Shreveport, an urban area, is located in northwest Louisiana on the west side of the Red River and is surrounded by small cities and outlying rural neighborhoods. The population count according to the 1990 Census is 198,525. The major highway network includes interstate 20, 2-20 and 49. It is the largest metropolitan city within a 500-mile radius. Shreveport serves as the medical, employment, retail and entertainment site for many parishes as well as East Texas and Southwest Arkansas.

The City of Shreveport developed a three-year comprehensive strategic plan to address the city's housing, homeless and community development needs. The Consolidated Plan Strategy has identified several major goals necessary to implement this plan in our community: to ensure that every resident of Shreveport is entitled to affordable, decent, safe and sanitary housing in neighborhoods of their choice; to ensure access to safe and decent shelter is a variable for the homeless, especially those with special housing needs; and, to strengthen the quality of family and neighborhood life and develop human potential through an economic development approach designed to be self-sustaining.

Action Plan

The estimated budget for the 1995 CDBG, HOME, and ESG programs is $8,528,000. The city expects to administer $3,067,000 on housing activities, $2,239,400 in community development activities, 2,150,000 on homeless activities and $1,071,600 on general administration.

Citizen Participation

The City of Shreveport's Citizen Participation Plan encourages and empowers citizens to be participatory in the development of viable urban programs through assessment, planning, creation and implementation of programs and activities that affect their community.

The plan is divided into three sections: citizen groups, citizen involvement and submission of views and proposals. The citizen groups comprise of two components, focus groups and a Citizen Advisory Council. All three processes are citizens driven and include a diverse group of citizens.

Focus group members will provide input on the needs within the community. They will comprise five segments of the population: elderly, disabled, homeless, young adults and youth (7-18). At least 51% of the members will be residents of the sixteen Community Development Block Grants (CDBG) targeted areas that consist of a large percentage of low-to moderate income households.

The Citizen Advisory Council is responsible for representing the citizenry and serving in an advisory capacity on current issues, public services and future projects including the three entitlement programs' Emergency Shelter Grants (ESG), Community Development Block Grant (CDBG), and Home Partnership Investment Program (HOME).

Citizen Involvement is the primary objective of this plan. There are five stages in the process during which citizens contribute to the direction of their community: focus group meetings, focus group hearings, public hearings, performance hearings and program amendments. In order to provide for a maximum level of citizens input in support of the programs, the city provides for three major types of public hearings: Special Needs Hearings, Pre-submission and Performance Hearings. Particular regard is given to informing citizens of low, very low and moderate income residing in lower income or blighted neighborhoods, by way of announcements at neighborhood meetings, citywide meetings, posted notices in neighborhood centers, public hearings and the news media.

Throughout all stages of program development, the city solicits and encourages the submission of views and proposals from citizens particularly low and moderate income persons and residents of blighted areas. All complaints, recommendations and concerns received regarding proposals, project selections, implementation, citizen participation, program performance and other matters will be researched and a formal response will be given.

The City mirrors the poor economic conditions and socio-economic problems of the state. Of Shreveport's total population (198,525), 25 percent (49,215) live below the poverty level compared to national (14.2%) and regional (16%). The per capita income for Caddo Parish residents was 11,604 in 1990 compared to 14,036 for the median family income in the U.S., while income for African Americans in Shreveport is significantly below that of whites. Female- headed households in Shreveport increased 23.9% percent from 1980 to 1990 with 14,778 female-headed households in 1990. Of those, 42.7% of female headed households lived below the poverty level while 99 percent of those female-headed households in poverty contained children under the age of eighteen. Of the total homeowners in our City, 87% are white and 12% are minority.

• The City currently has sixty-seven neighborhoods. Sixteen of those neighborhoods have been determined to be distressed. Minority concentration is in the sixteen targeted neighborhoods. Most are low-income with pockets of middle-class. The majority of the neighborhoods are residential and some are mix-use.
• According to the CPD Notice 93-21, there was a population decline between 1980 and 1990 of 7,295. The 1990 Census reveals a slight increase in the number of White Americans in Shreveport. Whites constitute the majority of Shreveport's population. The Census suggests that Blacks and Whites dominate the population . The racial/ethnic make-up consist of 54% White, 45% Black and 1% other.

Conditions

The Cities economic problems are shared throughout the state and region. The 1990 Census estimated that the Shreveport labor force was 90,070, 61% of the total population. However, with the downturn of the oil industry our community moved toward more service- based employment causing lower-waged jobs and employment instability. The unemployment figure in 1990 was roughly twice the national average, with unemployment of minorities even higher. Currently we show a 3% increase in economic conditions.

Road conditions and aging infrastructure require continuous upgrading. The cost of infrastructure improvements and capital outlays exceed the amount of funding available.

The demand for housing and housing improvements is growing faster than we are able to stabilize. Our city is characterized by inner city deterioration. There are currently some dollars to address housing needs. Most of our funds come from the federal government. The Mayor's Neighborhood revitalization effort solicits local and private assistance.

Housing Needs

The housing needs are evidenced in information provided throughout our Consolidated Plan and Strategy. A brief synopsis is detailed below.

Housing Market Conditions

• Shreveport conducted a windshield survey in 1990 of its' housing stock, demand and occupancy. Presently 87,437 housing units within the City, consisting of 46,342 owner occupied units and 29,877 renter occupied units and 11,254 vacant units. We estimate that 22% (19,244) of these units are substandard with 9% substandard units suitable for rehabilitation. Due to present economic conditions, additional homes will most likely become substandard and not suitable for rehabilitation.
• Occupancy rates were disproportionate between renters and homeowners. There are 29,877 renter households within the jurisdiction. Of this number, 13,045 are classified as very low income households and 11,067 (39%) are moderate income households. Minority headed households occupy 14,565 (50%) of these rental units. The minority households comprise 14,273 Black households and 292 Hispanic households.
• There are 46,342 owners occupied households within the jurisdiction. This group consists of 9,045 very low income households. There are 5,356 minority heads of households. The minority households consist of 5,249 Black households and 107 Hispanic households.
• The average cost of new construction is $112,500, which surpasses affordability of the median household income of $32,300. In the past year, this area has experienced an increase in the construction of single family homes. However, homes are being built for middle to upper income households.

Affordable Housing Needs

• Housing needs are crucial in Shreveport. The fair market rent for a family of four is significantly higher than the amount of rent a very low-income household can afford. The 1993 median income level for a four-person household was $32,300.00. The average cost of new construction surpasses affordability of the median household income. It is almost impossible for a very low, extremely low, low and moderate income household to purchase a new home.
• The majority of the very low to moderate income are renters. Over half the renters in housing are determined to be physically inadequate. Of this number, 7.8% of all the rental units are overcrowded and 12.8% of the overcrowding exists in households in the 0-30% income bracket. In the 31-50% income bracket, 9.8% of renter households are overcrowded and 7.5% of households in the 51-80% income bracket experience overcrowding conditions. An average of 75.8% of all rental units requires a degree of rehabilitation. To alleviate overcrowded conditions throughout the city, additional rental units are needed for households in the 0-30% income bracket.
• The City's housing units consist of 46,342 owner occupied units. Whites occupy 87% of those units while minorities occupy only 12%. There is a great disparity. Of the total number of owner households, 23.6% have housing problems and 2.7% (1,251) of these households have experience overcrowding conditions. Homeowners in the 51-80% income bracket experience the highest percentage of overcrowding (5.8%). Within incomes below 51%, 61.2% (5,535) of the households are experiencing housing problems. Nevertheless, overall 23.6% (10,936) of households within 0-80% income are having housing problems.

Homeless Needs

• There is a great disparity between the reported number of homeless and the number of available beds. There are fourteen shelters for homeless individuals and families within this jurisdiction. They are able to provide beds for 322 individuals. According to Centerpoint, the single point of entry for the homeless in this area, they served 1,797 unduplicated homeless individuals from July 1993 through June 1994. This number increased by 100% when the recurring homeless is counted. Of the 1,797 homeless individuals, 777 required more than temporary housing. The remaining 1,020 exceeded the number of beds available. This leaves an overwhelming number unsheltered.
• The substantial number of recurring homeless suggested that there were gaps that impeded individuals from maintaining self-sufficiency. According to Centerpoint, formerly homeless individuals and families have an increased risk of becoming homeless again. Although there are many groups offering services to the homeless, there is currently no continuum of care designed to address the mounting needs of the homeless and is designed to prevent a recurrence of the problem.
• There are an even greater number of individuals at risk of becoming homeless. There is currently no formalized collaborated effort in place tocorrect the problems that contribute to homelessness before it occurs.

Public and Assisted Housing Needs

• Funds are limited to address the critical housing needs in this area. We have relied on federal dollars to combat this growing problem. However, the demands for housing and housing improvement far exceed available funds. There are presently 898 units in the Shreveport Public Housing Authority inventory. One hundred ninety-four (194) units are one bedroom, three hundred twenty-four (324) are two bedrooms, three hundred seventy (370) are three bedrooms and ten (10) are four bedroom units. The Housing Authority reports fifty-five (55) units are vacant. There are 621 eligible families on the waiting list.

  The list consists of 217 one bedroom units, seventy-one two-bedroom units, 309 three-bedroom units and twenty-four four-bedroom units. Units are offered to eligible families as they become available. The Housing Authority has thirty-two certificates to be issued, with eight one bedroom units, twenty three-bedroom units and four four- bedroom units. These certificates only provide housing for 5% of the very low income families currently on the waiting list.

Barriers to Affordable Housing

• There are many contributing factors to affordable housing significantly affecting individuals and families and particularly those below the poverty level. Nineteen barriers to affordable housing are identified in the Consolidated Plan Strategy. Studies conclude that the following factors are impediments to accessing and maintaining housing: the economic conditions of our city; rental properties in low-income areas cannot produce sufficient rents to enable landlords to maintain the property; very little new construction in underdeveloped neighborhoods, disinvestment in real estate sales in low-income neighborhoods; and city ordinances and building code.
• The median income for the City of Shreveport is $32,300. A family of four (4) earning $25,850 would fall into the low and moderate income category. Home purchases within this area for the second quarter of 1994 reveals that the average cost to purchase a home at 8.17% interest rate an income of at least $22,900 is required for affordability. The annual payment of this 30-year loan would be $5,733, which equates to principal interest payment of $477.75 per month. Individuals or families residing in low income areas cannot afford to purchase homes within this price range.
• Another barrier to affordable housing is the shortage of houses in a certain price range. The biggest shortage is in the $50,000 to $70,000 price range. Many homes in this range are in older neighborhoods. Homes are hard to find in the $70,000 to 90,000 price ranges.
• Although the economic condition of the city has increased by 3%, there are still some situations where economic conditions have caused reasonably stable families to experience near homelessness and some even to become homeless.
• There are presently no building codes that affect affordable housing. However, there are some zoning ordinances that could be considered as barriers to affordable housing, such as restrictions on where a family that purchase a mobile home can reside.

The Mayor's Neighborhood Revitalization Program present a source of hope and stability for the many deteriorating communities and other community related needs. Public and private partnerships are already forming to address the housing needs. Neighborhood organizations are reactivating to tackle issues such as affordable housing.

Fair Housing

The City of Shreveport certifies that it has completed an analysis of impediments to fair housing choice. The City will develop a plan to educate the public and write a policy regarding fair housing.

Lead-based Paint

According to the 1990 Census, the City of Shreveport's housing stock totaled 87,473 housing units. Of the total number of units, 49,103 units (56%) were built before 1978. Utilizing percentage from Lead-Based Paint Hazards Technical Assistance Bulletin 1,62% (+/-10%) will test positive for lead-based paint that equates to an estimate of 30,443 housing units with lead-based paint.

Of the total number of housing units in the City, low to moderate income persons occupies 40,997 (47%). The Northwest Louisiana Councils of Governors estimate that 38,370 housing units or 94% of the existing housing units within these census tracts were constructed before 1978, thus, the possibilities of lead paint being present in these homes are great.

From January through July 1994 the State of Louisiana Department of Health and Hospital Sanitarian Division tested thirty-three homes within the city for lead hazards. Of those tested, twenty-two were found to have dangerous amounts of lead. Of the twenty-two units found to have dangerous levels of lead, 59% are located within the low to moderate income neighborhoods. Encapsulation and abatements are very costly.

Community Development Needs

The City of Shreveport mirrors the economic downturn of the 80's that devastated our nation. There are many conditions throughout the community that contributes to the problems that have swept our city.

Increasingly blighted and abandoned inner-city areas are becoming more prevalent. These areas have experienced a large disinvestment in property value and have continued to decline and stagnate.

Shreveport remains extremely high nationally in the crime rate. Census tract indicates that an overwhelming majority of criminal activity occurs in very low to moderate income neighborhoods.

Although the economic conditions in Shreveport appear to be on the increase, the economic trends over the last ten years have played a devastating impact on our community. Manufacturing jobs dropped resulting in many layoffs and downsizing. Many remaining jobs are low paying. The introduction of the gaming industry expects to bring jobs.

Restoration and preservations of properties of special value and park improvements are greatly needed. Historic sites, parks, recreational areas and other major facilities contribute to the quality of the neighborhoods and the lives of our youth.

According to 1990 Census, there is almost an equal representation between Whites and minorities. However, the total number of minority owned business account for a great disproportion of the businesses owned in the community.

The age of infrastructures contributes to deteriorated conditions. Continuous upgrade is needed. The cost of infrastructure improvements is expensive and requires major capital outlays. This problem mirrors the water and sewerage needs in our community.

There are many community development needs as our city shares the economic problems of our state and region. Shreveport's high school drop out rate is among the highest in the nation. Among many people surveyed, medical needs and transportation were among their priorities. Dilapidated housing continues to paint an ugly picture in our neighborhoods. Coordination of services has been identified as a crucial need. We are beginning the infancy stages of that effort.

Coordination

The City of Shreveport consulted and coordinated with several public and private agencies, and local jurisdictions for inputs in making this consolidated plan comprehensive. The results of this effort and the impact in helping to achieve the goal of reducing the number of households in poverty are presented in the enclosed document.

The Consultants involved in this process were composed of a diverse group of public and private agencies. Among them were: The Shreveport Housing Authority, Caddo Parish Commission, consumers, Caddo Parish School Board, Louisiana Department of Social Services, Office of Community Services, Department of Public Works, Department of Water and Sewer, Shreveport Parks and Recreation, Louisiana Housing Finance Agency, Community Development Section, Division of Administration and many social service agencies.

Vision for Change

The City's vision is that every resident of Shreveport is entitled to affordable, decent, safe and sanitary housing in neighborhoods of their choice and to strengthen the quality of family and neighborhood life and develop human potential through an economic development approach designed to be self-sustaining.

The housing and community development objectives and priorities are:

• to access, stabilize and revitalize the city's depreciating housing stock by identification of barriers to safe, sanitary, affordable housing;

• to design and implement programs;

• to utilize existing resources, and;

• to contribute to the health, welfare and safety of our neighborhoods.

The city anticipates spending more than 100 million dollars in the next three years toward this effort.

Housing and Non-Housing Community Development Priorities

The housing and community development needs are great. Listed below are some of our housing and non-housing priorities:

1. To provide affordable homeownership opportunities;
2. To encourage and promote affordable standard rental unit opportunities;
3. To assist the homeless and persons with special needs;
4. To strengthen the quality of family and neighborhood life and develop human potential;
5. To empower lower income residents to achieve self sufficiency through jobs and economic opportunities;
6. To eliminating slum & blighted conditions that are detrimental to health, safety and public welfare;
7. To conserve and expand the housing stock; and,
8. To initiate and support the collaborative efforts of local and state governments, the business community and neighborhood organizations to develop a long-term strategy to improve the quality of life of the citizens of Shreveport.

Anti-Poverty Strategy

Shreveport ranks 58th among all cities in the total number of people living in poverty. Revitalization efforts have begun to restore this area. The vehicle to eliminating poverty in this area is listed in the strategic plan.

Goal:

To develop partnerships in which the vision is to enhance and revitalize through homeownership, economic and social opportunities. We feel we can accomplish this by implementing the following actions:

1. To develop and expand affordable, standard homeownership opportunities for residents. This will be accomplished through the following:
   1. Provide low interest rate loans to low and moderate income residents for home purchase and rehabilitation;
   2. Actively seek additional resources (federal, state and private) to develop homeownership initiatives;
   3. Continue to educate prospective homeowners of the responsibilities of homeownership; and,
   4. Revise existing housing programs and develop new ones to fit current housing needs.

2. To empower lower income residents to achieve self-sufficiency through job and economic opportunities. Steps to achieve this include:
   1. Providing public monies to be used in business ventures that will create and/or retain jobs, especially for low and moderate income persons;
   2. Providing for development and expansion opportunities for neighborhoods, historically disadvantaged, and other businesses.

3. To ensure access to decent shelter and assistance for the homeless, especially those with special housing needs. This will be done by accomplishing the following:
   1. Seeking federal and state grants to assist shelters in providing services for the homeless; and,
   2. To expand the supply of permanent affordable housing for homeless and low and very low income persons.

4. To provide economically disadvantaged youth, young adults, and the elderly with opportunities to obtain needed support services to aid in improving their overall quality of life by:
   1. Helping disadvantaged young adults, who have dropped out of high school, to obtain the education and employment skills necessary to achieve economic self-sufficiency;
   2. Increase educational opportunities for very low income youth by providing tutorial services;
   3. Providing a positive outlet for youth by increasing neighborhood recreational endeavors and providing cultural activities;
   4. To enhance the quality of life and assist in the independence of the homebound elderly by providing a nutritious noontime meal.

Housing and Community Development Resources

There are many resources available to Shreveport for housing and non-housing needs. Area banks have joined forces with city government to provide loans to low to moderate households for housing purchase and/or improvements. There are fourteen facilities serving the homeless. Other organization, nonprofits, faith groups and businesses are resources for housing and community development needs.

State and federal programs contributed to a large proportion of the resources available in this community. The Community Development Block Grant is the largest federal program available. The Home Investment Partnership Program allows housing activities such as housing acquisition, rehabilitation, new construction and homebuyers assistance. HOPE 3 is a mechanism by which single family properties owned by local, state and federal government can be converted into homeownership opportunities for low to moderate income families. The Public Housing Authority administers the HUD Section 8 Rental Voucher and Certificates Program, HUD Public Housing Development and Public Housing Comprehensive Grant. The Emergency Shelter Grant Program provides operation, supportive and rehabilitation services for facilities serving the homeless.

The City has embraced the concept of "coordination" to maximize the existing resources best to benefit our community.

Coordination of Strategic Plan

A coordinated effort will continue to be used to carry out and implement the Consolidated Strategy and Plan. The Mayor's Neighborhood Revitalization Program has evidenced this, a partnership effort between the city, lending institutions, local private sector business and nonprofits created as a vehicle to combat poverty.

Our preferred method of approaching community related problems in the areas of housing, homelessness and community development is to establish coalitions or consortia. City departments, businesses, nonprofits, faith groups, individuals and civic organizations will be enlisted.

The city view monitoring as an ongoing process involving continuous communications and evaluation. An over all internal and external assessment will be performed to ensure compliance with program requirements and federal regulations. Technical assistance will be provided to defray and/or correct deficiencies. Corrective actions will be taken for continued deficiencies and non-compliance.

The standard and procedures the city will use in monitoring activities under the CPS will be incorporated into the city's existing monitoring procedures.

Description of Key Projects

The City's plan is designed to assist many low and moderate income families in housing needs. The proposed projects include: the purchase and rehabilitation of housing units throughout the City to support homeownership; home improvement loans and/or grants will be provided to bring properties to code; elderly and/or disabled low income homeowners will be assisted with exterior painting or minor repairs; rebuilding structures where rehabilitation is not feasible for very low, low and moderate income; and, demolishing residential properties cited for code violations in the targeted neighborhoods. Homeownership opportunities will be located throughout the City if it benefits low to moderate income individuals. All the other projects will be done in targeted area. Priority items on the community planning list include: public infrastructure improvements in Census Tract 225 (Caddo Height) and other Census Tracts determined later; water sewer improvements in the sixteen targeted neighborhoods, public facilities' improvement in Ingleside Park, 2600 Desoto Street. Doug Williams Park Development, 4900 Kennedy Drive, Princess Park, 800 Snow Street and Cedar Grove Golden Age Center, 6800 Southern Avenue.

Locations

Public Service Projects will be implemented at the following agencies and locations: Caddo Council on Aging, Inc., 4015 Greenwood Road, Shreveport Green, 631 Milam Street, Norwela Council, Inc. 3508 Beverly Place, Vision Creative Learning, Inc. Mall St. Vincent # 152, 1133 St. Vincent Avenue, Centerpoint, 1002 Texas Avenue, Science, Engineering, Agriculture and Health (SEAH) 610 Texas Street, Suite 514, Summer Cultural Arts/Recreation Program, various locations, Providence House, 814 Cotton Street, Youth Focus Group, site unknown and transportation to enhance self- sufficiency, citywide.

Many programs and activities are necessary to promote self-sufficiency among the homeless population. Listed are the areas of priority that ESGP funds are projected for in 1995: rehabilitation/renovation, maintenance and operations, essential services and homeless prevention.

Lead Agencies

The City of Shreveport's Department of Urban Development administers the CDBG, HOME, HOPE 3 and ESGP programs. The Shreveport Bossier Service Connection will play a vital role in the dissemination of non-entitlement programs. The Shreveport Housing Authority will continue to lead the fight for housing for the very low and moderate income individuals and families.

Housing goals according to the 1990 Census indicate there are an overwhelming number of individuals and families in needs of housing assistance. The City affirms its commitment that every resident of Shreveport is entitled to affordable, decent, safe and sanitary housing in neighborhoods of their choice.

Objectives:

To preserve and improve the City's housing stock of standard, affordable housing, especially for very low, low and moderate income residents.

Maps

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, and proposed HUD funded projects.

TABLE (without associated map) provides information about the project(s).