City of Bristol, Virginia's 1995 Consolidated Plan is a strategic vision for housing and community development in the City. This synopsis summarizes the Plan so that citizens in the community can have a quick overview of Bristol's housing and community development problems; strategies and actions proposed to deal with those problems; and the specific projects proposed for 1995.
Bristol is a unique city because it lies across the Virginia-Tennessee state line. Bristol is part of the Metropolitan Statistical Area ( MSA) know locally as the Tri-Cities. The other two points are Kingsport, Tennessee and Johnson City, Tennessee. Bristol is the smallest of the three in population as well as area. The overall population of Bristol at the 1990 Census has declined and is expected to continue to decline. Indications are that the work force is migrating out of the area to employment elsewhere. Bristol's minority population continues to remain low compared to other areas of the nation. Map 1 shows points of interest in the city of Bristol.
Poverty status reported for the 1990 Census was based on poverty status in 1989. The total for whom poverty status was determined was 17,644 persons, out of the total 18,426 persons. Of the total for whom poverty status was determined, 20.6% were below the poverty level. Map 2 outlines the low and moderate income areas in the city.
Median household income, based on 1990 Census data, was $19,226, while median family income was slightly higher at $24,738. Per capita income was $10,290.
The Bristol area has lost several major employers during the last decade. However, Bristol has recently begun to see increases in employment opportunities. The unemployment rate for May, 1995 was 3.3% compared to 4.9% last year. Map 4 indicates the percentages of unemployment by Census Tract in the area.
Bristol's housing stock totals 8,174 housing units. There are 7,591 total occupied units, 63.1% of which are owner occupied. Of those owner-occupied, 31.2% of the householders are 65 years of age and over and 30.7% are one-person households.
In general, the housing inventory in the City is adequate and needs are seen in terms of quality rather than quantity. Of the 8,174 units of year-round housing, there were a total of 583 vacant units. Vacancy rates between the 1980 Census and the 1990 Census increased. However, recent indications are that vacancy rates are decreasing. This recent drop in vacancy rates most likely reflects a decrease in the supply of housing as individuals who were renters are now able to afford to purchase housing due to the recent marked decreases in interest rates for mortgage money plus the sharp rise in construction costs.
There has been a local trend toward the use of multi-family housing as an alternative to traditional single-family detached dwellings. This local change has brought the housing mix in the City closer to the statewide housing mix. This change has been attributed to a change in preferences for multi-family housing due to improvements in the quality of multifamily units, the conversion of large, older, single-family homes to multi-family dwellings, and an increase in the demand for single-family housing during the 1960's which caused the sale of single-family rental units. The cost of housing in the City seems to be reasonable compared to State figures and is comparable to surrounding counties' figures as well.
There are no reported cases of lead poisoning at this time. It can be said with almost certainty that lead-based paint poses no problem in Bristol, therefore there are no special measures to address lead-based paint.
At this time, approximately 1% of the owned housing units and 9% of the rented housing units in the City could be considered substandard. Of the owner units, approximately 85% are suitable for rehabilitation; and of the renter units, approximately 75% are suitable for rehabilitation.
Bristol has had the highest percentage of subsidized housing in the Commonwealth. Impediments found in the public housing area include issues of density, adequate parking, and modernization of units. However, opportunities exist for the Housing Authority to continue to improve Bristol's public housing by substantially rehabilitating older units, improving water and sewer facilities, and converting a number of units to be accessible to persons with disabilities.
Housing needs are greatest among 228 severely cost-burdened (those who pay more than 50% of their income toward housing expenses) small family renters of extremely low income and 273 cost-burdened (those who pay more than 30% of their income toward housing expenses) small family renters of extremely low income. In moderate need are 31 severely cost-burdened large family renters of extremely low income and 49 cost-burdened large family renters of extremely low income. Also in need are 247 cost-burdened elderly and one- and two-member households of extremely low income.
Out of the 4,812 owner households in Bristol, nearly 38% have incomes less than 80% of the area median family income (MFI). In comparison, out of the 2,805 renter households in Bristol, 66.4% have incomes less than 80% of the area MFI. Of households with incomes less than 80% MFI, 1,091 renters and 635 owners report housing problems.
For renters, the lower the income, the greater the proportion of households having housing problems. The greatest need for affordable housing for renters occurs in the extremely low-income category for 0 to 1 bedroom units. Generally, as additional income is received, housing needs and housing cost burdens decrease.
Housing needs for the elderly appear to be being met. For example, up until three years ago, Jones and Stant, two apartment complexes in the public housing authority were exclusively elderly, but because of the high vacancy rate, they were changed. However, priority is still given to the elderly to live there. In terms of housing needs, small families demonstrate the greatest need for those of the lower incomes. There are a great many more families with children being raised by married couples than by those in single-parent homes. In addition, there are a great many more single-parent white families than single-parent black families.
The greatest number of large families (more than four members) was found in the extremely low-income category. Large families need homes of three bedrooms or larger but this does not seem to be a real problem for large families in Bristol.
Statistics on HIV Positive and AIDS have been kept since 1989 and 1982, respectively. HIV Positive and AIDS statistics are compiled for the southwest region of Virginia by the Mount Rogers Health District. The District says however, that there is no way of truly knowing how many cases of HIV and AIDS there are now in Bristol because there are no infectious disease specialists here in Bristol and most persons with HIV and AIDS go to nearby Johnson City, Tennessee to be treated and diagnosed. Therefore, the cases are reported for Johnson City. There are no housing facilities specifically for persons with AIDS, but housing referrals are provided when needed. At the present time, there does not seem to be a great need for special housing for HIV and AIDS patients in Bristol.
There does not appear to be a current shortage of housing units for persons with disabilities. Local private for-profit care facilities in Bristol, Virginia and Bristol, Tennessee offer shelter and limited medical services for persons with disabilities. People, Incorporated, a community action agency, helps to modify homes for handicap accessibility for eligible low-income households. The Housing Authority has an action plan to render units accessible to persons with disabilities.
Overcrowding is experienced more by renters than owners. For renters, 2.5% of all in the 0-30% income group experienced overcrowding, compared to 26.9% for large related families. In the 51-80% income group, 1.1% experienced overcrowding, compared to 23.8% large related families.
Low-income concentrations of population are located in census tract 201, block group 2; census tract 202, block groups 3 and 4; and census tract 203, block group 3; with 57.5%, 78.72%, 76.98%, and 1 00%, respectively. All public housing is located in census tract 202, block group 3, which may account for the high percentage of low-income households. Census tract 203, block group 3 has 100% low income but this tract only has about 40 households and is zoned for manufacturing/industrial.
An area of racial/ethnic minority concentration is located in census tract 201, block group 2; census tract 202, block group 3; and census tract 203, block group 2. There are some disproportionate needs of minorities. Fifty-four point one percent (54.1%.) of all renter minority households and 54.4% of black households are in the 0-306/o category of Household Adjusted Median Family income (HAMFI) compared to only 35% of the total households in that same income group. Owner households of the same income group count 15% black compared to 8.8% of all households. Map 3 shows the areas of minority concentration.
Owners with any housing problems in the 0-30% income range total 59.3% for total households, and 100% for both the all-minority and all-black categories. In the 31-50% income group, 35.4% of total households experience any housing problems, compared to 65.2% for all minority households and 46.7% for black households. In the 51-80% income category, 19.6% of the total experience housing problems, compared to 28.6% for all minority households and 28.6% for blacks. Although renters -did experience housing problems, there were no disproportionate needs evident.
Examination of family type distribution with incomes below 51% HAMFI also shows some disproportionate needs. For renters, 42.3% were small families, compared to 56.3% small minority families and 53.8% of small black families. For owners, 2.6% were large families, compared to 32.6% large minority families and 18.4% large black families. Overall, renters experienced far less disproportionate housing problems than owners. Although the numbers do not convey disproportionate needs for the large family category, it is interesting to note that 100% of all large families experience housing needs.
Homelessness is always a problem, but in Bristol the magnitude of the problem is not overwhelming. Although the actual number of homeless is very difficult to quantify, area homeless shelter providers submitted estimates that, taken together with some attempt to eliminate duplication, indicates that approximately 120 persons are chronically homeless. This figure is for Bristol, Virginia and Bristol, Tennessee. Many of these homeless are sheltered on a repeat basis. Of the women who have become homeless due to domestic violence, most have other resources and need shelter services for a very short period of time. Bristol is serving the homeless population principally through various private services. Some facilities have been expanded to meet the need for emergency shelter; and, although unusual conditions occur periodically, the service providers have generally been able to meet the need for emergency shelter. Many homeless experience problems in the transitional period. Acquiring ??permanent housing requires positive identification and utility and security deposits. Progress is being made to help meet these needs.
The special needs population is principally addressed by the Bristol Regional Rehabilitation Center and the Rainbow Homes who maintain group homes and semi-independent living units that house a total of approximately 90 persons.
Private local for-profit care facilities offer shelter and limited medical services for persons with disabilities and frail elderly persons. These agencies reported that several of their clients would be homeless except that the agency subsidizes some portion of the cost of their care. It is estimated that one in ten individuals currently served through these private organizations would be homeless if not for the present level of service.
Mentally disabled persons are primarily served through existing outpatient services. Currently, however, there are 90-95 persons housed in semi-independent living quarters administered through the Bristol Regional Rehabilitation Center and Rainbow Homes. These agencies have indicated a need for additional semi-independent living units in order to help relieve the burden of "in-home" care. To help meet this need, Rainbow Homes has opened a new apartment unit that houses ten additional families or approximately twenty additional individuals. The Bristol Regional Rehabilitation Center offers employment opportunities for approximately 100 mentally- and/or physically-handicapped persons who are not homeless.
No services exist in Bristol to meet the needs of persons returning from institutions or to provide shelter services to AIDS patients. Non-homeless persons with alcohol and drug abuse addictions are served by the Bristol Regional Counseling Center (Bristol Mental Health) and Holston Drug and Alcohol Abuse Center. These support services are outpatient only and provide no sheltered care services.
There are no specific service agencies that shelter runaway or abandoned youth as a specific category of need. Haven Home has a program to house unwed mothers. This is a new program offering services to ten persons.
Janie Hammitt Home is a group foster home that houses approximately 25 children over the age of twelve. This facility has just reopened following a fire a few years ago. No children are currently being housed but this is expected to change soon.
There are approximately 7,591 occupied housing units in Bristol out of 8,174 total housing units. Most are single dwelling units (5,556). Out of the total housing units, according to the 1990 Census, 583 units were vacant. The vacancy rate for owners was 2.3% and for renters was 7.5%. In general, the housing inventory in the City is adequate and needs are seen in terms of quality rather than quantity. Recent indications are that vacancy rates are decreasing.
There were 86 units with no bedrooms, 858 with one bedroom, 2,793 with two bedrooms, 3,377 units with three bedrooms, 865 with four bedrooms, and 195 with five or more bedrooms.
From 1989 to March 1990, there were 72 structures built. There were 452 structures built from 1985 to 1988 and 480 structures built from 1980 to 1984. There were 1,468 structures built from 1970 to 1979 and 1,380 from 1960 to 1969.
According to the Board of Realtors, which serves Bristol, Virginia and Bristol, Tennessee, there were 473 active listings as of June 9, 1995. There are 104 contracts pending. Sales for this quarter total 137 with sales for the year-to-date totaling 283. The number of new listings for the year have already totaled 577. As for Bristol, Virginia, there are 67 active listings, 40 new listings, and 32 sales for the present quarter. Total volume of sales for the quarter totaled $1,910,469 with the average sale at $59,702.15. -The average number of days for this quarter that a home stayed on the market was 78 days. The majority of affordable homes for sale in the City have few market days.
There has been a trend in the past twenty years of converting large old homes into multifamily residences. This hat mainly occurred in and near the central business district and in census tract 202. Despite this trend, moderately-priced units are in great demand and short supply. There is currently a moratorium on annexation. Until the moratorium on annexation is terminated, it is difficult to locate suitable land for new housing developments. In the event that the moratorium is lifted in the future, Bristol may pursue annexation so that new development opportunities for more affordable housing may be increased.
Bristol has had the highest percentage of subsidized housing in the Commonwealth. All public housing is located in census tract 202, block group 3. Some were constructed as long ago as 1939 and the newest was constructed in 1973. There are a total of 481 units. There is a 29% vacancy rate at the present time. There is a loss of approximately $200,000 per year because of the high vacancy rate. Factors contributing to the high vacancy rate are deteriorated units and a reputation for being a high-crime and disturbance area. The Housing Authority is currently performing analyses to determine the number and type of units to rehabilitate, demolish, or convert to accessibility. There are several units that have been completely rehabilitated and several more that are currently being worked on.
There is a total of 605 Section 8 units in the City of Bristol. Two hundred fifty-four (254) are scattered throughout the City and administered through the Bristol Redevelopment and Housing Authority. Vacancies are filled quickly and there are long waiting lists.
Public policies do not pose undue barriers to low-income households. Although some regulations and codes might be considered barriers, they are necessary components of day-to-day administration and necessary for the public good. Some identified barriers include lack of knowledge of availability mortgage financing for low- to moderate-income persons; zoning and subdivision regulations; new home construction codes; unsafe building abatement codes; property taxes; utility board restrictions; high infrastructure costs; building codes and code enforcement; and the moratorium on annexation.
Although most of the above-identified barriers are unavoidable and in place for good reason, a lack of knowledge can be addressed. The City will try to educate low- and moderate-income homebuyers on the availability of mortgage financing and will explore the possibility of a homebuyer program.
The institutional structure through which the housing strategy is carried out has generally been a strong system. There is a strong working relationship between the City and the Housing Authority. This relationship is expected to strengthen over the coming year. The gaps that exist in delivery of services in the housing system are due to the fact that the public housing units are in the process of being rehabilitated and the bad reputation that the Authority is attempting to reduce. It is expected that as units-are made habitable and crime is reduced in these areas, delivery of services will improve tremendously. There are no significant gaps in the system which would cause anyone to become homeless. The greatest weakness in the area is the lack of affordable housing.
Federal programs include Community Development Block Grant funds available for rehabilitation and small business enterprise and Section 8 housing assistance. The HOME and HOPE programs for homebuyer assistance will be studied but there are no plans for their utilization at this time. People, Incorporated operates a HOME program. There are plans to apply for a Section 108 Loan to revitalize a target area. Homeless prevention and assistance through the Housing Authority and the Haven of Rest is also federally funded. Other federal programs available include the Public Housing Comprehensive Grant (for rehabilitation and planning) and HOME (for rehabilitation). There are no available nonfederal funds. Private resources include Habitat for Humanity.
Resident initiatives in public housing are a large part of the overall improvement of living conditions within public housing. Two resident councils, or tenants' organizations, exist and a resident coordinator is directly involved in encouraging residents to participate.
The City has several subrecipients engaged in various activities, each one requiring monitoring at different levels. Some subrecipients require closer monitoring than others. However, it is possible to generalize monitoring standards and procedures to a certain extent. Monitoring shall be directed toward program performance, financial performance, and regulatory compliance. The Community Development Coordinator shall perform on site field visits, establish ongoing lines of open communication with subrecipients, and assist the subrecipient in creating good record-keeping systems. Subrecipients are encouraged to call or visit the office if they have questions. Visits shall be performed at appropriate times during the course of the project or activity. All requirements set forth in the contract agreement shall be complied with and followed up on. The Community Development Coordinator shall require that each subrecipient provide records of all financial transactions. Extra attention is devoted to those subrecipients which are most likely to have serious problems. Monitoring strategies set forth in Managing CDBG ... A Guidebook for CDBG Grantees on Subrecipient Oversight shall be used. Pre-monitoring visits and monitoring visits shall be conducted and followed up on in a timely fashion.
The City will strive to take advantage of programs available to it to help combat poverty. The Office of Community Development and Planning will continue to merge efforts with other agencies in the area to provide assistance to low-income households. The Office will also seek out public participation by promoting an open-door policy in regard to housing and other needs of the community. The Office will also seek out interagency councils to learn more about the needs of the community and be willing to serve on task forces as necessary. The Office will strive to keep up to date on the activities and programs of other agencies in the area and will readily volunteer information should the need arise.
Bristol's highest priorities right now are those which address economic development. Issues of homelessness and affordable housing are of lower priority this year. Most public service needs are of medium priority and planning (including program administration) are crucial at the present time. Map 5 indicates where some formula program funded projects are located.
The housing market appears to be quite stable right now. New construction, although somewhat hampered right now by the moratorium on annexation, consists of construction of taller buildings. Increasing the density in this way seems to reduce the need for more space. The City plans to study the possibility of a homeownership program for low-income first-time homebuyers. In addition, the City will continue to provide CDBG funds to People, Incorporated at this time to do emergency repairs for low-income homeowners. The City will also continue the real estate exemption for rehabilitated residential real estate. There are provisions in the City Code which exempt homeowners of qualified structures from paying any increase in real estate taxes resulting from a substantial rehabilitation for a period of seven years.
Renter needs for small families with cost burdens appear to be the greatest housing needs at the present time. The current renovations being done in public housing are expected to greatly alleviate this problem. The substantial rehabilitations, including accessibility improvements, will greatly improve the living environment. The City will continue to support requests by the Housing Authority for additional MROP and CIAP funds and Comprehensive Grants. The rehabilitation will also reduce large family renter problems as well.
Regarding homelessness, some facilities have been expanded to handle emergency shelter. However, Abuse Alternatives, a domestic violence shelter, has difficulty meeting demand shelter. The Office of Community Development and Planning currently has plans to provide technical assistance to Abuse Alternatives in preparing a proposal to apply for CDBG funds for next year. Generally, homelessness in Bristol is addressed through existing services and not considered a need at this time.
Most public facility needs are not a priority at this time, with the exception of health facilities. CDBG funds are being used this year to address those needs. Needs of seniors have been more than adequately met with the rehabilitation of space in Douglass Community Center for a new Senior Center.
Although the Priority Needs Table reflects infrastructure improvements are not needed or are low priority, the fact is that they are greatly needed but the City plans to explore the possibility of a Section 108 Loan to address these needs. The project will target an area in a low- and moderate-income neighborhood and revitalize that neighborhood. This will include water/sewer improvements, streets/sidewalks/bridges improvements, and some commercial improvements.
There are a few priority public service needs that the City will meet using CDBG funds. These include handicapped services, youth services, and other public services. The City will continue to assist agencies using CDBG funds as much as possible, however, the City contributes to many of these agencies as part of their budget.
There are no priority accessibility needs at the present time. What accessibility needs arise during the year are usually met by People, Incorporated and consist of the construction of ramps and the like.
There are no priority historic preservation needs at the present time. However, it is expected that Main Street Bristol may apply for funds for facade improvements next year.
Economic development is Bristol's greatest need right now. Bristol will continue to try to bring in new industries and businesses. A new industrial recruiter has recently been hired as well as a new Chamber of Commerce president. A high priority need is the purchase of property for development. Bristol continues to search out appropriate property for purchase. Bristol will continue to support the auric program.
Planning is a high priority for Bristol. Part of the planning consists of the planning and capacity building activities of Main Street Bristol. The City continues to support this program in its efforts to revitalize the downtown and attract new businesses to the downtown. Program administration is a high priority as well, necessary for carrying out the CDBG program. Fair Housing costs are included in program administration and the City will continue to support fair housing for all persons by advertising and educating the public.
Bristol is expecting CDBG funding in the amount of $351,000 for FY 1995-96. In addition, total estimated program income is $16,526 and reallocated funds in the amount of $7,447 will be utilized. This totals $374,973. Housing activities are expected to assist six low income households. Following is a list of activities to be undertaken.
The City of Bristol has reviewed its Citizen Participation Plan to ensure compliance with federal regulations. The Plan has been revised.
The City of Bristol, Virginia must prepare a Consolidated Plan as an entitlement community recipient of Community Development Block Grant funds through the Department of Housing and Urban Development (HUD). This Consolidated Plan is a comprehensive planning document that identifies Bristol's overall needs for affordable and supportive housing, community development and services, and outlines a five-year strategy to address those needs.
This Consolidated Plan addresses anticipated entitlement funds over the next five years. It also identifies specific projects and funding levels for fiscal year July 1, 1995 to June 30, 1996.
The City of Bristol has completed a Consolidated Plan for submission to HUD. This document is available to the public for review at City Hall, Office of City Manager, 497 Cumberland Street, Bristol, Virginia 24201; Douglass Community Center, Office of Community Development and Planning, 711 Oakview Avenue, Bristol, Virginia 24201; and the Bristol Library, 701 Goode Street, Bristol, Virginia 24201 during all regularly-scheduled hours of operation. Copies on floppy disk may be made available for a small fee at a later date.
The City of Bristol, Virginia Department of Community Development and Planning performed as the lead agency responsible for development of the Plan. Several organizations participated in the development of the Plan.
The following agencies and associations participated in the Plan process through meetings, telephone conversations, and supporting data with the Department. The planning process was begun very late in the year due to a variety of problems, so it is expected that amendments will be made to the Plan.
Department of Planning, Bristol, TennesseeMAP 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.
