Dover is a city of 25,000 located in southeastern New Hampshire, a few miles south of the border with Maine and about 60 miles north of Boston. Dover is a regional employment and housing center and the center of a strip of small cities along the Spaulding Turnpike which connects the Portsmouth-Dover-Rochester metropolitan area. New Hampshire's oldest permanent settlement, Dover was once a mill town, but now has a diverse manufacturing and business economy. Products produced in the city include printing presses, automobile parts, industrial machines, and furniture.
For the first year of this Consolidated Plan, Dover is requesting $467,000 in Federal Community Development Block Grant (CDBG) funds. This money will be used to finance the 4 housing, economic development, community development, and public services activities planned for Fiscal Year 1995-1996.
The city's Citizen Participation Plan was modified to accommodate requirements of the Consolidated Plan. The Dover Planning Board acts as the advisory board to the City Council for the use of funds for the current year. This advisory group holds public hearings on the needs of the community and on requests for funds from organizations, individuals, and public service agencies.
MAP 1 depicts points of interest in the jurisdiction.
Like many communities in southern New Hampshire, Dover grew rapidly between 1980 and 1990. Most of this growth occurred prior to 1988 and the slowdown of the regional economy. The 1990 closing of Pease Air Force Base in nearby Portsmouth had a profound effect on this area. Approximately 16 percent of the base personnel who resided off-base lived in Dover; all of them were transferred to other duty stations by the Air Force.
The corresponding loss of millions of dollars of Federal payroll sent a negative ripple throughout southeastern New Hampshire's economy. Unemployment rose quickly to 10 percent, vacancy rates shot up to 15 percent or more, and property values plummeted. Despite the loss of rental income and the increase in vacancy rates, average rents in Dover decreased by only 7 percent.
Recent trends show an upward swing in the economy. Unemployment is now 5.6 percent and vacancies are under 10 percent. Redevelopment of Pease AFB and Dover's own aggressive approach to creation of new jobs has helped to stabilize the region. Dover is reviving its reputation as a business and industrial center. Service industries such as Liberty Mutual Insurance Company continue to increase their work forces and contribute greatly to the rebirth of the city's downtown area.
An example of new growth is the Clarostat Mill Building in the heart of downtown, adjacent to the Cochecho River. This 300,000 square-foot structure formerly housed a manufacturing firm with about 150 employees. In 1991, the company moved to Mexico. Today 16 different businesses lease space in the mill, and provide over 140 new jobs. Last year, there were over 200 people employed there, until one of the larger tenants moved the business to Newfield. Dover looks to the future with optimism, but continues to position itself so that the negative impacts of any new downturns (perhaps closure of the Portsmouth Naval Shipyard) will be minimized.
Median family income (MFI) for Dover is $43,600. This is 8.5 percent higher than the national average of $40,200, but lower than the State median of $44,900. Nevertheless, 41 percent of the 10,346 households in the city are considered low- or very low-income because they have annual incomes that are 80 percent or less of the area median income. Analysis of 1990 census data shows the following levels of lower- and moderate-income households:
In contrast, Dover's minority racial and ethnic populations increased dramatically during the 1980 to 1990 decade. The black population rose by 134 percent, Hispanics by 10 percent, Native Americans by 206 percent, and Asian/Pacific Islanders by 97 percent. Despite the large percentage increases, the percentage and numbers of racial/ethnic minorities (3.4 percent, 847 persons) within the total population are low. Minorities do not appear to be concentrated in any location in the city. Racial and ethnic minorities tallied in the 1990 census include the following:
The city covers 28.3 square miles, of which 47 percent has been developed for residential use, and 7 percent for nonresidential uses. The remainder is either vacant (24 percent), in public use (11 percent), or in agricultural (8 percent) or institutional use (2 percent). About 85 percent of the developed residential land is used for single-family homes. Much of the multifamily housing stock is concentrated in and around the urban core.
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.
Dover is a small city, now in a recovery stage. Local growth and employment slumped during the late-1980s economic downturn that hit many areas of New England in the Greater Boston area. The closing of a nearby Air Force Base in 1990 also cost the city residents when military personnel living off-base were transferred elsewhere and the stimulus of local spending by military and civilian workers on the base payroll evaporated.
There is a surplus of rental housing on the market, with the vacancies resulting from the 1990 base closing not yet absorbed. There is an on-going need to rehabilitate the city's older housing stock as well as a need to assist the many renters and homeowners who pay too much of their income on their housing expenses.
The 1990 census counted 11,415 housing units in Dover, a 30 percent increase over 1980. During this period, the population increased by only 12 percent. The difference is explained by smaller households (2.36 persons per household in 1990, 2.62 in 1980), and a 1990 vacancy rate of 11 percent compared to only 4 percent in 1980. There were 5,129 renter households living in Dover and 5,217 owner households.
HUD-established Fair Market Rents (used in determining Section 8 rental assistance payments) for 1994 were as follows:
The average price for a single-family home (including condominiums) in Dover is $82,000. Over 60 percent of the home sales in the city are under $100,000; about 25 percent are in the $100,000 to $150,000 range; and about 12 percent are within the $151,000 to $200,000 bracket.
Cost-burdened households -- those paying more than 30 percent of their gross income for housing expenses -- represent the most common housing affordibility problem. Housing expenses include costs of utilities paid by the renter. Severely cost-burdened households are those paying more than 50 percent of income for housing.
A significant portion of Dover's lower- and moderate-income renter households are cost burdened. Of the 1,572 very low-income households (0 to 50 percent of MFI), 78 percent pay more than 30 percent of their income for housing, and 55 percent are severely burdened by paying over 50 percent. As expected, fewer low-income households (51 to 80 percent of MFI) are burdened; 49 percent pay over 30 percent, but only 5 percent pay more than 50 percent. Only 11 percent of moderate-income households (81 to 95 percent of MFI) are cost burdened and 2 percent are severely cost burdened.
Households with cost burdens are often in critical need of assistance to retain the housing they occupy or to locate more affordable housing. Many owner households are cost burdened, especially lower-income households and elderly owners, who often have difficulty meeting monthly mortgage and operating expenses. Among Dover's very low-income homeowners, a higher percentage (80 percent) are cost-burdened than are very-low income renters (78 percent). Of very low-income elderly homeowners, 86 percent are cost- burdened.
There is also a continuing need for rehabilitation of both older rental units and owner- occupied housing.
A count of homeless in Dover, conducted March 1, 1995, by shelter and transitional housing providers, found 22 persons. Twelve of these were individuals, and 10 were persons in 5 families. The count, however, is misleading; there are only 22 beds for the homeless in the city.
My Friend's Place is the only shelter in Dover. Since its opening in 1988, it has been consistently filled to capacity. During 1994, My Friend's Place provided shelter to 174 people. During the year, however, it turned away 1,515 homeless because of a lack of beds.
Other nonshelter facilities and arrangements serve homeless with special needs. For example, the Southeastern New Hampshire Alcohol and Drug Abuse Treatment Services assisted 88 Dover residents with overnight accommodations for stays of one to 30 days for alcohol- or drug-related emergencies. During 1994, 12 women and children from Dover were sheltered for 173 nights in A Safe Place, in Portsmouth, which serves abused women and their children.
A continuum of care system for the homeless, developed by the Strafford County Housing Consortium, was finalized in January 1995. This lists all organizations dealing with the homeless under the various levels of service the groups provide. The levels of the continuum are: outreach, intake, and assessment; prevention; emergency shelter; transitional housing; supportive housing; and permanent housing.
There is a need for increased homeless shelter capacity, and for the creation of transitional housing for homeless individuals with special needs. Transitional beds would relieve pressure on the emergency shelter, where individuals and families now stay for longer periods until they can find permanent housing, counseling, and other services.
The Dover Housing Authority (DHA) owns and manages 458 public housing units. Of these, 184 are family housing and 274 are units for the elderly. In addition, the DHA administers a rental assistance program with 148 Section 8 certificates and vouchers in use throughout the city. There are also 322 project-based assisted housing units in three separate projects in Dover. The units include 122 for the elderly and 220 family units. As of December 31, 1994, there were 294 applicants on DHA's waiting lists for public housing and Section 8 rental assistance.
The Dover Housing Authority's housing units are in generally good condition, but will continue to need maintenance and rehabilitation. DHA estimates it will need $656,000 during the next year for physical improvements such as new roofs and windows, hot water systems, and kitchen renovations. (Funds for public housing rehabilitation work come from special HUD comprehensive improvement grants programs, not from CDBG money.)
A major study in 1990 by the Planning Department reached the conclusion that Dover's site review process and applicable regulations are not prohibiting nonresidential or multifamily development. The city's tax structure, regulations, or policies are not discriminatory or redundant and are not affecting the availability or cost of affordable housing within the city. The possible exception noted was single room occupancy units and rooming homes, which are limited to a maximum of five rooms rented to 10 people.
The Planning Department continues to monitor relevant land-use regulations and policies and will make recommendations for changes as indicated.
Dover has about 8,330 housing units constructed before 1970, when lead-based paint (LBP) was in common use. It is estimated that about 6,524 units contain LBP. Of these, 3,267 are rental units and 3,257 are owner-occupied units. It is estimated that 41 percent (or 2,675) of the units with risk of lead-paint hazard are occupied by very low- or low-income families.
During the next 5 years, the city has set goals to 1) educate landlords, tenants, and homeowners on the dangers of LBP; 2) create a low-interest loan program for lead reduction in buildings with children having an elevated blood level; 3) apply for any funding that becomes available to implement a lead paint reduction program in the city.
Dover also needs affordable housing and supportive services for the elderly, mentally disabled, and physically disabled. In general, the needs of each group are similar.
For the mentally ill, demands for community-based housing continues to increase as service models move further away from institutional settings into more independent environments. There is an increased need for half-way houses and supervised living for the chronically mentally ill.
The community needs increased parking at the Clarostat Mill Building to accommodate additional employers and workers. There also is a need for accessibility improvements in public facilities to conform to Americans with Disabilities Act requirements.
Economic development is a high priority for the city. Commercial and industrial rehabilitation efforts are needed to help the tax base as well as enhance the appearance. The city plans to continue to provide gap financing through the Dover Economic Loan Program.
The Consolidated Plan represents a coordinated effort among Federal, State,
and local government and private organizations to recognize the housing needs
and priorities of the community and to agree on a unified plan.
The demand for housing and related services far exceeds available resources. In the foreseeable future there will not be enough growth in financial resources to meet the needs of low-income and disadvantaged people. Programs and services need to be coordinated to maximize assistance for Dover's citizens from the existing resources.
Dover's five-year goal is to improve coordination among housing and community development programs. A better partnership among Federal, State, city, and private programs and services is also necessary.
Recommended strategies include the ability to:
Priorities
The highest housing priority is to provide assistance to Dover households meeting the following descriptions:
The highest priorities for community development (not including housing) are:
To reduce the number of households with incomes below the poverty line, the city will:
The lead agency for implementing the Action Plan for 1995 will be the Dover Planning and Community Development Department. Creation of a local task force consisting of human service agencies will be an integral part of program development and on-going monitoring of programs.
Public agencies that will be instrumental in activities in the plan include:
Involved nonprofit and private organizations include:
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 project(s) from a street level vantage point.
During 1995, Dover plans to use its CDBG entitlement of $467,000 and $149,495 in anticipated income from existing programs on 19 housing, community development, and public services activities. Important CDBG allocations to improve the housing of low- to moderate-income residents include:
For economic development, $77,474 in loan repayments will be added to the Dover Economic Loan Pool Program.
Community development allocations include:
Funds allocated to nonprofit organizations for providing services to lower-income residents include:
Rehabilitation of housing units will benefit residents of those units and handicapped accessibility will benefit users at each location. Community/economic development projects, such as the Clarostat Mill Building parking facility, will benefit employees there but eventually will yield city-wide benefits. Social service programs are conducted from various locations in the city, but serve a city-wide clientele of lower-income families and individuals.
Activities in the 1995 Action Plan will affect 12 housing units, 116 households, and 2,987 persons including 132 designated as youths.
