Fall River, Massachusetts, like many other New England cities, had known prosperity as a successful textile center. However, changes in the economy as well as its population have forced Fall River to deal with unemployment, lack of affordable housing, and a myriad of other problems associated with a depressed region.
Fall River's Consolidated Plan calls for expenditures of $5 million of Community Development Block Grant (CDBG), HOME Investment Partnership (HOME) and Emergency Shelter Grant (ESG) entitlement grants. These will be supplemented by local matching funds, program income and State funds of almost $6 million dollars. The funds will be used for a variety of housing and community development projects emphasizing housing affordability, economic development, and improvement of community services and infrastructure to enhance the quality of life for low-and moderate-income residents.
Preparation of the Consolidated Plan relied heavily upon program beneficiaries and other Fall River residents for input into identifying their needs and strategizing solutions. These beneficiaries included very low- and low-income persons; public and private service providers; for-profit agencies; and community groups. Outreach efforts included public hearings, follow-up discussions, consultations, and published materials.
The Community Development Agency of Fall River, as lead agency for development of the plan, brought together 63 municipal departments, agencies, individuals, CDBG, ESG, and HOME Program recipients, nonprofit corporations, neighborhood groups, and regional agencies and organizations in order to achieve as diverse a representation and participation as possible.
MAP 1 depicts points of interest in the jurisdiction.
Located in the southeastern corner of Massachusetts, the city of Fall River has a population of 92,703 persons in an area of 38 square miles. The density of this population can be seen by the census rates of 2,426 persons per square mile in Fall River as compared to 741 per mile statewide. From 1980 to 1990, the population grew just 0.1 percent, but this did reverse a trend of population decline.
Between 1980 and 1990, Fall River saw significant growth in the population groups age 25 to 44 and over 65. Those over 65 make up 18 percent of the population (16,527). Another 18 percent are nearing retirement age, as they were 45 to 64 in 1990.
Most of its population is white (96 percent), with only 1 percent black, 1.7 percent Hispanic, and less than 1 percent Native American or Asian. During the decade of the 1980s, the white population decreased by 1.4 percent while the small black, Asian, and American Indian populations grew disproportionately. The highest percentage of minorities lived in the center of the city, but there are no areas of significant minority concentration.
One in five Fall River residents was born outside the United States and 37 percent speak a language other than English. The percentage of persons living in Fall River who have completed high school and four years of college are well below state levels. In 1990, only 8 percent of the residents had completed college compared to 27 percent throughout the state.
Median household income in the city was $28,972 in 1980. According to the 1990 census, 38 percent of Fall River's 37,303 households were very low-income (income 0 to 50 percent of median family income), 18.8 percent were low-income (51 to 80 percent of median), 8.8 percent were moderate income (81 to 95 percent of median), and 34.4 percent had incomes above 95 percent of median. Seven census tracts, located in the central part of the city, are considered areas of low- and moderate-income concentration.
Fall River's unemployment rate has consistently been about double the state average. The city did not share fully in the "Massachusetts Miracle" of job growth in the 1980s, and the 1990 and 1991 recession was felt more deeply in the city, where nearly 5,000 jobs were lost over the two-year period. Since then, 401 manufacturing jobs were added, in contrast to state and national trends. As of January, 1995, the unemployment rate was 14.8 percent.
However, only 68 percent of Fall River's households rely on any form of wages and salary income. More than 33 percent of households receive social security income and almost 16 percent receive public assistance.
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.
Fall River is similar to many other New England cities in that it has experienced swings in prosperity over the past 100 years. Following World War II, even though new housing was built to replace old structures, there was little growth in the city's population. During the 1980s there was considerable rehabilitation of older homes and construction of new, mostly subsidized multi-family structures. At present, there are high vacancy rates and reduced housing prices. Since the average age of the housing stock is 30 years, more rehabilitation is required. However, because of the depressed economic conditions of the area, few residents can afford to make these repairs or maintain properties.
The 1990 census reported 40,375 housing units, 67 percent of which are occupied by renters. Of the 3,072 vacant units, 7.3 percent were rental units and 1.4 percent were for sale. Eleven percent of owner-occupied and 14.5 percent of renter-occupied units are classified as physically substandard, but most are suitable for rehabilitation. The city's stock of affordable housing for sale, as shown by the relatively high vacancy rate and low prices, is an attraction for young families.
In assessing housing needs Fall River developed its own definition of physical condition. Officials assume that it is safe to say that a disproportionate number of very low income families are living in substandard housing since areas of low-income concentration are also areas of substandard housing.
Extremely low-income households ( 0 to 30 percent of median) are most likely to have housing problems, and these problems usually relate to cost burden. Within this income range, 68 percent pay more than 30 percent of income for housing and 43 percent pay more than 50 percent. Among renters, 70 percent of the extremely low income pay more than 30 percent of income for housing. About 72 percent of large families with extremely low incomes have housing problems, which also may include overcrowding.
Among low-income households (31 to 50 percent of median) 51 percent have some housing problems, 48 percent pay more than 30 percent of income for rent, and 13 percent pay more than 50 percent. Again within this group, renters are more likely to have housing problems than owners, and one-third of large families are overcrowded. Some members of minority groups suffer disproportionately from housing problems.
As might be expected, moderate-income families are noticeably better off than those with low incomes; only about 21 percent have housing problems. Even among renters less than one-fourth have housing problems. Minorities in this income group do not have disproportionate housing problems.
There is a growing need for assistance for first-time homebuyers in Fall River. The influx of newcomers, especially members of minority groups, includes younger families, the traditional source of homebuyers. Many of these families have limited income and lack experience in homeownership. Financial counseling can help them have the best opportunity to acquire and hold on to their own home.
In addition, some of the growing elderly population within the community requires modifications to existing housing units in order to provide supportive services. At the present time, there are no assisted-living developments in Fall River.
The annual survey of the homeless population by the Community Development Agency found 62 persons, 43 individual adults and 8 families, during one night. The majority were substance abusers or victims of domestic violence, two populations that require special services. Emergency shelter operators identified a scarcity of affordable housing as a contributing factor for the increase in the length of stays at the centers.
Although there are four agencies for the homeless in Fall River--Our Sisters' Place, Family Resource Center, the Stanley Street Treatment and Resource, and Steppingstone--there still is need for expanded services and space. Providers cited a strong need for transitional housing with appropriate support services, including persons with AIDS or related diseases, mental illness, and alcohol and drug addiction.
The Fall River Housing Authority (FRHA) has 2,705 units in 28 developments, including 1,267 elderly/disabled units in 11 public housing developments. However, there were 160 vacant units among this inventory due to water or fire damage repairs, routine rehabilitation, or normal turnover. Fall River Housing Authority has a waiting list of 1,003 households seeking family units and 399 seeking units for the elderly. The publicly-owned stock generally is in good condition. Since the average age of structures is 30 year, however, considerable modernization and rehabilitation is needed. A $2.1 million energy improvement project and $20 million Comprehensive Grant Program are underway.
There are five private housing developments, totaling 626 units, in Fall River which are subsidized through Section 8 certificates. Additionally, the FRHA administers 2,080 tenant-based certificates, 235 Massachusetts Rental vouchers, and 40 state rental vouchers in conjunction with the Massachusetts Departments of Mental Health and Mental Retardation. The waiting list for Section 8 tenant-based vouchers and certificates has 1,212 names.
The South Shore Housing Development Corporation, a regional non-profit housing corporation, manages 120 Section 8 certificates and one Massachusetts Rental Voucher.
The somewhat depressed housing market in Fall River offers both impediments and opportunities. Affordable prices offer opportunities, but continuing market depression could result in disinvestments and neighborhood decline. There are no public policies, such as land use controls, zoning ordinances, building codes, growth limits, taxes, or court orders that affect either the cost of housing or the incentives to develop affordable housing. Concerns have been expressed that scarcity of affordable land and escalating costs of construction could have an adverse effect on availability of affordable housing in Fall River.
The City of Fall River established the Community Housing Resource Board (CHRB) to serve the fair housing and equal opportunity needs of its residents. CHRB provides education of fair housing rights, monitors discrimination complaints, and offers tenant and first-time homebuyer counseling services.
Lead-based paint is the primary environmental concern in Fall River's housing stock. According to a 1990 census, there are 22,063 housing units in Fall River which were built before 1980, making them the most likely to contain lead-based paint. From July 1993 to June 1994, there were 24 cases of children confirmed as lead poisoned. Approximately 55 percent of the children at risk are tested yearly.
The city is aggressively pursuing a policy of reducing lead-based paint hazards through inspections for the CDBG, HOME, Rental Rehabilitation, and Emergency Shelter Grants programs and encouraging owners to use the MHFA Lead Paint Abatement Loan Guaranty program. Although Fall River's application for funding under the Massachusetts Executive Office of Communities and Development/HUD Lead Abatement Program was not selected, the city will reapply when new funds are available.
The State Department of Mental Health provides services to individuals with severe mental illness, including supervision of residences for individuals whose condition requires that they have access to trained staff at all times. At present the department operates 115 spaces in Fall River.
The southeast Center for Independent Living assists physically disabled individuals in living as independent a life as possible. There are hundreds of full accessible subsidized housing units in Fall River, but almost of them are in elderly housing developments. Now 153 persons under 60 live in seven federal complexes for the elderly, a mix that has led to friction. Managers now are allowed to limit occupancy to elderly disabled, but this presents a shortage of units for non-elderly. The Housing Authority has proposed the construction of 60 new units of public housing for young, handicapped persons.
Fall River has nearly 300 miles of street, including major thoroughfares, that are deteriorated and in need of resurfacing or reconstruction and that have a blighting influence on neighborhoods. A major portion of the city's water delivery system is nearly 100 years old. Severe encrustation has reduced the flow significantly, affecting both water quality and the integrity of the system for fire protection. Many water meters are obsolete and inaccurate. Most of the Fall River Fire Department stations and apparatus are old and deficient for best fire protection. Twelve city parks and 14 playgrounds cover about 341 acres. Extensive use and substantial vandalism have left them in various stages of disrepair. Landscaping and upgrading for a wide variety of recreational uses for all ages is needed.
Service needs include more accessible neighborhood library services, health and dental services, child care and child development services, senior centers, and a more visible police profile. The Cambodian refugee community needs access to transportation, health services and a variety of other services related to their refugee status.
Seven purposes and objectives have been identified in developing a comprehensive strategy for using limited resources to address housing problems of low- and moderate-income citizens:
The Consolidated Plan identified several nonhousing community development investment priorities:
Fall River works in close partnership with the private sector to create employment opportunities that address poverty in the area. The Office of Economic Development assists existing industry and business while also attracting new firms. Low-interest loan mechanisms, job training programs, and technical assistance are available to create employment opportunities, principally for low- and moderate-income individuals.
Citizens for Citizens, Inc., the city's community action agency, has developed programs designed to alleviate poverty and assist with:
A coordinated partnership has been formed between various agencies and organizations, such as: the Fall River Affordable Housing Corporation; Affordable Residential Financing, Inc.; Community Housing Resource Board; Residential Care Consortium, Inc.; Steppingstone, Inc.; Our Sisters' Place, Inc.; Stanley Street Treatment and Resources; St. Anne's Hospital; and the South Shore Housing Development Corporation. Providing housing for individuals with special needs are Bristol Elder Services, Southeast Center for Independent Living, Fall River Community Development Service Center Inc., and Citizens for Citizens, Inc.
The Community Development Agency and the Fall River Housing Authority are the major actors in implementing the city's housing strategy. While private industry is not directly involved in the strategy, many nonprofit corporations contribute to its implementation.
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; as well as, provides a table with information about the project(s).
To accomplish its strategic goals, Fall River will make use of Federal entitlement funds of $3,798,000 from CDBG, $125,000 Emergency Shelter Grant, and $1,077,000 from the HOME program during the first year of the Consolidated Plan. It can be reasonably anticipated that these Federal funds will generate $1,029,290 in matching funds, $2,2995,000 in program income and $2,652,500 in other income from State, local, and other non-Federal funding sources. Among the key projects are plans to:
