Orange County is located in southern New York State, on the western shore of the Hudson River, about 40 miles north of Manhattan. The county is crossed by two interstate highways that link New York City with the State's capital region, Pennsylvania, the Delaware Valley, New York's Hudson Valley, and New England. The county is largely suburban, but parts of Orange County remain rural and agricultural, and there are three small cities. Many of its 307,647 residents commute to work in the New York City area, northern New Jersey, or one of the five bordering New York counties. Places of historic interest in the county include the U.S. Military Academy at West Point, George Washington's headquarters at Newburgh, and the American Revolutionary War Cantonment at New Windsor.
In this Consolidated Plan, Orange County describes its housing and community development needs and priorities, and a 3-year strategy for addressing these needs using Federal and other resources. For the first year of the plan, the county is requesting $1,759,000 in Community Development Block Grant (CDBG) funds, and $509,000 in HOME Investment Partnership Program (HOME) funding. This money will be used to finance the 35 community development and service activities planned for Fiscal Year 1995.
For CDBG purposes, the county has formed the Orange County Urban County Consortium comprised of all communities in the county except the cities of Newburgh, Middletown, and Port Jervis and the towns of Walden, Highland Falls, and Kiryas Joel. The Urban County Consortium has a population of 230,763, or 75 percent of total county population.
For HOME Program purposes, there is a separate HOME Program Consortium, consisting of all county communities except Middletown and Kiryas Joel. Within its jurisdictions, this Consortium has 276,050 persons, or 89.7 percent of Orange County's population.
Citizen involvement in the Consolidated Plan began with a series of public hearings, one in each participating community in the Urban County Consortium. On August 17, 1994, a countywide public hearing allowed residents to comment on housing and community development needs. The hearing was advertised in the newspaper, and letters of invitation were sent to all municipalities, government agencies, social services providers, financial institutions, housing developers, and nonprofit organizations representing lower income persons.
Based upon comments received at the public hearings and review of applications submitted by participating municipalities, a Community Development Advisory Committee selected activities for inclusion in the 1995 Action Plan. The committee consisted of two village mayors, two town supervisors, and two county legislators from Consortium areas.
During a 30-day comment period, copies of the Consolidated Plan were made available for review in libraries throughout Orange County. A final public hearing was held on October 12, 1994.
Orange County is within commuting distance of employment in the New York metropolitan area. This, combined with economic development within the county, resulted in an 18.5 percent population increase during the 1980s, to 307,647 persons in 1990. According to the 1990 census, 67 percent of the 141,664 employed residents over age 16 worked in Orange County, 24 percent worked in another New York county, and 9 percent in another State.
The county has a land area of 816 square miles, with a population density of 376.8 people per square mile. Orange County's jurisdictions include 20 towns, 3 cities, and 17 villages. City populations for 1990 were Middletown, 24,160; Newburgh, 26,454; and Port Jervis, 9,060. Town populations range from 2,981 in rural Minisink to 23,035 in growing Monroe, to 24,058 in Newburgh (excluding the city of Newburgh), and 22,937 in New Windsor. Monroe is the fastest growing jurisdiction in the county, with population up by 150 percent since 1970, and by 54 percent since 1980. New Windsor and Newburgh (the town) are suburbs of the city of Newburgh.
Demonstrating the importance of location in relation to good highways, Monroe, Newburgh, and New Windsor are all served by exits from the New York State Thruway, (Interstate 87). Monroe is at the junction of I-87 and Route 17, a regionally important, limited-access highway linking the New York City area and northern New Jersey with the Sullivan County resort areas in the lower Catskill Mountains, and with central and western New York State. Newburgh and New Windsor sit astride the intersection of the Thruway and east-west Interstate 84, connecting Pennsylvania, the Hudson Valley, and central Connecticut.
Median family income (MFI) for Orange County in 1994 was $47,200. Of the 101,506 households in Orange County, 37 percent had annual incomes of 80 percent or less of MFI. Analysis of 1990 census data indicates the following levels of low- and moderate-income households:
The 1990 census classified 46,679 individuals, or 15.2 percent of the total population, as members of a minority. Racial or ethnic minorities tallied by the 1990 census include:
Racial and ethnic minority populations are most concentrated in the cities of Middletown and Newburgh. Minorities total 25.3 percent of the population in Middletown and 57.7 percent of the population in Newburgh. Of the 46,679 minority persons in Orange County, 21,361, or 45.8 percent, reside in these two communities.
In county cities or towns where there is a significant minority population, Hispanic residents usually outnumber black residents. In Middletown, for example, the 1990 census counted 3,217 Hispanics (13.3 percent of city population) and 2,418 blacks (10 percent). The exception is the city of Newburgh, where there were 8,876 blacks (33.6 percent) and 6,143 Hispanics (23.2 percent).
The primary housing problem in Orange County is cost burden of the large number of lower income households whose housing expenses, include utilities, exceed 30 percent of their gross income. An additional housing need is to relieve overcrowding of large, lower income households.
While Orange County's population was growing by 18.5 percent between 1980 and 1990, housing production did not meet the new demand. A 1986 housing needs study concluded that demand for housing would continue to exceed production through the year 2000. The report estimated that 50,000 additional housing units would have to be provided by 2000. To meet the demand, construction would have to greatly exceed the rate of the 1980s.
In 1990 there were 110,814 housing units in the county. Orange County continues to be generally a homeowner market with 67 percent of the units owner-occupied. However, the cities of Middletown, Newburgh, and Port Jervis have more rental housing; the percentages of owner-occupied units in these communities are, respectively, 50 percent, 35 percent, and 50 percent.
Based upon information from tax assessors it is estimated that about 8.5 percent, or 9,420 of the Orange County housing units could be defined as substandard.
Housing is generally affordable for families with incomes above the median, $47,200 in 1994. The county's rate of growth slowed recently with the general recession. This stabilized the local housing market, and in some cases prompted a decline in both home sales prices and rents. A family with median income could purchase a home for $118,000, and median-income renters could afford rents of $1,180 a month. Homes at these prices and rents are available.
The Orange County housing market is characterized by older, somewhat deteriorated rental housing in the core cities and less affordable rental and single-family housing in the surrounding towns. In the towns the primary problems are deterioration of housing occupied by fixed-income seniors, and a lack of affordable rental units.
A significant portion of Orange County's 46,993 low- and moderate-income households are cost burdened. Of the 11,778 extremely low-income households (income 0 to 30 percent of MFI), 76 percent are cost burdened, paying more than 30 percent of their income for housing, and 63 percent are severely cost burdened, paying over 50 percent. As would be expected, levels of burden decrease with increasing income. Of the 10,238 very low- income households (31 to 50 percent of median), 67 percent are cost burdened and 29 percent severely cost burdened. There are 16,080 low-income households (51 to 80 percent of median), 40 percent of whom are cost burdened and 8 percent of whom are severely burdened. Even among the 8,897 moderate-income households, 27 percent are cost burdened and 5 percent are severely cost burdened.
Renter households with cost burdens are often in critical need of assistance to retain their current housing or to find more affordable units. Many owner households, especially lower income households and elderly owners, are cost burdened by monthly mortgage and operating expenses.
There are about 908 homeless persons in Orange County. These include 623 people in 206 families, 199 individuals aged 18 or over, and 86 youth aged 17 or under. Of these, 111 families and 97 individuals are in an emergency shelter; and 99 families are living in transitional housing. Another 400 persons including 70 families are unsheltered (living in nonresidential buildings or on the street).
Subpopulations of the homeless with special needs are as follows:
Transitional housing consists of renovated apartments for homeless families participating in a self-sufficiency training effort, the Community Re-Entry Program. There is also a transitional shelter for pregnant or parenting teenagers, with support services for residents expected to gain self-sufficiency.
Within the communities participating in the CDBG Urban County Consortium, there are no public housing units.
Within the HOME Consortium communities, there is public housing in Newburgh and Port Jervis. Newburgh has two federally assisted public housing projects with 135 units. Port Jervis has 75 units of public housing. CDBG money is not used by either city's housing authority; funding for renovations and improvement of this public housing comes from separate HUD improvement and assistance programs. Newburgh also has two State- assisted housing projects. The Kenney Apartments are in need of state funds for renovations. Needs include electrical and plumbing up-grades, heating systems up-grades and new kitchens and doors. Newburgh has committed $117,000 in CDBG funds to assist with these repairs but more funds are needed.
In Orange County there are 1,291 Section 8 rental assistance certificates or vouchers in use. These are administered by Rural Opportunities, Inc. About 2,900 households are on the waiting list for Section 8 assistance. Turnover in existing certificates or vouchers will provide assistance for an estimated 200 households a year.
Orange County also has 1,860 units of Federal- and State-assisted multifamily rental housing in various communities. The units are in 23 separate projects financed variously through Farmers Home Administration Section 515 (rural housing); HUD Section 202 (elderly housing), Section 221(d)(3) HUD-insured mortgages; and HUD Section 236. Three projects were assisted by the New York State Housing Trust Fund.
County governments in New York State are limited in the role they can play in providing affordable housing. The State Constitution does not include counties among the units of government which may finance and build housing. As a result, county governments act as conduits for housing assistance from Federal and State agencies.
Orange County has little control over the powers of individual municipalities in regard to development regulations. Several local policies present barriers to affordable housing in Orange County. These include a lack of zoning incentives and the prohibition of accessory units and manufactured homes. A lack of applicable regulations is often accompanied by a lengthy local review process. This often causes the carrying costs of a project to rise, with an adverse impact on its financial feasibility.
Beyond being hindered by zoning requirements, special housing needs are limited by the "NIMBY" (Not In My Back Yard) syndrome. Proposals for controversial housing (for the homeless, ex-convicts, mentally ill, or substance abusers) often meet with staunch local opposition. While the county is not in a position to change municipal regulations or to make local planning decisions, it can influence local approval processes by providing technical assistance and education.
A 1991 "Analysis of Impediments to Fair Housing Choice," by the county Office of Community Development, identified three categories of impediments:
There has not been any comprehensive assessment of lead-based paint (LBP) conducted in Orange County. Use of LBP for residential use was banned in 1979, but by then use of paints containing lead had dropped somewhat as easier-to-use substitutes became available. Based on such factors, HUD estimates that for housing built before 1940, 90 percent of the units contain LBP. For units built between 1940 and 1959, 80 percent have lead, and for those constructed between 1960 and 1979, 62 percent.
In 1990 there were 23,732 rental units for low-income households in Orange County. Matching housing age and estimated incidence of LBP produces the following estimates for rental units:
Among the 8,791 homes owned by low-income occupants:
Thus, an estimated 24,609 housing units in Orange County occupied by lower income households contain lead-based paint.
Many households in Orange County are not homeless but are at risk of homelessness. Usually this relates to the burden of housing expenses; a slight reversal of economic fortune can result in a household becoming homeless. For example, Rural Opportunities, Inc. which administers the Section 8 rental assistance program countywide, estimates that 497 of the 2,000 households on its waiting list are at risk of becoming homeless.
Orange County has a variety of nonhousing community development needs. The needs listed below are only those appropriate for CDBG-funded activities. Several public improvement and public facility needs have been identified:
The majority of the county's public services needs are addressed by local, county, State, and federal resources that are not part of the CDBG program. Two needs appropriate for CDBG-assisted actions in the Orange County Urban County Consortium area have been identified: nutrition and medical programs for senior citizens. Since such programs are often provided at senior centers, there is a link between the CDBG-assisted physical facilities and eligible public service programs.
For the most part, the county's economic development needs are addressed by programs other than CDBG, such as the Orange County Partnership and a countywide Small Business Administration lender. However, there is a need to consider economic development as a spin-off benefit from the use of CDBG and housing funds whenever possible.
The county has established the following community development objectives:
Orange County's housing priorities are:
For the 3-year period of this plan, Orange County has organized its nonhousing community development priorities into three categories:
Orange County's approach to reducing the number of households with incomes below the poverty line is based upon the philosophy of the Family Self-Sufficiency Program for recipients of Section 8 rental assistance. This calls for supportive social services combined with job training and educational programs to provide an opportunity to increase income. The county works with several organization and task forces that provide or coordinate support services and training for lower income families and individuals. The director of the Office of Community Development chairs the Family Self-Sufficiency County-Wide Coordinating Committee.
For the 3-year period covered by this plan, it is anticipated that the following resources will be available:
Orange County will seek funding from other Federal and State housing and community development programs when appropriate.
The Orange County Office of Community Development serves as the lead agency in coordinating efforts for both the CDBG and HOME programs. This office works with member communities in the Urban County Consortium. Since the county cannot directly develop affordable housing, it assists with cooperative efforts of nonprofit sponsors of housing development.
Members of the staff of the Office of Community Development serve on committees to enhance coordination between public and assisted housing providers and private and governmental health, mental health, and service agencies. The County Executive recently formed the Urban Task Force to address issues relevant to Orange County's three cities. The recent formation of the HOME Consortium is an example of the ongoing efforts to coordinate programs across county jurisdictions.
During 1995 the Orange County Urban County Consortium plans to spend $1,834,000 of CDBG funds and program income on 35 housing, community development, and public services activities.
Allocations for community development include:
For housing, $666,343 is budgeted for loans and grants for rehabilitation in Consortium communities.
The Orange County HOME Consortium plans to spend $611,250 on two housing rehabilitation programs within Consortium jurisdictions. For moderate rehabilitation of owner-occupied housing, $215,000 is allocated and $396,250 is budgeted for substantial rehabilitation of rental housing.
CDBG projects in the Action Plan will be carried out in 21 of Orange County's Urban County Consortium communities. Housing rehabilitation work will take place at an undetermined number of sites in CDBG and HOME Consortium communities.
CDBG activities in the 1995 Action Plan are expected to benefit 2,084 households and 7,053 persons, including 84 elderly households and 435 elderly individuals. HOME-funded housing rehabilitation work will improve a projected 35 units.
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, unemployment levels, and proposed HUD funded projects.
MAP 6 is a map, sectioned by neighborhood, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 7 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the four neighborhoods indicated in MAP 6.
MAP 8 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of the four neighborhoods indicated in MAP 6.
MAP 9 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point; as well as, provides a table with information about the project(s).
