CDBG Village Renaissance Revitalization Plan for The Big Mill

Transcription

CDBG Village Renaissance
Revitalization Plan for
The Big Mill Village of Gaffney, SC
February, 2012
South Carolina CDBG Village Renaissance Award: 4-V-10-007
Contents
Disclaimer..........................................................................................................................................5
Executive Summary............................................................................................................................7
Section I: Introduction to Grant Process ........................................................................................... 11
The Village Renaissance Grant Award .................................................................................................... 12
The Citizen-Driven Planning Process....................................................................................................... 14
City Council Updates ........................................................................................................................... 14
Neighborhood-Wide “Open House” Event ......................................................................................... 14
The Neighborhood Advisory Committee ............................................................................................ 16
Section II: Neighborhood History, Condition and Location ................................................................ 19
History of the Mill Village........................................................................................................................ 20
The Mill Village Today: General Challenges and Opportunities ............................................................. 21
Financial Condition.............................................................................................................................. 21
Neighborhood Aesthetics - Housing ................................................................................................... 22
Neighborhood Aesthetics – the Big Mill Site ...................................................................................... 22
Big Mill Village Location and Proximity to Resources ......................................................................... 25
Zoning and Land Use Overview........................................................................................................... 26
Section III: Neighborhood Involvement and Interaction .................................................................... 27
Resident Feedback on Neighborhood Involvement and Interaction...................................................... 28
Neighborhood Buy-In and Ownership .................................................................................................... 29
Neighborhood Organization ................................................................................................................... 30
“Sow Me the Seeds” Day ........................................................................................................................ 31
Creating a Neighborhood “Brand” .......................................................................................................... 32
Strategic Plan .......................................................................................................................................... 32
Grant Program Desired Outcome ....................................................................................................... 32
Advisory Committee Goals.................................................................................................................. 32
Supportive Findings............................................................................................................................. 32
Recommendations .............................................................................................................................. 33
Time Frame ......................................................................................................................................... 33
Responsible Party................................................................................................................................ 33
Partners ............................................................................................................................................... 33
Section IV: Neighborhood Crime ....................................................................................................... 35
Resident Feedback on Neighborhood Crime .......................................................................................... 36
Crime Data from the Gaffney Police Department .................................................................................. 36
By Year ................................................................................................................................................ 37
By Type ................................................................................................................................................ 38
By Street .............................................................................................................................................. 39
Summary Analysis ................................................................................................................................... 40
Strategic Plan .......................................................................................................................................... 41
Grant Program Desired Outcomes ...................................................................................................... 41
Advisory Committee Goal ................................................................................................................... 41
Time Frame ......................................................................................................................................... 42
Responsible Parties ............................................................................................................................. 42
Partners ............................................................................................................................................... 42
Section V: Neighborhood Housing and Physical Appearance.............................................................. 43
Resident Feedback on Housing and Physical Appearance ...................................................................... 44
Housing Data from the Windshield Assessment..................................................................................... 46
Sufficient External Condition .............................................................................................................. 46
Minor Repair ....................................................................................................................................... 46
Major Repair ....................................................................................................................................... 46
Proposed Target Area Map for CDBG Housing Improvements .............................................................. 47
Photographic Display of Housing Condition ........................................................................................... 49
Major Repair Homes ........................................................................................................................... 49
Minor Repair Homes ........................................................................................................................... 49
Sufficient External Condition Homes .................................................................................................. 49
Demolition Homes in the Study Area ..................................................................................................... 50
Code Enforcement .................................................................................................................................. 51
Strategic Plan .......................................................................................................................................... 53
Time Frame ......................................................................................................................................... 54
Partners ............................................................................................................................................... 54
Section VI: Neighborhood Public Facilities........................................................................................ 56
Resident Feedback on Public Facilities ................................................................................................... 57
Study Area Sidewalks .............................................................................................................................. 58
Study Area Street Lights.......................................................................................................................... 60
Security Cameras .................................................................................................................................... 62
Neighborhood Beautification Gateways ................................................................................................. 62
Strategic Location Map for Street Lights, Security Cameras, and Gateways .......................................... 62
Public Places for Meeting and Recreation .............................................................................................. 64
Walking Trail Project ............................................................................................................................... 65
Strategic Plan .......................................................................................................................................... 67
2
Gaffney Village Renaissance Plan
Time Frame ......................................................................................................................................... 68
Partners: .............................................................................................................................................. 68
Section VII: Neighborhood Infrastructure ......................................................................................... 70
Resident Feedback on Infrastructure...................................................................................................... 71
Professional Assessment of Infrastructure ............................................................................................. 71
Water .................................................................................................................................................. 72
Sewer .................................................................................................................................................. 72
Drainage .............................................................................................................................................. 72
Roads................................................................................................................................................... 72
Strategic Plan .......................................................................................................................................... 73
Grant Program Desired Outcome ....................................................................................................... 73
Advisory Committee Goal ................................................................................................................... 73
Time Frame ......................................................................................................................................... 74
Responsible Parties ............................................................................................................................. 74
Partners ............................................................................................................................................... 74
Section VIII: Conclusion ................................................................................................................... 75
Conclusion ............................................................................................................................................... 76
Section IX: Summary List of Strategic Plans by Topic ......................................................................... 77
Neighborhood Involvement & Interaction.......................................................................................... 78
Neighborhood Crime........................................................................................................................... 79
Neighborhood Housing and Physical Appearance .............................................................................. 80
Neighborhood Public Facilities............................................................................................................ 81
Neighborhood Infrastructure .............................................................................................................. 82
Appendix I: Open House Flier and Newspaper Advertisements ......................................................... 83
Appendix II: Open House Residential Survey and Results.................................................................. 87
Appendix III: Advisory Committee Strengths-Weaknesses-Opportunities-Threats (S.W.O.T.) Analysis 93
Appendix IV: Police Report of 2009 Homicide on Mary Bramlett Alley .............................................. 95
Appendix V: Gaffney Police Department Letter Summarizing the Need for Security Cameras ............ 97
Appendix VI: Environmental Review Record .................................................................................... 99
Appendix VII: Low-to-Moderate Income Survey Determination ...................................................... 101
Appendix VIII: Comprehensive Needs Assessment and Prioritization ............................................. 103
Disclaimer
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4
Disclaimer
This report was prepared with the support of the South Carolina Department of Commerce, Community
Development Block Grant Program. However, any opinions, findings, conclusions, or recommendations
expressed herein are those of the author and do not necessarily reflect the views of the Department of
Commerce.
Assurances of Non-Discrimination (U.S. Department of Labor,
Executive Order 11246, and Section 504 of the Americans with
Disabilities Act)
This report was prepared by the South Carolina Appalachian Council of Governments working under
contract for the City of Gaffney. Preparation of this report was supported by the federally funded
Community Development Block Grant program as administered by the South Carolina Department of
Commerce – Grants Administration. Future projects outlined in this report may also be supported by
the Community Development Block Grant program. As such, both the City of Gaffney and the
Appalachian Council of Governments will continue to carry out the plan in conformance with the Civil
Rights Act and related laws that prohibit discrimination on the basis of race, color, religion, sex,
national origin, familial status, age, or disability.
The City of Gaffney and the Appalachian Council of Governments will also continue to work in
conformance with Section 504 of the Rehabilitation Act of 1973, as amended, on projects supported by
the Community Development Block Grant program. The City of Gaffney and the Appalachian Council of
Governments agree that no otherwise qualified individual with disabilities shall, solely by reason of his
disability, be denied the benefits, or be subjected to discrimination including discrimination in
employment, any program or activity that receives the benefits from federal Assistance.
Disclaimer
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6
Executive Summary
The following Strategic 5-Year Revitalization Plan for the “Big Mill Village” of Gaffney, South Carolina:

Is the product of a Community Development Block Grant (CDBG) Village Renaissance Planning
Award provided to the City of Gaffney by the South Carolina Department of Commerce (DOC)
on December 6, 2010;

Was prepared by the South Carolina Appalachian Council of Governments (ACOG) who worked
under contract for the City of Gaffney;

Is the product of a citizen-driven planning process which involved guidance from the entire
neighborhood and from a neighborhood Advisory Committee which met monthly with ACOG
and City staff throughout 2011;

Describes the history, condition and location of the Big Mill Village, as well as its current
problems associated with (1) the deteriorated condition of housing, (2) rising crime, (3)
increasing poverty, (4) aging public facilities and infrastructure, and (5) a shortage of
neighborhood involvement and interaction;

Describes the strategic goals developed by the Neighborhood Advisory Committee as they
correspond with the desired outcomes of the Village Renaissance program;

Recommends comprehensive strategies, time frames, responsible parties, and potential
partners for producing long-term revitalization solutions in the Big Mill Village.
The following page of this Executive Summary is a table of recommended capital projects for future
CDBG Village Renaissance funding consideration. The order of projects shown in this table reflects
discussions between the City and DOC on aligning neighborhood needs with eligible fits of the SC CDBG
program. These projects are only recommended at this point in time and are still subject to review by
DOC in the form of a CDBG grant application submitted by the City on 02/29/2012. Following the table
are two maps which display the proposed activities of each phase. The combination of projects outlined
in this table intends to provide a comprehensive investment which will ultimately enable long-term
revitalization in the Big Mill Village.
Executive Summary
7
City of Gaffney CDBG Village Renaissance Improvements:
Cost Breakdown & Timeline
Phase I
Time Frame
Activity
Cost Estimate
2011
Citizen-Driving Neighborhood Planning Process
$27,500
Funding Source
$25,000 – CDBG
$2,500 – City Match
Phase II
Time Frame
2012 - 2013
Activity
Drainage culvert improvements on Oak Street
near the Sub-Basin of People’s Creek
Installation of sidewalks on the southern and
eastern borders of the Mary Bramlett
Elementary School, both high foot-traffic
roadways currently without sidewalks.
Demolition of eight (8) unsafe, dilapidated and
abandoned homes near the old Big Mill
Site/New County Administrative Complex
Installation of six (6) strategically placed
neighborhood security cameras
Design and implement four (4) strategically
placed
“neighborhood
gateways”
with
welcome signage, landscaping & irrigation for
improved beautification and pride
Project Engineering
Grant Administration
Total Phase II Cost Estimate
Cost Estimate
Funding Source
$179,800
CDBG
$184,700
CDBG
$37,000
CDBG
$40,660
$20,500 – CDBG
$20,160 – City
$29,840
City of Gaffney
$48,000
$30,000
CDBG
CDBG
$500,000 – CDBG
$50,000 – City
$550,000
Phase III
Time Frame
Activity
Replace deteriorated 4” water line on Oak
Street with new 6” line to improve water
pressure and fire protection
CDBG Housing Façade Improvements
2014-2015
Grant Administration
Housing Project Management
Project Engineering
Total Phase III Cost Estimate
8
Cost Estimate
Funding Source
$100,000
CDBG
TBD
TBD
TBD
TBD
TBD
CDBG
CDBG
CDBG
City of Gaffney
CDBG
Executive Summary
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Section I: Introduction to
Grant Process
Section I: Introduction to Grant Process
11
The Village Renaissance Grant Award
On December 6, 2010, the City of Gaffney received a $25,000 Community Development Block Grant
(CDBG) award from the South Carolina Department of Commerce (DOC) for the purpose of producing a
strategic five-year revitalization plan for the neighborhood locally known as the “Big Mill Village”. The
City contracted with the South Carolina Appalachian Council of Governments (ACOG) to help produce
this plan.
The grant award falls under the DOC program entitled Village Renaissance, the purpose of which is “to
assist in the development of sustainable communities through revitalization of in-town
neighborhoods.”1 Successful local government recipients of these Village Renaissance grants apply on
behalf of neighborhoods in need of revitalization which are adjacent to (within ½ mile of) the
community’s downtown or business center. The program involves three possible grant phases: (1) a
neighborhood planning grant of up to $25,000 used to develop a five-year revitalization plan; (2) a
subsequent 24-month “implementation” grant of up to $500,000 for construction activities identified in
the Plan; and (3) another 24-month implementation grant of up to $500,000 for additional activities
identified in the plan. The timeline below outlines the basic structure of three fully funded Village
Renaissance grant phases from 2011 through 2015, though it is important to note that funding for any
phase is not guaranteed:
2011
Citizen-driven plan
development
throughout
year
($25K Grant)
Submit draft plan
to SC DOC in
November; submit
final
plan
in
December;
close
planning grant
Submit Phase II
Grant Application
for Implementation
in December
2012
Receive Phase
Implementation
award ($500K)
2013
II
2014
2015
Construction
Receive Phase III
Implementation
award ($500K)
Construction
Begin construction
in spring 2012
Complete phase II
construction; close
grant award in
December
Begin construction
in spring 2014
Complete phase III
construction
Construction
Submit Phase III
Grant Application
for Implementation
in December
Construction
Close grant award
in December
The five-year revitalization planning grant (Phase I) and subsequent implementation grants (Phases II &
III) aim to achieve the following revitalization outcomes:2


1
2
Improve neighborhood involvement and interaction
Provide neighborhood safety and pride
SC Department of Commerce Grants Administration – CDBG Application Guidelines, 2011-2012, pg. 7
12




Address infrastructure and public facilities needs
Identify in-fill housing opportunities
Improve physical appearance and property values
Promote sustainability and conservation
In order to help achieve these neighborhood revitalization outcomes, the following table includes a list
of possible funding activities for Phases II & III of the Village Renaissance program3:
Possible Areas of CDBG Village Renaissance Funding for Rounds II & III
Public Facilities
Housing
-Sidewalks
-Security Lighting & Cameras
-Police Substation
-Technology
-Public Service Centers designed to address crime
risk
-Walking Trails
-Green Space
-Landscaping
-Infrastructure/Other Activities to Support Workforce
Housing
-Painting of Exterior Facades or Minor Exterior
Repairs
-Exterior Improvements to increase energy efficiency
-Demolition/Clearance
of
Vacant/Dilapidated
Properties
Infrastructure
Public Services
-Water
-Sewer
-Drainage
-Roads
-Crime Watch Program
-Drug or Gang Education, Awareness & Prevention
Programs
Funded Activities
Selection of the activities to be funded over the possible Phase II and Phase III grant awards is the result
of two processes: (1) the citizen-driven planning process of the Phase I grant, and (2) coordination and
negotiation with DOC. Prior to submitting the completed Plan and the Phase II grant application at the
end of Phase I, the local government recipient must submit to DOC a Draft Plan with a list of prioritized
implementation projects. After reviewing the draft, DOC then makes its final recommendation to the
local government about which projects make the best fit for possible Phase II and Phase III funding.
Upon receiving these recommendations, the local government then moves forward with editing the final
Revitalization Plan and submitting the recommended Phase II grant application. Assuming successful
and timely completion of the Phase II implementation project (within 24 months), the local government
may submit a competitive grant application for Phase III projects.
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The Citizen-Driven Planning Process
Allowing citizens to guide the development of this Plan was a key priority for the City of Gaffney. The
citizen-driven planning process was executed at three different levels: (1) periodic updates provided by
ACOG at Gaffney City Council meetings; (2) a neighborhood-wide “Open House” event; (3) an Advisory
Committee of neighborhood stakeholders which met monthly throughout 2011.
City Council Updates
Gaffney’s Mayor and City Council received updates on the Village Renaissance planning process on all of
the following dates. With the exception of the Council Workshop, all of these meetings were advertised
to the general public.






January 13 –Regular City Council Meeting, grant award acceptance and program overview
March 31 – Council Workshop, progress update
July 11 – Regular City Council Meeting, mid-year progress report
October 3 – Regular City Council Meeting, Progress Update
November 7 – Regular City Council Meeting, Draft Plan overview
December – Regular City Council Meeting, review of Final Plan and Phase II Grant Application
for Village Renaissance Implementation.
Neighborhood-Wide “Open House” Event
In order to involve residents of the entire Big Mill Village study area in the planning process, the City of
Gaffney held a publicly advertised “Open House” event.
The Open House was held on Tuesday, February
24th from 5:30 p.m. to 7:45 p.m. at the Mary
Bramlett Elementary School (located inside the
Study Area at 301 Spruce Street). Fliers were
sent to all neighborhood residents and property
owners and the event was advertised two weeks
in advance in both the Cherokee Chronicle and
the Gaffney Ledger.4 The resulting attendance
from these advertising efforts was strong: 82
citizens signed in and it’s possible that more
were present.
4
See Appendix 1 for Open House flier and newspaper advertisements.
14
City officials welcomed attendees and a Village Renaissance program overview was provided by ACOG,
complete with a large aerial map of the neighborhood and a large collage display of neighborhood
images and revitalization concepts. A spirited town hall-style discussion took place about the
neighborhood with many valuable comments and questions coming from residents. The event was
scheduled to last only from 5:30 to 7:00, but the discussion kept the meeting going until 7:45.
th
A 3’ x 4’ print of the above collage was on display at the February 24 Open House. All but two of the photos were
taken in the Study Area, the lone exceptions being the garden and golf shop photo.
15
A survey on neighborhood issues was distributed to all Open House attendees.5 In addition to the
numerous “extra comments” that were hand-written in by respondents, the survey included 28 total
questions on the following subjects:





Neighborhood Involvement and Interaction
Neighborhood Safety and Pride
Neighborhood Infrastructure and Public Facilities
Neighborhood Physical Appearance and Property Values
Guiding the Future of the Neighborhood
The robust survey response from this Open House event provided the City and ACOG with invaluable,
representative neighborhood data for the planning process. Throughout the course of this Plan, data
from this survey will be referenced – particularly in regards to issue identification.
The Neighborhood Advisory Committee
The Gaffney Mayor and City Council appointed an Advisory Committee of eight neighborhood
stakeholders plus three ex officio members to guide the development of this Plan through regularly
scheduled monthly meetings.
5
Name
Stake in the Neighborhood
Mr. Jimmy Dean Blanton
Neighborhood Resident
Ms. Carolyn Lynn Tate
Neighborhood Resident
Mr. Vance Hammond
Neighborhood Non-Profit Director – Boys & Girls Club
Mrs. Audrey McClary
Neighborhood School Principal – Marry Bramlett Elementary
Mrs. Pam Morgan
Neighborhood Cultural Venue – Gaffney Little Theater
Mr. Carlton Blanton
Neighborhood Business Owner – Blanton Cleaners
Mr. Billy Bolin
Neighborhood Property Owner
Mr. Jerry Stevens
Neighborhood Property Owner
Mr. Rick Turner
Gaffney Chief of Police, Ex Officio
Mr. Scott Keller
Gaffney City Engineer, Ex Officio
Mr. Holland Belue
Asst. County Administrator, Ex Officio
See Appendix 2 for copy of the Open House survey and results.
16
The Advisory Committee met on the second Monday of each month throughout the duration of the
planning process. Each member is highly familiar with the neighborhood – whether they grew up there,
live there presently, operate a business there, or direct a neighborhood non-profit or school. Gaffney’s
Police Chief and City Engineer served as ex officio Committee members who attended the meetings and
helped arm Committee members with valuable technical information. As an official helping to oversee
the redevelopment of the old Big Mill site into the new County Administrative Complex, the Assistant
County Administrator also served as a valuable ex officio member.
Like the survey data provided in the neighborhood Open House, the Committee provided outstanding
information which will be referenced throughout the course of this Plan. One particularly helpful
activity the Committee completed was a “S.W.O.T. Analysis”, which helped identify the neighborhood’s
greatest Strengths, Weaknesses, Opportunities, and Threats. Below is a visual display of this analysis.6
The bigger the font of the words, the more emphasis the Committee placed on that idea.
6
A copy of this table is also found in Appendix 3.
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Section II: Neighborhood
History, Condition and
Location
History of the Mill Village
The “Big Mill Village” of Gaffney is nearly as old as the City government itself. The first development in
what ultimately became Gaffney but was then part of the Spartanburg District was a store and tavern
established by a man named Michael Gaffney in 1802. The area became known for its rich deposits of
iron ore and limestone, a fact which led to several furnaces being established there by the 1820’s. In
1872, the Atlanta and Charlotte Airline Railroad built its rail line through Gaffney, which commercially
transformed the community. In March of 1875, the Gaffney community was incorporated as a City
which would grow to a population of 400 residents over the next five years. On the site of the old “Big
Mill” within the Village Renaissance study area, Gaffney Manufacturing Company established the first of
the community’s cotton mills in 1892. This business flourished and expanded rapidly. By the early
1900’s, the Gaffney Manufacturing Company in this Village Renaissance Study Area had become one of
the largest cotton mills in South Carolina.7
The Village Renaissance Study
Area was developed to house
workers
for
the
Gaffney
Manufacturing Company’s textile
mill in the late 1800’s century.
By the early 1900’s, the Gaffney
Manufacturing Company facility
had become on one of the
largest cotton mills in South
Carolina.
The Big Mill employed thousands of citizens in Gaffney over the next 110 years. Like many others mills
in the south just like it, it cultivated a village of homes around it. When its final occupant, Milliken &
Company, ceased operations in the early 2000’s, the neighborhood lost its dependence on a single large
employer for the first time. Shortly afterwards in 2005-2006, the mill was demolished.
7
All historic facts in this section were taken from the National Register of Historic Places Inventory—Nomination
Form, entered March 27, 1986.
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The Mill Village Today: General Challenges and Opportunities
Financial Condition
With the significant amount of job layoffs associated with the closing of the Big Mill as well as with other
manufacturers throughout the area, unemployment and poverty has taken its physical and financial toll
on the neighborhood. The neighborhood evolved around a large employer, who, in the 20th century,
could offer even citizens without an advanced education good enough jobs to feed, clothe and house
healthy families. With its closing, the economic realities for neighborhood residents today are much
more challenging. In a door-to-door income survey executed during the application process for the
Phase I Village Renaissance planning grant in September of 2010, 84% of neighborhood residents
qualified as being of “Low-to-Moderate Income” (LMI), according to U.S. Housing and Urban
Development (HUD) standards. LMI equals 80% or below of an area’s median income. 170 households
out of 206 qualified as LMI, though ACOG was unable to obtain information from several households. If
these households are also of LMI, which is likely, then a higher number than 84% would have qualified.
Even in a rural area of the country with a comparatively high unemployment rate, the Big Mill Village
does not compare favorably in its financial condition. Using its subscription to ESRI, the world’s leader in
Geographic Information Systems (GIS), ACOG performed a Comparative Market Profile Analysis of the
Big Mill Village and its surrounding area. Below is a table of some key findings:
Comparative Market Profile of the Big Mill Village and Surrounding Areas
2010 Data
Big Mill Village
Gaffney
Cherokee County
555
12,582
55,063
38.4%
50.4%
65.5%
34.2 years
38 years
37.9 years
Race/Ethnicity (Yr 2010)
Caucasian – 50.9%
AFAM – 43.3%
Other – 5.8%
Caucasian – 50.9%
AFAM – 45.3%
Other – 2.3%
Caucasian – 75.2%
AFAM – 20.8%
Other – 4%
Average Rent (Yr 2000)
$269 per Month
$283 per month
$288 per month
Median Household Income
$21,897
$35,236
$41,640
Median Home Value
$59,200
$93,402
$91,025
Per Capita Income
$15,325
$20,324
$20,065
25.8%
16.3%
16.2%
45.9%
22.3%
24%
Population
Owner Occupied Households
Age (median Yr 2010)
Unemployment Rate for Age
16+ and in Labor Force
Age 25+, no High School
Diploma
Source: ESRI forecasts for 2010 and 2015; U.S. Bureau of the Census, 2000 Census of Population and housing.
Section II: Neighborhood History, Condition and Location
21
Neighborhood Aesthetics - Housing
The aesthetic condition of the Big Mill Village mirrors its financial condition. The housing stock is aging
quite rapidly, and, as noted above, there is very little residential income to address deterioration. 63.3%
of the neighborhood houses were built in 1969 or before, while another 27.5% were built in 1979 or
before. In sum, 91% of neighborhood homes are at least 30
91% of neighborhood homes are
years old, and most of them much older. The median year in
at least 30 years old, and most of
which all 200+ houses were constructed was 1961.8
them much older. The median
Houses have long shelf lives, and, for many, age is considered
year in which all 200+ houses were
to be a home’s asset, or sign of “character”. The homes in
constructed was 1961.
the Big Mill Village are not without such character. A
frequent subject brought up during Committee meetings was how the old house character of the
neighborhood equals potential for investment – particularly as “young couple starter homes” or as
“patio homes” for retirees.
The photo below is representative of most of
the 200+ mill homes in the study area. It has
the type of potential which Committee
members stressed during meetings.
The photo above is of a study area home
which meets its potential as charming, with
both age and character.
Neighborhood Aesthetics – the Big Mill Site
While most of the Big Mill Village acreage is taken up by small residential lots, the abandoned Big Mill
site represents the large, approximately 17-acre heart of the neighborhood. The mill site is on the study
area’s northwestern border and stands between most of the neighborhood homes and downtown
Gaffney.
8
Source: U.S. Bureau of the Census, 2000 Census of Population and Housing.
22
The aerial photo above displays the 17-acre abandoned mill site serving as the northwestern border of
the study area. It stands between most study area homes and downtown Gaffney.
Since the clearance of the mill site, the 17-acre lot has stood as an empty field surrounded by a tall and
unsightly chain link fence with barb wire at its top. In a positive development, however, the mill site was
purchased in 2009 by Cherokee County as the future home of its new Administrative Complex.
Construction began during the summer of 2011 and expected completion is in the third quarter of 2012.
After demolition, the Big Mill Site was an empty
field surrounded by an unsightly fence.
Construction of the new Cherokee County
Administrative Complex began in summer 2011.
23
The image to the right is
a design concept of the
new 80,000 s.f. Cherokee
County
Administrative
Complex to be completed
on the old mill site in the
third quarter of 2012.
The image above is the site plan for the new County Administrative Complex,
complete with numerous trees and a 3-acre City-owned Park on the site’s
western side.
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Big Mill Village Location and Proximity to Resources
With respect to location, the Big Mill Village was a great fit for the Village Renaissance grant program
with its walk-able proximity to downtown and other important resources. According to data from the
U.S. Census Bureau, approximately 26.6% of Big Mill Village residents do not have access to a vehicle –
making the factor of walking distance an extremely important part of daily life9.
Distance from the Center of
Study Area (miles)
Resource
Downtown
Government Services
City Hall
Post Office
Police Station
Fire Station
Library
Social Services
Senior Center
Salvation Army Soup Kitchen
Medical Services
Regenesis Community Health Center
Gaffney Children’s Clinic
Mary Black Memorial Hospital
Education Facilities
Walk Time
(min)
.1
1
2
0.6
1.3
0.8
0.6
1.1
2
5
3
2
6
12
26
13
11
22
1.8
0.5
7
3
32
10
1.2
0.8
19.3
5
4
28
21
11
372
0.8
3
3
8
14
56
.1
1.8
1
6
2
32
1.3
5
22
Within Study Area
(eastern border)
Elementary School
Middle School
High School
Community Services
Boys and Girls Club
Piedmont Community Actions
Recreation
Future 3-Acre Park on Big Mill Site
Within Study Area
(northwest border)
Irene Park
A city-owned baseball field
Drive Time
(min)
Within Study Area
(southwest border)
Note: Distance and transportation times are estimates generated by Google Maps from the center point of the
Study Area.
9
Source: ESRI forecasts for 2010; U.S. Bureau of the Census, 2000 Census of Population and Housing
25
Zoning and Land Use Overview
According to the zoning map below, around 90% of the neighborhood is zoned as Single Family
Residential, with only six small parcels zoned as Neighborhood Commercial. The 17-acre mill site has
always been zoned as Basic Industrial, though when the future County Administrative Complex and City
Park open, this large site’s zoning classification may change. The Core Commercial section (light yellow)
displays the immediate proximity of Downtown Gaffney to the neighborhood. Part of downtown
actually makes up the northwestern tip of this Study Area boundary.
The overwhelming majority of property in the Study Area is comprised of small parcels containing single
family mill homes. Exceptions of land use include the old mill site, the Mary Bramlett Elementary School
on the east end, and a City-owned baseball field in the southwest corner. Directly outside of the Study
Area’s eastern border (across Pecan Street from the school) is the Boys and Girls Club of the Upstate, an
extremely valuable resource for Study Area children and parents.
26
Section III: Neighborhood
Involvement and Interaction
In order to produce long-term success with any revitalization effort, it is essential for neighborhood
residents to work together and communicate effectively. People in vital neighborhoods know one
another and help each other in times of need. They improve security by forming crime watch programs
and by keeping an eye out for suspicious occurrences or unfamiliar visitors. They bond with one another
through neighborhood meetings in which community events are planned and in which serious issues are
discussed. Both the Study Area Advisory Committee and the City of Gaffney believe that neighborhood
communication is an essential component for future success.
Resident Feedback on Neighborhood Involvement and Interaction
Survey data from the Open House event revealed that improvement is needed in this area. 47% of
survey respondents answered that there was not “a strong sense of community” in their neighborhood.
Only 28% of respondents stated that “residents often help each other out”. When asked about working
and volunteering together, only 18% of respondents gave a positive answer.
Source: Gaffney Village Renaissance Neighborhood Survey, February 2011.
28
The Village Renaissance Advisory Committee reiterated the need for improvement in this area through
its Strengths-Weaknesses-Opportunities-Threats (S.W.O.T.) analysis. One of the Weaknesses revealed by
the Committee was a “Lack of Neighborhood Communication/Coordination/Vision”. The second-most
emphasized Threat was a “Lack of Commitment to Community”. From a more optimistic perspective,
the Committee named both “Common Cause & Need for Community Development” and “Sense/Feeling
of Community” as Strengths. Finally, the Committee saw an Opportunity to “Increase Neighborhood
Pride”.
Neighborhood Buy-In and Ownership
The ideas of neighborhood-wide “buy in” and “ownership” of the neighborhood revitalization process
was determined by the Advisory Committee to be extremely important. To make people feel like they
are part of something positive would inspire them to volunteer more and to feel an increased sense of
pride. This phenomenon was proven at the Village Renaissance Open House when nearly 100 people
showed up to talk about the Village Renaissance planning grant. Most of the residents are not happy
with the physically declined state of the neighborhood, but their attendance and participation showed
that they care significantly.
Section III: Neighborhood Involvement and Interaction
29
Neighborhood Organization
The Advisory Committee believes that developing a formal neighborhood organization in order to
harness the energy and concern displayed at the Open House event is important. Such a group would
partner with the City of Gaffney on programs like a neighborhood crime watch and neighborhood cleanup day events. Discussions are on-going on how best to establish a neighborhood organization for the
Big Mill Village. The following ideas for such a group were developed by the Committee:
Committee Ideas for Big Mill Village Neighborhood Organization







30
Establish a strong name for the group.
Start with a Neighborhood Clean-Up Day as a “Kickoff Event”, where the first
neighborhood association meeting can be advertised via flier. Having a dump truck
there plus a small army of trash bag-carrying volunteers will provide a great positive
symbol for the rest of the neighborhood. Other volunteers can fix an elderly person’s
front porch or cut their grass. Create the impression that “Wow - they’re really doing
something out there.” Make this an annual or semiannual event.
Guest speakers are important. Examples: Sherriff’s Emergency Response Team, 911
Service, Animal Control, Fire Rescue, non-profits, etc. Use these meetings to build
relationships.
Physical Symbols are important. Let the kids see a fire truck or an emergency rescue
helicopter up close and in person. Advertise those things to increase meeting
attendance. Hand out child bedroom safety stickers and free smoke detectors.
At each meeting, every attendee should be given an index card which they have to turn
in at the end of the meeting. The card is for making comments and recommendations
to the Steering Committee. Turning in a blank card is fine – it just means “no comment”.
That way everyone is providing some type of feedback.
Build a phone tree for a neighborhood crime watch. If you see something bad going on,
you can always call your neighbors to let them know. They are then not only made
aware of the crime for their own safety, but they can also call the authorities.
Partner with the City to implement an annual or semiannual Neighborhood Sweep for
code enforcement. This exercise will hold property owners accountable who refuse to
cut their grass, fence in their dogs, or pick up their garbage, for example. At the
beginning of the month, publicly advertise when the sweep will take place (at the end of
the month). Two weeks later, distribute warnings to property owners who are in
violation of the local code. Finally, at the end of the month (as advertised), issue fines to
those who have refused to comply.
“Sow Me the Seeds” Day
Further willingness from residents to embrace neighborhood revitalization was found at the “Sow Me
the Seeds” tree-planting event at the Mary Bramlett Elementary School on September 8, 2011. The
event was designed to teach children and their parents about the benefits of planting trees and flowers
in their community. Numerous seed and plant donations were made to the School by local businesses.
Attendance from neighborhood parents was high. Public comments were given by three different
Village Renaissance Advisory Committee members and by ACOG Planning Staff. While it was a Schoolcoordinated event, it was done in partnership with the Village Renaissance planning effort.
Audrey McClary, School Principle and Village
Renaissance Committee Member
Vance Hammond, Boys & Girls Club Director and
Village Renaissance Committee Member
Children learning the value of planting trees in
their neighborhood
Neighborhood parents lending a hand to their
children in support of this effort
31
Creating a Neighborhood “Brand”
The Advisory Committee believes that the future neighborhood organization should emphasize the long
and proud history of the Big Mill Village in its organizational and branding efforts. Committee members
suggested that a well crafted “brand image” could be used to help design meeting fliers, informational
brochures and welcome signage. In the Public Facilities section of this Plan, recommendations are made
for construction of Neighborhood Beautification Gateways with welcome signage that incorporates Big
Mill Village pride and history.
Strategic Plan
Grant Program Desired Outcome
“Improve neighborhood involvement and interaction.”
Advisory Committee Goals


“Foster neighborhood involvement and ‘buy-in’ to this revitalization process through improved
communication, coordination and vision.”
“Find ways to channel the pride, history and creativity of the neighborhood as a unifying and
transformational force.”
Supportive Findings
Positive
 Robust attendance at Village Renaissance Open House event revealed active concern for the
neighborhood among residents.
 65% of Open House Survey respondents indicated willingness to attend future neighborhood
meetings.
 Good attendance at the Mary Bramlett School’s “Sow Me the Seeds” event revealed the
potential for increased volunteerism in the Study Area.
Negative
 Open House Survey data revealed that a majority of residents do not believe there is a strong
sense of community, volunteerism, or willingness to help each other out.
 The Advisory Committee S.W.O.T. analysis revealed that there is a lack of communication,
coordination, and vision in the Study Area.
32
Recommendations
Encourage the establishment of a Neighborhood Organization by engaging neighborhood leadership and
faith leaders. Working with such an organization, the following actions are recommended:
1. Utilize the Gaffney Police Department to help residents develop a neighborhood Crime Watch
program, complete with regular meetings, signage, and a resident phone tree.
2. Utilize City Sanitation to help residents plan annual or semi-annual, volunteer-driven
“neighborhood clean-up day” events.
3. Provide assistance to residents in the planning of neighborhood-wide recreational outings at the
new 3-acre City Park on the old mill site.
4. Install neighborhood welcome signage which encapsulates mill village history and pride. Specific
recommendations regarding such signage as part of new neighborhood beautification gateways
are found in the Public Facilities section of this Plan.
Time Frame
1-3. Discussions for establishing a neighborhood organization among mill village leaders are on-going
and will continue until this effort reaches fruition in the form of regularly scheduled meetings.
The City continues to remain supportive and willing to assist these residents in all of the
initiatives outlined above.
4. A recommended time frame for installing neighborhood welcome signage as part of a broader
beautification gateway initiative during the first round of CDBG Village Renaissance
Implementation (2012-2013) is described in the Public Facilities section of this Plan.
Responsible Party
Leaders from the Neighborhood
Partners





City of Gaffney – Community Development, Police Department, Sanitation
Mary Bramlett Elementary School
Boys & Girls Club (just outside of the neighborhood)
Neighborhood and nearby faith-based organizations
Local non-profit organizations to provide guest speakers and education at neighborhood
meetings and to provide volunteer labor during neighborhood clean-up days.
33
34
Section IV: Neighborhood
Crime
Resident Feedback on Neighborhood Crime
With the many economic struggles associated with the loss of the Big Mill, crime has become a
significant problem in the Study Area. Neighborhood survey data from the Village Renaissance Open
House event revealed this topic to be a very serious concern. It should be noted that the topic of crime
dominated the Open House event’s town hall- type discussion with residents, causing the meeting last
almost one hour longer than scheduled:
Open House Survey
Neighborhood Safety and Pride
Safety/Crime Topic
% who think it’s a problem
Feeling safe when walking/riding bike during DAY
Feeling safe when walking/riding bike during
NIGHT
Child safety while playing in neighborhood
Drugs
Theft
Violence
Vandalism
47%
76%
53%
69%
77%
65%
72%
Source: Gaffney Village Renaissance Open House Survey, February 2011.
The Village Renaissance Advisory Committee also voiced serious concerns about neighborhood crime in
its Strengths-Weaknesses-Opportunities-Threats (S.W.O.T.) analysis. The areas of (1) Crime and Safety,
(2) Drugs, and (3) Nuisance Behavior were three of the top four neighborhood Weaknesses identified.
The number one Threat indicated was Crime and Safety, while Drugs was considered to be third most
serious threat.
Crime Data from the Gaffney Police Department
More than a decade’s of worth of crime data provided by the Gaffney Police Department from their FBI
Uniform Crime Reports revealed that residential perception of neighborhood crime is not far from
reality. The following three tables reveal significant crime trends by (1) year, (2) type, and (3) Study Area
Street.
36
By Year
Source: Gaffney Police Department, FBI Uniform Crime Reports
Analysis: Though the number of crimes in the Study Area dropped significantly in 2010 from the
previous year, the crime number was still approximately 35% higher than in year 2000. The increase in
Study Area crime has been gradual, but steadily trending upward.
Section IV: Neighborhood Crime
37
By Type
Analysis: When Study Area crime data is broken down into categories, one finds that resident concerns
are justified – particularly in regards to (1) theft, (2) feeling safe/violence, and (3) vandalism. One crime
area which the residents and the Advisory Committee emphasized as being particularly bad is the sale
and use of illegal drugs in the Mill Village. The crime data, however, did not reveal this to be one of the
more common arrest areas. One possible explanation for the mismatch between perception and data
could be that the drug dealers who infiltrate the neighborhood might not actually live there. Developing
a system to identify suspicious vehicles and persons in the neighborhood, therefore, will be a key
strategy for reducing crime.
38
By Street
Analysis: The streets in the Study Area with the most crimes reported are also the streets which are the
longest and most densely populated. Walnut and Oak Streets, for example, run almost the entire length
of the neighborhood from north to south, while Beech, Elm and Willow Streets do the same from west
to east.
Crime has been slightly more concentrated on the western half of the Study Area than the eastern half.
Walnut Street and Oak Street, for example, run from north to the south on the western half and they
have experienced a very high number of calls and arrests. The same is true with the west-to-east
running Beech and Willow Streets. The western halves of these long streets near the old mill site have
39
generally experienced more crime and also more housing deterioration, which could be a related
factor.10
Summary Analysis
The Crime Data analyzed for this plan revealed three broad neighborhood trends over the last decade:
1. Crime rates are rising steadily and gradually over time;
2. 81% of the crimes reported have involved Violence (35%), Theft (30%), or Property (16%);
3. While reported crime incidents were distributed throughout all sections of the neighborhood,
they were more concentrated in the western half.
The following recommendations involve the City of Gaffney addressing these crime trends in three
distinct ways: (1) Gaffney Police Department support of a formal neighborhood crime watch program,
(2) partnering with the Gaffney Board of Public Works to install additional street lighting in strategic
locations, and (3) installation of security cameras in strategic locations. These actions are described
further in the Neighborhood Involvement and Interaction and Public Facilities sections of this Plan.
10
Housing condition will be discussed in more detail in the Neighborhood Housing and Physical Appearance section
of this Plan.
40
Strategic Plan
Grant Program Desired Outcomes
“Provide neighborhood safety and pride.”
Advisory Committee Goal
“Decrease neighborhood crime and drug activity through heightened security and increased
accountability.”
Supportive Findings




The topic of crime dominated the town hall-style discussion which took place at the
neighborhood-wide Open House event.
Open House survey data revealed that a great majority of Study Area residents have significant
concerns about safety, drugs, violence, theft, and vandalism.
The Advisory Committee S.W.O.T. analysis revealed that some of the greatest Weaknesses and
Threats facing the neighborhood are crime, safety, drugs, and nuisance behavior.
Data from the Gaffney PD over the last 10+ years reveal that (1) crime is trending upwards over
time, (2) that crimes involving Theft, Violence and Property are bringing about the most arrests,
and (3) that while crime is a problem throughout the neighborhood, it is slightly more
concentrated in the western half near the old mill site.
41
Recommendations
1. As discussed in the Neighborhood Involvement and Interaction section of this Plan, continue to
support neighborhood leadership in its efforts to establish a neighborhood organization with a
formal crime watch program.
2. Partner with the Gaffney Board of Public Works (GBPW) to install street lights in dark areas of
the Study Area which presently serve as crime danger spots. This recommendation is further
described in the Public Facilities section of Plan.
3. Install security cameras in strategically identified locations throughout Study Area. This
recommendation is further described in the Public Facilities section of Plan.
Time Frame
1. Discussions among neighborhood leaders on establishing a neighborhood organization with a
Crime Watch component are on-going and the Gaffney Police Department remains supportive.
2. Years 2012-2013, pending available City and GBPW scheduling and resources.
3. Install strategically located security cameras: 2012-2013, during the initial round of CDBG Village
Renaissance Implementation funding (discussed further in Public Facilities section).
Responsible Parties
Gaffney Police Department
Neighborhood Leadership
Partners




Cherokee County
Mary Bramlett Elementary School
Neighborhood faith-based organizations
Local non-profit organizations which address at-risk youth crime prevention, such as the nearby
Boys & Girls Club.
42
Section V: Neighborhood
Housing and Physical
Appearance
As discussed in the History, Condition and Location section of this Plan, the housing stock of the Big Mill
Village Study Area is aging rapidly. 91% of neighborhood homes are at least 30 years old, and most of
them much older with a median construction date of 1961.11 With a high poverty rate among residents,
this aging housing stock presents significant problems.
Home renters make up the majority of the Study Area population. Among the Study Area renters, the
estimated average rent of $269 per month is less than both the City and County averages.12 Vacancy is
also prevalent at an estimated 18.6%, as scattered vacant structures are dispersed throughout the
neighborhood. The majority of these vacant houses, which are typically in the poorest condition, are in
close proximity to the old mill site which is currently being redeveloped.
Gaffney VR Study Area
Housing Occupancy Breakdown, 2010 Estimate
18.6%
38.4%
Owner Occupied Housing Units
Renter Occupied Housing Units
Vacant Housing Units
43.0%
Source: ESRI forecasts for 2010 and 2015; U.S. Bureau of the Census, 2000 Census of Population and Housing
Resident Feedback on Housing and Physical Appearance
Open House survey data reveals that residents almost unanimously are unsatisfied with the condition
and appearance of homes in the Study Area. Only 5% of respondents stated that the neighborhood
today is a more desirable place in which to live than it was 25 years ago. 80% of respondents stated that
empty houses make the neighborhood less attractive, while 59% suggested that empty lots make the
neighborhood look less attractive. When asked about the basic physical condition and attractiveness of
neighborhood housing, the following pie charts summarize the respondents’ negative perception:
11
12
Source: U.S. Bureau of the Census, 2000 Census of Population and Housing.
Source: ESRI forecasts for 2010 and 2015; U.S. Bureau of the Census, 2000 Census of Population and housing.
44
Section V: Neighborhood Housing and Physical Appearance
45
Village Renaissance Advisory Committee members echoed these negative sentiments in their StrengthsWeaknesses-Opportunities-Threats analysis. The number one Weakness identified by the Committee
was “Property Condition/Shortage of Home Ownership”. The fourth greatest Threat the Committee
identified was an “Unhealthy Rental Market and Shortage of Home Ownership.” From a more positive
perspective, the Committee identified the top four Opportunities as being:
1.
2.
3.
4.
“Property Restoration/Beautification”
“Create Patio Housing Market for Starters, Retirees, Artists”
“Increase Neighborhood Pride”
“Clean Streets and Green Space Development”
Despite their current physical condition, Committee Members believe that the Big Mill Village homes
have great potential. With the age and “character” of these homes, the Committee believes that these
houses represent quaint, affordable opportunities for a market of young adults, retirees, and artists.
Housing Data from the Windshield Assessment
ACOG Planning and Housing Staff worked with a City Building Inspector to perform a “Windshield
Housing Survey” of each house within the Study Area. While driving through the entire neighborhood
with a camera and housing assessment forms, each home was surveyed from outside and assessed as
being in one of the following categories:
Sufficient External Condition – home facades which were in good enough shape to forego
potential CDBG housing assistance for exterior improvements;
Minor Repair – home facades which were in relatively decent condition, but which were in need
of minor repair improvements such as hand rails, guard rails, porch repair, new paint, etc.;
Major Repair – home facades which were in need of not only the minor repairs mentioned
above, but also a new roof, new windows, gutter repair, fascia repair, eave repair, etc.
Key findings from the Windshield Survey included:





107, or 40% of the Study Area homes, were surveyed as being Major Repair.
98, or 36% of the Study Area Homes, were surveyed as being Minor Repair.
The remaining 64 Study Area Homes (24%) were surveyed as being of Sufficient External
Condition.
The largest concentration of both Major Repair Homes and vacant homes was found to be in the
western half of the neighborhood, concentrated around the old mill site.
The smallest concentration of Sufficient External Condition homes was also found to be in the
western half of the neighborhood.
46
Study Area Housing Condition
40%
24%
36%
Sufficient External
Condition
Minor Repair
Major Repair
Proposed Target Area Map for CDBG Housing Improvements
The map on the following page provides:
1. A proposed target area of CDBG external rehabilitation houses in the Study Area, each of which
are classified as either “Minor Repair” (up to $5K) or “Major Repair” (up to $10K);
2. A proposed area of alternate external rehabilitation houses, included as a contingency in the
event that any of the target area houses do not participate in the CDBG program;
3. Eight proposed demolition houses. These eight houses are being proposed for CDBG demolition
regardless of whether or not they are inside the external rehabilitation target area.
This target area of houses was identified strategically due to its proximity to the old mill site which is
presently undergoing redevelopment to become the County Administrative Complex and a small City
Park. These homes are also closer to downtown Gaffney than the other neighborhood homes. A
focused investment in this target area would complement the momentum of both the mill site and
downtown, thereby serving as a catalyst for the rest of the neighborhood. The City will pursue CDBG
Housing Façade improvements in the second round of Village Renaissance Implementation (Phase III –
2014-2015). As that time approaches and pending successful completion of Phase II Implementation,
residents will be re-surveyed not only to re-confirm their low-to-moderate income status, but also their
status as owners and renters. Homeowners will receive priority over landlords for any potential CDBGfunded housing façade improvements.
47
48
Photographic Display of Housing Condition
The table below displays examples of the houses observed during the Windshield Assessment.
Major Repair Homes
105 Oak Street
107 Walnut Street
500 Beech Street
Minor Repair Homes
109 Cedar Street
208 Magnolia Street
203 Oak Street
Sufficient External Condition Homes
500 E. Robinson Street
102 Beech Street
400 Beech Street
49
Demolition Homes in the Study Area
It was determined during the assessment that there are several vacant houses which are in need of
demolition. In addition to giving the Study Area a look of slum and blight, the Gaffney Police
Department suggests that these long-time abandoned houses present major public safety liabilities. The
largest concentration of them is on the periphery of the old mill site in the western half of the
neighborhood.
The four homes below have been vacant for years and are in a state of
rapid decline. They sit to the west of the old mill site and are oddly placed
away from the rest of the neighborhood. As a new City Park and County
Administrative Complex will soon sit behind these houses, they represent
potential crime location for loitering and predators.
50
199 Courthouse Alley
201 Concord Avenue
203 Concord Avenue
205 Concord Avenue
The table below provides four more examples of Study Area houses which should be demolished. Like
those on Concord Avenue, each of these houses is in the western half of the Study Area near the old mill
site and downtown Gaffney. In the event of demolition of such unsafe structures, the City would hold
property owners responsible for maintaining these lots per City code.
Additional Homes Proposed for Demolition
203 Cherry Street
107 Walnut Street
105 Cedar Street
103 Filbert Street
Below is a list of quick facts about each of the houses displayed above:
Address: 107 Walnut Street
Facts: The Gaffney Police Department busted an illegal crystal meth lab in this home in February 2012.
The people who ran this lab set fire to the entire back of the house.
Address: 103 Filbert St.
Facts: This home has had its utilities turned off since 1997.
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Address: 203 Cherry St.
Facts: This home has had its utilities turned off since 2005. Code enforcement history includes May of
2009, when owner was fined $355 for poor upkeep and a lien was placed on house.
Address: 105 Cedar St.
Facts: Empty since 2007, this address has been code enforced several times. According to City staff, a
homeless person was recently discovered to be living in this home before being taken to the hospital.
Address: 199 Courthouse Alley (previously thought to be 199 Concord Ave.)
Facts: This home as well as the following three Concord Alley homes are owned by the same person.
199 Courthouse Alley has been vacant since 03/2011.
Address: 201 Concord Ave.
Facts: Owned by the same person who owns 199 Courthouse Alley and 203 & 205 Concord Ave., this
home has had its utilities turned off since 09/2009.
Code Enforcement
As part of the Village Renaissance initiative, the City of Gaffney will continue to provide code
enforcement surveillance of the Study Area. The current property ordinance for the area does “have
teeth”, as the Police Chief stated during a Committee meeting. Violators face significant fines for loose
trash, trash dumping, and overgrown lots—all of which are problems in the Study Area. The Code also
outlines procedures for condemnation. Staff resources are limited, however, and the City continues to
explore ways to efficiently enhance code enforcement. This activity will play a vital role in the
revitalization strategy.
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Strategic Plan


“Improve physical appearance and property values”
“Identify in-fill housing opportunities”



“Improve property appearance throughout the neighborhood.”
“Take advantage of neighborhood ‘character’ and potential by creating an environment which
encourages an economically diverse and well-maintained standard of housing.”
“Mitigate the unattractive and potentially unsafe characteristics of vacant lots and dilapidated
buildings.”
Supportive Findings





Open House survey data revealed that residents are almost unanimously unsatisfied with the
condition and appearance of neighborhood housing.
The Advisory Committee S.W.O.T. analysis revealed that some of the greatest Weaknesses and
Threats facing the neighborhood are based around the state of neighborhood housing. The
S.W.O.T. analysis also revealed that housing improvement is the neighborhood’s greatest
Opportunity.
Data gathered from a Windshield Housing Assessment conducted by ACOG and the City of
Gaffney revealed that 76% of Study Area Homes need repair.
There is a greater concentration of Major Repair and potential demolition homes in the western
half of the neighborhood near the Big Mill Site. Conversely, there is smaller concentration of
Sufficient External Condition homes in this area.
Extremely low income and high poverty in the Study Area indicate that there are few resources
available for personally financed home improvement.
53
Recommendations
1. Seek CDBG Village Renaissance funding for exterior housing rehabilitation in the identified
target area near the old mill site and downtown Gaffney. Improving the appearance of houses
in this area will complement the positive momentum being created by the redevelopment of the
mill site into the County Administrative Complex and City Park.
2. Seek CDBG Village Renaissance funding to demolish the empty, dilapidated and unsafe houses in
the Study Area. Demolitions should first be sought through Voluntary Agreement. Code
Enforcement should be used only if necessary.
3. Seek Federal HOME Funds as they become available for both housing renovation and new in-fill
housing opportunities throughout the Study Area.
4. Develop relationships with non-profit organizations who participate in low-income housing
programs, such Habitat for Humanity and regional Community and Economic Development
Corporations (CEDC’s).
5. Continue to enforce code in the Study Area in order to crack down on loose trash, overgrown
lots, and general neglect of private property.
Time Frame
1. Housing Façade Improvements: 2014 – 2015, during the second installment of CDBG Village
Renaissance Implementation funding.
2. Housing Demolition: 2012 – 2013, during the first installment of CDBG Village Renaissance
Implementation funding.
3. Seek Federal HOME Funds: applications to be submitted regularly as funding cycles are
announced.
4. Develop Relationships with Housing Non-Profits: outreach to organizations is on-going and to be
continued indefinitely.
5. Code Enforcement: on-going and to be continued indefinitely.
Responsible Party
City of Gaffney
Partners




South Carolina Appalachian Council of Governments
South Carolina Department of Commerce – Grants Administration
South Carolina HOME program, Federal Home Loan Bank, and any other potential government
funding source
Non-Profit Organizations who specialize in low-income housing
54
55
Section VI: Neighborhood
Public Facilities
Neighborhood public facilities such as sidewalks, street lights, public playgrounds and recreational trails
are vital components for any healthy neighborhood. For residents to be able to spend less time in their
cars by walking to places such as downtown, to school, to a park, or to City Hall is valuable not only from
a public health standpoint, but also from an economic standpoint. 26.6% of Big Mill Village residents do
not have access to a vehicle, making the factor of walk-ability an extremely important part of their
lives13. As part of the Village Renaissance planning process, it is important to assess the adequacy of the
public facilities which enable residents to exercise and access resources by foot.
Resident Feedback on Public Facilities
Open House survey data revealed that Study Area residents are split on the need for basic public facility
improvements. 58% of respondents stated that existing sidewalks provide good walking access to
downtown and other resources. 54% of the respondents, however, stated that sidewalks are not in
decent condition. 48% of respondents stated that they are not satisfied with neighborhood street
lighting.
In regards to recreational amenities and public meeting places, the survey respondents were almost
unanimously unsatisfied. Only 16% of respondents stated there are adequate public meeting places for
neighborhood residents (verses 53% who state there are not; the remaining 31% stated “I Don’t Know”
or “No Opinion”). 68% of residents stated that there were not adequate places for children to play in
the neighborhood.
13
Source: ESRI forecasts for 2010; U.S. Bureau of the Census, 2000 Census of Population and Housing
Section VI: Neighborhood Public Facilities
57
The Advisory Committee also emphasized several important points which are related to walk-ability. In
their Strengths-Weaknesses-Opportunities-Threats (S.W.O.T.) analysis, “Location/Proximity/Access to
Goods and Services” was ranked as the number one Strength of the Study Area. “Sidewalks” were
ranked as a Weakness. The Committee saw good Opportunities to “Clean Streets and Develop Green
Space” and to “Market the Neighborhood’s Proximity to Downtown.”
Study Area Sidewalks
The map on the following page displays a visual “Sidewalk Assessment” conducted by the ACOG
planning staff. Sidewalks within the Study area are categorized as being either “No Sidewalks”, “Decent
Sidewalks”, or “Upgrade Sidewalks”.
58
59
Some key findings from the sidewalk assessment include:



The most populated and frequently trafficked roads of the Study Area are served by sidewalks.
Several interior roads and alleyways within the neighborhood are not served by sidewalks.
Many of the Study Area sidewalks are in need of upgrades.
The orange colored “Upgrade Sidewalks”
on the map include those which have
deteriorated over time with cracks and
roots growing through them.
Some portions of the neighborhood are
served by “No Sidewalk” (color coded
red on the map), including the streets of
Cherry, Cedar, and a portion of Willow.
One pivotal “No Sidewalk” area is around
the Mary Bramlett Elementary School –
which is a high foot traffic area for
children. Directly across Pecan Street
from the school is a popular Boys & Girls
Club which brings in even more youth The photo above is the intersection of Spruce and Beech
foot traffic. Addressing this area with Street near the western border of the Study Area. Color
coded orange on the Sidewalk Assessment Map, this
new sidewalks is critical.
sidewalk is in poor condition.
Study Area Street Lights
The Study Area is a fairly tight grid of symmetrical streets and blocks which have a street light at every
intersection. Because intersections are typically at a close distance to one another, the general
neighborhood is adequately lit in most places. There are some pockets of the neighborhood, however,
which are dark and present safety problems. ACOG planning staff conducted a visual street light
assessment, the map of which can be found on the following page. There are a total of five dark spots
displayed on this map, the largest one being along Mary Bramlett Alley. This alley leads eastward to the
Mary Bramlett Elementary School from Walnut Street and was once the site of a Norfolk Southern rail
spur. Even though houses do not face this alley way, the darkness can provide an inviting place for
criminal activity. As recently as 2009, a homicide was committed after midnight one evening on Mary
Bramlett Alley due to a drug deal gone bad.14 The City will work with the Gaffney Board of Public Works
(service provider) on addressing these areas, with initial emphasis placed on Mary Bramlett Alley.
14
See Appendix 4 for Gaffney Police Report of this incident.
60
61
Security Cameras
As discussed in the Neighborhood Crime section of this Plan, Study Area crime has increased gradually
over the last ten years. The number of crimes reported was up 35% in 2010 from 2000. Much of this
trend is attributable to an increased level of poverty associated with the closing of the Big Mill early in
the decade and with the global recession experienced over the last several years. These economic
challenges have also limited the City financially in its ability to hire additional police officers. The City
Police Department believes that a cost effective way to combat crime and increase safety in the Study
Area would be to install security cameras at strategic locations.15 The Advisory Committee also believes
that this would be an effective strategy, as visiting drug dealers would be less likely to infiltrate a
neighborhood under more constant surveillance. Installation of five strategically located security
cameras based on recommendations from the Gaffney Police Department will be among the highest
priorities of this Revitalization Plan.
Neighborhood Beautification Gateways
One of the important goals established by the Advisory Committee was to “Find ways to channel the
pride, history, and creativity of the neighborhood as a unifying and transformational force.” A good
opportunity for meeting this goal would be to establish neighborhood beautification gateways which
inform residents and visitors alike that they are entering a place of history and pride. Such gateways
would be characterized by attractive landscaping and by neighborhood welcome signage which
encapsulates the Big Mill Village’s history. An example of such a sign might say, “Welcome to Gaffney’s
Big Mill Village. Established: 1892.” The positive symbolic value of this type of investment from the City
would be tremendous for residents; it would establish momentum for the idea of taking more pride in
neighborhood appearance.
Strategic Location Map for recommended Gateways, Security
Cameras, and Sidewalks
A location map of the recommended sidewalks, security cameras, and beautification gateways is found
on the following page.
15
See Appendix 5 for a letter from the Gaffney Police Department which recommends strategically located security
cameras for the Study Area.
62
63
Public Places for Meeting and Recreation
As discussed in the History, Condition and Location section of this plan, the Study Area’s central location
and proximity to downtown affords residents close access to several important locations, including
commercial, government, social, medical, educational, community, and recreational resources. Open
House survey data revealed, however, that Study Area residents are not satisfied with current
neighborhood venues for meeting and for children’s recreation. For this reason, the future construction
of the 3-acre City Park on the old mill site is timely. Nevertheless, promoting and ensuring good walkable access to these resources will be a key component of this Plan.
Distance from the Center of Drive
Study Area (miles)
(min)
Resource
Downtown
Government Services
City Hall
Post Office
Police Station
Fire Station
Library
Social Services
Senior Center
Salvation Army Soup Kitchen
Medical Services
Regenesis Community Health Center
Gaffney Children’s Clinic
Mary Black Memorial Hospital
Education Facilities
Elementary School
1
2
0.6
1.3
0.8
0.6
1.1
2
5
3
2
6
12
26
13
11
22
1.8
0.5
7
3
32
10
1.2
0.8
19.3
5
4
28
21
11
372
0.8
3
3
8
14
56
.1
1.8
1
6
2
32
1.3
5
22
Within Study Area
(northwest border)
Irene Park
A city-owned baseball field
.1
Within Study Area
(eastern border)
Middle School
High School
Community Services
Boys and Girls Club
Piedmont Community Actions
Recreation
Future 3-Acre Park on Big Mill Site
Time Walk Time
(min)
Within Study Area
(southwest border)
Note: Distance and transportation times are estimates generated by Google Maps from the center point of the
Mill Village neighborhood.
64
Walking Trail Project
As the former site of a Norfolk Southern rail spur line which once ran centrally through the
neighborhood to the old mill site, the long and contiguous grass bed along Mary Bramlett Alley provides
an excellent opportunity for the construction of a walking trail. This approximately ½ mile proposed trail
site would provide residents with a vital place for exercise and with a direct walking route to essential
public resources. On the proposed trail’s west end is the old mill site which is presently undergoing
redevelopment to become the County Administrative Complex and a 3-acre City Park. Just west of the
the old mill site is downtown Gaffney. On the proposed trail’s east end are the Mary Bramlett
Elementary School and the Boys & Girls Club.
The following page provides a visual display of the trail concept. The City of Gaffney has met with an
official from Norfolk Southern to discuss possible acquisition of the abandoned rail spur line. As part of
the neighborhood revitalization process, the City will continue researching this subject and searching for
funding sources which would help them turn this idea into a reality.
65
66
Strategic Plan
 “Address infrastructure and public facility needs.”’
 “Promote sustainability and conservation.”

“Upgrade neighborhood water, sewer, drainage, roads, sidewalks, and street lights where these
public resources are found to be inadequate.”
 “Beautify the neighborhood by taking advantage of its natural assets, including green space, trees
and landscape.”
 “Create a ‘connection’ between neighborhood residents and nearby downtown.”
 “Find ways to channel the pride, history and creativity of the neighborhood as a unifying and
transformational force.”
Supportive Findings

A significant amount of Open House survey respondents suggested that neighborhood sidewalks and
street lights are inadequate, while the V.R. Advisory Committee echoed these opinions.
 Street-by-street, visual assessments of sidewalks and street lights performed by ACOG planning staff
indicate that each of these public facility areas are lacking in specific sections.
 The number of Study Area crimes between years 2000 and 2010 went up by 35%, and with limited
financial resources available to hire additional police officers, installation of neighborhood security
cameras for safety is recommended as a cost effective strategy.
 Open House survey respondents displayed almost unanimous dissatisfaction with the amount of
public meeting and recreational places in the neighborhood.
 An abandoned rail spur line which runs centrally through the neighborhood (now as an empty grass
bed) provides an excellent potential location for construction of a ½ mile walking trail to connect the
east and west ends of the neighborhood. Such a trail would provide (1) a good place for exercise,
and (2) a direct walking route to destinations such as downtown Gaffney, the soon-to-be
redeveloped old mill site, the Mary Bramlett School, and the Boys & Girls Club.
Recommendations
1. Partner with the Gaffney Board of Public Works (GBPW) to install street lights in dark areas, with an
initial emphasis on Mary Bramlett Alley. GBPW will own and maintain the lights and the City will pay
a regular utility bill for their operation.
2. Install five (5) security cameras at strategic Study Area locations recommended by the Gaffney Police
Department in order to increase safety in a cost effective way.
3. Install attractively landscaped neighborhood gateways with welcome signage at four (4) key entry
points of the neighborhood. In order to convey a sense of neighborhood pride and history for
residents, the signs should emphasize that the neighborhood was established in 1892.
4. Construct sidewalks around the high foot traffic area of Mary Bramlett Elementary School where
there presently are none.
5. Continue conducting research and performing due diligence associated with acquiring and
converting the abandoned rail spur line along Mary Bramlett Alley into a central neighborhood
walking trail. Researching recreational grant funding sources, such as the South Carolina Department
67
of Parks, Recreation and Tourism, is recommended, as well as searching for potential local sponsors
for the project.
Time Frame
1. Partner with GBPW on New Street Lights along Mary Bramlett Alley: 2012-2013.
2. Installation of Strategically Located Security Cameras: 2012-2013, during the first round of CDBG
Village Renaissance Implementation funding.
3. Installation of Neighborhood Beautification Gateways with Welcome Signage: 2012-2013, during the
first round of CDBG Village Renaissance Implementation funding.
4. New sidewalks around Mary Bramlett Elemntary School: 2012-2013, during the first round of CDBG
Village Renaissance Implementation funding.
5. Research on the development of a central recreational walking trail is on-going. Dialogue with
Norfolk Southern should continue and the search for grant funding sources and potential local
sponsors should begin immediately.
Responsible Party
City of Gaffney
Partners:







Gaffney Board of Public Works
ACOG Grants Division
Norfolk Southern Corporation
Recreational grant funding sources, such as the South Carolina Department of Parks, Recreation and
Tourism.
Local businesses willing to sponsor the trail project with contributions or in-kind labor.
Local service organizations, such as the Boy Scouts, willing to support trail project with volunteer
labor.
68
69
Section VII: Neighborhood
Infrastructure
The foundation of any healthy neighborhood is its infrastructure. Without adequate water, sewer,
drainage, and road infrastructure, a neighborhood is limited in its ability to grow and flourish. As part of
this planning initiative, the current condition of infrastructure was analyzed.
Resident Feedback on Infrastructure
Accurately assessing the condition of infrastructure is a technical exercise, thus it is possible for a
neighborhood to have underground infrastructure problems which are not always evident to residents.
Signs which might make such problems noticeable include dirty drinking water, sewage back-ups, and
overflowing manholes. Residents were asked several questions about infrastructure in the survey
administered at the Village Renaissance Open House. The table below is an aggregated summary of
their responses:
Open House Survey
Neighborhood Infrastructure
Infrastructure Topic
% who are unsatisfied
Water
Sewer
Drainage
Roads
17%
24%
26%
49%
Source: Gaffney Village Renaissance Open House Survey, February 2011.
Short of obvious physical signals which would indicate bad water lines, backed up sewer lines or flooding
conditions, the area of roads is the most visible form of infrastructure for residents. Not surprisingly,
that area received the greatest negative survey response. Perhaps because of the out of sight, out of
mind nature of certain utilities like water and sewer, infrastructure topics were not emphasized as much
as crime and neighborhood appearance during the town hall-type discussion which took place at the
Open House.
In the Study Area Advisory Committee’s Strengths-Weaknesses-Opportunities-Threats analysis,
“Streets/Parking/Infrastructure” was tied as the fourth greatest neighborhood Threat, but the topic was
not listed in relation to any neighborhood Strengths, Weaknesses, or Opportunities. Committee
members stated that they believe most of the neighborhood infrastructure is old and that the local
government should keep a close eye on it to ensure proper functioning.
Professional Assessment of Infrastructure
The current condition of Study Area infrastructure was analyzed by the City of Gaffney Engineer through
information provided by the Gaffney Board of Public Works (GBPW). GBPW is a separate entity from the
City of Gaffney which provides potable water, sanitary sewer and electrical utility services to the entire
City. The findings of this assessment are found in the Preliminary Engineering Report (PER) which
Section VII: Neighborhood Infrastructure
71
accompanies this Plan document.
addressed in that report:
Below is a general summary of the core infrastructure areas
Water
While the water lines of the Study Area are typically more than 50-years old, they are
generally in adequate condition. It is recommended that a 4-inch line along Oak Street be replaced with
a 6-inch line in order provide more adequate capacity for fire protection.
Sewer
Most of the sewer lines are in fair condition, but an 8-inch line that previously served
the Big Mill site is in poor condition. The GBPW is currently upgrading this sewer line to accommodate
the new County Administrative Complex which is presently under construction on that site.
Drainage
A major drainage problem area is the culvert which runs under Oak Street near the
People’s Creek sub-basin. The 50-year old 6’ pipe which runs under this road is on the verge of collapse.
Addressing it as part of this planning process is essential because in the event of a collapse, the road
would be closed during an enormously expensive repair job of both the culvert and the road above it. In
addition to it being a health and safety concern, this road provides access to neighborhood residents to
Gaffney Middle School and several other locations to the south.
Roads
While road condition is always an area of continuous maintenance and improvement in
any part of the city, Study Area roads are generally in adequate condition.
72
Strategic Plan
Grant Program Desired Outcome

“Address infrastructure and public facility needs.”

“Upgrade neighborhood water, sewer, drainage, roads, sidewalks, and street lights where this
public infrastructure is found to be inadequate.”
Supportive Findings




In regards to infrastructure, the topic of roads received the most negative response from
residents in the Village Renaissance Open House survey. Infrastructure in general, however, was
overshadowed by the topics of neighborhood crime and physical appearance.
In its Strengths-Weaknesses-Opportunities-Threats analysis, the Advisory Committee indicated
that “Streets/Parking/Infrastructure” was the neighborhood’s fourth greatest threat.
The Preliminary Engineering Report (PER) for this Plan identified a 4-inch water line along Oak
Street which should be replaced with a 6-inch line to provide more adequate fire protection.
The PER identified a major drainage problem at culvert which runs under Oak Street near the
People’s Creek sub-basin. This culvert presents significant health, safety and road access
problems.
Section VII: Neighborhood Infrastructure
73
Recommendations
1. Replace the deteriorated 6’ pipe in the Oak Street culvert near the People’s Creek sub-basin
before it collapses and presents major health, safety and road access problems.
2. Replace the current, inadequate 4” water line running along Oak Street for adequate fire
protection.
3. Continue to communicate with GBPW and monitor the condition of neighborhood water, sewer,
drainage, and road infrastructure.
Time Frame
1. Above noted drainage improvement should be made during the first round of CDBG VR funding
(2012-2013).
2. Installation of new 6-inch water line along Oak St. should be considered during the second
round of CDBG Village Renaissance Implementation funding, in years 2014-2015.
3. The monitoring of Study Area infrastructure is on-going by the GBPW and the City; this activity
will continue indefinitely.
Responsible Parties
City of Gaffney
Partners



ACOG Grants Division
Other potential grant funding sources, such as the SC Department of Transportation and the U.S
Department of Agriculture, which may be able to help support future infrastructure projects.
74
Section VIII: Conclusion
Conclusion
General
The citizen-driven revitalization planning process which has taken place in Gaffney’s Big Mill Village
throughout 2011 revealed numerous challenges but also a variety of creative solutions. The
Neighborhood Advisory Committee and the City set out to develop strategies based on the following
desired outcomes of the Village Renaissance program:






Improve Neighborhood Involvement and Interaction
Provide Neighborhood Safety and Pride
Improve Physical Appearance and Property Values
Promote Sustainability and Conservation
Address Infrastructure and Public Facility Needs
Identify In-Fill Housing Opportunities
For each of these topic areas, this Plan recommends strategies which propose to be both effective and
realistic for a 5-year time frame and beyond. By virtue of having these strategies and all of their
supporting data organized into a single document, the City has a blue print by which to support future
revitalization.
Future CDBG Village Renaissance Implementation
While all of the recommended strategies are important, it was necessary to prioritize a list of capital
projects for future CDBG Village Renaissance funding consideration. In addition to these projects being
essential for revitalization and comprehensive in scope, they also had to be good, eligible fits for the
grant program. The proposed project list and time frame is found in the Executive Summary at the
beginning of this document. These projects will serve as catalysts for long-term, sustained vitality in the
Big Mill Village.
76
Section IX: Summary List of
Strategic Plans by Topic
Neighborhood Involvement & Interaction
Village Renaissance Grant Program Desired Outcome
“Improve neighborhood involvement and interaction.”
Gaffney Village Renaissance Advisory Committee Goals
 “Foster neighborhood involvement and ‘buy-in’ to this revitalization process through improved communication,
coordination and vision.”
 “Find ways to channel the pride, history and creativity of the neighborhood as a unifying and transformational
force.”
Supportive Findings
Positive
 Robust attendance at Village Renaissance Open House event revealed active concern for the neighborhood
among residents.
 65% of Open House Survey respondents indicated willingness to attend future neighborhood meetings.
 Good attendance at the Mary Bramlett School’s “Sow Me the Seeds” event revealed the potential for increased
volunteerism in the Study Area.
Negative
 Open House Survey data revealed that a majority of residents do not believe there is a strong sense of
community, volunteerism, or willingness to help each other out.
 The Advisory Committee S.W.O.T. analysis revealed that there is a lack of communication, coordination, and
vision in the Study Area.
Recommendations
Encourage the establishment of a Neighborhood Organization by engaging neighborhood leadership and faith leaders.
Working with such an organization, the following actions are recommended:
1. Utilize the Gaffney Police Department to help residents develop a neighborhood Crime Watch program,
complete with regular meetings, signage, and a resident phone tree.
2. Utilize City Sanitation to help residents plan annual or semi-annual, volunteer-driven “neighborhood clean-up
day” events.
3. Provide assistance to residents in the planning of neighborhood-wide recreational outings at the new 3-acre
City Park on the old mill site.
4. Install neighborhood welcome signage which encapsulates mill village history and pride. Specific
recommendations regarding such signage as part of new neighborhood beautification gateways are found in
the Public Facilities section of this Plan.
Time Frame
1-3.
Discussions for establishing a neighborhood organization among mill village leaders are on-going and will
continue until this effort reaches fruition in the form of regularly scheduled meetings. The City continues to
remain supportive and willing to assist these residents in all of the initiatives outlined above.
4. A recommended time frame for installing neighborhood welcome signage as part of a broader beautification
gateway initiative during the first round of CDBG Village Renaissance Implementation (2012-2013) is described
in the Public Facilities section of this Plan.
Responsible Party
Leaders from the Neighborhood
Partners
 City of Gaffney – Community Development, Police Department, Sanitation
 Mary Bramlett Elementary School
 Boys & Girls Club (just outside of the neighborhood)
 Neighborhood and nearby faith-based organizations
 Local non-profit organizations to provide guest speakers and education at neighborhood meetings and to
provide volunteer labor during neighborhood clean-up days.
78
Neighborhood Crime
“Provide neighborhood safety and pride.”
Gaffney Village Renaissance Advisory Committee Goal
“Decrease neighborhood crime and drug activity through heightened security and increased accountability.”
Supportive Findings
 The topic of crime dominated the town hall-style discussion which took place at the neighborhoodwide Open House event.
 Open House survey data revealed that a great majority of Study Area residents have significant
concerns about safety, drugs, violence, theft, and vandalism.
 The Advisory Committee S.W.O.T. analysis revealed that some of the greatest Weaknesses and
Threats facing the neighborhood are crime, safety, drugs, and nuisance behavior.
 Data from the Gaffney PD over the last 10+ years reveal that (1) crime is trending upwards over time,
(2) that crimes involving Theft, Violence and Property are bringing about the most arrests, and (3)
that while crime is a problem throughout the neighborhood, it is slightly more concentrated in the
western half near the old mill site.
Recommendations
1. As discussed in the Neighborhood Involvement and Interaction section of this Plan, continue to
support neighborhood leadership in its efforts to establish a neighborhood organization with a
formal crime watch program.
2. Work with Gaffney Board of Public Works to install additional street lighting in dark areas of the
Study Area which presently serve as crime danger spots.
3. Install security cameras in strategically identified locations throughout Study Area. This
recommendation is further described in the Public Facilities section of Plan.
Time Frame
1. Discussions among neighborhood leaders on establishing a neighborhood organization with a Crime
Watch component are on-going and the Gaffney Police Department remains supportive.
2. Years 2012-2013, pending available City and GBPW scheduling and resources.
3. Install strategically located security cameras: 2012-2013, during the initial round of CDBG Village
Renaissance Implementation funding (discussed further in Public Facilities section).
Responsible Parties
Gaffney Police Department
Neighborhood Leadership
Potential Partners
 Cherokee County
 Mary Bramlett Elementary School
 Neighborhood faith-based organizations
 Local non-profit organizations which address at-risk youth crime prevention, such as the nearby Boys
& Girls Club.
Section IX: Summary List of Strategic Plans by Topic
79
Neighborhood Housing and Physical Appearance
Village Renaissance Grant Program Desired Outcomes

“Improve physical appearance and property values”

“Identify in-fill housing opportunities”

“Improve property appearance throughout the neighborhood.”

“Take advantage of neighborhood ‘character’ and potential by creating an environment which encourages an
economically diverse and well-maintained standard of housing.”

“Mitigate the unattractive and potentially unsafe characteristics of vacant lots and dilapidated buildings.”
Supportive Findings

Open House survey data revealed that residents are almost unanimously unsatisfied with the condition and
appearance of neighborhood housing.

The Advisory Committee S.W.O.T. analysis revealed that some of the greatest Weaknesses and Threats facing the
neighborhood are based around the state of neighborhood housing. The S.W.O.T. analysis also revealed that housing
improvement is the neighborhood’s greatest Opportunity.

Data gathered from a Windshield Housing Assessment conducted by ACOG and the City of Gaffney revealed that 76%
of Study Area Homes need repair.

There is a greater concentration of Major Repair and potential demolition homes in the western half of the
neighborhood near the Big Mill Site. Conversely, there is smaller concentration of Sufficient External Condition homes
in this area.

Extremely low income and high poverty in the Study Area indicate that there are few resources available for
personally financed home improvement.
Recommendations
1. Seek CDBG Village Renaissance funding for exterior housing rehabilitation in the identified target area near the old
mill site and downtown Gaffney.
2. Seek CDBG Village Renaissance funding to demolish the empty, dilapidated and unsafe houses in the Study Area.
Demolitions should first be sought through Voluntary Agreement. Code Enforcement should be used only if
necessary.
3. Seek Federal HOME Funds as they become available for both housing renovation and new in-fill housing opportunities
throughout the Study Area.
4. Develop relationships with non-profit organizations who participate in low-income housing programs, such Habitat
for Humanity and regional Community and Economic Development Corporations (CEDC’s).
5. Continue to enforce code in the Study Area in order to crack down on loose trash, overgrown lots, and general
neglect of private property.
Time Frame
1. Housing Façade Improvements: 2014 – 2015, during the second installment of CDBG Village Renaissance
Implementation.
2. Housing Demolition: 2012 – 2013, during the first installment of CDBG Village Renaissance Implementation.
3. Seek Federal HOME Funds: applications to be submitted regularly as funding cycles are announced.
4. Develop Relationships with Housing Non-Profits: outreach to organizations is on-going and to be continued
indefinitely.
5. Code Enforcement: on-going and to be continued indefinitely.
Responsible Party
City of Gaffney
Partners

South Carolina Appalachian Council of Governments


South Carolina HOME program, Federal Home Loan Bank, and any other potential government funding source

Non-Profit Organizations who specialize in low-income housing
80
Neighborhood Public Facilities
Village Renaissance Grant Program Desired Outcomes
 “Address infrastructure and public facility needs.”’
 “Promote sustainability and conservation.”
 “Upgrade neighborhood water, sewer, drainage, roads, sidewalks, and street lights where these public resources are found
to be inadequate.”
 “Beautify the neighborhood by taking advantage of its natural assets, including green space, trees and landscape.”
 “Create a ‘connection’ between neighborhood residents and nearby downtown.”
 “Find ways to channel the pride, history and creativity of the neighborhood as a unifying and transformational force.”
Supportive Findings
 Open House survey suggested that neighborhood sidewalks and street lights are inadequate; Advisory Committee reiterated.
 Street-by-street, visual assessments of sidewalks and street lights indicate that they are lacking in specific sections.
 The number of Study Area crimes between years 2000 and 2010 went up by 35%, and with limited financial resources,
installation of neighborhood security cameras is recommended as a cost effective strategy.
 Open House survey respondents expressed dissatisfaction with the amount of public meeting and recreational places.
 An abandoned rail spur line which runs centrally through the neighborhood provides an excellent location for construction of
a ½ mile walking trail to connect the east and west ends of the neighborhood. Such a trail would provide (1) a good place for
exercise, and (2) a direct walking route to downtown, the redeveloped old mill site, the Mary Bramlett School, and the Boys
& Girls Club.
Recommendations
1. Partner with Gaffney Board of Public Works (GBPW) to install street lights in dark areas. GBPW will own and maintain the
lights and the City will pay a regular utility bill for opration.
2. Install five (5) security cameras at strategic locations recommended by the Gaffney PD to increase safety cost effectively.
3. Install attractively landscaped neighborhood gateways with welcome signage at four (4) key entry points of the
neighborhood to create feeling of history and pride. The signs should emphasize neighborhood establishment of 1892.
4. Construct sidewalks around the high foot traffic area of Mary Bramlett Elementary School where there are presently none.
5. Continue conducting research and performing due diligence on acquiring/converting the abandoned rail spur line along Mary
Bramlett Alley into a central neighborhood walking trail. Research recreational grant funding sources and sponsors.
Time Frame
1. New Street Lights along Mary Bramlett Alley: 2012-2013, during the first round of CDBG Village Renaissance Implementation.
2. Installation of Strategically Located Security Cameras: 2012-2013, during the first round of CDBG VR Implementation.
3. Installation of Neighborhood Beautification Gateways with Welcome Signage: 2012-2013, during the first round of CDBG
Village Renaissance Implementation.
4. New sidewalks around Mary Bramlett Elementary School: 2012-2013, during first fround of CDBG VR Implementation.
5. Research/due diligence on central recreational walking trail is on-going. Dialogue with Norfolk Southern should continue and
the search for grant funding sources and potential local sponsors should begin immediately.
Responsible Party
City of Gaffney
Partners:
 Gaffney Board of Public Works
 ACOG Grants Division
 South Carolina Department of Commerce – Grants Administration
 Norfolk Southern Corporation
 Recreational grant funding sources, such as the South Carolina Department of Parks, Recreation and Tourism.
 Local businesses willing to sponsor the trail project with contributions or in-kind labor.
 Local service organizations, such as the Boy Scouts, willing to support trail project with volunteer labor.
Section IX: Summary List of Strategic Plans by Topic
81
Neighborhood Infrastructure
“Address infrastructure and public facility needs.”
“Upgrade neighborhood water, sewer, drainage, roads, sidewalks, and street lights where this public
infrastructure is found to be inadequate.”
Supportive Findings
 In regards to infrastructure, the topic of roads received the most negative response from
residents in the Village Renaissance Open House survey. Infrastructure in general, however, was
overshadowed by the topics of neighborhood crime and physical appearance.
 In its Strengths-Weaknesses-Opportunities-Threats analysis, the Advisory Committee indicated
that “Streets/Parking/Infrastructure” was the neighborhood’s fourth greatest threat.
 The Preliminary Engineering Report (PER) for this Plan identified a 4-inch water line along Oak
Street which should be replaced with a 6-inch line to provide more adequate fire protection.
 The PER identified a major drainage problem at the culvert which runs under Oak Street near
the People’s Creek sub-basin. This culvert presents significant health, safety and road access
problems.
Recommendations
1. Replace the deteriorated 6’ pipe in the Oak Street culvert near the People’s Creek sub-basin
before it collapses and presents major health, safety and road access problems.
2. Replace 4-inch water line on Oak St. with a 6-inch water line to ensure adequate fire protection.
3. Continue to communicate with GBPW and monitor the condition of neighborhood water, sewer,
drainage, and road infrastructure.
Time Frame
1. Above noted drainage improvement should be made during the first round of CDBG VR funding
(2012-2013).
2. Installation of new 6-inch water line along Oak St. should be considered during the second
round of CDBG VR Implementation funding, in years 2014-2015.
3. The monitoring of Study Area infrastructure is on-going by the GBPW and the City; this activity
will continue indefinitely.
Responsible Parties
City of Gaffney
Partners:
 ACOG Grants Division
 South Carolina Department of Commerce – Grants Administration
 Other potential grant funding sources, such as the SC Department of Transportation and the U.S
Department of Agriculture, which may be able to help support future infrastructure projects.
82
Appendix I: Open House Flier
and Newspaper
Advertisements
84
Appendix I: Open House Flier and Newspaper Advertisements
85
86
Appendix II: Open House
Residential Survey and Results
Gaffney VR Survey Tally Sheet
NEIGHBORHOOD INVOLVEMENT &
INTERACTION
Strongly
Agree
Agree
There is a strong sense of
community in my neighborhood.
8%
15%
23%
32%
15%
8%
The residents of my neighborhood
often help each other out.
9%
26%
23%
20%
8%
15%
Residents work & volunteer together
to make my neighborhood a good
place to live.
3%
15%
20%
41%
11%
11%
NEIGHBORHOOD SAFETY & PRIDE
Strongly
Agree
Agree
I feel safe when walking or riding my
bike during the day time.
8%
27%
12%
30%
17%
6%
I feel safe when walking or riding my
bike during the night time.
2%
8%
8%
32%
44%
8%
Children are safe when playing in
my neighborhood.
5%
11%
18%
36%
17%
14%
Drugs are not a significant problem
in my neighborhood.
5%
6%
12%
27%
42%
8%
Theft is not a significant problem in
my neighborhood.
2%
8%
6%
38%
39%
8%
Violence is not a significant problem
in my neighborhood.
3%
9%
17%
30%
35%
6%
9%
15%
30%
42%
3%
Vandalism is not a significant
problem in my neighborhood.
No
Strongly
Disagree
Opinion
Disagree
No
Strongly
Disagree
Opinion
Disagree
Do Not
Know
INFRASTRUCTURE & PUBLIC FACILITIES
Strongly
Agree
Agree
Roads in my neighborhood are in
decent condition.
8%
29%
12%
38%
11%
3%
My home is served by a sidewalk.
14%
53%
12%
9%
9%
3%
Sidewalks in my neighborhood are
in decent condition.
5%
30%
9%
42%
12%
2%
6%
23%
18%
38%
11%
5%
17%
41%
18%
18%
5%
2%
3%
32%
12%
30%
18%
5%
Sidewalks or other pedestrian
pathways make it easy for me to
walk or ride a bike in my
neighborhood.
Sidewalks provide good walking
access to public places like
downtown Gaffney, church, the
library, etc.
I am satisfied with the street lighting
of my neighborhood.
88
No
Strongly
Disagree
Opinion
Disagree
Do Not
Know
Do Not
Know
After it rains, water drains from the
roads, sidewalks and ditches in a
reasonable amount of time.
6%
42%
18%
18%
8%
8%
After a heavy rain, sewer manholes
do not overflow with water.
5%
39%
24%
15%
9%
8%
I am satisfied with the quality of
drinking water in my neighborhood.
5%
58%
18%
6%
11%
3%
3%
11%
17%
38%
30%
2%
2%
14%
24%
32%
21%
8%
Strongly
Agree
Agree
2%
3%
6%
36%
50%
3%
2%
8%
3%
35%
48%
5%
2%
18%
3%
44%
33%
11%
11%
42%
35%
There are adequate public places
for children to play in my
neighborhood.
There are adequate public meeting
places for residents in my
neighborhood.
PHYSICAL APPEARANCE & VALUE OF
PROPERTIES
To the best of my knowledge, my
neighborhood is now a more
desirable place to live than it was 25
years ago.
neighborhood is now a more
desirable place to live than it was 50
years ago.
Most houses in my neighborhood
are in decent physical condition.
Most houses in my neighborhood
look attractive when I pass by.
No
Strongly
Disagree
Opinion
Disagree
While there are some empty houses,
I do not think they make the overall
neighborhood look less attractive.
3%
11%
6%
44%
36%
While there are some empty lots
(where houses have been torn
down), I do not think they make the
overall neighborhood look less
attractive.
5%
21%
18%
29%
27%
GUIDING THE FUTURE OF THE
NEIGHBORHOOD
Strongly
Agree
Agree
I would like to participate in
voluntary meetings this year for this
Village Renaissance Grant and the
improvements it will bring to my
neighborhood.
29%
36%
No
Strongly
Disagree
Opinion
Disagree
24%
5%
3%
Do Not
Know
2%
Do Not
Know
3%
Appendix II: Open House Residential Survey and Results
89
The City of
CITY OF GAFFNEY BIG MILL VILLAGE RENAISSANCE PLANNING GRANT – CITIZEN SURVEY
The City of Gaffney has received a 2011 Planning Grant from the South Carolina Department of
Commerce to conduct a Strategic 5-Year Revitalization Plan for the Big Mill Neighborhood in
Gaffney. The City has contracted with the Appalachian Council of Governments (ACOG) to
develop this plan over the coming year. We need your feedback to be successful. Please take
a few minutes to answer the following questions. Thank you for your participation!
PLEASE BE OPEN AND HONEST! YOUR OPINION IS RESPECTED AND CONFIDENTIAL AMONG OUR
STAFF.
Strongly
Agree
Neighborhood Issue
Agree
No
Opinion
Disagree
Strongly
Disagree
Do not
Know
Strongly
Disagree
Do not
Know
NEIGHBORHOOD INVOLVEMENT & INTERACTION
There is a strong sense of community in my
neighborhood.
The residents of my neighborhood often help
each other out.
Residents work & volunteer together to make
my neighborhood a good place to live.
NEIGHBORHOOD SAFETY & PRIDE
I feel safe when walking or riding my bike
during the day time.
I feel safe when walking or riding my bike
during the night time.
Children are safe when playing in my
neighborhood.
Drugs are not a significant problem in my
neighborhood.
Theft is not a significant problem in my
neighborhood.
Violence is not a significant problem in my
neighborhood.
Vandalism is not a significant problem in my
neighborhood.
INFRASTRUCTURE & PUBLIC FACILITIES
Roads in my neighborhood are in decent
condition.
My home is served by a sidewalk.
PLEASE CONTINUE SURVEY ON THE BACK OF THIS PAGE
INFRASTRUCTURE & PUBLIC FACILITIES, CONT.
Strongly
Agree
Sidewalks in my neighborhood are in decent
condition.
Sidewalks or other pedestrian pathways
make it easy for me to walk or ride a bike in
my neighborhood.
90
Agree
No
Opinion
Disagree
Sidewalks provide good walking access to
public places like downtown Gaffney,
church, the library, etc.
I am satisfied with the street lighting of my
neighborhood.
After it rains, water drains from the roads,
sidewalks and ditches in a reasonable
amount of time.
After a heavy rain, sewer manholes do not
overflow with water.
I am satisfied with the quality of drinking
water in my neighborhood.
There are adequate public places for
children to play in my neighborhood.
There are adequate public meeting places
for residents in my neighborhood.
PHYSICAL APPEARANCE & VALUE OF PROPERTIES
neighborhood is now a more desirable place
to live than it was 25 years ago.
neighborhood is now a more desirable place
to live than it was 50 years ago.
Most houses in my neighborhood are in
decent physical condition.
Most houses in my neighborhood look
attractive when I pass by.
While there are some empty houses, I do not
think they make the overall neighborhood
look less attractive.
While there are some empty lots (where
houses have been torn down), I do not think
they make the overall neighborhood look less
attractive.
GUIDING THE FUTURE OF THE NEIGHBORHOOD
I would like to participate in voluntary
meetings this year for this Village Renaissance
Grant and the improvements it will bring to
my neighborhood.
Would you like to share additional thoughts? Please write them here.
We consider you to be the best way to learn about helping your neighborhood, so we may
want to contact you to learn more:
Resident Name:
Resident Address:
Resident Phone #:
E-mail (optional):
Appendix II: Open House Residential Survey and Results
91
92
Appendix III: Advisory
Committee StrengthsWeaknesses-OpportunitiesThreats (S.W.O.T.) Analysis
Weaknesses
Gaffney Big Mill Village S.W.O.T. Analysis
Strengths
Vacant Lots/Buildings (2)
Unhealthy Rental Market & Shortage of Home
Ownership (3)
Streets/Parking/Infrastructure (3)
Drugs (5)
Lack of Commitment to
Community (7)
Crime & Safety (10)
Threats
Sidewalks (1)
Nuisance Behavior (3)
Lack of Neighborhood
Communication/Coordination/Vision (3)
Drugs (6)
Crime & Safety (7)
Location/Proximity/Access Property Condition/Shortage
of Home Ownership (9)
to Goods & Services (10)
Common Cause & Need for
Community Development (8)
Sense/Feeling of Community (4)
Property Potential (3)
Community Pride, History & Tradition (3)
Opportunities
Property
Restoration/Beautification (7)
Create “Patio” Housing Market for
Starters, Retirees, Artists (6)
Increase Neighborhood Pride (4)
Clean Streets & Greenspace Development (4)
Market Proximity to Downtown (3)
Improve Lighting/Security (2)
94
Appendix IV: Police Report of
2009 Homicide on Mary
Bramlett Alley
96
Appendix V: Gaffney Police
Department Letter
Summarizing the Need for
Security Cameras
98
Appendix VI: Environmental
Review Record
IN PROGRESS
100
Appendix VII: Low-toModerate Income Survey
Determination
Low-to-Moderate Income Survey Determination
A Study Area-wide low-to-moderate income survey was administered in September of 2010 during the
application process for CDBG Village Renaissance planning award number 4-V-10-007. Below were its
key findings:
Door-to-Door Survey of CDBG Target Area, September 2010
Totals
#
%
Total Houses in Target Area
Total Houses Responding
Total Houses Not Responding
Total Persons
Total LMI Persons
206
194
12
498
420
100%
94%
6%
100%
84%
All Target Area citizens who are proposed to benefit directly from future CDBG funding during Village
Renaissance Implementation will be confirmed as being of low-to-moderate income during the
application process.
102
Appendix VIII:
Comprehensive Needs
Assessment and Prioritization
Gaffney, South Carolina Needs Assessment
The City of Gaffney, SC recently advertised a community-wide needs assessment to identify the
residents’ priorities for community development efforts. On October 3rd, 2011 at 6:00 p.m., the City
held a public hearing in order to receive input from residents on the needs of the community.
Appalachian Council of Governments (ACOG) staff was there to conduct the hearing. The objective was
to survey residents, government officials, and non-profit social agencies in order to: (1) determine the
City of Gaffney’s major community, economic, and housing needs; and (2) identify potential grant
projects. Municipal officials worked to ensure the participation of the community in the needs
assessment public hearing. This was undertaken as part of the application process for a Community
Development Block Grant (CDBG) administered by the SC Department of Commerce.
While the City advertised the hearing in both the Gaffney Ledger and Cherokee Chronicle newspapers
more than a week in advance, no citizens attended this hearing. While one can only speculate why
there were no attendees, it is worth noting that citizen participation in the on-going CDBG Village
Renaissance (VR) planning award was frequent and robust throughout 2011. While this public hearing
was advertised as community-wide in scope (and not just for the VR target area), citizens both inside and
outside of the active target area have been well apprised of the on-going planning process through
public meetings and local newspaper coverage. With an anticipation of future applications for VR
implementation which stem from the planning process, citizens throughout Gaffney may have felt that
they had already expressed their needs satisfactorily. Needs were expressed throughout the year at the
following public events:




An “Open House” event in February in which nearly 100 citizens attended, filled out surveys,
asked questions and voiced concerns;
Four different City Council presentations and updates;
Monthly Advisory Committee Meetings throughout 2011 in which the plan was formulated;
Other events, such as the “Sow Me the Seeds” tree and grass planting event at the Mary
Bramlett Elementary School.
The City’s community-wide Needs Assessment document from September of 2010 is found below. In
that document, residents confirmed that activities to revitalize the Big Mill Village make up their highest
priority in regards to the CDBG program.
I.
Introduction
The City of Gaffney, South Carolina recently undertook a community-wide needs assessment to identify
the residents’ priorities for community development efforts. On September 2nd, 2010, the City held a
public hearing in order to receive input from residents on the needs of the community. The objective of
the hearing was to survey residents, government officials, and non-profit social agencies to determine
the City of Gaffney’s key development, housing and economic development needs, and identify
potential community development projects. Municipal officials worked diligently to ensure the
participation of the community in the needs assessment public hearing. This was undertaken as part of
the application process for the Community Development Block Grant (CDBG) administered by the
Appalachian Council of Governments (for the SC Department of Commerce).
104
A variety of issues were discussed at the public hearing, however, the primary community focus was on
the need to improve neighborhoods surrounding the Gaffney downtown area. In particular, the old mill
village adjacent to the planned site of the new County Administration building. Citizens felt many
neighborhoods, in older, established minority areas had declined and were leading to a reduced quality
of life in the community. This was due to a decrease of adequate housing stock, increased
transients/rental properties, a perceived lack of police presence and needs for better public
infrastructure.
In addition to the needs assessment public hearing, information from the Gaffney Comprehensive Plan
that included community wide goals and strategies to promote community development efforts was
used. The Comprehensive Plan process took place in 2004. It involved several public meetings and public
participation in identifying essential community development issues. The public hearing was advertised
in the Gaffney Ledger on August 25, 2010. Approximately six citizens and municipal officials attended
the public hearing to provide input. Because of this public hearing, all comments from the hearing, as
well as other comments provided to the municipal officials have been included in this document. In
addition, a detailed list of priorities for the community identified at the public hearing was established
and will be discussed later in this document.
II.
City of Gaffney Comprehensive Plan
City of Gaffney officials, in order to facilitate community improvement efforts, undertook a process to
update their comprehensive plan, which was completed in 2004. The City of Gaffney and the Planning
Commission, with staff support from the Appalachian Council of Governments, prepared the City of
Gaffney Comprehensive Plan. The planning process included significant community involvement with
numerous public meetings.
The City’s planning process identified many of the existing and future needs of the community as
determined by the citizens. It led to the development of goals and recommendations for
implementation by a wide range of stakeholders. The City Council supported the community’s
assessment and has actively worked to implement several of the report’s goals. This has included
partnering with Habitat for Humanity in the West End Neighborhood to develop new, affordable
housing units. Goals set out in the plan were beneficial to the needs assessment analysis for this
application. Specifically, the goals below relate directly to the current application’s focus:
1. “The City of Gaffney will encourage the development and preservation of a wide range of residential
areas to accommodate a broad range of housing needs to serve households of various sizes, age groups,
and socio-economic status.”
Recommendations:
1.
In formulating its Future Land Use Map, the City of Gaffney will attempt to find suitable
locations for all classifications and densities of housing types.
2.
The City of Gaffney will establish and enforce a regulatory framework to provide for
quiet and safe residential environments.
Appendix VIII: Comprehensive Needs Assessment and Prioritization
105
3.
The City of Gaffney will review its Zoning Ordinance and Map and make additions
and/or modifications to its zoning districts to protect residential areas, especially where
existing residential uses are non-residentially zoned.
2. “The City of Gaffney, as it continues to grow, will promote housing that is both safe and accommodates a
broad range of housing options for households of various sizes, age groups, and socioeconomic status.”
Recommendations:
1.
The City of Gaffney will consider the adoption of land development regulations
(subdivision regulations).
2.
The City of Gaffney will research ways to fund the creation and expansion of affordable
housing.
3.
The City of Gaffney will consider the accessibility of public services and utilities when
reviewing new development projects.
III.
Demographics
Cherokee County has experienced steady and consistent growth over the past few decades—42.8%
between 1970 and 2000. Between 1990 and 200 the county grew 18%. However, Cherokee County’s
growth has slowed over the last 10 years based on current population estimates. With 54,700 people
estimated to reside in Cherokee County in 2010 it represents a 4.1% growth rate over the last 10 years.
This is slower than both the Region and State as a whole although each has shown a slower growth rate
over the last decade.
Table 1
County Population Trends, 1970-2010
1970
1980
1990
2000
1990-2000
% CNG
2010
2000-2010
% CNG
Anderson
105,474
133,235
145,177
165,740
14.2%
176,400
6.4%
Cherokee
36,791
40,983
44,506
52,537
18.0%
54,700
4.1%
Greenville
240,774
287,913
320,167
379,616
18.6%
395,200
4.1%
Oconee
40,728
48,611
57,494
66,215
15.2%
74,800
13.0%
Pickens
58,956
79,292
93,896
110,757
18.0%
125,000
13.0%
Spartanburg
173,724
203,023
226,793
253,791
11.9%
277,400
9.3%
REGION
656,447
793,057
888,033
1,028,656
15.8%
1,103,500
7.3%
2,590,713
3,121,820
3,486,703
4,012,012
15.1%
4,307,500
7.4%
COUNTY
STATE
Source: U.S. Bureau of the Census (1950-2000), County & State Projections by S.C. State Data Center (2005-2025).
Narrowing the focus to the City of Gaffney, Table 2 shows that the City has not experienced similar
population growth rates since 1970. Gaffney’s population was relatively stable between 1970 and 2000
with a decline of less than 200 people. This is similar to trends experienced in comparable communities
in Cherokee and Spartanburg counties during this period. Only four of eight towns considered increased
in size and none more than 8%.
106
Table 2
Municipal Population Trends
MUNICIPALITY
Blacksburg
Gaffney
Campobello
Chesnee
Cowpens
Inman
Landrum
2
Pacolet
POP 1970
POP 1980
POP 1990
1,977
13,131
530
1,069
2,109
1,661
1,859
2,922
1,873
13,453
472
1,069
2,023
1,554
2,141
2,607
1,907
13,149
465
1,280
2,176
1,742
2,347
2,645
% CNG
70-90
-3.5
0.1
-12.3
19.7
3.2
4.9
26.3
-9.5
POP 2000
1,880
12,968
449
1,003
2,279
1,884
2,472
2,690
% CNG 9000
-1.4
-1.4
-3.4
-21.6
4.7
8.2
5.3
1.7
Source: U.S. Bureau of the Census, Census 2000
2
Figures for Pacolet are based on Pacolet and Pacolet Mills, due to their consolidation in November 1997.
Blacksburg and Gaffney, the only two municipalities in Cherokee County, each experienced a slight
decline in population during the 1990s. This was a marked difference from the County’s 18.0 percent
growth rate in population from 1990 to 2000. This represents a trend of new development occurring
outside incorporated areas, often just outside municipalities where land is more easily available for
development at a lower cost.
Table 3 shows race distribution for each jurisdiction in Cherokee County (Gaffney, Blacksburg, and the
County) as determined in the 2000 Census, as well as municipalities in close proximity to Gaffney.
According to the statistics, approximately 53.5% of Gaffney’s population is white, 44.2% of the
population is black, and 2% of the population is Hispanic. This makes Gaffney one of the most racially
diverse communities in the Region.
Table 3
Jurisdiction Population by Race, 2000
JURISDICTION
Blacksburg
2000 POPULATION
WHITE
BLACK
OTHER
HISPANIC
1,880
74.5%
23.6%
0.4%
0.5%
Gaffney
12,968
53.5%
44.2%
1.6%
2.0%
Chesnee
Cowpens
1,003
68.2%
27.5%
4.3%
4.7%
2,279
75.6%
21.4%
3.0%
3.2%
Inman
1,884
69.3%
27.8%
3.0%
1.3%
Landrum
2,472
81.8%
15.9%
2.3%
1.8%
Lyman
2,659
91.7%
6.1%
2.2%
1.5%
Pacolet
2,690
71.8%
26.2%
2.0%
1.2%
Woodruff
4,229
68.5%
27.7%
3.8%
3.7%
2
Source: U.S. Bureau of the Census, Census 2000
2
Figures for Pacolet are based on Pacolet and Pacolet Mills, due to their consolidation in November 1997.
107
VI.
Community Development Needs
A. Housing
As identified in the Needs Assessment Public Hearing and the Gaffney Comprehensive Plan, one of
the highest priorities for the City is the rehabilitation of housing stock in the city. The primary focus
at this time is the mill village adjacent to downtown. Currently the neighborhood is in decline, has
some dilapidated housing and vacant lots that need to be addressed, and an increasing crime
problem. The neighborhood is directly adjacent to downtown within easy walking distance. In
addition, the County intends to build its new Administrative Complex on the old mill site within the
neighborhood. Along with this there are plans for a community park that could serve the
neighborhood. Residents are trying to clean up properties, attract new residents who care about the
area and, reduce the transient rental population. Housing rehabilitation is an important first step to
keep those citizens committed to the neighborhood intact. Coordination between the residents and
the City of Gaffney’s Community Development (Grants and Zoning Divisions), Police, and Public
Works Departments will be critical to achieve this and other goals better the residents’ quality of
life.
B.
Infrastructure
As identified in both the Needs Assessment Public Hearing and the City of Gaffney Comprehensive
Plan, water and sewer improvements are an ongoing focus of the community as aging lines have to
be addressed in older neighborhoods. The largest water and sewer improvements are needed in the
old mill village areas which have the oldest lines typically. Most water and sewer lines in these areas
are old and were installed over 60 years ago. I&I problems (inflow and infiltration of stormwater and
groundwater into sewer lines) are very costly and it is difficult to “band aid” this problem.
In addition, sidewalks have been identified as a need by residents and the City. Residents would like
to see them for safety purposes and as a quality of life improvement. The City sees extension of
sidewalks from Downtown outward to neighborhoods as a way to bring more people into the
downtown area and improve neighborhoods at the same time.
C. Public Facilities
Residents and community officials identified the need to increase lighting in neighborhoods
throughout the City as an important need for the community. Citizens noted there were areas that
crime had increased that felt increasingly unsafe after dark because of the lack of lighting. New
lighting was seen as a way to deter crime in these areas and improve safety for residents.
Public parks were also identified as an item residents would like to see more of in the community.
Attendees were excited to hear there were plans for a park on the County Administrative Complex
that residents of the mill village area would have access to. The building of parks in the community is
tool for improving quality of life for residents and spurring new interest in residential areas that lack
similar facilities.
108
D.
Economic Development and Obstacles to Competiveness
Another identified need for the residents of this community is the lack of economic
development/business opportunities for residents. While residents enjoy living in the Gaffney
area, concerns about the lack of jobs in the area were voiced by residents as a deterrent to
attracting more residents to the community.
The residents also felt that there needed to be more local support of local businesses.
E.
Public Safety
Residents expressed concerns that some neighborhoods were becoming serious problems when
it came to public safety. Individuals expressed concern at the rising number of break-ins and
auto burglaries in older neighborhoods was causing people to move out of these areas. This in
turn is leading to more abandoned and vacant homes in neighborhoods which in turn lead to
additional decline.
A need for additional patrols has been suggested as a way to reduce crime in these areas. This
combined with expanded street lighting and neighborhood watch programs were considered by
attendees as a good first step to improving overall safety in at risk neighborhoods and create an
environment conducive to redevelopment.
F.
Workforce Development
Residents expressed a need for more job training, especially with the new campus of
Spartanburg Community College in Cherokee County.
G.
Neighborhood Rehabilitation
The residents in attendance noted a serious need to address dilapidated and vacant homes in
older neighborhoods. They were seen as a detriment to the neighborhoods and prevented new
home owners from locating in certain areas. This has led to an increase in rental housing that in
turn has hurt support for neighborhoods.
H.
Downtown Rehabilitation
Residents expressed a desire to see additional business activities to happen in Gaffney,
especially downtown. This City has invested significant amounts of time and money into creating
a successful downtown. They would like to see the connections between the downtown and
nearby neighborhoods improved so that it will bring more residents in and attract additional
businesses.
The residents feel that if the downtown was improved more businesses would be attracted to
locate there. The residents also felt that there needed to be more local support of local
businesses.
109
VII.
Priorities
The City of Gaffney used the needs assessment public hearing to assess its community needs for 2010.
The following needs were prioritized based on the number of times the issue was addressed during the
public hearing.
1. Develop a plan to focus on improving the old mill village adjacent to downtown. Efforts should build
on the plans for redevelopment of the old mill site and the proximity to downtown Gaffney.
2. Focus on redevelopment of dilapidated and abandoned housing in older neighborhoods. Look for
infill opportunities on vacant parcels and opportunities to target dilapidated structures for
demolition.
3. Improve safety in neighborhoods through increased police presence and installing more lighting to
create a safer environment.
4. Extend sidewalks from downtown into residential areas to create a more walkable community and
improve connections between downtown and residents.
5. Community-wide clean up effort to involve citizens to take ownership in the neighborhood and
community
110
Minutes
Needs Assessment Public Hearing
September 2nd, 2010 - 6:00 p.m.
City Hall, Gaffney, South Carolina
The City of Gaffney held a needs assessment public hearing to solicit input from its citizens on
community development needs and priorities. In order to ensure public participation, especially by low
to moderate-income persons, a public hearing notice appeared in the August 25th, 2010 edition of the
Gaffney Ledger. The Mayor, City Council, and all City officials and employees were invited to the
hearing. Notices regarding the hearing were posted at City Hall. The City staff also went door to door in
low income areas to invite residents to the public hearing.
Approximately six persons attended the public hearings. Mr. James Taylor, City Administrator, opened
the public hearings and welcomed the attendees. Mr. Chip Bentley from the Appalachian Council of
Governments then explained the purpose of the hearing. Mr. Bentley stated that the City was
considering applying for a Community Development Block Grant (CDBG) grant and the purpose of the
meeting was to identify possible community development projects in Gaffney. He then explained the
CDBG program, including the amount of funds available, types of projects that are eligible for CDBG
consideration, and that the program was designed to serve low to moderate-income persons.
Mr. Bentley then proceeded to gather information from the attendees as stated below. The following
information was gathered from the citizens in an active dialog:
WHAT DO YOU LIKE ABOUT LIVING IN GAFFNEY?









Small town community
Plenty of churches
Close to city, county, economic, social, and health services
Good location on I-85 corridor and in state
Good city services (police, fire, public works)
Water and sewer infrastructure is pretty good
Cultural community (arts center)
Limestone College (educational, cultural, economic, and social impacts on Gaffney)
Improving central business district
WHAT DO YOU DISLIKE ABOUT GAFFNEY?


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Houses in need of renovation
Dilapidated housing creating eye sores
High vacancy rates in some neighborhoods
Lighting a problem in areas and needs to be expanded
Increasing safety concerns in some neighborhoods (auto burglaries, break ins)
Lack of sidewalk a problem
111
What Are The Challenges That Face Gaffney?
Infrastructure

Aging water and sewer lines
Housing



Lots of abandoned homes
Need to demolish vacant homes that are dilapidated
Bring affordable housing options to residents

Expand on current elderly housing programs

Take advantage of opportunities for redevelopment and infill
Public Facilities


Renovation and upkeep of parks
Extend sidewalks into neighborhoods surrounding downtown
Public Safety



Expand code enforcement on homes, especially for transient rental units
Focus law enforcement efforts on trouble areas
Expand police presence in neighborhoods with increasing safety issues
Economic Development and Obstacles to Competitiveness


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Need development on corridors (SC 8, SC 183, US 178)
Improve beautification of corridors
Need incentives for businesses to come to Pickens
We’re a “pass through” town, need to become a destination
Significant competition from Easley, Clemson, Greenville
Workforce Development

Provide job training
Neighborhood Rehabilitation



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Need more new and upgraded sidewalks throughout the community
Need more lighting (for safety)
Combat crime (drug dealing challenges mainly)
Demolish vacant homes
Improve the housing stock through targeted rehabilitation efforts
Bring more affordable housing opportunities
Downtown Rehabilitation


Connect downtown streetscape with County Administrative Complex development
Improve business recruitment downtown
112
After the attendees at the public hearing were finished with their comments, Mr. Bentley asked
participants to indicate what they felt was the highest priority need for Gaffney. Every resident present
indicated that improving the old mill neighborhood adjacent to downtown was the highest priority. The
County has plans for a new administration building on the old mill site. The City plans to partner with the
County to build a community park on a section of the site as well. The citizens felt the mill community’s
housing stock was suffering and the neighborhood was the prime area to focus redevelopment with the
addition of the community facilities in the areas. Additional priorities included extending sidewalks,
improving safety in neighborhoods through better lighting and improved safety patrols, and addressing
the abandoned and dilapidated housing in the area.
113

CDBG Village Renaissance Revitalization Plan for The Big Mill

Transcription

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