Increasing
the Harvest for Farmworker Housing (Abstract)
by
Lena Robinson, Community Affairs Specialist, Federal Reserve Bank of San
Francisco
Introduction
The McMullen Valley, which lies between two mountain ranges in southwest Arizona,
is a fertile valley noted for agriculture where labor-intensive crops such
as cantaloupe, honeydew, and watermelon are grown. Cotton, wheat, carrots,
and onions fill out the harvest that makes the success of agriculture in
the valley highly dependent on the availability of seasonal and full-time
workers. An already existing severe housing shortage for these workers was
worsened in October 2000 when twin devastating floods struck (read the full
story of Wenden-Salome).
At
the time of the flood, numerous farm workers were sleeping under bridges
and trees along a tributary of the Colorado River. Many were crowded
into trailers with inadequate plumbing, which created sanitation problems.
According to George Saiter, executive director of the Wenden-Salome
Flood Recovery Commission, the shortage of housing is evidenced by
the amount of garbage and human feces in and around Wenden and Salome
each harvest season. Everything remotely resembling a dwelling is occupied
or overloaded, resulting in a slum housing environment with unsanitary
living conditions and safety hazards.
McMullen Valley’s conditions are common
to farm communities everywhere and especially those that rely on a
large temporary workforce. Such conditions as overcrowded and dilapidated
housing for the lucky few who actually find shelter are contrasted
with homelessness for those that cannot. The good news is that efforts
are underway to provide shelter for this vital human resource—farm
workers.
The full-length version of this article, Increasing
the Harvest for Farmworker Housing, highlights a few of
the initiatives taking place in California, Oregon and Washington
to increase the availability of decent and affordable housing for
farm workers.
The Crisis
Agriculture is a significant economic engine for the West, representing a total
of almost $40 billion dollars in gross state product for the nine states
that comprise the Federal Reserve Bank of San Francisco’s 12th District
(see graph 1).
The seasonal nature of farming causes the population of farm workers to balloon
for a brief period, resulting in a short-term housing crisis for often unprepared
communities. A three-year survey of housing availability and conditions for
migrant and seasonal farm workers conducted by the Housing Assistance Council
found that 52 percent of the housing intended for single-family occupancy
was overcrowded.
Aside from the challenge of providing housing
for this transient population, the limited housing available for permanent
farm workers in predominately agricultural communities is often overpriced
or substandard. This same survey found that 32 percent of farmworker
housing units in the four western states surveyed (CA, ID, OR, WA)
could be considered either “moderately” or “severely
substandard” with such conditions as sagging roofs, broken windows
and rodent infestation. The majority of these units had children present.
| The
solution that any location decides on will depend on factors
and resources unique to that community |
Barriers and Solutions
In addition to financing, there are three common barriers to developing affordable
housing in farming communities: unincorporation, zoning and limited space.
Unincorporated rural areas frequently lack the infrastructure to support
any type of housing development. The additional cost of installing basic
water, sewage and energy infrastructure makes the price for even the most
modest housing project prohibitive, particularly if the units are targeted
at a seasonal population. In many states, special permission must be obtained
to build housing on land zoned for agricultural use. In other states, the
proximity of agriculture to cities or strict restrictions on growth limits
the land available for new housing. How different states and jurisdictions
cope with addressing these barriers not only determines whether housing is
available, but can serve as an example for others to follow.
Whether trailers, tents, dormitories, sweat equity
homes or apartment units, the efforts to overcome multiple barriers
to produce affordable housing for farm workers are as varied as the
crops grown. Where possible, the approach that seems to show the most
promise is rehabilitation of existing housing. Rehabilitation reduces
pre-development costs associated with new construction and delays that
can come from permitting and zoning, in addition to eliminating blight.
But, rehabilitation is not a universal solution. As illustrated by
the examples discussed, the solution that any location decides on will
depend on factors and resources unique to that community.
Casa
Del Sol (Woodland, California)
One such example is Casa Del Sol in Woodland, California. The Rural Community
Assistance Corporation-sponsored project exemplifies the ways that diverse
organizations can collaborate to meet the health and housing needs of agricultural
workers. Community Housing Opportunities Corporation (CHOC) joined together
with the Yolo County Health Department and California Human Development Corporation
on a project that will benefit agricultural workers and other low-income families.
CHOC will substantially rehabilitate two adjacent mobile home parks to achieve
a finished complex that will provide 127 homeownership mobile home pads, 29
rental units and one manager’s unit. Purchase and rehabilitation of the
parks will eliminate blight, preserve low-income housing and improve the quality
of both housing and health for agricultural worker families in the community.
CHOC is in the final phase of completing a complex
financing package for this project. Speaking about the project’s
funding sources, Paul Ainger,
CHOC director of development said, “I think one unique part of
the project is the partnerships that we have created with all interested
parties.” The City of Woodland has provided solid support through
a CDBG Section 108 loan; the California Department of Housing and Community
Development provided assistance with a $1.5 million farmworker grant and
a $1.5 million loan from the Mobilehome Park Resident Ownership Program
(MPROP). RCAC
is contributing $1.2 million from its Agricultural Worker Health and
Housing Program (AWHHP). The
private sector has also demonstrated support for the project. Red Capital
Mortgage is providing a construction loan and a 40-year first mortgage
on the property. Bank of America has provided a leadership role in
helping CHOC secure these private financing commitments and is providing
construction financing. The Federal Home Loan Bank of San Francisco
delivered a $660,000 AHP grant and HUD provided an FHA 207(m) credit
enhancement that enabled the 40-year mortgage
on the project
Heritage Glen (East
Wenatchee, Washington)
In Washington State, the Office of Rural and Farmworker Housing has found a
way to sustainably provide housing for seasonal workers. Heritage Glen consists
of 35 housing units for farm workers and their families, with a maximum occupancy
of 210 persons. Eighteen of the housing units are set aside seasonally for
workers whose primary residence is elsewhere. These units are designed to accommodate
either groups of unaccompanied workers or small families. The other 17 units
are operated year-round for local agricultural employees.
The development includes a laundry facility, play
areas and a maintenance shop. Heritage Glen islocated in a residential
area of East Wenatchee. By combining both seasonal-occupancy and year-round
units, the cashflow is more balanced and the site is not vacant during
the winter off-season. Year-round residents continue to be excellent ‘eyes
and ears’ on-site.
Heritage
Glen is owned and operated by the Housing Authority of Chelan County/City
of Wenatchee, which also operates 124 additional farm worker housing
units on nine other sites. Heritage Glen opened in 2002, and was developed
with capital financing from the USDA Rural Housing Service and the
Washington State Housing Trust Fund. USDA also provides full rental
assistance, allowing residents to pay 30 percent of the average monthly
income for rent and utilities.
See table of Agricultural
Data for Federal Reserve Bank of San Francisco's District
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