Council Bluffs, Iowa, is located on the eastern bank of the Missouri, directly across the river from Omaha, Nebraska. The city, with a population of 54,315, is the county seat of Pottawattamie County and the commercial center for the agricultural counties of southwestern Iowa. Lewis and Clark, exploring the Louisiana Purchase in 1804, met with local Native Americans on a high bluff north of the present city. Mormons, on their trek west, settled here temporarily from 1846 to 1849. By then, the town was a major river-crossing site and a place where California-bound gold hunters outfitted themselves before heading farther west. When it was incorporated as a city in 1853, the community named itself Council Bluffs in memory of Lewis and Clark's historic council.

In 1859 Council Bluffs became the eastern starting point for the Union Pacific, the first transcontinental railway. The city remains a transportation center with railroad repair shops. Agriculture and associated industries, such as livestock feeding equipment and livestock feed, remain major parts of the local economy. Other products produced in Council Bluffs include playground equipment, structural steel, and pressurized pipe.

Action Plan

In its Consolidated Plan, the city of Council Bluffs describes its housing and community development needs and priorities, and a 5-year strategy for addressing these needs using Federal and other resources. For the first year of the plan, Council Bluffs is requesting $1,389,000 in Federal Community Development Block Grant (CDBG) funds. HOME and Emergency Shelter Grant (ESG) funding will be requested form the State of Iowa on a project basis.

The published notices for public hearings on the plan (see Appendix A) suggest that the needs/strategic plan sections and the action plan were developed separately. The second hearing was for needs/strategic plan, and the 3rd hearing (2 weeks later) was on the action plan.

Citizen Participation

Input from the general public was part of the preparation process for Council Bluffs' Consolidated Plan. A Community Development Advisory Committee was formed to serve as a forum for receiving public comments and providing information to the public on the preparation, implementation, and evaluation of the city's community development efforts. Public hearings were advertised in the local newspaper, the Council Bluffs Daily NonPareil, inviting attendance and public testimony from citizens.

The hearings were held on January 12, February 22, and March 8, 1995. A draft of the housing and community development needs and 5-year strategy sections of the Consolidated Plan were available for public review, beginning on February 22. A fourth public hearing was held on March 28 to discuss the final plan.

The Community Development Advisory Committee will hold a public meeting in August or September 1996 to discuss the annual evaluation of activities conducted under the Consolidated Plan.

Council Bluffs is a community with a declining population located in the growing Omaha-Council Bluffs metropolitan area. The population in 1970 was 60,346, but decreased by 6.5 percent by 1980, and by another 3.8 percent by 1990, to 54,315.

The community is predominantly white. According to the 1990 census, Council Bluffs' racial and ethnic subpopulations are:

• Whites (non-Hispanic) -- 52,211 (96 percent).
• African Americans (non-Hispanic) -- 425 (0.8 percent).
• Hispanics (of any race) -- 1,313 (2.4 percent).
• Asian Americans or Pacific Islanders -- 217 (0.4 percent).
• Native Americans -- 136 (0.4 percent).

The median family income (MFI) for Council Bluffs in 1990 was $29,538. This is significantly lower than the $36,185 MFI of the Omaha-Council Bluffs metropolitan area and the $35,939 national MFI.

Of the 21,108 households in the city, 50 percent have annual incomes of 80 percent or less of MFI. Census data show the following levels of low- and moderate-income households:

• Extremely low-income (0-30 percent of MFI) -- 2,887 (14 percent).
• Very low-income (31-50 percent of MFI) -- 2,857 (13 percent).
• Low-income (51-80 percent of MFI) -- 4,813 (23 percent).
• Moderate-income (81-95 percent of MFI) -- 2,357 (11 percent).

The lack of attractive, challenging, well-paying jobs in Council Bluffs hindered the economy's growth during the past 20 to 25 years. Job opportunities consist primarily of manufacturing, government, or retail positions. Many of the retail jobs pay only the minimum wage.

Lower paying employment has deterred the growth of the local tax base, hindering the improvement and development of infrastructure and public facilities. Council Bluffs is in constant competition with other jurisdictions in the metropolitan area for new job opportunities and investment. Improving the city's ability to compete with an aggressive Omaha business recruitment program is a high priority. Council Bluffs relies heavily on the Omaha economy; a relatively high percentage of Council Bluffs' residents work in Omaha.

Conditions

Council Bluffs has a higher percentage of very low- and low-income households than the metropolitan area or the State as a whole. For the most part, demand for employment, goods and services, and housing exceeds the supply in Council Bluffs.

Housing Needs

There is a need for rehabilitation of much of Council Bluffs' housing, both rental and owner-occupied. There is also a need for construction of new, subsidized rental units and rental assistance for more very low-income households.

Market Conditions

The housing stock of Council Bluffs was made up of 23,012 units in 1990. Of these units, 21,131 were occupied, 7,145 by renters and 13,986 by owners. Of the 1,881 vacant units, 585 were for rent and 183 were for sale.

A significant part of the city's housing supply was classified as substandard, meaning it was not meeting all housing code requirements. An estimated 40 percent of renter-occupied units and 36 percent of owner-occupied units were reported as substandard by the 1990 census.

The median value of owner-occupied housing in Council Bluffs in 1990 was $44,500. Since then, this value has increased; in 1995 the median was estimated to be $53,400.

In 1990 the median contract rent in Council Bluffs was $381 compared with $401 for the entire Omaha-Council Bluffs metropolitan area. The majority (58.8 percent) of rents in the city were between $300 and $499 per month.

Geographically, housing values are lowest in the central and western (closer to the river) parts of the city. The highest priced homes are farther from the river in the eastern portion of Council Bluffs. Rents are similarly distributed. The least expensive rentals are in the central city and rents of more than $400 per month are found primarily in the eastern parts of the city.

Affordable Housing Needs

A large proportion of lower income households are cost burdened, which means they pay more than 30 percent of their gross income for housing, including utilities. Some are severely cost burdened, paying more than 50 percent of their income for housing expenses.

Of Council Bluffs's 2,887 extremely low-income households, 64 percent are cost burdened and 48 percent are severely cost burdened. Of the 2,857 very low-income households, 51 percent are cost burdened and 11 percent are severely cost burdened.

Homeless Needs

An estimated 1,315 homeless persons per year need assistance in Council Bluffs. This includes 1,120 persons in 360 families with children, and 195 youths 17 years of age or younger. Of this population, 78 families with 267 members and 93 youths remain unsheltered. The rest are served by a small number of emergency shelters. The largest shelter, the private, nonprofit MICAH House Emergency Homeless Shelter, provides assistance to about 800 persons annually.

Public and Assisted Housing Needs

The Council Bluffs Municipal Housing Authority owns and manages a total of 295 public housing units in two communities that serve elderly and handicapped persons. The housing authority also administers a Section 8 rental assistance program with 499 certificates and vouchers. There are also 30 units of housing assisted through Section 8 moderate rehabilitation.

Barriers to Affordable Housing

Regulations on land and housing development over the long run result in lower housing costs than in an unregulated environment. However, these regulations do affect housing affordability in the short term by requiring that new developments pay a fair share of associated public costs. Some of the policies affecting housing costs include:

• Land use controls. The city's subdivision regulations do not contain excessive infrastructure standards, and only limited impact fees are charged for new development. There are presently no growth limitations that prohibit the construction of new affordable housing. Although the cost of new subdivision development in Council Bluffs is lower than in many areas of the country, required infrastructure does increase costs. Alternative methods of financing this infrastructure should be continually explored.
• Construction codes. Council Bluffs uses national model codes for building, electrical, plumbing, mechanical, and fire codes, with some local modifications. These regulations are generally considered reasonable by area builders. Permits are processed relatively quickly.
• Housing codes. The requirements of the city's minimum dwelling standards are not excessive and are necessary for the protection of public safety.
• Tax policies. The city is entirely dependent on State legislation governing taxation. An examination of tax policies was not undertaken for this plan.

Fair Housing

An analysis of impediments to fair housing was last done in 1991. Although much of the report remains relevant, a complete revision should be undertaken within the next 5 years.

Lead-Based Paint

Based on the age of Council Bluffs' housing stock, 4,697 units occupied by lower income renters and 10,325 units occupied by lower income owners are estimated to contain lead-based paint (LBP). However, the presence of LBP does not in itself indicate there is an LBP-related hazard. There must be flaking, chipping, or dust from the paint to create conditions that could cause lead poisoning, generally involving ingestion of paint residue by young children. Older housing in disrepair, often lower income rental units, has the highest potential for LBP problems.

The Iowa Department of Public Health indicates that the greatest incidence of lead poisoning is in areas of the State with the largest number of houses built before 1960. Rates of lead poisoning in Iowa are generally greater in rural areas.

Other Issues

There are also housing and supportive needs for the elderly, mentally disabled, mentally ill, physically disabled, substance abusers, and victims of domestic violence. In general, the needs of each group are similar -- affordable and accessible housing and appropriate supportive services, which vary according to the needs of each group.

The estimated need over the next 5 years for low-income housing with supportive services (including supervision for some groups) for persons with special needs includes:

• For frail elderly -- 150 units.
• For persons with mental illness -- 20 beds.
• For women with mental illness -- 40 units in group home settings.
• For men with slight to moderate mental illness -- single-room occupancy housing; number of units undetermined.
• For persons with physical disabilities -- 25 units.

Community Development Needs

Nonhousing community development needs, by category, include:

• Quality of life. Handicapped accessibility at park and recreation areas, a sports complex including ball fields, and general improvements to the existing park system; renovations to schools; a new central library; expanded health-care services; comprehensive child-care services for lower income persons who cannot afford private child care; and accessibility improvements to public buildings to comply with the Americans with Disabilities Act.
• Public safety. Improved design and space to increase the efficiency of the police department, added equipment and space for the police laboratory, and computer equipment; a new fire department facility in southeast Council Bluffs and cross-training of firefighters to improve the department's effectiveness; and improvements to the animal control facility.
• Utilities. A conveniently located solid waste facility for recyclables, a comprehensive study on storm drainage needs, and improvement and extension of the sanitary sewer system.
• Transportation. A master transportation plan; continuing a program of pavement resurfacing to extend the life of existing roadways.
• Economic development. An emphasis on development activities directed toward economic growth over mere stability.

Housing and Community Development Objectives and Priorities

The primary objectives are related to housing and include:

• Increasing the supply of standard, affordable housing through the rehabilitation of existing housing and the construction of new units.
• Promoting homeownership opportunities through the acquisition and rehabilitation of housing, construction of new single-family homes, and provision of below-market mortgage financing.
• Preserving existing homeownership through the renovation of owner-occupied, single-family homes.
• Addressing the needs of homeless individuals and families.
• Using economic development to help people achieve economic self-sufficiency.

Housing Priorities

Priority investments in housing include:

• Rehabilitation assistance to preserve lower income, owner-occupied housing.
• Assistance to lower income persons in becoming homebuyers through renovation of existing housing and provision of below-market mortgages.
• Rental rehabilitation and construction to improve conditions for lower income renters.
• Rental assistance to extremely and very low-income (0-50 percent of MFI) households through both project-based and tenant-based assistance.
• For non-homeless, lower income persons with special needs, the removal of architectural barriers and installation of accessibility modifications, and the development of housing with supportive services for the frail elderly and persons with physical and developmental disabilities.
• Aid to shelters and programs serving homeless persons and families.

Nonhousing Community Development Priorities

Economic development has a high priority in Council Bluffs' strategic plan. The objective is to generate more jobs for lower income residents through:

• Business retention and development.
• Development of tourism and convention trade.
• Public relations and image improvement to better promote Council Bluffs to both visitors and potential businesses.

Antipoverty Strategy

Council Bluffs' steps to reduce poverty include:

• Pursuing the economic development strategies in the Consolidated Plan with an emphasis on business recruitment and expansion that guarantees a percentage of positions for lower income residents.
• Coordinating all economic needs with the Iowa Department of Employment Services, Iowa Western Community College, and job training programs.
• Supporting development activities to retain and expand the economic mix of residents in lower income areas of the city.
• Continuing a self-sufficiency training program for persons in rental assistance programs.
• Creating incentives and programs to encourage private-sector investment in lower income areas.

Housing and Community Development Resources

To carry out this plan, Council Bluffs will make use of city, county, State, and Federal agencies and programs; educational institutions; nonprofit institutions; private lenders; and businesses.

Coordination of Strategic Plan

The organizations with primary responsibilities to implement this plan will be the Community Development Department, Municipal Housing Agency, nonprofit institutions, and private industry. However, the Community Development Department will have the lead responsibility for coordinating and implementing the city's community development and affordable housing activities, which will include recordkeeping and other administrative elements and monitoring contracts with subrecipients.

Description of Key Projects

Council Bluffs plans some 18 projects in 1995-1996 in the areas of neighborhood and housing redevelopment, homeless and transitional housing, public service and special needs, and economic development. Key projects include:

• $906,381 for rehabilitation assistance for 40 low-income homeowners.
• $110,000 to assist 10 low-income families in purchasing newly constructed single-family homes.
• $100,000 to establish a housing development fund.
• $46,000 to help MICAH homeless shelter rehabilitate its facility.
• $15,000 to Inter-Faith Response to provide emergency payment of housing and utility bills or deposits.
• $20,000 to Lewis Central School District to provide low-income children with scholarships to the district's after school care program.
• $10,000 to Nishnabotna Girl Scout Council to fund two sessions of day camp for low-income children.
• $100,000 to continue an economic development program which will provide job opportunities to low-income persons.

Maps

MAP 1 depicts points of interest in the jurisdiction.

MAP 2 depicts points of interest and low-moderate income areas.

MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.

MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.

MAP 5 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.

MAP 6 is a map, sectioned by neighborhood, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.

MAP 7 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the four neighborhoods indicated in MAP 6.

MAP 8 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of the four neighborhoods indicated in MAP 6.

MAP 9 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point; in addition, a table provides information about the project(s).