Economic prosperity during the early and mid-1980s drew thousands of southeast Asians and other immigrants to Lowell, Massachusetts. However, between 1988 and 1992, Lowell experienced extreme economic hardship, losing 22 percent of its jobs. Today, both long-term and new residents have been affected by cuts in social programs, increasing crime, and worsening economic conditions.
Safe affordable housing was a major issue for residents and city officials who developed comprehensive strategies to improve the quality of life in Lowell and to ensure a healthy future. During the first year of the Consolidated Plan, Lowell will use $3 million in Community Development Block Grant (CDBG) funds, $993,000 in HOME Investment Partnership Program (HOME) funds, and $96,000 in Emergency Shelter Grant (ESG) funds.
The community-based planning process began in August 1994. The Division of Planning and Development (DPD) was the lead agency responsible for overseeing the development of the Consolidated Plan. To identify community needs, DPD organized focus groups with five CDBG-eligible neighborhoods. To further define neighborhood needs, DPD also held more than 70 meetings with neighborhood groups from other parts of the city.
The first public meeting was held in January 1995 to verify neighborhood
needs and to develop a list of citywide priorities. In February another public
hearing included: residents, neighborhood groups, homeless and human service
providers, city department heads, local development agencies, the local housing
authority, housing advocates, and DPD staff. In March a public notice published
in the local newspaper announced that the draft Consolidated Plan was available
for review and comment.
The 1990 census reported that Lowell's population was 103,439, reflecting a 12-percent increase since 1980. The city's minority population also increased, rising from 5 percent of the total population in 1980 to 23 percent in 1990. Three census tracts had minority concentrations greater than 50 percent. The 1990 racial and ethnic breakdown was as follows:
In 1990 Lowell had 37,019 households, consisting of 26,689 families. The average household size was 3.3 persons. There were 10,165 one-person households, and 4,178 persons (4 percent) lived in group quarters. Female-headed households constituted 26 percent of all households, and two-thirds of them had children.
During the 1980s the poverty rate for families increased by 46 percent. In
1990, 30 percent of children, 18 percent of individuals, and 14 percent of the
elderly were living in poverty.
Between 1988 and 1992, major industrial plant reductions and closings in Lowell and surrounding areas left large segments of the workforce unemployed. Lowell's rapidly declining economy is reflected in its unemployment rate, which grew from 5.5 percent in 1989 to 7.8 percent in 1994. The unemployment rate increased as local industries that subcontract with larger firms required fewer unskilled and semi-skilled laborers. Another factor contributing to unemployment is the language barrier. About 52 percent of the Asian-American and 33 percent of the Hispanic populations do not speak English, linguistically isolating themselves from the mainstream workforce.
Current social conditions create an environment that can adversely affect youth and potentially lead to involvement with the criminal justice system. The level of teenage gang activity suggests the need for a comprehensive community-based approach to rectify law enforcement and social problems. The following statistics reflect Lowell's current social environment:
Lowell has 40,122 occupied housing units, and 67 percent of them are renter-occupied. Because the supply of affordable rental units is limited, many families need rental assistance. Furthermore, the few available units are usually in economically depressed areas of the city, which are often characterized by abandoned units and high crime rates.
Prospective first-time homebuyers, such as new immigrants and young families, need homeownership opportunities.
Lowell has 42,914 housing units. Owner-occupied units constitute 37 percent of all housing units; rental units constitute 49 percent; and vacant units constitute 14 percent. Although the high vacancy rate suggests that an adequate supply of housing exists, most of the available and affordable rental housing is substandard, while the available ownership housing is priced beyond the affordability range of low-income residents.
In 1990 the median value of a home was $137,675. Of all housing units, 14 percent cost between $75,000 and $100,000, while only 2 percent cost less than $50,000. The median contract rent was $494 per month.
Although 33 percent of the city's households are very low-income (earning less than 50 percent of the median family income), only 12 percent of the available housing units are subsidized. Furthermore, the market-rate units that this income group can afford are often substandard.
Both renters and owners have housing problems. Currently, 36 percent of all households are cost burdened, spending more than 30 percent of their gross income for housing expenses. Minority households show a disproportionate incidence of housing problems, including cost burdens, poor-quality housing units, and overcrowded conditions. Among the Asian-American population, many families have either no experience with credit systems or no credit histories, making homeownership difficult to achieve.
Lowell has an estimated 1,011 homeless persons, with 642 persons composing 310 families. Of the homeless population, 35 percent have special needs related to problems of domestic violence, and 23 percent have needs related to substance abuse. Of the 642 sheltered family members, 40 percent are white; 26 percent are African American; 32 percent are Hispanic; and 2 percent are Asian American. Of the remaining homeless individuals, 75 percent are white; 11 percent are African American; and 14 percent are Hispanic.
Four emergency shelters, with the combined capacity of 186 beds, serve the needs of the homeless population. Lowell also has day shelters, soup kitchens, and other facilities that assist the homeless.
The Lowell Housing Authority (LHA) manages 2,239 public housing units. LHA provides 991 individual and 20 congregate units for the elderly. LHA also administers a Section 8 rental assistance program, offering 1,270 vouchers and certificates.
Currently, 5,246 households appear on LHA's combined waiting lists. Of this total, 3,581 households appear on the public housing waiting list, while the remaining 1,665 households appear on the Section 8 waiting list, which has been closed since 1991.
Housing affordability is primarily an economic issue. The city's policies and zoning ordinances -- including its tax structures, land use controls, building codes, development fees, and growth limits -- do not impede the development of affordable housing. Although the absence of specific zoning and code regulations for shelters has delayed development of such projects, shelters are often reviewed under existing boarding house regulations. The city has considered formulating specific regulations for shelters and transitional housing programs.
Based on the age of the housing stock, an estimated 31,488 units (79 percent) may contain lead-based paint. Insufficient financial assistance for lead-based paint abatement, inadequate temporary housing during the abatement process, and a limited supply of code inspectors have prevented the city from dealing with the lead-based paint issue.
Lowell estimates that between 3,548 and 4,131 persons have some type of disability, such as a psychiatric, developmental, or physical disability. Nearly 16 percent of all adults with disabilities live below the poverty line. Currently, 461 households appear on the waiting list for rent subsidy. Some of these households also need accessible housing units or supportive services.
A number of vacant and abandoned housing units could be converted into affordable housing if code enforcement and neighborhood revitalization were used to make neighborhoods more desirable. Historic preservation can also be used to improve neighborhoods.
Although increasing crime and drug-related incidents have led to the creation of a community policing program, communities must participate more, and neighborhoods must improve communication with police. The city needs to develop youth centers that provide recreational, educational, and cultural opportunities.
Infrastructure improvements are needed, including: better traffic management, sewer replacements, removal and replacement of dead trees, and the installation of guard rails and fencing. Accessibility improvements are needed in city hall, the civic center, the Pollard Memorial Library, and the Smith Baker Elderly Center. The city also needs to add curb cuts to public sidewalks.
The elderly and single-parent families need supportive services. The social and health service needs of youth should be assessed, and alternatives to gang involvement should be investigated. Recent immigrants need programs that will help them to assimilate into the mainstream community.
The city's financial and economic conditions have worsened during the past
year. The current unemployment rate is 8.3 percent, and many of the existing
small businesses provide only unskilled low-wage jobs. The unemployment rate
among minorities is nearly 50 percent. Low-income women and welfare recipients
need practical job opportunities that will help them to achieve economic
self-sufficiency.
Lowell has established the following housing and community development priorities:
To support its housing priorities, Lowell will implement the following strategies:
Lowell has established the following high-priority community development needs:
Lowell has established the following medium-priority community development needs:
Lowell is committed to reducing the number of households living below the poverty level. The U.S. Department of Housing and Urban Development (HUD) has recently designated Lowell as an Enterprise Community, giving the city priority whenever applying for Federal and State grants. In addition, the city will actively pursue economic development, promote public-private partnerships that improve the business climate, create employment opportunities, and improve neighborhood and downtown areas.
To increase employment skills, the Lowell School Department offers evening and adult basic education classes. The Greater Lowell Regional Vocational School also provides numerous vocational and educational programs.
In addition to CDBG, HOME, and ESG funds, the city will use Section 108 and Enterprise Community funds to meet its housing and community development objectives. The city will also utilize State, local, and nonprofit resources.
DPD administers the Consolidated Plan funds allocated directly to the city.
DPD staff will be responsible for individual projects, which will be assigned
according to the manager's designated area of supervision. The entire DPD staff
will manage activities that integrate funding resources, maximizing expertise
and ensuring that Consolidated Plan projects are monitored in compliance with
HUD regulations.
For this first year of the Consolidated Plan, Lowell will use $3.3 million in CDBG funds, including $275,000 in program income. HOME funds will provide $993,000, and Emergency Shelter Grants will provide $96,000. The city has proposed the following key projects:
The majority of Lowell's housing and community development programs provide citywide benefits. The remaining programs target low-income census tracts as well as low- and moderate-income neighborhoods, such as the Acre, Centralville, Lower Belvidere, and the Lower Highlands. The program to remove architectural barriers focuses on the central business district.
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).
