Executive Summary

AP-05 Executive Summary – 24 CFR 91.200(c), 91.220(b)

1. Introduction

The City of Bessemer developed a five year Consolidated Plan for Housing and Community Development Programs for program years 2015-2019. This document comprises the planning and submission process for the Community Development Block Grant (CDBG).  An Annual Action Plan must also be prepared for each of the five years of the Consolidated Plan. The following outlines the City of Bessemer’s Economic Development and Community Development needs and strategies relative to CDBG entitlement funds for FY2019 of $577,199.00, and projected Program Income of $123,950.00. The Action Plan also shows prior year’s Revolving Loan funds of $80,985.00 for the Economic Development Revolving Loan Fund and $198,011.00 for the Housing Revolving Loan Fund. Copies of the City’s 2015-2019 Consolidated Plan for Housing and Community Development Programs, and FY2019 Action Plan will be available for inspection in the City’s Community Development Department, 1700 3rd Ave. North, Bessemer, Alabama, Monday through Friday, except legal holidays, from 8:00 a.m. to 4:30 p.m. In addition, approved Action Plans will be posted on the City of Bessemer’s website. The Economic and Community Development Department of the City of Bessemer served as the lead agency during the development of the FY2019 Action Plan. Consolidated Plan rules developed by the U.S. Department of Housing & Urban Development (HUD) require all jurisdictions to consult and coordinate with appropriate agencies, and among its own departments, to assure that its Consolidated Plan is a comprehensive document that addresses statutory purposes. In an effort to meet these and other requirements in the development of its FY2019 Action Plan and Consolidated Plan, the City of Bessemer’s Economic and Community Development Department worked with the Bessemer Housing Authority to develop statistical information regarding public and assisted housing and a number of other agencies mentioned throughout this document relative to their expertise.

The City of Bessemer developed a five year Consolidated Plan for Housing and Community Development Programs for program years 2015-2019. This document comprises the planning and submission process for the Community Development Block Grant (CDBG).  An Annual Action Plan must also be prepared for each of the five years of the Consolidated Plan. The following outlines the City of Bessemer’s Economic Development and Community Development needs and strategies relative to CDBG entitlement funds for FY2019 of $577,199.00, and projected Program Income of $123,950.00 ($$80,985.00 for the Economic Development Revolving Loan Fund and $198,011.00 for the Housing Revolving Loan Fund). Copies of the City’s 2015-2019 Consolidated Plan for Housing and Community Development Programs, and FY2019 Action Plan will be available for inspection in the City’s Community Development Department, 1700 3rd Ave. North, Bessemer, Alabama, Monday through Friday, except legal holidays, from 8:00 a.m. to 4:30 p.m. In addition approved Action Plans will be posted on the City of Bessemer’s website. The Economic and Community Development Department of the City of Bessemer served as the lead agency during the development of the FY2019 Action Plan. Consolidated Plan rules developed by the U.S. Department of Housing & Urban Development (HUD) require all jurisdictions to consult and coordinate with appropriate agencies, and among its own departments, to assure that its Consolidated Plan is a comprehensive document that addresses statutory purposes. In an effort to meet these and other requirements in the development of its FY2019 Action Plan and Consolidated Plan, the City of Bessemer’s Economic and Community Development Department worked with the Bessemer Housing Authority to develop statistical information regarding public and assisted housing and a number of other agencies mentioned throughout this document relative to their expertise.

2. Summarize the objectives and outcomes identified in the Plan 

This could be a restatement of items or a table listed elsewhere in the plan or a reference to another location. It may also contain any essential items from the housing and homeless needs assessment, the housing market analysis or the strategic plan.

The City’s Community Development Objectives include the utilization of CDBG funds for: 1) Public Facilities, to improve the general quality of life in the community, and 2) To foster neighborhood stability through Historic Rehabilitation, Housing Rehabilitation, and Reconstruction with the goal of increased housing production and home ownership for families at and below low-to-moderate income levels., and 3) To utilize Economic Development Loans and Grants to encourage business development, slum and blight removal and job creation. The projected use of funds stated herein has been developed so as to give maximum priority to activities that will benefit families at, and below, the low-to-moderate income level or aid in the prevention or elimination of slums and blight. In addition, the projected use of funds is consistent with the City’s established strategy of stabilizing the City’s housing stock and reversing negative trends associated with urban decay and blight. The City’s strategy for community development has three basic goals:1)To improve neighborhood stability through physical improvements and housing rehabilitation; 2) Improve the economic life of the City by encouraging business development and jobs, and 3) To cause increased production and home ownership for families at all income levels at or below the low to moderate income level. The City intends to continue its efforts to obtain available federal, state, local, and private funding, to provide for community wide improvements in each of the areas outlined above in as many communities and neighborhoods as funding permits. Of the formula grant programs the City only receives CDBG funding. Therefore, this document relates exclusively to CDBG Entitlement funds and Revolving Loan funds.

3. Evaluation of past performance

This is an evaluation of past performance that helped lead the grantee to choose its goals or projects.

The City of Bessemer has a large low, and low to moderate income elderly population. As a result there is great need for home repairs related to the needs of the elderly and disabled. The FY2015, FY2016, 2017 and FY2018 Action Plans were designed to address the needs of the elderly relative to housing with a focus on repairs that met the requirements of the American’s With Disabilities Act. The performance of the City relative to the elderly was accomplished in the main by three programs: The Deferred Loan program, the Rehabilitation Loan program and the Emergency Grant program. In addition to those programs the City has utilized its Housing Revolving Loan Fund to provide funding for its Rehabilitation/Refinance program and Buy/Rehab/Sell program to make significant rehabilitation possible for several new and existing homeowners since the beginning of the present Consolidated Plan. The necessity of repaying a large Section 108 Loan greatly impacted the availability of CDBG funds for housing programs in FY2015, and FY2016. The Emergency Grant program met the needs of many citizens, but a backlog of applicants exists as almost all available funds have been committed. The City utilized significant un-programmed funds from prior years to pay most of the remaining debt from a $4,000,000.00 Section 108 loan in FY2015 and paid that loan off with $22,000.00 in CDBG Entitlement funds in FY2016. The payoff of this Section 108 note freed over $300,000.00 annually in CDBG Entitlement Funds the City had been forced to commit from its CDBG grant each year since 2009. With the elimination of the Section 108 Loan as a major expense, using un-programmed funds from prior years, more CDBG funds were targeted to the Emergency Grant program. The City did not utilize CDBG funds during FY2015, FY2016 or FY2017 for Clearance.  However, the City provided $250,000.00 in General funding for clearance activities in both fiscal years and has done so since.  The City focused on the Rehabilitation Loan program for significant rehab needs and Emergency Grants for medically related repairs. The City administered an Economic Development/Job Creation program during the period of the FY2015, FY2016, FY2017 and FY2018 Action Plans. The primary goal of Economic Development Loans is job creation. The City ran a successful, ongoing summer youth program called Camp Bessemer that was funded jointly from General Funds and CDBG Public Service funds until FY2016. The City has been successful in many Public Facility projects including the construction of a major Entrance Sign, a major Drainage project near its Roosevelt Park recreation facility and a large ADA/Sidewalk improvement project near DeBardeleben Park. The City’s partnership with Habitat for Humanity resulted in the construction of 10 houses and numerous rehabilitation projects in areas not suitable for the use of CDBG funds. The City has designed programs to address its Analysis of Impediments to Fair Housing and has made progress in addressing each identified impediment.

4. Summary of Citizen Participation Process and consultation process

Summary from citizen participation section of plan.

The City of Bessemer has undertaken, throughout the development of its FY2019 Action Plan and 2015-2019 Consolidated Plan, an open, credible, and broad-based effort to involve and solicit the participation of community and neighborhood leaders, and residents of their needs and the types of services that they would like to see established or improved throughout the City. In an effort to broaden public participation in the development of the FY2019 Action Plan, the City held three public hearings for the Citizens of Bessemer during the 2015 Consolidated Plan process and during each year of the subsequent Action Plan process. The purpose of the hearings was to obtain comments and proposals for the use of the City’s projected FY2019 Consolidated Formula Allocation and to obtain the views of citizens, public agencies, and other interested parties on the housing and community development needs of the City. Citizens were also afforded the opportunity to 1) identify housing and community development needs and priorities; 2) review proposed uses of funds; and 3) comment on, and review the City’s program performance. The City also considered the input of organizatios like One Roof, Latch and Live, the Bessemer Public Housing Authority, UAB West, Habitat for Humanity and others when designing the FY2019 Action Plan. All comments, priorities, and proposals received from citizens were considered in the development of the City’s FY2019 Action Plan. The 2019 Action Plan was approved by the City Council and advertised for 30 days in local newspapers and the comments of citizens was solicited in that advertising.

Please note additional advertising of the Action Plan ran in the Birmingham News from 7/28/2019 until 8/28/2019. This advertising invited additional public comment. However, no comments were received.

5. Summary of public comments

This could be a brief narrative summary or reference an attached document from the Citizen Participation section of the Con Plan.

Comments received during public meetings pertained to improved lighting around the City, Camera Systems, New Apartments in downtown Bessemer, Neighborhood Gardens, Abandoned Houses, Land Banks, Storm Shelters, Homelessness, Plans for the City’s Flood Plain, Housing Loan Programs, Overgrown Lots, Street Paving, Ramps at Businesses, Food Banks, Economic Development Loans, Home Ownership programs, Housing Rehabilitation, the need for a replacement for the auditorium in the old City Hall, A recreation center for each community in the City, Grants for Development in the Historic District, Drainage projects for the Flood Zone, the Flood Zone in general and other technical questions related to the CDBG program in general. There were numerous questions related to economic development.

6. Summary of comments or views not accepted and the reasons for not accepting them

No views or comments were rejected. All comments were considered for present and future Action Plans.

7. Summary

The City of Bessemer, over the course of FY2019 will continue to focus on the needs of housing for the elderly with new CDBG grant funds while continuing to provide loans to assist in the repair of existing housing stock through its revolving loan fund. In addition, the City will add a new matching-grant program designed to apply to broader age groups and structured to address more general repairs. The City also set aside funds for down payment assistance for first time home buyers. The City of Bessemer utilizes a variety of community planning sources, stakeholder input, and program performance from prior years for the planning and development of its Consolidated Plan and Annual Action Plans. The essential purpose of the Consolidated Plan and all subsequent Annual Action Plans is to provide a guide for the usage of the limited funds available and to focus on projects and objectives that will result in the greatest positive impact possible on the community.

PR-05 Lead & Responsible Agencies – 91.200(b)

1. Agency/entity responsible for preparing/administering the Consolidated Plan

Describe the agency/entity responsible for preparing the Consolidated Plan and those responsible for administration of each grant program and funding source.

Table 1 – Responsible Agencies

Narrative (optional)

The City of Bessemer’s Department of Economic and Community Development prepared this Action Plan. The Department is also responsible for the execution, design and management of all CDBG programs. The City cooperated with the Bessemer Public Housing Authority in development of Fair Housing policies, practices and goals and is cooperating with the One Roof organization to study the need for ESG funds, their use, and possible policies and practices relative to the needs of the homeless. The Bessemer Public Housing Authority is the Lead Agency in administering the City’s Section 8 and Public Housing Programs. One Roof is the Lead Agency in the Continuum of Care in Jefferson County and the municipalities therein. It is believed this Action Plan represents a broad and comprehensive course of action that can address the housing, economic development and general well-being of the citizens of Bessemer.

Consolidated Plan Public Contact Information

AP-10 Consultation – 91.100, 91.200(b), 91.215(l)

1. Introduction

The City of Bessemer, through the Department of Economic and Community Development, has endeavored to consult with public and private agencies at every level to develop the FY2019 Action Plan. Of particular importance is the Bessemer Public Housing Authority, which works very closely with the Department of Economic and Community Development. The City consulted with the Bessemer Public Housing Authority relative to the leveraging of federal funds for housing, Housing programs in general, and relative  to the provision of educational and Public Services for the citizens of Bessemer.  The City has consulted with Habitat for Humanity relative to the needs of first time home buyers and blight removal throughout the City. The City also consulted with Habitat for Humanity relative to reconstruction and rehabilitation programs. The City consulted with the “One Roof” organization relative to the needs of the homeless. One Roof provides annual reporting on the status of the homeless community in Bessemer. The City also consulted with members of the faith based community to determine the needs and priorities that should be established relative to housing rehabilitation. The City has consulted with the Alabama Department of Public Health in its design of Lead Based Paint programs and the Foundry relative to the homeless and other needs including services related to drug addiction. In addition the City consulted with UAB West relative to the needs of the disabled and the delivery mechanisms associate with the Emergency Housing Repair Grant program and with Latch & Live for temporary relocation. These consultation have, andwill continueto happen, on an ongoing basis. They serve to assistinthe  designand implementation of CDBG programs  in the same way the Citizen Participation process works.

Provide a concise summary of the jurisdiction’s activities to enhance coordination between public and assisted housing providers and private and governmental health, mental health and service agencies (91.215(l))

The City of Bessemer, through its Department of Economic and Community Development has formed a partnership with the Bessemer Public Housing Authority that has proved to be successful in bringing more and better housing services and opportunities to the citizens of Bessemer. The City has partnered with the Bessemer Public Housing Authority to provide educational opportunities relative to health and housing to the citizens of Bessemer. The City has also partnered with the Bessemer Public Housing Authority to work with them on a program to transition public housing residents to privately owned housing through its CDBG Housing program. The City has coordinated with UAB West to assure that the disabled receive the assistance they need through the removal of architectural barriers to improve safety and to allow these citizens to continue to live independently at home.

The City has worked with UAB Medical Center West to provide assistance to individuals who qualify for the City’s CDBG funded Emergency Grant program. UAB west advises the City when local patients are released from the hospital who need assistance like wheelchair ramps and ADA bathroom improvements. The City has worked with the Alabama Department of Public Health and the Environmental Protection Agency to sponsor seminars on Lead Based paint for both citizens and contractors and works with them on an annual basis to assure compliance.  The Economic & Community Development Department works with the Bessemer Fire Department and Police Department to identify citizens in need of assistance. The City has also worked with the Veteran’s Administration to develop seminars for employment and housing. The City has consulted with the One Roof organization relative to the status of the homeless community. The coordination with Bessemer’s Police Department and Fire Department have been key in identifying those in need.

The City has worked with the Latch and Live organization in situations where temporary relocation was required. Latch and Live can provide temporary residences as necessary for CDBG housing program participants. The City partnered with Habitat for Humanity to facilitate the construction of ten new homes in Bessemer. Habitat for Humanity has also provided home repairs in situations where CDBG funds are not appropriate.

Describe coordination with the Continuum of Care and efforts to address the needs of homeless persons (particularly chronically homeless individuals and families, families with children, veterans, and unaccompanied youth) and persons at risk of homelessness.

The City is working with the “One Roof” organization to develop policies and practices to address the needs of the homeless. The City receives no ESG funding, but One Roof provides annual reports on the homeless for the City and the City refers people to One Roof as appropriate. One Roof has identified approximately 21 chronically homeless persons within the City of Bessemer in 2018. Of those persons, many are part of homeless families. The City and One Roof are working to develop programs that can provide houses for these families. The City hopes to utilize referrals from One Roof to identify persons that may be eligible for CDBG housing programs. In addition the City refers persons to One Roof as appropriate.

In addition to One Roof, the Latch and Live organizations is available to provide temporary housing and the Foundry is dedicated to transitioning the homeless back into housing.

Describe consultation with the Continuum(s) of Care that serves the jurisdiction’s area in determining how to allocate ESG funds, develop performance standards for and evaluate outcomes of projects and activities assisted by ESG funds, and develop funding, policies and procedures for the operation and administration of HMIS

The City does not receive ESG funds.

2. Describe Agencies, groups, organizations and others who participated in the process and describe the jurisdiction’s consultations with housing, social service agencies and other entities

Table 2 – Agencies, groups, organizations who participated

Identify any Agency Types not consulted and provide rationale for not consulting

Specialized Mental Health Facilities, Foster Care and Corrections programs were not consulted. However, One Roof and the Foundry address all aspects of Homelessness and it is believed they have the programs, knowledge and expertise to advise on homelessness in a universal sense. UAB West was consulted and they do provide information to the City relative to Families, the Disabled and Youth that the City can assist through housing programs that can mitigate homelessness. It should ne noted that the City’s Emergency Housing Grant program is designed to address barriers to the disabled. As such, the program works to provide participants with the opportunity to continue living in their homes. Latch and Live has provided temporary housing to CDBG participants during the rehabilitation of their homes and can provide special accomodations for the disabled. The City has offered One Roof and Latch and Live the opportunity to manage City owned houses as homeless shelters. While the City has no ESG funds it is believed that the making properties available to One Roof and Latch and Live along with grants to the disabled will work to address some homeless needs. It is believed that the organizations that were and are consulted provide adequate assistance relative to the CDBG program in the absence of ESG funds.

Other local/regional/state/federal planning efforts considered when preparing the Plan

Table 3 – Other local / regional / federal planning efforts

Narrative (optional)

AP-12 Participation – 91.105, 91.200(c)

1. Summary of citizen participation process/Efforts made to broaden citizen participation

Summarize citizen participation process and how it impacted goal-setting

The City of Bessemer has established a Citizen Participation process that comports with all HUD rules and regulations. The purpose of the process, relative to CDBG, is to assure that citizens, to the greatest extent possible, have a voice in program design and expenditure goals and targets. Three meetings were held on April 23rd, April 24th and April 25th  of 2019, to allow citizens to provide input relative to the Action Plan for FY2019. Citizens were encouraged to comment on all aspects of the CDBG program and to indicate the programs they would like to see in place in the Consolidated Plan. The Action Plan was advertised in local newspapers for 30 days after Council approval. It was also re-advertised for another 30 day period prior to final submission. There are no Limited English Proficiency groups residing in Bessemer making up more than 5% of the population or that number 1000 or more. However, language translation services are available on an as needed basis. Please note the City’s internet site offers comprehensive, state of the art, language translation services beginning of all posted documents. No translation services were directly requested as there was no contact with the program by LEP persons. Fair Housing posters are displayed  in prominent places in the Economic and Community Development Department and City Hall. All public meetings were held in City Hall. The City Hall meets all ADA standards of accessibility. Local organizations that work with the disabled, like UAB West, are informed of the availability of housing programs that impact the disabled and these agencies work to inform the disabled of those services.

Citizen Participation Outreach

Table 4 – Citizen Participation Outreach

Expected Resources

AP-15 Expected Resources – 91.220(c)(1,2)

Introduction

The City of Bessemer’s Economic and Community Development Department manages the CDBG Entitlement grant and a Revolving Loan fund for Housing and for Economic Development. The City recently partnered with Habitat for Humanity to implement a signifigant blight removal program that, unlike standard Clearance programs, will provide buildable lots for City housing programs. The City has also taken part in the application process for a Disaster Resiliency grant, along with Jefferson County, which would provide significant home ownership opportunities for Bessemer’s citizens. The City will close out its involvement with the NSP program this summer. The City is also working with FEMA to ascertain the possibility of a significant permanent relocation program for properties in a problematic flood plain. CDBG Entitlement grants cuts in recent years have resulted in staff reductions and in the refocusing of housing programs involving grants for emergency medical issues, but the use of revolving funds in concert with the partnership with Habitat for Humanity offer the opportunity to leverage funds and maintain services at a good level.

Anticipated Resources

Table 1 – Expected Resources – Priority Table

Explain how federal funds will leverage those additional resources (private, state and local funds), including a description of how matching requirements will be satisfied

The City has committed $250,000.00 annually from its General Fund for Clearance, rather than using CDBG funds. A Substantial Amendment converted $552,000.00 from the City’s Economic Development Revolving Loan Fund to Regular Program Income, in FY2018, and $44,000.00 from the 2019 Action Plan, to be used in a Public Facilities project for paving and ADA improvements. The City’s General Fund will provide initial funding of $44,000.00 for the project.  The City partnered with Habitat for Humanity to facilitate the construction of ten new single family houses in FY2018.

If appropriate, describe publically owned land or property located within the jurisdiction that may be used to address the needs identified in the plan

No publically owned land has been designated for use in the FY 2019 Action Plan.

Discussion

Annual Goals and Objectives

AP-20 Annual Goals and Objectives

Goals Summary Information

Table 2 – Goals Summary

Goal Descriptions

Projects

AP-35 Projects – 91.220(d)

Introduction

The City of Bessemer employs a comprehensive housing program. In addition to housing the City has an Economic Development Loan program funded through a CDBG related Revolving Loan Fund. The City plans to conduct improvements at all City Parks over the next five years with the use of both federal and local funding. It is also constructing a new Recreation Center and a new City Hall. The City has a long established summer youth jobs and training program called Camp Bessemer that is paid for by City funds and CDBG Public Service funds. The City is in the process of completing a project to create a state of the are Recycling Center. 65% of the population of the City of Bessemer has an income at or below 85% of median income. 29.7% of the population is below the poverty line. All areas of the City are, therefore, eligible for CDBG assistance. However, housing program eligibilty is based on the income of the participant not the geographic location of a given project.

Projects

Table 3 – Project Information

Describe the reasons for allocation priorities and any obstacles to addressing underserved needs

Each of the listed projects meets a high priority need within the Bessemer community. The lack of ESG funding prevents specific projects directed to the needs of the homeless, but the City is working to meet those needs through various partnerships and the assistance of the Continuum of Care. The Emergency Repair Grant addresses the needs of the disabled. The Matching Grant will serve to address repairs related to the Housing CODE. The Down Payment Assistance program will increase the opportunity for those of low to modersate income to buy a home utilizing private mortgages. The Public Facilities projects all address ADA improvements. Finally, Economic Development grants serve to incentivize the revitalization of the National Historic District while Economic Development Loans are designed to facilitate job creation for low to moderate income individuals.

AP-38 Project Summary

Project Summary Information

AP-50 Geographic Distribution – 91.220(f)

Description of the geographic areas of the entitlement (including areas of low-income and minority concentration) where assistance will be directed

Over 65% of the population of the City of Bessemer falls below the low-to-moderate income level, 85% of median income, with over 50% in the very low income category. 29.7% of the population is below the poverty line. Therefore, all areas of the City qualify for CDBG assistance. As such, the Target Area for all programs is shown as Bessemer, Alabama. The Historic Facade Grant program, which was funded with CDBG grant funds prior to FY2019 is designed to impact the National Historic District, but it also applies to any structure in the City listed on the National Historic Register. The proposed work on at Bessemer Utilities is in a demographic census tract, Tract 102, that is low to moderate in income, with a median household income of $36,226.00, is composed of a 65% minority population and has 41% of the population below the poverty line. The same holds true for the ADA/Paving and Improvements project around DeBardeleben Park and the ADA improvements at the Municipal Court facility which are all located in Census Tract 102.

All housing programs are designed for participants at or below the low-to-moderate income level. Given the demographics of the City all areas are populated by significant numbers of qualified, low-to-moderate income individuals.

Geographic Distribution

Table 4 – Geographic Distribution

Rationale for the priorities for allocating investments geographically

The need for programs that comport with the National Objective of the Community Development Block Grant program, throughout the City of Bessemer, are great. The City directs most of its funding toward the elderly and disabled for housing programs and seeks to help those most in need of help. Public Facilities projets are selected  based on the functionality they can provide the the greatest  numberof citizens. 65% of the population of the City of Bessemer falls at or under the low-to-moderate income category, the City has designed its programs to operate in all areas of the City because all areas of the City qualify based on the percentage of low to moderate income residents. The ADA Paving Project at 1623 2nd Ave. North, The ADA Improvements project in the Municipal Cout Building at25 15th Street Nort and the ADA Improvements Project at the Utilities Building located at 1600 1st AVe. North are all located in Census Tract 102. Census Tract 102 has a Household Median Income of $36,226.00. Each of these projects impacts an area that is utilized by all the citizens of Bessemer.

Discussion

65% of the population of the City of Bessemer falls at or under the low-to-moderate income category. As such, all areas of the City are eligible for CDBG projects. All sectors of the City qualify for CDBG housing assistance. All public Facilities projects in Census Tract 102, an area with a median household income of $36,226.00. However, those projects are eligible basdd on the 65% low to moderate income of the community as a whole.

Affordable Housing

AP-55 Affordable Housing – 91.220(g)

Introduction

The City has a comprehensive housing program design. The only limit to the program relative to service to the citizens of Bessemer is funding. Funding for housing programs is broken down into two sources, CDBG Entitlement funds and Revolving Loan funds. CDBG Entitlement funds are used for the Emergency Housing Repair Grant program, The Housing Matching Grant program, and the Down Payment Assistance program. Revolving Loan funds are used for projects involving loans for Housing Rehabilitation. The combination of grants and loans provides a comprehensive set of programs for housing.

Table 6 – One Year Goals for Affordable Housing by Support Requirement

Table 7 – One Year Goals for Affordable Housing by Support Type

Discussion

Emergency Housing Repair Grants are designed to facilitate housing repairs related to the disability or medical condition of the owner. They may also be used to address health and safety related repairs. Housing Rehabilitation loans are a broad category of programs designed to bring houses to a CODE conforming condition within a structure that is affordable for low to moderate income persons. Matching Grants are designed to address CODE related repairs for low to moderate income families. Down Payment Assistance grants enhance the opportunity for those of low to moderate income to secure mortgage loans from private banks. Please see the attached narrative describing all Housing related programs for further details. The City’s own Clearance program also serves to remove slum and blight while improving access to Homeowner’s Insurance and increasing property values.

AP-60 Public Housing – 91.220(h)

Introduction

The Housing Authority of the City of Bessemer (BHA) manages 702 public housing rental units at seven (7) AMPS and administers 475 Section 8 vouchers and 70 VASH vouchers.  In addition, BHA manages one (1) bond financed 120 unit Senior Complex and a new 198 unit RAD Multifamily and two existing complexes that have been converted to RAD in J.I. Cobb Gardens with 110 units, and Thompson Manner with 56 Senior-Only units. The first of the developments was built in 1976 and the last was built in 1998. Because of various changes in federal housing policy, it is imperative that BHA engage new comprehensive strategies to accomplish its mission:

The Mission of the Housing Authority of the City of Bessemer is to increase the supply of, and maintain existing affordable rental housing; to encourage homeownership for low-income households and to promote training, educational opportunities and asset independence in a way that improves the health and civic and community vitality of Bessemer, Alabama.

Actions planned during the next year to address the needs to public housing

To pursue varying and flexible partnerships and funding opportunities to develop additional affordable housing both for rental and homeownership. Increase efforts to broaden the BHA Commissioners policy making ability through information sharing, training and workshops culminating with the creation of an Annual Board/Staff Strategic Planning Workshops. Develop an enhanced real estate Asset Management model to provide for the direction of capital funds in a rational manner, including the potential submission of the Capital Funds Financing Program (CFFP) application. Focus and expand the current Family Self Sufficiency program with an emphasis on educational advancement, homeownership training, job training and asset independence. Develop additional partnerships with other authorities, municipalities, private entities, financial institutions to leverage funding for the benefit of residents and communities. Explore Section 32 Public Housing Homeownership and other public/private mini neighborhood small ownership opportunities. Develop a lease/purchase program for the purpose of extending low-income homeownership for residents who otherwise are unable to purchase at present, but will be able to in the next few years in conjunction with the City of Bessemer’s Community Development Plans. Increase awareness of the impact of Green Energy Conservation; develop cost saving measures and public/private partnerships to enhance energy efficient developments. Initiate at least one (1) new affordable housing development with an emphasis on creating an affordable, mixed-financed housing community at Hillside; apply for Tax Credits from the Alabama Housing Finance Authority and other private financings. Expand efforts of the Bessemer Housing & Development Corporation, a BHA non-profit instrumentality formed in 2009 to impact neighborhood revitalization throughout the City of Bessemer. Strengthen program operations and fiscal management with the goal being High Performer designation in public housing, and continue to expand all aspects of Voucher Management included in the 2009 High Performance Rating.

Actions to encourage public housing residents to become more involved in management and participate in homeownership

The Bessemer Public Housing Authority has a program whereby one Public Housing resident sets on the Housing Authorities Board of Directors. The Bessemer Public Housing Authority has also established a program designed to help transition Public Housing residents into homeownership. The program teaches various financial and life skills necessary to become a homeowner. The City of Bessemer cooperates in this effort to assist in the process when possible. The Agency will expand its FSS program to facilitate a Homeownership program for both Public Housing and Housing Choice Voucher residents.  The PHA will also develop a Lease Purchase Program for qualified residents and other income eligible.

If the PHA is designated as troubled, describe the manner in which financial assistance will be provided or other assistance

NA

Discussion

The Mission of the Housing Authority of the City of Bessemer is to increase the supply of, and maintain existing affordable rental housing; to encourage homeownership for low-income households and to promote training, educational opportunities and asset independence in a way that improves the health and civic and community vitality of Bessemer, Alabama.

AP-65 Homeless and Other Special Needs Activities – 91.220(i)

Introduction

The City of Bessemer receives no ESG funding or funding of any type designated to address the needs of the homeless.  The City does use CDBG funds through its Emergency Housing Repair Grant Program to conduct repairs that would allow a disabled person to continue living in their home. The City has also offered One Roof and the Latch and Live organization the opportunity to manage houses the City has in its inventory as temporary housing for the homeless. The City provides access to its Buy/Rehab/Sell program for CDBG eligible homeless persons. It is hoped One Roof, The Foundry and Latch and Live can provide referrals in that regard.

Describe the jurisdictions one-year goals and actions for reducing and ending homelessness including

Reaching out to homeless persons (especially unsheltered persons) and assessing their individual needs

The City is working with One Roof, Latch and Live and The Foundry to establish a working relationship that will facilitate outreach to the homeless. It is estimated that the total number of homeless in the City at any given time is 21. Most of these homeless are comprised of families. This is a tribute to the non-profits and the Continuum of Care inasmuch as the number of homeless in Bessemer has declined over time. The City has also offered One Roof the opportunity to manage houses the City has in its inventory as temporary housing for the homeless. The City will provide access to its Buy/Rehab/Sell program for CDBG eligible homeless persons. It is hoped One Roof, The Foundry and other institutions can provide referrals in that regard.

Addressing the emergency shelter and transitional housing needs of homeless persons

The One Roof organization indicates that there are at least 21 homeless individuals living in the Bessemer area, but this decrease of 9 individuals is probably related to fewer Bessemer area volunteers during the 2019 survey rather than a true decrease in homelessness. One Roof has also provided the following overview of homelessness in Jefferson County:

The 2019 sheltered homeless numbers increased significantly from 533 to 655. This is an increase of 122 sheltered people, but it must be noted that the Continuum also recorded a loss of 104 available emergency and transitional beds. The emergency shelter bed count for 2018 was 431 while the 2019 count was only 386. The transitional bed count for 2018 was 219 and dropped to 160 in 2019. The change in ES and TH beds was a total loss of 104 temporary beds, a number that is significant in a Continuum of our size. That decrease might be mistaken for a system change that values permanent housing over temporary housing units, but this Continuum saw the number of people housed in Rapid Rehousing (RRH), a permanent housing type, decrease from 191 beds in January 2018 to 106 beds in January 2019. Part of this decrease is due to administrative changes in the two major agencies with the RRH programs, but the majority of change is traced to changes in the housing market. It is becoming more difficult to identify safe, decent, and affordable housing, particularly that which is accessible by public housing; rent is going up but the wages are not keeping pace. Housing availability is decreasing which also increases the price of the units.  While this Continuum is committed to Housing First as a guiding principle, this has contributed to the loss of some housing providers. We are not suggesting that we refocus on something other than Housing First, but instead that we must have alternate funding for repairs, loss of housing deposits, etc.  Unfortunately, we have seen a corresponding increase in the unsheltered population. The number of unsheltered persons identified in 2018 was 214, and 326 in 2019. This increase of 112 is the first time in more than 10 years that we have had measurable increases in the unsheltered population of our Continuum. This increases our concern about the availability of affordable, low/no barrier housing that is immediately available for our population with the most barriers such as long/ exceedingly long term homelessness, felony backgrounds, mental illness and substance abuse. The changes in the chronic homeless numbers support this. We had 95 chronically homeless people sheltered in 2018 and 83 in 2019. 24 chronically homeless people were unsheltered in 2018, but that number increased to 34 in 2019. This shows us that we are able to get our chronically homeless into shelter, but that we are challenged to move them out into permanent housing. We must increase the availability of affordable (affordable on minimum wage), low/no barrier, and immediately available permanent housing. That will both prevent some homelessness and end other homelessness. The number of Unaccompanied Youth (under 25) increased from 22 in 2018 to 63 in 2019. We have done a better job of finding and counting these young people, but the loss of RRH beds is what accounted this increase. Because we saw a dramatic decrease from 2017 to 2018 when RRH for youth was first opened, we know that the Rapid Rehousing programs can decrease the number of Unaccompanied Youth on our streets, and loss of those beds has increased the number. Again, part of that RRH change was related to program administration, but part was simply that safe, decent and affordable housing is simply not readily available. The number of Domestic Violence victims decreased from 100 in 2018 to 61 in 2019, but Domestic Violence dedicated housing was lost during this time, so we do not believe this is a significant decrease.

Helping homeless persons (especially chronically homeless individuals and families, families with children, veterans and their families, and unaccompanied youth) make the transition to permanent housing and independent living, including shortening the period of time that individuals and families experience homelessness, facilitating access for homeless individuals and families to affordable housing units, and preventing individuals and families who were recently homeless from becoming homeless again

The City provides low cost loans to repair houses under its Buy/Rehab/Sell program that could be used to assist a qualifying homeless person. The City works with the United Way of Central Alabama to assist those with credit problems and place them in a plan that can lead to home ownership. In addition, the existing housing repair programs of the City act to prevent families from becoming homeless. The Emergency Housing Grant program by its focus on barriers to the disabled has definitely allowed the disabled and elderly an opportunity to continue living in their own homes.

Helping low-income individuals and families avoid becoming homeless, especially extremely low-income individuals and families and those who are: being discharged from publicly funded institutions and systems of care (such as health care facilities, mental health facilities, foster care and other youth facilities, and corrections programs and institutions); or, receiving assistance from public or private agencies that address housing, health, social services, employment, education, or youth needs.

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The CDBG funded Emergency Housing Repair Grant program is designed to remove barriers associated with the disabilities and medical condition of homeowners. In many cases housing is not accessible for those with disabilities. Eliminating those accessibility issues can allow a person to live in a house that would not work for them otherwise. The City works with UAB West to address the needs of the disabled or those with long term medical issues, when they are discharged from UAB West. These programs often make it possible for an elderly or disabled person to continue living in their own home.

Discussion

The City would be interested in the possibility of ESG funding and using some of its housing inventory for the homeless if arrangements could be made with the Continuum of Care and local service providers to manage homeless outreach. The City continues to make available the Emergency Housing Grant program. This is a program designed to address housing needs associated with disabilities, medical conditions and safety. Fortunately, local agencies are dedicated to addressing the needs of the homeless.

AP-75 Barriers to affordable housing – 91.220(j)

Introduction:

There are no local or state level policies impacting affordable housing and residential development. The City of Bessemer follows standard housing CODES, and the guidelines of the County Health Department relative to residential housing. Fire protection is maintained at the highest possible level as is police protection. As a result insurance rates are reasonable. Property tax rates in Alabama are the 2nd lowest in the country, the cost of housing is the 3rd lowest cost of housing in the United States and Transportation costs are the 5th lowest.

The City’s most recent Analysis of Impediments for Fair Housing was done for the Consolidated Plan of FY2015.It points to Transportation, Employment, Blighted Housing and Credit Worthiness as Impediments to Fair Housing. Credit Worthiness is a significant issue that must be dealt with in the long term. The State of Alabama has the 2nd worst average credit score in America. As such, the City has enlisted the assistance of the United Way of Central Alabama to assist CDBG program applicants to become credit worthy. United Way provides credit reports and credit counseling such that completion of the credit counseling course will result in credit eligibility relative to City CDBG Housing Loan programs. CDBG Housing loans, CDBG Housing Grants, and CDBG Economic Development Loans that are based on Job Creation for low to moderate income persons all serve to make housing more affordable via low interest rates, favorable terms and low down payment requirements. The involvement of Habitat for Humanity, which plans to build ten new houses in Bessemer in FY2019 has, and will continue to improve the opportunity for new housing. The City’s Emergency Grant program allows existing homeowners with disabilities and medical conditions to continue living in their houses. The City has participated in transportation studies with the Regional Planning Commission and a new transportation study for a transportation HUB was concluded in FY2018. The City hopes to use these studies to enhance the opportunity for transportation grants.

In addition to the positive effect of housing rehabilitation programs funded by CDBG the City has dedicated $250,000.00 annually from the City’s General Fund for Clearance projects to remove blight, increase property values, lower residential insurance costs and generally improve the quality of life of Bessemer’s citizens. $250,000.00 has been set aside for Clearance by the City for FY2019.

The Economic Development activities of the City have provided thousands of new jobs over the course of the periods addressed in the last two Consolidated plans. Projects like the Tannehill Promenade, The US Pipe Plant, Amstead Rail, the Dollar General Distribution facility and numerous others have provided jobs and thus housing opportunities for many. The new Amazon Distribution Center will provide up to 3000 new jobs. The Amazon project and all the other projects mentioned were directly impacted by the City of Bessemer which played an integral role in their decision to locate in Bessemer. A full discussion of barriers to affordable housing is contained in the Analysis of Impediments to Fair Housing.

The complete Analysis of Impediments to Fair Housing and a detailed report of actions taken to mitigate those impediments can be found as an attachment to this document.

Actions it planned to remove or ameliorate the negative effects of public policies that serve as barriers to affordable housing such as land use controls, tax policies affecting land, zoning ordinances, building codes, fees and charges, growth limitations, and policies affecting the return on residential investment

There are no public policies that impact affordable housing in a negative fashion.

Discussion:

Homeownership is more achievable in the Southeastern United States than any other area in the nation. Local, County and State government policies in Alabama encourage homeownership. Building CODES are industry standard as is zoning. Fees and charges associated with new construction and rehabilitation are reasonable and have no appreciable effect on homeownership opportunities. The cost of housing in Alabama is the 3rd lowest in the United States and it follows that families can more readily afford to buy houses in the State of Alabama than most other areas of the USA.

The City has undertaken housing rehabilitation programs with its CDBG funds to help the elderly and disabled stay in their homes. Consultations with local institutions like UAB West, Latch and Live and One Roof have worked to provide a stong program design while directly impacting the outreach necessary to provide services.  The City has addressed the severe problem of credit worthiness in the low to moderate income community by partnering with United Way of Central Alabama to provide credit counseling for applicants of the City’s CDBG funded Rehabilitation Loan Programs. Participants who complete the United Way program are deemed as credit eligible for those Rehabilitation loan programs. The City has also organized programs and seminars conducted by the top officers of local banks to provide the citizens of Bessemer with the knowledge necessary to successfully obtain private mortgage financing.

The City has addressed the impediment of Employment by providing job training programs for Youth, like Camp Bessemer through its General Fund, and encourages job creation for low to moderate income persons through its Economic Development loan program. As mentioned above the City of Bessemer has been extraordinarily successful in landing several major economic development projects which have provided thousands of jobs to this point in time and promises to provide several thousand more in the near future. Unemployment has dropped from the 10% range in 2015 to 3.5% in 2019.

The City has partnered with agencies like Habitat for Humanity to build new housing in the City that will allow low to moderate income persons to achieve home ownership. The City plans to assist in such programs through the provision of services and through the procurement of residential building lots.

To the extent that one wishes to attribute jobs, transportation, the removal and or rehabilitation of blighted housing, and the improvement of credit worthiness to improved opportunities for housing, the City of Bessemer has made major strides in addressing the impediments to fair housing listed in the Analysis of Impediments to Fair Housing. While many impediments cannot be eliminated the City has made a solid effort in lessening their impact.

The complete Analysis of Impediments is attached to this document.

AP-85 Other Actions – 91.220(k)

Introduction:

The basic premise behind the design of the City of Bessemer’s Consolidated/Action Plan is to provide, as closely as possible, a holistic approach to the needs of the low to moderate income persons in the community. Each program under the housing umbrella, whether federally funded or funded by the City itself, works to provide clean and safe neighborhoods, Housing Stock revitalization and compliance with the Americans With Disabilities Act to improve the quality of life of those in need. In addition, the City uses CDBG funds to provide loans to local business with the National Objective of creating jobs. Employment, like many of the functions undertaken by the City through its CDBG program is a key factor in the ability to own a home. Fair Housing is a focus of the City and addressing problems associated with transportation and economic development are important to maximizing the opportunity for home ownership in the City of Bessemer. The City arranged public forums with local banks to provide information about mortgage loans and the mortgage loan process for citizens in FY2018 and plans to continue other locally funded methods of outreach in FY2019.

Actions planned to address obstacles to meeting underserved needs

The Economic and Community Development Department administers a comprehensive Housing program designed to serve low to moderate income individuals. The City will continue to provide CDBG funded loans, to the extent funding is available, to make housing more livable and to give families an opportunity to realize the advantages of homeownership. The City intends to increase the funding of its Emergency Grant program to meet the needs of the elderly and disabled and to expand the housing grant category by adding matching grants for housing repair.  The City has contributed $250,000.00 annually from its General Fund to address the severe problem of blighted housing in the community during each year of the present Consolidated Plan. The City plans to continue to reach out to organizations like Habitat for Humanity to provide housing rehabilitation and new housing services the City cannot provide due to either inadequate funding or CDBG rule. Habitat for Humanity built 10 new houses in 2018 and plans to build 10 new houses in Bessemer in 2019 from their own funding sources.

Actions planned to foster and maintain affordable housing

The City will continue loan and grant programs designed to remove barriers, according to The American’s With Disabilities Act,  to residents and to bring houses into a CODE conforming condition. These programs have proven to allow families to have a higher quality of life in a safer environment. In addition, the City will focus on providing credit counseling and informational services to help citizens secure, not only federal, but private mortgage financing. It should be noted that the Emergency Grant program has served to provide disabled applicants with repairs and additions to their houses which allow them to continue to live independently.

Actions planned to reduce lead-based paint hazards

The City of Bessemer tests all houses of participants in housing programs built before 1979 for lead based paint if a painted surface will be disturbed in the rehabilitation process.  The City also routinely tests if projects exceed $5,000.00 in total cost. The City maintains a policy that lead based paint must be abated if addressed. The City has sponsored, and will continue to sponsor, public meetings and seminars with the Alabama Department of Health to inform the public of the dangers of lead based paint and to educate contractors in required procedures. All participants receive a booklet explaining the dangers of lead based paint before a project begins.  The City follows all EPA and HUD regulations relative to the treatment and abatement of lead based paint. Lead based paint is always a consideration in the rehabilitation process. The City of Bessemer’s approach to lead hazards is comprehensive.

Actions planned to reduce the number of poverty-level families

Job creation through the City’s Economic Development Program as well as the expansion of the tax base through economic development will serve to reduce poverty levels. Housing programs, with their focus on energy efficiency and cost reduction, through programs like the Rehabilitation Loan Program known as Buy/Rehab/ Sell and Refinance/Rehabilitation work to make housing safer and more affordable.

Actions planned to develop institutional structure

The City of Bessemer and other community development and housing organizations have achieved institutional structure through their commitment to community involvement and continued support. Community development and housing initiative programs are administered through the Department of Economic and Community Development. This also allows for continued institutional knowledge with respect to successful means and tactics in the preparation and administration of grants and grant applications. The City of Bessemer and the Bessemer Public Housing Authority have partnered in recent years to ensure the continued success and growth of the community as a whole. Through these collaborative efforts, an emphasis is placed on the needs of the community while avoiding duplicated efforts by the individual entities. These collaborative efforts have proven to be successful and the City looks to partner with other entities to achieve the same goals and will continue to strive for improved institutional structure.

Actions planned to enhance coordination between public and private housing and social service agencies

The City is committed to focusing efforts to ensure the coordination of stakeholders and continual improvements to the programmatic delivery system. The City will continue to look for ways to enhance coordination in the implementation of the Consolidated Plan through its established partnerships with Community Development Services, the Bessemer Public Housing Authority, and the Jefferson County Community Development Department. The City will continue to coordinate with UAB West to identify those in need of assistance to meet the demands of the American with Disabilities ACT.

The City will work with One Roof, the Continuum of Care’s lead agency, to promote a community-wide commitment to the goal of ending homelessness; to seek out funding for efforts that seek to address homelessness in Bessemer and to support methods to assist in the rehousing of homeless individuals. The City will continue its commitment to the development of viable Economic Infrastructure through the support of Incentive Programs, Economic Development Loan Programs and other incentives. The City is also committed to continuing the implementation of its Camp Bessemer program to promote economic opportunity for Bessemer Youth funded entirely by the City’s General Fund. The City will continue to coordinate with local stakeholders to support economic development through the creation of jobs and educational opportunities for neighborhood residents.

Discussion:

The FY2019 CDBG Action Plan of the City of Bessemer continues the execution of the broad based Consolidated plan generated in FY2015. This plan addresses Housing, Public Services, andf Public Facilities  with new funding and with funding from the Revolving Loan Fund. The FY2019 Action Plan will further address the needs identified in the Analysis of Impediments to Fair Housing that was included with the Consolidated Plan of  the Consolidated Plan of FY2015.

Program Specific Requirements

AP-90 Program Specific Requirements – 91.220(l)(1,2,4)

Introduction:

The City of Bessemer only receives CDBG funding. All funding mentioned in this Action Plan are derivatives of CDBG Entitlement funds or CDBG related Housing Revolving Loan funds.

Community Development Block Grant Program (CDBG)

Reference 24 CFR 91.220(l)(1)

Projects planned with all CDBG funds expected to be available during the year are identified in the Projects Table. The following identifies program income that is available for use that is included in projects to be carried out.

Other CDBG Requirements

It is expected that the overall minimum benefit of 70% of CDBG funds to benefit low to moderate income will be realized between FY2015 and FY2017 under the FY2015-FY2019 Consolidated Plan. All programs are designed to achieve 100% low mod benefit.

Attachments

Citizen Participation Comments

Grantee Unique Appendices

Grantee SF-424’s and Certification(s)