NEIGHBORHOOD ANALYSIS
BREVARD, N.C.
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NEIGHBORHOOD
ANALYSIS
BREVARD, N.C.
Digitized by the Internet Archive
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https://archive.org/details/neighborhoodanal1970nort
NEIGHBORHOOD
ANALYSIS
BREVARD, N.C.
The preparation of this report was financed in part through an
urban planning grant from the Department of Housing and Urban
Development, under the provision of Section 701 of the Housing
Act of 1954, as amended.
This Report Prepared for:
THE TOWN OF BREVARD, NORTH CAROLINA
Raymond F. Bennett, Mayor
Board of Aldermen
W. W. Duckworth
Dwight Moffit
David Sams
Robert L. Johnson
W. M. Melton
Planning Board
David C. Kirk, Chairman
John D. Clark
Frank Ferrell
Jame s F , Furr
Ruth Hill
Charles F . Himes
Chester Kilpatrick
William Leonard
J. H. Mcllwain
T. E. Ramsay
Technical Assistance from:
State of North Carolina, Department of Local Affairs
Division of Community Planning
George J. Monaghan, Administrator
Western Area Office
Charles E. Vaughn, Director
*James Donnelly, Community Planner
Hermon Rector, Draftsman
David Letterman, Draftsman
Betty Whidden, Typist
* Responsible for this project
JANUARY, 1970 Price : $2.00
TABLE OF CONTENTS
Page
Chapter One - Introduction To The Problem 1
The Problem Of Blight 2
Goals And Scope 5
Study Area Delineations 6
Chapter Two - Neighborhood Conditions 7
Census Data 7
Windshield Survey 8
Degree Of Deterioration 10
Environmental Conditions 13
Social Blight 15
Characteristics of Families 17
Affected by Substandard Housing
Chapter Three - Program For Community Improvement 22
Protection Of Basically Sound Areas 22
Elimination Of All Existing Blighting
Conditions 24
Chapter Four - Problem Area Analysis 29
Study Area One 29
Study Area Two 31
Study Area Six 32
General Recommendations 35
CHAPTER L
INTRODUCTION TO THE PROBLEM
The American city of today is the result of change--
changing times, changing fashions, changing technologies, and
changing approaches to living. But, like many other elements
of our civilization, portions of our cities have been bypassed
by change. This is evident when one takes the necessary time
and trouble to see our cities of today not just as the Central
Business District, and the street on which we live, or even the
few blocks surrounding it that form our neighborhood, but to
see our cities as entities. When one goes into those areas of
the city that are often bypassed by the average city dweller
going to and from work, he sees the areas that have been by-passed
by progress— areas that are no longer within the frame-work
of a modern city: dirt roads that have never been paved to
handle the traffic created by modern automobiles; privies that
have never been moved inside; shacks and converted homes which
once did double-duty during more trying years that still remain;
block after block of homes without adequate park, playground,
and school facilities within a reasonable walking distance;
water, sewer and storm drainage facilities that are either lack-ing
or inadequate for the needs of today's city.
Why do these conditions exist? They exist because of the
economic inability of some of our families to pay for adequate
housing. They exist because our minority families are not al-ways
given the opportunity to secure decent, safe, and sanitary
housing, even when they are economically able to do so. They
exist because our cities do not have, and cannot raise, the
necessary funds to provide the facilities and services necessary
for a healthy, growing community.
The Neighborhood Analysis was undertaken by the Town of
Brevard to ascertain the need for renewal activities as a means
of renovating, rehabilitating, and cleaning up deteriorating
and blighted areas in the town. In actuality, the Neighborhood
1
Analysis is a study of conditions in the town, an analysis of
those conditions and a series of recommendations for municipal
action. The study recommendations, as outlined in Chapter 4,
include not only those which would lead toward renewal activity
with federal assistance, but more significantly those which the
town could undertake on its own initiative under existing author-ity
and within its present legislative and administrative organi-zation.
THE PROBLEM OF BLIGHT
Throughout this report, the reader will constantly be ex-posed
to the word "blight." In order to understand the problem,
it is appropriate at this time to explain what blight is and
what its causes are. Once this is fully understood, a compre-hensive
attack on the problem would be more meaningful and
realistic
.
The most complex and one of the most expensive problems
in most American cities is the decay and premature obsolescence
found in many residential neighborhoods, commercial districts,
and industrial areas. The detrimental conditions that character-ize
the problem are collectively known as "blight".
Blight is most commonly associated with structural deter-ioration
or dilapidation as evidenced by the use of this charact-eristic
as the main criteria for the measurement of problem areas.
No other criteria is as universally recognized as structural
conditions. This evidence of blight ranges from peeling paint
and an unkept appearance which is common in deteriorating areas
to the completely dilapidated condition of the slum. Structural
dilapidation and its associated conditions are recognized as
symptons or by-products of blight but are not the direct causes.
Carelessness in maintenance and housekeeping for which the owner
and the renter must share responsibility, is too easy an answer
and greatly oversimplifies the problem. Blighted areas do not
just happen. They have developed, grown, and spread because of
a variety of reasons which include:
2
Faulty Land Use Pattern
The use to which land is put greatly influences the urban
environment. Any violation of sound city planning principles is
likely to lead to the decline of the areas affected. The import-ance
of compatible land use patterns, enforced through zoning,
can be seen in city after city where residential areas are
adversely affected by an intermixture of residential and incom-patible
nonresidential uses. Haphazard development practices
may overload streets, create economic failure and abandonment of
structures, cause unnecessary and costly utility extensions, and
decrease property values.
Poorly Designed And Maintained Streets
This is an essential element in a land use pattern. Some
subdivisions were built according to standards that were good
for their time, but have since become obsolete. Poor design of
streets can create traffic hazards and an inefficient circulation
system. All too frequently, the city that does not adopt and
adhere to good subdivision design standards finds new develop-ments
so laid out that they constitute a blighting influence
from the beginning.
Improper Density
This is among the most serious contributors to lowered re-sidential
desirability. Excessive density, both in the form of
population and structural coverage, may have been built into an
area originally in speculative attempts to extract the greatest
financial gain from a piece of property.
Poor Original Design Or Construction
This is one of the major contributors to deterioration.
Brevard, like many other towns in North Carolina, has a number
of houses built specifically for low-income occupants. Many of
these structures were built with inadequate materials and labor
and have since deteriorated rapidly.
3
Inadequate Services And Facilities
The many services and facilities provided by public or
semi-public agencies are an important factor to the decline or
the stability of any area. Protection services (police, fire,
and health) and facilities (education, recreation, sewer, water,
etc.) are important contributors to sound conditions.
Abuse Of Property
The direct cause of much deterioration of areas i
original construction was basically sound is abuse of p
Failure to maintain what exists is a major contributor
The best streets, structures, and other facilities can
rate and spread their influence into healthy areas unle
are properly maintained.
Governmental Neglect Or Shortsightedness
Lack of proper planning for community growth and absence
of land use controls, development regulations, construction
standards, or health requirements will provide an environment
for the development of blight. Standards which are not up to
date and fall short of minimum requirements and are not properly
administered do little to eliminate or prevent blight.
Public Apathy
A public which is not willing to act intelligently and
meet its responsibilities becomes an agent of the forces of
blight. An interested and informed public is a force against
b light
.
Social And Economic Factors
Social and economic factors which contribute to the blight-ing
process include: low income levels, lack of education, and
unemployment. People who are affected by such factors are often
deprived of the opportunity of an adequate wage and cannot afford
standard housing.
n which
roper ty
.
to blight,
deterio-ss
they
4
The above list is by no means all inclusive; however, it
does include many of the major factors contributing to blight
in Brevard. A combination of some or all of the above-mentioned
causes coupled with structural deterioration is blight, and
ultimately, if not curtailed, blight results in a "slum."
Blight may be defined as the presence of deterioration in
buildings and deficiencies in the quality of the physical, social,
and economic environment. Therefore, an effective action pro-gram
encompassing both physical and social renewal treatment is
needed if the corrective action taken is to have a permanent
effect
.
The "slum" is blight in its most advanced and critical stage
of physical, social, and economic deterioration. It is a financial
liability to the entire community, regardless of the community's
size.
GOALS AND SCOPE
This study is aimed at motivating local action that will re-sult
in forestalling future and correcting present blighted con-ditions.
The study will attempt to coordinate all the available
resources in an orderly way, assigning priorities and spelling out
the relationships of the various activities in order to help pro-duce
maximum results.
It is also the purpose of this study to inform and stimulate
the body of influential businessmen, professionals, and citizen
leaders whose opinions and actions have a profound effect upon
policy and action for housing and community development.
A more specific intent of this study is to identify the
various factors that cause the decline of any neighborhood and
then through the tool of analysis, to observe whether any correla-tions
exist among these factors of decline and the state of con-ditions.
It is also the intended purpose to determine for each
ne ighborhood the extent and severity of blight or decline based
upon which a priority of corrective action can be established.
5
STUDY AREA DELINEATIONS
The Neighborhood Analysis Planning Area was divided into
six study areas to obtain smaller units which could be studied
more comprehensively. These study areas include five within the
corporate limits and a sixth area which includes the one-mile
fringe area. An attempt was made to delineate areas which have
common problems and are similar in regard to physical and social
characteristics. The map on page 12 outlines the study area.
6
CHAPTER 2
NEIGHBORHOOD CONDITIONS
The first major element of the Brevard Neighborhood Analysis
to be considered is the condition of structures. It-is the only
item in the survey which directly relates to building rather than
environmental deficiencies. Since the most important ingredient
in qualifying an area for federally assisted renewal is the docu-mentation
of the degree and distribution of building deficiencies,
condition of structures may be considered the most important
element in this report. In evaluating the degree and extent of
structural deterioration in Brevard, two sources of information
were used: the 1950 and 1960 United States Housing Census and an
exterior structural survey conducted by the Western North Carolina
Regional Planning Commission in October, 1968.
Census Data
An evaluation of the extent of blight in Brevard faces the
handicap of a severely limited amount of comparable information
of any kind. The only source is the Federal Census of Housing
which provides comparable data on a few housing characteristics.
This source was used in order to establish any trends which may
have taken place in the past.
Data on housing conditions as contained in the 1950 and 1960
United States Census of Housing included information on rentals,
values, general condition of structures, overcrowding, etc. From
this information, it is possible to determine to a limited degree,
the extent of deterioration and deficiencies and to some extent
the trends in housing quality taking place.
Using as criteria the dwelling units that are dilapidated,
the percentage of dilapidated units has increased in Brevard be-tween
1950 and 1960. This limited analysis is obviously not
definite proof, but it is indicative that no significant action
has been taken to remedy the housing situation. It is noteworthy
that this increase in dilapidated dwelling units is not only a
7
percentage increase, but also an increase in actual numbers.
The 1950 Census indicated 151 dilapidated units compared to the
1960 figure of 171, this represents a 13.2 percent increase. In
addition, there was a total of 284 deteriorating dwelling units
in Brevard according to the 1960 Census of Housing. This re-presents
19.1 percent of the town's housing supply. When dilapi-dated
and deteriorating units are combined, the result is 455
substandard units or 30.6 percent of the town's housing supply.
This is compared to 42.7 percent for Transylvania County and 42.9
percent for the state.
Despite possible drawbacks in the quality of the Census data
its information is invaluable in any comparative study of the
condition of housing as well as in presenting trends in the con-dition
of housing in the town.
WINDSHIELD SURVEY
Although the Census data is informative, it does not pro-vide
us with the information which would enable us to pinpoint
the problem areas, and to prescribe for their cure. Therefore,
the second method in assembling the necessary structural informa-tion
was a windshield survey. For survey purposes, every struc-ture
in the Study Area was surveyed by the use of criteria pertain
ing to visible exterior structural conditions. The survey was
conducted in October, 1968, by the Western North Carolina Regional
Planning Commission staff. The survey was general in nature and
was designed to provide recommendations for the improvement and
upgrading of potentially blighted areas. It reflects exterior
conditions of buildings only. Every structure within the town
and the one-mile fringe area was classified into one of the four
following categories:
(A) Sound Structurally sound, with no defects
other than those which are normally
corrected during the course of normal
maintenance
.
8
( B) Minor Defects Slight deterioration which would
require more than normal and a
moderate need for capital expendi-ture
to restore the structure, i.e.,
painting
.
(C) Major Defects A combination of minor and struc-tural
defects resulting in a de-generation
of the structure from
its original form that would re-quire
a large capital expenditure
for rehabilitation, i.e., replace-ment
of a worn-out roof.
(D) Critical Defects An accumulation of minor and major
defects of such extent that re-habilitation
in most cases is
economically infeasible. Structures
which fall in the critical category
do not provide safe and adequate
shelter; and in their present condi-tion,
endanger the health, safety,
and well-being of the occupants.
The area-wide structural survey reveals conditions which
support generally accepted ideas about the causes of blight and
dilapidation. Inharmonious mixtures of land use, unpaved streets,
narrowly platted lots, lack of community facilities, etc., all
tend to influence the structures which exist in an area, and
contribute to its decline.
9
TABLE I
HOUSING CONDITIONS BY STUDY AREA
Study Area Sound Minor Defects Major Defects Critical Total
1 133 88 41 51 313
2 139 119 40 13 311
3 249 14 7 1 271
4 357 54 10 42 1
5 Central Business District 3 3
6 688 8_7 32 39 846
TOTAL 1,566 362 133 104 2,165
Source: Survey conducted by the Western North Carolina Regional
Planning Commission, October, 1968
Note: Some structures were omitted from the structural survey
in the one-mile extraterritorial planning area for
reasons of inaccessibility.
D EGREE OF DETERIORATION
As the map on page 12 shows, the greatest deterioration of
structures exists on the immediate east and west of the railroad
tracks, particularly those blocks bordered by Caldwell Street,
Tannery Creek, North Lane, and West Main Street. There are several
other small concentrations; however, the area described is one of
a critical nature. As may be expected, areas . adjacent to the
critical areas are beginning to show the detrimental effects of a
close proximity to blight. These effects are in the form of a
significant number of structures requiring minor and major repairs.
In terms of total structures within the corporate limits,
166 were found to be critical or in need of major repairs. This
comprises over 12.5 percent of all structures surveyed within the
town limits. Of equal importance, however, is the fact that an
additional 275 structures or 20.8 percent are in need of minor
10
repairs. This latter figure indicates that unless steps are
taken to deal with the newly developing deterioration within a
large portion of the town's structures, Brevard will be faced
with the need for more extensive renewal than is presently
anticipated. Structural deterioration is a slow process and
unless it is detected in its beginning stages, it will eventually
develop into a situation which will require large capital expend-itures
to correct.
11
ENVIRONMENTAL CONDITIONS
The criteria and procedures set forth in the preceding
section constitute the first of two parts in analyzing the
nature and degree of blight and blighting factors. This section,
the second phase of this process, will deal with environmental
deficiencies which tend to cause blighting conditions. From the
environmental survey, it was possible to enumerate clearly the
basic causes of blight in the town. A knowledge of blighting
factors is essential when it becomes time to make decisions con-cerning
the treatment necessary to upgrade and improve a particu-lar
area of the community.
Criteria for determing deficiencies in the environment are
not as well defined and systematized as those for determining
structural conditions. Each community must be evaluated on
local factors of the environment which are influential to that
particular locale. Environmental deficiencies are usually deter-mined
by a comparison of existing conditions with standards that
are considered to be minimum for a satisfactory environment.
Comparisons are normally made with respect to street improvements,
traffic congestions, compatibility of land uses, the percent of
coverage by structures of the total land area, and the adequacy
of neighborhood facilities, such as schools and recreational
facilities.
Environmental conditions not only delineate blighted areas,
but also indicate areas where such factors are present but have
yet to attain the "visible blight" stage. Therefore, the higher
the incidence of each factor, the higher the likelihood of
blight--both present and anticipated.
A number of factors have contributed to the development of
blighted conditions in Brevard. Poor subdivision practices are
evident in several areas, particularly in Study Areas 1 and 2.
These are reflected in the small narrow lots which are poorly
drained and difficult to build on, in the rear yard structures
and in the failure to provide sufficient open space, recreational
13
facilities, paved streets, and a number of other amenities
which are necessary for a suitable residential environment.
Poor construction practices are apparent in the inadequate
size and design of many buildings, and the use of inferior build-ing
materials and techniques in many instances. Once again this
is reflected in study areas 1 and 2, as well as in the one-mile
extraterritorial area.
The effect of mixing incompatible land uses can be seen
in several scattered areas. Commercial and industrial uses can
have a deleterious effect on residences when development is
haphazard and unplanned. Once commercial and industrial establish-ments
penetrate a residential block, the tendency is for homes to
decline in value, and the deterioration of the neighborhood as a
residential area begins.
Most of these conditions were established in Brevard before
adequate codes and ordinances were formulated to guard against
them. Subdivision Regulations are designed to insure that minimum
standards are met when areas are initially developed. In adopt-ing
such regulations and codes, the minimum should not always be
the rule. As times change, so do standards and a community which
only adheres to minimums may find developments obsolete and sub-standard
in a short time.
The purpose of a zoning ordinance is to ensure proper land
use relationships, to provide ample space requirements, and to
control the density of population and structures in an area. The
various building and health codes are designed to guard against
conditions detrimental to individual health and safety. However,
just having codes and ordinances is no guarantee that their
objectives will be realized. They must be intelligently and
conscientiously enforced.
Many of the conditions that have been discussed thus far
in this section could have been prevented through proper planning
and governmental action. However, there are many causes of
14
blight which cannot be controlled by laws and regulations-
These are the social conditions and attitudes which underlie
many of the more visible physical causes of blight. An examina-tion
of the characteristics of the population residing in Brevard's
most blighted areas is the next step in the neighborhood analysis.
SOCIAL BLIGHT
In an analyses of substandard housing, many factors may
be associated with blight; however, those involving social con-ditions
are among the most significant. Social factors contri-bute
heavily to the blighting process and at the same time, are
by-products. Substandard housing, impoverished economic condi-tions,
and unsatisfactory environmental conditions all assist in
breeding the blight that is reflected in statistical analyses of
social aspects
.
One of the basic objectives of the Brevard Neighborhood
Analysis is to determine specific locations with concentrations
of adverse social conditions. These may be called problem areas,
i.e., areas in which people with problems are concentrated. For
the purposes of this study, certain problems were chosen which
were believed to be suitable indicators of the location of social
problem areas. Social conditions will be discussed in terms of
the following:
Venereal Disease
Tube r cu 1 o s i s
Infant Mortality
Public Assistance
Structural Fires
Venereal Disease
Blighted areas of a community generally contain more than
their proportionate share of venereal disease. The causes of
venereal disease are many: the lack of education, ignorance, and
poor health conditions. These are the conditions generally found
in substandard housing areas. A three year record of cases
15
reported during the period, 1966-1968, was obtained from the
Transylvania County Health Department and recorded on the map
on p age 1 8
.
Tube r cu 1 o s i s
Although it is difficult to establish a strong correlation
between blight and tuberculosis, it has long been accepted that
many tuberculosis cases are associated with housing which has
poor ventilation, poor heating, and inadequate sunlight. In-formation
obtained from the County Health Department indicates
that tuberculosis cannot be related to the substandard housing
in Brevard since only one case was reported.
Infant Mortality
Infant mortality, or death within the first year of life
of a live-born infant, is an excellent indicator of the health
status of a community. Inadequate housing, heating, diet, and
sanitary facilities are factors contributing to infant mortality.
While there may be unique circumstances surrounding any parti-cular
infant death, rates of infant mortality in different areas
will generally reflect the character of their respective physical
and social environments. The map on page 18 indicates the resi-dence
of the mother in infant mortality cases.
Public Assistance
Certain forms of economic dependencies are known to reduce
a number of residents of the community to the peonage of slum
tenancy. Found in every city and town, often in large numbers,
are people who are economically underprivileged such as those
who are on relief, physically handicapped, or disabled and
members of the elderly community who have long passed the peak
of earning power. The connon denominator shared by all three
is their financial dependency upon the public for support, with-out
which these underprivileged few may have difficulty in stay-ing
above the bare subsistence level in this affluent society
of ours .
16
Information on the active welfare case load as of February,
1969, for cases located within the Brevard Study Area was
obtained from the Transylvania County Welfare Department. As
can be seen, there is a direct relationship between public assist-ance
cases and the substandard housing areas.
Structural Fires
Although fires occur irrespective of social or economic
status, they do tend to occur more frequently in neighborhoods
which contain older wooden structures, high population and build-ing
densities, faulty electrical wiring, and unsafe heating
device s .
Fire originating from a residential lot generally results
from any one or the combination of the following causes: (1)
carelessness of the occupants, (2) pranks of youngsters, or (3)
malfunctioning of the obsolete household equipment and deteriora-tion
of the wiring of the older structures. The last factor may
well be regarded as an indicator of physical blight whereas the
other two, if incidence of which should become rampant, may be
regarded as symptons of social blight due to the nature of the
residents' social modes of behavior.
From information received from the Brevard Fire Department
,
the location of major structural fires was platted on the map on
page 18. From this information, it is obvious that the inci-dence
of fire calls is directly related to the substandard housing
are as
.
CHARACTERISTICS OF FAMILIES AFFECTED BY SUBSTANDARD HOUSING
Blight or substandard housing is essentially a combination
of physical, social, and economic deficiencies. It combines the
most adverse physical environment with people who, in most cases,
are the least able to resist or ameliorate it. Consequently,
the "slum" becomes a maze of indistinguishable causes and
symptoms. Blighted areas often serve as a refuge, temporary
17
though it may be, for the socially unacceptable and maladjusted
individual. However, the reasons for the blight areas' existence
are much more complex.
There are several social and physical characteristics of
blighted areas that set them apart from the more stable and well-adjusted
sections of the community. Information concerning the
characteristics of families affected by substandard housing is
necessary in order to determine what is needed to improve such
conditions and also in planning the future housing needs of those
families. This information is also essential in providing a
clear understanding of the problems and capabilities to meet these
problems
.
In compiling these characteristics, two sources of informa-tion
were used. The exterior structural survey provided basic
facts concerning housing conditions. The remaining information
such as employment, income, sanitary facilities, race, sex, and
age was obtained from a 25 percent sample survey of families
living in substandard housing conducted by the Western North
Carolina Regional Planning Commission in March, 1969.
Occupancy Characteristics
Home ownership is as strong or stronger for occupants of
substandard housing as it is for standard housing. Sixty-five
percent of the families living in sub-standard structures are
home owners compared to the 1960 census figure of 49.4 percent
for all structures in the Town of Brevard.
Contract rent is $28.00, some $15.00 lower than the Brevard
average of $43.00 reported in the 1960 census. Average rent for
non-white families ($25.00) is about $5.00 lower than for white
f ami lies ($30 .00)
.
I nc ome
The income of the families resideing in substandard housing
is significantly below that of the Town of Brevard. This factor,
19
along with lower educational leve
continued existence of blighted h
ctures and relocation of resident
problem of blight without being c
tive programs of human and social
compares income statistics found
sample survey.
Is, is the major cause for the
ousing. Demolition of stru-s
cannot completely solve the
omplimented with equally effec-renewal.
The table below
in the 1960 census and the
TABLE II
FAMILY INCOME STATISTICS
Family Income % 1960 Census March, 1969
% Sample Survey
0-$l,999 14.7 38.1
$2,000-$2,999 8.0 23.8
$3 , 000-$4, 999 28.9 23.8
$5,000-$6,999 16.0 14.3
$7 , 000+ 32 . 4 __-
TOTAL 100.0 100.0
Many of these residents are unemployed or are dependent
upon welfare. Often through no fault of his own, the slum
dweller is not prepared socially, educationally, or physically
to compete in a labor market of increasing complexity and rising
standards of skill
Race
Unlike most cities, blighted area occupants in Brevard are
not made up entirely of Negroes. The sample survey revealed that
approximately 57 percent of the substandard housing in the town
is occupied by Negroes and 43 percent by whites. It should be
noted, however, that the Negro substandard housing areas are more
20
dilapidated than the white housing.
The following table represents the results of the remain-der
of the survey dealing specifically with housing conditions
and facilities.
TABLE III
SUBSTANDARD HOUSING EQUIPMENT INVENTORY
ALL SUBSTANDARD STRUCTURES 166
Water Supply
Hot and Cold Inside Dwelling 43%
Cold Water Only 57%
Toilet Facilities
Flush Toilet Inside 86%
Outside Privy 14%
Bathing Facilities
Bathtub or Shower 48%
No Bathtub or Shower 52%
Number of Rooms
Average Number of Rooms 4.9
Sewage Disposal
Public System 98%
Septic Tank or Cesspool 2%
Value of Structure
Less than $5,000 86%
$5,000 - $9,999 14%
$10,000 - $15,000
$15,000 +
Source: Western North Carolina Regional Planning Commission 25%
Sample Survey (42 structures out of a total 166 were
surveyed). March, 1969
21
CHAPTER 3
PROGRAM FOR COMMUNITY IMPROVEMENT
As the preceeding analysis has shown, the processes which
work to originate and perpetuate blight are numerous and com-plicated.
In order to successfully combat these conditions,
Brevard must initiate a comprehensive and coordinated approach
to the problem. It must attack not only the manifestations of
blight but also its causes. Brevard's overall strategy in this
"war against blight" should consider two basic approaches to th<
problem.
1. Protection of Basically Sound Areas
2. Elimination of All Existing Blighting Conditions
PROTECTION OF BASICALLY SOUND AREAS
The protection of the basically sound areas in Brevard is
essential if the town's objective of a blight free community is
to become a reality. Once adequate steps have been taken to
prevent the spread of blight into stable areas, the problem of
attacking existing blight can be initiated. If these steps are
not taken, however, the familiar scene of blighted housing will
always be visible in Brevard.
City Codes And Ordinances
Adequate codes and ordinances, vigorously enforced, are
all important means of preventing the occurrence and spread of
slums and blight--one of the most valuable achievements, in the
long run, for the entire program. Without adequate codes and
enforcement a community may be permitting shoddy construction
below minimum levels of health and safety. By enforcing anti-quated,
restrictive regulations a community is increasing the
cost of housing
.
Two principal types of regulations, essential to every
community, establish:
22
...standards for new construction, assuring structural
strength, reasonable safety from fire, and proper plumb-ing,
electrical and heating installations. These include
a Building, Plumbing, Electrical and Fire Prevention
Code. These codes normally apply to all new construction,
including alterations and major repairs.
...standards for existing housing, which prescribe the
minimum conditions under which a building, or parts of
it, may be lawfully occupied as a dwelling. Housing re-gulations
set standards for occupancy to prevent over-crowding,
for basic sanitary facilities, for light and
ventilation, for maintenance, and for heating where
climatic conditions warrant. These standards should
apply to all existing, as well as new dwellings and
dwelling units. They may be enacted as a separate code
or may be contained in other codes, ordinances, or re-gulations.
The broad and general nature of many of these
standards are more clearly defined and amplified in the
construction codes.
The codes that are adopted and enforced will affect every
family and every piece of improved property in the town. It is
essential that the regulations developed be workable in the local
situation and effective as minimum standards of health and safety.
Continuing and systematic enforcement of the town's
Housing Code and associated building codes is an essential part
of the program to combat blight. Wherever feasible, the town's
continuing program should be supplemented and accelerated by use
of federally aided Concentrated Code Enforcement projects which
will be discussed later.
Development Planning And Regulation
This treatment is recommended primarily for Study Area
6. In this area, no critical blighting conditions exist or the
effect of existing blight is negligible because of the scattered
nature of the structures. The primary concern is to prevent
23
blight by planning for the orderly growth of vacant land and to
eliminate and retard the nominal amount of existing blight as
sound development encroaches upon, isolates, and displaces such
conditions. The town has at its disposal the same tools as
utilized in the code enforcement program previously mentioned.
Zoning
Zoning is the most important legal control for regulating
and guiding the use of land. Zoning 1 s purpose is to protect the
public health, safety, and general welfare. This it does if
properly administered through requiring appropriate land use
patterns, desirable densities, ample open space, sufficient lot
size, off-street parking and other land use controls. Any one
of these factors, if inadequate, can contribut to blighting
conditions
.
Subdivision Regulations
Many existing problems exist because of the lack of
adequate subdivision control in the past. Lack of continuity
to the street system, creation of unusable parcels, small lots,
narrow streets, hazardous streets, and unsafe intersections are
but a few of the problems inherited from the past.
Land outside the city limits in the extraterritorial area
is where the majority of future development will occur. This
outlying land is the neighborhoods of the future, and its pro-tection
by subdivision controls is even more important than the
densely developed sections where future subdivision activity is
limited.
ELIMINATION OF ALL EXISTING BLIGHTING CONDITIONS
The most forceful actions available for combating blight
are those made possible through federal aid under Title I of the
Housing Act of 1949 as amended. Under Title I programs, it is
possible to clear a slum area completely and rebuild it with
new patterns of land use, streets, and utilities. It is also
2 4
possible to rehabilitate areas that are not completely dilapi-dated,
clearing selectively those portions that either are not
capable of rehabilitation, that contain adverse environmental
influences, or that are necessary in order to provide needed
open space or community facilities.
The existence of a relatively large percentage of sub-standard
residences in specific areas of Brevard indicate that
a need for some type of urban renewal treatment does exist. An
urban renewal program is designed to:
1. Prevent the spread of blight into stable areas.
2. Rehabilitate areas that cannot be economically re-stored.
3. Clear and redevelop areas that cannot be saved.
These general types of urban renewal approaches are de-signed
to accomplish these objectives. They are:
1. Conservation.
2. Rehabilitation.
3. Redevelopment.
Conservat ion
Conservation is the treatment recommended for areas where
desirable environmental conditions exist and blighting factors
are relatively non-existent. Typically, this treatment is pro-posed
for stable, sound areas in which the only blight preventa-tive
action needed is to maintain and strengthen the existing
situation. These areas should remain in good condition with
strict code enforcement, sound zoning and subdivision controls,
intelligent comprehensive planning and continued interest by pro-perty
owners.
25
Rehabilitation
Rehabilitation is applicable to areas in which buildings
are generally in structurally sound condition, but have deter-iorated
because of neglect of maintenance (including repairs and
necessary periodic replacements such as roofing, siding, etc.)
or in which there are conditions that are likely to cause such
deterioration. Rehabilitation should only be proposed for areas
which are economically feasible for restoration and should not
be undertaken if the area exhibits such adverse environmental
deficiencies such as severe land use conflicts which cannot be
eliminated or corrected by the proposed program.
Rehabilitation project action would include spot clearance
of structures rated critical, renovation and modernization of
salvable sub-standard structures, intense code enforcement, pro-vision
of needed street, utility, education and recreation facili
ties, clearance and relocation of incompatible uses and other
measures needed to correct blighted conditions. Successful re-habilitation
project action will halt the spread of blight and
prevent the inevitable necessity for more costly clearance and
redevelopment projects.
Re de ve 1 opment
Redevelopment is proposed when the area does not provide
safe and adequate shelter, and, in its present condition, en-dangers
the health, safety, and well-being of the occupants.
Buildings are generally in a seriously deteriorated condition,
or the arrangement of buildings and general development of the
area is such that the area does not and cannot provide satis-factory
living conditions or opportunity for sound economic
activity, whichever the case may be.
This type of action involves the acquisition of substand-ard
land and structures, demolition of non-salvable structures
26
and incompatible uses, site clearance, reuse planning in accord-ance
with the comprehensive plan and re-sale and redevelopment
of land for its most appropriate use.
Concentrated Code Enforcement
In addition to the above-mentioned Title I urban renewal
projects or treatments, the Housing Act of 1965 initiated a new
federally-aided program entitled "Concentrated Code Enforcement."
This program is designed to restore basically sound areas and
prevent declining areas from becoming slums. The federal govern-ment
will provide thr ee- f our th s of the cost of planning and
carrying out a Concentrated Code Enforcement Program for communi-ties
with a population of 50,000 or less, according to the 1960
Census. Under the program, eligible costs for federal participa-tion
include expenditures for planning, administration, and con-struction
of the following public improvements:
1. Streets, except expressways and other limited access
streets.
2. Curbs, gutters, and public sidewalks.
3. Traffic lights and signs.
4. Fire and police communications systems (stationary
only) .
5. Street tree planting.
6. Street name signs.
In addition to the above public improvements, the federal
government will assist the property owners in the following
manner :
1. Eligible families, individuals, businesses, and non-profit
organizations that are displaced because of the
27
code enforcement program will
entire cost of relocation.
be compensated for the
2. Eligible property owners will receive direct $1,500
grants, and three percent loans for financing the re-pair
work necessary to make their property conform to
code requirements.
To qualify for the federally assisted Concentrated Code
Enforcement Program, a proposed area must meet the following
criteria:
1. It must be a predominantly residential area in character.
2. At least 20 percent of the buildings must be in viola-tion
of any one or combination of the building, plumb-ing,
electrical, fire prevention, zoning, or minimum
housing codes.
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CHAPTER 4
PROBLEM AREA ANALYSIS
The preceding chapters have summarized the major findings
of the Brevard Neighborhood Analysis and have pinpointed the
major housing and social problem areas as Study Areas One and
Two, and the one-mile extraterritorial area. It is the purpose
of this chapter to discuss only these areas in detail and present
feasible corrective measures.
STUDY AREA ONE
Study Area One contains without question the worst housing
conditions found in the town. Most of the substandard and dilapi-dated
structures are concentrated in the Oakdale Street and Mills
Avenue areas. Of major concern is the relatively large number
(88) of residential structures requiring minor repairs. This is
a condition which is to be expected with a large number of
structures classified as critical in the area. Proximity to
structural deterioration and dilapidation decreases the home-owner's
desire to maintain and improve his property.
TABLE IV
HOUSING CONDITIONS - STUDY AREA ONE
Condition Number of Structures Percent
Sound 133 42 . 4
Minor Defects 88 24.9
Major Defects 41 13.0
Critical 51 19 . 7
TOTAL 313 100.0
Source: Survey conducted by the Western North Carolina Regional
Planning Commission. October, 1968
29
This area is also the Negro community of Brevard. Low in-comes
and low educational attainment in the area increases the
problem and complicates the solution.
The deteriorating structural conditions found in Study Area
One are caused by a number of factors which include:
High percentage of substandard structures with an in-tensive
concentration in several areas.
Scattered clusters of overcrowded conditions.
Lack of recreation facilities.
Poorly platted, narrow lots throughout the area.
Poor structural and site maintenance.
Uncontrolled outside storage in the residential
sections
.
The town's highest incidence of social conditions re-flecting
blight. Such conditions are located through-out
the Study Area.
- Inadequate traffic pattern and a large number of
streets which are too narrow, badly aligned, and un-p
ave d
.
General obsolescence and ugliness throughout the Study
Are a
.
RECOMMENDED RENEWAL TREATMENT; Study Area One:
There is hardly a block in Study Area One where structural
deterioration is not visible in one stage or another.
The necessary corrective action in Study Area One involves
all three degrees of renewal treatment - conservation, rehabilita
tion, and redevelopment.
In addition to physical renewal as prescribed above social
30
renewal must take pi
never be eliminated,
should be instituted
ace concurrently, or the total problem will
Job training and adult education programs
for residents in the town.
STUDY AREA TWO
Study Area Two may be called Brevard's number two major
housing problem area. Structural conditions have not, however,
reached the serious condition they have in Study Area One. The
results of the exterior structural survey revealed 17.1 percent
of the area's structures are either dilapidated or require major
structural repairs. As in Study Area One there is a large number
of structures which require minor repairs and unless these re-pairs
are made more expensive corrective action will be necessary
in the future. Structural deterioration is evident throughout
the study area with no large or major concentrations of sub-standard
housing.
TABLE V
HOUSING CONDITIONS - STUDY AREA TWO
Condi tion Number of Structures Percent
Sound 139 44. 7
Minor Repairs 119 38.2
Major Repairs 40 12.9
Critical 13 4.2
TOTAL 311 100.0
Source: Survey conducted by the Western North Carolina Regional
Planning Commission, October, 1968.
Blighting factors in Study Area Two are numerous and in-clude
the following:
Several small pockets of substandard housing.
31
Lack of adequate recreation facilities to serve the
residential sections.
Instances of mixed land use throughout the area.
- Structures constructed without the necessary minimum
standards resulting in premature deterioration.
Poor subdivision design--if any.
Poor street conditions.
Lack of maintenance and upkeep by property owners.
General run-down appearance of much of the area.
RECOMMENDED RENEWAL TREATMENT: Study Area Two
Substandard structures are located throughout the area
with the largest concentrations found in the Whitmire and
Kilpatric Street areas. These two areas although they do not
contain a large number of structures represent pockets of blight
which must be eliminated. Intense code enforcement is needed
throughout the area to retard substandard conditions and elimi-nate
the buildings which are beyond repair.
It is recommended that the federally assisted program of
concentrated Code Enforcement be applied to most of Area Two.
Except for two small sections, conditions in Area Two are not
severely blighted.
STUDY AREA SIX
Study Area Six comprises the one-mile extraterritorial
Planning Area of Brevard. A diversity of housing types and
conditions is found in Area Six. Housing is a mixture of new
and old structures, low and high priced dwellings and sound and
deteriorating conditions. There are no large concentrations of
substandard hous ing; condi t ions reflect the rural character of
the area and development for the most part is scattered and
limited to the major access routes.
32
TABLE VI
HOUSING CONDITIONS - STUDY AREA SIX
Condi tion Number of Structures Percent
S ound 688 81.4
Minor Defects 87 10.2
Major Defects 32 3.8
Critical 39 4.6
TOTAL 846 100.0
Source: Survey conducted by the Western North Carolina Regional
Planning Commission, October, 1968.
Blighted conditions in Study Area Six are due mainly to
governmental neglect. The following factors have contributed to
the blighting process, all of which could be prevented with proper
governmental action:
Poor structural and site maintenance in several areas.
Uncontrolled outside storage at several residential
locations including unsightly automobile junk yards
and haphazard abandonment of automobiles.
Scattered dilapidated and deteriorating housing.
Poor subdivision standards in recently developed areas.
Scattered instances of mobile homes mixed into single
family residential areas.
Lack of building and housing codes and enforcement.
RECOMMENDED TREATMENT: Study Area Six
The scattered pattern of dilapidated structures in Study
33
Area Six eliminates the possibility of Federally assisted urban
renewal as a corrective measure. Instead it necessitates a com-prehensive
action program at the county or municipal level in the
form of code enforcement. The adoption and enforcement of county
building and housing codes is essential if substandard housing
is to be eliminated in Study Area Six. Strict enforcement of the
town's Zoning Ordinance and Subdivision Regulations is also im-portant
to ensure future development will take place on a sound
basis.
34
GENERAL RECOMMENDATIONS
This report, a study of blight, has not been confined to
structural blight, but has included human blight as we 1 1
.
Future town renewal efforts, geared to the conservation, re-habilitation,
and redevelopment of existing substandard units
will have to be designed to counteract both physical and social
blight at the same time. These two lines of action working to-gether
will benefit each other. One without the other would be
seriously deficient and doomed to failure.
This study has been written in a way so as to demonstrate
that space in the physical sense has a connection with issues of
human welfare, such as room for personal growth, economic
opportunity and social participation.
Economic opportunities are basic. What happens to welfare
problems depends to a great extent upon the growth rate of the
national economy and local planning for new industry and for
employment diversity. The needs for job training or retraining,
adult education, and increases in social services for low-income
people are clear. Furthermore, these efforts will have to be
undertaken on a scale unprecedented in Brevard's past.
School, church, and neighborhood service programs involv-ing
young and old must be created and/or expanded. These pro-grams
must aim at helping people to help themselves advance
economically. The skills required for urban living, the work
habits and motivation necessary for employment will not come
suddenly, but deliberate educational efforts in lieu of counsels
of patience will speed the process. Nothing short of planned
programs will succeed, for personal habits and cultural patterns
will not change automatically even with improved housing and
higher income.
By setting as the highest priorities, the fulfillment of
individual potentialities, creation of fuller social and
economic opportunities, and development of skills needed for
35
enlarged opportunities, we will hopefully be fostering human
capital capable of freeing itself from undesirable environmental
situations. This determination does not mean we need less
quality housing, good roads, and better community facilities;
rather, it means these things can be realized more effectively
if we concentrate on assisting people to help themselves.
Housing redevelopment must not only rehouse families in
equal or better quarters; it must also help to accomplish the
solution of other problems, such as poverty, unemployment and
inadequate education.
The public's image of urban renewal is generally that of
the bulldozer clearing extremely blighted slum areas. This is,
however, only one of many possible approaches to urban renewal.
That Brevard has areas with varying degrees of blight, is
verified by the Study Area Analyses. These varied problems re-quire
a comprehensvie renewal program which attacks environmental
blight from many different directions. An approach limited to
a single clearance project or two will not successfully eliminate
or prevent the extension of blight and slums.
Housing
One factor contributing t o th e continuance of bligh ted
are as invo Ives th e lack of avai labl e rental hous ing--p ar
t
i cu 1 ar
iy that wh ich can be classified a s "s tandard." An analys is of
the s amp 1
e
survey revealed that 61 . 9 percent of the famil ie s
int e rvi ewe d earne d under $3,000 annua lly. This figure is in-dicative
of the income level of those who now live in sub-standard
housing. Rental units which this group can afford are
almost non-existent except for the shacks in which they now
reside* Housing within the price range of this income group is
an urgent need
.
Maintenance should be improved in order to prevent stand-ard
housing from becoming substandard. Painting and minor
36
1
repairs to windows, doors, porches, floors, etc., could help
improve many units. Dilapidated housing should be condemned and
removed when vacated. The city's code enforcement program can
work favorably in this respect. Also, vacant dilapidated non-residential
buildings should be removed from residential areas.
Maintenance and removal should be coordinated with fix-up, clean-up
campaigns and other similar projects.
Environment
Strict enforcement of the existing zoning ordinance, sub-division
regulations, building and housing codes, provision of
recreation areas (particularly in close proximity to the blighted
housing), implementation of the thoroughfare plan and the associated
diversion of heavy traffic, will improve the present environmental
conditions.
Other needed environmental improvements include those in-volving
minor streets, sidewalks, curbs, gutters, street lighting,
landscaping, plants, signs, etc. These "features" are most notice-ably
inadequate in areas of substandard housing. Area beautifica-tion
projects would certainly help improve these areas as would
enforcement of housing, building and related codes.
These improvements could be done entirely at the local level
or with assistance from federal agencies. One example of outside
aid which could be utilized to improve environmental conditions
is the Open Space Land Program. This program provides up to 50
percent in matching grants to public bodies for acquiring,
developing, and preserving open space land for permanent public
use, thereby helping to prevent residential sprawl and the spread
of blight and providing recreation, conservation, and scenic areas.
Another example of federal aid available is financial assist-ance
available for the development of parks, malls, walks, street
lighting, landscaping, tree planting, and other aids to beautifica-tion.
Eligibility is based on existence of a Beautif ication Plan.
37
A third example of aid (available from the Department of
Housing and Urban Development) involves code enforcement. Under
this program, cities and counties may obtain financial assistance
(up to three-fourths of program cost) to plan and administer
concentrated code enforcement programs in selected local areas.
This program was explained in detail in Chapter 3. These programs
are both remedial and preventive, such as restoring properties
and their environments to decent and standard conditions and
arresting future deterioration.
Urban Renewal Projects Are Needed
The concentrations in several areas of the substandard and
deteriorating housing indicate the potential of federally aided
urban renewal projects. The ex t e ns i vene s s and the intensivene ss
of the dilapidation by and large rule out the feasibility of local
privately financed rehabilitation of these blighted areas. The
total lack of salvage value of the vast majority of these sub-standard
residential structures, warrants, and justifies, their
timely physical removal.
The boundary limits of these projects should not stop short
at the delimited slum. The graying fringe areas immediately
adjacent ought to be included as well for the purpose of a more
comprehensive solution to encroaching blight.
Government Financed Housing For The Low Income Families Is Needed
Operating in concert with the local renewal efforts should
be the Public Housing Program in Brevard. Should the recommended
renewal programs become a reality, a considerable number of the
low income residents will be displaced, monentarily or permanently
The timely creation of a better physical environment for the
accommodation of the displaced, is therefore, a necessary con-current
step in carrying out the town's renewal program.
The task of physically providing a decent living environ-ment
for the large number of displaced slum dwellers is far more
38
complicated than it is
provide home ownership
fully explored.
generally realized. Federal Programs which
such as the Turnkey III program should be
In addition, the Brevard Housing Authority will start con-struction
of 100 units of public housing sometime during the
summer of 1970. Forty of these units will be designated for the
elderly and the remaining 60 units will be for low income families
The units will be scattered in four different locations, however,
they all will be located in Study Areas One and Two. The anticip-ated
project cost is 1.5 million dollars
Social Programs Are Needed
It is recommended that a complement of facilities and pro-grams
aimed at upgrading the people as well as the environment to
provided in the areas where slum residents are to be relocated.
Simply to move a person from a shack to a standard dwelling unit
is not enough. That person must be educated and taught that he
too can contribute to society.
Brevard can become a community without areas of blight and
substandard housing. A day is foreseen when none of its citizens,
black or white, will find it necessary to live in deteriorating
housing lacking the basic utilities such as hot and cold running
water, sanitary facilities, or electricity.
The stimulation of a comprehensive program of action on a
broad front to eliminate and prevent blight is the purpose of this
report. The elimination of blight is a matter of vital concern
and benefit not only to the people who occupy the substandard
housing, but to the entire community.
39