Green Bay, Wisconsin, is located at the mouth of the Fox River where it enters 75-mile long Green Bay, which extends out to Lake Michigan. This city of 96,000 is about 105 miles north of Milwaukee. Green Bay is the third largest city in Wisconsin and is the oldest city in the State. It is a regional center where many State and Federal agencies have branch offices. The economy is diverse and has been relatively stable despite shifting national economic trends.

Action Plan

In its Consolidated Plan Green Bay describes its housing and community development needs and priorities as well as a 5-year strategy for addressing these needs using Federal and other resources. For the first year of the plan, Green Bay is requesting $1,292,000 in Federal Community Development Block Grant (CDBG) funds, and $601,000 in HOME Investment Partnership Program (HOME) funding. This money will be used to finance the 14 housing and community development and planning activities planned for Fiscal Year 1995-1996.

Citizen Participation

When preparing the Consolidated Plan, Green Bay made a deliberate effort to contact all "stakeholders," organizations, and knowledgeable persons who could provide useful opinions on effective ways to use the Federal program money the city receives. A survey was mailed to 320 of these key contacts.

A public hearing was held on September 21, 1994, to collect input from citizens and to receive proposals for activities to include in the 1995 CDBG program. There was a 30-day public review and comment period -- from November 15th to December 15th -- with copies of the draft Consolidated Plan available at the public library and the Redevelopment Authority's offices. A final public hearing was held December 8, 1994, to receive citizen comment on the draft plan.

Although Green Bay is an older city it is a growing community that is still attracting new residents because it provides a well-rounded living environment with a stable economy.

According to the 1990 census, the median family income (MFI) was $37,120. Of the 38,516 households in Green Bay, 46.8 percent have annual incomes of 80 percent or less of MFI. Census data show the following levels of low- and moderate-income households:

• Extremely low-income (0-30 percent MFI) -- 5,373 households (13.9 percent).
• Very low-income (31-50 percent MFI) -- 4,952 households (12.9 percent).
• Other low-income (51-80 percent MFI) -- 7,689 households (20 percent).
• Moderate-income (81-95 percent MFI) -- 3,928 households (10.2 percent).

Racial and/or ethnic subpopulations among Green Bay's 96,466 residents include:

• White (non-Hispanic) -- 90,882 (94.2 percent).
• African American (non-Hispanic) -- 453 (0.5 percent).
• Hispanic (all races) -- 1,065 (1.1 percent).
• Asian American or Pacific Islander -- 2,234 (2.3 percent).
• Native American -- 2,448 (2.5 percent).

Between 1980 and 1990 Green Bay's total population increased by 10 percent, from 87,899 to 96,466. The city's white population grew by 7 percent, while the faster growing minority populations reached 6.3 percent of the total population by 1990. The fastest growing minority subpopulation was that of Asian American/Pacific Islanders, whose numbers rose by 221 percent, from 697 to 2,234. The African American population rose by 110 percent; the number of Hispanics rose by 73 percent; and the number of Native American residents rose by 44 percent during over the previous decade.

Conditions

Reflecting a nationwide trend, Green Bay's older inner city is occupied primarily by lower income families. Maintaining inner-city housing stock presents a significant challenge for all those concerned with community planning and development.

Housing Needs

Census data show that, in 1990, 863 housing units were overcrowded, revealing a discernible need for units with 3 or more bedrooms for larger families. Other housing needs include:

• A variety of housing for the elderly and persons with disabilities, including chronically mentally ill and retarded persons.
• Inexpensive one-bedroom and efficiency apartments.
• Apartments for low-income families of all sizes.

Housing Market Conditions

Green Bay's housing stock includes 21,710 owner-occupied units and 17,325 rental units. The city's housing supply also includes 691 mobile homes. The rental vacancy rate in 1990 was 4.1 percent with a 1 percent vacancy rate for non-rental housing. These low vacancy rates mean resale prices for existing homes remain steady.

Housing costs in 1990 were:

• Owner-occupied housing -- 38 percent valued at less than $50,000.
• Rental housing -- 96 percent of rents are less than $500 a month and 28 percent are less than $250 a month.

Construction costs are relatively low. New construction and rehabilitation of rental units can be done affordably.

Affordable Housing Needs

A large proportion of lower income households are cost-burdened, paying more than 30 percent of their gross income for housing expenses, including utilities. Some are severely cost-burdened, paying more than 50 percent for housing expenses.

Of Green Bay's 5,373 extremely low-income households, 82 percent are cost-burdened, and 60 percent are severely cost-burdened. Of 4,952 very low-income households, 56 percent are cost-burdened, while 12 percent are severely cost-burdened.

Homeless Needs

There are about 249 homeless persons in Green Bay on a typical night, including 215 who are sheltered. This estimate is based upon monthly point-in-time surveys conducted by the Brown County Task Force on Homelessness between January and August 1993.

The 249 include 147 persons in 46 families with children and 102 adults (18 or older) who are not in families. Of this number 12 families with 23 members and 10 adult individuals were living in transitional housing. With the exception of one adult who remained unsheltered, the rest were served by Green Bay's network of emergency shelters. There is a growing need for shelter for families with children.

Subpopulations of the homeless with special needs were as follows:

• Persons with severe mental illness only -- 62 (25 percent).
• Persons with alcohol/other drug addictions only -- 75 (30 percent).
• Persons with mental illness and alcohol/other drug addictions -- 30 (12 percent).
• Victims of domestic violence -- 40 (16 percent).

In the city of Green Bay there are about 170 beds in 12 facilities serving the homeless.

Three facilities provide day shelters, soup kitchens, or pantries.

The Salvation Army has arranged for persons needing shelter or food after business hours to seek special vouchers from the police department. Types of vouchers include food, rental and utility assistance, clothing, diapers, perishable items, new and used shoes, transportation, gas assistance for work-related purposes, and emergency prescriptions.

Public and Assisted Housing Needs

The Housing Authority of Green Bay manages 156 housing units for the elderly or disabled and 50 family units. Section 8 rental assistance was provided for 2,264 units.

In addition there are privately owned subsidized housing projects with a total of 804 units for the elderly or persons with disabilities, 268 family units, and 14 units for persons with disabilities.

The Green Bay and Brown County Public Housing Authorities have a total of 520 families or individuals on their waiting lists for public housing units and Section 8 rental assistance.

Barriers to Affordable Housing

Green Bay has no public policies that hinder the provision of affordable housing. Three areas that were reviewed include:

• Local property taxes. City taxes now are $31 per $1,000 of value, relatively low for a city of this size.
• Land-use controls and zoning ordinances. The city's zoning ordinance allows all types of housing and contains less restrictive lot-size requirements for older neighborhoods (allowing in-fill with lower-cost housing). Vacant land is available for multifamily and duplex housing, as well as for single-family construction.
• Building codes and enforcement. For new construction, the city uses State building codes, which have not been an obstacle for affordable housing. For rehabilitation the city uses a less restrictive State code. Enforcement is not an obstacle, but a valuable tool in identifying deteriorating units and helping maintain decent, safe, and sanitary residential units.

Fair Housing

The Fox Valley Fair Housing Council has recently announced that its services will be available within Green Bay and Brown County. This announcement represents a significant step in the continued understanding of impediments to fair housing choice. Funding for conducting a series of seminars on fair housing compliance for housing providers is included in the 1995 CDBG allocations for the Brown County Fair Housing Task Force.

Lead-Based Paint

Use of lead-based paint was banned for residential use in 1979. Based on the age of housing it is estimated that Green Bay has 7,526 pre-1979 rental units and 10,061 pre- 1979 owner units that are occupied by lower income households and have potential lead- based paint problems. Older homes within the inner city are more likely to contain lead.

The Brown County Health Department reports screening 350 to 400 persons per year, primarily children, for lead poisoning. This number represents a slight increase over previous years. Twenty-five to 30 children tested had elevated levels of lead in their blood, but only 1 case had a very high level. The department considers lead-based paint a problem and teaches homeowners how to abate lead in their homes.

Other Issues

There are also housing and supportive needs for the elderly, mentally disabled, mentally ill, physically disabled, substance abusers, and victims of domestic violence. In general the needs of each group are similar for affordable and accessible housing, differing somewhat in supportive services requirements.

Green Bay's inventory of supportive housing for non-homeless persons with special needs includes:

• Housing for elderly or disabled -- 979 units in 8 projects.
• For the physically disabled -- 14 units in 1 apartment building.
• For frail elderly and persons with disabilities -- 451 units in 37 community- based residential facilities (of 4 to 20 beds each).
• Group homes -- 44 beds in 4 homes.

Local service providers quantified the supportive housing needs of two groups:

• One agency reports 50 to 55 requests for 2-bedroom wheelchair-accessible units for persons with disabilities.
• Another agency surveyed parents of retarded adults. Ninety elderly parents said they would need housing for their retarded adult children, preferably three- or four-bedroom community-based residential facilities.

Community Development Needs

Based upon a limited number of responses to a survey on community development needs, Green Bay summarizes residents' concerns as follows:

• Neighborhood problems. Over half commented on the condition of the inner- city housing stock, noting the excessive number of run-down buildings as a major problem area. The respondents also mentioned crime and sidewalk maintenance as primary concerns.
• Economic development. More should be done to redevelop the downtown area, including evening activities to attract more people. Additional comments focused on the need for more parking space downtown. The creation of more jobs was another need mentioned.
• Recreational facilities. A quarter of the respondents requested a bike- pedestrian pathway somewhere in the city, preferably along the riverside. Updated sports and play equipment in the parks and better maintenance of alleys were also suggested.
• Other. Survey respondents also cited the following additional community development needs: storm sewer inspection and updating these systems; more police patrol (preferably on foot); and zoning to eliminate central city strip bars and adult bookstores.

Housing and Community Development Objectives

Green Bay's objectives are the elimination of slums and blight; eradication of conditions detrimental to health, safety, and public welfare; conservation and expansion of the housing stock; expansion and improvement in the quantity and quality of community services; restoration and preservation of properties of special value; and the alleviation of physical and economic distress.

Housing Priorities

Some elements of Green Bay's 5-year housing strategy are:

• Increasing the supply of affordable housing through acquisition, rehabilitation, and limited new construction.
• Promoting homeownership opportunities in the city.
• Maintaining public housing to prevent a loss of units.
• Helping provider agencies to secure funding for housing with supportive services for persons with special needs.
• Assisting agencies that provide programs or services for the homeless.

Non-Housing Community Development Priorities

Green Bay's high-priority community development objectives include:

• Public improvements, which will: develop a visually attractive city, offer all citizens access to community resources and natural features, and improve environments in neighborhoods and business districts.
• Public facility improvements, including: upgrades of public utilities and facilities in deteriorating neighborhoods, sidewalks that connect neighborhoods to major activity centers, and safe and easy access to a full range of neighborhood facilities and services.
• Public services, such as: providing neighborhood day care and afterschool programs for children of single-parent families and families with both parents working outside the home.
• Economic development, which will encourage: retention and expansion of existing industry, while maintaining an environment that is attractive to new business and industrial development, and cooperation between private enterprise and the public in the redevelopment of deteriorated or underutilized parts of the city, including the central business district.

Anti-Poverty Strategy

Green Bay's anti-poverty strategy includes housing and economic development approaches. Providing more decent and affordable housing units to the lowest income segments of the community will allow these households to concentrate on improving their financial situation. Efforts will include rehabilitation of rental and owner-occupied housing and providing rental assistance through Section 8 and HOME programs.

Job creation efforts of the city's economic development efforts will be targeted to the lowest income residents.

Housing and Community Development Resources

The financial resources to carry out the 5-year plan include the $1,893,000 in CDBG and HOME funds to be received this year. It is anticipated that similar levels of HUD community development and housing funds will be available to Green Bay during the remaining 4 years of the 5-year plan. Other funding available to help Green Bay implement its strategic plan include a variety of Federal and State programs.

Coordination of Strategic Plan

Green Bay's Redevelopment Authority, Housing Authority, and the Brown County Housing Authority are all administered by one executive director. Housing programs are implemented by a shared staff.

Non-Housing community development projects requiring input of more than one city department will be coordinated by the Redevelopment Authority. Contracting and public works projects are coordinated by the Department of Public Works. Park activities will be handled by the Department of Parks, Recreation & Forestry. The Redevelopment Authority has primary responsibility for neighborhood projects and downtown redevelopment. Economic development efforts are handled by the Planning Department's Economic Development division.

City staff keep in touch with nonprofit groups through the Interagency Council, the Brown County Task Force for the Homeless, United Way, and similar coordinating organizations.

Description of Key Projects

For the 1995-1996 program year Green Bay plans to use $2,068,000 in CDBG, HOME, and program income funds for 14 activities to address specific housing, community development, and human services needs.

A total of $777,875 is allocated for housing, including:

• $76,575 for a rehabilitation loan program for owner-occupied housing.
• $100,000 for a loan program for rehabilitation of rental housing units.
• $200,000 in HOME funds for rehabilitation loans to low-income owners.
• $365,000 in HOME funds to acquire and rehabilitate housing for rental or resale to low-income households.
• $10,600 for 3 seminars for housing managers and owners on properly screening tenants to reduce violent criminal and illegal drug activity.
• $21,500 to Neighborhood Housing Services for purchase and rehabilitation of property for lease-purchase by a lower income household.

A total of $840,000 is budgeted for community development efforts, including:

• $425,000 toward the Broadway Redevelopment Project, which is to include pedestrian mall construction, building demolition, streetscape work, rehabilitation, and more.
• $215,000 for improvements at seven parks, including: restoring a baseball diamond and wading pools, making facilities accessible for the handicapped, and replacing aging playground equipment.
• $50,000 for sidewalk repair and construction of handicapped ramps at corners.
• $100,000 toward the purchase and rehabilitation of a building to serve as the office of Neighborhood Housing Services.

In addition some $200,000 in economic development monies will be added to the city's existing revolving fund for loans to for-profit businesses, creating jobs for city residents.

A total of $42,125 is budgeted in the public services category to hire a full-time liaison officer with translation skills to assist the police department in dealing with Hong-speaking residents.

Locations

Though many of these activities, including rehabilitation, will be conducted on a citywide basis, the city will give preference to projects located within low- and middle-income neighborhoods.

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, unemployment levels, and proposed HUD funded projects; in addition a table provides information abuot the project(s).