Lorain, Ohio, on the shore of Lake Erie about 25 miles east of downtown Cleveland, was settled in the early 1800s as a small fishing and boatbuilding community at the mouth of Black River. The arrival of the railroad in the 1870s, and the construction of a steel plant in the 1890s transformed Lorain into an industrial boom town. As U.S. Steel expanded throughout the 20th century--especially during both world wars--Lorain's neighborhoods and city limits expanded far beyond the town's original boundaries. The effects of national economic decline in past years has been felt strongly in blue-collar Lorain, traditionally dependent on the durable goods manufacturing sector, where often thousands of workers laid off during the 1930s, the late 1950s, and the early 1980s.
Lorain's Consolidated Plan identifies needs, priorities, objectives, and resources for housing and community development. The One-Year Action Plan describes the projects and programs to be funded with approximately $1,569,000 in Federal Community Development Block Grant (CDBG) funds and $602,000 in HOME Investment Partnership Program (HOME) funding, including program income. About 28 percent of these funds will be spent on public facility improvements including parks and streets, 36 percent will be spent on housing rehabilitation, and 8 percent will be spent on economic development.
The city held public hearings regarding the 1996 Consolidated Plan including
the CDBG and HOME budgets on August 24, 1995, and on October 18, 1995. Both
hearings were advertized and the public was encouraged to attend. Beginning on
October 13, 1995, the draft 1996 Consolidated Plan was on display for a 30-day
public comment period. Copies of the draft were available for review at the
Lorain Main Public Library, the South Lorain Public Library, and the Community
Development Department. Notifications regarding the draft were advertized, and
interested parties were encouraged to submit written comments to the Community
Development Department. On November 20, 1995, Lorain City Council approved the
1996 Consolidated Plan. Copies of the 1996 Plan approved by City Council and the
Mayor are on file at the local libraries and City Hall for public review. The
city also published the final 1996 CDBG and HOME budgets in the Morning
Journal on November 30, 1995.
According to the 1990 census, the city of Lorain has a population of 71,245. This represents a 5.5 percent decrease since 1980. Approximately 69 percent of Lorain's residents are white, 13 percent are black, and 17 percent are Hispanic. The white population decreased during this time by 10 percent, while the Hispanic population increased by 11 percent. In addition, the city's median age rose from 28.0 in 1980 to 32.2 in 1990 and the elderly population accounted for 16.4 percent of the total population.
Compared to the Cleveland-Akron-Lorain Metropolitan Statistical Area (MSA), and to Lorain County, the city of Lorain has higher proportions of traditional blue-collar workers. Lorain's work force also has smaller percentages of managers and professionals. The classification "operator/fabricator/laborer" comprises 25 percent of Lorain's work force, versus 15 percent in the Cleveland-Akron-Lorain MSA, and 20 percent in Lorain County. Managerial and professional specialties comprise 17 percent of Lorain's work force, versus to 27 percent for the MSA and 21 percent for the county.
Over the past several years, the annual average for Lorain's unemployment rate has ranged from 8 to 14 percent. Historically, the city's unemployment rate has surpassed that of Elyria (an adjoining city), Lorain County, Greater Cleveland, the State of Ohio, and the United States.
According to the 1990 census, median family income (MFI) for the city of Lorain was $29,304. Comparatively, median family income for the Cleveland-Akron-Lorain MSA was $35,626, which closely mirrored the national median of $35,939.
Of the 26,185 households in Lorain in 1993, over 50 percent had annual incomes of 80 percent or less of MFI. Analysis of census data indicates the following levels of low- and moderate-income households:
As a community Lorain has been shaped by the continuing employment and layoff cycles that affect its residents. The older neighborhoods that have been home to generations of working class residents have suffered successive waves of deterioration during declines in the industrial employment cycle, when residents had little money to repair their houses. These economic and social factors challenge all who hope to improve housing and neighborhood conditions in Lorain.
A housing unit is considered substandard if it does not conform to the Lorain City Housing Code's structural, heating, plumbing, and electrical standards. It is estimated that 11 percent of renter-occupied units are in substandard condition, and that 72 percent of these are suitable for rehabilitation. Another 10 percent of owner-occupied units are substandard and 90 percent of these are suitable for rehabilitation.
Approximately 3,200 renter households (more than one-third of all city renters) have gross housing and utility costs that exceed 30 percent of the household's gross income. Because of these figures, the city has continued to place a high priority on housing rehabilitation activities and rental assistance.
According to the 1990 census, Lorain's housing stock totaled 27,544 year-round units. Of these, 26,198 units were occupied, with 9,905 (39 percent) occupied by renters and 16,280 (61 percent) occupied by owners. The majority--70 percent--of all the housing units in the city were single-family units. Just over 10 percent of all units were duplexes, while 4.5 percent of the units were in three- or four-unit structures. About 15 percent of the units in the city were multifamily units, containing more than five apartments per building.
Over one-third of the city's housing stock was built before 1950, and only 5 percent was constructed between 1980 and 1990. Housing construction boomed between 1950 and 1969, 22 percent of the city's units being completed in the 1950s and 20 percent being completed in the 1960s.
The median value of owner-occupied housing units in Lorain increased by nearly 20 percent during the 1980s, rising from $42,800 in 1980 to $51,200 in 1990. Over the same period, median gross rent increased by 61 percent, rising from $225 in 1980 to $363 in 1990.
According to the 1990 census, 36 percent of Lorain's renter households are extremely low- income, 18 percent are low-income, and another 18 percent are moderate-income households. Of the owner households, 8 percent are extremely low-income, 10 percent are low-income, and 19 percent are moderate-income households.
Approximately 68 percent of the extremely low-income renters and 72 percent of the low income renters have housing and utility costs which exceed 30 percent of the household's income (described as cost burden). An estimated 71 percent of the extremely low-income and 36 percent of the low-income homeowners were cost-burdened.
A point-in-time estimate estimates the number of homeless persons in Lorain to include 20 sheltered individuals and 5 unsheltered individuals. Subpopulations of homeless persons with special needs are estimated as follows:
The Neighborhood House Association, which operates a 54-bed emergency homeless shelter in Lorain, reported serving a total of 833 persons in 1994. Of these homeless individuals, 67 percent were adults and 33 percent were children. Lorain has 3 emergency shelters with a total of 85 beds that serve the county. There are four USDA mass distribution sites and five emergency boxed food sites in the city. There are an estimated 13 additional agencies, offering social services including rental and mortgage assistance, medical prescription services, clothing, utility assistance, counseling and legal services to homeless persons or persons threatened with homelessness.
Extremely-low income renter households, those headed by a single female with dependent children, families receiving Aid to Dependent Children or General Assistance, and migrant worker families are at the greatest risk of becoming homeless. Social service providers also note that persons with mental health and substance abuse problems are at significant risk for homelessness. Lack of money for the first month's rent and security deposit as well as inability to pass a credit check are common problems for these at-risk populations.
The Lorain Metropolitan Housing Authority (LMHA) maintains and operates the 862 public housing units in 6 projects in Lorain. As of April 1995, LMHA reported a vacancy rate of 1 percent and a public housing wait list of over 200 persons. The average waiting time for public housing is 6 months for families and 30 to 45 days for elderly and disabled persons.
In Lorain County, a total of 1,151 households receive assistance through Section 8 certificate or voucher programs. The majority of these are family units. As of April 1995 LMHA reported a total of 80 vacant Section 8 vouchers and certificates. The average wait for persons already on the wait list is two years and no new applications are being accepted.
Lorain has 1,201 additional assisted housing units, including 417 Section 8 project-based units, 606 Section 236 and 221(d)(3) below-market-interest-rate mortgage units, 90 Section 202 housing for the elderly, and 88 Section 235 homeowner assistance units.
The city's Building and Zoning Codes do not, in general, constitute barriers to affordable housing in Lorain. In fact, Lorain-Elyria was ranked in 1991 by the National Association of Home Builders as being the second-most affordable housing market in the Nation. The city has no major growth controls or excessively restrictive zoning regulations that would inhibit the construction of affordable housing. The minimum lot size and setback, and maximum building height requirements in each zoning category are reasonable and aimed at ensuring public health and safety.
The permit and user fees charged by Lorain are considered average for a city of its size. Further, building permit fees are required by local ordinance to fund the Building Department's inspection program. In certain older neighborhoods, the City Council reduced permit and user fees by half to encourage the development of affordable infill housing. The city also offers tax abatement for any increased property valuation resulting from new construction or rehabilitation improvements through the Community Reinvestment Area program, which is targeted to the older residential areas.
To increase the housing opportunities for minority and low-income persons, the city enacted a Fair Housing Ordinance which established a Fair Housing Board to secure equal housing opportunities for all persons. The Board provides public awareness programs and investigates discrimination complaints. The city of Lorain does and will continue to adhere to all Federal laws pertaining to fair housing.
Based on the age of housing, the city estimates that nearly 72 percent (19,736 units) of Lorain's housing may have lead-based paint hazards. About 12,155 of these units are occupied by low- to moderate-income households.
Lorain will continue to work with the Health Department to reduce lead-based paint hazards in Lorain, especially in older homes and those with small children under age seven. In 1994 the city purchased lead-based paint analyzer equipment for the Health Department to inspect older homes and buildings. In addition, the city Health Department will undertake an aggressive lead-based paint hazard reduction program.
There are also housing and supportive needs for the elderly, the mentally disabled, the mentally ill, the physically disabled, substance abusers, and victims of domestic violence. Although the needs of each group for affordable and accessible housing are generally similar, each group requires somewhat different supportive services.
Lorain's non-homeless households that need supportive housing include:
Because of Lorain's high unemployment, the city must find new and effective ways of broadening and diversifying its economic base. It places a high priority on economic development activities such as commercial and industrial rehabilitation.
In particular the city places a high priority on street, water, and sewer
improvements. Also in need of funding are public services including youth
programs, transportation services, employment training and child care services.
In addition, funding for related public facilities such as parks, neighborhood
facilities, and youth centers are needed. The city also places a high priority
on neighborhood and comprehensive planning activities.
The city's affordable housing priorities for the next 5 years include:
Lorain's priorities for homelessness include: outreach assessment for homeless persons with special needs, and emergency shelters for homeless families and persons with special needs. The city will also support applications filed by eligible non-profits or other entities that seek funding for transitional housing.
Priorities for economic development include:
Priorities for the physical environment include:
Strategies for the social environment include:
In 1994 the Federal government defined the poverty level for a family of four as under $14,800. According to the 1990 census 16.6 percent of all families in Lorain were living below the poverty level. This compares to 9.2 percent and 9.1 percent for the greater Cleveland area and Lorain County respectively. Further, a significant difference is seen between married couple families (7.6 percent living in poverty) and female-headed households, with no husband present (47.8 percent living in poverty).
Over the next 5 years, the city hopes to provide poor families with rehabilitation assistance by offering deferred loans to extremely low- and low-income households for home repairs. The city will seek additional funding to bring into the community to reduce the number of households with incomes below the poverty line. It will also support continuation of assistance provided by the many agencies that focus on preventing homelessness and assisting those who are homeless or have special needs.
In addition to expanding affordable housing opportunities, the city hopes to improve employment opportunities through its aggressive business loan program. The city will also encourage and support efforts of the agencies throughout the county to provide job training and related supportive services to poor families and individuals.
Specific resources to implement the activities outlined in the Consolidated Plan include Federal, State, and local programs. There are also a number of local non-profit agencies involved in the provision of housing and community development activities as well as local financial institutions, developers, and foundations.
The entities responsible for the implementation of the Consolidated Plan
include the city of Lorain and the many other agencies identified throughout the
Plan who are of vital importance to carrying out housing and community
development activities. Lorain's Department of Community Development will,
however, be the entity responsible for the yearly revisions, updates, and
performance reports related to the Consolidated Plan as required by Federal
regulations. All requests for funding will be reviewed by the Department of
Community Development. Ultimately, the Mayor and Lorain City Council shall be
required to provide approval for all Federal, State, local, and private funds
applied for and received through the Department of Community Development.
The following projects and programs will be funded through the city of Lorain's 1996 CDBG and HOME programs:
The majority of the activities identified through the city's 1996 CDBG and HOME programs are targeted in the older inner-city neighborhoods which are predominantly low-moderate income areas.
In addition to the Department of Community Development, which is the lead entity responsible for the implementation of the Consolidated Plan, the city has also identified various public, non-profit, and private entities that will be involved. These include the State of Ohio, Lorain County and the City of Lorain, Lorain Metropolitan Housing Authority, local non-profit organizations, financial institutions, developers, landlords, and local foundations.
MAP 2 depicts points of interest and low-moderate income areas.
MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.
MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.
MAP 5 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 6 is a map, sectioned by neighborhood, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.
MAP 7 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the four neighborhoods indicated in MAP 6.
MAP 8 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of the four neighborhoods indicated in MAP 6.
MAP 9 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point; in addition, a table provides information about the project(s).
Sanford A. Prudoff
Director, Department of Community Development
200 West Erie Avenue
Lorain, OH 44052
Phone: 216-246-1010
