The North Country HOME Consortium comprises the three counties of Jefferson, Lewis, and St. Lawrence. Of 122 municipalities (towns and villages), 94 are participating in the HOME consortium.
The North Country HOME Consortium is located in the North Central portion of NYS and comprises a large rural area (5,500 square miles) with a relatively dispersed population. It is characterized by large agricultural tracts of land, (as typifies Lewis and St. Lawrence Counties) harsh winters, and geographic isolation.
In becoming a participating jurisdiction under the HOME program, the three counties and their respective municipalities have developed an unprecedented voluntary partnership. The three counties and the specific municipalities represented from within recognize the affordable housing needs of the region and are dedicated to cooperatively meeting those needs. The completion and submission of the Abbreviated Consolidated Plan, alone, is evidence of the commitment to this partnership.
The proposed funding activities for this second round of HOME funding ($1,483,000.00) have been targeted to mirror the priorities set forth in the Consortium's Abbreviated Consolidated Plan. The Plan points out that a large percentage of the area's housing stock qualifies as substandard housing. In addition, there is a great need to enhance opportunities for homeownership for low to moderate income families. To help combat these situations, the Consortium has estimated that as much as 60% of the award will be directed at projects designed to assist owner-occupied rehabilitation and in expanding home-ownership opportunities. As well, while some areas within the Consortium could justify construction of new housing units, it has been estimated that as much as 75% of the HOME allocation will be spent on rehabilitation activities including rental projects and owner-occupied.
The current Abbreviated Consolidated Plan document is the result of a process of communication and exchange of information and ideas that continues throughout the year. Representatives of various municipalities, the three county planning offices, the Development Authority of the North Country, and a host of local housing and human service organizations developed this document.
In order to elicit comments from the broadest audience regarding the Abbreviated Consolidated Plan document, a number of informational meetings and public hearings were held in the Consortium's region. Public hearings were strategically held in each of the three counties. In addition, a 30-day public comment period was held commencing May 25, 1995. Copies of Abbreviated Consolidated Plan were made available for public examination in the following locations:
In addition, a Summary of the Abbreviated Consolidated Plan was published in
the Watertown Daily Times, a daily newspaper covering the entire Consortium
region.
The 1990 population of the north Country Consortium was 221,931. The 1980 population for the entire three county area was 227,440. The 1990 population of 249,713 for the entire three counties represents an overall increase of 8% over the past ten years. Jefferson County had the largest population gain of the three Counties, increasing by 25%. This gain can be attributed to the Fort Drum Expansion during the later part of the 1980's. See map of Points of Interest.
Overall, the consortium's racial minority households (in terms of absolute numbers) are not that significant (4%), with the majority of those households located in the City of Watertown. However, the last decade has seen a significant increase in the overall minority population which had not typified the region in the past. See map of Minority Concentration.
A revealing statistic concerning housing within the consortium are those units occupied by persons at or below low\moderate income levels. Of the total 85,039 households, 37,214 are occupied by low\moderate income families. This means that 44% of all the consortium's households are occupied by low\moderate income families again attesting to the low wage rates and high unemployment of the area. Another significant characteristic is that of the low\moderate income households, 24,864 are considered very low income with the occupants earning 50% of the median income or less. The area with the highest concentration of the very low income households is St. Lawrence County with 10,607. This figure represents 43% of all the very low income households and 25% of the consortium's overall low\moderate income households concentrations.
The North Country HOME Consortium region can be viewed as one with a substantial number of low\moderate income households which necessitates assistance and support for such a disenfranchised group. St. Lawrence County has the greatest number of low income households and Jefferson County has the largest concentration of minority households. It must be noted that of all the households in Lewis County, 44% were considered low\moderate income households, and 58% of those were very low income. See map of Low/Mod Concentrations.
Another aspect of the composition of the consortium is the number of elderly
residents. There are 38,953 persons aged 60 years and above representing 16% of
the population of the area. This is a significant proportion of the population,
especially when those aged 75 or over are considered. One-third of the elderly
residents of the consortium are over 75 which indicates a population group that
will place demands on support services to maintain their independence and their
health.
As in most rural areas, there is little manufacturing and industrial opportunity for residents resulting in the consistently high unemployment rate (9.7%, NYS Dept. of Labor, 1994) for the three county area. The individual county unemployment rates were as follows: Jefferson County - 10.4%, St. Lawrence County - 9.1%, and Lewis County - 10.1%. Of all industries in the consortium, 34% are within retail\wholesale trade business followed by 30.5% in the services category. (NYS Dept. of Labor, 1993). Very little opportunity is represented in manufacturing (4.6%). Although no major employers closed during the 1980's and 90's, GM Central Foundry reduced from 1,500 to 250 employees, and Alcoa closed one of three pot-lines, reducing its employment capacity by one-third. Dynapower\Stratapower and Champion International also downsized during this period. There has been some increase in electronic assembly jobs through the location of Canadian firm branch plants to the area. However, these opportunities do not substitute for the higher wage jobs previously offered through the metals industry.
Over one-third of the employment opportunities within the consortium are in retail\wholesale trade which represents the lowest average salary at $10,847 (US Dept. of Commerce, 1989), indicating a low-income population. In 1990, 33,161, or 13% of the consortium population was below poverty level. See map of Employment Concentration.
The needs of the consortium are varied and diverse and can change dramatically depending on location. The consortium needs support assistance for both rental and owner-occupied housing and for housing that is affordable to very low, low and moderate income families. People with special needs must be accommodated as well.
The consortium has identified the following in its Abbreviated Consolidated Plan as priority housing needs: housing rehabilitation assistance for those living in substandard housing; home buyer assistance; rehabilitation of low-income rental housing; financial\housing assistance and support services for special needs populations, minority populations, and those at risk of homelessness; financial\housing assistance and support services for homeless populations; and rental assistance to alleviate rental cost burdens.
New single family homes were produced on a large scale as were rental housing units within the Fort Drum Impact Area. The general housing market today within the consortium consists of existing housing stock that may, however, require preservation and rehabilitation. It is estimated that 5,752 renter household units are substandard and occupied by low\moderate income persons. As well, it is estimated that 8,290 owner occupied units are substandard.
Within the consortium there are 11,222 year-round housing units, of which there are 55,632 owner-occupied and 29,436 renter-occupied. Of the total occupied housing units, 66% are owner-occupied. This statistic demonstrates there is a preference for single-family homeownership within the housing market today. There is an average rental vacancy rate of 7.3% within the consortium which indicates a somewhat tight rental housing market.
Another general characteristic of this market area is the use of mobile homes as an affordable housing choice (14% of year-round units). As well, seasonal\recreational use housing units represent 17% of the housing stock of the consortium. Seasonal units tend to place pressure on the existing market for single family units and help to artificially drive up prices.
Utilizing the CHAS Tables and the 1990 Census Information, the needs of the very low- income population of the consortium were determined. Overall, 25% of all households are very low-income as reported in 1990. Within this group, the ethnic population with the greatest disproportionate need were the Native Americans. Forty-six percent (46%) of the 500 Native American households in the consortium were very low-income. However, it must be noted that Native Americans represent only one-half of one percent of all households within the consortium.
Forty-four percent (44%) of all renter households are occupied by very low income families. Within this group, there are 67% with housing problems. With 67% of these renter households having housing problems, there is a strong need to target housing assistance to this very low-income, renter population group.
Another revealing statistic is that within the large family category, 75% of the renter households were very low-income. This identifies a second subgroup with disproportionate needs.
Although very low income owner households represent only 16% of the owner occupied housing stock, they contain 55% of all owner households with housing problems. Of the very low income owner occupied households, 62% have housing problems. Again a disproportionate share of the inadequate housing falls to very low income residents with no discretionary income for maintenance, repairs and tax burdens.
The greatest needs identified in "Other Low Income Households" were found in the "All Other Households" category, which is a household of one or more persons, that is not considered to be a small, large or elderly household. Forty-seven percent (47%) of 1,397 households (656) in this category had housing problems.
One-quarter of the "Other Low Income" Homeowners were found to have housing problems. The greatest proportion of need was found in the non-elderly group, with 35% of these households identified as having housing problems.
The consortium does not have a vast amount of housing alternatives for the homeless. Although not a significant population group, the accommodations for them are dispersed throughout the consortium and are very small in size ranging from 6-12 units per location. Temporary housing is often arranged with area motels that only provide sleeping quarters and no supports.
Within the consortium there are only a total of 65 units dedicated solely to housing the homeless. (Many units are available to serve special needs homeless individuals such as victims of substance abuse, etc. However, those units available for those individuals who are homeless due to economic reasons are limited.) These operate at full capacity. Local Departments of Social Service indicate they are receiving calls for assistance for homeless families on an average of five (5) per month. With three (3) DSS districts within the consortium that translates into a minimum of 180 homeless families seeking housing due to emergency situations like fire, evictions, and\or lack of affordable housing alternatives. There is a need to accommodate this group on a temporary basis while affordable permanent housing is secured.
There are 1,031 public housing units in Jefferson County and 901 such units in St. Lawrence County. Due to the small population of Lewis County and its accompanying dispersed residents there are no public housing units within that County. However, there are assisted housing units available through other programs.
There are seven (7) Public Housing Authorities within Jefferson County, which includes the City of Watertown PHA. The six PHA's located in smaller communities within Jefferson County administer smaller programs, not all of which are traditional public housing units. For example, the Village of Alexandria Bay Housing Authority administers a 30 unit FmHA 515 senior housing project as its only housing. Similarly, the Philadelphia housing authority administers two FmHA 515 (24 units each) elderly housing developments.
However, there are PHAs that administer public housing units in addition to the Watertown PHA. The Town of Wilna Housing Authority administers 100 units of senior public housing units. There are approximately 15 on the waiting list (within the last six months) and it is currently 100% occupied. This PHA also administers a 100 unit family project (NYS sponsored) that is also 100% occupied and has a waiting list of approximately 15 families. These units range in size from one to five bedrooms. The two and three bedroom units are those in greatest demand, with the one bedroom units showing some increased demand recently. There are no plans for physical improvements to the buildings, since new roofs and windows were recently installed. The elderly project recently had a sprinkler system added.
The Watertown Housing Authority administers 781 units and at any given time has at least 45 units vacant. This type of vacancy mirrors statewide trends and outreach and marketing efforts are underway to fill these units. The WHA has plans to modify 2% of its inventory for accessibility by the visual and hearing impaired. Five (5) percent of its inventory will be modified for accessibility by the mobility impaired population. the renovations will occur on a project by project basis until the developments are in compliance.
The majority of the public housing units in St. Lawrence County have been built since 1970, and most since 1980. Therefore, significant rehabilitation has not bee required. One PHA, the Massena Housing Authority, did complete $1,500,000 of renovations. Managers report that maintenance costs are higher for family units than for elderly units, but none of the obvious signs of physical deterioration. Some minor repairs are planned: Massena PHA anticipates utilizing a modernization grant to install a new heating system, new windows and roofs, as well as adding a new community center. Ogdensburg PHA is changing some bathrooms to meet Section 504 requirements and elevators will be made more accessible for those physically impaired. One family project was remediated for lead based paint potential problems. Potsdam PHA will upgrade some family units with new doors, windows, and bathroom fixtures. The Canton PHA is converting two buildings from electric to gas heat and installing new windows.
In reviewing the Section 8 program, there have been few vacancies. In Jefferson County, with a large program of certificates and vouchers, as of April 17, 1995, there were few vacancies. In Jefferson County, there were only seven (7) unused project-based rental certificates (as of April 17, 1995), where families are still seeking housing but have not, to date, secured such. Jefferson County has a waiting list of over 900 for this program.
Lewis County reports that its Section 8 Program is 97% utilized. It currently has 10 vacancies in the Existing program and six (6) vacancies in the voucher program. These vacancies are due to families seeking housing, but to date, not finding suitable accommodations.
St. Lawrence County reports that its Section 8 program is currently at capacity with very few units vacant. They maintain a waiting list of approximately 1,00 individuals seeking rental assistance.
Overall, the 1,976 unit Section 8 program within the consortium has a combined waiting list of well over 2,000 individuals and\or families, is heavily utilized and experiences relatively few vacancies. Those vacancies that occur are the result of families seeking housing with their certificates\vouchers and not locating appropriate housing in a timely fashion. Adequate three and four bedroom units are difficult to locate and usually require rehabilitation. There will continue to be, over the next five years, a need for additional Section 8 rental subsidies for families in existing housing, as well as rehabilitation assistance to inadequate rental units.
The Farmers Home Administration Section 515 projects rarely experience vacancies and have not had vacancies in any of the projects within the last six months. The Section 502 home-ownership program has a very high success rate and has little or no problems with defaults. With 757 active 502 loans within the consortium, there are three (3) units within the consortium that were reported to FmHA as vacant throughout 1994. (Information obtained from FmHA State Office, May 1995).
Although numbers are small for those diagnosed with AIDS and related diseases (45 AIDS cases), there is currently a need to provide housing assistance to families that are suffering with AIDS illnesses, according to community based professionals.
Public policies regarding land use regulation, taxes, administrative procedures and other factors can have a significant impact on the development of housing resources within the consortium. It is not likely that any of these factors will pose a significant barrier to housing development within the consortium.
Each of the three counties has developed individual fair housing programs. Additionally, the Black River Housing Council recently was awarded a $50,000 grant to implement a Fair Housing Initiatives Program throughout the three county region. Cumulatively, these programs serve to promote fair housing within the consortium.
All public health departments and related community health organizations were contacted to assess the hazards of any housing related environmental concerns such as lead poisoning. Each county documents those children with lead levels greater than 10mcg\dcl whole blood and conducts an environmental investigation when levels surpass 20mcg\dcl whole blood. Public Health Departments, through special grants, administer screenings. The Jefferson County Public Health Service screened 3,191 children for lead poisoning in 1994. There were 24 incidents of lead levels greater than or equal to 20. As well, there were 171 incidents of lead levels between 10 and 19. These cases were\are being monitored for treatment and intervention (Jefferson County Publici Health Service, 1995). In 1994, St. Lawrence county had 16 incidents reported of a level greater than 20. In 1994, Lewis County had documented 11 cases between levels 15 and 20, 26 cases greater than 20, but less than 40, and two (2) cases with levels greater than 45. This testing, screening, and investigation continues as part of the public health service within the consortium.
In view of the housing needs analysis, general market conditions, the public meetings held, and the strategy sessions held regarding the Abbreviated Consolidated Plan, the following significant housing needs were identified:
In particular the implementation of a scattered-site, owner-occupied rehabilitation program was seen as important in meeting this strategic objective.
Through the development of the Abbreviated Consolidated Plan and formation
of the North Country Consortium, many of the public and assisted housing
providers, private and governmental health, mental health and service agencies
have come together, cooperatively, to identify housing needs and design
strategies to meet those needs. Formalization of this process took place in the
twelve months prior to this document's creation. Both the HOME Administrative
Board and HOME Advisory Board were formed in order to ensure continued
communication, monitoring of the HOME program and appropriate feedback within
the Consortium.
The North Country HOME Consortium intends to use funds to promote affordable housing opportunities for lower income families in the Consortium's municipalities.
The North Country HOME Consortium Abbreviated Consolidated Plan addresses only HOME, housing related activities, as per an agreement with HUD. Community development objectives are not addressed. For housing priorities see Housing Priorities below.
Priorities have been established by the Consortium as follows:
See Housing and Community Development Objectives and Priorities above.
The consortium has 13% of its population below the poverty level. Through the three Departments of Social Service, the Section 8 Administrators and Family Self-Sufficiency Programs, and the local job training programs, the consortium will continue the concerted efforts of these agencies to help residents overcome poverty and attain economic independence. The North Country Alliance is a multi-county group that includes the three consortium counties, and its mission is to locate industry and create job opportunities in the area. DANC plays a major role in this endeavor. Through its critical participation in the consortium and in its capacity with the North Country Alliance, DANC can assist in the anti- poverty philosophy of the consortium. It must be remembered, that by providing affordable housing alternatives to those in poverty, less of their income is required for housing expenses, making it possible to enhance their living environment. Once housing costs are stabilized, there is the potential to reduce poverty.
Federal resources available in the consortium area include HOME, Section 8, and FmHA programs. State resources include DHCR, DSS, DOS, and SONYMA programs. Local resources include the Affordable Housing Rental Housing Program administered by DANC and the St. Lawrence County Revolving Loan Fund. As well, private resources include the Federal HOME Loan Bank of New York and local lenders.
See Housing and Community Development Objectives and Coordination above.
The needs of the consortium are varied and diverse and can change dramatically depending on location. The consortium needs support assistance for both rental and owner-occupied housing and for housing that is affordable to very low, low and moderate income families. People with special needs must be accommodated as well.
In view of the housing needs analysis as presented, general market conditions, the public meetings held, and the strategy sessions held regarding the document, the following significant housing needs were identified:
In particular the implementation of a scattered-site, owner-occupied rehabilitation program was seen as important in meeting this strategic objective.
The proposed allocation of funds below is in the form of a range of estimated expenditures with the understanding that the total funds committed will not exceed the amount of HOME funds available.
Projects will take place within the municipalities participating in the HOME Consortium throughout the three county area. The North Country HOME Consortium Administrative Board evaluates, selects, and awards funds to applicants from the annual competitive process. A formal rating and ranking process is utilized.
Administration of the North Country HOME Consortium is handled by both the Development Authority of the North Country and the Jefferson County Department of Planning.
There is no specific number of households to be assisted that is being used as a benchmark. The three counties and the specific municipalities represented within those counties, DANC, and the various housing agencies and organizations, recognize the affordable housing needs of the region and are dedicated to cooperatively meeting those needs.
MAP 2 depicts points of interest and low-moderate income areas in Jefferson County.
MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels in Jefferson County.
MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels in Jefferson County.
MAP 5 depicts points of interest in the jurisdiction in Lewis County.
MAP 6 depicts points of interest, low-moderate income areas, and minority concentration levels in Lewis County.
MAP 7 depicts points of interest, low-moderate income areas, and unemployment levels in St. Lawrence County.
TABLE (without associated map) provides information about the project(s).
