U.S. Department of Housing and Urban Development
Office of Community Planning and Development

Consolidated Plan Contact


Brevard County is a CDBG Entitlement grantee and participates in HUD's HOME program as a member of a consortium that includes the CDBG entitlement cities of Palm Bay, Titusville, Cocoa, and Melbourne as well as the County. Brevard County is home to the John F. Kennedy Space Center and the Space Shuttle Program. It contains the Canaveral Natural Seashore and millions of acres of irreplaceable marshlands. The County continues to experience rapid growth, having increased its overall population by over 125,000 persons during the 1980s to almost 400,000 overall. This population growth is occurring on the mainland due to stable growth in the space program and economic diversification. The County is committed to providing improved services and housing affordability for this expanding population.

Action Plan

The County and its consortia members administer approximately $4.4 million in CDBG funds and $1.4 million in HOME funds. Brevard County is also an ESG grantee and received $90,000 in FY 1995. The County and its Consortia members envision a plan to include rental rehabilitation, homeowner rehabilitation, first time homeowner assistance, housing counseling, acquisition and homeless assistance. The projects that will be undertaken are listed at the end of this executive summary.

Citizen Participation

This document is the result of considerable discussion and input from many different sources. The Consolidated Plan was developed through the collaborative efforts of County staff, City staff, local and county-based non-profits & for-profits, and the residents of the various cities and the County including the WLC Homeowners Association. To directly obtain input from the public, several actions were taken. First, a series of interviews were undertaken with County and City officials, nonprofit organizations, and private agencies involved in providing housing and other services to residents. In addition, public hearings were held in both the cities and the County to obtain additional input from residents. Copies of the advertisement for these hearings ran in the various local newspapers. Last, a completed draft of the Consolidated Plan for Brevard County and the various cities was made available to the public for comment for a 30 day period. Comments received during this period are summarized in the Plan.



Brevard County has a population of 398,978 according to the 1990 Census. The population has increased to an estimated 436,333 in 1994. These growth projections continue the shift of population seen in 1990 from the north and central areas to the central and southern areas. The population center in the north is the City of Titusville, the central area is composed of Cocoa and Rockledge, and the southern is Melbourne and Palm Bay. The southern area is the fastest growing and this is attributed mostly to the City of Palm Bay.

Minority populations including Asians, Hispanics, and Indians have been increasing throughout the County by approximately 50 to 100 percent. The influx of these populations has not been in centralized areas but rather evenly disbursed throughout the County. The White population has been increasing at a rate similar to the County's overall growth, approximately 46 percent. The County's Black population has been increasing at a slower rate than all other ethnic populations, and slower than the County's overall growth.

Household Income

The U.S. Department of Housing and Urban Development (HUD) establishes the income limits for low-income and very low-income families under the Housing Act of 1937. Income limits are subject to change each year, and are based on the HUD estimates of median family income for a given Fiscal Year. By statute, the definition for very low-income is tied to 50 percent of the median income level for an area, and the definition for low-income is tied to 80 percent of the median income for an area. However, the Consolidated Plan uses the terms low and moderate income to describe households at or below 50% and 80% of median income. These percentages are adjusted by the size of the household. The current median household income for Brevard County is $41,000. Following are 1995 income limits adjusted to family size:

1995 Income Limits Adjusted To Family Size

The basic guideline to determine a household's ability to afford housing is by the amount of income the household receives. The following table summarizes all County households by income:

Brevard County 1990 Households by Income
Income RangeHouseholdsPercentage
Less Than $ 5,0007,2624.4%
$5,000 to $ 9,99912,2837.4%
$10,000 to $ 14,99914,9289.0%
$15,000 to $ 24,99931,90219.6%
$25,000 to $ 34,99928,82517.4%
$35,000 to $ 49,99932,29319.0%
$50,000 to $ 74,99925,76215.6%
$75,000 to $ 99,9997,7684.6%
More Than $100,0004,6362.7%
Source: 1990 Census of Population

According to the CHAS Databook, there are a total of 165,659 households in Brevard County, of which 60,288 households have an annual household income that is considered to be either very low or low- income. In this Plan, those households that are low income earn an annual income that is 50 percent of the median household income level. Nineteen percent or 31,629 households are considered low- income. Those households that are designated as moderate- income earn an annual income that is 80 percent of the median household income. In addition, 28,659 or 17% of all households fall into the moderate-income category.

Employment Trends

Brevard County's employment characteristics indicate a fast rate of employment growth with development of a more diversified economy during the 1980s. The reasons for this employment growth are numerous. The development of the Space Shuttle Program at the Kennedy Space Center has provided more stable employment opportunities than previous space programs, enabling employees to settle permanently in the County. Corporations that provide technical support to the space program have also developed additional manufacturing related industries which are not solely Dependent upon the needs of NASA. This diversification of industry is providing economic stability which previously had been nonexistent, and largely determined by the unpredictability of NASA funding, which still has an impact today.

The County's total employment changed from 101,104 people in 1980 to 182,912 people in 1990 and 193,509 in 1994. The County's average annual employment growth from 1990 to 1994 was 5.8 percent which was lower than its population growth of 9.36 percent.

Unemployment Rates

The Count's rate of unemployment during the 1980s was cyclical due to economic effects at the national and regional level. Between 1980 and 1983 the unemployment rate increased from 5.6 to 7.8 percent, and it was caused mostly by the recession at both the state and national level. However, as the nation began its expansionary economic recovery the unemployment rate dropped dramatically during 1984 to 5.3 percent and remained between 5 and 6 percent on average for the remainder of the decade.

The unemployment rate went from 5.7 percent in 1990 to 8.1 percent in 1992 (.1 percent below Florida's unemployment rate, but .7 percent above the national average). The rate for 1994 was 7.0 percent.

Housing Stock

There are 171,984 total housing units of which 161,365 are occupied. Of these occupied units, 31% are occupied by renters and 69% by owners.

The breakdown of numbers of bedrooms for all occupied and unoccupied units shows:

0-1 Bedroom18,38211%
2 Bedroom57,70834%
3 Bedroom or More95,89455%

Assisted Housing

The Brevard County Housing Authority administers the Section 8 rental assistance program in Brevard. A total of 651 Section 8 certificates and 193 Section 8 vouchers are managed by the Authority's Section 8 office.

This tenant-based assistance program provides rental subsidies for income-eligible families to enable such families to rent private housing anywhere in the county.

The number of unused tenant based rental certificates and vouchers as of June 1995 is zero. The Public Housing Authority currently has a year and a half waiting list. The waiting list is presently closed to new applicants but is expected to open late in 1995. The Public Housing Authority did not expect to lose any units for any reason, including losses through prepayment or voluntary termination of a federally assisted mortgage.

Following is an analysis of certificates and vouchers by bedroom size:

Unit SizeSection 8
Section 8
0 Bedroom24024
1 Bedroom12332155
2 Bedrooms31489403
3 Bedrooms15867225
4 Bedrooms3528
Total642193 835



There are approximately 1,900 homeless persons in Brevard County. Homeless families with children represent 40% of the population while individuals are 60%. Of the individual homeless populations, 65% are males and 35% are females. In addition, 66% of the homeless are new; while 34% are considered chronic. Florida residents represent 75% of the homeless while 25% are non-residents. There are currently 423 beds available for the homeless.

Other Special Needs

There are not accurate counts of the need for housing for various special needs groups such as alcohol and drug related, persons with AIDS, victims of domestic violence, elderly and frail elderly, and physically and developmentally disabled. Facilities for these various populations are found in various locations in the County. There are more requests for housing than facilities available.


Housing Areas

The following income groups were examined for housing needs:

Low Income: Households earning between 0-50% of the areas' median income as adjusted for household size. Within the category a separate group of extremely low income are included as those households earning between 0 - 30% of median income as adjusted for household size.

Moderate Income: Households earning between 51 - 80% of the area's median income as adjusted for household size.

Middle Income: Households earning between 81 - 95% of median income as adjusted for household size.

While there are over 56,000 housing units and just over 49,000 households, the housing needs of some Brevard County residents are not being met because for the extremely low and low households these units are not affordable, may need repairs, and may be overcrowded.

A breakdown of housing needs by household income and units is provided for both owner and renter households.

Income as %
of Median
0-30%31-50%51-80%Above 80%
Renter Households8,1017,37311,03126,505
Net Available(2,383)2,61222,26222,491

There is a shortage of 2,383 affordable rental units for the 0-30% low-income households (8,101 5,718). When the affordable units available to households 0-50% is considered, there are only 229 remaining affordable rental units.

Incomes as %
of Median
0-30%31-50% 51-80%Above 80%
Occupied Units
Net Available(3,928)(53)25,971 29,846

There is not a shortage of units affordable to low income households. There is, however, a need to assist with reducing purchase prices and providing development assistance for lower income households in order for these households to qualify for home ownership.

Definitions used for the various households are:

Elderly Households: a one or two person household in which the head of the household or spouse is at least 62 years of age.

Small-related Households: a household of 2 to 4 persons which includes at least one person unrelated to householder by birth, marriage, or adoption.

Large-related Households: a household of 5 or more persons which includes at least one person related to the householder by blood, marriage or adoption.

All Other Households: a household of one or more that does not meet the definition of small related household, large-related household, or elderly household.

The breakdown by various income groups and by owner and renter categories of needs is as follows:


Low Income Rental Households (O - 50% of Median Income)

Within the 0-50% income group of renter households the 1990 Census shows the following number of household by type and kind of housing need.

An examination of rental households shows elderly low income renter households comprise 24% of all low income renter households. While small related households make up 37%. Other households which are defined as those which do not meet the definition of elderly, small or large related account for 32% of the rental households in this income group. Large related (5 or more persons) only account for 1%.

Within the total of 15,474 low income renters, 8,101 or 52% are extremely low income (0- 30%). Of this extremely low income group, 28% or 2,284 are elderly households. Of these elderly households 1,322 or 58% have some type of housing problem. These housing problems can include physical defects, or being overcrowded or cost burdened.

The largest group of household types having a housing need are small related households (5,081). This group represents 46% of all renters in this income range. One hundred thirteen of these households have a severe cost burden. A cost burden of more than 30% results in 2,151 households in need.

The second largest group of household types with housing needs are the all other category at 3,668. Of this total 87 are paying more than 50% of income for housing while 1,842 are paying more than 30% of their income for housing.

Elderly households comprise the third largest group at 1,277 with housing problems. Of this number 171 pay more than 50% of their income for rent while 730 pay more than 30%, but less than 50%.

Large related renters make up the smallest group of 1,025 households. Within this total, 11 are paying more than 50% of their income for housing and 28%, or 284 households, are paying more than 30% of their income. When the amount of households in this group with housing problems is considered 56% of the households (579) have housing needs.


A five-year plan for what the County and the various cities hope to accomplish is included as a part of the plan. The County's part of the plan is discussed below under the CDBG projects to be funded. The individual cities have received City Commission approval of their CDBG plans separately. However, their individual strategies are included in this plan for the consortium but not profiled below.

The objectives listed below are a combination of the various cities' objectives and those of the County. This combination of the consortium activities is required under U.S. HUD regulations.

The overall purpose of this Consolidated Plan for the Brevard County HOME Consortium is to set goals and objectives for the Consortium as a whole for those housing needs funded by HOME monies and to detail the objectives set by each individual city and the County of the use of its CDBG monies. The Emergency Shelter Grant, ESG Program is also discussed from the County's perspective.

The broader overall goal for all cities and the County covered by this plan is to achieve the vision of a viable community for each of the areas citizens. The goals to achieve this vision include:

The County established its priorities after a series of neighborhood and interest groups meetings held in a variety of areas across the County. The neighborhoods and interest groups involved in these meetings and the dates were:

The listing of each of the needs from each group are contained in the Appendix of this Plan. A number of priorities were identified and strategies to address each were developed. These are detailed below.

1. Housing Needs - Non-Homeless

The need to provide affordable housing to renters, renters who wish to become home owners and existing home owners is well documented by citizen input. The strategy to address this includes:

Strategy #1

Maintain and expand the affordable housing options available to low and moderate households. This includes a strong emphasis on home ownership activities for both renters and existing home owners. Efforts will include assistance to renters to purchase affordable housing and repairs to substandard units.

Rental assistance by the Housing Authority will continue to be supported to reduce the problems of cost burden.

Repairs to rental property owned by for profits and non-profits will also be supported.

The County will generally support applications for these programs and resources from eligible non-profits and other entities as well as applying for funds directly. The failure to list a specific resource under this section will not prevent the County or other groups from applying for a resource.

2. Homeless Population Strategy #2

Provide services for the homeless and those at risk of becoming homeless to continue to support the continuum of care away from homelessness.

There are approximately 1,900 homeless persons in Brevard County and a much higher number of persons at-risk of becoming homeless.

The County and the various cities and the Housing Authorities and various non-profits are undertaking several activities to prevent persons from becoming homeless and to assist those which are homeless. For those persons which are homeless the County will continue to work with the various cities and the homeless facilities found in the County.

Some of the emergency shelter and transitional housing needs are being addressed by use of ESG monies. These types of support services such as day care. These types of support services are necessary in assisting persons in making the transition to permanent housing and independent living.

To assist persons to afford permanent housing, low interest financing will continue to be provide to develop affordable housing.

Individual low/moderate income households will be provided assistance with down payment and closing costs to make home ownership affordable.

3. Other Special Needs Housing

All categories of special needs populations were given high and medium priorities. The County will address these needs with affordable housing (i.e., rental assistance and production of units) health care (prescription assistance), education and counseling, child care and job training. These various activities are detailed in the non-housing section of this Plan.

4. Non-Housing Community Development Needs

The non-housing community development part of this plan identifies those needs which are eligible for assistance under the CDBG Program. The long-term objectives stated at the beginning of this section cover both the housing and non-housing needs. The short-term objectives include those CDBG activities which will be funded in the next year. These are directed toward Strategies #'s 3, 4 and 5.

Strategy #3

Provide for the non-housing needs through improvement of infrastructure, and public facilities including parks and community centers. Ensure these improvements are accessible and energy efficient.

Strategy #4

Provide for the necessary public services support needed to improve quality of life.

Strategy #5

Encourage activities which produce and retain jobs.

Public Facility Needs

A medium priority was given to senior centers, youth centers, neighborhood facilities, child care facilities, other public facilities and parking facilities. A high priority was assigned to parks and health facilities.

Infrastructure improvements

Street improvements, sidewalks and flood drainage have a high priority and all other items on Table 2 were given a medium priority, except solid waste disposal which was given a low.

Public Service Needs

All services received a medium priority except substance abuse activities and employment training, child care services and health care services which received a high priority,

Accessibility Needs

These needs are funded in individual project renovations and construction as needed. A high priority was assigned.

Historic Preservation Needs

There are a limited number of historic properties in the County and a medium priority was assigned.

Residential Preservation is a medium priority overall since much of the housing which needs repairs is not historic. However, when a historic or potential historic property is identified for renovation all historic guidelines are followed.

Economic Development Needs

Technical assistance to businesses received the highest priority, while most other activities were a medium. Commercial industrial improvements and micro-businesses received a low.

Other Community Development

Both energy efficiency and lead paint improvements are addressed where required under any renovation work funded with federal dollars. The plan identified only the potential for lead paint in units built before 1978. Neither County health officials or County housing inspectors have records of lead paint problems in the County. Nevertheless, the County and the Housing Authority will continue to follow all lead paint requirements and when renovating housing with federal dollars address and correct any lead paint hazards.

Energy Efficiency Improvements, Lead Paint and Code Enforcement - all received either a high priority or medium ranking and represent ongoing efforts of the County.


This received a high priority and represents ongoing efforts of the past 21 years.

5. Proposed Accomplishments

For each of the long term objectives and strategies listed at the beginning of this section certain accomplishments are proposed.

Please note that many of these goals depend upon a very uncertain federal funding picture. Accomplishments expected are stated on a per year basis using this current years' funding. This average number can be expected to be followed for the five years covered under this Plan. However, specific projects or groups to be funded are not projected beyond this years' amounts. These goals are listed in random order.

Goal #1 - Improve Health, Safety, Welfare, Recreational and Other Opportunities

Goal #2 - To Create and/or Retain Jobs

  • Provide monies for facade education and job training
  • Provide interim financing to assist businesses through use of the CD float

    Goal #3 - Provide for Affordable Housing Opportunities

    Please note many of the housing resources depend upon a changing federal budget and restructuring of U.S. HUD.

    Goal #4 - Provide services for the homeless population and persons at risk of becoming homeless

    Goal #5 - Provide Public Service to Low/Moderate Income Residents

    Provide this year for the following services in partnership with other providers.

    Goal #6 - Leverage Federal Dollars to Encourage Private Development

    Goal #7 - Ensure Compliance with Equal Opportunity and Fair Housing Laws

    Goal #8 - Remove Architectural Barriers

    Goal #9 - Continue to Provide Planning and Administrative Support


    The County and various cities have the following resources available to address the needs identified in the plan:

    Federal Programs


    Brevard County has joined with the City of Titusville, the City of Cocoa, the City of Palm Bay, and the City of Melbourne in a Consortium which has been awarded $1,241,000 through the HOME Program in FY 95. The Consortium received $1,142,000 in FY 94. Fifteen percent (1 5%) of the funds are reserved for use by a Community Housing Development Organization, which must have 501 © status and meet other mandates of HUD. There is a 25% match for all activities. Match funds have been obligated from state grant funds (SHIP). The HUD approved Brevard County's HOME Program description which described rental home rehabilitation, owner occupied single family rehabilitation, and first time home owner assistance activities. These activities will benefit persons at or below 80% of median income adjusted for family size, (i.e., at or below $32,800 for a family of four).

    Community Development Block Grant (CDBG)

    Each of the HOME Consortium members administers Community Development Block Grant Program funds. For FY 1995 the following amount of CDBG funds were made available to each member: City of Cocoa - $352,000; City of Melbourne - $773,850; City of Titusville - $461;000; City of Palm Bay - $900,000; and Brevard County - $1,949,999. Activities for the use of these funds include: single family housing rehabilitation, housing counseling and acquisition.

    Emergency Shelter Grant Program (ESG)

    The County also receives monies for assistance to homeless and special needs populations. This current year's allocation is $86,450.

    Other Federal Programs

    Various organizations including the Housing Authority have received monies from such programs as:

    Section 202
    Public Housing Comprehensive Improvement Assistance
    Section 8

    Non-Federal Programs

    State Programs

    The State of Florida provided funding in fiscal year 1994 for a number of housing programs.
    Among these are:


    The Brevard County HOME Consortium members will receive a total of $2,489,615 as an annual allocation for use in home-ownership activities. These monies come from a state wide set aside of monies for use in assisting persons to purchase homes, build new homes or repair existing. Most of the monies (at least 65%) must be spent on home ownership. None can be spent on rental assistance. At least 60% of the units assisted must be occupied by households with incomes at or below 80% of median income. SHIP monies can be used to match federal and state programs.

    The breakout of SHIP monies for each member of the Consortium is as follows:

    Brevard County$1,374,018
    City of Cocoa$102,821
    City of Melbourne$371,700
    City of Titusville$233,277
    City of Palm Bay$407,799

    Uses: Home ownership activities, Rental Housing, Home ownership counseling

    Local Programs

    Brevard County Housing Agency funds. The Brevard County HFA is empowered to issue bonds to provide housing finance as follows:

    Mortgages on existing and newly-constructed housing affordable to low-, moderate- and middle-income persons; and

    Rehabilitation loans for existing housing owned or rented by low-, moderate- and middle-income persons.

    Use: New Construction/Rehabilitation/Home buyer Assistance

    Private Resources


    Local lending institutions are providing technical assistance, office space for client interviews, and commitment of funds for mortgages for low-income, first-time home buyers.


    A variety of local churches provide food, clothing, owner occupied housing repairs and assistance to the homeless. Habitat for Humanity's two offices provide new homes to eligible clients. More specific information on nonprofit providers is discussed in the full Consolidated Plan.

    Specific Projects Proposed for Funding

    The specific projects contained in the Plan selected for funding, by source of funds, is as follows:

    CDBG Program
    1. Cuyler Park
    Community Center addition to Cuyler Park Community Center
    $ 200,000
    2. Cocoa West Community Center
    Community Center Addition
    3. Joe Lee Smith Community Center Construction of storage building addition$ 28,000
    4. Devos Avenue
    Drainage Improvements
    $ 214,932
    5. Lean Street and Clarence Court Street improvements$ 97,400
    6. West Railroad Avenue Paving and drainage improvements$ 236,470
    7. Child Care Association Child care services$ 49,000
    8. Fisher Lane Construction of sidewalks$ 23,920
    9. Schoolhouse Lane Sidewalks$ 35,517
    10. Vietnam Veterans Transitional housing for veterans$ 15,000
    11. Demolition/Clearance Demolition and clearance of 15 homes$ 75,000
    12. Brevard Community College
    Education, job training, social services, recreation and drug free environment
    $ 15,000
    13. Central Brevard Sharing Center Prescription assistance$ 15,000
    14. Rehabilitation Administration$159,079
    15. Cuyler Park Learning Center Provides education and tutoring assistance$ 55,954
    16. National Technical Association Scientific education opportunities$ 62,465
    17. Plan Consultant Planning assistance$ 15,000
    18. Program Administration$ 324,782
    19. AlcoRest, Inc. Residential Alcohol Treatment Center$ 56,543
    20. AlcoHall, Inc.Building Improvements to Women's Residential Facility$ 24,014
    21. Unprogrammed Funds$ 140,000

    Emergency Shelter Grant (ESG)
    1. Temporary Living Center Rehabilitation of Center$ 43,225
    2. Genesis House Homeless Shelter Counseling assistance$ 43,225
    3. ESGrant Admin $ 31,550

    HOME Monies
    1. Firsttime Homebuyers Assistance Assistance with down payment and closing costs$ 60,000
    2. Housing Rehabilitation Owneroccupied rehabilitation$ 372,798
    3. HOME Administration $ 57,707


    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 low-moderate income areas, unemployment levels, and proposed HUD funded projects.

    MAP 6 depicts Neighborhood Segments and streets with proposed HUD funded projects.

    To comment on the Brevard County Consortium's Consolidated Plan, please contact:

    Bernice Jackson
    Director of the Brevard County
    Human Services Department
    Phone: (407) 633-2076

    Return to Florida's Consolidated Plans.