Lynn, Massachusetts is a historic, diverse and vibrant city located directly on the Atlantic Ocean, eleven miles north of Boston. While Lynn has been impacted by the same economic forces which have hurt other older small cities in the Northeast, the community is working hard to build on its strengths and to promote prosperity and economic growth in the 1990s and throughout the next century. Lynn residents, business owners and municipal officials have worked together to design a series of comprehensive strategies to rejuvenate and revitalize the City. Programs and partnerships are in place to promote Downtown revitalization, establish an Arts and Cultural District, and address the development needs of youth.
In coordination with the Five Year Strategy for Housing and Community Development, the City of Lynn has developed a One Year Action Plan. The Action Plan represents the consensus vision of the Lynn community regarding the most effective utilization and prioritization of limited CDBG, HOME, and ESG funds which have a combined budget of $5,351,050. These funds are supplemented with existing resources which total $82.7 million in non-housing resources and $22.3 million in housing resources.
The City of Lynn has an extensive history of involving the entire community
in its community planning efforts. Lynn's Citizen's Advisory Board on Community
Development (CAB), an eighteen member, broadly representative group appointed by
the Mayor and the City Council, took the lead in developing recommendations for
the Consolidated Planning Process. In developing the Consolidated Plan, CAB and
City officials consulted with over fifty separate agencies, representing
virtually all sectors of the Lynn Community. The CAB held a public hearing in
January, 1995 to solicit citizen input to the Consolidated Plan. A second
public hearing was held by the Lynn City Council in May , 1995. In addition,
CAB members have established a schedule of monthly meetings involving a wide
range of citizens, business owners, government agencies and social service
agencies. These meetings will provide an opportunity to solicit citizen input
on community needs and for the City to update citizens and ensure that the
City's Consolidated Plan is periodically reviewed and revised to reflect
changing community conditions.
The City of Lynn, Massachusetts is situated approximately 11 miles north of downtown Boston. According to the 1990 Census, the current total population of the City is 81,245, an increase of 3.5 percent over the 1980 population.
Approximately 46.5 percent of the population falls into the low, very-low and moderate income categories. A comparison of 1990 population figures with 1980 figures shows a rapidly growing minority population. The minority population as a whole rose from 6 percent of total population in 1980 to 17 percent in 1990. Lynn school enrollment data shows the most rapid rate of growth has been in the Asian population.
The City has continued to experience an economic downturn due to the
national and regional economies. This has resulted in significant job loss and
negative pressure on the real estate market. At the same time, the City has a
great deal of strength in terms of its location, proximity to Logan Airport and
the vibrant nature of its diverse neighborhoods. Groups representing all
citizens have joined together to form a number of innovative partnerships to
promote economic development, improve the quality of education and job training
and reduce the levels of street crime and substance abuse.
Housing inventory statistics from the most recent 1994 Comprehensive Housing Affordability Strategy document identify a need for housing rehabilitation assistance. The City estimates that approximately 5,900 units of the total 31,554 occupied units require some level of rehabilitation. The City also has a significant number of vacant units (5,634) of which a large percentage require rehabilitation.
The City estimates that there are over $107 million in unmet housing needs in three priority categories. In an effort to stabilize the high levels of vacancy and abandonment, High Priority status has been assigned to the Owner Occupied categories of "cost burden > 30 percent" and "physical defects." Medium priority has been assigned to programs to correct physical defects for large, small and elderly renter households and to reduce the burden of overcrowding for large families.
The number of sub-standard units continues to be at unacceptable levels both for owners and renters (19 percent for renter units and 18 percent for owner units). The 1990 census indicates that 68 percent of the housing in the city was built prior to 1939 and that 68 percent of Lynn's population lives in older housing. Substantial numbers of these existing units can continue to provide safe, decent housing if they are properly rehabilitated and maintained.
The most serious deficiencies are found in the Comprehensive Revitalization Area (CRA) which runs though the mid-section of Lynn. Most houses in this area are three family homes on small lots. Almost 80 percent of these dwellings need of various degrees of rehabilitation.
A recent professional appraisal conducted in 1995 for the City of Lynn concluded that the City and the surrounding region are continuing to suffer the negative effects of the 1980s recession. According to the appraisal, this factor is particularly acute in the Lynn real estate market, where approximately 30 percent of residential rental properties are estimated to be vacant. (Note that this is a higher estimate than that obtained from census data.) For the more financially stressed properties, rent loss on vacancy rates is projected as high as 75 percent.
To compound this problem, Lynn has experienced an enormous level of economic dislocation over the past several years. Since 1989 alone, the City has lost a total of over 7,800 jobs according to 1994 statistics provided by the Massachusetts Department of Employment and Training. This accounts for almost 25 percent of the entire number of jobs, based on the 1989 starting point.
Of the 31,390 households in Lynn, 16,235, or 51.7 percent, have incomes less than 80 percent of the Essex County Median income of $30,330. The 1989 median income for Lynn was $28,553.
Between 1980 and 1988, the growth of assisted housing in Lynn exceeded the growth of market rate housing. Lynn has 3,724 Project Based Tenant Assistance units and 2,014 Tenant Based Tenant Assistance units. Together, the 5,378 units represent approximately 18 percent of all occupied units and 34 percent of all renter units. This represents a significantly high percentage of assisted housing units, one which overwhelmingly exceeds the level of assisted housing in nearby communities. Due to this volume , the City of Lynn negotiated an agreement with the Massachusetts Executive Office of Communities and Development (EOCD) to locally administer state-wide rental subsidy certificates and housing vouchers. The City of Lynn, therefore, does not plan to request any additional rental subsidies for use in Lynn during the next five years.
The number of assisted units has placed stress on the City's service delivery system and has hampered Lynn's perception in the region and the viability of the Lynn real estate market. There is a strong consensus within the city that the provision of additional rental subsidies or expenditure of public funds for new assisted housing units would represent a fundamentally flawed policy that would exacerbate the City's current problems and undermine its continued economic viability. Because the condition of the real estate market is such that each year housing is becoming more affordable and the available supply is increasing, the City's current emphasis is on the provision of housing services and job retention to help empower and make economically independent the thousands of residents who reside in subsidized and other affordable housing. The City is also focusing on stabilizing the substantial number of low/moderate owner-occupied housing.
On an annual basis, there are approximately 2,150 homeless families and individuals in Lynn, of which approximately 20 percent are "unsheltered." The City believes that the vast (3/4) majority of this unsheltered population is a transient population which is not based in Lynn. No significant increase in the population is projected over the next five years.
The City believes that Lynn has higher homeless and special needs populations than surrounding cities and towns. Housing market conditions in the City are such that the cost of renting is steadily decreasing. The supply of non-assisted affordable housing available to the homeless and other low-income residents is expected to expand in the coming years. Lack of affordable housing or lack of shelter beds is not the primary issue for this unsheltered population. The primary impediment to obtaining permanent housing for the homeless in Lynn is the need for supportive services and job training which can lead to a higher level of self-sufficiency. The City's Consolidated Plan efforts, therefore, focus heavily on implementing supportive programs, employment and training. City officials and non-profits have joined together to establish a Continuum of Care approach to address the entire range of service and housing needs. The City estimates that the level of need for the homeless population over the next five years is approximately $6.7 million.
The City estimates that the population of persons with HIV/AIDS will grow by up to 28 percent in the coming five years. A substantial portion of this need is within the homeless population. Therefore, emphasis to provide services to the homeless will directly benefit this population.
The Lynn Housing Authority (LHA) owns and manages a total of 858 units in six state and two federal conventional public housing developments. As of April, 1995, the Authority was operating at an occupancy level of approximately 98 percent
In general, LHA's conventional public housing units meet all applicable housing code standards and are in decent safe and sanitary condition. There are however, a wide range of capital needs which are the natural result of the aging of the physical plants. A complete assessment of the physical plants was conducted in February 1994 for the purpose of developing a comprehensive list of improvement priorities. These improvements will be addressed as funding becomes available.
As a result of a comprehensive Section 504 compliance assessment conducted in September 1992, the development of 9 handicapped and 2 fully accessible units will be included in the LHA's Comprehensive Grant Program application. A total of $1.7 million has been budgeted for these and other Section 504 related improvements.
The supply of affordable housing in Lynn continues to expand without significant public intervention. A primary obstacle to further development is lack of investor confidence in the continued viability of the market. However, the City continues to be committed to preserving the more viable components of the rental housing stock through the implementation of streamlined and coordinated development mechanisms within the City Hall along with continued funding of a range of responsive and effective programs.
The City of Lynn Department of Community Development (DCD) conducted an analysis of impediments to Fair Housing Choice in its housing and community development program activities. There are no impediments to fair housing choice in any of its housing and community development program activities. There are no current court orders, consent decrees, or HUD-imposed sanctions that affect the provision of fair housing remedies.
The City of Lynn projects the number of housing units with lead paint hazards to be 23,434, which represents 67.6 percent of the total housing stock of 34,670. The total stock of housing built prior to 1980 is 31, 245 and the Commonwealth of Massachusetts has found that about 75 percent of the housing it tested had lead paint hazards.
The projected minimum number of low income households occupying housing with lead paint hazards is 10,975. While the City of Lynn's lead paint hazard reduction programs are available to all households city wide regardless of income, most deleading activity occurs within properties within the CRA.
The Lynn Department of Community Development currently operates an incentive grant rebate program which provides all owner occupants with a rebate of 30 percent of total lead paint hazards rehabilitation costs up to a maximum of $3,000. If more funds were available, the City of Lynn would like to expand its program by providing more community education, and by including investor-owned properties.
The City estimates that there are approximately $800 million in needs over
the next five years related to non-housing community development including
public facilities, infrastructure, public services, economic development,
accessibility and planning. High priority has been assigned to public
facilities (parks and/or recreation facilities); infrastructure (sewer
improvements) and public service (Senior Services, Youth Services, Substance
Abuse Services and Employment Training).
The Lynn community has identified a wide range of specific strategies to address its housing and community development needs. Emphasis will be placed on sustaining and improving the existing housing stock rather than new housing development. Efforts will be made to preserve existing housing through rehabilitation. This will include assisting property owners through direct loans as they relate to energy conservation and other improvements that will help reduce the number of households with excessive housing costs. The City will also promote stable housing market conditions by complementing conventional mortgage financing with public and secondary mortgage assistance; sustain and improve Lynn's existing public housing stock and increase housing opportunities for homeless individuals by funding outreach, referral and self-sufficiency programs.
The City of Lynn's Consolidated Plan identified several non-housing community development priorities, some of which were identified through prior planning studies. Non-housing community development priorities include:
In addition to CDBG, HOME and ESG funds, Lynn's Consolidated Plan (Chapter 3) identifies $82.7 million in non-housing resources and $22.3 million in housing resources currently available in the City. However, addressing community needs will take creative strategies, public and private partnerships, long term focused efforts and a dramatic increase in the level of private investment in Lynn's neighborhood and businesses.
The Lynn Department of Community Development (DCD) is responsible for
program administration and monitoring of all CDBG, HOME and ESG funds. DCD
negotiates formal, performance-based contracts with all subrecipients which
include ongoing performance goals and reporting requirements.
The City of Lynn will accomplish the goals identified in its Consolidated Plan with Federal entitlement funds totaling $4,365,550. This includes $3,602,000 in CDBG funds, $122,000 in ESG funds and $641,550 in HOME funds. Additionally, these funds will generate $825,500 in program income and $160,000 in other income. The One Year Action Plan includes projects in the following key areas:
Housing. The City will undertake twelve housing initiatives through its One Year Action plan which are intended to preserve the existing housing stock and promote stable housing market conditions. The City will continue to implement a complementary mix of CDBG- funded loan, grant, and incentive programs and HOME-funded programs designed to fit the needs of a variety of housing stock conditions. The One Year Action Plan includes: an incentive grant program for exterior repairs of 1 to 6 unit dwellings; grants for lead abatement; direct loan programs for owner-occupied and investor-owner properties for repairs, replacements or additions; a direct loan program for commercial property to correct code violations and facade improvement; code enforcement inspections; homeownership opportunities including first time homebuyer assistance loans; renter assistance programs; and a Single Family Rehabilitation Loan program.
Community Facilities. The City of Lynn will implement fifteen community facility activities though its One Year Action Plan. These include programs to provide services to assist individuals to cope with substance abuse; renovations to the YMCA related to the development of a new youth center (designed by 21 Lynn High School students); facilities and training for handicapped and retarded adults to help them live independently; handicapped accessibility, sidewalk, landscaping and park renovation improvements; renovations to a performing arts facility which serves 3,000 youth in social, educational and recreational after school and summer programs; and renovations to the Boys and Girls Club which services 2,700 Lynn youth.
Economic Development. The City of Lynn has experienced an enormous level of economic dislocation over the past several years. During the past five years, the City has not only witnessed drastic changes in the number of people employed, but also in the types of jobs that are or will become available. The well paying manufacturing jobs are being displaced with service and information related positions. The net effect of this occurrence is lower paying jobs and a less skilled work force. A major goal of Lynn's Consolidated Plan is to stem this economic dislocation by promoting economic opportunity for all residents, but especially those residents who are unemployed and/or living below the poverty line. Through its One Year Action Plan, Lynn will implement five economic development activities. These activities range from a facade easement program to restore and preserve the character of historical commercial buildings and store fronts in an effort to rejuvenate the business district; fabrication and installation of directional signage to enhance vehicular and pedestrian traffic downtown; Harbor improvements to expand use of Lynn Harbor; small business loan support to provide administrative and technical assistance, compliance and outreach to the Lynn Municipal Finance Corporation, the primary lender in the City's designated planning area; and loans to businesses located in Lynn for job retention and creation.
Public Services. A primary goal the City of Lynn is to provide a suitable living environment for its citizens. The City will focus its efforts on improving the safety and livability of neighborhoods and increasing access to facilities and services. Lynn will implement twenty- seven Public Services programs though its One Year Action Plan. Public Services programs included in the One Year Action Plan will provide: meals to homebound elders to help them maintain their independence; recreational, arts, educational and summer employment opportunities to youth of Lynn; recreational and educational programs for youth of Lynn public housing to address and avoid the high risk of substance abuse and other social problems; educational, literacy and English language classes to adults; cultural activities and awareness; support and parenting skills to young fathers; multi-lingual health services; public safety efforts, including a downtown walking patrol to cover Lynn's downtown area during business hours, community policing teams, and a program designed to curtail the flow of drugs into the City of Lynn; and a visiting nurses association for homebound residents. A number of programs are targeted toward the homeless population, including a street advocacy program to assist homeless and street people in the central downtown area by finding jobs and intervention services; vocational training for homeless and at-risk individuals and a multi service center which provides services to the homeless population.
Arts and Culture. One of Lynn's primary goals is to promote arts and culture in the City for the benefit and enrichment of all residents. The City plans to restore and preserve natural and physical features of special value for historic, architectural, or aesthetic reasons. Specifically, the City will build on Lynn's historic links to the Industrial Revolution, Civil War and Abolition Movement and its role in accepting and assimilating immigrants. Improvements are slated for the Grand Army of the Republic (GAR), a civil war museum that was erected in 1885 with funds raised by local Civil War veterans for what was the largest GAR post in the country. The renovations are important because they will promote continuation of cultural services for Lynn residents. The museum conducts tours primarily for Lynn school children and services approximately 12,600 Lynn youth each year, 52 percent of whom are low/moderate income.
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.
TABLE (without associated map) provides information about the project(s).
Jansi Chandler
Executive Director
Department of Community Development
PH: (617) 598-4000, extension 325
