Waukesha County is the third most populous county in Wisconsin, boasting 304,715 persons in 1990. Located west of Milwaukee, Waukesha is one of four counties that constitute the Milwaukee metropolitan area. Suburbanization of both employment and population to eastern Waukesha County communities has spurred significant growth over the past two decades. Substantial population and economic growth should continue if sufficient housing resources are made available.
For the first year of the Consolidated Plan, housing needs predominate in the planned use of $1.9 million in Community Development Block Grant (CDBG) funds, of which $300,000 is program income.
Waukesha County held four public hearings to provide citizens with the
opportunity to express needs or comment on specific aspects of the draft
Consolidated Plan. Each notice of a public hearing was published in the Waukesha
County Freeman, the local newspaper. A public comment period was provided
from March 25 to April 24, 1995, during which the public was invited to review
and comment on Waukesha County's Consolidated Plan. No citizen comments
regarding the Consolidated Plan were received as of April 21, 1995.
Suburbanization has spurred new housing development and natural population growth throughout most of Waukesha County's political jurisdictions. From 1970 to 1990, the county population grew by 32 percent, employment increased by 123 percent, and industrial and commercial land use expanded by 58 percent. An in-migration from Milwaukee, small town atmosphere, quality schools, and employment growth in the retail, manufacturing, and service sectors have been the primary catalysts for growth.
Population growth, however, was not uniform among all political jurisdictions. Older communities, such as the villages of Menomonee Falls, Lannon, and Elm Grove, experienced population losses. Smaller communities and towns, such as the villages of Dousman, Hartland, and Wales, and the towns of Eagle, Mukwonago, and Vernon, saw their population more than triple. The city of Waukesha had the largest growth of any political jurisdiction, with an increase of 15,463 persons. Its increasing growth has been attributed to the greater availability of public facilities and services, a lower price of housing in relation to other jurisdictions, and an aggressive annexation policy. Minority residents, who accounted for only 2 percent of the county population in 1990, are concentrated in the city of Waukesha.
Employment in Waukesha County jumped 55 percent between 1969 and 1979, and 34 percent between 1970 and 1989, with 80,800 net jobs added during the two decades. During the 1980s the increase in jobs (34,000) in Waukesha County was greater than the increase in population (24,512).
This economic expansion has helped make Waukesha the most affluent county in
Wisconsin. Between 1980 and 1990, the county's median household income rose by
73 percent to $44,565. This high personal income reflects not only the
availability of employment opportunities but also an educated population. In
1990 more than 88 percent of Waukesha County residents over 25 years old were
high school graduates, with 21 percent possessing college degrees. Only 3
percent of county residents were living below the poverty level in 1990,
compared to almost 9 percent in the State of Wisconsin.
Waukesha County has been recognized as one of the fastest growing counties in Wisconsin. Its 34-percent growth in population between 1970 and 1990 was accompanied by a 230-percent increase in housing inventory. Its quality schools, numerous recreational opportunities, and other positive attributes have created a significant housing demand, resulting in rapidly escalating property values. Local zoning ordinances have emphasized the development of large single-family homes and upscale multifamily properties.
The high cost of land, restrictive zoning ordinances, and land use policies have limited the construction of modestly priced homes in many of the county's jurisdictions. The result has been the creation of a dual housing market in which homeownership and even rental opportunities in Waukesha County are almost entirely out of reach for most persons of low to moderate means.
Waukesha County's housing market is typified by a high rate of homeownership. Rental units that constitute only 23 percent of its 105,990 housing units. The 1990 median value of owner-occupied housing in Waukesha County was $96,300, an increase of 130 percent since 1980, and 78 percent of the housing stock was owner occupied. Excluding the city of Waukesha, the county's percentage of owner-occupied housing is 88 percent.
In the owner-occupied inventory, a serious lack of opportunities exists for low- and moderate-income persons. In 1990 only 1,435 housing units had a market value of less than $50,000, and 29 percent of these were located in the city of Waukesha. At the other end of the market, there were 32,746 owner-occupied housing units with a value of $100,000 or more. Nearly one-quarter of all of Wisconsin's housing inventory valued at $100,000 or higher is in Waukesha County. Since 1990 home values have been increasing by between 7 and 10 percent annually.
Between 1980 and 1990, the county's number of rental housing units increased 27 percent to 25,438. Approximately 38 percent of the county's rental units were located in the city of Waukesha. During this period the median rent jumped from $292 to $480. Only 2,810 of the county's renter-occupied units had a rent of less than $300, and 43 percent of these units were found in the city of Waukesha. At the market's opposite end, 1,247 renter-occupied units had a rent of $750 or more, and only 20 percent of these were in the city of Waukesha. Of the 19,539 renter-occupied units found in Waukesha County, about 42 percent had a monthly rent of $500 or more.
Over the past decade, the housing market has remained relatively closed to low- and moderate-income households. More than 75 percent of the owner-occupied homes in Waukesha County have a value of $75,000 or more. Waukesha County's rental housing stock is also highly priced, with many of the units renting at $500 or more per month.
There are 2,488 households in Waukesha County whose rents are subsidized by either the U.S. Department of Housing and Urban Development (HUD) or the Farmer's Home Administration. The Section 8 voucher/certificate program, which is administered by the Waukesha Housing Authority, provides 712 of these renter subsidies. The demand for these subsidies has been so excessive that new applicants have been able to apply only recently.
In addition, the Waukesha County Department of Human Services (DHS) and organizations that serve persons with special needs and, as funds are available, finance housing for these populations, have identified similar and increasing needs for group homes and transitional and permanent housing. Waiting lists, maintained by DHS, exist for each group in need of supportive services.
Clearly, the needs for affordable renter housing and supportive living arrangements for special needs populations have increased, and homeownership for low- and moderate-income households has become more difficult in Waukesha County. Increases in homelessness are particularly disturbing, showing a lack of affordable housing in the county, with many of these persons and families being among the working poor.
Waukesha County has no point-in-time count with which to estimate the size of the homeless population. The primary factors creating homelessness in the county are deinstitutionalization of chronically mentally ill persons, domestic conflict, separation and divorce, the loss of a job, evictions, rent increases, foreclosure, and multiple personal problems (especially chemical dependency).
The Hebron House emergency shelter has a maximum capacity of 31 individuals. In 1994, the shelter provided lodging to an average of 20 persons per night. The Salvation Army facility has a capacity of 12 family members and 13 single individuals. The Women's Center, located in the city of Waukesha, provides emergency shelter to abused and battered women and children.
The demand for emergency homeless assistance has increased during each of the past 3 years. While unemployment in Waukesha County remains relatively low, the escalating cost of housing and tight supply of affordable units has made housing availability difficult for persons working at minimum wages. As demand increases, persons with poor credit records, previous eviction problems, or low-paying jobs cannot compete in the housing marketplace.
Another indication of the potential for homelessness is the utilization of local food pantries. Over the past 3 years, the number of persons served has increased dramatically. A total of 33,859 persons, 40 percent of whom were children, used the Waukesha Food Pantry in 1994.
All public housing units situated in Waukesha County are located in the city of Waukesha (118 elderly and 164 family units). The cities of Brookfield, New Berlin, and Oconomowoc, and the town of Pewaukee, have authorized the execution of cooperation agreements with the Waukesha County Housing Authority for the development of 10 public housing units within each jurisdiction. However, HUD has not executed an Annual Contributions Contract (ACC) or fund reservation for the development of public housing in any of the four communities.
The general condition of public housing is very good. All units have been rehabilitated within the last 3 years. At present, the conversion of 30 three-bedroom units to two-bedroom units is under consideration.
The Waukesha County Housing Authority currently administers 890 Section 8 certificates and vouchers throughout Waukesha County. The distribution of these certificates and vouchers is based on availability of funds. The current breakdown is 233 one-bedroom units, 492 two-bedroom units, 154 three-bedroom units, and 11 four- or more bedroom units.
There are 12 Section 8 new construction projects, with 1,361 units located in 8 communities covered by Waukesha County's Consolidated Plan. Half of these projects are located in the city of Waukesha and collectively have 648 units. The remaining projects are located in the cities of Brookfield, Delafield, and Oconomowoc; and the villages of Butler, Hartland, Menomonee Falls, and Sussex.
Waukesha County has 42 Farmer's Home Administration (Section 515) program units, located in the village of Dousman and the towns of Eagle and Mukwonago. The county also has two Section 221 projects, with a 33-unit community located in the city of Waukesha and a 44-unit community located in the village of Menomonee Falls.
A 1994 comprehensive study by the Urban Research Center at the University of Wisconsin-Milwaukee identified several major development barriers to affordable housing: lot size, house size, and construction and site requirements. The study also identified subdivision restrictions, local commissions and boards and, perhaps the greatest detriment, the attitude of local residents and officials related to affordable housing.
A significant problem in Waukesha County is the cost of land, which makes affordable housing construction prohibitive, and development restrictions in nonsewer areas, which require 3- to 5-acre lots to reduce the impact on the environment.
Approximately 89,467 homes in Waukesha County were constructed prior to 1980. Based on the fact that lead was not banned for use in residential paint until after 1978, it is assumed that a majority of these units may contain lead-based paint.
All CDBG rehabilitation activity includes a notification to the homeowner of the dangers of lead-based paint. The Waukesha County Housing Authority is informing all homeowners or tenants with children under 6 years old and subject to housing rehabilitation activities to have their children tested for possible lead poisoning through the Waukesha County Department of Environmental Resources.
The Housing Authority has already identified 13 of its properties that contain lead-based paint, and it has already completed the removal of lead hazard from these units.
Waukesha County has 14 nursing homes, 5 group homes for the mentally ill, 25 group homes for the developmentally disabled, and 34 community-based residential facilities for the frail elderly and physically disabled. Waiting lists of the Waukesha County Housing Authority and the Waukesha County Human Services Department indicate a need for additional housing for disabled and handicapped persons and families.
The HUD Section 202 elderly program combines the provision of affordable housing with a supportive service component. The program permits elderly persons to remain in their homes as they make the transition through various stages of aging or recover from temporary illness. Waukesha County is pursuing funding for the development of 500 elderly housing units over the next 5 years for projects to be developed in the cities of Brookfield, Muskego, and New Berlin.
All of the county's hospitals, its three home health care agencies, the Visiting Nurses Association hospice, and three nursing homes provide care to persons with HIV/AIDS. Mental health support services are also available through the Milwaukee AIDS Project. There is a need to develop a list of physicians and dentists who are not only willing to provide care but are expert in the needs of HIV-infected persons. Plans are underway for the Milwaukee AIDS Project to provide case management services to HIV-infected clients in Waukesha County instead of referring them to Milwaukee. This will result in improved access for county residents and earlier provision of services for HIV-infected persons.
Priority community development needs exist for child-care centers, parks and recreational facilities, sewer improvements, economic development, and several different public services in the areas of transportation, fair housing, child care, and the handicapped.
The community has also identified the need to address accessibility needs in
the areas of housing and public facilities. Accessibility problems can be
alleviated by the removal of architectural and material barriers in places that
provide or possess the potential for significant use by the elderly or the
disabled, in accordance with the Americans with Disabilities Act (ADA).
Waukesha County has established three housing and community development priorities for the next 5 years:
High priority was given to addressing the needs of low- and moderate-income renters with high cost burdens, as well as cost-burdened low-income homeowners. High priority also was assigned to repairing/rehabilitating physically deficient homes occupied by low-income elderly renters and low-income owner-occupants.
Waukesha County's high priority for homeless assistance focuses on providing emergency shelter and outreach assessment to families and individuals and on providing previously homeless families with transitional shelter and permanent and supportive housing.
Nonhousing community development priorities established in the planning process include:
Waukesha County has an innovative program under development called the "Workforce Development Center," which will serve as a one-stop center to streamline systems that serve employers, job seekers, and workers. The center will locate and integrate the services of multiple agencies to help persons obtain training, skill development, and job placement to escape poverty.
Both the YWCA and Hebron House have developed programs to provide long-term support service programs to assist individuals and families out of homelessness and/or poverty. Additional efforts to identify and assist persons and households with poverty-level incomes will continue.
Waukesha County, through the County Executive Office, will continue to support affordable housing through its established lender's consortium, business leaders outreach program, and Homebuyer Program. In addition, discussions are underway to merge the Waukesha Housing Forum -- a group of nonprofit, government, and business leaders -- and the Waukesha Community Housing Resource Board (CHRB) into a unified group.
In addition to CDBG funds, the county anticipates that $764,664 in weatherization funds will be made available through the U.S. Department of Energy. The Waukesha County Housing Authority is requesting funding for additional rent subsidies under HUD's existing Section 8 housing and housing voucher programs.
Nonprofit corporations are expected to seek financial assistance to develop new housing utilizing a HUD HOME grant, to undertake planning activities through a HUD HOPE III planning grant, and to prepare grant applications for the development or operation of emergency shelter facilities under the Stewart B. McKinney Act.
Waukesha County, through its CDBG Program, will have primary responsibility for carrying out this Consolidated Plan. The CDBG Coordinator will work closely with the Waukesha Housing Authority, the CHRB/Housing Forum, the Waukesha County Lenders Coalition, and private developers to implement the plan activities identified. Meetings with these groups will be held at least bimonthly.
In addition, a cooperative effort involving Waukesha County's Department of
Human Services and Department of Aging, the United Way, the Waukesha County
Housing Authority, the Women's Center, Hebron House, and the Salvation Army is
required. To meet the needs of this Consolidated Plan, the responsibilities of
this team would include a more detailed assessment of current housing needs of
disabled and homeless persons and families throughout Waukesha County, the
identification of potential funding and delivery mechanisms, and the development
of effective relationships with and involvement of the staff and governing
bodies of local political jurisdictions throughout Waukesha County.
For Fiscal Year 1995, primary CDBG activities will include housing rehabilitation and rehabilitation support, economic development activities, initiatives to improve compliance with ADA accessibility requirements, and improvements to parks and recreation facilities. Key programs planned for the first year of the Consolidated Plan include:
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).
