The City of Elmira, New York, the County Seat for Chemung County, is situated on the New York - Pennsylvania border in the area known as the Southern Tier. The City is approximately equidistant from Boston, Montreal, Washington, D.C. and Cleveland. It is less than 250 miles from New York City. The City of Elmira encompasses 7.3 square miles of land area. The Elmira - Chemung County Metropolitan Area is a gateway to the Finger Lakes Region of New York State and is the focal point of industry, business and recreation in the "Twin Tiers" Area. The City lies near the heart of the "Technology Triangle" which is bounded by The Cities of Binghamton (55 miles to the East), Corning (18 miles to the West) and Ithaca (36 miles to the North). In addition, Elmira falls within the "Ceramic Corridor" which begins in the City and goes West through the City of Corning to the Town of Alfred. See map for Points of Interest.
The City of Elmira's Consolidated Plan presents a strategic vision for housing and community development for the next five years. It is anticipated that $10 - $12 million of Community Development Block Grant (CDBG) funds; HOME Investment Partnership Funds, program income and New York State Economic Development Zone funds will be leveraged with private funding during this period to continue the rebirth and redevelopment of the City, particularly its housing stock and infrastructure. The Consolidated Plan is currently being augmented by development of a new Master Plan for the City which will address zoning, traffic patterns, development potential and recreational and cultural needs of the community.
The City's Consolidated Plan was developed through a series of consultations, public workshops and hearings. The lead agency for the development of the Plan was the Department of Business and Housing Development. This Department worked diligently to development and implement an effective Citizen Participation Plan. To augment this effort, the City retained the services of a professional consultant to assist with the facilitation, writing and editing of various Plan components.
The Department of Business and Housing Development worked diligently to coordinate the efforts of the private, governmental, and nonprofit sectors to create the greatest likelihood of effective implementation of the citizen participation requirements of the consolidated planning process. The City identified the following goals for this process:
The City's Citizen Participation Plan includes specific steps by which these goals will be accomplished. These include the identification of the critical stakeholders in the consolidated planning process, consultation with these identified actors coupled with public workshops, the formation of a number of Task Forces and public hearings.
As a result of these efforts, the first public workshop resulted in the
establishment of five different task forces, each of which reviewed a specific
issue area. These task forces identified needs within the Community and
reported back suggested priorities for the Strategic Plan. Informational
material related to the consolidated planning process and the actual
Consolidated Plan was widely disseminated throughout the City to encourage
participation by the broadest sector of the general public. The Plan was
approved by the Elmira City Council on June 26, 1995.
The City of Elmira has 33,724 residents according to the 1990 Census. The City accounts for approximately 35.4% of the Chemung County population. The accessibility of the City of Elmira has had a significant impact on its growth and development. The City is located along the shores of the Chemung River. One hundred years ago, Elmira had 53 hotels, huge factories, and hundreds of stores in the downtown; 67 passenger trains stopped daily at its three railroad stations. The City was part of America's industrial heartland.
Prior to 1970, the economic base of the City rested primarily on the manufacture of steel products, automobile components, fire apparatus and machine tools. All of these industries suffered severe cutbacks as a result of international competition and the general economic recession; during this period unemployment rates were the highest in the State. ln June 1972, the City was devastated by the flooding of the Chemung River. Many buildings in the downtown area were damaged beyond repair and more than 1,500 residential units had to be demolished, dramatically altering the City's landscape. See map of Unemployment Concentration.
Although Elmira ranked sixth among the nation's most economically distressed
areas ten years ago, it remains the focal point of industry, business and
recreation in the Chemung County region. Linked to a well-developed
transportation network which incorporates highways, railroads, and aviation, the
area has attracted a mix of new businesses and continues to enjoy tremendous
success in its economic recovery. According to the NYS Department of Labor's
statistics, Chemung County is outperforming the State and the nation in terms of
creating manufacturing jobs. Local economic development officials attribute the
growth trends to a more diversified economy; cooperation between governments,
economic development agencies and the private sector; aggressive marketing; and
the low cost of living and doing business in the area.
The changing national economy has forced a local shift from reliance on a traditionally strong durable goods manufacturing base to service industries. Like many Northeastern urban centers, the population of the City has been on the decline since the 1960's. The City's population is generally getting older, household size is decreasing, minority percentages (particularly of Hispanic origin) are increasing and while the median family income in 1990 ($18,548) represented a 55% increase over the 1980 figures, income levels as a whole have lagged behind the rest of the County. The City's poverty rate is nearly double that of the rest of Chemung County. The number of poor working families has increased dramatically, particularly involving female-headed households. See maps of Low/Mod and Minority Concentration.
Beyond the devastation of the 1972 flooding caused by Hurricane Agnes, the supply of housing has been affected by many factors, including demolition of severely deteriorated structures, subsidized and non-subsidized construction and removal as a result of fire damage. Based on 1990 Census figures, there were 13,301 housing units in the City, a 2.8% decline over the 1980 figure. Currently single family detached or attached units are the predominate housing type in Elmira, representing 48.3% of the total units. Two family structures account for 23.3 of the housing units (or approximately 3,100 units). Many large single family structures have been converted to two family units.
The analysis of the City's housing needs conducted during the consolidated planning process resulted in the identification of three critical housing needs in the Consolidated Plan: the need to increase the rate of homeownership in Elmira; the need to improve the condition of housing and revitalize neighborhoods; and the need to provide a broader range of housing options for senior and disabled residents.
Elmira has seen the number and percentage of owner-occupied units decline over the last several decades. In some areas of the City, such as Census Tract 7, there has been virtually no new housing constructed since the 1930's. In addition to the conversion of many prior single family units into two family investor properties, this trend is partially attributed to the inability of many households to purchase a home using conventional financing sources. Down payment and closing cost requirements are a deterrent for many potential home buyers. The City of Elmira recognizes that homeownership is a critical factor in the maintenance of quality housing and neighborhoods.
Approximately 15% of Elmira's population is over 65 years of age. Many of these elderly residents are living on fixed incomes or experience physical limitations which makes continued occupancy of the older, multi-story houses a significant problem. The City has identified a critical need to provide appropriate housing options to its elderly population through direct financial assistance related to home maintenance/modification, providing tax reductions and supporting the development of additional elderly housing units.
Single family detached or attached units represent the major housing stock in the City of Elmira (6,423 units), representing 48.3% of the City's housing stock. These units were typically built before 1940 and are large with most having a three bedroom configuration. Two-family structures account for 23.3% (or 3,104 units). Rental housing (6,456 units) makes up 48.5% of the housing stock in the City with 4,317 of those units having two or more bedrooms. Vacancy rates for single family units declined from 1980 to 1990 while renter vacancy rates increased slightly.
The City conducted a windshield survey in 1980 which indicated that approximately 63% of the housing units in Elmira appeared to be basically "sound" with no readily identifiable deficiencies. It appeared that approximately 1.2% of the units were severely dilapidated and not suitable for rehabilitation. The remainder of the units (approximately 36%) appeared to be substandard, in need of major repairs, but suitable for rehabilitation. Areas of concentration of these units were in Census Tracts 6, 7, 9 and 10 (all in the central portion of the City). While the City has not replicated this study in recent years, its substantial rehabilitation activity has confirmed that with the passage of time and the conversion of former single family structures into more intensive use multi-family structures, that conditions have not changed significantly.
The median family income in the City of Elmira was $18, 548 in the 1990 Census. More than 50% of the households are classified as being of moderate income and 35.9% classified as low income. Furthermore, an estimated 19.1% of all households are considered extremely low income, earning less than 30% of the MSA Median. Such statistics underline the significant affordability problems faced by many residents of the City of Elmira. A total of 3,956 households reported housing costs in excess of 30% of income (or 35.2% of all households). Households with annual incomes under $10,000 accounted for nearly two out of three households found to be cost burdened.
Renter households are more severely impacted than owner-occupied units. While 18.6% of all owners were considered cost-burdened, the percentage of renters so affected was 48.6%. The obvious disparity is reflective of the higher incidence of low incomes among renters with nearly 39% of all renter households in the City reporting annual incomes less than $10,000. In contrast, low income households comprised only 12% of the owner- occupied units.
Although the 1990 Census indicated that there were no homeless persons in the City of Elmira, local organizations that assist the homeless have confirmed this information to be inaccurate. Most incidents of homelessness in the City appear to be due to domestic violence or other problems which create short periods of homelessness among families. Economic Opportunity Program (EOP), which operates the only homeless shelter in the City, reported that during the period of October 1993 thru September 1994, it provided emergency housing to 388 families and 277 individuals. Many of the individuals were either transients or recent parolees from the local prison.
The County Department of Social Services funds a safe home for victims of domestic violence in Elmira. The facility can house a maximum of 15 residents at any one time with supportive services provided. This homeless shelter is often used by the Safe House for "overflow".
In assessing the facility and service needs of the homeless, the following types of housing environments and supportive services are most critical within the community:
There are five low income public housing projects operated by the Elmira Housing Authority (EHA). The Agency manages 857 units, including 355 for the elderly. The EHA's facilities' improvement program has resulted in a majority of the individual units, as well as the project sites themselves, being rehabilitated and upgraded in the last decade.
The Agency received a two-year Federal Drug Elimination Grant in 1992 and a one year grant from New York State in 1993. These funds provided increased police patrols and site lighting and sponsored the Cornell Extension's Home Upkeep Program. This program provides basic living skills and teaches residents to maintain a clean environment. The Agency recently started a new Cornell program at one of the project sites which will help residents develop self-esteem and self-sufficiency. The 1995 Consolidated Plan indicates that the EHA maintains separate waiting lists for the elderly versus the family units. The elderly waiting list is six months or more while the family waiting list (based on bedroom size needs) varies from four months to a year.
In addition to the EHA units, there are five other low income housing income projects in the City of Elmira, with 105 elderly and/or disabled units and 442 units of low income family. Tri-County Action Council, located in the City of Corning, is the contract administrator for the Section 8 Certificate Program in Chemung County and the City of Elmira. Currently, a total of 407 households receive Section 8 rental assistance with 25% of those households residing in Census Tract 6. Approximately 83.4% of the Chemung County households receiving such assistance are located in the City of Elmira. Tri-County's current waiting list has nearly 900 households who are actively seeking and qualify for rental assistance.
The City of Elmira identified several barriers to affordable housing:
The City recently completed an Analysis of Impediments to Fair Housing. This analysis was coordinated by the Community Housing Resource Board. The analysis revealed that there were no identifiable impediments to fair housing choice in the City. The community, including lenders, realtors, human service providers, meet on a regular basis and plan promotional efforts aimed at keeping the community-at-large informed of the Right to Fair Housing. No fair housing complaints have been identified in the past seven years.
Nearly two-thirds of Elmira's housing stock was constructed prior to 1940. Of the 13,301 housing units in the City it is estimated that as many as 7,800 units represent potential lead-based paint hazards. This estimate is drawn from nationally accepted statistics which utilize the age of housing. Records indicate that in 1994, 34 properties had lead problems where children exhibited high level of lead poisoning. The City of Elmira has an agreement with the Chemung County Health Department for assistance in identifying the presence of lead-based paint in properties being assisted through its various financing programs.
Among the critical non-housing community development problems identified by Elmira residents and human service providers are substance abuse, lack of affordable medical care, child abuse and neglect, unemployment and underemployrnent, domestic violence and a lack of programming for youth. There is strong support in the community for initiatives which benefit youth and families. The City of Elmira has a number of parks and community centers which are vital to meeting these needs. However, funds are needed to address facility and maintenance needs, enhance current programming and assess the utilization of public parks.
In 1991, a comprehensive community needs study was undertaken as a joint effort by a broad spectrum of groups and organizations in Chemung and Steuben Counties with the assistance of the local United Way. This effort, called the Compass Project, included four major components, including household surveys, a "key informant" survey of individuals active in the community, a service provider survey and a demographic and economic indicator profile. This effort resulted in the identification of 15 specific neighborhood issues being identified as "Major Problems". The top five included: drug; child abuse/neglect; lack of affordable medical care; un/under employment and shortage of affordable housing. These top five issues were consistently cited more often by Elmira residents than elsewhere in Chemung County. The same is true of low income residents versus respondents overall. In addition, other issues such as crime, availability of public services and recreational opportunities were also cited.
In undertaking the consolidated planning process, the City relied heavily on
the results of the Compass Project based on its broad base of data and its
timeliness. The results of the 1995 citizen participation efforts supported the
earlier determinations. One area which remained high on the list relates to
furthering the continued economic redevelopment of the City of Elmira. In
addition, individuals who participated in the public workshop on economic
development during the consolidated planning process noted a number of public
improvements that could further economic development efforts, including curb
cuts and good sidewalks, a facade program, new trees, a review of current
parking ordinance and an evaluation of streets which became one-way in the
aftermath of the 1972 flood.
The City of Elmira's 1995 Consolidated Plan, through the efforts of numerous individuals, groups and organizations, takes a comprehensive look at the needs of the community. The City has committed itself to achieve the basic goals of providing decent housing, creating a suitable living environment and expanding economic opportunities for extremely low, low and moderate income residents. The City will pursue whatever Federal, state or local financial resources are available to it to complete its strategy.
Housing problems in the City of Elmira are directly related to the age of the housing stock and homeowners and rental property owners who can not afford to maintain their properties. The housing priorities identified in the 1995 Consolidated Plan are based on an analysis of characteristics of the housing market, special Census tabulations and five year projections developed locally. Severe cost burdening and a large number of households who live in substandard conditions are significant problems which must be dealt with.
Many efforts under the 5 Year Strategic Plan will be targeted to specific portions of those Census Tracts which are characterized by the highest percentage of low/mod residents, the highest rates of poverty and crime and drug related activity, a growing occurrence of slum and blighting conditions and an overall lack of economic opportunity.
Priorities to increase the rate of homeownership by continuing to provide assistance to low and moderate income households in purchasing their own homes and encouraging new home construction through local policy changes.
Priorities to improve the condition of housing and revitalize neighborhoods by rehabilitating properties at the rate of 60 - 75 annually through loans and grants to low income homeowners and at the rate of 80 - 90 units annually through the rental rehabilitation program. The City will also strive to increase the number of neighborhood task forces in the community to encourage residents to participate in neighborhood improvement efforts.
Priorities to provide a range of housing options for Elmira's senior citizens by developing or encouraging the development of affordable rental housing units for the elderly through the construction or renovation of existing structures and by continuing to provide real property tax reductions to low income elderly homeowners to prevent displacement.
Priorities to reduce the housing cost burden faced by low income households by increasing the number of Section 8 vouchers and certificates available and providing assistance for energy conservation and winterization activities.
Priorities to create an environment conducive to business growth and job creation through continued financial and technical support to small businesses and minority entrepreneurs. To facilitate the development of housing on the upper levels of commercial buildings in the downtown area. To provide job training and skills development for low income persons in Elmira and to identify and clean-up "ready-to-develop" sites to promote new or expanded business development .
Priorities to improve public facilities for all residents of Elmira by improving recreational opportunities by establishing new centers as needed and to renovate existing facilities. To increase public safety in neighborhoods and parks. To maintain and improve the City's infrastructure and to develop and implement a new Master Plan for Elmira.
Priorities to improve the quality of life will include increasing public awareness of existing community services and coordinate the delivery of such services among providers.. To improve access to health care for all residents. To strengthen family and community values through educational, recreational and social support programs for youth and families.
Priorities to improve the planning process through the continued development of the neighborhood-based task force efforts initiated as part of the 1995 consolidated planning process. To develop and implement a Master Plan for the City of Elmira emphasizing zoning, recreational, traffic and future development needs.
According to the 1990 Census, the poverty rate in Elmira is a high 22.2%. Poverty has had the most major impact on children...more than a third of children under age 18 live below the poverty level. The rate of poverty is nearly twice as high among children in single parent households. This points out the need for coordinated activities, projects, and programs. The City will continue to fund programs through CDBG and HOME that have a strong emphasis on reducing poverty.
The City of Elmira has been an Entitlement Community since the inception of the Program and received $1,810,000 in CDBG funds in Fiscal Year 1995. The City has supplemented the 1995 Annual Action Plan with $300,000 of program income anticipated to be generated during the program year. The City has participated in the past in the HOME Program through the New York State Program but elected this year to become a participating jurisdiction under that Program and received $415,000 in 1995 funding (with a local match of $85,000). In addition, the City applied for a blanket authority of $9,000,000 under the Section 108 Loan Guarantee Assistance Program to be used as direct financial assistance for economic development projects.
The first year of the PIan implementation will be utilized as a planning and
building period during which the City's Master Plan will be developed and
coordinated; relationships with community housing providers, not-for-profit
organizations, private industry, public institutions and local service agencies
will be strengthened. The City's Department of Business and Housing Development
will assume the primary responsibilities for coordinating and monitoring
activities. Department staff will continue to hold meetings with the
Consolidated Plan Task force which grew out of the Plan development process.
This group will provide advice and guidance on the implementation of the Plan.
The City of Elmira's Housing and Community Development Strategic Plan and Annual Action PIan embrace the concepts of community viability and sustainable community redevelopment. The one year program will leverage significant amounts of private and public non-federal resources as identified. In addition, the City of Elmira intends to access, to extent feasible, funds from other Federal and state programs to support Strategic Plan and Action Plan initiatives. The Annual Action Plan envisions the expenditure of $2,610,000 of CDBG, HOME and program income funds to carry out the following array of activities:
ln addition the City also requested $9 million in blanket Section 108 Authority which will be used to develop employment opportunities principally for low and moderate income persons; retain and strengthen existing businesses; stimulate retail and commercial growth in the Central Business District; expand existing neighborhood businesses and services and diversify the manufacturing base in Elmira; increase the local tax base; and develop a wide array of housing opportunities through new construction, rehabilitation and home ownership. The City's first Section 108-funded project will be the redevelopment of the 19-acre former Trinity Foundry site with a 100,000 SF incubator. See map of Project Locations.
The City anticipates that 80 homes will be painted (100-120 units) under the Paint Fix-Up Program; 30 properties (90 units) will be rehabilitated under the Rental Rehabilitation Program; 60 properties will be assisted under the Owner Occupied Loan/Grant Program; 6 dilapidated structures will be demolished; and 20 low and moderate income families will become First Time Homebuyers.
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.
MAP 6 depicts Neighborhood Segments and proposed HUD funded projects.
TABLE (without associated map) provides information about the project(s).
