below 50 percent 01 the
median.
3. A nonprofit and a for-profit developer are considering a Joint
project to construct housing lor approximately ten low-Income
renter households (with Incomes below 50 percent 01 the
median) on the north side 01 the city. Small and large larnllles
would be served.
4. CDBG and other lunds will be used to construct a new 50-bed
shelter lor the Domestic Violence Intervention Program. DVIP
serves homeless women and children who are victims of
domestic abuse.
5. The Iowa City Public Housing Authority will apply lor funds to
construct and/or acquire 40 units 01 scattered site public
housing. Twenty will be new units and 20 would replace up to
,20 current units that would be sold to current tenants 01 public
housing. Tenants would be small and large families below 50
percent 01 the median Income.
REHABILITATION
6. The City's Housing Rehabilitation Program lunded with CDBG
monies will lund approximately 25 rehabilitation projects lor
very low- to low-Income owner-occupied small and large
lamllles.
7. HOME monies fund a rehab program, administered by the
City's Housing Rehab Division, lor very low- to low-Income
, owner-occupied small and large lamllles with Insufficient equity
In their homes to secure private loans. Ten families will be
assisted, primarily In the older sections 01 the clty.
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lunds from the Iowa Department 01 Economic Development
and the Iowa Finance Authority. Up to'slx very low- to low-
Income small renter households will be assisted In HUD-
determined Rental Rehab1l1tatlon Target Neighborhoods, and
another twelve low-Income renter households citywide, respec-
tively.
9. Due to flooding In the summer 011993, the City 01 Iowa City
has received $175,000 (and the number will probably double)
In CDBG lunds under the Disaster Rellel Act. The City will
also apply lor HOME lunds to be used lor repairing and
elevating owner-occupied housing, and lor housing replace-
ment.
10. CDBG monies lund the Elderiy Services Agency's Small
Repair Program to help keep low-Income elderly and handl- , , r
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Income homeowners will be assisted citywide. , .
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building In the Central Business District to an 18-unlt complex "
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home lor ten non-homeless persons with special needs. This I: i'
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persons. i 'Iii
13. CDBG lunds will help MECCA, an agency dealing with sub-
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are primarily very low- to low-Income. :' I
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14. CDBG monies will fund a fire exit to meet City code at the If
Emergency Housing Project, a local homeless shelter that 'I
sleeps 30 persons who are homeless. -( .~
15. The Greater Iowa City Housing Fellowship will use CDBG and
HOME funds to acquire and rehab lour scattered-site rental
units lor small and large lam1l1es with very low-Incomes.
RENTAL ASSISTANCE
16. The Iowa City Housing Authority will provide rental assistance,
through approximately 750 Section B certificates and vouchers,
to very low-Income households that are either elderly, small or
large related, or non-homeless with special needs.
17. The Iowa City Housing Authority will apply lor 40 new units 01
scattered site public housing units. Twenty 01 those units, II
awarded, would require the sale 01 existing units to public
housing tenants.
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18. The Greater Iowa City Housing Fellowship will provide loans
lor rental deposits to very low.lncome Individual and lamlly
renter households. Up to 60 households will be assisted.
HQMEBUVERS ASSISTANCE
19. The City 01 Iowa City In conjunction with local lending Institu-
tions and the Board 01 Realtors will continue to hold homebuy-
ers seminars open to anyone, though low-Income persons will
be targeted. The program began In FFV92.
20. CDBG funds In the amount of $15,000 will be available
through the Downpayment Assistance Program to low- to
moderate-Income first-time homebuyers. The lunds will be In
the lorm 01 a matching loan, repayable upon resale, 01 up to
$3,000 per household.
SUPPORT FACILITIESISERVICES
21. Domestic Violence Intervention Program will apply for Support-
Ive Housing Program lunds for supportive services Including
rental assistance and deposit assistance.
22. Emergency Housing Project will apply lor Supportive Housing
Program lunds lor a case manager and counselor lor Its
clients.
23. Youth Homes, Inc. will apply lor Supportive Housing Program
funds lor acquisition, supportive services, and operations lor Its
program lor homeless teen mothers.
24. The Public Housing Authority will begin the Family Self-Suffi-
ciency Program, designed to help Assisted Housing tenants
become economically self-sufficient and no longer In need 01
housing assistance. The PHA will work with other local
nonprofit agencies that provide supportive services.
25. The Salvation Army will rehab space at Its laclllty to be used
as a soup kitchen for the evening meal. It will replace the
overcrowded meal site currently provided at the Emergency
Housing Project. The soup kitchen will serve primarily home-
less lamllles and Individuals.
26. CDBG lunds and City general funds will continue to be used to
assist local agencies with operating costs.
27. CDBG funds will be used by LIFE Skills, Inc.'s supportive
housing program. The program helps people find and stay In
housing.
28. Mayor's Youth Employment Program will use HUD funds
(Including CDBG) to begin a business training program lor low.
Income youth In Iowa City.
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29. The City 01 Iowa City will again apply lor the Emergency
Shelter Grant Program, through the State Department 01
Economic Development, lor lunds to assist the three local
emergency shelters with operating costs.
30. The Domestic Violence Intervention Program and the Emer.
gency Housing Project will apply lor a Homeless Operation
Grant Irom the Iowa Finance Authority lor operating costs lor
Its new 50-bed shelter.
RESEARCH AND PLANNING
31. Staff will review development ordinances lor barriers to the
provision of affordable housing and look at possible modlfl.
cations to zoning and development standards that might assist
In the development of affordable housing, Including manulac.
tured housing, In Iowa City. One example Is reducing off.
street parking requirements lor multi. family residential uses.
Staff will also look at ways to encourage or require affordable
housing In new subdivisions Including those In annexed areas.
32. Staff will conduct a needs assessment and leaslblllty study lor
single-room occupancy housing (SROs) In Iowa City. ' ,
33. ICARE, a private nonprofit organization worklng with persons
with HIV/AIDS and their larnllles, will conduct a needs assess-
ment lor housing and services lor persons with HIV/AIDS, and
will develop a strategy lor such housing and/or services If
needed.
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lII.a.lI. Geographic Distribution
All 01 the above objectives lor the Federal Fiscal Year 1994, unless otherwise noted, will occur
citywide. Iowa City has no blighted neighborhoods, and land lor new affordable housing
development Is scarce. The City must balance new construction where It Is possible with the
City's policy 01 dispersing low-cost housing.
lII,a.lIJ. ServIce Delivery and Management
In Section lII.a.I., each activity In the annual Investment plan describes who will deliver and
manage each Identified program.
lII.a.lv. HUD Table 3A . Investment Plan
See HUD Table 3A, page 62A.
IIJ.a.v. Table 38 . Goals lor Households and Persons to be Assisted with Housing
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IIJ.b. Other Actions
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IIJ.b.l. Public Policies
In the Five-Year Straleov.the effects of public policies Impacting on the availability of affordable
housing were assessed. The annual plan lor ameliorating these negative effects Is described In
this section.
Iowa City has a unique set 01 barriers to affordable housing, many 01 which can be addressed,
at least partially, through local public policies. In FFY94, the City Intends to deal with the specific
policy options discussed here.
, AVAILABILITY OF RESOURCES
,_1
, Policy Options
1. Acquisition of Available Vacant Parcels
Unlike many communities, the City does not own any vacanlland. In 1992, the City Council
adopted a polley lor property acquisition through an ongoing lot acquisition program; however,
these funds ($75,000) will not allow lor the purchase 01 more than five to seven Infllllots. The
Council also approved $30,000 01 CDBa lunds for this activity In the City's 1994 fiscal year (the
1993 CDBa program year). Although this $105,000 will not buy enough land, and additional
financial resources will be necessary In the future, acqulslllon of available vacant parcels will be
done In the next year, If appropriate lots become available.
2. Use 01 revenue bonds for affordable housing projects.
Possible sources of lundlng In addlllon to lederal resources are the general revenue fund, general
obligation bonds, revenue bonds, tax abatement, or tax Increment financing. Although the City
Council has recently approved the use 01 both tax Increment financing and a tax abatement, the
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use of bonds or general revenue funds seems less likely this year, due especially to a property
tax Ireeze lor the next two years, but they will be kept In mind as a possibility, this year and In
the luture.
DEVELOPMENT STANDARDS
Overly stringent development standards can Increase the land costs of residential developments.
Because times, technology, and needs change, updates and revisions In development standards
may be appropriafe.
Polley Options
1. Allowlrig Development on Non-Conformlng Lots
This option allows lor residential development 01 affordable housing on existing ,non.conlormlng
lots, especially where two or more of these lots are adJoining. An ordinance amendment
regarding this Issue was approved by the City CouncU In May 1993, lor these situations to be
examined on a case-by-case basis. Existing situations like this will be examined In FFY94.
2. Changing Development Standards lor Affordable Housing
Development standards lor new construction are often expensive, thus prOhibiting the construction
01 affordable housing. An alternative to this may be Incentives lor greater use 01 Planned
Development Housing (PDH), which might allow lor narrower streets, elimination 01 curb and
gutter, or sidewalks on one side of the street only, and cluster housing. These modlficallons In
development standards could be Incorporated Into, a neighborhood cost effectively while
maIntaining high levels 01 public salety. The use 01 the PDH (similar to the Planned Unit
Development) lor affordable housing Is currently being examIned lor a Particular location In Iowa
City. The Urban Planning Division will be reviewing options to encourage affordable housing as
part 01 Its FY94 work program.
ZONING
Municipal zoning laws and comprehensive land use planning are aimed at directing growth. To
assist In the development 01 affordable housing, the 101l0wlng three zoning changes may be
considered.
Policy Options
1. More High DensIty Zones
There Is very little developable land whIch Is zoned for high density resIdential development. High
density zones allow land costs to be offset by a greater number 01 units, making them more
affordable. Attractive single and multl-Iamlly development Is possible at densities Irom eight to
20 unlls per acre. City staff will look Into this option In the coming year, as well as the possIbility
01 additional land zoned lor manulactured housing parks.
2. Incluslonary Zoning
The decision to pursue this polley will requIre an In-depth study 01 when, where, and how
Incluslonary zoning might be appropriate In Iowa City. ConsiderIng the large growth In residential
63
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development occurring at the high end 01 the scale, It would most likely still be possible lor
market-rate developers to contInue to build and to make a reasonable profit, even with an
Incluslonary zoning polley.
COMMUNITY ATTITUDES
Community attitudes are a subtle barrier to affordable housing, and must be dealt with at all limes
every year -- they cannot be addressed In some years and not others. Rules and regulallons
concerning housing and dlscrlmlnallon can be passed by governIng bodies, but a persistent,
unfavorable stIgma Is allached to public and low-cost housing projects and the people who live
In them. In additIon, community attitudes affect the decisions of the City Counclt and Influence
the strength 01 commitment to resolving affordable housing problems. If community all/tudes are
going to change, the City Counclt must encourage broad measures lor educallng the community,
and be prepared to experiment with unpopular solutions.
Polley Options
1. Continued Commllment'lrom CIty for Affordable HousIng Opportunities
Reaffirming Iowa City's commitment to Increasing affordable housing opportunilles may be the
simplest method of addressing negative attitudes. The City will continue to work wilh local
financial Institutions and private nonprofit and lor-profit developers In creating affordable housing
opportunities. These joint ventures have Increased In the last year or two, and will continue to
be the most Important way In which the low-cost housing stock Is expanded.
2. DIspersion 01 Low.Cost Housing throughout City
Some 01 the policies discussed above will be helplulln changing the negative perception 01
affordable housing as this type 01 housing Is blended with other slngle-Iamlly and multl-Iamlly
units throughoutlhe city. As much as possible, new development of affordable housing will be
dispersed throughout different sections 01 the City.
3. FaIr HousIng Polley
The City will continue Its efforts 10 address discrimination that people confront In seeking housing
In Iowa City. In the State 01 Iowa, access to housing, and equal housing services, may not be
denied because 01 race, color, creed, sex, religion, national origin, physlcaVmental dlsablll-
ty/handlcap, or lamlllal status/presence 01 children. The City 01 Iowa City has added to this: age,
marital status, sexual orientation, and source 01 Income.
lII.b.lI. Instllullonal Structure
The InstIlutions described In the Five-Year Strateav are only those Involved In a direct way with
the provision 01 housing In Iowa City, either through programs, projects, or financing. There are
dozens 01 enlllles that are Involved In providing services that IndlrecUy (but no less Importanlly)
keep people Irom losing hOUSing or allow them the opportunity to look lor housing In the first
place. Many 01 these services are catalogued In Part l.a.2.1II.
The largest provider of affordable housing In Iowa City Is the Iowa City Housing Authority.
Through public housing units and Secllon 8 assistance, 820 persons are currenlly asslsled with
rental housing (see Part l.a.2.1I). The City's Department 01 Planning and Community Development
64
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Is a major actor, too, with Its Housing Rehabilitation Program, planning and research aclivllles,
technical assistance lor housing providers, some housing development, and the allocation of
Community Development Block Grant funds, many 01 which go to housing-related projects.
The Greater Iowa City Housing Fellowship (GICHF) Is currently the only nonprofit organization
devoted solely to housing low-Income persons, and It has so lar concentrated on very low-Income
renters, this relatively young organization has greatly Increased Its capacity In the last year,
hiring a lull-time housing specialist and receiving $650,000 In HOME Program funds In FFY93.
Now the GICHF Is proposing 10 work on a Jolnl venture with Bob Bums and Associates, a private
developer that has recently completed a 48-unlt complex of affordable rental units. The City will
be Involved In this new project, as It has with these two developers' previous projects. This new
three-way partnership, however, Is a very exclUng new opportunity lor affordable housing In Iowa
City.
The local lending Institutions have played an Increasingly Important role 01 late In the development
of affordable housing. A consortium 01 lenders assisted the GICHF In a project last year and
again this year agreed to assist with Its current project (which will use $326,000 In HOME lunds
and $75,000 In CDBG funds). A group of lenders, along with the City and the Board 01 Realtors,
presented a Iree Homebuyer Education Seminar In July 1993, which will be continued due to Its
Initial Interest and success.
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The Importance 01 the emergency shelters In Iowa City goes without saying. These lacllltles
provide a much-needed service and do so with resources that are always shrinking. (This year
Iowa City shelters received a total of $18,770 Irom the Emergency Shelter Grants Program, as
opposed to last year's total 01 $46,770 " a 60 percent reductionl)
Supportive housing providers playa vital role serving special needs populations In Iowa City.
These agencies deal with not only dwindling resources, like the emergency shelters, but
philosophical changes In the way they are mandated to serve their populations (such as the
State's shift away from group homes lor persons with developmental disabilities.
Finally, the community's housing rehabilitation programs are extremely Important In maintaining
the City's affordable housing stock as well as upgrading It, as Is the case with accessibility
Improvements. The City's Housing Rehabilitation Program has a total bUdget 01 about $700,000
($250,000 was recentiy awarded Irom the HOME Program, and some $350,000 comes Irom
CDSG funds this year). Elderly Services Agency runs the Small Repair Program, which assists
persons with physical handicaps and/or are elderly with small repairs to their homes. These
repairs are small enough that they are relatively too expensive to administer lor the City's Housing
Rehab Program.
For a description of public, private, and nonprofit agencies dealing with housing and support
services In the Iowa City area, see Part lI.d.l.
ONE.YEAR ACTIONS
Public Sector. As already mentioned, the biggest gap In adequately sheltering the residents of
Iowa City Is simply the lack 01 affordable housing. The number 01 households with incomes 95
percent of the median or below who are paying more than 30 percenllor housing Is 7,158 or 54
percent. Creallve solullons to the lack 01 land available lor affordable housing development Is
needed, most likely In the lorm of modification to zoning (see Public Policies. above). In addition,
the State has Imposed a property tax Ireeze lor the next two years, which will hurt the City's
65
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ability to carry out certain activities, Including housing activities. The City's need to address the
1993 flood In Iowa City will certainly hurt Its ability to Increase lundlng lor other activities, very
possibly lor new affordable housing.
The Inflexibility 01 state and federal regulations and lundlng has been Identifled by local nonproflt
agencies In Iowa City as a deterrent to the efficient provision 01 their services. The largest portion
ollunds lor housing stili come Irom the lederal government and will probably continue to do s~.
Although the uncertainty surrounding some lederal programs has eased with the current
administration, the push to address the country's debt, plus a lew natural disasters, could put
lederal housIng programs In Jeopardy.
This year the Community Development Division of the Department 01 Planning and Community
Development will specifically concentrate on addressing the Issue 01 the 'hard-to-house' segment
01 the population. These are lamllles and Individuals with multiple problems, Including very low-
Incomes most often, who do not receive Section 8 or public housing assistance - those who
would very likely be without housing even If a unit they could afford opened up magically lor them.
For single Individuals, the feasibility of building or converting an single-room occupancy building
will be examined. For lamllles, more programming such as that provided by LIFE Skills will be
considered, as well as additional transitional units or other housing with support services attached.
Private For.Proflt. All sectors 01 a community need to participate In the provision 01 affordable
housing lor Its citizens. The resources and expertise ollar-profit Institutions should be tapped,
possibly In the lorm 01 a public/private partnership.
Recently the City and the private sector have Increased efforts at cooperation. In 1992, several
lInanclallnstitutlons joined to assist the Greater Iowa City Housing Fellowship (GICHF) to acquire
and rehab affordable rental units (see part I, 'Description', above). In 1993, these Institutions
came together again to help the GICHF acquire eight lots lor the construction 01 eight more rental
units to be affordable lor very low-Income families on Section 8 rental assistance. Several banks,
In conjunction with the City and the Board of Realtors, have also begun a series 01 homebuyers
education seminars. The GICHF and a lor-profit developer are also working on a project lor new
rental construction. Local lenders have shown their Interest In assisting with this project, and the
City will also be Involved In some way.
Private Nonprofit. The GICHF Is one nonprofit housing developer that has been steadily gaining
a great deal 01 experience and making a strong and successful reputation with local lenders. Its
stalling capability has been Increased In 1993, to help deal with the $650,000 In HOME lunds that
It has been awarded.
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Nonproflt organizations are struggling and scrambling lor lunds more than ever before. LImited
resources mean that there are severe shortages of time, stall, lundlng, and space. As this
happens, more people who need help go without It, making bad situations even worse, The City
will work with these agencies to assist In the coordination 01 funding source Inlormatlon, review
01 certain regulations and other actions.
The City will continue to support and be a part of the Local Homeless Coordinating Board and
the Family Self-Sufficiency Coordinating Committee, both olwhlch address the gaps In the system
and aim to better coordinate housing and support services. It will also continue to support the
Johnson County Council 01 Govemment's Human Services Coordinator and the work done
assisting human service agencies In the area.
66
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Other. First, resources should be made avallable lor emergency needs, funds lor problems that
cannot be met any other way. One such resource that exists already Is the Common Fund, an
emergency lund that can be used lor needs that can't be met through other sources ollunds.
Also, the Greater Iowa City Housing Fellowship has started a loan program for rental deposits.
Approximately $2,000 Is available each month for a maximum loan 01 $400. Thus lar, their
repayment rate Is very high. Second, work needs to be done toward bottar communication
between the Housing Authority and other human service agencies, and local landlords: There
seems to be the perception that many landlords are reluctant to accept Section 8 vouchers and
certificates. The state-mandated Local Homeless Coordinating Board Is currently looking at
barriers to housing and Is greatly concerned with better coordination and cooperation with
landlords to encourage them to accept Section 8 vouchers and certificates. However, there Is
100 percent use 01 Section 8 vouchers and certificates with additional landlords participating In
the program every year. The problem appears to relate more to the difficulties hard.to-house
tenants have In Ilndlng housing. There Is a housing gap for these households.
For low- to moderate-Inco'me potential first-time homebuyers, there Is a gap In Information
regarding 1) what assistance lor down payments (as well as rehab) exists; 2) how to know what
Is affordable to them; and 3) how to purchase and malntaln a home. All three of these Issues are
addressed In a new homebuyers education seminar jointly offered by local lending Institutions,
the Board 01 Realtors, and the City. The first seminar In July 1993 was extremely successful, and
more are planned.
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lII.b.lII. Public Housing Improvements
The first public housing units built are now reaching twelve years 01 age. Maintenance costs are
Increasing and the Iowa City Housing Authority (ICHA) will be seeking Comprehensive
improvement Assistance Program (ClAP) lundlng. This grant from HUD will allow the ICHA to
replace and remodel those Items that are cost-prohibitive on an ordinary maintenance budget.
The adaptation 01 the older public housing units lor accessibility will occur under ClAP, as will
general Improvements and site Improvements. The ICHA adapts units as requested by
prospective and In-place tenants.
m.b.lv. Public Housing Resident Initiatives
The one-year plan lor the ICHA recognizes the choice of the tenant to participate In the
management of the complexes In which they live. To begin the program, slngle-Iamlly dwellings
will be used to assure the tenant that continued occupancy Is not based on homeownershlp. The
first year objective Is to begin the program with 20 units. Transler of units will precede when
readiness for homeownershlp Is achieved by the tenanl.13
For temints not wishing homeownershlp options, the annual plan Is directed toward lamlly sell-
sufficiency programming to support them In their tenancy.
13 The ICHA Is contemplating a homeownershlp program that will entalllhe transfer of units 110m public
contralto private ownership, The program Is driven by replacement awards provided by HUD. The Innlal
ollering under this program will be replaced by newly constructed public housing unHs. There will net be
a net decrease In the number of public housing unHs available to very low-Income families, The mix of
units will gradually change to scatlered sHe single or duplex unHs.
67
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lII.b.v. Lead.Based Paint Hazard Reduction
The reduction 01 lead poisoning In children and abatement 01 lead based hazards Is a task with
so many lacets that a community-wide effort must be Instituted. The strategy ollhe City Is to
organize a public/private partnership to seek solutions lor this problem. The education 01 City
residents as to the actual problem will need to parallel efforts to organize the community response
so that a responsible plan may be obtained.
Current abatement of lead.based paint hazards on a systematic level has only been achieved
through the Iowa City Housing Authority. The public housing stock of the City 01 Iowa City Is
certified as being Iree ollead.based paint hazards. In recognition, local owners and contractors
have on their own Initiative abated some other properties. The demolition of older houses stili
remains as the operative method 01 lead-based paint abatement In Iowa City. Housing and
Inspections Services In the Rental Pennlt Program Identifies and cites rental units with chipping,
peeling, cracking paint and requires abatement 01 the problem. Prior to Issuance of a rental
permit, Housing and Inspection Services also requires the owner to certify that the property
complies with 24 CFR, Part 35 as It applies to lead-based paint. There are no requirements lor
mandatory testing and abatement 01 older housing stock.
In the first year, a committee would be organized 01 public and private Interests to address the
community's response to lead-based poisoning hazards. This committee could consist of
representatives from the Iowa City Department 01 Planning and Community Development,
Housing and Inspection Services, the Iowa City Community School District, the Apartment Owners
Association, the Johnson County Department of Health, the Housing Commission, and one or
more citizen representatives.
This committee wllllorm the loundatlon of a larger community effort locused on the results 01 the
first year. The goals that are Identifiable are organizational In nature. During the first year
attention should be given to lacllltatlng the,ldenllflcatlon and organization of testing services lor
both people and property. Concurrently material lor public dissemination can be studied and
approved. Use of schools, cable, television, radio, and written material will expose the general
public as to the risks and the prevention 01 lead hazards. Collection of data as to the size 01 the
problem would lead to an understanding of. the resources that will eventually need to be
committed to this problem.
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lII.c. Antl.Poverty Stmtegy
Analvsls 01 Poverty In Iowa City
Poverty status was evaluated lor 51,701 people In Iowa Clty'4 Twenty-three percent, or 12,074
persons, were found to be living In poverty. Poverty thresholds In 1989 by size ollarnlly unit
, were;
Annual Income
One person
Two persons
Three persons
Four persons
Five persons
Six persons
Seven persons
Eight persons
Nine or more persons
$6,310
$8,076
$9,885
$12,674
$14,990
$16,921
$19,162
$21,328
$25,480
Households. Poverty data lor three types of households were analyzed: married-couple, lemale-
headed, and male.headed lamlly households. Of the married-co~ple households, seven percent
were living below the poverty level. Of lemale.headed households, however, 27 percent were
living In poverty, more than the citywide average. Among male.headed households (no spouse
. present), 21 percent were below the poverty level.
Children In Poverty. Table 11I-1 shows the distribution of poverty by age group. A full 20 percent
of children under the age 01 five live In poverty In Iowa City. This Is not unlike the national level
(19.7%), but might come as some surprise to people that believe poverty Is not a big problem In
Iowa City.
14 The tolal population of Iowa Clly Is 59,738. Poverty status was determined for all persons except
Instllutlonallzed persons, persons In military group quarters and In college dormitories, and unrelated
Individuals under IlIIeen years old, In Iowa Clly, the majority of Ihls 8,037 difference Is made up of college
studenls In dormllorles.
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Table ""'1. Poverty Dlstrlbullon by Age Group.
Age Group
Under 5
5 years
6 to 11
12to 17
18 to 24
25 to 34
35 to 44
45 to 54
55 to 59
60 to 64
65 to 74
75 years and older
Source: 1990 Census
Percentage Below Poverty Level
20.01 %
15.80
12.31
8.11
59.62
17.60
7.53
4.57
3.92
2.85
4.26
9.70
Table ""'2. Children In Poverty by Age and Household Type.
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Percent In Poverty
3,679
4,842
15.6%
5.8
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Students. The University of Iowa students have a significant Impact on the population 01 Iowa
City. There was a 1992.1993 enrollment 0127,463 students. Using the University's statistics on
student age and place 01 residence with the 1990 Census data, It Is estimated that approximately
6,900 students residing In Iowa City are living In poverty; these students account lor almost 57
percent 01 all persons living In poverty In Iowa City. Although most students are likely to be single
undergraduates, almost 800 01 them are 25 years old or older, and may be In need of housing
assIstance and/or supportive services, particularly If they also have lamllles.
Elderly. There were a total 013,923 persons aged 65 years and older living In Iowa City In 1989.
Of those, 252 or six percent were living below the poverty level. Broken down by household type,
only lour percent of elderiy persons In married-couple households were below the poverty level,
while twelve percent 01 eldoriy persons living alone were below the poverty level. However, while
about lour percent of elderly aged 60-74 were below the poverty level, far elderiy aged 75 and
older this level rises to almost ten ,percent. ' ,
Causes 01 Poverty. Related Problems; In 1993, Interviews were conducted with representatives
from seventeen local agencies specifically lor this portion of the CHAS. The agencies were
chosen based on the range 01 services they provide, the size 01 the agency, and lor a mix 01
private and governmental entities. The agencies that were Interviewed provide a number of
services lor people with special needs. These services Include:
. housing
. youth services
. medical services
. domestic violence assistance
. legal services
. crisis Intervention
. services lor persons with physical and mental disabilities
. elderly services
. services lor persons with chemical dependency
The agencies work with households living at or near the poverty level on a dally basis. The top
contributing causes cited as being most Influential In the development 01 poverty-related problems
were: unemployment or underemployment; lack of alfordable, decent housing; negative Images
01 people who are program recipients; the lack of available lundlng; and polley and widespread
community support lor poverty Issues (this Includes the lack of addltlonallederal and state lundlng
programming to address the problem of poverty). Other Important causes 01 poverty cited were
the lack 01 affordable chlldcare, health care, education, disability, age, domestic abuse, and
chemIcal dependence.
Exlstlno Proorams and Pollcle~
There are many programs that exist to assist people living In poverty. As for the City's programs
and policies, the City assists human service activities through its annual budget allocations from
the General Fund and CDBG to the Aid to Agencies Fund. These supportive lunds assist local
human service organizations with their operating costs. For the City's fiscal year 1994, this
amounted to $331,211. The City has also asslsled wilh aflordable rental projects through tax
Increment financing, tax abatement, and tax exemption.
Other lunds from the federal and state governments pass through the City to human service
agencies. Through the U.S. Department of Housing and Urban Development (HUD), the Iowa
71
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City Housing Authority assists a great many people each year, all below 50 percent 01 the median
Income, with subsidized rental housing, either with City-owned public housing units or with Section
8 vouchers and certificates. The scope of Housing Authority services will expand In FFY94 with
the start-up 01 the Family Self-Sufficiency Program (see Part l.a.2.1I.).
Community Development Block Grant funds, also Irom HUD, go to benefit low- to moderate-
Income persons every year. In 1993, approximately $1 million were allocated to projects such
as homeless shellers, a soup kitchen, housing support services, research and planning lor
housing lor persons with HIVlAIDS, new construction tor low-Income rental housing, and a
program lor youth business training. A complete description of 1993 CDBG projects Is In
Appendix 1, and gives a good Idea 01 the types of projects undertaken each year with block grant
funds. A considerable amount of these monies go to people near or below the poverty level.
Communltv Needs
The community needs/gaps that were mas! apparent Irom Interview responses are: affordable
housing, chlldcare, lamily preservation, educatlonfjob training, and community attitudes. These
are the major needs to be met In order to decrease the number 01 persons living below the
poverty line. Many agencies serve low-Income populations, but some do not set out to
specifically serve people below the poverty level. Of the seventeen agencies Interviewed, seven
target low-Income people, and the other ten target a particular clientele, such as persons who are
elderiy, disabled, or substance abusers. However, nine 01 the agencies reported that at least 90
percent 01 their clients were below the poverty level, and several others responded that they
assumed that the clientele they serve Is mostly below the poverty level. Many agencies do not
keep track 01 Income because It Is not a requirement lor service.
While agencies may be serving poor populations, some very poor persons and lamllles may be
unintentionally overiooked. For example, financially distressed persons or lamllles may lall
through the cracks because 01 Ineligibility lor assistance Irom the Johnson County Department
01 Human Services. Not only does this agency require Its clients to meet certain Income level
qualifications, but In order to receive certain kinds of assistance, they may, lor Instance, be
required to be unmarried, female, and a parent. In other words, a single male who Is unemployed
and Ineligible lor entitlement programs may not qualify to receive any assistance. There Is an
urgent need to Identify those persons that are slipping through the system and to develop and
provide equal and comprehensive services lor them.
Some agencies reported that they have waiting lists lor their services and some have to turn
people away due to lack 01 available lundlng and/or staff. They also listed some non-financial
constraints such as burdensome administrative tasks and a lack 01 willingness on the part 01
those In need to accept services (because they do not wish to be stigmatized).
Goals. Policies. and Proarams
Again, the greatest needs In addressing the problems 01 those living In poverty appear to be:
. affordable housing
. chlldcare
. family preservation
. educatlon/job training
. community aWtudes
72
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Affordable housing. HUD has mandated that the CHAS be coordinated with other programs and
services Intended to reduce the number of households with Incomes below the poverty threshold.
The majority of agencies Interviewed for the Anti-Poverty Plan cited the lack 01 affordable housing
In Iowa City as one of the most significant contributors to the problems faced by their clients.
This CHAS describes the City's affordable housing polley to help those with the most need first.
That Includes the homeless, persons with special needs, the very low-Income, and those In
danger 01 becoming homeless (Including existing low-Income homeowners).
Chlldcare. The lack of funding lor decent, affordable chlldcare Is a major problem that prevents
many low-Income people Irom making efforts at becoming self-sufficient. Chlldcare Is not
affordable lor many II they choose to continue their education, and It simply does not pay lor a
single parent, or even a married parent, to take a Job paying minimum wage when child care Is
an Issue. According to the Human Services Coordinator for Johnson County, chlldcare Is a real
gap and a very basic problem lor the very poor.
At the moment, there Is some progress being made In the Iowa City area. Handlcare Is an
Integrated daycare setting and a model natlonwlqe that cares lor children with disabilities as well
as those without. In some traditional settings, some Inroads are being made lor children who are
poor, disabled, or abused. It can be disastrous lor a single parent or lor married parents who
both work, and need to work, when a child becomes sick. Many daycare facilities will not accept
sick children, and many parents cannot take time off work to care for sick children without
Jeopardizing their jobs. The University has a small program lor Its employees, but much more
Is needed In this area.
Many people below the poverty level work or perhaps could work third shift at area manulacturing
companies, but chlldcare at this time 01 the night is very difficult If not Impossible to find. Usually,
a second parent stays with the children when a parent works this shift.
, The key to solving this problem Is financial resources. The country as a whole, however, Is not
quite prepared yet to lunnelthe needed resources to chlldcare. For so long, chlldcare was taken
care 01 by II stay-at-home parent, a grandparent, and the like, and the economy did not 'pay' lor
the services provided by these people. Now that many low-Income married-couple households
must send two parents to the workplace, and many other households are single-parent
households, the lunds must come from somewhere to pay for the job 01 taking care 01 children.
In this way, chlldcare Is a 'new' economic cost, and It Is being addressed at the lederallevel very
slowly.
Public Investment In chlldcare Is cost-effective when compared to the greater costs 01 job
absenteeism, unemployment, and welfare dependence. The City 01 Iowa City, State Department
of Human Services, and local agencies are not In a position to provide the needed lunds. There
are, however, Iowa Welfare RefoOJl proposals that recommend extending chlldcare and child
support programs after AFDC eligibility ends, This could be an Important first step In assisting
many poor children and their lam Illes.
Family preservation. The 1990 Census Indicates that a significant number of lam Illes, youth, and
children are living In poverty. The agency Interview responses also locused on the need lor more
services lor lamllles and children. There are currently many programs that provide many types
of assistance, and many 01 them could be Improved by locuslng more on preventive Intervention
and outreach. There Is again, however, the problem 01 limited and restrictive funding sources.
73
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Two programs In particular, the Johnson County Head Start Family Service Program and the
Neighborhood Centers of Johnson County, are aimed at the needs ollarnliles, youth, and
children. The Head Start Family Service Program provides comprehensive child development and
larnlly support services to high-risk lamllles with preschool-aged children. This program also uses
an Interagency case management system lor larnllles. The Neighborhood Centers provide a
range 01 supportive services lor families living In the Pheasant Ridge and Broadway Street
neighborhoods. They provide a variety of services such as parent 'education, financial
management, chlldcare cooperatives, teen groups, lamlly Intervention, and preschool groups. The
Centers also asslstlamllles In finding other resources. In addition, Youth Homes provides
transitional shelter lor homeless parenting youth, and UA Y has a program for teen mothers.
These programs are In great demand In the community and often have waiting lists lor certain
services. expanding neighborhood-based servlces,throughout the community and creating more
case management Interaction would assist In earlier, comprehensive Intervention. Eariy and
expedient comprehensive Intervention will contribute to Improving and maintaining nurturing lamlly
environments.
The Iowa Child Wellare Decategori?atlon Project Is a demonstration project with the purpose 01
developing lamlly-orlented and community-based services that are not restricted by traditional
definitions and funding IImllations. One main goal of this project Is to enhance the availability 01
lamlly-centered preventive services. Another Is to deliver services driven by client needs Instead
of categorical criteria. If successlul, this demonstration project could provide many significant
recommendations to enhance the provision ollamlly services In Iowa City and Johnson County.
Education/Job tralnlng/sell,sufflclency skills. Assistance provided to people In poverty tends
to be more oriented toward managing crises that arise rather than prevention of poverty or more
long-term Intervention that Invests In a person's luture. However, there are some Important
services available In Iowa City aimed at addressing the long-range goals of asslstance-Iree,
Independent living.
The development 01 self-sufficiency skills Involves promoting programs lor, among others, general
job training, general and vocational educational opportunities, health care and nutrition, self-
esteem enhancement, budgeting/money management, lood management, family and parental
counseling, skills development, child care, and, communication skills. Many 01 these are already
available In the Iowa City area. Many times the difficulty lies In getting the people who need them
to the appropriate program, agency, or course, or In providing adequate financial support lor the
services.
The City will continue to lacllllate and enhance the development 01 self-sufficiency programs such
as LIFE Skills, Inc.'s program and HACAP's Transitional Housing Program. Together these two
programs provide a range of services to families and Individuals Including personal child and
parent counseling, emp.loyment opportunities, financial education, housing, dally living assistance,
anti seml.lndependent living services to persons wllh physical disabilities, mental Illness or mental
retardation. In addition, the Public Housing AUlhorlly Is In the process 01 establishing a Family
Self.Sufflclency (FSS) Program lor households In public housing or on Section 8 assistance. (For
more Inlormation on the FSS Program, see Part l.a.2.1I..)
Community altitudes. The agencies Interviewed often said that the lack 01 adequate Information
regarding the extent and existence of poverty In Iowa City creates mlsperceptlons. Persons living
In poverty are often difficult to distinguish visibly, therelore many people In the community do not
realize the extent 01 poverty In Iowa City. Iowa City as a whole Is seen as a well-educated, well-
74
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off city, when In lactthere are two populations In Iowa City, one of which fits that description.
Iowa City also attracts many people looklng for work, who hear (sometimes Irom hundreds of
miles away) 01 the City's low unemployment rate. What they don't hear about Is the Intense
competition for a handlul of professional jobs, and the many jobs paying minimum wage, with
which workers cannot find affordable housing In town. Often the problem 01 poverty Is associated
with the University student population, however, Census data show that a considerable number
01 non-students also live In poverty.
There Is often a negative stigma attached to people who receive assistance from local agencies.
Some people avoid seeklng assistance that could significantly Improve their lives because 01
negative attitudes, which In turn hampers agencies' ability to serve clients In the eariy stages 01
a problem because people walt until their situations are more desperate. In order to begin to
eliminate this stlgma"cltlzens must be educated about poverty In their community. This can be
a very dlfflculllob. Currently, funding Is the primary way that the City Is choosing to deal with the
problem 01 poverty. City Council support of lundlng lor affordable housing and human service
agencies, however, shows residents that It Is Important to address poverty Issues, and that It
benefits the community as a whole.
lII.d. Coordination Efforts
Cooperation between the City 01 Iowa City and local public and private agencies and Institutions
Is In general quite good. In FFY93, this cooperation led to actions taken that work toward the
City's overall housing goals In Important ways.
Community Development Block Grant Awards lor Houslna. Approximately $696,000 In CDBG
lunds were awarded lor the 1993 program year lor housing and closely-related supportive
services projects. Two agencies, the Greater Iowa City Housing Fellowship (GICHF) and LIFE
Skllls are continuing to work together to provide low-Income rental housing In conjunction with
basic housing skllls lor low-Income Individuals and families. The GICHF also received a second
commitment from s~verallocalflnanclallnstltutlons to assist with the new construction 01 eight
two- and three-bedroom duplex rental units for very low-Income lamllles. The lenders' assistance
Is leveraged by $75,000 In CDBG funds and $326,829 In HOME lunds. '
Iowa City Press-Citizen Bulldlno. The City Is working with alocallor-profil developer 01 affordable
housing on a project to convert a historic structure downtown to an eighteen-unit (to hopefully
become 66 units In the future) rental complex for low-Income persons who are elderly or
handicapped. The City Council has approved a tax abatement lor this project, which has also
received $30,000 In CDBG funds and $400,000 In HOME funds. Low-Income Housing Tax
Credits lor this project are anticipated.
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Houslno Downpavment Assistance Proaram. Low- to moderate-Income homebuyers apply lor
CDBG lunds for this program through the City's lending Institutions. Coordination between the
City and these Institutions Is working well In this second year 01 the program.
Lender Participation In Affordable Houslna Activities. In FFY93, City staff met with several
representatives of local financial Institutions to discuss their Interest In participating In several
specific affordable housing activities. Interest was strong In general. One activity that came from
this was the Homebuyers Education Seminar, the first one of which was held In July 1993, with
excellent attendance. More seminars like this, presented by several lenders and the Board of
Realtors, are planned for FFY94.
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Reolonal Coooeratlon. Housing strategies at a regional level have been discussed on an ongoing
basis with several groups: InsUlute lor Social and Economic Development; Johnson County
Council 01 Governments; East Central Iowa Council 01 Govemments; Ecumenical Consultation;
and Habitat lor Humanity.
Famllv Sell-Sufflclencv (FSS) Prooram. The Iowa City Housing Authority (ICHA) Is In the process
01 developing HUD's FSS program to assist low.lncome laml/Jes In becoming sell-sufficient. The
Family Sell-Sufficiency Coordinating Committee, made up 01 representatives Irom the ICHA, City,
County, and employment, housing, and human services agencies, has been meeting monthly
since February 1993, to asslstlhe ICHA In developing guIdelines for this program.
Local Homeless Coordlnatlno Board. Johnson County's Local Homeless Coordinating Board
(LHCB) Is mandated and recognized by the State to Initiate, address, and coordinate polley with
the goal 01 eliminating homelessness In Johnson County. The Board Includes representatives
Irom a number 01 housing human service agencies as well as Irom the City and County. The
group Is now looking at barriers to affordable housing In the Iowa City area.
Johnson County Human Services Index. This Index Is In part paid lor by the City and Is a
comprehensive Index, put out every two yeals, of all types 01 services avallable In the Iowa
City/Johnson County area. this Index Is used by all area human services agencies, among
others, to make relerrals. '
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lite. Certifications
Fair Houslna
The Jurisdiction hereby certifies that It will affirmatively lurther lair housing.
Stephen J. Atkins, City Manager .
Relocation and Antldlsolacement
The jurisdiction hereby certifies that It has In effect and Is lollowlng a residential antl~lsplacement
and relocation assistance plan that, In the case of any such displacement In connection with any
activity assisted with funds provlded under the HOME Program, requires the same actions and
provides the same rights as required and provided under section 104(d) of the Housing and
Community Development Act 01 1974 In the event of displacement In connection with a
development project assisted under section 106 or 119 01 such Act.
Stephen J. Atkins, City Manager
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III.f. Summary 01 Citizen Comments
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lII.g. Glossary 01 Terms
Affordable Houslna: Affordable housing Is generally defined as housing where the occupant Is
paying no more than 30 percent 01 gross Income lor gross housing costs, Including utility costs.
AIDS and Related Diseases: The disease 01 acquired Immunodeficiency syndrome or any
conditions arising Irom the etiologic agent lor acquired Immunodeficiency syndrome.
Alcohol/Other Drua Addiction: A serious and persistent alcohol or other drug addiction that
significantly JJmils a person's abl/Jty to Ilve Independentiy.
Assisted Household or Person: For the purpose 01 Identification 01 goals, an assisted household
or person Is one which during the period covered by the annual plan will receive benefits through
the lederaf lunds, either alone or In conjunction wilh the Investment 01 other publlc or private
lunds. The program funds providing the benefll(s) may be lr~m any lundlng year or combined
lundlng years. A renter Is benefitted lIthe person takes occupancy 01 affordable housing that Is
newly acquired, newly rehabilitated, or newly constructed, and/or receives rental assistance
through new budget authority. An existing homeowner Is benefitted during the year If the home's
rehabilitation Is completed. A flrst.time homebuyer Is benefitted If a home Is purchased during
the year. A homeless person Is benelitted during the year II the person becomes an occupant
of transitional or permane'nt housing. A non-homeless person wilh special needs Is considered
as being benefitted, however, only lIthe provision 01 supportive services Is linked to the
acquisition, rehabilitation, or new construction 01 a housing unit and/or the provision 01 rental
assistance during the year. Households or persons who will benelillrom more than one program
activity must be counted only once. To be Included In the goals, the housing unit must, at a
minimum, satisfy the HUD Section 8 Housing Quality Standards (see 24 CFR section 882.109).
Committed: Generally means there has been a legally binding commitment 01 funds to a specific
project to undertake specific activities.
Consistent with the CHAS: A determination made by the Jurisdiction that a program application
meets the lollowlng criterion: The Annual Plan lor that fiscal year's lundlng Indicates the
Jurisdiction planned to apply for the program or was willing to support an application by another
entity, lor, the program; the location 01 activities Is consistent with the geographic areas as
specified In the plan; and the activltles benefit a category 01 residents lor which the jurisdiction's
five-year strategy shows a priority.
Cost Burden >30%: The extent to which gross housing costs, Including utility costs, exceed 30
percent of gross Income, based en data published by the U.S. Census Bureau.
Cost Burden >50% (Severe Cost Burden): The extent to which gross housing costs, Including
utility costs, exceed 50 percent of gross Income, based on data publlshed by the U.S. Census
Bureau.
Disabled Household: A household composed of one or more persons at least one 01 whom Is an
adult (a person of at least 18 years 01 age) who has a disability. A person shall be considered
to have a disability If the person Is d~termlned to have a physical, mental, or emotional
Impairment that: (1) Is expected to be of long-continued and Indefinite duration, (2) substantially
Impeded his or her ability to live Independentiy, and (3) Is of such a nature that the ability could
be Improved by more suilable housing conditions. A person shall also be considered to have a
disability If he or she has a developmental disability as defined In the Developmental Disabilities
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Assistance and B1I1 of Rights Act (42 U.S.C. 6001-6006). The term also Includes the surviving
member or members 01 any household described In the first sentence of this paragraph who were
living In an assisted units with the deceased member 01 the household at the time of his or her
death. ' '
Elderiy Household: For HUD rental programs, a one or two person household In which the head
of the household or spouse Is at least 62 years of age.
Elderiy Person: A person who Is at least 62 years or age.
Exlstlna Homeowner: An owner-occupant of residential property who holds legal title to the
propertY and who uses the property as his/her principal residence.
Family: The Bureau 01 Census defines a lamlly as a householder (head 01 household) and one
or more other persons living In the same household who are related by birth, marriage, or
adoption. The definition required for the CHAS Irom the National Affordable Housing Act 011992
Is ( ).
Family Self-Sufficiency (FSSl Proaram: A program enacted by Section 554 01 the National
Affordable Housing Act which directs Public Housing Agencies and Indian Housing Authorities to
use Section 8 assistance under the rental certificate and rental voucher programs, together with
public and private resources to provide supportive services, to enable participating lamllles to
achieve economic Independence and self-sufficiency.
Federal Preleronce lor Admission: The preference given to otherwise eligible applicants under
HUD's rental assistance programs who, at the time they seek housing assistance, are Involuntarily
displaced, living In substandard housing, or paying more than 50 percent of lamlly Income for
rent.
First-time Homebuver: An Individual or family who has not owned a home during the three-year
period preceding the HUD-asslsted (or otherwise assisted) purchase 01 a home that must be used
as the principal residence of the homebuyer, except that any Individual who Is a displace
homemaker or a single parent (as defined In 24 CFR 92) may not be excluded Irom consideration
as a first-time homebuyer on the basis that the Individual, whlfe a homemaker or married, owned
a home with his or her spouse or resided In a home owned by the spouse.
For Rent: Year round housing units which are vacant and offered/available lor rent. (U.S. Census
definition)
For Sale: Year round housing units which are vacant and offered/available lor sale only. (U.S.
Census definition)
Frail ElderlY: An elderiy person who Is unable to perform at least three activities 01 dally living
(I.e., eating, dressing, bathing, grooming, and household management activities).
,
GrouD Quarters: Fac1l1t1es providing IIYlng quarters that are not classified as housing units (U.S.
Census definition). Examples Include: prisons, nursing homes, dormitories, military barracks, and
shelters.
HOME: The HOME Investment Partnerships Program, which Is authorized by Title II of the
National Affordable Housing Act.
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Homeless Famllv: Family that Includes at least one parent or guardian and one child under the
age 0118, a homeless pregnant woman, or a homeless person In the process 01 securing legal
custody 01 a person under the age of 18.
Homeless Individual: An unaccompanied youth (17 years or younger) or an adult (18 years or
older) without children.
Homeless Youth: Unaccompanied person 17 years of age or younger who Is living In situations
described by terms 'sheltered' or 'unsheltered',
Household: One or more persons occupying a housing unit (U.S. Census definition). See also
'Family'. '
Houslna Problems: Households with housing problems Include those that: (1) occupy units
meeting the definition of Physical Delects; (2) meet the definition 01 overcrowded; and (3) meet
the definition 01 cost burden greater than 30 percent. Table 1 C requests nondupllcallve counts
01 households that meet one or more 01 these criteria.
Houslna Support Services: Services provided to assist renters or homeowners to remain In their'
housing units, Including counseling, child care, transportation, substance abuse treatment, training
In homemaking and parenting skills, money and household management, counseling In
homeownershlp, Job placement, and other necessary and appropriate services.
Houslna Unit: An occupied or vacant house, apartment,' or a single room (SRO housing) that Is
Intended as separate living quarters. (U.S. Census definlllon)
Instltutionsllnstltutlonal: Group quarters for persons under care, or custody. (U.S. Census
definition)
Laroe Related: A household 01 five or more persons which Includes at least one person related
' to the householder by blood, marriage, or adoption. '
Lead-Based Paint Hazard: Any condlllon that causes exposure to lead Irom lead-contaminated
dust, lead-contaminated soli, lead-contaminated paint that Is deteriorated or present In accessible
surfaces, lriction surfaces, or Impact surfaces that would result In adverse human health effects
as established by the appropriate lederal agency. (Residential Lead-Based Paint Hazard
Reduction Act 011992 definition)
L1HTC: (Federal) Low-Income Housing Tax Credit.
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Low-Income: Households whose Incomes do not exceed 80 percent 01 the median Income lor the
area, as determined by HUD with adjustments lor smaller and larger lamllJes. HUD Income limits
are updated annually. (This term corresponds to low- and moderate-Income households In the
CDBG Program.)
Moderate.lncome: Households whose Incomes are between 81 and 95 percent 01 the median
Income lor the area, as determined by HUD, with adjustments lor smaller and larger families.
(This definition Is dlfferentlrom that lor the CDBG Program.)
Non-Elderlv Household: A household which does not meet the definition of 'Elderiy Household, '
as defined above.
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Non-Homeless Persons with Special Needs: Includes IraU elderiy persons, persons with AIDS,
disabled lamllles, and lamllles participating In organized programs to achieve economic self-
sufficiency. '
Non-Institutional: Group quarters lor persons not under care or custody. (U.S. Census definition)
Occupied Houslna Unit: A hOUSing unit that Is the usual place 01 residence 01 the occupant(s).
Other Household: A household of one or more persons that does not meet the deflnlllon of a
Small Related household, Large Related household or Elderiy household.
Other Income: Households whose Incomes exceed 80 percent 01 the median Income for the area,
as determined by HUD, with adjustments lor smaller and larger lamllles.
Other Low-Income: Households whose Incomes are between 51 and 80 percent 01 the median
Income for the area, as determined by HUD, with adjustments lor smaller and larger lamllles.
(This term corresponds to moderate-Income In the CDBG Program.)
Other Vacant: Vacant year round housing units that are not For Rent or For Sale. This category
would Include Awaiting Occupancy or Held.
Overcrowded: A housing unit containing more than one person per room (U.S. Census definition)
Owner: A household that owns the hOUSing unit It occupies. (U.S. Census definition)
Primary Houslna Activity: A means 01 providing or producing affordable housing _ such as rental
assistance, production, rehabilitation or acquisition - that will be allocated significant resources
and/or pursued intensively lor addressing a particular housing need. (See also 'Secondary
Housing Activity.')
~ct-Based (Rental) Assistance: Rental assistance provided lor a project, not lor a specific
tenant. Tenants receiving project-based rental assistance give up the right to that assistance
upon moving Irom the project.
Rent Burden >30% (Cost Burdenl: The extent to which gross rents, Including utility costs, exceed
30 percent of gross Income, based on data published by the U.S. Census Bureau.
Rent Burden >50% (Severe Cost Burden): The extent to which gross rents, Including utility costs,
exceed 50 percent 01 gross Income, based on data pUblished by the U.S. Census Bureau.
Rental Assistance: Rental assistance payments provided as either project-based rental assistance
or tenant-based rental assistance.
Renier: A household that rents tlle hoiJsing unit It occupies, Including both units rented lor cash
and units occupied without cash payment 01 rent. (U.S. 'Census definition)
Renter.Occupled Unit: Any occupied housing unit that Is not owner-occupied, Including units
rented lor cash and those occupied without payment 01 cash rent.
Secondary Houslna Activity: A means of providing or producing affordable housing _. such as
rental assistance, production, rehabilitation or acquisition -- that will receive fewer resources and
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"Primary Housing Activity."
Section 215: Section 215 01 Title II of the National Affordable Housing Act. Section 215 defines
"affordable" housing projects under the HOME Program.
Service Needs: The particular services Identified for special needs populations, which typically
may Include transportation, personal care, housekeeping, counseling, meals, case management,
personal emergency response, and other services to prevent premature Institutionalization and
assist Individuals to continue living Independently.
Severe Cost Burden: See Cost Burden >50%.
Severe Mental Illness: A serious and persistent mental or emotional Impairment that significantly
limits a person's ability to live Independently.
Sheltered: Families and persons whose primary nighttime residence Is a supervised publicly or
privately operated shelter, Including emergency shelters, transitional housing lor the homeless,
domestic violence shelters, residential shelters lor runaway and homeless youth, and any
hotel/motel/apartment voucher arrangement paid because the person Is homeless. This term
does not Include persons living doubled up or In overcrowded or substandard conventional
housing. Any laclllty offering permanent housing Is not a shelter, or are Its residents homeless.
Small Related: A household 01 two to lour persons which Includes at least one person related to
the householder by birth, marriage, or adoption.
Substandard Condition and Not Suitable lor Rehab: Dwelling units that are In such poor condition
as to be neither structurally nor financially feasible lor rehabilitation. (Local definition)
Substandard Condition but Suitable lor Rehab: Dwelling units that do not meet standard
conditions but are both financially and structurally feasible for rehabilitation. This does not Include
units that require only cosmetic work, correction or minor livability problems or maintenance work.
(Local definition)
Substantial Rehabilitation: Rehabilitation 01 residential property at an average cost lor the project
In excess 01 $25,000 per dwelling unit.
Supoortlve Houslna: Housing, Including Housing Units and Group Quarters, that have a
supportive environment and Includes a planned service component.
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Supportive Services: Services provided to residents of supportive housing lor the purpose of
facilitating the Independence 01 residents.
Tenant-based (Rental) Assistance: A lorm of rental assistance In which the assisted tenant may
move from a dwelling unit with a right to continued assistance. The assistance Is provided for
the tenant, not lor the project.
Total Vacant Houslna Units: Unoccupied year round housing units. (U.S. Census definition)
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Unsheltered: Families and Individuals whose primary nighttime residence Is a public or private
place not designed lor, or ordinarily used as, a regular sleeping accommodation lor human beings
(e.g., streets, parks, alleys).
Vacant Awaltlna Occuoancv or Held: Vacant year round housing units that have been rented or
sold and are currently awaiting occupancy, and vacant year round housing units that are held by
owners or renters lor occasional use. (U.S. Census definition)
Vacant Houslna Unit: Unoccupied year round housing units that are available or Intended lor
occupancy at any time during the year.
Verv Low.lncome: Households whose Incomes do not exceed 50 percent 01 the median Income
lor the area, as determined by HUD, with adjustments lor smaller or larger lam Illes. (This term
corresponds to low-Income households In the CDBG Program.) For the purpose ollurther
distinguishing needs within this category, two subgroups (0 to 30% and 31 to 50% 01 median
larnlly Income) have been established In the CHAS.
Worst-Case Needs: Unassisted, very low-Income renter households who pay more than half 01
their Income lor rent, live In seriously substandard housing (which Includes homeless people) or
have been Involuntarily displaced.
Year Round Houslna Units: Occupied and vacant housing units Intended lor year round use. (U.S.
Census definition) Housing units lor seasonal or migratory use are excluded.
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APPENDIX 1
COMMUNITY DEVELOPMENT BLOCK GRANT PROGRAM
CDBG PROJECTS .1993 PROGRAM YEAR
IOWA CITY, IOWA
United Action for Youth - Youth Center Acoulsltlon Phase /I
Purchase 01 422 Iowa Avenue (neighboring property to the current Youth Center which serves
the Youth Service Agencies). Counseling and training programs are provided for 800 low and
moderate Income youth and lamllles, 150 runaway youth, 35 persons with disabilities and 150
abused and neglected youth. Funds: $40,200
Greater towa City Houslna Fellowshlo - Land Acaulsltlon for Affordable Rental Houslna
Site acquisition In the Whispering Meadows subdivision lor construction 018 two- and three-bed-
room units to be made available to Section 8 certificate and voucher holders, very low-Income
renters. As debt service Is retired, rents will be reduced, making them affordable without Section
8 assistance. Other sources Include $326,829 In HOME lunds (application submitted) and
approximately $200,000 In private loans from a consortium of Iowa City lending Institutions.
Funds: $75,700
CIty of Iowa City - Land Acaulsltlon for Affordable Houslnq
Acquire 1.25 acres on North Dodge Street Court lor construction 01 rental and owner-occupied
units affordable to households up to 80% of area median Income. Suitable donated houses could
also be moved to this site. Funds: $30,100
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Houslna and Community DeveloDment - Houslna Rehabilitation
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Continuation 01 owner-occupied Housing Rehab Program to Include comprehensive rehabilitation,
weatherization, exterior repair, emergency repair, residential accessibility (rental and owner-occu-
pied). Budget Includes $3,000 lor Architectural Salvage Program, and $1,000 lor Targeted Small
Business assistance. Funding Includes administrative expenses, which also administer Rental
Rehab programs and a HOME owner-occupied rehab program. Program Is citywide. Program
available 7/1/93 through 6/30/94. Selection allow-Income homeowners Is by priority rating lor
greatest need. Loans will range Irom $2,000 to $30,000 with variable terms according to ability
to pay. Funds: $357,000
Elderlv Services Aaencv - Small ReDalr Proaram
Provide funds lor small repairs for approximately 50 elderiy or handicapped low-Income home-
owners. Program helps these homeowners citywide to remain In their homes longer and more
safely. Local contractor coordinates and makes the repairs. Program both sends relerrals to, and
receives relerrals Irom, the Housing Rehab Program. Funds: $16,400
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The Citizen Bulldlna Limited Partnershlo - Acaulsltlon of Press-Citizen Bulldlna
Acquisition 01 historically significant building at 319 Washington Street lor conversion to 18 units,
to be rented to low-Income persons who are elderiy or physically disabled. Other lundlng sources
Include $400,000 In HOME lunds (application submitted), a tax abatement Irom the City 01 Iowa
City, and private sources. Funds: $30,000
Domestic Violence Intervention Proaram - New Shelter Construction
Build a shelter laclllty In census tract 18 that will adequately house the current level 01 usage and
meetluture needs. New facility would also provide space lor counseling, group work, and quiet
space. Funds: $122,000
Salvation Annv - Communltv Souo Kitchen and Fellowshlo Hall
Funds will be used to assist In the renovation of space at the Salvation Anny's laclllty at 510
Highland Avenue lor a soup kitchen to serve an evening meal at least six nights a week. Low-
Income and homeless residents of Iowa City will be targeted. This project Is necessary because
the Emergency Housing Project will no longer be providing this meal due to lack 01 space.
Funds: $16,000
Cltv of Iowa Cltv - Aid to Aaenc/es (Ooeratlonal Fundlna)
Funds assigned to the City's Aid to Agencies budgel for operational activities per City Council
policy. These monies will specifically go to United Action lor Youth, the Elderiy Services Agency,
and MECCA. UAY provides counseling and training programs lor low- and moderate-Income
youth and lamllles. ESA serves elderiy people through several programs. MECCA provides
outpatient and residential treatment services and prevention services lor substance abusers. All
three programs operate citywide. Funds: $105,500
Mavor's Youth Emolovment Proaram - Business Tralnl!1!J.
Teach Job skills to youth, particularly skills In order to become sell.supporting or to start up a
small business. CDBG lunds will be used to provide $500 stipends to 20 young people. MYEP
Is located at 410 iowa Avenue. Funds: $10,500
LIFE Skills - Houslna Supoort Proaram
Provide education In the area of responsible renting skills to low-Income renters or those looking
lor rantal housing. Will also assist eligible renters with finding housing and staying In housing.
Skills Include: budgeting, home maintenance, salety, and effective communication. Citywide.
Funds: $16,500
Houslna and Communltv Development - Downpavment Assistance
To Improve low-Income families' ability to purchase homes in Iowa City by mitigating the
downpayment barrier. Program will match homebuyers' lunds dollar-for-dollar up to $3,000; at
least fifteen low. to moderate-Income lamllles will be assisted. The program Is carried out
citywide in conjunction with local lenders. Funds: $15,300
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ICAR!: - Needs Assessment/Houslna Services
Conduct a needs assessment survey to determine the need lor 1) housing lor LMI persons with
HIV/AIDS In Iowa City; 2) In-house medical assistance In a housing laclllty for same group; 3)
services to help people with HIV/AIDS avoid Inslllutlonal care as long as possible; and 4) transient
'housing lor persons coming to UI Hospitals and Clinics lor treatment. Also develop and
Implement programs to address assessed needs. Funds: $16,075
Houslna and Communl/v DeveloDmenl - General Administration
General management, oversight, and coordination 01 CDBG program. Salaries and administrative
expenses not dlrectiy related to CDBG projects. FTE salaries Include CD Coordinator, 80%; two
Associate Planners, each 60%; Secretary, 25%; and Intern, 20%. Funds: $118,000
Houslna and Communl/v DeveloDmenl - Research and Plannlna
Planning and research activities aimed at providing greater housing opportunities lor the City's
low-to moderate-Income residents.
1. Assessment 01 needs 01 the homeless and speclal populations and analysis 01 the data
required lor the CHAS.
2. Review development regulations lor possible barriers to affordable housing construction,
rehabilitation, and 'recycling' of houses.
3. Continue to work with Johnson County Council 01 Governments and East Central Iowa
Council 01 Governments to review affordable housing needs county-wide. '
4. Explore need lor/feasibility 01 single-room occupancy units (SROs) In Iowa City.
'5. Continue to work with local financial Institutions to set up a program lor first-time
homebuyers to purchase homes, Including an education/counseling component
6. Continue Investigation of a public/private housing partnership. '
7. Completion 01 an Anti-Poverty Plan required lor the CHAS. Funds: $12,000
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APPENDIX 2
MINUTES ,
COMPREHENSIVE HOUSING AFFORDABILITY STRATEGY (CHAS) PUBLIC MEETING
JUNE 23, 1993 - 6:30 P.M.
IOWA CITY PUBLIC LIBRARY - MEETING ROOM A
HOUSING COMMISSION
MEMBERS PRESENT: Eastham, EgII, Moore, Paelzold, Reilly,
HOUSING COMMISSION
MEMBERS ABSENT: Harris, McMahon
COMMITTEE ON COMMUNITY
NEEDS MEMBERS PRESENT: Cooper, Dennis, Feeney, Martin, Murray, Penzlner, Pigott,
Ruff, Snider
COMMITTEE ON COMMUNITY
NEEDS MEMBERS ABSENT: Oxley
STAFF PRESENT: Henderson, Lindsay, Mlklo, Milkman, Nasby
CALL TO ORDER:
Housing Commission Chairman Ben Moore called the meeting to order at 6:33 p.m. He
Introduced the Housing Commission and CCN members, and City staff.
Lindsay gave a briel overview and explanation of the CHAS document and the sections 01 the
CHAS. Undsay noted that on the agenda there were a series 01 questions. The discussion lor
this evening and comments were to be addressed to these housing questions. Then Chairman
Moore outlined the purpose 01 the meeting. He Instructed the public that there would be a five
minute limit on Individual public comments and also asked them to state their name and which
organization they were with If they were representing one. Moore also asked the public
participants to review the questions that were posed lor this evening's meeting and to please
address their comments to those questions.
Chairman Moore opened up the floor lor public comments.
,
Greg Jensen, Chair 01 the Board of the Emergency Housing Project, presented a statement Irom
EHP (see printed statement attached).
1. Jansen outlined EHP's role In the community to provide shelter to adults with children and
to single adults. EHP Is celebrating Its ten-year anniversary this year.
2. Jensen stated that the shelter was overcrowded with approximately 1,100 people and
11,000 nights stayed at EHP last year. This was an average of 29 persons per night.
However, the laclllty only has 22 beds. The number 01 Individuals staying In EHP Is
higher In the winter.
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3. EHP serves a diverse population. Many single men and women with children, persons
In transition or In crisis situations, and users 01 human services are clients 01 EHP. He
said at this time many 01 the persons at EHP are experiencing a need to stay longer at
EHP because they need to come up with the money to pay lor rent and utilities and/or
deposits to live Independently elsewhere.
4. He said the needs are Increasing In the county and city. He also stated that although 31%
01 the residents at EHP were Irom Johnson County, approximately 2.1% of the budget
comes from Clly funds and 3% a,~mes Irom County lunds. He stated that he sees a need
lor Increased funding Irom City and County resources because of the decreases In other
areas, especially Irom state and/or lederal sources.
Jean Mann, Director 01 Elderly Services Agency, spoke ,about the problems 01 housing the elderiy.
8. She said that elderiy persons In trailers are finding that no contractors will work on trailers.
Seniors need to have them repaired so these persons can stay In their homes. She also
brought up the possibility lor ECHO housing units which may be a viable option lor Iowa
Clly.
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Graham Dameron, Director of the Johnson Counly Department 01 Health, addressed the Housing , :
Commission and CCN.
1. Dameron leels there Is a gap In resldentlallacllltles that have supportive services or In-
house care. He believes that there Is only one. These services are lor Irall elderiy or
mentally III persons needing supportive housing. These persons need a higher leve: of
care but not a full.tlme nurse or nursing home environment.
2. Dameron also stated that HIVlAIDS patients are seeking medical treatment In Iowa City
because 01 the lac1l1t1es that are located here. He also leels that many 01 these persons
who come to Iowa City may experience housing problems. At present, he believes there
are 47 persons that are HIV-posltlve now In Iowa City and that the number will be steadily
Increasing In the luture.
3. Dameron also stated his concerns regarding lead-based paint and the cost 01 rehabilitation
or abatement. He stated that HUD Is very Interested In lead-based paint but abating this
may affect the affordab1l1ty 01 homes In Iowa City.
Rick Weber, a private citizen and lormer resident 01 Emergency Housing Project, spoke about
EHP.
1. Weber believes there Is something political going on at EHP because one person has
been the director there and doing all 01 the work, as well as pitching In and paying out
some 01 her own money when the shelter ran short. Now that person Is no longer going
to be the director because a new full-time director has been hired.
2. He believes that 80% 01 the residents come Irom someplace other than Johnson County
and that the composition 01 EHP residents has become more transient and will continue
to do so. '
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3. He believes that the EHP board Is made up of 'Sunday Christians.' These are people
who contribute or donate their time and/or resources when they leellt will best suit them.
However, he does not leel this Is humanity, It's just people looking down on other people.
4. He has questions on the delegation 01 authority given to certain people at EHP. He
mentioned the head cook. He also believes that some members or residents 01 EHP are
spying on other residents at EHP and giving Inlormation to the board and/or the directors.
5. Ha also stated that Irom time to time some persons that come through EHP are unruly.
However, this group Is not reprimanded.
6. Weber stated that most meetings like this are full 01 double talk and that nothing Is being
done. He also stated that In larger cities some shelters are closing. He does not believe
this Is a humane way to treat persons In need of help.
7. He said In Its eariler years EHP was doing better than It Is now. However, they do a good
Job and should be a model to other shelters.
8. He believes thallhe human need Is a real Issue and needs to be met with a helping hand.
9. He believes that there Is a bad attitude among some people at EHP.
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Deb Keller, VISTA volunteer working at EHP and the Greater Iowa City Housing Fellowship,
spoke about the GICHF. (See printed letter Irom Charlie Eastham and Inlormatlon regarding
GICHF's Security Deposit Loan Program).
1. Keller stated that the Greater Iowa City Housing Fellowship (GICHF) had started the
security deposit loan program and It was sponsored by the GICHF and First National
Bank.
2. The lending 01 money lor security deposits and utility deposits started In February and at
present they have 21 outstanding (7) loans totalling $6,275.
3. She said that this has been a need lor a lot 01 people and that they had a large number
01 people applying lor these loans.
4. She stated that some persons cannot make loan repayments and need grants. However,
the program provides just loans.
5. She stated that Governor Branstad signed a mobile home bill, Senate File 398, and within i!
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security deposit Instead 01 Just the first and last month. This would have an Increased I: II!
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Mary Kelley, representing Systems Unlimited, spoke about that agency. ;i
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clients would like to have room lor a group 01 Individuals (lor example, two persons with I i I;
developmental disabilities each In their own bedroom with a care provider In a third '"
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Wlllreda Hieronymus, representing the Chamber 01 Commerce, spoke about the problems lor I' L
housing developers, and some other Issues. r
1. She believes the City has too many restrictions on developers so It Is virtually Impossible , , I,l!
lor them to develop affordable hOUSing. I" "
2. She believes the Sycamore View project that was completed by the City lor affordable
housing cannot be duplicated by developers since the City subsidized this development
with the Inlrastructure.
3. She believes the City should look at higher density and encourage higher density housing
developments within Iowa City.
4. She also believes that the taxes are too high In Iowa City and maybe the City should look
at giving the developers Incentives and/or subsidies to build affordable housing.
5. She stated that she does not like trailers because they are not uniform and, as Jean Mann
pointed out, are difficult to get repaired.
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6. She believes the City should give tax breaks to developers and/or put In streets and other
Infrastructure so that developers can construct affordable housing.
7. She believes that young people who are In trouble are kept In detention by the State until
they reach age 18 and then they are released. She believes that these young persons
need something to do and/or Jobs and lob training, but these people will also be In need
of housing.
8. She grew up during the Depression and believes that people should not be given things
but they need to be aJ/owed to eam them so they have a greater Investment In their Job,
hou~lng, etc.
9. She would like to expand the downpayment assistance program because It Is a loan and
when it Is repaid it goes back Into the program.
10. She bellev6s that shared housing lor the elderiy may be helpful.
Ben Moore, Chairman 01 the Housing Commission, stated the City had been exploring a number
of avenues lor affordable housing and he listed the downpayment assistance plan, the land
acquisition, the Press-CItizen building and several other programs the City was Involved In to
lacllltate the development 01 affordable housing.
MaryAnn Dennis spoke on behalf 01 Ellen McCabe, Director of the Iowa City Crisis Center.
McCabe was unable to attend the meeting; however, she wanted these points to be placed Into
the record.
1. She believes that LIFE SkJlls Is workIng very hard lor the persons that are hard or
Impossible to house and that the Greater Iowa City Housing Fellowship's security deposit
loan program Is a very good Idea and needs to be expanded.
2. She would like to see addressed In the CHAS the confusion regarding the Section 8
program. She acknowledges that there Is a lengthy waiting list and It Is unclear whether
any Incentives exist lor landlords to accept vouchers. She also stated that more frequent
Inspections and other HUD regulations are disincentives to landlords. She also wished to
make a point that landlords are unclear about the process used for collecting security
deposits and/or collecting monies In the event that a tenant damages a unit. She believes
that these aspects 01 the Section 8 program need to be clear so landlords know the
process.
3. She believes that the vacancy rate lor rentals In Iowa City, which Is extremely low, shows
a need lor Increased rental housing. .
Keith Ruff, CCN member, said he believes that elderly and other persons with disabilities are not
getting enough Medicare waivers to allow lor personal care, lor people to come Into their homes
and give them assistance. He saJd he Is working on gelling these waivers and/or gelling help lor
some 01 these people.
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1. He said that there are a lot 01 young, single parents and their needs should continue to
be represented In the CHAS document as they were In the last one. Also, unaccompa.
nled adolescents who are without either a GED, high school diploma or Job skllls need to
be addressed. He stated that some youth have jobs, but still cannot afford even the
smallest rental units or lI)e security deposils to get those units.
2. A new problem, which should be added to this CHAS Is that the Slate Is reducing Its
lundlng commitment to children. McCarty stated that the State Is reducIng the sIze 01
loster homes; therelore, many youth are released without support and are In need 01
assistance. He believes that the Increase In the number 01 youth released Irom loster
homes will put more pressure on already strained County and local resources.
Moore asked II there were any other questions or public comments. Hearing none, the meeting
was lormally closed at 7:25 p.m.
chas9498\94chas,rpt
93
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