The cities of Eugene and Springfield, Oregon, border each other in the Williamette Valley along the Interstate 5 corridor in western Oregon. Eugene is the second, and Springfield is the seventh largest city in the State. The two cities are about 100 miles south of Portland and about 140 miles north of the California State line.
From about 1940 until about 1979, timber and lumber products were the primary industries and the region's major employers. As lumber industry employment declined In the 1980s and 1990s, other types of manufacturing and the service and trade sectors of the economy expanded. The University of Oregon, with 17,000 students, is located in Eugene.
In a combined Consolidated Plan, the neighboring cities of Eugene and Springfield describe their housing and community development needs and priorities as well as a 5-year strategy for addressing these needs.
Both Eugene and Springfield are "entitlement" communities under HUD's Community Development Block Grant (CDBG) program, and they will receive separate grants for the activities described in their joint plan. For the first year of the plan, Eugene will receive $1.6 million in CDBG entitlement money, while Springfield will receive $725,000.
For HUD's HOME Investment Partnership (HOME) program, the two cities have formed the Eugene/Springfield HOME Consortium, which will receive $1.1 million in HOME funding in 1995.
Eugene will also receive $230,000 in Housing Opportunities for Persons with AIDS (HOPWA) program funds.
These CDBG, HOME, and HOPWA funds will be used to finance 40 housing, community development, and public service activities in the 2 cities.
Citizen participation in the development of the Consolidated Plan began with a public forum held at the Springfield Depot on November 17, 1994. Notices advertising the event were placed in the Register Guard, Springfield News, and Eugene Weekly newspapers and mailed to a list of over 500 interested parties. Representatives from Eugene's CDBG Advisory Committee, Springfield's Community Development Advisory Committee, Springfield's Mayor's Housing Task Force, the Housing Policy Board, and the Intergovernmental Human Services Committee conducted the forum to receive public comment on housing and community development needs.
A draft of the Eugene/Springfield Consolidated Plan was made available for a 30-day public review period, beginning on March 20, 1995. On March 30, an advertised public hearing was held at the Eugene Water and Electric Board Building to receive public comment on the draft plan. Concerns expressed during the testimony for this hearing were addressed in the final document. The Consolidated Plan was adopted by the Springfield City Council on May 1, 1995, and by the Eugene City Council on May 8, 1995.
According to the 1990 census, Eugene's population was 112,669, and Springfield's was 44,683. The population of both increased during the 1980s. Eugene's grew by 6.7 percent, and Springfield's grew by 7.4 percent. Most of this growth occurred during the latter half of the decade, because early in the decade poor economic conditions in both cities resulted in a population decrease.
Reported racial/ethnic subpopulations among Eugene's 112,669 residents were:
Reported racial/ethnic subpopulations among Springfield's 44,683 residents were:
Median family income (MFI) for the Eugene-Springfield metropolitan area is $30,762. while the national median is $35,939.
Of the 46,385 households in Eugene, 41 percent have annual incomes of 80 percent or less of the area MFI. Analysis of census data indicates the following levels of low- and moderate- income households:
Of the 17,526 households in Springfield, 48 percent have annual incomes of 80 percent or less of MFI. Analysis of census data indicates the following levels of low- and moderate- income households:
From about 1940 until 1979, most of the manufacturing jobs in the area were in the lumber products industry. Since 1982 most manufacturing employment growth has been in non- lumber sectors, including: printing and publishing, transportation equipment, electrical equipment, and rubber and plastic products.
Most employment growth during the mid- and late-1980s did not involve factory jobs. Between 1982 and 1990, non-manufacturing employment rose by an average of 3,000 jobs per year in Lane County, which encompasses both cities. This growth included a 57-percent increase in service jobs, 35-percent increase in retail positions, and a 16-percent increase in government employment. The largest employers in Eugene-Springfield are no longer manufacturers. The impact on the economy is that while manufacturing jobs traditionally pay a "family or living wage," jobs in the service and retail sector pay lower wages on average, making it more difficult for many households to afford basic needs, such as housing.
From 1990 to 1994, employment grew by an average of 2,000 jobs per year, rising to a level of 125,000. Strong job-creating sectors have been residential and nonresidential construction and the service sector. The local economy is expected to expand by a moderate 2-3 percent in 1995. One bright spot is a new Sony plant being built to manufacture compact discs. The factory is expected to employ 380 people. Another company has announced it will build a plant to supply packaging to the Sony facility.
Eugene and Springfield are attracting new residents (mostly from California), and the population is growing. However, a shortfall in the rental housing supply exists because new construction has not kept up with demand. Furthermore, although employment growth is keeping up with population growth, wage levels have dropped in recent years. Consequently, family incomes are lower, making the limited housing supply unaffordable for most of the area's population.
The most important housing need is to increase the supply of permanent affordable rental housing for low-income households. A related need is to preserve and maintain the supply of existing affordable housing. Another main need is to increase homeownership opportunities for lower income residents.
In 1990, the Census Bureau reported that there were 47,991 housing units in Eugene. Of these, 46,274 units were occupied, with 22,791 (49 percent) being renter-occupied and 23,483 (51 percent) being owner-occupied. There were 18,121 housing units in Springfield. Of these, 17,447 were occupied, with 8,848 (51 percent) being renter-occupied and 8,599 (49 percent) being owner-occupied.
In both cities the housing stock is in relatively good condition, containing a smaller percentage of substandard housing than other communities. One reason is that the housing is relatively new. According to 1990 census data, just under 10 percent of the housing stock was built before 1939, versus 20 percent for the State, while about 37 percent of the housing in the Eugene-Springfield metropolitan area was built between 1970 and 1980.
Very little multifamily construction occurred in Eugene between 1980 and 1988, with only 674 new units being built over those years. From 1989 to 1992, 1,472 new multifamily units were built. In Springfield the pattern was similar, except that only about one-third as many units were produced. However, given population growth and the strong demand for rental units, the supply of rentals in both cities has not kept pace.
Rental vacancy rates during the 1990 census were 2.1 percent in Eugene and 3.3 percent in Springfield. As of March 1995, a local real estate apartment survey found vacancy rates at 0.6 percent in South Eugene, 1.4 percent in West Eugene, and 2.7 percent in Springfield. A September 1994 survey from the same source indicated that apartment managers were leasing most units before the previous tenants vacated the apartments. Overall vacancies for low-cost units can be assumed to be less than 1 percent. However, most rental units built during the past few years have been targeted for the high end of the market (over $500 a month) because of building costs.
In 1990 the median contract rent was $375 in Eugene and $362 in Springfield, versus the State median rent of $344. Despite Eugene's higher median rent, 18 percent of the city's rental units cost $250 or less per month. Two factors may account for this high percentage: the number of the University of Oregon's low-cost married-student housing units, and the number of assisted housing units in Eugene.
The 1990 median value of owner-occupied housing was $73,200 in Eugene and $51,000 in Springfield. A local newspaper real estate section reported that the average price of properties sold was $87,000 during the summer of 1992, versus $94,000 in 1993. Furthermore, the Greater Lane County Multiple Listing Service reported that the average sales price was $99,677 in January 1994, versus $101,303 in January 1995.
The number of affordable housing units in the Eugene/Springfield market continues to diminish as rental rates continue to increase, pricing more and more lower income households out of the market. To provide both adequate availability and price stability, an overall 5-percent vacancy rate is generally considered necessary. The current demand/supply situation would require the immediate construction of over 1,000 units. Projected growth rates would require the construction of another 500-600 units a year to meet the annual demand for new rental units. However, if only high-cost units were built, the impact on the current availability of affordable units would be minimal.
A large proportion of lower income households are cost burdened, paying more than 30 percent of their gross income for housing expenses, including utilities. Some households are severely cost burdened, paying more than 50 percent.
Of Eugene's 5,446 extremely low-income renter households, 81 percent are cost burdened, and 67 percent are severely cost burdened. Of 4,110 low-income renter households, 81 percent are cost burdened, and 42 percent are severely cost burdened.
The affordability situation in Springfield is very similar. Of the city's 1,582 extremely low- income renter households, 81 percent are cost burdened, and 71 percent are severely cost burdened. Of 1,553 low-income renter households, 83 percent are cost burdened, and 37 percent are severely cost burdened.
The Oregon Shelter Night Count survey reported that on November 30, 1994, there were 1,093 homeless persons in Lane County (including the Eugene-Springfield metropolitan area). Of these, 842 were sheltered in community facilities, and 251 were unsheltered. Among the unsheltered were 51 families with 182 members, including 95 children.
This survey counted 172 families with 546 people, with over 70 percent being single-parent families. Lane County statistics indicated that about of 1,113 families served by the shelter network between 1994 and 1995, 60 percent consisted of parents under age 25 and children under age 6. About 50 percent were headed by single parents, and about 47 percent were headed by parents who had not completed high school. A University of Oregon study found that many of the younger teen parents were rejected by their relatives because of self-destructive behaviors, such as being unwed parents, dropping out of school, being substance abusers, and neglecting or abusing their children. Teen parents also have weak parenting skills and work skills, causing relatives who would normally serve as a support network to lose their patience with young parents.
More emergency shelter space, transitional housing, and supportive services are needed for homeless families. Also, Lane County's supportive services for homeless single adults, independent youth, and childless couples are very limited.
The Housing Authority and Community Services Agency of Lane County (HACSA) has four public housing communities with 416 units throughout Springfield and Eugene. All units are occupied, and 2,571 names appear on the county authority's waiting list for public housing.
HACSA also administers a tenant-based Section 8 rental assistance program with 1,984 certificates and vouchers. The waiting list for Section 8 assistance contains over 2,000 names. (Of these, 1,600 applied during the first two weeks of the list's opening on December 15, 1994).
Eugene and Springfield contain 414 project-based Section 8 units in 7 communities. Another 991 units in 11 communities receive Federal assistance under various programs, such as Section 202 housing for the elderly and Section 221(d)(3) mortgage subsidy.
As in other areas of the country, producing low-cost housing in Eugene-Springfield is generally difficult. Affordable housing is affected by many factors, some of which are beyond the control of local government. General factors affecting all housing include:
Additional barriers for assisted housing subsidized by local, State or Federal sources include:
Estimates based on age of the housing stock suggest that about 2,719 rental units in Eugene and 483 in Springfield contain lead-based paint, while 2,016 owner-occupied units in Eugene and 418 in Springfield contain lead-based paint. Of the housing units built before 1940, an estimated 18 percent of those in Eugene and 21 percent of those in Springfield are occupied by very low-income renters.
There are also housing and supportive needs for the elderly, the mentally disabled, the mentally ill, the physically disabled, substance abusers, and victims of domestic violence. Although each group generally has similar needs, such as affordable and accessible housing, the groups differ somewhat in the mix of supportive services they need.
Community development needs for both cities include continuing to update and improve infrastructure and public facilities, such as streets, parks, facilities of nonprofit service groups, and public buildings. The needed work includes modifications for handicapped accessibility, abatement of lead-based paint hazards, and building upgrades to ensure compliance with code requirements.
Public service needs include continued support of nonprofit and other agencies that provide social and human services to low-income residents. Economic development needs center on creating and retaining jobs for lower income residents.
For Springfield and Eugene, housing priorities are grouped into three areas -- affordable permanent housing, emergency services for homeless households, and supportive housing and services.
In the area of affordable permanent housing, each city's priorities are the reverse of the other's. These priorities are:
For Eugene For Springfield
To increase rental supply. To increase homeownership. To maintain existing housing. To maintain existing housing. To increase homeownership. To increase rental supply.
In the area of emergency services for homeless households, both cities have identical priorities, which are:
In the area of supportive housing and services, both cities have identical priorities, which are:
Springfield's community development priorities include:
Eugene's community development priorities include:
Eugene and Springfield will use the metropolitan area continuum-of-care service system as a major element of its anti-poverty strategy. This system provides services and support to the homeless and those threatened with homelessness. The continuum offers immediate crisis stabilization services provided at a day-access center and night shelters and at community service centers in Springfield, Eugene, Florence, and Cottage Grove. Available services include: transitional housing, housing and employment counseling, legal assistance, parent education, and permanent supportive housing services. Support includes case management and money management skills training to help participants reach self-sufficiency.
The financial resources to implement the 5-year plan include CDBG, HOME, and HOPWA funds, which will be received this year. Eugene and Springfield anticipate that similar levels of HUD community development and housing funds will be available during the remaining 4 years of the 5-year plan. Other funding available to help the two cities implement their strategic plan includes a variety of Federal and State programs.
Coordination efforts between the numerous assisted housing providers and public, private, and government health, mental health, and service agencies are very important. The Housing Policy Board and the Intergovernmental Human Services Committee are the two major groups that provide policy and funding directions for the delivery of housing and social services.
Coordination for Eugene's HOPWA activities will be between the city, HIV Alliance (its contractor agency), and other service providers.
For the 1995-1996 program year, Eugene and Springfield plan to use $5.3 million in CDBG, HOME, HOPWA, and program income funds for 37 activities that address specific housing, community development, and human services needs.
Springfield will allocate $849,842 in CDBG and HOME funds for housing activities, including:
$340,000 for site acquisition as well as construction of new rental and owner occupied housing and other projects recommended by the Housing Policy Board.
$371,352 for four housing rehabilitation loan programs.
$64,700 for minor emergency housing repairs.
Springfield will budget $271,000 for community development infrastructure and planning projects, including:
$64,220 for three planning items -- a housing planner to update residential land-use plans, public safety strategic planning, and clarification of city planning policies.
$100,000 for construction of West M Street.
$50,000 for a modular unit to serve as a short-term treatment facility for emotionally disabled and disturbed children.
Eugene will allocate $1.7 million for housing activities, including:
$887,135 for site acquisition and construction of housing for lower income residents. Projects will be recommended by the Housing Policy Board.
$678,000 for two housing rehabilitation loan programs.
Eugene will budget $484,000 for public facilities and infrastructure, including:
$210,000 for handicapped accessibility modifications to a homeless shelter, sidewalks near schools, and city facilities, to ensure compliance with requirements of the Americans with Disabilities Act.
For public services, Eugene will allocate the maximum allowable 15 percent of its CDBG funds to the Intergovernmental Human Services Committee, a collaborative social services funding effort with Springfield and Lane County.
Eugene's HOPWA grant of $230,000 is to be used to fund housing and supportive services for persons with HIV/AIDS. The city will contract with the HIV Alliance (formerly Lane County AIDS Hospice and HIV/AIDS Alliance) to provide a continuum of care for persons with HIV/AIDS.
All of the CDBG-funded activities will take place within the boundaries of Eugene and Springfield. Specific locations for housing rehabilitation efforts have not yet been determined and will depend on the locations specified in the loan applications. For Eugene's HOPWA grant activities, specific projects will be identified by the HIV Alliance Board of Directors. Given rising market costs for real estate rental or acquisition, the board will proceeding cautiously with its plans to acquire a suitable site for service delivery.
The city of Eugene served as the lead agency for the coordination and development of the Consolidated Plan.
For the Eugene-Springfield HOME Consortium, the local Housing Policy Board recommends uses for the HOME funds, while the Consortium administers the funds. The Intergovernmental Human Services Committee provides direction and coordination for the delivery of social services.
For Eugene, the Planning and Development Department is the responsible city unit. For Springfield, the Development Services Department is the focus and point of contact.
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 6a is sectioned by neighborhood for Eugene, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 6b is sectioned by neighborhood for Springfield, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 7a depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the Eugene's four neighborhoods indicated in MAP 6a.
MAP 7b depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the Springfield's four neighborhoods indicated in MAP 6b.
MAP 8a depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of Eugene's four neighborhoods indicated in MAP 6a.
MAP 8b depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of Springfield's four neighborhoods indicated in MAP 6b.
MAP 9a depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point within Eugene; in addition, a table provides information about the project(s).
MAP 9b depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point within Springfiled; in addition, a table provides information about the project(s).
