Utica's 1995 Consolidated Plan constitutes a strategic vision for housing and community development. Utica is rich in history, ethnic diversity and cultural offerings, blending big city assets with a small town sense of community. Establishing a broader City vision through the long-range Consolidated Plan will provide the community with direction and encourage substantial community involvement. Youth development, job training, and neighborhood decline are major issues and areas of need confronting Utica. The weakened regional economy and the decline in the City's financial position have reduced Utica's ability to respond to these challenges and negatively affects low income residents.
If Utica neighborhoods are to rebound, and if Utica is to prosper and grow, we must build community pride, re-establish neighborhood leadership, provide for early childhood intervention programs, encourage young people to finish school, build job skills, and create employment opportunities for low-income residents.
This summary includes a 1-year action plan for specific projects using CDBG, HOME, and ESG program funds to promote expansion of the supply of housing for very low-, low-, and moderate-income persons, including those who are homeless or have special needs. These projects also address community needs for various public facilities, social services, economic development, and environmental quality.
The City of Utica's employs extensive efforts to involve citizens in the
development of the Consolidated Plan including six neighborhood meetings, three
of which were specifically for the Consolidated Plan. Furthermore, a Citizen
Participation Plan has been developed to guide future Consolidated Plan efforts
ensure continued compliance with HUD requirements.
The 1990 Census indicates that the City of Utica's population decreased by 6,995 persons between 1980 and 1990. This represents a -0.2% change. The white population decreased by 9,761 persons (-14.1%). The total population loss is less than the white population loss because all other races increased. Asians experienced the greatest percentage increase (596 persons, 340.6%). The black population increased by 1,895 persons (35.7%), American Indians increased by 45 persons (33.3%), and other races increased by 230 persons (29.5%). The Hispanic population in Utica increased by 1,102 persons (89.6%).
Between 1950 and 1990, the City of Utica lost nearly one-third of its population, declining from 91,611 persons to 68,637, or a decennial rate of decline of 8.1%. Utica experienced the second highest rate of population decline among the state's fifteen largest cities from 1980 to 1990.
Racial minorities comprise a growing portion of the City's population. In 1980, African- Americans comprised 7.0% of Utica residents, increasing to 10.3% by 1990. More than half of all African-Americans in the City reside in the Cornhill neighborhood. The number of Hispanics in Utica, the majority of whom are Puerto Rican, has increased dramatically (86.7%). Individuals of Hispanic origin account for 3.3% of the City's population as a whole, concentrating largely in the neighborhoods of Cornhill and East Utica. While still comprising a relatively small percentage of the population, the number of Asians in Utica nearly tripled between 1980 and 1990 due to immigration from Vietnam, China, India, Laos, and Cambodia. About two-thirds of the City's Asian population lives in Cornhill, East Utica, or West Utica.
Central Utica is made up of several identifiable neighborhoods that have historically been home to the City's low and moderate income residents - Cornhill, Downtown Utica, East Utica, and the eastern portion of West Utica. This area comprises most of the City's CDBG target area. Utica's neighborhoods are rich in ethnic and cultural diversity, interesting housing stock, and an optimistic commitment to build a better future.
Both Cornhill and Downtown Utica are predominately lower income communities made up of over 40% African Americans, Asians and Hispanics. These neighborhoods are experiencing high rates of unemployment, crime, teen pregnancy, infant mortality, and drug and alcohol abuse. East and West Utica, long home to immigrants from Italy and Poland, are now experiencing an influx of new immigrants, including East Asians, Hispanics and Eastern Europeans. As such, the community has many strengths and assets but faces significant urban problems exacerbated by language barriers.
The area contains a collection of neighborhoods diverse in character, but similar in their experience of community disinvestment and individual need. Each neighborhood reached its zenith in the first half of this century, when mill jobs were plentiful and immigration was at its peak. These areas now contain the City's oldest housing stock with the greatest rehabilitation needs. A recent Fire Department survey revealed that these neighborhoods produced more fire and emergency medical treatment calls than other city neighborhoods.
The neighborhoods of Cornhill, Downtown Utica, East Utica, and the eastern portion of West Utica were designated a Neighborhood Based Alliance (NBA) site in 1994 under the State's Neighborhood Based Initiative program. The Neighborhood Based Alliance is defined as a community-driven public/private partnership among key actors at the local level to develop a Strategic Neighborhood Action Plan (SNAP) to improve housing, jobs, education, public safety and economic conditions for local residents. The goal of the Alliance is to empower communities to effect economic and social improvements for local residents on both a short-term and long-term basis, and to ensure coordination among state and local initiatives designed to improve outcomes for residents of low-income communities. The City of Utica was awarded an NBA Planning grant in 1994 to establish a Neighborhood Advisory Council.
Many Cornhill, East Utica, and West Utica neighborhoods have been designated as Qualified Census Tracts under the Low Income Housing Tax Credit Program by the U.S. Department of Housing and Urban Development, allowing developers of low income housing in these areas to apply to the New York State Department of Housing and Community Renewal for tax credits.
There has been a prolonged economic depression in the Utica area that started in the early 1980s when the knitting industry began moving to the south. The lack of a diversified economic base and other economic stimuli in the region to promote growth and vitality has not been able to compensate for the loss of more than 19,000 manufacturing jobs between 1970 and 1990. As with much of the state, there has been a continuing shift away from better-paying manufacturing jobs to low-paying jobs in the retail and service sectors.
Between 1980 and 1990, the civilian labor force in the City decreased 2.5%, a loss of 784 men and women. Although labor force participation increased from 52.2% to 56.0%, Utica continues to lag behind the state, which had a rate of 63.3% in 1990. Patterns of labor force participation among men and women in the City are characterized by significant differences, however. Among men, participation in the labor force dropped slightly, from 63.9% in 1980 to 63.5% in 1990, partially the result of the loss of manufacturing jobs in the area over the period. At the same time, the labor force participation rate among women increased from 42.9% to 49.7% in 1990, reflecting a statewide, indeed nationwide trend, of more women entering the workforce.
The unemployment rate in Utica frequently exceeds the state unemployment rate. In June 1993, for example, unemployment was 9.0% in the City and 7.7% statewide. Although unemployment was 6.6% in the Utica-Rome MSA, the scheduled phase-down of Griffiss Air Force Base in neighboring Rome, with an anticipated loss of 3,500 civilian jobs and the impact of reduced purchasing power on small businesses, will significantly add to the economic hardships already faced by many area residents. Unemployment is particularly high among African-Americans, individuals of Hispanic origin, and Asian women.
As might be expected, high unemployment rates and a lack of economic opportunity mean poverty for many households, particularly in the neighborhoods of Cornhill and East Utica. 1990 Census statistics reveal that some 21.7% of Utica's residents are living below the poverty level. The poverty rate, which increased from 16.8% in 1979, far exceeds the rate for New York State overall (13.0%) as well as for surrounding communities such as Marcy, New Hartford, Whitestown, Westmoreland, and Kirkland, which had poverty rates ranging from 3.8% (Marcy) to 6.6% (Whitestown). In addition, 14.3% of Utica households, compared with 3.3% of households in the towns surrounding the City of Utica and 9.1% in the state as a whole, received income from public assistance in 1990.
Statistically, the average Utica resident is generally worse off financially than the typical resident of the Utica-Rome MSA. According to the 1990 Census, the median family income in the City of Utica was $26,757 as compared to the MSA median income of $31,701. The statistics further reflect that 59.9% of Utica households were low and moderate income (i.e., households with incomes less than 80% of the median income of the Utica-Rome MSA) as defined by the U.S. Department of Housing and Urban Development. Central city neighborhoods such as Cornhill, East Utica, and West Utica contain significantly greater proportions of low and moderate income households.
Due to the persistent economic distress, the central core of Utica has been designated as an Economic Development Zone (EDZ) by the State of New York. Businesses locating in the zone receive tax credits and other forms of assistance.
Census statistics reveal that there are now more renter occupied units than owner occupied units in the City, comprising 51.1% of Utica's housing market. Over the last decennial period, owner units decreased by 4% (605 units) to 13,860, while renter units increased by 5% (566 units) to 14,498. Nearly 25% of all owner occupied units and just over 20% of renter occupied units were in need of rehabilitation based on the 1988 HAP definition of substandard housing and 1990 census statistics. An estimated 635 units, or 2% of the City's housing stock was lost through demolition between 1980 and 1990. Vacancy rates decreased from nearly 9% in 1980 to 8.5% in 1990 with the decline in total housing units generally contributing to this decrease.
The number of total households decreased 2.0% and family households decreased 11%. This loss has had a negative impact on the Utica housing market by suppressing overall demand, especially within lower income neighborhoods in the central city areas. Data received from recent planning studies indicates that the rate of household and population decline is gradually decreasing and should stabilize within several years.
The Herkimer-Oneida County Planning Department conducted detailed surveys of rental housing units in 1986 and 1988 covering all units in projects with over 10 units. The survey of 3,700 units concluded that the supply of rental units was adequate but not always affordable and reflected a vacancy rate of 6.3%.
Housing costs have skyrocketed in the Utica area over the last decade. 1990 Census statistics reveal that 47.1% of all renter households in the City reported housing costs in excess of 30% of household income. Not surprisingly, the extent of cost burden is significantly greater on lower income households. Households with annual incomes under $10,000 accounted for 86.4% of the renter households and 58.6% of the owner households determined to be cost burdened.
There is no doubt that there is a major need for housing in the City of Utica. The biggest problem that is facing the City, however, is the diversity of housing related needs that presently exist.
The City of Utica's Housing Rehab Program has a waiting list of some 300 households in need of assistance. Another major area of concern in the City is its rate of housing loss due to tax foreclosure, fires and demolition. This rate rose from 529 units in 1980 to 699 units in 1990. There was an increase of 35% during that 10 year span.
The City of Utica has identified 16% (4,551) of all households within the City as being low income households with Housing Related Needs. Small white families (2 to 4 persons) were found to comprise 43% of all low income renter households. It is known that the very low income group among all ethnic and racial groups comprise a majority of all low income renter households (55%). Data analysis reveals that the very low income small family unit represents the household group with the greatest housing need. Further research must be done to determine the level of need among specific minority groups of very low income.
Data on owner occupied low income households shows that the majority (90%)
are white families. With respect to substandard housing units, over
8,500 are identified representing 30% of the City's occupied housing stock. Low
income white renter households represent the majority of low income renters
living in substandard units. Ethnic minority groups comprise approximately 20%
of low income renter households residing in substandard units. It appears that
overcrowding is not a significant housing problem in the City with less
than 8% of all substandard units having more than 1.01 persons per room.
To insure that all residents of the City of Utica have access to decent, affordable housing by supporting the development and expansion of programs which:
Priority: Comprehensive Neighborhood Revitalization: Substantial Rehabilitation, and New Construction
The City of Utica Department of Urban and Economic Development, recently adopted a comprehensive neighborhood revitalization plan for the Utica Free Academy neighborhood (the site of the Utica Loretto Geriatric Facility) in the Cornhill area. The City administration is replicating this neighborhood planning initiative in other CDBG target areas across the City. The program of comprehensive neighborhood revitalization consists of the following elements:
In 1995 the City of Utica will utilize HOME dollars to conduct moderate and substantial rehabilitation of vacant dwelling units. In addition, the City anticipates a grant from the New York State Affordable Housing Corporation for the construction of 16 single-family homes. Additional HOME dollars will also be used for this project. The City anticipates approximately $1,000,000 of fourth year HOME dollars. The City currently plans to utilize $850,000 of 21st Entitlement Year CDBG funds for housing rehab programs.
The primary focus of comprehensive neighborhood revitalization will be the Cornhill Redevelopment area. Success of this initiative relies on a cooperative relationship with nonprofit housing corporations to provide owner financing, and purchase, rehabilitate, and sell vacant houses to qualified homebuyers.
The New York State Division of Housing and Community Renewal is currently accepting proposals from Utica organizations interested in becoming a Neighborhood Preservation Corporation (NPC) program. The City is looking forward to having a new NPC created in West Utica. Citizen comments during the Consolidated Plan neighborhood meetings highlighted the need for housing rehabilitation in West Utica to prevent ongoing neighborhood decay.
Priority: Provide a number of services to provide for the homeless and at-risk populations.
It is critical to develop and maintain a continuum of care for residents who are homeless or housing vulnerable. Participation by City of Utica representatives - specifically, individuals from the City's Planning, Housing, Senior Citizens, and Section 8 Offices - on the Homeless and Housing Vulnerable Taskforce will continue to assure coordination of services. The social service agencies that work directly with homeless and housing vulnerable persons will network with this taskforce to access transitional and permanent housing for homeless persons.
To expand economic opportunities by creating jobs which are accessible to low-income persons, provide access to credit for community development activities which promote long- term economic and social viability, and empower low-income persons to achieve self- sufficiency.
This priority will support the long range objective of expanding economic opportunities for Utica's business sector through assistance in business retention and expansion, "jump- starting" new small businesses, and providing training to individuals interested in entrepreneurship and microenterprise development. Priority: Provide Job Training and Skills Development
This priority will support the local labor force and ensure that it is attractive to existing and future employers. The City will encourage the development of programs that build the capacity of the local labor force through life and employability skills instruction, job preparedness, job retention skills, problem solving and day care access.
To provide a suitable living environment for local residents by
Priority 1: Create a network of programs and services to meet emerging health and human service needs in the community
Youth, seniors, families, refugees, and the general public need access to programs in the area of health and human services.
Priority 2: Health and Disabilities: Provide a plan for accessible health coverage and programs for all residents.
It is critical that comprehensive, accessible health care be developed for all residents. This priority requires efforts to attract more doctors to the city, coordinate the efforts of community health care providers, market health care programs and services, and assure that the needs of people with disabilities are addressed by:
Priority 3: Neighborhood services need to be created and expanded to meet the needs of neighborhood families.
The City of Utica will improve access to neighborhood services through increased outreach, effective marketing and centralized information and referral through the following initiatives:
Nearly one-quarter of the population in the City of Utica is over the age of sixty. While many senior residents are active and healthy a growing majority are frail, and homebound. The City of Utica has made a commitment to build a continuum of care for the elderly which embraces an array of services including:
Priority 5: Services to youth which offer early intervention and middle-level intervention strategies.
Feedback from residents encouraged the City of Utica to build programs which offer direct services to youth and offer the opportunity for strengthening family relationships, communication and problem solving skills through a variety of program initiatives including:
Priority 6: Meet the needs of the growing refugee population.
Over 1,900 refugees have come to the Utica area since 1990 through the programs of the Mohawk Valley Resource Center for Refugees (MVRCR). The refugees come from Vietnam, Cambodia, Iraq, Russia, Byelorussia, Ukraine, Bulgaria, Poland, Czechoslovakia, Romania, Bosnia and Herzegovina, Haiti, Somalia, Sudan, and Libya. The refugee center projects that 400 persons will come to Utica as refugees in the upcoming year. The City of Utica will support ongoing efforts by the Refugee Center to offer the cultural and translation services necessary for refugees to adapt to their new environment.
Priority 7: Improve and develop a strong network of public improvements and infrastructure.
A major element of the City's Five Year Strategic Plan is to provide suitable living environments for all residents of our community. A number of activities will be carried out in the 1995-96 fiscal year. These public and infrastructure improvements will project a positive image and position the City of Utica to successfully compete in the marketplace. Activities under this priority include:
Priority 8: Revitalize Utica's neighborhoods and make them safe and liveable.
Many partners have responsibility for implementing a neighborhood revitalization strategy including the City of Utica, nonprofit agencies and the residents. The City of Utica proposes to support a block association organizing effort to enable residents to participate in this planning process.The following projects are a comprehensive effort and will relate closely to other objectives of the City of Utica's Consolidated Plan. The neighborhood revitalization efforts include:
The funding approach for the City of Utica's Community Planning and Development programs and projects for the 1995-96 fiscal year fall under two broad sponsorship approaches:
The significant problems, poverty and neighborhood decline faced by the Utica community and the limited resources available to meet these needs compels the City to make difficult decisions between competing proposals - many of which suggest exciting and viable alternatives for community revitalization. As part of the Consolidated Planning Process, and in response to citizen input, the City of Utica has evaluated its funding criteria in relation to HUD eligibility requirements and the articulated national priorities. Projects seeking support through any of the funding sources available from the City are evaluated based on the following elements:
The projects projected for funding during the first year of this five year plan are as follows:
| Project Name | Location | Cost |
|---|---|---|
| General Administration | $516,000 | |
| Economic Reinvestment Program | 887,500 | |
| Housing Rehabilitation | 895,000 | |
| Section 108 Loan Repayment | 350,000 | |
| Indirect Cost Allocation | 170,000 | |
| Street Improvements | 400,000 | |
| Streetscape | 150,000 | |
| Demolitions | 500,000 | |
| Playground Improvements | 266,000 | |
| Youth Entrepreneur for Success Program | 25,000 | |
| The Boys and Girls Club | 20,000 | |
| Cosmopolitan Center | 11,000 | |
| Senior Activities | 246,500 | |
| UCAI Weatherization Program | 40,000 | |
| Utica Enterprise Center | 80,000 | |
| NHS | 120,000 | |
| Pew Program | 40,000 | |
| Family Nurturing Center | 20,000 | |
| Youth Activities | 117,000 | |
| Administration of HOME Program | (City-Wide) | $83,800 |
| Affordable Housing New Construction | 320,000 | |
| Save Utica's Neighborhoods | 180,000 | |
| Substantial Rehabilitation | 254,200 | |
| Emmaus House | 1215 Kemble Street | 8,750 |
| Hall House, YWCA | 1000 Cornelia Street | 13,500 |
| HOPE House | Eagle Street | 14,300 |
| Utica Rescue Mission | 212 Rutger Street | 62,000 |
| New Horizons | 129 Eagle Street | 7,000 |
| Utica Community Action, Inc. | 214 Rutger Street | 15,000 |
| Total | $5,812,550 |
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 points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects at street level for one neighborhood; in addition, a table provides information about the project(s).
