Lancaster has participated in the CDBG program since 1981, initially as the recipient of a three-year Comprehensive Small Cities grant. Since 1984, Lancaster has received an annual CDBG entitlement allocation under the CDBG program. During that time, the city has undertaken a variety of planning efforts in relation to community development and affordable housing.
CDBG projects and activities have been implemented to meet major objectives for public facilities and improvements, comprehensive neighborhood revitalization, public infrastructure for economic development, housing rehabilitation and homeownership. More recently, the city has funded public service activities through subrecipient agreements with several community non-profit agencies. In addition, downtown revitalization was established as a primary objective of the CDBG program in 1992.
Participating communities must prepare a Consolidated Plan which integrates all program planning, submission, and reporting requirements related to the Community Development Block Grant (CDBG) Program. Lancaster is receives direct formula funding through the Community Development Block Grant (CDBG) only. Homeless assistance grants and other affordable housing funds are accessed through programs administered by the State of Ohio, Department of Development. Other programs which are vital to addressing the needs identified in the Consolidated Plan are funded through a variety of private and public sources. The Consolidated Plan provides a means to view the overall needs of the community and coordinate programs to best meet those needs.
This citizen's summary is intended to enable citizens to understand major components of the Consolidated Plan without need to review all details. The complete plan is 130 pages, plus appendix and attachments. In addition, a supplement to the Plan provides a statistical analysis of growth trends and population forecast. Citizens are encouraged to contact the Lancaster Community Development Department to receive additional information. Input concerning the city's housing and community development needs is always appreciated and invited.
Lancaster's Consolidated Plan provides an assessment of its five-year housing and community development needs, with particular emphasis on the needs of low, very-low, and moderate-income individuals and families and affordable housing needs. The Plan provides a strategic plan for investing public funds to address needs in a coordinated manner consistent with a long-term vision for the community. A One-Year Action Plan has been developed for FY 1995 in connection with the expenditure of $700,000 in CDBG funding. While the city has developed its action plan based on current needs, the Plan incorporates a long-range perspective based on community objectives such as economic development, downtown revitalization, neighborhood public improvements, and adequate and affordable housing resources, and public services and employment opportunities for lower income persons.
The Consolidated Plan involves a dynamic, comprehensive, and strategic planning process intended to reflect the community's unique needs and solutions. Lancaster's planning process involves residents, public service agencies, civic organizations, housing and supportive service providers, and elected officials.
The city prepared a detailed Citizen Participation Plan as the first step in the Consolidated Planning process and encouraged participation by the general public, public and non-profit housing and social service agencies, and civic organizations within the community. The city made a special effort to involve low-and very-low income residents.
One of the principal means of involving the community in assessing and prioritizing the affordable housing and non-housing community development needs within the community was use of a detailed community needs survey. Outreach included distribution of approximately 1,400 needs surveys along with information describing the Consolidated Planning process. Over 300 surveys were returned; many included additional comments concerning specific needs.
A public forum was conducted subsequent to the survey and project proposals were reviewed and rated by those attending. A draft Consolidated Plan and Annual Plan was presented at a public hearing on May 1, 1995. Resolutions were introduced for consideration at the regular City Council meeting on May 22, with an additional public hearing on June 19, 1995. A summary of the proposed Consolidated Plan was published in the Lancaster Eagle-Gazette on May 27, 1995 for public comment.
Lancaster is the county seat of Fairfield County, situated in south-central Ohio, approximately 25 miles southeast of Columbus. Fairfield County is statistically incorporated within the Columbus Primary Metropolitan Area (PMSA). Fairfield County is anticipated to experience a 21.7 percent increase in population between 1990 and 1999, from 103,461 to 125,925. Fairfield County borders the Appalachian region to the south and east; all Ohio Counties situated east and south of Fairfield County are part of Appalachia. This region has consistently shown the highest degree of economic distress of any region of the state based on income, poverty, job loss, and unemployment. In contrast, Lancaster's more favorable economic condition can be attributed in part to its location within the greater Columbus Metropolitan area.
Lancaster had a population of 34,507 in 1990, a decrease of one percent, or 446 persons, from 1980 to 1989. This modest population decline belies the actual development trends during the last half of the 80's, and which have accelerated in the 90's. The number of housing units in Lancaster increased by 685 during the same period. Recent estimates reflect the significant population growth which Lancaster is currently experiencing, and which is forecast to continue throughout the foreseeable future. In 1992, the U.S. Bureau of the Census estimated Lancaster's population at 35,342. The Lancaster Community Development Department estimates the 1994 population of the city at 35,994 persons, with an estimated 1995 population of 36,600. The population is forecast to increase to 38,983 by 1999 and to approach 40,000 by the year 2000.
Lancaster's population growth has been coupled with steady, but slow, economic growth and employment. The local labor force has additionally benefitted by access to jobs in the greater Columbus area. Regionally, the development which Lancaster is experiencing is, in part, a reflection of continuing growth in the Metropolitan Columbus area. Unemployment rates consistently fall below the Ohio and U.S. averages. In April, 1994 the unemployment rate for the State of Ohio was 4.6 % while the rate for Fairfield County was 4.4 %. Underscoring the relationship between the greater Columbus area in terms of employment, 36.1% of Fairfield County workers were employed outside of the county in 1980; by 1990, the percentage had increased to 51.9. New housing starts in the city have increased significantly since 1990. Between 1985 and 1990, the city typically reviewed plans for 15 to 20 residential lots and 30 to 50 apartments. By contrast, 431 multi-family and 126 single-family units were reviewed in 1993 and construction began in 1994 on the 740 lot River Valley Highlands Subdivision.
Economic growth and development should not, however, mask the community development and housing needs which exist, particularly with regard to lower income households. The Consolidated Plan includes an analysis of factors which directly effect the ability of lower income persons to access basic amenities which likewise determine the quality of life within the community at large. Factors which need to be considered in evaluating and prioritizing needs include the following:
In 1990, there were 13,981 occupied dwelling units in the city, 5,606 were renter units and 8,375 were owner occupied. In 1980, owner-occupied units comprised 65% of all dwellings, in 1990 the percentage declined to 60 percent. It is estimated that 13 percent of the city's owner-occupied units are substandard and 2 percent of rental units are in need of rehabilitation. In 1990, the overall vacancy rate was 5%. It is anticipated that the vacancy rate has declined since 1990. Lancaster's housing market should remain strong into the foreseeable future, barring dramatic change in current economic conditions and mortgage rates.
The rental housing market remains tight, particularly for units affordable to low-income households. The current waiting list for Section 8 assistance exceeds 800 households. The public housing waiting list is approximately 160 households. The lack of affordable rental units in Lancaster is exacerbated by the relative scarcity of affordable units within the balance of Fairfield County, requiring city residents to often "compete" with households living outside of Lancaster for units which become available.
The housing needs of low-and moderate-income households can be viewed in terms of three related issues of availability, adequacy, and affordability. The following principles have served to help target limited resources in addressing these housing issues:
A. Housing resources and services should be targeted to those in the community most in need of assistance.
B. Housing resources should be targeted to meet the needs of homeless families and individuals, those at risk of homelessness, and homeless persons with special needs.
C. Programs should be targeted to help preserve and repair the existing homeowner housing stock within the community.
D. Programs should continue to promote equal housing opportunity and expand housing choice through fair housing compliance and community education and awareness.
E. Resources should be directed to help meet the growing housing needs of single parent households, especially female-headed households.
F. Resources should be targeted to ensure an adequate supply of decent, safe, and sanitary housing which is affordable to very-low and low-income families and individuals.
G. The city should encourage the development of affordable housing and expanded housing choice throughout the community consistent with sound land use planning and development standards.
Existing resources to assist in providing affordable housing within the community include the following:
The above programs have extremely limited funding and future funding levels are uncertain. In addition, those resources identified with an asterisk are provided on a countywide basis.
The need for emergency shelter and transitional housing, coupled with supportive services, is a high priority for homeless families and individuals. Homeless individuals with special needs have been determined to have a high priority for virtually all forms of homeless housing assistance. The total number of homeless annually in Lancaster is estimated at 625 persons, of which 155 remain unsheltered. This includes an estimated 157 families. Of this total, victims of domestic violence account for 226 persons.
Public housing, tenant-based assistance (Section 8 Certificates and Vouchers), and project-based assistance is currently available in Lancaster to serve approximately 1,100 households. The Fairfield Metropolitan Housing Authority has a current waiting list of over 800 households for Section 8 and 165 households for public housing. All public housing units are 3 bedroom and were constructed since 1990. Ten units were sold to the tenants through the HOPE I program have been replaced. No additional units are expected to be lost from the current inventory. It is estimated that approximately 1,970 low-and moderate-income households are in need of rental assistance.
There is a relationship between the supply and location of affordable housing in the community and the housing opportunities which exist in the community. A shortage of affordable housing or the concentration of affordable or assisted housing can have a disproportionate impact concerning the housing available for certain household types and income levels. The city has analyzed its public policies, tax structure, zoning, and subdivision regulations with respect to affordable housing. The governmental structure in Lancaster is generally conducive for affordable housing. A significant number of affordable housing units have been constructed in Lancaster in the past several years, The city supports the affordable housing consistent with sound planning and development practices. Housing and development costs are significantly lower than in many areas of the Columbus PSMA.
A primary factor in providing an adequate supply of decent and affordable housing in the city, as in the nation, will involve the levels of assistance and funding available in support of affordable housing, as well as other program changes which may occur.
Lancaster is proactive in affirmatively furthering fair housing. The Lancaster Community Development Department provides fair housing counseling, community awareness, outreach and education, and monitoring of real estate advertising. The city is one of the first communities in the state to complete an analysis of impediments to fair housing. Fair housing activities are funded through annual CDBG allocations.
The Consolidated Plan includes a strategy to help eliminate problems of childhood lead-based paint hazards associated with many older residential structures. CDBG funding has been allocated to establish a childhood lead screening and lead hazard reduction program in conjunction with the Lancaster City Health Department and Outpatient Health Clinic. The program will have four key elements: awareness, education, medical testing, and diagnosis. The city anticipates implementing additional procedures for lead hazard analysis as part of its housing rehabilitation program
The following priority housing needs have been identified:
Housing, public facilities, infrastructure, and essential services are all part of the fabric of the community which effects the quality of life for its residents. The condition of the public infrastructure in the city will effect the capacity of the city to accommodate new development, in turn influencing the city's future economy and ability to provide jobs. Job creation and corporate investment have a direct impact on the community tax base and, subsequently, the public resources available for investment in required municipal facilities and services. Likewise, the vitality of the downtown will affect both the economic well-being of the city and the way in which its residents interact as a community. Public policies and development standards and regulations will affect the type, quantity, and quality of development. Neighborhood revitalization and decisions affecting the existing housing stock will influence redevelopment and quality of older areas of the city.
A major goal of the Consolidated Plan is to coordinate the use of public resources for neighborhood and downtown revitalization, housing preservation and rehabilitation, public services, and economic development. Many of these activities involve ongoing programs and neighborhood public improvements within designated target areas.
The Consolidated Plan also examines non-housing community needs, particularly as they relate to the needs of lower-income persons and areas in the city. These needs include public infrastructure such as storm drainage, streets, sidewalks, and water and sewer facilities, as well as community facilities and services; health services, transit services, parks, police, and fire protection.
Champion-Fairfield Neighborhood Revitalization Area. The Champion/Fairfield neighborhood has been identified as a neighborhood revitalization target area. Needed improvements include street paving, storm sewers and drainage, curbs and gutters, sidewalks, and street lighting. The area is located in census tract/block group 323-4 which has an LMI percentage of 73.76, one of the highest concentrations of LMI households in the city.
Downtown Revitalization. Lancaster established downtown revitalization as a major community development initiative as part of its FY 1992 CDBG plan and program. The city subsequently allocated $52,000 of its FY 1992 CDBG grant and prepared the Lancaster Comprehensive Downtown Revitalization Plan, which provided a framework for determining priorities for specific activities. The city's Community Development Department completed a curb and sidewalk conditions survey. Preliminary engineering in connection with carrying out public improvements in the downtown project area will be completed in early 1996.
Public Services. Public service needs involve health care, homeless prevention and supportive housing services, continued fair housing activities, and assistance to victims of domestic violence.
Parks and Recreation. The need for additional neighborhood recreational facilities to serve the South Elementary School area ( census tract 322, block groups 1,2, and 3) was identified by many persons in the planning process.
CDBG funding, along with other available affordable housing resources, provides an opportunity to assist persons most in need. A cornerstone of the city's anti-poverty strategy involves its support of activities and services provided through the Lancaster
Outpatient Health Clinic. These services are targeted to households below poverty level and the working poor, many of which have no health insurance and very limited access to health care, particularly preventative and diagnostic health services. Services available through the Lancaster Health Clinic are provided at little or no cost. Expanded clinic services are envisioned to provide low-income persons and families access to dental services.
The Lancaster Community Development Department serves as the lead agency to oversee the Consolidated Planning process. In doing so, the department coordinates with many community-based non-profit and governmental agencies. Activities are implemented by a variety of organizations and agencies within the city, as well as the Community Development Department. Several committees have been established to assist in planning and implementation, including a Downtown Revitalization Advisory Committee.
The following CDBG program activities and funding allocations have been established for the use of FY 1995 CDBG funding:
Homeowner Housing Rehabilitation$136,000
(including. program income)
Homebuyer Assistance Program 44,000
Fair Housing 7,000
Lead Hazard Abatement and 17,800
Childhood Lead Screening
Homeless Prevention 35,400
New Horizons Respite Housing for 8,300
Severely Mentally Ill Persons
Lighthouse Domestic Violence 19,500
Emergency Shelter
Lighthouse Domestic Violence 17,000
Transitional Housing Program
Downtown Public Improvements 81,500
Champion/ Fairfield Neighborhood 65,400
Public Improvements
South Area City Recreation Project 67,000
Curb/ Sidewalk Replacement 33,200
LMI Areas
Rock Mill - Section 108 Loan 55,000
Planning/ Administration 90,000
Contingency (unprogrammed) 22,900
$700,000
All activities and use of funds will result in a principal benefit to LMI persons due to the area in which the activity will be implemented or the services funded will provided to a specific clientele which have been determined to be low or very low-income.
The One-Year Action Plan includes the use of $285,000 in FY 1995 CDBG funding for housing related activities, approximately 41% of the total CDBG allocation. In addition, the city will receive $200,000 in Ohio Community Housing Improvement Program funding to assist in the rehabilitation of 12 deteriorated single-family homes.
MAP 1 depicts Lancaster, Ohio, its vicinity, and selected points of interest.
MAP 2 depicts low and moderate income neighborhoods.
MAP 3 depicts the areas within the city of higher unemployment.
MAP 4 depicts the racial distribution with the City of Lancaster.
MAP 5 depict planned project area within the City.
MAP 6 depict planned project area within the City.
John Phillippi, Director
Department of Community Development
104 East Main Street
Lancaster, Ohio 43130
614-687-6695
