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Part IV Community Development (9


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									Part IV: Community Development (91.215 (e))
Priority Non-housing community development needs
The City of Jacksonville intends to reduce the high levels of poverty that exist in the City through its community development efforts. The plan is to revitalize distressed neighborhoods by implementing non-housing community development strategies. Non-housing community development needs focuses on improving the quality of life of individuals in a community by creating access to jobs and self-sufficiency among the disadvantaged. As such, the emphasis is on individuals rather than on location. Non-housing development seeks to improve the physical infrastructure of an area in order to attract businesses and create market opportunities. These policies focus on location rather than the individuals. To assure comprehensive development, the City will try to achieve both people-based and place-based development through the NAP concept. The goal is to stimulate neighborhood revitalization by improving the physical condition of the neighborhoods and the business corridors, while simultaneously improving the quality of life of the residents living in these NAP communities. In order to achieve this, however, it is imperative to have a clear understanding of the social service and economic development needs of the target low to moderate-income and NAP areas. The City’s community development efforts will involve many players, with the understanding that the strength of target low-income and NAP areas depends on the links that are established with in the NAP. The City will continue to build and maintain an ongoing community profile using the NAP to guide community planning in the areas of housing, public service and economic development. The Anti-Poverty Strategy also addresses the needs of the community.

The priority for ranking needs established by this Plan uses three ratings: high, Medium or low. A high priority indicates a need for the activity in the communities and should be supported in the Five-Year period by funding providers. Next, a medium priority indicates that if funds are

available the existing need may be funded. Finally, a low priority rating signifies that such activity will not receive funding. However the City will consider Certification of Consistency with the plan for agencies seeking other means federal funds.

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The majority of CDBG funds are allocated to the City's low and moderate income areas. An assessment of the relationship of the use of CDBG funds to the priorities and specific objectives as identified in Attachment E, Community Development Needs table, are as follows:

Public Facilities and Improvements
The main objective is to provide assistance for public facilities to improve the health and welfare of revitalization neighborhoods and augment the availability of local services to low and moderate-income persons. Public facilities are the primary element for neighborhood services delivery. It is essential to the long-term stability of neighborhoods that these facilities continue operating and providing services to residents. The assistance will be directed towards neighborhood facilities, parks and recreation facilities, health facilities, infrastructure improvements, youth centers and parking facilities, where activities benefit low and moderate income citizens. Consequently, many of the City’s infrastructure are in need of upgrade and development. The need to development and maintain them is critical. Revitalization of parks is an important aspect of community development. These facilities are a safe haven for many youth. The restoration and rehabilitation of parks is a key component in attracting residents to take pride in their community. Community pride can be a catalyst to neighborhood revitalization. In order to encourage revitalization and make a community “bankable,” investors need to see visible results. The City has focused on improving the public infrastructure and streetscape of the NAPs. Within the next five years, the City should assess the public improvement needs in each of the NAPs and give them a priority ranking for funding.

Public Facilities and Improvements Goals and Objectives:
Goal: Provide funding for acquisition, construction, and rehabilitation of eligible public facilities in response to the specific priority facilities needs in target CDBG and NAP areas. Objective: Identify projects for public facilities and improvements that are responsive to the unique character of differing needs of the NAP and CDBG neighborhood, keeping under consideration the needs of low-moderate income residents.

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Expected Outcomes: Create safe, attractive and accessible neighborhoods.

Funding Sources: CDBG

Goal: Provide adequate infrastructure and preserve and upgrade to current City standards.

Objective: Provide to the greatest extent possible all necessary public infrastructures to support the development of the NAP and CDBG targeted neighborhoods. Expected Outcomes: Improve the heath and welfare of the target CDBG and NAP neighborhoods through the stimulation of economic growth. Funding Sources: CDBG, local, state, and other federal funds.
Source: 2005-2006 Annual Action Plan; Part VI of the Plan and the Community Development Needs Table in Attachment E..

Handicapped Services
Persons with disabilities older than 16 years old accounted for 21% of total city population. A variety of agencies provide housing support and services for those living in physical health facilities as well as those leaving these facilities and living more independently.

Facilities for AIDS patients
In view of the changing epidemiological trends of the disease and the increasing demand for all housing units in the greater Jacksonville area, especially affordable housing for those with HIV/AIDS has become an increasing burden to funding systems. Existing services are already over-burdened with increasing costs of medical care, pharmaceuticals, transportation, etc.

Homeless Facilities
Develop/acquire 800 units of service-enriched permanent housing over 5 years; 2300 units over 10 years. This housing will target youth aging out of foster care, individuals with mental illness and/or chronic substance addiction, and families who are repeatedly homeless. This housing will require an approach based on respect of client choices. Residents will pay 30% of their income toward rent.
December 2004. Source: Ending Homelessness in Jacksonville: A Blueprint for the Future, ESHC,

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Public Services
In addition to housing needs, the need for improved public services was among the highest priorities identified through the public involvement process. Elderly service programs, disabled services, youth services, legal services, abused persons, crime prevention, health services, substance abuse programs and employment training programs were all emphasized repeatedly at the public hearings.

The role of the Planning & Development Department, Community Development Division is important in providing public services functioning as a facilitator in partnership with numerous local organizations to deliver services. Various organizations on the "front line" have assisted in determining priority needs and programs for the planning period. Their input through the means of public hearings and agency surveys has been invaluable in defining the extent of the problems impacting local neighborhoods and in developing solutions, as stated in the NAP studies.
Source: City of Jacksonville /Planning & Development & Asset Property Disposition, Inc. Neighborhood Action Plan Studies 2003

Public Services Goals and Objectives:
Goal: Allocate the maximum allowable 15 percent to public service programs that serve the elderly,; disabled, youth and abused persons and provide services for health needs, crime prevention, substance abuse, legal services and employment training. Objective: To support agencies providing services and activities to low and moderated income person. Expected Outcomes: Increase the quality of life. Funding Sources: CDBG, local, state, and other federal funds. Goal: Focus funding priority to agencies within or that provides services to the established NAP and CDBG targeted area.

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Objective: To fund agencies providing services and activities in the targeted neighborhoods.

Expected Outcomes: Promote stable and economically sound neighborhoods with healthy supportive services. Funding Sources: CDBG
Source: 2005-2006 Annual Action Plan; Part VI of the Plan and the Community Development Needs Table in Attachment E.

Job Training
Chronic unemployment along with low educational attainment indicates a strong need for workforce development in key industrial sectors. Key industrial sectors in the NAPs tend to support manufacturing and service occupations, which do not always require upper level education, but do require sometimes specialized technical skills (i.e. plastics manufacturing or entertainment industries).

Employment Training
Attraction of new businesses that have the potential for growth within the Neighborhood Action Plan (NPA) areas. For example, expansion in lodging, retail, and the healthcare industry show positive growth potential. Jacksonville is a major terminal on the Inter-coastal Waterway, which extends from Trenton, NJ to Miami, FL. Employment in wholesale and retail sales is expected to continue increasing. Professional and business services, as well as administrative and waste services experienced continued growth in Jacksonville's economy. Critical to the success of local economic development strategies is the ability of city governments to forge the institutional support for industrial clusters. New and heightened global competition across all industrial sectors suggests that cities and regions with strong levels of institutional support for specific industrial sectors will gain a competitive edge in the global marketplace.

Micro-Enterprise Assistance
This activity is provided to small businesses city-wide. CDBG funds were awarded to the First Coast Micro Loan, Inc. to provide micro loans to small businesses that would create jobs for low to moderate income persons. Northside Business Services Center CDBG funds are used to assist low and moderate income persons to start a small business and existing small business and existing small business by providing meeting rooms, office equipment, library and conference room space.
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Screening for Lead-Based Paint Hazards
The JHC administers several low to very-low income based programs that are designed to protect and preserve the targeted neighborhoods for this proposal encompassing the Northwest Quadrant, Planning District 5, of Jacksonville which has 67% low to moderate income households and Springfield (census tract 112).

Technical Assistance
Connecting business owners and managers with assets in and around their communities is a vital need. Non-profits already provide business start-up assistance, and provide business

owners and technical assistance, a resource library and meeting room space.

Priority assignment basis
The priorities outlined in the strategic plan, represent the strategic goals, programs, and policies designed to address human development needs, economic need and housing needs of the community for the next five years. This plan is also inclusive of the homeless needs and special housing. The main goal is to synchronize the aforementioned into a single component aimed at reducing the number of poverty level families and individuals taking into consideration the many factors over which Community Development has no control such as the reduction in funding shortfalls, inexperienced CHDOs, and poor financial controls practices by subrecipients.

The cumulative efforts of this process will result in direct preservation and provision of housing. This is particularly true for those activities that preserve and produce housing units planned for low income families and individuals, collectively with the coordinated programs undertaken with other public agencies, service providers and private organizations. These efforts will

incrementally assist in the reduction of number of the poverty level families through the provision of housing, and community and support services.

Many of the objectives focused on non-housing community development are based on the goals, objectives and priorities the City has established as part of the City of Jacksonville 2010 Comprehensive Plan. Elements of the Comprehensive Plan that are addressed include Capital Improvements, Conservation and Coastal Management, Future Land Use, Historic

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Preservation, Mass Transit, Ports, Aviation and Related Facilities, Ports Master Plan, Public Utilities, Recreation and Open Space and Traffic Circulation. The scope of non-housing community development is of a magnitude that cannot be addressed by the Planning and Development Department alone, but is undertaken in cooperation and coordination with other City departments and nonprofit service providers. Specific activities will focus on those neighborhoods where the Planning and Development Department can realistically address the needs based upon estimated allocations of resources include the following areas:        Public facilities - capital improvements, recreation and open space, historic preservation, conservation and coastal management and future land use. Infrastructure - natural groundwater aquifer recharge, drainage, sanitary sewer, solid waste and portable water. Transportation services and facilities - mass transit, ports, aviation and related facilities Other public services and programs – senior services, youth services, and family self-sufficiency. Anti-crime programs – neighborhood watch, C.A.P.E program Economic development – micro loan and technical assistance programs. Planning and code enforcement – program operations and delivery costs. Other programs - acquisition


Economic Development
The City has taken a proactive approach to enhance and increase economic opportunities for residents through support of programs and activities that help low to moderate-income persons attain employment. The City will continue to work with business on retention and attraction by developing and maintaining working partnerships with local lenders, investor, developers, government entities, and other agencies interested in business growth and development.
Source: City of Jacksonville /Planning & Development & Asset Property Disposition, Inc. Neighborhood Action Plan Studies 2003

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The economic development five-year initiative will integrate job creation, micro enterprise assistance, and technical assistance citywide. The City aims at reducing the number of poverty level families by supporting human services development and employment programs that facilitate the creation and retention of job opportunities. This will be accomplished by

developing business attraction and retention programs which will result in the expansion of the Neighborhood Action Plan areas. Job creation and retention: Provides stabilization and expansion of small businesses in areas stricken by economic disadvantages. An activity claiming job creation must comply with regulations set forth by HUD. The entity seeking credit for job creation must be able to verify that at least 51 percent of the jobs will be made available for lower income people. Pertinent documentation must be secured for

compliance monitoring purposes, as identified in 24 CFR 570 Sec. 203 and 208. Conversely, when an activity secures credit for jobs held by lower income persons, it must provide evidence that the jobs held by low income persons would have been lost without the assistance of CDBG funds. Primarily, the entity must justify how the assistance meets the national objective of benefiting lower income people. Also, the business must execute a written agreement that contains a promise by business that at least 51 percent of the retained jobs will be available to lower income citizens. Technical assistance: CDBG assistance can be used to fund technical assistance to build capacity for nonprofits to carry out eligible neighborhood revitalization or economic development projects. In order to make use of available funds under this category the grantee must

determine prior to providing assistance, the eligibility of the activity for which the capacity building is targeted and that such activity meets a national objective. Additional factors that must be evaluated to determine if a national objective will be met are: the purpose of the organization receiving the assistance; the type and eligibility of the activity to be carried out; the location of the activity; and clientele expected to be served. For example, the assistance may be in the form of training to a nonprofit organization to help improve its abilities to conduct project reporting. Other forms of assistance could be lien underwriting, training and

development of a rehab loan program (24 CFR 570.201 (p)).

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Commercial or Industrial improvements (rehabilitation):

CDBG funds may be used for

commercial and industrial improvements where such property is owned by a for profit entity. The facade treatment program deems the following as eligible projects: pressure cleaning, painting, awnings, doors, store showcase windows, signs and shutters. If a business is

classified as a or profit, the façade is limited to the outside of the building. The primary objective of the program is to provide assistance to business owners attempting to rectify code compliance violations (24 CFR 570.202 (a)(3)).

Community Development allocates funds under this category to improve the safety and livability of targeted revitalization areas and secure economic development growth potential by upgrading, replacing or developing necessary infrastructure systems, in response to the priority needs of specific neighborhood areas. The repairs further the needs and requirements of the economic development growth areas identified in the NAPs. The goal is geared at stimulating private investment in distressed economic development areas through the improvement or renovation of streets, sidewalks, gutters, water system upgrades, flood drains and solid waste disposal sites. This assistance can be provided to community facilities such as: senior centers, youth centers, parks, and childcare facilities. Infrastructure improvements encourage quality of life enhancements through the elimination of deteriorating conditions, in conjunction with the facilitation of economic development opportunities. The funded project or activities must take place in low and moderate income neighborhoods. Historic Preservation: The National Historic Preservation Act of 1966 direct federal agencies to take into account the effect of their undertakings on historic properties. The regulations are mandated under Section 106 (36 CFR 800). Furthermore, this implies that public or private places can be rehabilitated if they are eligible to be on the national list of Historic Places or are officially recognized by state or local law, as such. This category also authorizes the costs of preserving or restoring properties of historic significance, whether publicly or privately owned. The following are potentially eligible categories for CDBG assistance under historic preservation; events significant in the board patterns of our history; persons significant in our past; distinctive characteristics of type, period, method of construction, or the work of a master, or possessing high artistic values, yielding information important to history of prehistory (24 CFR 570.202(d)).
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Administration and Planning: CDBG and HOME funds are allowed to cover general and reasonable costs related to the planning and execution of community development activities, assisted in whole or partially. These costs are not directly related to providing a specific activity. Program administration includes items such as overall management, coordination, monitoring, and evaluation of the jurisdiction's programs. Some of the tasks affiliated with program The use of

administration are preparing budgets, performance reports, and staff salaries.

program administration has a monetary cap responsive to distinctive grants. The following are the cap limitations set-forth for the subsequent categories: the cap limitation for CDBG funds states that no more than 20 percent of grant funds plus program income may be used for planning and administration (24 CFR 570.206 (a)(1)); the cap limitations for the HOME program funds states that no more than 10 percent of grant funds plus program income may be used for administration costs (24 CFR 92.207 HOME).

Economic Development Goals and Objectives:
Goal: Continue support to organizations creating job opportunities and or retention of jobs for low and moderate-income persons. Objective: Support economic development designed to create and or retain jobs through business expansion or recruitment; to include the business corridors in the NAP area and CDBG targeted neighborhoods. Expected Outcomes: Create/retain employment opportunities in financially distressed neighborhoods. Funding Sources: CDBG Goal: Assist small business development enterprises in targeted neighborhoods. Objective: Support small business and entrepreneurship development through loans, grants and others financial incentives. Expected Outcomes: Improve the financial growing potential of small business in the targeted business corridors that will increase the demand for labor and create jobs. Funding Sources: CDBG
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Source: 2005-2006 Annual Action Plan; Part VI of the Plan and the Community Development Needs Table in Attachment E.

Other Community Development Activities:
The City will ensure that targeted revitalization areas are adequately severed and well preserved. The City will contribute CDBG dollars in other CDBG eligible projects and neighborhoods, to address such conditions. Funds will be allocated to eligible projects as opportunities arise on a case-by-case basis throughout the five years of this plan.

Code Compliance
Goal: Allocate funding to the Code Enforcement Department.

Objective: To support the use of coordinated enforcement of building and zoning codes to ensure safety and health of low to moderated income residents. Expected Outcomes: Improve safety and appearance of business corridors, NAP and CDBG neighborhoods. Funding Sources: CDBG

Administration and Planning
To sustain and improve grant management activities to ensure effective use of grant investments. Funding in this area will be used to efficiently and effectively monitor the use of CDBG grant funding and explore new innovative ways of using and leveraging federal resources. CDBG funds will be managed in compliance with federal regulations and in the best interest of the low to moderate-income citizens. Consequently the City will professionally manage all entitlement HUD grant funds in accordance with all applicable federal regulations.

Fair Housing
The City’s Fair Housing Plan aims at reducing predatory lending and housing discrimination. Lower income groups, minorities and special needs persons experience discrimination most
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often in rental or home ownership units. The City has an agency in place to ensure that fair housing laws are enforced.

Antipoverty Strategy (91.215 (h))
The anti-poverty strategy is the unifying thread that ties the housing, homeless, public housing and non-housing community development strategies together as one comprehensive plan for reducing the number of families that fall below the poverty level. The strategic plan, goals and objectives noted throughout this document promote self-sufficiency and empowerment. The City of Jacksonville, as lead agency in the implementation of the Consolidated Plan, will coordinate efforts among its many partner organizations to ensure that the goals outlined in the Consolidated Plan are met. These partners include neighborhood residents, representatives of health and human service agencies, businesses, churches, nonprofit developers, health and human service agencies, lenders and other for-profit entities. They key goals of the City's anti-poverty strategy and five year strategic plan are as follows:  Provision of adequate and affordable housing Neighborhood stabilization Elimination of substandard housing Availability of special needs housing.

 

The developed strategic plan will target the Neighborhood Action Plan (NAP) Areas.

Strategy reducing number of poverty level families
The goal of the poverty initiative is to combat poverty within the City of Jacksonville to the greatest extent feasible with tangible resources and realistic objectives. The Community

Development Division is actively working with the Mayor's office, the Planning and Development Department, Jacksonville Housing Commission, Jacksonville Housing Authority, Emergency Services and Homeless Coalition, and numerous other agencies to accomplish the strategies recognized in this plan. The Consolidated Plan serves as a "tool-kit" to initiate the war on poverty. The CDBG funded activities will assist in the Anti-Poverty Strategy. The City of Jacksonville has undertaken a number of efforts and programs to reduce both the number of citizens living in poverty and the percentages of families living below the poverty line.

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The City strives to reduce the number of poverty level families by supporting economic development activities that facilitate the creation and retention of employment opportunities. In addition, the Community Development Division will work closely with Jacksonville Housing Commission to ensure that affordable housing efforts are properly coordinated with economic development activities and special needs populations. As such, funding gets committed to agencies identified as providers catering to recognized in the public hearing process. This upcoming five year consolidated planning period will project funds to entities pursuing the reduction poverty in the City, sharing a concurrent ideology with the Planning and Development Department and the Mayor's office. The rationale supporting this strategy is to merge and direct all available resources at targeted areas and identified priorities while injecting funds in concentrated areas (pockets) to obtain the largest impact for the funds committed. In general the Community Development Division supports a wide range of programs that help people develop the skills and stability needed to secure steady housing and income. Various poverty studies have noted that persons living in destitute have a variety of needs for legal assistance, childcare, healthcare, transportation, housing, social services, employment training, financial literacy, economic enhancement and educational attainment. The strategy in

combating poverty is not only to accomplish the listed attributes, but to sustain those attributes when accomplished. The human services delivery strategy provides focus on programs that support education, counseling, prevention programs, case management and other capacity building functions. The City seeks to reduce the number of poverty-level families by supporting human services development and programs that facilitate the creation and retention of job opportunities. The mission is to evaluate programs that work towards getting families out of poverty. Thus, the City will implement a comprehensive plan that will use its resources and efforts in developing a skilled and employable resident workforce capable of receiving living wage jobs and conquering the need for affordable housing. The City also works to develop infrastructure to assist economic development projects that compliment workforce enhancements.

Anti-Poverty Approach
Economic development activities that generate living wage jobs and community sustainability include:
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   

Access to a variety of housing options that promote family and community stability. Neighborhood-based safety strategies that help residents create safer neighborhoods. A comprehensive financial education system that prepares citizens for participation in the economic and social fabric of the community. Coordinate Community-based services that nurture and support young people and their families.

Public Service Initiatives
The main objective of addressing public service needs is to develop a diverse network of social services directed toward enhancing the health, safety, and overall well being of low and moderate income residents and persons with special needs. established the following priorities to meet basic needs. The City of Jacksonville has The priority established for

disbursement of funds is reflective of the needs as identified by the community at public hearings, for example: elderly services, youth services, services for the disabled, job training, and programs for substance abusers. Nevertheless, the Community Development Division must continue utilization of a rigorous, a rigorous competitive, Request for Proposal (RFP) process to ensure that only the most qualified receive CDBG public service funding, due to the limited amount funding available as directed by the 15 percent public service cap mandated by HUD. The public services included are limited to HUD compliance regulations (24 CFR 570 Sec. 201 (e) and 207).

Description of Activities
 Elderly services: The Community Development Division is responsible for the design and implementation of programs that assist seniors and the frail elderly in providing a variety of benefits. In general, service needs of the elderly include adult daycare, home services, and recreation activities.  Youth Services: The expansion of youth activities and programs will continue to be needed to help divert energy from delinquent behavior to positive directions. It is eminent that due to an increase in single-parent homes, many children spend a significant amount of time without adult supervision. As such, these children need supervised recreational activities and social services in an effort to keep them
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occupied while simultaneously securing their safety. Furthermore, a wide range of youth services and facilities, are provided through CDBG funding.  Disabled Services: Community Development Division will continue to support and advocate on behalf of persons with disabilities through the provision of funding to programs that promote quality services, uphold dignity, independence, and health awareness. Furthermore, Community Development Division promotes and secures the rights of the disabled population by demanding compliance with the "Americans with Disabilities Act of 1990" (ADA) in all of its existing funded programs. The funding priority of CDBG dollars focuses on providing financial support to agencies that serve low and moderate income, economically disadvantaged individuals. One of the main problems impacting the disabled population is inadequate income levels. This segment of the population is living at or near the poverty level. Therefore, it has been deemed as "vital" for agencies to provide services responsive to the needs of the disabled. The disabled population is in need of support services, mental health, legal intervention/referrals, and outreach services.


Job Training: In general job training is not an easy process, as area employers are concerned in securing job applicants who posses basic education skills. This concern arises based on the fact that today's applicants do not meet the job requirements, mainly education requirements, set-forth by employers. This enhances the challenges presented to those who provide job training and service programs. The City seeks to address this phenomenon by securing funding to agencies that offer employment training and life skills and low to moderate income citizens.

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