Jacksonville is a city of 70,000 located in Onslow County on the coast of southeastern North Carolina. It practically owes its existence to the presence of the Marine Corps' Camp Lejeune and New River Air Station. In 1940, before construction of the base during World War II, Jacksonville's population was only 873. About half of the current population lives on the base. Marines and their dependents who live off base increase demand on the low end of the local housing market. Jacksonville's economy is totally dominated by the Marine Corps base. Off-base jobs are concentrated in the retail, food, and service industries. Jacksonville's geographical isolation, with poor transportation linkages, discourages industries from locating in the area.
For the first year of the Consolidated Plan, the city of Jacksonville is requesting $609,000 in Federal Community Development Block Grant (CDBG) and $54,250 of HOME Investment Partnership (HOME) funds. This funding, augmented with $25,000 in city money and $54,250 of State funding, will be used to finance the 16 community development projects planned for Fiscal Year 1995-96.
During January 1995, 11 neighborhood meetings were held throughout Jacksonville to receive input from the citizens. An estimated 150 citizens participated and voiced their opinions regarding the needs of their neighborhoods and citywide urban development. Each group developed a list of 4 to 12 priorities, some on citywide concerns and others specific to their neighborhoods.
In addition to the neighborhood meetings, discussions were held with public nonprofit agencies, social services groups, health providers, and homeless managers to identify problems and needs in the community. The groups' goals included developing a plan to reduce the number of households in poverty and the number of homeless in Jacksonville.
The final Consolidated Plan is based upon information received from citizens at the neighborhood meetings, from questionnaires completed by citizens, and from the community organizations with which discussions were held.
Draft copies of the Consolidated Plan were made available for public inspection at City Hall and the Public Library. At a March 20, 1995, meeting of the Community Development Advisory Committee (CDAC)--to which citizens who had completed questionnaires were sent invitations--the plan was reviewed. CDAC recommended its approval by the City Council, which adopted the Consolidated Plan after a public hearing held May 2, 1995.
MAP 1 depicts points of interest in the jurisdiction.
In 1940, the population of Jacksonville was 873. With the construction in 1942 of the Marine Corps' Camp Lejeune east of the town and extending to the Atlantic Ocean, the population increased. By 1960, local residents numbered about 14,000. The city of Jacksonville annexed the Marine Corps base in 1989. Now, in terms of population, it is the seventh largest city in North Carolina. The base population is approximately 36,700. The 1990 census reported the city population, not including the military base, as 30,013.
A 1991 land use study estimated that Jacksonville's population will exceed 87,000 by the year 2000. This growth is based both on projected annexations and on increases in people living within the current city boundaries.
Much of the city's growth is due to the adjacent military bases. This contributes to a very transient society with an emphasis on rental housing instead of a social and economic structure based on long-term residency and owner-occupied housing. The median family income for Jacksonville is $28,000, compared to a national standard of $35,400. For 4 years the Bureau of Labor Statistics has reported average annual pay (for civilians) in Jacksonville as the lowest of all the Nation's 310 urban areas.
Analysis of 1990 Census data indicates the following levels of low- and moderate-income households:
MAP 2 depicts points of interest and low-moderate income areas.
MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.
MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.
The paramount housing problem for very low-, low-, and moderate-income families in Jacksonville is twofold:
The large military presence contributes to a transient society, one where rental units are more significant than owner-occupied housing. Military people looking for housing in Jacksonville are generally enlisted personnel on the lower end of the pay scale. Most city residents are civilians, but civilian salaries in the area are considered to be the lowest in the United States, making affordability a serious concern for many families.
Another concern is the condition of rental housing. Previous studies have found that 42 percent of rental households and 34 percent of homeowners live in housing needing repairs or upgrades. There is a great need for the funding of rehabilitation programs.
The 1990 census and the city's 1991 Housing Assistance Plan report a total of 11,510 year-round dwellings. Of these 10,616 are occupied and 894 vacant. Of the occupied units, 5,305 are renter-occupied and 5,311 are owner-occupied. Three percent of the renter-occupied units and 6 percent of the owner-occupied are substandard, but suitable for rehabilitation.
The number of homeless persons requiring assistance in Jacksonville in a calendar year is estimated at about 863. This estimate is based upon records of assistance provided by two shelters, the Second Change Mission of Hope, Inc., and the Onslow Women's Center. Jacksonville's Community Development Department notes that there is no count of the number of homeless who may not use the shelters, but instead live in the street, under bridges, or in other shelters.
Subpopulations of the homeless, with special needs noted, are as follows:
Among the homeless there are now more people who are being released from prisons or hospitals. All have special needs that require attention. To assist released felons in making the transition from penal institutions, halfway houses would be a valuable aid. The city anticipates an increase in the number of homeless persons. Its homeless program may explore the precipitating causes and develop ways to prevent homelessness.
There are programs already available in Jacksonville to serve the homeless. Still missing is a consolidated intake location and a case management system for tracking care and counseling. Rehabilitation of existing shelter space, additional housing for special needs, and transitional housing to provide a continuum of care are also needed. Many existing programs that benefit low- to moderate-income families, such as the rental rehabilitation program, are a means to eliminate some of the factors that contribute to homelessness.
There is no public housing authority in Jacksonville. However, the Eastern Carolina Regional Housing Authority, based in Goldsboro, North Carolina, is constructing a 21-unit, low-income housing complex in Jacksonville and will begin accepting applications in August 1995.
There are 4 rent-subsidized apartment complexes, with 652 subsidized units, within Jacksonville's jurisdiction. These include 300 units designated for the elderly. A nonprofit entity, Duplin, Onslow, Pender, Inc. (DOP) administers rental assistance programs including:
DOP's waiting list for housing assistance averages 686 families, with the waiting time for assistance now 4.5 years. There is a need for more assisted housing.
The insufficient supply of affordable housing and low household incomes are major barriers to affordable housing in this market. However, there is also a need to help first-time homebuyers with their down payment and with less expensive mortgages.
There is the need to continue to ensure that citizens and the housing industry are informed about fair housing laws. The city Clerk has been appointed the Fair Housing Officer and is the initial point of contact for fair housing complaints.
Jacksonville is currently pursing the abatement of lead hazards as part of its ongoing residential and rental rehabilitation programs. The current policy on hazardous material management requires that any structure being rehabilitated which may be inhabited by children under 7 years old must be tested for lead-based paint. There is a need to distribute educational pamphlets on lead-based paint hazards at child care facilities and doctors' offices. Another need is to provide a point of contact for city residents to call for information on lead-based paint issues.
During the neighborhood meetings phase of preparation for the Consolidated Plan, citizens were asked their views on how best to utilize CDBG funds the city will receive from the U.S. Department of Housing and Urban Development. The five top priorities were: subrecipient funding, recreation, housing rehabilitation, demolition and clearance, and downtown revitalization. Housing, the most important need, is discussed above.
Considerations related to the four non-housing community development priorities are:
The city of Jacksonville works closely with many local entities to promote community development. For example, the Coastal Carolina Community College has agreed to support the city's "purchase-rehab-resell" program by providing the labor of building construction students.
The CDBG goals of Jacksonville's community development plan include:
Objectives for Fiscal Year 1995-96 include:
Housing priorities are to rehabilitate both rental and owner-occupied housing for low- to moderate-income households, to provide home ownership assistance to prospective low- to moderate-income homebuyers, and to acquire and rehabilitate government-owned homes for resale to lower income households.
Other community development priorities include: construction of sewer lines in the Georgetown area and other areas not currently served by city sewers; demolition and clearance of dilapidated buildings not suitable for rehabilitation; and continuation of asbestos and lead-based paint removal programs. Developing a strategic plan for the renewal of downtown Jacksonville is a priority for fiscal year 1995 and a needed preliminary to the beginning of actual revitalization work during the next year.
Key to the city's downtown revitalization program is assisting small businesses and promoting the hiring of low- to moderate-income persons.
Resources in the housing, community development, and human services areas that are available to Jacksonville include a variety of governmental, intergovernmental, quasi-governmental, nonprofit, and for-profit organizations.
The city of Jacksonville's Community Development Department will be the lead coordinating agency. It is experienced in managing rehabilitation programs. A rehabilitation specialist knowledgeable of regulatory requirements oversees the rehabilitation process. A code inspector, hired in November 1994, is responsible for minimum housing code and HUD Housing Quality Standards inspections, for all followup inspections during rehabilitation, and for enforcement of the North Carolina Building Code. A housing supervisor is responsible for screening applications for rehabilitation and homeownership assistance and for ensuring that applicants meet the income criteria.
City management is responsible for establishing and maintaining an internal control system and for the preparation of financial statements. State law requires an annual audit by independent Certified Public Accountants. These audits will be conducted by Thompson, Brown and Company, CPAs, through June 1997.
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 project(s) from a street level vantage point; as well as, provides a table with information about the project(s).
Key housing programs planned for the first year of the Consolidated Plan include:
Significant nonhousing community development actions planned for the first year include:
For human services not provided by the local government, $15,000 is scheduled as subrecipient funding for four organizations providing homeless services, job training, and afterschool programs.
For planning, $8,400 is set aside to develop a downtown revitalization strategy, before committing future CDBG funds. In Year 2 of the 5-year plan, Jacksonville intends to apply for a Section 108 loan of $240,000 to be used for the actual redevelopment of the downtown area. This would include rehabilitation of buildings, upgrading utilities, and marketing downtown property.
Locations
The benefits of the Georgetown sewer project and the Georgetown Park improvements efforts will accrue primarily to that neighborhood. Planning for downtown revitalization is location specific. All other planned projects for Year 1 are considered to be of citywide benefit.
