Albany, Georgia, population 78,000, is about 150 miles south of Atlanta. Albany is the principal city in Dougherty County, and the commercial, social, and governmental center for southwest Georgia. Located on the Flint River, the city suffered severe flood damage in July 1994 as a result of Tropical Storm Alberto.
In its Consolidated Plan, Albany describes its housing and community development needs and priorities and a 5-year strategy for addressing these needs using Federal and other resources. For the first year of the plan, Albany is requesting $1.8 million in Community Development Block Grant (CDBG) funds and $660,000 in HOME Investment Partnership (HOME) Program funding. This money will be used to finance the 29 housing, community development, and service activities described in the plan.
Albany was designated an Enterprise Community in December 1994 by the U.S. Department of Housing and Urban Development (HUD). This designation signifies that Albany also will receive special social service block grant funds and be supported in implementing its Enterprise Community strategic plan by an Enterprise Community Task Force.
To prepare the Consolidated Plan, Albany's Department of Community and Economic Development met with many public and nonprofit agencies and organizations to determine their present services, clients, and their opinions about needed services.
Two public hearings were held to obtain information from citizens. The first was on February 15, 1995, with the intent of both informing the public about the Consolidated Plan process and soliciting public comment. The second hearing (on March 15) allowed organizations and agencies applying for CDBG public service funding to make presentations.
A draft of the Consolidated Plan was made available for a 30-day public comment period, and a summary of the draft was published in the Albany Herald on April 7. All comments and revisions received about the proposed plan are contained in the final document. The Consolidated Plan was approved by the city commissioners on May 9, 1995.
Albany is a city of 78,122 located in the heart of rural Georgia. Developed as an agricultural trade center for southwestern Georgia in the 1830s and 1840s, Albany has grown into one of the major urban centers in Georgia. The Albany area economy is a diversified mix of manufacturing, service, and retail businesses. According to the 1990 census, Albany was the 5th largest city in Georgia, and Dougherty County the 10th largest county.
The population of Albany has grown from 31,155 in 1950 to 78,122 in 1990. County population growth kept pace with the city until 1980, when Albany's residents totaled 74,059, compared to Dougherty County's 100,718 residents. Since then the city's population rose by 2.2 percent, but the county's declined by 4.4 percent. Dougherty County's drop in population coincided with the closings of several large manufacturing operations, an important segment of the region's economic base. The largest factory closing was that of Firestone Tire and Rubber in 1987, which resulted in the loss of about 2,500 jobs.
The largest single employer in the Albany area is now the U.S. Marine Corps Logistics Base, which employs about 1,600 military personnel and 2,500 civilians. Government employment now accounts for about 27 percent (12,900 jobs) of nonagricultural employment in the area. Increased employment in the service and retail sectors has compensated for the drop in manufacturing jobs. Other employment possibilities have come from major expansions at two Albany hospitals, an expanded shopping mall, a new shopping center, a trucking distribution center, and new hotels.
Agriculture (peanuts, pecans, cotton, and poultry processing) remains important to the Albany area's economy. Sixty percent of Georgia's pecan crop is grown within 60 miles of Albany. Pecans support an agricultural infrastructure of equipment suppliers, brokers, food processors, and retail outlets.
Although it had grown during the 1980s, per capita income in Dougherty County was only 75 percent of the national average in 1990. In 1990 per capita income for the county was $10,888, compared to $13,361 for the State and $14,420 for the Nation. Between 1980 and 1990, per capita income increased 60 percent in Albany, 54 percent in Dougherty County, and 112 percent in the State.
Because Albany recognized that a majority of its residents were suffering from the lasting effects of widespread unemployment and pervasive poverty, it applied for designation as an Enterprise Community. In 1990, 27 percent of Albany's population was living below the poverty level. In the Enterprise Community target area, where 40 percent of the residents live in poverty, the level of poverty is among the highest and most severe in the United States.
In the Albany Metropolitan Statistical Area (MSA), demographic shifts from 1980 to 1990 include an increase of 22 percent in the African-American population and a decrease of 10 percent of the white population. The racial and ethnic components of the MSA, as classified by the 1990 census, are:
The "Great Flood of 1994" is a precondition to all community development efforts in lower-income neighborhoods of Albany. Most low-lying areas of Albany on the flood plain of the Flint River suffered severe flood damage in the aftermath of Tropical Storm Alberto in July 1994. In Albany 6,557 structures were damaged, including 5,882 residences (19 percent of the city's housing stock). Displaced persons have been moved to temporary mobile-home parks operated by Federal Emergency Management Administration (FEMA) or are living with relatives in other parts of the city. It is estimated that recovery from the flood will take about 5 years. The city was designated a Federal disaster area and has compled a flood recovery plan. Activities proposed in the plan are now being carried out.
The major housing need is affordable housing for low-income families. There also is a need to replace and repair many of the housing units damaged by the 1994 flood.
Since 1980 two-thirds of all housing permits have been issued for single-family housing. The Albany Home Builders Association reports that some starter homes of 1,200 to 1,400 square feet are being built in the $60,000 to $70,000 price range. Over-building in the 1980s, homes sold by laid-off workers seeking jobs elsewhere, and relocation companies selling homes below market value have depressed the housing market. By 1989 there was a housing glut, with 1,600 existing homes listed for sale. However, now the outlook for the Albany sales market is for above average and consistent growth.
From 1980 to 1986, 1,250 multifamily rental housing units were added to the market. The impact was surplus and a soft rental market. There was also competition from unsold single-family homes being placed on the rental market. The rental market has become tighter, because many single-family homes that were rented eventually sold, and many rental units were lost in the 1994 flood. The rental vacancy rate is now about 2 percent, compared to the 10.6 percent reported by the 1990 census.
Albany's housing inventory as of June 1993 was estimated at 31,000 units. An estimated 16,000 were rental units and 15,000 owner-occupied units. About 96 percent of all housing units were occupied, and 1,371 units (4 percent) were vacant. About 3 percent, or 1,056, of Albany's units were rated as substandard. A total of 793 of the substandard units were suitable for rehabilitation.
High poverty rates in Albany translate into high numbers of persons with housing problems. About 5,668 households have extremely low incomes (0-30 percent of the median family income in the area), and 82 percent of them have housing problems, usually including excess cost burden. At slightly higher income levels, the proportion of housing problems decreases. There also are high numbers of substandard housing units in need of rehabilitation. The homes of low-income owners often need rehabilitation, but those owners cannot afford additional housing costs.
Small and large families and the elderly have the most need for lower-cost rental housing. Additional public housing and rental assistance are needed, as shown by a backlog of 1,115 applicants (which may include some duplicates) requesting assistance.
The estimated number of homeless persons in Albany prior to the July 1994 flood was 101; this was based upon a point-in-time survey of homeless shelters and a police count of homeless living on the streets. After the flood the number of homeless expanded to include 625 households living in temporary FEMA trailers and an unknown number finding shelter with relatives or friends. Other measures of homelessness in Albany include:
There are a total of 1,444 assisted housing units in Albany. The Albany Housing Authority (AHA) has 856 public housing units, with 225 families on the waiting list in April 1995. The Washington Homes public housing community was flooded, and all units will be torn down and replaced at other sites. Four complexes, with a total of 448 subsidized units, were built under other Federal programs. The Mt. Zion Garden Apartment community, with 148 units, was flooded and is being rebuilt.
Section 8 tenant-based assistance is operated by the Georgia Housing Finance Authority (GHFA) in Albany, where it provides 583 certificates and vouchers. No new certificates or vouchers have been allocated to Albany or Dougherty County in the last 2 years, but the State housing finance agency reports that about 100 persons who obtained certificates in other counties have moved and are using their certificates in Albany.
Public policy barriers to the development of affordable housing in Albany include the following:
The city has formal affirmative marketing policies and procedures established in accordance with HOME program requirements. Adherence to these procedures is required of property owners for assistance under HOME rehabilitation and other programs.
The Department of Community and Economic Development estimates that 400 low- or very low-income families live in units that contain lead-based paint. AHA estimates that approximately 225 of their units have some lead-based paint, but that this number is being abated. The reason for the relatively low number of units estimated to contain lead-based paint is that many structures housing low-income families were badly damaged, evacuated, or destroyed as a result of the 1994 flood. AHA, for example, lost 140 units (its Washington Homes community) that contained lead-based paint.
There also are housing and support services needed for the elderly, mentally disabled, mentally ill, persons with physical disabilities, drug or alcohol addicts, and victims of domestic violence. In general the needs of each group for affordable and accessible housing are similar, but the need for a mix of appropriate supportive services differs somewhat.
Economic development is a major need. Efforts include the development of small-business enterprises, assisting the hard-core unemployed, and re-energizing existing commercial areas.
Proper job training is a problem in the Albany community. Often jobs are available, but residents lack the skills to qualify for the positions. For example, one company could not find qualified, properly trained sheet-metal workers. Internship and apprenticeship programs are being developed in coordination with the Dougherty County School System, Albany State College, Darton College, and Albany Technical Institute. These programs are intended for individuals who have not previously taken advantage of the existing job training programs.
Low-interest loans are needed to help small businesses in older commercial areas expand or improve the exterior appearances of their businesses. There is a need, too, for technical business assistance through development loans, counseling, and advice from experienced business owners. Also needed is a continuation of improvements to parks and to the civic center.
The community vision is to make Albany and its target areas a better community, one in which residents have jobs and educational opportunities, safe and attractive neighborhoods, affordable housing, and accessible health and human resources.
Albany's housing and community development goals include:
Shelter and help for homeless persons to return to permanent housing.
Affordable supportive housing for the elderly, persons with disabilities, and the medically needy.
Neighborhoods that are vital, improved, and safe.
New opportunities for economic growth.
Assistance for small and minority businesses.
Improvement of environmental conditions and resolution of infrastructure problems.
Self-sufficient and functional families.
Public-private collaboration to provide comprehensive services to residents.
Strategic priorities for housing include:
Coordinating local housing assistance and educating the public about housing.
Upgrading 80 units of existing affordable low-income housing.
Providing 190 units of independent housing for the elderly and handicapped.
Encouraging and fostering the completion of construction for 150 new housing units by 1997.
Providing 190 units of transitional and permanent housing for the homeless.
Community priorities for economic development include the following:
Goals for public facilities and improvements include the following:
Health and human service objectives include the following:
Reduce teen pregnancy and increase youth opportunities.
Reduce infant deaths, child abuse, and the number of children not ready for school.
Assist 300 adults per year to become self-sufficient.
Increase collaboration to meet the special needs of children and youth.
Increase by 10 percent the services provided senior adults.
Support the expansion of programs to assist the elderly and persons with disabilities.
Identify and help 250 households at risk of becoming homeless.
Poverty is pervasive in Albany where 27.5 percent of the population was living below the poverty level in 1990. In the Enterprise Community target area, the level of poverty (40.2 percent) is among the highest and most severe in the United States. The following actions are planned to reduce poverty:
Provide additional rental housing in coordination with social service agencies.
Evaluate the barriers that may prevent low-income families and individual from escaping poverty.
Encourage economic development activities, such as job skills development and self-employment training.
Create economic opportunities programs to empower very low-income families and persons.
The financial resources to carry out the 5-year plan include $2.5 million in CDBG and HOME funds to be received this year. It is anticipated that similar levels of HUD funding will be available during the remaining 4 years of the plan.
Albany also intends to use a variety of other Federal and State assistance programs, however feasible. These resources include Title 20 Enterprise Community funding through the U.S. Department of Health and Human Services and programs administered by GHFA.
Albany's most important community resource is a network of nonprofit agencies, community organizations, and other dedicated groups that provide housing and social services to the city's low-income families and individuals.
The city Department of Community and Economic Development (DCED) will coordinate the strategies and activities of this 5-year plan with housing agencies and organizations, nonprofit sponsors, developers, contractors, and human services providers. The DCED will work with other agencies to determine future service needs and ways in which to meet those needs. Albany will cooperate and coordinate with the State in all activities related to Consolidated Plan housing communities in the Albany area.
For the program year 1995-1996, Albany plans to use $3 million in CDBG, HOME, and program income funds for 29 activities that address specific housing, community development, and human services needs.
For housing, $859,738 is allocated, including:
$212,738 for rehabilitation of a 10-unit rental property, including the costs of relocating residents during construction.
$495,000 for first phase of the Mobile Road new homes project.
$99,000 in HOME set-aside funds for a community housing development organization to help develop affordable rental housing.
Economic development efforts are budgeted at $731,662, and include:
$350,000 for job training in traditional skills no longer taught at technical institutions
$206,662 to the Albany Business and Technology Center (an incubator to 28 developing businesses located in the Enterprise Community target area) for technical support to businesses.
$100,000 to a certified development corporation for loans to small businesses in the designated Enterprise Community area.
$50,000 to acquire real property for the development of an economic project.
For community development the allocation is $150,000 for two activities:
$50,000 to demolish abandoned homes.
$100,000 for streetscape work, including sidewalks, in seven blocks of Harlem Business District.
For human service needs, $300,000 is allotted for the following:
Most of the activities funded under this Consolidated Plan will take place at locations in CDBG-eligible low- and moderate-income neighborhoods. Some activities, such as education (e.g., parenting classes) and referral services, may occur at other sites.
Housing activities included in this year's Consolidated Plan are expected to result in 67 new or rehabilitated housing units. It is projected that other planned activities will also benefit 76 small businesses, 175 households, and 1,379 persons (including 65 elderly and 631 youth).
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).
Rudolph Goddard
Director
Department of Community and Economic Development
230 South Jackson Street, Suite 315
Albany, Georgia 31701-2816
912-430-5283
