Bordered by Lake Champlain to its west and the Green Mountains to its east, Burlington is located in northern Vermont, about an hour's drive from the Canadian border. It is Vermont's largest city, and home to the University of Vermont and four smaller colleges. The city has historically had a small manufacturing base; its economy is currently based more in the retail and service sectors.

Action Plan

To implement its Consolidated Plan in the first program year, Burlington is seeking $1.1 million in Community Development Block Grant (CDBG) funds for improvements to housing, economic development, public services, and public facilities and to remove architectural barriers that hamper persons with disabilities.

Citizen Participation

The Burlington Consolidated Plan was coordinated with two related local planning efforts that involved extensive community participation: Common Ground -- A Strategic Plan for the Old North End Enterprise Community and Jobs and People II -- Towards a Sustainable Economy. The city's Community and Economic Development Office notified the chairpersons, steering committees, and coordinators of the Neighborhood Planning Assemblies about the plan and invited them to participate. Workshops and two public hearings were held to discuss the plan.

Burlington's 1990 population of 39,127 represented an almost 4 percent increase from 1980. This growth, however, is flat when compared to the 14 percent increase in the population of Chittenden County as a whole. The number of households in Burlington increased 12 percent to 14,680 in 1990, while the size of the average household decreased to 2.3 persons.

The city has a young population. More than 41 percent of the city's population is between the ages of 5 and 24, compared to 29 percent statewide. The University of Vermont alone enrolls 10,617 students, and there are four other colleges in the city. Residents over the age of 60 make up 13 percent of the population, an increase of 2 percent from 1980.

Because of the number of young people, there is a relatively small number of families. They comprise less than half of all households in Burlington. In Chittenden County, 72 percent of households are families. Female-headed households now make up 21 percent of all families. The Census Bureau defines a family as one or more persons living in the same household who are related by birth, marriage, or adoption.

Like the rest of the State, Burlington remains an overwhelmingly white community, but half of the city's population growth in the 1980s came from racial and ethnic minorities. While the minority population remains small (4 percent of the total population), it grew 121 percent from 1980, an increase of 866 people.

Median household income in Burlington is $25,523, significantly less than the median income for Chittenden County ($36,877) and for the State ($29,792). The median income is brought down because of the large numbers of college students, most of whom have little income. There is, nonetheless, a high poverty rate in Burlington. Almost 20 percent of city residents live in poverty, and the numbers are rising. Between 1980 and 1990, the number of residents living below the poverty level jumped 26 percent. In the Old North End neighborhood, almost one-third of the residents and 42 percent of children live in poverty.

Market Conditions

Burlington's housing stock was 13,736 units in 1990, a more than 12 percent increase from 1980. Over 90 percent of this increase came from the construction of new housing. Of these new units, 79 percent were renter occupied and 21 percent were owner occupied. There were increases in the number of two- to four-unit structures, five- to nine-unit structures, and attached single-household units.

Average home prices increased 5.6 percent between 1990 and 1994. The average cost of buying or renting a home in Burlington increased twice as fast as the average income in the 1980s. While this gap has narrowed in the past 2 years, incomes still lag behind costs.

Fair market rents -- what the Department of Housing and Urban Development (HUD) deems to be the gross rent for an average-cost unit of average quality -- increased 11.5 percent between 1989 and 1994. A one-bedroom unit, including utilities, is $583 per month, a two- bedroom unit is $684 per month, a three-bedroom unit is $856 per month, and a four- bedroom unit is $960 per month.

Burlington's vacancy rate increased only slightly, from 4.3 percent in 1980 to 5.2 percent in 1990. In 1990 there were 800 vacant units in Burlington. College students are also increasingly living in off-campus houses. Although enrollment at the University of Vermont increased during the 1980s, the number of students living in on-campus housing actually declined.

More than half of Burlington's housing stock was built before 1939 and an additional 10 percent was built between 1940 and 1949. Due to the protection and rehabilitation of the city's existing affordable housing, and the production of hundreds of market-rate and price- restricted rental housing units in the late 1980s, the supply of low-cost, high-quality rental housing has increased. The recession that began in 1989 decreased demand for housing. The result has been a moderation in the rate of rent increases, an increase in vacancies among lower quality rental units, and increased financial pressure on landlords who expanded their holdings of lower quality rental units during the 1980s.

Affordable Housing Needs

Those households earning less than 50 percent of median family income (MFI) make up 35 percent of the city's total households. Most of these households have housing problems and are forced to pay more than 30 percent of their incomes on housing. A disproportionately high percentage of minorities are in this income category.

Very low-income renters comprise nearly half of all renters. Nearly 81 percent of these renters pay more than 30 percent of their income for housing. The very low-income renters with households between two and four persons experience an even higher incidence of housing problems than large households or the elderly. Very low-income homeowners make up 15 percent of all homeowners in the city. Two-thirds of very low-income homeowners are elderly. This population also pays a disproportionate amount of income on housing costs; nearly 55 percent pay 30 percent or more of their incomes on housing costs and 29 percent pay at least half of their incomes for housing costs.

The city describes very low-income households as those earning below 30 percent of MFI. Renters in this income category are virtually frozen out of the housing market unless they can get subsidized housing. Twenty-eight percent, or 2,375 households, fell into this category. Of this number, 80 percent pay more than 30 percent of their incomes for housing and 65 percent pay more than half of their incomes for housing. Of the 444 very low-income homeowners in the city, three-quarters spend at least 30 percent of their income on housing.

Low-income households (those earning 51-80 percent of MFI) make up 20 percent of the city's households. A low-income household has a decent chance of finding an affordable efficiency or one-bedroom apartment, but there are few opportunities for finding an affordable larger unit.

Low-income renters comprise 23 percent of all renters in the city. Nearly 40 percent have housing problems, with households of five or more people experiencing a disproportionately high incidence of housing problems than smaller households. Of the low-income renters, 38 percent pay more than 30 percent of their incomes for housing, while 8 percent pay more than half of their incomes. Low-income homeowners make up 15 percent of all homeowners. Of this population, 31 percent have housing problems; 28 percent pay more than 30 percent of their incomes for housing; 6 percent pay more than half of their incomes. More than one-third of low-income homeowners are elderly.

Moderate-income households (those earning 81-95 percent of MFI) make up 8 percent of all households. This income group has a substantially wider housing choice than low-income households. Most efficiency and one-bedroom units are affordable, a majority of two- bedroom units are affordable, and some three-bedroom units are affordable. Only 15 percent of these households have housing problems; 15 percent pay more than 30 percent of their incomes on housing, and almost none pay more than 50 percent of their incomes. Seven percent of renters and 8 percent of homeowners have moderate incomes.

Homeless Needs

The Homeless HealthCare Project (HHP) served 1,130 clients in 1994, but this does not represent the number of people who are homeless at one time. The best estimate of the number of homeless persons in Burlington on any one night is 125 to 200. Sixty percent of the HHP clients were unattached adults and 21 percent were adults with families. Between 1993 and 1994, HHP saw a 21 percent increase in its clientele. Veterans make up 30 percent of the HHP client base.

Of the homeless served in 1994, more than 28 percent had a substance abuse problem, 18 percent suffered a mental illness, and 3 percent had a substance abuse problem and were mentally ill.

Burlington youth service providers have reported increasing numbers of youth in need of safe and stable housing. Teenagers are leaving home and being kicked out of their homes because of issues related to physical, emotional, and sexual abuse; neglect; communication problems with adults, parents, and/or guardians; substance abuse; and other problems.

Many of the facility and service needs of the homeless are being met by HHP, the Committee on Temporary Shelter, Women Helping Battered Women, Spectrum, the Food Shelf, and others. There are 95 beds at emergency shelters, 65 units/beds for transitional housing, and 87 units of permanent single-room occupancy housing.

Needs for the homeless include an upgrade of an emergency shelter for 40 individuals, additional vocational support services, support services for homeless teenagers who are pregnant, housing and support for elderly battered women, more shelter space, and more targeted services for low-income and homeless families. Also, other towns in Chittenden County must share the financial and social burdens of caring for the homeless. The available services in Burlington draw homeless individuals and families from a wide geographic area.

Public and Assisted Housing Needs

The Burlington Housing Authority (BHA) operates 137 units of public housing for families and 210 public housing units for the elderly, and administers 416 Section 8 units.

As of March 1995, there were 413 households on the BHA waiting list for conventional public housing and 966 households waiting for Section 8 housing. There are no vacancies in BHA-held units and no unused Section 8 vouchers or certificates. Persons on the Section 8 waiting list will wait about 3 years for assistance. The shortest waiting periods for public housing are 3-6 months for one-bedroom units for the elderly and 9-12 months for family three-bedroom units. The number of physically or mentally disabled persons on the waiting lists has increased in recent years. An increasing percentage of BHA housing is being occupied by non-elderly individuals with disabilities and by very low-income households receiving public assistance. Both of these factors are challenging the service provided by BHA.

There are 515 subsidized housing units for the elderly, representing one-third of all publicly subsidized rental units in Burlington, but 202 elderly persons are still waiting for housing units.

Lead-Based Paint

Lead-based paint is present in residential areas throughout the city, especially in the older neighborhoods. It is estimated that 10,334 housing units contain lead-based paint hazards. Sixty percent of such units are renter occupied.

Other Issues

According to the Burlington Municipal Development Plan, 5,000 persons with disabilities live in Burlington. While 25 percent of these people use special equipment or housing adaptations for these disabilities, it is unknown how many persons with disabilities are without the type of housing that would suit their physical and financial needs.

There is a shortage of residential care homes and other supportive living conditions for developmentally and mentally disabled adults. Deinstitutionalization of the State mental hospital and of a facility for developmentally disabled adults has increased the pressure on community health care and social services organizations.

Community Development Needs

Because of harsh weather conditions, the city's streets and sidewalks constantly need upgrading. A 1994 needs assessment by the city Engineering Department selected repair options and prioritized the work schedule based on greatest need. All sidewalks that failed the analysis were included in the capital needs program. Sidewalks out of compliance with the Americans with Disabilities Act will be made to comply, regardless of their condition.

A plan developed by the city Department of Parks and Recreation has identified several areas of substandard services: inadequate indoor space for recreation programs and services, inadequate support facilities, specific areas of the city without developed park space and neighborhood-oriented facilities, unrealized lake access and water-oriented recreational activities, and a failure to meet the public's demand for bike path and greenway acquisition and development.

The waterfront area of the city has yet to be developed. The infrastructure is insufficient to meet the needs of a new park and will take millions of dollars to repair. Other formidable obstacles include the presence of contaminated soils and groundwater throughout much of the area, and an abandoned generating plant that is too valuable to demolish, but too expensive to convert and renovate. However, a foundation has been laid in recent years for redevelopment of the area through transfers of land and public support for the waterfront urban renewal plan. The city has targeted the Old North End as the neighborhood in most need of revitalization.

Vision for Change

Burlington's goal is to reduce the number of people living in poverty and to move the city toward greater security, opportunity, and sustainability.

Housing and Community Development Objectives and Priorities

The city's objectives and priorities outlined below are in response to the changes that are occurring in the community:

• Ensure that older adults and persons with disabilities have the necessary community support to live independently -- through appropriate advocacy, recreation, and social services.
• Ensure that all people have equal access to community resources.
• Ensure that the arts and recreation are integral parts of the community and vehicles for personal growth and development.
• Ensure that all residents have access to quality, affordable, and appropriate health care and prevention services.
• Improve the development, health, and well-being of children and youth; prepare for their transition to adulthood; assist families in achieving these goals for their children; and overcome threats to the health and safety of children and families.
• Ensure the continued existence of programs that provide life-sustaining services and services that maintain a stable living environment for low-income families. These include health care, shelter, food, heat, and clothing.
• Strengthen and support the capacity of local organizations to meet community needs.
• Maintain a consistent level of safe and accessible streets and sidewalks and expand alternative transportation systems.
• Provide safe and accessible play and recreation areas, and open space in the city by improving and expanding park facilities.
• Maximize energy efficiency citywide and minimize the need for new energy resources.
• Ensure that the waterfront becomes a vital, year-round part of the community by providing safe and environmentally sustainable cultural, recreational, social, and economic opportunities that are accessible to all.
• Target municipal resources over the next 10 years that are consistent with the most recent version of the strategic plan for the Old North End neighborhood.

Housing Priorities

The city's housing priorities are to:

• Increase the supply of standard affordable housing.
• Promote homeownership opportunities.
• Provide rental assistance.
• Ensure no net loss of assisted housing units.
• Reduce lead-based paint hazards.
• Reduce energy costs.
• Meet housing needs of large families, elderly, and persons with disabilities.
• Alleviate overcrowding.
• Minimize involuntary displacement.
• Provide increased housing mobility and choice.
• Address unmet supportive housing needs.
• Improve public housing.
• Assist the homeless.

Nonhousing Community Development Priorities

The city's nonhousing community development priorities are to:

• Enhance the quality of life in Burlington by maintaining the strength and vitality of downtown, further enhancing cultural and recreational amenities, and revitilizing the waterfront and neighborhoods.
• Ensure that Burlington continues to generate a strong, diverse base of locally owned enterprises.
• Improve the economic well-being of targeted population groups through economic opportunity and support services such as childcare and transportation.
• Maximize the city's competitive advantages by supporting the development of targeted industries, including: telecommunications-intensive businesses, environmental technology businesses, financial services, specialty foods, printing and publishing, the arts, and sustainable natural resource promotion.
• Promote increased regional cooperation on economic development issues.

Anti-Poverty Strategy

The city's goal, through the Consolidated Plan, is to reduce the number of people living in poverty. The antipoverty strategy is a tool to guide the allocation of limited resources to address the needs of residents living in poverty. The city will give funding priority to those programs that address a priority need as identified in the Consolidated Plan.

Housing and Community Development Resources

State and local resources and Federal funds will be available for Burlington's implementation of its Consolidated Plan. For programs that assist senior citizens, persons with disabilities, families and youth, and for health, prevention, and public safety issues, CDBG funds will be used along with State, United Way, and additional Federal funds. For programs related to human rights and equal access, CDBG and additional Federal funds will be used. Neighborhood programs will be funded by CDBG and State funds.

Coordination of the Strategic Plan

Burlington's housing mission is carried out by BHA and the Department of Public Works, the Department of Planning and Zoning, the Community and Economic Development Office (CEDO), the Housing Board of Review, and a restricted revenue account established by the city council, the Burlington Housing Trust Fund. An informal group of private-sector housing advocates and public-sector housing officials will continue to meet once a month as it has for nearly 7 years. The city will continue to coordinate its housing activities with State agencies such as the Department of Housing and Community Affairs, the State Housing Authority, and the Vermont Housing and Finance Agency. The city is fortunate in having a diverse nonprofit sector with the capacity to develop and rehabilitate affordable housing. However, there are weaknesses in the local housing network, such as the unpredictability of many funding sources, continued cutbacks in Federal aid, and a lack of supportive services and coordination of those services.

In terms of community development, CEDO facilitates and coordinates the delivery of most public initiatives. The city also relies heavily on State agencies, such as the Vermont Agency of Human Services and the Agency of Development and Community Affairs. The city is fortunate to have an efficient entrepreneurial program, a dedication to meeting the individual needs of its citizens, and an established network of nonprofit service providers. Burlington's weaknesses include a private sector that needs more education on local poverty, planning uncertainties linked to unstable funding sources, and differing levels of public staff experience and expertise.

Description of Key Projects

The following is a sample of projects to be implemented in the first year of Burlington's Consolidated Plan:

• $144,320 in CDBG funds to support perpetually affordable multifamily housing development and redevelopment in the Old North End neighborhood. This project will help 47 units of housing.
• $70,000 in CDBG funds to create 20 units of affordable multifamily housing through a strategy of acquisition and rehabilitation of buildings in the Old North End neighborhood.
• $135,000 in CDBG funds to improve the living conditions of the city's low- and moderate-income population through revitalization of its distressed neighborhoods, financial and technical assistance to small businesses, and grants to support projects that will increase the commercial tax base and create quality jobs. This program is expected to help about 100 people.
• $65,000 in CDBG funds to provide information, technical assistance, and loans to very small businesses. Special emphasis will be placed on business owners and potential owners who are women, people of color, and others who have been excluded from business ownership. This program will help about 350 people.
• $6,000 in CDBG funds to support the Senior Center Program, which will serve about 500 elderly persons.
• $50,000 in CDBG funds to house the Community Dental Program, which offers affordable access to dental care. This program will serve 2,000 low- income persons.

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.

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; in addition, a table provides information about the project(s).

Diane Carminati
CEDO Director
(802) 658-9300 extention 150