The City of Milford with a population of 49,938 is a medium size city located on the Connecticut coast between the major cities of New Haven and Bridgeport. The community is accessed by both Interstate Route 95 and the Wilbur Cross Parkway (State Route 15) as well as U.S. Route 1. This location has resulted in the development of Milford as both a suburban location in relation to major cities in the region but also as a community with its own identity. The housing stock is primarily owner occupied but there are rental housing opportunities in the community. The focus of the Community Development Block Grant Program in Milford has been on the rehabilitation of owner occupied housing and the improvement of supporting public facilities. There has also been an effort to provide supportive public services including services and facilities for persons with disabilities and the homeless.
HUD's Consolidated Plan regulations require local governments to identify and describe housing and community development needs and priorities, and to establish a comprehensive strategy for addressing these needs with Federal and other resources. The City of Milford's Consolidated Plan has been prepared in a coordinated fashion with housing and community development needs, objectives and programs addressed in this consolidated fashion. Although the Consolidated Plan regulations encompass numerous HUD programs Milford only receives entitlement funding under the Community Development Block Grant (CDBG) program. For the first year of the plan, the City of Milford received a CDBG funding allocation of $666,874. This funding will be utilized to meet its identified housing and community development goals. These goals will be achieved by providing direct CDBG assistance for the rehabilitation of homes as well as activities of the Milford Housing Authority. CDBG funded activities in neighborhoods will include the elimination of blighted properties. This revitalization of neighborhoods will be supported by improvements to neighborhood facilities and community centers. These physical improvements will be coordinated with supportive services for those segments of the community in need. This multi-faceted program for housing and community development will allow a holistic program for meeting community needs.
The City of Milford followed a written Citizen Participation Plan in the preparation of the Consolidated Plan. The availability of the Citizen Participation Plan was advertised and a public hearing on the plan was held. As originally written, the plan proposed use of the Milford Housing Partnership as the citizen participation vehicle for preparation of the Consolidated Plan. At the public hearing, a suggestion was made to broaden the citizen participation process by the inclusion of additional groups. In response to this suggestion, the Consolidated Plan Ad Hoc Committee was formed. This committee included the Housing Partnership members as well as additional representatives of the community. This group met to discuss housing and community development needs and chaired public hearings on needs, suggested activities and the Proposed Consolidated Plan. There were also meetings held in the Wildermere Beach Neighborhood and with the Family Self Sufficiency (FSS) group of the Housing Authority.
This Proposed Consolidated Plan was made available for a 30 day comment
period and a public hearing was held to provide citizens an opportunity to
comment. Notice of the public hearing and availability of the Proposed Plan was
published and copies were made available at several locations in the community.
In addition, copies of the Proposed Plan were distributed to adjacent
communities, the regional planning agency and the State of Connecticut for
comment.
Between 1980 and 1990 the population of Milford declined from 50,898 to 49,938. However, trends in household formation resulted in an increase in the number of households during this same time period. Milford has a predominately owner housing stock with the 1990 census recording 14,358 of 18,851 occupied housing units as owner occupied units. This represents approximately 76 percent of the total housing stock. The housing stock is mostly comprised of single unit, detached housing with 14,227 of the total 20,149 units in the City found in such structures. The 20,149 units represent an increase of 2,026 units over the 18,123 units recorded in 1980. Reports issued by the Connecticut Department of Housing show an additional 676 units authorized by the issuance of a building permit in the period 1990 to 1993.
The number of vacant housing units available for occupancy in Milford according to the 1990 Census is 960. This does not include the 338 housing units kept for seasonal, recreational or occasional use. The census counted 342 units for rent and 144 vacant units for sale at the time of enumeration. The census also counted an additional 812 vacant units, categorized as "other vacant" which includes units remaining vacant pending a legal decision, units held for janitors, maintenance personnel, superintendents or caretakers, and/or units held for an unspecified personal use. It should be noted that preliminary census counts had an estimate of 2,000 vacant units in the City. A local survey was undertaken to reduce that number to the 960 unit estimate.
In terms of housing value, the 1990 census recorded median value of owner occupied units at $172,400. Due to the housing recession in Connecticut, it can be concluded that this value has not increased since 1990 and in fact has decreased somewhat. Recent sales price data compiled by The Commercial Record reveals that the median sales price for a house in Milford at year end 1994 was $135,000. It should be noted that sales price is somewhat different than median value as reported by the Census since this value is reported by the homeowner.
In terms of rental housing, the low vacancy rate combined with the lack of construction of rental units and continuing household formation creates a tight rental housing market for certain kinds of units. The Milford Housing Authority, in the administration of the Section 8 Voucher and Certificate Programs, has found that there is an adequate supply of 1 bedroom units. However, there is a serious shortage of 2, 3 and 4 bedroom units. In addition, the cost of rental housing for lower income persons without some form of rental subsidy is a burden. Some 1,050 lower income renter households pay more than 30 percent of their income for housing.
The Milford Housing Authority administers a total of 672 housing units. This includes 447 federal and state units in public housing complexes and 225 Section 8 Certificates, Vouchers and State Rental Assistance Payment (RAP) units. Within the 447 federal and state units in housing complexes, 45 of the units are family units. There is currently a waiting list of 670 households.
There is one homeless shelter located in Milford. The Beth-El Shelter is
located on New Haven Avenue. The shelter is funded primarily by the Connecticut
Department of Human Resources and donations through the 16 church Combined
Parishes Action Committee (CPAC).
Milford is characterized by those needs typical of a mature community with a predominance of owner occupied housing. Primary needs relate to an aging population with an increasing financial burden related to the maintenance and repair of their dwelling unit. In addition, the infrastructure of the community is in need of replacement and improvement. The lack of rental housing places a burden on younger families as well as older households in need of rental housing opportunities. The general economic recession in Connecticut is reflected in the community need for various human service programs. These services range from day care needs to employment training and elderly service needs. There is also an overall need to provide services and facilities for persons with disabilities.
The housing needs for low and moderate income households, as included in Milford's Comprehensive Housing Affordability Strategy (CHAS) for Fiscal Year 1994, were included in the Consolidated Plan as the estimate of housing need. Based upon this data, it is estimated that 1,106 low and moderate income renter households have housing assistance needs and the number of low and moderate income owner households in need of housing assistance is estimated at 1,662 households. A further analysis of the nature of the housing need reveals that the predominant cause of housing need is cost burden. Within the income group earning less than 30% of median family income, 72% of the households have a housing problem with all households experiencing cost burden. Within the 31 to 50% of median income group, 58% of the households have a housing problem with 56% experiencing a cost burden. Within the 51 to 80% of median income group, 42% of the households have a housing problem with all households experiencing a cost burden. Not surprisingly, as a household's income increases, the percentage of households with housing problems including a cost burden decreases. The fact that Milford has a somewhat sound housing stock in terms of facilities explains this concentration of housing need in the cost burden area. Although cost burden and housing affordability is the greatest housing impediment to lower income residents of the City, many large family households are also housed in overcrowded conditions (more than 1 person per room).
The City of Milford does not believe that the nature and extent of these housing needs will experience significant changes over the next five years. However, as has been the case with the recent economic recession in Connecticut, a decline in the economic and employment base of Milford and its region could increase the extent of cost burden for many low- and moderate- income households.
Based upon review of the demographic data and the citizen participation process carried out as part of the preparation of the Consolidated Plan it has been concluded that the two primary housing needs in Milford relate to cost burden and the need to assist fixed income homeowners to rehabilitate their homes. The cost burden issue impacts both owners and renters as well as those renters wishing to become homeowners.
An indication of the extent of need for affordable rental housing is the waiting list for Milford Housing Authority housing. As of March, 1995, the waiting list has 670 applicant households. Within that total waiting list, 471 households or 70% require 2 or 3 bedroom units which means these are family households. The 670 applicant households represent approximately 3.7% of all households in Milford.
In terms of homeowners, the City has seen a growing need for financial assistance for low- income households to correct code violations in their homes. This need is particularly acute among lower income elderly households living on a fixed income. While many of these households might not be characterized as cost burdened in the demographic data discussed above since they have no monthly mortgage cost, they do not have the resources to undertake repairs to their property.
The U.S. Census recorded 50 persons in shelters in Milford as part of its S night enumeration. This includes people in the Beth-El Shelter as well as persons counted at other locations categorized as homeless facilities. According to the Connecticut Department of Social Service, during the 1993/1994 Federal Fiscal Year, the Beth-El Shelter served 195 unduplicated individuals. The shelter mainly serves homeless individuals--over the one year period 111 single males, 16 single females and 30 veterans utilized the shelter for at least one night. Family usage of the shelter included 30 families (19 female-headed) with 28 children under 17 years of age. The shelter generally operates at 100% of its 25 bed capacity with a waiting list of some 25 to 30 people per month which is equal to the capacity of the shelter. If one adds the capacity of the Beth-El Shelter to this wait list number, the total is generally comparable to the census estimate. The Consolidated Plan also identifies the housing needs of various sub- populations including persons threatened with homelessness, frail elderly, severely mentally ill, developmentally disabled, physically disabled and persons with AIDS and related diseases.
As of the date of preparation of the Consolidated Plan, there have been no specific surveys undertaken in Milford to determine the extent of the units containing lead-based paint. However, the City Health Department does monitor the extent of children tested and found to have elevated lead levels in their blood. During 1994 approximately 500 results of children tested for lead levels were received and reviewed by the Health Department.
In order to arrive at some estimate of the number of units in Milford occupied by low and very- low income households with the potential for lead-based paint hazards, a methodology based upon the age of housing was employed. Based on this method of calculation, it is estimated that 1,784 housing units in Milford occupied by very low or low income households contain lead paint.
Neighborhood Facilities - Milford's neighborhoods and residents are served by several neighborhood facilities including the Margaret S. Egan Center, the West Shore Recreation Center and the Fannie Beach Community Center. These centers serve low- and moderate- income areas of the City and also provide sites for specific programs for senior citizens and persons with disabilities who are categorized by HUD as limited clientele low- and moderate- income groups. The needs of these facilities vary in terms of scope and nature. However all needs relate to physical features of the facilities and the ability of the facilities to serve the users of the facility.
Infrastructure (streets, sewers, sidewalks, drainage) - The principle need in the area of infrastructure within target neighborhoods results from the fact that these neighborhoods were originally developed as summer cottage areas adjacent to the beach. This original development was undertaken without the installation of adequate infrastructure. As a result of this situation, the areas are impacted by localized flooding, lack of sidewalks and streets in need of re- construction. These conditions have a negative impact on the living environment in these neighborhoods.
Parks/Recreation - Many target neighborhoods are densely developed which can create the need for public parks and recreation areas to serve neighborhood residents. In addition, certain limited clientele facilities such as day care centers need recreation improvements to support the operation of these facilities.
Elimination of Blight - While not necessarily categorized as public facility needs in the strictest sense, there is a need to address the existence of abandoned, blighted buildings in target neighborhoods. These buildings are a blighting influence on the surrounding neighborhood and require public action to eliminate this condition. This situation can be addressed either through demolition or through rehabilitation (when economically and structurally feasible). When buildings are demolished, the result is the added advantage of the creation of additional open space in densely developed neighborhoods.
Public Services - The City of Milford has a well developed social services delivery system. This system involves a network of City departments and various service provider organizations. As part of the delivery of services, the members of the network are constantly assessing public and human service needs in the community. This assessment has resulted in a broad range of services focused on the needs of the elderly, youth, persons with disabilities and persons with substance abuse problems. The Milford Human Resources Development Agency coordinates a variety of federal, state and local programs in Milford intended to address these needs. This agency also serves as the Office of Youth and Family Services. The Milford Office of Elderly Services provides a wide range of services to Milford senior citizens. Both of these agencies are constantly identifying social service needs.
Economic Development - Milford's economic development challenge is to maintain and strengthen its economic base thereby providing employment opportunities for its residents and a solid tax base. This challenge has become greater with the recent economic recession and the adjustment of many major defense contractors in the region. In 1994, the Connecticut Department of Labor reported on average, some 600 dislocated workers in Milford, Many of these workers are in need of re-training to prepare for a changing work environment.
The City has an on-going economic development program which relies on
resources beyond those available through the CDBG Program. In general the needs
to be addressed by the CDBG Program relate more to employment counseling and
training needs than to direct assistance to business and industry. In addition,
these needs tend to be more concentrated among low- and moderate- income persons
who are the target beneficiaries of the CDBG Program. It has been determined
that direct assistance to individuals will also address other needs discussed in
this plan such as housing affordability.
Based upon previous housing and community development initiatives, an assessment of needs, citizen input, consultations with various agencies and individuals as well as recognition of potentially available resources, the City of Milford has established its priority needs and allocation priorities. These priorities are consistent with Milford's three primary goals which are:
These goals are consistent with the primary objectives of the National Affordable Housing Act which are to develop viable urban communities by providing decent housing and a suitable living environment and expanding economic opportunities principally for low- and moderate- income persons.
To meet its established housing needs, the City of Milford developed the following objectives for its Consolidated Plan Strategy.
The cost burden of housing is the primary housing need in Milford. With the recent economic recession, this cost burden has become even greater. This burden is particularly severe for very low income working households where income has been reduced due to either a cut back in work hours or the loss of a job by a member of the household. This reduction of income has increased the number of households at risk of becoming homeless.
When one considers that the 1990 census recorded Milford with 960 non-seasonal vacant housing units, it would appear that sufficient housing stock exists to meet the needs of the community. In addition, there is not a significant amount of sub-standard housing in the City. However, affordability within the housing stock continues to be a major issue. Therefore, the strategy to reduce the cost burden of housing with an emphasis on rental subsidies is logical.
In order to assure that the vacant housing units provide a resource for affordable housing, priority should be given to a program wherein vacant units in need of rehabilitation are provided assistance for rehabilitation which enables them to be made available at affordable rents. Where appropriate, such a program might include an acquisition and rehabilitation component.
There are 3,511 owner units in Milford occupied by elderly households. This represents almost 25 percent of all owner occupied units in the City. Many of these owners are financially unable to maintain and repair their units. This creates two distinct problems. Most directly, the elderly owners are often living in less than standard conditions. Secondly, the deterioration of these housing units adversely impacts on the total housing stock of the community. Many of these units represent an opportunity for an affordable home for first time home buyers when the current elderly homeowner no longer continues to reside in the property. If these properties become deteriorated, the cost of rehabilitation combined with the purchase price might create a situation wherein a property is no longer affordable. In addition to rehabilitation assistance, support services such as financial counseling and house sharing programs should be researched. The potential exists to match single person household renters with elderly homeowners to provide affordable housing for both groups.
While a primary need for housing assistance in Milford is the need to assist lower income renters, there is a need to provide a balanced housing program by providing homeownership opportunities. One approach to creating homeownership opportunities is in the form of mutual housing. This type of housing is common in Europe, but somewhat new in the U.S. This approach gives households the rights of tenancy in a housing complex which is mutually developed.
The City of Milford has over the last several years been fortunate to have had a group of concerned citizens addressing the issue of homelessness in the community. The Combined Parishes Action Committee, Inc. (CPAC) runs the Beth-El Shelter with a 25 bed capacity and the Soup Kitchen at St. Peters Church. These two facilities have provided services to those at risk of homelessness at the soup kitchen as well as shelter (up to 90 days) at Beth-El Shelter. As part of providing these services, there has been a recognition that additional segments of the continuum of care approach are needed. As a result of this assessment, CPAC has moved to expand its services with purchase of a building on New Haven Avenue for the location of an expanded shelter. The new shelter will expand capacity from 25 beds to 32 beds and it will have 3 family rooms. In addition, for the first time, transitional living accommodations will be provided with 7 to 10 beds available for residents to stay up to 18 months. In addition, the soup kitchen will be relocated to the new shelter to provide mid-day lunch to the public as well as meals for shelter residents. In order to assist shelter residents and others with life skills development, a series of day programs including vocational training will be offered. These programs will help people at-risk of becoming homeless as well as former and current shelter residents to live independently.
In addition to the services provided by CPAC at the Beth-El Shelter, there is a need to provide temporary housing for individuals and families who become temporarily homeless. In order to provide assistance to these people, the City proposes to continue its strategy of using CDBG funds to provide the Milford Chapter of the American Red Cross with the resources to pay for temporary housing and related services.
The City's non-housing community development objectives address the range of priority needs inherent in a strategy to provide a suitable living environment and expand economic opportunities principally for low-and moderate income persons.
The City of Milford has established as a primary objective of its CDBG Program the improvement of a range of public facilities intended to support neighborhood revitalization and to provide services to target groups. These target groups are primarily the elderly and youth of the community. These improvements will include neighborhood centers, recreation centers and playgrounds.
In support of its neighborhood revitalization effort, the City shall use CDBG funds to undertake needed infrastructure improvements. These improvements shall be limited to eligible low- and moderate- income areas where such needs have been identified as an adverse impact on the environment. This needs assessment and allocation of funding shall be coordinated with the City's capital improvement program process. Generally, the focus of such improvements shall be on street reconstruction as well as sewers and drainage improvements.
Based upon its needs assessment, the City of Milford has identified specific segments of the community most in need of supportive social services. These groups include the youth, elderly and persons with disabilities. Programs may include transportation for the elderly and those with disabilities, specific counseling services to those with disabilities, services to victims of domestic violence and literacy education services.
Within Milford's target neighborhoods there is a need to eliminate the blighting influence of dilapidated structures. Several of Milford's neighborhoods were originally developed as summer areas. Many of these former summer cottages were not properly converted to year round use or were used for year round occupancy without any improvements. Often, these properties were owned by absentee owners and rented with little care as to maintenance. Eventually many structures were vacated and left in a dilapidated condition with a blighting impact on the surrounding area. Methods to address this issue may include acquisition and rehabilitation or acquisition and demolition. Lots remaining after demolition will be used for off-street parking, open space or sold to adjoining owners based upon the specifics of the property.
The City of Milford has an active economic development program intended to create investment in the community in order to generate employment opportunities and strengthen the tax base. This effort is primarily implemented with state and local resources which leverage private investment. As part of this economic development strategy, the City does utilize CDBG resources for employment training programs and counseling in the workforce. The focus of these efforts is on resume assistance and job counseling for unemployed adults as well as counseling for students between the ages of 16 and 20. This counseling is targeted towards economically disadvantaged students and students with learning disabilities.
The City of Milford attempts to address the issue of poverty in its population through the use of the limited resources under its control. Programs intended to address poverty are generally in the control of state or federal agencies. In order to address poverty among those groups where the incidence of poverty is highest, the City has utilized its limited CDBG funds available for public service programs through the Human Resources Development Agency. These programs have included an employment and training program offering counseling to unemployed persons. In addition, the City attempts to coordinate its social service programs in order to maximize the impact of limited resources. The City also aggressively pursues increased resources from the other levels of government.
The City of Milford coordinates the delivery of programs and services to
meet identified housing and community development needs through its Department
of Community Development. The CDBG Coordinator within that department is
responsible for the overall management of CDBG funded activities as well as
coordination with other city department and agencies. The CDBG Coordinator
participates in the Milford Social Services Network which meets monthly to
discuss social service needs and to coordinate the delivery of services.
Coordination in terms of housing needs and programs is provided through the
Milford Housing Partnership as well as an on-going working relationship with the
Milford Housing Authority and the Beth-El Shelter. CDBG funds have been used to
support housing activities by the Housing Authority as well as homeless housing
efforts by Beth-El Shelter. When combined with the CDBG funded housing
rehabilitation program administered by the Department of Community Development,
these various programs provide for a full range of housing initiatives.
The following is a list of the City of Milford's 1995 Action Year activities and a brief description of each activity.
The attached maps show the location of activities to be carried out during the Fiscal Year 1995 Action Year.
The Milford Department of Community Development will be responsible for administration of all CDBG funded activities during the Action Year. Some of the proposed activities will be implemented by other agencies and/or city departments on a sub-recipient basis.
The Action Plan establishes a goal of 15 units to be rehabilitated with CDBG funds. In addition, a goal of 25 additional units of Section 8 Vouchers has been established. An estimated 70 persons will be assisted under the Emergency Shelter Program administered by the Red Cross. Assistance will be provided to Beth El Shelter to increase the capacity of its soup kitchen. Also, assistance will be provided to Mutual Housing to increase the supply of affordable housing.
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 in addition: a table provides information about the project(s).
MAP 6 depicts neighborhood streets and proposed HUD funded projects, as described in the table under MAP 5.
