Polk County is located in central Florida between Orange County (Orlando area), and Hillsborough County (Tampa Bay area) and extends almost to Lake Okeechobee on the south. Land area covers 2,010 square miles, which makes it the fourth largest county in Florida. This large area makes for diversity varying from the rural south and east to the more urbanized north and west.
The County is rich in natural resources. Agriculture and phosphate mining support the rural areas. Citrus groves and cattle ranches are found throughout the County. Phosphate mining is concentrated in the south and west. The other noteworthy rural feature is the Green Swamp which covers most of the northeast quadrant. This important aquifer supplies the Floridan Aquifer, main drinking water source for the Tampa Bay area. The Peace, Hillsborough, Withlacoochee, and Kissimmee Rivers also originate in the Green Swamp. The many lakes are also tourist attractions for bass fishing. Environmental protection vs. property rights has been a major planning issue in Polk County rural areas, due to the Green Swamp and past deleterious effects of phosphate mining. Polk County is also a center for major league baseball spring training to the Cleveland Indians and the Kansas City Royals.
The County has identified sixty-nine (69) low and moderate income areas eligible for federal assistance. For the next five years, the County will direct it's funds to sixteen (16) targeted neighborhoods. Our main goal is neighborhood-based revitalization for low and moderate income areas in the County. A coordinated effort is needed to improve the lives of low income our citizens rather than scattered assistance.
The Polk County Housing and Community Development (HCD) Consolidated Plan (CP) presents a strategic vision to assist those communities most in need. The County has sixty-nine (69) neighborhoods with more than 51% low and moderate income residents. Of these areas, sixteen (16) have been given priority for revitalization. One- and Five Year Action Plans are presented for spending approximately $10 million of Community Development Block Grant (CDBG), HOME Investment Partnership Program (HOME), and Emergency Shelter Grant (ESG) funds in FY 1995-96 and projected activities to the year 2001.
In order to maximize public participation in preparation of the CP and other housing and community development activities and to gain involvement of existing and potential service providers, four (4) workshops were held on February 15-16, 1995 around the County. Two Public Notices were published in the Polk County Democrat. Approximately two hundred letters were sent to social services and affordable housing providers, advocates for the interests of low-and moderate-income persons, public housing mangers and residents, and community development advocates inviting them to the workshops and public hearings.
Two public hearings were held in addition to the four (4) public workshops
and were also publicized in the Polk County Democrat. The Citizen's Advisory
Committee met in April to recommend which projects would be funded and reviewed
the Consolidated Plan in July. Before and after the second public hearing, for
a 30 day period, the draft CP was available for public review and comment.
Copies were placed in 13 city halls, two public libraries, and at the HCD
offices. The CP was approved on August 15, 1995.
In 1980, Polk County was home to approximately 252,827 people and to 310,081 in 1990, an increase of 23%. Two (2) of the three (3) communities experiencing growth rates of over ten percent (10%) are in the northeast quadrant of the County. This growth is an offshoot of Disney World and suburban Orlando. The three communities experiencing negative growth are located in central Polk County. Polk County experiences a large migrant population influx every year. The Florida Department of Labor and Employment Security, Bureau of Agricultural Programs reports that peak season (January 30) migrant worker employment is approximately 9,870 workers, centered about the Winter Haven Area. The Agricultural and Labor Program, Inc. estimates year round farm worker population residing in Polk County at 19,038. The Census figures are most likely deflated because the Census count is taken after peak season. The population of Polk County is predominately White, all other groups are less than ten percent (10%) of the population. The majority (75%) of year round housing units in the County are owner occupied.
Polk County's adjusted median family income (MFI) is eighty-one percent (81%) of the national median. The MFI for the Polk County Metropolitan Statistical Area (MSA) in 1990 was $28,985. Forty-six percent (46%) of the 115,138 households were low and moderate income households. The total percentage of low/moderate and middle income households decreased slightly from fifty percent (50%) in 1980 to forty-seven percent (47%) in 1990. Proportions of low income people have declined with a corresponding increase in moderate and middle income people. This implies that the income curve has shifted slightly upward. In other words, Polk County households were a little better off in 1990 than in 1980.
Concentrations of low and moderate income persons are most frequently found
on the edge of our urban areas. Concentrations in the unincorporated area are
found in Bradley, Loughman, Nichols, and along lake Weohyakapa just south of
State Road 60. More than half of the Black population in Polk County is below
eighty percent (80%) of MFI, with the majority being fifty percent (50%) or
lower. The same is true for the Hispanic population.
The largest employers in the County are the phosphate mining and citrus industries. However, these type of jobs have been decreasing since the 1980's and are being replaced with lower paying service type activities for the tourist population.
In our strategic planning process to develop the Consolidated Plan, we identified sixty-nine (69) low and moderate income areas potentially in need of assistance, based on percentages of income eligible persons, unemployed persons, renter-occupied dwelling units, and dwelling units without public water and sewer. Sixteen of these neighborhoods were identified for targeting of our funds. Based on past CDBG assistance, community resident activity, and need.
Housing needs of low and moderate income persons have been categorized by income, family, and minority status. There is a considerable deficit of rental units affordable to very low income households (making less than thirty percent (30%) MFI), and smaller deficits affordable to other categories. Large renter families have the highest need for affordable housing. Minority families of all types have disproportionate needs for affordable housing.
There are 186,255 housing units, in the incorporated and unincorporated areas of the County. Fifty-three percent (53%) are single family detached, thirty-four percent (34%) are mobile homes, and the remainder are multi-family units, the majority of which are duplexes, triplexes and quadruplexes. In 1990, Polk County had 138,546 year round housing units in the unincorporated portion of the County. Of these units seventy-five percent (75%) are owner occupied and twenty- five percent (25%) are renter occupied. Rental units had a vacancy rate four times greater than those available for sale, indicating the lack of a need for new rental units.
There has been a twelve percent (12%) increase in the housing stock since 1990. Housing starts rebounded sharply in early 1994, then tapered off in spring due to rising interest rates. More mobile homes were added to the housing stock than any other housing type, continuing the trend that occurred from 1980 to 1988. In contrast, the proportions of single family homes or multifamily units remained constant or dropped during the reporting period.
A third of the single-family housing in Polk County was built prior to 1980, potentially requiring rehabilitation. The lowest income groups typically occupy these units and are unable to afford rehabilitation. The increase in mobile home construction shows that more households are turning to alternative forms of housing because of the rising costs of traditional housing. Additionally, the cost burdens for low, very low, and moderate income persons is high enough to prevent these groups from saving a down payment for purchase of owner occupied housing.
The increase growth of Section 8 voucher waiting lists illustrates the need for affordable rental housing. Due to the extreme costs burdens rental assistance is required, as well as first time home buyer programs for downpayments and home ownership training.
The homeless population in Polk County fluctuates depending upon the time of the year. Due to Florida's mild climate, the transient homeless population swells during the winter. An accurate number can never be properly determined because many homeless persons do not chose to enter shelters. However, according to service providers, the majority of homeless are located in Lakeland due to the availability of homeless services. Approximately sixty-five percent (65%) are single men, twenty-five percent (25%) are women and children, and ten percent (10%) are families. The homeless population also includes forty percent (40%) with alcohol/drug abuse problems, twenty percent (20%) have severe mental illness, and half have HIV/AIDS related diseases. The fastest growing sector is women and children, especially those victims of domestic abuse.
The percentages of those able to acquire housing assistance is less than ten percent (10%) of the population in all categories. Service providers agree that transitional housing and support services are the biggest homeless need. The major homeless provider meeting continuum of care needs is the Salvation Army; the remainder provide types of services. Polk County is endeavoring to coordinate the homeless services in Polk County.
Polk County, although designated a Public Housing Agency, does not own nor operate any public housing units. No units are anticipated to be built by the County. Cooperating jurisdictions have 524 units available out of a total 1,382. Comparing waiting list needs with corresponding numbers of units by bedroom size, the greatest deficits are in tree-bedroom units.
There are a total of 93 units assisted with Section 8, seventeen (17) are unused despite the waiting lists. Breakdown by size is as follows: 17 one-bedrooms, 26 two-bedrooms, 42 three- bedrooms, and 8 four bedroom units. Of these, 12 need one-bedroom units, 61 need two- bedroom units, 100 need three-bedroom units, and 29 need four-bedroom units.
Special needs populations requiring supportive housing are the frail elderly, persons with mental and physical disabilities, substance abusers, and persons with AIDS and related diseases. Members of these populations of the lowest incomes are on the border of becoming homeless.
It has already been stated that households with low incomes have problems finding affordable housing in Polk County. Other reasons includes steering techniques practiced by realtors and building to the high end of the real estate market where marketability is higher.
Institutional barriers to affordable housing, as well as community development, can be either regulatory or procedural. The two are really related, for procedural impediments usually arise from regulatory constraints. Local government development controls present the first set of barriers, particularly to redevelopment efforts and affordable housing. These include segregation of land uses through zoning, overly stringent and inflexible lot size and coverage regulations, and building placement requirements. These tend to raise housing unit costs. Environmental constraints such requiring on-site storm water retention pose additional barriers. Communities in need of redevelopment usually were built prior to promulgation of development regulations. Redevelopment and infill construction are impeded by substandard parcels that cannot be developed according today' standards. Polk County has recognized these problems and plans to adopt more flexible performance-based development regulations through a Unified Development Code.
An Analysis of Impediments to Fair Housing was completed in September 1994. Based upon survey responses, Polk County needs to make a commitment to:
Due to the number of structures constructed before 1980, there is a hazard potential from lead- based paint. Approximately 41,000 residential units were constructed prior to 1960. Ninety percent (90) of households with potential lead-based paint problems are inhabited by children.
As previously stated, there are sixty-nine (69) low and moderate income areas eligible for federal assistance. In preparing the Consolidated Plan, a needs assessment was completed across the County. Different needs were given a high, medium, or low priority. Across the county senior centers, neighborhood facilities, child day care facilities, parks and/or recreation facilities, flood drain, street, sidewalk and sewer improvements, senior services, youth services, child care services, health services, accessibility needs, and planning were given a high priority. Youth centers, health facilities, handicapped services transportation services, substance abuse services, employment training, crime awareness, fair housing counseling, non-residential historic preservation needs, commercial-industrial rehabilitation, technical assistance, and energy efficiency improvements were given a medium priority. Other needs such as parking facilities, solid waste disposal improvements, asbestos removal, other infrastructure improvements, tenant/landlord counseling, residential historic preservation needs, commercial-industrial infrastructure and other improvements, micro-business and other economic activities, and lead-based paint abatement were given a no such need priority.
The above described needs are countywide; subsequently, a needs assessment will be completed for each targeted neighborhood. Sixteen (16) neighborhoods have been highlighted for the targeting of our funds. Within our targeted neighborhoods (described later), some of those needs deemed a low or medium priority in the Consolidated Plan may become a high priority for that neighborhood. The specific needs of the targeted neighborhoods will be given priority in funding decisions. Our approach is to let the community tell us what their needs are and back this up with primary and secondary information such as census data. The Florence Villa Target Area Redevelopment Plan used this approach. A needs assessment was completed for the area and a plan developed from the needs assessment. We are encouraging neighborhood groups to complete their own neighborhood needs assessments. This provides neighborhood ownership of the revitalization effort and reduces our workload. Implementation of federal programs will be more successful in these areas using this approach.
In implementing the activities stated in the Consolidated Plan, the Housing
and Community Development Division coordinates it's efforts with other County
agencies, cooperating jurisdictions, and other public service providers.
Currently, we are working with the City of Winter Haven and other service
providers in coordinating services in one of our targeted areas, Florence Villa.
This will be a model for steering groups for other neighborhoods and for
activities countywide.
Our overall goal is the revitalization of the County's most distressed areas. The following strategies are used to provide for a successful revitalization:
Along with the following for housing development strategies:
Polk County Housing and Community Development Division has given priority to those funding applicants that submit projects for our sixteen (16) targeted neighborhoods. For example, Haven Day Care presented a proposal that provided day care for Florence Villa children. Florence Villa is one of our target neighborhoods and affordable day care is an identified need in this area. Additionally, the Highland Park Manor Community Association has completed their own needs assessment and has presented this office with a proposal requesting a community center. Technical assistance will be provided to this organization to ensure the feasibility of the project.
Our objectives are to fund projects that address the causes of problems not the symptoms, as stated in A. above with the list of strategies. To implement this, we have provided percentages to each of the six strategies depending on the amount needed for improvement.
Strategy |
Amount to be Expended |
% CDBG/ ESG/HOME Total Expenditures |
|---|---|---|
|
Combatting the causes and results of low income |
$ 9,792,195 |
18% |
|
Eliminating health and safety hazards |
$ 7,744,780 |
14% |
|
Providing adequate infrastructure and public facilities |
$13,269,380 |
24% |
|
Developing needed parks and recreation facilities |
$ 986,165 |
5% |
|
Removing slum and blight |
$ 892,135 |
2% |
|
Preserving historic structures |
$ 565,000 |
1% |
| Total Community Development Expenditures | $35,249,655 |
63% |
It should be noted that expenditures are not a true measure of program performance or degree of commitment; infrastructure projects require more funding for a service area than providing day care for the same service area. The five year expenditures for addressing these strategies total $35,249,655. Percentages are also provided with the Housing Development strategies of preserving the County's existing housing stock and increasing the supply of affordable housing as well as eliminating the causes and effects of homelessness. The five year projected housing expenditures totals $12,013,360.
Priorities for affordable housing include two strategies, preserving the County's existing housing stock and increasing the supply of affordable housing. Applicants who submit applications implementing these types of activities in our sixteen (16) targeted neighborhoods will be given preference. Additionally, this includes addressing the housing cost burdens for small, large, and elderly households. Eliminating the causes and effects of homelessness is the priority for homeless activities. Preference is given to those applicants who implement the homeless continuum of care. For FY 1995-96 the Salvation Army is completing this activity. Homeless prevention is also a priority of the County and such a program is implemented by the Social Services Division of the Polk County Department of Human Services.
Countywide priorities include those high priorities previously stated: senior centers, neighborhood facilities, child care centers, parks and recreation facilities, drainage, water, street and sewer improvements, senior services, youth services, child care services, health services, accessibility needs, code enforcement, and planning. However, on the neighborhood level, these activities will be implemented in conjunction with other activities. Coordinating activities in a single area is better than scattered activities over the entire County.
Most of our funds are directed toward our targeted neighborhoods and those applicants who implement our high priority needs in these areas. However, funds will be available for similar activities countywide. We understand that persons living outside the targeted areas can have the same needs.
Polk County does not have a formalized/stated Anti-poverty Strategy. However, one of our highest priorities is combatting the causes and effects of low incomes. The funds directed toward this activity support our public service activities such as day care, job training, assistance for families and children in crises and self-sufficiency programs.
Two (2) years ago, the Polk County Board of County Commissioners made a policy decision to set aside a portion of the CDBG funds to be allocated to 13 cooperating jurisdictions that are too small to be entitlement cities. Our office requires that these cities also implement the strategies identified in the CP. Historically, the cities have used most of their funds for infrastructure, public facilities, or recreation. Starting with FY 1994-95, the cities were encouraged to establish neighborhood revitalization target areas for their projects, and also to develop multi-year plans for use of funds. Most of them have completed this task.
The other projects are administered by County agencies. These include HCD and other County service providers; e.g., agencies providing services to the elderly, veterans, the homeless, and others in need of housing assistance. The remaining projects are administered by non-profit subrecipients. These are again mostly public service or public facilities, including such services as child care, handicapped services, housing activities, homeless prevention, substance abuse treatment and prevention, etc. These are the types of services that the County does not have the expertise to supply in-house. The non-profits in the County also implement their own initiatives with similar outcomes as those stated in the Consolidated Plan.
The primary federal resources used by Polk County include CDBG, HOME, and Section 8 (run by Polk County's Social Services Division). Resources available from the state include several grant program awarded to non-profits across the state and the State Housing Initiatives Partnership Program (SHIP). The SHIP program provides our match for the HOME program.
The major gap in the system is a lack of a strong coordination allowing for potential overlap of services (further explained in the next section). More coordination among homeless providers is also needed. the Polk County Housing and Community Development Division is attempting to address these issues.
Polk County HCD is responsible for all administration of CDBG, HOME, and ESG program activities and mainly acts as a pass-through entity by providing funds for other agencies to carry out these activities. For example, the Salvation Army was awarded ESG funding to carry out Continuum of Care activities. Our role has been to monitor the service providers and their success in completing their projects.
Polk County is committed to development of affordable housing by
public/private partnerships. Considerable coordination is required to ensure
success and proliferation of the partnership efforts. The Housing and Community
Development Division is coordinating efforts of local non-profit entities,
government agencies, and for profit organizations to become directly involved in
the community development process, and directly or indirectly in the development
of affordable housing. Staff will continue to enlist the aid of these groups to
facilitate local initiatives, to eliminate duplication of effort and services,
and to help focus private/public sector resources on community development
objectives. A step forward in these activities has been initiated. The
Florence Villa Target Area Redevelopment Plan and the Enterprise Application for
Florence Villa (denied), provided the County, the City of Winter Haven, and
private service providers the opportunity to think about how all these
activities can be coordinated with each other to ensure successful
implementation of the plan. This will provide a model for organizations of this
type on the County level and well as the neighborhood level.
The Polk County Housing and Community Development One-Year Action Plan outlines the use of our CDBG, HOME, and ESG program funds. Cooperating jurisdictions receive an entitlement from the County CDBG fund totaling fifteen percent (15%) of the allocation. These activities mainly include the elimination of health and safety standards. Three of our entitlement cities are completing projects for ADA improvements, and six of our cities are completing recreational activities. The entitlement cities usually do more than one activity in a year with their entitlement money. For example, the City of Frostproof is completing a road paving project and a recreational project.
A key project that HCD is implementing is the $2.7 million project in Florence Villa. This project is the beginning of our neighborhood revitalization effort for the sixteen (16) targeted neighborhoods. One of the greatest needs in the community is providing adequate infrastructure. This will be followed by a community center and other public service activities.
Public service funds are being provided for activities such as child care, resource center rehabilitations, and preventative health care services. The largest projects in this category include subsidized child care, a community policing program for our targeted areas, and a frail elderly in-home and community service project.
ESG funds are divided mainly into the $62,400 Salvation Army Continuum of Care Project, improvements to a homeless care center for women in a area of the County not readily serviced by homeless providers, and a homeless prevention program administered by the Polk County Social Services Division.
The HOME funds are mainly being used for countywide housing rehabilitation. However, those persons requesting assistance in our targeted neighborhoods will be given priority over others. Past HOME funds have been provided for downpayment assistance for low income persons and first time home buyers. FY 1995-96 HOME funds were awarded to the Highland Park Manor Community Association for construction of affordable housing. This is one of our targeted neighborhoods, however, some preliminary feasibility analyses need to be completed before the project can have official approval. If the results show the project is implementable, we will implement the project with other service providers. Earlier HOME projects include a migrant farmworker housing project for Pasos Adelante and rehabilitation of apartments in Winter Haven.
Almost half of our funds are directed to the Florence Villa target area in one project. The remaining funds are provided in some of our targeted neighborhoods, incorporated cities, and countywide.
The Housing and Community Development Division is responsible for overall administration of the CDBG, HOME, and ESH program funds. Cooperating jurisdictions are utilizing fifteen percent (15%) of CDBG funds, the public service funds are being administered by a range of public service subrecipients, and the remaining activities are being administered in-house.
We have not established numerical goals at this time.
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 depicts points of interest, low-moderate income areas, unemployment levels, and additional proposed HUD funded projects; in addition, a table provides information about the project(s).
