The city of Ogden is located in northern Utah, between the Great Salt Lake and the Wasatch Mountains, and about 35 miles north of Salt Lake City. The city's site, at the confluence of the Ogden and Weber rivers, was favored by the Shoshone and Ute Indians as a place to camp, meet, and trade. In 1841, Fort Buenaventura was built on the Weber River in what is now the west side of Ogden City. Mormon pioneers, led by Brigham Young, settled in the area in 1847.
Ogden became a railway and commercial hub in 1869, with the completion of the first U.S. transcontinental railroad. Nicknamed "The Junction City," Ogden expanded rapidly, with its population reaching 16,000 by 1890. In 1930s, adding to an existing arsenal, the Federal government placed major Air Corps, Army, and Navy supply and maintenance depots in the area. The city and nearby town continued to expand until the recession of the early 1980s. In the 1990s, there has been a renewal of employment growth and housing construction.
In its Consolidated Plan, the city of Ogden describes its housing and community development needs and priorities and a 5-year strategy for addressing these needs. For the first year of the plan, Ogden is requesting $1,718,000 in Federal Community Development Block Grant (CDBG) funds, and $438,000 in HOME Investment Partnership Program (HOME) funding. This money, together with program income, matching and other funds, will be used to finance the 16 housing and community development activities.
An initial public hearing to identify housing needs, co-sponsored by the Governor's Blue Ribbon Housing Advisory Task Force, was held on September 29, 1994. To gain further input on housing and community development needs, another public hearing was held on December 1, 1994. The Ogden City Community Development/Business Development Citizen Advisory Committee (CAC), composed of representatives of local neighborhoods, housing and services providers, lenders, education officials, and representatives of other city commissions, played a major role in providing input. The CAC held seven meetings between October 1994 and April 1995.
There was a 30-day public comment period for the initial draft of the Consolidated Plan, from March 21 to April 25, 1995. A third and final public meeting was held on April 25.
MAP 1 depicts points of interest in this jurisdiction.
Ogden's population, according to the 1990 census, was 63,909. Between 1980 and 1990, Ogden City lost 498 residents, a 1-percent decline from 1980. The city is part of the Salt Lake City-Ogden Metropolitan Statistical Area (MSA). MSA population is estimated at 1,178,900, as of October 1, 1994. This represents 10 percent growth from 1990, an average of 23,700 a year.
Median family income (MFI) for the Salt Lake City-Ogden metropolitan area was $35,239 in 1990, close to the national median family income of $35,939. Of the 24,259 households in Ogden, an estimated 60 percent have annual incomes of 95 percent or less of MFI. Analysis of 1990 census data indicates the following levels of low- and moderate-income households:
Economic growth in the MSA has been strong over the last 10 years, and employment growth has added about 14,000 new non-agricultural jobs each year. Manufacturing employment, mostly in small and middle-sized companies, is now adding about 2,000 new jobs a year. The average number of employed civilians in the Salt Lake City-Ogden MSA for 1994 was 566,625. The average unemployment rate was 3.3 percent, with about 19,500 workers unemployed.
Federal, State, and local government employment is a major contributor to the area economy. In the Ogden area, most government-related jobs are generated by Hill Air Force Base, the Army Defense Depot, and major aerospace and defense contractors. An IRS Service Center, Weber State University, and local school districts also contribute to government-sector employment totals. Defense spending now accounts for about 7 percent of the Utah economy, and is down from previous years, in line with defense spending declines nationally. As long as military downsizing continues to occur in small decrements, job growth in the private sector will continue of offset such declines.
An economist at the U.S. Department of Housing and Urban Development (HUD) forecasted that the metropolitan area's economy will achieve a net growth of 23,100 jobs a year over the next 2 years. This represents a strong growth rate of 4 percent. The rate of job growth will be moderated by cutbacks in defense-related businesses and a slowdown in the rate of in-migration. At least 40 percent of the new jobs will be in clerical, personal services, business services, health services, and materials handling (such as transportation) businesses.
While the overall population of Ogden declined somewhat during the 1980s, the city's minority populations grew slightly. White residents declined by 4 percent, while the percentage of Asian/Pacific Islanders rose by 42 percent, and that of Hispanics increased by 20 percent. Over the decade, the percentage of Native Americans in Ogden rose by 50 percent, but in actual persons this represented only 193 individuals. Ogden's black population remained stable, increasing by only 3 percent, or by 46 people.
In 1990, 83 percent (52,868 residents) were white. Racial or ethnic minorities counted by the 1990 census include:
MAP 2 depicts points of interest and low-moderate income areas, and minority concentration levels.
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.
Ogden is still on the road to recovery from the economic downturn precipitated by the decline of the railroads and the economic shifts of the 1960s and 1970s. The city's business district and nearby downtown residential neighborhoods suffered from a lack of capital investment. Uncertainty regarding the future of Hill Air Force Base and the Defense Department's Ogden Depot suggest that the city can no longer rely on these "economic engines" to stimulate the local economy. Since 1990 the city has been recovering from the economic slump of the late 1980s and from a surplus of multifamily housing built during that period.
Important needs relate to the condition of available housing, and to finding units suitable for sale or rent to larger families. Some affordable housing is available, but many units are in substandard condition or too small for larger families. Other priority housing needs are access to home ownership, resources for home maintenance or rehabilitation, and dealing with the number of vacancies and neighborhood decline.
Ogden had 29,235 year-round dwelling units in 1990, with 24,239 occupied. Thirty-nine percent, or 9,983, were rental units. The remainder, 14,256, were owner-occupied.
Vacant units totaled 4,996. With 1,419 rental units available for rent in 1990, the rental vacancy rate according to the census was 12.5 percent. However, the Northern Utah Apartment Owners Association reports the vacancy rate for rental units at 2.7 percent in August 1993, and at 4.5 percent in October 1994. In 1990, with 622 vacant homes were for sale, the vacancy rate for owner-occupied units was 4.2 percent.
A major reason for the remaining vacancies is the poor condition of the housing units.
The census categorized 16 percent of all owner units and 11 percent of renter units substandard, not meeting Ogden's housing code. An estimated 800 rental and 2,138 owner-occupied units are suitable for rehabilitation. Several older, larger apartment complexes in Ogden are currently being rehabilitated.
Since 1990, construction of single-family homes has recovered from the late-1980s slump. In 1994, 168 building permits were issued for single-family homes in Ogden, and 694 permits in adjacent Weber County. Though the county authorized building for 169 multifamily units in 1994, permits were granted for only 22 units of multifamily housing in Ogden.
In the late 1980s, there was a surplus of housing for sale and property values had declined. At one time there were 4,000 units for sale in Ogden and Weber County. Starting in 1990, residential sales have been brisk, helped by lower interest rates. Not surprisingly, the average sale price of an existing home has increased, from $77,100 in September 1993 to $83,600 in September 1994.
Between 1983 and 1986 there was considerable overbuilding of multifamily housing in Ogden and its surrounding areas. Much of this surplus has been absorbed. The July 1994 rental vacancy rate was 4.5 percent, well below the 8.3 percent of November 1989.
Rent increases since 1990 have averaged about 20 percent. Typical monthly apartment rental rates in Ogden in January 1995 were:
One of the limiting aspects of Ogden's housing stock is the generally small size of its units. About 82 percent of families and 98 percent of non-family households consist of 3 or fewer persons. These households fit well into the smaller dwellings found in older parts of Ogden. However, affordable bigger homes suitable for large families are in limited supply since many have been converted to multiple-unit housing.
A major goal of Ogden City has been to encourage more people to live near, and reinvest in, the central party of the city. Many families living near downtown have lower incomes, and need help overcoming the financial hurdle of homeownership. There are several ownership and rehabilitation programs in place, and the city intends to continue these efforts.
There are about 10,000 rental units in Ogden. These, along with lower-cost single-family housing to the east, south, and north of the downtown business district, constitute the bulk of Ogden's affordable housing.
Of the 7,391 very low-income households (0 to 50 percent of MFI) in Ogden, 65 percent are renters. The proportion of renters drops to 40 percent among the 4,993 other low-income households (51 to 80 percent of MFI), and to 32 percent among the 2,475 moderate-income (81 to 95 percent of MFI) households.
Almost two-thirds of very low-income households are cost-burdened, paying more than 30 percent of their gross income for their housing, including utilities. Over one-third of those with incomes under 31 percent of median are severely cost-burdened, paying more than 50 percent of their income for housing expenses. Proportion of cost burden drops rapidly with income. Fewer than 20 percent of other low-income households are cost burdened, and only 6 percent of moderate-income households are cost burdened.
There is a need to address the problem of cost-burdened lower-income households, both renter and owner. Other needs involve the costs of rehabilitating deteriorated older housing, and affordable homes large enough for big families.
A July 31, 1994, homeless count tallied 380 sheltered and 255 unsheltered persons. This estimate does not include those at risk of becoming homeless or who are living "doubled up" with friends or family but are, in fact, homeless. The sheltered homeless included 29 families with 107 members. All of the 255 unsheltered were adult individuals not in families.
Annual and semi-annual counts of the homeless show a continuing increase in the homeless population. From 1990 to 1994, the number of sheltered homeless rose from 184 to 380, a 107 percent increase.
There is a need for more emergency shelter space for families. Such space is very limited; two-parent families often must separate and many stay out of shelters for this reason. Also, families headed by women with teen-age boys are precluded from shelter because older boys are not admitted into women's shelters and cannot stay unaccompanied in men's shelters. Single fathers with children are excluded from both men's and women's shelters, and must sometimes stay in cars or on the street.
Other gaps and estimated needs for services to homeless in the Ogden area include:
The Ogden Housing Authority owns 200 housing units. There are 100 elderly/ handicapped units in two projects, and 100 family units in four projects. The housing is 24 years old, in generally good repair, but needing some repairs beyond routine maintenance. Funds for public housing modernization and improvements are not eligible for CDBG funding, but are funded through a separate HUD improvement assistance program. There are over 100 families on a waiting list for public housing.
The Ogden Housing Authority reports a waiting list of over 700 income-qualified families for Section 8 rental assistance. There is both a need for more units of assisted housing and for maintenance of the existing stock. It is getting harder to find acceptable quality, two-bedroom or larger units priced below HUD's Section 8 fair market rent level (the limit for rental assistance payments).
Ogden has no exclusionary zoning or related codes and plans. Proactive efforts have included adopting the housing section of the Uniform Code for Building Conservation. This building code makes it easier to apply modern construction standards to older buildings, both residential and commercial, that were built to the standards of their times. Ogden has also adopted a new ordinance specifically tailored to encourage compatible infill residential development on vacant sites in the inner city.
In 1994, the city prepared the "Analysis of Impediments to Fair Housing Choice in the City of Ogden." Among the concerns noted in the study were:
According to census data and formulas provided by HUD, an estimated 13,959 housing units in Ogden, occupied by lower-income households, contain lead-based paint (LBP). This estimate is based upon the age of the housing, and not upon scientific testing of housing units.
There is a need for coordination between cities and the State on clearly defining LBP hazards, and developing hazard mitigation standards. Citizens also need to be educated on avoiding LBP problems.
There are also housing and supportive needs for the elderly, mentally disabled, mentally ill, physically disabled, substance abusers, and victims of domestic violence. In general, the needs of each group are similar for affordable and accessible housing, differing somewhat in the mix of appropriate supportive services.
The city has identified many needs related to public facilities, infrastructure improvements, and compliance with Americans with Disabilities Act (ADA) requirements.
There is a need to deliver water and sewer services, road resurfacing and sidewalk replacement, maintenance of street trees, parks, and other aspects of the streetscape in older sections of Ogden. In addition, there remain sections of the city with infrastructure that has never met city standards. There is also a need for selective removal of buildings to eliminate blight and to relieve congested development.
Overall, Ogden's capital improvement needs far outstrip the resources available through the Community Block Grant Program. However, CDBG funds will be more effective if used on projects located in older areas, which will enhance other community revitalization efforts and leverage outside funds.
There is a need to use CDBG funds to:
There is also a need to complete the city's compliance with the handicapped accessibility improvements mandated by the Americans with Disabilities Act. Most of the uncompleted improvements involve providing restroom accessibility and proper ingress and egress routes to city-owned facilities.
Priorities previously identified for previous Comprehensive Housing Affordability Strategies (CHAS) are carried over to this Consolidated Plan. These include:
Housing priorities include:
Other community development priorities include:
Ogden has a poverty rate of 17 percent, compared to a statewide rate of just over 11 percent. The city's current primary efforts to address poverty are embodied in its long-term Enterprise Community Strategy. This targets a specified area with the highest poverty levels in the city. The target area has a poverty rate close to 34 percent. Per-capita income in the area in 1989 was $8,121, compared to $11,029 for the State.
The Enterprise Community approach incorporates programs sponsored by both public and private organizations. Current needs of residents -- such as after-school activities for children, affordable day care, and job training -- are addressed. Elements include a community school program offering, in addition to children's after-school programs, adult programs related to language enrichment, parenting, and job-skills training.
The Applied Technology Center (ATC) has a resource center for potential students. This provides individualized case management to bring together training, work programs, and some social services. The Enterprise Community application provides vouchers for medical and dental care for target area residents enrolled in an ATC training program.
Other programs include a crisis line for youth at risk, and legal counseling. A local downtown business organization is developing a program to train target-area residents in building rehabilitation, for work with local contractors.
Federal resources available for housing and community development efforts included in Ogden's 5-year Consolidated Plan include CDBG and HOME funding. Other anticipated resources include program income, such as repayments on neighborhood and economic development loans, money that is recycled into community development programs. A variety of other Federal and State programs, such as below-market home mortgage money through the Utah Housing Finance Agency, are also potential sources.
In addition as a designated Enterprise Community, Ogden has been allocated $2.95 million for the 10-year period beginning December 1994. For this new Federal grant initiative program, funding after the first year is to be dependent upon continued need as expressed by residents and upon performance.
It is anticipated that local governmental agencies and nonprofit organizations will continue to carry out their current roles. Coordinated efforts such as those provided by the Weber County Homeless Coordinating Council, the Enterprise Community process, Utah Housing Coalition, and Citizens Advisory Committees will continue to play a large role.
Additional coordinating strategies to begin during the next 5 years include:
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 one 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).
During the program year 1995-1996, Ogden plans to use $1,718,000 in CDBG funds, $438,000 in HOME monies, $470,000 of program income, plus other Federal and non-federal funds on a variety of housing, community and economic development efforts.
Scheduled housing activities are to include:
For the "Own in Ogden" homeownership program:
Budgeted economic development activities include:
Most housing and community development activities included in the 1995 Action Plan are directed at older lower-income neighborhoods in the center city and Ogden's downtown business district.
Primary responsibility for implementing and coordinating the Action Plan falls to the Neighborhood Development Division and the Business Development Department of Ogden City.
The Neighborhood Development Division is within the city's Community Development Department, and is responsible for administration of Federal funding and programs related to housing and residential neighborhood improvements.
The Business Development Department works to expand Ogden's economic base with activities intended to create household sustaining jobs, especially for lower-income families. Other missions of this department are to revitalize Ogden's downtown business district, and to improve the living environment in areas immediately adjacent to downtown.
Projections are that activities included in this Action Plan will improve the housing of an estimated 220 households. Economic development activities are expected to benefit about 45 businesses.
