The City of Hesperia attempts to address numerous issues through the programs set forth within the Consolidated Plan for Fiscal Years 1995-1999. These include the elimination of slums and blight, elimination of conditions that are detrimental to health, safety and public welfare, conservation and expansion of the nation's housing stock, expansion and improvement of the quantity and quality of community services, better utilization of land and other natural resources, reduction in the isolation of income groups within communities and geographical areas, restoration and preservation of properties of special values and alleviation of physical and economic distress.
During calendar year 1995, the United States Department of Housing and Urban Development (HUD) issued rules relating to the consolidation of several formula grant programs. These programs are the Community Development Block Grant (CDBG), Home Investment Partnership (HOME). Emergency Shelter Grants (ESG), and Housing Opportunities for People with AIDS (HOPWA). The City of Hesperia currently participates in the first program. The purpose of the Consolidated Plan Submission (CPS) is to assist the consolidation process by bringing together the planning, application, reporting, and citizen participation components of each grant program.
These programs have three basic goals: securing decent housing; providing a suitable living environment; and expanding economic opportunities. Providing decent housing includes rehabilitating the housing stock, providing opportunities for first time home buyers, and increasing the availability of permanent affordable housing for low-income households without discrimination. Providing a suitable living environment includes improving the safety and livability of neighborhoods; enhancing housing opportunities for low income persons and minorities; revitalizing neighborhoods; restoring and preserving natural and physical features with historic, architectural, and aesthetic value; and conserving energy resources. To expand economic opportunities, the comprehensive approach encourages job creation, stimulating access to credit for community development, and assisting low-income persons with achieving self-sufficiency in federally assisted housing.
The City's Planning Department took the lead role in developing and Consolidated Plan. The Committee held a one public town meeting to receive public input on the housing and community development needs of the City. The public meetings were noticed and copies of materials reviewed by the Committee were made available to the public either at the meeting itself or by request. In addition, three public hearings were conducted by the Hesperia City Council to receive input on nonhousing needs, the Draft Plan, and the Citizen Participation Plan. Numerous organizations and public agencies were contacted to seek data on Hesperia's population needing housing and
supportive service assistance. The City worked with the San Bernardino County Department of Economic and Community Development and Housing Authority on a continuous basis. The Southern California Association of Governments, San Bernardino Association of Governments, U.S. Department of Housing and Urban Development and other local service organizations and agencies have provided information. The City provided copies of the draft Consolidated Plan to the Housing Authority of San Bernardino and all adjacent cities to coordinate efforts in the areas of housing and community development. Finally, the City surveyed local public service providers and the general public for input regarding the housing and community development needs.
The City of Hesperia incorporated in 1988 after experiencing a decade of rapid growth. Upon incorporation, the City inherited a legacy of infrastructure from the County that was poorly constructed, improperly maintained or neglected. Although the City of Hesperia has made progress in repairing and/or replacing some portions of the deteriorating infrastructure, the need for infrastructure remains a high priority for this community. According to the 1990 Census, population within the City of Hesperia was 50,418. The State Department of Finance (DOF) estimated 60,334 residents in 1995. The relative affordability of housing, the availability of inexpensive land and its location on Interstate 15 made Hesperia an appealing place to relocate to, particularly from other more expensive Southern California communities. Hesperia, the largest City within the High Desert, grew at an average annual rate of 25% between 1980 and 1993 to 58,000. Migration into Hesperia is evident from various population trends, such as the increase in the number of persons per household (2.71 in 1980 to 3.04 in 1990), and the decrease in the median age (33.6 in 1980 to 30.5 in 1990).
An estimated 53,800 employed residents live in the High Desert while 18,500 employed persons reside within the City of Hesperia as of 1990. About two-thirds were employed within four industries: services, retail trade, construction and manufacturing. Nearly half of the employed residents commute to jobs outside the High Desert area. The rapid growth through the 1980's especially lent itself to making construction a leading industry in the area. 1990 Census data shows that nearly 50% of Hesperia's workforce was employed in construction and related industries. The region has a large and educated labor force. However, as of March 1995, an estimated 11.5% of its 60,000 civilian labor base was unemployed, due largely to slowdowns in construction activity.
As the population increased, household characteristics changed. According to the 1990 Census, a total of 16,732 households live within the City of Hesperia. This total has increased from 3,976 in 1980. The median age decreased from 33.6 in 1980 to 30.5 in 1990. While the proportion of those 65 and older decreased (16% in 1980 to 11% in 1990), the number of elderly actually increased 261%, from 2,191 to 5,719. The number of persons per household has increased from 2.71 in 1980 to 3.04 in 1990. The number of persons per family has also increased, from 3.09 to 3.37. These trends indicate that there may have been an increase in the number of families with children within the community. According to the 1990 Census, the City's total household population grew to 16,732 and the number of single-headed households increased to 2,845 which represents about 17% of City's entire household population.
Roughly 20% of Hesperia's population is minority. Although all ethnic groups grew from 1980 to 1990, Black (1048%), Hispanic (824%), and Asian and Pacific Islander (582%) populations grew significantly more than White (219%) and Native American (179%).
The majority of the housing stock in Hesperia has been constructed since the early 1970's. In 1991, Planning Department staff conducted a housing conditions survey for the General Plan Housing Element. That survey indicated that the majority of the dwelling units in the City are in relatively good condition, and about 12% of the single family and 3% of the multiple family units required some rehabilitation. Another 26% of the multiple family units required maintenance, such as exterior painting.
The City of Hesperia places very few constraints on housing development. The primary constraint to the expansion of the housing supply is infrastructure deficiencies. Multi-family designated areas in several locations can not be developed at the specified density until sewer service is established. Multi-family projects nearer sewer trunk lines may be built, but laterals must be extended at cost to the project. The Public Works Department also requires that multi-family projects, and single family residential subdivisions, improve roads to City standards, and in some cases require that the developer provide traffic control to mitigate impacts of the development.
Although Hesperia's vacancy (4.08% in 1990 and 4.1% in 1993) and tenure rates (80.8% in 1980 and 73% in 1990) have been relatively steady, the recent economy has had an impact on the number of repossessed and vacant units. The vacancy rate indicates that there is sufficient supply to meet the housing demand, and the 1,675 new units constructed between 1989 and 1992 have met the demand for single family units. Multiple family units, however, are still in demand, particularly those units that will accommodate large families. Twenty five percent of the 17,359 housing units in the City are rental units, and yet there are only 186 vacant rental units, indicating a shortage of rental units, particularly affordable rental units.
In February and November, 1992, the San Bernardino County Homeless Coalition conducted homeless surveys throughout San Bernardino County. Great attention was given to eliminating duplication of responses to the current survey. The November 1992 survey indicated that there were 461 homeless persons in the High Desert. The homeless in Hesperia are estimated at 91. Of these, 41 are children and 50 are adults. Fifty eight percent of the homeless are White, 22 percent Hispanic, 14 percent Black, 3 percent Native American, and 2 percent Asian and Pacific Islander. Eleven percent of the homeless respondents indicated that they sleep outdoors, 15 percent sleep in cars, and 4 percent sleep in abandoned buildings. 38 percent sleep with friends or relatives, 13 percent in motels, and another 19 percent sleep in shelters. The greatest need appears to be rental assistance in the form of security deposits, emergency utility assistance, job referral/training/educational guidance, and basic social skills from budgeting, to coping with setbacks, to family planning. These households are in need of "at risk" funds to temporarily fill a gap in normal living expenses such as food, rent and utilities.
Because of the limited information resources, it is difficult to assess the needs of those persons who are not homeless but require supportive housing. The 1990 Census data shows that there are 557 Hesperians with self-care limitations, 31 percent of which are over 65. An additional 869 residents have both mobility and self-care limitations. Of those, 58 percent are over 65. The City of Hesperia makes funding available for various low-income special needs populations to modify their units as necessary to enable elderly and disabled persons to remain in their homes through City-sponsored rehabilitation programs. According to the most recent estimates of total handicapped population in the City, approximately 12 percent of the City's 1990 population or 5,956 mobility impaired or work disabled persons reside in Hesperia. Approximately 70 percent of these households, or 4,169 persons, are estimated to be in low-income households, therefore, eligible to apply for and receive rehabilitation assistance.
The demand for government rental assistance is reflected in the long waiting lists for the limited funds. At this time, the Housing Authority has a waiting list of 4,305 households. Of these households, approximately 91 are from Hesperia. Of these 91, 22 are elderly, 12 are small families, and 57 are large families. Currently, there are no public housing units owned or operated by the San Bernardino Housing Authority located within the City.
While the City of Hesperia's rapid growth in the last several decades was due largely to suburban residential development, there has been a concerted effort on the part of the City to create a balanced community by attracting businesses to provide local jobs. Unfortunately, due to the high cost of road maintenance and funding reductions, road maintenance has become a major infrastructure issue. Many of the 400 miles of roads within the City are partially improved or unpaved. A more immediately visible problem facing the City is traffic congestion on major arterials, indicating a need for increased capacity. This problem is especially evident on east-west arterials, because of the lack of an adequate number of crossings over the railroad, Interstate 15, and the Mojave River. Overall, the City of Hesperia has a deficient drainage and flood control system, now affecting traffic circulation, public safety, and emergency response. Approximately 90 percent of the City's residential dwelling units are serviced by septic tanks, roughly 4.4 million gallons per day of waste water are treated by these tanks.
The City of Hesperia faces an enormous challenge in marshalling the resources necessary to implement its Strategic Plan. Successfully accomplishing the priorities set forward over the next five years is an ambitious objective that will challenge all sectors of the community.
Priority A:Extremely Low-, Low and Moderate- Income (0 to 30 percent; 0-50 percent and 0-80 percent) Small Related (2 to 4) Rental Households
1990 Census data shows that significant portions of small related households earning less than 30 percent of the median are experiencing housing problems (93 percent). In addition, 88 percent of those households are paying more than 50 percent of their income for housing. Of those earning between 31 and 50 percent of the median, 95 percent are experiencing housing problems, and 93 percent are paying more than 30 percent of their income for housing. 61 percent of those earning between 51 and 80 percent of the median are experiencing housing problems, and 51 percent are paying over 30 percent of their income for housing. There are 935 low income and 435 moderate income renters in the City of Hesperia, and yet there are only 20 assisted units and 103 Section 8 certificates currently in Hesperia. Rehabilitation is the primary activity to be undertaken. Secondary activities include acquisition, rental assistance, and support services and facilities.
Priority B: Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent) Homeless Individuals and Families
There is an increasing number of homeless in the High Desert. Those individuals and families earning up to 30 percent of the median are the largest portion of the homeless population, although those earning up to 80 percent of the median also require assistance. There are less than 100 beds to serve the estimated 461 homeless in the High Desert. Enhancement and coordination of existing support services and facilities to serve the homeless is the primary activity to be undertaken. The city will support the existing homeless shelter located in the City of Victorville, and efforts to establish new facilities in Hesperia and the High Desert. Secondary activities include acquisition and rehabilitation of existing units, as well as rental assistance.
Priority C:Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent) Large Related (5 or More) Rental Households
The 1990 Census data shows that there are 147 large related low income rental households in Hesperia. Of these, 87 percent are experiencing housing problems, 76 percent are paying more than 30 percent, and 69 percent are paying more than 50 percent of their income for housing. One hundred percent of large related households earning between 31 and 50 percent of the median are experiencing housing problems, while 94 percent are paying more than 30 percent of their income for housing. Of those earning between 51 and 80 percent of the median, 83 percent are experiencing housing problems, and 55 percent are paying more than 30 percent for housing. Due to a lack of large subsidized units and other assistance, this household type is more likely to be overcrowded, or rent burdened. The primary activity will be acquisition of single family residential and large multi family units. Secondary activities are rehabilitation, rental assistance and support services/facilities.
Priority D:Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent) Existing Homeowners
1990 Census data shows that 77 percent of those homeowners earning between 0 and 30 percent of the median are experiencing housing problems. In addition, 52 percent of those households are paying more than 50 percent of their income for housing. Of those earning between 31 and 50 percent of the median, 55 percent are experiencing housing problems, and 54 percent are paying more than 30 percent of their income for housing. 44 percent of those earning between 51 and 80 percent of the median are experiencing housing problems, while an additional 43 percent are paying
over 30 percent of their income for housing. The primary activity for this group is to provide rehabilitation funding, ensuring that the existing housing stock does not deteriorate as quickly, creating a quantity of affordable units, thus preserving housing and neighborhoods. Secondary assistance will come in the form of support services and facilities.
Priority E:Low Income (51 to 80 percent of MFI) First Time Homebuyers With Children and All Others
1990 Census data shows that there are 959 low income (51 to 80 percent of median) renters in the City, and that 70 percent of those renters are experiencing housing problems. In addition, 55 percent are paying more than 30 percent of their income for rent. 266 of those renters are large families, and 83 percent of this group are experiencing housing problems. The primary activity for this group will be to provide homebuyers assistance, either through downpayment assistance or payment reduction plans. Secondly, the city will support projects that will provide ownership opportunities for low income families, and acquire units to sell at reduced pricing or special terms.
Priority F:Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent MFI) Non-Homeless with Special Needs
The Census data and data from various sources does not provide an accurate count of the number of persons in the Non-Homeless Persons with Special Needs group. The 1990 Census data does shows that there are 557 Hesperians with self care limitations (31 percent over 65), and 869 with mobility and self care limitations (58 percent over 65). Because the services to the frail elderly, persons with AIDS, and disabled families are limited in the High Desert, it is difficult to pinpoint the needs of this population. The primary activity for this group will be to create new and enhance the existing support services and facilities available to this population. Secondary activities for this group will include rehabilitation funding to provide accessible living quarters and rental assistance.
Priority G:Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent MFI) All Other Rental Households
1990 Census data shows that 93 percent of this household group that earns up to 30 percent of the median are experiencing housing problems, and 93 percent are paying over 50 percent of their income for housing. 94 percent of those earning between 31 and 50 percent of the median are experiencing housing problems, and 94 percent are paying over 30 percent of their income for housing. Of those earning between 31 and 50 percent of the median, 72 percent are experiencing housing problems, and 58 percent are paying over 30 percent of their income for housing. The needs of this group may be addressed through neighborhood improvement programs and other rental unit maintenance programs. The primary activity will be to rehabilitate existing units and provide adequate housing. Secondary activities will include support services and facilities, acquisition of units for the use of this population, and rental assistance.
Priority H:Extremely Low-, and Low Income (0 to 30% and 31 to 50% of MFI) First Time Homebuyer With Children and All Others
This group of first time homebuyers is experiencing a myriad of problems in obtaining financing. Although interest rates and home prices are down, lenders are quite cautious, and therefore the city may be able to provide downpayment or other assistance to this income group. The likelihood of financing occurring for this group is often unlikely. The primary activity for this group will be homebuyers assistance. Secondary activities will include acquisition and new construction.
Priority I:Extremely Low-, Low and Moderate-Income (0 to 30 percent; 0-50 percent and 0-80 percent) Elderly 1 & 2 Member Rental Households
1990 Census data shows that significant portions of elderly households earning less than 30 percent of the median are experiencing housing problems (56 percent). In addition, 49 percent of those households are paying more than 50 percent of their income for housing. Of those earning between 31 and 50 percent of the median, 58 percent are experiencing housing problems, paying more than 30 percent of their income for housing. Of those earning between 51 and 80 percent of the median are experiencing housing problems, 72 percent are paying over 30 percent of their income for housing. Most of the seniors in these income groups live on a fixed income yet there is a lack of subsidized units to serve this population. There are 935 low income and 435 low income renters in the City of Hesperia, and only 20 assisted units and 103 Section 8 certificates. The primary activity will be to provide additional support services and facilities. Secondary activities for seniors will include rental assistance and the support of new construction activities.
In addition to providing a suitable living environment with decent housing, a major goal of the City of Hesperia is to encourage and support the development of a balanced, diverse community by expanding economic opportunities. Based on community input during the Consolidated Plan development process and the information contained in the Nonhousing Community Development Needs Analysis the following needs have been defined: 1. The City will strive to eliminate elements of slum and blight by conducting activities which assist in the prevention of blighting influences and the deterioration of property; The elimination of conditions which area detrimental to health, safety, and public welfare through the development of neighborhood and community facilities; the funding of public service programs; public improvements and related activities; 3.The expansion and improvement of the quantity and quality of community services, principally for persons of low and moderate income; 4. The restoration and preservation of properties of special value for historic, architectural, or aesthetic reasons; 5. The alleviation of physical and economic distress through the stimulation of private investment and community revitalization through the development of economic development programs; and 6. The provision of administrative capacity to implement the City's CDBG program and fair housing services, and funding for planning studies.
In order to provide for the development of specific nonhousing activities in support of the goals and objectives described above, the City of Hesperia identifies the following specific needs to be met through the Community Development Block Grant Program, Redevelopment Set Aside Funds and
other local, federal and private as they become available over the next five years. Federal programs available to support various affordable housing programs include Community Development Block Grant (CDBG), HOME funds, HOPE I, II and III funds, Federal Emergency Management Agency (FEMA), the Federal Economic Development Agency (EDA), FANNIE MAE homebuyer assistance programs, and those public housing funding programs administered through the Housing Authority of the County of San Bernardino, including Section 8 assistance. These funding sources can be used for acquisition, rehabilitation, new construction, homebuyer assistance, rental assistance and homeless assistance and prevention programs. California Housing Finance Agency (CHFA) offers loan programs for low income housing development projects. The State Department of Housing and Community Development (HCD) offers funding for acquisition, rehabilitation, new construction, homebuyer and rental assistance and homeless assistance and prevention programs.
Available local programs include the City's Redevelopment Low and Moderate-Income Housing Fund ("Set Aside Fund"). Monies from the City's Set Aside Fund, when they become available, can be used to provide various assistance programs. The City may acquire, rehabilitate, provide new construction assistance, homebuyer and rental assistance and homeless assistance and preservation using this funding source. The City may also provide low interest and/or deferred loan packages which will provide a revenue source and allow the reuse of funds. In addition, the City can develop assessment districts or Mello-Roos community facilities districts to provide infrastructure, or on-site improvements for specific developments. The issuance of tax-free mortgage revenue bonds to provide low interest loans for first time homebuyers and implementation of the City's Density Bonus program can also assist in the creation of affordable housing opportunities.
Although these programs provide affordable housing opportunities, a lack of infrastructure to support development is the major obstacle to providing more affordable housing units in the City of Hesperia. In addition to school fees for residential construction, the City Council adopted a Development Impact Fee, currently $1,000, for all new residential, industrial and commercial development that occurs in the City. These fees will help to improve the lacking infrastructure in the City, the most costly and prohibitive barrier to affordable housing development. In addition, in an effort to improve the City of Hesperia's infrastructure, the City Council has adopted Redevelopment Project Areas to fund infrastructure improvements for the first seven years.
In 1993, the City Council adopted its first Economic Development Strategy. This Strategy outlines a program for retaining and expanding the existing commercial and industrial base, as well as a marketing strategy for bringing new businesses and industries to the City. In response to the results of the study, the City in 1995 hired both a Marketing Consultant and a permanent full-time Economic Development Director. Positive economic growth will create the opportunity for many of our residents to improve their economic status, employment levels, and housing. Finally, the City has been actively involved in the public-private partnership of the Regional Economic Development Authority (REDA). The primary focus of this joint powers group is to encourage the economic development of the High Desert region.
All of the priorities and programs which the City hopes to address over the next five years cannot be addressed in Fiscal Year 1995. The Department has developed goals and objectives which will have a long term stabilizing impact on City neighborhoods. The City involves the community in determining needs and issues, designing programs and also coordinates the efforts of various City Departments to meet the identified housing needs, and utilize housing programs and projects to create sufficient visual impact intended to stimulate additional private investment in the City's housing and neighborhoods. The City of Hesperia proposes 21 CDBG funded projects within the Consolidated Plan to serve the needs of residents. These projects include:
The City of Hesperia's limited resources are not adequate to address all the housing requirements of low- and moderate-income households, elderly residents, people with special needs, and other needy populations. The size of the housing problem is large and estimated to be in the hundred of thousands of dollars if considering only the affordable housing shortage, abating lead based paint hazards, and rehabilitating housing units. The infrastructure problem facing Hesperia including roads, waterline, sewer and other public improvement and public facilities is overwhelming and is expected to exceed $400,000,000 dollars. All these problems facing the City have accumulated over decades, and their resolution will take as many years. The people of Hesperia share in the task of exploring creative approaches to expanding the supply of housing, eliminating homelessness, solving the infrastructure deficiencies, and increasing employment and the wage levels of Hesperia's employees. The City of Hesperia intends to move forward in securing and applying all federal, state, and private resources in resolving the City's housing, homeless, infrastructure, and economic development problems, one year at a time.
MAP 2 depicts points of interest and low-moderate income areas.
MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.
MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.
MAP 5 depicts points of interest, low-moderate income areas, unemployment levels and proposed HUD funded projects.
