Nestled in the valley of the James River and bordered by the eastern ridge of the Blue Ridge Mountains, Lynchburg is built on Seven Hills that give the city a view over the surrounding countryside. One can enjoy the benefits of residing in such a centralized location. Lynchburg can easily be accessed by air, highway and rail. Close to the state capital and within hours of Washington, DC, this area is within 500 miles of almost every major city and port along the east coast.

The City of Lynchburg, as an entitlement jurisdiction in the Community Development Block Grant and HOME programs, is now required by the U. S. Department of Housing and Urban Development (HUD) to submit a consolidated plan. This plan will take the place of several previously-required plans and reports for community development activities. According to HUD, "consolidating the submission requirements for the CPD formula grant programs offers local jurisdictions a better chance to shape these and other programs into effective, coordinated neighborhood and community development strategies to revitalize their communities. It also creates the opportunity for strategic planning and citizen participation to take place in a comprehensive context, and to reduce duplication of effort at the local level."

The purpose of this summary is to provide a brief overview of the longer, more detailed plan. It is also hoped that this summary will answer some of the basic questions which may arise. The consolidated plan was prepared by the Community Development Division of the Department of Community Planning and Development. It is designed to reflect the needs, goals, and strategies identified through the direct participation of citizens, public and private service providers, and elected officials. A recurring theme throughout the plan is one of shared responsibility. Although the development of this plan centered around the City's participation in federal grant programs, it is obvious that the resources provided through these programs, and indeed all government programs, are insufficient (and sometimes inappropriate) to address the community development needs of this City. It will require the combined resources of every segment of our community to make meaningful progress in addressing our needs. The initiative, resourcefulness, and effort expected of the individual citizen is at least equal to that of public and private agencies.

In order to ensure the participation of a variety of public agencies, private agencies, and affected citizens, the Community Development Division relied on the Neighborhood Services Resource Committee as a forum for preliminary discussions on the plan, and to hold the required public hearing.

Public comment on the housing and non-housing community development needs was solicited via a retail display advertisement published in the News and Advance on February 3, 1995. The advertisement invited interested parties to a public hearing on February 28, 1995. The option was given to submit written comments at any time up to and including the public hearing. In addition, written invitations were issued to various neighborhood organizations, non-profit groups, government agencies, and churches. The public hearing was made part of the agenda for the Neighborhood Services Resource Committee on February 28, 1995. Twenty-nine people were in attendance, including representatives of Lynchburg Redevelopment and Housing Authority, City of Lynchburg Social Services, and Lynchburg Lead Abatement Task Force, which fulfilled the requirement to consult with these agencies.

General Market and Inventory

According to the special tabulations of 1990 census data provided by HUD, Lynchburg had 27,233 year-round housing units of which 25,143 were occupied. 10,509 units were occupied by renters, 14,634 units were occupied by owners, and 2,090 were vacant. The vacancy rate for rental units was eight point one (8.1) percent, while vacancies in units for sale was two point two (2.2) percent.

According to 1990 Census data the median value of owner occupied housing units in Lynchburg is $56,900, while median contract rent is $272 per month. Current HUD fair market rents are $317 per month for an efficiency apartment, $348 for one bedroom, $402 for 2 bedrooms, $512 for three bedrooms, and $594 for four bedrooms. Housing is considered affordable if the occupants are paying no more than thirty (30) percent of gross income for gross housing costs including utilities. Fair market rent is not affordable in Lynchburg for families earning fifty (50) percent or less of the median family income. Median family income in Lynchburg is currently $35,813 per year for a family of four according to HUD.

The City estimates that approximately twenty (20) percent of the rental housing units are in substandard condition in addition to eight (8) percent of ownership units. The City further estimates that ninety-seven (97) percent of these substandard units are suitable for rehabilitation. For the purposes of this document, substandard is defined as being in violation of the Virginia Uniform Statewide Building Code Volume II - Building Maintenance Code, which generally means that the units lack structural integrity, have unsafe electrical or heating systems, or lack basic plumbing facilities. Substandard condition but suitable for rehabilitation is defined as estimated rehabilitation costs not exceeding estimated demolition and reconstruction costs of a unit of comparable size. It is believed that approximately 3,500 units are substandard based on data from the City Assessor's Office, City Inspections Division, U. S. Bureau of the Census, and a comprehensive survey conducted by the City on inner city housing conditions. At least 105 units are believed to be beyond feasible repair, and therefore, appropriate for demolition.

Current Estimates of Need by Category

The following information was provided by HUD in the CHAS Databook, and is based on 1990 census data. We have revised the income category titles to make them consistent with those required by the Consolidated Plan regulations. The needs of households in poverty are considered to be substantially the same as those shown for those labeled extremely low-income. The table presents an estimate of housing problems within relevant types of households on a citywide basis.

Elderly Renters (1 or 2 people; at least 1 aged 62 or above):
extremely low-income:  871 households   (523 with housing problem)
low-income:            600 households   (343 with housing problem)
moderate-income:       335 households   (142 with housing problem)
middle-income:         178 households    (60 with housing problem)
all elderly renters: 2,411 households (1,223 with housing problem)

Small Related Renters (2 to 4 persons):
extremely low-income:  954 households   (662 with housing problem)
low-income:            618               373
moderate-income:       989               265
middle-income:         372                49
all small related:   4,248             1,378

Large Related Renters (5 or more persons):
extremely low-income:  203 households   (177 with housing problem)
low-income:            168               126 
moderate-income:       128                45
middle-income:          44                 2
all large related:     727               373

Other Renters (1 or more persons not related):
extremely low-income:  521 households   (412 with housing problem)
low-income:            395               295
moderate-income:       658               222
middle-income:         232                 6
all other renters:   2,933               970

Elderly Owners:
extremely low-income:  768 households   (506 with housing problem)
low-income:            746               150
moderate-income:     1,180                64
middle-income:         528                25
all elderly owners:  5,301               801

Other Owners (all owners except elderly):
extremely low-income:  303 households   (265 with housing problem)
low-income:            363               216
moderate-income:     1,082               305
middle-income:         545                72
all other owners:    9,303             1,161

housing problem      = paying >30% of income for housing and/or  
                       experiencing overcrowding or physical defects

extremely low-income = earning 30% or less of HUD median family income

low-income           = earning 50% or less of HUD median family income

moderate-income      = earning 51% to 80% of HUD median family income

middle-income        = earning 81% to 95% of HUD median family income

all                  = all households of the type regardless of income

The data in the chart is consistent with the theory that the incidence of housing problems increases as household income decreases. It is also consistent with the maxim that renters experience a greater number of housing problems than owners, even when they are in the same income category. According to the data, thirty-eight (38) percent of all renters experience housing problems, while only thirteen (13) percent of owners experience such problems. This holds true even among the extremely low and low-income, where sixty-seven (67) percent of renters experience housing problems compared to only fifty-two (52) percent of owners. An important factor to consider is that housing problems include a cost burden in monthly housing expenses; renters always owe a landlord for the cost of housing whereas owners can eventually retire all debt on their property and make no more payments other than utilities, taxes and repairs.

Nature and Extent of Homelessness

This extent of homelessness in Lynchburg is very limited according to the best available data. For the preparation of this plan, each provider of homeless services was given a questionnaire to determine if they perceived any increase in need, or planned to change their level of service. No significant changes were noted over the past year, although some of the respondents reported an increase in the need for emergency shelter, while some did not. The City believes such an increase, if it exists, can be accommodated with existing under-utilized capacity.

Non-Housing Community Development Needs

Through town meetings, public hearings, and complaints received on a daily basis, the non-housing needs most often raised by citizens include crime prevention, public infrastructure, code enforcement, and education/job readiness. People are clearly concerned about the incidence of crime, particularly as it relates to violent crime, illegal drugs, and theft. Also of great concern are the condition of public streets, sidewalks, and street lights; people expect them to be in good condition at all times. There are many locations, particularly in the inner city, where this infrastructure is in less than fair condition. This is due to the fact that much of it is thirty to one hundred years old; there are also cases of deferred maintenance and poor original construction which exacerbate the problems of age. The City is also faced with a directive from the Environmental Protection Agency to separate its combined sewer overflow system. This system was state-of-the art nearly one hundred years ago; however, it is now seen to be an environmental hazard due to the fact that, in times of heavy rain, the combined storm and sewer drain system sometimes discharges raw sewage into creeks which feed into the James River. This system is in place throughout much of the old City, which is now home to many low- and moderate-income households. It is now necessary to separate the storm drains so that they cannot mix with and discharge sewage. This process will take some twenty years, and could cost over 100 million dollars. Frequent complaints are received regarding vacant buildings, overgrown weeds, abandoned vehicles, and litter. So frequent in fact that City Council has taken several steps in the past year to expand code enforcement in these areas. Education is also frequently raised in public forums. Citizens demand a quality education for their children, particularly as it relates to their ultimate goal of employment. An extension of that need is, in turn, the creation of jobs. The City is actively engaged in economic development so that there will be adequate jobs for our citizens.

This consolidated plan covers the five-year period July 1, 1995 through June 30, 2000. Federal funds expected to be received over the five-year period are very difficult to estimate due to the current congressional debate over deficit reduction. We currently receive approximately $1,400,000 in Community Development Block Grant and HOME Program funds combined; however, this is subject to significant change at the discretion of Congress. The City makes every effort to leverage federal, state, and other funding for community development projects. It is estimated that $172,000,000 is needed to address every community development need in Lynchburg over the five-year period. Federal government funding will, therefore, represent less than one percent of what is needed; other government funds and private charities will certainly not fund the remaining needs. This is further evidence that the responsibility for these needs must be shared among all facets of the community. Opportunities for investment by the private, for-profit sector must be found, and these investments must provide a financial return as an incentive for continuing investment.

Housing and Community Development Objectives and Projects

The Lynchburg City Council established housing and non-housing community development goals as the guiding principles of the Consolidated Plan and related activities. The goals are repeated below, with further clarification of the funding priorities and projects which accompany these goals. Housing has historically been a priority within the Community Development Block Grant Program, with approximately eighty (80) percent of available funds provided to this category per year. While specific projects are approved by Council on an annual basis, there are certain types of projects which typically receive funding from year to year. For the purposes of this plan, some general assumptions have been made as to the next five years which should not be construed as binding on future Council decisions.

Housing Priorities

1. Provide priority assistance to programs designed to create new home ownership opportunities available to low- and moderate-income buyers.

   The City considers new home ownership a high priority, particularly by low- or moderate-income families who are currently renting. Home ownership promotes stable neighborhoods and a greater sense of community as compared to rental property. In February 1995 HUD Secretary Henry Cisneros published an essay entitled Defensible Space: Deterring Crime and Building Community, in which he states "In Los Angeles increasing crime rates followed building abandonment, conversions from owner to rental occupancy, and land use changes." We believe the same is true in Lynchburg, and that is why home ownership is a leading priority. Owners of real property are making a financial and emotional investment which typically leads to better upkeep of the property, and the possibility of passing the investment on to the next generation. Owning a home is usually the largest investment, and largest asset, of most households. Activities in support of this objective will include HOME and CDBG programs to help first-time home buyers. Over the next five years, it is hoped that at least 50 buyers will receive assistance.

2. Increase the number of owner-occupied housing units through support of public and private home buyer programs. Emphasis is to be placed on programs which require an investment of funds and/or labor on the part of the buyer which are commensurate with the buyer's resources.

   This goal is directly related to the first, although more general in nature. According to 1990 Census data, approximately fifty-eight (58) percent of the housing units in the City were owner-occupied, compared with forty-two (42) percent which were rental. We believe an increase in home ownership of up to seventy (70) percent of all housing units would be desirable for the long-term stability of the City. In order to move in this direction, new and rehabilitated housing for ownership will have to be developed in a wide range of prices. The City will encourage developers, banks, and others to take action in this regard. As a related matter, the City believes that the buyer should provide as much of this investment as possible so as to minimize the need for subsidy, and therefore government and non-profit involvement. With limited government resources, the City believes the participation of the private, for-profit sector will be necessary, with government involvement limited to those low- and moderate-income households which require some assistance in order to become owners. Our objective in this area is to make progress towards the ultimate goal of seventy percent ownership, as measured by the 2000 U. S. Census. This data will be available only after the end of the five-year period of this plan.

3. Reduce the number of substandard owner-occupied housing units through support of public and private rehabilitation programs. Emphasis is to be placed on programs which require an investment of funds and/or labor on the part of the owner which are commensurate with the owner's resources.

   Although single family, owner-occupied housing is typically better maintained than comparable rental units, there is a great need for assistance to owners of low-income. This is particularly true of the elderly or disabled which are no longer able to perform routine maintenance activities required to keep a house in standard condition. The City will continue to support Lyn-CAG and other organizations which provide assistance to low-income owners. This is another high priority objective of City Council. To the extent feasible, owners should provide their own resources so that limited government funds can be spread to the maximum number of houses. It is hoped that at least 100 households receive this assistance during the period of this plan.

4. Reduce the number or occupancy of substandard rental housing units through enforcement of applicable ordinances and building code requirements, and through private initiatives to rehabilitate existing rental properties.

   A high percentage of low-income rental households experience housing problems related to the condition of their rental unit. The City believes that every housing unit should be safe and decent, and that landlords, as business owners, are responsible for providing a quality product to the public, i.e. renting out only those properties which comply with the Building Code. To that end, the City has begun a rental property inspection program whereby routine inspections are made of all rental properties in low- and moderate-income census tracts on a two-year cycle. Landlords who do not correct violations within an allotted time are not allowed to have a certificate of occupancy for those units, and therefore, cannot legally rent them out. Lack of rental income provides a direct incentive for the landlord to correct the problems. The City has also increased its enforcement of related ordinances, which will be discussed in greater detail under non-housing community development. It is hoped that at least 2,000 units will be inspected and brought up to standard condition during the five-year period of this plan.

5. Encourage regional cooperation on initiatives to increase affordable housing opportunities for low-income households throughout the Central Virginia Planning District.

   The City is actively supporting the formation of a regional housing consortium through the Central Virginia Planning District Commission (to be supported by the Commonwealth of Virginia). We support the idea that housing is a regional issue; however to date, over eighty-five (85) percent of all assisted housing for the region is located in the City of Lynchburg, and virtually all of the non-profit service providers are located here. The City only accounts for thirty-two (32) percent of the region's population, so the disparity is obvious. There are households in the surrounding counties which are equally in need of safe, decent, and affordable housing. These people should have some housing choices and assistance available to them in their home county. It is hoped that our work on the consortium will lead to more housing opportunities throughout the region. Our objective is to see the consortium formed and operate effectively throughout the period of this plan, with at least one permanent member from the City of Lynchburg government.

6. Encourage and support regional cooperation on initiatives to increase affordable housing opportunities for special needs populations throughout the Central Virginia Planning District.

   The same argument holds true for special needs populations. Most of the region's population relies on organizations within the City of Lynchburg for assistance. It is hoped that the regional consortium, the regional Disabilities Services Board, and others can cooperate to increase opportunities throughout the region. There is a definite need to provide housing and other services in closer proximity to clients, partly due to transportation limitations, but also due to client's desires to remain closer to their traditional home. Special Needs Populations include, but are not limited to, the mentally ill/mentally disabled, physically disabled persons, substance abusers/addicts, persons with AIDS, and elderly persons in need of supportive housing. In objective in this regard is the same as in number five above, with the added hope that at least one project to assist special needs populations occur within the region during the period of this plan.

Non-Housing Community Development Priorities

1. Support economic development efforts which will expand job opportunities for low- and moderate-income individuals, as well as the general public. Continue to take actions which stimulate private, as well as public investment in designated enterprise zones.

   The City has been participating in the Virginia Enterprise Zone Program since its inception in 1984. The Community Development Division intends to request a second enterprise zone in 1995, in order to take advantage of newly approved regulations for the program. The proposed site(s) for this second zone were developed in consultation with the City's Department of Economic Development. It is our objective to encourage more commercial and industrial development, which in turn provides more jobs to the community. The Community Development Division also participates in downtown revitalization, where the majority of residents are low- and moderate-income. Through the Community Development Block Grant Program and other resources, we are providing low-interest loans and facade improvement grants to businesses. We are also in the final development stage of forming a non-profit bank community development corporation with the help of the seven largest area financial institutions. This bank CDC will provide loans and equity investments to business and housing projects to benefit low- and moderate-income persons. The seven banks already participate in the privately-funded Enterprise Zone Loan Pool, which provides loans to eligible businesses at one-half percent below prime rate. The City also contributes to the Business Development Center, a non-profit organization which provides Small Business Administration loans, other loans, and technical assistance to emerging businesses. Also, Venture for Enterprising Women is an organization which provides technical assistance and small loans to women who desire to open their own business. This organization currently occupies a portion of a City-owned building rent-free. All of these activities combine to show the City's commitment to this high-priority goal. Our objective is to begin operation of the CDC in 1995, and see that it functions through the five-year period of this plan. In addition, we plan to maintain the current level of services as described above.

2. Eliminate deterioration, blight and blighting influences through staged redevelopment of public infrastructure, rehabilitation activities, code enforcement, or clearance where needed.

   The City has begun more coordinated and aggressive code enforcement, dealing with weeds, abandoned motor vehicles, litter, and vacant buildings in an effort to improve the safety and appearance of neighborhoods, and the surroundings in which people live, work and play. We now use supervised inmate labor from the local jail to secure abandoned buildings against illegal entry, clean illegal dump sites, and also to cut weeds on neglected properties. The Community Planning and Development staff now involves the Police Department, Fire Marshall, and Lynchburg Redevelopment and Housing Authority in determining the priority for demolition of substandard housing. The above is part of the City's ongoing Neighborhood Initiatives Program, and is a high priority activity. Our objective is to demolish at least 50 severely substandard buildings, and to enforce other related codes such that citizen complaints are reduced by at least ten percent at the end of the five-year period.

3. Support the improvement or development of neighborhood and community facilities which are integral to sound community development and to the general health, safety, and public well-being of the community.

   The City has six community/recreation centers in predominately low- and moderate-income neighborhoods, some of which were originally developed with federal assistance. The City has an ongoing commitment to maintain and improve these facilities to meet the needs of the area citizens. In the next five years, the City plans substantial rehabilitation of the Diamond Hill Recreation Center. Also, the building occupied by Bethune Nursery School is owned by the City, but leased to Bethune at no cost. This building will receive accessibility improvements in the coming year to ensure compliance with the Americans With Disabilities Act. Bethune provides nursery school care for low-income children. Our objective is to complete the above projects within two (2) years, and evaluate additional projects in this category for funding.

4. Support park and recreation improvements in relation to community need, particularly for low- to moderate-income persons or neighborhoods.

   The City is planning to further develop Blackwater Creek, the Riverfront and Percival's Island into recreational areas with a combination of local, state, and federal funding which has already been approved. In addition, the City intends to support the work of the Hunton YMCA through the CDBG program. Our objective is to have these projects substantially completed by the end of the five-year period.

5. Encourage the preservation of properties of special value for historic, architectural, or aesthetic reasons.

   The City, being over 200 hundred years old, has many historic commercial and residential properties. There are also five (5) locally-designated historic districts, in addition to the Lower Basin/Riverfront which is an historic advisory area. From time to time, the City contributes to projects which preserve these historic assets. The City recognizes the economic development and tourism advantages of historic preservation. Our objective is to assist at least two (2) such projects in the five-year period of this plan.

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.

TABLE (without associated map) provides information about the project(s).