2025-2029 FIVE YEAR
CONSOLIDATED PLAN & STRATEGY

To be submitted to the U.S. Department of Housing & Urban Development by:

Mario Higgins, Director
City Hall – 600 East Wells Street, Room 606
Milwaukee, Wisconsin

Funds provided by the U.S. Department of Housing & Urban Development

ES-05 Executive Summary        2

PR-05 Lead & Responsible Agencies        8

PR-10 Consultation        10

PR-15 Citizen Participation        18

NA-05 Needs Assessment        23

NA-10 Housing Needs Assessment        26

NA-15 Disproportionately Greater Need: Housing Problems        38

NA-20 Disproportionately Greater Need: Severe Housing Problems        43

NA-25 Disproportionately Greater Need: Housing Cost Burdens         49

NA-30 Disproportionately Greater Need: Discussion        51

NA-35 Public Housing        53

NA-40 Homeless Needs Assessment        58

NA-45 Non-Homeless Special Needs Assessment        74

NA-50 Non-Housing Community Development Needs        84

MA-05 Market Analysis        94

MA-10 Number of Housing Units        97

MA-15 Housing Market Analysis: Cost of Housing        103

MA-20 Housing Market Analysis: Condition of Housing        108

MA-25 Public and Assisted Housing        113

MA-30 Homeless Facilities and Services        121

MA-35 Special Needs Facilities and Services        128

MA-40 Barriers to Affordable Housing        131

MA-45 Non-Housing Community Development Assets        133

MA-50 Needs and Market Analysis Discussion        146

MA-60 Broadband Needs of Housing occupied by Low- and Moderate-Income Households        165

MA-65 Hazard Mitigation        169

SP-05 Strategic Plan        171

SP-10 Geographic Priorities        173

SP-25 Priority Needs        181

SP-30 Influence of Market Conditions        184

SP-35 Anticipated Resources        188

SP-40 Institutional Delivery Structure        190

SP-45 Goals Summary        200

SP-50 Public Housing Accessibility and Involvement        207

SP-55 Barriers to affordable housing        209

SP-60 Homelessness Strategy        213

SP-65 Lead-based paint Hazards        218

SP-70 Anti-Poverty Strategy        223

SP-80 Monitoring        226

APPENDIX (Bibliography, Community Engagement Summary, Public Comments)        231

ES-05 Executive Summary - 24 CFR 91.200(c), 91.220(b)

Introduction

The Community Development Block Grant program was established by Congress in 1974 with the passage of the Housing and Community Development Act. This program provides funds to municipalities and other units of government around the country to develop viable urban communities. This is accomplished by providing affordable, decent housing, a suitable living environment and by expanding economic opportunities principally for low and moderate income persons.  

Over a 12-month period, the 2025-2029 City of Milwaukee HUD Consolidated Plan process utilized a comprehensive set of community outreach and input activities, analysis of housing and economic data, and review of other community plans to identify and summarize the community needs and strategic opportunities.

While local units of government develop their own programs and funding priorities, all activities must be consistent with one or more of the following HUD national objectives:        

1. Principally benefits low/moderate income persons
2. Prevents or eliminates slum or blight
3. Addresses an urgent need or problem in the community (e.g., natural disaster)                        

As a Participating Jurisdiction (PJ) and entitlement community, the City of Milwaukee-Community Development Grants Administration (CDGA), receives annual funding allocations from the Federal government to fund activities to address these National Objectives. As a recipient of these funds, every five years the City of Milwaukee is required to submit to HUD a Consolidated Plan and Strategy that defines the direction the City will take in utilizing these Federal funds to address the national objectives and produce the greatest measurable impact on our community.  

The statutes for the Federal formula grant programs set forth three basic goals against which the plan and the City’s performance under the plan will be evaluated by HUD. The City must state how it will pursue these goals for all community development programs. The HUD statutory program goals are:        

1. DECENT HOUSING - which includes:

• Assisting homeless persons obtain affordable housing;
• Assisting persons at risk of becoming homeless;
• Retaining the affordable housing stock;
• Increasing the availability of affordable permanent housing in standard condition to low-income and moderate-income families, particularly to members of disadvantaged communities without discrimination on the basis of race, color, religion, sex, national origin, familial status, or disability;
• Increasing the supply of supportive housing which includes structural features and services to enable persons with special needs (including persons with HIV/AIDS) to live in dignity and independence; and
• Providing affordable housing that is accessible to job opportunities.

2. A SUITABLE LIVING ENVIRONMENT - which includes:

• Improving the safety and livability of neighborhoods;
• Eliminating blighting influences and the deterioration of property and facilities;
• Increasing access to quality public and private facilities and services;
• Reducing the isolation of income groups within areas through spatial deconcentration of housing opportunities for lower income persons and the revitalization of deteriorating neighborhoods; and
• Restoring and preserving properties of special historic, architectural, or aesthetic value; and conserving energy resources and use of renewable energy sources.

3. EXPANDED ECONOMIC OPPORTUNITIES- which includes:

• Job creation and retention;
• Establishment, stabilization and expansion of small businesses (including micro-businesses);
• The provision of public services concerned with employment;
• The provision of jobs to low-income persons living in areas affected by those programs and activities, or jobs resulting from carrying out activities under programs covered by the plan;
• Availability of mortgage financing for low-income persons at reasonable rates using non-discriminatory lending practices;
• Access to capital and credit for development activities that promote the long-term economic
• and social viability of the community; and
• Empowerment and self-sufficiency for low-income persons to reduce generational poverty in federally assisted housing and public housing.

The long-term outcomes linked to these goals are:

1. Availability/Accessibility – Programs/activities that make services, housing, infrastructure, public services, or shelter accessible or available to low or moderate income persons, including those with special needs and/or disabilities.
2. Affordability – Programs/activities that provide affordability to low or moderate income persons; can include affordable housing development/preservation.
3. Sustainability – Programs/activities that improve communities and promote viability such as removing slum and blight or other services that sustain communities.

Resources & Leveraging Funds

For the most part, a Consolidated Plan is focused on how to best spend Federal HUD dollars. However, with a robust community input process, other issues that impact housing, economic opportunity, and quality life are also included in the feedback and data analysis. While important, they may not fall within the scope of this Consolidated Plan for the City of Milwaukee’s use of Federal funds. However, many of the programs and activities funded by the Community Development Grants Administration, (CDGA) have an impact on these concerns and more importantly, bring value to Milwaukee’s diverse neighborhoods.

Many activities identified in the Consolidated Plan are under the direct control and supported by the following Federal entitlement funds which are administered by the Community Development Grants Administration (CDGA): Community Development Block Grant (CDBG), HOME Investment Partnerships, Emergency Solutions Grants (ESG) and Housing Opportunities for Persons with AIDS (HOPWA). Other Federal and State funds (such as federal relief programs) will also be used for proposed activities.                

Additionally, CDGA is committed to leveraging funding resources from other types of public and private sources for community development projects that are funded. For example, the community-based organizations that the City of Milwaukee partners with not only utilize CDBG funds, but also secure other grants and donations to match.

Other Local, State and non-governmental funds are used to support housing activities such as Housing Trust Fund, private financing, Low Income Housing Tax Credits (LIHTC), CDFI lending, etc. Economic development funds complement projects from the Department of Justice, Safe Havens, etc. to support community safety efforts.

The priorities and accomplishment goals outlined in this document are based on assumptions about future funding levels for the Consolidated Plan programs. In all cases, the City of Milwaukee has presumed the level of funding of each program based on previous annual funding levels. Because these programs are subject to potential changes due to national funding decisions, the projections and planned activities are subject to change based on the availability of funding. The strategies and recommendations outlined in the document attempt to balance the needs and priorities of our community and as identified in the data analysis, with the availability of funds.

The City of Milwaukee and CDGA will continue to strive to address the needs of Milwaukee’s residents, while promoting programs and activities that will provide the greatest benefit for our community.

Summary of the objectives and outcomes identified in the Plan

Milwaukee’s population has remained relatively stable since 2000, but the city’s demographic makeup continues to evolve. A growing share of residents now identify as non-White, largely driven by significant increases in the Latino/Hispanic population. Yet Milwaukee remains one of the most racially segregated metro areas in the country. This enduring segregation, compounded by the legacy of discriminatory housing policies like redlining, contributes to entrenched racial and economic disparities—most starkly reflected in the city's persistent racial wealth gap.

Addressing these inequities requires sustained commitment to programs and policies that intentionally work to undo historic harm and advance racial and economic justice. Although the city has seen a rise in median household income over the past 15 years, poverty levels have not declined at the same rate. Many households continue to struggle with housing affordability and economic insecurity.

In response, the City of Milwaukee has prioritized affordable housing development through partnerships with nonprofit organizations, community groups, and the private sector. In recent years, this commitment has been documented through several key planning initiatives, including updates to the Comprehensive Plan’s Housing Element (formerly known as “Growing MKE”), the annual Housing Affordability Reports, the Climate and Equity Plan, and the Collective Affordable Housing Strategic Plan.

The Housing Strategy outlined in the Consolidated Plan builds on this foundation. It will expand access to quality, affordable housing by coordinating efforts across city agencies and programs, such as the Neighborhood Improvement Development Corporation (NIDC), the Housing Trust Fund, the Housing Authority of the City of Milwaukee (HACM), Tax Incremental Districts (TIDs), and Neighborhood Improvement Districts (NIDs). These programs focus on increasing affordable rental options, boosting homeownership, rehabilitating housing stock, eliminating blight, supporting home maintenance/repairs, preventing eviction, and overall housing stability.

Complementing the Housing Strategy, the Economic and Community Development strategies in the Consolidated Plan aim to ensure that affordable housing is supported by access to good jobs, transportation, and essential services. By investing in high-impact, cluster-based economic development projects, Milwaukee is working to stimulate job creation and neighborhood revitalization—particularly in areas that have experienced historic disinvestment. These integrated strategies recognize that housing, economic opportunity, and community services are deeply interconnected and essential to building a more inclusive, resilient, and thriving Milwaukee.

Housing
The 2025–2029 Consolidated Plan sets a clear course to expand housing access and security across Milwaukee. It emphasizes increasing the number of affordable units through new construction, rehabilitation, and home repair, while preserving existing stock and preventing displacement. There’s a focus on supporting homeownership (particularly for low-income residents and households of color) to help close longstanding racial wealth gaps. The plan also targets housing solutions for groups with specific needs, including older adults, people with disabilities, veterans, and youth. Through these strategies, the City aims to reduce housing cost burdens, stabilize neighborhoods, and ensure residents can access housing that is safe, affordable, and suited to their needs.

Economic & Community Development
Milwaukee’s approach to economic and community development is centered on fostering inclusive growth. It focuses on job creation, entrepreneurship, and small business support, particularly in underinvested neighborhoods. The City also seeks to build residents’ financial resilience through workforce development and technical assistance. By improving access to capital and expanding economic opportunity, the Plan anticipates increased employment, stronger local businesses, and equitable distribution of resources across communities.

Neighborhood Revitalization & Quality of Life
Neighborhood investment is key to enhancing quality of life. The City’s objectives include improving streets, sidewalks, parks, and public spaces while promoting public safety and environmental health. Community-building is central—programs emphasize civic engagement, youth development, and partnerships that advance racial healing and justice. These efforts aim to create vibrant, connected, and resilient neighborhoods where residents of all ages have access to the resources they need to thrive.

Preventing & Addressing Homelessness
Milwaukee commits to reducing homelessness through a coordinated system anchored in stabilizing a person’s housing situation. The plan expands permanent supportive housing, rapid re-housing, and targeted prevention services for those most at risk—families, veterans, unaccompanied youth, and people experiencing chronic homelessness. The City’s investments aim to accelerate stable housing placements, decrease chronic homelessness, and improve service coordination across housing, health, and employment sectors.

Assisting Special Needs Populations
For residents with unique housing and service needs—such as people with disabilities, veterans, immigrants, justice-impacted individuals, or unaccompanied youth—the Plan calls for integrated supports and affordable, accessible housing options. This includes expanding supportive housing and case management, and ensuring services are culturally competent and trauma-informed. The intended outcomes are increased stability, self-sufficiency, and long-term housing for residents often left behind by the traditional housing market.

Addressing Lead-Based Paint Hazards
Recognizing the health risks of Milwaukee’s aging housing stock, the Plan continues robust efforts to eliminate lead hazards. With major investments from HUD and ARPA, the City has been expanding abatement, public education, and workforce training, while targeting the highest-risk homes and neighborhoods using local data. These efforts aim to protect children’s health, prevent future lead exposure, and create safer housing for families.

Fair Housing and Fair Lending Practices
The Plan reinforces Milwaukee’s commitment to fair housing and lending through education, enforcement, and systems change. It outlines actions to eliminate discrimination, reduce disparities in home lending and appraisals, and expand credit access in underserved neighborhoods. Outcomes include more equitable access to homeownership, fewer barriers to fair housing choice, and measurable progress toward desegregation and economic inclusion.

Addressing the Impacts of Poverty
To combat the root causes and effects of poverty, Milwaukee is taking a cross-sector, equity-driven approach. The Plan supports strategies that connect residents to family-supporting jobs, quality housing, reliable transportation, and essential services like childcare and healthcare. Expected outcomes include increased financial stability, reduced household vulnerability, and more inclusive economic development that uplifts historically marginalized communities.

Addressing Other Public Service Issues as Needed

The COVID-19 pandemic revealed how severe public health crises can disrupt economies and societies, causing hardship for many Milwaukee residents, especially low-income families. Income loss can increase housing insecurity and the need for public services.  The City will maintain a flexible strategic framework that allows for the timely reassessment and reprioritization of goals, resources, and initiatives. This includes establishing contingency protocols, regularly reviewing community needs through updated data and stakeholder input, and integrating an equity-focused approach to direct support where vulnerabilities are most acute to ensure the City can remain responsive and resilient in meeting evolving needs. The activities in a Consolidated Plan can be leveraged to help address and invest in strategies that support long-term recovery.

The objectives, outcomes and goals for the 2025-2029 Consolidated Plan are based on community input, past activity as described in the City’s annual reports to HUD, and new opportunities emerging to address the need for safe, affordable housing in Milwaukee as described throughout the Market Analysis and Strategic Plan sections.

Evaluation of past performance

As required by HUD, a Consolidated Annual Performance and Evaluation Report (CAPER) is submitted to HUD following the end of each program year which ends on December 31st. The CAPER provides an account of activities, accomplishments, and expenditures that occurred during the previous program year, and progress towards the 5-year Strategic Plan. It includes reporting on the HUD Objectives and Outcomes, performance indicators, and unit benchmarks and production.

The most recent City of Milwaukee CAPER (FY 2024) reported the following outcomes for the 2020-2024 Strategic Plan. The data below covers five (5) years of activity:

• 9,310 housing units (owner and rental) were impacted through construction, rehabilitation, accessibility modifications, lead-based paint abatement, or code enforcement.
• 17,918 people received homeless services (i.e. housing assessments, supportive services, rapid re-housing)
• 8,632 people provided with overnight shelter
• 4,485 people received homebuyer counseling
• 522 persons with HIV/AIDS received housing and supportive services
• 1,970 people received fair housing services
• 1,303 people received employment services
• 298 jobs created/retained
• 53,988 residents received public services in the City’s Neighborhood Strategic Planning (NSP) areas
• 36,409 youth were provided with services and resources

Overall, the City exceeded strategic target goals in the rehabilitation of rental units, homebuyer counseling, fair housing outreach, overnight shelter, and accessibility modifications. Goals related to homeless services, addressing housing code violations, job creation/retention, and youth services were close to strategic targets (between 68-95%).

Highlights from the 2020-2024 5-Year Plan include:

• Continued focus on affordable housing preservation and production (both owner and rental).
• Full implementation of the Coordinated Entry system to assist people at risk for, or experiencing homelessness.
• Increase in permanent supportive housing,  homeless prevention, street outreach services, and rapid re-housing activities  to improve housing stability.
• Provided supportive housing services to individuals living with HIV/AIDS; education, outreach, and referrals  to individuals and families in the 4-county area.
• Participation in the Choice Neighborhoods Initiative, resulting in a significant investment that transformed the Westlawn public housing development.
• Support of fair housing enforcement and outreach, inclusionary housing policies, and eviction prevention activities.
• Development of a Collective Affordable Housing Strategic Plan for the City of Milwaukee, in partnership with the Community Development Alliance (CDA).
• Completion of City plans related to outdoor recreation, climate and equity, reckless driving, HOME ARP, and youth homelessness (see Appendix for titles and links).
• Made significant improvements in the Milwaukee Health Department lead abatement programs to increase intervention and outreach services.
• Worked collaboratively with other public, nonprofit and private sector groups to advance anti-poverty programs and services such as workforce-based training, education and mentoring; skilled trades and high-tech training; transitional jobs for ex-offenders; small business technical assistance; access to homeownership; youth services; violence prevention; and community safety.

These activities were leveraged with funds from HUD Emergency Solutions Grants (ESG), HOME funds, HOPWA funds, State funds, Low Income Housing Tax Credits, U.S. Department of Justice, and private philanthropy.

A copy of the 2024 City of Milwaukee CAPER can be made available upon request.

The next two pages feature highlights from the City’s most recent program year.

Summary of citizen participation process and consultation process

Lead Agency

The agency responsible for oversight and monitoring of these Federal funds and ensuring that these activities are implemented is the Community Development Grants Administration (CDGA). The oversight body for CDGA is the City of Milwaukee Community and Economic Development Committee (CED) of the Milwaukee Common Council. All actions taken by the Committee are ratified by the Milwaukee Common Council and the Mayor. Additional information on the funding and allocation process is described in section PR-05 (Lead and Responsible Agencies).

In accordance with the regulations of the U.S. Department of Housing and Urban Development and in an effort to ensure adequate and accessible citizen participation, the City of Milwaukee adopted a Citizen Participation Plan in 1991. The plan outlines the procedures and processes used by the City to solicit resident input and has since been updated and revised; the document was subsequently submitted and approved by HUD.

Relative to the allocation of funds, the City of Milwaukee places the highest priority on those programs which directly serve low and moderate income persons, defined as those with incomes of 80% or less of Milwaukee’s Area Median Income (AMI). Priority is also given to those projects which serve residents of the Neighborhood Revitalization Strategy Areas (NRSAs), of which at least 70% of all residents are considered low income.

2025-2029 Consolidated Plan Process

CDGA contracts with the Urban Economic Development Association of Wisconsin (UEDA), a local nonprofit organization that specializes in technical assistance, to help develop the Consolidated Plan. In partnership with the City, UEDA collected data, consulted with a broad range of people and groups in the community and economic development sector, and worked in partnership with City of Milwaukee NSP Community Organizers on community engagement activities to draft the plan.

Stakeholders had the opportunity to provide feedback on the needs, opportunities, and strategies for the City’s community and economic development efforts via the community survey, focus groups, ConPlanMKE website, informational sessions, and public comment. Priorities and goals as described in the Needs Assessment, Market Analysis, and Strategic Plan sections were all formed based on broad-based participation of residents, community-based service providers, faith-based institutions, businesses, schools, neighborhood groups, etc.

UEDA’s project team also consulted a number of data sources in the drafting and preparation of the Consolidated Plan, including other City departments (City Development, Health, Neighborhood Services); the Housing Authority of the City of Milwaukee (HACM), Milwaukee Continuum of Care, and local data consultants Data You Can Use. A review of recent research, plans and policy analysis was also conducted by UEDA, which is detailed in the Appendix.

Additional detail on this process is described in sections PR-10 (Consultation) and PR-15 (Citizen Participation).

The City will provide residents a reasonable opportunity to comment on the Plan, and on any amendments to the Plan as defined by the Citizen Participation Plan. It will be posted for public comment at the City of Milwaukee website (www.city.milwaukee.gov/CDGA) and project website (ConPlanMKE.org). The notification will describe the contents and purpose of the plan, and will state that copies of the plan will be available for review on the City’s website, the City’s Legislative Bureau and the offices of CDGA.

CDGA will host a public hearing for the plan, present it to the CED Committee, and UEDA will host an informational webinar (which will be recorded and posted for viewing). Notification will be distributed largely through electronic tools (e-mail via UEDA and E-Notify, the Task Force, social media). Physical copies will also be available upon request. The City will make the Plan(s) public, and upon request in a format accessible to persons with disabilities.

Summary of public comments

The 2025-2029 City of Milwaukee HUD Consolidated Plan was posted for public comment from June 13, 2025 through July 15, 2025. All public comments or views of residents received in writing (mail / e-mail) or at public meetings during the 30-day public review  will be included in the Appendix when the final draft is complete.

Summary of comments or views not accepted and the reasons for not accepting them

All comments on the Consolidated Plan will be accepted and considered in the Plan.

SUMMARY

The Community Development Grants Administration (CDGA) has defined a 5-year Housing and Community Development Strategy for 2025-2029 that focuses on supporting vibrant neighborhoods, ensuring decent housing, and providing economic opportunity for all community residents. This community vision recognizes that housing is a critical part of a viable neighborhood system, which also includes public safety, education, employment opportunities, business development and social service providers. Funding allocations follow a comprehensive approach aligned with the strategies as described in this Consolidated Plan.

PR-05 Lead & Responsible Agencies 24 CFR 91.200(b)

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.

Table 1 – Responsible Agencies

Narrative

The agency responsible for oversight and monitoring of these Federal funds and ensuring that these activities are implemented is the Community Development Grants Administration (CDGA). The oversight body for CDGA is the City of Milwaukee Community and Economic Development Committee (CED) of the Milwaukee Common Council. All actions taken by the Committee are ratified by the Milwaukee Common Council and the Mayor.

CDGA annually solicits and evaluates applications from all interested parties through an open and competitive Request For Proposal (RFP) process. The funding categories for the RFP process receive input from the community at large and are finalized by the CED Committee and Mayor. Recommendations for annual funding are made to the CED Committee for approval with final ratification by the Milwaukee Common Council and Mayor.

Relative to the allocation of funds, the City of Milwaukee places the highest priority on those programs which directly serve low and moderate income persons, defined as those with incomes of 80% or less of Milwaukee’s Area Median Income (AMI). Priority is also given to those projects which serve residents of the Neighborhood Revitalization Strategy Areas (NRSAs), of which at least 70% of all residents are considered low income.

Performance Reports

Further resident involvement is affected by the provision of Accomplishment Reports that identify the annual goals of each program funded and the status of the activities at each quarterly reporting period. This allows concerned residents and other stakeholders the opportunity to determine if program/service providers working in their planning areas are delivering the services as funded.

As required by HUD, a Consolidated Annual Performance and Evaluation Report (CAPER) will be submitted to HUD by March 31st following the end of each program year which ends on December 31st. The CAPER provides an actual account of activities, accomplishments and expenditures, which occurred during the previous program year.

The City will publish a notice in at least two local newspapers regarding the availability of the CAPER, which will begin the 30-day review and comment period. The notice and the draft CAPER will also be made available to the public via the City’s website, City libraries, Legislative Reference Bureau, CDGA offices and to interested persons who request a copy of the report.

Criteria for Substantial Amendments to the Consolidated Plan and Annual Action Plan

The City of Milwaukee shall prepare a substantial amendment to its Consolidated Plan and/or Annual Action Plan(s) plan using the following criteria:

1. Whenever eligible activity categories proposed for funding are not listed in the City’s current Consolidated Plan or Annual Action Plan;
2. Whenever there is a change in the purpose, scope, location or beneficiaries of an activity.

If there are amendments to the Consolidated Plan and/or Annual Action Plan(s), the City of Milwaukee will solicit resident participation, including public hearings, in conformance with its Citizen Participation Plan.

Consolidated Plan Public Contact Information

Community Development Grants Administration

Mario Higgins, Director

City Hall – 600 East Wells Street, Room 606

Milwaukee, Wisconsin

Phone: 414-286-3647

PR-10 Consultation – 91.100, 91.110, 91.200(b), 91.300(b), 91.215(I) and 91.315(I)

Introduction

CDGA contracts with the Urban Economic Development Association of Wisconsin (UEDA), a local nonprofit organization that specializes in technical assistance, to help develop the Consolidated Plan.

In partnership with the City, UEDA collected data, consulted with a broad range of people and groups in the community and economic development sector, and worked in partnership with City of Milwaukee NSP Community Organizers on community engagement activities to draft the plan.

Stakeholders had the opportunity to provide feedback on the needs, opportunities, and strategies for the City’s community and economic development efforts via the community survey, focus groups, ConPlanMKE website, informational sessions, and public comment. Priorities and goals as described in the Needs Assessment, Market Analysis, and Strategic Plan sections were all developed based on broad-based participation of residents, community-based service providers, faith-based institutions, businesses, schools, neighborhood groups, etc.

UEDA’s project team also consulted a number of data sources in the drafting and preparation of the Consolidated Plan, including other City departments (City Development, Health, Neighborhood Services); the Housing Authority of the City of Milwaukee (HACM), Milwaukee Continuum of Care, and local data consultants Data You Can Use. A review of recent research, plans and policy analysis was also conducted by UEDA, which is detailed in the Appendix.

Additional detail on this process is described in PR-15 (Citizen Participation).

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 of Milwaukee conducts numerous activities in coordination with various units of government including Milwaukee County, the State of Wisconsin and various jurisdictions in the metro area. These activities include shelter, workforce mobility, and joint cooperation on land use and transportation planning.

The City of Milwaukee is also active in the following public-private partnerships:

1. Milwaukee Coalition on Housing & Homelessness (a/k/a Milwaukee Continuum of Care)
2. City of Milwaukee Housing Trust Fund (various housing providers)
3. City of Milwaukee BID/NID Council
4. Community Development Alliance (CDA - partner on Collective Affordable Housing Strategic Plan)
5. Employ Milwaukee (workforce investment board)
6. Environmental sustainability through the Environmental Collaboration Office (ECO) department
7. Ethnic & Diverse Business Coalition (EDBC)
8. Financial Empowerment Center (FEC - provides financial counseling services)
9. Greater Milwaukee Committee (MKE United Greater Downtown Action Agenda, Anti-Displacement plan)
10. Lead abatement efforts through Milwaukee Health Department and community partners
11. Local Initiatives Support Corporation (LISC) programs such as Associates in Commercial Real Estate (ACRE), Brew City Match, etc.
12. Milwaukee 7 (regional, cooperative economic development consortium)
13. Milwaukee County (Aging & Disability Resource Center, Behavioral Health Division, Division of Housing, Economic Development)
14. Milwaukee Health Care Partnership
15. Milwaukee Rental Housing Resource Center
16. Reclaiming Our Neighborhoods (R.O.N.) coalition
17. Southeastern Wisconsin Regional Planning Commission (SEWRPC)
18. Take Root Milwaukee (sustainable homeownership initiative)
19. WHEDA (state housing finance agency; responsible for Low Income Housing Tax Credits and homeownership programs)
20. Various neighborhood initiatives led by community-based organizations and philanthropic community

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 mission of the Milwaukee Coalition on Housing & Homelessness (MCHH), also known as the Milwaukee City-County Continuum of Care or CoC, is to organize people and resources to end homelessness in Milwaukee. The City of Milwaukee is the lead support agency to MCHH/CoC, providing staff to various committees and workgroups. The MCHH/CoC is composed of service providers, volunteer committees and networking/task force groups which have various roles and responsibilities to fulfill the mission of this area’s Continuum of Care. MCHH/CoC has established numerous partnerships with local and regional entities with expertise in developing, operating and maintaining permanent supportive housing for homeless persons.

IMPACT serves as the Coordinating Agency for the Milwaukee Coordinated Entry System, and is a member of the MCHH/CoC. The MCHH/CoC continues to work on strengthening partnerships with behavioral and physical health institutions so those being discharged are in contact with the Coordinated Entry System for connection to both permanent and emergency housing.

The resources and strategies employed by MCHH/CoC are described in greater detail in sections MA-30 (Homeless Facilities and Services), MA-35 (Special Needs Facilities and Services), SP-40 (Institutional Delivery System), and SP-60 (Homelessness Strategy).

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.

The MCHH/CoC makes decisions on the allocation of Emergency Shelter Grant (ESG) funds, performance standards and outcomes, and policies and procedures for coordinated entry and the administration of the Homeless Management Information System (HMIS). The MCHH has a committee in place to guide the development and submission of the Milwaukee CoC’s annual Notice of Funding Opportunity (NOFO) application. They also use tools such as a Reallocation Policy and TA Monitoring/Checklist as part of the outcomes and evaluation process.

The State of Wisconsin Department of Administration-Division of Housing contracts with the Institute for Community Alliances (ICA), a nonprofit that functions as the HMIS Lead Agency and/or HMIS administrator in 14 states, including Wisconsin. They are responsible for the maintenance, oversight, security and information collected as part of the HMIS. Services provided to the MCHH include assessments of current reporting needs, training for agency system users, leading the Point-In-Time process, and providing required HUD reports.

Describe Agencies, groups, organizations and others who participated in the process and describe the jurisdictions consultations with housing, social service agencies and other entities.

The City of Milwaukee has used its Federal entitlement funds to creatively respond to needs identified through the planning process. Community-based organizations are essential partners to strengthen the social and economic infrastructure of Milwaukee’s neighborhoods, and they are a cornerstone of the community input process.

The Consolidated Plan was developed through a collaborative process involving community outreach and consultation with representatives from entities representing housing, youth, homelessness, persons with HIV/AIDS, economic development and jobs, persons with special needs and/or disabilities, philanthropy, policy/research, neighborhood groups, City departments, Milwaukee County, residents and others from the private sector.

UEDA worked with the City in a number of ways to engage various stakeholders in the Consolidated Plan process. This included:

1. Working closely with Neighborhood Strategic Planning (NSP) organizations to host community meetings, distribute and share the community survey, and gain resident feedback on needs and priorities for the Consolidated Plan. A list of the NSP agencies is included later in this section.

NSP agencies facilitate residents/stakeholder involvement in community improvement efforts such as crime prevention activities, neighborhood planning, door-to-door contacts that connect residents to resources, outreach/networking events, neighborhood cleanups, and other initiatives as specified by CDGA. Additionally, in coordination with the Milwaukee Police Department, NSP agencies establish and maintain block clubs/neighborhood watches/neighborhood stakeholder groups.

Additionally, the planning and implementation process is an ongoing, funded activity conducted by each of the NSP coordinating agencies. Monthly reports are submitted to CDGA detailing resident and stakeholder planning and action on issues relating to identified long term outcomes. In addition NSP agencies assist the City with engaging residents around the annual funding allocation process (FAP).

There are 19 Neighborhood Strategic Planning (NSP) areas in the City of Milwaukee, 17 of which cover the City’s two Neighborhood Revitalization Strategy Areas (NRSAs). NRSA 1 covers Milwaukee’s North and West central city neighborhoods and includes 14 NSP cluster areas. NRSA 2 covers Milwaukee’s near South Side neighborhoods and includes 3 NSP cluster areas. There are two NSP cluster areas outside of the city of Milwaukee’s NRSAs.

2. Consultation with a wide range of data sources, including other City departments (City Development, Health, Neighborhood Services); the Housing Authority of the City of Milwaukee (HACM), Milwaukee Coalition on Housing & Homelessness (aka CoC), and local data consultants Data You Can Use. A review of recent research, plans and policy analysis was also conducted by UEDA, which is detailed in the Appendix.
3. Hosting a series of focus groups on specific topics, to allow for more targeted feedback and discussion. These sessions were open to the public and held both in person and virtually. Attendees included both sector professionals and interested residents. Focus group topics included General Housing, Housing Development, Youth Services, Employment & Economic Development, Small Business/Commercial Corridors. We also held small group discussions with organizations that serve specific special needs groups.
4. Attending 17+ community-wide and neighborhood-based events in the Summer-Fall 2024, to engage residents by sharing the community survey (paper and electronic) and inviting them to public meetings and focus groups to provide their feedback. These events included citywide/neighborhood festivals (Juneteenth, Bronzeville Cultural & Arts, Silver City), neighborhood resource fairs or community safety events, faith-based/Sunday gatherings, and resident meetings.

Table 2 – Agencies, groups, organizations who participated

Identify any Agency Types not consulted and provide rationale for not consulting.

Not applicable. An open resident/stakeholder process was conducted involving a broad sector of the community, engaging a diverse set of stakeholders. In addition, input was received through a community survey, focus groups, neighborhood meetings, and small group discussions with special needs service providers.

Other local/regional/state/federal planning efforts considered when preparing the Plan

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))

Narrative (optional)

The City of Milwaukee recognizes that collaborative approaches lead to stronger cooperation on housing, economic development, and quality of life issues. The City works with numerous institutions, organizations, public officials in State, County, and local jurisdictions on coordinated activities to further the goals in the Consolidated Plan. These partnerships include:

City of Milwaukee Departments: Affordable housing projects; economic development; summer youth employment program; healthcare programs, lead abatement, housing code enforcement, neighborhood improvement initiatives

City of Milwaukee Housing Trust Fund: Affordable housing projects

City of West Allis (local jurisdiction): Continuum of Care

Employ Milwaukee: Milwaukee’s area workforce investment board; Employment initiatives; poverty reduction programs; workforce training initiatives

Housing Authority of the City of Milwaukee: Affordable housing; public housing; resident training & employment initiatives

Milwaukee Area Technical College (MATC): Major higher education institution in the City of Milwaukee; serving residents of the CDBG target area; collaborate with CDBG-funded agencies on educational pursuits; employment & training initiatives

Milwaukee County government: Continuum of Care; affordable housing projects

State of Wisconsin government: Department of Workforce Development (training and employment); Department of Children & Families (family services, employment); Department of Corrections (workforce training and employment for ex-offenders); Department of Agriculture, Trade and Consumer Protection (consumer issues);

Wisconsin Economic Development Corporation (WEDC): Grants, financing, and technical assistance for supporting small businesses, economic development activities.

Wisconsin Housing and Economic Development Authority (WHEDA): Affordable housing projects (use of Low Income Housing Tax Credits, National Housing Trust Fund dollars, etc.)

PR-15 Citizen Participation – 91.105, 91.115, 91.200(c) and 91.300(c)

Summary of citizen participation process/Efforts made to broaden citizen participation. Summarize citizen participation process and how it impacted goal-setting.

The City of Milwaukee adopted a Citizen Participation Plan in 199 in accordance with the regulations of the U.S. Department of Housing and Urban Development and to ensure adequate and accessible resident participation. The plan outlines the procedures and processes used by the City to solicit resident input and has since been updated and revised; the document was subsequently submitted and approved by HUD.

In the past few years the City has adopted the use of new tools to more directly engage the public in its planning and outreach efforts such as Engage MKE. This technology-based community engagement hub houses public information related to citywide and neighborhood-based planning efforts (engage.milwaukee.gov/). One MKE is an innovative partnership between the City of Milwaukee and local community partners to deepen relationships with residents, address their needs, and cultivate a culture of proactive civic engagement throughout the city (facebook.com/weareonemke/).  

The City’s Citizen Participation Plan requires public hearings to obtain resident input on funding proposals and inquiries at all stages of the community development program, including the Consolidated Plan, Annual Funding Allocation Plan (FAP), a review of proposed activities and program performance. The FAP is reviewed annually through public hearings and amended where appropriate as needs within the community change; and is the basis for the RFP process. Broad-based resident and community input by stakeholders is strongly encouraged and solicited.

2025-2029 Consolidated Plan and Citizen Participation

The UEDA project team utilized a variety of engagement tools to reach residents and invite them to participate in the Consolidated Plan process. This included traditional outreach methods such as community meetings, events, survey tools, and small group discussion, but also making use of technology tools and electronic communication such as organizational databases, social media, the City’s E-Notify system, and maintaining a public website specifically for this project. Resident input was solicited in the following ways:

• A public website (ConPlanMKE.org) where anyone could access information about the Plan and process, and make a request for information;
• Distribution of a community survey (both paper/in-person and electronic)
• Hosting focus groups and community meetings in key Neighborhood Strategic Planning (NSP) areas
• Attendance at various small group and association meetings
• Outreach/engagement at a number of citywide and neighborhood-based events in 2024

The community survey tool was developed in partnership with the NSP Community Organizers to help identify and prioritize community needs and provide a way for residents to share their feedback. Responses were compiled to assist CDGA in lifting up key needs, and connecting them to strategic plan goals.  

Public meetings/focus groups were held at various times and locations with community partners and offered accessibility modifications when requested. They were promoted electronically via CDGA and UEDA networks, on social media, by tabling at community/neighborhood events, flyering in partner neighborhoods, etc.

The website, community survey, and promotion was all offered in English and Spanish, and connected to online translation tools for other languages. A Community Outreach toolkit was provided to NSP Community Organizers with a variety of materials, electronic images, and verbiage in English and Spanish for them to use to promote the survey. Samples of the survey, community survey results, focus group summary, etc. can be found in the Appendix. All promotions included language that the City will accommodate the needs of people with disabilities or non-English speaking persons.

Finally, many funded agencies have attained status as a Community-Based Development Organization (CBDO). The CBDO designation mandates that Boards of Directors of these organizations consist of not only residents of the target area, but area business owners and other stakeholders, such as schools and churches. That directive broadens community input and aligns with CDGA’s philosophy of increasing resident participation in developing neighborhood-based strategies.

Access to Information for Limited & Non-English Speaking Persons

To ensure access to information for all residents, current CDGA staff includes three bilingual persons (English, Spanish, Southeast Asian) who make themselves available in-house or at public hearings where some large segments of the population speak only Spanish. Southside Organizing Center, one of the NSP agencies, offers translation services for public meetings. With a large Asian-American population, CDGA has access to Hmong-Laotian interpreters through its linkage with the Hmong American Friendship Association (HAFA) and current staff. The Consolidated Plan website and community survey is available in multiple languages through the use of online translation technology.

Public Notification on the 2025-2029 Consolidated Plan

In accordance with the regulations of the U.S. Department of Housing and Urban Development, the City of Milwaukee prepared a draft of the Plan which will be posted for public comment at the City of Milwaukee website (www.city.milwaukee.gov/CDGA) and project website (ConPlanMKE.org) from June 13 - July 15, 2025.  

The notice and the draft plan will also be made available to the public via the City libraries, Legislative Reference Bureau, CDGA offices and to interested persons who request a copy of the report. Additionally, CDGA notified all funded community agencies, NRSA NSP coordinating agencies, elected officials and other interested persons through email and E-Notify (a local government resident electronic notification system).

The public can provide feedback via an electronic form that will be posted on the ConPlan MKE and CDGA websites, shared at public meetings and electronically with UEDA and CDGA networks, in writing, or by phone to the CDGA office. UEDA will also host an informational webinar that is open to the public; it will be recorded and posted for future viewing at the ConPlan MKE website.

The Community and Economic Development (CED) Committee is the official oversight body for Federal grant funds and will hear a presentation of the plan during the public comment period. Members of the CED Committee receive regular updates about the Consolidated Plan process both at CED committee meetings and via communication from CDGA and UEDA.

CDGA advertised public meetings through newspapers, mailings, telephone calls, City website,  and word-of-mouth. The Common Council City Clerk’s Office advertises and posts public notices for public meetings. The City includes in all notices that it will accommodate the needs of people with disabilities through sign language interpreters or other auxiliary aids.

Citizen Complaints

CDGA has an internal system for responding to resident complaints and concerns in a timely manner (generally, within 15 working days where practicable). Program Officers are available to meet with clients that present themselves at the CDGA offices. A written report is formulated when the issues are of a substantive nature and resolution is not achieved during the initial meeting. Staff will follow-up on substantive issues and provide written responses to the complainant and if necessary, provide copies of these responses to the affected organizations. Staff will track the ensuing process and analyze feedback from the parties concerned to determine viable resolution.

Citizen Participation Outreach

Table 4 – Citizen Participation Outreach

From April 2024 - March 2025 the UEDA project team facilitated and/or participated in 35+ events, focus groups or meetings, receiving input from and/or engaging 312 people. We talked with 400+ people at community events and received nearly 1,080 survey responses (in English & Spanish).

Outreach covered the CDBG Target Area well; the top 10 zip codes for responses were in this order: 53206, 53216, 53208, 53209, 53210, 53218, 53212, 53215, 53205, and 53204.

The community survey asked people to weigh in on two main areas of concern: housing and public services. Below is a ranking of responses, indicating priority areas of need.

What housing concerns are most important to you? (1,037 responses)

1. 72% - Address homelessness
2. 67% - Maintain & increase affordable rental housing
3. 66% - Increase homeownership
4. 53% - Prevent evictions & foreclosure
5. 52% - Provide housing for special needs groups (i.e. Veterans, persons with HIV/AIDS, people with disabilities)
6. 46% - Develop new housing
7. 45% - Ensure quality housing (address conditions, reduce lead exposure)
8. 2% - Maintain and increase affordable rental housing

What public service issues most affect your quality of life? (1,044 responses)

1. 71% - Address crime & safety
2. 61% - Increase youth services
3. 55% - Maintain & improve streets & sidewalks
4. 48% - Provide training & employment opportunities
5. 47% - Increase access to healthy food
6. 40% - Maintain & improve recreational spaces
7. 36% - Support local businesses
8. 32% - Address environmental concerns
9. 28% - Improve transportation options
10. 18% - Encourage commercial development

The survey also asked people “What is great about our city of Milwaukee?” and “What needs to change about our city of Milwaukee?” – a summary of themes in those responses is included on the next page.

Additional information on the survey results (such as demographics and themes) can be found in the Appendix.

NA-05 Overview

Needs Assessment Overview

Milwaukee’s demographic, housing, income, and employment trends reflect significant challenges and opportunities for the city's future. The city's population has stabilized in recent years, standing at approximately 577,000 residents as of 2024. However, demographic shifts continue, with a decline in White non-Hispanic residents and an increase in Latino/Hispanic populations, contributing to ongoing diversification​.

Looking at the city’s population and income demographics is helpful to add context to the overall housing system that Milwaukee residents exist in. The city’s population and household numbers are generally flat. Even though median income has increased by a significant percentage over fifteen years, the poverty rate has not decreased in a similar way. The number of people and families that are experiencing poverty in the city of Milwaukee remains somewhat persistent, even as income increases.

NA-10 Table 5 + Historical and recent data sources

Data Sources: HUD CPD via NA-10 & MA-10, Milwaukee Department of City Development plans & Affordability Reports, Milwaukee Journal Sentinel articles. See Bibliography for list and links.

These indicators underscore the city's ongoing challenges in housing stability, economic opportunity, and employment opportunities. Addressing them will require coordinated policy actions, investment in affordable housing, expansion of workforce development initiatives​, and support of public services.

Housing affordability remains a pressing concern. More than 97,800 households—over 40% of the city—are housing cost burdened, meaning they spend more than 30% of their income on housing. Of these, 33,800 households are severely cost burdened, spending over 50% of their income on housing costs​. The median rent has continued to rise, reaching $982 per month in 2022, further squeezing low-income renters as incomes fail to keep pace​. Homeownership has declined by 9% since 2010, with 59% of Milwaukee households now renting, and vacancy rates are low at 6.2%, intensifying demand for affordable units​.

And while the number of overall housing units has increased over time, Milwaukee continues to experience a mismatch of housing units available that are affordable to meet the needs of low-income households. Market Analysis sections 15 (Housing Cost) and 40 (Barriers to Affordability) include additional data on this dynamic.

As Milwaukee plans for its future, addressing housing affordability, racial economic disparities, and job accessibility remains critical. Milwaukee’s Comprehensive Plan: Housing Element projects the need for 35,000 additional housing units by 2040 to meet demand, with a focus on smaller units to accommodate shrinking household sizes​. Investments in multimodal transportation and walkable neighborhoods are also needed, as 38,500 households (17%) do not own a vehicle, reinforcing the need for transit-oriented development​.

As more residents experience housing insecurity, the need for homelessness prevention services increases, particularly for very- and extremely low-income households. Financial/rent assistance or income supports, targeted partnership programs for employment and medical care; and supportive services such as case management, protective payee services, AODA programs, and mental health care are critical.

Groups that need specialized housing and supportive services include seniors/older adults, people with disabilities, persons with HIV/AIDs, youth aging out of foster care, immigrants/refugees, veterans, unaccompanied youth, victims of trafficking or domestic violence, and formerly incarcerated or justice-impacted individuals.

Economic disparities persist across racial and income groups. The median household income in Milwaukee is currently $51,888, significantly lower than the surrounding metropolitan area, leading to higher poverty rates within the city​. About 55,269 renter households earn less than $33,500 per year. According to 2022 rental supply data, there are only about 38,500 housing units affordable to them, leaving a deficit of nearly 17,000 units​. Racial disparities in income remain stark; historically, non-white workers have earned $5 less per hour than white workers, with homeownership gaps further exacerbating wealth inequalities​.

Job market trends in Milwaukee highlight both opportunities and structural challenges. The city continues to experience a high demand for workers in construction, skilled trades, and green jobs, with programs such as Employ Milwaukee and the Green Jobs Accelerator aiming to connect underrepresented workers with employment opportunities​. However, Milwaukee still faces higher unemployment rates than the metro area, reflecting the need for expanded workforce development initiatives​ and regional transportation efforts that connect residents to jobs.

Support of Milwaukee’s commercial corridors, along with economic development efforts, technical assistance, and financial investment in businesses can lead to neighborhood-based job creation outcomes. Programs that foster entrepreneurship and small business growth, particularly for young people, and homeownership help create opportunities for residents to build wealth.

Public services needs include youth programs (with a focus on job training and work experiences), employment services, street and transportation enhancements, crime prevention and neighborhood safety, neighborhood improvement projects, community organizing, small business support, and initiatives to address environmental issues like lead-based hazards, energy conservation, and resilience to severe weather events.

Public Facilities and Improvements needs include street, sidewalk, and alley repairs and enhancements, infrastructure for new residential, commercial, and industrial development, brownfield remediation, recreational facilities for youth, families, and seniors, and resources to maintain/improve parks and public spaces.

Additional community needs may arise, as demonstrated with COVID-19, significant economic and social disruptions can occur as a result of an unexpected, serious public health pandemic. These disruptions can cause extreme hardship for a wide range of City of Milwaukee residents, particularly for low-income families. More households can be at risk of becoming housing insecure due to a loss of income, and likewise there will be increased need for public services. 

The City would maintain a flexible strategic framework that allows for the timely reassessment and reprioritization of goals, resources, and initiatives. This includes establishing contingency protocols, regularly reviewing community needs through updated data and stakeholder input. The CIty would also encourage and communicate efforts being made through coordinated collaboration between, for example, the Public Health Department, Housing Authority and emergency management agencies to ensure a unified response system can be shared to our community partners. The City would also prioritize funding for populations disproportionately affected during crises to ensure we are responding according to the needs of the community. The goal would be for the City to remain responsive in meeting evolving needs and leverage funded activities to help address and invest in strategies that support long-term recovery.

NA-10 Housing Needs Assessment - 24 CFR 91.205 (a,b,c)

Below is data provided by HUD’s Integrated Disbursement and Information System (IDIS) as part of the Consolidated Plan development. Note these figures are the most recent data provided by IDIS.

Summary of Housing Needs

Table 5 - Housing Needs Assessment Demographics

Data Source: 2005-2009 ACS (Base Year), 2016-2020 ACS (Most Recent Year)

Number of Households Table

Table 6 - Total Households Table

Data Source: 2016-2020 CHAS

Housing Needs Summary Tables

Below is data provided by HUD’s Integrated Disbursement and Information System (IDIS) as part of the Consolidated Plan development. Note these figures are the most recent data provided by IDIS.

1. Housing Problems (Households with one of the listed needs)

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)

Table 8 – Housing Problems 2

Data Source: 2016-2020 CHAS

3. Cost Burden > 30%

Table 9 – Cost Burden > 30%

Data Source: 2016-2020 CHAS

4. Cost Burden > 50%

Table 10 – Cost Burden > 50%

Data Source: 2016-2020 CHAS

5. Crowding (More than one person per room)

Table 11 – Crowding Information – Table 1 of 2

Data Source: 2016-2020 CHAS

Table 12 – Crowding Information – Table 2 of 2

Data Source: Not provided by HUD CPD. Data provided by local partner Data You Can Use, calculating from the 2023 ACS 5 year PUMS estimate.

Describe the number and type of single person households in need of housing assistance.

According to the data provided in these tables, just over 6,000 single family households are experiencing overcrowding; the majority (80%) are renters and 37% are at 0-30% Area Median Income (AMI). Additionally, of the households that experience one or more severe housing problems, 62% are renters at 0-30% AMI, which indicates some overlap with single person households.

The City’s recent update of Milwaukee’s Comprehensive Plan: Housing Element notes that almost 19% of households are seniors (or age 65+), and that 1-person households are growing, including many older adults. Older adults are particularly vulnerable to housing insecurity with a greater number experiencing a housing cost burden of 50% or more. Table 10 shows that nearly one-third (28%) of Renters and 42% of Owners at 50% of Area Median Income (AMI) experience this high of a housing cost burden and are older adults (i.e. elderly).

Feedback from Milwaukee’s Coalition on Housing & Homelessness (MCHH), or Continuum of Care service providers, is helpful in understanding this dynamic. The Milwaukee CoC Annual Performance Report (2023-2024) indicated that 84% of households served did not have children. Single men continue to make up a significant portion of the homeless population (at 57%), with men of color disproportionately impacted. Incidents of domestic violence are a notable, contributing factor in terms of incidents of homelessness for women, with 14% of people receiving services reporting that they have experienced domestic violence.

Many single-person households overlap with groups in the non-homeless special needs section, highlighting the need for targeted, integrated housing services. These issues are discussed in greater detail in sections NA-40 (Homeless Needs Assessment) and NA-45 (Non-Homeless Special Needs Assessment) of this plan.

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.

The most recent data from Health Compass Milwaukee shows that about 13.1% of the City of Milwaukee's population has a disability. Data You Can Use and Bank On Greater Milwaukee’s Financial Inclusion Map shows that  parts of the City of Milwaukee (near North and near South sides) have much higher percentages of people with a disability, ranging from 15.25% to over 20%. People with disabilities experience a higher rate of severe housing cost burden and there is a shortage of accessible units both in the private market and in public housing.

For context, a 2023 report by Asset Funders Network (In partnership with the National Disability Institute), Advancing Economic Justice for People with Disabilities noted that 34% of working-age adults with disabilities in the United States report housing cost burden, compared to 22% of working-age adults without disabilities. Additionally, the report shared that about 5% of the total population also reports difficulty getting around in their homes, which indicates the need for accessible housing and/or programs to address housing conditions.

In Milwaukee, the majority of the people that are extremely housing insecure - i.e. receiving homeless prevention or services - report having a disability or experiencing a disabling condition. The Milwaukee CoC FY24 ESG CAPER reports that 19% of people (2,745) receiving these services reported having a developmental or physical disability. About 52% of people (7,380) shared that they are experiencing a disabling condition such as a mental health disorder, substance abuse disorder, or chronic health condition.

The ESG CAPER also shows that 1,565 or 14% of people receiving services had a history of domestic violence, sexual assault, dating violence, stalking, or human trafficking. Of these, 312 households (20%) required emergency shelter, while others accessed transitional housing, safe havens, or rapid rehousing programs​.

From 2018-2021, the Milwaukee Homicide Review Commission reported a 65% increase in domestic violence-related homicides, underscoring the urgent need for comprehensive intervention strategies​. Additionally, nonfatal shootings related to domestic violence increased by 53% during this time period, emphasizing the need for housing and safety planning for survivors​. The 2022 Domestic Violence Roundtable Presentation highlighted geographic patterns in Milwaukee, noting that high-density areas for domestic violence-related homicides and shootings include Sherman Park, Harambee, Arlington Heights, and Borchert Field​.

While survivors require a range of supportive services, including legal assistance and crisis intervention, financial and rent assistance remains one of the most pressing needs. The City of Milwaukee’s Tenant-Based Rent Assistance (TBRA) program, funded through HOME and ESG, provides critical support to survivors by covering rent payments and relocation costs, but demand continues to outpace available resources​.

In our focus group session centered on the housing needs of survivors of domestic violence and human trafficking, participants emphasized the essential role of grassroots and street-based organizations in addressing the complex housing needs of survivors of domestic violence and human trafficking. They highlighted the importance of elevating the voices of those with lived experience and called for deeper integration of trauma-informed mental health support, dignified employment, and stable housing. Despite these opportunities, the primary challenge cited was the severe lack of funding—both locally and federally—to adequately support the urgent and comprehensive services required. Participants stressed the need for the City to prioritize long-term housing programs for survivors and to significantly expand the scope and accessibility of supportive services for those directly impacted by DV and trafficking.

The housing and service needs for these individuals are discussed further in sections NA-40 and NA-45.

What are the most common housing problems?

The most common housing problems in Milwaukee include affordability challenges, aging housing stock, instability due to increasing housing costs that outpace income growth, lower inventory, a competitive rental market, and the continued impacts of evictions and discrimination.

Housing Affordability. Milwaukee faces a significant shortage of affordable rental units, particularly for very low-income households. The majority of renter households earning less than $35,000 per year in income are housing cost burdened, meaning they spend more than 30% of their income on housing. Additionally, many neighborhoods within the central part of the city have at least 50% of  households experiencing housing cost burden. There are far too few rental units that are priced appropriately for these households.

Additionally, homeownership remains out of reach for many due to rising housing costs such as increased interest rates, lower inventory and higher prices, limited financial assistance, and difficulties accessing credit​. The city has seen a net decrease in owner-occupied households of 7,000+ since 2010, which has put further pressure on the rental market.

Overcrowding. Renters that are 0-50% of Area Median Income (AMI) of all household types make up the majority of people that experience overcrowding (53%, or 3,858 people). As housing cost burden increases in a competitive rental market, households are more likely to seek housing options with family or friends, contributing to overcrowded units.

Aging Housing Stock and Maintenance Issues. Over 42% of Milwaukee’s housing stock was built before 1940, with many properties requiring significant repairs. Homeowners and landlords often struggle with maintenance costs, leading to deteriorating conditions, higher energy costs, and lead hazards​. In 2024, the Reclaiming Our Neighborhoods (RON) Coalition surveyed over 35,000 properties in 10 Milwaukee neighborhoods, finding that almost a quarter (22.3%) of residential and mixed-use properties needed at least one major repair. Many older homes also lack modern energy efficiency upgrades, increasing utility expenses and making them less sustainable​.

Evictions and Housing Instability. Milwaukee has a high eviction rate, disproportionately affecting Black and Latino renters. The extensive use of evictions, along with the loss of tenant protections, has made it harder for many low-income residents to maintain stable housing​. Housing instability is further exacerbated by a lack of affordable alternatives, forcing many families to move frequently or live in overcrowded conditions​.

Housing Discrimination and Racial Disparities. Nearly 68% of respondents in a citywide survey stated that housing discrimination is common. Barriers include racial disparities in homeownership, mortgage lending, and insurance practices—making it difficult for people of color to access stable, affordable housing​. Milwaukee’s history of redlining and systemic inequities continues to impact wealth-building opportunities for communities of color​.

Lack of Regional Affordable Housing Strategies. The Milwaukee metropolitan area lacks a coordinated regional strategy to develop affordable housing. Restrictive zoning laws and community opposition to affordable housing developments (often referred to as NIMBYism) have further exacerbated the problem​. Without a regional approach, affordable housing remains concentrated in certain neighborhoods, reinforcing economic and racial segregation​.

Community Feedback

Respondents to the 2024 Consolidated Plan Community Survey (1,162 responses) shared which housing concerns were most important, with addressing homelessness, maintaining/increasing affordable rental housing, and increasing homeownership being the top concerns.

Additionally, as part of the community engagement process, UEDA and the City hosted focus groups for people to share their feedback and input on housing, economic development, and public service topics.

Two focus groups—one focused on housing development and the other on general housing concerns—provided overlapping yet distinct perspectives on the state of housing in Milwaukee. Their feedback describes a city facing deep-rooted challenges but also brimming with opportunity and local expertise.

The general housing group responded to the opening question, “When it comes to housing in Milwaukee, what is the first thing that comes to mind?” with a range of emotional and systemic reflections. Words like “limited,” “inaccessible,” and “not enough” appeared repeatedly, underscoring the acute shortage of housing—especially affordable and livable housing—for many Milwaukee residents. Homes were described as aging, in poor condition, and often out of reach for families. Yet, there was also recognition of the essential role that stable housing plays in promoting health, education, and long-term stability. The tone of these initial reflections conveyed both frustration and urgency, as well as a sense of injustice—highlighting disparities, the challenge of eviction, and the human right to housing.

Challenges, however, were at the forefront of both conversations. Both groups highlighted the complexities and inefficiencies of working with City processes, particularly when it comes to accessing housing resources, permits, and financial support. There is a widespread perception that existing policies and systems are difficult to navigate, under-resourced, and not designed to scale equitable development.

Concerns about the aging housing stock, lack of grants for home repair, and the growing presence of investor-owned vacant properties were shared across both groups. Participants described a housing market distorted by speculation, with many livable homes sitting empty while families struggle to find safe and affordable housing options.

Each group also brought forward distinct challenges. The development group emphasized the structural barriers faced by nonprofit developers, including lack of access to capital and restrictive acquisition policies. They noted that nonprofit CDCs are often held to the same standards as for-profit developers, despite differing missions and financial constraints.

Meanwhile, the general housing group spoke to issues that affect renters and homeowners alike, including poor housing conditions, predatory landlord behavior, limited accessibility for people with disabilities, and a lack of transparency around tenant rights. Both groups voiced concern about gentrification and displacement, particularly in neighborhoods seeing increased development interest.

Are any populations/household types more affected than others by these problems?

Low-Income Households Face the Most Severe Housing Problems

1. Households earning 0-30% of the Area Median Income (AMI) experience the highest rates of housing problems. Among renters, 32,555 households in this income bracket have at least one severe housing issue, compared to only 545 households earning 80-100% AMI​.
2. Among homeowners, 6,805 households earning 0-30% AMI have severe housing problems, while only 650 earning 80-100% AMI experience the same​.
3. The most common problem for this group is housing cost burden, with 28,895 renter households and 6,160 owner households spending more than 50% of their income on housing​.

Renters Are More Affected Than Homeowners

1. Overall, renters experience housing problems at a significantly higher rate than homeowners. For instance, 40,715 renter households have at least one severe housing problem, compared to 11,500 homeowners​.
2. Renters are also more likely to face overcrowding and substandard housing conditions, with 4,255 renter households living in overcrowded conditions (1.01-1.5 people per room) compared to 1,250 homeowners​.

Families with Children Face Housing Instability

1. Large family households (5+ people) experience higher rates of overcrowding and cost burden. Among renters, 3,540 large families in the 0-30% AMI range are cost-burdened (spending over 30% of income on housing)​.
2. Households with children under age 6 also face high housing burdens, with 11,050 in the 0-30% AMI range and 8,800 in the 30-50% AMI range​.

Senior Households Struggle with Housing Costs

1. Older adults (62+ years) are highly affected by housing cost burdens. 10,755 senior renter households and 8,330 senior homeowners are cost-burdened, with many experiencing a fixed income squeeze​.
2. The problem worsens for those 75 and older, as 4,770 renter households in this age group fall within the 0-30% AMI category, making it difficult to afford necessary home repairs and maintenance​.

Black and Latino Households Disproportionately Impacted

1. Milwaukee’s eviction and foreclosure rates disproportionately affect Black and Latino renters, contributing to greater housing instability​.
2. The legacy of racial disparities in homeownership, mortgage lending, and insurance practices continue to make it more difficult for people of color to access stable and affordable housing​.

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

Low-income individuals and families with children in Milwaukee, particularly those earning below 30% of the Area Median Income (AMI), face severe housing instability and are often at imminent risk of losing their housing. The primary risk factors include high housing cost burdens, lack of support networks, persistent eviction rates, and inadequate access to affordable units​.

Characteristics and Needs of At-Risk Low-Income Families

1. Severe Cost Burden: Approximately 78% of households earning less than $20,000 per year spend 50% or more of their income on housing. Among renter households earning between $20,000 and $34,999 per year, 85% are cost-burdened, with 25% spending more than half their income on housing​.
2. High Risk of Eviction and Homelessness: In 2024, there were approximately 12,600 eviction notices filed in Milwaukee, which is bacak to pre-pandemic levels. Evictions disproportionately affect Black and Latino households in Milwaukee, occur most in central and northside neighborhoods, and/or where poverty rates are also highest​.
3. Unstable Housing Conditions: Many families live in overcrowded or substandard housing, frequently moving between temporary living situations with family or friends. These families often do not meet HUD's definitions of homelessness, making it harder to access services​.
4. Lack of Affordable Housing Units: There is a deficit of nearly 19,500 affordable rental units for the city’s 63,100 very low-income households (earning under $33,500)​.

Needs of Formerly Homeless Families Nearing the End of Rapid Re-Housing Assistance

1. Risk of Returning to Homelessness: Without ongoing financial assistance and case management, many families struggle to maintain housing. Employment insecurity, lack of child care, and lack of access to health care contribute to this risk​.
2. Need for Long-Term Stability: Rapid Re-Housing programs help bridge families into stable housing, but long-term solutions such as Permanent Supportive Housing (PSH), rental subsidies, and workforce development programs are needed to prevent repeat homelessness​. While Milwaukee continues to increase the number of PSH units, it has not kept pace with the need.
3. Limited Affordable Housing Options: Many families exiting Rapid Re-Housing still face challenges finding units due to the limited availability of affordable rental units​, credit barriers, and discrimination by landlords in terms of renting to families and/or accepting rental vouchers.

Milwaukee’s extremely low-income families are at high risk of eviction and homelessness due to cost burdens, lack of stable housing, and limited affordable options. Those receiving Rapid Re-Housing assistance require ongoing support to transition into long-term stability, underscoring the need for expanded affordable housing, eviction prevention programs, and supportive services.

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 City of Milwaukee follows the Emergency Shelter Grant (ESG) regulation on the definition of "at-risk population":

An individual or family only has to meet one of the 7 (A-G) and meets the requirements laid out in (i), (ii), (iii). § 576.2 Definitions.

At risk of homelessness means: (1) An individual or family who:

1. Has an annual income below 30 percent of median family income for the area (AMI), as determined by HUD;
2. Does not have sufficient resources or support networks, e.g., family, friends, faith-based or other social networks, immediately available to prevent them from moving to an emergency shelter or another place described in paragraph (1) of the “homeless” definition in this section; and
3. Meets one of the following conditions:

1. Has moved because of economic reasons two or more times during the 60 days immediately preceding the application for homelessness prevention assistance;
2. Is living in the home of another because of economic hardship;
3. Has been notified in writing that their right to occupy their current housing or living situation will be terminated within 21 days after the date of application for assistance;
4. Lives in a hotel or motel and the cost of the hotel or motel stay is not paid by charitable organizations or by Federal, State, or local government programs for low-income individuals;
5. Lives in a single-room occupancy or efficiency apartment unit in which there reside more than two persons or lives in a larger housing unit in which there reside more than 1.5 persons reside per room, as defined by the U.S. Census Bureau;
6. Is exiting a publicly funded institution, or system of care (such as a health-care facility, a mental health facility, foster care or other youth facility, or correction program or institution); or Otherwise lives in housing that has characteristics associated with instability and an increased risk of homelessness, as identified in the recipient's approved consolidated plan;

4. A child or youth who does not qualify as “homeless” under this section, but qualifies as “homeless” under section 387(3) of the Runaway and Homeless Youth Act (42 U.S.C. 5732a(3)), section 637(11) of the Head Start Act (42 U.S.C. 9832(11)), section 41403(6) of the Violence Against Women Act of 1994 (42 U.S.C. 14043e-2(6)), section 330(h)(5)(A) of the Public Health Service Act (42 U.S.C. 254b(h)(5)(A)), section 3(m) of the Food and Nutrition Act of 2008 (7 U.S.C. 2012(m)), or section 17(b)(15) of the Child Nutrition Act of 1966 (42 U.S.C. 1786(b)(15)); or
5. A child or youth who does not qualify as “homeless” under this section, but qualifies as “homeless” under section 725(2) of the McKinney-Vento Homeless Assistance Act (42 U.S.C. 11434a(2)), and the parent(s) or guardian(s) of that child or youth if living with her or him.

Specify particular housing characteristics that have been linked with instability and an increased risk of homelessness.

The following housing characteristics have been linked to instability and an increased risk of homelessness in Milwaukee.

Severe Housing Cost Burden. A major factor contributing to housing instability is the high cost of housing relative to income. In Milwaukee, about 78% of households earning less than $20,000 per year are severely cost-burdened, meaning they spend over 50% of their income on housing​. For renter households earning between $20,000 and $34,999, 83% are cost-burdened, and 25% are severely cost-burdened, leaving little room for other basic needs​.

Aging and Substandard Housing. Over 42% of Milwaukee’s housing stock was built before 1940, and much of it is in poor condition, especially in neighborhoods with high concentrations of low-income residents. Many of these homes require extensive repairs, making them unaffordable for lower-income households and contributing to displacement risks​.

Evictions and Loss of Tenant Protections. Milwaukee has one of the highest eviction rates in the country, with a persistent average of 12,000 eviction filings per year. The loss of tenant protections, combined with rising rents and landlord screening practices, has increased instability for many renters. Most eviction filings are concentrated in northside and central neighborhoods with high Black and Latino populations, exacerbating racial housing disparities​.

Overcrowding and Lack of Affordable Units. There is a shortage of nearly 19,500 affordable rental units for the city’s 63,100 very low-income households (earning less than $33,500 per year). This forces many families into overcrowded living situations or substandard housing, both of which increase the risk of homelessness​.

Barriers to Housing for Vulnerable Populations. Formerly incarcerated individuals, people with poor credit, and those with past evictions face additional barriers to securing stable housing. Many landlords impose excessive screening criteria, requiring high security deposits or rejecting tenants based on rental history​.

People fleeing domestic violence and LGBTQ+ individuals also experience high risks of homelessness due to discrimination and lack of safe housing options​.

Discussion

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

The following charts contain data provided by HUD that shows how housing problems affect people in the City of Milwaukee by income level and race or Ethnicity. The data is provided by HUD’s Integrated Disbursement and Information System (IDIS) as part of the Consolidated Plan development. Note these figures are the most recent data provided by IDIS.

The four housing problems collected in this data set include:

1. Lacks complete kitchen facilities
2. Lacks complete plumbing facilities
3. More than one person per room
4. Cost burden greater than 30%

This section reviews data that further examines housing problems for households with a housing cost burden at different income levels: extremely low income (0-30% AMI), very low income (30-50% AMI), low income (50-80% AMI), and low to moderate income (80-100% AMI). The Discussion section includes tables that further analyze this data to determine disproportionately greater need.

For households that have a housing cost burden greater than 30%:

0%-30% of Area Median Income

Table 13 - Disproportionately 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%.

30%-50% of Area Median Income

Table 14 - Disproportionately 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

Table 15 - Disproportionately 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%.

80%-100% of Area Median Income

Table 16 - Disproportionately 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

As the following charts show, there are a few groups that experience disproportionately greater need (10% or more, highlighted) when it comes to the four housing problems. Non-white households with a housing cost burden greater than 30% are more affected than the jurisdiction as a whole. No disproportionate need was found in the very low income category (30-50% AMI). Further analysis is provided after the charts.

0%-30% of Area Median Income

30%-50% of Area Median Income

50%-80% of Area Median Income

80%-100% of Area Median Income

Summary Analysis: Households with a Housing Cost Burden of 30% or more

Certain racial and ethnic groups in Milwaukee experience a disproportionately higher rate of housing problems compared to the overall population, particularly at specific income levels.

Among households earning 0%-30% of the Area Median Income (AMI), Pacific Islander households face the most significant burden, with 100% experiencing housing problems, making them 19% more likely than the citywide average. American Indian/Alaska Native households also experience a greater housing burden, with 85% reporting housing issues, which is 4% higher than the jurisdiction as a whole. Hispanic households have a slightly elevated burden at 83%, exceeding the citywide rate by 2%.

At the 30%-50% AMI level, disparities are less pronounced. While Black/African American (78%) and Asian (76%) households report slightly higher rates of housing problems, neither group meets the threshold of being 10% more likely to experience these issues compared to the city as a whole.

For households earning 50%-80% of AMI, Asian (52%) and Pacific Islander (50%) households experience disproportionately high rates of housing problems. Asian households are 17% more likely, while Pacific Islanders are 15% more likely to struggle with housing problems compared to the jurisdiction as a whole.

Among households in the 80%-100% AMI range, Asian households (36%) and Pacific Islander households (100%) face significant disparities. Asian households are 19% more likely to experience housing problems than the citywide average, while every reported Pacific Islander household at this income level faces housing problems, making them 83% more likely to experience these challenges than the average household in this income bracket.

Overall, Pacific Islander households face the most severe housing problems at all income levels, while Asian households experience significant disparities at moderate income levels (50%-100% AMI). These findings highlight the need for targeted housing interventions to address the unique challenges faced by these communities.

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

Below is data provided by HUD’s Integrated Disbursement and Information System (IDIS) as part of the Consolidated Plan development. Note these figures are the most recent data provided by IDIS.

The four housing problems collected in this data set include:

1. Lacks complete kitchen facilities
2. Lacks complete plumbing facilities
3. More than 1.5 persons per room
4. Cost burden over 50%

This section reviews data that further examines severe housing problems for households that also have a severe housing cost burden at different income levels: extremely low income (0-30% AMI), very low income (30-50% AMI), low income (50-80% AMI), and low to moderate income (80-100% AMI). The Discussion section includes tables that further analyze this data to determine disproportionately greater need.

For households that have a housing cost burden great than 50%

0%-30% of Area Median Income

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%.

30%-50% of Area Median Income

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

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%.

80%-100% of Area Median Income

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

As the following charts show, there are a few groups that experience disproportionately greater need (10% or more, highlighted) when it comes to the severe housing problems. Non-white households with a severe housing cost burden (over 50%) are more affected than the jurisdiction as a whole. Further analysis is provided after the charts.

0%-30% of Area Median Income

30%-50% of Area Median Income

50%-80% of Area Median Income

80%-100% of Area Median Income

Summary Analysis: Households with a Severe Housing Cost Burden (50% or more)

In Milwaukee, severe housing problems are not distributed equally across racial and ethnic groups, with certain communities facing significantly greater challenges than others.

At the lowest income level (0%-30% AMI), Pacific Islander households are the most impacted, as 100% of households in this category experience severe housing problems. This is much higher than the citywide average of 68%. American Indian/Alaska Native households also see higher-than-average hardship, with 75% affected, compared to 68% for the jurisdiction overall.

For households earning 30%-50% AMI, Asian households are disproportionately affected, with 42% experiencing severe housing problems, while the citywide rate is 27%. American Indian/Alaska Native households also have a higher-than-average rate, with 34% facing severe housing issues, compared to the 27% citywide average.

Moving into the 50%-80% AMI range, disparities remain significant. Pacific Islander households continue to be overrepresented, with 50% struggling with severe housing problems, far above the citywide rate of 10%. Asian households also report a much higher burden than the average, with 30% experiencing severe housing problems, compared to 10% for the jurisdiction as a whole.

At the highest income level assessed (80%-100% AMI), Pacific Islander households again show extreme hardship, with 100% experiencing severe housing problems, compared to just 5% citywide. Asian households, while facing less severe impacts, still show a disparity, with 25% affected, compared to the 5% jurisdiction-wide rate.

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

According to the City of Milwaukee’s 2024 Housing Affordability Report, the number and percentage of City households spending 30% or more of their income on housing in 2023 was 42% (or 97,873 households). Of the households earning less than $20,000 per year, only about 7.9% were not cost burdened, and about 66% were considered severely cost-burdened (spending 50% or more on housing).

Below is additional data provided by HUD’s Integrated Disbursement and Information System (IDIS) as part of the Consolidated Plan development. Note these figures are the most recent data provided by IDIS.

Housing Cost Burden

Table 21 – Greater Need: Housing Cost Burdens AMI

Data Source: 2016-2020 CHAS

The Discussion section on the next page further analyzes this data to determine disproportionately greater need for specific groups.

Discussion

The racial and ethnic groups in Milwaukee that experience a disproportionately greater housing cost burden compared to the city as a whole include Black/African American, Native American, and Hispanic households.

While 42% of all city households are housing cost burdened, meaning they spend 30% or more of their income on housing, this burden is not evenly distributed among racial groups.

• Black/African American Households: The table above highlights that 54% of Black households are housing cost burdened, significantly higher than the citywide average of 42%​. Additionally, Black households make up 51% of those spending more than 50% of their income on housing​.
• American Indian, Alaska Native Households: While this population in Milwaukee is relatively small, 48% of American Indian/Alaska Native households are cost burdened, which is above the citywide average​.
• Hispanic Households: Also experience a higher rate of cost burden at 45%, which is above the city average. Although this disparity is not as severe as for Black households, it still represents a significant challenge​.

In contrast, White non-Hispanic households have a significantly lower cost burden rate of 32%, meaning they are less impacted by housing affordability challenges compared to other racial and ethnic groups​.

These disparities indicate that Black, Hispanic, and American Indian, Alaska Native households in Milwaukee face a disproportionately greater need for housing affordability interventions that can help ease the burden of higher housing costs.

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?

To the extent that any racial or ethnic group has a disproportionately greater need for any income category in comparison to the needs of that category as a whole, the jurisdiction must provide an assessment of that specific need. For this purpose, disproportionately greater need exists when the percentage of persons in a category of need who are members of a particular racial or ethnic group is at least ten percentage points higher than the percentage of persons in the category as a whole.

For households experiencing housing cost burden at 30%, the following racial or ethnic groups are disproportionately impacted with experiencing housing problems:

1. 0-30% Area Median Income (AMI): Pacific Islander at 19% percentage points higher
2. 30-50% AMI: None
3. 50-80% AMI: Asian (17%) and Pacific Islander (15%) higher
4. 80-100%: Pacific islander (83%) and Asian (19%) higher

For households with severe housing problems and a housing cost burden of 50% or more, the following racial or ethnic groups are disproportionately impacted:

1. 0-30% AMI: Pacific Islander (32% higher)
2. 30-50% AMI; Asian (15% higher)
3. 50-80% AMI: Pacific Islander (40%) and Asian (21%) higher
4. 80-100% AMI: Pacific Islander (95%) and Asian (20%) higher

Additionally, as NA-25 demonstrated, 54% of Black households are housing cost burdened, which is 12% higher than the citywide average of 42%. 

These patterns indicate that Pacific Islander households, across all income levels, experience severe housing problems at very high rates, while Asian households are significantly more impacted in the middle-income ranges.

If they have needs not identified above, what are those needs?

The findings suggest that households with lower incomes generally experience more housing problems, increased severity, and housing cost burden is the key metric in understanding this dynamic for city residents. There is a need for housing assistance programs that help alleviate housing cost burden for these communities, which may also require targeted intervention with trusted community partners to better understand and address the unique challenges faced by Pacific Islander, Asian, and Black/African American households.

Are any of those racial or ethnic groups located in specific areas or neighborhoods in your community?

The majority of those affected with disproportionately greater need with housing problems (Asian, Black/African American, Pacific Islander), reside largely in the city’s central north, near west, and far northwest side neighborhoods. These areas have also experienced the detrimental impacts of redlining, long-term underinvestment, and acute unemployment. 

Many of these neighborhoods are highly segregated, where more than 90% of residents are persons of color (see MKE Indicators Population Maps for more detail (https://www.datayoucanuse.org/mke-indicators/). These neighborhoods often have higher rates of extremely- to very-low income households and/or persons living in poverty as well. Section MA-40 of this plan provides more detail on areas of the jurisdiction where racial or ethnic minorities or low-income households are concentrated.

In addition, there are large concentrations of affected populations in the City of Milwaukee’s two Neighborhood Revitalization Strategy Areas (NRSAs), which are Northside and Southside communities where over 70% of the population falls within the HUD-defined low/moderate income category. CDGA defines areas of minority concentration as those census tracts with a minority population of at least 51%. This is described in greater detail in section SP-10.

NA-35 Public Housing – 91.205(b)

Introduction

Data in the following tables was provided by the Housing Authority of the City of Milwaukee (HACM) in March 2025.

 Totals in Use

Table 22 - Public Housing by Program Type

Data Source: PIC (PIH Information Center), verified by HACM

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition        

Characteristics of Residents

Table 24 – Characteristics of Public Housing Residents by Program Type

Data Source: PIC (PIH Information Center), verified by HACM

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Race of Residents

Table 25 – Race of Public Housing Residents by Program Type

Data Source: PIC (PIH Information Center), verified by HACM

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Ethnicity of Residents

Table 26 – Ethnicity of Public Housing Residents by Program Type

Data Source: PIC (PIH Information Center), verified by HACM

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Section 504 Needs Assessment: Describe the needs of public housing tenants and applicants on the waiting list for accessible units.

Residents and applicants who have mobility issues and are in need of accessible units face a shortage of homes and/or apartments in both the private market and public housing that meets their accessibility needs. The Housing Authority of the City of Milwaukee (HACM) does have a data field on the waitlist to identify a need for a mobility accommodation; however, it is not often documented until a resident is pulled off the waitlist to be processed.

On the current public housing waitlists, 597 applicants have identified such a need when they submitted an application for the wait list. Most public housing was built in the 1950s to 1970s and has limited accessibility. Since 1990, as major renovations have occurred at public housing developments, HACM has increased the number of apartments that are accessible and/or adaptable for accessibility. At a minimum, HACM has complied with Uniform Federal Accessibility Standards (UFAS) regulations that require a minimum of 5% of units to be accessible for persons with mobility impairments, and 2% for persons with visual/hearing impairments, though HACM may also exceed the requirements for some developments.

Newer or fully remodeled buildings with a significant portion of senior or disabled residents (such as Highland Gardens, Cherry Court, Convent Hill, Lapham Park, and Olga Village), are 100% accessible and/or adaptable. For example, some units in these buildings have roll-in showers. In newer family developments such as Townhomes at Carver Park, the minimum number of accessible units have also exceeded the minimum. As former public housing developments have become project-based voucher housing through the Rental Assistance Demonstration program (RAD) and have recently been revitalized, the number of accessible units are increased during renovations.    

Of the public housing sites owned by HACM, 43 units are accessible, 73 are accessible/adaptable, and 132 are visitable (no bedroom on the first floor but it has at least a half bathroom on the first floor and an accessible entrance).

Additionally, former public housing developments that have become project-based voucher housing through the Rental Assistance Demonstration program (RAD) and have been recently revitalized, have added 703 units that are accessible for individuals with mobility impairments. In total, 37 are accessible/adaptable, 6 are visitable, and 8 have accessibility for hearing/visually impaired individuals. Since the last Consolidated Plan, the number of people with disabilities receiving housing assistance vouchers has increased by 34%; for seniors, it has increased by 39%.

Most immediate needs of residents of Public Housing and Housing Choice voucher holders:

The most immediate needs of residents living in public housing and Choice voucher holders are:

1. Coordination of supportive services that would help more seniors and persons with disabilities continue living independently.
2. Assistance with economic self-sufficiency and employment for adults who are able to work. For example, improved access to transportation is a real need – there is an imbalance between the location of affordable housing and the location of jobs and employment centers in the Milwaukee metro area.

How do these needs compare to the housing needs of the population at large?

The needs of households in subsidized housing (public housing and Housing Choice Voucher) largely mirror those of the population at large. As section NA-05 of the Needs Assessment discusses, the City of Milwaukee has poverty and unemployment rates that are higher than the metro area, which means more households are at risk for housing insecurity.

The City of Milwaukee’s 2024 Affordability Report noted that 42% of all households (or 97,783 households) are spending 30% or more of their income on housing and experiencing housing cost burden. For example, the majority of renter households with an annual income at or below $35,000 spend at least 30% of their income on housing. Of the households earning less than $20,000 per year, only 7.9% were not considered cost-burdened.

The average annual income for Milwaukee public housing residents of $19,057 and $16,394 for Housing Voucher holders is far below these thresholds. While these households may experience a lower housing cost burden due to the housing subsidy, access to jobs with living wages, affordable health care, transportation, and supportive services are still critical needs.

Discussion

The demand for safe, quality affordable housing remains extremely high due to the significant number of rent-burdened households. The waiting list for the public housing program was recently reopened (and the wait lists for project-based voucher developments remained open). During the first two weeks of opening, approximately 5,000 to 6,000 applications were received.

When tenant-based Housing Choice Voucher wait lists have been opened in the past, the number of applicants is even higher; previously, 20,000 to 35,000 applicants for the rent assistance voucher wait list have been received.   Even when both the public housing program and voucher program are fully utilized, there is a significant gap between the demand for affordable housing and the supply of subsidized housing.

NA-40 Homeless Needs Assessment – 91.205(c)

Introduction

In Milwaukee, homelessness remains a complex challenge shaped by systemic inequities, economic hardship, and persistent gaps in housing and supportive services. While the acute impacts of the COVID-19 pandemic have subsided, the long-term effects on housing stability and economic security continue to affect many residents. Increased visibility of unsheltered homelessness, especially through encampments and public space usage, has brought renewed urgency to coordinated efforts to address housing insecurity citywide.

Data from the City-County Continuum of Care Homeless Management Information System (HMIS), reveals that 14,243 individuals received homelessness-related services in Milwaukee between October 2023 and September 2024. This included over 3,400 children under 18, nearly 1,100 individuals identified as chronically homeless, and 1,850 veterans. These figures reflect not only the volume of need, but also the diverse subpopulations requiring specialized support.

Primary causes of homelessness in Milwaukee align with national trends, including extremely low income, a shortage of affordable housing, untreated or undertreated mental health and substance use disorders, unemployment or unstable work (e.g., temporary, on-demand, or seasonal jobs), and lack of access to education or vocational training. Other contributing factors include age, racial and ethnic disparities, LGBTQ+ identity, and histories of trauma or abuse. Notably, the intersectionality of these conditions often intensifies housing instability and makes pathways out of homelessness more complex.

Milwaukee’s housing stock continues to present challenges for individuals and families experiencing or at risk of homelessness. Older housing units may be unaffordable to maintain, poorly insulated, or sized inappropriately for larger households. While newer units are coming online, they often remain financially inaccessible to people with very low incomes. In 2024, large family households—especially those with four or more children—faced particularly limited rental options.

Service providers have emphasized a widening gap in access to supportive services, including case management, mental and behavioral health care, and substance use treatment. Although resources exist to support the development of affordable housing, the lack of sustainable, dedicated funding streams in Wisconsin for wraparound services undermines long-term housing stability for people transitioning out of homelessness.

Additionally, barriers in the private rental market—such as excessive tenant screening, high security deposits, and discrimination against applicants with prior evictions or criminal records—continue to exclude people with lived experience of homelessness. Many Milwaukee renters remain severely cost-burdened, spending more than half their income on housing. One unexpected expense or job disruption can quickly push a household into crisis.

Despite these challenges, the Milwaukee Coalition on Housing & Homelessness (MCHH), also known as the Milwaukee Continuum of Care or CoC and its network of partners have continued to strengthen Milwaukee’s response to homelessness. The City’s homelessness response strategy now includes a more integrated approach with public health, housing development, and eviction prevention efforts, guided by recent investments and updated planning initiatives such as the HOME-ARP Allocation Plan and Milwaukee’s Comprehensive Plan: Housing Element. Sustained coordination, investment, and attention to equity will be essential to meaningfully reduce homelessness and support stable housing outcomes for all Milwaukeeans.

Nature and Extent of Homelessness

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).

1. Estimate the number and type of families in need of housing assistance for families with children and the families of veterans. 
2. Describe the Nature and Extent of Homelessness by Racial and Ethnic Group. 
3. Describe the Nature and Extent of Unsheltered and Sheltered Homelessness. 

Below is a general analysis of the nature and extent of homelessness in Milwaukee by reviewing data provided by the City-County Homeless Management Information System (HMIS) and feedback from the Milwaukee Coalition on Housing & Homelessness (MCHH) or CoC member providers. Milwaukee’s CoC includes the City and County.

A Note on Data Related to Homelessness:

To allow for standardization of measurement and comparability over time, this plan draws mostly on data from the CAPER, with Point In Time as supplementary.

(1) The CAPER provides annual program and outcome data, and includes non-housing programs such as Prevention and Street Outreach that are not included in other sources. The most recent CAPER used in this Consolidated Plan covers 10/1/23 to 9/30/24.

(2) The Point In Time (PIT) survey: At least once a year the MCHH/CoC performs a PIT, which is a count of persons that are living in shelters or who are unsheltered living on the streets or any other place not meant for human habitation. The most recent PIT was completed in January 2024. 

The underlying drivers of homelessness in Milwaukee are consistent with national trends and are widely recognized among MCHH/CoC service providers. Chief among them are extremely low incomes, a persistent shortage of affordable housing, and challenges related to substance use, mental health, and access to stable employment. Additional contributing factors include age, limited educational attainment, discrimination based on sexual orientation or gender identity, and employment instability—such as reliance on seasonal, temporary, or gig-based work—that makes it difficult for individuals and families to maintain consistent housing.

A total of 14,243 clients were served by the MCHH/CoC from 10/1/23 to 9/30/24. This represents an increase of 27% from the previous Consolidated Planning period (2019-2020).

• 3,464 were under the age of 18
• 1,850 were veterans
• 1,097 were chronically homeless
• 10,255 were adult heads of households (i.e. requesting services for more than one person, a family unit)

About 35% of the people receiving services were in Emergency Shelters or Transitional Housing, with another 28% receiving Rapid Re-Housing or Permanent Housing services. Prevention services accounted for 26% of people receiving services, with Street Outreach and Safe Haven making up the remainder at nearly 10%.

Number of Clients Served

Date Source: Milwaukee HMIS ESG CAPER (10/1/23 to 9/30/24)

Comparison to previous Consolidated Planning period (2019)

When this data was reviewed for the 2020-2024 Consolidated Plan (2019 ESG CAPER), the total number of clients served by the MCHH/CoC was less (11,218 served vs 14,243 in 2023-2024), indicating that more Milwaukee households have a precarious housing situation.

The number of chronically homeless has decreased slightly, while the number of veterans served has increased by 27%.  Additionally, the number of people under age 18 receiving services increased by 18% (or 547 people).

At the same time, Milwaukee increased the number of people in permanent housing by 452 (17%) and Rapid Re-Housing by 33%. There was an 8% decrease in people in emergency shelter and 16% increase in people served by Street Outreach. Lastly, there was a significant increase in the number of people receiving prevention services, at 2,400 more people.

This demonstrates that while Milwaukee’s Continuum of Care network continues to make significant and important progress in helping people stabilize their housing situation, more individuals and families are at risk of losing housing. Service providers are stepping up to meet the need, particularly through prevention and rapid re-housing approaches. Additionally, groups that can experience more problems with housing stability (veterans and unsheltered youth), continue to increase.

Age of Clients Served

Date Source: Milwaukee HMIS ESG CAPER (10/1/23 to 9/30/24)

Gender of Adults Served

Date Source: Milwaukee HMIS ESG CAPER (10/1/23 to 9/30/24)

Estimate the number and type of families in need of housing assistance for families with children and the families of veterans.

Housing Needs for Families & Families with Children

Families in Milwaukee face significant barriers to stable and affordable housing. The 2024 Milwaukee Housing Affordability Report highlights that nearly 33,800 households are severely cost-burdened, meaning they spend more than 50% of their income on housing. The city lacks enough affordable units to meet demand, with only 43,600 units available for 63,100 very low-income renter households, leaving a shortfall of 19,500 units​.

Families with children are particularly vulnerable. MCHH/CoC members provided services to 10,828 households, of which 1,177 included children and adults, and 516 were composed of only children. The Emergency Shelter system served 3,755 households, with 306 being families with children and 278 being child-only households. Rapid Re-Housing assisted 250 households with children and adults, and Prevention provided services to over 418 households with children and adults.

Since the last Consolidated Planning period, the number of households with children and adults receiving services increased by 8.5%, or by 100 households. Rapid Re-Housing activity saw a 21.6% increase in services to households with children and adults, and Prevention services increased by 38.5%. This underscores the lack of stable housing options for families, with more receiving prevention and re-housing services at increasing rates.

The HOME-ARP Allocation Plan further emphasizes that families experiencing homelessness often struggle to secure permanent housing, facing long waiting lists for affordable units, inconsistent access to supportive services, and barriers such as low wages and high rental costs​. Milwaukee Public Schools (MPS) also assists thousands of  students each year that are experiencing homelessness or housing insecurity (averaging 7% of enrolled students), as part of compliance with the McKinney-Vento Homeless Assistance Act enacted in 2002. MPS has a Homeless Education Program that provides families with obtaining resources such as transportation, free breakfast/lunch, school supplies, translation and ESL services, referrals to social service agencies and community resources, and accessing school, medical, and immunization records.

Households Served