The city of Lakeland, Florida, was incorporated on January 1, 1885, in Polk County. Lakeland's proximity to Tampa and Orlando and its location in the center of the State have attracted industries interested in a central distribution location. Publix Supermarkets, with nearly 4,000 employees, is Lakeland's major employer. Lakeland Regional Medical Center employs nearly 2,700 people, and Watson Medical Clinic employs another 980.
Lakeland's Consolidated Plan will focus primarily on seven neighborhoods -- Kathleen, Webster, Diggs, North Lake Wire, Parker Street, Dixieland, and Central Avenue -- that have a combined population of 16,800. The city will have an estimated $1.5 million in Community Development Block Grant (CDBG) and HOME Investment Partnership funds for its Consolidated Plan in 1995. The majority of this money will be spent on housing activities such as rehabilitation, code enforcement, and homeownership assistance.
Four public meetings were held to receive resident comments on the draft of
the Consolidated Plan. The first was held at Lake Ridge Community Center on
January 23, 1995, with subsequent meetings held February 6 and 20, and April 3.
All hearings were publicized. Another public notice was published on March 3,
1995, providing residents with a summary of the Consolidated Plan.
The phosphate and citrus industries influenced Lakeland's early growth, but those influences have started to wane. When freezes and recessions in the early 1980s dramatically affected these two markets, Lakeland began diversifying its economy. Strong marketing and annexation policies attracted manufacturers. Unused citrus groves provided land for housing development. Lakeland continues to grow and adapt to economic and demographic fluctuations, capitalizing on tourism and economic development based on its central Florida location.
According to the 1990 census, Lakeland's population almost doubled over the
previous 10 years. The city had 73,794 residents, a 49-percent increase over the
number of residents in 1980. The largest population segments were those between
the ages of 25 and 34 and those more than 65 years of age. In 1990 slightly more
than 20 percent of Lakeland's population were African American and about 3
percent were Hispanic.
Unemployment in Polk County has traditionally been among the highest in the State. Between 1990 and July 1993, unemployment ranged between 8 percent and almost 14 percent.
In 1993 the city's median family income (MFI) was $32,400 for a four-person household. More than 37 percent of Lakeland's population earn less than 80 percent of the MFI.
The 1990 census reported that 85 percent of the 34,933 available housing units are occupied. There are more than 9,000 one-person households, but only 600 efficiency and 5,100 one-bedroom units. Two-person households occupy many of these units, a fact that indicates a deficiency in the number of units available to smaller households. There is an adequate supply of larger units; 40 percent of the existing units have three or more bedrooms and more than 34 percent have more than six rooms. A little more than 6 percent of all households have more than four people and need larger units. In the larger units, overcrowding in low-income households occurs frequently.
According to the 1990 Florida Statistical Abstract, 10 percent of the population of Polk County live below the poverty level with incomes of less than $12,700 per family of four. Twenty-one percent of all households are very low-income (0-50 percent of MFI), 15 percent are low-income (51-80 percent of MFI), and 9 percent are moderate-income (81-95 percent of MFI).
Approximately 66 percent of the very low-income group spend more than 30 percent of their income on housing, and 40 percent spend more than half. Sixty-four percent of low-income households have housing problems, and 27 percent have a housing cost burden greater than 50 percent of their incomes. Only 26 percent of moderate-income households have housing problems, most of which are related to affordability.
The Lakeland housing market has changed with Lakeland's average household size, which has decreased from 2.36 persons per household in 1980 to 2.2 persons. In 1976 building permits were issued for roughly equal numbers of single-family, duplex, and multifamily homes. By 1980 twice as many single-family units as multifamily units were permitted. Building permit records show that between 1983 and the end of 1994, multifamily developments composed more than 50 percent of the city's residential construction. By 1990 only about 52 percent of all units were single-family, 7 percent were duplexes, 22 percent were multifamily, 16 percent were mobile homes, and 1 percent were other types of units.
Based on previous trends, the city anticipates that the majority of the housing demand will continue to be for single-family units. Unfortunately, a shortfall is anticipated, and with the tight housing market, it is expected that the private sector will concentrate on higher-cost housing, thus transferring the housing shortfall to the lower-income housing market.
According to the 1990 census, nearly 11 percent of the rental units were vacant and almost 4 percent of the owner-occupied units were vacant and for sale. The city's median housing value in 1990 was $61,400. By March 1994 the Lakeland Association of Realtors reported an average sale price of $80,517 for single-family homes. According to the city's Affordable Housing Incentive Plan, a housing unit selling below $70,000 for non-subsidized units and $60,000 for subsidized units would be considered affordable to households earning less than 95 percent of MFI.
Housing costs, down payment requirements, and poor credit histories keep many families from buying single-family homes. Families with incomes below the MFI have problems securing a loan to purchase a home. Homeownership training and counseling and gap financing are necessary if families with incomes below the MFI are to become homeowners.
The city also needs more affordable rental housing. Lower-income households have difficulty finding decent, affordable rental units. The fair market rents range between 10 and 25 percent above what a household with an income below 50 percent of the area median can afford. Large families in particular have difficulty finding suitable rental units due to a limited supply of rental units with three or more bedrooms. These families often rent older homes that frequently need repair.
The need for more medical care, counseling, and training for homeless individuals is the city's primary concern.
According to a recent count, there are 148 homeless persons in the city. There are 267 beds and 27 transitional housing units to help the homeless and people threatened with homelessness. Lakeland has four primary agencies that provide services to the homeless: Talbot House, Catholic Social Services, Lighthouse Ministries, and the Salvation Army. All of these agencies have temporary shelter and self-help programs. The Salvation Army recently opened a new transitional housing complex, but its existing facilities must be renovated to meet the community's needs. The Salvation Army and Lighthouse Ministries extend vouchers for food and bus transportation. Various agencies also help with clothing and vocational programs.
A shelter for runaway youth and single-room occupancy or transitional facilities for young adult males also are needed. These two populations are not being served adequately, according to local agencies. However, the agencies believe that sufficient facilities are available for the homeless who are severely mentally ill, alcohol- or drug-addicted, or are fleeing domestic violence.
Lakeland has 2,176 subsidized rental units for low-income households. The Lakeland Housing Authority operates seven complexes with a total of 748 units. A waiting list for those units has 134 families.
The housing agency also administers project-based Section 8 rental assistance to 631 households. Elderly persons occupy 269 units; families live in 344; and 28 are vacant. The 2-year waiting list for Section 8 housing includes 260 applicants.
The city has four possible barriers to affordable housing development. First, a zoning ordinance limits mobile homes to mobile home parks or subdivisions, a measure passed to protect historical development patterns and land values. Second, accessory apartments and detached secondary dwelling units are restricted in single-family zones. In areas such as the South Lake Morton Historic District and a portion of the Parker Street Neighborhood, however, existing accessory and secondary structures are considered conformable in single-family areas, and new accessory and secondary residential structures are permitted, but only by conditional use.
Additionally, the Historic Preservation Ordinance restricts activity within historic districts for significant structural alterations. The design review process does not prohibit substantial remodeling or new construction. This program works closely with property owners or developers to ensure protection of the districts' integrity through reasonable design of new structures and proper rehabilitation of existing structures.
Finally, new development impact fees, which the city has collected since 1967 to provide infrastructure, other capital facilities for transportation, fire protection, law enforcement, and recreation, also add to housing costs. However, the City has a program for impact fee reimbursements for qualified low income home purchasers.
The city has an ordinance to ensure fair housing and is completing an analysis of local impediments to fair housing.
The city estimates that more than 11,000 housing units occupied by very low- and low-income households (nearly 75 percent of the total) contain some lead-based paint. Nearly 62 percent of the units were built between 1960 and 1978, and almost half are renter-occupied.
As part of its rehabilitation plan, the city abates lead-based paint hazards whenever necessary and will continue that policy. When the city sells a home with the potential for lead-based paint hazards, the purchaser is notified of the potential hazard. If there is a child in the purchaser's family, the city will eliminate the potential hazard before the sale is completed.
As of January 1995, Health and Rehabilitative Services (HRS) has documented four cases of lead-based paint poisoning within the Lakeland area. HRS has indicated more cases are likely to exist. In June 1994 Lakeland applied for the Lead-Based Paint Abatement and Poisoning Prevention Grant from the U.S. Department of Housing and Urban Development (HUD) but did not receive funding.
Several groups of individuals have special needs that the city should address. For example, nearly 45 percent of very low- or low-income elderly people have some type of housing problem. The lower the income, the higher the probability that the household will have difficulty with housing costs or conditions. The city administers a rehabilitation program that is targeted to low- and very low-income owners. Unfortunately the program cannot keep pace with the need. Rehabilitation assistance and either direct or unit rental subsidies will continue to be necessary to support the elderly population.
Persons with mental illness primarily need supportive housing. Local agencies estimate that between 350 and 740 households with a severely mentally ill person need supportive housing.
Agencies that assist developmentally and physically disabled persons expressed concern about the lack of affordable, handicapped accessible housing that would provide independent living for their clients. The Palmview Hospital, which provides extensive inpatient and outpatient services for people with alcohol or drug addictions, estimates that many of its clients need supportive housing.
PHASE, which provides prevention education and emotional and physical support services to all persons with or knowing of someone infected with HIV, estimates that about 20 people with HIV/AIDS in the county need supportive housing. It was not possible to ascertain how many of these persons with HIV/AIDS live within the city or the urban area.
The city has identified a number of community development needs that it plans to address in the next 5 years:
Lakeland's primary goal is to provide a decent home and suitable living environment for its residents. This objective can be accomplished through programs aimed at stabilizing and reversing the deterioration of neighborhoods, creating affordable housing opportunities for low- to moderate-income families, and promoting self-sufficiency.
The city's housing priorities were established according to previously approved policies and goals, such as those in the Lakeland Comprehensive Plan. Approved programs, such as the Local Housing Assistance Program, also were considered when establishing the priorities for this Consolidation Plan. Consideration was given to those communities with the worst housing situations and to those households limited in their ability to afford decent housing. The priorities for the next 5 years include the following:
The city's priorities for non-housing community development include:
The city will attempt to address issues relating to poverty through assistance to both outside agencies and city programs. Funded activities that provide assistance and training to lower-income persons include: the Family Self-Sufficiency program, Salvation Army programs, drug prevention activities after school in public housing, science education, post-natal counseling to reduce the high incidence of close interval pregnancies, CPR training for public housing residents, maternal health care for low-income women, teen center activities, volunteers to assist elderly shut-ins, programs for persons with disabilities, drug abuse counseling, and recreational programs for low-income children.
The Housing Assistance Partnership Task Force will continue to focus on training and counseling activities that help families become homeowners. Economic training will be an important focus during the next year in the HOPE 3 program. The Affordable Housing Advisory Committee and the Housing Assistance Partnership Task Force will continue to oversee the implementation of housing programs and attempt to ensure affordable, decent housing for all residents.
In addition to Federal resources, Lakeland will look for funds from the State, which has become more aggressive in funding housing-related programs. The Elderly Owner Occupied Housing Rehabilitation Grant was awarded to the city in 1990 and 1992. The grant provides a comprehensive funding package for housing-related activities. Other State programs such as the State Apartment Incentive Loan are used by developers to rehabilitate or construct rental apartments.
On the local level, funds that were available from the Neighborhood Housing Services Program have been used for homeownership assistance. The city appropriated general funds for the Housing Assistance Program to be used for loan guarantees for low- to very low-income homebuyers. Funds also have been provided by the Salvation Army to assist with the debt payments for their new transitional housing facility.
The members of the Keystone consortium are the primary source of funds for home purchases by low- and very low-income families. Occasionally, rehabilitation assistance is also available.
The city has an established Housing Assistance Partnership Task Force that includes the housing agency, city staff, nonprofit organizations, lenders, realtors, developers, and private agencies that provide supportive services. The task force oversees the implementation of State funding, but the city has expanded its role to assist with closing gaps that exist in services, ensuring that financing and technical assistance are available to all households in need.
The Housing Assistance Partnership Task Force, Citizens Advisory Committee,
and other pertinent committees will be used to provide comments and suggestions
in addressing the needs of the community. These groups will be asked to comment
on funding requests and to provide recommendations to the City Commission on the
final use of CDBG and HOME funds.
The following list provides a sample of Lakeland's Consolidated Plan projects for 1995:
Lakeland's Community Development Department and, specifically, the Housing Programs Coordinator will be responsible for the oversight of Federal, State, and local government resources.
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).
