HomeMy WebLinkAboutItem IIPLAN COMMISSION STAFF REPORT JUNE 17, 2025
ITEM II: PUBLIC HEARING: REVIEW 2025-2029 CONSOLIDATED PLAN & 2025
ANNUAL ACTION PLAN FOR THE COMMUNITY DEVELOPMENT
BLOCK GRANT PROGRAM
The purpose of this review is for the Plan Commission to make a determination of consistency
that the proposed projects/activities in 2025-2029 Consolidated Plan and 2025 Annual Action
Plan are consistent with the City’s 2005-2025 Comprehensive Plan, Comprehensive Plan Update
2040, official maps, or other planned activities of the City.
Staff is requesting the Plan Commission review and accept proposed projects/activities
designed to meet one of the national objectives (listed below) of the CDBG program, and
recommend Council authorize submittal of the 2025-2029 Consolidated Plan and 2025 Annual
Action Plan.
- Benefit to low- and moderate-income (LMI) persons
- Aid in the prevention or elimination of slums or blight
- Meet a need having a particular urgency (i.e. flooding, tornado, etc.)
The City prepares and submits an Annual Action Plan to the US Department of Housing and
Urban Development (HUD) to demonstrate how federal CDBG funds will be spent. The 2025
Program Year began May 1, 2025 and ends April 30, 2026. The 2025 entitlement allocation is
estimated to be $822,816.
Staff is proposing 2025 entitlement allocations to the following projects:
1. $40,000 Housing Initiatives (varied regulations; each reference listed with corresponding
activity below)
Activities may include, but are not limited to, rehabilitation or improvements to
a single-family residential property 24 CFR 570.202(a)(1), homeownership
assistance 24 CFR 570.201(n) and privately owned utilities (24 CFR 570.201(l).
2. $200,000 Development (varied regulations; each reference listed with corresponding
activity below)
Activities may include, but are not limited to, acquisition 24 CFR 570.201(a),
clearance and demolition 24 CFR 570.201(d), asbestos removal 24 CFR 570.201(c)
and cleanup of contaminated sites 24 CFR 570.201(d). The following 24 CFR
570.201(c) activities that may be undertaken are water/sewer improvements,
street improvements, sidewalks and tree planting.
3. $307,816 Public Facilities 24 CFR 570.201(c)
Activities may include, but are not limited to, acquisition, construction,
reconstruction, rehabilitation or installation of public facilities and
improvements, except as provided in § 570.207(a), carried out by the recipient or
other public or private nonprofit entities.
4. $125,000 Public Services 24 CFR 570.201(e)
Activities may include, but are not limited to, assistance to local non-profit
agencies that provide needed services to LMI individuals and households.
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ITEM II – CDBG – 2025-2029 Consolidated Plan & 2025 Annual Action Plan
Activities that may be undertaken include, health care assistance, emergency
shelter, food assistance, peer support, Fair Housing services, advocacy and
education and emergency assistance.
*Public Service activities can represent no more than 15% of the total annual grant
allocation.
5. $150,000 Program Administrative Costs 24 CFR 570.206
Activities may include, but are not limited to, general management, oversight
and coordination, public information, Fair Housing services, indirect costs,
submission of applications for federal programs, administrative expenses to
facilitate programs, associated training and related costs and preparation of
functional plans.
*Administration activities can represent no more than 20% of the total annual grant
allocation.
Based on evaluating previous years program, the City doesn’t expect to receive any program
income. However, if program income is received, the City will hold a public comment period
on the proposed activity at that time.
Final Step
Prior to Council consideration, the Action Plan is reviewed by the Plan Commission for
consistency with the City’s 2005-2025 Comprehensive Plan, Comprehensive Plan Update 2040,
official maps, and other planned activities of the City.
Staff has reviewed all proposed projects and activities and none have been identified as being
contrary to the Comprehensive Plan, as updated, official maps, or other planned activities of the
City.
RECOMMENDATION
Staff recommends acceptance of the 2025-2029 Consolidated Plan and 2025 Annual Action Plan
for the Community Development Block Grant Program, together with a determination of
consistency that projects/activities identified above and listed on the attached are not in conflict
with the City of Oshkosh Comprehensive Plan, as amended, official maps or other planned
activities of the City.
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Executive Summary
ES-05 Executive Summary - 24 CFR 91.200(c), 91.220(b)
1. Introduction
The City of Oshkosh is an entitlement community under the U.S. Department of Housing and Urban
Development’s (HUD) Community Development Block Grant Program (CDBG). The Community
Development Block Grant (CDBG) Entitlement Program provides annual grants on a formula basis to
entitled cities and counties to develop viable urban communities by providing decent housing and a
suitable living environment, and by expanding economic opportunities, principally for low- and
moderate-income persons. The program is authorized under Title 1 of the Housing and Community
Development Act of 1974, Public Law 93-383, as amended; 42 U.S.C.-530.1 et seq. (Source:
https://www.hudexchange.info/programs/cdbg-entitlement)
In compliance with HUD regulations, the City must prepare a Consolidated Plan every five years to
assess its affordable housing, community development, economic development, and strategic planning
needs. The needs and priorities identified in the Consolidated Plan are addressed annually through the
Annual Action Plans which present what specific activities the City will accomplish with CDBG and other
funding sources. To complete the CDBG program year, the City reports annually on the progress it has
made toward its Consolidated Plan goals in the Consolidated Annual Performance and Evaluation Report
(CAPER).
The City of Oshkosh has prepared its Five-Year Consolidated Plan covering the period of 2025, beginning
May 1, 2025, through 2029, ending April 30th, 2029.
2. Summary of the objectives and outcomes identified in the Plan Needs Assessment
Overview
The concept of the Consolidated Plan is to serve as a strategic planning document for the City to make
data based, market driven, housing and community development plans. Oshkosh’s 2025-2029 Five-Year
Consolidated Plan proposes strategies to address the priority needs described in more detail in SP 25
Priority Needs and SP 45 Goals Summary.
3. Evaluation of past performance
Annually, the City of Oshkosh prepares its Consolidated Annual Performance Evaluation Report (CAPER).
Copies of previous program year CAPERs are available for review at the City’s Department of Community
Development.
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The 2023 CAPER, which was the fourth CAPER for the 2020-2025 Five-Year Consolidated Plan, was
approved by HUD. In the 2023 CAPER, the City expended 72.8% of its CDBG funds to benefit low- and
moderate-income persons. The City expended 9.4% of its funds during the 2023 CAPER period on public
services, which complies with the 15% regulatory cap. The City committed 11.6% of its funds during this
CAPER period on Planning and Administration, which complies with the 20% regulatory cap. The City’s
adjusted timeliness ratio was 1.95 on March 2, 2025, which is slightly above the 1.5 timeliness ratio
maximum.
The City did not make any changes to its Five-Year Priorities and Goals during the previous plan year.
4. Summary of citizen participation process and consultation process
The City of Oshkosh prepared the Five-Year Consolidated and Annual Action Plans in compliance with
the City's Citizen Participation Plan. The City held its first Public Meeting on April 21, 2025, a second
Public Meeting on May 19, 2025, a Public Hearing at a Plan Commission meeting on June 17, 2025, and a
Public Hearing at a Common Council meeting on June 24, 2025. These Hearings provided residents and
stakeholders the opportunity to discuss the City's CDBG program and provide input concerning the
funding priorities.
The meeting and hearing details were published in the Oshkosh Northwestern on April 13 and May 25,
2025.
A “draft” of the Consolidated Plan and 2025 Annual Action Plan was placed on public display from May
27, 2025 until June 28, 2025 at the following locations for review:
• City of Oshkosh Department of Community Development - 215 Church Avenue, Oshkosh, WI
54903-1130
• City of Oshkosh website (www.oshkoshwi.gov) Government section of the website under
"Economic Development Division"
• Oshkosh Public Library - 106 Washington Avenue, Oshkosh, WI 54901
The City Council passed a resolution on June 24, 2025 approving the submission of the Five-Year
Consolidated and Annual Action Plan to HUD. The plans were electronically submitted through HUD's
online IDIS system on June 27, 2025.
During the development of the plans, numerous stakeholders were consulted through individual
meetings, roundtable discussions, and phone calls.
For additional information on the citizen participation and consultation process, please refer to Sections
PR-10 Consultation and PR-15 Citizen Participation, as well as the Citizen Participation attachment.
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5. Summary of public comments
No public comments have been made.
6. Summary of comments or views not accepted and the reasons for not accepting them
All comments and suggestions were incorporated into this plan.
7. Summary
The overall goal of the Five-Year Consolidated Plan is to create a suitable and sustainable living
environment, address the housing and community development needs, and improve the living
conditions for all residents in the City of Oshkosh. The Five-Year Consolidated Planning process obligates
the City to state in a single document its strategy to address these needs. The City will use the
Consolidated Plan's goals and strategies to allocate CDBG funds over the next five (5) years, as well as
provide direction to partners collaborating on addressing the needs of low- and moderate-income
persons. HUD will evaluate the City’s performance under the Five-Year Consolidated Plan against these
goals.
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The Process
PR-05 Lead & Responsible Agencies 24 CFR 91.200(b)
1. Describe agency/entity responsible for preparing the Consolidated Plan and those
responsible for administration of each grant program and funding source
The following are the agencies/entities responsible for preparing the Consolidated Plan and
those responsible for administration of each grant program and funding source.
Agency Role Name Department/Agency
CDBG Administrator OSHKOSH Community Development
Department
HOME Administrator N/A
Table 1 – Responsible Agencies
Narrative
The City of Oshkosh's Community Development Department is the administrating agency for the CDBG
program. The Department prepares the Five-Year Consolidated Plans, Annual Action Plans,
Environmental Review Records (ERR’s), and the Consolidated Annual Performance Evaluation Reports
(CAPER), as well as manages monitoring, voucher payments, contracting, and oversight of the programs
on a daily basis.
Consolidated Plan Public Contact Information
Emily Tardiff, Economic Development Specialist
Community Development Department
City of Oshkosh
215 Church Avenue
P.O. Box 1130
Oshkosh, WI 54903-1130
(920) 236-5029
etardiff@oshkoshwi.gov
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PR-10 Consultation – 91.100, 91.110, 91.200(b), 91.300(b), 91.215(I) and
91.315(I)
1. Introduction
The vision of the City of Oshkosh’s Five-Year Consolidated Plan seeks to develop a viable community by
promoting integrated approaches that provide decent housing, a suitable living environment, and
expand economic opportunities for low- and moderate-income persons. Primarily, the development of
partnerships among all levels of government and the private sector, including for-profit and non-profit
organizations.
Consultations included the following stakeholders:
• Housing Services and Assisted Housing
• Health Services
• Social and Fair Housing Services
• Continuum of Care
• Public and Private Agencies that address housing, health, social service, victim services,
employment, and education needs
• Publicly Funded Institutions and Systems of Care that may discharge persons into homelessness
• Corrections Institutions
• Business and Civic Leaders
• Child Welfare Agencies concerned with lead poisoning
• Adjacent Units of general Local Government and Regional Government Agencies
• Broadband Internet Service Providers
• Natural Hazard Risk Assessors
• City residents
Provide a concise summary of the jurisdiction’s activities to enhance coordination between
public and assisted housing providers and private and governmental health, mental health
and service agencies (91.215(I)).
The City's Community Development Department acts as a point of contact to coordinate efforts
between public and assisted housing providers, as well as private and governmental health, mental
health, social service agencies.
Coordination with these entities will continue throughout the Five-Year Consolidated Plan period to
capitalize on potential future funding opportunities, as well as potential project partnerships, that would
result in increased benefits to low- and moderate-income households and persons.
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Each year as part of the application planning process, local jurisdictions, agencies, and organizations are
invited to submit proposals for CDBG funds for eligible activities. These groups participate in the
planning process by attending the public hearings, informational meetings, and through electronic
updates. These groups are notified through the City’s Community Development Department network of
upcoming meetings and funding opportunities. Also, the staff of the Community Development
Department have proactively been participating in additional community encounter opportunities and
forming partnerships to accomplish larger scale housing and community development activities.
Describe coordination with the Continuum of Care and efforts to address the needs of
homeless persons (particularly chronically homeless individuals and families, families with
children, veterans, and unaccompanied youth) and persons at risk of homelessness
The City of Oshkosh is a member of the Winnebagoland Housing Coalition, under the Wisconsin Balance
of State Continuum of Care (WIBOSCOC). Winnebagoland Housing Coalition meets regularly to engage in
conversations regarding homeless issues, as well as coordinating the efforts of a variety of agencies
serving youth, families, and veterans experiencing homelessness. City of Oshkosh staff attends the local
CoC meetings and acts as the City's representative. The City coordinates its activities with the
Continuum of Care and supports its applications for funds. The City helps WIBOSCOC to address
homelessness by working together to develop a framework to deliver housing and supportive services to
the homeless and those at risk of homelessness.
The Winnebagoland Housing Coalition identifies regional and local homeless issues; coordinates regional
planning; identifies regional housing gaps and needs, strategies, and priorities; provides input for
Supportive Services for Veteran Families (SVF) and Emergency Solutions Grants (ESG) applications;
participates in completion of the CoC application; monitors Homeless Management Information Systems
(HMIS) participation and implementation; and coordinates and follows-up on the Point in Time (PIT)
count and Annual Homeless Assessment Report (AHAR).
Describe consultation with the Continuum(s) of Care that serves the jurisdiction's area in
determining how to allocate ESG funds, develop performance standards and evaluate
outcomes, and develop funding, policies and procedures for the administration of HMIS
Most of WIBOSCOC ESG funding is allocated by the Wisconsin Department of Administration, Division of
Housing, Energy, and Community Resources (DEHCR). The CoC develops priorities, target populations,
outcome measures, and evaluation processes for ESG through an elected agency such as ADVOCAP,
including prioritizing Rapid ReHousing (RRH). The CoC decides on ESG funding ranking and project
scoring based on knowledge of projects, capacity of applicants and participation in CoC planning.
ADVOCAP, as the Collaborative Applicant and HMIS Lead, has access to the Point in Time and Homeless
Management Information System (HMIS) data.
The Winnebagoland CoC and the HMIS work together to assess data quality throughout the CoC. This
includes working on Annual Homeless Assessment Report (AHAR) submission, the PIT count, project
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review/ranking, and working with individual programs while completing their Annual Performance
Reports (APRs). In total, there are many projects listed on the CoC’s Housing Inventory Chart. There are
beds at the Christine Ann Domestic Violence Shelter, COTS, Solutions Recovery, Father Carr’s Shelter,
Day by Day Warming Shelter. However, there are zero Runaway or Homeless Youth beds being reported
in Oshkosh or Winnebago County. Additional outreach to volunteer and faith-based organizations will
occur through the implementation of coordinated entry. Increased engagement and education among
these groups should lead to increased HMIS participation. The CoC will work with Veterans to improve
participation among VA-funded projects.
2. Describe Agencies, groups, organizations and others who participated in the process
and describe the jurisdictions consultations with housing, social service agencies and other
entities
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Table 2 – Agencies, groups, organizations who participated
1 Agency/Group/Organization ADVOCAP, INC.
Agency/Group/Organization Type Housing
Services-Employment
Service-Fair Housing
Civic Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Economic Development
Market Analysis
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
ADVOCAP, Inc. was consulted for affordable
housing and public housing needs in the City.
2 Agency/Group/Organization Aging and Disability Resource Center of
Winnebago County
Agency/Group/Organization Type Services-Elderly Persons
Services-Persons with Disabilities
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Aging and Disability Resource Center of
Winnebago County was consulted for elderly
needs and the needs of people with disabilities
in the City.
3 Agency/Group/Organization Alliance Development, Inc.
Agency/Group/Organization Type Business Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Alliance Development, Inc. was consulted for
affordable housing needs in the City.
4 Agency/Group/Organization Basic Needs Giving Partnership
Agency/Group/Organization Type Regional organization
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What section of the Plan was addressed by
Consultation?
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Members of the Basic Needs Giving Partnership
were consulted for anti-poverty needs in the
City.
5 Agency/Group/Organization BOYS & GIRLS CLUB OF OSHKOSH
Agency/Group/Organization Type Services-Children
Services-Education
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Market Analysis
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Boys & Girls Club of Oshkosh was consulted
for LMI children's needs within the City.
6 Agency/Group/Organization CHRISTINE ANN DOMESTIC ABUSE SERVICES
Agency/Group/Organization Type Services-Victims of Domestic Violence
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Christine Ann Domestic Abuse Services was
consulted for the needs of domestic abuse
survivors within the City.
7 Agency/Group/Organization City of Oshkosh Senior Services
Agency/Group/Organization Type Services-Elderly Persons
Other government - Local
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Oshkosh Senior Services was consulted for the
needs of seniors living within the City.
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8 Agency/Group/Organization City of Oshkosh
Agency/Group/Organization Type Housing
Services - Housing
Services-Children
Services-Elderly Persons
Service-Fair Housing
Other government - Local
Planning organization
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Lead-based Paint Strategy
Non-Homeless Special Needs
Economic Development
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
City staff were consulted on the needs of
Oshkosh residents.
9 Agency/Group/Organization Day by Day Warming Shelter
Agency/Group/Organization Type Services-homeless
What section of the Plan was addressed by
Consultation?
Homelessness Strategy
Homeless Needs - Chronically homeless
Homeless Needs - Families with children
Homelessness Needs - Veterans
Homelessness Needs - Unaccompanied youth
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Day by Day Warming Shelter was consulted for
the needs of homeless individuals and families
within the City of Oshkosh.
10 Agency/Group/Organization First Weber Group
Agency/Group/Organization Type Housing
What section of the Plan was addressed by
Consultation?
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
First Weber Group was consulted for a housing
market analysis of Oshkosh.
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11 Agency/Group/Organization Forward Service Corporation
Agency/Group/Organization Type Services-Education
Services-Employment
What section of the Plan was addressed by
Consultation?
Economic Development
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Forward Service Corporation was consulted for
the economic development needs of the City of
Oshkosh and its residents.
12 Agency/Group/Organization Greater Oshkosh Economic Development
Corporation
Agency/Group/Organization Type Regional organization
Business Leaders
What section of the Plan was addressed by
Consultation?
Economic Development
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Greater Oshkosh Economic Development
Corporation was consulted for market analysis of
Oshkosh as well as the City's economic
development.
13 Agency/Group/Organization Legal Action of Wisconsin
Agency/Group/Organization Type Service-Fair Housing
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Fair Housing Education
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Legal Action of Wisconsin was consulted
regarding Fair Housing within Oshkosh.
14 Agency/Group/Organization METROPOLITAN MILWAUKEE FAIR HOUSING
COUNCIL
Agency/Group/Organization Type Service-Fair Housing
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Fair Housing
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Metropolitan Milwaukee Fair Housing
Council was consulted for Fair Housing education
and Fair Housing needs of the City of Oshkosh.
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15 Agency/Group/Organization Oshkosh Area School District
Agency/Group/Organization Type Services-Education
What section of the Plan was addressed by
Consultation?
Homeless Needs - Families with children
Homelessness Needs - Unaccompanied youth
Non-Homeless Special Needs
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Oshkosh Area School District was consulted
for the educational needs of children and young
adults within the City.
16 Agency/Group/Organization Oshkosh Fire Department
Agency/Group/Organization Type Agency - Emergency Management
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Oshkosh Fire Department was consulted for
emergency management and safety precautions
involving presumed low- to moderate-income
populations such as seniors and people with
disabilities.
17 Agency/Group/Organization Oshkosh Food Coop
Agency/Group/Organization Type Food Security and Nutrition
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Economic Development
Anti-poverty Strategy
Food Security and Nutrition
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Oshkosh Food Coop was consulted for the
nutrition and food security needs of Oshkosh
residents.
18 Agency/Group/Organization Greater Oshkosh Healthy Neighborhoods
Agency/Group/Organization Type Planning organization
Civic Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
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How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Greater Oshkosh Healthy Neighborhoods was
consulted for the housing market analysis of the
City of Oshkosh.
19 Agency/Group/Organization Oshkosh/Winnebago County Housing Authority
Agency/Group/Organization Type Housing
PHA
Services - Housing
Other government - County
Other government - Local
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Public Housing Needs
Non-Homeless Special Needs
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Oshkosh/Winnebago County Housing
Authority was consulted for the City's public
housing needs as well as the needs of the City's
low- to moderate-income residents.
20 Agency/Group/Organization Oshkosh Police Department
Agency/Group/Organization Type Agency - Emergency Management
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Oshkosh Police Department was consulted
for emergency management and safety
precautions involving presumed low- to
moderate-income populations such as seniors
and people with disabilities.
21 Agency/Group/Organization Oshkosh Salvation Army
Agency/Group/Organization Type Food Security and Nutrition
What section of the Plan was addressed by
Consultation?
Homelessness Strategy
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Oshkosh Salvation Army was consulted for the
needs of low- to moderate-income residents of
the City.
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22 Agency/Group/Organization Re/Max On The Water
Agency/Group/Organization Type Housing
Business Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
RE/MAX On The Water was consulted for the
housing needs of residents within the City.
23 Agency/Group/Organization Schwab Properties, LLC
Agency/Group/Organization Type Housing
Business Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Schwab Properties LLC was consulted for the
housing needs of residents within the City.
24 Agency/Group/Organization Trinity Lutheran Church
Agency/Group/Organization Type Food Security and Nutrition
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Trinity Lutheran Church was consulted for the
needs of low- to moderate-income residents of
the City, including food insecurity.
25 Agency/Group/Organization Winnebago Apartment Association
Agency/Group/Organization Type Housing
Business Leaders
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Economic Development
Market Analysis
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
The Winnebago Apartment Association was
consulted for the housing needs of residents
within the City.
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26 Agency/Group/Organization Winnebago County Health Department
Agency/Group/Organization Type Services-Persons with Disabilities
Services-Persons with HIV/AIDS
Services-Health
Health Agency
Other government - County
Regional organization
What section of the Plan was addressed by
Consultation?
Lead-based Paint Strategy
Non-Homeless Special Needs
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Winnebago County Health Department was
consulted for lead-based paint policies and
health and safety needs of Oshkosh residents.
27 Agency/Group/Organization Winnebago County Human Services
Agency/Group/Organization Type Services-Children
Services-Elderly Persons
Services-Persons with Disabilities
Services-Persons with HIV/AIDS
Services-Victims of Domestic Violence
Services-homeless
Services-Health
Services - Victims
Health Agency
Other government - County
Regional organization
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Winnebago County Human Services was
consulted for health and safety needs of
Oshkosh residents.
28 Agency/Group/Organization Winnebagoland Housing Coalition
Agency/Group/Organization Type Housing
Service-Fair Housing
Civic Leaders
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What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Economic Development
Market Analysis
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
Winnebagoland Housing Coalition was consulted
for affordable housing and public housing needs
in the City.
29 Agency/Group/Organization World Relief
Agency/Group/Organization Type Services-Employment
Service-Fair Housing
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
Anti-poverty Strategy
How was the Agency/Group/Organization
consulted and what are the anticipated
outcomes of the consultation or areas for
improved coordination?
World Relief was consulted for the needs of low-
to moderate-income residents within Oshkosh,
including resettled refugee populations.
Identify any Agency Types not consulted and provide rationale for not consulting
All stakeholders were contacted multiple times to consult on the Consolidated Plan, as well as being
notified of public hearings and of the Plan’s draft comment period. Some stakeholders did not provide
written or oral responses after being contacted.
Other local/regional/state/federal planning efforts considered when preparing the Plan
Name of Plan Lead Organization How do the goals of your Strategic
Plan overlap with the goals of each
plan?
Continuum of Care Winnebagoland Housing
Coalition
The goals of the City and the CoC are
complementary.
City of Oshkosh
Comprehensive Plan Update
2040
East Central Wisconsin
Regional Planning Commission
The goals of the City and the Planning
Commission are complementary
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Name of Plan Lead Organization How do the goals of your Strategic
Plan overlap with the goals of each
plan?
Oshkosh Housing Authority 5
Year Plan
Oshkosh Housing Authority The goals of the City and the Housing
Authority are complementary.
Strategic Plan City of Oshkosh The goals are complementary.
Imagine Oshkosh Imagine Oshkosh Advisory
Group
The goals are complementary.
Sustainability Plan Oshkosh Sustainability
Advisory Board
The goals are complementary.
Sawdust District Plan Sawdust District Plan The goals are complementary.
Public Art and Beautification
Strategic Plan
Public Arts and Beautification
Committee
The goals are complementary.
Bicycle and Pedestrian
Master Plan
Bicycle and Pedestrian
Advisory Committee
The goals are complementary.
Table 3 – Other local / regional / federal planning efforts
Describe cooperation and coordination with other public entities, including the State and any
adjacent units of general local government, in the implementation of the Consolidated Plan
(91.215(l))
Close coordination is maintained with other City departments, as well as County departments. The City
has developed partnerships with the Fox Cities to jointly address the housing and community
development needs affecting the region as a whole. The City works closely with the
Oshkosh/Winnebago County Housing Authority to address the housing needs of lower income residents.
Through the Winnebagoland CoC, the City is in consultation with the State of Wisconsin concerning
homeless needs.
Narrative (optional):
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PR-15 Citizen Participation – 91.105, 91.115, 91.200(c) and 91.300(c)
1. Summary of citizen participation process/Efforts made to broaden citizen participation
Summarize citizen participation process and how it impacted goal-setting
The City of Oshkosh prepared the Five-Year Consolidated and Annual Action Plan in compliance with the City's Citizen Participation Plan.
As mentioned in the summary of citizen participation process and consultation process in the ES -05 Executive Summary section, the City held its
first Public Meeting on April 21, 2025 and its second Public Meeting on May 19, 2025. These Hearings provided residents and stakeholders the
opportunity to discuss the City's CDBG program and provide input concerning the funding priorities.
The Public Meetings/Hearings advertisement was published in the Oshkosh Northwestern on April 13 and May 25.
A “draft” of the Consolidated Plan and 2025 Annual Action Plan was placed on public display and available for public comment from May 28,
2025 until June 27, 2025 at the following locations for review:
• City of Oshkosh Department of Community Development - 215 Church Avenue, Oshkosh, WI 54903-1130
• City of Oshkosh website (https://www.oshkoshwi.gov/EconomicDevelopment/) Government section of the website under "Economic
Development Division"
• Oshkosh Public Library, 106 Washington Avenue, Oshkosh, WI 54901
The City Council passed a resolution on June 24, 2025 approving the submission of the Five-Year Consolidated, Annual Action Plan and Citizen
Participation Plan to HUD. The plans were electronically submitted through HUD's online IDIS system on June 27, 2025.
During the development of the plans, numerous stakeholders were consulted through individual meetings, roundtable discussions, and phone
calls. Including in the Appendix under the “Citizen Participation” attachment is a documentation on all notes and public comments.
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Citizen Participation Outreach
Sort Or
der
Mode of Outr
each
Target of Outr
each
Summary of
response/atten
dance
Summary of
comments rec
eived
Summary of com
ments not
accepted
and reasons
URL (If applicable)
1 Public
Meeting
Non-
targeted/broa
d community
Two (2) City
staff attended
the April 21,
2025 public
meeting. A
public notice
detailing the
public
meeting/hearing
schedule was
published in the
Oshkosh
Northwestern.
No comments
were received.
N/A https://www.oshkoshwi.gov/EconomicD
evelopment/
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Sort Or
der
Mode of Outr
each
Target of Outr
each
Summary of
response/atten
dance
Summary of
comments rec
eived
Summary of com
ments not
accepted
and reasons
URL (If applicable)
2 Public
Meeting
Non-
targeted/broa
d community
Two (2) City
staff attended
the May 19,
2025 public
meeting. A
public notice
detailing the
public
meeting/hearing
schedule was
published in the
Oshkosh
Northwestern.
No comments
were received.
N/A https://www.oshkoshwi.gov/EconomicD
evelopment/
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Sort Or
der
Mode of Outr
each
Target of Outr
each
Summary of
response/atten
dance
Summary of
comments rec
eived
Summary of com
ments not
accepted
and reasons
URL (If applicable)
3 Public Hearing Non-
targeted/broa
d community
The June 17,
2025 Public
Hearing was
held at the Plan
Commission
meeting. A
public notice
detailing the
public
meeting/hearing
schedule was
published in the
Oshkosh
Northwestern.
No comments
were received.
N/A https://www.oshkoshwi.gov/EconomicD
evelopment/
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Sort Or
der
Mode of Outr
each
Target of Outr
each
Summary of
response/atten
dance
Summary of
comments rec
eived
Summary of com
ments not
accepted
and reasons
URL (If applicable)
4 Public Hearing Non-
targeted/broa
d community
The June 24,
2025 Public
Hearing was
held at the
Common
Council meeting.
A public notice
detailing the
public
meeting/hearing
schedule was
published in the
Oshkosh
Northwestern.
No comments
were received.
N/A https://www.oshkoshwi.gov/EconomicD
evelopment/
5 Newspaper
Ad
Non-
targeted/broa
d community
A public notice
detailing the
public
meeting/hearing
schedule was
published in the
Oshkosh
Northwestern.
No comments
were received.
N/A https://www.oshkoshwi.gov/EconomicD
evelopment/
Table 4 – Citizen Participation Outreach
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Needs Assessment
NA-05 Overview
Needs Assessment Overview
The City identified the following priority needs based on consultations with various community
stakeholders, area service agencies, City staff, community residents.
1. Affordable Housing Needs
2. Homeless Needs
3. Community Development Needs
4. Administration, Planning and Management Needs
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NA-10 Housing Needs Assessment - 24 CFR 91.205 (a,b,c)
Summary of Housing Needs
To determine the City's housing needs, the City assessed its supply of and demand for affordable
housing. The City analyzed data provided by the U.S. Census Department and input received through
consultations. The following data sets were used:
• 2000 U.S. Census
• 2010 U.S. Census
• 2016-2020 American Community Survey (ACS)
• 2016-2020 Comprehensive Housing Affordability Strategy (CHAS)
Based on a comparison of the 2000 U.S. Census and the 2016-2020 American Community Survey, the
City of Oshkosh experienced a minimal growth in population (0% increase), an increase in the number of
households (2% increase), and an increase in household median income (20% increase) over the period
analyzed.
According to the 2016-2020 ACS, 4,378 of renter households in the City paid rents that exceeded 30% of
their household income and 2,410 of owner households with a mortgage in the City had housing costs
that exceed 30% of their household income.
The City identified the following criteria as required by 24 CFR 91.205, “Housing needs disaggregated by
racial and ethnic groups were analyzed to determine if a group disproportionately experienced a
housing need as compared to the City's overall housing needs. A disproportionately greater need was
identified when a racial or ethnic group experienced a 10 percentage points or higher occurrence rate of
severe housing problems.” The City used U.S. Census and CHAS provided data to analyze
Disproportionately Greater Needs in sections NA-15 through NA-30.
The City of Oshkosh used HUD’s definition of an Area of Minority Concentration, “A neighborhood in
which the percentage of persons of a particular racial or ethnic minority is at least 20 points higher than
that minority's percentage in the housing market as a whole; The neighborhood's total percentage of
minority persons is at least 20 points higher than the total percentage of minorities for the housing
market area as a whole.” The City used U.S. Census and CHAS provided data to analyze areas of minority
concentration in sections NA-30 and MA-50. Using the data available there were no block groups that
met the HUD definition of an area of minority concentration.
The City is aware that the minority populations may experience disproportionately greater housing
problems but due to statistical limitations the City is not able to demonstrate this through U.S. Census
backed data. The City is very aware of its obligations to outreach to the minority communities, especially
Limited English Proficient persons such as Spanish and Hmong speakers. The City markets the availability
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of its programs directly to the minority community through service providers, local businesses, the
school system, and community organizations.
Demographics Base Year: 2009 Most Recent Year: 2020 % Change
Population 66,580 66,755 0%
Households 26,150 26,725 2%
Median Income $42,650.00 $51,282.00 20%
Table 5 - Housing Needs Assessment Demographics
Data Source: 2000 Census (Base Year), 2016-2020 ACS (Most Recent Year)
Number of Households Table
0-30%
HAMFI
>30-50%
HAMFI
>50-80%
HAMFI
>80-100%
HAMFI
>100%
HAMFI
Total Households 4,065 3,820 5,205 2,870 10,760
Small Family Households 585 1,090 1,395 1,035 5,310
Large Family Households 75 120 155 155 465
Household contains at least one
person 62-74 years of age 605 700 1,115 530 1,935
Household contains at least one
person age 75 or older 1,045 755 885 375 715
Households with one or more
children 6 years old or younger 425 429 555 440 1,025
Table 6 - Total Households Table
Data Source: 2016-2020 CHAS
Definitions
HUD Area Median Family Income, or HAMFI, is the median family income calculated by HUD for each
jurisdiction, in order to determine Fair Market Rents (FMRs) and income limits for HUD programs.
HAMFI will not necessarily be the same as other calculations of median incomes, due to a series of
adjustments that are made. Terms “area median income” (AMI) and “median family income” (MFI) refer
to HAMFI for purposes of this data. A family, per definition of the Census Bureau, is related individuals
living in the same household. Small family households are defined as two persons, neither over the age
of 62, or three or four persons. Large family households are comprised of five or more persons.
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Housing Needs Summary Tables
1. Housing Problems (Households with one of the listed needs)
Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Substandard
Housing -
Lacking
complete
plumbing or
kitchen facilities 50 45 45 10 150 10 0 50 10 70
Severely
Overcrowded -
With >1.51
people per
room (and
complete
kitchen and
plumbing) 0 65 0 0 65 0 0 0 0 0
Overcrowded -
With 1.01-1.5
people per
room (and none
of the above
problems) 55 10 25 0 90 0 0 30 50 80
Housing cost
burden greater
than 50% of
income (and
none of the
above
problems) 1,685 425 15 160 2,285 580 265 75 0 920
Housing cost
burden greater
than 30% of
income (and
none of the
above
problems) 365 1,305 405 30 2,105 155 505 785 105 1,550
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Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
Zero/negative
Income (and
none of the
above
problems) 240 0 0 0 240 470 0 0 0 470
Table 7 – Housing Problems Table
Data
Source:
2016-2020 CHAS
2. Housing Problems 2 (Households with one or more Severe Housing Problems: Lacks kitchen
or complete plumbing, severe overcrowding, severe cost burden)
Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total 0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Having 1 or more of
four housing
problems 1,790 545 90 170 2,595 590 265 155 55 1,065
Having none of four
housing problems 1,005 1,810 2,560 1,165 6,540 680 1,200 2,405 1,475 5,760
Household has
negative income,
but none of the
other housing
problems 0 0 0 0 0 0 0 0 0 0
Table 8 – Housing Problems 2
Data
Source:
2016-2020 CHAS
3. Cost Burden > 30%
Renter Owner
0-30%
AMI
>30-50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
NUMBER OF HOUSEHOLDS
Small Related 395 515 115 1,025 80 285 220 585
Large Related 40 40 20 100 10 10 0 20
Elderly 499 515 129 1,143 525 325 525 1,375
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Renter Owner
0-30%
AMI
>30-50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
Other 1,215 690 205 2,110 120 150 160 430
Total need by
income
2,149 1,760 469 4,378 735 770 905 2,410
Table 9 – Cost Burden > 30%
Data
Source:
2016-2020 CHAS
4. Cost Burden > 50%
Renter Owner
0-30%
AMI
>30-50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
NUMBER OF HOUSEHOLDS
Small Related 0 0 125 125 60 140 0 200
Large Related 0 0 0 0 10 0 0 10
Elderly 375 80 4 459 420 95 15 530
Other 0 1,015 240 1,255 90 0 0 90
Total need by
income
375 1,095 369 1,839 580 235 15 830
Table 10 – Cost Burden > 50%
Data
Source:
2016-2020 CHAS
5. Crowding (More than one person per room)
Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Single family
households 55 65 10 0 130 0 0 30 40 70
Multiple, unrelated
family households 0 0 15 0 15 0 0 0 10 10
Other, non-family
households 0 10 25 0 35 0 0 0 0 0
Total need by
income
55 75 50 0 180 0 0 30 50 80
Table 11 – Crowding Information – 1/2
Data
Source:
2016-2020 CHAS
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Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
Households with
Children Present 255 340 225 820 170 89 330 589
Table 12 – Crowding Information – 2/2
Data Source
Comments: 2016-2020 CHAS
Describe the number and type of single person households in need of housing assistance.
Housing assistance in the form of affordability for a large number of single person households is a need.
This includes primarily renters, but also owner occupied as well.
Estimate the number and type of families in need of housing assistance who are disabled or
victims of domestic violence, dating violence, sexual assault and stalking.
According to the 2016-2020 American Community Survey, 9.8% of the population have a disability. Of
the Under 18 Population, 4.2% have a disability. There is a need for accessible housing, employment
opportunities, and supportive services.
Christine Ann Domestic Abuse Services reported on average a total of 600 unique individuals are served
and 175 unique individuals use shelter services annually due to domestic violence, dating violence,
sexual assault, and stalking.
What are the most common housing problems?
The largest housing problem in the City and the surrounding region is housing affordability. According to
the 2016-2020 American Community Survey, 4,378 renter households in the City paid rents that
exceeded 30% of their household income, 2,410 owner households in the City had housing costs that
exceed 30% of their household income.
Additional housing problems that were discussed in consultations and received from public comments
included: need for first time homebuyer assistance, housing counseling, handicap accessible housing,
availability of senior housing, availability of group home or communal living arrangements,
rehabilitation assistance, abatement of lead-based paint in housing units, and code compliance for
housing. The CoC has recognized the increased demand to assist families at risk of homelessness or
recently homeless through short term rental assistance, utility assistance and corresponding supportive
services.
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Are any populations/household types more affected than others by these problems?
Based on the information provided by the U.S. Census data: renters; lower income owner households;
elderly persons; single person households; large families; victims of domestic violence, dating violence,
sexual assault and stalking; and persons with disabilities are more affected by these housing problems.
Describe the characteristics and needs of Low-income individuals and families with children
(especially extremely low-income) who are currently housed but are at imminent risk of
either residing in shelters or becoming unsheltered 91.205(c)/91.305(c)). Also discuss the
needs of formerly homeless families and individuals who are receiving rapid re-housing
assistance and are nearing the termination of that assistance
The following characteristics and needs of the LMI population who are currently housed but are at
imminent risk of homelessness were identified:
Individuals - Mental health issues; criminal histories severely limiting job opportunities; lack of
sustainable living wages; lack of training for available jobs; evictions; lack of a support system; lack of
transportation; and substance abuse issues.
Families with Children - Lack of transportation; access to affordable childcare; lack of education; a lack of
job skills; eviction history; unemployed or employed at nonliving wage job; and lack of support system.
Formerly Homeless Individuals/Families Receiving Rapid Rehousing Assistance Nearing Termination -
Further assistance is needed to ensure success of remaining in housing.
Many residents in the City are housing cost burdened and at risk of becoming homeless after
experiencing a financial hardship. The high cost of market rent plays a significant role in making it
difficult for residents to remain in their homes. Most low-income families and persons at-risk of
becoming homeless, including persons who are victims of domestic violence, are facing eviction due to
the high cost of housing. Families and individuals would greatly benefit from emergency housing
assistance for rent or mortgage payments, as well as utility payment assistance to avoid homelessness.
Additionally, job training, employment skills enhancement, and access to transportation would support
LMI households to remain in their housing.
The Winnebagoland CoC has very little turnover in its Permanent Supportive Housing program. The
program began in December of 2015, and have had only three (3) exits. There is a noted difficulty in
finding one-bedroom units in the area for further participants. Housing placement is client-driven; they
decide where they want to live, and the CoC is mindful of accessibility to transportation, grocery stores,
and other supportive institutions when suggesting potential sites.
The head of the Oshkosh Landlord Association frequently attends CoC meetings, and ADVOCAP, a
member of the CoC, attends Landlord Association meetings. This is a clear indication that there is an
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established relationship between the CoC and landlords, though training of landlords remains informal.
When working with landlords, the CoC emphasizes the case management services provided by
ADVOCAP and other members. The CoC also has trained case managers to ensure that they address
those in Rapid Rehousing using best practices including housing first, housing focused case
management, harm reduction, motivational interviewing, and trauma-informed care.
If a jurisdiction provides estimates of the at-risk population(s), it should also include a
description of the operational definition of the at-risk group and the methodology used to
generate the estimates:
The McKinney-Vento Act established categories in the Homeless Definition Final Rule for the At-Risk
Group. The Act was amended to include assistance to those at risk of homelessness who did not meet
the definition in the Final Rule. These include: 1) individuals and families; 2) unaccompanied children
and youth; and 3) families with children and youth.
According to the CoC, the methodology used to generate estimates is based on historical incidence, such
as the yearly Point in Time Counts and Homeless Management Information System (HMIS) data.
Providers participating in the HMIS are required to collect and record certain data elements for all new
and continuing clients in the HMIS.
Imminent Risk of Homelessness - Persons who are housed and at imminent risk of losing housing include
people who at program entry or program exit are experiencing one of the following:
• Being evicted from a private dwelling unit (including housing provided by family/friends)
• Being discharged from a hospital or other institution
• Living in a hotel or motel and lacking the financial resources to remain housed in the
establishment
• Living in housing that has been condemned by housing officials and is no longer considered
meant for human habitation
Additionally, a person residing in one of these places must also meet the following two conditions:
• Have no appropriate subsequent housing options identified
• Lack the financial resources and support networks needed to obtain immediate housing or
remain in existing housing
Unstably housed and at-risk of losing their housing - persons who are housed and at-risk of losing
housing include people who at program entry or program exit:
• Are in their own housing or doubled up with friends or relatives and at-risk of losing their
housing due to high housing costs, conflict, or other conditions negatively impacting their ability
to remain housed
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• Living in a hotel or motel and lacking the financial resources to remain housed in the
establishment
• Lack the resources and support networks needed to maintain or obtain housing
Specify particular housing characteristics that have been linked with instability and an
increased risk of homelessness
The high cost of decent, safe and sanitary housing that is affordable and accessible in the City creates
instability and an increased risk of homelessness for lower income families in the area. Many families
are living from paycheck to paycheck and are paying over 30% of their income for housing, which may or
may not be decent, safe, sanitary and accessible. Additionally, single earner households with children
and persons in a household with a disability who are unable to obtain sustainable employment are at an
increased risk. Unexpected crises such as loss of income or loss of a second income earner to the
household and/or a medical or transportation emergency cost contribute to destabilizing low- and
moderate-income households. Many of these residents experience extreme rent burdens, become
unstable, and face homelessness with a first-time crises or loss of income. The lack of available
supportive housing and the cost overburden of housing as it relates to income/employment are the
major housing issues linked with instability and an increased risk of homelessness.
Discussion
The population of the City of Oshkosh is increasing, as well as the cost of housing; many residents are
facing the effects of increased housing costs and a shortage of decent, safe and sanitary housing that is
affordable and accessible to low income persons. The City has determined there is a Housing Priority
Need for additional decent, safe and sanitary housing that is affordable and accessible for homebuyers,
homeowners, and renters.
The City will continue to address this housing need by supporting the development of new affordable
housing units; assisting in the maintenance of affordable housing units; assisting renters and owners to
obtain affordable housing; providing housing rehabilitation assistance; and providing housing and
supportive service assistance to homeowners and renters, including the homeless, those at risk of being
homeless, and other special needs groups.
The ACS and CHAS data analyzed throughout the housing need (Section NA) section was provide by HUD
through the IDIS system. Additional housing needs were identified during consultations with
stakeholders and can be found in the Citizen Participation Appendix. Those needs were incorporated
into this plan.
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NA-15 Disproportionately Greater Need: Housing Problems – 91.205 (b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction
Housing needs disaggregated by racial and ethnic groups were analyzed to determine if a group
disproportionately experienced a housing need as compared to the City's overall housing needs.
A disproportionately greater need was identified when a racial or ethnic group experienced a 10
percentage points or higher occurrence rate of housing problems.
A housing problem is defined as one of the four following housing problems:
1. Housing lacks complete kitchen facilities
2. Housing lacks complete plumbing facilities
3. Housing has more than 1 person per room
4. Housing cost burden is over 30%
0%-30% of Area Median Income
Housing Problems Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 2,900 1,165 0
White 2,540 1,055 0
Black / African American 74 70 0
Asian 80 40 0
American Indian, Alaska Native 0 0 0
Pacific Islander 20 0 0
Hispanic 155 0 0
Table 13 - Disproportionally Greater Need 0 - 30% AMI
Data Source: 2016-2020 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
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30%-50% of Area Median Income
Housing Problems Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 2,620 1,200 0
White 2,220 1,095 0
Black / African American 115 54 0
Asian 110 25 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 70 25 0
Table 14 - Disproportionally Greater Need 30 - 50% AMI
Data Source: 2016-2020 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
50%-80% of Area Median Income
Housing Problems Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 1,435 3,770 0
White 1,325 3,470 0
Black / African American 4 80 0
Asian 40 80 0
American Indian, Alaska Native 0 8 0
Pacific Islander 0 0 0
Hispanic 70 75 0
Table 15 - Disproportionally Greater Need 50 - 80% AMI
Data Source: 2016-2020 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
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80%-100% of Area Median Income
Housing Problems Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 360 2,505 0
White 155 2,380 0
Black / African American 0 29 0
Asian 40 35 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 0 55 0
Table 16 - Disproportionally Greater Need 80 - 100% AMI
Data Source: 2016-2020 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
Discussion
The City is aware that the minority populations may experience disproportionately greater housing
problems but due to statistical limitations the City is not able to demonstrate this through U.S. Census
backed data. The City is very aware of its obligations to outreach to the minority communities, especially
Limited English Proficient persons such as Spanish and Hmong speakers. The City markets the availability
of its programs directly to the minority community through service providers, local businesses, the
school system, and community organizations.
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NA-20 Disproportionately Greater Need: Severe Housing Problems – 91.205
(b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction
Housing needs disaggregated by racial and ethnic groups were analyzed to determine if a group
disproportionately experienced a housing need as compared to the City's overall housing needs. A
disproportionately greater need was identified when a racial or ethnic group experienced a 10
percentage points or higher occurrence rate of severe housing problems.
A severe housing problem is defined as one of the four following housing problems:
1. Housing lacks complete kitchen facilities;
2. Housing lacks complete plumbing facilities;
3. Housing has more than 1.5 persons per room; and
4. Housing cost burden is over 50%.
The following tables evaluating the 2016-2020 CHAS and ACS data highlight severe housing problems in
the City of Oshkosh.
0%-30% of Area Median Income
Severe Housing Problems* Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 2,380 1,685 0
White 2,060 1,540 0
Black / African American 54 90 0
Asian 80 40 0
American Indian, Alaska Native 0 0 0
Pacific Islander 20 0 0
Hispanic 155 0 0
Table 17 – Severe Housing Problems 0 - 30% AMI
Data Source: 2016-2020 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
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30%-50% of Area Median Income
Severe Housing Problems* Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 810 3,010 0
White 665 2,650 0
Black / African American 25 144 0
Asian 40 95 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 25 75 0
Table 18 – Severe Housing Problems 30 - 50% AMI
Data Source: 2016-2020 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
50%-80% of Area Median Income
Severe Housing Problems* Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 245 4,965 0
White 215 4,575 0
Black / African American 4 80 0
Asian 20 100 0
American Indian, Alaska Native 0 8 0
Pacific Islander 0 0 0
Hispanic 0 145 0
Table 19 – Severe Housing Problems 50 - 80% AMI
Data Source: 2016-2020 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
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80%-100% of Area Median Income
Severe Housing Problems* Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative
income, but none
of the other
housing problems
Jurisdiction as a whole 225 2,640 0
White 30 2,510 0
Black / African American 0 29 0
Asian 40 35 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 0 55 0
Table 20 – Severe Housing Problems 80 - 100% AMI
Data Source: 2016-2020 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
Discussion
The City is aware that the minority populations may experience disproportionately greater housing
problems but due to statistical limitations the City is not able to demonstrate this through U.S. Census
backed data. The City is very aware of its obligations to outreach to the minority communities, especially
Limited English Proficient persons such as Spanish and Hmong speakers. The City markets the availability
of its programs directly to the minority community through service providers, local businesses, the
school system, and community organizations.
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NA-25 Disproportionately Greater Need: Housing Cost Burdens – 91.205 (b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction:
Housing needs disaggregated by racial and ethnic groups were analyzed to determine if a group
disproportionately experienced a housing need as compared to the City's overall housing needs. A
disproportionately greater need was identified when a racial or ethnic group experienced a 10
percentage points or higher occurrence rate of housing cost burdens. A housing cost burden is defined
as household paying over 30% of household AMI on housing costs. The following tables evaluating the
2016-2020 CHAS and ACS data highlight disproportionate needs in the City of Oshkosh.
Housing Cost Burden
Housing Cost Burden <=30% 30-50% >50% No / negative
income (not
computed)
Jurisdiction as a whole 18,725 3,995 3,285 710
White 17,445 3,590 2,740 600
Black / African American 200 110 79 70
Asian 355 105 120 40
American Indian, Alaska
Native 19 0 0 0
Pacific Islander 0 20 0 0
Hispanic 450 120 180 0
Table 21 – Greater Need: Housing Cost Burdens AMI
Data Source: 2016-2020 CHAS
Discussion:
The City is aware that the minority populations may experience disproportionately greater housing
problems but due to statistical limitations the City is not able to demonstrate this through U.S. Census
backed data. The City is very aware of its obligations to outreach to the minority communities, especially
Limited English Proficient persons such as Spanish and Hmong speakers. The City markets the availability
of its programs directly to the minority community through service providers, local businesses, the
school system, and community organizations.
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NA-30 Disproportionately Greater Need: Discussion – 91.205(b)(2)
Are there any Income categories in which a racial or ethnic group has disproportionately
greater need than the needs of that income category as a whole?
The City is aware that the minority populations may experience disproportionately greater housing
problems but due to statistical limitations the City is not able to demonstrate this through U.S. Census
backed data. The City is very aware of its obligations to outreach to the minority communities, especially
Limited English Proficient persons such as Spanish and Hmong speakers. The City markets the availability
of its programs directly to the minority community through service providers, local businesses, the
school system, and community organizations.
According to the 2023 ACS, the total amount of households in Oshkosh is 28,147. The racial and ethnic
household composition of the City of Oshkosh according to the 2016-2020 ACS was 90.8% White (25,547
households), 7.3% Black/African American (422 households), 2.9% Asian (809 households), 1.6%
American Indian Alaska Native (46 households), 0.48% Pacific Islander (134 households) and 4.2%
Hispanic (1,185 households).
If they have needs not identified above, what are those needs?
The City recognizes that limited english proficiency is integrated into housing problems as it relates to
racial/ethnic groups. To better address these needs the City will continue to utilize its Language Access
Plan (LAP).
Are any of those racial or ethnic groups located in specific areas or neighborhoods in your
community?
The City defines an Area of Minority Concentration as:
• A neighborhood in which the percentage of persons of a particular racial or ethnic minority is at
least 20 points higher than that minority's percentage in the housing market as a whole;
• The neighborhood's total percentage of minority persons is at least 20 points higher than the
total percentage of minorities for the housing market area as a whole; or
• In the case of a metropolitan area, the neighborhood's total percentage of minority persons
exceeds 50 percent of its population.
There are no Census Tracts in the City of Oshkosh that qualify as areas of minority concentration.
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NA-35 Public Housing – 91.205(b)
Introduction
The Oshkosh / Winnebago County Housing Authority provides affordable rental housing assistance, homebuyer support, and resident services to
low and moderately low income families living in Winnebago County, WI. Formed in 1970, The Housing Authority now maintains over 650 Public
Housing units including family, single, disabled, and elderly units, administers over 400 Housing Choice Vouchers, owns and maintains the
properties of multiple group homes, coordinates a family self sufficiency program, and facilitates the county's home ownership program.
The following data concerning the housing authority is provided by HUD’s PIH Information Center. Additional information concerning the
housing authority’s portfolio, programs, and services is available in Sections MA-25, SP-50, and AP-60.
Totals in Use
Program Type
Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
# of units vouchers in use 0 0 308 0 0 0 0 0 0
Table 22 - Public Housing by Program Type
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Data Source: PIC (PIH Information Center)
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Characteristics of Residents
Program Type
Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Average Annual Income 0 0 11,853 0 0 0 0 0
Average length of stay 0 0 5 0 0 0 0 0
Average Household size 0 0 1 0 0 0 0 0
# Homeless at admission 0 0 2 0 0 0 0 0
# of Elderly Program Participants
(>62) 0 0 70 0 0 0 0 0
# of Disabled Families 0 0 144 0 0 0 0 0
# of Families requesting accessibility
features 0 0 308 0 0 0 0 0
# of HIV/AIDS program participants 0 0 0 0 0 0 0 0
# of DV victims 0 0 0 0 0 0 0 0
Table 23 – Characteristics of Public Housing Residents by Program Type
Data Source: PIC (PIH Information Center)
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Race of Residents
Program Type
Race Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
White 0 0 263 0 0 0 0 0 0
Black/African American 0 0 16 0 0 0 0 0 0
Asian 0 0 27 0 0 0 0 0 0
American Indian/Alaska
Native 0 0 1 0 0 0 0 0 0
Pacific Islander 0 0 1 0 0 0 0 0 0
Other 0 0 0 0 0 0 0 0 0
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 24 – Race of Public Housing Residents by Program Type
Data Source: PIC (PIH Information Center)
Ethnicity of Residents
Program Type
Ethnicity Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
Hispanic 0 0 5 0 0 0 0 0 0
Not Hispanic 0 0 303 0 0 0 0 0 0
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 25 – Ethnicity of Public Housing Residents by Program Type
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Data Source: PIC (PIH Information Center)
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Section 504 Needs Assessment: Describe the needs of public housing tenants and applicants
on the waiting list for accessible units:
The needs of public housing tenants and applicants on the waiting list are for accessible units and
accommodations, such as first floor units, entrance ramps, and unit proximity to elevators. The
Oshkosh/Winnebago County Public Housing waiting list is comprised of 24% of individuals with a
disability and the Housing Choice Voucher waiting list is comprised of 18% of individuals with a disability.
The Housing Authority makes reasonable accommodations for residents of its public housing units to
accommodate various disabilities. All new or improved units are designed for visibility and accessibility.
Most immediate needs of residents of Public Housing and Housing Choice voucher holders
As of January 2025, there were 1,236 individuals on the Oshkosh Housing Authority's Public Housing
Waiting List. The largest demand for affordable housing on the waiting list is for affordable housing for
extremely low-income households. The waiting list is currently closed.
As of January 2025, there were 980 individuals on the Winnebago County Housing Authority's Housing
Choice Voucher Waiting List. The largest demand for affordable housing on the waiting list is for
affordable housing for extremely low-income households. The waiting list is currently closed.
The most immediate needs of the families on the waiting list include: decent, safe and sanitary housing
that is affordable and accessible; supportive services such as employment training; access to
transportation for commuting to work, shopping, and medical services; and living wage job
opportunities.
How do these needs compare to the housing needs of the population at large
The Housing Authorities’ waiting lists are disproportionately representative of the extremely-low income
households of the City. While there are some similarities, such as the need for decent, safe and sanitary
housing that is affordable and accessible; the needs of the lowest income residents of Oshkosh are
specific to the need for highly subsidized housing.
Discussion
The Housing Authority is an important part of the City’s housing strategy, especially for those that are
extremely low-income households. The City has identified that there is a need for housing to address
households affected by housing problems, severe housing problems and housing cost burdens.
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NA-40 Homeless Needs Assessment – 91.205(c)
Introduction:
The City of Oshkosh is part of the Winnebagoland Housing Coalition, which is part of the Wisconsin Balance of State CoC. The Balance of State is
split into 21 local homeless coalitions, each consisting of the governance structure for a CoC. The Winnebagoland Housing Coalition addresses
issues related to homelessness in Fond du Lac, Green Lake, and Winnebago Counties. The CoC identifies regional and local homeless issues;
coordinate planning for projects; identify housing gaps and needs, strategies and priorities; review, select, and monitor projects; monitor
Homeless Management Information System (HMIS) participation and implementation issues; and help coordinate and follow up on the point-in-
time count and AHAR (Annual Homeless Assessment Report). Committees of the CoC review and rank new and renewal projects annually.
The Homeless Service Providers Network consists of a collaboration between various state agencies, entitlement grantees, and direct homeless
service providers. The roles of the Homeless Service Providers Network are to identify and address policy issues, set state priorities, ensure
coordination among public and private agencies, and maximize use of mainstream and state resources. It also is the lead entity in the Ten-Year
planning process; conducts research, coordinates the Continuum of Care (CoC) application process, and provides technical assistance to 18
regional Continuums of Care and individual grantees. It provides updates on discharge plans and state disaster planning. During monthly
meetings, the Winnebagoland Housing Coalition and the Homeless Service Providers Network report on regional, municipal and county activities
and concerns. The group also addresses issues and topics of common interest that impact state and local homeless systems.
Homeless Needs Assessment
Population Estimate the # of persons
experiencing homelessness
on a given night
Estimate the #
experiencing
homelessness
each year
Estimate the #
becoming
homeless
each year
Estimate the #
exiting
homelessness
each year
Estimate the #
of days persons
experience
homelessness
Sheltered Unsheltered
Persons in Households with Adult(s)
and Child(ren) 0 77 0 0 0 0
Persons in Households with Only
Children 0 0 0 0 0 0
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Population Estimate the # of persons
experiencing homelessness
on a given night
Estimate the #
experiencing
homelessness
each year
Estimate the #
becoming
homeless
each year
Estimate the #
exiting
homelessness
each year
Estimate the #
of days persons
experience
homelessness
Sheltered Unsheltered
Persons in Households with Only
Adults 0 25 352 177 24 74
Chronically Homeless Individuals 6 13 108 24 5 97
Chronically Homeless Families 0 0 0 0 0 0
Veterans 0 6 19 6 0 138
Unaccompanied Child 0 0 0 0 0 0
Persons with HIV 0 1 2 1 0 88
Table 26 - Homeless Needs Assessment
Data Source Comments:
Homeless Management Information System (HMIS) and January 2025 PIT.
Indicate if the homeless population is: Has No Rural Homeless
If data is not available for the categories "number of persons becoming and exiting homelessness each year," and "number of
days that persons experience homelessness," describe these categories for each homeless population type (including chronically
homeless individuals and families, families with children, veterans and their families, and unaccompanied youth):
The City uses the HUD definition of Homelessness in the following four categories:
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1) Literally Homeless: People who are living in a place not meant for human habitation, in emergency shelter, in transitional housing, or are
exiting an institution where they temporarily resided.
2) At Imminent Risk of Homelessness: People who are losing their primary nighttime residence, which may include a motel or hotel or a doubled-
up situation, within 14 days and lack resources or support networks to remain in housing.
3) Homelessness under other Federal Statues: Families with children or unaccompanied youth who are unstably housed and likely to continue in
that state. This is a new category of homelessness, and it applies to families with children or unaccompanied youth who have not had a lease or
ownership interest in a housing unit in the last 60 or more days, have had two or more moves in the last 60 days, and who are likely to continue
to be unstably housed because of disability or multiple barriers to employment.
4) Fleeing or attempting to flee domestic violence: People who are fleeing or attempting to flee domestic violence, have no other residence, and
lack the resources or support networks to obtain other permanent housing.
The City uses the HUD definition of Chronically Homeless:
1) A ‘‘homeless individual with a disability,’’ as defined in section 401(9) of the McKinney-Vento Homeless Assistance Act (42 U.S.C. 11360(9)),
who: (i) Lives in a place not meant for human habitation, a safe haven, or in an emergency shelter; and (ii) Has been homeless and living as
described in paragraph (1)(i) of this definition continuously for at least 12 months or on at least 4 separate occasions in the last 3 years, as long
as the combined occasions equal at least 12 months and each break in homelessness separating the occasions included at least 7 consecutive
nights of not living as described in paragraph (1)(i). Stays in institutional care facilities for fewer than 90 days will not constitute as a break in
homelessness, but rather such stays are included in the 12-month total, as long as the individual was living or residing in a place not meant for
human habitation, a safe haven, or an emergency shelter immediately before entering the institutional care facility;
2) An individual who has been residing in an institutional care facility, including a jail, substance abuse or mental health treatment facility,
hospital, or other similar facility, for fewer than 90 days and met all of the criteria in paragraph (1) of this definition, before entering that facility;
or
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3) A family with an adult head of household (or if there is no adult in the family, a minor head of household) who meets all of the criteria in
paragraph (1) or (2) of this definition, including a family whose composition has fluctuated while the head of household has been homeless.
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Nature and Extent of Homelessness: (Optional)
Race: Sheltered: Unsheltered (optional)
White 35 0
Black or African American 8 0
Asian 0 0
American Indian or Alaska
Native 2 0
Pacific Islander 0 0
Ethnicity: Sheltered: Unsheltered (optional)
Hispanic 2 0
Not Hispanic 44 0
Data Source
Comments: Homeless Management Information System (HMIS)
Estimate the number and type of families in need of housing assistance for families with
children and the families of veterans.
All low-income families who are cost burdened or severely cost burdened are in need of housing
assistance; however, for the purpose of this section, families at risk imminent risk of homelessness and
those who are literally homeless.
Describe the Nature and Extent of Homelessness by Racial and Ethnic Group.
Throughout the Winnebagoland CoC, the majority of homeless individuals and families, both sheltered
and unsheltered, are white.
Describe the Nature and Extent of Unsheltered and Sheltered Homelessness.
Unsheltered Homelessness would refer to the segment of a homeless community who do not have
ordinary lawful access to buildings in which to sleep, as referred to in the HUD definition as persons
occupying "place not meant for human habitation”, (examples: bus stop, beach, riverbed, van, RV,
sidewalk). Many of the unsheltered homeless suffer from substance abuse and/or mental illness, and
are reluctant to abide by the rules of the shelters. According to the January 2025 PIT Count, there were
6 unsheltered homeless persons within Oshkosh.
Sheltered Homelessness would refer to those in an emergency shelter, in transitional housing, or are
exiting an institution where they temporarily resided lacking a fixed night time residence. Substance
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abuse and/or mental illness is also an issue with people considered sheltered homeless. People will
retain a homeless designation if they were homeless prior to entering and then exiting an institution
where they have resided for less than 30 days. People will not be considered homeless if they remain in
an institution over 90 days, but will be considered homeless again if they spend a night in an emergency
shelter or out on the streets. People who stay in a motel are considered sheltered homeless as well if it
is documented that an agency or someone else paid for the room. Doubling up in someone else’s home
does not count as sheltered homeless. The sheltered homeless typically do not have a steady source of
income, or any source of income. According to the March 2025 PIT Count, there were 215 sheltered
homeless persons in Oshkosh.
Discussion:
The CoC has a Coordinated Entry workgroup that follows HUD requirements ensuring all CoC and ESG
funded programs follow a housing first model. Shelters admit clients with substance abuse and/or
mental health issues, and criminal backgrounds. The coordinated entry system has improved shelter
access throughout the area and ensures available beds are utilized. The CoC is actively coordinating with
privately funded shelters to collect homeless data and to encourage utilization of the coordinated entry
system and housing first model. The CoC relies on information from stakeholders to identify and target
known locations of unsheltered homeless people to analyze the housing needs of unsheltered persons.
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NA-45 Non-Homeless Special Needs Assessment - 91.205 (b,d)
Introduction:
To determine the City's non-homeless needs the City assessed the housing needs of residents who are
not homeless but require supportive housing. The needs of each one of these groups were determined
through consultations with stakeholders and analysis of statistical data.
Describe the characteristics of special needs populations in your community:
According to the 2024 American Community Survey estimates, the elderly population represents 15.5%
of the City’s total population, an over 2% increase from 2011-2015 ACS. According to the 2023 American
Community Survey, of the Under 65 Population, 9.89% have a disability. Difficulties can include hearing,
vision, cognitive, ambulatory, self care and independent living.
The Winnebago County Health Department publishes a Behavioral Risk Factor Surveillance System
(BRFSS) 2023 data reports 27% of adults binge drinking or heavy drinking. Drug overdose death rates
have over doubled in recent years both nationally and in Wisconsin. Opioid Overdose Deaths in
Wisconsin for 2013 were 588, and in 2023 were 1415.
Christine Ann Domestic Abuse Services reported on average a total of 600 unique individuals are served
and 175 unique individuals use shelter services annually due to domestic violence, dating violence,
sexual assault, and stalking.
What are the housing and supportive service needs of these populations and how are these
needs determined?
Within these populations there is a need for affordable housing, accessibility modifications for housing
units, assisted living services, food accessibility, mental health services, sober living availbility.
Discuss the size and characteristics of the population with HIV/AIDS and their families within
the Eligible Metropolitan Statistical Area:
According to the Winnebago County Health Department, in accordance with the State, HIV/AIDS cases in
Winnebago County is so low that providing current, detailed information could potentially violate
patient confidentiality. According to the 2023 Wisconsin HIV Surveillance Annual Review, there was six
(6) new diagnoses of HIV in Winnebago County in 2023. Elderly households tend to be on fixed incomes,
may need some supportive services for accessibility adaptations to their living units.
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If the PJ will establish a preference for a HOME TBRA activity for persons with a specific
category of disabilities (e.g., persons with HIV/AIDS or chronic mental illness), describe their
unmet need for housing and services needed to narrow the gap in benefits and services
received by such persons. (See 24 CFR 92.209(c)(2) (ii))
N/A
Discussion:
The Winnebago County Department of Human Services provides care and protection to County
residents from infancy to old age, through consumer-focused programs designed to maintain and
improve the quality of life for consumers and their families. The Department of Human Services is
organized into multiple divisions: Aging and Disability Resource Center, Behavior Health Services, Birth
to Three and Early Intervention, Family Support, Child Abuse/Neglect Reporting, Crisis Services,
Economic Support, Adult Protective Services, Elder Adult and Adult at Risk, Foster Care and Youth
Justice.
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NA-50 Non-Housing Community Development Needs – 91.215 (f)
Describe the jurisdiction’s need for Public Facilities:
The City’s Comprehensive Plan has identified the need to maintain adequate capacity of public facilities
and services to be able to accommodate projected demand for new land development.
The Comprehensive Plan advocates the following measures to achieve this goal relevant to
conservation, development and redevelopment in the City of Oshkosh and surrounding region over the
next 20 years:
• Maintain or rehabilitate existing housing stock
• Enhance environmental quality and promote good design
• Efficient and compact land utilization
• Redevelopment oriented toward the waterfront and increase public access
• Maintain efficiency of the regional highway system
• Provide quality public transit and paratransit services
• Provide facilities for pedestrian and bicycle circulation
How were these needs determined?
The City of Oshkosh updated its Comprehensive Plan, City of Oshkosh Comprehensive Plan Update 2040,
on October 9, 2018. The Comprehensive Plan provided information concerning development based on
future growth estimates. Additionally, needs were determined from public opinion surveys, roundtable
discussions and information provided by City staff.
Describe the jurisdiction’s need for Public Improvements:
The Comprehensive Plan's Goals outline its needs for Public Improvements, including:
• Provide sufficient land area with adequate services to meet projected land demand for various
types of land uses.
• Encourage redevelopment to be oriented toward the waterfront and increase public access
where appropriate.
• Promote environmentally sensitive and responsible utilization of land, incorporating permanent
open space and natural resources.
• Develop the physical facilities, within designated Economic Activity Zones, and other parts of
Oshkosh, which support economic development linking Oshkosh to the regional and global
network.
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• Increase the economic and social opportunities within downtown, central city, and waterfront
areas.
• Strengthen and improve the major entryways into the City as well as other commercial and
retail corridors within the City.
• Maintain and improve the quality of the City's neighborhoods.
• Continue to improve the City's overall aesthetic quality.
• Provide facilities for pedestrian and bicycle circulation.
• Provide efficient and well-designed collector and arterial streets and highways.
• Encourage the establishment of passenger rail service in the Oshkosh area.
• Expand and maintain utility and community facilities and services provided by both public and
private entities that support economic and residential development.
• Promote neighborhoods designed to include pedestrian and bicycle friendly facilities and public
gathering places.
• Promote growth and redevelopment of property included within the service areas of the
existing infrastructure and service system.
• Protect and develop passive and active recreation resources (e.g. parks, trails, hunting and
fishing opportunities.)
• Encourage preservation and protection of the historic built environment.
• Maintain, improve, and increase public access to the waterfront.
How were these needs determined?
The City of Oshkosh updated its Comprehensive Plan, City of Oshkosh Comprehensive Plan Update 2040,
on October 9, 2018. The Comprehensive Plan provided information concerning development based on
future growth estimates. Additionally, needs were determined from public opinion surveys, roundtable
discussions and information provided by City staff.
Describe the jurisdiction’s need for Public Services:
The Comprehensive Plan's Goals outline its needs for Public Services, including:
• Develop policies and programs to create housing products to address unmet needs as market
conditions evolve.
• Maintain or rehabilitate the City's existing housing stock.
• Ensure adequate parking is available throughout the City.
• Provide quality public transit and paratransit services.
• Ensure ongoing communication regarding transportation issues and activities.
• Expand and maintain utility and community facilities and services provided by both public and
private entities that support economic and residential development.
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• Ensure ongoing communication regarding Utilities and Community Facilities issues and activities.
• Promote the development of urban agricultural programs and activities.
• Promote the on-going viability of publicly and privately owned cultural resources.
• Encourage preservation and protection of the historic built environment.
• Ensure ongoing communication regarding agricultural, natural, and cultural resource issues and
activities.
• Establish mutually beneficial relations with local, public, parochial, technical, and university
educational systems.
How were these needs determined?
The City of Oshkosh updated its Comprehensive Plan, City of Oshkosh Comprehensive Plan Update 2040,
on October 9, 2018. The Comprehensive Plan provided information concerning development based on
future growth estimates. Additionally, needs were determined from public opinion surveys, roundtable
discussions and information provided by City staff.
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Housing Market Analysis
MA-05 Overview
Housing Market Analysis Overview:
The City determined the funding priorities of its Strategic Plan by assessing the following market
segments:
• Housing Market
• Facilities, Housing and Services for Homeless Persons
• Special Needs Facilities and Services
• Community and Economic Market
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MA-10 Number of Housing Units – 91.210(a)&(b)(2)
Introduction
According to the 2023 ACS data, there were 31,383 total housing units in the City of Oshkosh.
Occupied housing units represent 93.0% (29,196) of units and vacant units represent 7.0% (2,187) of
units. Of these units, there were 18,368 single family housing units (58.5%), 12,461 multi-family housing
units (39.7%), and 554 mobile homes (1.8%). There was a total of 13,868 owner-occupied housing units
(49.2%) and 12,284 renter-occupied housing units (43.5%). Rental units have doubled since 2020.
All residential properties by number of units
Property Type Number %
1-unit detached structure 15,880 55%
1-unit, attached structure 1,625 6%
2-4 units 3,915 14%
5-19 units 4,480 16%
20 or more units 2,535 9%
Mobile Home, boat, RV, van, etc 365 1%
Total 28,800 100%
Table 27 – Residential Properties by Unit Number
Data Source: 2016-2020 ACS
Unit Size by Tenure
Owners Renters
Number % Number %
No bedroom 10 0% 565 5%
1 bedroom 165 1% 2,440 21%
2 bedrooms 3,710 24% 5,730 50%
3 or more bedrooms 11,365 75% 2,745 24%
Total 15,250 100% 11,480 100%
Table 28 – Unit Size by Tenure
Data Source: 2016-2020 ACS
Describe the number and targeting (income level/type of family served) of units assisted with
federal, state, and local programs.
Over 650 affordable housing units are managed and over 400 Housing Choice Vouchers are
administered by the Oshkosh/Winnebago County Housing Authority, who primarily serve extremely low
income households. The City serves roughly 15 households through the CDBG housing rehabilitation
program annually.
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Provide an assessment of units expected to be lost from the affordable housing inventory for
any reason, such as expiration of Section 8 contracts.
There are no units expected to be lost from the affordable housing inventory.
Does the availability of housing units meet the needs of the population?
Based on the 2023 American Community Survey, 93.0% of the total housing units in the City were
occupied and 7.0% were unoccupied. Homeowner vacancy rates were 2.3% and renter vacancy rates
were 7.2%. Unoccupied housing units were not occupied for the following reasons: For rent 38.1%;
Rented but not occupied 11.8%; For sale 3.3%; Sold 1.6%; Seasonal 2.1%; and Other 43.1%.
From a statistical supply analysis of total available housing units in the City, there is a limited supply of
housing units. There is the highest demand for the following types of housing: affordable units for low-
to moderate-income owners and renters, senior housing, accessible housing, and in general renters. As
of January 2025, the public housing waiting list has a total of 1,326 persons.
Describe the need for specific types of housing:
The greatest need for housing in the City is for decent, safe and sanitary housing that is affordable and
accessible.
Discussion
Around 50% of the City’s housing stock was built prior to 1970, which is now 55 years old. 2010 - 2019,
there were 2,521 housing units built, or 8.0% of the housing stock built, as compared to the previous
ten-year period, 2000-2009, when 3,658 housing units, or 11.7% of the housing stock, were built. Single
unit detached is the most common type of housing unit, representing 56.4% of the housing stock. The
City's ratio of owner-occupied housing units to renter-occupied housing units is approximately 1 to 1.
The City is prioritizing the development of single family housing units and the maintenance of owner-
occupied housing units. There is a need for a wider variety of housing types in the City, particularly with
the lack of affordable housing in the area.
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MA-15 Housing Market Analysis: Cost of Housing - 91.210(a)
Introduction
The value of housing in the City of Oshkosh has almost doubled in the past fifteen years. In 2020, the
median home value was $134,200 and in 2023, it increased to $168,400; an increase of 25%. The
median contract rent has increased in cost. The median contract rent in 2020 was $616/month and in
the year 2023, it had increased to $908/month; an increase of 47%.
Cost of Housing
Base Year: 2009 Most Recent Year: 2020 % Change
Median Home Value 114,900 134,200 17%
Median Contract Rent 571 668 17%
Table 29 – Cost of Housing
Data Source: 2000 Census (Base Year), 2016-2020 ACS (Most Recent Year)
Rent Paid Number %
Less than $500 2,329 20.3%
$500-999 7,850 68.4%
$1,000-1,499 960 8.4%
$1,500-1,999 130 1.1%
$2,000 or more 205 1.8%
Total 11,474 100.0%
Table 30 - Rent Paid
Data Source: 2016-2020 ACS
Housing Affordability
Number of Units affordable to
Households earning
Renter Owner
30% HAMFI 970 No Data
50% HAMFI 4,145 1,650
80% HAMFI 8,165 4,930
100% HAMFI No Data 6,755
Total 13,280 13,335
Table 31 – Housing Affordability
Data Source: 2016-2020 CHAS
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Monthly Rent
Monthly Rent ($) Efficiency (no
bedroom)
1 Bedroom 2 Bedroom 3 Bedroom 4 Bedroom
Fair Market Rent 791 812 1,055 1,411 1,562
High HOME Rent 0 0 0 0 0
Low HOME Rent 0 0 0 0 0
Table 32 – Monthly Rent
Data Source Comments:
Is there sufficient housing for households at all income levels?
There is a need for sufficient housing at all income levels below median HUD Area Median Family
Income. The demand is the proportionately greatest at lower income levels.
How is affordability of housing likely to change considering changes to home values and/or
rents?
Residents incomes have not grown at the same rate as home values and rental costs, so affordability is
not keeping pace.
How do HOME rents / Fair Market Rent compare to Area Median Rent? How might this
impact your strategy to produce or preserve affordable housing?
The area median rent is calculated by the ACS to be $908 which is approximately the cost of a one-
bedroom rental within market expectations. Comparatively, the HUD Fair Market Rent of a one
bedroom is $812. This encourages the City to stay committed in our strategy to proactively provide
affordable housing to preserve accessibility.
Discussion
The median home value has grown by 25% and the median contract rent has almost doubled in the last
three years compared to similar rates of growth in the previous fifteen years. This has created a problem
for lower-income households who cannot afford to purchase a home or pay the area rent. As the City
grows in population and the demand for housing increases, there are fewer options for affordable
housing.
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MA-20 Housing Market Analysis: Condition of Housing – 91.210(a)
Introduction
Today 59.5% of all housing units in the City were built prior to 1980 and are now almost fifty years old
and in need of housing rehabilitation and potentially contain lead-based paint. Additional information
concerning lead-based paint remediation procedures and actions is contained in sections SP-65 and AP-
85.
There are 2,815 (18%) owner-occupied housing units and 4,545 (40%) renter-occupied housing unit in
the City with one selected housing condition. The housing stock is older and in need of rehabilitation to
bring housing units up to code, accessibility, and removal of lead-based paint.
Describe the jurisdiction's definition of "standard condition" and "substandard condition but
suitable for rehabilitation":
Definitions
The following definitions are used in the table below:
"Selected Housing Condition" - Over-crowding (1.01 or more persons per room), lacking a complete
kitchen, lack of plumbing facilities, and/or other utilities, and cost over-burden.
"Substandard condition" - Does not meet code standards or contains one of the selected housing
conditions.
"Suitable for Rehabilitation" - The amount of work required to bring the unit up to minimum code
standard, and the existing debt on the property, together are less than the fair market value of the
property.
"Not Suitable for Rehabilitation" - The amount of work required to bring the unit up to minimum code
standard exceeds the fair market value of the property after rehabilitation work is complete.
Condition of Units
Condition of Units Owner-Occupied Renter-Occupied
Number % Number %
With one selected Condition 2,815 18% 4,545 40%
With two selected Conditions 50 0% 180 2%
With three selected Conditions 0 0% 35 0%
With four selected Conditions 0 0% 0 0%
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Condition of Units Owner-Occupied Renter-Occupied
Number % Number %
No selected Conditions 12,385 81% 6,715 59%
Total 15,250 99% 11,475 101%
Table 33 - Condition of Units
Data Source: 2016-2020 ACS
Year Unit Built
Year Unit Built Owner-Occupied Renter-Occupied
Number % Number %
2000 or later 2,105 14% 1,835 16%
1980-1999 2,985 20% 3,645 32%
1950-1979 4,835 32% 3,030 26%
Before 1950 5,325 35% 2,960 26%
Total 15,250 101% 11,470 100%
Table 34 – Year Unit Built
Data Source: 2016-2020 CHAS
Risk of Lead-Based Paint Hazard
Risk of Lead-Based Paint Hazard Owner-Occupied Renter-Occupied
Number % Number %
Total Number of Units Built Before 1980 10,160 67% 5,990 52%
Housing Units build before 1980 with children present 1,094 7% 679 6%
Table 35 – Risk of Lead-Based Paint
Data Source: 2016-2020 ACS (Total Units) 2016-2020 CHAS (Units with Children present)
Vacant Units
Suitable for
Rehabilitation
Not Suitable for
Rehabilitation
Total
Vacant Units 0 0 0
Abandoned Vacant Units 0 0 0
REO Properties 0 0 0
Abandoned REO Properties 0 0 0
Table 36 - Vacant Units
Data Source: 2005-2009 CHAS
Need for Owner and Rental Rehabilitation
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Estimated Number of Housing Units Occupied by Low or Moderate Income Families with LBP
Hazards
According to CHAS data, it is estimated that there are 1,090 owner-occupied housing units and 679
renter-occupied housing units built before 1980 with children present located in the City that present a
lead-based paint hazard risk.
Given the understanding that lower income households tend to live in older housing stock, we can
assume a large majority of the total 1,769 housing units are low to moderate income families.
Discussion
The total number of vacant and abandoned units in the City of Oshkosh was not available, however,
ongiong maintenance associated with these types of properties are managed by the City.
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MA-25 Public and Assisted Housing – 91.210(b)
Introduction
The City of Oshkosh is served by the Oshkosh/Winnebago County Housing Authority. The Housing Authority offers public housing units and
voucher housing options for lower income residents. As of January 2025, there were 1,326 individuals on the Housing Authority's Public Housing
Waiting List, and 980 individuals on the Housing Authority's Housing Choice Voucher Waiting List. Both waiting lists are currently closed.
Totals Number of Units
Program Type
Certificate Mod-Rehab Public
Housing
Vouchers
Total Project -based Tenant -based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
# of units vouchers
available 338
# of accessible units
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 37 – Total Number of Units by Program Type
Data Source: PIC (PIH Information Center)
Describe the supply of public housing developments:
Describe the number and physical condition of public housing units in the jurisdiction, including those that are participating in an
approved Public Housing Agency Plan:
The Oshkosh/Winnebago County Housing Authority owns and manages the following properties:
1. Court Tower - 104 units, 100 Court Street, Oshkosh, WI 54901
2. Raulf Place - 104 units, 530 N Main Street, Oshkosh, WI 54901
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3. Marian Manor - 121 units for elderly and disabled residents, 600 Merritt Avenue, Oshkosh, WI 54901
4. Fox View Apartments - 31 units for elderly residents, 330 West Main Street, Omro, WI 54963
5. Riverside Commons - 30 units, 101 North Second Street, Winneconne, WI 54986
6. Cumberland Court Apartments - 72 units, 1030 Cumberland Trail, Oshkosh, WI 54904
7. Waite Rug Apartments - 56 units for elderly, disabled, or veteran residents, 300 East Custer, Avenue, Oshkosh, WI 54901
8. Willow Apartments - 13 units, 202 E Tennessee Ave, Oshkosh, WI, 54904
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Public Housing Condition
Public Housing Development Average Inspection Score
Court Tower One 90
Court Tower Two 90
Raulf Place 80
Scattered Sites 79
Waite Rug LLC 94
Table 38 - Public Housing Condition
Describe the restoration and revitalization needs of public housing units in the jurisdiction:
All elderly and disabled housing has been renovated over the last 15 years. The scattered sites will
receive interior renovations and exterior renovations. Court Tower will receive exterior building work as
well.
Describe the public housing agency's strategy for improving the living environment of low-
and moderate-income families residing in public housing:
The Oshkosh Housing Authority has the following goals and objectives:
• Promote and ensure safe, decent, and affordable housing for our participants, as well as provide
owners and developers with an opportunity to rehabilitate and develop affordable housing.
• Expand the supply of assisted housing, through various conversion options such as, but not
limited to: low income housing tax credits, historic tax credits, FHLB grants, WHEDA grants,
RAD, Section 18 demolition and/or disposition of public housing property, tenant protection
vouchers or any other HUD approved option.
• Form or reestablish a 501(c)3 organization to buy and remodel older stock homes in the City of
Oshkosh for homeownership.
• Promote self-sufficiency by pursuing counseling grants for public housing scattered site and
housing choice voucher holders to assist with economic stability and lease compliance.
• Ensure equal opportunity and affirmatively furthering fair housing.
• Work with Partnering Agencies to reduce homelessness.
• Work with Partnering Agencies to promote self-sufficiency
• Pursue a collaboration with non-profit Oshkosh Child Development Center to open two-shift
(5:30am – 11:30 pm) child daycare center.
• Pursue, review and possible merge of the Oshkosh Housing Authority and the Winnebago
County Housing Authority as one agency.
• Pursue continued relations with Energy companies and Winnebago County’s PACE program to
pursue solar or other energy efficient means of renewable energy and cost savings
• Increase security at all projects to include better security camera equipment and monitoring.
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• Continue with Winnebago County Health Department to contract for one fulltime nursing
position.
• Continual review of Admissions and Continued Occupancy Plan and Personnel policy to keep up
with laws and regulations.
• Full replacement of 32 public housing units that were previously removed from AMP 2 and AMP
5 as a result of modernization and municipal order.
• Add additional income sources to assist with more affordable housing and programs.
• Pursue housing for nonviolent offenders being released from prison.
Additionally, the OHAWCHA offers Family Self-Sufficiency training that has provided residents with the
opportunity to achieve the following goals: obtaining a GED; employment advancement; college/trade
school graduation; and homeownership.
Discussion:
The City of Oshkosh has identified that there is a need for decent, safe and sanitary housing that is
affordable and accessible to address the households affected by housing problems, severe housing
problems, and housing cost burdens. The largest groups affected by housing problems are the extremely
low-income households and senior households. The Oshkosh/Winnebago County Housing Authority is
an important part of the City's affordable housing strategy and the primary assisted housing provider of
housing for extremely low income, very low income, and lower income residents of the City of Oshkosh.
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MA-30 Homeless Facilities and Services – 91.210(c)
Introduction
The Winnebagoland CoC and ADVOCAP implement the CoC’s policies to address homelessness in Oshkosh, Winnebago, Fond du Lac, and Green
counties. It is comprised of various stakeholders from the three counties and; including City and County departments, social service agencies,
veteran support groups, faith-based organizations, homeless advocates, and other interested parties. The Winnebagoland CoC’s mission is to
maximize resources to identify and address affordable housing needs within the community.
Facilities and Housing Targeted to Homeless Households
Emergency Shelter Beds Transitional
Housing Beds
Permanent Supportive Housing
Beds
Year Round Beds
(Current & New)
Voucher /
Seasonal /
Overflow Beds
Current & New Current & New Under
Development
Households with Adult(s) and
Child(ren) 7 5 5 0 0
Households with Only Adults 0 0 0 0 0
Chronically Homeless Households 0 0 0 0 0
Veterans 0 0 0 0 0
Unaccompanied Youth 0 0 0 0 0
Table 39 - Facilities and Housing Targeted to Homeless Households
Data Source Comments: March 2025 Housing Inventory Chart (HIC)
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Describe mainstream services, such as health, mental health, and employment services to the
extent those services are use to complement services targeted to homeless persons
Enrollment in mainstream services and other subsidized housing resources are available through
WIBOSCOC. The CoC distributes the updated list of Housing and Homeless Liaisons in every WI County
Assistance Office to all agency caseworkers in the Region in order to facilitate linkages and eliminate
barriers to accessing mainstream resources.
The CoC provides up-to-date information to program staff at the County level during homeless coalition
meetings. The CoC undertakes this strategy to increase collaboration between local service provider
coalition members.
Local providers help clientele access mainstream health and mental health services and job training and
education. Many homeless populations, particularly young adult homeless populations, are difficult to
reach with mainstream services.
List and describe services and facilities that meet the needs of homeless persons, particularly
chronically homeless individuals and families, families with children, veterans and their
families, and unaccompanied youth. If the services and facilities are listed on screen SP-40
Institutional Delivery Structure or screen MA-35 Special Needs Facilities and Services,
describe how these facilities and services specifically address the needs of these populations.
The Winnebagoland CoC receives ESG funds. ESG funds are administered through ADVOCAP. ADVOCAP
has developed a process for allocating funds, evaluating outcomes, and developing policies and
procedures. The CoC votes each year for a lead agency/fiscal agent for the ESG funds.
Facilities that serve the City of Oshkosh include Christine Ann Domestic Abuse Services, Day by Day
Shelter and Father Carr's. In addition the Oshkosh Police Department implemented a police substation
in the City's downtown to provide outreach services for the homeless population.
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MA-35 Special Needs Facilities and Services – 91.210(d)
Introduction
The City has identified the priorities for services and facilities for the City's special needs population. This
includes elderly, frail elderly, persons with disabilities, persons with alcohol or other drug addictions,
persons with HIV/AIDS and their families, and public housing residents.
Including the elderly, frail elderly, persons with disabilities (mental, physical, developmental),
persons with alcohol or other drug addictions, persons with HIV/AIDS and their families,
public housing residents and any other categories the jurisdiction may specify, and describe
their supportive housing needs
Through City programs and agency support the City will continue to address the supportive housing
needs of these groups, primarily accessibility improvements, social services and health care services.
Specically for public housing residents, promoting the Family Self-Sufficiency (FSS) Program.
Describe programs for ensuring that persons returning from mental and physical health
institutions receive appropriate supportive housing
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Specify the activities that the jurisdiction plans to undertake during the next year to address
the housing and supportive services needs identified in accordance with 91.215(e) with
respect to persons who are not homeless but have other special needs. Link to one-year
goals. 91.315(e)
The City will fund housing rehabilitation and public service activities to achieve the stated one year goals
above with CDBG funds.
For entitlement/consortia grantees: Specify the activities that the jurisdiction plans to
undertake during the next year to address the housing and supportive services needs
identified in accordance with 91.215(e) with respect to persons who are not homeless but
have other special needs. Link to one-year goals. (91.220(2))
Previous prompt is applicable here.
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MA-40 Barriers to Affordable Housing – 91.210(e)
Negative Effects of Public Policies on Affordable Housing and Residential Investment
Legal Action of Wisconsin (LAW) provides legal aid related to affordable housing, serving low-income
residents living in the City. LAW staff provides assistance to residents who face eviction, are denied
housing, or are forced to live in uninhabitable conditions. Information on foreclosures, consumer issues,
and fair housing is also provided to the residents. LAW policies and activities promote the awareness of
fair housing requirements. They provide consultation to developers and municipalities to ensure that
rental and for-sale units are marketed in accordance with the affirmative marketing rules of the U.S.
Department of Housing and Urban Development. LAW ensures that all housing programs and services
provided by the City, its municipalities, and LAW itself, are administered in a way that promotes fair
housing and prohibits discrimination.
Fair Housing Center of Northeastern Wisconsin (FHCNW) is an annual subrecipient of CDBG funds to
provide fair housing services. The FHCNW Outreach & Education Program provides fair housing training
for interested parties, fair housing technical assistance for government agencies, development and
distribution of fair housing educational materials, and presentations to the general public. The mission
of FHCNW is to promote fair housing throughout the State of Wisconsin by combating illegal housing
discrimination and by creating and maintaining racially and economically integrated housing patterns.
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MA-45 Non-Housing Community Development Assets – 91.215 (f)
Introduction
Community development planning is the process by which the City identifies and seeks to achieve the most desirable future for the community.
The development planning process has two principle outcomes: the first is a consensus on pursuing the vision for future growth; the second is a
land use plan. Development planning involves the promotion of community goals and potential, including the development of human capital, a
broader focus than simply land use or public facility provision.
Community-based economic development is aimed at bringing members of all groups into the local economy. Efforts take a variety of forms,
ranging from the construction of affordable housing, to the establishment of businesses that support local workers, and through training
opportunities that meet the local needs. The local labor force needs to be prepared to take advantage of job opportunities.
Economic Development Market Analysis
Business Activity
Business by Sector Number of
Workers Number of Jobs Share of Workers
% Share of Jobs
% Jobs less workers
%
Agriculture, Mining, Oil & Gas Extraction 186 0 1 0 -1
Arts, Entertainment, Accommodations 3,337 4,201 13 12 -1
Construction 1,145 1,294 4 4 0
Education and Health Care Services 4,256 5,317 16 16 0
Finance, Insurance, and Real Estate 1,489 1,864 6 5 -1
Information 497 349 2 1 -1
Manufacturing 6,131 8,467 23 25 2
Other Services 1,235 1,632 5 5 0
Professional, Scientific, Management Services 2,136 3,373 8 10 2
Public Administration 0 0 0 0 0
Retail Trade 3,492 5,479 13 16 3
Transportation and Warehousing 1,021 879 4 3 -1
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Business by Sector Number of
Workers Number of Jobs Share of Workers
% Share of Jobs
% Jobs less workers
%
Wholesale Trade 1,201 1,398 5 4 -1
Total 26,126 34,253 -- -- --
Table 40 - Business Activity
Data Source: 2016-2020 ACS (Workers), 2020 Longitudinal Employer-Household Dynamics (Jobs)
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Labor Force
Total Population in the Civilian Labor Force 35,030
Civilian Employed Population 16 years and over 33,930
Unemployment Rate 3.18
Unemployment Rate for Ages 16-24 8.38
Unemployment Rate for Ages 25-65 2.21
Table 41 - Labor Force
Data Source: 2016-2020 ACS
Occupations by Sector Number of People
Management, business and financial 6,570
Farming, fisheries and forestry occupations 1,315
Service 4,230
Sales and office 8,060
Construction, extraction, maintenance and
repair 1,700
Production, transportation and material moving 2,315
Table 42 – Occupations by Sector
Data Source: 2016-2020 ACS
Travel Time
Travel Time Number Percentage
< 30 Minutes 26,239 82%
30-59 Minutes 4,818 15%
60 or More Minutes 959 3%
Total 32,016 100%
Table 43 - Travel Time
Data Source: 2016-2020 ACS
Education:
Educational Attainment by Employment Status (Population 16 and Older)
Educational Attainment In Labor Force
Civilian Employed Unemployed Not in Labor Force
Less than high school graduate 1,008 40 1,664
High school graduate (includes
equivalency) 6,726 299 3,487
Some college or Associate's degree 7,927 270 2,313
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Educational Attainment In Labor Force
Civilian Employed Unemployed Not in Labor Force
Bachelor's degree or higher 7,870 120 1,311
Table 44 - Educational Attainment by Employment Status
Data Source Comments: 2016-2020 ACS
Educational Attainment by Age
Age
18–24 yrs 25–34 yrs 35–44 yrs 45–65 yrs 65+ yrs
Less than 9th grade 94 83 161 632 275
9th to 12th grade, no diploma 471 649 454 733 755
High school graduate, GED, or
alternative 3,277 2,762 2,561 5,189 3,968
Some college, no degree 6,454 2,203 1,478 3,107 2,283
Associate's degree 547 1,178 1,121 1,423 593
Bachelor's degree 1,215 2,690 1,522 2,587 1,208
Graduate or professional degree 13 649 516 1,337 808
Table 45 - Educational Attainment by Age
Data Source Comments: 2016-2020 ACS
Educational Attainment – Median Earnings in the Past 12 Months
Educational Attainment Median Earnings in the Past 12 Months
Less than high school graduate 31,395
High school graduate (includes equivalency) 33,469
Some college or Associate's degree 40,199
Bachelor's degree 45,242
Graduate or professional degree 60,321
Table 46 – Median Earnings in the Past 12 Months
Data Source Comments: 2016-2020 ACS
Based on the Business Activity table above, what are the major employment sectors within
your jurisdiction?
The following are the Top Ten Employers in the City of Oshkosh as of May 1, 2025 per The Greater
Oshkosh Economic Development Corporation:
1. Oshkosh Corporation: Specialized trucks 2,800
2. Amcor (all Oshkosh locations): Packaging tape/plastic film 2,300
3. UW Oshkosh: Education 1,327
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4. Oshkosh Area School District: Education 1,290
5. US Bank (all Oshkosh locations): Financial institution 1,144
6. Winnebago County: Government 1,018
7. Aurora Medical Center & Aurora Medical Group: Health care 870
8. 4imprint: Advertising specialties 729
9. Winnebago Mental Health Institute: Health care 702
10. Ascension Mercy Hospital: Health care 688
Describe the workforce and infrastructure needs of the business community:
Needs of the business community include workforce development, site selection, attraction, childcare
and transportation.
Describe any major changes that may have an economic impact, such as planned local or
regional public or private sector investments or initiatives that have affected or may affect
job and business growth opportunities during the planning period. Describe any needs for
workforce development, business support or infrastructure these changes may create.
ThedaCare broke ground on a new hospital in March 2024, located at 250 W. 6th Avenue on the Fox
River in downtown Oshkosh, near the Sawdust Distruct. This private/public investment complements
the area's redevelopment efforts.
Mill on Main is a large mixed use development along the Fox River in the Sawdust District. The
development will include 291 housing units along with a commercial center. Both
project's private/public investment complements the area's redevelopment efforts.
How do the skills and education of the current workforce correspond to employment
opportunities in the jurisdiction?
Based on the Business by Sector table above, making up about 25% of jobs, the Manufacturing industry
is lacking in workers by about 2,336. The Education and Health Care Services and Retail Trades, both at
16% of jobs, need 1,061 and 1,987 workers respectively. Looking at the gap in workers and jobs provides
an opportunity for Oshkosh to promote workforce development in these sectors.
Describe any current workforce training initiatives, including those supported by Workforce
Investment Boards, community colleges and other organizations. Describe how these efforts
will support the jurisdiction's Consolidated Plan.
GO-EDC’s 2018-2020 Strategic Plan contains four main initiatives:
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1. Business Retention & Expansion - A healthy and vibrant local economy depends on the well-
being of a community’s existing firms
2. Workforce Development (Talent Retention & Attraction) - The single greatest influencing factor
as to how quickly the Greater Oshkosh economy will grow is workforce and talent development.
The population of the Greater Oshkosh region is not growing at a fast pace, and a better match
is needed for growing the pipeline of graduates entering into careers of demand by area
employers. Due to its unique private-public collaborative structure, Greater Oshkosh is focused
on being the connector among business, education, and government in facilitating the solutions
for the community’s workforce needs.
3. Entrepreneurial Growth - Greater Oshkosh believes in helping our own businesses grow and
striving to keep them here. Our region has many high-growth, high-value, and mature business
and industry. To become a more sustainable region, however, the greater Oshkosh needs to
continue cultivating a culture of entrepreneurship and innovation, while growing a pipeline of
new companies that want to start and grow in our community, including graduating students.
4. Targeted Industry Development - In order to build upon the core strengths of greater Oshkosh
and achieve diversity within the economic base of the community, Greater Oshkosh will lead
targeted industry development, collaborate with complementary partners to achieve such aims,
and be resourceful in anticipating new and innovative opportunity. The target segments
primarily focus on manufacturing, IT, and aviation, but also downtown redevelopment,
economic improvements in areas of economic distress, and blight elimination.
Does your jurisdiction participate in a Comprehensive Economic Development Strategy
(CEDS)?
No
If so, what economic development initiatives are you undertaking that may be coordinated
with the Consolidated Plan? If not, describe other local/regional plans or initiatives that
impact economic growth.
<TYPE=[text] REPORT_GUID=[F8DC4D3147433947165558A235C46686]
PLAN_SECTION_ID=[1370705000]>
Discussion
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MA-50 Needs and Market Analysis Discussion
Are there areas where households with multiple housing problems are concentrated?
(include a definition of "concentration")
The City defines “concentration” of households with multiple housing problems as areas where over
25% of the LMI households report substandard housing conditions. There are no census tracts that meet
that definition.
Are there any areas in the jurisdiction where racial or ethnic minorities or low-income
families are concentrated? (include a definition of "concentration")
The City defines an Area of Minority Concentration as:
• A neighborhood in which the percentage of persons of a particular racial or ethnic minority is at
least 20 points higher than that minority's percentage in the housing market as a whole;
• The neighborhood's total percentage of minority persons is at least 20 points higher than the
total percentage of minorities for the housing market area as a whole; or
• In the case of a metropolitan area, the neighborhood's total percentage of minority persons
exceeds 50 percent of its population.
There are no Census Tracts in Oshkosh that qualify as areas of minority concentration.
What are the characteristics of the market in these areas/neighborhoods?
While no one census tract in the City is comprised of more than 50 percent racial or ethnic minorities,
the areas/neighborhoods with higher density are located near the central city, where the majority of the
City’s affordable housing stock is located. Including a lot of rentals and student housing.
Are there any community assets in these areas/neighborhoods?
Community assests such as social services are located primarily in the central city, and becuase of this
are more easily accessible.
Are there other strategic opportunities in any of these areas?
The City has developed a Downtown Redevelopment Plan in 2024 that discusses infrastructure, public
gathering spaces, landscaping and other redevelopment opportunities.
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MA-60 Broadband Needs of Housing occupied by Low- and Moderate-Income
Households - 91.210(a)(4), 91.310(a)(2)
Describe the need for broadband wiring and connections for households, including low- and
moderate-income households and neighborhoods.
Broadband access in the City of Oshkosh will promote economic development, social equity, public
health, public safety, and expand educational opportunities for residents of the City. Broadband services
empower low- and moderate-income households and provide access to: job listings and applications,
online education, telemedicine, etc.; that provide economic and educational opportunities unavailable
to those not connected to the internet.
Connectivity in the City is good, ACS 2019-2023 estimates 94.8% of households have computer and
89.3% of households have a broadband Internet subscription.
Describe the need for increased competition by having more than one broadband Internet
service provider serve the jurisdiction.
The City of Oshkosh currently has five broadband service providers: Spectrum, T-Mobile, Brightspeed,
HughesNet, and AT&T.
The City will research options for instituting a subsidized public broadband service in areas with
increased low- and moderate-income residents, as well as the inclusion of installing in home residential
broadband hardware in all of its housing programs.
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MA-65 Hazard Mitigation - 91.210(a)(5), 91.310(a)(3)
Describe the jurisdiction’s increased natural hazard risks associated with climate change.
The City’s Municipal Code Chapter 9 covers Emergency and Disaster Planning and Response, allowing
the Common Council to declare by resolution an emergency, “whenever conditions arise by reason of
war, conflagration, flood, heavy snow storm, blizzard, catastrophe, disaster, riot or civil commotion, acts
of God, and including conditions without limitation because of enumeration, which impair
transportation, food or fuel supplies, medical care, fire, health or police protection or other vital
facilities of the city.” Chapter 9 confers emergency powers to the City Manager, including the ability to
direct emergency response activities, execute contracts for emergency construction or repair of public
improvements, and the power to purchase or lease goods and services deemed necessary to the City’s
emergency response.
The City of Oshkosh is located along the Fox River and along the shores of Lake Winnebago in the
Eastern part of Wisconsin. Natural hazard risks, as mentioned in the City’s Municipal Code Chapter 9,
include increased flooding due to heavier rains, as well as stronger, more concentrated snow storms
throughout the winter. Per the National Oceanic and Atmospheric Administration’s national Centers for
Environmental Information, “the frequency of extreme snowstorms in the eastern two-thirds of the
contiguous United States has increased over the past century. Approximately twice as many extreme
U.S. snowstorms occurred in the latter half of the 20th century than the first,” and “in the Midwest and
northeastern states, the frequency of heavy downpours has increased. In many regions, floods and
water quality problems are likely to be worse because of climate change.”
Describe the vulnerability to these risks of housing occupied by low- and moderate-income
households based on an analysis of data, findings, and methods.
The City recognizes the need to protect the most vulnerable residents from the effects of climate
change. Currently, the City and other stakeholders fund the Day by Day Warming Shelter, which
operates everyday, and participates in Winnebagoland CoC meetings.
The CoC receives Emergency Solutions Grant (ESG) funds, as well as Rapid Rehousing funds that address
the risk of homelessness and those experiencing homelessness. Additionally, the City ensures that
homes are kept up to code for the safety of its residences. The City of Oshkosh offers City-wide housing
programs for owner-occupied and renter-occupied housing to ensure that rehabilitation is feasible for
all low- and moderate-income residents.
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Strategic Plan
SP-05 Overview
Strategic Plan Overview
The Strategic Plan is a guide for the City of Oshkosh to establish strategies to be completed during the
next five years. It's been developed based on evaluating the City's needs assessment and market
analysis afffection residents.
The goals, objectives, and activities are designed to assist LMI households. The City determined its goals
and objectives for the 2025-2029 Consolidated Plan on the following guiding principles, which provided
the framework for the development of the Five-Year Consolidated Plan:
• Assist - Develop comprehensive strategies to support and assist those in need in the City
• Involve - Involve the community and provide opportunities for public input and involvement in
the Five-Year Consolidated Plan process and preparation of the report
• Collaborate - Encourage collaboration between public, private, and non-profit agencies in order
to ensure the most efficient and effective services
• Leverage - Leverage CDBG funds and other local resources to maximize the effectiveness of
programs and services
• Promote - Encourage and support outside agencies and organizations to undertake specific
projects and programs to assist low- and moderate-income persons
The City’s priority needs were determined based on data, consultation, public hearings, resident
comments, and local plans.
The key factors affecting the determination of the five-year priorities include the following, LMI
households, LMI areas, best activity based on needs and leveraging other City resources.
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SP-10 Geographic Priorities – 91.215 (a)(1)
Geographic Area
Table 47 - Geographic Priority Areas
1 Area Name: City Wide
Area Type:
Other Target Area Description:
HUD Approval Date:
% of Low/ Mod:
Revital Type: Housing
Other Revital Description:
Identify the neighborhood boundaries for this target area. City limits of Oshkosh.
Include specific housing and commercial characteristics of this
target area.
Older housing stock.
How did your consultation and citizen participation process help
you to identify this neighborhood as a target area?
Identify the needs in this target area. Reference SP-25 Priority
Needs.
What are the opportunities for improvement in this target area? Affordable housing and
community development
Are there barriers to improvement in this target area?
General Allocation Priorities
Describe the basis for allocating investments geographically within the jurisdiction (or within the EMSA
for HOPWA)
When applicable, the City will prioritize CDBG funding decisions to areas of the City with the largest LMI
populations, especially the Census Tracts and Block Groups that qualify as low and moderate income.
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SP-25 Priority Needs - 91.215(a)(2)
Priority Needs
Table 48 – Priority Needs Summary
1 Priority Need Name Affordable Housing Need
Priority Level High
Population Extremely Low
Low
Moderate
Middle
Large Families
Families with Children
Elderly
Public Housing Residents
Rural
Chronic Homelessness
Individuals
Families with Children
Mentally Ill
Chronic Substance Abuse
veterans
Persons with HIV/AIDS
Victims of Domestic Violence
Unaccompanied Youth
Elderly
Frail Elderly
Persons with Mental Disabilities
Persons with Physical Disabilities
Persons with Developmental Disabilities
Persons with Alcohol or Other Addictions
Persons with HIV/AIDS and their Families
Victims of Domestic Violence
Non-housing Community Development
Geographic Areas
Affected
Associated Goals Housing Initiatives
Description There is a need for decent, safe and sanitary housing that is affordable and
accessible for homebuyers, homeowners, and renters.
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Basis for Relative
Priority
This priority was determined through consultation with public, nonprofit, and
private entities.
2 Priority Need Name Homeless Need
Priority Level High
Population Extremely Low
Low
Moderate
Middle
Large Families
Families with Children
Elderly
Public Housing Residents
Rural
Chronic Homelessness
Individuals
Families with Children
Mentally Ill
Chronic Substance Abuse
veterans
Persons with HIV/AIDS
Victims of Domestic Violence
Unaccompanied Youth
Geographic Areas
Affected
Associated Goals
Description There is a need for housing, services, and facilities for homeless persons and
persons at-risk of becoming homeless.
Basis for Relative
Priority
This priority was determined through consultation with public, nonprofit, and
private entities.
3 Priority Need Name Community Development Need
Priority Level High
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Population Extremely Low
Low
Moderate
Middle
Large Families
Families with Children
Elderly
Public Housing Residents
Rural
Chronic Homelessness
Individuals
Families with Children
Mentally Ill
Chronic Substance Abuse
veterans
Persons with HIV/AIDS
Victims of Domestic Violence
Unaccompanied Youth
Elderly
Frail Elderly
Persons with Mental Disabilities
Persons with Physical Disabilities
Persons with Developmental Disabilities
Persons with Alcohol or Other Addictions
Persons with HIV/AIDS and their Families
Victims of Domestic Violence
Non-housing Community Development
Geographic Areas
Affected
Associated Goals Public Facilities
Public Services
Development
Description There is a need to improve the community facilities, infrastructure, public
services, and quality of life in the City.
Basis for Relative
Priority
This priority was determined through consultation with public, nonprofit, and
private entities.
4 Priority Need Name Administration, Planning, and Management Need
Priority Level High
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Population Extremely Low
Low
Moderate
Middle
Large Families
Families with Children
Elderly
Public Housing Residents
Rural
Chronic Homelessness
Individuals
Families with Children
Mentally Ill
Chronic Substance Abuse
veterans
Persons with HIV/AIDS
Victims of Domestic Violence
Unaccompanied Youth
Elderly
Frail Elderly
Persons with Mental Disabilities
Persons with Physical Disabilities
Persons with Developmental Disabilities
Persons with Alcohol or Other Addictions
Persons with HIV/AIDS and their Families
Victims of Domestic Violence
Non-housing Community Development
Geographic Areas
Affected
Associated Goals Administration and Program Management
Description There is a need for planning, administration, management, and oversight of
federal, state, and local funded programs.
Basis for Relative
Priority
This priority was determined through consultation with public, nonprofit, and
private entities.
Narrative (Optional)
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SP-30 Influence of Market Conditions – 91.215 (b)
Influence of Market Conditions
Affordable
Housing Type
Market Characteristics that will influence
the use of funds available for housing type
Tenant Based
Rental Assistance
(TBRA)
CDBG funds may be used to provide direct rental assistance for low-income
households. The amount of CDBG funds for Tenant-Based Rental Assistance
(TBRA) as a rental subsidy will be calculated by the difference between what a
renter can afford to pay and the actual rent for a housing unit. Priority is directed
to Rapid Rehousing activities.
TBRA for Non-
Homeless Special
Needs
CDBG funds may be used to provide direct rental assistance for low-income
households. The amount of CDBG funds for Tenant-Based Rental Assistance
(TBRA) as a rental subsidy will be calculated by the difference between what a
renter can afford to pay and the actual rent for a housing unit. Priority is directed
to Rapid Rehousing activities.
New Unit
Production
The housing needs in the City are for decent, safe and sanitary housing units that
are affordable and accessible. The City will utilize various funding sources and
stakeholders to support neighborhood revitalization activities throughout the City
related to the creation and preservation of affordable housing.
Rehabilitation The housing needs in the City are for decent, safe and sanitary housing units that
are affordable and accessible. The City will utilize various funding sources and
stakeholders to support neighborhood revitalization activities throughout the City
related to the creation and preservation of affordable housing.
Acquisition,
including
preservation
The housing needs in the City are for decent, safe and sanitary housing units that
are affordable and accessible. The City will utilize various funding sources and
stakeholders to support neighborhood revitalization activities throughout the City
related to the creation and preservation of affordable housing.
There are nine (9) historic districts located in the City, they are the: Riverside
Cemetery, North Main Street Bungalow, Paine Lumber, Algoma Boulevard,
Oshkosh Normal School, Irving Church, North Main Street, Washington Avenue
Neoclassical, and Washington Avenue districts. The City has guidelines for historic
preservation and housing development in these areas.
Table 49 – Influence of Market Conditions
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SP-35 Anticipated Resources - 91.215(a)(4), 91.220(c)(1,2)
Introduction
The City of Oshkosh will receive $822,816 in CDBG funds for 2025 Program Year. The City does not expect to receive any Program Income during
the 2025 Annual Action Plan period. The City’s 2025 CDBG program year starts on May 1, 2025 and concludes on April 30, 2026.
Anticipated Resources
Program Source of
Funds
Uses of Funds Expected Amount Available Year 1 Expected
Amount
Available
Remainder
of ConPlan
$
Narrative Description
Annual
Allocation:
$
Program
Income: $
Prior Year
Resources:
$
Total:
$
CDBG public -
federal
Acquisition
Admin and Planning
Economic Development
Housing
Public Improvements
Public Services 822,816 0 0 822,816 0
The CDBG entitlement
program allocation.
HOME public -
federal
Acquisition
Homebuyer assistance
Homeowner rehab
Multifamily rental new
construction
Multifamily rental rehab
New construction for
ownership
TBRA 0 0 0 0 0
N/A
Table 50 - Anticipated Resources
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Explain how federal funds will leverage those additional resources (private, state and local funds), including a description of how
matching requirements will be satisfied
The City recieves state grants across departments that complement the CDBG program funds. Community funds toward public service projects
are also leveraged by the CDBG program.
If appropriate, describe publically owned land or property located within the jurisdiction that may be used to address the needs
identified in the plan
The City is not proposing to use publicly owned land or property located within the jurisdiction to address the needs identified in the plan.
Discussion
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SP-40 Institutional Delivery Structure – 91.215(k)
Explain the institutional structure through which the jurisdiction will carry out its consolidated plan
including private industry, non-profit organizations, and public institutions.
Responsible Entity Responsible Entity
Type
Role Geographic Area Served
City of Oshkosh Government Planning Jurisdiction
Wisconsin Balance of
State - Winnebagoland
CoC
Continuum of care Homelessness Region
OSHKOSH HOUSING
AUTHORITY
PHA Public Housing Jurisdiction
Table 51 - Institutional Delivery Structure
Assess of Strengths and Gaps in the Institutional Delivery System
The Continuum of Care is in place to address the delivery system; strengths include a variety of levels of
assistance along the continuum, gaps include assistance for runaway youth.
Availability of services targeted to homeless persons and persons with HIV and mainstream
services
Homelessness Prevention
Services
Available in the
Community
Targeted to
Homeless
Targeted to People
with HIV
Homelessness Prevention Services
Counseling/Advocacy X
Legal Assistance X
Mortgage Assistance X
Rental Assistance X
Utilities Assistance X
Street Outreach Services
Law Enforcement X X
Mobile Clinics
Other Street Outreach Services X X
Supportive Services
Alcohol & Drug Abuse X X
Child Care X
Education X
Employment and Employment
Training X X
Healthcare X
HIV/AIDS X X
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Life Skills X X
Mental Health Counseling X
Transportation X
Other
Table 52 - Homeless Prevention Services Summary
Describe how the service delivery system including, but not limited to, the services listed
above meet the needs of homeless persons (particularly chronically homeless individuals and
families, families with children, veterans and their families, and unaccompanied youth)
The Day by Day Shelter ADVOCAP, Christine Ann Domestic Abuse Services, COTS and Father Carr’s
Shelter all provide temporary shelter, individualized services, and opportunities for self-sufficiency to
empower the most vulnerable residents in the community. Each organization provides a varying focus in
health, mental health and employment services.
Describe the strengths and gaps of the service delivery system for special needs population
and persons experiencing homelessness, including, but not limited to, the services listed
above
Many of the homeless providers in the City of Oshkosh cooperate and are capable of ensuring homeless
persons and persons with special needs are able to find the relevant service provider. This includes
public entities. There is also a need for a shelter for youths aged 18-24. This is a growing population in
the area and the CoC is actively increasing outreach services to engage this population.
Provide a summary of the strategy for overcoming gaps in the institutional structure and
service delivery system for carrying out a strategy to address priority needs
The City of Oshkosh has partnered with various City and county agencies, nonprofits, and service
providers to carry out the services required by special needs populations. However, there are significant
needs for mental health services and addiction counseling services in the region. There is also a need to
provide public transit to bring special needs populations to the places where they can receive services.
The City will continue to partner with nonprofits that manage partnerships with these organizations and
assist persons with special needs.
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SP-45 Goals Summary – 91.215(a)(4)
Goals Summary Information
Sort
Order
Goal Name Start
Year
End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome Indicator
1 Housing Initiatives 2025 2029 Affordable Housing City Wide Affordable Housing
Need
CDBG:
$1,100,000
Homeowner Housing
Rehabilitated:
50 Household Housing Unit
Direct Financial Assistance to
Homebuyers:
10 Households Assisted
3 Development 2025 2029 Non-Housing
Community
Development
City Wide Community
Development Need
CDBG:
$750,000
Buildings Demolished:
5 Buildings
4 Public Services 2024 2029 Non-Housing
Community
Development
Community
Development Need
CDBG:
$600,000
Public service activities other
than Low/Moderate Income
Housing Benefit:
5000 Persons Assisted
5 Public Facilities 2025 2029 Non-Housing
Community
Development
Community
Development Need
CDBG:
$1,000,000
Public Facility or
Infrastructure Activities
other than Low/Moderate
Income Housing Benefit:
5000 Persons Assisted
6 Administration and
Program
Management
2020 2024 Administration,
Planning, and
Management
Administration,
Planning, and
Management Need
CDBG:
$750,000
Other:
10 Other
Table 53 – Goals Summary
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Goal Descriptions
1 Goal Name Housing Initiatives
Goal
Description
Conserve and rehabilitate existing affordable housing units occupied by owners and renters by addressing code violations,
emergency repairs and handicap accessibility. And assist LMI households to access decent, safe and sanitary housing that is
affordable and accessible for rent or for sale through housing counseling, down payment/closing cost assistance.
3 Goal Name Development
Goal
Description
Funds toward acquiring, demolishing and prepping sites for future private or public development.
4 Goal Name Public Services
Goal
Description
Improve and enhance the public and community development services in the City.
5 Goal Name Public Facilities
Goal
Description
Improve the City’s public facilities and infrastructure through rehabilitation, reconstruction, and new installation.
6 Goal Name Administration and Program Management
Goal
Description
Provide program management and oversight for the successful administration of federal, state, and local funded programs,
including planning services for special studies, environmental clearance, fair housing activities, and compliance with all
federal, state, and local laws and regulations.
Estimate the number of extremely low-income, low-income, and moderate-income families to whom the jurisdiction will provide
affordable housing as defined by HOME 91.315(b)(2)
Over 50 LMI households.
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SP-50 Public Housing Accessibility and Involvement – 91.215(c)
Need to Increase the Number of Accessible Units (if Required by a Section 504 Voluntary
Compliance Agreement)
The Oshkosh/Winnebago County Housing Authority is not required by a Section 504 Voluntary
Compliance Agreement. The Housing Authority makes reasonable accommodations as per tenant
requests for disabilities. The Housing Authority maintains a Section 504 Plan and all new housing units
will be designed to be visitable and meet accommodation standards.
Activities to Increase Resident Involvements
Residents of the Oshkosh Housing Authority have an annual meeting with the Executive Director, as well
as bi-monthly meetings with property managers and social workers. Additionally, there is a tenant from
Court Tower on the Housing Authority Board. The Housing Authority also sends out newsletters to
residents to keep them informed on Housing Authority activities and initiatives. In order to better serve
non-English speaking public housing residents, the Housing Authority has translators available for
residents. Additionally, the housing authority invites a guest speaker at an annual employee event, and
sends out monthly Fair Housing online newsletters to all staff.
Is the public housing agency designated as troubled under 24 CFR part 902?
No
Plan to remove the ‘troubled’ designation
Not applicable.
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SP-55 Barriers to affordable housing – 91.215(h)
Barriers to Affordable Housing
Legal Action of Wisconsin (LAW) provides legal aid related to affordable housing, serving low-income
residents living in the City. LAW staff provides assistance to residents who face eviction, are denied
housing, or are forced to live in uninhabitable conditions. Information on foreclosures, consumer issues,
and fair housing is also provided to the residents. LAW policies and activities promote the awareness of
fair housing requirements. They provide consultation to developers and municipalities to ensure that
rental and for-sale units are marketed in accordance with the affirmative marketing rules of the U.S.
Department of Housing and Urban Development. LAW ensures that all housing programs and services
provided by the City, its municipalities, and LAW itself, are administered in a way that promotes fair
housing and prohibits discrimination.
Fair Housing Center of Northeastern Wisconsin (FHCNW) is an annual subrecipient of CDBG funds to
provide fair housing services. The FHCNW Outreach & Education Program provides fair housing training
for interested parties, fair housing technical assistance for government agencies, development and
distribution of fair housing educational materials, and presentations to the general public. The mission
of FHCNW is to promote fair housing throughout the State of Wisconsin by combating illegal housing
discrimination and by creating and maintaining racially and economically integrated housing patterns.
Strategy to Remove or Ameliorate the Barriers to Affordable Housing
The City of Oshkosh updated its Analysis of Impediments to Fair Housing Choice in 2020 along with the
development of this Five Year Consolidated Plan. Impediments, goals, and strategies were identified to
address barriers to affordable housing, which are still be referenced in today's decisions to ameliorate
barriers.
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SP-60 Homelessness Strategy – 91.215(d)
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
The Winnebagoland Continuum of Care operates a Coordinated Entry System, which ensures that those
at-risk of homelessness or experiencing homelessness are connected to resources and services. The
system ensures the management of access, assessment, prioritization, and referral to housing and
services for any person experiencing or at imminent risk of homelessness throughout the region. There
is not a main number to handle intake via phone, but the Continuum of Care members are known
throughout the community. The Continuum of Care has working relationships with the shelters, Human
Services, the schools, and other community institutions that would regularly interact with people at-risk
of homelessness. Service providers are trained in housing first, the VI-SPDAT assessment, and other best
practices to assist homeless persons in receiving proper services. The CoC has a Coordinated Entry
Marketing & Outreach process that includes “No Wrong Door” posters that provide information and
assistance not only to individuals, but also to professionals that require help with a client. The posters
are also placed at the library, at 24-hour gas stations, laundromats, food pantries, and other social
service agencies. Additionally, a Coordinated Entry Specialist with ADVOCAP conducts outreach,
ensuring that any guest there can be assessed and referred to the prioritization lists. Outreach to
homeless persons is conducted by service providers. This outreach, combined with case management,
was funded by the CoC in 2024.
The CoC rarely receives calls for youth under the age of 18, and has never found any homeless youth
during its Point in Time counts. The Oshkosh School District tracks homeless families, but use a different
definition of homeless than HUD. The School District counts youth in doubled-up situations. Anecdotally,
families leaving other Wisconsin cities come to Oshkosh for opportunities and for the school district.
When plans change, children are left with friends or family members to continue their education.
The City's Police Department has initiated a police substation in the City's downtown area to provide
outreach services to the homeless community.
Addressing the emergency and transitional housing needs of homeless persons
Oshkosh addresses the housing needs of the homeless population within the City through ADVOCAP
steering of CoC funds to various projects.
The following facilities all serve the City of Oshkosh, Christine Ann Domestic Abuse Services, COTS, Day
by Day, Solutions Recovery, and Father Carr's.
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the transition to
permanent housing and independent living, including shortening the period of time that
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individuals and families experience homelessness, facilitating access for homeless individuals
and families to affordable housing units, and preventing individuals and families who were
recently homeless from becoming homeless again.
The CoC has implemented various strategies to ensure that those transitioning out of homelessness are
able to procure permanent housing. Diversion strategies have been used to place those that go through
intake with the CoC into Rapid Rehousing. Rapid Rehousing providers have been trained in best
practices including housing first strategy, focused case management, harm reduction, motivational
interviewing, and trauma-informed care.
Rapid Rehousing programs are connected to the landlords and households with affordable units to
sustain permanent housing. The CoC makes sure to focus on in-home case management and engage
with landlords. Additionally, the CoC partners with mainstream service providers, such as workforce
development, child care, transportation, and other resources to promote long-term stability for persons
and their families that have transitioned out of homelessness. There are also Permanent Supportive
Housing beds dedicated to chronically homeless households.
Help low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families who are likely to become homeless after being
discharged from a publicly funded institution or system of care, or who are receiving
assistance from public and private agencies that address housing, health, social services,
employment, education or youth needs
The Winnebagoland CoC does not have a Five-Year Strategic Plan. There are limited resources for
prevention funds in Oshkosh and Winnebago County.
Coordinated entry processes help communities prioritize assistance based on vulnerability and severity
of service needs to ensure that people who need assistance the most can receive it in a timely manner.
Coordinated entry processes also provide information about service needs and identify gaps to help
communities plan their assistance and resources.
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SP-65 Lead based paint Hazards – 91.215(i)
Actions to address LBP hazards and increase access to housing without LBP hazards
The City will continue to comply with Title 24 Part 35: Lead-Based Paint Poisoning Prevention in Certain
Residential Structures (Current Rule) for its Housing Rehabilitation Program. In order to meet the
requirements of the lead-based paint regulations, the City will take the following actions regarding
housing rehabilitation:
• Applicants for rehabilitation funding receive the required lead-based paint information and
understand their responsibilities.
• Staff properly determines whether proposed projects are exempt from some or all lead-based
paint requirements.
• The level of Federal rehabilitation assistance is properly calculated and the applicable lead-
based paint requirements determined.
• Properly qualified personnel perform risk management, paint testing, lead hazard reduction,
and clearance services when required.
• Required lead hazard reduction work and protective measures are incorporated into project
rehabilitation specifications.
• Risk assessment, paint testing, lead hazard reduction, and clearance work are performed in
accordance with the applicable standards established in 24 CFR Part 35, Subpart R.
• Required notices regarding lead-based paint evaluation, presumption, and hazard reduction are
provided to occupants and documented.
How are the actions listed above related to the extent of lead poisoning and hazards?
The actions listed above greatly reduce the extent of lead hazards through education and accessibility of
older homes being addressed for risk management.
How are the actions listed above integrated into housing policies and procedures?
The City, within its rehabilitation program for low- to moderate-income households, will pay for the lead
abatement using a City grant.
The City will continue to research other funding avenues to provide assistance to the communities
regarding LBP, for low-moderate income households.
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SP-70 Anti-Poverty Strategy – 91.215(j)
Jurisdiction Goals, Programs and Policies for reducing the number of Poverty-Level Families
The City is committed to addressing the needs of its residents who live at or below the poverty level.
During this plan's five-year period, the City, in conjunction with other public agencies and private non-
profit organizations, will continue to pursue resources and innovative partnerships to support the
development of affordable housing, rental assistance, homelessness prevention, emergency food and
shelter, health care, family services, job training, and transportation. Partners with the City in these anti-
poverty efforts include regional service agencies as well as Oshkosh/Winnebago County Housing
Authority, Winnebagoland Continuum of Care, and the Fair Housing Center of Northeast Wisconsin.
How are the Jurisdiction poverty reducing goals, programs, and policies coordinated with this
affordable housing plan
Poverty occurs when a household’s basic needs for food, clothing, and shelter are not being met.
Poverty is a function of income instability which is related to a number of factors such housing costs,
health care costs, access to supportive services, education and training, employment opportunities,
access to transportation, and unexpected crises. The City recognizes these linkages and in conjunction
with other public and private agencies will fund and support activities that address the following
strategies over the five-year period:
• Providing affordable housing
• Providing emergency and transitional housing
• Providing assistance to homeowners for housing maintenance
• Providing assistance to first time homebuyers
• Providing financial education and coaching to LMI persons
• Preventing homelessness by providing case management, budget counseling, and eviction
prevention funds
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SP-80 Monitoring – 91.230
Describe the standards and procedures that the jurisdiction will use to monitor activities
carried out in furtherance of the plan and will use to ensure long-term compliance with
requirements of the programs involved, including minority business outreach and the
comprehensive planning requirements
The City of Oshkosh is committed to ensuring that all federally funded projects meet federal
requirements. The City’s Community Development Department is responsible for monitoring the City’s
Consolidated Plan. Community Development maintains records on the progress toward meeting the
goals and statutory and regulatory compliance of each activity. Community Development is responsible
for the ongoing monitoring of sub-recipients, as well.
It is the City’s responsibility to ensure that federal funds are used in accordance with all program
requirements; determining the adequacy of performance under sub-recipient agreements; and taking
appropriate action when performance problems arise. It is also the City’s responsibility to manage the
day to day operation of grant and sub-recipient activities. Monitoring is performed for each program,
function, and activity.
The City has developed a “monitoring checklist” that it utilizes when programs and activities are
reviewed. This checklist, approved by the U.S. Department of Housing and Urban Development, was
developed in accordance with Sub-Part J of 24 CFR, Part 85 “Uniform Administrative Requirement for
Grants and Cooperative Agreements of State and Local Governments” and the HUD Community
Planning and Development Monitoring Handbook (HUD 6509.2).
The monitoring process is not a “one-time” event. The process is an on-going system of planning,
implementation, communication and follow-up. In the planning stage, sub-recipients are required to
submit “proposals for funding.” These proposals are reviewed by City Staff for funding approval. A scope
of services and budget are finalized and the contract with each agency is executed. During the time
when the project or program is underway, the City’s staff may conduct an “on-site” monitoring visit
where technical assistance is provided, files are reviewed and “corrective actions” are taken to resolve
any potential deficiencies or problems. The City frequently communicates with its subgrantees to
monitor activities for compliance. The City issues contracts at the beginning of the program year; once
subgrantees receive the contract, they are authorized to begin an activity. For each activity, the City
maintains a checklist to ensure all areas of compliance were met based on the activity's national
objective and eligibility. Regular site visits are performed, desk audits are performed, and the City
monitors required subgrantee semiannual reports, as well as final reports.
The City monitors its performance with meeting its goals and objectives established in its Five-Year
Consolidated Plan. It reviews its goals on an annual basis in the preparation of its CAPER and makes
adjustments to its goals as needed.
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City public infrastructure activities are subject to Davis-Bacon and Section 3 requirements. The City
ensures subgrantees and contractors understood these requirements by holding preconstruction
conferences, performing regular site visits, and reviewing certified payrolls for each covered activity.
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Expected Resources
AP-15 Expected Resources – 91.220(c)(1,2)
Introduction
The City of Oshkosh will receive $822,816 in CDBG funds for 2025 Program Year. The City does not expect to receive any Program Income during
the 2025 Annual Action Plan period. The City’s 2025 CDBG program year starts on May 1, 2025 and concludes on April 30, 2026.
Anticipated Resources
Program Source of
Funds
Uses of Funds Expected Amount Available Year 1 Expected
Amount
Available
Remainder
of ConPlan
$
Narrative Description
Annual
Allocation:
$
Program
Income: $
Prior Year
Resources:
$
Total:
$
CDBG public -
federal
Acquisition
Admin and Planning
Economic Development
Housing
Public Improvements
Public Services 822,816.00 0.00 0.00 822,816.00 0.00
The CDBG entitlement
program allocation.
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Program Source of
Funds
Uses of Funds Expected Amount Available Year 1 Expected
Amount
Available
Remainder
of ConPlan
$
Narrative Description
Annual
Allocation:
$
Program
Income: $
Prior Year
Resources:
$
Total:
$
HOME public -
federal
Acquisition
Homebuyer assistance
Homeowner rehab
Multifamily rental new
construction
Multifamily rental
rehab
New construction for
ownership
TBRA 0.00 0.00 0.00 0.00 0.00
N/A
Table 54 - Expected Resources – Priority Table
Explain how federal funds will leverage those additional resources (private, state and local funds), including a description of how
matching requirements will be satisfied
The City recieves state grants across departments that complement the CDBG program funds. Community funds toward public service projects
are also leveraged by the CDBG program.
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If appropriate, describe publically owned land or property located within the jurisdiction that
may be used to address the needs identified in the plan
The City is not proposing to use publicly owned land or property located within the jurisdiction to
address the needs identified in the plan.
Discussion
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Annual Goals and Objectives
AP-20 Annual Goals and Objectives
Goals Summary Information
Sort
Order
Goal Name Start
Year
End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome Indicator
1 Housing Initiatives 2020 2024 Affordable Housing City Wide Community
Development Need
Affordable Housing
Need
CDBG:
$750,000.00
Homeowner Housing
Rehabilitated: 35 Household
Housing Unit
2 Development 2025 2029 Non-Housing
Community
Development
City Wide Community
Development Need
Affordable Housing
Need
CDBG:
$1,250,000.00
Buildings Demolished: 5
Buildings
3 Public Facilities 2025 2029 Non-Housing
Community
Development
City Wide Community
Development Need
CDBG:
$1,000,000.00
Public Facility or Infrastructure
Activities other than
Low/Moderate Income
Housing Benefit: 5 Persons
Assisted
4 Public Services 2020 2024 Non-Housing
Community
Development
Community
Development Need
CDBG:
$625,000.00
Public service activities other
than Low/Moderate Income
Housing Benefit: 5000 Persons
Assisted
Homelessness Prevention: 100
Persons Assisted
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Sort
Order
Goal Name Start
Year
End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome Indicator
5 Administration and
Program
Management
2020 2024 Administration,
Planning, and
Management
City Wide Administration,
Planning, and
Management Need
CDBG:
$750,000.00
Other: 5 Other
Table 55 – Goals Summary
Goal Descriptions
1 Goal Name Housing Initiatives
Goal
Description
Conserve and rehabilitate existing affordable housing units occupied by owners by addressing repairs and accessibility.
2 Goal Name Development
Goal
Description
Revelopment projects including but not limited to clearance, demolition, acquisition, disposition and site clean up.
3 Goal Name Public Facilities
Goal
Description
4 Goal Name Public Services
Goal
Description
Improve and enhance the public and community development services in the City.
5 Goal Name Administration and Program Management
Goal
Description
Provide program management and oversight for the successful administration of Federal, state, and local funded programs,
including planning services for special studies, environmental clearance, fair housing activities, and compliance with all
Federal, state and local laws and regulations.
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Projects
AP-35 Projects – 91.220(d)
Introduction
During the Program Year, the City of Oshkosh will pursue the implementation of projects and activities
in these major categories:
1. Housing Initiatives
2. Development
3. Public Facilities
4. Public Services
5. Program Administration & Planning
The use of CDBG funds will focus on activities and programs that:
• Improve, maintain and create housing accessibility to homeownership for income qualified
homebuyers
• Revitalize neighborhoods through park and playground improvements, acquisition and
elimination of slum and blight properties
• Provide funding to various public service agencies, to be determined
• Provide training for landlords or tenants on fair housing regulations
• Provide administration of the overall CDBG program
The project allocations are referenced in AP-05 Executive Summary and AP-15 Expected Resources.
Projects
# Project Name
1 Housing Initiatives
2 Development
3 Public Facilities
4 Public Services
5 Program Administration & Planning
Table 56 – Project Information
Describe the reasons for allocation priorities and any obstacles to addressing underserved
needs
All funding allocations are consistent with priority needs in the City of Oshkosh and align with the
Consolidated Plan, Citizen Participation Plan, City Strategic Plan, the Oshkosh Housing Study, and various
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other documents that guide staff during the allocation process. Every effort was made to ensure that
the most vulnerable citizens in Oshkosh are the beneficiaries of the Program Year CDBG funding
allocation.
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AP-38 Project Summary
Project Summary Information
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1 Project Name Housing Initiatives
Target Area City Wide
Goals Supported Housing Initiatives
Needs Addressed Affordable Housing Need
Funding CDBG: $40,000.00
Description Funds used to rehab and expand the City's affordable housing stock for LMI
households as well as to stabilize and visually improve older LMI
neighborhoods. Funds will be used to provide home ownership
opportunities to eligible homebuyers by providing direct financial
assistance loans. Funds will be used to acquire homes in need of repair,
make needed repairs and sell the home to a qualified homebuyer. Improve,
maintain and create affordable housing options for LMI
persons/households; home ownership assistance, rental rehabilitation,
acquisition, rehab, construction/reconstruction and resale to eligible
homebuyers.
Target Date 4/30/2026
Estimate the number
and type of families
that will benefit from
the proposed
activities
2-4 LMI families.
Location Description Citywide
Planned Activities Activities may include, but are not limited to, rehabilitation or
improvements to a single-family residential property 24 CFR 570.202(a)(1),
homeownership assistance 24 CFR 570.201(n) and privately owned utilities
(24 CFR 570.201(l).
2 Project Name Development
Target Area
Goals Supported Development
Needs Addressed Community Development Need
Funding CDBG: $200,000.00
Description Assist with development within the city.
Target Date 4/30/2026
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Estimate the number
and type of families
that will benefit from
the proposed
activities
Citywide benefit.
Location Description Citywide.
Planned Activities Activities may include, but are not limited to, acquisition 24 CFR
570.201(a), clearance and demolition 24 CFR 570.201(d), asbestos removal
24 CFR 570.201(c) and cleanup of contaminated sites 24 CFR 570.201(d).
The following 24 CFR 570.201(c) activities that may be undertaken are
water/sewer improvements, street improvements, sidewalks and tree
planting.
3 Project Name Public Facilities
Target Area
Goals Supported Public Facilities
Needs Addressed Community Development Need
Funding CDBG: $307,816.00
Description Public Facilities 24 CFR 570.201(c): Various public facility improvements
carried out by the City, public or private nonprofits and/or other
organizations.
Target Date 4/30/2026
Estimate the number
and type of families
that will benefit from
the proposed
activities
Citywide benefit.
Location Description Citywide.
Planned Activities Activities may include, but are not limited to, acquisition, construction,
reconstruction, rehabilitation or installation of public facilities and
improvements, except as provided in § 570.207(a), carried out by the
recipient or other public or private nonprofit entities.
4 Project Name Public Services
Target Area
Goals Supported Public Services
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Needs Addressed Homeless Need
Community Development Need
Funding CDBG: $125,000.00
Description Public Services 24 CFR 570.201(e): Funds provided to local non-profit
agencies that provide needed services to LMI individuals and households.
Target Date 4/30/2026
Estimate the number
and type of families
that will benefit from
the proposed
activities
Citywide benefit.
Location Description Citywide.
Planned Activities Activities may include, but are not limited to, assistance to local non-profit
agencies that provide needed services to LMI individuals and households.
Activities that may be undertaken include, health care assistance,
emergency shelter, food assistance, peer support, Fair Housing services,
advocacy and education and emergency assistance.
5 Project Name Program Administration & Planning
Target Area
Goals Supported Administration and Program Management
Needs Addressed Administration, Planning, and Management Need
Funding CDBG: $150,000.00
Description Administration, Planning, and Management Need including Fair Housing
services.
Target Date 4/30/2026
Estimate the number
and type of families
that will benefit from
the proposed
activities
Citywide benefit.
Location Description Citywide.
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Planned Activities Activities may include, but are not limited to, general management,
oversight and coordination, public information, indirect costs, submission
of applications for federal programs, administrative expenses to facilitate
programs, third party Fair Housing contracts, associated training and
related costs and preparation of functional plans.
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AP-50 Geographic Distribution – 91.220(f)
Description of the geographic areas of the entitlement (including areas of low-income and
minority concentration) where assistance will be directed
All programs, projects, and activities to be carried out under the 2024 Annual Action Plan will meet one
of the three National objectives of:
• Benefit to low and moderate income (LMI) persons.
• Aid in the prevention or elimination of slums or blight.
• Meet a need having a particular urgency.
Funds will be used to assist LMI persons and households on a city-wide basis or in neighborhoods with
approved associations, occur in and benefit LMI/LMA census tracts/block groups, or in spot blighted or
approved redevelopment areas. The City's neighborhood associations map will change as new
associations are recognized by the City, so for an updated map with low to moderate income census
block groups within the City’s approved neighborhood associations, please contact the City's Planning
Services Division at 920-236-5059, located in Room 204, City Hall, 215 Church Avenue.
Geographic Distribution
Target Area Percentage of Funds
Table 57 - Geographic Distribution
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Rationale for the priorities for allocating investments geographically
Assistance will be directed primarily to LMI census tracts and block groups and recognized neighborhood
associations, as well as properties spot blighted or designated as redevelopment areas by the City, or on
a community wide basis to LMI income eligible persons. The majority of the LMI census tracts and block
groups are located within the oldest areas of the Central City, which are predominately single and two
family residential neighborhoods (though many have experienced inappropriate single family to multiple
family conversions), but also include a mix of commercial, industrial and institutional uses.
Residents in these areas have limited financial capacity to address housing and non-housing conditions,
as well as neighborhood revitalization efforts. The City’s 2025 CDBG Action Plan activities and programs
are intended to address these needs.
Discussion
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Affordable Housing
AP-55 Affordable Housing – 91.220(g)
Introduction
City of Oshkosh will utilize unspent prior year CDBG funds to support housing financial assistance and
owner-occupied housing rehabilitation programs.
The following affordable housing accomplishments are expected to be completed during the 2025 CDBG
Program Year
One Year Goals for the Number of Households to be Supported
Homeless 0
Non-Homeless 0
Special-Needs 0
Total 0
Table 58 - One Year Goals for Affordable Housing by Support Requirement
One Year Goals for the Number of Households Supported Through
Rental Assistance 0
The Production of New Units 0
Rehab of Existing Units 10
Acquisition of Existing Units 0
Total 10
Table 59 - One Year Goals for Affordable Housing by Support Type
Discussion
The City will fund the following affordable housing activities to achieve the stated one year goals above:
• Housing Rehab - An estimate based on previous year productivity
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AP-60 Public Housing – 91.220(h)
Introduction
The City of Oshkosh will provide funding to support the Oshkosh/Winnebago County Housing Authority
and the local Habitat for Humanity’s homebuyers programs with homebuyer financial assistance loans
and rehabilitation as needed with unspent prior year CDBG funds.
The Oshkosh/Winnebago County Housing Authority currently owns a handful of public housing
properties, in addition to a number of scattered sites.
Actions planned during the next year to address the needs to public housing
The City of Oshkosh will collaborate with the Oshkosh/Winnebago County Housing Authority on projects
to further affordable housing for low- to moderate-income households and/or disabled households.
Actions to encourage public housing residents to become more involved in management and
participate in homeownership
Residents of the Oshkosh Housing Authority have an annual meeting with the Executive Director, as well
as bi-monthly meetings with property managers and social workers. Additionally, there is a tenant from
Raulf Place on the Housing Authority Board. The Housing Authority also sends out newsletters to
residents to keep them informed on Housing Authority activities and initiatives. In order to better serve
non-English speaking public housing residents, the Housing Authority has translators available for
residents. Additionally, the housing authority invites a guest speaker at an annual employee event, and
sends out monthly Fair Housing online newsletters to all staff.
If the PHA is designated as troubled, describe the manner in which financial assistance will be
provided or other assistance
Not applicable; the Oshkosh Housing Authority and Winnebago County Housing Authority are not
designated as troubled.
Discussion
The City of Oshkosh has identified that there is a need for decent, safe and sanitary housing that is
affordable and accessible to address the households affected by housing problems, severe housing
problems, and housing cost burdens. The largest groups affected by housing problems are the extremely
low-income households and senior households. The Oshkosh/Winnebago County Housing Authority is
an important part of the City's affordable housing strategy and the primary assisted housing provider of
housing for extremely low income, very low income, and lower income residents of the City of Oshkosh.
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AP-65 Homeless and Other Special Needs Activities – 91.220(i)
Introduction
The Wisconsin Balance of State CoC (WIBOSCOC) serves a total of sixty-nine counties. The 69 counties
are organized into twenty-one geographically dispersed local homeless coalitions. The City of Oshkosh is
part of the Winnebagoland CoC. The region is made up of two counties which include: Fond du Lac
County and Winnebago County.
According to the WIBOSCOC governance charter, the purpose of the Wisconsin Balance of State CoC is
to lead and support the efforts of its members to end homelessness. The CoC works toward ending
homelessness by providing leadership to providers of homeless services and ensuring the efficient and
effective delivery of housing and supportive services to individuals and families experiencing
homelessness or at risk of homelessness. This includes strongly encouraging community-wide
commitment to ending homelessness, providing funding for efforts by nonprofit providers, and
promoting access to and effective use of mainstream programs by individuals and families experiencing
homelessness.
The City continues to collaborate with the Day by Day Warming Shelter, a permanent shelter facility that
offers on-site services.
Describe the jurisdictions one-year goals and actions for reducing and ending homelessness
including
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
Homeless service providers maintain contact with other agencies that may not be active members of the
housing coalition to facilitate homeless participants accessing services in a timely manner or to assure
appropriate referral of persons by other agencies to the homeless service providers.
Also, ADVOCAP and the Day by Day Warming Shelter provides staff support to conduct point in time
surveys of homeless needs, prepare annual needs assessment and prioritization of unmet needs, and
write grants for joint homeless activities. The City will continue to participate as a member of the
Winnebagoland Housing Coalition to provide and obtain input from organizations providing the
necessary services and assist with funding where possible.
The biggest risk factors of homelessness continued to be: 1) a person or family double-up with another
family, 2) being released from a psychiatric facility, 3) being released from a substance abuse treatment
facility, or 4) being released from a correctional facility.
Addressing the emergency shelter and transitional housing needs of homeless persons
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The City of Oshkosh will continue to support the Day by Day Warming shelter that serves a small but
definite population of persons with limited shelter options in the community. The Day by Day Warming
Shelter adds an important level to the continuum of care in this area by providing a safe setting to a
vulnerable homeless population. Despite nearly 200 success stories of guests working toward self-
sufficiency at the shelter, the need for temporary overnight shelter continues to grow in Oshkosh.
Homelessness and the factors affecting it are increasing and the temporary local warming shelter has to
regularly turn people in need away.
Also, the Redevelopment Authority (RDA) of the City of Oshkosh has leased a single family house to
ADVOCAP for short term transitional housing.
The City has also provided support to COTs, Solutions Recovery and Christine Ann Domestic Abuse
Services, which are organizations in Oshkosh that have grown substantially over the past few years that
provide transitional housing services.
The Oshkosh Police Deparment is leading outreach efforts in Oshkosh's downtown through a Police
substation focused on homeless support services.
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the transition to
permanent housing and independent living, including shortening the period of time that
individuals and families experience homelessness, facilitating access for homeless individuals
and families to affordable housing units, and preventing individuals and families who were
recently homeless from becoming homeless again
Using the HUD System Performance Measure Guidance, the HMIS Lead developed a CoC Performance
Report with metrics for “Length of Time Homeless” (LOTH) and reviewed this data with the CoC Data
Committee which meets quarterly to review CoC Performance and identify needed interventions. The
strategies to reduce the length of time of homelessness include: 1) Coordinated Entry through the
Vulnerability Index & Service Prioritization Decision Assistance Tool which included LOTH as a
prioritization factor; 2) the CoC adopted a protocol that mirrors CPD 14-012, “Notice on Prioritizing
Persons Experiencing Chronic Homelessness and Other Vulnerable Homeless Persons in Permanent
Supportive Housing and Recordkeeping Requirements for Documenting Chronic Homeless Status”,
which directs Permanent Supportive Housing resources to those with the greatest LOTH; 3) the CoC
increased its Rapid Rehousing inventory with the goal of housing people within 30 days of becoming
homeless; and 4) the Data Committee reviewed aggregate and project level performance data quarterly
to identify where LOTH was not decreasing.
Through the use of the VISPDAT, the CoC prioritizes the most vulnerable families. Rapid Rehousing (RRH)
programs, along with all project types, are expected to serve families based on their vulnerability score,
while utilizing a Housing First approach. The use of RRH has increased throughout the CoC. ESG funds
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are prioritized for RRH over homeless prevention services. An increase in Supportive Services for
Veteran Families (SSVF) resources are being utilized to rapidly rehouse veteran families.
The CoC also aims to reduce the rate of individuals and families who return to homelessness. The
Wisconsin Balance of State CoC looks at reoccurrence rates as part of the project scoring for HUD
Competition each year. The WIBOSCOC looks at one and two-year returns. Winnebagoland CoC’s
Permanent Supportive Housing project has a 0% return, one Rapid Rehousing project has an 8% return,
and another RRH project has an 11% return.
The Center for Veteran’s Issues operates the HUD VASH project in Winnebago County. The Center does
not fall under direct control of a single governmental entity. It works as an independent provider and
servicer dedicated to ending Veteran homelessness in the state of Wisconsin.
The Oshkosh/Winnebago County Housing Authority administers the HUD-VASH program and prioritizes
veterans on their waiting list.
Helping low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families and those who are: being discharged from publicly
funded institutions and systems of care (such as health care facilities, mental health facilities,
foster care and other youth facilities, and corrections programs and institutions); or, receiving
assistance from public or private agencies that address housing, health, social services,
employment, education, or youth needs
The City will continue to participate on the Winnebagoland Housing Coalition to provide and obtain
input from organizations providing the necessary services and assist with funding where possible.
While City staff will not lead the effort to create a discharge policy, staff will participate in any efforts to
create such a policy.
Discussion
The City of Oshkosh does not receive any private funds to address homeless needs or to prevent
homelessness. There are a number of public and private organizations providing these homeless
services in the community and the City supports these agencies through funding public service agencies.
The City also allocated a portion of American Rescue Plan Act (ARPA) funds to support homelessness
initiatives. The Continuum of Care (CoC) in Oshkosh has a direct influence in addressing the needs of the
homeless, as well.
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AP-75 Barriers to affordable housing – 91.220(j)
Introduction:
In 2020, the City of Oshkosh prepared an Analysis of Impediments to Fair Housing Choice (AI). The AI
identified local jurisdictional and regional collaborative actions the participants will undertake to
address fair housing choice and housing affordability.
The City of Oshkosh Community Development staff respond to questions from City residents pertaining
to the Fair Housing Act and its provisions. City staff are familiar with local Ordinances and Federal laws
concerning fair housing that are designed to protect all residents of the community from discrimination.
The City also historically has contracted annually with the Metropolitan Milwaukee Fair Housing
Council's (MMFHC) Appleton satellite office, the Fair Housing Center of Northeast Wisconsin (FHCNW)
for additional support and education for local residents.
Actions it planned to remove or ameliorate the negative effects of public policies that serve
as barriers to affordable housing such as land use controls, tax policies affecting land, zoning
ordinances, building codes, fees and charges, growth limitations, and policies affecting the
return on residential investment
Legal Action of Wisconsin (LAW) provides legal aid related to affordable housing, serving low-income
residents living in the City. LAW staff provides assistance to residents who face eviction, are denied
housing, or are forced to live in uninhabitable conditions. Information on foreclosures, consumer issues,
and fair housing is also provided to the residents. LAW policies and activities promote the awareness of
fair housing requirements. They provide consultation to developers and municipalities to ensure that
rental and for-sale units are marketed in accordance with the affirmative marketing rules of the U.S.
Department of Housing and Urban Development. LAW ensures that all housing programs and services
provided by the City, its municipalities, and LAW itself, are administered in a way that promotes fair
housing on the basis of race, national origin, religion, gender, disability, and familial status.
Fair Housing Center of Northeastern Wisconsin (FHCNW) is a planned subrecipient of 2025 CDBG funds
to provide housing counseling for people with disabilities who are living on limited income and may be
at-risk of homelessness. The City contracts with FHCNW for fair housing services. The FHCNW Outreach
& Education Program provides fair housing training for interested parties, fair housing technical
assistance for government agencies, development and distribution of fair housing educational materials,
and presentations to the general public. The mission of FHCNW is to promote fair housing throughout
the State of Wisconsin by combating illegal housing discrimination and by creating and maintaining
racially and economically integrated housing patterns.
Discussion:
City of Oshkosh will continue to monitor and review public policies for discriminatory practices, and/or
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impacts on housing availability. In addition to the annual certification submitted to HUD, the City has
completed the following activities to promote fair housing:
The City continues to contract with Milwaukee Fair Housing Council and has revised the Fair Housing
Ordinance to reflect the current structure for investigation and disposition of complaints through a
third-party contract (Fair Housing Council) as needed.
The City continues to administer a voluntary Residential Rental Registration and Inspection program.
The City-wide program is voluntary and provides for the registration and inspection of residential rental
dwelling units in the City to ensure units provide safe, decent, and sanitary living conditions for tenants
and to prevent further deterioration of those units.
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AP-85 Other Actions – 91.220(k)
Introduction:
City of Oshkosh has developed the following actions to address obstacles to meeting underserved
needs, foster and maintain affordable housing, reduce lead-based hazards, reduce the number of
poverty-level families, develop institutional structures, and enhance coordination between public,
private housing and social service agencies.
Actions planned to address obstacles to meeting underserved needs
The primary obstacle to meeting the underserved needs in the City is the limited financial resources
available to address the priorities identified in the Five-Year Consolidated Plan and the lack of affordable
housing in the City. The City will take the following actions during the program year:
• Continue to leverage its financial resources and apply for additional public and private funds
• Continue to provide financial assistance for housing initiatives
• Continue to provide funding for public service activities
• Continue to do provide public facility improvements
Actions planned to foster and maintain affordable housing
The City will fund the following affordable housing activities with this year's CDBG funds:
• Central City Redevelopment
• Housing Rehabilitation
• Public Services
The Oshkosh/Winnebago County Housing Authority will continue to fund the following activities to
foster and maintain affordable housing in the City:
• Continue to provide Housing Choice Vouchers and public housing units
• Continue to rehabilitate and make improvements to public housing units
Actions planned to reduce lead-based paint hazards
The City will continue to comply with Title 24 Part 35: Lead-Based Paint Poisoning Prevention in Certain
Residential Structures (Current Rule) for its Housing Rehabilitation Program. In order to meet the
requirements of the new lead-based paint regulations, the City will take the following actions regarding
housing rehabilitation:
• Applicants for rehabilitation funding receive the required lead-based paint information and
understand their responsibilities.
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• Staff properly determines whether proposed projects are exempt from some or all lead-based
paint requirements.
• The level of Federal rehabilitation assistance is properly calculated and the applicable lead-
based paint requirements determined.
• Properly qualified personnel perform risk management, paint testing, lead hazard reduction,
and clearance services when required.
• Required lead hazard reduction work and protective measures are incorporated into project
rehabilitation specifications.
• Risk assessment, paint testing, lead hazard reduction, and clearance work are performed in
accordance with the applicable standards established in 24 CFR Part 35, Subpart R.
• Required notices regarding lead-based paint evaluation, presumption, and hazard reduction are
provided to occupants and documented.
Actions planned to reduce the number of poverty-level families
The City’s goal is to reduce the extent of poverty by actions the City can control and through work with
other agencies and organizations.
Actions planned to develop institutional structure
The City's Community Development Staff will coordinate activities among the public and private
agencies and organizations in the City. This coordination will ensure that the goals outlined in the
Consolidated Plan will be effectively addressed by more than one agency. The staff of the Economic
Development Division will facilitate and coordinate the linkage between these public and private
partnerships and develop new partnership opportunities in the City. This coordination and collaboration
between agencies is important to ensure that the needs of the residents of the City of Oshkosh are
being addressed.
Actions planned to enhance coordination between public and private housing and social
service agencies
The City is committed to continuing its participation and coordination with social service agencies,
housing agencies, community and economic development agencies, City, county, federal, and state
agencies, as well as with the private and non-profit sectors, to serve the needs of target income
individuals and families in the City. The City accepts funding requests for CDBG funds annually. The
Economic Development Division staff provides help and technical assistance as needed to assist these
public agencies that receive CDBG funding.
Discussion:
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Program Specific Requirements
AP-90 Program Specific Requirements – 91.220(l)(1,2,4)
Introduction:
The City of Oshkosh will recieve a $822,816 allocation for the 2025 CDBG Program Year. The City does
not expect to receive any Program Income during the 2025 Annual Action Plan period. Since the City
receives a CDBG allocation, the questions below have been completed as applicable.
Community Development Block Grant Program (CDBG)
Reference 24 CFR 91.220(l)(1)
Projects planned with all CDBG funds expected to be available during the year are identified in the
Projects Table. The following identifies program income that is available for use that is included in
projects to be carried out.
1. The total amount of program income that will have been received before the start of the next
program year and that has not yet been reprogrammed 0
2. The amount of proceeds from section 108 loan guarantees that will be used during the year to
address the priority needs and specific objectives identified in the grantee's strategic plan. 0
3. The amount of surplus funds from urban renewal settlements 0
4. The amount of any grant funds returned to the line of credit for which the planned use has not
been included in a prior statement or plan 0
5. The amount of income from float-funded activities 0
Total Program Income: 0
Other CDBG Requirements
1. The amount of urgent need activities 0
<TYPE=[text] REPORT_GUID=[A698417B4C924AE0218B42865313DACF]
DELETE_TABLE_IF_EMPTY=[YES]>
2. The estimated percentage of CDBG funds that will be used for activities that benefit
persons of low and moderate income.Overall Benefit - A consecutive period of one,
two or three years may be used to determine that a minimum overall benefit of 70%
of CDBG funds is used to benefit persons of low and moderate income. Specify the
years covered that include this Annual Action Plan. 70.00%
HOME Investment Partnership Program (HOME)
Reference 24 CFR 91.220(l)(2)
1. A description of other forms of investment being used beyond those identified in Section 92.205 is
as follows:
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N/A
2. A description of the guidelines that will be used for resale or recapture of HOME funds when used
for homebuyer activities as required in 92.254, is as follows:
N/A
3. A description of the guidelines for resale or recapture that ensures the affordability of units acquired
with HOME funds? See 24 CFR 92.254(a)(4) are as follows:
N/A
4. Plans for using HOME funds to refinance existing debt secured by multifamily housing that is
rehabilitated with HOME funds along with a description of the refinancing guidelines required that
will be used under 24 CFR 92.206(b), are as follows:
N/A
5. If applicable to a planned HOME TBRA activity, a description of the preference for persons with
special needs or disabilities. (See 24 CFR 92.209(c)(2)(i) and CFR 91.220(l)(2)(vii)). <TYPE=[text]
REPORT_GUID=[A0BBB986408D8C25582AC4BE59FA99C5]>
6. If applicable to a planned HOME TBRA activity, a description of how the preference for a specific
category of individuals with disabilities (e.g. persons with HIV/AIDS or chronic mental illness) will
narrow the gap in benefits and the preference is needed to narrow the gap in benefits and services
received by such persons. (See 24 CFR 92.209(c)(2)(ii) and 91.220(l)(2)(vii)).
7. If applicable, a description of any preference or limitation for rental housing projects. (See 24 CFR
92.253(d)(3) and CFR 91.220(l)(2)(vii)). Note: Preferences cannot be administered in a manner that
limits the opportunities of persons on any basis prohibited by the laws listed under 24 CFR 5.105(a).
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Appendix - Alternate/Local Data Sources
So
rt
or
de
r
Ty
pe
Dat
a
Sou
rce
Na
me
List
the
name
of the
organi
zation
or
individ
ual
who
origina
ted the
data
set.
Provi
de a
brief
sum
mary
of
the
data
set.
What
was
the
purpo
se for
devel
oping
this
data
set?
Provi
de
the
year
(and
optio
nally
mont
h, or
mont
h and
day)
for
when
the
data
was
collec
ted.
Briefly
describ
e the
metho
dology
for the
data
collecti
on.
Descri
be
the
total
popul
ation
from
which
the
sampl
e was
taken.
Describ
e the
demogr
aphics
of the
respond
ents or
charact
eristics
of the
unit of
measur
e, and
the
number
of
respond
ents or
units
surveye
How
compre
hensive
is the
coverag
e of this
administ
rative
data? Is
data
collectio
n
concentr
ated in
one
geograp
hic area
or
among a
certain
populati
What
time
perio
d
(prov
ide
the
year,
and
optio
nally
mont
h, or
mont
h and
day)
is
cover
ed by
this
data
What
is the
status
of the
data
set
(com
plete,
in
progr
ess,
or
plann
ed)?
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d. on? set?
<TYPE=[pivot_table] VERSION=[2] REPORT_GUID=[884DC1E44796F035A521FE96F1A3ABF2]>
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Citizen Participation Plan for HUD Funded Activities
May 2025
CITY OF OSHKOSH
2025 CITIZEN PARTICIPATION PLAN
The City of Oshkosh receives an annual entitlement of Community Development Block Grant (CDBG)
funds from the US Department of Housing and Urban Development (HUD) for housing and
community development activities to assist low to moderate income persons. In accordance with HUD
regulation 24 CFR 91.105, the City is required to adopt a Citizen Participation Plan that sets forth the
City’s policies and procedures for citizen participation in the creation of a 5-Year Consolidated Plan
(Consolidated Plan) that addresses affordable housing and community development needs, submit an
Annual Action Plan (Annual Plan) to outline spending and activities for the corresponding program
years, a Consolidated Annual Performance and Evaluation Report (CAPER) to evaluate the City’s
accomplishments and use of CDBG funds.
Objectives
The Citizen Participation Plan provides for and encourages citizens to participate in the development
of the Consolidated Plan, any substantial amendments to the Consolidated Plan, Annual Plan, and the
CAPER. This Plan is designed to solicit views and recommendations from the community,
organizations and other interested parties, encourage participation by low and moderate income
persons, and to incorporate their views and recommendations in the decision-making process. Actions
will be taken to encourage participation of all citizens, including minorities and non-English speaking
persons, as well as persons with disabilities.
The City of Oshkosh encourages collaboration with the Oshkosh/Winnebago County Housing
Authority and the residents of public and assisted housing developments during the process of
developing and implementing the Consolidated Plan, along with other low-income residents of
targeted revitalization areas in which the developments are located. The City strives to provide
information to the Oshkosh/Winnebago County Housing Authority about consolidated plan activities
related to its developments and surrounding communities.
Development of Consolidated Plan, Annual Action Plans
Before the City adopts a Consolidated Plan, the City will make available to citizens, public agencies,
and other interested parties information that includes the amount of assistance the City expects to
receive in grant funds and program income, and the range of activities that will be undertaken,
including the estimated amount that will benefit persons of low and moderate income. The city will
make a concerted effort to notify residents, social service providers, non-profit organizations,
community-based organizations, and other interested parties of the development of the Consolidated
and Annual Plans through electronic mail, online postings and notices in the local newspaper.
During project development, it is the City's goal to minimize displacement of persons and to assist any
person displaced. During redevelopment or rehabilitation projects, the City will work with citizens and
property owners to present assistance available during the displacement period. Depending on the
nature and scope of the project, this information will be made available in written and/or oral formats.
City staff will be available to meet with those being displaced to continue any necessary discussion.
The City of Oshkosh will publish a summary of the proposed Plans which describes the contents and
purpose of the Plan(s) and include a list of locations where they may be examined. The Plan(s) will be
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Citizen Participation Plan for HUD Funded Activities
May 2025
available for review at the Community Development Department, 215 Church Avenue, Room 201, and
online at www.oshkoshwi.gov on the Economic Development web page. In addition, the City will
provide a reasonable number of free copies of the plan to citizens and groups that request it. The notice
will include information on the public hearing including location, date, and time.
The notice published in the local newspaper will initiate citizen review comment periods. All Plans
will allow a 30-day period to receive comments from citizens and interested parties.
During the preparation of the Plans, the City of Oshkosh will consider any comments or views
received at public hearings or by other means. A summary of these comments or views, and a
summary of any comments or views not accepted and the reasons therefore, will be attached as an
appendix to the Plans.
Amendments to the Consolidated Plan, Annual Action Plans. The City of Oshkosh will amend the
consolidated plan if, during the program year, it is decided not to carry out an activity described in the
annual action plan, propose a new project, or to substantially change the purpose, scope, location, or
beneficiaries of an activity. For purposes of this Plan, the criteria for substantial is defined to be an
action which changes a project category by an amount equal to or in excess of twenty percent (20%) of
the current entitlement grant, or if the location of a project is changed in a manner that would deprive
persons originally included of specific benefits. A public hearing to amend the Plans would be held
before the Common Council. Citizen comment period shall be as noted above.
During the preparation of substantial amendments to the consolidated plan, the City will consider any
comments or views received at public hearings or by other means. A summary of these comments or
views, and a summary of any comments or views not accepted and the reasons therefore, will be
attached as an appendix to the Plans.
Consolidated Annual Performance and Evaluation Report (CAPER). The CAPER is due to HUD
within 90 days of the end of the program year. The City of Oshkosh’s program year ends April 30;
therefore, the performance report is due to HUD by July 29. Thus, this review period will typically be
conducted during July.
A comment period of not less than 30 days will be published in the local newspaper. Copies of the
report will be available for review at the Community Development Department and online at
www.oshkoshwi.gov on the Economic Development web page. Comments or views of citizens will be
accepted in both written and oral formats. A summary of these comments or views will be attached to
the CAPER and submitted to HUD.
Public Hearings. The City will hold a minimum of two public hearings each year; one during the
planning phase of the Plans and one during the review phase of the Plans. The purpose of the hearings
will be to obtain citizens views regarding housing and community development needs, proposed
allocation of CDBG funds, strategies and actions taken to further fair housing initiatives and review
program performance. Notice will be provided a minimum of 10 days in advance of the public hearing
and published in the local newspaper.
The hearings will address housing and community development needs, development of proposed
activities, and review of program performance. Public hearings and meeting locations shall be
accessible to those with disabilities. Reasonable accommodations will be provided for those with
disabilities or in need of interpreters upon advance request by contacting the Community Development
Department.
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Citizen Participation Plan for HUD Funded Activities
May 2025
Access to Information and Records. Any citizen, organization or interested party may submit written
requests for information regarding the Consolidated Plan, Annual Action Plan, Fair Housing Plan and
CAPER, including the City's use of funds under the CDBG program and the benefit to low and
moderate income persons. These Plans will be available for public review at the Community
Development Office, 215 Church Avenue, Room 201, and on the City's website, www.oshkoshwi.gov
on the Economic Development web page. The City will, upon request, make available these documents
in a form accessible to persons with disabilities.
Technical Assistance. Upon request and where applicable, technical assistance will be provided to
groups representative of persons of low and moderate income that request such assistance in
developing proposals for funding assistance under any of the programs covered by the consolidated
plan. The assistance need not include the provision of funds to the groups.
Comment and Complaint Process. The City will consider any comments from citizens received in
writing or orally at public hearings in preparing this Citizen Participation Plan, the Consolidated Plan,
Annual Action Plans, CAPERs, Fair Housing Plan and/or substantial amendments to these Plans. A
summary of all comments will be attached and submitted to HUD.
The City will respond to written complaints received relating to the Consolidated Plan, Annual Action
Plans, Fair Housing Plan, CAPERs and/or substantial amendments. Written complaints must describe
the objection and provide contact information of the complainant. The City will respond to complaints
within 15 working days of receiving the written complaint, acknowledging the letter and identifying a
plan of action, if necessary.
Approved by the Oshkosh Common Council: June 24, 2025
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