HomeMy WebLinkAboutPZ Agenda Packet 07.05.2023PLANNING AND ZONING COMMISSION
Wednesday, July 5, 2023
Formal Meeting – 6:00 PM
Emma Harvat Hall
Iowa City City Hall
410 E. Washington Street
Agenda:
1. Call to Order
2. Roll Call
3. Public Discussion of Any Item Not on the Agenda
Zoning Code Amendment Items
4. Case No. REZ23-0001
Presentation and discussion on proposed zoning code amendments to improve housing
choice, increase housing supply, and encourage affordability.
5. Consideration of meeting minutes: June 21, 2023
6. Planning and Zoning Information
7. Adjournment
If you will need disability-related accommodations to participate in this meeting, please contact
Anne Russett, Urban Planning, at 319-356-5251 or arussett@iowa-city.org. Early requests are
strongly encouraged to allow sufficient time to meet your access needs.
Upcoming Planning & Zoning Commission Meetings
Formal: July 19 / August 2 / August 16
Informal: Scheduled as needed.
Date: July 5, 2023
To: Planning & Zoning Commission
From: Kirk Lehmann, Associate Planner, Neighborhood & Development Services
Re: Zoning Code Amendments to improve housing choice, increase housing supply, and
encourage affordability (REZ23-0001)
Introduction
Iowa City has a uniquely expensive housing market in Iowa. As a result, the City has increasingly
focused on facilitating the creation of affordable housing opportunities and on enhancing housing
choice within neighborhoods with a special focus on equity and low-income households.
The City’s Zoning Code (Title 14) impacts housing choice and supply, which can affect
affordability. To further goals identified in the Comprehensive Plan regarding affordable housing,
staff proposes several amendments to Title 14 to enhance housing choice and support a more
inclusive, equitable city. These include:
• Increasing flexibility for a range of housing types to facilitate diverse housing choices;
• Modifying design standards to reduce the cost of construction while creating safe,
attractive, and pedestrian-friendly neighborhoods;
• Providing additional flexibility to enhance the supply of housing by modifying dimensional
standards and reducing regulatory barriers to accessory apartments; and
• Creating incentives (e.g., density bonuses and parking reductions) to encourage income-
restricted affordable housing throughout the community.
The proposed amendments also include provisions to improve fair housing. This will help ensure
that housing within neighborhoods can support a range of living situations and advance the City’s
equity and inclusion goals.
At your meeting on July 5, staff will provide an overview of the proposed amendments, answer
questions, and request feedback from the Commission. These amendments will not solve all
issues related to housing affordability or equity, but they can help improve housing choice,
increase housing supply, and encourage affordability. Consequently, they are just one part of the
larger effort to encourage affordability. By implementing these strategies, the City can become a
more inclusive, diverse, and equitable place that provides housing opportunities for all residents.
Background
Affordable housing is complicated because it depends on a variety of factors including income,
household characteristics, education, the cost of necessities such as child and health care, and
the cost of housing itself. The U.S. Department of Housing and Urban Development (HUD)
considers housing to be affordable if a household pays no more than 30% of its gross income on
housing costs, including rent or mortgage payments, other fees, and utilities. Most publicly
subsidized housing is targeted to households that make less than a certain percentage of the
area median income (AMI) based on household size and housing tenure, as noted in Table 1.
HUD defines households making less than 80% AMI as low income. For households with lower
incomes, it is often the case that the housing families can afford may not meet their needs, such
as a large family in a one-bedroom apartment, or they simply can’t find housing that is affordable.
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Table 1: Household Income Limits Based on Household Size and Area Median Income (AMI)
Household Size 1 2 3 4 5 6
Owner Households
(80% AMI)
$64,650 $73,850 $83,100 $92,300 $99,700 $107,100
Renter Households
(60% AMI)
$48,480 $55,440 $62,340 $69,240 $74,820 $80,340
Effective June 15, 2023, and updated annually
One of the primary factors affecting housing affordability in Iowa City is continued growth. The
metro provides a great quality of life and the University of Iowa and University of Iowa Hospitals
and Clinics helps provide a strong economic base. These in turn draw new residents. However,
continued growth has also strained housing affordability, especially for lower income households,
because the demand for housing is not being met by an adequate housing supply of new
construction as noted in the City’s recent residential development analysis (Attachment 1). This
leads to increased competition, rising rental prices (especially in neighborhoods near the
university), and higher sales prices. As a result, certain households can be priced out of the city.
Another factor that influences housing choice and supply, and therefore the cost of housing, is
the Zoning Code. Zoning is a tool used by the City to implement its Comprehensive and District
Plans by providing rules for how land can be developed and used, including what structures can
be built where and how they may be designed. The code must balance multiple goals, including
protecting property values, encouraging appropriate uses of land, providing for a variety of
housing types, promoting economic stability of existing and future land uses, lessening congestion
and promoting access, preventing overcrowding of land, avoiding undue concentration of
population, and conserving open space and natural, scenic, and historic resources. Given this
context, it is crucial to continually assess whether the code is addressing the policy goals of the
City as identified through public input processes and adopted plans.
Public Engagement
City Council adopted its first Affordable Housing Action Plan in 2016. The Plan identified 15 action
steps based on goals in long-term planning documents and on previous public input about how
the City could help address housing affordability. Since then, the City completed 14 of the action
steps in the plan with the exception of regulatory changes to the code in support of affordable
housing. In addition, the City continued engaging stakeholders during and after this process to
identify additional solutions and barriers preventing the construction of affordable housing.
In 2019, the City adopted a Fair Housing Choice Study which comprehensively reviewed
impediments to accessing housing because of protected class such as race, gender, or disability
as codified in the federal Fair Housing Act. This Study included recommended actions to
affirmatively further fair housing based on extensive public input such as targeted feedback from
stakeholder interviews and focus groups, a fair housing survey, public events, and a public
adoption process. One of the most significant fair housing issues identified was lack of affordable
rental housing, and improving housing choice was one of many strategies recommended to help
address this issue. The full list of recommendations is included in Attachment 2.
The City updated its Affordable Housing Action Plan in 2022 to build off previous efforts in support
of affordable housing. Its recommendations, included in Attachment 3, were developed following
nearly a year of data review and community engagement. Public input included the following:
• American Rescue Plan Act citywide survey with over 1,800 responses and listening posts;
• General outreach activities at Wetherby National Night Out, Fairmeadows Party in the
Park, and CommUnity Crisis Services and Iowa City Compassion Food Bank distributions;
• Meetings with targeted stakeholders such as the Disability Services Coordinating
Committee, University of Iowa Student Government leadership, Catholic Worker House,
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Agency Impact Coalition, Open Heartland, and community and economic development
organizations; and
• Comments from the Greater Iowa City Area Home Builders Association and Iowa City
Area Association of Realtors regarding development regulations and from the Housing
Action Team of Johnson County Livable Community for Successful Aging Policy Board
regarding Accessory Dwelling Units.
City Council drew upon previous planning work, studies, and community conversations to refine
strategies, determine action steps, and establish priorities for their FY23-FY28 Strategic Plan. A
summary of the action steps, which includes advancing prioritized recommendations in the 2022
Affordable Housing Action Plan, is included in Attachment 4. While the City has made significant
progress since 2016, the proposed amendments are another step towards achieving the City’s
goals as the culmination of these extended efforts.
Zoning Code Amendment Summary & Justification
The proposed amendments to Title 14 Zoning are intended to improve housing choice, increase
housing supply, and encourage affordability while also enhancing equity in Iowa City. The
following list describes current and proposed regulations, organized by topic. A future memo will
include specific language and more detailed analysis.
1. Increase flexibility for a range of housing types
The City of Iowa City has regulated uses since the adoption of its first zoning code in 1925. Over
time, the ordinance expanded from simply distinguishing between residential, business, and
industrial uses and zones to more complex structures regulating housing types and household
arrangements, in addition to where they may be located. This has often resulted in zones that
segregate and discourage housing types which are more financially accessible to lower income
households in much of the community, even if they would not create substantial impacts.
Consequently, the City has identified the need to expand the range of housing types allowed,
especially in single-family zoning districts, in its 2016 Affordable Housing Action Plan, its 2019
Fair Housing Study, and again in its 2022 Affordable Housing Action Plan. The following changes
are intended to create flexibility and streamline processes for a variety of more affordable housing
types that would have limited impacts on neighborhood character.
a. Allow duplex and attached single-family uses throughout single-family residential zones.
Currently duplexes and attached single-family homes are only allowed on corner lots in
the RS-5 and RS-8 zones. The proposed amendment would allow such uses to be
located anywhere in a block. This provides additional flexibility to facilitate the inclusion
of these housing types in more neighborhoods compared to current requirements.
b. Allow townhome-style multifamily provisionally in the RS-12 zone. Currently up to 6
attached single-family dwelling units (i.e., one unit per lot) can be located in the RS-12
zone. The proposed amendment would allow up to 6 side-by-side, attached dwelling units
to be located on one lot. Generally, these two uses are indistinguishable from the street
since the only difference is the composition of lots. As such, this provides an additional
method to provide housing without affecting the appearance of the neighborhood.
c. Allow multi-family uses on the ground floor in most commercial zones by special exception
and provisionally allow multi-family uses in the CC-2 zone. Currently, the code only allows
multi-family uses on the ground floor in a few Central Business zones under very specific
circumstances. In most commercial zones, multi-family uses are only allowed above the
ground floor. Additionally, multi-family uses in the CC-2 zone require a special exception
which must be approved by the Board of Adjustment. The proposed change would allow
multi-family uses provisionally in the CC-2 zone and would also allow multi-family uses on
the ground floor in most commercial zones through a special exception. This would mean
a ground floor multi-family use must be reviewed by the Board of Adjustment to ensure all
July 5, 2023
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approval criteria are met while multi-family uses on upper floors would be allowed
provisionally in most commercial zones. This simplifies the process in most mixed-use
contexts while permitting ground floor multi-family uses only where they are appropriate.
d. Regulate assisted group living uses more consistently with multi-family uses in RM-12,
CN-1, CC-2, CB-2, CB-5, and CB-10 zones. Assisted group living uses, which include
assisted living facilities and group care facilities such as nursing homes, are currently
allowed in many but not all zones where multi-family uses are allowed. In some cases,
additional approval processes are also required. The proposed amendment would
regulate assisted group living uses more consistently with multi-family uses by allowing it
in more commercial zones, eliminating the need for a special exception in the RM-12 zone,
and removing it as an allowable use in the CI-1 zone. The CI-1 zone is an intensive
commercial zone where residential uses are typically not allowed. This provides for a
greater variety of living arrangements without impacting the character of each zone.
2. Modify design standards
Standards regarding building and site design based on zone, use, and location help ensure safe,
attractive, pedestrian friendly neighborhoods. However, the 2016 Affordable Housing Action Plan
identified a need to review the multi-family site development standards to reduce cost and
expedite approvals, which has been supported by ongoing feedback from the Affordable Housing
Coalition and Homebuilders Association. Design standards continue to be important, but staff
recommends some adjustments to help reduce the cost and timing of compliance without
impacting the purpose of the standards.
a. Eliminate some multi-family site development standards to provide flexibility. Buildings
containing multi-family or group living uses not built of masonry or stucco must have a 2-
foot base of masonry, stucco, or dressed concrete, and where wall materials change, they
must wrap 3’ around the corner. This often requires additional material which has cost and
design implications. Removing these provisions will improve affordability and flexibility
while continuing to meet the intent of the multi-family site development standards.
b. Adjust standards to allow attached single-family and duplex uses in mid-block locations.
Attached single-family and duplex uses in RS-5 and RS-8 zones are only allowed on
corner lots, and each unit’s main entrance and garage must face a different street to
appear like a single-family home. The proposed amendment would allow attached single-
family and duplex uses in mid-block locations which would require different standards.
Staff proposes amending the use standards in such a way to facilitate mid-block duplex
and attached single-family uses consistent with other buildings in the neighborhood.
c. Simplify the process to reduce parking setbacks for townhome-style multi-family uses.
Currently, townhome-style multi-family uses cannot have parking for the first 15’ of building
depth. This makes sense for the front, but parking for end units must be set back 15’ where
they abut a street. While this standard may be waived by minor modification, it requires
additional process and there is no similar requirement for attached single-family uses. The
proposed amendment would allow the Building Official to simply waive this requirement
for townhome-style multi-family uses without a minor modification.
3. Provide additional flexibility to enhance the supply of housing
Iowa City is always balancing the demand for student rentals near downtown with concerns
regarding quality of life for long-term residents and redevelopment in older neighborhoods.
Residents near the edge of the city are also often wary of new development. As a result, single-
family zones with lower densities, specifically RS-5 and RS-8, often become a default to try and
minimize neighborhood opposition. This has several impacts including more conventional
development patterns at the edge of the city that are often at odds with the City’s sustainability
and equity goals. In some areas, RS-5 was also applied to historic small lot areas near downtown
July 5, 2023
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which created non-conforming lots. In addition, planned development overlays are often required
to recreate neighborhoods like those in the core of the city. Additionally, standards like bedroom
caps for non-single-family detached units and policies on accessory apartments (a.k.a. accessory
dwelling units) limit what housing types can serve households throughout the City.
a. Modify dimensional standards to better align with existing lots and newer form-based
standards, and to ensure greater consistency by use. Current and proposed dimensional
standards are noted in the table below. In some older neighborhoods, lot sizes and widths
do not conform to current zoning requirements, and standards for missing middle housing
types are well above those in recently adopted for form-based zones (14-2H). The
proposed amendment would reduce the minimum lot size and width for detached single-
family uses in RS-5 zones and allow the RNS-12 zone to utilize the single-family density
bonus which together align standards more closely to historic lot requirements. In addition,
it would reduce lot widths for detached single-family uses in RM zones to match those for
single-family uses in other zones. Finally, it would reduce minimum standards for duplex
and attached single-family uses in RS-5 and RS-8 zones to be closer to those in the
recently adopted form-based zones. These updates provide additional flexibility and
enhance the supply of housing in a way that is consistent with the comprehensive plan.
Zone Use Lot Size
(Sq. Ft.)
Area/ Unit
(Sq. Ft.)
Lot Width
(Ft.)
Frontage
(Ft.)
RS-5 Detached
Single-family
Current 8,000
(6,000 w/
rear access)
8,000
(6,000 w/
rear access)
60 (50 w/
rear access)
45 (30 w/
rear access)
Proposed 6,000
(5,000 w/
rear access)
6,000
(6,000 w/
rear access)
50 (45 w/
rear access)
40 (30 w/
rear access)
Duplex Current 12,000 6,000 80 80
Proposed 10,000 5,000 70 70
Attached
Single-Family
Current 6,000 6,000 40 40
Proposed 5,000 5,000 35 35
Other Uses Current 8,000 n/a 60 45
Proposed 6,000 n/a 50 40
RS-8 Duplex Current 8,700 4,350 70 70
Proposed 8,000 4,000 60 60
Attached
Single-Family
Current 4,350 4,350 35 35
Proposed 4,000 4,000 30 30
RNS-
12
Detached
Single-family
Current 5,000 5,000 45 25
Proposed 5,000
(3,000 w/
rear access)
5,000
(3,000 w/
rear access)
45 (30 w/
rear access)
25 (20 w/
rear access)
RM-
12
Detached
Single-family
Current 5,000 5,000 55 40
Proposed no change no change 45 no change
RM-
20
Detached
Single-family
Current 5,000 5,000 55 40
Proposed no change no change 45 no change
b. Allow additional bedrooms for attached single-family, duplex and multi-family uses outside
of the University Impact Area. The code limits multi-family uses to 3 bedrooms and duplex
and attached single-family uses to 4 bedrooms. Staff recommends increasing the number
of bedrooms allowed outside of the University Impact Area (see map in Attachment 5) to
4 bedrooms for multi-family uses and to 5 for duplex and single-family attached uses. This
allows these uses to accommodate a wider range of family types in areas where
development pressure for student rentals is less than near downtown.
c. Encourage accessory apartments in a broader variety of contexts and reduce barriers to
construction. Currently, accessory apartments are only allowed in conjunction with owner-
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occupied, detached single-family homes in a limited number of zones. The proposed
amendment would make several changes generally based on recommendations by the
Housing Action Team of Johnson County Livable Community for Successful Aging Policy
Board (Attachment 6). Proposed changes include allowing accessory apartments on any
lot that allows household living uses and does not contain more than two dwelling units as
a principal use (including all single-family and duplex lots). In addition, the amendment
would remove barriers such as requirements for owner-occupancy, an additional parking
space, that additions not exceed 10% of an existing building’s floor area, that the unit only
have one bedroom, and that detached accessory apartments not exceed 50% of an
accessory building’s floor area. It would also increase the allowable size of a detached
accessory apartment to 1,000 square feet, though it still must be smaller than a percentage
of the principal use. These changes help increase the supply of housing by encouraging
the development of accessory apartments.
4. Create regulatory incentives for affordable housing
The proposed amendments above help enhance housing diversity and increase housing supply,
but they do not specifically create income-restricted affordable units for low-income households.
As such, staff also recommends creating new regulatory incentives (i.e., density bonuses,
flexibility, and parking reductions) for affordable housing in conventional zones. This would help
reduce the cost of units in exchange for providing housing for low-income households in ways
similar to other programs that directly subsidize affordable housing. As part of these changes,
staff recommends consolidating multiple sections that encourage the provision of affordable
housing into one section. This should enhance understanding and streamline administration.
a. Create a density bonus for affordable housing units in conventional zoning districts.
Currently the City offers height bonuses for affordable housing in Riverfront Crossings and
density bonuses in Form-Based zones, but conventional zones only provide density
bonuses for alleys serving single-family detached housing, for multi-family elder housing,
for quality design elements in certain zones, and for features promoting sustainability. Staff
proposes adding a 20% density bonus in exchange for 20% of units in a development
being regulated as affordable housing for 20 years. The bonus would be administered
through existing processes, primarily during site plan, subdivision, or OPD rezoning review
depending on the project. This would help off-set the financial costs of providing affordable
housing by increasing the allowable number of dwelling units. The proposed change may
also include additional flexibility from dimensional and site development standards and
would consolidate multiple sections of the zoning code that address affordable housing
into a common set of definitions, requirements, and incentives.
b. Expand existing parking reductions for affordable housing to all zones. Currently in the
Riverfront Crossings District and Form-Based Zones, no minimum amount of parking is
mandated for affordable housing. The code also allows a minor modification in CB-5 and
CB-10 zones to exempt up to 30% of dwelling units in an affordable housing project from
the minimum parking requirements. These should be consolidated into a single
requirement exempting income-restricted affordable housing from minimum parking
requirements in all zones if it serves that purpose for 20 years. This requirement will help
offset the cost of providing affordable housing through an indirect subsidy equal to the
cost of building parking areas.
5. Address fair housing
In order to make Iowa City a more equitable place to live, staff also proposes amendments to help
enhance fair housing as recommended by the City’s 2019 Fair Housing Study.
a. Create a process to request reasonable accommodations from the zoning code. By federal
law, cities are obligated to provide reasonable accommodations to land use or zoning
policies when they may be necessary to allow persons with disabilities to have an equal
July 5, 2023
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opportunity to use and enjoy a dwelling. Currently, the zoning code has some specific
waivers (such as a minor modification to allow a ramp in the front setback), but they do
not cover every accommodation and are not easily found. Adding a “Reasonable
Accommodations Request” process would streamline the ability to grant reasonable
accommodations with a defined approval procedure.
b. Reclassify community service – long term housing uses as a residential use. Currently,
long-term housing operated by a public or nonprofit agency for persons with disabilities
is classified as a community service – long term housing use, which is considered an
institutional use and is regulated differently from residential uses. Major differences
include that community service – long term housing is only allowed in a few commercial
zones (including the CI-1 zone which does not allow household living uses), but it is not
allowed in residential or the CN-1, CB-10 or MU zones. On one hand, long term housing
uses allow higher densities and less parking than residential uses in the zones in which
it is allowed, and it is typically accompanied by on-site supportive services. On the other,
it can trigger additional process where it is near single-family residential zones, and it
requires a neighborhood meeting and management plan which are not required for any
other residential use that houses persons with disabilities. To date, only two properties
are classified as community service – long term housing uses.
The proposed amendment would reclassify community service – long term housing as a
residential use, and it would specify that supportive services only for residents are
considered an accessory use. Where supportive services are provided for a population
outside of a development, they would be considered a separate use. The proposed
amendment would allow housing with supportive services for persons with disabilities
more widely in the community while addressing a potential fair housing issue.
Next Steps
At the Planning & Zoning Commission’s first meeting in August, staff will present proposed
changes to zoning code. A future memo to the Commission will provide a more detailed outline
of the proposed Zoning Code amendments, along with additional analyses. Draft code language
will also be available for public review, and staff will accept comments throughout the adoption
period.
Attachments
1. Memo Regarding Iowa City Residential Development in 2022
2. Excerpt of Recommendations from the Fair Housing Choice Study, 2019
3. Excerpt of Recommendations from the Affordable Housing Action Plan Update, 2022
4. Excerpt of the Action Plan from the FY23-FY28 City Council Strategic Plan
5. Map of the University Impact Area
6. Housing Action Team of Johnson County Livable Community for Successful Aging Policy
Board Recommendations for Code/Ordinance for Accessory Dwelling Units (ADUs)
Approved by: _____________________________________________
Danielle Sitzman, AICP, Development Services Coordinator
Department of Neighborhood and Development Services
Date: March 15, 2023
To: Geoff Fruin, City Manager
From: Kirk Lehmann, Associate Planner
Re: Iowa City Residential Development in 2022
Introduction:
Every year, the City of Iowa City analyzes residential subdivision and building permit data to track
development patterns and to compare recent and long-term trends. The goal is to provide
accurate information that can be used during land use and planning decision-making processes,
and to provide a discussion on implications for future growth. Key takeaways in 2022 include:
- 2022 continued the trend of low levels of residential lot creation from the past few years.
- The number of dwellings units permitted increased slightly from 2021, but the City is still
seeing fewer units permitted than before the pandemic.
- Permit activity continues to outpace the creation of new lots, which diminishes the supply.
- If residential growth continues its recent pace, the City will only be able to accommodate
less than 6,300 new residents by 2030, compared to a projected demand of 10,240.
- While redevelopment can provide some additional housing, the City is still on track to
experience unmet demand and deplete its supply of all vacant lots.
Where housing demand remains unmet, the City may see impacts to its population growth and
the growth of surrounding communities, which has implications on the City’s sustainability and
housing affordability goals. One of the fundamental aspects of planning is being able to
accommodate new growth. Staff believes it is important to continue encouraging residential
development in areas with access to City services, as well as in the City’s planned growth areas.
Background:
Residential development is the process by which land is prepared for new dwellings, either as
new construction on vacant land or redevelopment on land that was previously developed. It
includes a series of steps with each step provides more clarity to the size, type, and appearance
of the development. However, it is the final two steps of the land development process that provide
the best understanding of how many new dwelling units are expected in the next few years:
- Final Plats: A subdivision permanently delineating the location and dimensions of features
such as lots, streets, easements, and other elements pertinent to the transfer of property.
- Building Permits: The final administrative approval of building plans to allow construction.
In general, the City distinguishes between three types of development. Single-family development
includes one principal dwelling unit on a lot, which may be detached or attached to adjacent units
(such as townhomes) and which may include accessory dwelling units. Duplex development
includes two principal units on a single lot. Multi-family development includes three or more
principal dwelling units on a single lot, which may include apartments or condominiums. In
buildings with a mix of residential and non-residential uses, all dwellings are considered multi-
family.
March 15, 2023
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Analysis:
This section reviews short-term and long-term trends on the approval of final plats, the issuance
of building permits, and the number of vacant lots. This is used to estimate how long the supply
of lots will last given recent development activity.
Final Plat Activity
In 2022, City Council approved two final plats with residential components: Sandhill Estates Part
5 in the south and Hickory Trail Estates in the northeast. While they encompass 57.63 acres, only
18.65 will be developed with 38.98 acres dedicated as parkland. In total, these subdivisions
created lots that can accommodate 18 single-family units and an assisted living use with an
estimated 140 beds (which are counted as dwelling units in Figure 1). Both properties were zoned
Low Density Single-Family Residential with a Planned Development Overlay (OPD/RS-5).
In 2022, the residential lots platted will accommodate the lowest number of single-family dwelling
units since at least 1990 with the exception of 2010 (long-term trends are in Attachment 1). This
is somewhat offset by the multi-family lot with a proposed 140-bed assisted living facility. While
beds typically do not count as dwelling units, they do help accommodate some residential growth.
Overall, the number of lots produced were below the average lots platted from 2012 to 2021,
which would have accommodated an average of 128 single-family, 7 duplex, and 136 multi-family
units annually. Figure 1 shows residential lots subdivided by type from 2012 to 2022.
Figure 1: Residential Lots Subdivided by Housing Type (in Anticipated Dwelling Units), 2012-2022
Over the previous 30 years, enough lots were created to accommodate an average of 133 single-
family units, 11 duplex units, and 123 multi-family units each year. This indicates that the
production of single-family and duplex lots has somewhat decreased over time, while the
production of lots accommodating multi-family units has increased. However, lot creation tends
to occur in cycles lasting about 10 years with a recent peak in 2015. The City appears to be near
the low point of its development cycle, though staff had hoped to see a larger rebound in
development trends after last year. If past trends hold, development may increase over the next
few years to peak around 2026. Several final plat applications are currently under review this year,
which should help numbers in 2023.
2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Multi-Family 209 76 7 144 98 279 206 204 108 32 140
Duplex 16 0 2 18 0 14 12 0 0 12 0
Single Family 111 154 254 259 169 31 105 79 56 65 18
0
50
100
150
200
250
300
350
400
450
Un
i
t
s
P
l
a
t
t
e
d
March 15, 2023
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Building Permit Activity
With regards to building activity, the City issued permits for approximately 363 dwelling units in
2022. Figure 2 shows residential building permits issued by type from 2012 to 2022. Trends for
building permits include the following:
- Single-Family: The number of single-family building permits sunk to 95 units from a brief
uptick during 2021 and is now well below the 10-year (138) and 30-year (145) averages.
Since 1990, 358 more single-family building permits were issued compared to lots created,
which has decreased the supply of vacant single-family lots over time.
- Duplex: Only 2 duplex units were permitted in 2022, which is lower than the 10- and 30-
year annual averages of 10 and 22 respectively. However, relatively few duplexes are
permitted annually, which causes greater variation in numbers. Prior to the 2005 zoning
code update, duplexes were about twice as common. The supply of duplex lots also
decreased over time with 166 more duplexes permitted than lots created since 1990.
- Multi-Family: Permits for multi-family units increased to 266 units in 2022, but the number
is still slightly below both the 10-year average (386) and 30-year average (274). Of the
units permitted this year, 249 are due to a single building in the Riverfront Crossings
District. Notably, no multi-family units were in mixed use buildings this year.
Figure 2: Residential Building Permits Issued by Housing Type (in Dwelling Units), 2012-2022
Attachment 2 shows long-term trends in building permit activity. Similar to platting patterns, single-
family and duplex building permits occur in cycles, but they have trended downward the past 30
years. However, multi-family construction has increased over time, especially following the
adoption of the Downtown and Riverfront Crossings Master Plan in 2012. This has led to
redevelopment in the Riverfront Crossings District, which is reflected in the recent peak in multi-
family activity that culminated in nearly 900 multi-family units permitted in 2016 alone. As a result,
the total number of units permitted has trended upward over the past 30 years.
2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Multi-Family, Mixed Use 100 27 37 47 340 150 169 59 0 40 0
Multi-Family 140 488 218 499 556 203 163 417 49 155 266
Duplex 16 8 14 6 12 8 10 8 8 6 2
Single Family 143 171 176 137 172 157 109 80 97 133 95
0
100
200
300
400
500
600
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March 15, 2023
Page 4
Development Potential
In general, the number of new building permits exceeded the creation of new lots for all
development types since at least 1990. Because multi-family development often occurs on infill
sites, it is less dependent on the creation of new lots compared to single-family and duplex
development. Figure 3 notes the number of vacant lots in Iowa City, the number of dwelling units
they can accommodate, and whether they still require infrastructure for a building permit to be
issued. This year’s memo provides a more complete understanding than last year’s because it
includes all vacant lots in Iowa City rather than just those in subdivisions platted since 1990.
Figure 3: Number of Vacant Lots by Type of Dwelling and Provision of Infrastructure
Dwelling
Type
Infrastructure Required Infrastructure Provided Total
Lots Units Lots Units Lots Units
Single-Family 124 124 270 270 394 394
Duplex 0 0 12 24 12 24
Multi-Family 4 56 16 709 20 765
At the end of 2022, the City had approximately 394 vacant single-family lots, of which 270 are
currently served by infrastructure. The City also contained 12 vacant duplex lots with infrastructure
provided. With regards to lots that still require infrastructure to be built, the City anticipates 18
single-family lots will become buildable next year in Sandhill Estates Pt. 5 which was recently
platted. The other 106 single-family lots that still require infrastructure are from older subdivisions
that are not likely to be built out anytime soon. Note that residential lots owned by adjacent
property owners and used as a single lot are excluded from these numbers because they are
unlikely to develop. Most vacant single-family lots available for development are in the Northeast,
South, or Southeast Planning Districts.
Multi-family development depends less on new lot creation because many new units are part of
redevelopment projects on existing lots. At the end of 2022, the City had around 20 vacant multi-
family lots, of which 16 had infrastructure provided. 14 of these lots are on greenfield sites and
are expected to accommodate at least 483 dwelling units (including the assisted living facility with
140 beds). The other 2 lots are on infill sites and concepts show them accommodating at least
226 units. The 4 multi-family lots that do not yet have infrastructure constructed are expected to
accommodate at least another 56 dwellings units. Vacant developable multi-family lots are spread
throughout the City, including the North (52 units), Northeast (70 units + 140 beds), Southeast
(75 units), South (36 units), Northwest (110 units), and Central/Downtown (226 units) Planning
Districts. Undevelopable lots are currently located exclusively in the South District. There is also
some capacity for additional units on partially developed lots that are not included.
Based on development trends from 2012 through 2021, the supply of vacant lots with
infrastructure would last as follows:
- 2.0 years for single-family units (down from 2.7 in 2021),
- 2.4 years for duplex units (down from 3.7 om 2021)
- 1.8 years for multi-family units (up from 1.7) – note redevelopment extends this timeframe.
Because this analysis is more complete than that conducted last year, the decrease in the supply
of vacant single-family and duplex lots points to an even larger deficit than previously understood.
March 15, 2023
Page 5
Discussion:
The year 2022 marks one of the lowest levels of residential lot creation in at least 30 years,
especially as it relates to single-family lots. It also reflects broader trends such as building permit
activity outpacing the creation of new lots. This has resulted in a diminishing lot supply which is
not meeting the demand. Ripple effects include increased competition for a limited supply of
residential lots, which can increase lot prices. Despite this, the number of dwelling units developed
has increased over the past 30 years, primarily due to multi-family redevelopment which does not
depend as heavily on the creation of new lots.
Looking forward, the Metropolitan Planning Organization of Johnson County (MPO) projects a
demand for 10,240 new residents in Iowa City by 2030. However, if recent trends continue through
2030, the City would only be able to accommodate new population as follows:
- 2,626 new residents based on the development of all vacant residential lots
(in 394 single-family units, 24 duplex units, and 765 multi-family units); or
- 3,189 new residents based on average annual residential lot creation trends from 2020
through 2022 (in 463 single-family units, 40 duplex units, and 933 multi-family units); or
- 6,297 new residents based on average annual building permit trends from 2020 through
2022 (in 1,083 single-family, 53 duplex, and 1,700 multi-family dwelling units)
Based on the most optimistic scenario, the City stills need to develop and build out all currently
platted vacant lots, and add lots accommodating an additional 689 single-family, 30 duplex, and
935 multi-family dwelling units over the next 7 years. This would still only accommodate 61% of
the projected demand for new housing and would leave the City with no available lots for the next
decade. To meet the full demand projected by the MPO, the City would need to construct
approximately 3,430 dwelling units, on top of developing all existing vacant lots. Staff anticipates
the completion of several final plat and redevelopment applications this year which will help next
year’s outlook. However, these trends continue to highlight a significant deficit.
If Iowa City cannot meet its demand for housing, it may see slower population growth along with
other repercussions. First, excess demand may locate in nearby cities, such as Tiffin or North
Liberty, which have seen a proliferation of new residential lots. This can create negative
environmental impacts as homes shift further from employment centers and car dependence and
traffic congestion increases. Other impacts include rising housing prices - when supply cannot
meet the demand for housing, Iowa City becomes less affordable. Regardless of the cost when
built, new homes are needed to help the City meet its demand for housing to achieve affordability.
Accommodating new residential growth is a fundamental aspect of planning for the future of Iowa
City. Staff believes it is important to continue to encourage residential growth in areas that have
access to City services, such as in infill locations, as well as in the City’s designated growth areas
which are anticipated to become part of the City in the future.
Attachments:
1. Residential Lots Subdivided by Housing Type (in Anticipated Dwelling Units), 1990-2022
2. Residential Building Permits Issued by Housing Type (in Dwelling Units), 1990-2022
Attachment 1: Residential Lots Subdivided by Housing Type (in Anticipated Dwelling Units), 1990-2022
1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Multi-Family 194 0 44 22 20 4 262 28 89 434 118 233 54 413 117 169 11 142 31 0 60 64 209 76 7 144 98 279 206 204 108 32 140
Duplex 12 0 40 6 22 116 8 0 0 0 2 0 24 26 4 0 0 8 6 0 0 0 16 0 2 18 0 14 12 0 0 12 0
Single-Family 75 264 167 359 205 49 89 110 46 174 92 63 281 108 300 193 173 77 65 81 0 79 111 154 254 259 169 31 105 79 56 65 18
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Attachment 2: Residential Building Permits Issued by Housing Type (in Dwelling Units), 1990-2022
1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Mixed Use*17 82 45 42 56 0 16 51 100 27 37 47 340 150 169 59 0 40 0
Multi-Family 203 140 312 235 335 166 218 185 97 152 267 310 402 486 220 141 138 83 85 71 80 76 140 488 218 499 556 203 163 417 49 155 266
Duplex 2 10 12 20 28 16 28 26 32 44 26 34 34 60 52 62 18 26 16 10 8 18 16 8 14 6 12 8 10 8 8 6 2
Single-Family 136 143 214 223 206 149 90 110 154 209 139 129 148 193 149 160 137 133 114 127 108 80 143 171 176 137 172 157 109 80 97 133 95
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* not collected prior to 2004
FAIR HOUSING CHOICE STUDY
2019 Analysis of Impediments to Fair Housing Choice
Neighborhood & Development Services
410 E. Washington Street, Iowa City, IA 52240
Adopted August 20, 2019
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Chapter 5: Impediments & Recommendations
This Chapter analyzes factors that create, contribute to, perpetuate, and increase the severity of fair
housing issues. Identifying contributing factors is important in assessing why members of protected
classes may experience restricted housing choice due to various reasons including, but not limited to,
segregation, disparities in access to opportunity, disproportionate housing needs, or ot her issues. Some
contributing factors are outside of the ability of the City to control or influence; however, such factors
should still be identified and recognized.
After discussing and identifying barriers to fair housing choice in Iowa City, it is important to lay out
strategies to overcome those barriers. These strategies can then be prioritized and incorporated into
subsequent planning processes such as the Consolidated Plan. Ultimately, the City is responsible for
taking meaningful actions to move towards completing the strategies identified. Meaningful actions
are designed and can be reasonably expected to achieve a material positive change that affirmatively
furthers fair housing by, for example, increasing fair housing choice or decreasing dispar ities in access
to opportunity.
The City of Iowa City is committed to providing fair housing choices for all its residents. The City Code
has a broad definition of discriminatory behavior, an inclusive definition of protected classes, and is
clear in its lack of tolerance for discriminatory behavior in the housing market. The City’s
Comprehensive Plan envisions a city with a variety of housing options for the city’s diverse population.
The City’s Zoning Ordinance allows for construction of a variety of housing types at difference price
points. And the City’s Building Code does not impose conditions that could restrict fair housing choice
for protected classes. However, policies and practices can be improved upon and the City can take
additional steps to assure that all protected classes have fair access to housing in Iowa City. These
identified impediments to fair housing choice and some strategies to address them comprise the rest of
this Chapter.
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1: Improving Housing Choice
One of the primary barriers identified is the lack of adequate housing choices throughout
neighborhoods in Iowa City for residents with protected characteristics, who tend to have
disproportionately lower incomes. This includes a lack of availability in addition to d iversity in price
points, housing types, and locations that would facilitate equal access to housing across the City. While
many low-income households in Iowa City are nonfamily student renters, 21% are small families
(including single parents) and 15% are elderly. 31% of low-income households have a member with a
disability. Many are people of color. Large families face additional challenges in finding appropriate
units with the proper price points. Coupled with the City’s expensive housing, this has nega tively
impacted fair housing choice within Iowa City.
Ensuring a diversity of affordable housing is available in a range of locations and types to promote fair
housing choice, especially in areas that promote access to opportunity. This means encouraging the
provision of affordable housing for households of all types in Iowa City, including larger units for
families with children, smaller accessible units with supportive services for the elderly and persons
with disabilities, and adequate housing for students. When considering housing choice, transportation,
supportive services, school quality, and other important factors must also be considered. The City
should continue to support and encourage a diversity of housing types in areas of opportun ity. The
following strategies assist in addressing this impediment to fair housing choice:
Strategy 1: Facilitate a Range of Housing Types
One strategy to overcome this barrier is to allow a wider variety of development types in areas
throughout the community. Since most areas are zoned for low density, single family homes, this will
require exploring ways to increase the density and the types of housing allowable in order to further
fair housing goals. This strategy includes promotion of more types of housing in more varied locations,
which also facilitates the creation of housing units at different price points within neighborhoods.
Many non-single family residential developments require rezonings to increase density. The City can
proactively increase the amount of land available for development by-right for higher densities, as
encouraged by the Comprehensive Plan along major arterials, intersections, and commercial centers.
This may be especially helpful where undeveloped land is zoned for single family and would allow a
variety of housing types as the land is developed . Staff could proactively look for areas intended for
higher densities and initiate a rezoning with the City as the applicant.
Eliminating the distinction between single family and multi -family residential zoning districts would
have a similar effect, thereby regulating by density rather than type of housing. Similarly, the City
could make flexible zoning arrangements, such as OPD overlays, provisional rather than negotiated.
This would encourage its use while simultaneously promoting a range of housing.
Another way to increase housing variety is to remove restrictions on housing sizes for units that are not
detached single family units (i.e. attached single family, duplex, and multi-family dwellings).
Specifically, the code places a bedroom cap on these types of units, which may negatively affect the
ability of certain protected classes to find appropriate units, such as large families. The City should
explore expanding the number of bedrooms from three to four in multi-family units and consider when
this would be allowed to better accommodate larger families throughout the City. While this does not
necessarily change the type of housing, it does allow a greater diversity of units within a specific type
of housing.
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Strategy 2: Lower the Cost of Housing
In addition to facilitating a wider range of housing types throughout Iowa City, reducing the cost of
housing can also help ensure more varied price points, especially in the more affordable rental and
owner markets. The City is already in the process of working with the Home Builders Association to
explore ways of reducing costs through modifications to the zoning and development codes.
One way to lower the cost of housing is to evaluate building and housing permit fees and their effects
on housing costs. Given that these fees have a higher relative impact on lower cost units, it is
recommended that the City explore reducing or waiving fees for properties which are operated for
affordable housing by non-profit housing organizations to offset negative disproportionate impacts. This
could be used for properties in the private market receiving City assistance for a period of time for
affordable housing as well.
It may also be possible to use property tax policies to lower the cost of housing. While there are
already several such programs for the most vulnerable populations, including seniors, persons with
disabilities, and affordable rental housing providers, broadening property tax relief could further help
preserve lower-income homeownership opportunities for the more than 4,000 low income homeowners
in the City. For example, tax exemption policies could be used to increase the affordability of housing.
The ongoing viability of the existing housing stock becomes increasingly important as the cost of new
housing continues to rise. Continued improvement and maintenance of the current stock is vital.
Efforts towards energy conservation can also reduce heating and cooling costs when rehabilitating older
homes. All these factors can help lower the cost of housing.
Due to the number of student households in the community, the City should explore ways to increase
affordability and housing choice for this demographic. Incentives for housing programs should remain
available for students from low income families and students who are financially independent.
Strategy 3: Continue investment in affordable housing
There is a growing gap in the number of affordable homes for those with lower incomes. C ontinuing
affordable housing activities is crucial to creating a variety of housing types and price points within the
community. This can include new construction, acquisition, and rehabi litation of rental and owner
properties. These provide a valuable opportunity to improve housing choice for members of the
protected classes who are often low- and moderate-income households. This also includes leveraging
City funds to obtain additional affordable housing investment in the community through LIHTC or other
programs that assist with the construction of affordable housing opportunities. Assisting renters’
transition to homeownership, in certain cases, may also help stabilize housing payments t hrough fixed
rate mortgages in a market experiencing increasing rental rates.
Strategy 4: Retrofit Housing for Equal Access
In some cases, appropriate units are not be available, especially for those with disabilities. In such
cases, it becomes important to allow owners and renters to make housing units accessible so that they
have an equal opportunity to use and enjoy a dwelling. Access may include physical access for
individuals with different types of disabilities. For example, installing ramps and other accessibility
features for individuals with mobility impairments, visual alarms and signals for individuals who are
deaf or hard of hearing, and audio signals, accessible signage, and other accessibility features for
individuals who are blind or have low vision. To facilitate this need, the City should adopt a
Reasonable Accommodation or Modification procedure to their zoning ordinances and other policies.
This would allow persons with disabilities to request a reasonable accommodation/modification to
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regulatory provisions, including land use and zoning requirements to facilitate the retrofitting of
existing housing.
In addition, because many low-income households are elderly and/or disabled, continuing to provide
assistance to allow those households to age in place is also important, as is continuing to invest in their
housing to ensure it remains safe, decent and affordable .
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2: Facilitating Access to Opportunity
Housing that affords access to opportunities, such as high-performing schools, public transportation,
employment centers, low poverty, and environmentally healthy neighborhoods may be cost prohibitive
or non-existent for persons in certain protected classes, especially for those with lower incomes. High
costs can have a greater effect on families with children who need multiple bedrooms and individuals
with disabilities who need accessible housing or housing located close to accessible transportation.
Currently, Iowa City appears to have some disparate access to opportunity, especially when it comes to
access to jobs and other quality of life factors such as affordable childcare.
The geographic relationship of employment centers, housing, and schools, and the transportation
linkages between them, are important components of fair housing choice. The quality of schools and
economic opportunities are often major factors in deciding where to live. Job and school quality are
also key components of economic mobility. Ensuring affordable units are available in a range of sizes,
locations, and types is essential to providing equal access to opportunities by meeting the needs of
individuals with protected characteristics. In Iowa City, ensuring the availability and accessibility of a
variety of jobs and training opportunities, is also vital. In addition, affordable childcare should be
available and close to a range of housing opportunities, and facilities should be fully accessible to
individuals with different types of disabilities to avoid further barriers.
As such, siting as it relates to the placement of new housing developments, especially those that are
affordable, becomes crucial. This includes new construction or acquisition with rehabilitation of
previously unsubsidized housing. Local policies and decisions significantly affect the location of new
housing. In addition, the availability, type, frequency, and reliability of public transportation including
buses and paratransit for persons with disabilities also affect which households are connected to
community assets and economic opportunities. As such, it is important to connect individuals to places
they need to go such as jobs, schools, retail establishments, and healthcare.
This study proposes a balanced approach to address disparities in access to provide for both strategic
investment in areas that lack key opportunity indicators, while opening housing opportunities in areas
with existing opportunity through effective mobility options and the preservation and development of a
variety of housing in high opportunity areas. Several strategies can assist in addressing this impediment
to fair housing choice:
Strategy 1: Emphasize Variety in Housing in Areas of Opportunity
Areas of opportunity are places where jobs are relatively plentiful and access to education, healthcare,
and other amenities is close at hand. Iowa City generally ranks highly when it comes to quality of life.
However, some areas of town have less access to opportunity as identified w ithin this Study, especially
as it relates to affordable childcare and job access. Analysis suggests there are some discrepancies in
services and access to opportunity by race, income, and area. To some extent, this is likely due to
clustering of racial and ethnic groups. All protected classes should have an equal opportunity to live
throughout Iowa City. Increasing housing variety for a range of household types and price points, in
areas with affordable childcare and near job centers is one way to achieve fair housing choice while
improving access to opportunities. This strategy complements those related to increasing the variety of
available types and prices of housing.
The placement of the City’s subsidized housing is governed by the Affordable Housing Lo cation Model
(AHLM). The model serves to not place additional subsidized housing in areas that already have a
concentration of City-assisted housing and lower incomes as determined by elementary school
catchment areas. The model does not apply to housing for persons with disabilities, seniors, the
rehabilitation of existing rental housing or for homeownership. The AHLM does not necessarily promote
greater variety of price points in areas of opportunity. As such, the City could explore ways to use the
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model or another policy to promote city-assisted housing in low poverty neighborhoods or
neighborhoods that provide good access to opportunity.
The goal of fair housing choice is to provide sufficient, comparable opportunities for housing for all
types of households in a variety of income ranges. Comparable units should have the same household
(elderly, disabled, family, large family) and tenure (owner/renter) type; have similar rents/prices;
serve the same income group; in the same housing market; and in standar d condition. The goal is not
to necessarily have an equal number of assisted units within each neighborhood, but rather that a
reasonable distribution of assisted units should be produced each year to approach an appropriate
balance of housing choices within and outside neighborhoods over several years. An appropriate
balance should be based on local conditions affecting the range of housing choices available for
different types of households as they relate to the mix of the City’s population.
Strategy 2: Community Investment
It is recommended that the City pursue additional investment in neighborhoods with higher
concentrations of low income families, especially those with concentrations of persons with protected
characteristics, to improve the quality of life for existing residents. This may include a range of
activities such as improving housing, attracting private investment, creating jobs, expanding
educational opportunities, and providing links to other community assets. The quality and maintenance
of housing is especially important to community investment as survey respondents rank it as one of the
factors that varies most widely between areas of the City.
As a result, the City should continue targeted investment in infrastructure, ameniti es, community
facilities, and public services serving lower income households and in low income areas. Amenities such
as recreational facilities, grocery stores, pharmacies, and banks are especially important in maintaining
a higher quality of life. Housing rehabilitation is also important in maintaining the housing stock and
appearance, while new construction in areas that have not received as much recent investment can
also be beneficial. Special attention should be given to investments that increase access to housing or
that lower housing costs generally, such as energy efficiency improvements. Economic development
support near low-income neighborhoods also can create jobs, increase wages, and increase access to
amenities. This strategy in conjunction with providing a diversity of housing types in all new
neighborhoods creates opportunities of access throughout the City.
Preserving the City’s existing affordable housing is also important as part of a balanced approach to
affirmatively further fair housing. This can include funding and indirect subsidies for rehabilitation to
maintain physical structures, refinancing, affordable use agreements, and incentives for owners to
maintain affordability. Similarly, efforts to repair and maintain the infrastructure of existing affordable
housing should be part of concerted housing preservation and community investment effort.
The City should continue encouraging private investment to advance fair housing from homeowners,
developers, and other nonprofit or business initiatives. Securing financial resources (public, for-profit,
and nonprofit) from sources inside and outside the City to fund housing improvements, community
facilities and services, and business opportunities in neighborhoods will help ensure access to
opportunities for all residents.
Strategy 3: Enhance Mobility Linkages Throughout the Community
Non-automotive transportation is an important part of ensuring equal access from housing to jobs and
other amenities in Iowa City. Transportation improvements could significantly improve access to
opportunity for employment and other services and amenities for those who rely on public or active
transportation. This complements policies to increase the range of housing opportunities near
opportunity and employment areas which can reduce spending on transportation-related expenses.
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Strategies to enhance both active and public transportation linkages may include improved
coordination with service providers, expansion of active and public transportation to provide ac cess to
jobs through improved infrastructure, providing late night/ weekend service, or ensuring adequate
coverage to assist with access to opportunities. Investment across the City can also include improved
transit facilities and equipment, including bus shelters, and expanded bicycle and pedestrian facilities.
Prioritizing ADA access is especially important to further fair housing purposes.
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3: Increasing Education and Outreach
Based on public input, many residents of Iowa City lack awareness about rights under fair housing and
civil rights laws, which can lead to under-reporting of discrimination, failure to take advantage of
remedies under the law, and the continuation of discriminatory practices. Even those who do know
their rights do not always act on them due to feeling it would not be productive or fear of reprisal. This
suggests a lack of knowledge and awareness regarding fair housing rights is a major barrier to fair
housing choice.
Ensuring access to information about housing programs and neighbo rhoods can also facilitate fair
housing goals. This is because individuals and families attempting to move to a neighborhood of their
choice, especially areas of opportunity, may not be aware of potential assistance or support. In those
cases, having quality information related to housing and affordability, available services, and
organizations that serve potential tenants, can help those moves be successful. Other relevant info
may include listings of affordable housing opportunities or local landlords; mobility counseling
programs; and community outreach to potential beneficiaries.
Several strategies can assist in addressing this impediment to fair housing choice.
Strategy 1: Improve Demand-Side Awareness
The demand-side of the housing market includes tenants, homeowners, borrowers, mobile home park
residents, and other who need and/or use housing. Generally, these groups do not have any formal
training or education regarding their fair housing rights, nor are they formally organized in most cases.
This makes it important to raise awareness through advocacy campaigns, education and outreach
activities geared toward the general public, and fair housing informational materials for both
homebuyers and tenants. Housing Choice Voucher (HCV) holders should especially be informed of their
rights, including the right to be free from discrimination based on source of income. In addition to fair
housing rights, this should include how to report violations of those rights.
It is recommended that the City explore the development of new outreach, education, or informational
programs and activities to promote housing opportunities for segments of the community such as
persons of color, those not as fluent in English, and for the elderly and persons with disabilities. This
should be done in cooperation with other organizations working on furthering fair housing. Ideally, this
will increase knowledge of the laws, reduce discriminatory behavior, achieve a better understanding,
and reduce negative attitudes concerning people who are racially, ethnically, and culturally diverse or
who are disabled. A comprehensive program would help ensure that there is broad knowledge of legal
protections for all residents.
Beyond fair housing information, providing more generalized information about housing can be
beneficial. For example, information for tenants about leasing can improve rental outcomes and
homebuyer education can help those less familiar with homeownership, such as long-term renters,
overcome challenges as first time homebuyer. Those new to the HCV program can also benefit from
additional information about facilities and services available in each neighborhood to assist them with
their housing search. This may encourage voucher holders to look for housing in neighborhoods with
more access to opportunity. This information can also assist residents moving from high -poverty to low-
poverty neighborhoods that have greater access to opportunity assets appropriate for their family.
It is important that information is comprehensive (e.g. that the information provided includes a variety
of neighborhoods, including those with access to opportunity indicators) and up -to-date (e.g. that the
information is actively being maintained, updated and improved). The information should also alleviate
fears of retaliation and should showcase the process and concrete outcomes to address those who
“didn’t know what good it would do” to report discrimination.
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Strategy 2: Increase Supply-Side Awareness
The supply-side of housing includes lenders, appraisers, mortgage insurers, realtors, landlords, and
management companies. Unlike the demand-side, these groups are often provided formal training
regarding fair housing rights through industry groups or employee training. As such, they require less
guidance than the demand-side of housing. However, it is still important that they understand fair
housing rights and responsibilities as well, especially small landlords or others who may be less formally
integrated within the industry. As such, technical training for housing industry representatives remains
an important component of the City’s efforts to affirmatively further fair housing in the communit y.
In addition to general fair housing rights, those on the supply -side of housing should also be made
aware of best practices and efforts to affirmatively further fair housing through equity, inclusion,
fairness, and justice. This could involve providing education regarding marketing in targeted
neighborhoods or for protected classes and encouraging advocacy groups to share opportunities for
their products and services. Similarly, additional technical training regarding civil rights may include
fair housing issues such as the appropriate application of arrest and criminal conviction records, credit
policies, prior evictions, leasing and lease termination decision making; and fair housing issues
affecting LGBTQ individuals. Pro-active outreach can widen the pool of participating rental housing
providers, including both owners of individual residences and larger rental management companies.
Meanwhile, the City should encourage these groups to regularly examine and update their policies,
procedures, and practices to avoid differential treatment of residents and applicants based on
protected characteristics. Similarly, supply-side providers should also be encouraged to examine their
clientele profiles to determine whether there are neighborhoods or groups that are underrepresented
or unrepresented. Doing so will help supply-side providers to go beyond just understanding fair housing
issues towards meaningfully furthering fair housing.
Strategy 3: Increase Regulator Awareness
The City must ensure those who make decisions regarding public policies and regulations, including
public officials, Commission and Board members, and staff, have adequate fair housing training. While
this will further fair housing, it may also help inspire confidence in the City’s processes. In addition to
general training, one potential method of educating decision -makers would be to train them as fair
housing ambassadors who can then help spread the word about fair housing to both demand - and
supply-side groups.
Strategy 4: Provide meaningful language access
Individuals with limited English proficiency (LEP) includes anyone who does not speak English as their
primary language and who has a limited ability to read, write, speak, or understand English. Often, t his
is tied to foreign-born populations who may not understand English. Increasing meaningful language
access regarding fair housing information and housing programs would facilitate housing choice for LEP
individuals seeking housing. It is important that housing providers and policy makers ensure that all
individuals have access to information regarding fair and affordable housing, regardless of language. In
Iowa City, this is particularly salient due to the higher prevalence of foreign-born populations.
Relevant City departments maintain Limited English Proficiency (LEP) plans to ensure equal access to
knowledge of fair housing and housing assistance. However, the LEP plan likely needs to be updated,
especially as the number of foreign-born residents has rapidly grown in recent years. In addition, the
City should explore what housing documents are most important to translate to achieve a better
understanding of fair housing choice by LEP speakers and to improve communication through language
access.
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4: Operational Improvements
Several other barriers to fair housing choice in Iowa City included smaller operational and planning
changes that could help affirmatively further fair housing. These include impediments such as
administrative processes and regulations which can slow down and/or stop projects that would benefit
protected classes, a need for increased regional cooperation for issues that affect housing, a lack of
information that could help identify or address other barriers, and a need to improve the transparency
of fair housing enforcement. Most of these barriers can be addressed through operational
improvements at the City level, though accomplishing in cooperation with others may improve their
effectiveness.
Strategy 1: Improve Fair Housing Enforcement and Transparency
In addition to ensuring awareness of fair housing rights and process, the City needs to improve
enforcement and increase transparency in the process, so the public can be aware that complainants
obtain relief in a timely and effective manner. Doing so would fight feelings of helplessness and
provide certainty to complainants that filing a report helps combat fair housing violations. This may
include actively monitoring the outcomes of complaints, in addition to making fair housing complaint
information more easily visible to the public.
Fair housing testing may also assist with transparency and fair housing enforcement. Doing so allows
the City to identify whether landlords or realtors, and others involved in the housing market are
abiding by fair housing laws. In addition, these tests help the City to better identify and target fair
housing outreach.
Strategy 2: Review implementing procedures and regulations
The City has several new programs, administered by various staff and departments, with various rules
that can be confusing to understand, implement and enforce. This problem is exacerbated when the
program is combined with federal programs that have rigid, complex rules. This creates a challenging
regulatory environment, especially for affordable housing and public service programs. As such, t here
are opportunities to harmonize, coordinate, streamline, and define administration and planning.
Possibilities include centralizing processes for affordable housing and ensuring they are online;
reducing uncertainty for service providers in allocating funds; and harmonizing rules between
programs.
Similarly, the zoning ordinance has been updated in fragmented ways since its initial adoption. While it
generally accommodates the City’s fair housing goals, codes frequently updated can indicate a
need for a comprehensive reevaluation. This is a long -term effort. In the meantime, incremental
improvements can make the code easier to follow yet still comprehensive and flexible. One simple
change is to reclassify community service – long term shelter as a multi-family/mixed use, since it
is a long-term residence rather than a public service shelter use. Another similar chan ge is to
clarify the definition of nonfamily households; the current City definition is a holdover from before
the State modified law to prohibit regulating use based on familial characteristics .
In addition, administrative procedures may better promote fair housing choice as compared to some
decision-making processes. Updating administrative policies and practices may help support Council
objectives in ways that produce more impartial, predictable outcomes. The City should promote funds
to organizations committed to affordable housing and who have the capacity to administer long term
housing projects. Agencies receiving funds should have the capacity to administer the project for the
entire compliance period while enhancing fair housing. By doing so, the City increases the likelihood of
maintaining the units as affordable housing after City and federal restrictions are released.
181
181
Regardless, all changes to administrative, zoning, or other public policies and practices should be
preemptively evaluated through the lens of fair housing. This is also true as new policy continues to
develop, including potential changes to the housing and zoning following the State’s disallowing the
use of a rental permit cap.
Strategy 3: Improve regional cooperation
Regional cooperation includes networks or coalitions of organizations, people, and entities working
together to plan for regional development. Cooperation in regional planning can help coordinate
responses to identified fair housing issues that cross multiple sectors—including housing, education,
transportation, and commercial and economic development—and multiple political and geographic
boundaries. As such, encouraging regional cooperation can further fair housing not only for Iowa City,
but the entire region. This was also mentioned as a need in many stakeholder meetings.
While the City and surrounding jurisdictions cooperate through regional transportation planning and
through the Fringe Area Agreement, there are still additional opportunities to better coordinate
housing and fair housing planning on a regional level. Projecting development and demand for different
types of housing and price points is one way to approach the issue. Doing so can start a d iscussion
about how to facilitate housing choice in each of the communities. Communication between staff can
also facilitate coordination between jurisdictions.
Strategy 4: Improved Data Collection
Another impediment is the need for increased data, analysis and reporting. While improving data
collection and analysis does not directly overcome a barrier to fair housing choice, it will help identify
potential barriers in the future. All of these can also be paired with equity mapping to identify areas of
opportunity using factors relevant to fair housing choice.
Currently, many of the City’s local housing programs do not require the same level of tracking and
reporting regarding protected characteristics of beneficiaries as federal programs. As part of its annual
monitoring of these projects, the City should begin tracking and reporting the race, ethnicity, and
other protected characteristics of beneficiaries to allow finer levels of analysis and reporting regarding
fair housing choice. This will also allow better measurement regarding the extent to which policy and
practice changes are impacting outcomes and reducing disparities.
In addition, the City should regularly monitor HMDA reports of financial i nstitutions and obtain
information on the location of properties that are the subject of loan applications . HMDA data can be
used to develop policies to act upon this information such as incentivizing banks with good
performance records by only depositing public funds in banks that meet threshold scores. Similarly,
location information can help the City guide lender education activities to promote fair housing.
Finally, ICHA should regularly analyze its beneficiary and waitlist data to ensure its preferences do not
have a disparate impact on those in protected classes and that it is serving the people most in need as
determined by the City’s Consolidated Plan. As part of this, ICHA should periodically update an equity
analysis to identify if any disparate impacts are identified.
2022
Iowa City
Affordable
H ousing
ACTION
PLAN
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 28
AFFORDABLE HOUSING PRIORITIES/GOALS
The City Council’s Strategic Plan objectives include fostering healthy neighborhoods and affordable
housing throughout the City. The City strives to do this through:
1. Investing City and federal CDBG/HOME funds to create and/or preserve affordable homes, both
rental and owner-occupied housing throughout the City;
2. Supporting our most vulnerable residents, especially those experiencing homelessness or at risk
of homelessness, maintain safe, affordable housing;
3. Ensuring equitable growth for all Iowa City residents and minimizing displacement; and
4. Supporting innovation in housing and streamlining processes.
2022 AFFORDABLE HOUSING RECOMMENDATIONS
The City has broad powers to support affordable housing through various requirements and funding
mechanisms. The City is willing to pursue courses of action to support affordable housing, except when
legally prohibited. For example, in the state of Iowa, cities cannot institute rent control. Cities are also
preempted by state law from regulating the provisions in a lease between a landlord and a tenant.
In 2016 the City of Iowa City adopted an ordinance to protect source of income. The measure prohibited
landlords from rejecting housing applicants based solely on their use of housing vouchers or other rental
subsidies. The purpose of the Iowa City Human Rights ordinance amendment was to reduce housing
discrimination and give all tenants the same consideration for housing. In 2021 the state prohibited
cities from passing or enforcing “source of income” ordinances. Any city who adopted a source of
income protection may not enforce it after January 1, 2023.
The City will continue to work with our various partners to support and encourage affordable housing
with the mechanisms and funding sources available to municipalities in Iowa.
The Committee’s recommendations for City Council consideration are broken down into three sections:
Recommendations for existing policies and programs, recommendations for development regulations
and recommendations for programs or policies based on household income.
Existing Policies and Programs
The Affordable Housing Steering Committee reviewed the City’s current policies and programs. Most
programs were found to be effectively increasing or preserving the supply of affordable housing;
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 29
however, six recommendations were made to either enhance or make the policy or program more
effective.
1. Affordable Housing Location Model
The model currently aims to distribute subsidized affordable housing more evenly throughout the
community and avoid overconcentration in any one neighborhood. While the intent of the model is a
worthy goal, the model can restrict supply for much needed affordable housing projects. The committee
recommends shifting from a restrictive model to one that incentivizes or prioritizes affordable housing
projects in all neighborhoods, especially those neighborhoods with a lack of affordable housing options
but does not go so far as to restrict supply of potential locations.
If the model is discontinued, it is recommended that there be close monitoring of changes in affordable
housing locations within the community. Achieving mixed-income neighborhoods throughout the City
should continue to be an overall goal.
Recommendation: Discontinue Affordable Housing Location Model and consider incentives or
prioritization policies that encourages affordable housing in all neighborhoods.
2. Housing and Community Development Commission (HCDC) Funding Allocation Process
The Committee observed that the current funding process for housing projects does not involve detailed
staff analysis of applications. Staff have years of professional experience and often understand the
funding sources and regulatory environment much more comprehensively than volunteer
commissioners. The Committee recommends that the funding process be restructured to ensure staff
scoring recommendations are provided upfront to the HCDC. Their recommendations should be
considered during the review process to ensure the City is supporting viable, federally compliant
projects that meet the City’s priorities for the entire length of the required affordability period.
Ultimately, the HCDC can still make alternate recommendations to the City Council but the process will
be enhanced by inviting this input from the outset.
Furthermore, policy should be developed upfront as to how funds will be allocated to further improve
transparency in decision-making (e.g., full funding to top-rated applications, or applications will be pro-
rated, or partial funding to applicants based on scores, etc.). The Commission’s final review and ranking
should be based on objective and established criteria, priorities, and data. Discrepancies with staff
scores should be included in the final recommendations to the City Council.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 30
Recommendation: 1) Require staff analysis and funding recommendations before HCDC review; and 2)
Further define how funds will be allocated to improve transparency (e.g. full funding for top-rated
applications, partial funding based on scores, etc.)
3. Affordable Housing Fund Distribution
The overall funding should be increased with consideration given to the budget with a goal of a 3%
increase each year.
Allow for greater flexibility in targeted use of funds, for example:
o Prioritize deeply affordable housing (0-30%) but do not restrict to only those at that
income.
o Include Low Income Housing Tax Credit (LIHTC) funding with the Housing Trust Fund of
Johnson County (HTFJC) allocation. However, set as a preferred use but not
restricted/required. If funding is awarded to a LIHTC project and the project does not
get funding from the Iowa Finance Authority (IFA), allow HTFJC to withdraw the award
and make those funds available for general applications rather than waiting for the next
LIHTC cycle.
Maintain Security Deposit Assistance and implement a Risk Mitigation Fund. Typically, Risk
Mitigation Funds cover landlord losses, up to a certain value, but may also include a connection
to resources such as tenant/landlord education, credit repair, etc. to increase rental
opportunities for households who have difficulty finding a landlord who will accept them due to
criminal history, bad credit, bad landlord references, and/or a prior eviction history.
Increase marketing and communications of availability of the different funds.
Periodically review (every 5 years as part of the Consolidated Plan for Housing, Jobs and Services
for Low-Income Residents) the affordable housing fund distribution to ensure the set-asides
produce/contribute to the desired policy outcomes.
Prioritize partnerships with not-for-profit affordable housing developers to preserve affordable
units as their mission is centric to preserving affordability.
Recommendation: 1) Allocate funds to the Affordable Housing fund with a goal of a 3% annual
increase; 2) Include the LIHTC reservation with the HTFJC allocation. If no LIHTC projects apply during
the annual allocation or if an approved LIHTC project does not get IFA funding, allow the HTFJC to
make those funds available for general applications; 3) Implement the Risk Mitigation Fund; and 4)
Enact policy that prioritizes partnerships with not-for-profit affordable housing
developers/organizations to preserve affordable housing units.
4. Support of Non-Profit Housing Provider Capacity
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 31
Typically, developers receive a developer fee to build or rehabilitate housing projects. This fee is only
received if a project is funded. Funds, including operational funds and developer fees, should be
provided on a regular basis to non-profit affordable housing providers who build and/or rehabilitate
residential housing as long-term investments to build the capacity of local providers. This could include
technical assistance in various areas such as housing finance, market analysis, legal issues, property
management, green and/or sustainable building practices and affordable housing design.
Financial assistance for architectural and engineering expenses for the development of multi-family
affordable development, outside of LIHTC projects, is needed to support the development of
townhomes, small apartment buildings, and the rehabilitation of existing multi-family developments.
The City should increase access by non-profit affordable housing developers to various funding
opportunities to incorporate green or sustainable housing practices.
Recommendation: Allow non-profit affordable housing developers who build or rehabilitate
residential housing to apply for additional funds to support ongoing operations; and 2) Allow
developers of affordable housing to apply for technical assistance needs from a variety of City
programs, including but not limited to, the Affordable Housing Opportunity Fund and Climate Action
grants.
5. Annexation Policy
The current policy has only applied to one annexation and thus drawing conclusions is difficult. Staff and
some committee members have concerns about the cost implications and viability of requiring
permanent affordable housing or greater percentages and compliance periods. This is particularly a
concern in a regional housing market where outlying communities that are experiencing robust growth
do not have similar policies. Too stringent requirements could have an unintended impact of pushing
development into other jurisdictions and thus forgoing any affordable housing requirements and
constraining supply in Iowa City.
The Committee does believe that permanent affordable housing achieved through dedication of lots to
the City or a non-profit housing provider is a goal that should be vigorously pursued with future
annexations. If needed, the City should consider contributing funding or exploring unique partnerships
such as tax increment financing or tax abatement to achieve the goal of permanent affordable housing
in new residential annexations.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 32
Recommendation: Encourage, but not mandate permanent affordable housing in new residential
annexations. With future annexations explore partnerships and funding opportunities to secure
permanent affordability when possible.
6. General Education
Increase efforts to educate all tenants about tenant rights and responsibilities and how to address
housing code problems, perceived discrimination, or other matters most effectively.
Recommendation: Increase efforts to educate all tenants about tenant rights and responsibilities and
how to address housing issues.
Development Regulations
Development regulation is an umbrella term for rules that govern land development. At the local level,
zoning is the way the government controls the physical development of land and the kinds of uses to
which each individual property may be put. This includes the use, size, height, and design of buildings,
and historic preservation requirements. These regulations are contained in the Code of Ordinances of
the City of Iowa City as laws adopted by the City’s Legislative body the Iowa City Council.
The following are recommended changes to the current land-development regulations to increase the
diversity and supply of housing throughout the City:
1. Increase the allowable number and/or type of dwelling units in zoning districts previously limited
to only free-standing single-family dwellings.
For example:
In Single-Family zoning districts, expand by-right building allowances to permit attached
single-family dwellings, such as duplexes and zero-lot line structures, in more locations.
Allow accessory dwelling units in more circumstances and locations. To support student
housing, consider ADU’s associated with rental housing (expand from owner-occupied).
Increase the allowable number of bedrooms per dwelling (duplex and attached single-
family).
2. Facilitate multi-family dwelling development.
For example:
Continue to look for opportunities to purchase land for future resale/development.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 33
Conduct a City-initiated rezoning to allow multi-family housing or mixed use in areas
supported by the Comprehensive Plan and served by transit.
Reduce the minimum amount of land needed to qualify for a planned overlay
district/planned development.
3. Increase the allowable number of bedrooms per dwelling in multi-family dwellings outside of the
University Impact Area.
Various state and federal housing programs incentivize housing developments that include units
with more than three bedrooms to accommodate large families. Allow larger bedroom sizes to
accommodate local, state and federal funding parameters.
4. Create Form Based Code regulations for additional neighborhoods, focusing on growth areas first
and then infill locations.
Recommendation: 1) Increase the allowable number and/or type of dwelling unit in single family
zoning districts by right in more locations. Examples include ADUs, duplexes and zero-lot line
structures. 2) Increase the allowable number of bedrooms in duplex and zero-lot line structures in
single family zoning districts; 3) Facilitate multi-family development by purchasing land to be
developed; 4) Conduct a City initiated rezoning to allow multi-family housing or mixed use in areas
supported by the Comprehensive Plan; 5) Allow multi-family units with more than three bedrooms
when required to meet local, state or federal affordable housing funding parameters such as the LIHTC
program; 6) Encourage infill development flexibility by reducing the minimum amount to land eligible
to apply for a planned overlay zoning; and 7) Create form based code regulations for additional
neighborhoods, focusing on growth areas first and then infill locations.
Programs and Policies Based on Household Income
If additional funding is made available, the priority should be on housing for those with the lowest
income. In recognizing housing is needed to support a healthy housing market and there needs to be
housing options for all incomes and ages throughout the City, recommendations are made for housing
for households up to 100% of area median income.
0-30% Median Income Recommendations
1. Support a Landlord Risk Mitigation Fund for hard to house tenants.
Landlord risk mitigation programs are intended to add protection to landlords willing to rent to
someone with limited income, a poor rental history, or a criminal history. The funds can cover items
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 34
such as excessive damages to the rental unit, lost rent, or legal fees beyond the security deposit. The
Johnson County Local Homeless Coordinating Board plans to develop a program working in
collaboration with the City. These programs are most effective at a regional level for expanded housing
options and landlord participation.
Recommendation: Seek proposals for a local landlord risk mitigation fund for hard to house tenants
and secure funding to operationalize it annually. Encourage proposals that seek partnerships with
regional entities (Johnson County, Coralville, and North Liberty) to expand housing options and
landlord participation.
2. Support non-profit housing providers develop and maintain permanent supportive
housing/Housing First models.
The Housing First model is a homeless assistance approach that prioritizes providing permanent housing
to people experiencing chronic homelessness. The subsidized housing is provided with the ongoing
option to participate in supportive services but does not place conditions on the housing.
Permanent supportive housing is permanent housing in which housing assistance and supportive
services are provided to assist households with at least one member with a disability in achieving
housing stability.
The City supported Shelter House in the development of Cross Park Place, a Housing First project, that
opened in January of 2019. The project houses 24 one-bedroom apartments with on-site offices and an
exam room for case managers and partners with health and behavioral health clinicians. The City
converted 24 tenant based rental vouchers to project-based vouchers so that those renting at Cross Park
Place have a voucher to assist with rent.
Due to the success of Cross Park Place, plans are underway for the second Housing First project, “The
501 Project,” for persons facing chronic homelessness. Construction started in 2021. The building will
have 36 apartments with a clinic for partnering health clinicians, computer workstations, laundry
facilities and a multi-purpose room for tenants. Like Cross Park Place, housing choice vouchers will be
converted to project-based vouchers to assist tenants pay rent.
The City should continue to provide support for existing permanent supportive/Housing First projects as
well as additional efforts to produce additional housing through acquisition, new construction, or
rehabilitation. The City should expand efforts to include permanent supportive/Housing first projects to
families experiencing chronic homelessness.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 35
Recommendation: Continue to support existing permanent supportive/Housing First projects,
expanding into projects for families experiencing chronic homelessness.
3. Support major investments.
Support non-profit housing providers to significantly increase their supply of permanent supportive
housing when granted an opportunity, either through acquisition, new construction or by assisting
through creative approaches such as a master lease between non-profit providers and landlords. Under
a master lease scenario, a non-profit service provider enters a lease with one or more landlords to
secure housing for their participants. The participants in the program pay rent to the non-profit service
provider based on the requirements of the program. Consider converting housing choice vouchers to
project-based vouchers for projects assisting those experiencing or with a history of homelessness.
The City is currently collaborating with the Housing Trust Fund of Johnson County for the allocation of
ARPA funds. Funds will be dedicated to support larger investments in affordable housing for acquisition,
rehabilitation, or new construction. The goal for the projects selected will be permanent affordability
through deed restrictions, land leases or ownership by non-profit entities whose core mission is to
provide affordable housing.
Recommendation: Allocate ARPA funds and future City funds to support larger investments in
affordable housing assisting those up to 60% median income, prioritizing permanent affordability and
households with lower incomes.
4. Maintain affordable housing through rehabilitation.
Efforts should include grant funds for those improvements that improve energy efficiency and lower
tenant utility costs. In all housing, support aging in place initiatives that supports the ability to live in
one’s own home safely, independently, and comfortably, regardless of age or ability level. Support
safety improvements and emergency repairs to homes, including mobile/manufactured homes.
Recommendation: Increase funding for those improvements that improve energy efficiency,
lower utility costs, supports aging in place initiatives and improves home safety. Provide grants
where feasible.
31-60% Median Income Recommendations
1. Support security deposit assistance.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 36
Provide additional funds to support security deposit assistance that allows up to 2 months for those with
poor rental history to get housed. The City allocated $70,000 to security deposit assistance in FY22. The
amount has been increased twice due to demand to a total of $148,000. Previously, the program
allowed up to 2 months of assistance, but due to limited funds available for the remainder of the fiscal
year, assistance was limited to $1,000 in a twelve-month period with a preference for tenants referred
by Shelter House and the Domestic Violence Intervention Program.
Recommendation: Provide additional funds to support security deposit assistance.
2. Support and Expand Eviction Prevention Programs.
Due to the pandemic, housing instability has increased dramatically. Evictions are a destabilizing event
that can send a family into a cycle of financial and emotional upheaval and affect their current and
future prospect for residential stability. The City has allocated over $850,000 to our community partners
to maintain housing for those impacted by the pandemic for eviction prevention and eviction diversion.
It is anticipated that additional funds through the American Rescue Plan Act (ARPA) will be dedicated for
this purpose.
Efforts should expand community outreach, especially to landlords, to make more tenants and landlords
aware of eviction diversion and prevention programs. Increase efforts to intervene earlier before
evictions are necessary with opportunities to mediate, work out payment arrangements and file for
rental assistance programs.
Recommendation: Support and expand eviction prevention programs.
3. Energy Efficiency Improvements
Provide grant funding to complete energy efficiency improvements that reduce a low-income tenant or
homeowner’s monthly utility cost. Increase partnerships with non-profit housing providers, including
public housing, to complete energy efficiency improvements.
Recommendation: Provide additional grant funding for energy efficiency improvements that lower
utility costs.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 37
4. Downpayment Assistance
Support financial assistance to purchase an affordable home. Ensure affordable financing to owner, such
as 30-year fixed loans with area lenders. Assistance also includes credit and financial counseling to
potential homebuyers or those wanting homeownership.
Recommendation: Support downpayment assistance, including credit and financial counseling to
potential homebuyers.
61-100% Median Income Recommendations
1. Downpayment Assistance
Support financial assistance to purchase an affordable home. Ensure affordable financing to owner, such
as 30-year fixed loans with area lenders. Assistance also includes credit and financial counseling to
potential homebuyers or those wanting homeownership.
Recommendation: Support downpayment assistance, including credit and financial counseling to
potential homebuyers.
2. Energy Efficiency Improvements
Provide grant funding to complete energy efficiency improvements that reduce a low-income tenant or
homeowner’s monthly utility cost.
Recommendation: Provide additional grant funding for energy efficiency improvements.
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 38
Summary Tables
Recommendations and Actions Required for Existing Policies and Programs
Recommendation
Type of Action Required
Policy
Change
Increased
Funding Education
Discontinue Affordable Housing Location Model and consider
incentives or prioritization policies that encourages affordable
housing in all neighborhoods.
X
Require staff analysis and funding recommendations of
CDBG/HOME housing applications before HCDC review.
X
Further define how CDBG/HOME funds will be allocated to
improve transparency (e.g. full funding for top-rated
applications, partial funding based on scores, etc.).
X
Allocate funds to the Affordable Housing Fund with a goal of a
3% annual increase.
X
Affordable Housing Fund: Include the LIHTC reservation with the
HTFJC allocation. If no LIHTC projects apply during the annual
allocation or if an approved LIHTC project does not get IFA
funding, allow the HTFJC to make those funds available for
general applications.
X
Implement the Risk Mitigation Fund. X X
Enact policy that prioritizes partnerships with not-for-profit
affordable housing developers/organizations to preserve
affordable housing units in all housing programs.
X
Allow non-profit affordable housing developers to apply for
additional funds to support ongoing operations (Opportunity
Fund, HOME CHDO funds, etc.).
X X
Allow developers of affordable housing to apply for technical
assistance needs from a variety of city programs, including but
not limited to, the Affordable Housing Opportunity Fund and
Climate Action grants.
X X
Encourage, but not mandate permanent affordable housing in
new residential annexations. With future annexations explore
partnerships and funding opportunities to secure permanent
affordability when possible.
X X
Increase efforts to educate all tenants about tenant rights and
responsibilities and how to address housing issues.
X
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 39
Recommendations and Actions Required for Development Regulations
Applicable to Both Single- and Multi-Family
Recommendation
Type of Action Required
Policy
Change
Increased
Funding Education
Encourage infill development flexibility by reducing the minimum
amount of land eligible to apply for a planned overlay zoning.
X
Create form-based code regulations for additional
neighborhoods, focusing on growth areas first and then infill
locations.
X
Recommendations and Required Actions for Development Regulations
Applicable to Single-Family
Recommendation
Type of Action Required
Policy
Change
Increased
Funding Education
Allow by right more types of dwelling units in single family zoning
districts such as duplexes and zero-lot line structures in more
locations. (Note: Comprehensive Plan amendment may be
quired. Possible consultant.)
X X
Increase the allowable number of bedrooms in duplex and zero-
lot line structures in single family zoning districts.
X X
Allow accessory dwelling units (ADUs) under more circumstances
and in more locations.
X X
Recommendations and Required Actions for Development Regulations
Applicable to Multi-Family
Recommendation
Type of Action Required
Policy
Change
Increased
Funding Education
Facilitate multi-family development by purchasing land to be
developed.
X X
Conduct a City initiated rezoning to allow multi-family housing or
mixed use in areas supported by the Comprehensive Plan. (Note:
Comprehensive Plan amendment may be quired. Possible
consultant.)
X X
Allow multi-family dwelling units with more than three bedrooms
when required to meet local, state, or federal affordable housing
funding parameters such as the LIHTC program.
X
2022 Iowa City Affordable Housing Action Plan
CITY OF IOWA CITY 40
If additional funds are allocated/reserved for affordable housing, recommendations based on household
income are below.
0-30% Median Income Recommendations
Seek proposals for a local landlord risk mitigation fund for hard to house tenants and secure funding
to operationalize it annually. Encourage proposals that seek partnerships with regional entities
Johnson County, Coralville, and North Liberty) to expand housing options and landlord participation.
Continue to support existing permanent supportive/Housing First projects, expanding into projects for
families experiencing chronic homelessness.
Allocate ARPA funds and future City funds to support larger investments in affordable housing
assisting those up to 60% median income, prioritizing permanent affordability and households with
lower incomes.
Increase funding for those improvements that improve energy efficiency, lower utility costs, supports
aging in place initiatives and improves home safety. Provide grants where feasible.
31-60% Median Income Recommendations
Provide additional funds to support security deposit assistance.
Support and expand eviction prevention programs.
Provide additional grant funding for energy efficiency improvements that lower utility costs.
Support downpayment assistance, including credit and financial counseling to potential homebuyers.
61-100% Median Income Recommendations
Provide additional grant funding for energy efficiency improvements that lower utility costs.
Support downpayment assistance, including credit and financial counseling to potential homebuyers.
Strategic Plan
FISCAL YEARS 2023-2028
Adopted December 2022
9
IMPACT AREAS
Neighborhoods & Housing
FUTURE VISION
Iowa City is a collection of authentic, vibrant
neighborhoods and districts. By way of internal and
external streets and trails, each community member
has safe, easy access to everyday facilities and
services within a 15-minute walk or bike ride.
Neighborhoods are compact and socially diverse,
with a variety of housing choices and at least one
place serving as its center. Permanent affordable
housing choices are dispersed throughout the
community. New higher density development blends
with existing buildings and shapes a comfortable, human-scale pedestrian environment. Public spaces
are inviting and active with people recreating and socializing in parks, natural areas, and tree-lined
streetscapes, all enhanced with public art and placemaking initiatives.
STRATEGIES
To advance the Vision the City will pursue the following strategies:
Update City Comprehensive Plan and Zoning Code to encourage compact neighborhoods with
diverse housing types and land uses.
Partner in projects that serve as models for desired future development.
Create inviting and active outdoor spaces with unique and engaging recreation offerings.
Address the unique needs of vulnerable populations and low-to-moderate income neighborhoods.
10
ACTION PLAN
Action Champion Target
Date
Explore legal steps to discourage or prevent bad faith and predatory property
investors.
City Attorney FY23-24
Act on building regulation recommendations outlined in the Accelerating Iowa
City’s Climate Actions Report; including TIF energy efficiency incentives, energy
standards for height and density bonuses, and a climate action building permit
rebate program.
Climate Action &
Outreach and
Neighborhood &
Development
Services
FY23-25
Revamp the neighborhood PIN grant program and evaluate discretionary funding
for district/neighborhood grassroots projects.
Communications FY23-25
Advance prioritized recommendations in the 2022 Affordable Housing Action Plan.
Work with partners to undertake significant-scale affordable housing efforts.
Neighborhood &
Development
Services
FY23-28
Seek out and approve residential TIF applications for infrastructure when the
project provides community benefit such as permanent affordable housing,
expansive public open space, or advancement toward stated climate action goals.
Consider a standard application of residential TIF for all new annexations to meet
permanent affordable housing goals.
City Manager’s
Office
FY24-25
Initiate a Comprehensive Plan update and subsequent Zoning Code review to more
broadly incorporate form-based principles with emphasis on growth areas first and
infill areas next, expanded missing middle housing allowances, minimum density
requirements, and streamlined approval processes
Neighborhood &
Development
Services
FY24-28
Explore pilot housing projects utilizing tiny homes, 3D printed homes,
prefabricated or manufactured homes, net-zero homes, or other innovative
options.
Neighborhood &
Development
Services
FY24-28
Bolster financial support for homeless services and evaluate shifting towards
shelter as service model.
City Manager’s
Office
FY25-28
Expand the South District Homeownership Program to other targeted
neighborhoods and consider allowing relocation assistance to expedite
completion.
Neighborhood &
Development
Services
FY26-28
Provide all residents with public open space within a 15-minute walk or bike ride by
strategically executing agreements with local schools or other partners.
Parks and
Recreation
FY26-28
11
Mobility
FUTURE VISION
Community members of all socioeconomic statuses
easily, safely, and comfortably travel using multiple
modes of transportation year-round. Commuters
choose to walk, bike, or bus at least half of the time,
and an increasing number of trips are fueled by clean
energy. Regional collaboration has created a strong
multi-modal network that links Iowa City to
neighboring communities. Highly traveled corridors
have separated trails or comfortable, safe lanes for
bicyclists. When prioritizing, the needs of
pedestrians, bicyclists, transit riders, and other
emerging forms of transportation are weighted
greater than those of automobile drivers and
adjacent property owners.
STRATEGIES
To advance the Vision the City will pursue the
following strategies:
Expand the access and convenience of environmentally friendly and regionally connected public
transit.
Design and maintain complete streets that are comfortable and safe for all users.
Grow and prioritize bike and pedestrian accommodations.
12
ACTION PLAN
Action Champion Target
Date
Fully evaluate the feasibility and funding sources needed for a zero-fare transit
system.
Transportation
Services and
Finance
FY23-24
Develop a vision statement for a singular regional transit system with metro Johnson
County entities and obtain initial commitments to study a regional system from each
entity’s elected officials.
City Council FY23-25
Install additional permanent charging stations for vehicles, bicycles, and electronic
devices.
Climate Action
Outreach
FY23-28
Identify additional opportunities for road diets, sidewalk infill, curb cut
enhancement, and bike lane installation with a goal of at least two such projects
each construction season.
Public Works FY23-28
Explore opportunities to utilize the CRANDIC right-of-way for passenger rail, bus
rapid transit, or pedestrian usage.
City Council FY23-28
Evaluate with the State of Iowa reverting Dodge and Governor to 2-way streets Public Works FY23-28
Secure federal funding for a relocated transit building that can accommodate future
growth in service and electrification of the fleet.
Transportation
and City
Manager’s
Office
FY24-28
Consider adding or retrofitting bike pathways that are separated from streets or
protected utilizing flexible bollards.
Public Works FY24-28
Expand the fleet of electric buses or other low/no emission-technology vehicles each
time a diesel bus is due for replacement and seek grants that can expedite the
conversion.
Climate Action
Outreach
FY25-28
Consider an on-demand or subsidized voucher system for times and locations in
which no fixed route service is available.
Transportation
Services
FY25-28
Expand snow clearing operations at sidewalk corners in high priority pedestrian
areas, bus stops, and bike lanes.
Public Works
and Parks &
Recreation
FY25-28
Initiate and promote vehicle and bike-share/scooter programs. Transportation
Services
FY26-28
Evaluate with the State of Iowa the possibility of a Burlington Street Road Diet
utilizing flex zones in non-peak hours.
Public Works FY26-28
13
Economy
FUTURE VISION
Iowa City is the preferred location for businesses at
all stages of development. Start-up businesses
flourish and take advantage of mentoring and other
resources. The vibrant arts and culture community
attracts both visitors and new residents.
Technologies developed through the University of
Iowa are transferred to the local business sector,
creating business diversity and new value within the
community. Businesses pay living wages and support
skill development for their employees. Support
services - such as child-care and language assistance - are readily available for all, which means every
person who wishes to participate in the local economy can do so. Community members support each
other by spending their money locally.
STRATEGIES
To advance the Vision the City will pursue the following strategies:
Reinforce Iowa City as a premier community to locate and grow a business.
Ensure appropriate infrastructure is in place for future business growth and development.
Cultivate a strong entrepreneurial and small businesses ecosystem with a focus on creating new
pathways to success for systemically marginalized populations.
Build Iowa City’s image as the Greatest Small City for the Arts.
Strengthen the Iowa River’s role as a signature community amenity and tourism generator.
14
ACTION PLAN
Action Champion Target
Date
Enhance access to affordable childcare for all populations through innovative
partnerships with higher education, non-profits, and the business community.
City Manager’s
Office and
Neighborhood &
Development
Services
FY23-25
Utilizing American Rescue Act Funds, execute on agreeable recommendations in
the Inclusive Economic Development Plan with a particular focus on actions that
build long-term support and wealth-building opportunities for systemically
marginalized populations.
City Manager’s
Office and
Economic
Development
FY23-25
Partner with Kirkwood Community College, Iowa City Community School District,
Iowa Labor Center, local trades, and other stakeholders to provide meaningful
career development opportunities, pre-apprenticeship, and apprentice
programs.
Economic
Development and
Neighborhood &
Development
Services
FY23-28
Increase small business technical assistance to aid in the creation, success, and
growth of home-grown businesses.
Economic
Development
FY24-28
Create flexible incentives to support the top goals of Iowa City’s Self-Supporting
Municipal Improvement Districts and other commercial nodes, including
attaining a desired business mix that serves the surrounding neighborhood.
Economic
Development and
City Manager’s
Office
FY25-28
Develop targeted marketing to promote Iowa City as a unique and attractive
place to do business.
City Manager’s
Office
FY26-28
Develop a riverfront master plan in cooperation with the University of Iowa,
Think Iowa City, and other stakeholders.
City Manager’s
Office
FY26-28
15
Safety & Well-being
FUTURE VISION
Our City supports the mental and physical well-being
of our community members. Public safety response,
whether from the City or a non-profit partner, is
nuanced depending on the specific needs of the
situation. Community members receive emergency
response services promptly and welcome
responders as problem-solvers. Inviting spaces for
social interaction, exercise, and regeneration are
equitably located throughout the community and
are lively with activity and use. New and long-time
community members alike, especially marginalized
groups, easily build networks and establish roots
within our community. Community members have
safe, healthy indoor spaces and are well-prepared
for climate-related changes.
STRATEGIES
To advance the Vision the City will pursue the
following strategies:
Implement and expand innovative public safety models and facilities to improve outcomes and
relationships within the community.
Partner with non-profits to address the most emergent and foundational community safety and
well-being needs.
Build community by fostering social connections and developing safe, accessible public spaces for
gathering.
16
ACTION PLAN
Action Champion Target
Date
Work collaboratively with Johnson County and other stakeholders to launch a
community violence intervention effort in close cooperation with local law
enforcement.
City Council and Police
Department
FY23-24
Leveraging American Rescue Plan Act funds, build capacity in local non-profits
that will help ensure they are able to meet future community demands.
Neighborhood &
Development Services
FY23-26
Build on the relationship with the University of Iowa College of Nursing to
increase participation in the Healthy Homes program.
Neighborhood &
Development Services
FY23-26
Expand the Mental Health Liaison program with CommUnity Mobile Crisis with a
goal of 24-hour coverage by the end of FY28.
Police Department FY23-28
Actively promote 988 throughout the year and ensure that CommUnity Mobile
Crisis has resources to meet community demands.
City Manager’s Office and
Communications
FY23-28
Continue critical exterior renovations to the Senior Center and continue
progress on Senior Center Facility Master Plan recommendations.
Senior Center FY23-28
Integrate CommUnity Mobile Crisis into the 911 dispatch protocols. Police Department FY24-26
Consider and, where feasible, implement alternatives to routine non-emergent
traffic stops.
Police Department FY24-26
Expand neighborhood-based programs such as mobile community
social/recreation resources (fun patrol), nests or micro-hubs for kids/teens.
Parks & Recreation FY26-28
17
RESOURCES
Facilities, Equipment and Technology
FUTURE VISION
Municipal facilities are modernized and designed for
operational efficiency, capacity for growth,
employee safety and health, resilience, alignment
with Climate Action goals, and civic pride. Funding of
equipment and facility replacement funds and
partnerships with other entities result in joint
facilities, technology, and equipment that improve
access and services. City staff are encouraged to be
entrepreneurial in their approach and actively seek
to innovative and streamline processes while
improving service levels to the community.
STRATEGIES
To advance the Vision the City will pursue the
following strategies:
Invest in the next generation of public facilities
and equipment to create immediate operational efficiencies, boost workplace safety, health, and
morale, and improve cross-department collaboration.
Promote high-performance governance leveraging technology, partnerships, and innovation.
18
ACTION PLAN
Action Champion Target
Date
Outline a municipal-wide facilities plan and initiate relevant action steps to keep
projects moving forward.
City Manager’s Office FY23-24
Complete a City Hall and Public Safety Headquarters space needs study and
develop a plan for next steps toward implementation.
City Manager’s Office FY23-24
Implement the asset management system and expand use for facility
maintenance and management.
Public Works FY23-25
Develop and implement an electric vehicle transition plan. Public Works and Climate
Action & Outreach
FY23-25
Pursue grant opportunities, bolster the Facility Reserve Fund, and explore
public/private partnerships to facilitate completion of key facility projects.
City Manager’s
Office and Finance
FY23-28
Design replacement and renovated facilities to ensure alignment with Climate
Action goals and create safer and healthier working environments for public
employees.
City Manager’s Office FY24-28
Improve public transparency through a coordinated and centralized open data
platform.
City Manager’s Office FY26-28
Consider resourcing a Smart City initiative that prioritizes data-driven decision-
making through technology adaptation and data analysis.
City Manager’s Office FY26-28
19
People
FUTURE VISION
The City is an employer of choice in the region and
viewed as a rewarding, long-term career choice.
Valuable benefits, flexible schedules, energizing
workspaces, remote and hybrid work arrangements,
and professional development and advancement
opportunities improve productivity, service to the
public, and morale. Employees enter an inclusive,
fun, and engaging environment each workday. City
staff, board and commission members, and
volunteers are demographically representative of
the City population at-large and every employee is
continuously building cultural awareness. Leadership
and elected officials ensure sufficient staff levels to
maintain baseline services, weather vacancies or
emergencies, protect against employee burnout, and
add capacity to act on special assignments and
strategic, long-term initiatives.
STRATEGIES
To advance the Vision the City will pursue the following strategies:
Establish the City of Iowa City as an employer of choice in the region with a pay plan, benefits
package, and flexible work options that attract and retain high-quality and motivated public
service employees.
Carry out a multi-dimensional staff engagement initiative to ensure every City employee feels
welcome, informed, involved, and engaged at work.
Build a diverse talent pipeline.
20
ACTION PLAN
Action Champion Target
Date
Complete and execute upon the results of an organization-wide classification and
compensation study. As part of study, review all job requirements to ensure applicability
and eliminate unnecessary barriers to employment, including testing, residency
requirements, education, and certification or license requirements.
Human Resources FY23-25
Monitor implementation of new telecommuting and flexible work schedule policies to
ensure public service standards are fully met and desired employee work arrangement
flexibility is pursued where possible.
City Manager FY23-25
Balance investment in new annual initiatives with staffing levels to ensure core municipal
service levels are maintained and reduce instances of burnout.
City Manager’s
Office and City
Council
FY23-28
Elevate new and existing intra-organizational communication strategies to bolster
information sharing and improve productivity and connectiveness across the
organization.
City Manager’s
Office
FY23-25
Create more opportunities to promote inter-departmental relationships, collaboration,
and problem-solving.
City Manager’s
Office
FY23-25
Upskill City staff in implicit bias, cultural awareness, and inclusion. Equity & Human
Rights
FY23-28
Develop recruitment network with local minority institutions. City Manager’s
Office
FY23-28
Take steps to promote more diverse representation on Boards, Commissions, and
Committees.
City Council FY23-28
Ensure every single employee knows the City’s strategic vision and can connect their role
accordingly.
City Manager’s
Office
FY23-28
Strengthen volunteer engagement, management, and appreciation efforts. City Council and City
Manager’s Office
FY23-28
Implement increasingly relevant organization-wide training opportunities such as conflict
resolution and de-escalation training.
City Manager’s
Office
FY24-28
Conduct comprehensive benefits review and implement changes based upon best
practices and modern expectations, exploring benefits such as paid volunteer time,
wellness offerings, and flexible stipends for challenges such as childcare, transportation,
higher education and more.
City Manager’s
Office
FY25-28
Launch targeted apprenticeship program(s) in partnership with local education and
workforce institutions.
City Manager’s
Office
FY26-28
21
Financial
FUTURE VISION
City residents believe property taxes and utility
fees are fair and commensurate to service
levels, and do not experience erratic changes
in rates and fees. The City maintains sufficient
financial resources to proactively maintain and
replace assets, carry out strategic plan
initiatives, and be insulated from unanticipated
financial stressors. Partnerships, grant funding,
and other creative financing mechanisms are
routinely part of program and project financing structure. The City maintains a AAA bond rating,
resulting in lower borrowing costs for residents and businesses.
STRATEGIES
To advance the Vision the City will pursue the following strategies:
Grow the tax base, consider alternative revenue sources, and leverage outside funding to maintain
core services and pursue community priorities while maintaining equitable property tax rates.
Exercise fiscal responsibility by maintaining and growing assigned and emergency reserve funds
and prudent debt management.
22
ACTION PLAN
Action Champion Target
Date
Ensure Enterprise Funds are well supported through incremental rate and fee
increases and do not become reliant on large rate spikes, property taxes, or
unplanned debt issuance.
Finance FY23-28
Coordinate with Iowa League of Cities, Metro Coalition, and the City’s contracted
state lobbyist to oppose unfunded state mandates and detrimental tax reforms.
City Manager’s Office FY23-28
Maintain the City’s AAA bond rating. Finance FY23-28
Increase the Emergency Fund balance by an annual target of 5%. Finance FY23-28
Significantly bolster the Facility Reserve Fund and develop an implementation plan
for use of funds that minimizes large debt issuances.
Finance FY23-28
Create a centralized grant management initiative that will focus on securing
additional private, state, and federal funding opportunities, while ensuring proper
oversight and compliance.
City Manager’s Office FY24-28
Develop and maintain cost recovery guidelines for programs and services that
balance fiscal responsibility and equity.
City Manager’s Office FY26-28
Consider financial incentives and land use policies that aim to grow and diversify the
tax base (commercial, industrial, and residential).
City Manager’s Office FY26-28
Consider alternative revenue sources such as a Local Option Sales Tax that can help
achieve strategic plan goals, fund infrastructure and facility needs, and reduce
reliance on property tax.
City Manager’s Office
and City Council
FY26-28
FROM: Housing Action Team of Johnson County Livable Community for Successful Aging Policy
Board
TO: Cities in Johnson County and Johnson County
SUBJECT: Recommendations for Code/Ordinance for Accessory Dwelling Units (ADUs)
DATE: December 21, 2022
The Housing Action Team believes that there are many benefits associated with the creation of
legal accessory dwelling units on lots in single family zones and in other districts. These include:
1. Increasing the supply of a more affordable type of housing n ot requiring government
subsidies;
2. Helping older homeowners, single parents, young home buyers, and renters seeking a wider
range of homes, prices, rents and locations;
3. By increasing housing diversity and supply, provide opportunities to reduce the segrega tion
of people by race, ethnicity and income that resulted from decades of exclusionary zoning;
4. Providing homeowners with extra income to help meet rising home ownership costs;
5. Providing a convenient living arrangement for family members or other persons to provide
care and support for someone in a semi-independent living arrangement while remaining in
their community;
6. Providing an opportunity for increased security, home care, and companionship for older
and other homeowners;
7. Reducing burdens on taxpayers while enhancing the local property tax base by providing a
cost-effective means of accommodating development without the cost of building,
operating and maintaining new infrastructure;
8. Promoting more compact urban and suburban growth, a pattern which reduces the loss of
farm and forest lands, natures areas and resources, while reducing the distances people
must drive and thereby reducing pollution that contributes to climate instability; and
9. Enhancing job opportunities for individuals by providing housing c loser to employment
centers and public transportation.
Some cities in Johnson County already have code for ADUs (Iowa City and Solon). Johnson
County has code that covers the unincorporated areas of the County. Oxford utilizes the
Johnson County code. Swisher, Shueyville, Hills and North Liberty do not have code for ADUs. At
present, Coralville, Lone Tree and Tiffin do not allow ADUs. The codes that do exist, vary among
jurisdictions.
The Housing Action Team would like to provide our recommendations that minimize lengthy
application processes, high fees and harsh regulations that will prevent the development of
ADUs or encourage illegal ADUs. Our recommendation or specific recommended language for
each policy question is underlined and then followed by a rationale, if deemed necessary.
Recommendations for the Elements of an ADU Code/Ordinance
A. Definition- Accessory Dwelling Unit (ADU) means a residential living unit on the same parcel
as a single-family dwelling or a parcel of which a single-family dwelling is present or may be
constructed, that provides complete independent living facilities for one or more persons. It
may take various forms: a detached unit, a unit that is part of an accessory structure, such
as a detached garage, or a unit that is part of an expanded or remodeled dwelling.
[Rationale- Two common circumstances in which an ADU might be built before the primary
residence are (1) when a homeowner wishes to stage construction expenses and living
arrangements; and (2) when the homeowner owns an adjacent legal lot (typically used as a
side or backyard) and would prefer to site an ADU there rather than on the lot with the
primary residence.]
B. Authorization of ADUs by Zoning District*- Accessory dwelling units are allowed in all
zoning districts which allow residential use, including mixed-use zones, townhouse zones
and single-family zones, subject to the requirements of the ordinance.
C. Number of ADUs Allowed per Lot in Single-Family Zones- Any lot with, or zoned for, a
principal single-family dwelling unit, may have up to two accessory dwelling units.
[Rationale- There are many ways to accommodate more than one ADU that are sensitive to
concerns about neighbor appearance. For example, two internal ADUs can be
accommodated by remodeling a large home, without increasing height or bulk. An internal
unit can be allowed along with an ADU over an attached garage, without increasing the area
of the lot occupied by structures.]
D. Minimum Lot Size in Single-Family and Townhouse Zones- Accessory dwelling units may be
created on any lot that meets the minimum lot size required for a single -family dwelling or
townhouses. Attached and internal accessory dwelling units may be built on any lot with a
single-family dwelling or townhouse that is nonconforming solely because the lot is smaller
than the minimum size, provided the accessory dwelling units would not increase the
nonconformity of the residential use with respect to building height, bulk or lot coverage.
[Rationale- As a policy matter, it should not be necessary to establish a separate qualifying
lot size for ADUs if the purpose is to assure the retention of landscaping and privacy
between homes, because the setback and lot coverage standards can achieve those
objectives.]
E. Minimum / Maximum Size Area: The maximum size of an accessory dwelling unit may be
no more than the footprint of the primary structure or 1,000 square feet, whichever is less .
[Rationale- We recommend eliminating minimum size since the basic requirements for a
living space (kitchen, bathroom, living/sleeping space) and the housing market will establish
a minimum size. For situations in which the existing residence is very small, local
governments might consider authorizing ADUs up to 80 0 square feet when the primary
dwelling is smaller than 800 feet.]
F. Types of Structures- A manufactured or modular dwelling unit may be used as an accessory
dwelling unit in any zone in which dwelling units are permitted . [Rationale- In recent years,
many off-site manufactured and modular ADUs are being produced; old conceptions of
what constitutes a manufactured or modular home are outdated. This language maximizes
the opportunities for ADUs by allowing any type of structure to be an ADU if that structure
is allowed as a principal unit in the zoning district.]
G. Lot Coverage Limits- An accessory dwelling unit (detached, attached, or built by expanding
the footprint of an existing dwelling) on a lot of 4,000 square feet or larger shall not occupy
more than 15% of the total lot area. For single family lots of less than 4,000 square feet, the
combined lot coverage of the primary dwelling and the accessory dwelling shall not exceed
60%. Accessory dwelling units built within the footprint of existing, legal, acc essory
structures are considered not to have changed existing lot coverage . [Rationale- Lot
coverage allowances and limits intersect with setback requirements, floor-area ratio limits
and height limits. If detached or attached ADUs are significantly constr ained by a lot
coverage limit, then the possibility of having a two-story ADU may determine whether the
investment in an ADU will generate a sufficient return to justify its construction.]
H. ADU Setbacks- 1. A setback of no more than four feet from the side and rear lot lines shall
be required for an accessory dwelling unit that is not converted from an existing structure
or a new structure constructed in the same location and with the same dimensions as an
existing structure. 2. No setback shall be required for an existing garage living area or
accessory structure or a structure constructed in the same location and with the same
dimensions as an existing structure that is converted to an accessory dwelling unit or to a
portion of an accessory dwelling unit; and 3. A detached accessory dwelling unit is not
permitted on the front half of a lot, except when located a minimum of 30 feet from the
front line or it falls within the provision of subsection 2.
I. ADU Height Limit- The maximum height of an accessory dwelling unit is 25 feet or the
height of the primary residence, based on the highest point of its roof compared with the
lowest point of ground level at the foundation, whichever is less.
J. Architectural Consistency and Design Review- We recommend against establishing
separate architectural or design standards for ADUs. [Rationale- Highly discretionary
standards based on neighborhood "character” or “quality” can be serious obstacles to the
construction of ADUs. Vague standards hamper homeowners and decision-makers alike.
They can become an avenue for channeling neighborhood objections to ADUs in general. In
some cases, the prescriptions for particular designs and materials can also add considerably
to the cost of an ADU. A better approach is to reduce key design elements to a set of
objective standards governing roof pitches, window orientation and siding. In some cases,
design standards should only apply in certain districts or when the ADU is larger than a
specified height or taller than one story.]
K. Orientation of Entrance- Regulations governing the location, type and number of entrances
into primary dwellings apply to accessory dwelling units. [Rationale- Not allowing an ADU
entrance on the same side of the house as the primary dwelling can compromise the design
and increase the cost of an ADU, substituting a more awkward and expensive entrance.
Following the general principal of treating ADUs like the primary dwelling, the authorization
and location of access doors and stairs for detached and attached ADUs should be the same
as for primary residences.]
L. ADU Screening, Landscaping and Orientation- We do not have a specific recommendation
on this subject because a privacy regulation that is not applied to primary dwellings should
not be applied to ADUs. ADU regulations addressing privacy as a separate subject seem to
be rare.
M. Parking Requirements- No additional off-street parking is required for construction of an
ADU. If the ADU removes one of the existing off-street parking spaces it must be replaced
on site if required by the underlying zoning. In lieu of an on-site parking space, an additional
on-street parking space may be substituted if there’s already sufficient curb area available
along the frontage for a parking space or by removing the parking space access ra mp and
reinstalling the curb. [Rationale- Requiring an off-street parking space for each ADU is a
serious inhibition to the construction of ADUs for two reasons. First, the cost of creating off -
street parking spaces. Second, the lot size, location of the p rimary residence and
topography may make the creation of the space impossible.]
N. Short-Term Rentals- We recommend that jurisdictions do not adopt a limitation on short-
term rentals unless rental regulations or prohibitions exist for all housing in the jurisdiction
or zone. [Rationale- Many ordinances already have such limitations or prohibitions on the
use of homes as transient lodging in their land use regulations, and those could be extended
to ADUs.]
O. Separate Sale of ADUs- We do not have a specific recommendation regarding this subject
since most ADU ordinances are silent on the separate sale of the units as condominiums .
We leave this policy question to the discretion of local jurisdictions.
P. Owner Occupancy (Residency) Standards- There should be no requirement that the owner
live on the same property (whether in the primary dwelling or the ADU) if there is no owner
occupancy requirement for primary residences. [Rationale- The practical impact of the
occupancy requirement is to inhibit construction of most ADUs. This requirement gives
pause to homeowners or institutions financing home purchases because of the limits they
place on successive owners who will not be able to rent out or lease their main house,
which might be necessary as a result of a divorce, job transfer or death. It can also make
financial institutions reluctant to provide financing for construction of an ADU and because
it acts as a restriction on a mortgage lender’s security interest in the property.]
Standards and Conditions Not Recommended for Application to ADUs
The following standards and conditions are not recommended for inclusion in ADU ordinances:
• Density limits on ADUs in a zone or district
• Age of principal dwelling
• Size of principal dwelling
• Tenure of current owner
• Limits on persons who can live in ADUs (age, relationship, disability)
• Annual renewal and monitoring of permits for ADUs
*Note on Historic Districts: Even historic districts can accommodate ADUs. Denver, Colorado and
Pasadena, California provide useful examples. A city may require a simplified pre-application
process utilizing a Design Review Committee to provide recommendations to a Landmark
Preservation Commission. The most common issues pertain to the massing, building material and
historic detailing on the elevations that face the street. The secondary elevations that face away
from the street only need to complement the primary structure. In some cases, the roof
treatment of an ADU’s primary elevation is reminiscent of the primary building; while its
secondary elevations, which face the alley, may be flat to maximize interior space. This allows
homeowners the flexibility to create more usable spaces while still blending with historical forms
and traditions.
Incentives: Some cities around the country, recognizing the benefits of ADUs, have initiated
various forms of incentives to foster ADU development. Assistance with rent, down payments
and mortgages along with tax abatements have been utilized. The city of Des Moines, in January
2022, implemented a 10 year, 100% tax abatement for new ADUs.
We hope that the cities that already have an ADU ordinance will review these
recommendations and consider making revisions to be more in alignment with our advice. For
those cities without an ADU ordinance/code, we encourage you to utilize/consider these
recommendations as a template for the drafting of your ordinance/code. We would welcome
the opportunity to discuss with you how ADUs can be a useful strategy to support seniors and
also provide affordable housing in your city and across the county.
MINUTES PRELIMINARY
PLANNING AND ZONING COMMISSION
JUNE 21, 2023 – 6:00 PM – FORMAL MEETING
EMMA J. HARVAT HALL, CITY HALL
MEMBERS PRESENT: Susan Craig, Maggie Elliott, Mike Hensch, Maria Padron, Billie
Townsend, Chad Wade
MEMBERS ABSENT:
STAFF PRESENT: Madison Connolly, Sara Hektoen, Anne Russett, Parker Walsh
OTHERS PRESENT: Pablo Mejia Aguilar
CALL TO ORDER:
Hensch called the meeting to order at 6:00 PM.
ELECTION OF VICE CHAIR:
Townsend nominated Craig to be Vice Chair, Padron seconded, a vote was taken and motion
passed 6-0.
PUBLIC DISCUSSION OF ANY ITEM NOT ON THE AGENDA:
None.
DEVELOPMENT ITEM CREZ23-0001:
Location: 4201 Nursery Ln SE, Unincorporated Johnson County
An application for a conditional use permit to allow a home industry on approximately 3 acres of
land zoned County Residential (R3) in unincorporated Johnson County outside the City's growth
area.
Walsh began the staff report with an aerial of the property, noting the existing home and two
warehouses on the property, one of which is intended to become the home industry. The
property is zoned County Residential (R3) which is for property of 3 to 4.99 acres and the
property as mentioned is a little more than 3 acres.
Walsh showed the Fringe Area Map, noting this property is outside the City's growth area and is
not likely to be annexed into the City. The County's Future Land Use Map indicates the subject
parcel as appropriate for County Agricultural and the proposal aligns with both Johnson County
Future Land Use Map and the Fringe Area Agreement as home industry is a conditional use
allowed in both agricultural and the existing residential zone.
Walsh stated the proposal is intended to convert the warehouse on the property to a home
industry for a kitchen remodeling business titled Superstar Granite, with the business hours
expected to be between Monday and Friday 8am to 5pm. Walsh showed where the parking area
is left to the warehouse, and stated it is large enough to serve the expected two clients at any
one time.
Staff recommends approval of CREZ23-0001, an application submitted for a County conditional
use permit to allow home industry on 4201 Nursery Lane SE.
Planning and Zoning Commission
June 21, 2023
Page 2 of 3
Following the Commission's recommendation to Council, City Council would then give their
recommendation to the Johnson County Board of Adjustments and since this property is located
outside of the City's growth area, any building permits or site plans would go through the County.
Craig asked what the definition of a home industry is and what are the County’s criteria for the
approval of one. Walsh is not exactly sure what the County’s specific approval criteria is.
Wade asked if there anything that the Commission needs to review or consider regarding
screening or otherwise. Walsh replied no because any site plans or building permits would be
reviewed solely by the County and the City wouldn't see anything beyond this application.
Hensch opened the public hearing.
Pablo Mejia Aguilar stated they are wanting to get approval so they can create this commercial
space and be able to work where they live.
Hensch closed the public hearing.
Elliott moved for approval of CREZ23-0001, an application submitted for a County
conditional use permit to convert an existing warehouse to a home industry use intended
as Super Star Granite LLC.
Townsend seconded the motion.
A vote was taken and the motion passed 6-0
CONSIDERATION OF MEETING MINUTES: APRIL 19, 2023:
Townsend moved to approve the meeting minutes from April 19, 2023. Wade seconded the
motion, a vote was taken and the motion passed 6-0.
PLANNING AND ZONING INFORMATION:
Russett reported the City Council approved the rezoning on Scott Boulevard for the Oaknoll East
expansion and the commercial rezoning off Mormon Trek was also approved.
Additionally, at one of the more recent meetings Commissioners Townsend and Wade were
reappointed to the Commission by City Council. Russett stated there was also another member
of the community that was appointed to the Commission but they subsequently resigned, so they
are taking more applications and hope to have a new Commissioner in August.
Lastly, Russett introduced Madison Connolly as a new associate planner, she used to work for
the Conservation Districts of Iowa and graduated from the University of Iowa.
ADJOURNMENT:
Townsend moved to adjourn, Elliott seconded, a vote was taken and the motion passed 6-0.
PLANNING & ZONING COMMISSION
ATTENDANCE RECORD
2022-2023
7/6 8/3 9/7 10/19 11/2 11/16 12/7 12/21 1/4 1/18 2/15 3/1 4/5 4/19 6/21
CRAIG, SUSAN X X X X X X O/E X X X X X X X X
ELLIOTT, MAGGIE X X X X X X X X X X X X X X X
HENSCH, MIKE X X X X X X X X X X X X X X X
NOLTE, MARK O/E O/E O/E -- -- --- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- --
PADRON, MARIA X X X X X O/E X X X X X X X X X
SIGNS, MARK X X X X O/E O/E X X X X O/E O/E X -- -- -- --
TOWNSEND, BILLIE X X X X X X X O/E X O/E X X X X X
WADE, CHAD --- --- --- --- X O/E X X X O/E X X X X X
KEY:
X = Present
O = Absent
O/E = Absent/Excused
--- = Not a Member