Gloucester County is a relatively rural county in New Jersey located within the highly urbanized Philadelphia Metropolitan Statistical Area. Approximately one-third of the County's land area is still actively involved in agricultural production. However, its strategic location offers access to all major markets in the northeastern quadrant of the United States. Land development, especially residential land development, has increased significantly in the County. Major transportation corridors run through the northern and eastern sections of the County thus making those sections suburban bedroom communities for commercial centers in the region, and those areas have developed local economies of their own..
The Gloucester County Consolidated Plan presents a strategic vision for housing and community development in this suburban and rural area. It includes a One-Year Action Plan for spending approximately $2.606 million of Community Development Block Grant (CDBG) and HOME Investment Partnership Program funds in 1995. These funds will primarily be spent on housing, public services and facilities, infrastructure, and economic development activities.
As the lead agency for the Consolidated Planning Process, the Department of Community Resources made every effort to solicit public participation during the development of the Plan. Seven regional public hearings were scheduled throughout the County, during the evening, at local, accessible community facilities located in lower-income neighborhoods. To ensure participation from the provider agencies at large, the Department of Community Resources held several meetings to receive input from social service providers, assisted housing providers including the public housing authorities, and special interest groups such as local economic development organizations and the banking community.
To notify the public of the hearings, a public notice was published in the
non-legal section of the Gloucester County Times, in block format, and also in
local neighborhood newspapers. Additionally, flyers that listed the meeting
schedule were distributed to all the municipal CDBG representatives, municipal
halls, local churches, community organizations, local community leaders and the
meeting sites, for posting and dissemination. Local community leaders were also
notified of the meetings by telephone. The meeting schedule was also "advertised"
through the public service announcements on the local cable television station.
The notices for the hearings were published at least 1 week prior to the
scheduled hearing, except for the first one at the Pitman Boro Hall, which
allowed for only 5 days notice.
According to the 1990 Census, Gloucester County's population has increased by 15.1% since 1980. This increase brings the total population up to 230,082 persons county-wide. With this rate of growth, the County grew more rapidly than the State of New Jersey and the remaining counties in its labor force area, Camden and Burlington. Between 1980 and 1990, the proportion of persons 62 years old and older and working-age people, those 18 years old and over, increased, while the school-age population showed some declines. The County's minority population has increased by 28.7% and currently comprises 11.8% of the total population. Low income concentrations are highest in the Borough of Glassboro and Paulsboro, which have the most block groups with the highest percentages of low income persons, and at a County-wide level, black minorities are most concentrated in Woodbury, Glassboro and Deptford Township.
The average household size in the County has decreased to 2.87 persons per
household in 1990, from the average of 3.03 persons per household in 1980 and
3.42 persons per household in 1970. However, the number of households in the
County has increased by 21.1% since 1980, growing from 65,129 to 78,845 total
households. These households now account for 98.2% of the total County
population. White households account for 89.4% of the all households,
non-Hispanic Black (8.3%), Hispanic households (1.2%), and Asian/Pacific
Islander (0.9%) of all households. Of the 78,729 households in Gloucester
County, it has been estimated that 27,534 or 35% are low- and moderate- income
households. Overall, a higher percentage of minority households are low income,
with the exception of Asian/Pacific Islander households.
Housing supply has tried to keep up with demand, as new housing construction in the county boomed through the 1980s. However, housing prices also have escalated during the same period, leaving many units unaffordable to low and moderate income households in the County. In addition, the number of rental units, especially affordable ones, have remained insufficient to meet renters' needs.
The Delaware Valley Regional Planning Commission has projected that Gloucester County's population will increase by 13.9% by the year 2000, therefore, an annual growth rate can then be calculated at 1.4%. At this rate, by 1999 the total County population will be 259,072. Assuming that the County average household size remains the same, and that the incidence of low- and moderate-income households remains constant, the number of low- and moderate-income households would increase by approximately 4,030.
By virtue of the insufficiency of their household incomes, extremely low- and low-income households in the County experience housing problems the most and, therefore, have the greatest need for assistance. An increase in affordable rental housing stock could help alleviate the problems of all types of renter households in the County. Assistance programs for extremely low- and low-income owners are very limited, and many, such as mortgage arrearage payments, are provided when households are already at risk of becoming homeless. Assistance for first-time homebuyers, especially, would help increase the availability of more affordable rental units for lower income households. Moreover, because the majority of low- and moderate-income households are owners, rehabilitation assistance for homeowners in these income groups will be maintained so that the affordable housing stock in the County can be retained.
Gloucester County experienced a residential development boom in the mid-to-late 1980s. Between 1986 and 1988, the number of lots created through subdivision approval averaged 3,000 annually. Overall between 1980 and 1990, an additional 19.3% or 13,346 housing units had been added to the County's housing stock, bringing the total up to 82,459 housing units. Housing type in the County has remained predominantly single-family. Median housing values for owner units increased by approximately 125% between 1980 and 1990, from $44,200 to $99,300. Almost 79% of all housing units in the County are single-family, both attached and detached. According to the 1990 Census, Gloucester County has a total of 78,729 households; 16,466 are renters and 62,263 are owners. Of this total, approximately 35% are low- and moderate- income households. The overall housing vacancy rate in the County stood at 4.4%. The rate among units for sale is very low at 1.6%, whereas the vacancy rate for units for rent is at 6.1%. Gloucester County has 1,442 deteriorated units or approximately 1.8% of the total housing stock in the County. In assessing the number of substandard units suitable for rehabilitation, if 90% of the substandard units were accepted as salvageable, 1,298 housing units would be suitable for rehabilitation. 14,687 housing units were over fifty years old.
Because housing costs have risen much faster than household incomes, many residents have been paying more of their incomes toward housing costs. According to housing affordability guidelines, owner housing costs should not exceed 28% of gross household income and rental housing costs (including utilities) should not exceed 30%. Following these guidelines, a median-priced new home in 1990 would have required a minimum income of $72,400, an amount almost double the County median household income of $39,400; resale homes required a minimum income of $49,929. These costs would exceed affordability guidelines and would result in cost burden. It is estimated that at least 21.7% of all households pay more than 30% of their gross household income for housing costs.
Overall, only rental units remain affordable to a household earning the median household income. However, to the great number of low income households in the County that earn far less then the median household income, many rental units still remain unaffordable. Average rental units would require minimum annual incomes that range from $18,000 to $28,000, depending on the type and location of the unit.
In 1994, 139 homeless individuals received shelter in the County. Of this total, the largest group were homeless persons in families, as 109 of them were counted. The remaining 22 were single adults, and 8 were youths under the age of 17. The County indicates that 301 homeless households were placed in shelters, and 12 households were placed in transitional housing.
There were approximately 1,250 working poor households that came through the service delivery system, and 1,342 single women with children. The disabled and the elderly are also at great risk of homelessness, as they are least able to maintain independence. Approximately 318 physically handicapped, 39 mentally ill, 24 developmentally disabled, and 165 elderly households passed through the service delivery system. Other than homeless groups include approximately 1,468 elderly, 439 frail elderly, 1,373 developmentally disabled, 3,265 physically disabled and 53 persons with AIDS in the County are estimated to be in need of supportive housing.
Because the most common cause for homelessness is financial instability, the solution to homelessness does not rely solely in providing more shelter but also in increasing the opportunity for low-income families and individuals to gain and maintain adequate employment. The lack of adequate education and training makes it difficult for many lower- income individuals to compete for gainful employment. Additionally, many low-income individuals lack the basic money management skills necessary in saving for and maintaining housing. One common concern among service providers and clients with special needs, is that more and larger housing units are needed to the accommodate families taking care of the individuals with special needs. Another concern among clients and advocacy groups is that most housing programs/facilities fail to recognize that persons with special needs often have multiple special needs.
The Housing Authority of Gloucester County operates 262 public housing units. Sixty-two (62) of these units are scattered single-family homes for low--income families. The other 198 units are one-bedroom units for elderly and disabled persons at Carino Park in Williamstown and Deptford Park in Deptford.
All the units are in generally good physical condition. The senior buildings, which are now 10 years old, are in need of normal extraordinary maintenance, i.e. roof replacement, heating system repair/replacement, carpet replacement, elevator repair, etc. The scattered site units also need major repairs and lead-based paint abatement. All the units are participating in an approved HUD Comprehensive Grant program and are scheduled for some modernization during the five-year planning period.
The HAGC operates an additional 199 units at Colonial Park in Woodbury with funding from the Section 8 New Construction for Elderly, Disabled and Handicapped Program. Of these units, 179 are occupied by elderly persons and 20 are occupied by the disabled. All of these units are one-bedroom units. The Housing Authority of Gloucester County also administers 1,555 Section 8 Vouchers and Certificates in the County. Up to an additional 1,080 rental units with subsidies are available throughout the County. These units are privately owned, but receive funding assistance from the Dept. of HUD, the New Jersey Housing and Mortgage Finance Agency (NJHMFA), the Farmers Home Administration (FmHA) and the Housing Authority of Gloucester County.
Despite the great demand for more affordable housing, its supply has remained limited. Many developers and builders have cited government regulation as factors affecting production costs. Although public policies and governmental regulations are essential to ensure the public's health, safety and welfare, they also can limit market production efficiencies. The development review and permitting process causes time delays and duplicative requirements from different levels of government, which have increased the cost of land development in New Jersey, and has made the production of affordable housing much more difficult. Heavy reliance on property tax to provide local services has made communities more wary of intensive residential development. Excessive design and site improvement standards, impact fees and exactions are some of the land use controls used by municipalities, that increase building costs and effectively raise the price of housing.
The County has made every effort to affirmatively further fair housing, as required under the Community Development Block Grant regulations and Title I of the National Affordable Housing Act. Currently, the County funds the Fair Housing Council of Camden-Gloucester Counties, Inc. to carry out outreach and educational programs to prevent discrimination, and to enforce fair housing law to discourage and reverse any on-going discrimination.
The County certifies that through its Department of Community Resources and in cooperation with the Fair Housing Council of Camden-Gloucester Counties, it will complete an analysis of impediments to fair housing choice, by February 6, 1996.
Gloucester County reports that 57,557 housing units or 73.1% of the occupied housing stock was built prior to 1980. The estimated percentage of units with lead-based paint hazards is approximately 42,502 of the pre-1980 housing stock. The County has 19,349 housing units built prior to 1980 which are occupied by low-income households. Approximately 14,728 are contaminated with lead-based paint hazards. In 1994, 13 child lead poisoning cases were investigated, 8 of which were abated.
Community development needs have also grown as a consequence of the County's
growing population and aging facilities and infrastructure. The need for
additional and expanded services, new or rehabilitated facilities, and
infrastructure improvements has increased in both older communities like
Woodbury, Glassboro and Paulsboro and newly developed suburbs like Franklin and
Harrison Townships. Moreover, as the population expands, more employment
opportunities are also needed. Many individual municipalities and the County as
a whole seek to attract business and industry into the County to foster economic
development. The results of a survey sent out to local officials and public
agencies indicate that the needs for public services, public facilities,
infrastructure improvements and economic development are all priority needs in
the County.
The priorities to housing and community development objectives are targeted primarily for the very low- and low-income persons in the County. Housing objectives focus on housing cost payments, public housing, subsidized rental housing, rehabilitation assistance and homebuyers assistance. Homelessness objectives focus on shelter facilities and supportive services, mostly provided by non-profit organizations. In addition, community development objectives are linked to financial assistance to assist in the rehabilitation, construction and acquisition of public facilities and in infrastructure improvement.
Priorities for affordable housing include retaining the existing stock by providing rehabilitation assistance for both owner- and renter-occupied housing, encouraging local municipalities to work with private developers in developing affordable housing, both for rent and for-sale, providing tenant-based rental assistance to affordable rental housing developments (preferably those administered and/or operated by CHDOs), and providing down payment and closing cost assistance targeted for housing to be purchased in low- income areas, to promote neighborhood revitalization and stabilization.
Priorities for homelessness alleviation include promoting holistic and more comprehensive approach to meeting the needs of the homeless, encouraging private non-profit developers to develop homeless facilities and supportive housing.
The priority for non-homeless persons with special needs includes providing financial and technical assistance in developing housing facilities for the homeless and supportive housing units for persons with special needs.
Priorities for public services include continuing to support public services benefitting low- income areas and populations, with a high priority to services for the elderly, the disabled, youth, and for supportive services such as transportation and child care services.
Priorities for economic development and neighborhood revitalization activities include encouraging business and industry to locate or expand within the County, creating employment opportunities for low- and moderate-income residents, linking local job training and job placement programs, and providing with assistance for facade improvements to eliminate neighborhood blight and promote local commerce.
Several programs currently exist in the County to help address the problems of poverty and assist in providing opportunities to escape the cycle of poverty: the Family Development Program (FDP) provides single mothers with children the opportunity to receive welfare benefits, and the federal JTPA Program and the state's Jobs New Jersey Program, offer job training, job search assistance and job placement services to low-income households. All economic development activities/projects that create jobs will also be coordinated with the JTPA and the FDP Programs. Overall, the County welfare and social service agencies will continue to work closely with the employment and training agencies, and educational institutions in the County, to provide alternatives and opportunities to achieve financial independence and stability.
The County will be using HOME and CDBG funding to leverage Housing Preservation Grant funding and Multi-Family Housing Program funding from the Rural Economic and Community Development Agency, Section 8 Moderate Rehabilitation/SRO funding from the U.S. Dept. of Housing and Urban Development, Low Income Housing Tax Credits and private financing for the development of the SRO housing and various economic development projects. In addition, local development fees collected in the Borough of Glassboro will be utilized to meet the match requirement for the HOME Investment Partnership Program.
Periodic Consolidated Planning meetings will be scheduled throughout the
program year, to update and discuss county-wide housing and community
development needs. Both public and private agencies and institutions will be
encouraged to participate in these endeavors. Representation from social
service agencies, economic development committees, the banking industry, and
local officials will be solicited for these planning meetings to enhance the
institutional structure.
The Gloucester County One-Year Action Plan outlines the proposed use of approximately $2.606 million in CDBG and HOME funds. These funds will be spent mainly on an array of housing and non-housing community development activities, including:
The County has targeted specific areas to achieve certain objectives. The following areas will have allocated funds: low-income areas throughout the County wherein commercial/economic development projects are being funded; low-income neighborhoods with high concentrations of renter-occupancy; and areas have high concentrations of low- and moderate-income households, and are in great need of services that benefit the community. Community-wide and site specific locations are also eligible in some cases.
Highlights of Gloucester County's housing goals for the first year include increasing the supply of affordable housing for 237 households through rehabilitation and new construction; providing rental assistance for 18 households; providing 20 single room occupancy units for the homeless; and increasing facilities and services for 415 households.
MAP 1 depicts points of interest in the jurisdiction
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, and proposed HUD funded projects.
MAP 6 depicts Neighborhood Segments and proposed HUD funded projects.
MAP 7 depicts Neighborhood Segments and streets with proposed HUD funded projects.
MAP 8 depicts Neighborhood Segments and streets with proposed HUD funded projects.
MAP 9 depicts Neighborhood Segments and streets with proposed HUD funded projects.
To comment on Gloucester County's Consolidated Plan, please contact:
Robert Broughton
Grants Coordinator
Gloucester County, NJ
(609) 384-6950
