The City of Saratoga Springs' 1997 Entitlement Action Plan addresses housing and community development needs in the City utilizing the $511,000 in total funding available for the 1997 program year. This funding includes $459,000 in 1997 Entitlement grant and $52,000 in reprogrammed funds from preceding years' allocations. In addition, these funds will be leveraged by more than $81,901 in matching private and non-Federal public funds, and an estimated $125,000 in program income and fund balances from the City's two housing rehabilitation and economic development revolving loan programs. The program income and revolving loan amounts will continue fund those two revolving loan activities and the CDBG Entitlement grant will primarily be used for housing, public facilities and public service projects. This 1997 Action Plan represents the third one-year plan intended to address the City's housing and community development needs as identified in the 1995 Consolidated Plan.

B. Citizen Participation

The responsibility for coordinating the development of the City's Consolidated Plan rests with the City's Office of Community Development (OCD) in cooperation with the 9-member Community Development Citizen Advisory Committee (CDCAC) which was charged with coordinating citizen participation efforts, reviewing Consolidated Plan objectives, evaluating housing and other community development priorities, and reviewing project funding requests. Members of this committee serve two-year terms and are appointed by the Mayor in consultation with the City Council.

The CDCAC held two public hearings in February of 1997 to elicit citizen input in preparation of the City's 1997 Action Plan. The first meeting was held in the Franklin Community Center on the West Side of the City (the area of greatest low/moderate income concentration) and the second meeting was held in City Hall, a central location for the entire City. Individual meetings with OCD staff were available for those citizens who were unable to attend the public hearings or who wished a more in-depth understanding of the CDBG process. Office of Community Development staff also consulted with a variety of other public and private agencies concerning housing, human service, economic development and other community needs including the Saratoga Springs Housing Authority, Westside Neighborhood Association, and Jefferson and Vanderbilt Terrace Residents Organization.

A total of 26 applications were received requesting nearly $870,000 in funding. The Advisory Committee members individually scored each proposal based on a rating matrix comprised of 9 variables and these scores were then aggregated to initially rank the proposals. Each proposal was then evaluated for funding based upon a number of variables including project readiness, applicant's past performance, project efficiency with relation to persons served with proposed resource allocation, and relevance to identified City community development priorities. The Committee's intent throughout this challenging process was to most accurately address the City's identified priorities and to beneficially impact the greatest number of persons with a limited source of funding.

The Citizen Advisory Committee presented its recommended Action Plan activities to the City Council on 18 March 1997. A third public hearing was held for public comment immediately preceding the 1 April 1997 Council meeting after which the City Council unanimously approved the committee's recommendations as presented.

2. COMMUNITY PROFILE

With a 1994 Census population estimate of 26,117 persons, Saratoga Springs is the least populous of the MSA's four central cities. Nevertheless, with a 4.6% growth rate from 1980 to 1990, an additional 4.5% increase in population between 1990 and 1994, and a seasonal daytime population estimated to be at least 60,000 persons, Saratoga Springs is an active small city with a variety of housing and community development needs.

While much of Saratoga Springs' history is built around its connection with the wealthy and powerful who visited to partake of the City's curative baths and lively sporting and gaming attractions, the present reality of the resident population is somewhat different. The 1990 median household income for the City was $30,938 compared to the six-county MSA median household income of $32,416. Greater than 42% of the City's total households qualify as low and moderate income (0-80% of MSA median figure) with poverty, minority, and low/moderate income concentrations located in the West Side and downtown neighborhoods. In fact, there are eight Census block groups in this area with greater than 51% low/moderate income households.

The overall proportion of City residents with incomes below the poverty level is 8.9%, 65% of the City's below-poverty residents reside in the West Side and downtown area (tracts 610.00 and 612.00), and these two Census tracts each contain poverty-level concentrations exceeding 14%. Fifty-six percent of the City's low/moderate income population also reside in this area. Racial and ethnic composition among the City's 1990 population is as follows: 94.5% White, 3.1% Black, 1.4% Hispanic and 1.0% Other.

Extremely low income households (0-30% of area median) represent 12.3% of City households and three-quarters of this figure are renters. Very low income households (31-50% of median) represent 11.9% of City households and 70% of this group are renters. Low income (51-80% of median) households represent another 18.3% of City households and 57% are renters. Consistent with state and national trends, the average age of Saratoga Springs' population increased between 1980-1990. Locally, the number of school age children dropped 16.3% (by 1,023 children) while the number of persons aged 62 years or above grew 13.9% (by 487 persons).

In addition, 1990 Census figures demonstrate that the number of City housing units rose from 9,480 to 10,751 - an increase of 13.4% over the previous decade. There was also a 22.8% increase in the number of renter-occupied units as compared with a 6.7% increase in the total amount of owner-occupied units. The ratio between owner-occupied and rental units changed from 51.4%:38.5% to 48.4%:41.7% between 1980 and 1990.

3. HOUSING & COMMUNITY DEVELOPMENT NEEDS

A. Housing Needs

The most pressing concern regarding housing needs as identified in the 1995 Consolidated Plan is affordability. Almost 18% of the City's owner households suffer a housing cost burden, and this incidence rate quadruples among low-income owners and low-income elderly owners. Low and moderate income homeowners, especially elderly owners, exhibit continued need for housing rehabilitation assistance. Moreover, as the disparity between household incomes and home sales prices continues to widen, fewer low and moderate income first-time buyers are able to purchase a home.

(1). Market Conditions

The number of vacant housing units jumped from 7.8% to 9.9% between 1980 and 1990. Since the highest housing vacancy rates occur in the outer census tracts, this may be due to the seasonal use of camps and houses along Saratoga Lake and the presence of unoccupied, newly-constructed units in several large area subdivisions. The rental vacancy rate is 8.3%, as reported by the 1990 Census; however, as just noted, this figure can be deceptive given seasonal variations in the housing market.

(2). Affordable Housing Needs

One of the most urgent housing needs is the shortage of affordable rental units due to the seasonal pressures from summer tourists and year-round rental housing demand from Skidmore College students and U.S. Navy personnel. Forty-one percent of the City's renters suffer a rental cost burden with this figure rising among the City's lower income renter households. While housing overcrowding is not a significant city-wide problem, over 30 percent of the larger, moderate income rental households do experience overcrowding. Affordable, handicapped-accessible rental units are also in very short supply.

Among homeowners, similar levels of need are experienced: 72% of extremely low income homeowners experience a cost burden, two-thirds of very low income homeowners experience a cost burden, while one-third of low income homeowners experience a cost burden.

(3). Homeless Needs

A March 1995 homeless count identified 126 homeless persons residing within the City. The great majority of these persons were single adults living in transitional housing units. Among the City's homeless population, the greatest housing and service needs are for emergency shelter for single men and families, enhanced case management, accessible emergency and transitional facilities, more transitional housing units, and emergency housing and support services for homeless youths and persons with HIV/AlDS. Among persons in danger of becoming homeless, the greatest housing needs appear to be growing demand for supportive housing for adults with mental illness, developmental disabilities, alcohol addiction and the frail elderly.

(4). Public & Assisted Housing Needs

Assisted housing represents 8.2% of the City's rental housing stock. These units include 583 rent-subsidized senior housing units, 133 family public housing units, 70 supported apartments and community residential slots for adults with psychiatric disabilities, and 79 residential slots for adults with developmental disabilities. Most nonprofit housing providers indicate that there are waiting lists for all of these assisted housing units.

Identified public housing needs such as modernization, removal of lead-based paint hazards and a community center are currently being addressed through the ClAP and Comprehensive Grant awards received by the Saratoga Springs Housing Authority.

(5). Barriers to Affordable Housing

General policies and procedures regarding land use zoning, building codes, utility connections, environmental and historic/design review may present costly hurdles in the development of affordable housing. City staff members attempt to coordinate review by the five City departments and various advisory boards but time lags, inherent in the land use review process, may occur and this plus the potential cost of required improvements may prove to be disincentives to for-profit and non-profit affordable housing development projects.

The City has attempted to mitigate these affordable housing development barriers in several ways: passing a zoning amendment to provide residential developers with density bonuses if they provide a certain number of affordable homes in their residential planned unit developments; lowering the City's utility service connection fee from $3,000 to $500 to owners of homes appraised at $120,000 or less; adopting a cluster zoning ordinance to allow for the construction of single family homes to be built closer together on 10,000 square foot lots thereby reducing the amount and cost of required infrastructure; amending zoning ordinances to allow a temporary second residential unit in an existing home which can effectively provide affordable housing for relatives and domestic employees; and by amending zoning ordinances to allow residential units to exist on the second story, or above, in commercial buildings which legalized the development of more than 1,000 such housing units in downtown Saratoga Springs. It was hoped that this last measure would stimulate further rehabilitation of downtown buildings; however, state building code requirements for elevator access and other mandated improvements appear to be a significant financial deterrent to renovating these vacant or underutilized areas into affordable rental housing. It is hoped that further development and adoption of a proposed rehabilitation building code by the New York Department of State will mitigate this situation.

The City intends to continue review of land use review procedures to allow for enhanced development of affordable housing units and to provide ongoing community education about fair housing laws to lessen the incidence of housing discrimination. The City will also increase efforts to develop public-private partnerships to create more affordable housing units by joining with lending institutions, real estate professionals, nonprofit agencies, community organizations and citizens in housing information meetings and in the development of affordable housing projects which may receive CDBG funding.

Furthermore, public input and comment has brought to light the burgeoning issue of just where affordable housing should be encouraged within the City. During the public hearings, and at other public venues during the Action Plan process, some resident clearly expressed the opinion the "affordable" housing could lower their property values and others expressed concern that there is an over concentration of "affordable" housing on the Westside of the City.

Given the present-day power that coalescing residents have to control the development process (regardless of justification or accuracy of information), it is imperative that the City, and public and private non-profit groups, act to sufficiently educate the residents on the socio-economic/demographic realities of the City. It is the intent of the City to re-address this education process this year and to work with the neighborhood groups and the general public to identify viable options to promote and develop affordable housing options for the year-round residents of Saratoga Springs.

(6). Fair Housing

The City found that the greatest impediments to fair housing choice were a lack of knowledge by landlords and the general public regarding fair housing laws; a disinclination on the part of landlords to rent to persons on public assistance; and a lack of housing that is accessible to mobility impaired individuals. The City's response has been an ongoing effort to educate the public regarding the fair housing law, where to refer complaints, and to follow-up on any complaints received. It may be noted that the City has received only four fair housing complaints since 1986. In addition, there are no current court orders, consent decrees, or HUD-imposed sanctions that affect the provision of fair housing remedies.

(7). Lead-based Paint

It is estimated that there are 2,350 low and moderate income renter households and 839 low and moderate income owner households occupying dwellings in which there are potential lead-based paint hazards. The City will continue to address this situation with educational efforts to heighten residents' awareness and with grant/loan assistance for physical remediation.

B. Other Community Development Needs

Continuing infrastructure needs will be addressed through the CDBG program including improvements to the recreation areas at the Westside and Southside fields, sidewalks and curbing in various downtown and Westside neighborhoods, sanitary sewer repairs on the Westside, and the rehabilitation of older utility lines in areas of low and moderate income concentration.

A variety of human service needs for many different special needs populations were identified in the 1995 Consolidated Plan including counseling, youth and adult day care programs, case management, home care, transportation, recreation and employment. Citizen input at CDBG public meetings continue to stress the need for a variety of youth recreation programming.

Strengthening downtown business development is the greatest economic development need identified in the 1995 Consolidated Plan. There also appears to be a need to diversify the local economic base by increasing the number of non-retail jobs available. Furthermore, Mayor J. Michael O'Connell intends to work for the creation of additional employment opportunities for low/moderate income persons in the City of Saratoga Springs through the use of the economic development revolving loan fund.

4. HOUSING & COMMUNITY DEVELOPMENT STRATEGIC PLAN

A. Vision for Change

Given the City's recent success in turning the economic tide toward greater economic stability and general urban revitalization, the main focus of the City's community development program is to preserve and expand, where possible, the supply of affordable housing; to improve the economic vitality of the community by assisting those sectors most likely to generate jobs; to provide supportive facilities and services for residents; and to upgrade facilities and improvements as needed to arrest the decline of commercial and residential neighborhoods.

In 1995, the City approved a five-year strategic plan, as part of its 1995 Consolidated Plan, identifying priority needs for the City in four areas: housing needs, homeless needs, other special needs, and non-housing community development needs. The subsequent one-year action plans represent the City-approved activities intended to address these identified needs and to accomplish the overall objectives of the strategic plan.

B. Housing Priorities

The highest priority needs exhibited in the City's housing market are those faced by low and moderate income renters. As documented in the housing needs assessment section of the 1995 Consolidated Plan, housing cost burdens are experienced by all of the defined renter groups. In fact, 1990 Census data shows that 41% of the City's renter households pay more than 30% of their income for rent.

The City estimates that 120 additional rental units are needed in the local housing market which are affordable to low and moderate income renters of all household types. Given the predominance of older housing stock and the presence of in-fill development sites throughout the inner section of the City, projects involving the rehabilitation of existing buildings and the production of new units would be encouraged. An additional 20 affordable rental housing units are needed to specifically eliminate overcrowding among the City's larger, related renter households.

To reduce homelessness, the City intends to promote the development of more affordable rental housing options, rehabilitation of existing substandard rental units, provide information and referral to appropriate housing and service providers, and foster development of emergency and transitional shelter for homeless and at-risk special needs populations not adequately served at present.

The City also intends to reduce affordable housing barriers and encourage greater production of affordable housing units by fostering greater communication and linkages between the various public and private, for-profit and non-profit housing developers in the community.

C. Homeless Needs Priorities

The City's strategy for helping low-income families to avoid becoming homeless is to encourage the development of more affordable rental housing options, both in the public and private sectors, and to work to maintain low/moderate income tenants in existing affordable apartments through the use of grants, matching grants and low interest loans for housing rehabilitation.

The strategy for addressing homeless persons' emergency and transitional housing needs is to foster the development of such housing for persons not adequately served at present. The City plans to continue to support the development of affordable rental housing and encourage area human service agencies to provide support services.

D. Other Special Needs Priorities

The City recognizes that there are other persons with special needs for housing and supportive services including the elderly, frail elderly, persons with disabilities, persons with alcohol or other drug addiction, persons with HIV/AIDS, and public housing residents. The City will continue to support the development of special needs and support services funding requests on a case by case basis.

E. Non-Housing Community Development Priorities

Long-term community development needs for the City include development of public facilities to serve the greatest number of low and moderate income residents, infrastructure development in underserved, low/moderate income neighborhoods, elimination of slums and blight in all City neighborhoods, encouragement of local economic development to create low and moderate income jobs and development of economic self-sufficiency and family cohesion programs.

Highest priority short-term, non-housing community development needs include construction of a community center at the Jefferson and Vanderbilt Terrace public housing complex (soon to begin construction) and provision of a greater diversity of youth development and recreation programs. Other priorities include improvement of existing recreation and playground areas, street and sidewalk improvements, improvements within the municipal water and sanitary sewer system, greater handicap-accessibility of public buildings, further elimination of lead-based paint hazards, and the development and execution of economic development strategies.

F. Anti-Poverty Strategy

The number of residents living at or below the poverty level decreased 18.0% between 1980 and 1990, according to 1990 Census data. The City's current poverty rate is 8.9%. The primary anti-poverty strategy effectuated by City government is to promote the development of more decent, affordable housing in the local market.

City government officials have also tried to provide city services at reduced rates for low income persons and families. These efforts have included providing sliding scale fees for the City's recreation and summer camp programs, helping to subsidize meal programs at the Senior Citizens Center and Presbyterian Church soup kitchen, and facilitating construction and rehabilitation of such affordable housing projects as Franklin Manor, South Franklin Street Project, 101 Washington Street Apartments, 117 Grand Avenue Shared Housing Project, Gladwin House domestic violence safe house and SOS homeless shelter.

G. Coordination of Strategic Plan

The City will carry out its housing and community development plan through coordinated efforts between various public institutions and private groups. The City's Office of Community Development (OCD) will have the primary responsibility for administering funded projects under the City's CDBG programs. OCD also maintains ongoing implementation of the housing rehabilitation grant and loan programs and works with property owners and nonprofit organizations to develop other affordable housing projects for potential funding through the CDBG grants. The Saratoga Springs Housing Authority has primary responsibility for operating 339 units of conventional housing and 90 Section 8 rental assistance vouchers and certificates allowing lower income persons to afford private apartments within the City. The Saratoga County Department of Social Services provides emergency housing reimbursement to several private agencies and assists residents who are eligible for public assistance with various benefits and services.

Non-profit organizations are major providers of affordable housing and support services in the City of Saratoga Springs and are often consulted to help the City plan for future affordable housing and community development policies and programs. In the private sector, area contractors, lending institutions, real estate agents and their professional associations have periodically donated funds and/or technical assistance to local affordable housing projects or participated in planning and policy discussions on affordable housing issues. Many such professionals also serve on the boards of area housing and human service agencies and the City's Community Development Citizen Advisory Committee.

5. 1997 ENTITLEMENT ACTION PLAN ACTIVITIES

After considerable public input and discussion, the following activities were recommended by the Community Development Citizen Advisory Committee and then unanimously approved, as presented, by the members of the City of Saratoga Springs' City Council. These activities represent a continuing intent to address the City's housing and community development needs as identified in the 1995 Consolidated Plan. These activities are presented in greater detail in the 1997 Entitlement Action Plan that follows in this document.

1) Catholic Charities - Mentoring Program - $15,000

2) Legal Aid Society - Homelessness Prevention Program - $15,000

3) Saratoga Springs Preservation Foundation - Home Improvement Seminars - $6,000

4) Greater Adirondack Home Aides - Home Aide Subsidy - $5,000

5) Spaha - Retail Training Program - $4,500

6) Westside Housing Rehabilitation Grant Program - $160,000

7) Public Works - Sidewalk, Curb, Drain Improvements - $89,331

8) Recreation Department - Capital Improvements - $42,060

9) Spaha - Sill and Foundation Repair - $22,700

10) EOC - SERVE Minor Housing Repair Program - $40,210

11) Shelters of Saratoga - Furniture Restoration/Retail Project - $21,199

12) Office of Community Development - CDBG Grant Administration/Program Delivery - $90,000

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