Boston, Massachusetts, is the capital of the State, and has a history extending back to the early colonial period. The city is widely known as a center of education and culture.
To implement its Consolidated Plan in the first program year (covering the period of July 1, 1995 through June 30, 1996), Boston expects to have $33,699,000 from the Community Development Block Grant (CDBG) program, $7,293,461 from the HOME Investment Partnership Program (HOME), $1,709,000 from the Housing Opportunities for Persons with AIDS (HOPWA) program, and $896,000 from the Emergency Shelter Grant (ESG) program. These amounts include the 1995 allocation, funds from prior years, and income expected from program activities such as repayment of loans.
Three public hearings, attended by 150 people, were held in January to
solicit citizen input on the city's Consolidated Plan. In addition, City staff
conducted extensive consultation with a variety of organizations and
neighborhood groups, including housing providers, homeless service providers,
and other city agencies. The draft plan was made public in April, and a final
public hearing was held in May 1995.
The 1990 population of the city was 574,283 persons, a 28 percent decrease from the 1950 population peak. One-quarter of Boston residents are African American and two out of five are members of a racial or ethnic minority. The ethnic composition of Boston's population changed significantly between 1980 and 1990, with the proportion of whites decreasing by 11 percent, the Asian-American population doubling, the Hispanic population increasing by 65 percent, and the African-American population increasing by 13 percent.
The 1990 median family income (MFI) for the city was $34,377. Of the 227,958 Boston households (and based upon the MSA median family income of $49,265), 36 percent have incomes below 50 percent of MFI (very low-income), 12 percent have incomes between 51 and 80 percent of MFI (low-income), and 8 percent have incomes between 81 and 95 percent of MFI (moderate-income).
While Boston realized a 2 percent increase in population during the 1980s,
the number of persons in poverty in Boston declined by nearly 4,700 persons,
making Boston's poverty rate slightly improved relative to other major U.S.
cities. Violent crime has also declined more dramatically in Boston since 1990
than in any other major U.S. city, while its population was among the few of
northeastern cities to increase since 1980.
In the past decade, there have been substantial economic setbacks in Boston, including major declines in real estate values. In 1990 and 1991, Boston experienced major job losses, including 15,000 in professional services and 7,000 in banking. Construction and manufacturing jobs each decreased by about 40 percent. However, at the same time, some industries in Boston (e.g. health care) showed strength during the recession. In spite of economic setbacks, Boston has seen a slight rate of decrease in crime and poverty than most major cities in the past 15 years.
The U.S. Department of Housing and Urban Development (HUD) defines housing problems as an overcrowded unit, a household payment of at least 30 percent of income on housing, or physical deficiency of the unit (e.g., lacking complete plumbing). Of the 69,129 very low- income renters and 13,709 very low-income homeowners, 69 percent and 65 percent, respectively, reported housing problems in 1990. Of the 20,570 low-income renters and 7,391 low-income homeowners, 60 percent and 26 percent, respectively, also reported housing problems. Among rental households at all income levels, 68 percent of large, related households (five or more persons) and almost half of elderly households experienced housing problems. The local housing problems in Boston include the insufficient range of affordable housing and the poor condition of its older housing stock.
During the late 1980s, more new housing was produced in the city of Boston than in any other U.S. city of comparable size; 17,760 net units have been produced since 1984. Assisted housing programs developed 8,030 units, of which almost half were sponsored by the city. The decline of the Boston real estate market in the 1990s has made housing development much more difficult, although additional affordable housing is needed. Real estate foreclosures, epidemic in the early 1990s, are still common and have a negative impact on tenants.
Housing values are 25 to 35 percent below the market's high point. The median non-subsidized contract rent for a two-bedroom apartment in the fourth quarter of 1994 was $912.
Of the 250,868 housing units in Boston in 1990, 60 percent were built more than 50 years ago and 58 percent were considered to be substandard. The vacancy rate for rental housing was more than 7 percent in 1990; the rate for salable units was almost 3 percent. Four out of 10 units are in buildings that house 2 to 4 families; only 1 in 10 is a single-family unit. Condominiums make up 14 percent of housing units in Boston. Almost two-thirds of all condominiums are rented out by investor-owners, while one in six are being foreclosed and/or owe city taxes.
Sixty-six percent of very low-income renters, 52 percent of low-income renters, 47 percent of very low-income homeowners, and 23 percent of low-income homeowners spent at least 30 percent of their income on housing in 1990. Forty-four percent of very low-income renters and 10 percent of low-income renters paid more than half of their income for housing.
To give a sense of the size of Boston's housing needs, the plan notes that to meet the needs of Boston's renter households with "worst case needs", it would take more than one-third of the $2.8 billion in incremental Section 8 rental assistance allocated for the entire Nation. In addition, only 2.3% of this "worst case need" could be met if all of the estimated 549 Section 8 "fair share" certificates were awarded to Boston residents.
The city conducts an annual census of its homeless residents every winter. The homeless population is estimated to have increased by 10 percent from the winter of 1993-1994 to the winter of 1994-1995, to 5,299 persons. Homeless families are becoming more common. The homeless are increasing in most categories -- battered women, substance abusers, and persons with HIV/AIDS -- but fewer people are accessing the shelter system through the mental health system, (which reflects, in part, State policy and eligibility changes in the mental health system). Substance abusers with HIV/AIDS are one of the fastest growing segments of the Boston homeless population.
Shelter units available have increased dramatically since the early 1980s. The number of shelter beds in Boston was estimated at 5,149 as of late 1994. In addition, 119 units of permanent housing for the homeless were made available in 1994. A number of additional services for homeless people are provided by non-profit and city agencies. Housing counseling to prevent homelessness is also funded by the city.
There are 46,034 housing units in Boston that are subsidized by a Federal, State, or local program. These units represent 18 percent of the total housing stock. The Boston Housing Authority (BHA) provides housing assistance in the following categories -- 11,303 units of public housing for families, 3,841 units of public housing for the elderly, and 10,296 leased units. There are 24,282 households on waiting lists for BHA-assisted housing. BHA has 351 units that are accessible for disabled persons, and another 93 are planned as part of its modernization program. BHA will be reducing the number of units at several public housing developments by reconfiguration and some demolition.
BHA also administers 7,736 units of tenant-based assistance provided by the Federal Section 8 program. This program assists eligible low-income households in paying an affordable rent for a privately owned unit in good condition that they have selected. As of March 1995, there were 50 vacant, project-based Section 8 units and 472 unleased Section 8 certificates or vouchers. Also as of March 1995, 678 of Boston's mobile Section 8 recipients had chosen housing outside the city of Boston, representing about 11 percent of the city's Section 8 portfolio.
Rent control has been abolished statewide, which will have a negative impact on tenants. A mayoral task force has been created to examine the issue.
The city has noted racial bias as a barrier to affordable homeownership. Housing counseling programs are being conducted in neighborhoods with large ethnic minority populations to mitigate this problem.
Based on the age of Boston's housing stock, it is estimated that 85 percent of the city's housing units contain lead-based paint. (The use of lead in paint was banned in 1979.) More than 85 percent of all children in Boston are tested for lead poisoning. From this testing, four neighborhoods have been identified as having a high risk of lead hazards.
There are a number of non-profit organizations, supported by the city, which
provide housing with support services for elderly and frail elderly persons, the
mentally ill, substance abusers, battered women, and persons with HIV/AIDS.
Together they provide more than 600 units of housing. The need for housing for
persons with HIV/AIDS is estimated to be 2,000 units. About 6,000 disabled
and/or elderly persons need housing adaptations to remain independent in their
own homes. In 1991 the Massachusetts Department of Mental Health estimated that
there were 1,848 households with at least 1 severely mentally ill member who
were in need of supportive housing.
The city has a much higher share of affordable housing than most neighboring jurisdictions. In the opinion of the city, if other jurisdictions met their obligations under the State "anti-snob zoning" policy, there would be adequate housing to meet the most serious needs in Boston. Other important elements in improving the housing situation in Boston would include reducing poverty, increasing homeownership among lower income households, revitalizing neighborhoods, and supporting lower income homeowners.
High-priority housing activities for the city include providing housing assistance to the following types of low- and very low-income households:
The priorities in assisting homeless persons, since emergency shelter needs are mostly met, are to provide more permanent affordable housing, services for substance abusers, transitional services for families, and employment and economic development programs. In addition, the city will seek to increase homelessness prevention services and services to stabilize the situations of recently homeless persons.
Priorities for assisting persons with special needs include: supportive housing for persons with HIV/AIDS, persons with severe mental illness, and frail elderly persons.
The highest community development priorities for Boston include: economic development (improvements to commercial districts and technical assistance to businesses and non-profit economic development organizations), public service needs (adult education, youth services, child care, social services, special education, housing counseling, youth employment, and public safety), and public facility needs (improvements to health centers, repairs to non-profit facilities, recreational improvements, and improvements of public facilities in neighborhood business districts).
Boston is committed to its Neighborhood Partnerships Initiative and its Urban Enhanced Enterprise Community. To enable the City to enhance its overall neighborhood revitalization efforts, Boston is pursuing HUD's approval of a neighborhood revitalization strategy for additional focus on three low-income residential areas that are participating in ongoing revitalization programs -- the Expanded Enterprise Community Revitalization Area, the East Boston Revitalization Area, and the Allston-Brighton Revitalization Area. The City's major efforts will be to support the Expanded Enterprise Community Revitalization Area, which is comprised of the core area of the HUD-designated, 72 census block group Urban Enhanced Enterprise Community (EC) and its surrounding area of 131 census block groups. Had it not been for the requirement that no more than 10% of the City's population be located in the core area, the surrounding 131 census block area would have qualified for HUD's EC designation as well.
While the city contends that only a national strategy can genuinely end poverty, it will make efforts to provide community services to assist families in attaining self-sufficiency, including education, child care, coordinated social services, and job training. The city supports Action for Boston Community Development, Boston's anti-poverty agency, and activities through the Urban Enhanced Enterprise Community, and promotes the use of Federal anti-poverty resources such as the JTPA (Job Training Partnership Act), the Earned Income Tax Credit and rental assistance through the Moving to Opportunity program.
In addition to the CDBG, HOME, ESG, and HOPWA programs, the city plans to have access to a variety of other Federal programs such as the Section 108 Loan Guarantee, Lead-Based Paint Abatement program, Youthbuild, Shelter Plus Care program, HOPE 6 public housing rehabilitation fund, and Social Services Block Grant. State resources available to the city include: the Housing Stabilization Fund, [Chapter 494] State public housing modernization, Community Development Action Grant, Urban Initiative funds, and Massachusetts Rental Voucher program. The city will be contributing more than $5 million in capital and operating funds.
It is noteworthy that the City has also leveraged a significant amount of other private resources. Seven Boston banks recently agreed to set aside $5 million each for commercial lending in the enterprise community area -- providing $35 million over 5 years. In addition, the Local Initiative Support Collaborative has earmarked $60 million in equity investment for affordable housing projects in the city developed by community development corporations in conjunction with the Low Income Housing Tax Credit.
Housing and community development programs in Boston are run [by] through three agencies, grouped under the direction of one of the Cabinet officials known as the Chief Economic Development Officer, who reports directly to the Mayor. The three agencies include: the Boston Housing Authority (BHA) which administers public housing and the other assistance programs; the Boston Redevelopment Authority (BRA) which oversees zoning and activities in urban renewal districts; and the Public Facilities Department which administers Federal grant funds.
Coordination of the strategic plan involves the agencies included under the
Cabinet head for Economic Development. In addition, the City's activities are
extensively coordinated with the Community Advisory Board of the Urban Enhanced
Enterprise Community area, and the strong and experienced networks of for-profit
and non-profit developers and social service agencies, including 20 CDCs and
CHDOs. Their roles are significant in many revitalization efforts, such as the
Blue Hill Avenue Initiative, the Boston Main Streets Program, and the
HouseBoston Program with Fannie Mae.
The following is a small sample of projects expected to be underway by the city in the first program year of its Consolidated Plan:
The city's Public Facilities Department is the lead agency for developing and implementing the Consolidated Plan. Under the direction of the Economic Development Cabinet official, the department coordinates support for the preservation and revitalization of Boston's neighborhoods.
In the first year of its Consolidated Plan, the city plans to provide downpayment grants for 395 homebuyers, issue closing-cost certificates to 2,600 potential homebuyers, provide mortgage-interest subsidies for 300 mortgage loans, graduate 2,600 homebuyers from homebuyer education courses, provide post-purchase counseling to 1,339 course graduates, assist with repairs of 250 homes, aid in the acquisition and rehabilitation of 60 properties, help 35 homeowners with emergency rehabilitation, assist 585 elderly homeowners with minor repairs and extensive rehabilitation, abate lead hazards in 150 dwelling units, and conduct 100 home visits to educate households on lead-based paint hazards.
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.
MAP 6 is a map, sectioned by neighborhood, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 7 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the four neighborhoods indicated in MAP 6.
MAP 8 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of the four neighborhoods indicated in MAP 6.
MAP 9 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point; in addition, a table provides information about the project(s).
