Worcester's 1995 Consolidated Plan constitutes a strategic vision for housing and community development for the city. This document summarizes the plan so that citizens in the community can have a quick overview of the housing and community development problems; the 5 year broad objectives and actions proposed to meet those goals; and specific projects for carrying out this strategy during 1995.

Citizen Participation

The City of Worcester conducted a series of 13 public hearings between November 1994 and December 1995 in widely separated districts of the city. On January 20, 1995 OPCD completed a Draft Consolidated Plan. The Draft Plan was published in the newspaper, outreach to local and minority news/media outlets, and special mailing to more than 300 concerned individuals/groups (including more than 100 mailings specifically targeted for enhanced minority outreach).

Worcester MA, the second largest city in the State, is an older textile industrial City with a population of 170,759 that followed a classic 19th century urban growth pattern of neighborhood development occurring in a geographic ring of neighborhoods located within both walking distance and trolley line access distance from downtown.

Conditions

Housing needs are particularly acute among the extremely low and very low income groups for both rental and owner-occupied units with regard to the proportion or units with housing problems and households that experience significant housing cost burdens. Among these same groups, 59% or more households paid in excess of 30% of their income for rent. For households at 80% or less of the MSA median income level ( the traditional ceiling for assistance through the Community Development Block Grant {CDBG} Program), 30% of owner-occupied and 61% of renter occupied units had problems, while 38% of owner- occupied and 58% of renter occupied units paid excess of 30% of their on housing. Among this same group a total of 27% of households (renter and owner occupied) paid in excess of 50% of their income on housing costs.

Housing Needs

Sustained pressure on Worcester's good quality, affordable housing stock can be expected throughout the 1990's. An analysis of the local housing market indicates the likelihood of continued City population growth ( particularly among minority populations that tend to have lower incomes than the White, non-hispanic population), sustained overall high suburban housing costs, and further deterioration of inner city housing conditions. These trends will place added burdens on extremely low, very low, low, and moderate income population groups in central Massachusetts.

Homeless Needs

The City of Worcester provides all of the overnight facilities and direct services for homeless persons within the immediate metropolitan area (i.e., Worcester and 18 contiguous towns; total population = 344,000). The Worcester Homeless Services System includes housing providers who focus exclusively on housing services and avoid duplication of health and social services being provided by other programs.

Public and Assisted Housing Needs

The Worcester Housing Authority (WHA) has been responsible for the direct development and management of two thirds of Worcester's assisted housing inventory (including 2,989 units of public housing, and 2,342 units assisted through the federal Section 8, and Massachusetts Section 707 programs). One of the challenges facing local officials is the impending expiration of 20 year federal mortgage subsidies among developments which contain assisted housing units. Such developments contain 2,671 units.

Barriers to Affordable Housing

Taken all around, local public policies have been very responsive with respect to the amelioration and removal of impediments to affordable housing development.

Fair Housing

An Analysis of Impediments to Fair Housing was conducted in the City's Fair Housing Plan. The analysis identified several problem areas:

• Minorities, female-headed households, and Families could become more aware for the opportunities available to them in order to provide greater access to these opportunities.
• A process for follow-up on complaints may be needed for this study due to limited funds available for staffing.
• Landlords fearing a threat of a lead paint suit are reluctant to rent to families if funds are not easily available for lead paint.
• The ever present demand for subsidized units creates extended waiting periods for families who have applied.

Lead-Based Paint

Worcester estimates about 4,750 units occupied by low and moderate income households with children which may contain lead-based paint hazards. Local officials estimate that the actual number of such units containing lead paint is between 3-4000 (given that the above numbers do not take into account private deleading efforts carried out in the last 15 years). Thus approximately 4.7 - 6.3% of the City's occupied housing stock contains lead-based paint hazards.

Community Development Needs

During the consolidated planning process several predominant themes emerged from both oral and written testimony These predominant themes included:

• public safety including substance abuse problems;
• housing, including homelessness, affordability, and deterioration of housing stock and its effects upon residential neighborhoods;
• age-related social problems, including lack of social activity and transportation options for school-age youth and the elderly; and
• economic development issues, particularly job creation for youth, neighborhood revitalization, and improved public primary and secondary education.

Coordination

The City Manager's Office of Planning and Community Development (OPCD) functions as the City's principle entity for planning and coordination of local resources. Works in cooperation with hundreds of representatives from organizations interested in local housing and community development issues.

Vision for Change

In light of these publicly expressed concerns about the future direction of Worcester's development, the needs of Worcester's resident population over the next 5 years requires consideration of changes in the city's demographic characteristics. Worcester's needs in the immediate future will involve changes in the housing patterns. Households are increasing in number, but the increase is disproportionate between renters, single family homeowners, majority groups and principal minority groups. The greatest housing density, household size and dilapidated housing conditions are found in inner city neighborhoods where racial minorities are most heavily concentrated.

Housing and Community Development Objectives and Priorities

The attraction of new residents and businesses to the city coupled with the retention of existing residents and businesses is of primary importance in order for the city to maintain its viability. The city administration will continue to channel its energies toward this end by aggressively pursuing business and continuously improving the quality of life for its residents. The following strategies have been developed to meet the needs which have been identified as priorities based upon research, analysis, and testimony taken at public hearings.

• Create and maintain an effective Business Assistance Program.
• Continue economic development planning activities in the neighborhoods in conjunction with the State Economic Development Incentive Program (EDIP), including industry analysis and vacant space inventories.
• Implement neighborhood revitalization strategies for existing manufacturing zones and commercial areas.
• Training for emerging and specialized industry.
• Minority business training and development assistance.
• Provide affordable day care opportunities which will allow parents who are currently unemployed to enter the workforce.

Housing Priorities

What to do about abandoned structures is a major concern. During the past two years, the City has committed most of its HOME funds ($3.6 million) towards the acquisition and renovation of 22 abandoned structures. While this effort will produce some benefit, other needs are neglected. The large commitment of HOME funds in abandoned structures is curtailing the City's capacity to assist the existing homeowners, many of whom are retired elderly and on a fixed income. A further need is to preserve existing home-ownership and to facilitate the sale of property currently investor owned to first time home-buyers. Probably the single most unmet need in the older neighborhoods is the need to provide more financial assistance for the rehabilitation of property currently owner-occupied. There is also the need to take advantage of the many financial tools now available to moderate income first time home-buyers. Not only will the City's efforts to pursue homeowner financing assist in increased neighborhood home-ownership, but the community as a whole will benefit if the City is able to stabilize it's population base.

Projects in the one-year action plan area funded through the Community Development Block Grant (CDBG), HOME, Emergency Shelter Grant (ESG), and HOPWA programs. Below are some highlights:

Community Development Block Grant Program

Housing

• Main South CDC, Beacon/Brightly and University Park neighborhoods -acquire and rehab 8 multi-unit structures (22 units) - most will be made to available to first time home buyers
• Oak Hill CDC, Norfolk/Wall St area, initiate rehab of 12 abandoned multi-family properties (10 -13 units in multi-unit structures).
• Worcester Common Ground, Piedmont and South Worcester neighborhoods - rehab five distressed multi-family structures (15 units).
• Worcester Community Housing Resources, Crown Hill and Elm Park Neighborhoods - rehab 9 three-decker (27-units) in the to be made available to low/moderate income home buyers.

Code Enforcement

• Conduct 5,000 inspections to enforce code compliance within housing structures located in inner city, low/moderate income, target neighborhoods.

Lead Paint Program

• Conduct 150 inspections and abate 70 units from lead-based paint contamination within inner city low/moderate income, target neighborhoods.

Economic Development

• East Side CDC - Shrewsbury St./Belmont areas - Assistance and Training for businesses, job/creation/retention, and inventory.
• Martin Luther King, jr., Center for Human Development - provide 18 day-care slots in support of employment for low/moderate income households.
• Minority Business Council - provide 20 summer jobs for low/moderate income youth (30hrs./wk. x 6 wks.) which will assist 13-20 businesses.
• Worcester Community Action Council/Green Island-Vernan Hill CDC- provide 25 summer jobs (25hrs./wk. x 7 wks.) for low/moderate income youth.
• Microloan Pool - Assist 8 small, low/moderate income businesses with expansions and revitalization efforts including equipment purchases, set-ups, & working capital. (40 jobs)
• Section 108 Guarantees - assist 7 low/moderate income businesses with loan guarantees to finance business rehabilitation and/or expansion needs (250+ jobs).

Human Services

• HIV/AIDS Education - will serve 1,750 people through multi-cultural projects which will identify clients at risk of infection, provide education, preventive, continued support and follow-up services to those persons and their families.
• Youth Services - will assist 200 youth through after-school and evening activities which will develop leadership skills, provide opportunities for success and recognition, organizational and management training.
• Elderly Assistance - will assist 1,830 elderly with health care screenings, flu shots, podiatry services, access to medication & medical appliances (glasses, hearing aids, wheelchairs).
• Transportation Services - pilot after-school shuttle service will be introduced for 60-70 students which will then be expanded (after evaluation) to include 1-2 middle schools, 3-5 elementary schools, and 6-10 provider agencies.
• Food Services - 15,800 low income persons at over 50 sites will benefit from emergency food distributions, feeding programs, and meals delivery services (for youth & elderly).

Public Facilities & Improvements

• Parks Improvements - seven parks that serve low/moderate areas of the City will be revitalized.
• Neighborhood Revitalization Fund - part of funding for $3,274 million in public works projects (water/sewer lines, street re-paving, sidewalk repairs), public safety (fire equipment upgrade), and recreation facilities improvements.

HOME Program

• Oak Hill CDC, Vernon Hill neighborhood - 50 elderly supportive units will be developed in closed, former elementary school (HOME investment of $325,674 supports $4.47 million project).
• Beacon/Brightly neighborhood - private developer will rehab three long abandoned, dilapidated, fire-damaged multi-unit buildings as 18 low/mod units (HOME investment of $162,526 supports $1.54 million project).
• First Time Home Buyer Program - will assist buyers with down-payments and closing costs. For first 90 days program available for three-deckers (3 units) at $3,000 per structure; after 90 days single and two-family properties will be eligible (at $1,000 per structure/per unit). Total estimate = 240 units benefiting.

Emergency Shelter Grant

• Aurora Project - operational costs for highly structured, managed sober SRO units which will assist 15 persons at one time in recover from substance abuse (average length or stay = 6 months; only 5% recidivism rate for program graduates). Successful model for homeless prevention.
• Central Massachusetts Shelter For Homeless Veterans - case management services to help clients access medical, psychological, vocational, living skills, and residential needs. Shelter has 70 beds/serves 440 persons a year.
• Shepherd's Place - housing search services including counseling, advocacy, and outreach at family shelter (16 beds).
• Friendly House Shelter - after-care management & stabilization services for previously sheltered families through 30 bed facility.
• Rachel's Table - purchase and distribute 387 gallons of fresh milk to over 1,000 needy children in local shelters at feeding sites. Collaborative and volunteer supported program; funding goes directly for purchase of milk (no overhead costs).
• You, Inc. - assist 200 runaway/homeless youth with crisis response, intervention, and over-night services. (You, Inc. operates 20 bed youth shelter).
• Youville House - homeless prevention services including assessment, landlord/tenant mediation, accessing resources, housing search, and transportation services through 40 bed facility operated by Catholic Charities.

Maps

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.

TABLE (without associated map) provides information about the project(s).