The Citizen Summaries of Gloucester, MA and Haverhill, MA are included below as members of the Peabody Consortium. Other members of the Consortium include the townships of Beverly, Boxford, Danvers, Essex, Ipswich, Lynn, Manchester, Marblehead, Methuen, Middleton, North Andover, North Reading, Peabody, Rockport, Rowley, Salem, Swampscott, and Wenham.
Gloucester, Massachusetts is a coastal city north of Boston, known primarily for its fishing industries and as a tourist destination. Significant changes in the fishing economy, brought about by changes in the fishing laws and a declining stocks of fish, have resulted in the need to re-think the City's community development strategy for the future. Pressures on the City to update an inadequate sewerage system has also added to fiscal problems and the need to seek funding sources to assist low and moderate income homeowners.
Gloucester's Consolidated Plan sets forth its use of nearly $1 million in Community Development Block Grant funding and program income, for a range of projects geared to residential sewer improvement assistance, public facility improvements, housing rehabilitation and industrial development. Providing jobs and retraining for former fishermen as well as more affordable housing for Gloucester residents are key goals in the Plan. Gloucester is also a member community in the North Shore HOME Consortium which provides additional funding for affordable housing development. Information below on Affordable Housing Needs is taken from the HOME Consortium Consolidated Plan.
The Gloucester Community Development Department is the lead agency for the preparation and administration of the Consolidated Plan.
Following public hearing, requests for comments were solicited from very low
and low-income persons, public service providers, private service agencies,
housing providers and advocates and other community groups. The Consolidated
Plan was made available to the public for review. Public hearings were also held
for the HOME Consortium Consolidated Plan in several locations throughout the
region.
Gloucester is located on the northern coast of Massachusetts on Cape Ann, an historic and scenic area of fishing ports, artist communities and historic landmarks. Gloucester is a small city of about 29,000 in population, increasing by 30 to 50% during the summer months. Although the population increased by 3.4% between 1980 and 1990, little growth is forecast through the year 2000. Racial composition is primarily White (99.3%).
The largest increases in population by age cohort were in the 35-44 group and the 75+ group. In 1987 23% of Gloucester's population was 60 years or older. Household size is decreasing at about the same rate as the nation while population remains stable, creating increased demand for housing units, with virtually all of Gloucester's developable land already in use.
The median family income in Gloucester is $51,300.
The once fisheries-dependent economy of Gloucester has changed dramatically. In fact, the fishing industry represents a shrinking segment of the local economy. Other segments that have helped diversify the economic base relate to tourism, services and light industry. These new sectors have provided many jobs to Gloucester's unemployed fishermen. The City's industrial sector has created more new jobs in 1994 -- 445 -- than exist altogether in today's Gloucester fishing fleet.
To continue to support the diversification of our economic base, the Community Development Department's overall goals are:
Of Gloucester's owner occupied housing stock only 107 of 6,687 units are permanently affordable. Resources will be used to increase the affordable housing stock in the City.
For renters, the major focus will be on low income households paying over 50% of income for housing.
Resources will be mainly directed toward employment opportunities, first time homebuyer assistance and maintenance of the existing public housing stock. Retention of existing section 8 certification, and the acquisition of additional certificates will also be a goal.
Other Special Housing Priorities include establishing programs which enhance the in-home social and health services for the elderly, increasing the availability of congregate and home delivered meals, and expanding the availability of short term mental health counseling to assist elders with depression, anxiety and other related illnesses.
Because of the dramatic shifts in the fishing industry, emphasis will be placed on employment training, supporting expansion of industries and new technologies.
Public infrastructure, particularly access to land for industrial development and sewer system improvements are high priorities.
Downtown commercial district assistance, in the form of a facade treatment program and streetscape improvements will be undertaken.
Stabilization of older neighborhoods will be critical to ensure desirable places for people to live, work and shop.
The anti-poverty goals for the City of Gloucester are:
Resources which will be utilized to implement Gloucester's Community Development strategy include CDBG funds, HOME Program funds, Section 108 Loans under the CDBG Program and other federal or state grants which become available will be applied toward:
Job Creation
Infrastructure Development
Health Issues
The City of Gloucester is proposing to use $936,000 in Federal Community Development Block Grant Program funds, and $4,150 in estimated program income for the following activities:
PUBLIC SERVICES
Gloucester Council on Aging - ($47,887)
Provide rental and operating expenses for the Senior Center.
Hard Disk Cafe - ($30,000)
These funds will be used as start up assistance for a newly formed nonprofit that will provide computer training for low and moderate income residents of the community.
HOUSING REHABILITATION
Sewer and Septic Assistance Program - ($500,000)
Assist eligible homeowners with required sewer and septic system installation assistance and related betterment fees.
Housing Rehabilitation Program - ($40,000)
Provide deferred payment loans to moderate and low income homeowners for the purpose of eliminating health, safety, code violations and emergency repairs.
HISTORIC PRESERVATION
Sawyer Free Library - ($10,000)
Stabilize the condition of the roof on the historic Sawyer Free Library.
Central Business District- ($85,000)
Implement a facade improvement program along the targeted downtown area of Rogers and Main Streets.
ECONOMIC DEVELOPMENT
Engineering and Design- Blackburn Industrial Park - ($54,000)
Engineering and design costs related to a new roadway into the Blackburn Industrial Park.
PLANNING AND ADMINISTRATION
Gloucester Community Development Department - ($135,800)
CDBG Program salaries and operating expenses.
Gloucester Community Development Department Planning - ($37,000)
Planning studies and activities to include economic development
The Gloucester Community Development Department is the lead agency.
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.
The City of Haverhill is located in northeastern Massachusetts in Merrimack Valley, and is divided by the Merrimack River. It's industrial history is rooted in 17th century mills,
with 18th century tanneries, boat yards, and shoe manufacturing its leading industry for 180 years. Downturns in the economy at the end of that century and into the next caused widespread unemployment, and a community-wide decline which drastically affected the social, housing and economic climate of the community. Haverhill is now the fastest-growing community in Massachusetts due to rapid-paced new housing development in the City's outlying areas.
The City of Haverhill will expend $ 2,000,000 in Community Development Block Grant (CDBG), McKinney, and HOME funds with other State funds of $750,000. These funds will be used for activities to promote community economic viability through public services and infrastructure improvements, neighborhood and housing stabilization, and housing improvement and lead abatement.
The City of Haverhill is located in the northern Essex County region of Massachusetts; the central City of an area better known as the Lower Merrimack Valley due to it's geographical alignment with the Merrimack River. The 1990 Census counted 54,418 persons in the City, an increase of 9.7% over it's l980 count of 46,865. This growth reversed previous declines, and is nearly double that experienced by the State. Population projections for 2000 indicate that the City will absorb 31% of the 10.5 population increase for the entire Region.
The Median Age of all residents in l990 increased to 32.3 compared to 31.4 a decade earlier with the 25 to 34 age range now 23% of the population. The number of elderly comprised 14.1% of the population in 1990, with the "oldest old", over 85 at 1,270. The total elderly population is projected to increase 10.4% by 1999 with those 75 to 85 to increase by 18%.
Ethnic characteristics reveal that 94.9% of the population is White, 1.9%
are Black, .7% are Asian, and 5% are Hispanic. School enrollment in 1993
indicated that 13% of students were Hispanic and 1.2% were Asian. By the 1994
school year, Hispanic students increased by 8.3%, and Asians by 24.7%. 3,300
residents speak Spanish as their first language.
Economic conditions in the Merrimack Valley have fluctuated over the last decade, with improvement between 1980 and 1990 in the industrial sector. Unemployment persisted among low income and minority groups with the overall unemployment rate declining through the mid-eighties to a low of 4.0% in 1988, to 6.5% in 1995. Unemployment rates in the City have mirrored that of the region.
Haverhill's population is contained in 19,628 households, an increase of 2,367 12% from 1980, including a l6% increase in the number of female-headed households. Elderly households increased to 22.3% of all households. Housing needs include decent affordable rental housing for very low income and disabled, elderly, rental assistance, and assistance in achieving homeownership.
There are 21,321 housing units in the City of Haverhill, with 91.8% occupied and 8.2% vacant. The number of housing units increased by 2,794 or 15.1% between l980 and 1990. Of total occupied units, 41.4%, or 8,097 are occupied by renters. Of all units, 50.2% were built before 1940, with 46.9% of structures single family, 30.1% containing 2 to 4 units, and 21% are 5 or more units.
Average sale prices for single family homes and condominiums dropped by 11 and 12% with multi-families decreasing by 41% between 1990 and 1994. The number of single family sales increased by 4%, and Multi-families increased by 36%. In the first months of l995, sales prices have continued to drop, with the exception of single family sales. The average selling price for single family homes in Haverhill between l994 and 1995 was $122,466. Single family sales and prices will increase with sales of higher cost single family units under construction.
5,275 low-income households in the City are burdened by housing costs, spending at least 30% of their income for housing. l,345 renters and 344 homeowners earn less than $ 10,000 and are spending more than 30% of their income on housing. 44.2% of very low income elderly pay more than 30% of income on rent.
The 1990 Census noted that 84 units lacked complete plumbing. 17% of low income households report some type of problem with their home, or 8% of all households. Almost half of all elderly renter households and nearly one-quarter of all elderly homeowners in Haverhill were identified as having a housing problem.
Affordable Home Onwership is needed along with homebuyer training and counseling, technical assistance, and Downpayment Assistance.
Haverhill's homeless populaltion reflects significant migration and seasonal fluctuation from rural and seacoast areas in the Merrimack Valley Region and the City of Lawrence. The City's network must encompass a larger area to provide tracking of disconnected homeless populations, effective regional coordinated intervention and linkages to shelter and services. .
A one-day homeless count revealed 116 individuals and 56 families in shelters or transitional housing. Over the previous year 272 individuals and 103 families were counted. 249 homeless Veterans were living in the local Congressional District which includes Haverhill. Recent shelter statistics indicate that Hispanic occupancy averages 60%
Gaps in housing available to homeless populations and the low income community include transitional Housing for homeless families, transitional housing for families with disabilities, permanent housing for disabled homeless individuals , and project based subsidy rents for mentally ill individuals.
The City has a demand for rental housing assistance for both small and large families and an insufficient supply of affordable rental housing. Combined waiting lists for housing assistance include 700 families and individuals, with 25% of families in need of 3 bedroom or larger units. The 1,572 publicly assisted units in Haverhill include 19% of all rentals and 8% of all housing units, including all units in construction. 23 of these units are available to disabled individuals or families with a disabled person. The Haverhill Housing Authority manages 438 existing units, all of which are provided through the State.
The housing market in Haverhill ranges from densely developed deteriorated older urban neighborhoods and new construction in more rural neighborhoods. Although affordability is attainable in the form of single and multifamily housing, the level of disinvestment and neighborhood decline have discouraged reinvestment in those areas. The cost of new construction is significantly above affordable levels for low and moderate income homebuyers.
The City's zoning has maintained high density residential development in the urban core of the City which is allowed on smaller sized 7,500 square foot lots and has adopted an inclusionary multi-family zoning provision for increases in density for projects which provide housing for persons of low or moderate income.
The City developed a Fair Housing Plan assigning that function to the Community Development Department. All programs are in compliance with Section 504 of the Rehabilitation Act of 1973, the Fair Housing Act (1988), and the Americans with Disabilities Act. The CDBG Office maintains TDD equipment for communication with the hearing impaired.
The Community Action Housing Services Program provides tenant dispute and mediation programs and housing education services. Fair Housing information, referral, and First Time Homebuyer Training is provided in English and Spanish.
The State found 20 communities at risk for childhood lead poisoning in l994, including City of Haverhill. The study evaluated incidence rate, housing built before 1950, and the proportion of residents of low and moderate income. The incidence rate of newly identified lead poisoning cases among children from nine months to four years was 13 per 1000, nearly triple the State rate. Testing rates indicate about half the children in Haverhill are not tested for lead paint poisoning. Of the City's 21,321 housing units 55% contain lead paint, 4,804 of these are rentals.
The Department of Mental Health (DMH) estimates that there are 7,871 persons in the City with diagnosable Mental Illness, 2,761 with Mental Illness and Dysfunction, and 506 who are Severely Mentally Ill and Dysfunctional. Of these, 5.8% are Hispanic, 89.3% have Veteran's Status, and 19.6% are elderly.
Drug and Alcohol use continues to increase with the rate of residents in need of treatment for alcoholism or drug abuse higher than the State, as measured by death rates and Court filings and dispositions for narcotics which are used as indicators of substance abuse. DMH indicates that 18.8% of consumer diagnosis includes substance abuse. Prevalence needs for DMH services in Haverhill has been estimated at 7,871with diagnosable mental illness, 2,761 with mental illness and dysfunction, and 95 with severe mental illness and dysfunction.
Of the estimated 40,000 drug users in Massachusetts 40% are infected with HIV and over 50% of AIDS-diagnosed persons are either homeless or in imminent danger of homelessness. State Public Health estimates that the illness and spread of HIV infection is associated with the socio-economic and demographic conditions in a community, and in those factors such as poverty and substandard health.
The City has more than 350 miles of public roadway of which a large portion is in low-moderate income target areas. The inner city roadways are aging and deteriorating. The City estimates the need for at least $750,000 for resurfacing in target neighborhoods, including removal of obstructions, exposing sunken curb lines, removal of subsurface trolley tracks and street cobblestones, and regrading for better drainage. At least 9,000 linear feet of sidewalk and curbing call for improvement or replacement, particularly within the radius of public schools. Inner city areas need replacement of sewer collection lines, which are collapsing or inadequately sized to handle current or projected flows. Drainage conduits will require replacement to prevent flooding.
Among the non-housing community development needs are resources for low income and homeless individuals and families including supportive services such as assessment and referralshomeless individuals and families, and coordinated case management including linguistic minorities. Increased case management capacity, referral and support for youths, individuals and families including persons with substance abuse issues, battered women and their families, and HIV/AIDS victims is needed along with expansion of affordable mental and physical health services and services to pregnant and parenting teens.
Basic skills and job training and job placement with employment and training opportunities for all low income, disabled and homeless populations along with Food, Clothing, Equipment, Furniture resources are among non-housing needs
Public Facility Needs in inner city areas include expansion of child care access including lead paint abatement and handicapped accessibility, expansion and improvement of recreation opportunities and facilities including handicapped accessibility, and access to affordable physical and mental health care. Public Service Needs include Senior Services including meals, health monitoring services and assistance for the purchase of winter fuel. Accessibility Needs include the removal of architectural barriers to the disabled in private residences, public buildings, structures occupied by nonprofit public service providers and public schools.
Economic Development Needs include a small loan program for micro-business and the development of targeted neighborhoods revitalization efforts in declining neighborhood mixed use areas.
The Haverhill Community Development Department has been the pivotal agency
for development of the formalized continuum of care and has developed an
extensive listing of agencies providing services and housing to Haverhill and
the Lower Merrimack Valley. As the largest City remaining in the North Shore
HOME Consortium, Haverhill was a major contributor to the CHAS and the
Consortium's Consolidated Planning process.
The City's goals are to identify provider participants, improve linkages between community supports, improve intervention and referral methods, increase access by consumers, and identify gaps in shelter and services and to eliminate the cycle of homelessness with a service system which provides prevention, intervention, services, and the empowerment of education and skills to move beyond crises to transitional and permanent stability, and to homeownership.
The objectives of the non-housing Community Development Plan are to develop a viable urban community which will provide suitable living environments, expand economic opportunities particularly for low-moderate income persons through coordination of a network of provider agencies. The basis for assigning priority for non-housing needs includes data derived from the Census and local studies, and information gathered from cooperative relationships and consultation. The Haverhill Continuum of Care Process and the evaluation conducted by the City's Community Affairs Advisory Committee (CAAB) and Citizen Participation Process and Plan along with CDBG regulations have provided a framework for priority assignment.
Efforts to break the cycle of homelessness and poverty will include intervention, referral, supportive services, training and employment, and local efforts are cited in the non-housing plan. These efforts must include needs of households at risk of becoming homeless and expansion of access to affordable housing of all types.
The extent to which non-HUD financial resources are reasonably expected to be available to the City to address it's economic development, supportive services, and housing needs has been estimated at $10,469,888 during the l996 Fiscal Year. These resources are comprised of publicly provided resources, foundations, and private resources including $1,195,000 for Economic Development, $5,583,523 for Supportive Services, and $3,691,365 in Housing Resources.
Lower Merrimack Valley area providers have established over the last decade an extensive collaboration among the many public and nonprofit agencies, Community Housing Development Organizations (CHDO's), City departments, police, and other groups who provide services to homeless individuals and families in the City of Haverhill and surrounding Lower Merrimack Valley communities.
Linkages have been developed to more than 182 service providers and housing
agencies including outreach, assessments, emergency shelter, sober shelter,
family reunifications, transitional housing, permanent affordable housing, and
referrals to skills training, education, health care, substance abuse treatment,
counseling, housing search and placement, job training, childcare, job
placement, and housing development. Many activities are coordinated or
implemented through municipal offices including CDBG, Planning, Economic
Development, Code Enforcement, Public Safety, Finances, Data Processing, and
Health and Human Services.
The principal areas in which the Plan will be implemented are the Community Development Block Grant (CDBG) target areas, as defined by the 1990 U.S. Census and a subsequent HUD-approved computer model of the city which expanded these areas.
The target areas are essentially inner city neighborhoods with an average of 55% low- moderate income, about 5-7% minority population, medium to high population density, and housing of which 65% is pre-1940. These include the areas known as Acre , Mt. Washington, Highlands, North Bradford, Riverside, and Bradley Brook.
For some years, the City (through CDBG) has been establishing and expanding a network of social service and housing providers. This effort will continue to provide more comprehensive and strategic planning. The current network includes dozens of municipal, private, and nonprofit agencies including key local and regional providers serving the homeless and low-income populations.
The City will increase the supply of affordable housing through homeowner rehabilitation of at least 30 units in CDBG target areas, providing handicapped accessibility to at least three private homes and 3 nonprofits, and administer 28 rental housing subsidies for disabled individuals through the Shelter Plus Program. The City will participate in service and education activities designed to prevent homelessness.
Housing goals of the City of Haverhill CDBG and HOME housing rehabilitation and lead abatement programs give priority to structures with affordable units or which could potentially have long-term affordable capacity. The City will utilize the majority of its HOME funding for projects which create and/or rehabilitate at least ten units of supportive, transitional, and permanent housing for the homeless. The City will remove lead based paint from at least 70 units of owner-occupied and investor owner one to four family dwellings using Massachusetts Housing Finance Agency (MHFA) funded "Get the Lead Out" and State of Massachusetts Gap Filler Programs.
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.
