AREAWIDE HOUSING OPPORTUNITY PLAN • Part 1-Plan . ^^'^1^1984 Part 2 - Appendix of. W \ V NORTHERN MIDDLESEX AREA COMMISSION • LOWELL, MASS. The preparation of tnis document was funded in part through a comprehensive planning grant from the U.S. Department of Housing and Urban Development CPA MA 01-06 - 1122. NORTHERN MIDDLESEX AREA COMMISSION 144 MERRIMACK STREET LOWELL, MASSACHUSETTS 01852 Tel. No. : 454-8021 ABSTRACT TITLE OF REPORT: REPORT DATE: FUNDED BY: PROJECT NO: AREAWIDE HOUSING OPPORTUNITY PLAN September 19 80 U.S. Department of Housing and Urban Development Comprehensive Planning Assistance Program (701) CPA MA 01 06 1122 Approved by HUD 11/14/80 SUMMARY: In order to meet the HUD definition, the AHOP for the Northern Middlesex Area redistributes 1,010 households (18 percent of the lower-income family and elderly households living in the City in need of housing assistance and not receiving it) out of the City and targets them to the suburban communities based upon certain fair-share considerations and outlines activities for achieving that redistribution. The Plan sets as a three-year goal the providing of housing assistance to an additional 2,400 households throughout the Northern Middlesex Area, equivalent to the additional households assisted over the past three years. AUTHOR: NMAC Staff, John Christie, Associate Planner FORE MORE INFORMATION CONTACT: John Christie NORTHERN MIDDLESEX AREA COMMISSION 144 Merrimock St. Lowell, Mass. 01852,(617)454-8021, Joseph P. Honnon, Director r HUD: 10]. 23 Septembe r 10, 1980 Mr. Robert C. Embry \^ Assistant Secretary for Community Planning and Development Department of Housing & Urban Development 451 - 7th Street, S.W. Room 7100 Washington, D.C. 20410 Attention: AHOP Coordinator Dear Mr. Embry: On behalf of the Northern Middlesex Area Commission, I hereby transmit an original and copy or the Commission's Areav/ide Housing Opportunity Plan. The Commission approved the Plan July 16, 1980. Over half of the affected mun i ci pa ! ' ties representing well over 75 percent of the area's population have already endorsed the Plan; 100 percent endorsement is likely. In the event of Plan approval and an allocation of bonus monies, any new construction/substantial rehabilitation assistance would be advertised consistent with the Plan goals; assurances would bo required of open housing and minority representation on the sponsor group or construction team. HUD's approval of the Commission's AHOP would contribute substantially to programs in housing and the improvement of developm.ent centers in the region. Please contact Joseph P. Hannon , Executive Director of NMAC, if additional information is needed. Very truly yours. Paul L. Davies Cha i rman JC: I Ir Enclosures: Plan (2) Appendix (2) 3 Supporting Reports (1 each) Mnrpber<; Billerica Chelmsford. Dracut, Dunstable, ' ^v\ell ^L-ppereM, Tcwksbjry, Tynr^sborough, VVestford. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT WASHINGTON, D.C. 20410 OFFICE OF THE ASStSTANT SECRETARY FOR COMMUNITY PLANNING AND DEVELOPMENT IN REPLY REFER TO: NOV 1 4 1980 1 Mr. Joseph P. Hannon Executive Director, Northern fliddlesex Area Commission 144 Merrimack Street Lowell, Massachusetts 01852 Dear Mr. Hannon: I am pleased to inform you that the Areawide Housing Opportunity Plan (AHOP) developed by your organization has been approved by HUD in accordance with Subpart E of the AHOP regulations. This approval means that HUD will follow your Plan, to the maximum extent practicable, in distributing all assisted housing contract author- ity within your planning jurisdiction during the next three Fiscal Years. However, you should be aware that HUD may need to exercise some flexibility in the allocation of housing assistance in order to fulfill the three-year Housing Assistance Plan (HAP) obligations. In recognition of your approved AHOP, our Field Office will work closely with you and obtain your recommendations before making any distributions of contract authority within your c— ea. Approval of your Plan under Subpart E also means that all three-year HAPs submitted by jurisdictions within your area must be consistent with the AHOP. The enclosed paper entitled, "Regulation Citations for the Areawide Housing Opportunity Plan" explains the relationship of the AHOP to other HUD programs. It should be helpful in identifying the benefits of an AHOP to your organization and member jurisdictions, and in defining the appropriate use of your AHOP in HUD programs. The Department is pleased to be able to offer recognition and support for areawide approaches to housing and community development needs. Sincerely yours , Robert C. Embry Assistant Secretary^ Enclosure M0V2 3 1980 N. M. A. C TABLE OF CONTENTS DEFINITIONS 4 INTRODUCTION 5 CHAPTERS r 1. Housing Assistance Needs 7 2. Distribution Procedure 9 3. Percentage Goals 17 4. Target Jurisdictions 21 5. Barriers/Remedies 23 6. Agreements 27 7. Other Requirements 28 TABLES 1. Assessment of Housing Assistance Needs 8 2. Distribution Procedure 10 3. Estimated Households 1980 10 4. Household Growth 1980-1985 10 5. Expected Growth in Jobs 1975-1985 11 6. Lower- Income Households 11 7. Assisted Housing Deficit 11 8. Lower- Income Households by Census Tract 14 9. Annual and Three-Year Percentage Goals 17 10. Outreach Goals for Target Jurisdictions 21 FIGURES 1. Growth Potential Indicators 15 2. Development Centers 16 3. Programs Considered for Goals 20 APPENDIX (separate document) contains supporting materials 3 DEFINITIONS adaptA,vz KdiiliZ - major reconstruction of an existing building to a housing purpose oZdzhZy - one to two person household headed by person age 62 or over {^cu/L-^ha/ie. - housing assistance In the suburbs for some low- income households I i ving in Lowe! I iamity - household of "four or less persons, except elderly kayicLLcjOippzd - one or two person household leased by disabled person hoiifi2hotd - all persons occupying a housing unit kotiiZng Ci66AJitancQ, - grants or low-interest loans for construction, purchase or rehabilitation to eligible applicants or rental assistance to lower-income households in standard housing units koLUi-ing ayilt - a dwelling with either direct access or complete kitchen faci I ity ZjoJigo^ {^amiLy - household of five or more persons, except elderly to\M2A- hxdomz hoiii>Q.hoZdb - families whose income does not exceed 80 percent ■ of the median for the area no-6nob zoyujiq - Massachusetts legislation which stipulates that 10 percent of all housing units or H percent of all zoned land in a community ought to be subsidized pay too mu.ch - an excessive amount of income paid for housing by lower- income households, generally in excess of 25 percent of gross income after allowances ^diabZLutcution - restoration of substandard dwelling unit to meet standards of agency providing assistance ■62.vM.(lty 0V2ACA0iAXi2.d - 1.51 or more persons per room in housing unit iiU.bi,ta.)idaAd - deteriorating, but not dilapidated, housing unit as defined by U.S. Census imdiiz concdntAcitioyi - census tract with 50 percent or more of households lower income INTRODUCTION Of the estimated 70,000 households living In the Northern Middlesex Area, about one out of four are either receiving or in need of some type of housing assistance. That assistance takes a great many forms. There has been a strong trend in the area toward rehabilitation and adaptive reuse with available housing assistance funds. This has had the benefi- cial result of upgrading some deteriorat i nj neighborhoods and preventing the loss of some older buildings which are essentially sound. An exam- ple of adaptive reuse is shown In the inside back cover. Without housing ass i stance,,, many more families and elderly persons would be living under unhealthy and even hazardous conditions. Due to a shortage of housing assistance, many young married couples are forced to leave the communi- ties where they matured and would chose to live. In the process, those communities lose the benefits of the education provided those young peo- ple at a very high cost. Ten years ago, NMAC published its first housing report, "A Decent Place for Everyone", which reflected the intent of the federal government that every American family be provided a decent home and healthy surroundings. At that time, about 2,000 households were receiving housing assistance in the region. Only seven percent of the assisted households were lo- cated in the suburbs; all were elderly. Only two of the eight suburban towns in the region had subsidized housing. Today more than 7,000 households are receiving housing assistance in the Northern Middlesex Area. Seventeen percent of those assisted households are living in the suburbs of the region. All communities are participating and all have low-income families as well as elderly receiving housing subsidies. Five of the eight local housing authorities in the region have their own Section 8 Existing rental assistance programs in operation. Progress has been substantial. But, more needs to be done, particularly in the dis.ribution of housing assistance. The AHOP study shows that the City of Lowell is not only providing assistance to households far ' DOve its proportion of house- holds living in the region but also has unmet needs for housing assis- tance out of proportion to its number of households. The City, with 43 percent of the region's households, has 83 percent of the households al- ready receiving housing ass stance and bl% of those households needing but not yet receiving assistance. These percentages clearly indicate a tendency for low-income families and elderly who are poor to live in the City and a lack of opportunity to live in the suburbs. The Areawide Housing Opportunity Plan (AHOP) estab- lishes goals and activities to broaden the opportunities for low-income families and elderly to live in the suburbs. The Department of Housing and Urban Development (HUD) provides certain incentives, including bonus points to block grant applicants, for an approved AHOP which will: 5 encourage, facilitate, and provide for a broader geographical choice of housing opportunities for lower income households... In order to meet the HUD definition, the AHOP for the Northern Middlesex Area redistributes 1,010 households (18 percent of the lower-income fam- ily and elderly households living in the City in need of housing assis- tance and not receiving it) out of the City and targets them to the suburban communities based upon certain fair-share considerations and outlines activities for achieving that redistribution. The Plan sets as a three-year goal the providing of housing assistance to an additional 2,400 households throughout the Northern Middlesex Area, equivalent to the additional households assisted over the past three years. Househol ds Hous. Assist. Past Housing Assistance i^ed i stri b'jTed Meeds + or - 5-ye3r 3-year Neecs 1930 ( Fa i r-Shars ) Fai r Share Goal Perfomance Bi 1 1 erica 1 ,22-1 107 1.331 320 124 Che 1 msford 681 330 1 ,061 255 115 Oracut 693 95 791 190 47 Ojnstab 1 e 29 3) 60 15 5 Lowe 1 1 5,715 -1,010 4,705 1 , 125 1 ,921 Peppere 1 1 352 8 560 85 74 Tew Ks bur/ 753 118 371 210 85 Tyngsborouch 203 42 250 60 61 Westf ord 351 250 5&1 140 5 Reg i on 10,01 1 + 1 ,010 10,01 1 2,400 2,453 -1,010 The fair-share redistribution is 54 percent elderly, 33 percent family and 13 percent large family, the ratio of unmet housing assistance needs in the City of Lowell. The record of performance details are contained in NMAC's "Inventory of Housing Assistance to April 1980." The AHOP recommends targeting of housing assistance to the 16 suburban development centers and to the City's neighborhood preservation areas to help with their improvement. NMAC Initiated Its development center pro- gram in 1978. Approval of the AHOP can be an Important first step towards a broader geographical distribution of housing opportunities In the Northern Middlesex Area. An AHOP approved by HUD can result in a bonus allocation to the region of housing assistance to help carry out the Plan. V/e describe in Chapter 5 how a bonus allocation would be used. CHAPTER 1. Housing Assistance Needs Requirement' (a) An areawific assrs-smont, based upon reliable and uniform ciala using con.si.';lcnt di'finiiions and sourcos. of the hoiisinK assistance needs of lower income households (includinfi house- holds displac«;d or lo b;* displaced by (.'overnnienlal action). This assi.-ssment shall. a.s a rnininium. indicate housing ar.sislancp needs by (1) household type (elderly and/or handicapped: family; lar»,'e family). (2) housiiiR tenure (owner and renter). (3) feinalo licads of household a.-ul r 25.000 population. Bases for Determining Needs The assessment of housing assistance needs (TABLE 1) is based on the Massachusetts Department of Community Affairs "Inventory of Subsidized Housing in Massachusetts as of January 1, 1976" as updated and corrected by NMAC's "Inventory of Housing Assistance to April 1980." The breakdown of needs betv/een owners and renters is from NMAC's Fair- Share Plan published October 1974 "Housing Problems, Programs and Pros- pects — A Plan for the 70's." A renter household in need had an annual gross income of less than $10,000 (1970) paying gross rent of over 20 percent of gross income; for renter ! iseholds with over $10,000 and un- der $15,000 in yearly income, those paying over 25 percent of gross in- come for rent. For owner households, those with assistance needs were paying over 35 percent of income on housing costs; the higher percentage was used to reduce some of the exaggeration of homeowners paying exorbi- tant housing costs, an exaggeration due to their tax deduction privileges DCA elderly (55 or older) needs figures were adjusted to age 52 in order to meet HUD eligibility for assistance. Elderly includes handicapped. DCA needs figures for families; AHOP breaks out large families. Female- headed households are all households headed by a female regardless of age or minority or non-minority status. Minority households include Blacks, Spanish Americans, Orientals, and American Indians. We note that no mi- nority households residing in the suburban communities are reported in the Census as below poverty. Assessment is for each community in the area. A ccm.mon methodology was used for assessing housing assistance needs in all communities. 7 TABLE 1. Assessment of Housing Assistance Needs of er Income Households, April 1980 Feme le Total Owner Renter Hescis Minorities Bl LLERICA e I der I y fami ly fami ly CHELMSFORD e 1 derly fami ly fami ly DRACUT e Ider ly fami ly fami ly DUNSTABLE e I der ly fami ly fami ly LOWELL elderly fami ly fami ly PEPPERELL e I der I y fami I y f am i I y TEWKSBURY elderly fami I y fami ly TYNGSBOROUGH elderly fami I y (4 or f am I I y (5 or WESTFCRD e I der I y f am i I y fami I y REG t CN e I der I y fami I y fami I y or - or + 4 or - 5 or + 4 or - 5 or + 4 or - 5 or + 4 or 5 or 4 or - 5 or + 4 or - 5 'or + 4 or - 5 or + 4 or - 5 or + 1,224 466 429 329 681 420 156 105 698 343 218 137 29 13 8 8 5,715 3,073 1 ,903 739 352 100 158 94 753 242 274 257 208 35 118 55 351 130 136 85 10,011 4,322 3,400 1 ,789 919 284 347 283 522 294 129 99 566 282 161 123 29 13 8 8 933 564 132 237 143 48 51 49 629 178 233 213 i02 35 39 23 251 97 88 66 4,099 1 ,795 1 , i 9 5 1 . 1 ] J 305 182 82 41 159 126 27 6 132 61 57 14 0 0 0 0 4,782 2,509 1 ,771 502 204 52 107 45 1-24 64 36 24 106 0 79 27 100 33 48 19 5,912 3.027 2,207 673 641 298 196 147 536 354 137 95 363 221 87 55 29 13 8 8 5,141 2,903 1 ,628 610 175 79 50 46 396 162 126 108 101 29 49 23 154 99 34 21 7,536 4, 153 2,315 1.113 305 0 208 97 0 305 0 203 97 NOTE: tldc-rly includes lower- inccxiie houiefioldb 62 or oldt,-r and tiafifl i capped . Huuseholdb dibpldced or to be displaced by goverrinwfita I action are Iimi1«d to 75 in ttie City of Lowell, II of wtiicti are elderly (2 owners, V renters), Al families i \b owners. 52 renters), cin;) 17 lari>: families (' owut-rs, 1 <1 tr:ii1ers). 8 CHAPTER 2. Distribution Procedure Requirement* (b) A pro'cdure for distribiitiri« housing assLstaucc ainons all jurisdic- tions (including non-Participating Ju- risdictions) within the Plan area in ac- cordance uitii tlur pro;:ram objective. The procedure .shall reflect: (1) The asscs-sments of current needs developed in accordance with §891.50.'^(a): (2) Current and projected (for at leaiit three years) clianges in the re- gional population and its distribution among jurisdictions in the Plan area, with particular emphasis on popula lion data and trends applicable to lower income persons; (3) An asse.ssment of the number of those lower income households which could be expected to reside in . ach ju- risdiction in the Plan area on the basis of current location of employment or future (for at least three years) em- ployment opportunities and the need for spatial deconcentration in accor- dance with the program objective (taking into account present nnd po- tential areas of undue concentration of low income and minority house- holds within the Plan area). (4) The present locations of assisted housing and jurisdictions with undue concentrations of .such housing' (5) For jurisdictions with HAPs, other pertinent data and factors iden- tified in the HAPs of jurisdictions in the Plan area, such as rehabilitation resources, vacancies and those items identified in the HAPs as "limiting factors"; (C) The present or potential capacity of each jurisdiction in the area to ac- commodate assisted housing. b;u;cd on appropriate factors sucli as land avail- ability, actual and relative fiscal capac- ity among jurisdictions to pro\ ide nec- essary community facilities and ser- vices, etc.; (7) Areawide policies for community development, economic development, growth, land use. transportation, and environmental protection which have been adopted or are being developed by the APO. Distribution Method Step I Prepare tables for the six fair-share factors. Step 11 Calculate the average of the fair-share factors for each commun ity . Step III Add each community's share of the region for indigenous need to the fair-share factor average and divide by two for the fair-share distribution percentage. Step IV Calculate fair-share distribution for each community by mul- tiplying total regional need (10,011 households) by the fair- share distribution percentage. Step V Subtract indigenous need from the fair-share distribution for share of households to be redistributed. Step VI Multiply the number of households to be redistributed in each community by the percentage of need by household type in Lowell, the community of undue concentration. 9 TABLE 2. Distribution Procedure 1 Bi 1 1 ^'hel Drac Ouns Low 1 Pepp Tewk Tyng West Fair-Share Factors: 1. snars ot nousenoias, iyou 19 A n 7 *♦ J . — X J . Z o . o 5 _ 5 2. Share of household growth 13.4 15.3 12.7 1.7 16.1 1 10.5 5.3 16.4 3. snare of jo&s, 1975 n.3 10.2 3.6 0.2 57.4 1 . 9 10.0 1.3 5.6 4. share of job growth 14.2 17.4 7. 1 0.8 37.5 ■t J. / 10. T 1 . 4 7.6 5. share of lower- incofiie hh's 7,9 5.7 6.0 0.3 67.2 2 -1 5.4 2. 1 2.9 6. share of assisted hous. def. 25. 1 25.4 14.5 1.5 0 •J J. £i D 14. I 3.5 12.2 total 86.6 86.8 52.9 5.3 221 .6 -y Z. 53.9 17.4 48.3 average (divide by 6) 14.4 14.5 8.3 0.9 36.9 3 1 9.3 2.9 3. 1 Fair-Share Distribution: Average Fair-Share Factors 14.4 14.5 3.3 3.9 36.9 5 -» 9.3 2.9 3. 1 Share of Indigenous Need 12.2 5.3 7.0 0.3 57. 1 3 5 7.5 2. 1 3.5 Total 26.6 21.3 15.8 1.2 94.0 7 2 17.3 5.0 '.1.6 Fair-Share Percentage (Divide Total by 2) 13.3 10.6 7.9 0.5 47.0 3 5 3.7 2.5 5.3 ^air-Share Distribution (regional need x Fair-Share 1 .331 1 ,061 791 50 4,705 360 371 250 581 Less Indigenous ^Jeed 1 ,224 631 693 29 5,715 352 753 208 351 Householos Redistributed 107 380 93 31 -1 ,010 8 1:3 42 230 E 1 der iy ( .538) 58 204 50 17 - 544. 4 64 23 124 Family (.333) 56 127 31 10 - 336 3 39 14 77 Lge. ^ami Iy (. '29) 13 49 12 4 - 130 1 15 5 29 TABLE 3. Estimated Households 1980 Estinatsd Erri™t»d ssrimaTed 1930 rooulaTlort :-«l t 95,000 3. 1 30,545 43.4 P»pp«r» 1 1 7,333 3.5 2.267 3.2 T«»k»Oury 27,25« 1.4 5,197 3.3 Tynq$6oroogn 5,386 3.5 1,533 2.3 14,926 3.3 3,923 5.6 Toral 250,295 3.3 70,691 100.3 1970 av9r39« ious«nold (U.S. Census) TABLE 4. Household Growth 1980-1985 HouMholos Housenoias tSTfiiraf^O Sagional ;990 1935 OrowTd 3i 1 \tric3 I0,J5I 10.355 304 13.4 9,1 10 10,025 916 15.3 Crsorf 5,363 7,125 763 12.7 JuniTaBl • 495 394 99 1.7 Lo.«l i 30,545 51,513 963 16. I ?mo9rm 1 1 2,257 2.591 424 7. 1 5, 197 5,329 532 10.3 Tyngs Borough 1 ,535 2,344 409 5.3 ••sT-'oriJ 3.92S 4,910 932 16.4 7aral 70,691 76,533 3,997 ICO. 3 NOTE; houaanolij SaTsrnilnad by dividing sj-ricjTad joeuljrion 5y 1970 ^K>uM^lold sUa 10 TABLE 5. Expected Growth In Jobs 1975-1985 / share est i mated growth % sharu jobs 1975 Jobs id of 1975 Jobs 1985 Jobs growth Ul 1 lerlca 7,250 n.8 9, 129 1,879 14.2 Che Ini5f orcJ 6,254 10.2 8.553 2,2yy 17.4 2, »76 3.6 3, 1 19 94 3 7. 1 Dunstable 107 0.2 213 106 0.8 I owe 1 1 35,168 57.4 40, 131 4,963 37.5 Pepperel 1 1,177 1.9 1,663 486 3.7 Tewksbury 6, 140 10.0 7.481 I. 341 10. 1 Tyriysborouyti 779 1.3 970 191 1.4 . West ford 2,190 3.6 3,200 1 010 Toral 61,241 100.0 74,459 13.218 100.0 SOURCt : NMAC 208 Wastewater Manayeiuent Study TABLE 6. Lower-Income Households TABLE 7. Assisisted Housing Deficit 1 las i Unrslatad Ini] i vi iuals 1970 .{ Sfiars of Region 91 1 lerica 1.333 7.9 1.323 S.7 CncuT 1,398 5.0 OunsTablw 70 O.J U>»«l 1 IJ.a98 57.2 P^oo«n 1 1 621 2.7 Tewhsoury 1.237 3.4 ryngssorooqfi 490 2.1 678 2.9 Total 23,373 I0O.2 MOTE: 3m TaBI* 3 - Calculation o+ loxr- nccm* 'lousanoids 10* or 1980 EsTimaraO HousaMoids SuOsid Units i:ad J/8Q jar Icit 1 of Total 31 1 larica 1.309 306 699 23. 1 Claims ford 9tl 201 710 23.1 Orjcur 636 231 403 14.3 Dvinstao l« 30 3 43 i.5 LOMi 1 3,063 5,917 a 0 ?90!)«»"»l 1 227 127 100 3.5 620 228 392 14. 1 Tvngsborotign 164 6S 99 3.3 Wasttord 393 34 359 12.2 Total 7,071 7, 134 2.739 ICO. J NOTE: Calculations 13 aarcsnr or jra ^as«a on Stata's Cheoter 774 9 coownjn i ty ' s lousing unirj m juidal ina suosldUad that 1 1 How The Procedure Addresses HUD Requirement 1. Assessment of Current Needs: We use current needs to modify distribution arrived at through the six fair-share factors in order to give equal weight to indigenous needs and fair-share considerations; households to be redistributed are ar- rived at by subtracting indigenous need developed in accordance with 891.503(a) from each community's fair-share of subsidized housing. 2. Current and Projected Changes in Regional Population with Emphasis on Lower- Income Households: Both current (1980) population and projected (1985) were established by NMAC through the use of Growth Potential Indicators (FIGURE 1) as modified fr'om recommendations by the Office of State Planning. We have converted population to households in order to more accurately reflect future housing assistance needs. Lower- income households (TABLE 8) were calculated from the 1970 Census at the Census Tract level based on HUD Section 8 rental assistance el- igibility levels for families and unrelated individuals. NMAC inves- tigated possible data sources( e. g. , per capita and median income changes) to establish trends in lower-income households but found the necessary detail unavailable to reliably establish or project lower- income household trends so chose to use only 1970 Census data on num- ber of lower- income households. • 3. Expected to Reside: Our distribution procedure relies for two of its six fair-share factors on jobs: 1975 total employment in each member community and share of growth in jobs to 1985. The job growth factor distributes 330 lower- income households out of the jurisdiction of undue concentration to the suburbs. 4. Locations of Assisted Housing: NMAC uses the State's Chapter 774 Guideline that 10 percent of a commu- nity's housing units be subsidized by subtracting the current number of subsidized households from the Guideline to arrive at a housing assis- tance deficit factor. The calculation results in an increase of 370 households to be distributed out of the jurisdiction of undue concen- tration to the suburbs. 12 5. Consideration of Housing Assistance Plans: We have reviewed all approved HAP's. None include pertinent data or "limiting factors" not Included in NMAC's distribution procedure. Re- habilitation resources and vacancies are considered among the growth potential indicators for our estimates of population growth in each community to 1985. 5. Capacity to Accommodate Assisted Housing: In projecting population growth, one of the factors included in the distribution procedure, NMAC considered among its growth potential indicators present or potential capacity of each jurisdiction in the area to accommodate assisted housing based on: zoning and local ordi- nances; attitudes of citizens towards growth; local fiscal situation, including tax rate, tax base, debt management, effects of 100 percent valuation, future pension obligations, and needed capital outlays; quality of local service^ undeveloped land both developable and suit- able; infrastructure; fri. portation access; and municipal character. 7. Areawide Policies: NMAC further considered among its ; ^wth potential indicators for pop- ulation growth forecasts areawide policies in economic development, land use, transportation and environmental protection. The AHOP recom- mends targeting to neighborhood preservation areas in the City of Lowell and the sixteen development centers in the suburban communities (FIGURE 2) to help in their improvement and revital ization. A program to bring this about was initiated by NMAC in 1978. For the determina- tion of development centers, NMAC used data and other information on income and poverty, housing conditions and overcrowding, traffic, environment, historic preservation and special needs of the elderly and female-headed households. 13 TABLE 8. Lower -Income Households by Census Tract Median Total Household PI ace 1 ncome Househo I ds Reported Bi 1 1 erica J 10,928 7,995 8, 1 46 CT 3161 11,295 2,254 2,335 3162 10,854 1 ,886 1.905 3163 10,856 1 ,004 985 3164 10, 781 1 , 199 1 ,269 3165 10,598 1 ,652 1 ,652 Cnelmsford $15,092 8,402 8,513 CT 3171 15. 161 3,679 3,748 3172 14,584 3,009 3,036 3173 10,592 1,714 1 ,729 Dracut S10,282 4,890 5 ,006 CT 3141 10,304 2,110 2, 176 3142 9,745 1 , 409 1 ,431 3143 10,865 1 ,571 1 ,597 Dunstab ie $1 1 ,874 345 554 Lowe 1 1 i 7,376 30 , CW4 iZ, III U 1 J 101 OOO by;) 1 , oy« £. ,\JZ. 1 31 Uj 0,359 1 , /yu 1,0/0 X 1 r\A J 1 U1 / , 1 1 U 1 , 1 / J 1 1 Qy! 1 , 1 y* S 1 0, U/«l 1 , UDU 1 XQ 1 1 , 00 ! J 1 uo o, yy / 1 oil O 1 z , 1 J J D , o / / 1 1 OA 1 , 1 ou 1 A "70 31 08 1,814 484 1 MA 1,1/4 3109 3, 1 42 501 559 31 1 0 2,500 649 "7 AC 705 31 1 1 5,094 941 944 3112 5,957 1,117 1 , 165 31 13 8,725 1 , 198 1,510 31 K 9, 187 1 ,555 1,418 5115 9,517 908 959 3115 9,750 1 ,647 1 ,728 3117 8,135 1,551 1 ,550 3118 6,432 1 ,048 1,055 3119 4,517 1 ,465 1,547 3120 6,048 757 801 3121 8, 167 851 910 3122 8,059 1 ,224 1 ,505 3125 9,819 1 ,252 1 ,284 3124 5,629 977 1 , 042 3125 10,497 2,655 2,766 Peppere 1 1 $ 9,256 1,657 1,700 Tewksbury $1 1 ,250 P, 1 87 TO/ CT 3151 12,676 B87 o4 / 3152 11,618 1 , 1 88 1 1 1 ,zO^ TIC? 3153 6,486 1 8 63 J 1 1 U , / /D 1 O^fi 1 , //o 3155 1 1 ,019 1,866 1,958 Tyngsborough $ 8,811 1,171 1,282 Westford $11,294 2.758 2,805 CT 3181 11,349 1 ,044 1,055 3182 9,821 780 787 3185 11,587 634 645 3184 13,640 300 516 Lower- Income Lower- I ncome Households Families Unrelated as ' of Individuals Reported Households 1 ,592 446 22. 6{ 296 129 18.2 569 . 126 26,0 199 58 26. 1 197 69 21.0 351 64 23.9 755 572 \5.6i 506 222 14. 1 162 144 10. 1 285 206 28.4 940 458 27.9? 386 214 27. 5 320 158 32.0 254 106 24.5 39 51 19.8' 7,951 7 , 747 47.9? 78 469 78. 9 381 336 35. 4 449 314 40.8 345 256 50. 3 260 512 55.9 405 365 55. 1 352 486 56.9 147 845 84,5 103 310 75.9 286 312 84.9 375 256 66. 9 375 330 60.5 280 266 41.7 275 166 31. 1 152 127 29. 7 555 233 5i.C 562 214 42.7 405 177 55.0 614 449 68.7 517 142 57.5 221 190 45. 1 408 191 45.9 505 99 51.5 507 312 59.4 400 590 28.6 597 , 224 36. 5* 817 440 23,3' 93 53 17.2 166 146 26.0 0 15 18. 1 197 71 20.6 361 155 26.4 318 172 38. 2J 457 221 24. 2J 147 48 18.5 195 104 38.0 77 48 19.4 58 21 16.7 NOTE: Lower-income households are calculated at 80 percent of median for families and 56 percent of median for unrelated individuals, which establish eligibility under the HUD Section 8 Housing Assistance Payments Program, f-tedian against which all cofnmunities and Census Tracts were measured was for The region at $9,512 per household; the areawide figure for lower- income families S7,610, for unrelated individuals 55,327. Data Source: 1970 Census. FIGURE 1. Growth Potential Indicators Short-Term Indicators (a few years): ST-1 Housing indicators: Building permits (& completion rates) , househo I d size, demolitions, rehabs, vacancy rates, mix of housing types. ST-1 Recent Population Trends: (for simple extrapolation). Medium-Term Indicators (5 to 10 years): MT-1 Zoning and Local Ordinances: Intended to continue present development pattern or to alter it? Enforcement. Logical? Major recent changes. MT-2 Attitudes of Citizens Toward Growth: V/hat are ssues? Is community united or split as regarding growth? MT-3 Local Fiscal Situation: tax rate, tax base, debt management, effects of 100^ valuation, future pension obligations, needed capital outlays. MT-4 Quality of Local Services: schools, recreation facilities, garbage and trash collection, fire and police, street maintenance. MT-5 Undeveloped Land which i . both Developable and Suitable: How much developable? How suitable is it? Owernship pattern. MT-6 Economic Base: How much economi c/commerc i a I development? How diverse? Changes in big employers. Unfilled industrial parks. Labor force. . • MT-7 Infrastructure: sewerage, water, street ^work, schools, utilities. ■8 Transportation Access: Or'. of municipality. Description and adequacy of major transportation network (all modes). MT-9 Large Construction and Ravi ta I i zat ion Projects: Description; impact or same, especial ly on jobs. MT-10 History or "Character"of Municipality: Mill town? Rural? etc. Long-Term Indicators (15 to 25 years): LT- 1 Long-Term Area-Wide Growth Pattern: Regional description of pattern, municipality's position in pattern, growth spurts. LT-2 Parklands and Major Physical Limitations to Deve I opment ; Ma jor Physical Assets: parks, topographic barriers, poor development capability; high scenic quality, proximity to recreation opportunities. SOURCE: Population and Economic Projections for the Northern Middlesex Area, March 1977. 1 5 1,6 CHAPTER 3. Percentage Goals Requirement! (c) Annual and three year percent- age goals for the distribution of hous- ing assistance which liave been derived from the distribution procedure and which can be translated into numeri- cal Roals. Percentape Roals shall be es- tablished as a minimvmi for each county and for each jurisdiction of over 25,000 population (whether or not it is a Participating Jurisdiction) within the Plan area. The goals shall addre.ss the needs identified in § 891.503(a). As a inininuim. the three year goals shall be specific as to house- hold type (elderly and/or har.di- capped, family. lari:c family) and housing tenure (owner, renter). The annual and the thrcc-ycar goals shall be spicific as to housin'c; type (new. re- habilitated, existing). The goals shall take into account all lower income housinj: assi.stance which is currently or potentially available througli fed- eral. Stale, local or private prOb'rams. The goals identified in the IMan and Iho.sc identified in tne HAPs covering Participating Jurisdictions are to be generally consistent in terms of the annual and three ycnr goals by hous- ing typo and for the three year goals by household tj pe. Numerical Goals The three-year numerical goal is 2,400 households, equivalent to the housing assistance effort over the past three years as listed in the "Inventory of Housing Assistance to April 1', 0", and an annual goal of 800 households dependent upon ass'stance available and consistency with achievement of the three-year goa , . TABLE 9. Annual and Three-Year Percentage Goals Comun i ty Percent of Rag 1 on Household Type Eldarly rani iy Large Fa;nf ly Tenure O-aner Renter Hous ing New r?9na& Type Ex i St i ng 3i 1 lerica 13.5 39.4 34.9 25. 7 69.0 31.0 I6J ■ 522 22J Chslmsford 10.6 58.8 25.7 14 5 49.2 50.3 45 40 15 Oracut 7.9 49.7 31.5 IS 3 71.5 23.4 0 72 23 Duns^a!^l^ 0.6 50.0 30.0 20 0 43. 3 51.7 0 50 50 Lcwa 1 1 47.0 53.8 33.3 12 9 19.3 30.2 12 69 19 Peopersl 1 3.6 28.9 44.7 23 4 41.1 53.9 0 29 71 Tewksbury 3.7 35.2 35.9 28 9 72.2 27.3 0 72 23 Tyngsbofoug.i 2.5 23.2 52.3 24 0 40.3 59.2 0 40 60 West ford 5.3 43.7 36.7 19 .6 43.2 56.3 49 57 14 Rdg ion 100.0 43.2 34.0 17 .3 40.9 59. I 15.J 51J 2 a 17 How The Goals Address HUD Requirement 1. Derived from Distribution Procedure: The distribution percentage for each community given on the goals table is taken directly from the distribution procedure. These distribution percentages establish the annual and three-year goal of households to be assisted as a percent of the region. Distribution percentages differ from indigenous need in an amount sufficient to redistribute 18 percent of the indigenous need out of the City of Lowell undue concentration. The distribution procedure the annual and three-year goals in the household were derived from indigenous need as adjusted by bution shown on the distribution procedure table 1,010 households out of Lowell by household type that elderly, families and large families are to Lowell's indigenous need. the jurisdiction of is further reflected in type percentages which the household redistri- V/e have redistributed in the same proportion 2. Translatable into Numerical Goals: All percentages contained on the goals table can be translated Into nu- merical goals. Based on housing assistance efforts in the region over the past three years, the three year proposed goal is 2,400 additional households, 24 percent of total assessed need in the region established under 891.503(a). The total households to be assisted under the three- year goal for each community as derived from the distribution procedure are as foil ows: Billerica 320 Dunstable 15 Tewksbury 210 Chelmsford 255 Lowell 1,125 Tyngsborough 60 Dracut 190 Pepperell 85 Westford 140 3. Jurisdictions: We go beyond the minimum requirement by establishing goals for all member communities; not just four of the nine communities as required. Our 1980 estimated population establishes only Billerica, Chelmsford, Lowell and Tewksbury at over 25,000 persons. 4. Address Needs Identified in 891.503 (a): All percentage goals are derived from Indigenous needs arrived at through an areawide assessment under 891.503(a) as adjusted by the distribution procedure. Indigenous needs enter into the annual and three-year goals calculations for each community by household type, tenure and housing type as adjusted by households to be redistributed. 5. Be Specific as to Household Type, Tenure, and Housing Type: Percentage goals are calculated by household type for elderly, family and large family households, by housing tenure for owner and renter households and by housing type for new construction/substantial rehab, rehabilitation and existing assistance. For the establishment of housing type goals, regional policies are used as follows: new construction/ substantial rehab: elderly- 50% of elderly renter need of elderly owner need family - to fill family renter goal rehabilitation: elderly- 61% of elderly owner need family - all family owner need existing: elderly- 50% of elderly renter need family - balance of family renter need A new construction or substantial rehab project is dependent upon a size and mix determined acceptable by the funding agency. For the City of Lowell, the above regional policies were modified to allow for Increased emphasis on rehabilitation. The affect will be to in- crease available new construction and existing assistance to the suburbs. 6. Take Into Account All Hour ' Assistance Currently or Potentially Ava i I ab I e : All programs listed In Figure 3 were considered. The goals are realiz- able based on consideration of those programs and the continued success of member communities in obtaining block grant assistance for rehabi li- te ion funds to bring residential units up to code. Because approvals were received after the closing date of our Inventory of Housing Assistance on Small Cities applications by Bi I lerica, Chelmsford and Westford for rehabilitation assistance to lower- income home owners, these households to be assisted are not reflected as housing effort in the AHOP. 7. Consistency of Goals and Local HAPS: The City of Lowell's HAP, which is generally consistent with the AHOP, has been approved and is effective until 1982. HAP's for Billerica, Chelmsford and Westford would expire early in the term of an approved AHOP. Approved HAP's for other member communities have either expired or not been prepared. \9 FIGURE 3. Programs Considered for Goals Federal Programs: Sec-tcon 202 - Major rehabilitation or new construction direct loans on projects for the elderly and handi- capped households. Szction lis - Interest subsidy for home acquisition and rehabilitation; new construction or substantial rehabilitation projects only. SzcXA.on 312 - Provides targeted home improvement loans at low interest to lower-income property owners. ShcXajdyl 8 ExAJitAJig - Makes available assistance to make up the difference between the established maximum rent and the lower-income family's required contr i but i on . SzcZioYi S Nm ConitAuLcXJjjyi/ SfxhiitantlaZ R2.hab - Provides annual subsidy for rent, utility and other operating costs to the local housing authority or developer for newly constructed or rehabilitated units. Section S ModeAoXe. Rzkab - Uses rental assistance funds to stimulate the rehabilitation of privately owned units by allowing higher than fair- market rents. SO-CXA-On 502 - Low- interest loans may be granted lower- income applicants in rural communities to acquire, improve, alter or replace dwellings in order to provide decent, safe and sanitary conditions. Section 5 75 - Makes low- i nterest, long- term loans avai I ab I e to local housing authorities, private non-profits, consumer cooperatives, partnerships, and individuals which provide rental or cooperative housing and related facilities for elderly and lew- income families in rural areas. State Programs: ChaptoA 667 - Provides for assistance to local housing authorities for the development of housing for low-income elderly and handicapped persons; may be through new construction, major rehabilitation or acquisition of standard housing, or for conversions to community residences or congregate f ac i I i t i es . CkaptzA. 669 - Provides housing for low- income handicapped persons. Enables housing authorities to con- struct, rehabilitate single and multi-unit dwellings. ChaptZ'l 705 - Provides housing for low- Income families. Permits housing authorities to construct, acquire and rehabilitate single and multi-unit dwe I I i ngs . CkajptoA. 707 - Provides low- income families with a rental subsidy equiva- lent to the difference between 25 percent of the family's income and the rent of a standard apartment under a specific rent schedule. MoA-iadioie^Xi HouA-ing f-bicmcz Agency (MHFA) - The proceeds of tax-exempt bonds are used to make construction and permanent mortage loans available at be lew-market interest rates to lim.ited or non-profit developers. At least 25 percent of apartments must be set aside for low- income tenants with subsidized rents. Sidb^achuActXii Home Mo^Xgago, F-inaKCZ Agojicy (MHMFA) - An independent state agency which provides below-market mortgages through banks to low and moderate incom,e households in the purchase and rehabilitation of their homes with priority to targeted areas . 20 CHAPTER 4. Target Jurisdictions Requirement! (d) Identification of target jurisdic- tions for oiUrcach activities based on interjurisdictional outreach coals. (1) The Plan must Identify jurisdic- tions (whether or not they are Partici- pating Jurisdictions) within the Plan area to which the outreach activities required under § 891.503(f )(l)(iv) will be directed. As a mininmm, the APO shall include as target area^ each county and each jurisdiction over 25,000 population which have interjur- isdictional outreach goals (by house- hold type) based on the following cal- culation: (i) The difference between the juris- diction's three year percentage goal (§ 891.503(c)) and its relative percent- age of the areawide housing assistance need (§ 891.503(a)) divided by (ii) the jurisdiction's three year percentage goal. For example. Community X has 10 percent of the areawide need for large families, and its percentage goal is fifteen percent of the housing assis- tance becoming available which might address this need. The outreach goal is determined by subtracting the needs percentage (10 percent) from the goals percentage (15 percent). The differ- ence of fi' e percent is divided by the goals percentage (15 percent). The result. 33 '/a percent, is the outreach goal. If the jurisdiction's percentage of the areawide need is equal to or great- er than its three year percentage goal, there need not be an outreach goal. However, such jurisdictions will be ex- pected to affirmatively further fair housing on a general basis. If the three year percentage goal is higher than the jurisdiction's percentage of areawide need, then an outreach goal is indicated. In addition, the Plan may designate additional Jurisdictions which should have outreach goals and activities to increase opportunities for non-residents. (2) The Plan also shall establish out- reach goals for each target jurisdic- tion. These goals may be determined by employing the calculation in para- graph (d)(1) of this section, or another methodology acceptable to HUD which establishes goals for outreach activities designed to provide access to housing opportunities for residents or Jurisdictions with undue concentra- tions of low income or minority house- holds. TABLi 10. Outreach Goals for Target Jurisdictions (a) (b) (c) ;d) Three- Year Percentage Percentage Areawide Housing 1 tdronco Outreach Goa 1 Goa 1 Assistance Neer* vs) and (b) (c) divided by (a) Bi 1 lerica elderly 10.9 9.7 1.2 1I.0J fami ly 15.6 14.6 1 .0 6.4 Chelmsford 9 Idorly 12.9 8.7 4.2 32.6 fami ly 8.4 5.0 3.4 40.5 DracuT elderly 8.2 7. 1 1 . 1 13.4 fami ly 7.7 6.8 0.9 11.7 Ouns*^b le elderly 0.6 0.3 0.5 50.0 fami ly 0.6 0.3 0.3 50.0 Peppers 1 1 elderly 2.2 2.1 0. 1 4.5 fami ly 4.9 4.9 0.0 0.0 Tewksbury e 1 dor ly 6.3 5.0 1.3 20.5 fami ly 10.9 9.8 1 . 1 10. 1 TyngsDorough elderly 1.2 0.7 0.5 41.7 fami ly 3.7 . 3.3 0.4 10.9 Westford elderly 5.3 2.7 2.6 49. 1 fami 1 y 6.3 4.3 2.0 31 . 7 9 Outreach Jurisdictions and Goals The Plan redistributes 1,010 households out of the City of Lowell, the juris- diction of undue concentration, to the remaining eight communities in the region. Outreach activities are to be directed toward those eight communi- ties. Outreach goals are based on calculation of the difference between the juris- diction's three year percentage goal and its relative percentage of the areawide housing assistance need divided by the jurisdiction's three year percentage goa I . 22 CHAPTER 5. Barriers/Remedies Requirements! (e) IdentiHcation and analysis of all known legal, administrative or other barriers (e.g., residency preferences or requirements, exclusiona.-y zoning, etc.) which restrict the choice or oth- erwise hinder the fair and equal acce.ts of lower income households, particu- larly large families and minority and female-headed households, to ta'xe ad- vantage of available or potentially .available housing opportunities (whether assisted or not) outside areas f.nd jurisdictions which contain undue concentrations of low-income or mi- nority households in the Plan area. (f) Activities to implement the Plan. (1) Implementation activities shall, af. a mir.imum.. include the followins: (1) Activities designed to remove '2gal, administrative or other barriers v;hich limit housing opportuniMes Identified in accordance with para- graph (e) of this section, suci) as the elimination of exclusionary zoning, re- moval of restrictive building codes or site plan requirements, development of areawide affirmative fair housing marketing goals and strategies. I.niple- mentation of measures to increase the efficiency of administrative processing of applications for building permits, etc. (ii) Use of the APO's A-95 review powc.'s to en.sure that not only hous- ing but other local and areawide ac- tivities which are subject to APO review under HUD regulations imple- menting OMB Circular A-95 support the program objective; (iii) Activities to enlist the coopera- tion of existing PHAs (and/or efforts to create an areawide PHA or other entity) to operate programs designed to achieve the program objective; (Iv) Outreach activities to achieve the program objective for matching eligible families v> ith suitable and avia- lable housing assistance resources, such as through an areawide housing Information, referral, and counseling service. These outreach activities shall be directed towards acliievi.ng for each Jurisdiction the outreach goal Identi- fied in accordance with § 391.503(d) in the occupancy of newly-available as- sisted housing distributed pursuant to the Plan. (2) Other implementation activities may include, but need not be limited to. the following: (1) Coordinating the use of support- ive resources such as Community De- velopment Block Grants or other Fed- eral. State, or local funds for activities wliich will help implement the Plan, such as site acquisition and prepara- tion, development of community facili- ties and supportive services, support of outreach to households in areas and jurisdictions of undue concentration to advise them of available housing opportunities, etc.; (il) Provision of technical assistance to PH.'\s or -iro.spective developers and sponsors in identifying sites, obtaining financing, etc.; (iii) Preparation and dissemination of areawide guides which identify housing opportuniti'^s for lower Inco.me housciiolds. (iv) Development of programs in- volving the private .sector (financial in- stitutions, developers, realtors, local fair housing and civil rights groups, etc.) In activities to implement the Plan, such as affirmative marketing, expansion of loan or credit availabil- ity, etc. Intent and Responsibility The implementation activities (remedies) which follow are intended to implement the Plan as required and to go beyond requirements where addi- tional remedies are needed. In some cases, the activities are NMAC's responsibility, but in others MMAConly initiates action, with the ultimate responsibility for implementation as indicated. In Massachusetts, RPA's (APO's) have only an advisory role at the local level. 23 Banf;