The Panama City Consolidated Plan presents strategies for addressing housing and community development needs for the citizens of the city. It includes a One-Year Action Plan for spending approximately $570,000 in CDBG funds and approximately $128,000 in State SHIP funds in 1995. These funds will be spent primary on housing for very low and low income families.
During the development process of the Consolidated Plan, the city consulted
with public and private agencies that provide assisted housing, health services
and social services to the citizens of Panama City. Correspondence was also
sent to these organizations requesting their attendance at a public hearing for
the purpose of gathering data for the Needs Assessment and Annual Plan segments
of the City's Consolidated Plan. A public hearing was held and public notice
regarding this hearing was placed in the local newspaper, the Panama City News
Herald, two weeks prior to this hearing regarding the time and place and
inviting all interested persons to attend. Once the housing needs assessment
for the citizens of Panama City was concluded, CPD staff analyzed the data and
prioritized housing activities according to need. After this determination was
made, sources of funding for realizing these priority goals were discussed. A
summary of the City's proposed Consolidated Plan was advertised in the local
newspaper. A thirty day citizen comment period began on July 11, 1995 and
continues through August 9, 1995.
Panama City is a medium-sized community bounded by two adjacent
municipalities, unincorporated areas of Bay County, and the St. Andrew Bay
estuarine system. The potential for new growth within the existing City limits
is limited due to the quantity and site characteristics of the available vacant
land. The city's jurisdictional area is approximately 12,000 acres or 19
square miles. U.S. Census of Population recorded 14,053 households residing in
Panama City in 1990, for a total of 34,378 persons. Forty three percent (43%)
of those households are considered low income , and twenty eight percent (28%)
of all households were considered very low income. The median income for Panama
City is $28,216, twenty five percent (25%) less than that of the national
average. Minority households represent twenty four percent (24%) of the City's
total population. Fifty four percent (54%) of the black households are
considered very low income, while only twenty eight percent (28%) of the white
households are considered very low income. The other income levels are equal in
percentages between these two population segments. In reviewing census data,
all subpopulations have increased in size from 1980 to 1990, with the exception
of the black population which has decreased by six percent (6%). The biggest
population segment surges have been in the Native American and Asian/Pacific
Islander populations which have increased eighty two percent (82%) and one
hundred eighteen percent (118%), respectively, from 1980 to 1990. In Panama
City, the median household rent is $364.00 per month, while the median mortgage
payment is $540.00.
The City has a diversified economy with its largest employers being the military, government, hospitals, paper mill, Arizona Chemical Company, and Sunshine Stores (a grocery store/convenience store chain). Due to being a tourism town, unemployment is high during the winter time and fairly low during the summer months because of the number of seasonal tourism related jobs.
Eleven thousand of the 16000 existing housing units in the city were built prior to 1979. Over 8,500 of those units are occupied by either renters or owner households whose incomes do not exceed 80% of the median income for the city. When these two factors, low income occupants and outdated housing, are combined, the condition of these homes slowly deteriorates because repairs cannot be made when needed due to lack of personal funds, and/or adequate federal subsidy programs to assist these families with needed repairs. All indicators point to a decline in standard housing built prior to 1979.
According to the 1990 Census data, of the 3,465 renter households whose incomes are less than 80% of the median income, 1,920 or 33% of those households are paying in excess of 30% of their income for rent. One thousand eleven (1,011) households, or 17% of that same population are debt burdened to the extent that they are paying in excess of 50% of their monthly income for rent. The balance of these households would be debt burdened if they were not on a federal subsidy to assist them with their housing expense.
No date is available regarding the number of housing units in the city that are substandard. However, the CPD believes that any structure that was built prior to 1940 must have some substandard conditions just from the age of the house. The number of housing units built prior to 1940 is 1134. In the October 1992 issue of Affordable Housing Issues, it was stated that a family must make a minimum annual income of $12,720 to be able to "afford" an average one bedroom rental unit. Thirty seven percent (37%) of our low income households do not earn that and therefore are not paying "affordable" rent. A family's minimum income level to "afford" an average two bedroom rental unit must be $15,000 per year. Forty three (43) percent of our low income households do not pay "affordable" rents for two bedroom units.
1990 Census Data shows the total number of very low income families at 4009, of which 2460 are renters and 1549 are homeowners. The largest segment of very low income renters are elderly and small households. Large households make up the smallest percentage of very low income renters. Of the 1549 very low income homeowners, 1019 are elderly. 1990 Census Data shows that very low income families, whether they be renter or owner, have the highest percentage of families with housing problems. Sixty nine percent (69%) of renters, or 1697 families, and fifty eight percent (58%) of owners, or 573 families, are paying housing expenses in excess of 30% of their monthly income. Of that same very low-income group, forty nine percent (49%) of the renter households, or 1200 families, and thirty seven percent (37%) or 573 of the owner households experience severe debt burdens of paying in excess of 50% of their monthly income for rent. In rental housing, small families (families with 2-4 members) have the largest percentage of housing problems, with 743 families paying in excess of 30% of their monthly income for rent. In the very low income (0-30% of median) segment of the population, twenty eight percent (28%) of the large family renters, or 473 households, experience overcrowding. In the next very low income (31-50% of median) segment, thirty nine percent (39%) or 674 large family households experience overcrowding. This overcrowding stems directly from the income level of the large family. They do not have sufficient income to rent the size house that they need to adequately house their large family, and are forced into renting a smaller house to enable them to pay for other essentials besides rent. The percentage of this same income population who are owners living in overcrowded conditions is estimated at less than 3%. The total number of low income families is 2155, with 1005 being renters and 1150 being homeowners. The various family sizes are fairly equal in distribution. In the low-income category, 41% of the renters population or 412 families are paying in excess of 30% of their income for housing expense, while only 21%, or 241 owner households are experiencing the same debt burden. Thirty percent or 527 households of the large family renter population experience overcrowding in their home. Still at this higher income level, the families cannot afford a unit big enough to adequately accommodate their family. The percentage of this same segment of population who are owners living in overcrowded conditions is estimated to be less than 3%.
The 1990 Census counted 69 homeless persons in Panama City. Forty five were housing in emergency shelters, and 24 persons were visible in street locations. According to the Fifth Annual Report to the Governor and Legislature regarding Homeless Conditions in Florida, dated February 1, 1994, Bay County has estimated the daily homeless population at 448. With Panama City being the County seat and housing 26% of the total county population, and using that percentage for a calculation basis, it is estimated that the homeless population of Panama City would be 116 persons. This is an estimated figure and can in no way be substantiated. At the present time, the Panama City Rescue Mission is the one emergency shelter for the homeless that exists in Panama City. The Rescue Mission's first priority is to provide emergency shelter for persons who have no permanent residence. The Mission assists homeless persons with emergency shelter, meals and clothing. The facility's designed capacity is 20 women and 49 men, with the normal duration of stay being three nights. The Rescue Mission also administers supportive services by giving clothing and food baskets to the homeless, and providing furniture to the needy. Most of the nighttime residents at the Rescue Mission are single men who have come to Panama City looking for work. The elderly, handicapped, families with children, and women, make up a very small percentage of the clientele assisted at the Rescue Mission. The Hidle House and Anchorage Children's Home provide shelter and residential counseling services, without charge, to runaway and other homeless youth. They also provide families with counseling services either at Anchorage Children's Home or in the Client's home. Due to the high number of runaway and homeless youth, additional beds are needed. Catholic Social Services, Inc., of Panama City, a non-profit agency, provides a wide range of services for the homeless. Since 1975, homeless persons have been assisted with food, clothing, and other services. In 1988, the agency received a grant-in-aid to be used for deposit money to aid the homeless. In August 1990, a homeless shelter for single mothers with children was opened called Naomi House, and has been well received in the community.
Thousands of dollars of inkind benefits in the form of volunteer hours, furniture, and household goods has been provided. In 1992, St. Barnabas House, was opened for intact homeless families. These two facilities can house 36 people or approximately eleven families, depending, of course, on the family size. The length of stay at these facilities is two months with a possible one month extension. In addition to providing shelter for these clients, other services are available. Job placement, acquiring suitable permanent housing, parenting skills, transportation, food, clothing, rent/mortgage payment assistance, counseling, and providing needed medical assistance and prescription are available to all homeless whether they are being sheltered or not. There were four group living homes and one foster home for the developmentally disabled, accommodating 38 persons. There are two living facilities which provide transitional housing for the developmentally disabled until such time as they can be moved into a group home. The Department of Developmental Services also provides job training, money management, and transportation for these persons to enable them to move into a non-restrictive environment. For the adult and elderly having special needs, there were 16 facilities that could accommodate 310 persons.
In 1995, there were 450 conventional public housing units administered by the Panama City Public Housing Authority. In 1995, there were 414 Section 8 vouchers and/or certificates in place., with none idle, nor any housing units vacants. None of these units are anticipated to be lost through public housing demolition or conversion to homeownership. As of the submission of the City's plan, there were 800 families on the waiting list for subsidized housing, either Section 8 or Conventional Housing. It is probably safe to say that a large percentage of this waiting list is comprised of the same families who are severely rent burdened. At the present time, there are ten units accessible to the handicapped, and these units are specifically set aside for those handicapped families who are in need of affordable housing.
The NIMBY syndrome is hard to address unless the public's attitude changes. Many residents of neighborhoods that originally did not want "affordable" housing constructed, have found that their property values have gone up. Education, therefore, would seem to be the strategy to address this negative effect of the NIMBY syndrome. The public needs to know that the City is not building the slums of tomorrow, but are simply helping deserving hard working people buy homes of their own.
In regard to the older housing stock, because the use of lead base paint was not banned until 1980, this agency must assume that a majority of these houses contain lead based paint. Utilizing a worksheet provided by the National Center for Lead Safe Housing, and 1990 Census Data, it is estimated that 2544 rental units occupied by low-income families and 3324 low- income owner occupied units have some lead based paint in them.
Panama City has several community development needs, the majority of which will be addressed by City government and the private sector. These needs are as follows: youth and neighborhood facilities, infrastructure improvements, transportation, affordable child care, and code enforcement.
Community Development and Planning, Inc., currently administers the federal
CDBG and the state SHIP program within the city. The staff of the CDP, Inc. is
comprised of a Director, CPD Specialist, Rehabilitation Manager, and a Clerk.
The current staff administers three different funding sources for housing:
federal block grant program, federal rental rehabilitation program, and the
state SHIP program. The CDP, Inc. currently administers the Bay County SHIP
program. The Panama City Public Housing Authority administers the Section 8
program and the conventional housing programs in the City and County. The
Weatherization Program, administered by the Bay County Council on Aging, will
continue to provide weatherization services to homes occupied by low income
families, who are either elderly or are recipients of AFDC. The City's local
government has enhanced the "CHIP Program" by (1) changing city
ordinances regarding land use, (2) granting concessions involving water/waste
water fees, and (3) the waiver of site plan review fees. The Bay County
Homeless and Hunger Coaliton and the Catholic Social Services continue to be the
primary advocates in the fight for the homeless. These two non-profit groups
apply for funding sources to assist the homeless in Panama City as well as Bay
County and the surrounding areas. These two groups work in conjunction with
each other and support a network of resources for clothing, food, shelter and
jobs for the city's homeless.
The City has identified certain housing needs. They are as follows:
1. Rehabilitation of Owner Occupied Housing
The analysis of very low and low income owner occupied housing shows that, at a minimum, 1134 owner occupied houses are substandard.
2. Homeownership Opportunities for Low Income Families
The City of Panama City is strongly committed to providing new housing opportunities for the lower income population of our City. In an analysis conducted as to the needs of families wanting to become homeowners, two factors became evident:
The continuance of leveraging ratio of private dollars to public dollars will be a primary objective in an effort to enhance housing opportunities for the citizens of Panama City through the HIP program. This program is a partnership between the City, private lenders and developers. Public funds acquire the land, and private funding constructs the house. In addition to adding to the housing stock of Panama City with the benefit going to lower income families, the HIP program has enhanced economic development and broadened the City's tax base, as previously vacant properties are now generating revenue. This program has also aided in the elimination of slum and blighting influences in the City. In conjunction with the acquisition/disposition of land, the local lending institutions, through the Community Reinvestment Act, shall continue to be a prime source of private funding for the construction of new housing.
The CPD will also expand the opportunities for homeownership among the lower income citizens of the City through the Down Payment Assistance Program for the purchase of existing homes. The City shall continue a program that was introduced last year: Acquisition/Rehabilitation Program. The City purchases substandard housing, repairs it to standard and sells it to a qualified low income family. This program has assisted approximately ten families in homeownership who could not afford the "new build" HIP program.
3. Affordable Rental Housing for Low Income Families
The 1990 Census data shows that there is an adequate number (900) of vacant "affordable" rental housing units to accommodate those families who are paying "unaffordable" rents. These vacant "affordable" housing units may be substandard rental units thereby making them affordable because of their condition. However, families would prefer to pay rent in excess of their financial abilities to enable them to live in decent sanitary housing. The City shall continue to upgrade the rental housing stock in the City through the use of CDBG funds and private funds.
There are no non-housing community development priorities addressed.
The following resources and programs are anticipated to be pursued over the coming five year period:
Federal State
CDBG SHIP
EHR
Weatherization Program
The City is not an eligible applicant for the following resources, but will support other entities and nonprofits in their application for these sources:
Federal State
Section 8 Rental Program LIHTC Program
Public Housing Development Market Rate Rental Loan Program
Section 202 Housing Predevelopment Trust Fund
Section 811
Comprehensive Grant Program
HOPWA
HOPE II and III
There are, at this time, six local lending institutions who have pledged funds for permanent financing for housing to be purchased by low income families who have been qualified through the City's Housing Initiative Program and the ACHAB Program. These institutions, known collectively as the Bay Consortium for Community Development, have taken concessions by (1) relaxing underwriting guidelines, and (2) offering a competitive fixed interest rate. The BCCD has also offered a one point reduction in interest rate for a family purchasing a home in the City's Redevelopment Areas. Other lending institutions have expressed an interest in becoming partners in this consortium.
Community Development and Planning, Inc., currently administers the federal
CDBG and the state SHIP program within the city. The staff of the CDP, Inc. is
comprised of a Director, CPD Specialist, Rehabilitation Manager, and a Clerk.
The current staff administers three different funding sources for housing:
federal block grant program, federal rental rehabilitation program, and the
state SHIP program. The CDP, Inc. currently administers the Bay County SHIP
program. The Panama City Public Housing Authority administers the Section 8
program and the conventional housing programs in the City and County. The
Weatherization Program, administered by the Bay County Council on Aging, will
continue to provide weatherization services to homes occupied by low income
families, who are either elderly or are recipients of AFDC. The City's local
government has enhanced the "CHIP Program" by (1) changing city
ordinances regarding land use, (2) granting concessions involving water/waste
water fees, and (3) the waiver of site plan review fees. The CDP, Inc. has
recognized monitoring techniques regarding the City's housing programs that are
in place at the present time. These techniques include quarterly reports as to
production and quality of completed units, and scheduled review meetings.
Meetings with staff are held when needed to discuss problems, progress and
performance in regards to housing activities. The CDBG program is monitored
by the U.S. Dept. of Housing and Urban Development, while the State SHIP program
is monitored by the Florida Housing Finance Agency. Both programs are audited
annually.
The activities listed will be carried out on a city wide basis.
The CDBG, SHIP and Rental Rehabilitation Programs will be administered by Community Development and Planning, Inc. The Section 8 and Public Housing subsidy programs will be administered by the local PHA.
At a minimum, ten new homes will be built on sites purchased with either CDBG or State SHIP funds. At a minimum, 20 families will be assisted in becoming homeowners by providing either down payment or closing costs assistance with State SHIP funds. At a minimum 32 families will received assistance for home repairs, either with CDBG or State SHIP funds. Two families will become homeowners through the City's ACHAB program.
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.
