Information Volume II “Administrative Plan”
The community’s plan for administering the implementation of the Strategic Plan.
Lead Entity City of Bowling Green Empowerment Zone Executive Board
The Empowerment Zone Executive Board will operate under its own by-laws and articles of incorporation set for by the initial Board. It will legally function as an Agency of the City of Bowling Green. The fiscal agent will be the City of Bowling Green. The City of Bowling Green, under the Housing and Community Development Department will employ staff for the Executive Board.
Board Membership (membership and selection procedures)
The CPG established the qualifications and requirements for Empowerment Zone Board membership. The Board will be formed upon notification that Bowling Green will be an Empowerment Zone. Qualifications are as follows:
Empowerment Zone Executive Board
The Board will be the Empowerment Zone Executive Board which will consists of eleven community members. At least one-third of the sBoard must live in the Empowerment Zone, at least two-thirds either live or work in the Empowerment Zone, the remaining one-third can be a member of the community at-large (City of Bowling Green residents). An elected official can hold only one seat on the Board. The Mayor of Bowling Green appoints the Board members with City Commission approval. The Mayor must take recommendations from the Resident Council and Service Provider Council. The Resident Council can nominate up to 10 members and the Service Provider Council may nominate up to 10 members. The Mayor must choose five members of each set of recommendations to serve on the Executive Board.
The responsibilities of the Empowerment Zone Executive Board include overall program implementation. All budgets, programs, and strategic plan amendments must be approved by the Board. However, all of these recommendations must come from the Resident Council. No member can have any conflict of interest with the Empowerment Zone project.
Resident Council
The Empowerment Zone is comprised of fourteen neighborhoods. Each neighborhood will hold elections for a position on the Resident Council. All budgetary items, programs, and strategic plan changes must start in the Resident Council before it goes to the Executive Board for approval. The Resident Council will work with the Service Provider Council on program development, budgeting, and implementation. As part of the concept of empowering residents, the Service Providers will only serve in a technical assistance role so that residents can learn about the programs and how programs should be tailored to meet the “real” needs of their community. If a recommendation is sent to the Executive Board and approval is not granted, the issue must come back to the Resident Council for negotiation. At this point, Service Providers will provide technical assistance and modifications will be made until both the Resident Council and Executive Board agree on the issue. Negotiations may not exceed 90 days; resolution must be approved.
Public information
(The proposed methods by which citizens of the EZ and partnership organizations will be kept informed about activities and progress in implementing the plan).All Empowerment Zone meeting will be open to the public and media outreach and press packets will be distributed. The Board will post quarterly updates on the EZ WEB Page; this vehicle will also ask for comments so residents can Email concerns that they have. Annual written reports detailing performance will be available to the entire community. The Board will use non-traditional mechanisms to get the word out—which includes some of the ideas that got people out to conduct the planning process. These include direct mailouts, information distribution through local groceries, pizza delivery, beauty shops, etc. At least once a year, the Board will contract for a video of EZ accomplishments and events, which can run on local cable. All Board meetings should be televised on the local public access channel.
Part I
1. Strategies
A statement if the strategies the community proposes to use to achieve its strategic plan, the principle objectives of economic opportunity, wad sustainable community development contained in 25.202 (a) (3) and (a)(4).
Economic Empowerment Strategy
• Open tracts of land zoned for commercial/industrial development. The physical condition and functional obsolescence of many buildings in the area has resulted in large, vacant structures and vacant tracts of land. These can be consolidated utilizing, if necessary, condemnation, or other powers needed to assemble job sites. There are a few buildings located within the community which are relatively new, but the businesses (garment apparel) have moved, or have announced plans to move in the near future, from the community. These vacant structures can be converted into new industrial/commercial uses.
• Prepare a market demand study for the empowerment zone which details the types of small businesses needed in the Zone, which can be sustained through Zone patronage. Provide direct marketing programs to investors and entrepreneurs to generate small business development in the Zone and link entrepreneurs with capital. A market study will be prepared which delineates the types of small businesses that can flourish and be sustainable through Empowerment Zone patronage. This study will also identify jobs necessary to meet existing and proposed industrial/commercial development. This study should be updated on a continual basis in order to allow for coordination of the job training functions and to address needs of local micro business entrepreneurial development, as well as industrial/commercial development needs.
• Expand entrepreneurial programs. Expand technical assistance and revolving loan pools. Work with private industry to create a business-mentoring program for Zone entrepreneurs. Develop an umbrella administrative structure for micro business and entrepreneurial program revolving loan funds. Currently, entrepreneurial training is provided by SCKMEDC, Inc., Economic Development Institute, and the Bowling Green Housing Authority. An umbrella organization has been proposed to allow for expansion of these programs on a coordinated basis, which would eliminate duplication of efforts while providing expanded technical assistance and increased capitalization of revolving loan funds. Working through a new umbrella organization, an application to the Community Development Financial Institution Program will be made to expand capital in the Empowerment Zone.
• Create local tax incentives or loan funds for private industry that is responsive for creation of jobs that provide a “livable wage” for zone residents. Julie Zimmerman, a rural sociologist for the University of Kentucky College of Agriculture, has completed studies that shows the actual salary, in rural Kentucky for a single mother of two, would need to be $9.85 per hour, after taxes, or $19,709 per year to have a “living wage”. This estimate does not include expenses such as health insurance, long distance telephone service, gifts, or cable TV. The Eagle Industries, a furniture manufacturing plant, located in the Empowerment Zone, has a starting salary of $8.26 (with no educational requirements or experience) per hour, plus fringe benefits. It is the desire of the residents living in the Empowerment Zone that private industries be recruited which are responsible for the creation of jobs that provide living wage” for Zone residents. Industries should allow for advancement from entry-level jobs, with job training, which serves both the employee and the employer. Incentives such as tax breaks and loan funds will be specifically identified and adopted by the City and the Community EZ Governing Board to address this concern of not only providing jobs, but jobs paying a “livable wage” with fringe benefits and the ability to advance from entry level positions.
• Grow the economy while protecting the environment. Pursue federal Brownflelds cleanup incentives to find reuse for the old Holley Plant and Power-Beech Streets that are perceived or confirmed to be environmentally contaminated. The Holley Plant is currently vacant. The Power-Beech Streets area is mixed-land use and contains both occupied and vacant industrial, warehousing, and housing. The Brownfields Cleanup Program will be utilized to correct these environmental problems and make these sites available for new industries, which meets the goals of this strategic plan. Condemnation powers should be considered to acquire these areas with an appropriate redevelopment. Any families that are displaced should be offered housing in the neighborhood through new housing developments.
• Provide affordable and convenient daycare, transportation, and other services necessary to allow zone residents to participate in the economic development of the target area. Support services, such as daycare, transportation, and other support services which are both affordable and convenient; are necessary to allow residents to take advantage of job training; employment in new industries; or establish small entrepreneurial businesses. The support services need to be both convenient to the area residents and affordable. Current cost of daycare for two to three children can offset the higher hourly wages now paid by employers. Programs addressing this support system are included in the Supporting Families Section.
• Open an empowerment center that brokers the employers with the employees. The Empowerment Center will access the necessary training skills that are responsive to industry needs. One of the first needs identified by the CPG (both employers and residents desiring employment) was the lack of an organization that matched skills with actual jobs. The need for training programs to be flexible and to change job skill development “at a moments notice” is also critical to the brokering of employees with appropriate job skills to actual available .jobs. The Center will work with Bowling Green Community College, Economic Development Institute, and the Kentucky Workforce Cabinet’s One-Stop Career Center to provide rapid response training to Zone residents so they can competitively fill industry jobs. The Center will also provide comprehensive access to supportive services, which facilitate job fulfillment through affordable daycare, transportation, substance abuse counseling, job readiness and work ethic support, life skills, literacy, and education. Training for job advancement will also be provided in the Center. The SBA One-Stop Capital Shop and the Entrepreneurial Micro Business Development Program (as discussed above) will also be incorporated in this facility. This goal, even though critical to the economic development component of this application, is discussed in the Supporting Families Section.
• Select three developable sites not located in the Empowerment Zone. A total of three developable sites have been identified and shown on the map entitled “Bowling Green Empowerment Zone, Census Tracts, and. Economic Development Centers”. These three sites include the Scotty/Inter-Modal Economic Development Park which contains 897 acres (proposed to expand to over 3,000 during the next ten years), the North Industrial Park containing 609 acres, and the South Central Industrial Park containing 117 acres. The Scotty/Inter-Modal Economic Development Park was developed in 1992 and currently contains three industries: Molnlycke, established in 1992 and employing 165 persons; Triad Industries, developed in 1997 and employing 25 persons; and Woodcraft Industries, established in 1994 with 75 employees. The Budget for the Commonwealth of Kentucky shows a budget surplus project in the amount of $6,000,000 to be provided by the Commonwealth of Kentucky to expand the Scotty/Inter-Modal Economic Development Park to allow for a foreign trade zone and the integration of highway, rail, and air service. The North Industrial Park was established in 1972 and contained nine industries, the largest of which is the General Motors Corvette Plant, established in 1980 with a total employment of 1,035. The other industries range from 40 employees to 242 employees, and range in uses from architectural woodwork production to corrugated shipping containers and aluminum die-casting. Total employment in the North Industrial Park is 2,176 and there currently exists sufficient land for additional industrial development. The South Central Industrial Park contains five industries for a total employment of 1,320. This industrial park was constructed In 1991 and includes development of industrial coil coating, plastic injection molding disposable paper goods, and steel rims for the automobile industry. A number of these industries are exploring the possibility of expanding over the next six to eight years.
• Provide job creation through sustainable planning. The strategies to create wealth, jobs, income, and new business enterprises are grounded in the recognition that in communities that have suffered decades of neglect and slow deterioration, development can only be achieved by long-range restoration of private market forces. These market forces are not self-correcting and must be assisted by strategically targeting public and private investments. The CPG has expressed the opinion that for the Empowerment Zone to become more sustainable, area residents should own a number of businesses within the Zone. Empowerment includes the ability to generate sufficient capital to make a small business investment. To bring this about, it is necessary that people accumulate savings and other assets (such as single-family homeownership) so they will have economic control over their lives and a stronger say in their community. When individuals have assets, they have a stake in society and a different philosophy about how they view their place in the neighborhood. Homeownership, small business ownership, and use of individual development accounts (IDA) with matching funds are some of the strategies, which will be utilized to create wealth, jobs, income, new businesses, and homeownership within the Empowerment Zone. As discussed in the Economic Empowerment Goals, the development of micro businesses and entrepreneurial training, along with revolving loan funds and long-term technical assistance, will assist in encouraging Zone residents to initiate small businesses that can be sustained through Zone patronage. Use of individual development accounts (IDA) with matching funds also allows for access to capital, which can be utilized for job training, college, downpayment assistance, or initial equity in starting a small business. Owning assets gives individuals a stake in the future - a reason to save, to dream, to invest time, effort, and resources in creating a future for themselves and their children.
Supporting Families Strategy
• Create a “One-Stop Shop” for services to empower residents through programs that are focused on jobs and income sustainability. Services should be seamless with a “no excuse” approach to service. Invest in the current Community Action Education & Human Services Center programs to insure Zone resident participation. Link this Center to the Empowerment Center, which will be located in the “heart” of the Parker Bennett Neighborhood—adjacent to the Housing Authority. Invest in the Housing Authority’s REACH Higher Program to continue providing streamlined services as existing grant funds end.
• Expand affordable daycare options. Create a public/private partnership where businesses provide daycare vouchers to assist in the cost of providing daycare. Provide additional daycare slots for second shift or extended hour care.
• Expand health care access to Zone residents, particularly access to specialists. Increase healthcare prevention services to Zone residents.
• Create a non-traditional outreach program to provide health education and prevention. Work out a partnership with WKU’s medical programs to provide screening to Zone residents.
• Create a clearinghouse of social service providers with a single point of entry to access all local services with a connection to job information. Create a single application and verification system to distribute to social service providers.
• Seek a Federal welfare reform waiver for college students who must go to work or lose assistance.
• Create an adult daycare program in the Zone.
• Increase support for drug treatment programs. Provide financial assistance to expand existing drug prevention programs. Expand youth development and after school programs to keep kids away from drugs.
Housing Strategy
• Expand capacity of nonprofit housing providers. In order for EZ goals to be met, the existing housing providers must expand to meet production goals. In addition to increased funding, experience and capacity should increase as production increases. Furthermore, as programs grow, providers, such as HANDS and Habitat for Humanity, will be able to generate larger revolving loan pooIs which will sustain housing development over a longer period.
• Create homeowner rehabilitation program. Past homeowner rehabilitation efforts have been largely undertaken by the City’s Housing and Community Development Department. Until recently, Kentucky Housing Corporation (KHC) provided HOME Entitlement funding to the community. KHC has changed their program whereas Bowling Green must compete for this funding. In the past, the program has been designed to provide forgivable loans. The City should continue to compete for HOME funds, but design the program for low-interest loans where program income can be recycled to generate a sufficient loan pool to keep funds invested in the Empowerment Zone.
• Obtain land for additional new housing development (single-family and multi-family) in the Empowerment Zone. Large tracts of land in the Empowerment Zone are limited. However, careful future land-use planning will redevelop tracts for residential purposes. It is a community goal to increase home ownership while adding development tracts for industry, which is compatible with the neighborhood. To solve transportation issues, the placement of industry and residential development will maximize accessibility where workers may chose to walk to work and transportation routes maximize efficiency.
• Provide an assisted living housing program for elderly. The affordable, elderly housing projects are completely full with elderly waiting for the opportunity to get into the units. The CPG recognizes the need to serve the frail elderly and offer an alternative to nursing home care. Bowling Green has an assisted living project located outside the Empowerment Zone which is financially out of reach for many of the elderly living in the Empowerment Zone. The CPG wants to further study the demand and feasibility of this type of project. If feasible, work to assemble a development team, which will provide basic services for medical, food, transportation and elderly services. The CPG requested that the reuse of the Bowling Green Junior High School be looked at as a potential site for this project. Because this site is across the street from the Elderly Towers Project, logistics for services would be compatible. It would also allow for easy transition from one project to another. The project will be financed through KHC’s and HUD’s Assisted Living Program which is in conjunction with HUD’s Risk Sharing Program. Risk Sharing is a mortgage insurance program in which the insurance risk is shared between KHC and HUD. The Assisted Living Program is designed to develop and complete a series of diverse housing residences for elderly persons who are 62 years of age and older and need assistance with some activities of daily living. Project financing will also include Historic Tax Credits and Low-income Tax Credits. HOME funds may also be necessary to provide gap financing so the units will be affordable.
• Expand homeownership education programs. Homeownership counseling and education programs are provided by the local banks and through HANDS. KHC’s program, Yes You Can... is an example program which provides holistic homeownership education. The CPG recognizes that education must start earlier, before potential homebuyers get into financial trouble and extended credit situations. To solve this problem, the housing nonprofits may join efforts with the school system to provide counseling through the Family Resource Centers and Youth Service Centers located in the schools.
• Expand bank participation in mortgage programs for Zone. To increase homeownership, the housing providers must continue to coordinate efforts with the local banks. Bowling Green has an inter-banking council which comprises local banks. This council works with HANDS to provide affordable mortgage instruments to potential homebuyers. To get more involvement, the housing providers must take more active approaches to CRA requirements. Furthermore, to expand the availability of credit over the next 10 years, a Community Development Financial Institution will be created to provide a financial intermediary, which will entice local banks to invest into community lending.
• Develop a continuum of care from homeless to homeownership linked with supportive services and economic opportunity, which facilitates self-sufficiency. The Regional Continuum of Care Planning Group Is comprised of Bowling Green homeless providers and regional providers. The planning group is working to accomplish this goal. The group has made transitional housing units as the number one priority. To accomplish this priority projects such as the Phoenix House, which provides transitional housing to homeless substance abusers, will be undertaken in the first year of the strategic plan. The CPG budgeted seed money to further these projects over the 10-year period. All projects must demonstrate a plan to stabilize families and facilitate self-sufficiency.
• Create a Youthbuild Program to provide residential construction training to at-risk youth and coordinate with vocational training and hands-on experience with local nonprofit. As part of the strategic plan, the community will apply for a HUD Youthbuild Project. HANDS is currently administering their own Youth Construction Program with limited federal funding. However, the project will be expanded to work with disadvantaged youth from the neighborhoods. This program will include vocational training in addition to other supportive services, which lend to self-sufficiency and economic empowerment. The program will provide a continuum of economic empowerment to provide training, a job, and even incentives to start a small business under the South Central Kentucky Minority Economic Development Council, Inc. (SCKMEDC) small business lending program. The project will also encourage savings through an Individual Development Account (IDA) program. This program will encourage youth to save money for college, small business startup, or a down payment on a house. The community will work to secure private donations and/or foundation funding to provide matching dollars for the youth’s IDAs. SCKMEDC will manage the IDA accounts with local bank participation.
• Provide a proactive code enforcement program with City-enforced tax lien foreclosure and donate land to local nonprofits for new housing construction. The City of Bowling Green has begun a more swift, systematic means in its approach to code enforcement. However, code enforcement should be targeted to specific neighborhoods in the Empowerment Zone. The future land-use map delineates which areas of the City require systematic code enforcement. Door-to-door inspections are necessary to deal with whole neighborhoods. To alleviate the financial burden for low-income households, especially elderly, the CPG identified the need to create a Homeowner Rehabilitation Program so low-income families will have sufficient means to make the required repairs. Absentee owners must bring the units up to code without financial assistance. The City will be aggressive in demolishing units, which cannot be brought up to code. The City will also identity properties which have excessive local tax liens that can be condemned and property donated to local housing providers.
• Expand PRIDE programs to maintain property values—create a small grant program to improve neighborhood beautification. The CPG identified pride as a component of neighborhood sustainability. People must care about their neighborhoods so they can be engaged in the community sustainability. Many comments were made on ways to make residents feel better about where they live. Most projects can be done without large amounts of subsidy. Neighborhoods are willing to dedicate their time and energy into beautifying where they live. It is as simple as have garbage pick up days or painting the front porch. The CPG budgeted seed money grants for neighborhoods to undertake beautification projects. The projects must be matched dollar-for-dollar with cash, donations, or in-kind sweat equity. The City of Bowling Green will also provide matching funds for neighborhood projects. A few projects that will be undertaken will be the Front Porch Program, a grant program that make repairs to the facades of homes or a fresh coat of paint. It can also include some landscaping. This program will not deal with code issues, but rather ways to bring back some character and pride to the neighborhoods. Also, there is a need for neighborhood "Tot Lots”. This program will provide for very small neighborhood parks where small children can play. Funded items will include swing sets and park benches with landscaping. Pride is very important to the community, which is demonstrated by awards given by Operation PRIDE, a nonprofit who dedicates efforts to improving public spaces in Bowling Green. The nonprofit gives awards to homeowners who make housing renovations. The nonprofit undertook the historic preservation of’ the Train Depot and is actively involved in the proposed Riverfront Development
• Access Kentucky Housing Corporation’s Tax Credit Program Set-Aside for public housing authorities to provide lease-purchase rental housing. The Housing Authority of Bowling Green to date has not utilized the Low-income Housing Tax Credit (LIHTC) program to develop affordable housing. KHC has issued a set-aside for housing authorities. The Housing Authority will design a rental program, which will facilitate homeownership at the end of the tax credit compliance period (15 years). Under the Lease-Purchase Program, families remaining in the unit following year 15 will be given the opportunity to purchase the home. The purchase price will be determined in year one, and will be based on current market conditions. Based on the length of stay for each family, they will exercise their purchase in year 15, they will purchase on a discount based on the number of rent payments made per their agreement. In this way, the low-income family will build equity during the lease-purchase period and exercise the right to purchase on real estate values at the time of occupancy. This method will be a very effective way to enable very low-income families the opportunity to obtain homeownership. The program will provide a comprehensive self-sufficiency component along with homebuyer counseling. A seed money grant has been budgeted for two phases of this type of development.
• City continue to pursue additional Community Development Block Grant funding to continue revitalization efforts which eliminate the worst blocks of substandard and blighted housing. The most effective way to holistically revitalize neighborhoods is through HUD’s Community Development Block Grant Program (CDBG). The City and local housing providers have demonstrated success with the St. Joseph School Revitalization Project-Phase I in the Church Street Neighborhood. Because the City is a Small City and Non-entitlement, the City must compete for block grant funding under the Commonwealth of Kentucky’s CDBG program. Given the restraints and limitations of funding, the City can only expect to successfully compete and obtain funding for 5 CDBG neighborhood revitalization projects during the 10-year strategic plan. (The City has currently secured funding for Phase II and this project will be undertaken in the first year of the strategic plan.) The future landuse map identifies which neighborhoods have the worst blocks of substandard housing that are scheduled for revitalization. The second means to eliminate blighted problems in neighborhoods will be through HUD’s Economic Development Initiative. This program will be utilized in the industrial development of areas located on Power-Beech Streets. Most of this area is light industrial; however, some housing is interspersed. This housing will be acquired and families will be relocated under the Uniform Relocation Act.
• Create housing program that supports education and economic self-sufficiency. Create a supportive housing program for single-parent and family households that are enrolled in college, community college, or vocational/technical school. The project will be planned with Western Kentucky University so that the location is within walking distance of university. The project will incorporate supportive services and day care to accommodate student schedules and educational demands. The project will utilize low-income housing tax credits. The City can project-base rental assistance (FSS units) which will make the units affordable and make the project cash flow feasible for investors. This project needs a federal waiver in the Welfare Reform Law that stipulates that those on public assistance must work in a specific time frame, which interferes with a college education. This project will be designed to support education. In addition to education, the project will provide a full continuum of care through post-graduation, which will allow for a transition to affordable homeownership. The project will be funded through the CDBG special set-aside for university partnerships. Project location should be in the Upper Kentucky Street Neighborhood.
Equal Opportunity Strategy
• Increase capital access and economic opportunities by increasing South Central Kentucky Minority Economic Development (SCKMED) Inc.’s revolving loan funds through the Community Development Financial Institutions Program. EZ funds will be utilized as seed money grants to leverage CDFI funding. A long-term fundraising plan will be established which can leverage bank and corporate participation in the community loan fund.
• Implement Project ICAN: Telecommunications Information Infrastructure Training for Refugees and Workers. An application was made to Telecommunications and Information Infrastructure Assistance Program (FDM1 1.552) on March 11, 1998. The program creates a telecommunication infrastructure to deliver English as a Second Language (ESL) and workplace development skills via computer, the Internet, and interactive TV to immigrants. The project partners are WKU, the City of Bowling Green, The Bowling Green and Warren County Public Schools, the Chamber of Commerce, the Western Kentucky Refugee Center, churches, business, and industry. An instructional program will be offered that is self-directed and interactive. The program established training sites throughout the community, which will be accessible during evening hours and weekends. The program will integrate ESL skills with workplace skills. The total project cost is $1,227,489 for the 3-year project. The CPG has recommended that after initial funding, EZ funds assist in long-term delivery of services.
• Support cultural sensitivity training to service providers, public servants, and business and industry. The training can be conducted through the local Human Rights Commission. Increased awareness allows for a more educated workplace and community. It is important to realize the strengths through diversity, which stimulate creativity.
• Support local events, which foster cultural awareness. The Empowerment Zone will participate in the annual International Festival to demonstrate commitment to community involvement. A community that thinks globally, is enriched locally, and has a competitive edge in today’s global economy.
Education Strategy
• Continue to implement the KERA Program. Increase community participation in school sight-based management to empower residents to make changes in programs to prepare children for the 21st Century.
• Fully support (including financial support) Family Resource and Youth Service Centers. Link these services with the Empowerment Center to provide a seamless service approach to students and their families.
• Housing Authority obtain designation as a “Campus of Learning” through the US Department of Housing and Urban Development. Further the relationship between Western Kentucky University and the Housing Authority. This initiative recognizes the importance of an education-oriented “contract” between residents and each campus, whereby residents agree to enroll in an education program as a condition of living on campus.
• Expand adult education through the Empowerment Center and other small learning centers located in the Zone. Link transportation directly to the Adult Learning Center.
• Expand Head Start as demand increases at the Health and Human Services Center and Western Kentucky University.
• Expand ESL and Even Start Programs. Invest in programs that provide interpreters and improve language skills for both students and their families.
• Create an industry responsive training program through the Bowling Green Community College that addresses remedial learning needs, job readiness, provides on the job training. The program encompasses 3 phases (semesters). During Phase. I, the college will assess occupational skills and educational level. This phase will consist of an introduction to the work place in the Zone and to the types of employment through local industries. Phase I will place emphasis on job readiness with high degree of counseling to deal with work ethic, conduct, and employability. It will focus on remedial training, where there is a deficiency. This includes the basic reading, writing and arithmetic. At the end of Phase I, they may leave the program with basic employability skills if they choose to enter the labor market at a lower level, rather than seeking additional training through Phase II. This next phase will continue classroom education and begin the introduction of on-the-job training with local industry—one day per week. The next phase will be more industry intensive, where students will work on the job at least 3 days per week with more advanced instructional learning in the classroom. The goal is to provide more intensive training that can take a remedial learner and allow more phases of achievement while meeting the needs of local industry. The program can be funded through the JTPA Program with an EZ seed grant.
• Through the Empowerment Center, job training will be brokered between residents and Zone industry. The Empowerment Center will link training with existing training and educational programs offered through the Kentucky Advanced Technology Institute and Bowling Green Community College.
• Implement Project ICAN whose goals are to create a telecommunication infrastructure to deliver English as a second language (ESL) and workplace development skills via computer, the Internet, and interactive TV, to migrants, immigrants, and marginal workforce populations. 25 languages are spoken in this area, with approximately 12% of the general population speaking foreign languages. The use of telecommunication infrastructure will allow for development of a Multi-Language Internet Site and use of the Public Access Channel 4, to communicate training in different languages 24 hours a day. The outcome will enhance the skilled workforce, build self-esteem, enhance community and raise the economic level of this disadvantaged sector.
Neighborhood Development Strategy
Development of neighborhoods within the Empowerment Zone involves many strategies by which small business entrepreneurs, homeowners, developers, and private/public partnerships interact in order to create a lasting impact. This not only enhances individuals and families residing in the Empowerment Zone, but also allows for the creation of wealth through the expansion of capital, public improvements, and services that improve the livability of the Empowerment Zone for those who live and work within its boundaries. While it is recognized that development can only be achieved by long-term restoration of private market forces, these market forces are not self-correcting and must be assisted by strategically targeted public/private investment. With a limited Empowerment Zone budget, it is necessary to strategically select those projects which have the maximum ability to impact long-term development and neighborhood goals as envisioned by those participating in the Empowerment Zone strategic planning process.
Three well-established economic development centers exists in the Empowerment Zone—Downtown, High Street Neighborhood (Medical Complex), and Gordon Avenue commercial corridor. These three economic development centers employ a number of Empowerment Zone residents and through expansion are able to provide the size potential and momentum to create significant jobs in the Empowerment Zone. The strategy involves policies that enhance these economic centers while creating new areas for job development. It will be necessary for the City of Bowling Green, is some cases, to utilize its urban renewal powers under Kentucky Revised Statues Chapter 99. In addition to urban renewal, the use of zoning and code enforcement is necessary to remove individual, vacant or marginal non-conforming uses in residential neighborhoods, thus making additional land available for homeownership and/or expansion of key social, retail, or other elements making up the fabric of the neighborhood. The use of governmental powers is critical to the stabilization and neighborhood improvement in the Parker-Bennett, Church Street, and Delafield Neighborhoods, as well as the College Hill (CDBG)/Riverfront corridor and the remaining residential area in the High Street Neighborhood, not being included in the Medical Center Complex.
Specific neighborhood strategies include the following:
Fountain Square Neighborhood
Although new development in the Bowling Green Downtown Fountain Square Neighborhood has addressed much of the decline that has occurred in this area over the past 50 years, additional significant improvements must be made if the Central Business District is to become the actual financial, government, and professional center of the City. In September 1998, the City of Bowling Green’s Central Business District was selected by the Commonwealth of Kentucky and the Kentucky League of Cities as a Renaissance City. It was awarded a Silver Designation indicating a community that has improved the use and appearance of its downtown, but where additional improvements are necessary in order to achieve the overall goal of Downtown Central Business District Revitalization. The Kentucky Renaissance Program designates priority for Gold and Silver Renaissance Communities in receiving priority for applying to Block Grant, Federal Department of Transportation funding and other state funding for a five-year period. It is proposed under the Empowerment Zone Program that the Central Business District area be expanded by 8 blocks, Northeast to East 6th Avenue, which will allow for additional governmental and professional office uses. Efforts should be made to address development of the 2 vacant lots located on Fountain Square, with uses that are supportive of the Central Business District and in an architectural style that complements the 19th and 20th Century Victorian structures currently surrounding Fountain Square.
North Center Street Neighborhood
The Bowling Green Renaissance Program also anticipates expanding its boundary to include those properties facing on State Street and College Street from the new, revised Central Business District boundary to the Barren River. The use of green spaces, walkways, and rehabilitated housing will allow for a corridor from the Central Business District to the Riverfront with selective non conforming uses being acquired and converted to residential use over a 10- to 15-year period. Extensive, systematic code enforcement, along with development plans for the Central Business District and the Riverfront, should assure that private market forces stabilize this North Center Street Neighborhood, creating an extremely desirable place to live.
Riverfront Neighborhood
The Riverfront area, located in the U.S. Hwy. 31-W Commercial Corridor North, will be revitalized, utilizing Community Development Block Grant and other funding resources to create businesses and parking, which enhance the Riverfront Development currently being undertaken across the Barren River. The new businesses along the Riverfront Development will include restaurants, parking, specialty shops, and other uses which will enhance the Riverfront Development and replace the current, negative image problem creating by the existing incompatible land uses. Recently, a historic iron bridge has been restored and made into a pathway across the Barren river to a large, vacant area designated for future park and recreational use. Private funding, in partnership with the City, will assist in developing this new park and recreation area creating the economic demand for the Riverfront retail and parking uses.
High Street Neighborhood
The High Street Neighborhood, located East of the Renaissance CBD/Riverfront Corridor, is currently undergoing a substantial change as the medical complex centered around The Medical Center at Bowling Green and Graves Gilbert Clinic develops. Nearly $2 million has been invested in the medical-related activities in this area over the past 3 years. Although there has been a conflict between The Medical Center expansion and residents residing in the neighborhood who desire to remain, there is a critical need to establish a demarcation where the medical center ends and the residential neighborhood begins. The medical complex will provide job opportunities for residents of the Empowerment Zone, as well as providing medical services to both the Zone and the region. Traditional urban renewal powers will be utilized to acquire property East of the U.S. 31 W. By-pass on 1st Avenue; and between Chestnut Street and Park Street from the Riverfront retail area to 4th Avenue; for expansion of the medical complex. Additional single, nonconforming buildings will also be acquired in the medical complex in order to create an assemblage and to allow for expansion of the medical facilities, while at the same time delineating strong, residential neighborhoods. Housing lost in the medical complex should be replaced in the High Street CBDfRiverfront Corridor area as nonconforming uses are removed in that area.
Parker Bennett Neighborhood and Delafield Neighborhood
Much of the area currently identified as Delafield, Parker Bennett, and the Hobson Grove Neighborhoods were annexed into the City of Bowling Green in 1959. Traditional Title I Urban Renewal projects assisted in developing the Parker Bennett Public Housing and the singe-family housing located on cul-de-sacs in the Delafield Neighborhood. While the public housing in the Parker Bennett Neighborhood is considered by neighborhood residents as “a good place to live” and not visualized as a “project”, there is still need for exterior beautification and housing improvements funded under the BUD Comprehensive Modernization Program The single-family neighborhood located in the. Parker Bennett area east of the public housing requires extensive, systematic code enforcement in order to assure stability of this area and assistance by the housing nonprofits in acquiring deteriorated, absentee owner dwellings, rehabbing these structures and reselling them to homeowners. The Delafield Neighborhood, as mentioned earlier, includes a subdivision developed under Title I Urban Renewal. This single-family area, however, has recently experienced acquisition of single-family dwellings by absentee landlords’ and the area is changing from homeowner oriented to rental oriented. Again, the use of the housing nonprofit in acquiring deteriorated, single-family dwellings owned by absentee landlords; rehabilitating these structures, and reselling these to new homeowners will assist in stabilizing the area; thus preserving the sense of neighborhood. Habitat for Humanity is also developing a subdivision in this area, which also should support the sense of neighborhood, as well as the neighborhood retail/commercial uses existing on Gordon Avenue. Residential uses will be encouraged South of Pearl Street and West of Richardsville Road. The area North of Pearl Street currently has mixed land uses, including commercial and business services, industrial, residential, and public land uses. This area, which is dominated by industrial and public uses, include the vacant Fruit of the Loom building, as well as public properties, such as the City’s Public Works and Parks Department Maintenance Building, and scattered residential housing. Urban renewal powers will be utilized to consolidate this area into an industrial reuse area, allowing for small businesses needing up to 2- or 3-acre sites and who will employ 20 to 30 employees. Eagle Industries, Inc., a manufacturer of Oak Furniture, exists in this area and has proven to be neighborhood-friendly through provision of such items as daycare services, fringe benefits, etc. Eagle Industries, Inc. is currently exploring the possibility of expanding and has committed (over a 10-year period) to provide up to 300 new neighborhood jobs as part of the Empowerment Zone Program.
Hobson Grove Neighborhood
The Hobson Grove Neighborhood has a high instance of mixed use with the industrial areas encroaching on residential. Some residential parcels have been sandwiched by industry. This neighborhood also has significant environmental concerns. The approach will be to pursue the acquisition of approximately 17 blocks and consolidate individual properties and mitigate/abate environmental hazards. This block of property will be marketed and sold to industry concerns. Additionally, this neighborhood currently contains a 9-hole golf course, the Hobson Grove Historic House (Riverview), and the City’s Municipal Wastewater Treatment Facility. Another environmental problem involves the smell from the Wastewater Treatment Plant. Currently, the City of Bowling Green ranks high on the Commonwealth of Kentucky’s Project Priority List for State Revolving Loan Funds to expand and/or replace the existing Wastewater Treatment Plant. This development should eliminate the odor problem and enhance the stability of the Hobson Grove Neighborhood.
Church Street Neighborhood
The Church Street Neighborhood, as discussed earlier, has utilized Community Development Block Grant and HOME funds to both rehabilitate existing residential structures and encourage new homeownership. The St. Joseph Church and the St Joseph School have been the anchor for this revitalization project. The St. Joseph School is currently expanding, reflecting the neighborhood values of a revitalized area. Currently, the City of Bowling Green is implementing a second stage of the Church Street Revitalization North of Main Street. Phase III of this CDBG/HOME revitalization effort will include the area facing on the South side of Main Street from Payne to Berry, with a Phase IV addressing the expansion of homeownership and revitalization of residential structures South of Main Street from Berry to Veterans Memorial Parkway. The final Phase V of this Church Street Revitalization will include use of CDBG and HOME funds for expanded homeownership and revitalization in the area North of the Veterans Memorial Parkway on Main to Victoria Street. This total rehabilitation of the Church Street area, along with the increased number of homeowners, creates a solid anchor for the entire Empowerment Zone area.
Woodford Avenue Neighborhood
The Woodford Avenue Neighborhood is an area of predominately single-family dwellings, with several pockets of deteriorated housing. There currently exists a large apartment complex, which is vacant because of numerous code violations located in the Woodford Avenue Neighborhood. Strict, systematic code enforcement is recommended in this area to stabilize the area and prevent the neighborhood from further deterioration. Utilization of the nonprofit housing corporation to acquire deteriorated, absentee owner properties, rehabilitate these properties, and reselling them to new homeowners is also recommended with HUD HOME funds being utilized, when necessary and appropriate, to replace those dwellings which are structurally incapable of being rehabilitated.
Glen Lily and Old Morgantown Road Neighborhoods
The Glen Lily and Old Morgantown Road Neighborhoods also will receive extensive and systematic code enforcement. One of the two mobile home parks located in the Old Morgantown Road area will be acquired and cleared under the HUD Flood Mitigation Program. The second mobile home park will be developed into new housing as code enforcement of this obsolete facility creates additional costs to the owners, and as private market demands for new housing are generated through development in the Empowerment Zone. This area will also be redeveloped by private market forces once condemnation enforcement and clearance is completed by the City of Bowling Green. The Glen Lily, Old Morgantown, and Woodford Avenue Neighborhoods will require extensive, systematic code enforcement in order to maintain the character of the area without further deterioration of the neighborhood housing.
College Hill. and Upper Kentucky Street Neighborhoods
The College Hill and Upper Kentucky Street Neighborhoods are located adjacent to Western Kentucky University and contain many of the community’s most elegant, 19th and 20th Century single-family dwellings. The architectural and historic significance of these dwellings; however, has been reduced by the pressure for student housing within close proximity of the University. Much of the retail and commercial uses along University Boulevard and Adams Street will continue to center on activities that support the University, faculty, and students of WKU. Industrial properties located along Adams Street, many of which are vacant, will be converted to retail/commercial uses oriented toward students. Western Kentucky University’s proposal that 14th Street be extended over to Adams Street will create a significant traffic realignment in the neighborhood, but should assist retail/commercial uses on Adams Street to expand services toward the University. The elimination of the Bowling Green Jr. High School from the Upper Kentucky Street Neighborhood provides an opportunity for the development of new residential dwellings within this neighborhood, hopefully creating an anchor of homeownership and leadership which will assist in stabilizing the area.
>Additionally, the City of Bowling Green and Commonwealth of Kentucky will make significant improvements in physical features of the neighborhood over the next ten years. Planned strategies include the following:
•Encourage the implementation of the Kentucky Transportation Cabinet’s Six-Year Highway Plan FY 1999-2004. Including the establishment of a new route for existing 5th and 7th Avenue two-way coupled route between Clay Street and CSX Railroad underpass to College Street. The cost of the project is $5,480,000. This improvement is the last remaining link in the route around Bowling Green. The project will also address highway drainage problems found on both 6th and 7th Avenues at College, State, and the Center Street intersections. This project will greatly improve Empowerment Zone access for job development. Construction is scheduled for 2004.
•Encourage funding for state highway projects that are included on the Unscheduled State Highway Plan Needs. These projects include the widening of existing route from University Boulevard to State Street and the replacement of the underpass at CSX Railroad near University Boulevard.
•Increase Empowerment Zone participation in the updating of the Warren County Comprehensive Plan and Transportation Plan.
•Implement the City’s Plan for the maintenance and rehabilitation of streets within the Empowerment Zone. The City is expected to expand approximately $2 million for street repairs over the next 10 years in the Empowerment Zone.
•Obtain approval and financing for the high priority neighborhood drainage improvements projects. Projects include: Hines Court drainage project; Webb Avenue drainage project; Double Springs Road berm project to prevent flooding; 6th Avenue relief line to Barren River via Center, College, and Clay Streets; new storm sewers along Adams, Kentucky, Center, College, State, Park, and Chestnut Streets; Russellville Road underpass relocate mobile home park out of flood plain; Normalview retention basin; 15th Avenue sewer construction; Downtown storm drainage improvements; and Payne Street storm drainage.
•Construct and reconstruct the sewer system in the Empowerment Zone to provide adequate upgrade for development. Improvements include: Median Drive, Vine Street, Woodford Street, Barren River Road, Gilbert Street, Power Street, Church Street, High Street, Main Avenue, High Street, Park Street, Orchard Street, Kentucky Street, and 13th Avenue. Total construction/reconstruction is 16,400 linear feet of improvements at a cost of approximately $2.1 million. Bowling Green Municipal Utilities will fund the improvements. See Map, which highlights planned improvements.
•Bowling Green Municipal Utilities will upgrade the electric system within the Empowerment Zone so that it can support planned development. In the first year, four projects will be completed, including construction of 120 MVA 69/13 power distribution substation (South Way); 69 KV transmission line with 13 KV Distribution (South Way and Forest Drive); 13 KV distribution feeder circuit (South way and Forest Drive); and a 13 KV distribution feeder circuit (South Way. and Johnson Drive to Old Morgantown Road). In the second year, improvements include the construction of a 13 KV distribution circuit (Glen Lily from Normalview Drive to Stubbins Street). In the fifth year, improvements include the construction of six 13 KV underground feeder circuits to Western Kentucky University (South Way East). See Map, which highlights planned improvements.
•The City of Bowling Green will construct and reconstruct sidewalks under the Department of Public Work’s Sidewalk Repair Program in the Empowerment Zone. Planned improvements include the construction or reconstruction of handicap accessible ramps at 114 locations where handicap access is needed on both sides of the street. It would also include 55 locations where handicap access is needed on one side of the street only. It is currently estimated that sidewalk replacement where existing sidewalks are in poor condition would include 62,085 linear feet and 21,969 linear fee of existing sidewalks that are in poor condition and must be totally replaced. Complete sidewalk replacement estimates exceed $2 million.
•Bowling Green Municipal Utilities will replace inadequate water systems in the Empowerment Zone so that it can support the existing and planned development. This replacement includes 75 projects over the next 10 years that is estimated to cost approximately $10 million. See Map, which highlights planned improvements.
While the proposed neighborhood development strategy is designed to stabilize residential neighborhoods, remove obstacles to facilitate development, and provide stability in the Empowerment Zone; this physical development can only have a significant impact Wit is coordinated with creation of wealth, (the creation of jobs which are both sustainable and allow for a “living wage”), and provision of educational, health, recreational, and other social service programs, which will provide dignified support for families and individuals who desire to reside in the Empowerment Zone. While rehabilitation and new construction of housing for homeownership alone will not create the neighborhood lifestyle change necessary to enhance the future of the Empowerment Zone, it, along with sustainable jobs, does create the sense of ownership, a sense of hope, and a sense of stability upon which a total, holistic revitalization of this Empowerment Zone can be based.
Youth Development Strategy
•Seek a Federal Welfare Reform Waiver for college students who must go to work or lose assistance.
•Increase support for drug treatment programs. Provide financial assistance to expand existing drug prevention programs. Expand youth development and after school programs to keep kids away from drugs.
•Develop a program will utilize an IDA (individual development account). Each dollar a young person places in savings will be matched by the program with the restriction that the account can only be accessed for education.
•Seek funding through the Learn and Serve America: School and Community-Based Programs to engage youth in service to their community while enriching academic learning, promoting personal growth, and helping them develop the skills needed for productive citizenship.
•Develop a Youthbuild Program that will expand the supply of affordable housing for homeless and low-income persons and provide young people with opportunities to obtain education, employment skills, and meaningful onsite work experiences as a service to their community.
•Expand after school programs provided by youth organizations such as the War Memorial Boys Club and Girls Incorporated.
•Expand mentoring programs.
•Expand community-policing programs on bikes, foot patrols, and horse patrols so that youth become comfortable with officers. In addition, introduce youth to drug dogs.
•Offer a youth/police basketball league with mentoring programs.
•Seek Job Training Partnership Act (JTPA) Title 11-B Summer Employment and Training Programs for Economically Disadvantaged, At-Risk Youth to provide funding for employment training, and educational activities to encourage completion of school and to increate employability of youth during summer vacation. Work experience, job skills training and related services coordination would come from local school systems in conjunction with other youth programs with similar missions.
Drug and Alcohol Prevention Strategy
•Expand community-based education programs, such as DARE.
•Expand prevention and treatment services.
•Engage youth in after-school programs.
•Continuation and expansion of supportive transitional housing programs, which provide intensive, case management and long-term counseling to overcome addiction.
Crime Prevention Strategy
•Expand Neighborhood Watch Programs. Develop partnerships with Neighborhood Watch Programs to assist in gang and gang member identification.
•Apply for federal COPS funding to increase Neighborhood Response Team to work in Empowerment Zone. Increase foot patrol and bicycle beats in the Empowerment Zone neighborhoods.
•Identify all gangs and gang members in Bowling Green Police Department’s jurisdiction. Develop and maintain a computer database to store and disseminate gang information
•Provide informational programs for community organizations and schools. Develop school information programs to inform students, teachers, and administrators about gangs, gang activities, and gang identifiers.
•Develop a gang intelligence bulletin to keep the beat officer informed about gangs. Develop presentations on gangs to be given at shift changes.
•Assist juvenile court in developing an “at-risk” list of male and female gang members to visit a state correctional institution.
•Develop a citizens council to assist in counseling and mentoring gang members Arrest and/or isolate gang members to create a less cohesive gang organization.
•Develop an Officer Next Door Program that will offer HUD-owned, single-family homes in the Empowerment Zone to law enforcement officers at half price. The officer must reside in the property for at least three years after purchase. This program would prevent crime and promote neighborhood safety and security by encouraging law enforcement officers to become homeowners and residents in the Empowerment Zone.