Westchester County, New York, is a suburban area adjacent to New York City. The Westchester Urban County Consortium consists of 38 of the 43 municipalities in the county. The consortium is divided into four subregions: the Hudson Valley Region, the Bronx Valley Region, the Long Island Sound Region, and the Watershed Region.

Action Plan

During the first program year of its Consolidated Plan, which will last from August 1, 1995, to July 31, 1996, the consortium has planned a number of housing and community development projects. The consortium anticipates having $8.52 million, most of which will come from the Community Development Block Grant (CDBG), the HOME Investment Partnership Program (HOME), the Emergency Shelter Grant (ESG), and Housing Opportunities for Persons with AIDS (HOPWA). Some key projects to be undertaken in the first program year include rehabilitation of various public facilities, development of affordable housing, and support for non-profit providers of supportive services.

Citizen Participation

On December 14, 1994, the consortium held a public hearing to declare the Westchester County Planning Department as the lead agency for preparing the Consolidated Plan. Between January 11 and January 30, 1995, a public hearing was held in each of the four consortium subregions.

A draft of the plan was available March 9, 1995, and a public hearing to review the draft was held March 15, 1995. Between March 15 and April 15, 1995, the Planning Department staff conducted activities to inform the public of the

The consortium's population was 473,856 in 1990. The total number of households in the consortium in 1990 was 169,313. Of the total number of households, 90 percent were Caucasian; 6 percent were African American; 3 percent were Asian American or Pacific Islander; more than 5 percent were Hispanic; and more than 0.1 percent were Native American. The 1990 median family income (MFI) for the metropolitan statistical area was $58,862 but varied widely among the communities.

Of the 169,313 urban county households in 1990, 9 percent had incomes below 50 percent of MFI (extremely low-income), 8 percent had incomes 51-80 percent of MFI (very low-income), and 4 percent had incomes 81-95 percent of MFI (low-income). Incomes below 50 percent of MFI were found in 8 percent of Caucasian households; 21 percent of African-American households; 14 percent of Hispanic households; 11 percent of Native-American households; and 6 percent of Asian-American or Pacific Islander households.

Housing Needs

The U.S. Department of Housing and Urban Development (HUD) defines housing problems as overcrowding, household payment of at least 30 percent of income on housing (representing cost burden), or physical deficiency of the unit (such as incomplete plumbing). The 1990 census data found 516 housing units in the consortium with incomplete plumbing. The greatest number of overcrowded units are in Port Chester (924 units), Greenburgh (441 units), and Ossining (405).

Of the 9,093 extremely low-income renters, 76 percent have housing problems; 75 percent of very low-income renters and 61 percent of low-income renters also experience housing problems. Homeowners also experience a high rate of housing problems: 78 percent of extremely low-income homeowners, 62 percent of low income homeowners, and 70 percent of moderate income homeowners. Among renters at all income levels, over half of elderly households and 64 percent of large families (five or more persons) reported housing problems in 1990.

Market Conditions

There were 178,733 housing units in Westchester County in 1990, of which 33 percent were constructed before 1940 and 22 percent after 1970. In 1990, 535 residential building permits were issued, considerably fewer than in the 1980s when more than 1,400 permits were issued each year. More than half of the occupied units are owner-occupied.

The ability to purchase a home in Westchester County remains difficult for families earning 80 percent or less of MFI. Data from the Westchester County Board of Realtors, Inc., show median values in the fourth quarter of 1994 to be $275,750 for a single-family home, $160,000 for a condominium, and $70,000 for a cooperative apartment.

The highest median value in 1990 for a single-family house was around $500,000 in Scarsdale and Bronxville; the lowest was approximately $190,700 in Buchanan. To afford a median-priced house in Westchester, a family would need a $27,500 downpayment and an annual income of $104,816. This is almost twice the consortium's MFI and clearly out of reach of most households.

While the prices of residential units are higher than most of the market can afford, the demand remains steady. The vacancy rate in the consortium communities is low, with the rental vacancy rate at 4 percent and the sales vacancy rate at 2.5 percent. The vacancy rate for sales units is made up largely of cooperatives, constituting 50 of the vacancies. Communities with the highest vacancy rates include Lewisboro at 10 percent, North Salem at 13 percent, and Peekskill at 8 percent. Ardsley has the lowest vacancy rate at 2 percent.

Affordable Housing Needs

The communities with the highest number of homeowners spending more than 35 percent of their income on housing are Port Chester (30 percent), Ossining Town (26 percent), and Mamaroneck Village (25 percent). The greatest concentration of elderly homeowners (65 years or older) who pay more than 35 percent of their income for housing cost is in North Salem (32 percent), Lewisboro (34 percent), Pelham Manor (31 percent), Tarrytown (28 percent), and Tuckahoe (30 percent).

A majority of extremely low-income households within the consortium have housing cost burdens. About 75 percent of renters and 78 percent of homeowners in this income category spend at least 30 percent of their income on housing. Of the very low-income households, 70 percent of renters and 61 percent of homeowners have cost burdens greater than 30 percent. The numbers drop slightly among low-income households, with 55 percent of renters and 68 percent of homeowners having cost burdens greater than 30 percent.

Homeless Needs

According to the county's Department of Social Services, about 875 families with children and 792 individuals are homeless in a given month in Westchester County. Nineteen percent of these families and 17 percent of individuals listed one of the consortium communities as their last known address. Peekskill had the highest percentage of homeless families (37 percent).

The Department of Social Services identified and ranked the needs of the homeless in the following order: permanent affordable housing, permanent supportive housing, transitional shelters, emergency shelters, and outreach assessment.

Homeless individuals need transitional housing facilities and permanent single-room occupancy units. They very often require substance abuse counseling and job training. The primary need for homeless families with children is permanent housing. The county has developed a continuum-of-care strategy to address the needs of the homeless, which includes assisting low-income families at risk of homelessness, assessing the individual needs of homeless persons, addressing emergency shelter and transitional housing needs, and assisting homeless persons to make the transition to permanent housing and independent living.

Public and Assisted Housing Needs

Within the Westchester Urban County Consortium are seven independent housing agencies assisted by Federal or State subsidies. These agencies have a total of 1,399 units, conditions of which vary by agency. In Port Chester 146 persons are waiting for one of 420 housing units to become available. In Greenburgh 520 persons are waiting for one of 324 units. Neither list is open.

There are 4,709 assisted housing units in the consortium. Of these 1,149 are New York State Mitchell Lama units. The second most common type of assisted housing is Section 8 units of which there are 981. The remainder of the assisted units are funded through various Federal, State, and local programs, including Section 202, Section 213, Section 221(d) (3), Section 232, and the New York State Housing Finance Agency. Of the total assisted housing units, 1,637 are subject to prepayment.

Barriers to Affordable Housing

The county has identified a number of State or local policies that affect the development, maintenance, or improvement of affordable housing in the county. Rezoning from residential to commercial use may decrease the land available for residential purposes. Zoning may also be used to limit high-density developments and minimum dwelling unit sizes for multifamily units. Local zoning ordinances may not include the incentive of density bonuses that encourage the building of affordable units.

Particular land use controls that may affect affordability include subdivision regulations, including both administrative regulations and design standards; imposition of impact fees; and steep slope ordinances. According to a 1985 Planning Department report, 37 of Westchester's 43 municipalities have adopted municipal subdivision regulations. While these regulations are intended to ensure the safe division of land into smaller tracts and subsequent development of those tracts, subdivision regulations can be overly strict.

Tax policies may impact affordability by imposing special district assessments for governmental services. In addition, areas that have not been reassessed for a number of years may place an undue tax burden on new homebuyers.

Building codes may impact affordability due to minor technical violations that can hold up construction, thus adding unnecessary costs to a project.

While certain environmental regulations may be important to good land use planning, they can thwart construction of affordable housing. One example is the New York State moratoria on construction of housing that requires a sewer line extension.

Fair Housing

The county will conduct an analysis of impediments to fair housing choice within the jurisdiction, take appropriate actions to overcome the effects of any impediments identified through that analysis, and maintain records reflecting that analysis and any subsequent actions.

Lead-Based Paint

About 89 percent of the housing stock within the consortium is considered at-risk for environmental lead hazards because they were built before 1980. A special lead abatement program conducted by the county Health Department has found 35 confirmed cases of lead poisoning. The communities with the highest incidence of lead-based paint poisoning are Port Chester with eight confirmed cases and Ossining with five confirmed cases.

Other Issues

A number of special populations in the consortium have special housing needs:

• People with HIV/AIDS. An assessment prepared by the Hudson Valley Health System Agency, working with the county's Department of Health, found a need for housing for people with HIV/AIDS. Case managers estimate 30 percent of their clients with HIV are in need of one or more housing services, and an overwhelming majority are at risk of homelessness or are living in substandard housing. There is a lack of available affordable housing for this population. There are facilities for individuals with HIV/AIDS in Valhalla and Yonkers. With Federal HOPWA funding, the county is establishing a 2-year rental assistance program for 40 households.
• People with disabilities. There are 38 intermediate-care facilities with space for 261 developmentally disabled persons living in the consortium. In addition, there are 17 supervised living facilities and individual residential alternatives that can serve 178 developmentally disabled persons. With limited affordable housing and long waiting lists for Section 8 and other HUD programs, there is a need for affordable and accessible housing for this population.
• Persons with mental Illnesses. There are 13 facilities for the mentally ill. In addition, there are 8 community care facilities that can serve 52 war veterans recovering from mental illness. There are also 10 supervised living facilities for people recovering from mental illness, with a total capacity of 102.
• Elderly. Of the 38,254 elderly households in the consortium, nearly 22 percent pay at least half of their income for housing. Perhaps the biggest burden on elderly homeowners is local property taxes that can easily exceed $5,000 a year. This can consume 30 to 50 percent of an elderly homeowner's income, which is often made up of Social Security and pension benefits.

The Westchester County Department of Planning projects that affordable housing for elderly renters and owners will become more acute in the next 5 years. Those 85 and older are the fastest growing segment of the consortium population. There is a demand for transportation services, adult day care, housing rehabilitation and upkeep, and other services for the elderly.

Community Development Needs

Among the community development needs are infrastructure, public facilities, social services, economic development, and compliance with the Americans with Disabilities Act. Each of the four subregions in the consortium will have different needs in these categories.

Housing Priorities

The consortium has identified a number of housing priorities for the next 5 years:

• Increase the supply of affordable rental units, particularly large-size units, for low- and very low-income families. Funds will be earmarked for rehabilitation or demolition and new rental housing construction.
• Increase the supply of affordable homeownership housing for moderate- and middle-income families. The consortium will spend funds on projects that acquire land for affordable housing construction or subsidize mortgage interest rates.
• Reduce the number of elderly households that spend at least 30 percent of their income for housing. Seniors will be encouraged to obtain reverse equity mortgages.
• Increase the number of senior citizens who receive grants and loans to rehabilitate their homes. The consortium will continue to provide grants for senior citizens with emergency home repairs.
• Assist more low-income families in avoiding homelessness. The county's Department of Planning, Department of Social Services, and Department of Community Mental Health have committed funds or developed programs to provide: tenant counseling, bilingual outreach and supportive services to at-risk tenants, eviction prevention and re-housing assistance, senior citizen assistance for those who seek congregate housing or reverse mortgages, Section 8 certificates and vouchers, domestic violence education and counseling programs, and rental assistance for people with HIV/AIDS.
• Assist homeless people in assessing their individual needs. The county anticipates using funds to: provide coordinated assessments of homeless families and homeless individuals, provide coordinated case management, conduct outreach activities targeted at homeless people with special needs, offer case management for family self-sufficiency program participants who are at-risk or have been recently re-housed, and devise and implement innovative programs for target populations.
• Meet emergency shelter and transitional housing needs of the homeless. The consortium plans to acquire funding to: provide resettlement and independent living services, increase the inventory of transitional housing units that are linked with supportive services, and work with municipalities and developers to help fund new affordable housing initiatives.

Non-housing Community Development Priorities

The consortium's primary purpose is to stabilize neighborhoods occupied by low- and moderate-income residents and to improve public facilities where essential services are available to low- and moderate-income people.

Three specific priority needs have been identified for the Hudson Valley Region:

• Infrastructure improvements. The Hudson Valley Region will address sewer, water, and flood drain deficiencies to correct health and safety problems and improve sidewalks and streetscapes in central business districts as part of a coordinated effort to stem their decline.
• Social services. The Hudson Valley Region will improve the availability of health services for low-income families in the region and address the special needs of the low- and moderate-income families of the region.
• Economic development. The Hudson Valley Region will conduct an economic development program that capitalizes on the tourism potential of the Hudson Valley and will complete current projects that are being phased out due to lack of funding.

The Bronx Valley Region has identified three specific priorities:

• Infrastructure improvements. This region will address sewer, water, and flood drain deficiencies to correct health and safety problems. It will also undertake sidewalk and recreational facility improvements to stabilize low- and moderate-income neighborhoods.
• Public facility improvements. The region will improve the availability of services for low- and moderate-income residents through rehabilitation and expansion of existing centers and, wherever possible, construction of new facilities.
• Central business district improvements. The region plans to enhance central business districts through a multifaceted approach that addresses economic as well as physical problems. Business district improvements will be completed.

The Long Island Sound Region has three specific priority needs:

• Infrastructure improvements. The region will complete central business district improvements that have already started, particularly in areas of severe decline. Sidewalk, park, and recreational facility improvements are planned to stabilize low- and moderate-income neighborhoods.
• Economic development. A multifaceted approach to enhance the central business district is planned. The region will also promote the growth of microenterprises, particularly in the central business districts of the region.
• Public facilities and social services. The region will rehabilitate existing facilities of service providers and improve the availability of services for low- and moderate-income residents.

Three specific priority needs have been identified for the Watershed Region:

• Public facilities. The region plans to provide public facilities with adequate program space to accommodate low- and moderate-income residents.
• Social services. Supportive services for low- and moderate-income persons with special needs will be made available in the region.
• Infrastructure needs. Support will be given to efforts of municipalities and social service organizations to comply with New York City Watershed Regulations and the requirements of the New York City Department of Environmental Protection. The region will address sewer, water, and flood drain deficiencies in order to correct health and safety problems.

Anti-Poverty Strategy

The Westchester County Department of Social Services is responsible for assisting impoverished families and developing programs. Residents seeking public assistance use eight district offices. Non-profit social service organizations operate a variety of programs that help poverty-level families in the consortium. The consortium has used funds to improve day care facilities, provide scholarships for children to attend day care, and support drug treatment, job training, and victim assistance programs that benefit poverty-level families.

Housing and Community Development Resources

In addition to a number of Federal resources, the consortium will use private and non-Federal resources. State resources include the Department of Social Services, the Division of Housing and Community Renewal, the Housing Authority, the Low-Income Trust Fund, the Neighborhood Preservation Fund, the Department of Transportation, the Department for Youth, and the Capital Funds for Medical Center Expansion.

Other resources include conventional bank loans from private lending institutions, municipal tax-levied funds, the Team Hudson Valley Regional Revolving Loan Fund, the Westchester County Housing Implementation Funds, the Westchester County Capital Budget, the Westchester County Office for the Aging, and the New York City Department of Environmental Protection.

Coordination of the Strategic Plan

The relationship between the Westchester Urban County Consortium and New York State is determined by the funds provided by various State agencies. The agencies most involved with the consortium have been the Affordable Housing Corporation (AHC), which has provided financing for 350 housing units in Westchester County. This agency works closely with the consortium to coordinate the development of new homeownership units. Other agencies that have worked with the consortium have been the Division of Housing and Community Renewal and the Homeless Housing Assistance Program. Both agencies work with the consortium to leverage Federal, State, and county funds to develop affordable housing units.

The county will continue to sponsor, through the Section 8 Rental Assistance Office, monthly meetings for Section 8 administrators. These meetings encourage coordination between assisted housing providers. The county will continue to provide technical assistance for the administration of the Family Self-Sufficiency (FSS) program for those who wish to operate an FSS program.

Because the consortium comprises 38 municipalities, local government officials work closely with the county Planning Department to determine the goals of the Consolidated Plan.

Description of Key Projects

The Hudson Valley Region will implement economic development, infrastructure improvements, public facilities, and social service expansion. While many of these activities will be conducted with CDBG grants, municipalities will conduct other initiatives using Federal, State, and private resources. Activities generated through the Historic River Towns of Westchester Committee will promote tourism and catalyze municipal improvements in central business districts. Specific projects will be conducted by the Village of Tarrytown through a vision plan that makes the business district more pedestrian friendly.

The two key objectives of the Bronx Valley Region will be infrastructure improvements and downtown revitalization activities. Eastchester and Tuckahoe will conduct municipal sidewalk improvement projects, and several public facilities will be expanded and enhanced.

Municipalities in the Long Island Sound Region will address the need to upgrade infrastructure to meet Federal non-point source pollution mandates. Mamaroneck and Port Chester will begin projects to revitalize their downtowns and create linkages between transportation and the waterfront.

Because of the uncertainty of New York City regulations on the watershed, it is difficult to predict specific development activities. The majority of the activities in the Watershed Region will include enhancing existing public facilities and upgrading existing infrastructure.

Housing Goals

The consortium estimates that it will assist 510 households throughout the next five years. This includes the rehabilitation and new construction of affordable units. It is further anticipated that 279 units will be assisted in the next three years.

Maps

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; in addition, a table provides information about the project(s).