Onondaga County is an urban county consortium made up of all 34 towns and villages in the County excluding the City of Syracuse for purposes of the Community Development Block Grant Program (CDBG). The consortium communities have widely diverse characteristics ranging from urban to suburban to rural farmlands with a total population of 285,000. The Town of Clay has had metropolitan city status since 1985 when its population exceeded 50,000, but it has always chosen to remain in the consortium under a joint agreement with the County. For CDBG purposes, the Town of Clay is considered as any other consortium participant. See Points of Interest Map.
The Onondaga County Community Development Division (CDD) administers the CDBG grant on behalf of the Consortium communities. CDD also administers the HOME Program which also includes all thirty-four towns and villages under a consortium agreement between Clay and the County. In 1995, Onondaga County was informed that it was no longer eligible for Emergency Shelter Grant funding.
CDD served as lead agency for the preparation of the Consolidated Plan. CDD consulted with residents of the consortium communities, federal, state, county and local governmental agencies, economic development entities, housing providers, community based organizations, and social service providers in order to identify needs and develop appropriate strategies.
Onondaga County 's consortium includes nineteen towns and fifteen villages. When compared to a city with its centralized form of government and subsequent formal city council process, the structure and nature of an urban county consortium invites and encourages citizen participation. The strength and principal asset of the urban county structure is the high degree of citizen involvement at the town and village level.
Each town and village has a governing body, a board or a council, made up of elected officials. No matter how small the municipality --- Onondaga County's smallest village contains only a few hundred people --- there is a group of elected officials representing the views of local constituents, who are likely to be neighbors and friends with a common agenda and a shared commitment to real community development needs and solutions.
CDD built upon the foundation of citizen involvement inherent in the
town/village structure. In the level of citizen participation, CDD felt the
existing structure should be the starting point. In addition to the involvement
of citizens through the municipal structure, other actions were also taken
including extensive consulting with various agencies and providers. The
oversight and input from the Community Development Steering Committee was
invaluable. The County Legislature also played an advisory and approval role.
Onondaga County has been an entitlement urban county since 1975. To be an urban county, a county must surround a metropolitan city of 50,000 or more persons and must have a population of at least 200,000 excluding its city. As is typical in many metropolitan areas, the population has shifted in the past decade. The City of Syracuse has lost residents while the County has steadily grown. Growth and development patterns have been heavier in the level terrain of the northern and eastern suburbs, with some growth to the west. The hilly terrain of the southern part of the County has seen limited growth because of water and septic system difficulties. Remote rural areas still exist with families living in primitive conditions. See Minority Concentration Map.
Closing or relocation by many large employers mostly manufacturing caused
significant job losses in the late 80's and has continued into the 90's. As job
losses force many families to move and some to lose their homes, more houses are
put up for sale at lower prices. Yet low and moderate income, potential buyers
find it harder than ever to achieve home ownership. Lower interest rates have
helped those families who were able to save down payments achieve affordable
monthly housing payments. See Unemployment Maps.
An adequate supply of affordable rental housing was named over and over again by all agencies consulted in the consolidated planning process as a need of all income levels, the elderly, the homeless and special needs populations. To meet this need will require several approaches, including moderate and substantial rehabilitation, new construction, support services, and rental assistance.
Rehabilitation assistance is needed by owners and renters, by extremely low income (0 to 30% of median income), by low income (31 to 50% of median income) and by moderate income (51 to 80% of median income), by elderly and small related families and large related families and all other households, at the moderate level (under $25,000 per unit) and the substantial level (over $25,000 per unit). See Low/Mod Map.
The housing needs are obviously greater in the lowest income groups. The primary needs of renters are additional rent subsidies, property rehabilitation, increased supply of accessible housing and support services for renters who are elderly, youth or other special populations. Financial incentives are needed to provide additional opportunities for renters to become homeowners. The primary needs of owners are assistance with rehabilitation costs, and for the elderly, services to allow them to remain in their own homes.
The rental housing stock grew by modest 9% in the County from 1980 to 1990, compared to the 1970-1980 growth of 42%. During the 1980's, median rent increased 60%, from $235 to $376. The vacancy rate went from 5.1% in 1980 (1236 out of 24,393) to 6.3% in 1990 (1783 out of 28,455.) Of the 28,455 rental units, approximately 2900, or 10%, are currently subsidized. PHA staff report that 83% of Section 8 voucher recipients are cost burdened, (paying over 30% of income for housing), and 29% have severe cost burden (over 50% of income for housing). As of November 22, 1993 there were 921 applicants on the Section 8 waiting list for the Onondaga County Consortium, 43% of them claiming Federal preference status. The North Syracuse Housing Authority has a current waiting list of 230, approximately half of whom claim Federal preference status.
The number of owner-occupied housing units increased from 74,323 in 1980 to 86,281 in 1990. This 16% increase represents a drop from the 20% growth rate of the 1970's. Median value more than doubled in the 1980's, rising dramatically to $81,000 in 1990 from the 1980 value of $38,600. (The Greater Syracuse Association of Realtors found the average 1990 sales price to be $95,400 per unit.) Median income did not keep pace with housing cost, increasing less than 100% from $17,900 in 1980 to $35,500 in 1990.
The gap between a family's income and their ability to afford the costs of rental housing or home ownership, especially saving for a down payment, is expected to continue to widen. As higher paying manufacturing jobs disappear and are replaced with lower paying service sector jobs, families find it harder and harder to save for a new home or to maintain the one they have.
The overriding need of the homeless and at risk population is affordable rental housing with a range of support services. Resources are needed to develop and maintain a Continuum of Care, including preventive and rehabilitative services to assist persons before they become homeless, as they seek to leave the shelters, and in maintaining independent life in the community after a period of homelessness. Increased funds are needed for counseling, rental assistance, long term support, housing location assistance, housing maintenance, and longer term substance abuse support services. More transitional housing programs and services are needed for groups not served or undeserved, including older homeless male youth and pregnant and parenting teens.
Homeless needs of lesser priority include needs relating to programs offering training in literacy skills and life skills, job and employment opportunities for the homeless, coordinated efforts for better information sharing and research to evaluate existing services and to develop programs to fill the gaps, and providing clients of shelters and services the opportunity to participate in the program design process. With sufficient funds, lower priority needs could be met to offer persons leaving shelters with moving assistance for furnishings and personal belongings, to contact other communities to review model programs, and to develop more effective ways to use volunteers.
Many types of special populations have supportive housing needs: the elderly, the frail elderly, the disabled (physically, emotionally, developmentally), persons with addictions, and persons with AIDS. The closing of the Syracuse Developmental Center, a state operated facility for developmentally disabled persons is expected to close in 1996. This closing is expected to put severe pressure on existing homeless and special needs rental housing, and on various support services offered in the community. For all special needs populations, a range of supportive services is needed, tailored to the condition. Appropriate housing and services are often harder to access for those wishing to live beyond City limits.
The extremely low income renter, with an income at or below 30% of the median income, experiences the most severe housing problems in the consortium communities. There are over 3500 households in this category. Large families have the most serious housing problems. Eighty-seven percent (87%) of large related renter households pay more than 30% of their income for housing. An example of this situation would be a family of five with income of $13,410 or less who were paying more than $335 for rent. Seventy-eight percent (78%) of large renter families pay more than 50% of income for housing. An example of this would be the same family paying more than $558 in rent.
The HUD Section 8 Rental Assistance Program provides some assistance for the large rental families but this is not enough to address the hardship that these families experience in trying to obtain housing. Only 21% of the Onondaga County PHA Consortium Section 8 Certificates and Vouchers are three bedrooms and larger and could be occupied by a large household. All of these units are not occupied by large households because many small households are eligible and occupy three bedroom apartments. Only 3% of the Section 8 Certificates or Vouchers are for four and five bedroom apartments.
Furthermore, most of the Federal and State rental subsidized housing available for low income households in the consortium communities are not suitable for large families. Most of the units are for elderly or the rental units only have one and two bedroom apartments which, of course, are too small for a household of five or more persons.
Small families with income below 30% of median face housing cost burdens with similar frequency as large families. From this category 89% of the households experienced some form of housing problem. Cost burden of paying greater than 30% of income for housing affects 89% of small related renter households, and 78% pay more than 50% of income for housing. Almost half of the extremely low income renters are elderly. Sixty-five percent (65%) of these elderly households pay more than 30% of their income for housing and 47% paying more than 50%. The elderly households fare somewhat better than the non-elderly households in this income category.
There are approximately 22 Federal and State subsidized elderly apartment housing complexes with approximately 1000 units in the consortium communities. All of these complexes are fully occupied with a waiting period of up to five years. On the average the household income of the elderly households does not increase, but the elderly living in non-subsidized rental housing continuously see their housing costs go up through increases in rent and utility costs which these households have little or no control over. This increase in housing cost and a flat income leads to homelessness among the elderly. There is no public housing in the County outside the City of Syracuse.
The other income category that should be discussed are the households with incomes between 31% to 50% of the median family income. There are over 3350 households in this category. The overall housing problems for this income group are not as severe as for the extremely low income households, although 76% of households in this income category pay more than 30% of their income for rent, and 30% pay more than half of their income for rent.
There are almost 50,000 units within the County that are occupied by low income families that may contain lead-based paint hazards. Information from the Onondaga County Health Department indicates, however, that only 4.65% of the population tested had elevated levels requiring education and more frequent re-testing, and .47% required medical and environmental interventions.
"The Onondaga County Plan: A Development Guide for 2010" was adopted by the County Legislature in July 1991. Among the strategic goals outlined in the 2010 Plan are the encouragement of planned growth and maintaining of the urbanized core of the County, surrounded by a less dense rural area. In the urban area, redevelopment and infill activities are encouraged. Variations in residential density are also encouraged in the urbanized area to meet the need for affordable housing and to permit increased housing options for the elderly. In rural areas, density should be governed by lot sizes necessary to comply with State and County sanitary codes for individual water supply and waste disposal systems.
Recognized as barriers to development are the time involved in the land development process and the lack of uniform procedures among the various towns and villages in the County. Another major issue in the development process is the availability of water and sewer service.
Zoning requirements for lot size, frontage and setback all affect the costs of installation of such services. Smaller lot size and frontage requirements should be promoted in urban areas to obtain maximum benefit from public sewers. A development strategy for urban fringe areas should be formulated to forestall premature extension of sewers while permitting timely extension at reasonable costs. Town zoning requirements for low density and high lot frontage should be used in concert with Health Department requirements for onsite treatment systems in rural areas with no potential for public sewers. The County and the towns need to agree upon a consistent county-wide approach to residential density in urban, fringe and rural areas.
Although general economic conditions and inadequately funded Federal and State housing programs are the greatest barriers to affordable housing development in Onondaga County, there is also a recognition that the time involved in the land development process and the lack of uniform procedures among the various towns and villages in the County present barriers as well.
The infrastructure of the County continues to deteriorate. Many water and sewer systems were installed at the turn of the century in the oldest villages, and in the 1940's and 1950's in the older suburban areas. There simply is no longer the manufacturing tax base to underwrite the expense of maintenance and replacement. The residential tax base in the low and moderate income areas can not sustain additional bonding.
Storm water problems have mounted as development increased with no funding available for solutions. Recreational facilities are needed in low income areas especially areas of dense apartment development, and facilities are needed for the increasing numbers of senior citizens. Libraries are essential in low income areas but the funding opportunities continue to shrink.
Throughout the County, the towns and villages must not only revitalize
their housing, neighborhoods and community facilities, but also strengthen
their economic base. The major needs consist of protecting existing jobs, and
facilitating the creation of new jobs to replace those lost due to the decline
of manufacturing in the County. Emphasis is needed in the non-manufacturing
sectors which employ the greatest numbers of low-income persons including
minorities and female heads of household.
The Strategic Plan's overall goals are to provide decent housing, to establish and maintain a suitable living environment, and to expand economic opportunities. These goals will be addressed by undertaking activities to benefit low and moderate income persons.
The Strategic Plan outlines 5 year objectives and priorities for housing activities to address the needs of renters, owners, homeless persons and families, and other special needs populations. The non-housing community development plan describes activities to improve infrastructure, public facilities, public services, accessibility, historic preservation and economic development activities.
Also part of the Strategic Plan are a discussion of economic, physical and regulatory barriers to affordable housing, and the extent of lead based paint hazards in the County. The Strategic Plan goes on to examine the institutional structure on which the Consortium will rely to carry out its objectives and efforts it will take to enhance cooperation among agencies and local governments involved in the Plan's implementation.
The five year strategy outlines overall housing objectives relating to rehabilitating existing units, additional rental assistance, new construction of elderly housing, home ownership opportunities, reducing lead based paint hazards, promoting fair housing, addressing homeless needs, and providing special needs housing.
During the next five years the housing goal for assisting low income renter households is 30 units of moderate rehabilitation, and 950 rental assistance certificates/vouchers. The five year goal for assisting moderate income renters is 10 units of moderate rehabilitation and 150 units for first time home buyers. The County's five year goal to assist low income elderly homeowners through the CDBG/HOME rehabilitation program is 250 households. The goal for the weatherization program, which is administered by PEACE, Inc., is 300 households. The County five-year housing goal for the low income non-elderly homeowner will be to rehabilitate 125 units. The housing goal for moderate rehabilitation over the next five years for the moderate income homeowners (elderly and non-elderly) is 125 units.
To address the needs of homeless individuals and families in its five year plan, the Consortium will support applications by others for funds which implement a continuum of care model, providing a range of housing and services from emergency shelter to transitional to permanent housing. The Consortium will also examine rural homelessness, work with for-profit and nonprofit organizations to develop more affordable low income housing, and continue to participate as an active member of the Homeless Task Force.
All of the groups in the special needs population (elderly, frail elderly, severely mentally ill, developmentally disabled, physically disabled persons with alcohol and other drug addictions, and persons with AIDS and related diseases) need supportive housing. The consortium will continue to support the activities and programs of agencies that provide housing for the non-homeless special needs populations. Agencies providing housing for these groups will be encouraged to apply for Federal (including the Consortium's CHDO set-aside), State, local and private funds. The Consortium will also continue to the CDBG-funded RAMP Program.
The County Department of Social Services is the primary public agency with control in relation to the number of households with incomes below the poverty line. With ever-increasing cuts in State and Federal funding for various programs, the Department is faced with a nearly insurmountable challenge.
The resources available to implement the Consolidated Plan include both private and federal, state and local public funds. Over the next five years, an estimated $14 million in CDBG funds, and $6 million in HOME funds will be available from federal sources. Up to $2 million may be available on a competitive grant basis from New York State's Affordable Housing Corporation and the Division of Housing and Community Renewal funds. CDD has received funding in the past from the Farmers Home Administration's Housing Preservation Grant, and HUD's HOPE 3 Program. Construction financing for the Home Ownership Program has been provided by Onondaga County. Please see the graphs and spreadsheet in Appendix A which detail past levels of funding.
The Onondaga County Community Development Division will be the foundation of the institutional structure responsible for the implementation of the Consortium's housing and community development plan. The Consortium will also rely on various other County departments, town and village governments, numerous nonprofit organizations, and many for-profit entities.
The capital projects which make up the community development portion of the plan will be completed as a cooperative effort among Community Development staff, town and village officials, and private sector entities.
The housing portion of the plan will be administered by the Community Development staff, with assistance from private contractors, State and local governments, community agencies, and local lending institutions.
The Consortium has a strong network of nonprofit housing providers who will be assisting in carrying out the homeless and special needs portion of its housing plan. Two designated CHDO's are expected to continue developing projects. One gap in the institutional structure is the need for additional CHDO's.
As part of the Consortium's efforts to enhance coordination among agencies
and local governments, the County will maintain cooperation agreements with each
local municipality, and will also administer the Town of Clay's CD Grant under a
joint agreement. Staff from the Community Development Division serve on the
Executive Committees of two networking organizations, CEDAR Ltd. and the New
York State Rural Housing Coalition. The Consortium has also established
effective ongoing cooperation with several local banks.
Onondaga County's entitlement allocation for the 1995-96 Community Development Block Grant Program is $2,760,000 which includes $380,000 for the Town of Clay. In addition, $250,000 is available from program income and$65,000 from reprogrammed funds. The entitlement allocation for the HOME Program is $703,000. Through the citizen participation process described above the budget categories are as follows:
| CDBG | |
|---|---|
| Infrastructure | $1,450,000 |
| Housing Rehabilitation | $600,000 |
| Commercial Rehabilitation | $100,000 |
| Rehab Delivery | $325,000 |
| Administration | $325,000 |
| HOME | |
| Housing Rehabilitation | $227,250 |
| Nonprofit Rental Housing | $105,450 |
| Home Ownership | $300,000 |
| Administration | $70,300 |
Thirty-five infrastructure projects were selected in low income areas throughout the towns and villages. Projects were selected which will benefit the greatest numbers of people and that contribute to the overall strategy. Commercial rehabilitation will targeted in low and moderate income business districts in conjunction with other community development activities. See Project Area Maps.
Housing related activities including owner-occupied rehabilitation and assistance to first-time home buyers will be a priority. Activities to meet the needs of homeless and special needs populations will include completing the 1994 Emergency Shelter Grant, participation in the Homeless Task Force, and implementation of at least two CHDO projects.
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 streets with proposed HUD funded projects.
MAP 7 depicts neighborhood segments and streets with proposed HUD funded projects; in addition a table provides information about the project(s).
