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SOUTEEkST N EIGHBaRHaaD
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SOUTHEAST NEIGHBORHOOD
STRATEGIC ACTION PLAN
SO= BEND, INDIANA ass INC
JANUARY, 1995 _-
Southeast Quality of Life
Strategic Neighborhood Action Plan
TABLE OF CONTENTS
INTRODUCTION..............................................1
DEVELOPING A STRATEGIC PLAN ................... . ...... . .... . . 2
HOUSING WORK PAPER ................................... 5
Existing Conditions and Trends . 5
Causal Factors .............. . ......................... 7
Goals................................................9
Remedial Measures ...................................... 9
Preventive Measures .................................... 10
HOUSING STRATEGIC PLAN TABLES . 13
HOUSING STRATEGIC PLAN ................... 19
Strategic Methodology .............................. . . . .. 19
Phases..............................................19
Elements to be Developed Immediately ........................ 20
Elements to be Developed Over the Short -Term: Immediately ......... 21
Elements to be Developed Over the Short -Term: 3 to 5 Years ........ 22
Elements to be Developed Over the Long -Term: 4 to 6 Years ........ 24
How Does the Strategy Address the Goals? ..................... 25
How Does Housing Relate to the Other Task Forces?
.............................................26
NEIGHBORHOOD INFLUENCES...................................28
LAND USE AND PHYSICAL ENVIRONMENT WORKING
PAPER..............................................29
Existing Conditions and Trends ............................. 29
Causal Factors ......................................... 30
RemediationMeasures ...... , ....... . ....... . ....... . . . .. 32
PreventativeMeasures .............................. 33
LAND USE STRATEGIC PLAN TABLES...............................
37
FUTURE LAND USE PLAN......................................42
ALTERNATE LAND USE PLAN ................................... 43
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Southeast Quality of Life
Strategic Neighborhood Action Plan
LAND USE AND PHYSICAL ENVIRONMENT STRATEGIC
PLAN 44
Strategic Methodology .. 44
Phases ................ .
Elements to be Developed Immediately , , , , , _ 45
Success .. • • . • . • • • • • • • . 45
How Does the Strategy Address the Goals? . . . . ' ' 51
How Does Land Use and the Physical Environment Relate to Other Task
Forces?........................................53
CAPACITY BUILDING WORKING PAPER ..... .
Overview ..........
54
O54
Trends, Causes and Influences 55
Remediation Measures .. 56
Prevention Measures . . . . . .
CAPACITY BUILDING STRATEGIC PLAN TABLES ... 65
CAPACITY BUILDING STRATEGIC PLAN . . . . . . . ....... 68
Introduction ..........................................
Elements of the Strategy 68
Elements to be Developed Immediately ...... 71
Elements to be Developed Over the Short-term: 1 to 3 Years . 74
Elements to be Developed Over the Medium -term: 3 to 5 Years . 76
Elements to be Developed Over the Long-term: 5 to 7 Years and Beyond . 78
How Does the Strategy Address the Goals? , , . , . _ ... 82
How Does Capacity Building Relate to the Other Task Forces? ....... 84
SOUTHEAST NEIGHBORHOOD SECURITY W 0 R K I N G
PAPER .. 85
Trends and Conditions .. , .. , , , • , , , , . , • , . 85
Remedial and Preventative Measures: Weed and
Seed..........................................
NEIGHBORHOOD SECURITY STRATEGIC PLAN TABLES .................
NEIGHBORHOOD SECURITY STRATEGIC PLAN ' ........ .. , 97
Introduction .......................... ................ 97
Issues ...
Strategic Methodology ................. . . . . . . . . . ' . ' . ' • • • • 97
Elements of the Strategy ................. . .. . . 99
Elements to be Developed Immediately .......... • . 100
Elements to be Developed over the Short Term .... • . 103
Elements to be Developed over the Medium Term
................................. ' ....106
Next Steps . - .. "
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Southeast Quality of Life
Strategic Neighborhood Action Plan
How Does Neighborhood Security Relate to Other Task Forces? ..... 108
PROJECT PRIORITIES AND THE OVERALL STRATEGY ................. 109
PROJECT PRIORITIES GRAPH .... , , , , 113
SEQL LEADERSHIP PROJECT PRIORITIES ..................... 115
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Southeast Quality of Life
Strategic Neighborhood Action Plan
INTRODUCTION
The Southeast Neighborhood is one of the oldest neighborhoods in the City of
South Bend. It developed and prospered with the development of the
Studebaker Motor Company and South Bend's heavy manufacturing base. in
tandem with the adjacent employment area, the Southeast has declined as the
inner city manufacturing base eroded and jobs declined, disappeared and
relocated. The loss of nearby employment changed this neighborhood forever.
With the loss of jobs, those of prime employment age who found jobs
elsewhere soon left the neighborhood. Those who could not sell their homes
rented to others and the decline of the neighborhood began. The
neighborhood's diminished buying power led eventually to the loss of important
services. Finally, the neighborhood became viewed by residents and outsiders
alike, as one in transition.
Today the neighborhood could generally be considered stable. The population
has declined substantially since its peak in the late 1960's. Statistically the
neighborhood has lost about a third of its residents since 1970. As defined by
the residents, the neighborhood is about half its former size. Many long-time
residents remain, but their fixed incomes and advancing age are visible in homes
needing repair and routine maintenance. Joining these long-time residents are
new households in which all heads of the household work but primarily at low
wage jobs. Many of these families are active in the neighborhood. They moved
here because they could afford the homes and wanted to preserve the
neighborhood for their families. However, the demands on their time and income
of job and family have left little for general upkeep of their property and nothing
extra for the major repairs many of the neighborhood's older homes need. These
families, in a very real way regard the neighborhood as their future. Most
recently, Hispanic -Americans have joined the mix of black and white families,
but language and cultural barriers have inhibited their involvement in
neighborhood activities.
Historically, there has always been a percentage of the neighborhood that was
rental housing; primarily this was single family house rental with larger homes
being broken up into apartments. A portion of these rental properties are
occupied by long-term renters, but increasingly these properties house
transients with little regard for the neighborhood.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
DEVELOPING A STRATEGIC PLAN
The residents of the Southeast Side neighborhood in South Bend, Indiana are
taking action to aggressively resolve the issues challenging the survival of their
homes, families, and neighborhood. In April 1994, the Southeast Quality of Life
(SEQL) neighborhood organization, in conjunction with the City of South Bend,
determined that to prepare the neighborhood for the successful future, an
action -oriented strategic plan had to be developed. SEQL retained the services
of Teska Associates, Inc., in conjunction with Lupke & Associates and Boezi &
Associates, to facilitate the development of the plan over the following nine
months. The results of the plan focus on building upon the wealth of resources
that the neighborhood has in its residents, housing, churches, schools, and
physical environment. The approach depended upon the input and dedication
of key persons in the community, particularly area residents. SEQL also
established the role of a "Community Organizer" as an element of this
approach.
The neighborhood hired a Community Organizer. The Organizer was made
responsible for acting as a link between SEQL, the consultant, and the
neighborhood. The Community Organizer had a variety of key tasks to
complete. First, she was responsible for informing residents of the project. She
was responsible for educating residents as to the importance of their
participation for the success of both the project and the neighborhood. She
helped build relationships between key organizations and the neighborhood.
Finally, she was responsible for organizing key meetings.
Public participation and input was an essential element of the plan. This
participation was accomplished in several ways. One-on-one key person
interviews were conducted with residents, property owners, city
representatives, businesspersons, ministers, and institutional users to elicit
experiences and conclusions regarding community needs and opportunities for
community development. The interviews also served to build support for
enlisting key persons to serve on Task Forces in the development of the plan.
The focus of these interviews was not on solutions but rather on the
community development issues which needed to be addressed and potential
leadership and resources to address them.
The Neighborhood Forum
To further obtain resident input, SEQL held a Neighborhood Forum, facilitated
by the Consultant Team and a local community activist and organizer. The goal
of the first forum was to build a planning platform which focused upon the
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Southeast Quality of Life
Strategic Neighborhood Action Plan
issues of highest priority to neighborhood residents. The forum also initiated
the creation of a framework in which the neighborhood residents could
themselves create a plan of action. The forum drew over 60 people
representing various interests within the neighborhood, including residents,
landlords, police, elected officials, and institutions.
The discussion at the forum indicated that people feel very positive about most
of their neighbors and the neighborhood. Forum participants viewed the area
as a diverse neighborhood comprised of long-time, residents who are hard
working and concerned about the quality of life in the neighborhood. Residents
valued safety and peace, especially for the children, in the neighborhood.
Participants identified many assets within the neighborhood that could be built
upon to achieve their vision of the future. The neighborhood's key assets
included area residents, the existing housing stock, the existing institutions, and
the multiple generations of strong families within the neighborhood. The first,
and most important, asset exists in area residents. Participants felt that many
enthusiastic and talented neighbors were key assets to be built upon. "We
have many of those people who are ready, willing, and able to commit their
time to improving the neighborhood." Carpenters, computer experts, singers,
leaders all are key opportunities to build upon in the planning process.
Participants hoped that this wealth of internal assets could be built upon for
area residents' future: "We want to see jobs for everyone that wants one and
area youth taking active roles in leadership positions."
Another key opportunity is the existing housing stock in the neighborhood.
Homes in the neighborhood are affordable and many are in excellent condition;
others simply need some rehabilitation work. The existing institutions within
the neighborhood have a stabilizing effect on the neighborhood and contribute
positively to the mix within the neighborhood. Institutions such as Riley High
School, the Boys and Girls Club, and the wealth of churches are assets
extremely valuable to the neighborhood. Also contributing positively to the
stability of the neighborhood are the multiple generations of strong families who
continue to live in the neighborhood.
Participants at the public forum perceived crime levels to be a critical issue to
be addressed in the neighborhood. In 5 to 25 years, participants would like to
feel that security increased in the neighborhood. One resident stated, "In the
future, we want to be free from the fear of drug dealers and illegal crimes in our
neighborhood." Many voices at the neighborhood forum consistently stated
that drug trafficking and prostitution are real problems, are of key concern for
the neighborhood, and should be addressed in the planning process.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Other neighborhood concerns identified in the public forum include the
continuing abandonment and boarding of homes and decreasing private
investment both commercially and in levels of home ownership. The continued
acquisition of single family homes by in -coming institutions throughout the
neighborhood potentially reduces the critical mass of housing stock necessary
for the long term stability of the neighborhood. Participants felt the
neighborhood must ensure an adequate quality and quantity of housing
opportunities for residents. The neighborhood has a lack of neighborhood -
oriented businesses such as a laundry or a grocery. Physical conditions within
the adjacent commercial corridor should be improved to enhance the image of
the overall corridor including the neighborhood.
One of the biggest obstacles to overcome, according to public forum
participants, is the lack of broad participation by neighbors. A core group has
started the ball rolling in the planning process, but for the long-term and
continued success of the neighborhood, all residents and business owners must
actively work together. However, following the neighborhood forum, almost
half the attendees indicated interest in continuing their participation in the
process -- this trend may be reversing.
The welcomed diversity of cultures, races, and backgrounds within the
neighborhood is a strong building block upon which the strategic plan will rely.
When asked if participants would recommend the neighborhood to someone
interested in moving in, interviewees and public forum participants resoundingly
stated "Yes!" The interest in and dedication to the neighborhood is apparent --
organizing the participants is the next step. The input provided during the
interviews and at the public forum help to form the areas of concentration of
the Focus Groups and Working Papers.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
NEIGHBORHOOD ISSUES
As a result of the comments and neighborhood perspectives offered at the
public forum, the consultant team prepared a limited list of issues to be
addressed within four categories. The consultant also posed an overall mission
for the strategic plan, and individual mission statements for each of the four
category areas: Land Use and Physical Environment, Neighborhood Security,
Capacity Building and Housing. Upon review and discussion with the SEQL
leadership and after public comment, the following Mission Statement was
accepted.
THE SOUTHEAST SIDE MISSION FOR SUCCESS:
The Southeast Side will achieve the complete involvement of
every neighborhood resident and business in development of the
strategic action plan and the revitalization of the neighborhood to
guarantee the quality of life for themselves and each other_
The Consultant team prepared four work papers, one for each of the four issue
categories. These papers were designed to focus neighborhood attention on the
trends which led to existing conditions, and to suggest alternative approaches
toward addressing neighborhood goals.
HOUSING WORK PAPER
Existing Conditions and Trends
The Southeast Neighborhood is bounded by Sample, Miami, Ewing, and
Michigan Streets and encompasses over 100 city blocks and 445 acres. In
1980 the neighborhood accommodated approximately 1886 dwelling units,
mostly single family homes, 1743 households, and 4876 residents. The past
two decades have witnessed a decline in all three categories. For example, in
1990 there were 1615 dwelling units (a 14% decline from 1980), 1376
households (a 21 % decline from 1980), and 4057 (a 17% decline from 1980)
residents.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
CENSUS TRACKS
29 AND 30
1970
1980
1990
170 - '90
%
CHANGE
HOUSING UNITS
2487
1886
1615
-35.1 %
OWNER OCCUPIED
1379
1041
795
-42.3%
HOUSEHOLDS
2274
1743
1376
POPULATION
7099
4876
4057
The comparable numbers for 1994 are lower still and may decline further
through the balance of the decade. Further while the percentage of rental units
has remained constant since 1980 at 36%, the percentage of owner -occupied
units has fallen from 55% in 1980 to 49% in 1990. The vacancy rate of
homes increased from 8.6% in 1980 to 14.8% in 1990. In sum, there are far
fewer housing units occupied by fewer families with a overall higher vacancy
rate and a lower overall percentage of owner -occupancy.
To a significant degree the neighborhood remains family oriented, including
many extended and intergenerational families. However, the number of single
person, single parent, and group households is increasing, as is the number of
room renters. While there was a 16.8% overall loss of population in the
neighborhood, a 55 % loss occurred in the population aged 65 and older from
1980 to 1990. In general the loss of older residents, has lowered the average
age of the community.
The neighborhood is characterized by its multicultural diversity of racial,
religious, ethnic, age, and income groups. The northwest corner of the
neighborhood is experiencing the greatest degree of transition, and stability is
also fragile in other parts of the neighborhood. However, local churches,
schools, and home ownership patterns continue to resist rapid, wholesale
transition to a significant degree.
Household incomes can be characterized as low to moderate, stressing the
ability of many households to own and maintain their homes. Many homes are
owned by absentee landlords who either do not generate the income from them
to support or are unconcerned about adequate maintenance. Nevertheless, the
neighborhood remains accessible to a substantial number of jobs in business,
industry, institutions, and government --many within walking distance.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Over 90 percent of all dwelling units are in single family detached homes. The
boundaries of the neighborhood, established by major arterials, and the
infrastructure framework of schools, parks, and local streets continue to support
the concept of a viable neighborhood, despite certain negative trends. Housing
conditions are mixed, but tend to be most problematic in the northwest corner
of the neighborhood and least problematic in the southeast corner of the
neighborhood. Many homes were built in the pre -World War II period of the
1930s-1950s. Originally well built, they now require substantial reinvestment
to extend their useful life.
Open spaces and recreational facilities related to the elementary and high
school, and the golf course, are a genuine asset. However, they alone do not
adequately serve the needs of more remote parts of the neighborhood. The
sports fields in the northwest part of the neighborhood will soon be lost to
planned institutional development and will diminish recreational opportunities
until replaced in some fashion.
For the past two years (1993-1994)the Southeast Neighborhood has been the
beneficiary of the Christmas in April program, resulting in needed repairs and
maintenance to over 80 homes. In addition, the interest and volunteer
commitment of thousands of persons from throughout the region have been
focused on the neighborhood, and the resulting publicity has been positive. As
this program moves on to serve other neighborhoods, the risk is that the
momentum it fostered will subside, unless other constructive activities fill the
void, beginning in 1995.
Causal Factors
Factors causing the above conditions and trends fall into two broad categories:
factors external to the neighborhood, and factors internal to the neighborhood.
External
The most significant external factors are those which have influenced most
central city neighborhoods --past war economic trends, and migration to the
suburbs. The loss of manufacturing jobs is universal, but the closing of the
Studebaker plant and other nearby factories severely influenced the social -
economic structure of adjacent neighborhoods in South Bend. Concurrently,
lifestyles have changed and a large majority of persons, especially families, have
adopted more suburban cultures. Clearly, the decline and transition of central
business districts has also influenced migration.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Those WWII era residents who remain in the neighborhood are now senior
citizens lacking the income, energy, and skills they once exhibited. New
residents are more likely to be those who can not compete for more upscale
locations, rather than those who prefer and choose a central city neighborhood.
On the other hand, there are many residents of the Southeast Neighborhood
who have in fact chosen it, because of its multicultural diversity and
convenience. This should not be overlooked as a positive signal to others.
Recent major influences on the neighborhood have come as a result of definitive
governmental and institutional policies and actions. They are many:
- Acquisition, vacation, and demolition of obsolete residences by the
agencies of South Bend;
- the planned Parkview Juvenile Center;
- the planned Indiana Vocational Technical Institute;
- the planned relocation of the County's Boys and Girls Club and Family
Children's Center;
- the South Bend Heritage affordable housing project;
- the proposed Park District sports fields;
- the proposed expansion of Riley High School;
- City of South Bend code enforcement program;
- other?
The result of many of these policies has been the conversion of over 100 acres
22 % of the neighborhood, of land north of Broadway from residential to
planned non-residential use, the legacy of vacant houses and lots, the
anticipated demolition/relocation of approximately 30 homes for high school
expansion, and the general de -stabilizing concern with unknown change which
resides within neighborhood residents. On the other hand, these policies
collectively express a public reinvestment commitment to the future of the
Southeast neighborhood opportunities for coordinated revitalization efforts are
not inconsistent with home ownership and family values which are of high
priority to local residents and religious institutions.
Construction of the Parkview Juvenile Center, Boys' and Girls' Club, and SBH
affordable housing project (54-56 rental units in 28 buildings) is scheduled to
begin in the foreseeable future. Construction of the Technical Institute and
sports fields is unscheduled and uncertain, leaving substantial areas of vacant
land in limbo.
Other external factors include alleged redlining by financial institutions. Impacts
of commercial corridors related to Sample and Michigan Streets have also been
identified as influencing existing conditions within the neighborhood. These
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Southeast Quality of Life
Strategic Neighborhood Action Plan
corridors exhibit a wide variety of land uses and conditions, some of which are
clearly detrimental to the residential neighborhood while some support the
neighborhood. Neighborhood stability and revitalization can not succeed
without improvements to these corridors, especially the Michigan Street
corridor.
Internal
Causes internal to the neighborhood include impacts of a limited number of
industries and businesses which generate undesirable traffic, the lack of
neighborhood oriented usable open spaces, the marginal financial resources of
residents and property owners, and the instability of individual occupants,
family units, landlords, and neighborhood organizations. In addition, a limited
number of residents cause substantial harm by dealing in drugs, prostitution,
and other anti -social pursuits. These internal factors influence some property
owners to move or not to reinvest in property maintenance, and deter other
potential residents and investors from moving in.
Goals
The key housing goals identified by participants in the July 13 workshop were:
- A stable, predominately single family neighborhood
- Reinvestment in structural soundness and appearance of homes
- High percentage of home ownership
To achieve these goals requires first a strategy to halt deterioration and stabilize
conditions, and second a strategy to revitalize the neighborhood. Specific
actions fall into two categories: remediation measures, and preventive
measures.
Remedial Measures
• Sound dwellings to be displaced by high school expansion should be
relocated to vacant sites in the neighborhood and sold at an affordable price
to qualified owner/occupants.
• A first time home buyer program patterned after that which the South Bend
Heritage Foundation has initiated in the West Washington neighborhood
should be introduced in the Southeast neighborhood.
• An extensive property rehabilitation program should be undertaken,
incorporating a partnership of property owners, city, churches, and the %
South Bend Heritage Foundation, and City financial institutions.
9
Southeast Quality of Life
Strategic Neighborhood Action Plan
• Construction of new affordable and market rate housing should be
encouraged on available sites, including the 54-56 unit SBHF project in a
form and setting which is compatible with the neighborhood.
• New neighborhood parks and playgrounds should be developed with inputs
from local residents, especially children.
• New homeowner/occupants should be actively recruited, with the assistance
of local real estate industry.
• Street improvements should be made to reduce through traffic in the
neighborhood, as further described in the Land Use and Security Working
Papers.
• Cooperative working relations should be established with all new
institutional and public developments in the neighborhood to guarantee their
compatibility with nearby housing and to maximize their positive impacts on
the liveability of the neighborhood.
• Active commercial revitalization programs should be organized for the
Miami, Michigan, and Sample Street corridors, involving public/private
partnerships; a quality food store should be recruited to meet neighborhood
demand.
Preventive Measures
• A broad based consensus should be reached regarding the defensible
boundaries of the residential area which are not to be violated by the
encroachment of peripheral non-residential uses.
• Existing home owner/occupants should be encouraged and assisted to carry
out preventive maintenance on their properties and to participate actively in
neighborhood organizations and programs. SEQL and other appropriate
organizations should actively promote and educate homeowners on the
available existing programs for rehabilitation assistance.
• City code enforcement activities should be carried out not solely from the
regulatory point of view, but also from the more sensitive assistance point
of view; existing codes and procedures may merit amendment.
• Neighborhood security should be enhanced as described in the other
Working Papers.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
• The home receivership program should guarantee that those who are given
the responsibility of receivership execute that responsibility consistent with
neighborhood goals.
• An annual cleanup/fix up program should be organized to maintain the
momentum established by Christmas in April.
• Landlords through financial incentives or peer pressure from the area
landlord association should maintain rental properties.
• Educational, counseling, and training programs should be established to
strengthen the knowledge and skills of owners and tenants regarding
property maintenance.
• All churches located in the neighborhood should become actively involved
in the provision of sound housing and liveable conditions in the
neighborhood; an interfaith effort would be most productive.
• City financial institutions should terminate redlining practices and treat
neighborhood loan applicants uniformly as others in the community are
treated. Compliance with mandated Community Reinvestment Act should
be strongly enforced and required.
• Obsolete homes which are not feasible to rehabilitate should be removed
and plans developed for its renewed use.
• Compatible interim uses and appropriate maintenance programs should be
established for vacant lands which are not to be developed in the near
future, e.g. the Technical Institute and the sports fields.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
TASK FORCES
Neighbors began taking an active role in leading the planning process by joining
Task Forces. The Task Forces were the key elements of the strategic planning
process. The Task Forces were commitments by individuals who wanted to
take an active role in planning for the future of the community. The four Task
Forces directly assisted in the planning of key actions and programs to improve
the quality of life in the neighborhood. Participants were divided into Task
Forces focusing on Housing; Land Use and the Physical Environment; Capacity
Building; and _Neighborhood Security issues. Based on the findings in the
Working Papers, the Task Forces determined an overall strategy to guide their
goals setting and action development activities.
Each Task Force then determined specific long and short term goals to improve
life in the neighborhood. The Task Forces detailed specific actions geared at
accomplishing those goals and identified existing assets which could be built
upon to accomplish those goals. The goals are listed in the Strategic Plan Table
that follows. The Task Forces also assigned parties to be responsible for
ensuring that the specified action was completed. Each group's missions and
charge is detailed below.
12
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Southeast Quality of Life
Strategic Neiqhborhood Action Plan
HOUSING STRATEGIC PLAN
The Housing Task Force was formed in response to an identified need during
the public input sessions to address issues specifically related to housing. The
Task Force was empowered with the following Mission:
The Task Force should identify actions which will increase the quantity
and quality of housing which meets the requirements of residents and
increase the level of home ownership.
Strategic Methodology
Based on this charge and input from interviews and the neighborhood forum,
the Task Force identified several high priority goals aimed at creating a higher
quality of life in the neighborhood. To accomplish the goals, the Task Force
identified a strategy to guide the development of actions and implementation of
the Strategic Plan.
Strategy. Stabilize the neighborhood through active rehabilitation of ✓
homes and increased homeownership; infill vacant property with
relocated homes and new single-family scale homes; encourage new
construction of homes north of Broadway.
Phases
Phasing implementation of the strategy was discussed by the Housing Task
Force. The group came to the consensus that stabilizing the neighborhood is
the too priority for immediate action. Halting the additional boarding and
demolition of homes and the conversion of single family dwellings to multi-
family structure is an essential first step in the Strategic Plan.
After the neighborhood has been stabilized, the vacant properties should be
infilled with quality homes. Some of the infill homes may have been those
originally targeted for demolition due to construction of institutional uses north
of Broadway. Other infill homes may be new construction. All infill of vacant
Proper -ties should adhere to the neighborhood's Future Land Use Plan. Infill
development should be targeted to a limited area of concentration and expanded
to adjoining areas, rathern than scattered throughout the neighborhood.
In addition to infill of vacant lots within the neighborhood, construction of new
homes should be encouraged and continued. South Bend Heritage has initiated
efforts to maintain at least a portion of the site in the single family character
Me]
Southeast Quality of Life
Strategic Neighborhood Action Plan
with the construction of duplexes. Redevelopment in areas surrounding the
relocated park north of Broadway should encourage single family or duplex
home construction to maintain and contribute to the single family character of
the neighborhood.
Elements to be Developed Immediate
Goal: Adoption of a flexible strategic plan which guides the future efforts
towards achievement of SEQL's housing goals
Project: Establish and maintain a success monitoring system.
Assets: Division of Planning and Neighborhood Development/Department of
Economic Development
SEQL
Partnership Center
Barriers: Lack of participation
Action Steps:
1. Establish a standing committee within SEAL to track key neighborhood
trends and prepare an annual report detailing the results.
a. In conjunction with the work of the Capacity Building Task Force, the
committee should obtain and create a database of key information.
Some of the key information to obtain includes the number of real estate
transactions; demographic information on new households in the
neighborhood; tracking the value of homes; number of applications for
building permits; and code violations and compliance.
b. The committee, with assistance from the Divsion of Planning and
Neighborhood Development, should analyze these trends to determine
if the neighborhood is moving toward its desired goals. For example, the
number of building permits issued during the year will indicate the type
and levels of new construction — if new construction is multi -family or
single family. Trends will indicate if the permit is for rehabilitation work
or conversion of single family homes to multi -family homes. Frequent
trend analysis is essential to guarantee that the neighborhood is moving
in the desired direction. if trends are not reflecting a movement toward
the desired goals, SEQL must readjust its priorities and actions.
2. Establish a "Welcome Neighbor" program. The "Welcome Neighbor"
program would not only assist in the monitoring of key trends, but would
also enhance the network of SEQL's membership.
20
Southeast Quality of Life
Strategic Neighborhood Action Plan
a. Members of SEQL's "Welcome Neighbor" program should establish an
on -going relationship with area real estate agents and companies.
b. When a property transaction occurs, the agent would contact a SEQL
representative from the "Welcome Neighbor" program. The
representative will then contact the new household.
c. The SEQL representative would inform the household of SEQL activities
and programs and register the new household as a SEQL member. The
representative will also collect demographic information, determine
assets of and requirements by individuals in the household residence,
and provide useful information on the neighborhood (coupon books or
brochures on local businesses, etc.).
d. The SEQL representative would relay the information back to the SEQL
monitoring system for tabulation into the annual report.
3. SEQL should pursue its organizational development with the intention of
becoming active in the ownership, development, or maintenance of housing
and ultimately as a development corporation.
Elements to be Developed Over the Short -Term: Immediately
Goal: Infill vacant Property with relocated homes and new construction.
Project: Relocate suitable homes from Riley High School expansion and
construct new single family homes in remaining vacant infill sites.
Assets: Area churches
SEQL
LIS C
Quality tradesmen in neighborhood
Riley as a partner
Barriers: Cost for relocation vs. new construction
Action Steps:
1. In conjunction with the Land Use and Physical Environment Task Force,
SEQL will identify an interim and long term use for each vacant site in the
neighborhood.
2. A Task Force of City building officials, SEQL representatives, and skilled
tradesmen should establish criteria for suitability of relocating homes
(including comparing cost of relocating homes versus demolition and new
construction). Inspect and identify each of the Riley homes and determine
which are suitable and practical for relocation.
21
Southeast Quality of Life
Strategic Neighborhood Action Plan
3. Take ownership of suitable homes from Riley and institute immediate
security measures (e.g. install alarm system) to assure their safe keeping.
4. Match specific homes to specific vacant properties.
5. Seek additional funding of outside sources (CDBG, L1SC, potentially UEA
grants) and partnerships with local churches to nurture and orchestrate the
movement and rehabilitation of identified homes and lease/ownership of
Riley homes.
6. Recruit potential developers and home builders for new construction in
vacant parcels not planned to accommodate relocated homes.
a. Identify potential financial incentives to attract developers and home
builders
b. Create marketing brochure
7. Identify prospective occupants based on those individuals who are in
homeowner education programs such as described in the next step. Assist
in homeowner placement with rehabilitated and new units.
8. Other parcels not planned to accommodate relocated or new construction
which are adjacent to owner -occupied single family homes should be
offered for sale to that owner for $1 .
Elements to be Developed Over the Short -Term: 3 to 5 Years
The neighborhood must stabilize the housing stock toward the goal of a stable,
predominately single family neighborhood. Stabilization begins with preventing
the slow erosion of the existing single family housing stock.
Goal: Stabilize the housing stock
Project: Establish a neighborhood -based community development corporation
to intercede and prevent the further decay of homes and blocks within the
neighborhood.
Assets: SEQL
Partnership Center
Residents with skills
LISC
Division of Planning and Neighborhood Development
Riley High School
Area Churches
Expanding federal support for CDC's
Barriers: Lack of current organization within SEQL
Lack of community organization
22
Southeast Quality of Life
Strategic Neighborhood Action Plan
Action Steps,
1 . Assign SEAL representatives to follow through with establishing the 501
C (3) status of the SEQL organization.
2. Establish a relationship for funding and program assistance with the Local
Initiatives Support Corporation (LISC). SEQL receives training, assistance
in application, and post -CDC designation support from LISC.
3. Work with the Land Use Task Force to modify Zoning Ordinance to allow
only single family residential zoning within the neighborhood.
4. In partnership with the City of South Bend establish an overlay district
requiring inspection of dwellings as to increase effectiveness of code
enforcement in advance of decay and abandonment.
S. Request the City to revisit the landlord/tenant monitoring system issue.
6. Prevent vandalism of vacant homes and homes to be moved with the
installation of a security system.
7. Work with the Division of Planning and Neighborhood Development to
access funds identified in the Housing Consolidation Plan.
8. Establish partnership with local financial institutions.
a. Create a loan program with low interest rate for residents to
complete minor repair work.
b. Use SEQL as a co -applicant and guaranteeor so that income and
credit constraints can be minimized.
9. Create a database of local licensed and respected craftpeople and
contractors for resident referral.
10. Create a Loan -a -Tool program (similar to a library lending system)
organized through the Partnership Center.
a. Inventory persons interested in participating.
b. Establish lending circle and/or "fee" system.
C. Inventory available tools.
11. Create "Self-help Teams" for neighborhood rehabilitation and fix -up
projects through SEAL.
a. Inventory and organize neighborhood residents' talents (e.g.
carpenters, plumbers, painters).
b. Organize teams based on project needs. Projects may include
assisting neighborhood residents correct code violations, elderly
home fix -up and rehabilitation projects, etc.
C. Establish parameters based on a "barter system" for "payment" for
services rendered (e.g. I'll babysit your child for three hours if you
fix my leaking sink).
d. Using Self-help Teams as instructors, organize classes to instruct
potential, new, and existing homeowners on proper home
maintenance.
e. Encourage local youth to work on the Teams to gain skills and
mentoring.
23
Southeast Quality of Life
Strategic Neighborhood Action Plan
12. Initiate neighborhood -based, clean up programs. A part-time staffperson
would be instrumental in the organization and implementation of these
programs.
a. Establish an annual housing rehabilitation program based on
Christmas in April program utilizing volunteer energies and donated
materials.
b. Establish a monthly clean-up program. One day of one weekend per
month, residents move out in force to pick up trash, mow lawns,
rake leaves, etc. throughout the neighborhood.
Elements to be Developed Over the Long -Term: 4 to 6 Years
Goal: Increase the number a_nd percentage of owner -occupied single-family
homes.
Project: Create a neighborhood based finance corporation to serve as the
non-profit mortgage banker to finance the purchase and/or
improvements of single and multi -family housing.
Assets: LISC
SEQL
Community Reinvestment Act
Residents
Local banks
Riley High School
CASH + program
Barriers: Outsiders' negative perception of the neighborhood;
Lack of expertise and organizational capacity within SEAL
Action Steps:
1. Maintain relationship for funding and program assistance with the Local
Initiatives Support Corporation (LISC).
2. Establish Task Force to focus on creating the neighborhood -based finance
corporation.
3. Neighborhood Finance Corporation enters into agreements with local
financial institutions to commit loan pool funds for use in rehabilitation
projects and new construction of single family homes.
4. Neighborhood Finance Corporation develops a Plan for Acquisition the goal
of which is converting existing, suitable renters within the neighborhood
into owner -occupants, and recruitment of families to become owner
occupants of substantially rehabilitated single family homes.
24
Southeast Quality of Life
Strategic Neighborhood Action Plan
a• Establish and regularly maintain inventory of properties within the
neighborhood. The inventory would include ownership, rental status,
and condition of property.
b. Identify those properties ripe for acquisition and rehabilitation in
advance of their decline and disinvestment.
C. Initiate Recruitment/Marketing, Education and Screening program in
conjunction with financial institutions and REWARD program.
d. Program will focus its recruitment and education efforts on existing
renters and soon -to -be displaced residents within the neighborhood
for placement in newly constructed homes and substantially
rehabilitated existing homes.
e. Marketing and recruitment can expand to include other South Bend
families once the Southeast area market has been covered.
How Does the Strata Address the Goals?
Stabilization of the neighborhood's housing stock through active rehabilitation
of homes and increased homeownership is essential to the survival of the
neighborhood. Traditionally, home ownership leads to a greater sense of
Personal investment and ownership within a neighborhood. The individual pride
and commitment gained from personal home ownership is a foundation for a
strong neighborhood. By increasing opportunities for individual homeownership
through assistance for new homeowners and those interested in rehabilitation,
and by continuing construction of new single-family character homes within the
neighborhood and especially north of Broadway, the Southeast side can
reinforce its foundation as a strong neighborhood. Further, housing is more
than a physical issue. Becoming a homeowner can be an exciting and
overwhelming experience. By increasing homeowner support and/or teaching
basic skills to new home owners — ranging from the basic "how to's" of owning
and maintaining a home to assistance in budgeting and financial decisions -- the
foundation for a strong neighborhood is further strengthened.
Also related to stabilization of the neighborhood is ensuring a quantity of quality
rental properties. Rental properties serve an important function in
neighborhoods. Often, potential homeowners will establish themselves within
a neighborhood by residing in a rental unit while saving for a down -payment on
a home within that neighborhood. Attractive rental units help attract potential
newcomers to the neighborhood. However, ill -maintained rental properties with
absentee landlords decrease the overall attractiveness of the neighborhood to
potential newcomers and often attract negative influences on the neighborhood.
Methods to maintain a limited quantity of high quality rental units were
addressed by the Housing Task Force.
25
Southeast Quality of Life
Strategic Neighborhood Action Plan
Finally, ensuring active church involvement in the neighborhood is critical to the
future of the neighborhood. These institutions lend a strong sense of family,
community, dedication, and stability to a neighborhood. The Southeast side has
a wealth of opportunities in not only the number of churches within its
boundaries, but also in the churches stated dedication to improving the quality
Of life within the neighborhood.
How Does Housin Relate to the Other Task Forces?
Implementation of the Housing Task force programs are integrally linked with
the programs of the other task forces — Land Use and Physical Environment,
Capacity Building, and Security.
Land Use and Physical Environemtn Task Force
• .Prepare and adopt a Land Use Plan for the neighborhood.
Neighborhood Security Task Force
• Maintain and expand the neighborhood watch program.
Encourage heightened police presence in the neighborhood and tackle the
issue of criminal activity occurring in vacant homes in the neighborhood.
Capacity Building
• Initiate a mentoring/apprenticeship program for area youth to work with
local tradespeople.
These are several examples of programs that to be successful must rely heavily
upon continued communication and team approaches to problem solving and
decision making.
26
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Southeast Quality of Life
Strategic Neighborhood Action Plan
LAND USE AND PHYSICAL ENVIRONMENT WORKING PAPER
Existing Conditions and Trends
Several key trends have influenced the neighborhood in the recent past which
indicate public and private disinvestment within the neighborhood. Portions of
the existing housing stock are in need of significant structural rehabilitation as
homes have been boarded up without further action taken to improve, relocate,
or raze the building for significant periods of time. Many properties sit vacant
and ill -maintained.
Also indicative of neighborhood (dis)investment are levels of home ownership.
The number of owner -occupied housing units has decreased by 24.4% in the
past ten years indicating, as discussed in the Housing section, that for a variety
of reasons, people are not investing in homes within the neighborhood.
Many neighborhood streets, sidewalks and parks are ill -maintained indicating a
lack of continuing public investment in the neighborhood. As commercial
activity moves out, the jobs, income, and property values of the neighborhood
are further reduced. Although many of the non-residential uses (churches and
boys and girls club) are community assets, the physical condition of several of
these buildings and sites is in a state of disrepair. The non-residential uses
should demonstrate their investment in the community by reinvesting in their
own physical appearance.
Other trends include the potential establishment of several large scale
institutions to the neighborhood. The area north of Broadway is designated to
accommodate most of the redevelopment including the Juvenile Detention
Center, the new Boys and Girls Club, and Ivy Tech. Riley High School has also
acquired nearby properties to accommodate its expansion. At this time,
properties within potential redevelopment areas are being acquired; homes are
being boarded, cleared or relocated. However, many of the properties after
being cleared are slow to receive new uses and are not properly maintained.
Neighborhoods require a critical mass of homes and identifying boundaries to
ensure an overall continuity and to maintain a single family character. The
continued loss or boarding of homes jeopardizes the neighborhood's overall
continuity.
4:]
Southeast Quality of Life
Strategic Neighborhood Action Plan
Nonetheless, the neighborhood's overall character remains strong. Although in
the past ten years the number of single family homes has decreased by almost
300 homes, single family homes still comprise over 80% of the neighborhood.
Many homes have well maintained yards and gardens. Further, mature trees
and vegetation are found throughout significantly enhancing the neighborhood's
character. To -date, homes in the neighborhood maintain a consistent scale;
there are no disproportionately large apartments or developments to create
visual discontinuity.
Streets and sidewalks, although in need of surface repairs, extend throughout
the neighborhood and are well established. The many churches within the
neighborhood contribute to the visual image of the neighborhood. The network
of churches not only serves as an aesthetic amenity, but also serves as an
anchor of strength for the neighborhood through social and cultural networks,
and provision of local services.
Causal Factors
Population Loss
Demographic changes have influenced current trends within the -neighborhood.
Since 1960 the City of South Bend's population has decreased by 26%; the
neighborhood's population during the same time frame decreased by almost
50%. During the late 1 970's and early 1980's over 30% of the population was
lost due to the clearance of housing stock in a portion of the neighborhood to
accommodate a proposed nursing home complex that was never built. During
the 1 980's, the neighborhood's declining population continued to outpace the
City's as more homes were abandoned. From 1980 to 1990, the City of South
Bend's total population decreased by 3.8%; the Southeast neighborhood's
population during the same period decreased 16.8 %. From 1980 to 1990, the
number of persons 65 and over in the neighborhood decreased by over 50%.
The number of lower income, single parent households has substantially
increased over the past two decades. These population changes coupled with
the decrease in available single family housing stock and the 24% decrease in
owner -occupancy homes has resulted in disinvestment in the neighborhood.
We
Southeast Quality of Life
Strategic Neighborhood Action Plan
Income Decline
Economic conditions within the neighborhood further contribute to the problem
of disinvestment in the neighborhood. Median family income in the area is
approximately 64% that of the city; approximately $1 6,820 per year. The
income necessary to contribute to reinvestment by the residents is not being
generated. Further, the increases in the neighborhood in available rental
housing have several consequences associated with neighborhood
disinvestment. Renters tend to have lower incomes than those of homeowners.
Rental tenants and rental owners often have lower standards of building
maintenance and property upkeep. As properties deteriorate and property
values decline, banks are reluctant to finance mortgages for potential
homeowners. Further, as properties deteriorate, more successful households
will leave the neighborhood for quality housing elsewhere.
Unemployment
Employment conditions and resident income levels also significantly contribute
to existing conditions within the neighborhood. Since the early 1 960's, South
Bend has experienced a significant decrease in the number of major industrial
employers. The 1990 unemployment rate within the neighborhood was
approximately 1 5%. The declining economic base in the city is not the only
cause of the current unemployment condition. Many residents of the
neighborhood are lacking the skills necessary to compete for jobs, especially as
South Bend's economy shifts from an industrial/manufacturing base to service -
oriented employment. In 1990, 15% of the neighborhood population had less
than a ninth grade education; 27% attended high school, but did not receive a
degree; while only 32% received a high school degree. Unemployment or
under -employment leads to significantly reduced household income, further
reducing property maintenance and reinvestment in the neighborhood.
Aging Housing Stock
Disinvestment within the neighborhood is also attributable to aging housing
stock and infrastructure. As the quality of housing and infrastructure
deteriorates, the attractiveness of the neighborhood to potential new residents
31
Southeast Quality of Life
Strategic Neighborhood Action Plan
and existing residents decreases. Inadequate or inconsistent code enforcement
can make the problem worse. As the attractiveness of the neighborhood
decreases, existing residents are likely to relocate outside of the neighborhood
and potential homeowners are likely to locate elsewhere. Reinvestment by
potential and existing homeowners must continue to ensure stability of property
values, property upkeep and new property purchases. Likewise, public entities
must continue reinvestment in the neighborhood's infrastructure.
Struggling Businesses
Reinvestment is also frustrated by difficulties in maintaining economically viable
businesses in the neighborhood. Neighborhood businesses first are fighting to
improve their image to the public -at -large; to eliminate the negative perception
of the character and quality of businesses in the area. Neighborhood
businesses are not only competing with other local businesses, but they are
also competing with the larger shopping centers in Mishawaka and outlining
areas for the expenditures of neighborhood residents. Reduced income from
neighborhood residents has led to disinvestment in property, which has in turn
led to a negative spiral of the attractiveness of businesses and their ability to
survive.
Remediation Measures
The first priority for land use and physical environment is to stabilize
redevelopment activity within the neighborhood.
• Neighborhood land use stabilization must emphasize housing stabilization.
Continued demolition of the neighborhood's housing stock and the erosion
of the core of the neighborhood must stop. Those owners of homes which
could be assisted by rehabilitation should be encouraged to rehabilitate
their property and should be guided through the process. Oversight,
funding, and operation of housing programs can occur through a local
housing development corporation. This organization could form as a spin
off of SEQL or under contract with an organization like South Bend
Heritage. Specific strategies are discussed in the Housing Working Paper.
• A primary land use strategy must be to conserve existing investments in
land uses and public and private improvements; the homes, businesses,
32
Southeast Quality of Life
Strategic Neighborhood Action Plan
churches, schools, properties, and infrastructure. The neighborhood
should support these uses by dedicating the services of skilled volunteers
in a coordinated program of neighborhood clean-up and fix -up and the
development of a network of neighborhood -based services offered to those
needing assistance in property maintenance and management. Consider
development of a Youth Conservation Corp. to maintain (mow, clean, etc.)
abandoned/vacated properties.
• Publicly funded infrastructure improvements within the neighborhood such
as streets, sidewalks, stormwater management, and lighting must be made
to encourage private investment within the neighborhood. In conjunction
with the strategies developed in the Security Working Paper, public
improvements including physical barriers to through traffic (cul-de-sacs,
road diversions, street lighting, etc), aimed at creating a defensible
environment must be planned, budgeted, and installed with the assistance
of the City.
• Compatible and attractive interim uses of planned vacant areas within the
neighborhood should be created. Where several joining parcels are
vacated, installation of parks and active play spaces should be considered.
Where individual parcels are vacated the opportunity exists for installation
Of tot lots, community garden plots, or urban nurseries. as temporary uses
until permanent development occurs. Temporary infill uses should be
appropriate to the length of time the parcel is expected to be vacant.
• Reinvestment in the neighborhood should also occur by encouraging and
supporting existing and future neighborhood oriented businesses.
Programs to support small business start-up should be developed and
marketed to potential business owners.
• The partnership between the neighborhood and the City should locate
neighborhood -oriented, neighborhood -operated support facilities (senior
center, child care facility, resource center, etc.) within the neighborhood.
Consideration should be given to using a moving Partnership Center
(regular relocations and conversions) as a vehicle for rehabilitation and
conversion to neighborhood -service facilities.
33
Southeast Quality of Life
Strategic Neighborhood Action Plan
Preventative Measures
Preventative measures aim at ensuring the continued future success of the
neighborhood.
• The future of the neighborhood as a residential environment must be
ensured. This begins by defining and defending the boundaries of the
neighborhood. The neighborhood must create a distinct boundary and
protect that boundary from continued encroachment by non-residential or
inappropriate uses. Limits can be established by working with the City to
adopt a land use plan for the neighborhood and establishing appropriate
zoning restrictions and design guidelines which prevent unacceptable land
use development.
To ensure open space and recreational opportunities, the neighborhood and
the City should designate appropriate locations and facility types which
establish a balance between neighborhood -benefiting facilities and those
which also draw users from the city as a whole. Recreation facility
choice, design, and location should reflect the concerns for safety of users
and the surrounding neighborhood environment. Only those facilities
which can be maintained, supported, and supervised by the neighborhood
or the City should be chosen.
• In conjunction with the activities discussed in the Capacity Building
Working Paper, the incubation of new businesses, neighborhood business
owners, and business management skills should be coordinated with the
activities associated with the planning for the Michigan Street and Miami
Street corridors. Coordination of this nature should be aimed at ensuring
an appropriate balance of residents and businesses as partners in the
neighborhood. When possible, businesses to be incubated or recruited
should be chosen on the basis of their ability to employ neighborhood skills
and the provision of goods and/or services demanded by the neighborhood.
• To encourage reinvestment in the neighborhood, existing commercial uses
should be enhanced and be attractive both to neighborhood residents and
outsiders. The neighborhood residents should work with the business and
property owners and the city to establish a commercial corridor
revitalization plan to address both physical and strategic issues.
CM
Southeast Quality of Life
Strategic Neighborhood Action Plan
• Capital must be made available to encourage continued and new
homeownership thereby creating reinvestment in the neighborhood and
moving toward a stabilized environment. Local capital resources for
existing and potential residents through banks and appropriate agencies
and coordinated through an organization such as SEQL should be
established.
• The neighborhood should work with the City to develop a land use and
transportation plan that will redistribute the traffic handling capacity lost
when Calvert Street is closed. This should be done in such a way as to
not overload neighborhood streets.
• The neighborhood and the City should encourage, support, and allow home
occupations which maintain the integrity of the residential environment,
allow for increased personal income, and maintain a day -time population
which adds to the safety of the neighborhood.
35
Southeast Quality of Life
Strategic Neighborhood Action Plan
TASK FORCES
Neighbors began taking an active role in leading the planning process by joining
Task Forces. The Task Forces were the key elements of the strategic planning
process. The Task Forces were short term commitments by individuals who
wanted to take an active role in planning for the future of the community. The
four Task Forces directly assisted in the planning of key actions and programs
to improve the quality of life in the neighborhood. Participants were divided into
Task Forces focusing on Housing; Land Use and the Physical Environment;
Capacity Building; and Neighborhood Security issues. Based on the findings in
the Working Papers, the Task Forces determined an overall strategy to guide
their goals setting and action development activities.
Each Task Force then determined specific long and short term goals to improve
life in the neighborhood. The Task Forces detailed specific actions geared at
accomplishing those goals and identified existing assets which could be built
upon to accomplish those goals. The goals are listed in the Strategic Plan Table
that follows. The Task Forces also assigned parties to be responsible for
ensuring that the specified action was completed. Each group's missions and
charge is detailed below.
36
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FT-T,LRE LAND USE PLAN
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JANUARY 1995
SNGU FAMM RERDEN114-1
NIVLTI-FAMILY RE T, -LAL
SOL--nfEAST SFDE N'EIGf-FBORJ4OOD STRATEGIC ACTION PL-�-N - SOI-714 BEND, IN-DL-,,-NA
ALTERNATE LAND USE PLAN
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SOUTHEAST SIDE NEIGHBORHOOD STRATEGIC ACTION PLAN, - SOUTH BEND" NDLANA
Southeast Quality of Life
Strategic Neighborhood Action Plan
LAND USE AND PHYSICAL ENVIRONMENT STRATEGIC PLAN
The Land Use and Physical Environment Task Force was formed to address the
concern raised at the Public Forum that the neighborhood was decaying to the
point that it was at risk of disappearing. The Task Force was charged with the
following Mission:
The Task Force should identify actions to assure that the neighborhood will
exist as an attractive, comfortable, livable place in the future.
The introduction of new non-residential land uses, particularly the institutions
at the north end of the neighborhood and the potential Riley school
redevelopment, were raised as potential threats to the identity and functions of
the neighborhood. So too is the slow erosion of the housing stock through
disinvestment, abandonment and destruction of homes. in the words of one
participant, the vision for the future of the neighborhood in the next 5 to 25
years should include "being here."
In addition to focusing on the elements of the neighborhood which are
necessary to assure neighborhood strength and tranquility (land use mix,
arrangement, maintenance, clean-up and graffiti), the Task Force addressed the
issues of condition of public improvements (streets, sidewalks, utilities, trees,
street lights, etc.) and the location, size, and features of open spaces and
parks, and the mix of businesses which will satisfy neighborhood consumer
demands for goods, services and employment.
Strategic Methodology
The Public Forum raised three significant issues to be addressed by the Land
Use and Physical Environment Task Force:
• The uncertainty of the Southeast neighborhood's future;
The deteriorated visual image of the neighborhood; and,
• A lack of businesses serving neighborhood needs.
in response to these issues the Task Force developed a strategy for
44
Southeast Quality of Life
Strategic Neighborhood Action Plan
neighborhood action. The principal elements of the strategy include:
❑ Taking actions to ensure that the residential core remains residential;
❑ Enhancing the quality and extent of neighborhood -oriented
businesses;
❑ Developing institutional uses as neighborhood assets;
❑ Creating a balance between residential, commercial, institutional and
recreation uses.
Phases
The further development of several critical partnerships are important early
steps which will advance additional successes. Development of these
partnership will not only enhance the credibility of the neighborhood
organization in the eyes of potential supporters (including potential funders), but
these partnerships will provide strength in numbers. SEQL as an organization
will increase its ability to successfully implement programs through key
alliances. The partnerships include the relationship between the following:
• SEQL and the South Gateway Business Association;
• SEQL and L1SC;
SEQL and South Bend Heritage Foundation; and,
SEQL and the City of South Bend, including but not limited to:
Departments of Code Enforcement, Division of Neighborhood Planning and
Development, Department of Economic Development, Parks and
Recreation, and the County City Zoning officials.
Elements to be Developed Immediately
Goal: Ensure continuity of the neighborhood as predominantly single-family
and Drotect the core residential area from non-residential
encroachment.
Project: Implementation of land use and transportation plan and modifications
to the City's Zoning Ordinance.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Assets: Work has been started by the Task Force
Strong residential base
Churches
SEQL
South Bend Heritage Foundation
Institutional partners in the Redevelopment Area
Relationship with the City
Barriers: Lack of organization within the community
Speed bumps will be a challenging issue to overcome
Some may oppose parking on only one side of the street
Lack of funding
Pathway Plan difficult to extend into neighborhood
Action Steps:
1 . Translate land use concepts developed by the Task Force into a land use
plan for adoption by the City. Include:
a. The maintenance and enhancement of the single-family residential
environment south of the alley just north of Broadway;
b. The revitalization of the business corridors along Michigan and Miami
streets for neighborhood retailing;
C. The expansion of the Riley campus with appropriate gateways and
buffers to surrounding residential areas;
d. The incorporation of the Ivy Tech, Youth Correctional Facility, Boys
and Girls Clubs and other institutions in a coordinated campus;
e. The introduction of the South Bend Heritage residential project and
other new low density residential environments in conjunction with
a neighborhood open space north of Broadway;
f. Plan for interim uses of all vacant property; may include "victory
gardens", tot lots, mini -arboretums, public nurseries, etc.
g. Identification and development of a park designed for neighborhood
use, with adequate visibility from residential properties, and
appropriate links to other open space within the neighborhood;
h. The linkage of existing and future neighborhood parks through a
pedestrian and bicycle trail network; and, the enhancement of the
Bowman Creek as a environmental asset to the neighborhood.
W.
Southeast Quality of Life
Strategic Neighborhood Action Plan
i. Street network improvements and intersection improvements,
including speed bumps on either side of walkways and certain other
blocks where driving is dangerous (Milton, etc.);
j. Limited access around and to park; close Fellows;
k. Additional four way stop signs (Carroll and Indiana, etc.) to slow
traffic on long cross streets;
I. Truck and parking restrictions, including parking on one side of street
only on certain streets (High, Milton, etc.);
M. Entries into the neighborhood that would help to define and defend
the neighborhood from unwelcome or unnecessary intrusion.
n. Additional street lights throughout the neighborhood, with higher
density in targeted areas.
2. SEQL petitions County -City Zoning Board for modification of the Zoning
map and text to limit the land uses within the neighborhood to
predominately single family residential area with neighborhood oriented
retail/commercial corridors.
a. Petition to rezone the neighborhood from Residential B to Residential
A from the alley south of Pennsylvania Avenue. Modify zoning text,
where necessary, inhibit the continued conversion of homes from
single family to multi -family uses,
b. SEQL files formal objections and actively works against use variance
requests and rezoning which would permit non-residential uses
within neighborhood.
C. SEQL seeks to modify the zoning within the commercial corridors on
Miami and Michigan Streets to encourage neighborhood retailing and
to eliminate undesirable adult entertainment uses.
Goal: Maintenance of strong commercial activity on Michigan and Miami
corridors.
Project: Implement business recruitment and retention program for
commercial areas surrounding neighborhood.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Assets: South Gateway Associations
Some strong businesses among the others
Customers
UEA
Department of Planning and Economic Development
People want "adult" businesses out of Michigan Street area
Churches
NEDC
Barriers: Perception of crime within the neighborhood
Tenants not willing to participate in upkeep
Landlords not willing to participate in upkeep
Lack of assertive business association
Action Steps:
1. In cooperation with South Gateway Association, hire neighborhood
business coordinator to implement business recruitment and retention
program.
a. Inventory spaces and properties
b. Prepare detailed demographic and market analysis
C. Inventory existing goods and services within market area
d. Identify opportunities; gaps, missing goods and service providers
e. Identify retail space and location standards for retailers (source:
Retail Tenant Directory)
f. Match sites and opportunities
g. Develop incentive package to attract retailers
h. Prepare marketing prospectus
i. Contact regional/national companies
2. Work with South Gateway Association to implement existing strategic plan
for corridor revitalization; enhance plan for site specific redevelopment
projects and public space improvements.
3. Eliminate adult entertainment operations, obsolete or vacant commercial
properties, and decaying structures within the business corridors on
Michigan and Miami Streets.
a. SEQL works with the City to apply intense code enforcement.
b. Modify zoning to encourage retail development along Michigan.
C. Initiate campaign to boycott or otherwise inhibit those businesses
which are detrimental to the neighborhood.
MR,
Southeast Quality of Life
Strategic Neighborhood Action Plan
d. Educate youth and residents as to negative impacts of businesses
4. Work with the City and South Gateway Association to aggressively pursue
public and private improvements to make the commercial corridors more
attractive.
a. Upgrade structures and facades to make more attractive and
appealing
b. Develop music, recreation and walking areas
c. Bring all substandard buildings into compliance
d. Pave all parking areas and light them
e. Install and maintain streetscape (flowers, plantings, banner program)
5. Grow local businesses and local business operators
a. Establish a capacity to deliver training and consulting to business
start-ups.
b. Assist start-up businesses with financial (SBA and micro -enterprise
loans)
Goal: Useable, safe and attractive neighborhood open spaces with
attractive interim and permanent uses of vacant property.
Project: Create plans for interim/permanent uses for all vacant parcels.
Assets: Large residential base
Large youth population
Large number of vacant lots appropriate for development as parks
and gardens
Talented residents skilled in landscape architecture
SEAL
C.O.G.I.C. and other area churches
Partners -Youth 2000
Riley High School
Partnership Center
Housing Task Force as partner
Barriers: Existing criminal activity in parks
Diverse ownership of vacant parcels
Lack of neighborhood control of parcels
Lack offunds
49
Southeast Quality of Life
Strategic Neighborhood Action Plan
Action Steps:
1, Develop parks plan
a. Visit other successful cities' urban neighborhood parks
b. Identify vacant lots which are suitable to accommodate parks
C. Work with City to determine which lots are suitable for permanent
dedication as parkland
d. Conduct a design competition among Landscape Architects and
Urban Planners to design a neighborhood park system
e. Choose plan which meets requirements of entire neighborhood
d. Work with area landscape contractors and developers for donated
materials and labor.
2. Develop plan for infill housing on vacant lots not accommodating parks.
a. Work in conjunction with Housing Task Force to accomplish their
mid- and long-term projects including:
• relocating suitable homes from targeted by the Riley High School
expansion and the construction north of Broadway construct new
single family homes in remaining vacant infill sites;
• creating a neighborhood based finance corporation to serve as
the non-profit mortgage banker to finance the purchase and/or
improvements of single and multi -family housing.
3. Develop interim uses plan for vacant lots not accommodating parks or
homes.
a. Identify which vacant parcels will be developed in the future, but
remain vacant at present.
b. SEQL/Partnership Center volunteer dedicates time to implement
Summer Garden Youth Project
C. Develop a Youth Conservation Corps to provide maintenance
services to vacant parcels and neighborhood residents.
d. Work with C.O.G.I.C. based on their past successes with their youth
garden project.
e. Neighborhood Block Club utilize empty lots and be given access to
equipment through a lending program (Loan -A -Tool project).
4. Other vacant parcels which will not accommodate any of the above which
are adjacent to owner -occupied single family homes should be offered for
sale to that owner for $1 .
5. Work with Redevelopment, Park Department, South Bend Heritage, Family
and Childrens Center, Parkview, IVY Tech to develop support for the entire
park system plan.
50
Southeast Quality of Life
Strategic Neighborhood Action Plan
Success
Critical measures of success will include the adoption of Neighborhood Land
Use planning documents which allow the City and existing and future residents
of the neighborhood an opportunity to predict and plan for the future public and
private investments. Particularly important will be the ability to set a limit to the
encroachment of non-residential uses into the residential area and the protection
of the core residential area through land use controls.
The Southeast Neighborhood, through the development of SEQL, must establish
a mechanism for monitoring change. The Land Use and Physical Environment
Task Force, or its successor standing committee, must regularly inventory and
report progress and defeats. Among the items to be monitored are changes to
the use of land, (new homes built or located, homes demolished, new
businesses established, new parks established, etc.) changes to the zoning or
land use designations, improvements or declines in the physical condition of
property or buildings, and physical improvements or declines in the condition of
public infrastructure or utilities.
How Does the Strate Address the Goals?
The Task Force's four point strategy and the actions which further define this
strategy are aimed at implementing a series of goals for the neighborhood:
The Task Force cited the continued erosion of the residential core of the
neighborhood through abandonment, demolition, and conversion to institutional
uses as a significant influence on the quality of life within the neighborhood and
the prospects for continued existence. There is a critical mass of homes within
a limited area below which the sense of place, the economic stability, and the
neighborhood's social structure are no longer viable. The neighborhood need
not be completely residential, thus the strategy for establishing an appropriate
balance of uses in their appropriate locations. The Task Force calls for a
cooperative effort between the neighborhood and the City of South Bend to
adopt a Neighborhood Land Use plan and to implement and defend the plan
through appropriate revisions to the zoning ordinance, map and other
development controls,
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Since much of the use of neighborhood property is for housing, there is
substantial overlap between the strategies of the Land Use and Physical
Environment and the Housing Task Forces. It is worthy of re -emphasis to state
that the physical characteristics of housing strongly influence the character and
attractiveness of the physical environment of the neighborhood. This Task
Force suggests actions which continue the existing density/intensity of the
single-family dwelling areas as they have existed prior to neighborhood decay,
including infiil or relocation of homes to properties where homes have been lost.
The Task Force also underscores the need to maintain both the structural
integrity of homes as well as their appearance through active maintenance,
housing rehabilitation and code enforcement programs.
The neighborhood is made of neighbors more than of homes. The Task Force
calls attention to the relationship between homeownership, pride and attention
to property maintenance, and the level of participation in neighborhood
activities. With some exceptions, neither landlords nor their tenants have
shown a desire to participate in activities which support the neighborhood nor
have they adequately maintained their homes. The Task Force's strategy to
maintain the core of the residential neighborhood includes actions which will
make homes more available to buyers who will live in them, maintain them, and
become active members of the neighborhood. This may include active
intervention to assure that homes are attractive to homebuyers, that they are
marketed to homebuyers, and that attractive financing is available to
homebuyers.
Street improvements, separation of commercial zoning from residential, and
interim use of land designated for ivy Tech and parkland also play essential roles
in the stabilization of the neighborhood. Street improvements not only enhance
the overall appearance of the neighborhood, but also can create a more
pedestrian friendly atmosphere and enhanced atmosphere for children and
family recreation. Identifying interim uses for large expanses of open spaces
also ensures not only an enhanced appearance but also can satisfy the
recreational demands of the community. Finally, by separating commercial
zoning from residential zoning, the community protects its single-family
character and establishes a level of defensibility for that single family character
in land use decisions.
52
Southeast Quality of Life
Strategic Neighborhood Action Plan
How Does Land Use and the Physical Environment Relate to Other Task Forces?
As noted above, the Land use and Physical Environment Task Force and the
Housing Task Force have a number of issues of mutual concern, particularly
with respect to the maintenance of the core residential area. These task forces,
their successor committees or SEQL at large will benefit by the development of
tools and capacities (programmatic or organizational) which work toward their
mutual actions.
Many of the approaches to improving the image and nature of neighborhood
security may involve physical changes to the public infrastructure (improved
street lighting, cul-de-sacs, traffic diverters, park and public place design, etc.)
that will affect the character of the physical environment.
Many of the Capacity Building actions which focus on assisting business
development, neighborhood employment, neighborhood community
development, property maintenance, neighborhood gardening and similar asset
building are directly related to the interest of the Land Use and Physical
Environment Task Force.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
NEIGHBORHOOD ISSUES
As a result of the comments and neighborhood perspectives offered at the
public forum, the consultant team prepared a limited list of issues to be
addressed within four categories. The consultant also posed an overall mission
for the strategic plan, and individual mission statements for each of the four
category areas: Land Use and Physical Environment, Neighborhood Security,
Capacity Building and Housing. Upon review and discussion with the SEQL
leadership and after public comment, the following Mission Statement was
accepted.
THE SOUTHEAST SIDE MISSION FOR SUCCESS. -
The Southeast Side will achieve the complete involvement of every
neighborhood resident and business in development of the strategic
action plan and the revitalization of the neighborhood to guarantee the
quality of life for themselves and each other.
The Consultant team prepared four work papers, one for each of the four issue
categories. These papers were designed to focus neighborhood attention on the
trends which led to existing conditions, and to suggest alternative approaches
toward addressing neighborhood goals.
CAPACITY BUILDING WORKING PAPER
Overview
Issues of capacity are complex. Most frequently these issues are masked by
their resulting behaviors --- high levels of criminal activity, single parent
households living in poverty, homes showing signs of neglect, low educational
attainment levels, and high levels of unemployment.
This section will discuss capacity as an individual key issue but also as it relates
to other issues discussed within this report. At the neighborhood meetings
capacity was discussed in three primary categories: individual, organizational,
and the structures which support capacity or the development of capacity.
54
Southeast Quality of Life
Strategic Neighborhood Action Plan
1. Individual capacity is an individual's level of attainment in a particular skill
area but also the way an individual feels about him or her self; what one
believes one can do. Individual capacity is a resource (asset) of the
neighborhood. It may be discussed as feelings of self esteem and
empowerment. Individual capacity is a strong resource of the
neighborhood.
2. Or anizational caPacitY is what a neighborhood can do together.
Organizational capacity is most often demonstrated in the ability of an
organization to wield power, to attract positive attention and resources to
the neighborhood and the ability to work together to solve problems.
Examples may be the amount of public works dollars spent in the
neighborhood, the existence of the neighborhood as a target neighborhood
for bank lending, or perhaps for non-profit projects such as "Christmas in
April".
3. The structures which Support capacity or which enable the building of
capacity may be things like transportation, child care, and City code
enforcement. These structures may be inside or outside the neighborhood
and may or may not be under the control of the neighborhood but are very
important to the neighborhood. The availability of these structures may be
neutral as with a law or regulation or may require some level of capacity
to access such as the need to have political clout to ensure the
enforcement of the law or regulation.
Trends Causes and Influences
The changes in the neighborhood and family structure, aging of the population,
influx of new residents, increased percentage of rental housing, decreasing
residents overall, and a rise in crime, all cause feelings of isolation in the
residents and an overall demise of the neighborhood. The elderly and youth in
Particular are vulnerable to these feelings of being isolated. Yet even parents
working outside the home feel isolated from others in their neighborhood. Jobs,
child care, groceries, health care, little is available within or nearby the
neighborhood. The stresses of life and the strain of making ends meet on a
limited budget leave little time or energy for the affairs of the neighborhood.
55
Southeast Quality of Life
Strategic Neighborhood Action Plan
Alvin Toffler writes in his book The Third Wave about the loss of structure and
meaning and sense of isolation experienced by those living lives in flux.
Individuals need life structure. A life lacking in comprehensible structure
is an aimless wreck. The absence of structure breeds breakdown.
Structure provides the relatively fixed points of reference we need. That
is why, for many people, a job is crucial psychologically, over and above
the paycheck. By making clear demands on their time and energy, it
provides an element of structure around which the rest of their lives can
be organized.
.... Today the breakup of the [community, work, and family] is dissolving
the structure in many individual lives before the new structure -providing
institutions of the... future are laid into place... To this loss of order we
must also add the loss of meaning. The feeling that our lives "count"
comes from healthy relationships with the surrounding society -from,
corporation, church, or political movement.
The issue of crime, specifically youth crime, is particularly complex but clearly
related to the breakdown of our social and family structures. Mercer Sullivan,
a Senior Research Associate at the Vera Institute of Justice, New York City,
writes in his book "Getting Paid" Youth Crime and Work in the Inner City about
crime from the wider context of the family situations, school and work
experiences of young males. He directs attention to the broader issue of the
social isolation of the inner cities which produce street crime and a wide range
of social problems. Dr. Sullivan writes:
...high rates of youth crime in the inner cities are caused not just by the
specific lack of employment opportunities for youths but, even more
fundamentally, by poor employment conditions throughout these
neighborhoods which produce both the stresses of poverty and weakened
social control.
Remediation Measures
The causes of isolation, crime, unemployment and employment in low wage
jobs are complex, yet maintaining a strong community social structure is
essential to ensuring the economic success of a neighborhood.
A
Southeast Quality of Life
Strategic Neighborhood Action Plan
Anthony Downs, Senior Fellow, at the Brookings Institution, writes in his book
Neighborhoods and Urban Development about the critical role neighborhoods
play in transferring and supporting social values.
The creation of values and social structures and their transmission from
each generation to the next are among the most vital social functions
within individual neighborhoods. Moreover, deficiencies in these elements
are among the most important and most intractable aspects of
neighborhood life in many areas, especially where poverty is concentrated.
Family structures are weak, with many single -parent households in which
adolescent children are often influenced more by peer groups than by
adults. Values dominating interpersonal relations are often grounded on
low self-esteem, feelings of personal powerlessness, hostility toward
others, admiration of criminal and other antisocial behavior, lack of respect
for hard work or education and general cynicism ... the elderly fear going
out on the streets; and interpersonal relationships become laden with
suspicion. Young people are discouraged from adopting attitudes toward
learning and work that would enable them to escape from such conditions
by developing skills marketable in the larger society. Hence their
dependence upon public assistance and illegal activities is perpetuated.
If we take his words at face value it is critical that the structures of community
be upheld. This cannot be dictated from outside the neighborhood but must
come from within the neighborhood. The neighborhood must look within itself
for answers to the stresses it is dealing with.
Each of the above issues has as its underlying cause the lack of capacity of
individuals, families, organizations and the neighborhood in general. How is it
that we can begin to build the capacity of individuals and institutions to address
these issues on an immediate level and prevent their recurrence in the future?
Recreating a Sense of Community Within the Neighborhood
The first step to rebuilding capacity within the neighborhood is recreating a
sense of community within the neighborhood. As neighbors work together to
identify issues and priorities and chart a course of action for the future, a sense
Of community is built. That alone is unlikely to be enough to reestablish
community once it has broken down. The strategic plan will need to contain
strategies that establish and reinforce community.
57
Southeast Quality of Life
Strategic Neighborhood Action Plan
An important aspect of recreating a sense of community is structure.
Neighborhoods have both formal and informal structures. These elements link
residents together and cause them to function as a neighborhood rather than
independent and isolated individuals. Crime, transients, empty lots, boarded up
houses, language barriers, and the stresses of daily existence sever the physical
and emotional ties between individuals and cause these structures to
breakdown. This breakdown has left the SEQL neighborhood fragmented.
1. SEQL as a Formal Neighborhood Structure
The first structural element that must be reinforced to recreate the sense of
community is the SEQL organization. SEQL must become a formal and
recognized neighborhood organization. It must develop an institutional identity
separate from the group of interested individuals who came together around
areas of mutual concern. To do this will require the commitment of individual
residents to act as the legal trustees of the neighborhood. Moreover, the
institution must share the confidence of the neighborhood as a whole.
Building confidence in the SEQL begins with the establishment of a formal legal
structure including bylaws, a Board of Directors, officers, 501(c)(3) status,
committees, and procedures for operations. This confidence is upheld through
the leadership and actions of the trustees of the organization in such actions as
the publication of established meetings dates, creation of a formal line of
communication between residents and the Board, and the development and
carry forward of projects which benefit the neighborhood as a whole. Before
SEQL can embark on the successful implementation of a neighborhood strategic
plan it must create the structure of its organization to support such a plan.
2. Knowing the Neighborhood: The Neighborhood inventory
A second aspect of a sense of community is knowledge about the parts that
make up the whole of the neighborhood. Numerous participants in the
neighborhood meetings suggested the need and desire to know and use existing
resources from within the neighborhood. The resources of and for the
neighborhood refer not only to its access to essential services such as health
care, groceries, child care and the like but more importantly to the resources of
individuals such as the knowledge of the elderly and the energy of youth. The
assets of the neighborhood could be developed and better utilized by the
58
Southeast Quality of Life
Strategic Neighborhood Action Plan
creation of The Neighborhood lnvenrory.
The Neighborhood Inventory would be just that, an inventory of the businesses,
services, institutions, families, and individuals in the neighborhood; and, the
products, skills, and services they are willing to share as a volunteer, for a fee,
or in return for some other product or service. Individual skills might include
story telling, child care, yard work, home repair, painting, tax preparation,
tutoring, homework, transportation, or gardening. The Inventory may be a loose
leaf binder, perhaps a spiral bound notebook with ample places for notes, or a
computer data base at the partnership center.
Information for the Inventory could be gathered by a questionnaire administered
through the mail or in person. It might be the first project of the next strategy
Block Captains. Possible partners may include churches, school groups, or
neighborhood clubs. The cost of printing and materials could be covered by the
sale of advertisements to local merchants or individuals wishing to promote
their services. Additional interest in the Inventory could be generated by the
availability of discount coupons to all who complete the survey.
It is important to remember the point of this Inventory. It is not simply an
opportunity for self -promotion, rather it is an opportunity to create self and
neighborhood awareness. For example, transportation to the grocery for an
elderly resident may be traded for an afternoon of stories for one's children. The
Inventory presents an opportunity to get to know your neighbors, appreciate
their skills, and become more neighborly.
One potential problem exists for the use of bartering if made a formal part of
this strategy. Formal bartering, though an accepted practice in many cultures,
and active in some locations in the U.S. is scrutinized by the IRS where the sale
of goods or services would have resulted in revenues paid to the IRS. This
issue would have to be resolved at some point in the future.
3. Improving Neighborhood Structure and Communication: SFQL Block
Captains
Neighborhood structures are generally informal, made up of a vast network of
communicators (some would say busy -bodies) who carry the news of the
neighborhood to others within their own grouping. Groupings are made up
59
Southeast Quality of Life
Strategic Neighborhood Action Plan
generally of retired men and women, and stay -at -home -mothers and their
children, both who are at home in the neighborhood during the day, and a third
grouping of neighborhood businesses. Interaction between the groupings is a
function of geographic proximity --- a stay at home mother lives next door to
a retired person --- or another relationship such as marriage or church
membership. Numerous things may cause these informal networks to
breakdown. Fear to leave one's home, dual -income couples working outside
the neighborhood, or language barriers may cause the breakdown of these
informal means of communication.
When the informal mechanisms are not enough, formal mechanisms may be put
in place to establish lines of communication. One way to structure
communication within a neighborhood is through Block Captains. A block
captain takes charge of the flow of information for their block. He or she makes
a point to know all those who live or work on that block making frequent
informal contact with them. Captains ensure that residents are informed of
neighborhood issues and gather comments and questions for neighborhood
leadership. In addition they are a source of knowledge on the status of
neighborhood problems and assets.
Block Captains generally volunteer for their role but they may need to be
encouraged. It is most useful if the position rotates but that is not necessary to
the structure. Blocks may be square blocks or block faces or another grouping
as appropriate. More important, the structure must be consistent and easily
recognizable to residents of the block. A sign or flag may be an easy way to
establish who Block Captains are at any given time.
The Block Captain strategy is an easy one for success if the job has clear goals
and guidelines and is not too time consuming for the Captain. One caution is
that sometimes those who volunteer readily are already too busy and are not
at home enough to be available as a neighborhood trouble-shooter. In that
situation, someone who is at home more frequently but still feels comfortable
out in the neighborhood may be a better choice. Another potential trouble point
is when the issues gathered by the Block Captain fall on deaf ears. Success of
this strategy requires active and sympathetic leadership recognized in the
neighborhood organization.
Southeast Quality of Life
Strategic Neighborhood Action Plan
Creating and Reinforcing Linkages with Existing Institutions
Institutions often exist in a vacuum from the neighborhood within which it is
located. Although the high school is centrally located within the neighborhood
and serves many neighborhood residents, it does not depend solely upon the
existence of the neighborhood to keep its own doors open. Yet, one of the
most important assets within the neighborhood is Riley High School. The
Neighborhood must strengthen its relationship both with Riley School and other
neighborhood institutions including Studebaker Elementary School, Memorial
Hospital Clinic, Boys and Girls Club, banks, and neighborhood business to name
a few. These institutions are key neighborhood resources. Establishing and
reinforcing these linkages will strengthen the community and increase access
to resources to build the capacity of individuals and families.
Prevention Measures
Creating strategies which prevent not just remediate or treat symptoms requires
both identifying the root causes of crime, low self-esteem, and other social ills
and also committing to working toward its alleviation over the long term.
Prevention has little immediate rewards and success occurs when something
fails to occur -- when something was prevented --- rather than when something
occurs.
Long term capacity depends upon the building resources and neighborhood
assets. For example, long term neighborhood capacity depends upon residents
accumulating skills toward a degree, residents accumulating funds to buy a
home or go to college, or an organization effectively serving its supporters over
many years. A major barrier to the building of capacity within low income
communities is the lack of future orientation and the institutionalized inability
to build assets for the future.
Creating a Future Orientation Through Asset Accumulation
The accumulation of assets is a difficult concept for many due to their need to
see positive results TODAY. Moreover, individuals on public assistance are
penalized if they begin to accumulate wealth or assets. The allowance for
accumulation of assets is very limited. However, it is crucial for the future
success of the neighborhood that residents have a future orientation -- a vision
61
Southeast Quality of Life
Strategic Neighborhood Action Plan
of their future; residents must take actions always looking toward that future,
Residents also must understand the need for long term asset accumulation.
• Individual Development Accounts for Education
An Individual Development Account (IDA) for Education would be an account
for young, school age residents of the neighborhood to encourage them to save
and focus toward the long term goal of education. Deposits made by the youth
would be matched by the neighborhood through a variety of sources.
Ideally, Studebaker Elementary and Riley High School would be partners in this
project and would work education and information about the accounts into their
school curriculum. Financial planning and personal economics would become a
part of the school curriculum. Planning for the use of the IDA would also serve
as a mechanism for developing a future orientation. Specific planning skills and
planning exercises would be built around each student's IDA. For IDA
participants, this exercise would involve real funds and real plans; therefore, the
learning process would be meaningful in a way that no traditional economics
course or personal finance course could ever be. In addition, school sponsored
projects oriented toward developing funds for deposit might be arranged.
IDA Accounts would be set up for long term educational goals only. Withdrawal
of funds for other purposes would forfeit the match and any earned interest.
Forfeited match and interest would return to the match fund for other
depositors.
Other partners that may be interested in participating by accumulating the
match fund or participating in asset accumulation strategies for the youth, may
include the Urban Enterprise Association, which has already expressed interest
in this concept, local businesses, foundations, and civic groups.
4. Community Based Economic Enterprises
Strategies for the long term health of SEQL and its support of the neighborhood
may also be based in a future orientation and asset accumulation through
community based economic enterprises. The neighborhood priorities expressed
in the neighborhood meetings of local control, reducing imports, neighborhood
employment, and better use of local resources all point to a very different
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Southeast Quality of Life
Strategic Neighborhood Action Plan
orientation. Fulfilling these priorities requires an attempt to undertake
development in a way that preserves local control of productive assets through
institutions that are anchored in and accountable to the community. Such
institutions build the capacity of the neighborhood in a very tangible way ---
through broad community ownership.
Community Based Economic Enterprises rely on cooperative or collective
ownership of shares of an enterprise. Shares may have been acquired initially
by sweat equity. Jeff Shavelson, in his book _Third Wav A Sourcebook
innovations in Communit Owned Enterprise identified the best Community
Development Corporation owned enterprises are those that match the
capabilities and interests of their local communities with the product or service
they produce. Examples include the repair of automobiles; the manufacture of
modular furniture for hotels with single occupancy rooms; or the introduction
of recycling projects to urban areas with problems of litter and high
unemployment.
Mom's Enterprises, owned by the Blackbelt Human Resource Development
Center, is the manufacturer of an all purpose cleaner that is sold door -to door
and to local outlets. The enterprise employs 5-10 workers who are referred by
the local JTPA office. A primary mission of the enterprise is the training of
minority women. In the research for Mom's Enterprises they turned to the
University of Alabama that identified three criteria for a product's commercial
viability:
1 - The product must be easily produced and distributed;
2 - The product must meet the needs of job training for the area's low-
income, minority residents; and
3 - That it establishes a competitive niche in the market.
A product which meets the initial criteria would be the creation of a child care
collective. Future arrangements might include the development of a SEQL
owned child care center or the creation of self-employment opportunities in
child care.
63
Southeast Quality of Life
Strategic Neighborhood Action Plan
TASK FORCES
Neighbors began taking an active role in leading the planning process b
joining
Task Forces. The Task Forces were the key elements of the strategic planning
process. The Task Forces were short term commitments by individuals who
wanted to take an active role in planning for the future of the community. The
four Task Forces directly assisted in the planning of key actions and programs
to improve the quality of life in the neighborhood. Participants were divided into
Task Forces focusing on Housing; Land Use and the Phvsical Environment;
Caoacity Building; and Neighborhood Security issues. Based on the findings in
the Working Papers, the Task Forces determined an overall strategy to guide
their goals setting and action development activities.
Each Task Force then determined specific lo'hq and short term goals to improve
life in the neighborhood. The Task Forces detailed specific actions geared at
accomplishing those goals and identified existing assets which could be built
upon to accomplish those goals. The goals are listed in the Strategic Plan Table
that follows. The Task Forces also assigned parties to be responsible for
ensuring that the specified action was completed. Each group's missions and
charge is detailed below.
64
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Southeast Quality of Life
Strategic Neighborhood Action Plan
-Rent-a-Teen program
-Curfew
BARRIERS: -Neighborhood participation lacking
-Curfew not enforced
-City resource allocations
ACTION STEPS:
1. Enforce curfew,
2. Expand programs to improve locks and security (smoke detectors) and add
yard lights.
3. Move street lighting from north of Broadway as redeveloped for other
uses.
4. Expand tree trimming program
5. Hire Rent -a -Teen from partnership center to control overgrown areas
(bushes, etc.) around private houses.
6. City keep weeds cut on private property and assess cost to the owners.
7. Create a demonstration program using capital improvement funds to close
streets and place speed bumps to reduce through -traffic and create a
sense of neighborhood, beginning in fiscal year 1995.
8. Use CDBG and UEA funds starting in fiscal year 1995 to extend lighting,
tree trimming, and security and lock programs to all residents of South
East neighborhood.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Elements to be Developed over the Short Term
(One to Three years)
*Community Policing
GOAL: Reduce the fear of crime in the South End neighborhood by the
higher visibility of police patrols
PROJECT: Through community policing, reduce the fear of crime, build
direct communication links between the police and the
neighborhood, and generally make the neighborhood safer.
ASSETS: -Existing community policing _programs (NRAP patrols,
neighborhood watch, MARC, etc.)
-New omnibus crime legislation.
-Neighborhood telephone chains.
-The lock and security program.
BARRIERS: -Police precinct stations tried unsuccessfully in the past.
-Lack of police manpower for foot patrols.
-Perception that Police are unwilling to walk or bike neighborhood
on a regular basis.
ACTION STEPS:
1 . Using the new omnibus crime legislation, starting in fiscal 1995, provide
two officers for each beat, working out of the partnership center, to
provide a combination of foot and bicycle patrols as a demonstration
project for the City.
2. Under the direction of the police department supervisors, provide for
officers to spend regular office hours at the center to take citizens
complaints and gather information about illegal activities occurring in the
neighborhood, ie. drug houses, gang activity, and expand key programs
such as the neighborhood watch. Must be coordinated with the activities
of the SEAL newsletter and Partnership Center committee.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
3. SEQL Board/Neighborhood Security Task Force meet with police quarterly
to monitor the program and to improve it, including additional programs
operated the partnership center.
4. City to create financial incentives, ie. special mortgage program, to
encourage police to live in South East neighborhood as well as other at risk
neighborhood in the City.
Elements to be Developed over the Medium Term
(Three to Five years)
"Safe Havens
GOAL: Safe, drug -free, gang -free environments for both students and
adults rn which to learn and improve their skills
PROJECT: Establish safe havens at the new Riley High School campus, the
New Boys and Girls Club and South East Partnership Center for
both students and adults from the community.
ASSETS: -New construction at Riley High School and Boys and Girls Club
and rehabbed South East Partnership Center.
-Adult and high school educational programs (including project
DARE).
-Crime prevention programs operated out of partnership center.
BARRIERS: -Danger to children on the street and at school from drug dealing,
gangs and threats of violence, including from knives and guns.
-Lack of access to school sites after regular school day.
ACTION STEPS:
1 . Under the direction of the Boards and staff, design a new Riley Campus
and Boys and Girls Club, which are safe, full service, and designed for
adult as well as student educational weeds, and operating a program
which benefits the community through an extended day into the evening
hours.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
2. Lock down Riley High School during the day, in particular, the lunch hour.
3. Sources of funding include the new omnibus crime legislation which has
funding for Boys and Girls Clubs, midnight basketball programs and other
type of prevention programs (ie. project DARE).
4. Under the leadership of the SEQL board, expand neighborhood security
Programs offered at the partnership center.
Next Steps
. Block Watches
The most important next steps for the Neighborhood Security Task Force
is the organization of the South East neighborhood into well organized
block watches. Starting in October/November, 1994 a block club a month
needs to be organized. From the block captains to the active block
residents will be drawn the manpower to carryout many of the other
community driven activities, such as the informational picketing effort
aimed at prostitute and drug dealers. The neighborhood organizer must
also assist in this organizing effort.
2. Police Pamership
The Police must assist in neighborhood watch and become a full partner
in the community policing effort. Without the police department's full
cooperation with the goal of this program including foot and bicycle
patrols, the partnership with the neighborhood will not be fully realized.
Prevention needs to be embraced by the police as of equal importance with
the criminal apprehension function. Reductions of the perception of crime
can add to the well being of the neighborhood as well as the number of
arrests.
3. Institutional Partnership
The institutions in the neighborhood need to become full partners with the
SEQL board to allow for such programs as safe havens to succeed. The
City School Board and the Boys and Girls Club are to play particularly key
roles in this effort.
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Southeast Quality of Life
Strateoic Neiahbnrhnnri Antinn ot.n
Lastly the Mayor and City Council need to provide leadership and
resources to the South East neighborhood. Fortunately new resources are
available through the crime legislation. Although, those must be
completed for with other. municipalities, South Bend has a reputation of
being successful in their planning grantsmanship. Priority needs to be
given to South East if this neighborhood is not to be destroyed from within
by crime as well as from without by the wrecking ball. It will take courage
on the part of the Mayor and City Council to target resources, such as
capital improvement funds, to this neighborhood with so many competing
and worthy projects to choose among and limited available resources.
How Does Neighborhood Security Relate to Other Task Forces?
The reduction of criminal activity in the neighborhood is essential to the success
of any of the other task forces. Crime is like a neutron bomb, you can improve
the physical condition of the neighborhood but without rooting out the criminal
elements living within the neighborhood and operating on its fringes, the
community regresses to its previous state of decline.
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PROJECT PRIORITIES AND THE OVERALL STRATEGY
The strategic planning process used in the development of this plan relies
heavily on input from the public and task force members. The selection of
projects and setting priorities for their implementation also respects the
importance of community involvement in selection of specific projects. The
selection of projects and the setting of priorities significantly influences the
overall strategy to guide the implementation of the plan. Furthermore, the
overall strategy is dependent upon the level of commitment by the
neighborhood in the implementation of the projects. As a result of the public
forum and leadership meeting on November 15 and 16, priorities were set
which are reflective of neighborhood choices and the overall strategy to guide
implementation of the strategic plan.
Neighborhood Priorities
The public forum on November 15, 1994 had two key objectives to accomplish.
First, each Task Force chair presented that Task Force's portion of the draft
plan to the public. The chairs described the process to -date, the overall guiding
strategy, and the programs or action steps to be under taken by the Task Force
the neighborhood, and SEQL. Following their presentations, the public voted
on their top priority projects within each Task Force.
Housing
The top priority as voted by the public for the Housing Task Force was to gain
the organizational capacity establish a neighborhood -based Community
Development Corporation to intercedand prevent the further decay of homes
and blocks within the neighborhood.
Land Use and Physical Environment
The top priority as voted by the public for the Land Use and Physical
Environment Task Force was to encourage and develop home ownership for
residents of and new comers to the neighborhood.
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Capacity Building
The top priority as voted by the public for the Capacity Building Task Force was
to organize the neighborhood into blocks with individual block captains. The
captain would solicit comments from residents and make residents aware of
upcoming issues and events. Each block captain will also be part of a crime
telephone tree to alert the police in the event of a resident's report of criminal
activity.
Neighborhood Security
The top priority as voted by the public for the Capacity Building Task Force was
to reduce the number of prostitutes and drug dealers living/working in the
neighborhood through informational picketing, publicity, and tracking court
cases. _
Leadership Priorities
The following evening, SEQL leadership and representatives from the Consultant
Team met to set the organization's priorities and through this process determine
the overall strategy guiding organizational activities. The strategy, to be useful,
needs to be flexible and responsive to changes in the neighborhood's priorities
and resources overtime. As such, the following criteria were agreed upon and
used as a basis for establishing the priorities within the Strategic Action Plan
and should remain consistent even if conditions or leadership change over time.
Strength of O000rtunit
The strategy should emphasize projects which pose the greatest opportunity.
An opportunity exists when improvement in the condition of the neighborhood
are likely to be measurable and visible.
Achievable by the Neighborhood
Projects should be chosen only if the neighborhood can complete the project
given existing capacity and resources of dollars, time, skills and human energy.
One measure of the likelihood of being achievable is whether the individual
action steps are within the organization's control and not dependant on outside
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resources. The chance for success should outweigh the chances for failure
Organizational Fit
The projects should fit the character an resources of the organization's
members and leadership.
Investment Value
Generally a project which is an investment in the future of the neighborhood
should take priority over projects that have only a one time benefit. The
analogy of "giving a man a fish versus teaching him how to fish" should be
considered when choosing priorities. The exceptions would include the
desirability of making visible progress and establishing momentum.
Leadership Commitment
The strategy should support only those projects which receive the leadership's
commitment and dedication to carrying out the project through to completion.
Common Links
The pursuit of common links and the ability to address more than one
neighborhood goal with a single project should be made a priority. For example,
if homes can be built within the neighborhood by neighborhood residents who
trained in a neighborhood -based apprenticeship program you have made several
significant accomplishments. You not only have made valuable links among
neighbors, you have created jobs, created new homes and improved the overall
neighborhood environment. Those links between task forces will prove
invaluable to making significant progress on individual tasks.
Leverage
The strategy should pursue projects which make use of leverage. This is the
use of neighborhood resources and projects which motivate outside sources and
agencies to commit their own resources and make improvements which benefit
the neighborhood or the City as a whole.
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Cost and Benefit
The process of choosing priority projects can also consider the cost versus the
benefit of a given project. The effort and expense of completing the project
must be worth the results likely to occur if the project is a success and should
exceed what would occur if the project were not pursued.
The leadership evaluated each program from each Task Force based on these
eight criteria. Following the leadership's evaluation, the group ranked all
programs in terms of the highest priority for program implementation. To
accomplish the ranking, each individual was given five stickers to vote for their
high priority program(s). The individual could vote for one to five programs --
he/she could use the stickers to vote once for five programs or attach all five
stickers to one program or any combination of weighted ranked the individual
felt to be appropriate. The leadership was then given three stickers to vote for
their second highest priority program(s). The same procedure was followed.
Based on this ranking the following charts indicate the priorities set for the
programs and projects within the Task Forces.
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PROJECT PRIORITIES
SEAL LEADERSHIP
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PROJECTS
0 FIRST VOTE 0 SECOND VOTE
HOUSING PROJECTS
VOTES
PRIORITY EVALUATION SHEET
Consolidated Results of
SEQL Executive Committee
Consensus Building Session
H1 10 Establish a Neighborhood -Based Community Development Corporation to Intercede
and Prevent the Further Decay of Homes and Blocks Within the Neighborhood.
H2 4 Determine Feasibility of Relocating Suitable Homes from Riley High School
Expansion & Redevelopment North of Broadway.
H3 0 Establish and Maintain a Success Monitoring System.
H4 2 Recruit Landlords to Participate in a Rental Referral Monitoring System.
CAPACITY BUILDING PROJECTS
VOTES
C1 2 Conduct a Block -by -Block Survey of SEOL Residents' Skills and Needs, and
Distribute Skills Inventory Using a Printed "Neighborhood Directory".
C2 7 Organize the Neighborhood Into Blocks with Individual Captains Who Will Solicit
Comments from Residents and Make Residents Aware of Upcoming Issues and
Events; Each Block Captain Will Also Be Part of a Crime Telephone Tree to Alert the
Police in the Event of a Resident's Notice of Criminal Activity.
C3 1 Foster Mutual Involvement with Private Organizations and Social Groups such as
Klwanls, Ladies of Diatlnctlon, Knights of Columbus, etc.
C4 2 Organize Events which Showcase Neighborhood Assets and Encourage South Bend
Residents to Visa the Neighborhood, to Move to the Neighborhood, and to Patronize
Neighborhood Businesses.
CS 0 Gather Success Stories & Promote Them in the SEAL Newsletter & Local Media,
C6 10 Actions to promote a new Riley High School to be built In the SE Neighborhood.
NEIGHBORHOOD SECURITY PROJECTS
VOTES
S1 8 Reduce the Number of Prostitutes and Drug Dealers Uving/Working in the
Neighborhood Through Informational Picketing, Publicity, and Tracking Court Cases
S2 3 Organize the Neighborhood Watch Program Working with the Crime Prevention
Division, SBPD
S3 1 Make Property More Secure by Improving Locks, Trimming Trees, Improving Street
and Yard Lighting, and Making Streets Safer
S4 4 Through Community Policing, Reduce the Fearof Crime, Build Direct Communication
Unks Between the Police and the Neighborhood, and Generally Make the
Neighborhood Safer
S5 3 Establish Safe Havens at the New Riley High School Campus, the Boys and Girls
Club and SE Partnership Center for Neighborhood Students and Adults
LAND USE AND PHYSICAL ENVIRONMENT PROJECTS
VOTES
L1
0
Continuation of Current Neighborhood Boundaries and identity
L2
2
Housing Stabilization
L3
9
Home Ownership Encouragement and Development
L4
3
Quality inflil Housing Development
L5
6
Park and Greenspace Plan Adoption and Implementation
L6
3
Land Use and Transportation Plan Implementation
L7
0
Zoning Change Implementation
L8
0
Enhancement of Neighborhood Institutions - Visual Impact
L9
0
interim Vacant Land Use Programming
L10
3
Maintenance of Strong Commercial Strips on Michigan and Miami
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Strategic Neighborhood Action Plan
SEAL LEADERSHIP PROJECT PRIORITIES
Take action to promote the development of the new Riley Nigh School in the
neighborhood. The leadership was strongly committed to taking immediate
action to accomplish this task particularly since its positive results provided an
extremely strong opportunity for the neighborhood. The leadership also felt that
the task was achievable by the neighborhood and was an investment in the
future of the neighborhood.
An equally high ranking priority for the neighborhood was to gain organizational
capacity to establish a Community Development Corporation (CDC) to intercede
and prevent the further decay of homes and blocks within the neighborhood.
The leadership was strongly commited to gaining that capacity and pursuing
CDC status. Not only would it be a strong opportunity for the neighborhood,
but it is an investment in the future of the neighborhood. Although the
achievability of attaining CDC status is at least partially reliant upon outside
influences, the leadership felt that this was an essential task to accomplish.
A high priority as determined by the leadership was to encourage and develop
home ownership within the neighborhood. Increasing levels of homeownership
provides a strong opportunity for the neighborhood and is a a long term
investment in the neighborhood. Furthermore, the leadership is strongly
committed to this task, but they also felt that given their current capacity, the
potential achievability of the task was low at this time. However, as mentioned
previously the leadership is strongly committed to buildling their capacity in
order to achieve these tasks.
The leadership was committed to reducing the number of prostitutes and drug
dealers living/working in the neighborhood through informational picketing,
publicity, and tracking court cases. The leadership felt that this task provided
a strong opportunity and investment in the neihborhood and was achievable if
more neighbors became involved.
Another key priority strongly committed to by the leadership was organizing the
neighborhood into blocks with individual captains who would solicit comments
from residents and make residents aware of upcoming issues and events. Each
block captain would also be part of a crime telephone tree to alert the police in
the event of a resident's report of criminal activity. The leadership felt that this
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task provided a strong opportunity for the neighborhood and was a strong
investment in the neighborhood. The group perceived the achievability of this
task as very strong potential.
The leadership was committed to the adoption and implementation of a park
and greenspace plan. The leadership felt that this task provided a strong
opportunity and long term investment for the neighborhood and achievable
within a short term time frame.
Overall, the priorities set by the SEQE leadership were more or less the same as
those set by the public -at -large at the neighborhood forum.
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APPENDIX A
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APPENDIX A
INTERVIEW SUMMARY
Interviews were conducted with key representatives from the community --
residents, property owners, businesspersons, ministers, and institutional users.
The purpose of the interviews was to gain insight to the positive and negative
perceptions from those within, those supporting, and those looking in to the
neighborhood.
Key persons interviewed included:
Steve Newton, Lifehouse
Marco Mariani, City of South Bend
Vicky Black, SEQL, Landlord
Brian Hay, Hay Funeral
Ira Salls, McDonalds
Glenn Herron, SEQL
Rev. Read, Minister
Deborah Elliott, Boys and Girls Club
George McCullough, Principal Riley High School
Vice Principal Riley High School
Multi -Cultural Club Advisor from Riley High School
Mrs. Newley, Resident
Mario Islas, Resident/Entrepreneur
Aifeo, Resident
Carl Ellison, Memorial Hospital
Mike Mather, Minister
Jeff Gibney, West Washington
Lisa Gilman, LISC
Karla Spradlin, City of South Bend
Mike Mather, Broadway Christian Church
Garry Roberson, Resident
The individuals interviewed had generally positive impressions of the
neighborhood. There is a solid foundation to support a strong neighborhood
structure. Multiple generations of families, single family housing, churches,
Riley High School, SEQL, and service organizations like Real Services, Head
Start, and UrbanCare all are recognized as essential components which
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contribute to a strong neighborhood core. However, interviewees stated that
core is being threatened with the infusion of drugs and crime, deteriorating and
boarded up housing, an increasing proportion of rental properties, vacant lots,
decaying infrastructure, and the increasing numbers of large institutional users
into the neighborhood. "If we don't do something soon, there won't be a
Southeast Side neighborhood."
Interviewees suggested that the neighborhood has a history of joining together
to work toward a common goal such as the Bowman Creek United Neighbors
and following the Coleman shooting groups rallied together to oppose violence
within the neighborhood. However, interviewees repeatedly stated that a lack
of resident participation supporting SEQL and in this planning process has been
a frustrating obstacle to overcome. Determining ways to increase resident
participation should be considered to be a key objective. Further, youth and
adult leadership training was also consistently identified as a key program to
implement to ensure that the neighborhood will have a constant supply of
active, vocal leadership from the community in the future. Interviewees
supplied numerous names of persons who have actively supported
neighborhood activities in the past and could be helpful in the strategic action
planning process.
The housing issue was of great concern to all interviewees. Homes are being
acquired, boarded, demolished, and either not replaced or institutional users are
taking them over. They implied that a critical mass of single family housing
must exist to preserve the neighborhood. Interviewees would like to see a
stabilization within the neighborhood. They further identified the relocation
program as a.great benefit to the community. Homes are acquired by the HDA,
relocated, rehabilitated, and residents are placed. An important portion of this
program that should be expanded, according to interviewees, is a "homeowner
maintenance" program. New homeowners need continued support and
education on the basics of homeownership, budgeting, property maintenance,
etc. Further, there are several other funding sources through city programs to
assist with home rehabilitation and infrastructure improvements. Further, banks
should work closer with the neighborhood residents in presenting options for
homeownership financial support including demonstrating their own compliance
with the federally mandated Community Reinvestment Act.
Other housing issues revolve around the increasing proportion of rental
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properties within the neighborhood. When single family homes become
available, they are often purchased by investment property owners
("slumlords") who fail to rehabilitate or maintain the properties. Further,
interviewees stated that due to a lack of proper tenant screening, tenants are
increasingly becoming "bad characters" and negative influences on the
neighborhood. Interviewees would like to see conversion and rehabilitation of
many of the rental properties back to single family and the remaining rental
properties rehabilitated and managed by quality landlords. The interviewees had
mutual distrust of both tenant and landlords with respect to property upkeep.
Significant numbers of incoming institutional uses were also identified by
interviewees as a significant issue. Although several potential users such as Ivy
Tech may be of great benefit to the neighborhood as well as to the community -
at -large, concern was raised regarding the locations with respect to the
neighborhood character of the area, and the need of institutions to contribute
as a partner to the neighborhood's revitalization — through employee volunteer
work, employment opportunities, visual enhancement of the neighborhood, etc.
Open space and recreation were identified as key issues to address in the
planning process. Although the neighborhood has large park, since the
Coleman shooting, the interviewees said that residents have not used park
facilities. According to interviewees, the park is used primarily by drug dealers
and threatening individuals. Further, the existing parks are not adequately
staffed or properly maintained. "It's just not safe to use the parks," was a
frequent comment by residents. However, all persons identified a need for open
space and recreational opportunities, especially for youth. The Garden Program
sponsored by Revelation C.O.G.I.C. and the Fire Department, is one of several
successful programs making productive use of available vacant parcels while
simultaneously making productive use of youth energies.
Several key issues related to commercial uses were identified by interviewees.
First, all interviewees would like to eliminate the "adult" uses along the corridor.
They felt that not only do they perpetuate a negative image of the neighborhood
at large, they also serve as breeding grounds for criminal activities. Numerous
successful, "acceptable" businesses exist along the Michigan commercial
corridor, however interviewees felt that employment opportunities for
neighborhood residents at these businesses were limited. Alternatively,
according to several business owners, skilled workers from the neighborhood
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are difficult to find. A key objective identified by the interviewees would be to
increase the number of resident -owned businesses and minority -owned
businesses. These businesses could not only help improve the image of the
neighborhood, but they could also increase employment opportunities for
neighborhood residents, offer training in business management for future
neighborhood leaders, and serve the purchasing demands of residents.
Interviewees would especially like to see a grocery store and laundromat within
close proximity to the neighborhood. Also of key importance in future efforts
to interviewees is the increased participation in neighborhood revitalization
efforts by the Southeast Gateway Business Association. As an adjacent user
and as a boundary of the neighborhood, the business association will be vital
in enhancing the image of the neighborhood and the long term success of the
project.
Neighborhood youth were identified as one of the area's greatest resources.
However, opportunities for leadership development, employment, recreation,
and mentoring are limited. Although several organizations have active youth
programs including church -sponsored youth drill team, Bible studies, the Boys
and Girls Club, etc. opportunities should be expanded. All interviewees feel
that the youth should be of top priority in planning programs and should play
an active role in the planning process.
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CAPACITY BUILDING STRATEGIC PLAN
Introduction
The societal behaviors that identify a lack of a sense of community and a loss
of neighborhood power are evident in the high rate of crime, homes showing
signs of neglect, lack of services, and high unemployment rate. All are issues
of extreme concern in the SEQL neighborhood. The Capacity Building Task
Force was formed to identify and bolster the individual and organizational
elements of capacity which make up a healthy, functioning neighborhood.
Mission Statement
"The Task Force should identify actions and programs which allow
residents to better themselves and to have a better life. They
should also identify actions which allow neighbors to do things for
each other to improve neighborhood life without needing to depend
on outsiders, "
The Mission Statement for the Capacity Building Task Force is a statement of
empowerment: building the capacity of the individuals who live and work in the
SEQL neighborhood to care for themselves and each other. Capacity building
has been discussed elsewhere in this plan as divisible into three primary
categories:
1 . Building the capacity of individuals;
2. Building the capacity of the SEQL organization; and,
3. Building capacity by creating or accessing the structures which support
capacity or the development of capacity.
Issues
There were five primary issues of concern to the residents of the SEQL
neighborhood.
1. The Assets of the Neighborhood are Under-utilized: Residents felt that they
were unaware of their own or their neighbors personal skills and that in
particular they undervalued the contribution that youth and seniors could
Southeast Quality of Life
Strategic Neighborhood Action Plan
make in the neighborhood. Moreover, there are several educational
institutions which have not been tapped as resources for the overall
development of the neighborhood.
2. There is a Lack of a Positive Neighborhood Self-image: Newspaper and
televised reports of criminal activity, declining property values, and low
individual attainment have eroded a sense of worth and achievement in the
neighborhood.
3. Weak Nei hborhood Organization: The neighborhood is not well organized
or well defined. Moreover, SEQL, the organization created to represent the
neighborhood cannot do so without the support of the neighborhood
behind it.
4. The Businesses and Residents do not Participate in Neighborhood Projects
and Events: Much of the activity of the neighborhood is taken on by a
handful of neighborhood residents and businesses. Most businesses and
residents are unaware of projects and events due to a lack of formal and
informal communication. Some residents and businesses who are aware
s of activities cite a lack of time or lack of trust in SEQL as a leader of the
entire neighborhood.
5. The Neighborhood is not Unified: Many residents voiced a feeling of
personal isolation in the neighborhood. They were not acquainted with
their neighbors. Seniors, in particular, felt fearful in the neighborhood.
Some residents felt the their was little of the neighborhood parenting that
is common in close neighborhoods.
Strategic Methodology
The Task Force began its work to address the primary issues by discussing the
elements of capacity building as it related to empowerment. Both individuals
and organizations can build their capacity by increasing their power. Power has
three functional elements: strength, wealth, and knowledge. By working to
enhance these elements, the Task Force will build the capacity of its individual
residents and the SEQL organization.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
The following three statements form the Strategic Methodology as devised by
the Task Force to guide its work.
Build capacity through strength by enhancing individual self-esteem; joining
forces as a neighborhood; and creating strategic alliances with others
outside of the neighborhood.
Build capacity through wealth by creating individual and neighborhood self-
sufficiency through asset accumulation.
Build capacity through knowledge by supporting individual education and
life-long learning; knowing and sharing of neighborhood resources; and
attracting and supporting the growth of educational institutions within the
neighborhood.
Elements of the Strategy
There are seven elements to the strategy which may evolve and be developed
over a period of approximately seven years. Five of these elements were
originally introduced in the Capacity Building Working Paper and two were
developed out of the work of the Task Force. Only one of the strategy elements
will be developed immediately. But, several of the strategy elements interact
and support each other and may be developed easily upon the success of the
first element.
As was mentioned in the Capacity Building Working Paper, the success of all
of these strategies assumes that SEQL will exist as a legal corporate entity with
a formal Board of Directors, officers, and standing committees developed
through a formal process of development including: incorporation, 501 (c)(3)
status, and Board development and leadership activities. Moreover, success will
depend on the process of its actions. SEQL must meet regularly with a quorum
present to do business; take responsibility for its future by planning and taking
appropriate actions; and, it must develop adequate funds to support its projects.
The Board will further develop its capacity through the implementation of the
projects contained in this plan, but throughout the life of the Board, leadership
and trustee development activities should be undertaken as well as continuing
strategic planning for the Board and the neighborhood as a whole.
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It is important at this early stage of SEQL's development that the organization
of the Board and its operations remain simple while recognizing the legal trust
and responsibility placed in Board members. Membership on the Board should
be balanced. When considering the issue of balance consider characteristics
such as the following: geography, race, ethnicity, sex, special skills (legal,
accounting, fund development, leadership), time, and individual commitment.
It is not necessary for all members of the Board to be neighborhood residents.
This is a matter of preference. The Board may choose to have non-resident
advisory members. Owners and managers of businesses in the neighborhood
may or may not be considered residents for voting purposes. However, it is
important to include businesses on your Board.
An initial organizational chart might look like the following. SEQL has eleven
Board members. The Chairman, two Vice -Chairmen, the Treasurer, and
Secretary make up the Executive Committee. The Executive Committee is
empowered to act in the absence of the full Board and between meetings of the
full Board. Standing committees might include: finance, chaired by the
Treasurer; administration, personnel, and the Partnership Center, chaired by one
Vice Chairman; membership and communication, chaired by the Secretary; and
special projects, chaired by the other Vice Chairman. Standing committees
generally do not include members from outside the Board but SEQL may choose
to have the Block Captains sit on the membership and communication
committee to formalize and strengthen the link between the Captains and the
Board. Four additional Board members might chair the four subject area (ad hoc)
implementation committees of this strategic plan ---security, housing, land use,
and capacity building. There would be two at -large members of the Board.
Partnership Center personnel are employees and do not sit on the
administration, personnel, and Partnership Center committee.
Elements to be Developed Immediately
Neighborhood Skills Inventory "Neighborhood Directory"
Goal: 8ring neighborhood closer together by building a base of information
for emphasis on personal assets to prepare the way for future
projects ie. Block Captains Telephone Chains
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Project: Conduct a block -by -block survey of SEQL residents' skills and needs,
and distribute skills inventory using a printed "Neighborhood
Directory".
Assets:
newsletter
partnership center
stores
library
schools
churches
other organizations
consultants
planners
neighborhoods identified leaders
names and addresses available from City Planning
South Gateway Business Directory
some information already available
NRTSC
Barriers:
cost of producing directory
convincing people the information is important and we should do it
number of people to contact
people doing the inventory may need training
people don't respond to written questions
reluctance to give information to strangers
Lack of volunteers to conduct survey
Action Steps:
1. Create or obtain a list of all neighborhood residents by block, and a
neighborhood map to allocate residential blocks to the various survey
teams.
2. Create a survey document.
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3. Recruit sufficient people for survey teams. Proposed team to have a SEQL
resident paired with a non-SEQL resident. Teens would be included in
survey teams.
4. Conduct a training session with Notre Dame Laboratory for Social Research
to equip survey teams to collect information in a consistent, orderly, and
confident manner.
5. Promote and publicize the "Survey Blitz" through newsletters, newspapers
and posting notices to inform SEQL residents about the purpose and uses
of the survey, and encourage other South Bend neighborhoods to
participate in the training, development, and execution of this project to
gain the experience to conduct their own surveys in the future.
6. Prepare grant request to fund project.
7, if grant request is not approved, sell advertisements for the Directory to
neighborhood businesses to amass sufficient resources to print the
directory after it has been completed.
8. Organize a potluck dinner to follow survey to celebrate the success of the
event and thank volunteers.
9. Code and input survey data, identify resident needs.
10. Write and publish Directory.
11. Distribute Directory to all residents.
12. Facilitate service exchange between and among residents.
Proposed Schedule:
September Recruit survey teams
Determine survey blocks for each team to equalize load
Draft survey
early October Decision on dates
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October 12, 1994
week of October 31
November 5, 1994
November 12, 1994
November -January
January -February
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Strategic Neighborhood Action Plan
Neighborhood planning forum at Studebaker School
Train the Trainers session
Training session for surveyors
Survey date
Code and input survey data
Summarize survey data
Collect advertisements from
printing of the Directory
Write and publish Directory
SEQL businesses to support
Identify special needs of residents
March 1995 Distribute Directory to residents
Facilitate service exchange
Elements to be Developed Over the Short-term: 1 to 3 Years
Block Captains/Telephone Tree
Goal: To enable better communication between the residents of the
neighborhood and the SEQL Board,• and organize crime alert calls to
the Police without endangering any single resident of the
neighborhood.
Project: Organize the neighborhood into blocks with individual captains who
will solicit comments from residents and make residents aware of
upcoming issues and events; and each block captain will also be part
of a crime telephone tree to alert the police in the event of a
resident's notice of criminal activity.
Assets:
Neighborhood Directory
volunteers from Strategic Neighborhood Action Plan process
volume of neighborhood activity
need for communication
Barriers:
fear of certain residents
lack of time to be proactive
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Action Steps:
1 . Map residence locations of all SEQL meeting attendees on wall chart map
posted in Partnership offices.
2. Identify blocks or block groups and block captains; use flags or stickers to
identify the block captain's homes; use miniature flags or stickers to
identify the block captain's home on the map.
3. Inventory the residents of the block.
4. Make first personal contact with residents to check and update information
from the Neighborhood Directory.
5. Work with security task force to distribute information and train residents
to make the neighborhood more secure.
6. Each captain reports to SEQL on issues raised by the neighborhood and the
success of the process.
7. Regularly revisit block residents with newsletter and invite to next meeting
8. Continue process monthly and as needed.
Creatin❑ and Reinforcing Linkages: Building Bridges with Institutions
Goal: To create and reinforce linkages with key institutions within and
outside of the neighborhood which may build and support the
capacity of neighborhood residents and SEQL.
Project: Identify areas of mutual self interest with institutions inside and
outside of the neighborhood.
Assets:
partnership center
networking ability
diverse population
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Barriers:
time
lack of trust
inadequate power base (perception of unequal partnership)
Action Steps:
1. Identify businesses, organizations, and institutions within the
neighborhood.
2. identify shared areas of interest and concern with businesses,
organizations, and institutions within the neighborhood.
3. Pledge to support these businesses, organizations, and institutions in their
efforts and request support and assistance from them.
4. Identify businesses, organizations, and institutions outside of the
neighborhood from which the neighborhood may need assistance.
5. identify shared areas of interest for partnership opportunities.
6. Encourage inter -generational and inter -ethnic activities as a model for
South Bend as a whole.
Elements to be Developed Over the Medium -term: 3 to 5 Years
Inviting the Conlmunit In: Nei hbor to Nei hbor
Goal: To promote the SEQL neighborhood as a good place to live and do
business.
Project: Organize events which showcase neighborhood assets and
encourage greater South Bend -area residents to visit the
neighborhood.
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Assets:
Low rents
Attractive stores
Active and cohesive neighborhood
Success of previous projects
SEQL
New housing
New high school
Possibility for updated infrastructure
Barriers:
fear
public perception
time
lack of money
no "place " to do it
crime
no story to tell
Action Steps:
1. Continue to invite teachers and principals to task force meetings.
2. Plan and execute events to showcase positive assets of SE side ie..,
Gospel Fest, Block Party, Art Show, 5 K - 10 K Run.
3. Invite media to SEAL meetings.
4. Develop marketing plan with existing businesses to encourage specialty
shops to open in the area.
Compiling and Sharing Success Stories
Goal: To recognize the successes achieved in the SEQL neighborhood and
Promote them to residents of SEQI and the community at large
Project: To gather success stories and promote them in the SEQL Newsletter
and local media.
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Assets:
SEQL Newsletter
Channel 28
Church Bulletins
Pennysaver
NIPSCO
Individual residents
South Bend Tribune
Gospel Fest
Block Captains
NRTSC
Barriers:
reticence to tell story
money
time
Action Steps:
1. Gather success stories from block captains and individual residents.
2. Write stories for the SEQL newsletter.
3. Prepare formal press releases for the media.
4. Recruit story -tellers for special events and public speaking opportunities.
5. Organize special events, especially for children, to tell the stories of the
neighborhood.
Elements to be Developed Over the Long-term: 5 to 7 Years and Beyond
The more successful Community Development Corporations at work in
neighborhoods across the nation seem to be those that have begun to look at
long term strategies for asset accumulation in the neighborhood. Often CDCs
have looked to industrial development to shore up leaking neighborhood
resources and provide jobs for area residents. At present, the neighborhood has
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Strategic Neighborhood Action Plan
little control over the types of jobs created and the numbers of jobs filled by
neighborhood residents. Consequently, CDCs are looking for strategies that
work to build assets for residents and their organizations more directly.
The accumulation of assets is a difficult concept for many due to their
orientation toward today and a difficult practice due to the extreme limitation
of their incomes. Moreover, to those on public assistance, the accumulation of
assets is severely limited by their eligibility for public assistance. That fact
notwithstanding a focus on the future with a gradual building of assets overtime
would, to those who succeed, provide one of the few real bridges out of
poverty for the individual and to self-sufficiency for the neighborhood.
Two ideas proposed in the Capacity Building Working Paper were set aside by
the task force because they were considered to be too far in the future to be
relevant currently. They have been developed here to provide examples of
potential projects for the long-term health of SEAL, the neighborhood, and its
residents. One idea is intended for the building of individual assets for children
and youth, and a second idea is intended to build the assets of the organization
through business ownership.
Individual Development Accounts for Education
Goal: To help Youth residents of the neighborhood develop a future
orientation through saving money for educational purposes
Project: To create a savings account for young, school age, residents of the
neighborhood to encourage them to save and focus toward the long
term goal of education. Deposits made by the youth would be
matched by the neighborhood through a variety of sources.
Assets:
Studebaker Elementary
Riley High School
area banks
Urban Enterprise Association
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Strategic Neighborhood Action Plan
Barriers:
income/asset limitation for those on public assistance
lack of future orientation of parents
difficulty in incorporating IDA into school curriculum
no federal tax deferral as with IRA
difficulty in attracting match for long-term project
cost of small accounts at banks
Action Steps:
1. Develop project proposal for discussion purposes with schools and banks.
(a) Overview of problem: need for future orientation and asset
accumulation
(b) IDA concept
(c) Role of partners in the project ie... schools, banks, parents, donors
(d) Incorporating IDA into the school curriculum
(e) Special projects for students to make money to save
(f) Attracting the match
2. Create an IDA Task Force which will become the IDA Advisory Board upon
implementation of the project including representation from: SEQL,
Studebaker, Riley, banks, parents, teachers, initial major donor (if known).
The Advisory Board will oversee the development of the accounts, approve
expenditures for special education projects designed by teachers that
demonstrate the concept of saving for elementary age students, develop
funds for match, and approve the expenditure of matching funds for
educational purposes after graduation or leaving school.
3. Work with participating bank(s) to develop special accounts, reduce fees,
create account safeguards, and establish youth/small account friendly
banking policies.
4. Work with teachers to incorporate IDA discussions into curriculum with
special projects appropriate to each age group.
5. Facilitate parent/school/civic projects for students to make money to save
ie... in school concessions for special events, recycling, vacant lot clean-up.
Southeast Quality of Life
Strategic Neighborhood Action Plan
6. Develop a marketing program to promote the project to potential donors
and partner organizations for the parent/school/civic projects.
7. Encourage the support of parents for maintaining the accounts for long-
term educational goals.
8. Request a federal waiver for IDA accounts from income/asset limitations
for residents on public assistance.
Community Based Economic Enterprises
Goal: To improve local control reduce the amount of goods and services
imported into the neighborhood enhance neighborhood employment
oFportunities and make better use of local resources
Project: To create a community based economic enterprise with cooperative
or collective ownership of business shares that will employ
neighborhood residents and will provide a .needed good or service.
Assets:
Neighborhood Inventory
available land and buildings
potential interest of Notre Dame and Indiana University South Bend in
providing assistance
models for success in other neighborhoods nationally
Barriers:
difficulty in identifying appropriate candidates
lack of capital
technical expertise
necessity for long-term commitment
Action Steps:
1. Identify specific skill capabilities of residents.
2. Identify goods and service gaps which exist in the neighborhood.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
3. Match the capabilities and interests of residents with product and service
gaps in the neighborhood.
4. Identify three to five potential product and service opportunities for further
study.
5. Work with Notre Dame and IUSB to develop preliminary market information
on those products and services,
6. Identify the specific goals to be achieved by the creation of the community
based business ie... income for SEQL, employment, ownership, improved
working conditions/benefits, more convenient/more affordable goods and
services.
7. Determine the appropriate legal business type to reach the goals ie...
cooperative, SEQL for -profit/ non-profit subsidiary, collective, corporation,
partnership.
8. Identify appropriate business participant candidates.
9. Work with candidates to create a business plan.
(a) Prepare statement of purpose.
(b) Define products and services.
(c) Prepare overview of industry characteristics and environment.
(d) Outline market potential, assessment of competition, and marketing
strategy.
(e) Outline management structure and individual capabilities.
(f) Develop financial structure, accounting principles, start-up needs,
and cash -flow projections.
10. Identify start-up funding.
11. Encourage neighborhood residents to support the business.
How Does the Strategy Address the Goals?
The Task Force identified three goals that they hoped to achieve through the
implementation of the seven strategy elements.
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Use of Existing Individual Capacities
individual residents have skills that are not being recognized as such or used to
support themselves, each other, or the neighborhood as a whole. Two elements
of the strategy the Neighborhood Directory and Sharing Success Stories are
intended to increase individual awareness of the power of the individual to solve
their own problems and those of their neighbors. The Directory will identify
individual skills which can be shared or traded with others in the neighborhood
to make the lives of each a little easier. The Directory will also make others
aware of the special needs of individuals in the neighborhood. Knowledge that
everyone has something needed and something to share builds individual self-
esteem and pride in the neighborhood.
Wide spread Knowledge of and Access to Neighborhood Resources
The SEQL neighborhood has often operated as if it were isolated from important
resources. In fact, the neighborhood is well located to key resources but has
felt incapable of accessing those resources effectively. The Neighborhood
Directory will identify resources held by neighborhood residents, businesses,
and institutions and explain how those resources may be accessed. Creating
Block Captains and the Telephone Tree will set up a formal line of
communication between residents and SEQL to better access existing
resources. Building Bridges with Institutions will help the neighborhood to access
resources both inside and outside of the neighborhood by establishing SEQL as
an equal partner in negotiations for goods, services, and funds.
Neighborhood Self-sufficiency
Neighborhood self-sufficiency is a long-term goal and it may not be totally
achieved. True self-sufficiency would mean a neighborhood that could not only
survive on its own but which would strive for separation and isolation. This is
unnecessary and unwarranted. The SEQL neighborhood needs to reach a level
of self-sufficiency in which it is functioning as a neighborhood making collective
decisions for the good of the whole and the individuals that make up the
neighborhood feel capable of making the choices they face in daily life.
in a practical sense, each of the individual strategy elements works toward the
goal of Neighborhood Self-sufficiency. The identification and utilization of each
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Southeast Quality of Life
Strategic Neighborhood Action Plan
neighborhood resource contributes to the self-sufficiency of the neighborhood.
However, it is the long-term strategy elements that will contribute most to
reducing the dependence of individual residents and the SEQL organization on
outside resources.
How Does Cappritv Buildin Relate to the Other Task Forces?
The success of the other three Task Forces is quite tangible in the re -surfacing
of streets, rehabilitation of homes, or reduction of crime. The real success of
the work of this Task Force is measured not so much in the completion of
projects, programs, and events as in the ability of diverse, individual residents
to function as a neighborhood.
Building the capacity of the individuals who live and work in the SEQL
neighborhood and the SEQL organization is the foundation for the
implementation of this plan. Individual residents must feel that they are in
control of their lives and have the power to make choices for themselves, their
children, and their neighborhood. Without this feeling of empowerment it will
not be possible to think clearly, negotiate from a position of strength, and act
with confidence. If the residents and the SEQL organization are not empowered
they cannot be true partners in their relations with residents of other
neighborhoods and other institutions.
Building capacity is not an absolute concept. Rather, it is a process of education
and life-long learning. After SEQL reaches a stable and sustainable level of
functioning as a neighborhood it may take on more and more complex activities
to help its residents become better neighbors and the organization to better
represent them. This plan provides short, medium, and long term activities
which advance and build upon each other toward a self-sustaining and
independent neighborhood.
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NEIGHBORHOOD ISSUES
Neighborhood Issues
As a result of the comments and neighborhood perspectives offered at the
public forum, the consultant team prepared a limited list of issues to be
addressed within four categories. The consultant also posed an overall mission
for the strategic plan, and individual mission statements for each of the four
category areas: Land Use and Physical Environment, Neighborhood Security,
Capacity Building and Housing. Upon review and discussion with the SEQL
leadership and after public comment, the following Mission Statement was
accepted.
THE SOUTHEAST SIDE M/SSION FOR SUCCESS:
The Southeast Side will achieve the complete involvement of every
neighborhood resident and business in development of the strategic
action plan and the revitalization of the neighborhood to guarantee the
quality of life for themselves and each other.
The Consultant team prepared four work papers, one for each of the four issue
categories. These papers were designed to focus neighborhood attention on the
trends which led to existing conditions, and to suggest alternative approaches
toward addressing neighborhood goals.
SOUTHEAST NEIGHBORHOOD SECURITY WORKING PAPER
Trends and Conditions
Based on discussions held in the Security Task Force Meeting on July 13,
1994, a picture emerges of the Southeast neighborhood under siege from crime
and the fear of crime. A picture emerges of criminal activity in various locations
in the area, including solicitation for purposes of prostitution, drug sales and
use, drug houses, teen gangs and a general feeling of insecurity. In fact most
recently three (3) teens were shot and a gang on bicycles (A.K.A. Dog Life
Posse) may have been responsible. The neighborhood residents do not feel
enough law enforcement is being provided to contain the crime and remove the
criminal element from the neighborhood.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
The Southeast neighborhood borders the downtown and has major arterial
streets bordering it with local streets in a grid pattern which allows virtually
unlimited access through the neighborhood. With the population declining 50%
over the last 30 years, reduced from about 8,000 people in 1960 to about
41000 in 199C, the neighborhood is plagued by vacant lots (33% in the
Partnership Center Service Area), substandard housing and a number of vacant,
vandalized units used for drug purposes. The five block Partnership Center
Service Area has 39 units vacant out 110 total or 35 % of the units. The
vacant lots are not maintained and have high weeds on them, the area has poor
street lighting and with gangs of youth congregating on several corners at night,
makes one feel unsafe to venture out after dark.
There is 38% of the neighborhood population under 20 and almost 10% 65
years of age or older. This makes the elderly feel overwhelmed by the youth
population, especially when there is heavy unemployment between (13%-18%)
and many children being raised by single parents (between 20 %-28 %) who may
have difficulty supervising their children.
The police protection in the area consists of one policeman patrolling per shift
although special operations are often underway in the neighborhood trouble
spots. There is a 911 system that allows quick police response to emergency
conditions. There are also special numbers to call to report criminal activity.
Remedial and Preventative Measures, Weed and Seed
A program worth considering is the federal Weed and Seed program which has
many elements from which to choose in its comprehensive approach to fighting
the crime problem. What follows is excerpted from the Weed and Seed
program material from a U.S. Department of Justice report to Congress in
1992.
Purpose
The purpose of this program is to demonstrate an innovative, comprehensive,
and integrated multi -agency approach to law enforcement and community
revitalization for controlling and preventing crime, drug abuse, and gang activity
and improving the quality of life in targeted neighborhoods.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Goal
Restore order to a neighborhood and provide the opportunity to live, work, and
raise a family in a safe environment.
Objectives
The objectives of Weed and Seed are reflected in its four (4) program elements:
" Law Enforcement: To control violent and drug -related crime through
intelligence gathering and crime analysis, arrest, detention, prosecution, and
incapacitation of offenders from the targeted neighborhood.
' Community Policing: To enhance public safety and security through: a police
deployment strategy focusing on community engagement through increased and
regular interaction between neighborhood residents and officers (e.g., foot
patrols) and proactive problem -solving; and by mobilizing neighborhood
residents to work with the police in solving and preventing violent and other
drug -related crime.
" Prevention, Early Intervention, and Treatment: To create a healthy and
supportive environment by preventing and combatting crime, drug use,
unemployment, illiteracy, and disease.
` Neighborhood Restoration: To revitalize the neighborhood by providing
adequate housing, a clean and attractive environment, and investment
opportunities.
The Weed and Seed strategy involves four (4) basic elements:
1 . Law Enforcement: Law enforcement must "weed out" the most violent
offenders by coordinating and integrating the efforts of Federal, State and local
law enforcement agencies in targeted high -crime neighborhoods. One effective
law enforcement strategy, for example, is Project Triggerlock, a Department of
Justice initiative that targets armed violent offenders for prosecution in Federal
court to take advantage of tough Federal firearms laws. Between April 1991
through January 1992, Project Triggerlock resulted in approximately 4,500
cases charged and had a 91 percent conviction rate.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
2. Community Policing: Local police departments should implement
community policing in each of the targeted sites. Under community policing,
law enforcement works closely with the residents of the community to develop
solutions to the problems of violent and drug -related crime. Community policing
serves as the "bridge" between the "weeding" (law enforcement) and "seeding"
(neighborhood revitalization) components.
3. Community Empowerment: Law enforcement, social services, the private
sector, and the community must work together to prevent crime and violence
from reoccurring after the "weeding" takes place by concentrating a broad array
of human services - drug and crime prevention programs, educational
opportunities, drug treatment, family services, and transportation. This plan will
coordinate social services and community assistance programs, including those
to expand drug treatment, provide job training, keep schools open in the
afternoon and evening, offer alternative activities for high -risk youth, modernize
public housing and improve the local community infrastructure.
4. Economic Empowerment. Federal, State, local and private sector resources
must be focused on revitalizing distressed neighborhoods through economic
development and by providing economic opportunities for neighborhood
residents.
Application to the Southeast Neighborhood
Although South Bend is not currently in this program nor may it be able to
qualify for the resources available under the Weed and Seed program, still the
model is worth working with those elements which can be achieved at the
present time.
" Law Enforcement: Currently the South Bend Police Department through
programs, such as NEST, do street sales (sweeps, reverse buys, buy -busts,
etc.), work on special task forces, attempt to identify youth gangs, etc. Part
of the problem is that only one patrol car with one officer is assigned per shift
to the neighborhood. The police feel they are understaffed and need additional
officers to patrol the community. They have shifted several officers from desk
jobs and record keeping to the operations unit.
Southeast Quality of Life
Strategic Neighborhood Action Plan
Community -oriented policing. One of the possibilities that has been
suggested is that the Southeast Neighborhood Partnership Center house at 626
East Broadway, operate as a "storefront location" out of which the community
policing functions would operate. At least during the day perhaps two (2)
officers would operate, holding office hours to take complaints and tips, help
organize block watches, do paperwork and occasionally walk the neighborhood
(most desirable) or use bikes or even squad cars to sweep the neighborhood
and the school sites. This would not be used as substation to book suspects,
etc.
` Police Officers Home Ownership Programs. One of the ways to increase the
Police presence in the neighborhood is to design a special home ownership
program which would provide subsidies for them to live in the neighborhood.
In conjunction with a program, which allowed them to bring police squad cars
home, would increase the police presence in the neighborhood without having
to deploy additional resources.
Neighborhood Watch: This is already occurring but some difficulty has been
encountered because it is difficult to organize and recruit block captains if the
unruly youth are occupying dwellings in the block or drug houses or are
congregating in gangs on the corner in a threatening manner to the residences.
Drug -Free School Zone. With the new High School to be constructed it
should be designed and operated as a_drug-free environment in which no drug
dealing should be tolerated by the police or school officials. In addition
educational programs should be operated to reinforce the law enforcement.
Counseling and referral to drug programs should also be part of the program
offered by the school officials.
' Crime Prevention through Environmental Design would include target
hardening by providing assistance to homeowners to install deadbolt and
window locks and additional yard security lighting-. Perhaps the South Bend
UEA could sponsor this program as has been done in other cities. The streets
usage should also be studied by the traffic department and those not needed
for through traffic should be turned into local circulation and selectively be
considered candidates for cul-de-sacs, loop streets, speed bumps and other
devices to slow down and close off areas to make them more private. The
incidence of burglary would probably drop, and the feeling of neighborhood
Southeast Quality of Life
Strategic Neighborhood Action Plan
would be enhanced by these efforts. The parks should also be designed to stop
through traffic, be well -lighted and have programs and activities so that children
are supervised by responsible adults while at the park.
* Code Enforcement and Removal of Derelict Housing. The boarding up and the
securing of properties which are no longer habitable is important so that they
do not become drug houses. If the units cannot be rehabbed they need to be
demolished immediately. Not only are these units possible crimes locations,
they also offer physical danger to children who might be hurt playing in these
unsafe structures. If occupied houses are used for drug activity the code that
allows the City to seize the property should be enforced swiftly and with
certainty.
Neighborhood Clean-U
The weeds need to be kept cut by the City to aid visibility and reduce the
feeling that the neighborhood has been abandoned. Graffiti needs to be painted
over and may be accomplished through summer youth programs. One of the
suggestions might be to utilize the youth incarcerated in the detention facility
if that is built in the neighborhood.
Safe Haven
The Safe Haven concept, developed under Operation Weed and Seed, has
become the primary mechanism for organizing and developing services under
the Prevention, Early Intervention, and Treatment element. A Safe Haven is a
multi -service center where a variety of youth and adult services are coordinated
in a highly visible, accessible, and secure facility. Safe Havens are places
where youth and other residents can access needed services, develop
relationships, find opportunities to be productive and successful, and enhance
skills. Through its visibility, proximity, and program diversity for residents of
all ages, it fosters resistance to drugs, crime, and other neighborhood problems.
A Safe Haven provides an environment for residents and service providers to
revitalize their neighborhood. It encourages them to identify existing core
problems as well as to develop programs and services to ameliorate them
through prevention, intervention, and treatment activities.
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The primary elements of a Safe Haven are:
° programs and services that are specifically selected with resident involvement
and based upon a risk and resource assessment performed in the target area,
public and private service providers repositioned to work together as a team
to provide targeted services;
safe and secure facility;
accessibility to a wide range of individuals from neighborhoods identified as
target areas during the risk and resource assessment;
trained staff; and
open outside of normal school and work hours.
Discussion
Both the High School and the Neighborhood Center could function as safe
havens. The Neighborhood Center as the location for community policing
housing services, credit counseling, etc. could operate at the neighborhood
level. The High School could operate at the community level teaching a whole
series of family literacy and adult education courses, drug abuse resistance and
drug prevention programs during school and at night. In addition the High
School athletic facilities could be made available to organized community youth
activities and open use at certain times. An outdoor swimming pool with
supervised activities would also be desirable during the summer months.
Other Programs
To complete the seeding of the Southeast neighborhood other partnerships need
to be found in the community in other areas discussed elsewhere in the briefing
papers, i.e. Housing and Capacity Building. Without dealing with the
neighborhood problems as well as it needs, the root causes of crime cannot be
dealt with effectively. The ideas of "pulling the weeds and planting the seeds"
is an adept analogy. The strategic plan in all of its interlocked parts is needed
to solve the overall problems.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
TASK FORCES
Neighbors began taking an active role in leading the planning process by joining
Task Forces. The Task Forces were the key elements of the strategic planning
process. The Task Forces were short term commitments by individuals who
wanted to take an active role in planning for the future of the community. The
four Task Forces directly assisted in the planning of key actions and programs
to improve the quality of life in the neighborhood. Participants were divided into
Task Forces focusing on Housing; Land Use and the Physical Environment;
Capacity Building; and Neighborhood Security issues. Based on the findings in
the Working Papers, the Task Forces determined an overall strategy to guide
their goals setting and action development activities.
Each Task Force then determined specific long and short term goals to improve
life in the neighborhood. The Task Forces detailed specific actions geared at
accomplishing those goals and identified existing assets which could be built
upon to accomplish those goals. The goals are listed in the Strategic Plan Table
that follows. The Task Forces also assigned parties to be responsible for
ensuring that the specified action was completed. Each group's missions and
charge is detailed below.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
NEIGHBORHOOD SECURITY STRATEGIC PLAN
Introduction
In its meeting, the Security Task Force has identified a litany of problems which
effect the South East neighborhood. These include crime, drug sales and use,
drug houses, teen gangs, prostitution, and a general feeling of insecurity. The
residents do not feel that enough law enforcement is being provided to contain
crime and remove the criminal element from the neighborhood.
Mission Statement:
"Insure that people and property are free from crime and the threat of
crime and that neighbors and visitors feel safe and secure in the
South East neighborhood."
The Mission Statement represents the desires of the community for a safe
environment which is not the case at the present time. There is a feeling in the
neighborhood that the residents need to become more directly involved in their
own security and that a closer partnership needs to be established with the
police, prosecutors and judges. This ranges from prevention programs to
making certain that people like prostitutes and other offenders are not released
to the streets again in a revolving door type of justice.
Issues
There were four primary issues of concern to residents of the South East
neighborhood.
1 . The fear of crime from those livin and o rating iIle al activities in the
neighborhood Prostitutes, drug dealers, juvenile gang members live and
operate illegal activities in the neighborhood. From street corners where
children wait for school buses to abandoned houses used for drug
purposes, illegal activities, go on day and night. Without the feeling of
environmental security, residents property values drop, people are fearful
TO let their children go unattended to parks and school, and senior citizens
feel trapped in their homes fearful of what awaits them on the streets.
Slum landlords rent to prostitutes and other undesirables while living
elsewhere in the area in safe neighborhoods.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
2. Although the police do make special efforts to control crime in the
neighborhoodcrime rates are high compared to most other areas of the
ity. cSouth East residents are subjected to high levels of prostitution, drug
dealing and juvenile gangs and delinquents often carrying weapons.
Although the police have special programs such as the Neighborhood
Enforcement Service Team (NEST) and Neighborhood Reclamation Action
Patrol (NRAP) programs which target South East with extra police units
and special crime apprehension units, crime against persons and property
is a major concern.
3. Even in the cases of arrests maDy of the people, such as Drostitutes and
Youth offenders are released almost immediately to the streets because
of the lack of tail space. The revolving door problems of the judicial
system demoralize the police, who see the same criminals back on the
street who they just arrested, and the citizens who fear retaliation if they
assist the police in the apprehension of these criminals in the first place.
4. Prevention programs. such as the neighborhood watch have been difficult
to organize The City of South Bend has instituted a number of prevention
programs, such as neighborhood watch, the MARC program, the recent
lock and security program and ordinances to control nuisances, noise, drug
houses and houses with code violations. In spite of these programs, the
neighborhood is difficult to organize because of its transient nature with
many renters, many missing houses, particularly in the northern portion of
the neighborhood, and criminal elements actually living in the
neighborhood. Not knowing your neighbors is a major negative when it
comes to organizing for action.
Strategic Methodology
The Task Force felt it needed a multi -faceted approach to counteract the
negative aspects of crime while building on the strong qualities of the
neighborhood. One of these strengths is the SEQL organization and the
neighborhood partnership center which can provide leadership and a location
from which to combat crime.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
The following three statements represent the guiding forces for this war on
crime:
1. Organize to fight the
neighborhood. criminal elements both inside and outside the
2. Form partnerships with the --Prosecutors and iudges to apprehend
and prosecute the criminals
3. Once prosecuted ensure that sentences are carried out and the criminals
are not released to the streets rematurely.
Elements of the Strategy
There are five strategic elements which have been developed from a
combination of concepts contained in the Neighborhood Security Working Paper
and Task Force initiatives. The SEQL Board of Directors is a key to organizing
these initiatives and needs to operate at a high level of organizational capacity.
To this end a neighborhood organizer working in conjunction with the board
would be desirable to continue providing support services into the future. It is
also necessary to create the neighborhood watch program so that neighbors are
organized on a block -by -block basis and can be mobilized to carry out many of
the program initiatives. The neighborhood watch is the basic building block for
grass -roots programs which will allow the residents to take back their
neighborhood from the criminal elements.
Another positive action which has been taken is the passage by Congress of the
Public Safety and Community Policing Act of 1994 Oe. the omnibus crime
legislation). This legislation provides many programs supportive of this plan,
not the least of which is the effort to substantially increase the number of police
interacting with the community on crime control and prevention ("cops on the
beat"). As part of the process of applying for those competitive grants, there
is the requirement to include a long-term strategy that reflects consultation with
community groups. This strategic plan prepared by the South East
neighborhood provides direct input and support for programs and partnership
with the South Bend Police Department and the City of South Bend in their
mutually shared goal of reducing crime.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Elements to be Developed Immediately
`Anti -Prostitution and Drug Dealer Program
GOAL: BY keeping pressure on neighborhood based crime and those
benefitting from it, or responsible for controlling it ie police
rosecutors and the courtsystem reduce illegal activity.
PROJECT: Reduce the number of prostitutes and drug dealers living and
working in the neighborhood through informational picketing,
Publicity and tracking court cases.
ASSETS: . -SEQL Board
-Block watch captains
-Neighborhood organizer
-Nuisance ordinances
-Building codes
-$500 auto fine for solicitation of prostitution
-police
BARRIERS: -Organizing of workers/picketers
-Fear of reprisals
-Lack of police manpower
-Lack of block watch organizations
-Legal issues
ACTION STEPS:
1. Organize by blocks and block watches under the leadership of the SEQL
Board and assistance of the neighborhood organizer.
2. Prepare inventory of where prostitutes live and solicit and where drug
dealers live and deal; including drug houses.
3. Organize informational picketing of residences where prostitutes and drug
dealers live and work.
4. Informational picketing of homes of slum landlords who rent to prostitutes
and drug dealers.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
5. Picketing prostitutes, particularly on corners near where children board
buses for school.
6. Alert media and police when picketing.
7. Video tape illegal activities and provide evidence to the police.
8. With the assistance of the police, using the telephone tree to stay in
contact, track the dealers and prostitutes from arrests to appearances
before judges.
9. Attend judicial proceedings, testify where appropriate, and track the
progress of the cases to ensure against early dismissal, plea bargaining
which allows premature release, and other revolving door techniques.
10. Meet with police, judges and prosecutors to have a meeting of the minds
on the need to prosecute these criminals.
1 1. Supportthe construction of additional youth and adult correctional facilities
(long term).
PROPOSED SCHEDULE:
October, 1994 Neighborhood Security Task Force meeting to organize
first block for neighborhood watch program.
November, 1994 Building on neighbors in organized blocks, begin to
inventory where drug houses and prostitutes live and
residences of landlords. Consult with the police, SBHF
and other entities to ascertain the safest and most
effective means to picketing and/or demonstrating
December, 1994 Begin picketing street corners and targeted houses after
press conference to announce program.
December, 1994 Meet with police, prosecutors, and judges to develop
strategies on how to keep criminals in jail; including
providing testimony where appropriate.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
Ongoing At least once a month, continue process targeting
different areas until activity is reduced to the level where
no longer an issue.
*Neighborhood Watch
GOAL: Reduce crime by organizing neighborhood through self help
neighborhood watch program
PROJECT: Organize the neighborhood watch program working with the
Crime Prevention Division, South Bend Police Department.
ASSETS: -Program already exists with organizational and informational
material available from police department.
-Proven track record when neighbors work together to protect
each others property and person.
-Other support programs available, ie. deadbolt locks and
security program (smoke detectors).
BARRIERS: -Difficulty of recruiting block captains and participants.
-Many blocks have vacant lots breaking continuity of housing.
-Do not know neighbors.
-Sometimes have undesirable neighbors.
ACTION STEPS:
1. Meeting of the Neighborhood Security Task Force to organize initial target
block (Carroll, Fellows, Indiana & Haney)
2. Meet with Crime Prevention Division officer in charge of program to
receive information kits and kick-off campaign.
3. Organize one block per month working from north to south in the
neighborhood.
4. Advertize in newsletter that program has been started in target block and
to contact partnership center if interested.
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Southeast Quality of Life
Strategic Neighborhood Action Plan
5. Organizer helps Task Force recruit door-to-door and Task Force recruits,
additional friends and neighbors.
6. Participants in activated blocks network together to participate in other
program, ie. anti -prostitution and drug dealer program.
PROPOSED SCHEDULE:
October 27, 1994 Task Force meeting and organizing target block.
Early November, 1994 Meeting with Crime Prevention Officer; briefing and
receive kits.
Mid November, 1994 Working with community organizer recruits door-to-
door and achieve 100% participation.
Late November, 1994 Program meeting material distributed and program
operational, second block organization process begun.
Ongoing Process repeated each month with one block
organized per month.
Ongoing Marketing through newsletter, word-of-mouth to
neighbors and friends, door-to-door, Task Force and
organizer solicitation.
Elements to be Developed over the Short Term
(One to Three years)
"Target Hardening/ Safer Streets
GOAL: Reduce crime a ainst DroDertY and robbery,
PROJECT: Make property more secure by improving locks, trimming trees,
improving street and yard lighting, and making streets safer.
ASSETS: -MARC Program
-Tree trimming program
-Lock and security program
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