The city of Superior is located at the western end of Lake Superior in Douglas County, Wisconsin. Promoted to eastern interests as the "Chicago of the North" in the 1800s, Superior quickly developed as a port, first handling lumber, then grain from the Red River Valley, and by the late 1800s, iron ore from the Missabe Range. Growth was rapid during this time, and housing was built inexpensively, often employing less than desirable construction methods. Much of that pre-1900 housing still stands today.
For the first year of the Consolidated Plan, housing needs predominate in the planned use of $1.4 million in Community Development Block Grant (CDBG) funds.
The city of Superior's Common Council designated its Department of Planning and Development as the lead agency for preparing this Consolidated Plan. Department staff worked closely with the mayor's office and with several public and private organizations, including: the Common Council and city administration, Superior Housing Authority, Douglas County, Northwest Community Services Agency, Salvation Army, Catholic Charities Bureau, Solid Rock Mission, and dozens of other local housing and service providers.
The city met with citizens and agencies to gain information and insight into Superior's housing and community development needs. In August 1994 the city held a public hearing on housing and community development issues and concerns; a second hearing on the draft Consolidated Plan was held 2 months later. Notice of each public hearing was published in the official newspaper, and notices were distributed to other regional media.
Superior's motto of "Where Sail Meets Rail" underscores the community's economic foundation. Shipping and railroad operations continue to be important to the local economy. However, changes in world markets, technology, and products have greatly reduced the number of people employed in these enterprises. The government, retail, and service sectors have become major local employers. In many ways Superior has become a bedroom community to Duluth, its larger sister across the bay.
One result of the shifts in the regional and city economies has been a gradual erosion of higher paying jobs and their replacement by generally lower paying retail and service sector jobs. Between 1980 and 1990, Superior experienced a 13 percent decline in total employment. When Superior's increase in median income from $20,505 to $31,800 during the 1980s is adjusted to account for inflation, city residents actually lost ground in comparison to the rest of Wisconsin.
The general slide in the regional and local economies was mirrored by a decline in population. From 1970 to 1990, Superior lost about 5,100 people, although recent estimates suggest that the population has stabilized at just over 27,000 people. Much of this loss can be attributed to the out-migration of older workers who could not take early retirement or find new employment locally. Superior's population also underwent a slight change in composition. From 1980 to 1990, the percentage of elderly residents increased from 16 to 18 percent, and the proportion of children under age 18 decreased slightly. National and regional trends suggest that the number of elderly will continue to rise (with significant increases in those over age 75) and the number of children will decrease.
Over one-fourth of Superior's households have very low incomes, earning less than 50 percent of the city's median family income (MFI). Another 18 percent are considered low-income households (51-80 percent of MFI). Just under 13 percent of all Superior families were in poverty in 1990. However, the effects of poverty were felt disproportionately by certain demographic groups: as many as 41 percent of female-headed, single-parent households lived in poverty in 1990. Superior's small minority community has also been uniquely vulnerable: 72 percent of Asian Americans are in poverty, as are 39 percent of Native Americans, 33 percent of Hispanics, and 21 percent of African Americans.
Poverty has exploded among local youth. Between 1980 and 1990, the number of children living in poverty increased by 66 percent to 1,837. In 1990, 27 percent of children under age 18 lived in poverty, compared to only 10 percent of elderly persons.
The gradual shift in the local economy to lower paying jobs is expected to continue. Higher paying manufacturing and transportation employment is slowly disappearing and being replaced by lower paying positions in other economic sectors. If unchecked, this process will restrict the amount of private resources available for the purchase or rental of housing or for investment in its rehabilitation by landlords or homeowners.
Low-income households have a difficult time finding affordable housing when all housing costs are considered. While many units have low rents, their poor condition can lead to utility bills that easily double or even quadruple monthly housing costs. According to 1993 estimates, approximately one in seven owner-occupied homes and one in four rental units in Superior were substandard.
Apart from the fundamental economic shift noted above, there are no major changes anticipated in the local economy or in specific neighborhoods that would create pronounced effects on Superior's housing situation. No large redevelopment or transportation projects are foreseen that would necessitate the loss of units, nor are there any major economic actions that would generate demand for new homes or depress the market.
Superior's housing stock totals nearly 12,000 units, of which more than one-third are rental. The rental stock is well balanced, with 42 percent of these being two-bedroom units, 36 percent being studio or one-bedroom units, and 22 percent being three-bedroom units.
According to the 1990 census, Superior's rental market had a healthy vacancy rate of 5.3 percent. Since then, however, informal indicators suggest that the rental market has softened.
There are many people living in undesirable conditions, doubled or tripled up with friends and relatives or living in substandard housing. Many are temporarily living out of town because there is no affordable housing for them in Superior.
Superior's housing conditions contribute to affordability problems and perhaps even homelessness. Many people rent a home or unit in the summer, but once the heating season begins, find fuel costs to be excessive. These costs, which can be several thousand dollars, eventually force them to move out.
There are no firm counts of Superior's homeless population, although one recent estimate places the number at 50. Nearly half of these individuals are served by emergency shelter and 13 are served by transitional shelter. There are about 11 unsheltered homeless persons. However, both stringent residency requirements for the provision of welfare benefits and the availability of more homeless services in nearby Duluth tend to divert transient homeless or near-homeless persons away from the community. Superior has many individuals who may not be technically homeless but are living in overcrowded conditions with friends or relatives or in exceptionally substandard housing. If better quarters were available and affordable, these individuals would move.
Superior has several good facilities and services in place for homeless and near-homeless persons. The primary contact point for this population is the Salvation Army, which helps to provide or coordinate emergency shelter, temporary housing, emergency financial support, and other housing-related assistance. Two other facilities are the Center Against Sexual and Domestic Abuse (CASDA) and Solid Rock Mission. CASDA provides emergency shelter and short-term transitional housing for women and their children, as well as legal support, crisis counseling, and community education. Solid Rock Mission provides transitional housing for men and operates a soup kitchen that serves 50 to 70 people daily.
Various homeless service providers reported, however, that there are several categories of homeless persons not adequately served in Superior. These include: single women and single women with children in nonabusive situations, single men with children, and intact families that have lost jobs or have other personal issues. In times of excess demand on Superior facilities, agencies will refer clients to programs in Duluth, Ashland, and Ladysmith.
The Superior Housing Authority (SHA) directly provides public housing in two forms -- large public housing developments and scattered-site housing. SHA's current public housing stock totals 464 units, of which 19 percent are one-bedroom elderly households.
SHA's units are typically full with a vacancy rate of 3 percent or less. More recently, however, because of vigorous campaigns by management and residents to get rid of undesirable residents (for example, drug users or those affiliated with gangs), higher vacancy rates have occurred. As of September 1994, SHA's vacancy rate was 11 percent, and the waiting list was empty. SHA is attempting to reduce this figure through marketing efforts and by seeking changes in regulations to permit remodeling of units to make them more attractive to prospective tenants.
In addition, SHA operates a self-sufficiency program that establishes an escrow account on behalf of participants who gain increased employment income. After 5 years, if successful completion of the program occurs, the money can be obtained by the participant for any personal use. SHA also supports self-employment opportunities for residents, including training, hiring of residents to conduct SHA work, and internships.
SHA also administers the Section 8 program for housing certificates and vouchers. As of September 1994, SHA had 106 certificates and 64 vouchers. Nearly half of the certificates were for two-bedroom units, and an equal percentage of one- and three-bedroom units were used (about one-fourth). There were 80 households on the waiting lists for certificates and vouchers, as compared to 160 households the previous year.
Other assisted housing is provided in Superior through numerous privately sponsored communities, which provide subsidized housing for the elderly, physically disabled, and low- and moderate-income households. The privately developed family communities are provided by Bartley Manor, Woodland Way, and Superior Townhouse, which collectively provide 190 two- and three-bedroom units. The four communities that provide the elderly with subsidized housing are Lund and Hill Apartments, Phoenix Villa Superior, Royalton Manor, and Superior Golden. Of these 506 units, almost all of them are one-bedroom units.
There is a shortage of multifamily housing sites. Some undeveloped land zoned for this purpose is restricted by the presence of wetlands. Other sites are in neighborhoods where prevailing rents are not high enough to financially support a new development. In other areas small lots prevent placement of a multifamily structure and the required off-street parking.
Another barrier to affordable housing is the reluctance displayed by most neighborhoods to accept public housing. This includes neighborhoods that feel they already have too many such units and those with few or no public housing units.
The city promotes fair housing through its Community Housing Resource Board, enforcement of the city's fair housing ordinance, and promotion of the toll-free housing discrimination/conditions hotline operated by the Consumer Affairs Division of the Wisconsin Department of Agriculture.
Using census figures and national findings, it is estimated that 66-84 percent of Superior's housing units have lead-based paint. This range is broad but clearly defines the potential enormity of this problem. SHA eliminated all lead-based paint hazards in its units by 1986.
The Douglas County Health Department has received funds from the Wisconsin Division of Health to conduct screening of children for elevated blood-lead levels, and the county will test any home upon request. In the past year, the county tested 45 to 50 units, most of which were in Superior, and all but one had lead sources. The county is currently meeting with State and U.S. Department of Housing and Urban Development officials to examine expansion of the program, with the possible inclusion of funding assistance for remedial actions.
Special housing problems exist in Superior for individuals with chemical dependencies, especially alcoholics. To help this population, the county subcontracts with the Duluth Detoxification Center to provide initial emergency housing and programming. From there these individuals enter residential and outpatient treatment provided by the Recovery Center, Inc., which is under contract to the county.
Mental health professionals have reported that persons with mental illness experience housing discrimination. They report the following: a lack of affordable housing exists for this population; most housing available to these persons is substandard; there is insufficient compliance with the updated housing rules and regulations under the Americans with Disabilities Act; and there are gaps in the support services delivery system for these individuals.
There are no dedicated facilities or services in Superior for persons with HIV/AIDS. Although the AIDS epidemic has not fully struck in Superior, trends indicate that the number of cases will rise. County officials use national estimates that the number of persons who are HIV positive may be 10 times the number of reported AIDS cases; this means that 40 to 50 more AIDS cases could develop in Superior during the next decade.
A growing challenge to public housing programs is to maintain the livability of existing elderly housing units while actively offering alternative living arrangements. This can include in-home support services to help maintain the elderly household's current home. It may mean establishing adult day-care services to provide more social contact for elderly residents and to allow family caregivers to work, shop, or attend to other household business.
Priority community development needs exist in the areas of youth services, energy efficiency improvements, and lead-based paint hazards. With regard to youth services, emphasis is needed on services that connect youth to the community, encourage responsible living, deter crime, and assist youth in resolving crises in their lives.
Over the next 5 years, the city of Superior will focus on three main goals for its housing and community development activities:
The city of Superior has assigned high priority to assisting cost-burdened extremely low-income renter households, very low-income elderly and small-family renters, and low- to extremely low-income homeowners living in substandard houses.
Nonhousing community development priorities established in the planning process are:
Superior's antipoverty strategy is contained within a multilevel approach to overall economic development. In coordination with the Superior-Douglas County Development Association, the city will continue its overall economic development efforts to attract new businesses, encourage the expansion of existing ones, and support the development of indigenous businesses.
To carry out its plan, the city of Superior will use CDBG funds, and the city's Department of Planning and Development will coordinate the activities of numerous public and private resources to address the needs of this Consolidated Plan. In addition to these financial resources, the city also has access to undeveloped city-owned land and other public lands that may be available for housing and community development activities. The city has used this land in the past for homeownership, new construction, and economic development. These options remain available and will be exercised by the city for appropriate projects.
Superior's Department of Planning and Development will coordinate delivery of housing and community development activities by working closely with the city, public and private housing providers, social service agencies, other housing service providers, and those interested in community development. In addition, the city plans to formally establish a Citizens Advisory Committee to provide direction and community input, assist in the annual planning process, and prepare recommendations to the Common Council for the annual action plan.
For Fiscal Year 1995, the main CDBG activities will consist of housing rehabilitation and public facility construction/rehabilitation. Key programs planned for the first year of the Consolidated Plan include: