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HOUSING / OPERATION
BREAKTHROUGH
CENTRAL PIEDMONT REGIONAL COUNCIL OF LOCAL GOVERNMENTS
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HOUSING/OPERATION BREAKTHROUGH
1970-71
Prepared by: Central Piedmont Regional Council of Local Governments
Date: April, 1971
The preparation of this report was financed in part through a Comprehensive
Planning Grant (N.C.P-135) from the U. S. Department of Housing and Urban
Development.
TITLE
AUTHOR
SUBJECT
DATE
NAME OF PLANNING
AGENCY
SOURCE OF COPIES
1970-71 Housing/Operation Breakthrough Element
Central Piedmont Regional Council of Local Governments
A summary of housing/breakthrough related activities
for fiscal 1970-71 in the Central Piedmont Region
and an analysis of governmental actions for the next
year's work.
April, 1971
Central Piedmont Regional Council of Local Governments
Clearinghouse for Federal Scientific and Technical
Information, Springfield, Va. 22151
Central Piedmont Regional Council of Local Governments,
Suite 301, 1229 Greenwood Cliff,
Charlotte, N. C. 28204
For Reference: HUD Regional Office Library,
Region IV, Atlanta, Georgia
State Depository Library, University
of North Carolina,
Chapel Hill, N. C. 27515
Planning School Libraries,
Depository Libraries
HUD PROJECT NO.
SERIES NO.
NO. OF PAGES
ABSTRACT
N.C. P-135, Work Element 2.3
n.a.
20
This report reviews the year's activities of the
author agency against the work program established
in April, 1970. It summarizes responses to housing
constraint surveys made under the State of North
Carolina's Breakthrough Plan and delineates the
problem areas identified through the process.
It recommends directions for related activities in
future work and em.phasizes the necessity for con¬
sultation to permit assignment of appropriate tasks
to varying levels of governmental and planning agencies.
TABLE OF CONTENTS
Page No.
INTRODUCTION
I. PROGRESS REPORT - WORK ACCOMPLISHED 3
Obtain Market Information, Element No. 1 3
Establish Development Targets, Element No. 2 6
Identify Sites, Element No. 3 6
Identify Constraints, Element No. 4 8
Establish Technical Assistance Coordination, Element No. 5 11
II. ANALYSIS & ADDITIONAL WORK CONTEMPLATED 12
Analysis 12
Additional Work Contemplated 15
III. COMMENT 19
APPENDIX 20
-List of Agencies Contacted
-Map of Generalized Housing Areas
INTRODUCTION
This report summarizes and analyzes the 70-71 work program of
the Central Piedmont Regional Council of Local Governments. This
work program V7as the result of a series of meetings, and surveys
conducted regionally as well as statewide. Its primary intent was
to furnish maximum assistance to the State of North Carolina in
implementation of the State's "Breakthrough" plan and the priorities
attributed thereto in the Federal Government's priorities for 701
Comprehensive Planning Grants.
A series of meetings, starting in late Decem.ber of 1959,
contributed to the formulation of North Carolina's "Breakthrough
Operations Plan for North Carolina" by the State Planning Division
of the N. C. Department of Administration dated April, 1970. These
meetings brought together the responsible State officials and
representatives from the regional organizations to analyze and
assign agency responsibilities for Breakthrough Planning.
The Central Piedmont Regional Council of Local Governments had
conducted an initial survey in October of 1969 to identify regional
priorities and problems in housing. This survey was summarized in
the Initial Housing Elem.ent 1969-70 published in April, 1970. This
survey identified several problem areas toward which much of the
State's Breakthrough Plan was directed. Hence the work program of
the Central Piedmont Regional Council of Local Governments was
specifically designed to provide maximum support to the State effort
albeit during its preparation the details of the State Plan were
unknown.
The specific elements of this report will be structured about
the specific work elements projected for fiscal 1970-71 in the
Council's Program Design for 1970-73. These work elements, designed
in response to State requirements, have formed the basis for all
staff activity.
For fiscal 71-72 these work elements will be continued with
such revisions as are necessary to respond to revised assessments
of State priorities at the State level. This work is currently in
progress.
-2-
I. PROGRESS REPORT - WORK ACCO>T'LISHED
WORK ELEMENT 1. - "Obtain such additional basic housing market infor¬
mation as may be required by the State of North Carolina including,
but not limited to, potential housing starts for the years 1970,
1971, and 1972, from the plans of suppliers of housing throughout
the region."
WORK ACCOMPLISHED:
State requirements for market information were received by
the Council of Governments staff on August 18th together with a
copy of the State "Breakthrough" plan. These requirem_ents were
established by the use of a standardized reporting form for housing
authorities and another for potential sponsors and/or developers.
At this time the State housing coordinator briefed staff on the
use of the forms, and also on the important elem.ents of the State's
plan.
Initial interviewing commenced almost Immediately. It was
determined with the State that to establish a comprehensive list
of the potential developers and sponsors, the most efficient tactic
would be to poll the housing authority' directors in the region as
to firms who had expressed interest in this field. Having estab¬
lished a master list during the first quarter of intervie\<riLng staff
proceeded during the second quarter to interview both sectors.
Several discussions have been held within staff as well as
with the State concerning the objectives of this type of market
aggregation reporting. The information developed through the State
questionnaire develops relatively short term projections of that
housing which vzill be constructed within the reporting area.
-3-
There is sincere question as to: (1) Whether the information
furnishes all accurate views as to the Actual Potential Market for
low and moderate income housing (or "Breakthrough" Housing) in the
region and (2) whether a more accurate view of this type input
might be more readily, and more inexpensively available through
aggregation of applications received for Public Housing and
Governmentally assisted housing at the Federal level. There is,
in connection with (2) a severe problem in identification of
potential sponsors or developers prior to public announcements.
All housing authority directors within the COG region were
visited during August, September, and October. Total projections
for housing are indicated in table one. These figures were trans¬
mitted to Raleigh in late October as per the State's Breakthrough
Plan. Additionally, a regional list of potential sponsors was
developed from these housing authorities and used for the second
quarter's reporting. (See appendix for list.)
During the second quarter the combined list of housing
authorities and potential sponsors/developers was polled and
quantities reported to the State. (See Table II and appendix for
list.) Similar reporting will be continued through the planning
year to satisfy this work element.
-4-
TABLE I
REGIONAL
PUBLIC HOUSING PLANNING
(Oct.
'70 and Jan.
Program
70
71
72
Elderly
100
318
100
Leased
306
42
0
Conventional
460
350
150
Turnkey I
472
0
Turnkey III
600
250
TOTALS 866 2,182 500*
TABLE II
REGIONAL FEDERALLY ASSISTED HOUSING PLANNED (Jan. '71)
Program
71
72
236
550
0
235
768
0
Turnkey III
404
250
Turnkey I
68
0
Leased
92
0
Elderly
318
100
Conventional
350
150
TOTALS
2,550
500
*Projection information not available for 1972 from all LPHA's or
private sponsors
-5-
WORK ELEMENT 2. - "Assist the State of North Carolina in the establish¬
ment of Breakthrough Housing Development targets initially for a two-
year period beginning June 1970 with separate targets for low and
moderate income families and middle and above income families."
WORK ACCOMPLISHED
There has been no implementation of this work element. The
targeting responsibility was specifically retained within the State
Housing Information Exchange in the State Breakthrough Plan (see pp 21,
paragraph 4). The State of North Carolina has not requested any
assistance in this role.
WORK ELEMENT 3. - "Assist the State of North Carolina in the identifica¬
tion of both public and private sites for Breakthrough Housing within
the region."
WORK ACCOMPLISHED
State Breakthrough Planning under the State Housing Information
Exchange was to develop standardized questionnaire forms for reporting.
Included as part of the Information Exchange was to be an inventory of
land available for industrialized housing for low and moderate-income
families. No information has been made available from the State as to
criteria and reporting procedures.
Nevertheless, as part of the Comprehensive Planning Process for
the region it was deemed necessary to locally establish certain basic
criteria and to identify on a regional and generalized basis those
areas suitable for Breakthrough Housing location in accordance with
regional goals, objectives, and existing planning. (See Appendix for
map)
-6-
In establishing criteria for this regional designation the
following was assumed:
1) That density would be moderate to high.
2) That suitable locations must be defined in terms of long term and
short term developmental considerations.
The following were assigned as locational criteria for short
term development.
A. Employment opportunities should be located within reasonable
distances. On a regional scale this has implied locations
close to existing employment centers.
B. Public transportation, being a basic necessity to the low
income wage earner, should be readily available to the
potential site. Again, on a regional basis, this has
indicated proximity to existing major arteries as being
feasible mass transit corridors.
C. Urban services, especially water and sewerage, should be
available. The costs of provision would raise the price of
housing im.probably high, should these services not be close
to the site.
D. Given the existing consensus development plan for the region,
other use designation (or density) precludes establishment
of housing development.
The above criteria were established to permit regional designa¬
tion of optional circumstances. They do not include any investigation
of the specific characteristics of any site therein as to cover.
-7-
drainage, adjacent use, or local planning unit criteria. These
investigations will more logically be carried out by a local housing
authority or the potential Breakthrough Developer.
Long Term Locational Criteria were similar. However, these
additional areas recognize employment centers, transit corridors and
water and sewerage provision projected to develop within a 15 year
period. These projections reflect the goals and objectives of the
adopted consensus plan for development of the Central Piedmont Region.
Location of "Breakthrough" type or low to moderate income housing in
these areas will further the objectives of the Consensus Plan.
WORK ELEMENT 4. - "Assist the State of Xorth Carolina in the
identification of constraints to the attainment of increased housing
production which may exist within the region."
WORK ACCOIH'LISHED
Pursuant to the State's Breakthrough Plan contact was made soon
after receipt of the Breakthrough Plan with the N. C. Department of
Local Affairs for the purpose of establishing definitions of
"unreasonable planning, zoning, and subdivision controls." Being
advised that a contract had not yet been signed and hence no work
had been done towards this end, this element was delayed until the
Department of Local Affairs was ready to proceed. On January 28,
1971, a letter was received from the Department of Local Affairs
inquiring as to "the status of our work in these areas..."
Work has just begun on this element i-7ith initial survey work by
the Department of Local Affairs and staffed C.O.G.s.
-8-
During the interim period, information was collected through the
housing questionnaires distributed for market information. hTiile
limited in scope, the responses by housing professionals indicate
comparatively similar views of the constraints to increased housing
development.
PUBLIC HOUSING DIRECTORS
Constraints to proposed public or subsidized housing (Ranked in Order)
4 Lack of suitable land
4 Inadequate Federal money
3 Opposition of voting public
2 Restrictive zoning
1 Opposition of local government
0 Opposition of low-income population
2 Other (1 Lack of Local Interest - 1 Opposition by Some Low Income
Groups)
In evaluating these responses it should be noted that two responses
are from small jurisdictions with very limited programs. Their responses
indicated lack of local interest and inadequate federal money as their
constraints. Exempting their responses produces the following ranking:
4 Lack of suitable land
3 Inadequate federal money
3 Opposition of voting public
2 Restrictive zoning
1 Opposition of local government
Inasmuch as two of the 3 citations of voting public opposition
included with it "objections to special sites" it can be concluded
-9-
that acquisition of suitable land ranks as the prime restraint
especially when political feasibility is added as a consideration.
Responses from potential sponsors of developers showed w^ider
diversity in viewing constraints to development. This may be related
to individual experiences of the respondents on their latest project.
EXPECTED OBSTACLES TO PLANNED PROJECTS
4 Inadequate Federal money
3 Lack of suitable land
3 Opposition of General Public
1 Lack of "Seed" money
1 Opposition of local Government
2 Other
0 Restrictive zoning
0 Opposition of low income population
DISCOURAGING PROBLEMS TO MAKING PLANS FOR ADDITIONAL HOUSING
6 Difficulty with Federal Housing Programs
4 Land availability
2 Zoning requirements
2 Mortgage fund shortage
0 Inadequate market
It remains to be seen if this sampling technique and questionnaire
have significant value. Major developers outside the region cannot be
interviewed under this system, and private projected activities cannot
be anticipated or identified for market aggregation until publicly
announced. Potential private developers within the region are only
-10-
identifiable through their contacts with Public Housing authorities
within the region.
WORK ELEIIENT 5. - "Establish coordination of technical assistance to
sponsors and developers with the State of North Carolina."
WORK ACCOMPLISHED
A housing assistance response system through the N. C. Department
of Local Affairs was a major element of the State's Breakthrough Plan.
No role was projected or has developed for Councils of Government in
this area.
-11-
II. ANALYSIS & ADDITIONAL WOEK CONTEMPLATED
The 1990 Preliminary Regional Consensus Development Plan for
the Central Piedmont Region (adopted on July 8, 1970 by the Central
Piedmont Regional Council of Local Governments) included the following
objective for housing:
"Promote a continuing program for the elimination of substandard
housing to meet currently unmet needs as well as anticipated future
needs of all citizens of the region [for housing], with particular
emphasis upon the unmet needs of the low and lower-middle income families
and such special groups as the elderly and the handicapped."
This objective reflected the following statements set forth in
the "Initial Housing Element 1969-70" of the Central Piedmont COG:
"Solution of the housing problems confronting the Central
Piedmont region can best be accomplished by achieving the following
obj ectives:
1. Providing a complete range of housing types, prices, and
designs to meet all income levels, the diversity of housing
tastes, and age group composition ^^ith housing contributing
to a stable, well designed, and complete urban housing
environment;
2. Encouraging the arrangement of basic community services and
facilities in such a manner as to maximize the attainment of
objective No. 1;
3. Increasing the quantity of sound, healthful housing for
families of limited income and for individuals (such as the
aged or handicapped) ^^ith particular unmet housing needs;
-12-
4. Promoting the economic development of the Central Piedmont
region and the State of North Carolina by nurturing and
stimulating the residential construction industry to meet
the needs noted above."
Work programs specifically designed to correspond to these
objectives x^ere subsequently modified in response to State Housing
Planning imperatives as reflected in the Federal government's Urban
Planning Assistance "701" Program priorities concerning "Operation
Breakthrough." This modification also recognized the difficulty of
meaningful achievement vriLth the limited resources available x-Tithin
the region and the necessity of merging regional and statexri.de actions
to produce a greater supply of acceptable housing xinits xrithin the
State and hence the region.
The specific x^ork program for 1970-71 and the results therefrom
are detailed earlier xrithin this report. It is necessary here to
examine the general and specific findings from this xrork in comparison
to the regional objectives for housing and also the specific obstacles
identified in the previously cited "Initial Housing Element."
Starting from the premise that goals and objectives may be
achieved by overcoming the obstacles to achievement, the initial
"statement of obstacles" is herein reproduced.
"STATEMENT OF OBSTACLES
Again, obstacles to meaningful progress tox^ard solving housing
problems of our region are much the same as those identified by the
State of North Carolina in its initial study effort. They include:
-13-
1. Attitudes of resistance or opposition by some citizens to
Federal Assistance programs in general and the public housing
programs in particular.
2. A general negative reaction against the use of Federal
housing aids fear of and/or resistance to the integration
requirements of the Federal government.
3. Limited interest in improved housing at the local level due
in part to incomplete information about the extent of the
problem and related need.
4. The complexity of any housing undertaking, coupled with lack
of experience at the local level, discouragement in the face
of inevitable difficulties, and the absence of close-at-hand,
qualified technical assistance outside of the major urban
centers.
5. A scarcity of conventional financing for high-risk, low-income
home owners and relatively low-level use of FHA-insured
financing at the local level outside of the major urban centers.
6. Prejudicial attitudes regarding the poor and minority groups
found operative in the real estate market and reflected in
housing development patterns.
7. The seeming complexity of the Federal Workable Program and
Certification process to local communities large and small."
To these must be added the obstacles identified through the initial
interviews.
-14-
Primary among the constraints identified by Public Housing
Directors are those which have relevance to the site criterion, i.e.,
"Lack of suitable land," "Opposition of voting public (to specific
sites)" and "Restrictive zoning."
The private sphere also recognizes this impediment to increased
production as critical.
The impediments identified can be broken down into the following
areas:
1. Attitudinal - The unwillingness of the population to accept
the proximity of federally assisted housing with the concomitant
implications of racial and/or economic integration.
2. Physical - The t^ro primary resources, land and money are in
limited supply, and the conditions surrounding what is available
further restrain its use.
3. Informational - Knowledge and experience in housing problems
and possible solutions is limited. This limits the use of what
resources are available.
ADDITIONAL WORK CONTEMPLATED
On the surface, these three problem areas appear insurmountable.
It is the conclusion of this report, however, that this is not true.
Sudden change will not be possible, but evolution can be brought about
by action in concert by all the agencies, public bodies and individuals
assigned responsibilities in housing at all levels of government. It
is the fundamental assumption of this report that effective action is
possible only if tasks to be accom-plished are appropriate to the
level and capabilities of the assigned body, federal. State, regional
-15-
and local. Leadership is the necessary role for some, information
dissemination for others. Respective roles must be clearly understood
and agreed upon by all before any can be effective. Without this
cooperation the efforts of only a few segments of government will
constitute a wasteful exercise in futility.
Attitudinal Objectives
Change will be the slowest and hardest in this area. Specific
objectives, responsibilities and tasks cannot be assigned to produce
substantial change in any designated time period, but it certainly
will be and is the obligation of every public official, elected or
appointed, to advocate equal opportunity for all citizens. This
advocacy ^rf-ll be difficult at times, politically dangerous
occasionally, and may in fact be more honored in the breach than
the promise for many years, but only through leadership of the most
positive sort xri.ll this restraint be lifted.
A specific objective for the Central Piedmont Regional Council
of Local Governments in this area must be the active promotion of all
efforts to help the region towards greater public willingness to
accept economic and racial diversity in their community,' and neighborhood.
Physical Objectives
Two basic objectives are attainable within this area.
1. Sufficient funding must be made available from the federal
level.
2. Constraints to use of land xrithin the region must be
alleviated.
The former objective x^ill only be achieved x^hen sufficient
-16-
emphasis is placed on this area by State and local representatives
in Washington, The Council of Governments may be instrumental in
communicating the problem to member governments and hence to elected
representatives.
The latter objective may be approached through a variety of
means.
a. The local units of government can encourage placement of
low or moderate income housing in such locations as ^ull promote
development in accordance vmth local and regional plans.
b. Recognition of the local housing problem should be
recognition of a liability to improved economic growth. Incentives
for housing production can be incentives for industrial development.
c. Generalized housing locations included elsewhere in this
report indicate locations of potentially developable land based upon
defined developmental criteria. Local planning units need to insure
and plan for adequate supplies of land in feasible locations for low
and moderate income families.
It is beyond the scope of the Council's role to enter into local
unit planning. It is hoped that through the coordinated planning
process for the region the above possibilities nay be fully explored
with local planning agencies and their staff. However, it would be
unrealistic not to recognize that local constraints can often be
overcome by larger unit activity. Accordingly it appears advisable
to explore the possibilities inherent in a regional, sub-regional,
or multi-regional community corporation with specific responsibility
and authorization to help communities overcome the local constraints
to increased housing production.
-17-
INFOSMATIONAL OBJECTIVES
The Central Piedmont Region compared to much of the State is
less deficient in this problem area. Itany of our communities are
well along towards developing sophisticated capabilities for the
provision of public housing. Additional work is necessary, however,
in communicating the possibilities inherent in federally assisted
programs to local private and non-profit sponsors and in maintaining
and improving the State communication and market aggregation network
established in the State "Breakthrough" Plan.
Council of Governments informational objectives can be summarized
as follows:
1. Recognizing the State of North Carolina's concurrent
commitment to increasing housing information exchange, to support
and contribute to the State "Breakthrough" Plan Objectives. Hopefully
this support would include consultation and mutual agreements as to
appropriate levels for action.
2. To additionally promote and encourage wider knowledge of
Federal assistance possibilities to both member governments and
potential producers of housing within the region.
III. COIIMENT
The Central Piedmont Regional Council of Governments does not
in this report consider many proposals for increasing housing supply
that have been nationally discussed. Such would be beyond its scope.
It does recognize that within the existing structure of government
and private industry the housing problem can be solved. T^hat is
necessary to this effort is the will to succeed on the part of all
-18-
segments of the system and the concentration of effort and resources
where they may be successful. Without effective leadership at the
appropriate levels and dedication by all to the common goal the
effort will be fruitless.
-19-
APPENDIX
HOUSING AUTHORITIES CONTACTED
Charlotte Housing Authority
Castonia Housing Authority
Statesville Housing Authority
Monroe Housing Authority
Marshville Housing Authority
Mooresville Housing Authority
Concord Housing Authority
Shelby Housing Authority
PRIVATE DEVELOPERS AND/OR SPONSORS CONTACTED
The Kinston Corporation
Motion, Inc.
Percival's, Inc.
Touchberry Realty
Summers Development
Johnson and Associates - Architects
Davis & Davis Realty Company, Inc.
John Crosland Company
Myers and Chapman
wilkes co
Cleveland
Troutman
Newtor
Gronite Quarry
CATAWI
Rockvrell
Denver
'keoeu
lowan
Davidron.
Kanrrapolis
Cornelius
Richfield
New London
J^jluntefsville^
Waco
iStonley
Albemarle
issem^ Cl'y
nling Spring
ujoniol
,ramerton
Norwood
Ookboro
MotthmS
Atorshville/
jxhaw
UNION
SOUTH
CAROUNA
Hormony
Lowndole \ ^ \XP
\ j
Grover^^*^ ,
SOUTH
CAfOllNA
POTENTIAL "BREAKTHROUGH" HOUSING
AREAS - CENTRAL PIEDMONT REGION
LEGEND
SHORT TERM POTENTIAL "BREAKTHROUGH" AREAS
LONG TERM POTENTIAL "BREAKTHROUGH "AREAS
EVALUATION CRITERIA
SHORT TERM 1970-1975
-EXISTING EMPLOYMENT CENTERS
-EXISTING TRANSPORTATION CORRIDORS
-EXISTING DEVELOPMENTAL PATTERNS AND UTILITY SERVICE AREAS
-PRELIMINARY CONSENSUS LAND DEVELOPMENT PLAN TO 1990
LONG TERM 1976-1990
-PROPOSED EMPLOYMENT CENTERS
-PROPOSED TRANSPORTATION CORRIDORS
-PRELIMINARY CONSENSUS LAND DEVELOPMENT PLAN TO 1990
-PROPOSED WATER AND SEWER SYSTEMS DEVELOPMENT PLAN
TO 1990
Scale |:2SO,000
lOMilei
□
INFORMATION SOURCES:
LOCAL PLANNING AND DEVELOPMENT STUDIES, N.C. STATE HIGHWAY
COMMISSION, COG COMPREHENSIVE REGIONAL PLAN SERIES, TECHNICAL
REPORTS 1 AND 2, COG 1990 PRELIMINARY CONSENSUS LAND DEVELOPMENT
PLAN, COG PRELIMINARY WATER/SEWER FUNCTIONAL PLAN AND PROGRAM,
AND THE U.S. DEPARTMENT OF AGRICULTURE-SOIL CONSERVATION SERVICE
I
Prepared by: | CENTRAL PIEDMONT REGIONAL COUNCIL OF LOCAL GOVERNAAENTS
Base map souro | United States Gedogicol Survey dated 1953 limited revisions 1965
Date preparedj March 1971
tht PeenWAIION Ot THB MAP WAS HNANCEO IN IMT THOUGH A COMHEHeOIVf aANNINC 0«ANT
HOM the IMTEO IfMCS CWMIMENT Of HOUSING AND URBAN DEVElOfMBTT.