Charleston, South Carolina is a city in transition that is trying to maintain a balance between its rich historic preservation needs and its modern housing demands. The impact of Hurricane Hugo in 1989, combined with the pending closure of the naval base in 1996, have produced a series of housing and economic challenges for the Charleston community. With its designation as an Enterprise Community, Charleston is seeking to revitalize its neighborhoods and improve the living standards for its residents.
The Consolidated Plan of Charleston includes a budget of $1,515 million in Community Development Block Grant (CDBG) funds and $628,000 in HOME funds. With its designation as an Enterprise Community, the city of Charleston was also awarded a $3 million grant. These funds will help in fostering the city's plan for meeting the housing needs of the community. This plan will entail the expansion of the supply of available housing and the construction and rehabilitation of affordable housing.
While housing is important to the overall comprehensive plan for revitalization, the over arching aim of the city's plan is the emphasis on improving the quality of life and increasing available opportunities for city residents. The combination of all available resources will help to empower residents and neighborhoods in implementing a vision for community change.
Preparation of the Consolidated Plan of Charleston included collaboration with 37 agencies, nonprofit organizations, businesses, and churches. An emphasis was place on participation by low- and moderate-income residents in order to effectively develop its housing strategy. The city's Department of Housing and Economic Development, established as the lead organization in the compilation of data for the Consolidated Plan, sought input from more than 100 service providers, department heads, and neighborhood residents.
Two advisory committees were established as information sources on community needs and available resources. A Neighborhood Advisory Committee, comprised of representatives from all of the targeted areas, was established to receive the widest input possible in developing the Consolidated Plan. The Committee was expanded to form the Consolidated Plan Advisory Committee, which included members of the banking community, human service and nonprofit organizations and developers of affordable housing. The larger committee was then divided into three subcommittees--housing, community development, and homelessness--to develop the priorities and strategies for the 5-year plan. The committees met numerous times to develop the final program. Citizen participation was encouraged through two public hearings, published materials, and surveys. Two meetings were held by the Consolidated Plan Advisory Committee, which resulted in a published report of the Committee's findings.
MAP 1 depicts points of interest in the jurisdiction.
Charleston, SC, is a progressive community that has triumphed over several challenges in the past 10 years. Charleston has a rich heritage which many preservation groups and the city strive to preserve. Peninsular Charleston, which includes 1,785 acres of land, is the focus of increased preservation efforts including rehabilitation, new construction, and green spaces. Newly annexed areas such as West Ashley and James Island, have expanded the city's boundaries from 28.5 square miles in 1980 to 72.1 square miles in 1993. From 1980 to 1990, the Charleston metropolitan area was the most rapidly growing region in the State of South Carolina.
According to the 1990 census, Charleston had a population of 80,414, of which 57 percent were white, 42 percent were black, and 2 percent were other minorities. Even though 1994 figures show that the median income for a family of four in Charleston is $35,600, approximately 29 percent of all households are very low income (less than 51 percent of median family income [MFI] for the area). There are 8,877 very low-income households that did not earn more than $17,800. More than half (62 percent) of these are black, 37 percent are white, and 1 percent are other minorities.
Among low-income households (51 to 80 percent of MFI), there were more whites (2,244) than blacks (1,941). Most low-income households are concentrated in the Peninsula, although a significant number of low-income households live in suburban areas including James Island, West Ashley, and Johns Island.
Whites were also the majority in the moderate-income level (81 to 95 percent of MFI), as they accounted for 61 percent of the moderate-income households. Moderate-income households made up only 7 percent of the total households within the city.
Family households constitute 61 percent of all households in Charleston, with particular growth noted in the category of single-parent households, especially single mothers and their children (20 percent). Single-member households made up 19 percent of the total number of households in the city. Another growing segment of the population is the elderly, who are projected to increase to 19,426 by the year 2000.
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.
The housing stock in Charleston is unlike that of any other city, due in part to the age of the homes. The 1990 census found that 9,371 housing structures in the city were built prior to 1939. Located on the Peninsula, some of these houses are up to 250 years old. As a result, this area contains the largest percentages of deteriorating units. Although the majority of housing units on the Peninsula are single-unit detached homes, there are many two- to four- unit buildings, which reflects the subdivision of older homes for apartment rentals. The Preservation Society conducted a Buildings at Risk Survey, which found that out of 8,698 total units, 5,055 were in need of some rehabilitation.
In the suburban areas, household types are more diversified, and large multifamily developments and single-family detached homes are found. Hurricane Hugo, which hit the community in 1989, destroyed over 2,200 homes in Charleston County including 530 within the city limits.
Although tourism is the major provider of employment for Charleston, the Charleston Naval Station and Shipyard employs more than 26,000 civilian and military personnel. It is expected that the pending closure of the naval facilities in 1996 will impact the housing and employment stability of the area.
According to the 1990 census, Charleston had 34,322 year-round housing units, an increase of 26 percent in the past 10 years. The homeownership rate for the city of Charleston is 48 percent, compared to 58 percent for Charleston County and 70 percent for the State.
The average cost of purchasing a house in Charleston is $73,800, which is due in part to the historic downtown revitalization and gentrification. The average housing cost is $119,650 on the Peninsula, while the median value is $67,250 on Johns Island.
Hurricane Hugo destroyed more than 2,200 homes in Charleston County, with 580 of those within the city limits. Census figures show a net loss of 53 units between 1980 and 1990. Part of this loss was from the hurricane and part was from age and neglect. In two census tracts, over 12 percent of the housing stock was eliminated.
Because of the losses from Hurricane Hugo, occupancy rates for rental units are nearly 100 percent. This low vacancy rate, along with extensive repairs that had to be made by many landlords and the resulting increases in rent, has made Charleston a "landlord's market." The median rent in Charleston is $341 per month.
A 1994 Building Activity Report indicated that single-family housing construction is strong compared to multifamily units. Of 355 permits issued for new residential construction in 1994, 319 were for single-family residential units and only 36 were for multifamily units. Apartment/condominium construction surged in the early 1980s, but fell dramatically after 1987.
According to the 1990 census, 7,098 persons, or 22 percent of the population in Charleston, were below the poverty level. Of this group, approximately 37 percent were white and the majority (62 percent) were black. There were only 2,686 rental units affordable to households below 30 percent of the median income, but 4,422 households were in need of those apartments. For those within 50 percent of the median income, there were 5,461 rental units available for the 6,646 households at this income level.
Most very low-income households (0 to 50 percent of MFI) rent their homes (6,646 renter households versus 2,228 owners). Of the renters, 80 percent report some type of housing problem and 76 percent pay more than 30 percent of their income on rent. Almost three out of four very low-income homeowners pay more than 30 percent of their income for housing, and almost 46 percent pay more than 50 percent of their income for housing.
Most low-income households (51 to 80 percent of MFI) are also renters. Often they must choose between substandard housing or local available housing beyond the range of affordability. Half of the renters in this bracket report housing problems, usually cost burdens. Among the owners at this income level, 41 percent report some housing problem.
Moderate-income households (81 to 95 percent of MFI) account for only 7 percent of the households in Charleston (2,280 households). According to the 1990 census, 61 percent of the moderate-income households were white, 37 percent were black, and 2 percent were other minorities. Most moderate-income households rented their homes; only 1,014 of these households owned their homes.
Homelessness is a serious problem in Charleston. Estimates indicate that there are between 600 and 1,000 persons without a home on any given night. Most of the homeless are black (62 percent), 32 percent are white, and 5 percent are Hispanic. Notable among the homeless population are the high numbers of military veterans (21 percent) and working homeless (46 percent). Although men outnumber women by two to one, service providers reported that the number of women and their children needing shelter is increasing.
Organizations such as Crisis Ministries, the Charleston County Human Services Commission, Trident United Way, and the Charleston Community Housing Resources Board also work in collaboration to provide a continuum of care to the homeless. However, additional assistance is required to provide job training and placement, assessment and outreach, credit counseling, emergency financial assistance, food, and reliable transportation. One critical concern is the provision of affordable child care, as families with children are a growing subpopulation within the homeless category. Other groups identified as high needs in the homeless population are substance abusers, youths, the working homeless, mentally and physically disabled persons, and individuals with HIV/AIDS.
Even though the Housing Authority operates 34 housing units for the homeless under a Transitional Housing Grant, more than 100 persons had to be turned away because of lack of sufficient transitional houses.
The McKinney Task Force is working on coordinating efforts to develop an integrated services facility. The Task Force has worked in conjunction with the Naval Redevelopment Authority on the reuse of base facilities, and a Memorandum of Agreement has been signed between the two organizations. The Integrated Services Facility will serve as a "one-stop shop" of providers assisting the homeless.
The Housing Authority, an independent organization governed by its own Board of Commissioners, operates the public housing program in Charleston. It has recently purchased two new developments targeted for affordable housing: the William Enston Homes will have 38 units for the elderly, and the Ashley Oaks Apartment complex will have 35 percent of its 420 units available for low-income residents. The remaining units are available for moderate-income households.
In addition, the Housing Authority has governance over:
There are 700 households on the waiting list for public housing and 154 applicants who are on the waiting list for Section 8 units. The waiting time is 15 to 18 months, and approximately 175 preliminary applications are currently being considered.
The Consolidated Plan of Charleston identified the following barriers to affordable housing and developed several solutions to alleviate those barriers.
As one of the objectives of the Consolidated Plan, Charleston encourages initiatives that ensure that all persons seeking housing, especially lower-income households, are provided with access to all areas of the city. This is accomplished through its Community Housing Resource Board (CHRB), which educates the community about fair housing issues, coordinates workshops for lending institutions, sponsors Fair Housing Month activities, and distributes brochures and fair housing literature throughout the community. In addition to providing housing counseling to low-income and minority residents, Charleston has completed an assessment of impediments to fair housing and will implement recommendations in the plans to ensure fair housing opportunities.
Due in part to the high number of old housing units, Charleston has many houses with evidence of lead-based paint. Of the 23,230 housing units built prior to 1979, over two- thirds have some evidence of lead-based paint. Lead-based paint is considered a serious problem among low-income households.
The Department of Health and Environmental Control's Childhood Lead Poisoning Prevention Program conducts free lead testing for children as well as homes. The program serves 500 children, but there is a need for increased abatement in housing with lead-based paint. The Housing Authority conducted a lead-based paint abatement program in its public housing units at a cost of $2,266 million which was completed in June 1995. In addition, an ordinance has been proposed by the city to provide for the safe removal of lead-based paint from the interior of structures built before 1960.
Agencies such as the Department of Health and Environmental Control, the Department of Housing and Economic Development, and the Department of Environmental Health Sciences of the Medical University of South Carolina work cooperatively with the city in dealing with lead-based paint hazards.
Of those individuals with special needs, 11 percent are substance abusers and 12 percent have some type of functional disability. In particular, the elderly comprise nearly 13 percent of the city's population. Elderly persons make up approximately 80 percent of city Rehabilitation Program participants. Service providers also indicate a high need for permanent housing for persons with HIV/AIDS, as there are currently no housing units for this population in Charleston. These subgroups all require housing with supportive services that are tailored to their specific needs.
The Consolidated Plan emphasizes economic development and support since the city faces several upcoming challenges, primarily the closure of the naval base in 1996. Development of new industry is needed in the area, especially microbusiness and minority businesses. In addition, child care, transportation, crime, and urban blight demand attention.
There is particular concern about the low educational attainment of Charleston residents. According to 1993 Kids Count data, 23 percent of the city's population have not completed high school and 37 percent of the residents throughout Charleston County dropped out of high school. With the closure of the naval base, there will be a high need for employment training in Charleston.
With its designation as an Enterprise Community, the city of Charleston is in the position of providing increased financial and technical resources to empower its residents. Eleven tracts have been designated as the Enterprise Community, and encompass the following neighborhoods: Silver Hill, Rosemont, Accabee, Union Heights, Four Mile/Hibernian Heights, Magnolia, North Central, the East Side, Gadsen Green, Cannonborough, H Street, F Street, I Street, Elliotsborough, Radcliffeborough, Mazyck-Wraggborough, Kiawah Garden, Bayside Manor, Meeting Street Manor/Cooper River Courts, West Side, the ports area, and the Medical Complex area. The Enterprise Community Program is a holistic approach to creating thriving neighborhoods. Programs that promote self-sufficiency and give residents the tools they need to be successful will be offered, including economic and community development, and housing.
The Consolidated Plan of Charleston identified the following five priorities in housing:
The Consolidated Plan outlines the following community development priorities:
In addition, the Consolidated Plan seeks to address the needs of homeless and special needs populations through:
The poverty rate, as defined by HUD, is a measure of the monetary resources required for reasonably comfortable living. The 1994 poverty income was $14,000. The 1990 census indicates that 3,086 families fall below the poverty level. There were 2,325 households with single adult head of households, with 39.4 percent falling below the poverty level. The antipoverty strategy intends to coordinate programs, policies, and activities to reduce the number of households in poverty by:
In addition to collaborating with Federal and State agencies, Charleston works closely with many organizations, such as the Charleston Bank Consortium, financial institutions, developers, and builders. Charleston also works with nonprofit groups, such as the Community Foundation Serving Coastal South Carolina, Charleston Neighborhood Development Corporation, Charleston Affordable Housing, the Mayor's Council on Homelessness and Affordable Housing, Volunteers of America of the Carolinas, Charleston Habitat for Humanity, Crisis Ministries, Mental Health Association of the Lowcountry, Lowcountry AIDS Services, Charleston Area Senior Citizens Services, Episcopal Diocese of Charleston, Preservation Society of Charleston, Reid House of Christian Service, Humanities Foundation, Historic Charleston Foundation, Palmetto Pathways Homes, and World Changers. The Enterprise Foundation, the Charleston Lending Consortium, and the Charleston Neighborhood Development Corporation also contribute to this effort.
Implementing Charleston's Consolidated Plan requires the collaboration of many different organizations, all of whom play critical roles in the operation of the housing delivery system. The Department of Housing and Economic Development and the Housing Authority work closely with the Mayor's Council on Homelessness and Affordable Housing. The Charleston Bank Consortium is a group of 10 local banks that have come together to provide $7.5 million in first mortgage financing to low- and moderate-income families that want to become first-time homeowners.
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).
The Consolidated Plan of Charleston includes the following key projects:
