The City of Massillon, located in northeast Ohio, Stark County, on the Tuscarawas River, is an industrial city with a diversified economy based on manufacturing activities such as primary metals industries; machinery, rubber and plastics products; and food processing. Massillon is also nationally known for its high school football program.

The City of Massillon is an entitlement community under the HUD Community Development Block Grant (CDBG) Program. However, the City has also joined with the City of Alliance and Stark County to form the Stark County HOME Consortium. As a member of the Consortium, the City has worked closely with these other local governments in the preparation of a Consolidated Plan for the Consortium. This plan provides a comprehensive overview of the area, identifying both housing and community development needs.

However, as an entitlement community, the City of Massillon is also responsible for preparing, submitting, and administering its CDBG funding which it receives directly from HUD. In accordance with Federal requirements, the City has prepared its own Non-Housing Community Development Plan and One Year Action Plan. The other required elements of the Consolidated Plan were prepared through the cooperative efforts of the Stark County HOME Consortium.

Action Plan

Under its FY 1995 Action Plan, the City of Massillon will be utilizing just over $1 million in CDBG entitlement funding from HUD and $206,000 in HOME funding from the Stark County Consortium to undertake a comprehensive program of housing and community development activities, including housing assistance, public facilities and improvements, public services, economic development, planning and administration.

Citizen Participation

The City of Massillon undertook a two pronged citizen participation process in the development of its Consolidated Plan:

1. Massillon, along with the cities of Canton and Alliance and Stark County, participated in the Stark County Consolidated Plan Task Force, which met regularly to discuss area-wide issues and review progress in development of the plan. Through these meetings a large data base of area citizen housing and social service organizations was developed. These organizations were contacted for information and invited to participate in the development of the Consolidated Plan. A County-wide community needs survey was undertaken in January 1995 utilizing these agencies. Through this process, the Housing and Homeless Needs Assessment, the Housing Market Analysis, and the Strategic Plan for the Consortium were developed. This area-wide coordinated effort helped to streamline the planning process, improving efficiency and eliminating duplication of effort in development of the various elements of the Consolidated Plan. As a result of this process, Massillon received its HOME funding allocation from the Consortium.
2. Massillon also undertook its own local citizen participation effort designed to provide public comment and input in the development of its Community Development Plan and One-Year Action Plan. For its part, the City contacted local housing, homeless, and social service organizations and invited them to attend a series of public meetings where community needs and priorities could be discussed. A total of three meetings were held - two at City Hall (one in the afternoon and one in the evening) and another meeting at the City Youth Center, located in a low income, predominantly minority neighborhood where the City is actively involved in housing and community development programs. From theseinitial meetings, held in November 1994, the City began to develop its Consolidated Plan priority needs statement.

The City then solicited proposals from these same organizations and from the general public for programs and activities to be funded under the City's Action Plan. The City accepted proposals through the end of January 1995. Once proposals were received, they were reviewed by the City and a preliminary budget was prepared, which formed the basis of the City's proposed Action Plan for FY 1995. This Action Plan was made available to the general public for review and comment for a 30 day period, beginning April 1, 1995. During this period, the City held another public hearing to receive additional citizen review and input on the proposed Action Plan. Upon completion of this 30 day citizen comment period, the City finalized its Consolidated Plan, which was then submitted to HUD in May 1995. The City's FY 1995 Action Plan Program Year began on July 1, 1995 and will run through June 30, 1996.

The City of Massillon is located within the Canton-Massillon Metropolitan Statistical Area and is part of the Stark County Urbanized Area. The 1990 population of Massillon was 31,007, up 1.5% from 1980. The City's increase in population was mainly due to its aggressive annexation policy, without which Massillon's 1990 population would actually have decreased approximately 4%. Racially, the City's population is broken down as follows: White persons 89%, African Americans 10%, other minorities 1%. Hispanic persons comprise less than 1% of the City's population.

According to the 1990 census, Massillon's population is aging. The number of persons age 65 and over increased 15% from 1980, and elderly persons now comprise 16% of the City's population. During this same period, the number of persons age 0-19 decreased 6%, and the median age of the population rose from 30.3 to 34.2 years.

The total number of households in Massillon in 1990 was 12,110, an increase of 6% from 1980. While the total number of families was just about the same as 1980, the number of non-family households increased by 23%. The average number of persons per household in 1990 was 2.49, down from 2.62 in 1980. The number of female- headed households increased 18% from 1980, and female-headed households comprised 18% of all families in 1990.

The 1990 median family income was $28,349, and the per capita income was $10,952. 42.5% of the City's population are low and moderate income, and 14.4% of the City's population are below the poverty level. For the City's African American population, the 1990 median family income was $20,530, with 29.7% having incomes below the poverty level. Approximately two-thirds of the City's African American households can be classified as low and moderate income.

Conditions

According to the 1990 census, the City of Massillon has a total of 12,814 housing units, of which 5,522 or 43% were constructed prior to 1939. Owner occupied homes constitute 67.3% of the total number of occupied housing units. Approximately 14% of the total housing units in Massillon are considered substandard. Of these substandard units, 20% are considered not suitable for rehabilitation, resulting in a total 1,445 substandard housing units that are suitable for rehabilitation. Of the total number of housing units in Massillon, 9,225 or 72% are one-unit, detached structures.

Housing Needs

The Stark County Consortium Consolidated Plan provides an area-wide assessment of housing needs summarized below as follows:

Very Low-Income Households (0-30% MFI) - 47% owners, 53% renters. Of these total homeowners, 57% are elderly. Of the renter households, 45% are small family related, 27% are elderly, and 7% are large family related. 73% of the homeowners and 78% of the renters pay more than 30% of their income on housing and are considered cost burdened. 46% of the homeowners and 63% of the renters pay more than 50% of their income on housing and are considered severely cost burdened.

Other Very Low-Income Households (31-50% MFI) - 61% owners, 39% renters. Of the owners, 67% are elderly. Of the renters, 36% are elderly, 33% are small family related, and 7% are large family related. 34% of the homeowners and 75% of the renters are considered cost burdened, while 12% of the owners and 30% of the renters are considered severely cost burdened.

Low-Income Households (51-80% MFI) - 64% owners, 36% renters. Of the owners, 48% are elderly. Of the renters, 42% are small family related, 20% are elderly, and 10% are large family related. 19% of the homeowners and 32% of the renters are considered cost burdened, while 4% of the owners and 2% of the renters are considered severely cost burdened.

Among these income categories, the largest numbers with housing needs are elderly homeowners, followed by small related family renters. The group with the highest percentage in need of housing assistance is elderly renters.

Housing Market Conditions

The total number of housing units in Massillon increased by 547 (4%) from 1980 to 1990. Owner occupied units increased by 71 and renter occupied units increased by 608. The number of vacant units decreased by 132, indicating that the City has been successful over the years in eliminating some substandard housing. The vacancy rate in 1990 was 5.5%; however, the effective vacancy rate was 2.9% calculated using only those vacant units currently for sale or for rent.

The 1990 median value of owner-occupied units in Massillon was $43,600, compared with $57,300 for Stark County. The City's median contract rent was $241, compared with $270 for the county.

Affordable Housing Needs

The relatively low median values of the housing stock in Massillon, along with the age of this housing, reflect the higher amount of substandard housing in the City compared with the County as a whole. In addition, combining these factors with the relatively low effective vacancy rate demonstrates the continuing need for housing rehabilitation programs in the City. Very low income homeowners and renters both have been shown to be cost burdened with respect to housing, and are in need of rehabilitation assistance programs to maintain their units as well as to increase the supply of affordable owner and rental housing.

Homeownership programs are also a high priority, both on a local as well as a national level. Homeownership not helps to improve a family's economic status and well being, but also stabilizes and revitalizes residential neighborhoods. While there are a variety of lender programs available to assist first-time homebuyers, the restrictions placed on these programs often preclude very low income households from participating, as such households may lack the resources necessary for required downpayment and closing costs. For this reason, homeownership assistance programs are needed to provide increased affordable housing opportunities for first time, low income homebuyers.

The relatively high percentage of elderly households in the City, and the fact that the elderly population continues to grow, indicates the need for increased affordable housing for the elderly, both in terms of rehabilitation assistance for low income elderly homeowners and an increased supply of affordable rental senior housing.

Two out of very three minority households are classified as being very low and low income, indicating a severe need for housing assistance for minorities in general.

Homeless Needs

The Stark County HOME Consortium, has estimated the area's homeless population as follows: Sheltered Homeless 278; Unsheltered Homeless 44

Within the County, there are a total of 10 homeless facilities with a total of 227 units providing some type of emergency shelter. Two of these facilities are located in Massillon. Existing homeless shelters are operating at maximum capacity. The largest segment of the population with homeless needs is women and women with children. In addition, more and longer transitional housing facilities are needed to allow people to get re-established and prepared to re-enter the normal housing market. Those groups being underserved by existing facilities include those with severe mental illness, alcohol/drug addiction problems, victims of domestic violence, homeless youth, and AIDS/HIV diagnosed persons.

The Homeless Services Collaborative, which is a subcommittee of the Stark County Housing Task Force, has initiated a cooperative plan, including a 24 hour hot line, to coordinate the various homeless service providers and attempt to provide a continuum of care approach of outreach, shelter assistance, and supportive services for the County's homeless population.

Public and Assisted Housing Needs

The Stark Metropolitan Housing Authority (SMHA) owns and operates 2,529 public housing units in Stark County. 913 of these units are for elderly and single persons, and 1,616 are for families. SMHA has a total of 288 public housing units within the City of Massillon.

SMHA administers another 1,401 assisted units, including Section 8 certificates, housing vouchers, and moderate rehab units. 132 of these units are located in Massillon. The housing authority is also contract administrator for another 365 new construction, Section 202 housing units, of which 123 are located in Massillon

Presently, SMHA has a total waiting list of 2,340, including 1,756 families, 224 elderly, 332 disabled, and 28 handicapped. This long waiting list indicates a high need for additional resources for both public housing and Section 8 assistance.

Barriers to Affordable Housing

The Stark County HOME Consortium Consolidated Plan indicates that, in order to address the need to remove barriers to affordable housing, local zoning codes should be reviewed. Large minimum lot requirements, along with lack of suitable infrastructure (water, sewer, roads) can increase the cost of housing. These factors tend to restrict the opportunities for low income residents to live in many areas of the County, impose higher costs of home ownership and maintenance, and reduce the range of housing types and choice in many suburban neighborhoods. Strategies to reduce these negative policy effects include improved community support services, closer to home job opportunities, and fair housing programs.

Fair Housing

The City of Massillon operates its own fair housing program, which is designed to improve and promote housing opportunities in the community, including education and outreach, monitoring and evaluation, and administration of fair housing laws. The City conducts periodic workshops on landlord-tenant issues, as well as conducts home buying seminars.

The City is also cooperating with Stark County and the City of Canton to undertake an analysis to identify impediments to fair housing choice within the area. This study will lead to a series of recommended actions to overcome the effects of any identified impediments.

Lead Based Paint

The Stark County HOME Consortium Consolidated Plan estimates that 18,432 low income housing units in the area that are over 50 years old have lead based paint problems. Of that total number, 24% of the units are in Massillon. The Consortium has further estimated that for very low and low income households, 15,892 renter and 34,844 owner households in Stark County have lead based paint present in their dwellings.

The City of Massillon is currently contracting with the Canton City Health Department to provide lead hazard inspections under its housing rehabilitation program. In addition, the Stark County Consortium is working on a strategy to develop technical capacity with regard to lead based issues, improvecoordination of prevention efforts, and better integration of lead hazard evaluation and reduction activities into existing housing programs.

Other Issues

The Stark County Consortium has identified several classes of the population with special needs. Those groups which have been identified as needing supportive housing include: elderly persons with severe mental illnesses, developmentally disabled persons, persons with AIDS and related diseases, and persons with alcohol and other drug addictions.

Community Development Needs

The City of Massillon has identified its community development needs as follows:

• Housing rehabilitation and homeownership assistance programs to provide affordable housing and improve housing opportunities for low and very low income households.
• Public facility and public improvement projects to improve low income neighborhoods and the facilities serving low income residents of these areas.
• Economic development programs to create and retain jobs in the community, particularly to improve employment opportunities for low income persons.
• Public service activities to meet the social, economic, health, and educational needs of low income persons, including the homeless and those threatened with homelessness.

Coordination

Through its participation in the Stark County HOME Consortium, the City of Massillon works closely with the cities of Alliance and Canton and with Stark County to provide an area-wide approach to housing and community development issues. The City also participates in the Stark County Housing Task Force, an association of banking, governmental, social service providers, non-profit housing providers, realtors, SMHA, and legal aid. The Task Force meets monthly to discuss relevant housing issues. Subcommittees of the Task Force have assisted in preparation and review of both the CHAS and the Consolidated Plan.

Vision for Change

The City of Massillon's housing and community development strategy includes an assessment of the City's housing and homeless needs, public facilities, infrastructure improvements, public services, accessibility, historic preservation, economic development, and planning needs. The City's strategy was developed through a two- pronged approach:

1. A County-wide regional planning approach, in which the City worked with the cities of Canton and Alliance and with Stark County in the study and analysis of housing needs, goals, and objectives on an area-wide basis. Other local agencies and service providers were contacted and participated in this planning process. Through this effort, the Stark County HOME Consortium Consolidated Plan was developed. Massillon receives its HOME funding through this consortium.
2. A local, city-wide planning approach, through which the City worked with local groups and citizens in the development of its Non-Housing Community Development Needs and its One Year Action Plan for the use of CDBG funds.

Housing and Community Development Objectives and Priorities

The City's housing and community development strategy has been developed in consultation with citizens and local organizations in order to coordinate resources and address the national goals of the CDBG Program, including:

• The provision of decent housing that is affordable to low and very low income households.
• The provision of a suitable living environment, improving the safety and livability of neighborhoods, increasing access to quality facilities and services, improving housing opportunities, and revitalizing deteriorated neighborhoods.
• The expansion of economic opportunities, creating jobs that promote long term economic and social viability and that are accessible to low and very low income persons.

Housing Priorities

• Upgrade the existing housing stock through selective rehabilitation and redevelopment to meet the needs of existing homeowners and renters.
• Increase the supply of available and affordable housing for very low income owner and renter households, including assistance for first time home buyers.
• Increase the supply of suitable owner and renter housing to meet the needs of the elderly and other groups with special housing needs.

Non-Housing Community Development Priorities

• Neighborhood upgrading and improvement - Target the use of Federal resources to those neighborhoods where the majority of residents are low and very low income and where housing conditions are substandard, yet suitable for rehabilitation. Besides housing activities, funds will be allocated for public facilities and infrastructure improvements; social, health, education, and recreation services; and youth programs.
• Central Business District Development - Undertake preservation and revitalization activities designed to maximize the existing assets of the downtown area while providing a positive and direct incentive for private investment.
• Economic Development - Establish a program to promote the retention and expansion of existing industry and business jobs, with an emphasis on the creation of new permanent jobs through the coordination of public investment with private development.

Anti-Poverty Strategy

The City of Massillon will continue to utilize federal resources to operate programs, such as rehabilitation assistance, which enable low and very low income households to remain in their homes and to keep these dwellings in decent, safe, and sanitary condition, while also enabling these households to use their limited resources for other necessary living expenses, such as food and clothing. The City will also continue to work with the other members of the Stark County HOME Consortium and with other area housing and social service providers in carrying out its anti-poverty strategy, including job training, education, and self sufficiency programs.

Housing and Community Development Resources

In carrying out its housing and community development strategy, the City of Massillon will utilize CDBG entitlement funding which it receives directly from HUD and HOME funding which it receives through its participation in the Stark County Consortium. The City also utilizes State funding from the Ohio Low Income Housing Trust Fund. Public housing agencies, local non-profit organizations, and other service providers also utilize a variety of Federal, state, and local funding in carrying out their activities.

Coordination of Strategic Plan

Through its participation in the Stark County HOME Consortium, the City of Massillon coordinates with the cities of Canton and Alliance, with Stark County, with the Stark Metropolitan Housing Authority, and with other county housing and service providers in the planning and implementation of its housing and community development strategy. In addition, the Stark County Housing Task Force provides an area-wide forum, bringing together local public and private sector housing agencies to review and discuss housing concerns and issues.

Description of Key Projects

The City of Massillon One-Year Action Plan proposes to utilize approximately $1.24 million in CDBG and HOME funding to carry out the following housing and community development projects:

• $596,340 for housing activities, including housing rehabilitation and home buyers's assistance programs, code enforcement, as well as funding for other local housing agencies including the Stark Metropolitan Housing Authority, Neighborhood Housing Services of Massillon, and the Massillon Chapter of Habitat for Humanity.
• $238,960 for public facilities and improvements, including street repaving, park improvements, historic preservation, handicapped accessibility improvements, and general renovation of such public facilities as the YMCA/YWCA of Massillon, the Boys & Girls Club, Joe Sparma Community Center, Make-A-Way Center, Five Oaks Historic Home, United Way Services Building, Massillon Museum, and Ohio Society of Military History Museum.
• $136,000 for public services, including youth social, recreational, and educational activities, elderly homemaker services, housing counseling, homeless and adult literacy programs.
• $45,000 for downtown non-residential rehabilitation programs.
• $65,000 for economic development revolving loan fund assistance
• $30,000 for demolition and clearance programs.
• $129,822 for planning and administration, including fair housing.

Locations

Most of the City of Massillon's Action Plan activities will be directed to those areas of the City with high concentrations of low income and minority households, including Census Tracts 7137, 7138, 7141, 7142, 7143.01, and 7144. By directing the majority of its Federal funding to these areas, the City will help to insure that its program will benefit those low income and minority households most in need of assistance. Other projects that have been identified as primarily City-wide in scope are also expected to serve the residents of these targeted neighborhoods.

Lead Agencies

The City of Massillon is the lead agency for the implementation of activities under its One Year Action Plan. Subrecipients who will also be receiving funds to undertake particular projects under this plan include the Stark Metropolitan Housing Authority, Neighborhood Housing Services of Massillon, West Stark Family Services, the Massillon Urban League, and Massillon Main Street.

Housing Goals

The City of Massillon's housing goals as outlined in its One Year Action Plan include: the rehabilitation of 27 housing units; the construction of 34 units of new affordable housing; assistance to 25 first-time home buyers assisted; upgrading of 50 rental housing units through code enforcement; housing counseling and homeless services for 200 households.

Maps

MAP 2 depicts points of interest, low-moderate income areas, and project funding sources.

MAP 3 depicts points of interest, low-moderate income areas, unemployment levels, and project funding sources..

MAP 4 depicts points of interest, low-moderate income areas, minority concentration levels, and project funding sources.

MAP 5 depicts Neighborhood Segments and streets with proposed HUD funded projects.

Ms. Aane Aaby
Director, Department of
Community Development
One James Duncan Plaza
Massillon, OH 44646
PH: (216) 830-1721