Norfolk is the historic center of the Hampton Roads region, an extensive seaport on the Virginia coastline that is home to the world's largest naval base. Norfolk represents about 18 percent of the Hampton Roads area population.
For the first year of its Consolidated Plan, Norfolk is expecting $6.6 million in Community Development Block Grant (CDBG) funds, $1.8 million in HOME Investment Partnership Program (HOME) funds, and $237,000 in Emergency Shelter Grant (ESG) funds. This funding will be leveraged with $718,000 in program income and other city funds to finance a variety of housing-related programs within the city.
Norfolk citizens had three opportunities to comment on the Consolidated
Plan. At an open forum sponsored by the city Planning Commission on January 12,
1995, citizens could comment on the performance of the CDBG, HOME, and ESG
programs and on housing and community development needs and strategies. A draft
plan was prepared and made available to the public between March 9 and April 8,
1995. The Planning Commission held a hearing on the draft during the public
comment period. The City Council held a hearing on May 2, 1995, on the Planning
Commission's recommendations for the plan. Public comments were received at each
of these hearings.
The 1990 census puts Norfolk's population at 261,229. Of that total, 56 percent are white; 38 percent African American; and 6 percent are other ethnic or racial groups. The 1990 population was a 2 percent decline from 1980. Of the total population, 17 percent are military personnel, and almost 8 percent are enrolled in college.
Norfolk has the lowest median family income (MFI) in the metropolitan area.
Of the 89,443 households, 14,369 are extremely low-income (0-30 percent of MFI);
11,780 are low-income (31-50 percent of MFI); and 19,128 are moderate-income
(51-80 percent of MFI). About half (46 percent) of African American, and almost
41 percent of Native American households are extremely low- or low-income.
Nineteen percent of white households are extremely low- or low-income.
Much of the local economy centers on the Hampton Roads port, which is the second largest on the East Coast after New York and a primary distribution point for the fishing industries of the Chesapeake Bay and Atlantic Ocean among other things. The port's naval base is a large employer. The manufacturing sector is becoming a smaller part of the regional economy, while the service industry is growing. Tourism is a major business for the region. With almost all of it completely developed, Norfolk's opportunities for growth are limited because it is surrounded by other cities or water.
The U.S. Department of Housing and Urban Development (HUD) considers households to have housing problems if they pay more than 30 percent of their income for housing or are overcrowded or if the housing unit has a serious physical deficiency, such as incomplete plumbing. Households that pay more than 30 percent of their income for housing are considered to have a housing cost burden; those that pay more than 50 percent of their income for housing are considered severely cost burdened.
Seventy-five percent of extremely low-income renters, 84 percent of low-income renters, and 49 percent of moderate-income renters have housing problems. Eighty-one percent of extremely low-income homeowners, 52 percent of low-income homeowners, and 43 percent of moderate-income homeowners also have housing problems. Among all rental households, 62 percent of large related households (five or more persons) and 54 percent of elderly households have housing problems.
There were 98,762 housing units in Norfolk in 1990, of which 91 percent were occupied. More than half of the occupied units (56 percent) were rental units. Demolition has outpaced construction of new housing, with an average loss of 149 units per year between 1991 and 1994. Most vacancies are located in Ocean View and the southwest quadrant of the city. Approximately 15 percent of all housing units and 39 percent of units occupied by lower income persons are physically decayed.
Between 1970 and 1990, the value of owner-occupied housing increased 41 percent and rents increased 29 percent, after adjusting for inflation. The median value of an owner-occupied unit in 1990 was $74,500, and the median contract rent was $361. Sixty-six percent of all vacant rental units in 1990 were priced between $300 and $399 per month.
In 1990, 72 percent of all extremely low-income households were cost burdened, and 59 percent were severely cost burdened. While 72 percent of low-income households were cost burdened, only 27 percent were severely cost burdened. Forty-one percent of moderate-income households had a housing cost burden. One-quarter of all homeowners and 43 percent of all renters were cost burdened in 1990.
Among extremely low-income households, housing affordability is a dramatic problem. Seventy-one percent of renters are cost burdened, and 60 percent are severely cost burdened. Sixty-five percent of elderly renters, 74 percent of small related households, and 65 percent of large related households are cost burdened. Eighty percent of all homeowners and 78 percent of elderly homeowners are cost burdened.
Among low-income households, housing affordability is still a significant issue. Eighty-one percent of renters and half of homeowners have a housing cost burden. Among renter categories, 85 percent of small related households, 71 percent of elderly households, and 56 percent of large related households are cost burdened.
More than 1,600 persons made requests for shelter in Norfolk during the city's 1994 fiscal year, but the city estimates there are close to 2,000 homeless. A variety of programs is needed to address the needs of the homeless: more beds for emergency shelter and more residential units for transitional housing. Ancillary support and social services to assist families moving into permanent housing are also required.
Other Norfolk residents are threatened with homelessness. A local homeless prevention program receives steady demand for its services to provide emergency loans for delinquent rent or mortgage payments, pre-eviction counseling, and a rent and utility deposit program. Between 30 and 35 households are helped each month, with each qualified applicant receiving an average of $1,320 in financial assistance.
Norfolk has 14 public and assisted housing communities with a total of approximately 4,042 units. The Norfolk Redevelopment and Housing Authority (NRHA) has been recognized by HUD as one of the best managed in the Nation. The NRHA also administers 2,018 Section 8 certificates and vouchers and 82 of the city's 2,182 Section 8 project-based units. The other 2,100 units are managed privately. There are more than 400 households on the closed waiting list for public housing or Section 8 certificates or vouchers. The city estimates that another 1,700 households qualify for and would seek public housing if the waiting lists were opened. The majority of these families are headed by single African-American women with children. As a result, the highest demand is for two- and three-bedroom apartments.
Norfolk also has 281 units of Section 202 housing for the elderly, 1,507 other HUD project-based units, and 752 units from State and local tenant-based programs. In addition, there are 1,561 units of military-subsidized housing generally used by larger families.
The city is unaware of any public policy that is an impediment to the development or maintenance of affordable housing. The city adheres to the Virginia State Building Code, which is the national model code for the Building Officials Congress of America. The city has a zoning ordinance adopted in 1992, in which specific attention has been paid to potential impacts on fair and affordable housing.
The city's Fair Housing Coordinating Committee reviews city procedures, policies, and activities with regard to Federal, State, and local fair housing laws to ensure that the rights of Norfolk citizens are protected.
As an older inner city, Norfolk has identified a significant lead-based paint hazard problem. The city conducts a lead poisoning program operated by the Norfolk Department of Health. HUD Category I funding of $2.6 million has recently been approved to establish a housing-based lead treatment program in Norfolk.
The size of the special needs population in Norfolk, who may or may not need
housing, is estimated to be 35,000. Through a combination of programs, the
Norfolk Community Services Board assists about 1,300 chronically mentally ill,
900 episodically mentally ill, and 800 retarded individuals each year, of whom
about 800 need housing. There are approximately 40-60 new persons per year in
Norfolk diagnosed with AIDS.
The following housing priorities have been set for the next 5 years:
Norfolk's community development priorities fall into five categories: public facilities, public services, economic development, public infrastructure, and other needs in areas of concentrated low- and moderate-income residents.
Public facility priorities include expansion and renovation of community centers, parks, and recreational facilities and other public buildings.
Public service priorities include programs for families, at-risk youth, violence prevention, meeting basic needs, and economic self-sufficiency.
Economic development priorities include the development or redevelopment of land for economic activity, provision of employment opportunities, and revitalization of commercial corridors in economically depressed areas.
Public infrastructure priorities include improving access for disabled persons around the city; rehabilitating streets, sidewalks, and curbs; improving street lighting; modernizing the flood drainage system; and upgrading the water distribution and sanitary sewer systems.
Other priorities include an energy conservation program and establishment of an environmental education and service center.
Norfolk will work aggressively to increase the self-sufficiency of lower income and special population households. This includes providing education, job opportunities and training, and establishing a successful transition from welfare to economic independence. Norfolk's selection as an Enterprise Community is expected to assist with this priority. The city's anti-poverty strategy is also tied to its programs for improving self-sufficiency.
In addition to the three Federal entitlement grants, the city has received a $1.6 million Lead Hazard Reduction Grant and $3 million for its Enterprise Community designation. Many of the activities funded through these grants will take place during the first year of the Consolidated Plan.
The Consolidated Plan centers around expanding the service delivery network
into the private sector and improving the coordination of resources to involve
as many sectors of institutional structure as possible. The city is examining
ways to expand its outreach efforts to include the wide distribution of requests
for proposals. Leadership and administration for various plan components is
spread across several city departments, but the city has taken an
interdisciplinary approach to housing and capital improvements. Norfolk has a
history of partnerships with various neighborhoods, which it plans to continue.
The following is a sample of Consolidated Plan projects to be implemented in the first program year:
Twenty-eight census tract neighborhoods that have concentrations of low-income households will be targeted for the majority of assistance.
The Norfolk Department of City Planning and Codes Administration will be the lead agency for Norfolk's Consolidated Plan.
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).
