The City of Orlando, called "The City Beautiful" because of its many lakes and verdant tree canopy, is located in Orange County in Central Florida. Widely known as a major tourist destination with such attractions as Disney World and Universal Studios, the economy also draws on banking and finance, manufacturing and distribution, healthcare, film and television, high technology, and international trade. Incorporated in 1875 with about 85 inhabitants, the City has grown to a 1995 population of 173,218 in a metropolitan area of 1,398,700 people.
The City of Orlando Consolidated Plan presents a strategic vision for housing and community development in this diverse city in a growing metropolitan area. It includes a One-Year Action Plan for spending approximately $4.5 million of Community Development Block Grant (CDBG), HOME Investment Partnership Program, Emergency Shelter Grant, Housing Opportunities for Persons with AIDS, and program income funds during 1995 - 1996. These funds will primarily be spent on housing, infrastructure, economic development, and public services.
The Consolidated Plan was built through a collaborative process involving the City's Office of Housing and Community Development as the lead agency, diverse housing organizations, public and private agencies, the State and other local jurisdictions, the community, the local public housing agency, social service agencies, and other City government departments. The Citizen Advisory Committee, composed of members from neighborhood clusters containing more than 51% low and moderate income persons/families and one member representing nonprofit housing providers, heard proposals for the CDBG funding and made recommendations. HOPWA recommendations developed by the HIV/AIDS Planning Council, and HOME, and ESG recommendations developed by two evaluation committees were also brought before the Citizen Advisory Committee.
Two public hearings were held after publication in the local newspaper. A thirty-day comment period preceded approval by the Municipal Planning Board July 18, 1995 and City Council on August 14, 1995.
MAP 1 depicts points of interest in the jurisdiction.
The City of Orlando is centrally located in Florida. According to the 1990 Census, the population was 164,693, up 25% from 1980. The largest increase in population was among Hispanic and Asian and Pacific Islanders (187% and 157% respectively). The elderly population increased 15%.
Median family income (MFI) in 1990 for the metropolitan statistical area was $35,805, but by 1994 it had risen to $40,000. In 1990, 45% of all households in Orlando were low and moderate income (with income below 80% of MFI). African-Americans represented the largest number of households (45%) in the extremely low and low income categories with incomes at or below 50% of MFI. Elderly households also comprised 35.3% of the extremely low and low income households. The majority of households with income at or below 50% of MFI (72.8%) are renters.
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.
The 1988 Housing Conditions Survey looked at 21,562 dwelling units in 56 Traffic Zones. Of these, 4,207 units (19.52%) were substandard (needing extensive repairs or dilapidated). These were areas where more than 51% of the residents were low and moderate persons/families, where there were numerous emergency rehabilitation efforts, and where citizens had identified run-down homes or offices as one of the top three problems in their neighborhood.
Those most in need are extremely low income households (income between 0 and 30% of MFI) and low income households (income between 31% and 50% of MFI) which require assistance with defraying housing costs and addressing housing problems regardless of whether they are renter or owner households. About 73% are renters and 27% owners. About 35% of the households with income between 0% to 50% of MFI are elderly.
In 1990, single-family units made up 48.2% of the housing stock. For the first time, multi-family units exceeded the number of single-family units in the City. They accounted for 51.8% of the entire housing stock. Multi-family units continued to be an attractive housing type due to the rising homeownership costs. The median sales price was $87,090, requiring $25,478 as qualifying income. The average monthly cost of an owner-occupied unit with a mortgage was $748. In 1990, the median monthly rent was between $400 and $499. For 3 bedroom units, the rental rates exceed affordable rates by more than $200 per month. In general, a minimum 2% vacancy rate for owner-occupied and a minimum 6% vacancy rate for renter-occupied units is considered adequate to address the housing needs of the community. The overall vacancy rate for owner units was 2.86% and for renter units it was 11.11%.
Those most in need are extremely low income households (income between 0 and 30% of MFI) and low income households (income between 31% and 50% of MFI) which require assistance with defraying housing costs and addressing housing problems regardless of whether they are renter or owner households. About 73% are renters and 27% owners. About 35% of the households with income between 0% to 50% of MFI are elderly.
The estimated homeless population has increased from 1,700 homeless individuals on any given day to 3,449. There are nearly 1,000 shelter spaces that can be used for emergency shelter. However, the need for transitional and affordable housing is large. Among supportive service needs of the homeless population are transportation, education, job training, child care, substance abuse services, medical care and AIDS counseling.
The Orlando Housing Authority has 1,917 assisted housing units. It plans restoration and revitalization in the 13 developments. There are currently 173 applicants on the Public Housing waiting list and the estimated waiting period for a unit is approximately one year. The status is open. The OHA has authorization from HUD to provide 1,740 needy families with Section 8 certificates and vouchers. The Section 8 waiting list has 453 applicants and an estimated waiting time of two to three years. The Section 8 waiting list has been closed as of June 1994 and is projected to reopen in 1996.
According to the State of Florida Dept. of Health and Human Services, there are over 3,117 adult cases of AIDS and 48 pediatric cases as of May 1, 1995 in the Orange, Osceola, Lake, and Seminole County area. The greatest housing needs of AIDS clients is for case management, assistance with monthly rent, and monthly utilities assistance.
The major impediments to producing rental housing, promoting new homeownership opportunities, alleviating overcrowding and meeting the needs of underserved populations include the existing housing market, tougher construction requirements statewide in response to recent hurricane damage, limited capacity of potential non-profit organizations to participate in or execute affordable housing projects, and lending requirements and practices. The private sector carries the burden of providing the majority of the housing needed by City residents. The primary exception to this are the extremely low and low income persons/families, who are provided with public housing, and the homeless. Increasingly, these income groups are having to rely on non-profit groups.
The city government and the Affordable Housing Advisory Committee (AHAC) have reviewed public policies, land use regulations, zoning ordinances and subdivision regulations, building codes, permitting processes, for example. Eleven affordable housing issues, AHAC recommendations, and an implementation schedule have been included in the Affordable Housing Incentive Plan (AHIP) which was adopted by City Council on January 13, 1994. The City has taken steps to provide incentives to leverage private sector development of affordable housing, including, among other efforts, impact fee reductions and centralized permitting.
The City pursues an active program to affirmatively further fair housing through its Office of Human Relations, including workshops and seminars, tenant association meetings, public service radio announcements, and processing housing discrimination complaints. In March 1992, the City adopted an ordinance substantially equivalent to the federal Fair Housing Act.
Of the 73,425 housing units in the City of Orlando, about 70% were constructed before 1980, when lead-based paint was still in use. It is estimated that about 62% of the housing units (renter and owner) occupied by low income households are at high risk for lead-based paint hazards. Lead-based paint abatement has been part of the City's housing rehabilitation program and the Housing Authority's housing modernization over the last eight or nine years. It is estimated that the Orange County Public Health Unit screens about 4,000 children annually for lead poisoning. In 1994, 118 cases (3%) were identified.
Although the unemployment rate in the City is low, a large segment of the workforce are employed in low paying service industry jobs. A basic purpose of economic development in Orlando is the creation of expanded and diversified job opportunities. Within a neighborhood-based economic development strategy aimed at assisting small and minority businesses, the priority needs of low income persons appear to be education and job training, technical assistance to small and minority businesses, gap financing, and matching grants for facade improvements. Priority needs in infrastructure development are to meet level of service standards, eliminate existing deficiencies, and upgrade existing public facilities citywide.
The City works through a variety of public/private partnerships to leverage available federal and local funding resources to provide affordable housing, supportive services and infrastructure, childcare, housing counseling, shelter for the homeless, etc. There is coordination of planning and of project activity with a variety of non-profit organizations providing affordable housing or housing supportive services, with a network of homeless shelter and service providers, a four-county AIDS planning and services network, a local consortium of banks and lenders, other local governments and housing task forces.
The City's overall goals support the national goals of community development and planning programs to develop viable urban communities by providing decent housing, a suitable living environment and expanding economic opportunities principally for extremely low, low and moderate income persons/families. Principal portions of HOME and CDBG funds provide for housing rehabilitation and homeownership opportunities citywide. CDBG funds provide for needed expansion of neighborhood/community centers and infrastructure and for a microloan program to assist small and minority businesses.
Although specific subgroups (large families, the elderly, the homeless) may have problems that are unique to their populations, housing problems in the City are primarily related to low income, an aging housing stock, lack of vacant land for infill housing, a tight (low) vacancy rate for owner units, and rents from $53 to $200 higher than affordable rates. Anti-Poverty StrategyHousing priorities and strategies reflect these factors. Community development objectives are to develop viable urban communities by providing decent housing, a suitable living environment, and expanding economic opportunities principally for extremely low, low and moderate income persons/families. In order to further its deconcentration objectives, the City will encourage economically diverse projects that include housing units for all income levels. Areas with high concentrations of extremely low, low and moderate income persons, structural deterioration, and severe need for neighborhood economic and physical revitalization are the City's highest priority for funding.
The priority needs for affordable housing are for extremely low, low and moderate income persons/families (income does not exceed 80% of MFI). Programs aimed toward reducing housing cost burdens and increasing the supply of affordable housing include: the rehabilitation of existing single-family units, both owner and rental, the rehabilitation of multi-family rental units, and downpayment assistance for first-time homebuyers, and assistance to public housing residents to become more self-sufficient.
The priorities for homelessness alleviation include provision for adequate emergency shelter and supportive services, supporting transitional housing programs, and providing supportive initiatives and programs through nonprofit organizations and the Housing Authority to reduce the risk of homelessness.
The priorities for non-homeless persons with special needs are to provide for the rehabilitation of homes of the elderly and for supportive services for them, and to provide case management, housing assistance, and support services for persons afflicted with the Human Immunodeficiency Virus (HIV).
The highest priority is for areas not meeting the level of services standards where more than 51% of the residents are extremely low, low, and moderate income families/individuals citywide. CDBG and other capital improvement funding would be allocated to those areas in severe need of physical and economic revitalization citywide. High priorities are for drainage improvements, improvement of neighborhood facilities, parks and recreational needs, street and sidewalk improvements, and financial and technical assistance to existing and emerging minority-owned micro-businesses.
The City believes that a primary barrier that its residents have in overcoming poverty is education and training opportunities. Customized educational and training programs are encouraged. In 1994, several local entities, including the City, Orange County and the Orlando Aviation Authority developed economic development activities that focus on job skills development. The inability of small and minority-owned businesses to access capital and the small scale of the businesses present barriers to business and employment opportunity. In 1993, the City established a MicroLoan Program for new and existing small businesses which also included the requirement that these businesses must create jobs for extremely low, low and moderate income persons residing in the Parramore Heritage neighborhood. The City ensures that Section 3 requirements are included in all contracts and agreements for projects implemented with CDBG funds. The City is also ensuring that affordable housing is accessible to transportation and employment. The HANDS Resource Center maintains a listing of rental and for sale affordable units located in the City and throughout Central Florida. The units in this inventory are usually well below market rents and would be affordable to persons at or below the poverty line.
The primary Federal resources include CDBG, HOME, Emergency Shelter Grants, HOPWA, Section 8, public housing modernization programs, Transitional and Supportive Housing programs. State resources include the State Housing Initiatives Partnership Program, and Low Income Housing Tax Incentives (when available). Local resources include City general funds for the Sewer Impact Fee Program, code enforcement fines for the Housing Code Assistance Program, and tax increment funding. Private resources include the funds pledged by the lender consortium, the Central Florida Community Reinvestment Corporation.
The Housing and Community Development Bureau, located within the Planning and Development Department, is the principal City agency responsible for producing and implementing the Consolidated Plan. This office works with other City personnel, outside agencies, diverse housing organizations, public service providers, the school board, and other local governments to encourage and support affordable housing, related services, and related community development. Continual coordination occurs with the Orange County Planning Department, Housing and Community Development, and Office of Affordable Housing for a mutual sharing of resources that are the result of long-term intergovernmental cooperative efforts.
MAP 5 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.MAP 6 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
The City of Orlando One-Year Action Plan outlines the proposed use of approximately $4.5 million in CDBG, HOME, Emergency Shelter Grant, HOPWA Grant funds in addition to program income. The funds will be spent mainly on various housing and community development activities, including:
Housing rehabilitation programs and public services are available to extremely low, low and moderate income persons/families citywide. The assistance for persons with AIDS is available in Orange, Osceola, Lake, and Seminole Counties. Public facilities and infrastructure improvements are planned for neighborhoods where 51% or more of the residents are extremely low, low and moderate income persons/families. Emergency shelter and homeless services are provided at several shelters located in the central city area. The microloan program is currently being implemented in the Parramore Heritage Renovation Area.
The City of Orlando Housing and Community Development Bureau is the lead agency. It will work in coordination with nonprofit public service providers, CHDOs, private developers, other city departments, the Local Health Council and aids service organizations, the Homeless Services Network, and the Orlando Housing Authority to implement the One-Year Action Plan.
At least 185 single-family owner-occupied housing units will be rehabilitated; at least 26 multi-family units will be rehabilitated; over 30 downpayment assistance loans to help purchase affordable housing are anticipated; about 1,500 persons will receive comprehensive housing counseling; over 2,500 persons will receive emergency shelter, case management and supportive services; about 1,000 persons afflicted with AIDS will receive housing assistance; at least 1,700 persons will receive Section 8 assistance, and 45 households will move toward self-sufficiency.
Diana Johnson
Coordinator, Community Development
400 S. Orange Avenue
Orlando, FL 32801
(407) 246-2895
U.S. HUD contact: Kathy
White CPD Representative
