Harrisburg is the state capital and is located in the south-central portion of Pennsylvania, between Philadelphia and Pittsburgh, the state's two major cities. It has a population of 52,376, and was known as a busy center for manufacturing and government.
The Harrisburg Consolidated Plan contains a clear vision for addressing its pressing housing and community development problems by means of its Community Development Block Grant (CDBG) with its entitlement of almost $3.8 million, HOME Investment Partnership Program, program income, Emergency Shelter Grant and Enterprise Community funds in 1995.
This Plan has its roots in various planning processes implemented by the City since 1992. In December, 1992, the City released its Vision report from the Forum 2000 Series. The Forum 2000 Series was a compilation of the public advice on the present and for the future in the continuing process of preparing a new Comprehensive Plan for the City of Harrisburg. It was the first step in a multiyear effort that will deal with land-use, zoning, transportation, housing, economic development and other issues that affect every resident, commuter and visitor of the City. It was conducted using various public participation methods, including workshops, retreats, interviews, questionnaires.
Immediately following the release of the vision Report, the City of Harrisburg updated its Comprehensive Housing Affordability Strategy (CHAS) during 1993 and developed a five year-plan to cover 1994-1998. The CHAS was developed through a process that involved consultation with citizens and professionals involved in housing and neighborhood development issues. The City's Department of Building and Housing Development took the lead in this process, initiating a series of interviews with a cross section of the community, holding a public meeting that provided a needs assessment and soliciting public comment on the draft, written CHAS.
The CHAS consultation process included discussions on resources, needs and strategies. There were 34 individuals included in this process representing neighborhood associations, low income housing, tenants, developers, lenders, regional planners, advocates, real estate agents, and agencies representing the elderly, mental health clients, Latinos, children, homeless, disabled, and persons with AIDS. The CHAS public meeting was structured as a workshop. The attendees at the meeting included housing advocates, neighborhood association officers, mental health advocates, citizens, homeless agency professionals. The attendees discussed housing needs, prioritized needs, discussed strategies, and prioritized strategies. In spring of 1995, DBHD updated the input received during the CHAS consultation process by conducting two neighborhood meetings, interviewing knowledgeable agency representatives, and reviewing new data. Neighborhood meetings were conducted in Allison Hill, within the Hispanic Center, and Uptown Harrisburg. DBHD staff provided information about the federal housing and community development programs, including amounts of available funds, eligible activities, current activities and accomplishments, and the citizen participation process. The City distributed a detailed booklet of Program Information which included the Citizen Participation Plan, a Program Information Booklet, the Anti-Displacement Strategy and other information.
Participants were asked to respond to the question: what is the most important housing and community development need in the city? Comments were recorded and each individual was then asked to vote on the highest priority of all nominated needs. Recreation, safety, housing, infrastructure were ranked high. In addition, policy recommendations regarding targeting of resources and Spanish language translation were highly noted.
Then in the Spring/Summer of 1994, Mayor Reed initiated another community- based planning process in support of preparing a Strategic Plan for an Enterprise Community (EC) application to the federal government. The Mayor's Department of Building and Housing Development was appointed lead agency and the Office of Economic Development played an equal and critical role in developing the plan.
A series of workshops provided the opportunity for grassroots and civic
involvement. Over 4000 residents, business owners, non-profit agencies, health
care providers, developers and others were solicited to participate in the
process. Staff provided working papers for the workshop participants to review
prior to the third, fourth and fifth workshops. These working papers formed the
basis for discussion at the workshops and evolved into the Strategic Plan that
was approved by HUD in December, 1994. The EC Strategy fills in gaps and
broadens existing efforts to enable EC residents to participate in planning for
their economic future, and that process has been continued into this Plan as
well.
Harrisburg grew at a steadily increasing pace from the beginning of the nineteenth century until the middle of the twentieth century. By 1950 Harrisburg was home to 89,000 people and was a busy center. Then fortunes began to turn as increasingly affluent and mobile members of the middle class began to seek new lifestyles in "the country" beyond the modest streetcar suburbs. This trend began to grow over the years, feeding on itself as the city took on an increasingly desperate look. By 1980, while the region's population had grown in size and affluence, Harrisburg's population had been reduced to 52,000 and its demographic profile depicted a city confronted with poverty and the myriad of related problems.
This urban flight and decline lasted into the early 1980's.
Since then, the City has enjoyed vigorous economic and social growth that
has been nationally recognized as an urban renaissance. Harrisburg's
population stabilized between 1980 and 1990, for the first time in decades.
However, economic and racial segregation are both a cause and effect of
prejudices which lead people with sufficient resources and opportunities to flee
farther and farther into the country to seek housing, rather than returning to
the city.
According to the 1990 Census, the population of Harrisburg totaled 52,376, which represents a slight 1.7% decrease from 1980. This relatively insignificant drop in population appears to be a positive sign that the city's population has stabilized.
Harrisburg's population has become more racially diverse over the past decade. There was a 21% decrease in the number of whites and a 14% increase in the number of Black/African Americans between 1980 and 1990. In 1990, 57% of the population was non-white. In 1980, the majority of the population, 63%, was white. The Asian population was 920, a 114% increase over 1980. The number of American Indians was 147, a 70.9% increase.
Areas that had the highest concentration of whites, defined as more than 75% of the census block group identifying themselves as being white, include block groups north of Division Street, areas between the State Capitol and Front Street and south to City Hall, Shipoke, Bellevue Park, block groups south of Bellevue Park and Cloverly Heights.
The areas that had the highest concentration of non-whites (predominately black), defined as 75% or more of the census block group residents identifying themselves as non-white, include block groups bordering on Seventh Street, block groups in Central Allison Hill and surrounding areas and South Harrisburg off Cameron Street.
Those areas that were more racially mixed, defined as 25 to 74% of the block group residents classifying themselves as nonwhite, include the South Allison Hill, block groups around the Uptown Shopping Center and the area from the Governor's Mansion south to Reily Street.
According to the 1990 Census, 4,022 Harrisburg residents were of Hispanic origin, a 75% increase from 1980. This larger Hispanic population meant that persons of Hispanic origin increased from 1.5% of the city's population in 1980 to 7.7% of the city's 1990 population.
Comparison between 1980 and 1990 counts show an increase in the 18 to 59 and under-5 age groups while other categories decreased in size. The city underwent a 54.2% decrease in its school age population between 1980 and 1990. During this same period there was a 17% increase in preschoolers and a 7% increase in the working age population.
As of 1990, there were 21,520 households in the city, 39% of families were white compared to 53% in 1980, representing a 32% decrease over the decade. There were 11,829 families located in the city in 1990., but the most dramatic change in the structure of families was that there were more female-headed families with children (3,581) than married-couple families with children (2,781) in 1990.
There are a total of 14,559 households defined as Very Low, Low or Moderate Income Level, accounting for 68% of all households. In 1990, Median Family Income was $24,469, representing a 3% increase from 1979. The percentage of residents living below the poverty threshold has increased, from 23% to 27% Harrisburg has a higher percent of persons over age 25 who have at least a Bachelors degree but fewer who have a high school diploma. But there was a significant increase in educational attainment among the non-white population between 1980 and 1990.
Harrisburg had 26,200 persons age 16 and older in the civilian labor force in May 1992, a 2% increase from April 1990.
The outmigration of middle income families during the sixties and seventies has resulted in a disproportionate number of low income persons living in the city, compared to surrounding areas. Today 63% of city residents are classified as low or moderate income households. The city is home to a large percentage of racial and ethnic minorities, including Blacks, Hispanics, Asians, and Native Americans. Blacks make up the largest group, 50.6% of the city's population, while they comprise only 1.6% of Cumberland County's population, .2% of Perry County, and 4.9% of Dauphin County's population (not including Harrisburg).
The Harrisburg Housing Authority's waiting list includes 308 households seeking Section 8 vouchers or certificates and 247 households seeking public housing. Many are on both lists. The racial/ethnic composition of households on the waiting list is: 68% Black, 13% White, and 19% Hispanic.
In 1990, Harrisburg had a supply of 24,590 year-round housing units. The total number included 13,310 (54.1%) rental units, 9,464 (38.5%) that were owner-occupied or for sale and 1,816 (7.4%0 that were vacant and neither for sale nor for rent. The number of all vacant units totaled 3,070 (12.5%) of all units, and decreased by 23% during the 1980's.
Vacancy rates in both rental and owner-occupied/for sale categories appear to reflect a healthy fit between supply and demand for units of various sizes. The median housing value over the entire MSA was $75,400, a 22% increase over 1980. The median contract rent in Harrisburg increased to $296/month in 1990, a 26% increase over 1980. This compares with $346/month region-wide. Such comparisons show that Harrisburg is an affordable place to buy or rent a home, but while contract rents are relatively competitive throughout the region, home ownership is by far a much more affordable option in the City.
Half of the city's housing units were built prior to 1940, only 5% since 1980. The public housing stock was built between 1945 and 1955. 919, or 3%, of Harrisburg's units are substandard, 637 (69%) are rental units and 282 (31%) owner-occupied or for sale. The 637 substandard rental units represent 5.14% of the rental housing stock, while the 282 owner-occupied substandard units represent 3.19% of that segment of the housing stock. Ninety six percent of the substandard rental units are suitable for rehabilitation. These conditions create an optimistic picture of existing and potential affordable housing opportunities in the City.
The general rule is that the lower the household income, the greater the number of housing problems that they are faced with, such as substandard housing, overcrowding, or cost burdens of 30-50% or more of monthly income.
The City of Harrisburg has an inventory of 234 emergency shelter beds and nine (9) family units plus 86 beds for transitional housing and twenty (20) transitional housing units. In addition, the community provides 101 single room occupancy units for men and women. The City has a plan to insure a continuum of care which includes the assistance of the providers listed as well as the City Police, Dauphin County Crisis Intervention, and Bethesda Mission. These agencies ensure shelter for homeless people during adverse weather. The City's adverse weather plan encompasses all of the recommended criteria established by HUD. Another effort includes the Harrisburg School District's Homeless Student Task Force which provides services to students residing in area shelters.
The City of Harrisburg's community-based process to meet the needs of individuals and families who are homeless begins with Christian Churches United's (CCU) HELP. HELP is the single point of contact for homeless people and other services for individuals and families in crisis. These services include the provision of shelter vouchers, medication assistance and travel vouchers. La Casa provides similar services targeting the Latino community. Both agencies coordinate services in order to avoid duplication or people not receiving services. All shelter providers with the exception of the Bethesda Mission for Men and the Bethesda Mission for women participate in this coordination of shelter vouchers and other services. Though the Mission participates in Shelter Committee and many times will make referrals to HELP, it acts independently of the area shelter network.
Emergency shelter needs for ali homeless people and requests for safe housing for victims of domestic violence have not decreased during periods of the year that have been traditionally slow. Therefore, area shelters have experienced a continuing high demand for emergency shelter. The community responded to this increase in demand by developing the "Hospitality Network". This Network allows HELP to house the families and individuals requiring shelter in a local church when all of the local shelters are full. The goal of the network is to then relocate the family into an appropriate shelter once an opening is available.
In January, 1992 the Interfaith Family Shelter opened just beyond City limits. The shelter serves intact families, and families headed by single females or single males. Recently however, the number of families needing emergency shelter has increased and the Interfaith Family Shelter is not able to meet this demand with a bed capacity of 40 to 50, depending on the family composition. Large families in particular are not currently having their shelter needs addressed.
Another development in the nature of homelessness in Harrisburg is the changing demographic profile of families seeking emergency shelter. Agencies have reported that an increasing number of men with children were requiring shelter. If a man with children seeks to leave a real or potential domestic violence problem, there are currently no shelter programs able to assist him. In these situations the family is forced to separate and seek shelter in different programs. Also, except for the YWCA's domestic violence component, area shelters are unable to meet the needs of families with adolescent boys. Several of the shelters that provide housing to female headed households will not provide shelter to a teenage boy.
Harrisburg City police provided estimates of the number of unsheltered homeless persons living on the streets, in doorways, in vacant buildings, in parks, or under bridges. Estimates ranged from 45 to 200.
The Harrisburg Housing Authority (HA) owns and operates eight large scale housing communities and eighty scattered site facilities. There are a total of 1,741 public housing units in the City. Currently there are 69 vacant units, which amounts to approximately 4% Less than 1% of its units need to be handicapped-accessible.
The City has 908 units of project-based Section 8 housing for a total of 1,379 units. Of these units, 226 are elderly and 680 are for families. The HA also had 15 unused Section 8 Certificates and no unused Vouchers. All Certificates were issued to families that were searching for units. Of the project-based units, there were only 4 vacancies.
In addition, City's assisted housing inventory includes projects assisted through other Federal, State and locally funded programs, such as the Section 202 program for the elderly, Section 236 interest reduction program, Low Income Housing Tax Credits, Housing Development Grants (HoDAGS) and the Pennsylvania Housing Finance Agency. Assisted projects provide a total of 375 units with rent subsidized through other Federal, State and local programs. These projects provide a total of 675 units, 300 of which do not have subsidized rents. Of the subsidized units, 1341 are elderly units and 336 are family/general units.
Harrisburg has an old housing stock which presents a challenge in combatting lead-base paint hazards. Half of the city's housing stock was built prior to 1940, and only 5% since 1980, after the total prohibition of lead-based paint. This means that about 82% of very low and low income units built before 1979 and about 65% of all units in the City are considered to be very low and low income units at risk of having a lead-based paint hazard. This total includes 9049 rental units that are at risk and 7641 owner-occupied at risk units.
The City is committed to both participating in the coordination and taking a lead role, when appropriate, in coordinating the efforts of local agencies. The City meets frequently with housing developers as they plan projects and new services. The City representatives are knowledgeable about the activities of other developers and agencies, as well as leaders within the neighborhoods.
The City has required agencies that apply for CDBG and other federal assistance to develop strategic plans for the development of their agency. The projects for which the agencies are seeking funding must be consistent with the mission, goals and objectives of the strategic plan. This encourages agencies to stay focused, operate within their resources, and maintain effective service delivery. It also prevents service overlap and duplication.
The City of Harrisburg has forged successful partnerships with both the Harrisburg HA and Harrisburg Redevelopment Authority (RA) which help expand the resources of each. The City encourages several of the Authority's resident initiatives by establishing strong working relationships with the RA's operational staff. The City's Police Department, Office of Economic Development and Department of Building and Housing Development all have frequent contact with the RA staff.
The RA acts as the City's acquisition agent in support of single family acquisition, rehabilitation and resale programs. Several of these properties are transferred to non-profit agencies. The Department of Building and Housing Development establishes a formal contractual relationship with the RA and monitors its acquisition activities on a frequent basis. The Director of DBHD is a member of the Board of the HRA. The HRA provides additional services related to property disposition and labor standards enforcement.
The City has developed good working relationships with several lenders,
realtors, contractors and developers. It has utilized local lenders to develop
special financing for sale of rehabilitated properties. It will initiate
special outreach efforts to each industry group in order to encourage higher
participation in affordable housing programs.
The City's Enterprise Community Strategy will serve as its Anti-Poverty Strategy.
In 1990, 27% of the City's population lived in poverty. This is approximately 14,000 people, over half of whom were children under age 18. In 1980 the percentage of the population in poverty was 23% and the number was approximately 12,200.
Many parties must cooperate and focus their resources on this issue: non-profits and businesses must establish training programs; the schools must ensure that graduates have the basic skills; businesses must locate in accessible sites; individuals must internalize and aggressively pursue the goal of escaping poverty; those families that are dysfunctional must find help to resolve problems such as domestic violence, juvenile delinquency, addictions; young single mothers need affordable day care. Federal economic policies must address inflation and the rising cost of living.
The City can influence the population's chances of moving up and out of poverty with local efforts to improve family incomes. The City will pursue business and industrial development that provides job opportunities for City residents, although the City cannot mandate the level of pay or permanently exclude non-city residents from these jobs. The City will continue to work with job training agencies and place clients within departments of city government, thus providing useful work experience for young people which improves their long-term chances of economic advancement. Recent economic development efforts of the City have been successful in creating over 3000 new job in the city since the beginning of the 1980's. However, during this time period the number of city residents in poverty increased for reasons beyond the City's direct control. First, children are the largest and growing group in poverty. Apparently family support programs and earned income have not kept pace with inflation. In addition, the City is not insulated from the surrounding communities. Individuals and families freely move in and out of the city in this mobile society. The city population is affected by the affluence of the surrounding communities which attract the middle class and exclude the poor.
Within the city of Harrisburg, 28 Federal, 10 State, 9 local, and 30 private programs currently provide services to the community. The primary Federal resources include CDBG, HOME, Section 8, public housing, Emergency Shelter Grants, Shelter Plus Care, and the Supportive Housing program. Resources available from the State include the Housing and Community Development Program, Housing Development Fund Set Aside program, and various programs of the Pennsylvania Housing Finance Agency. Local resources include RA and HA programs and the Mortgage Tax Credit Certificate Program. Private programs include local lending institutions' affordable housing programs and a wide range of nonprofit initiatives.
[See Coordination above]
Single Family Acquisition/Rehabilitation/Resale $ 1,170,000 New Housing Construction 100,000 Public Improvements (Infrastructure) 460,000 Section 108 Debt Service 320,000 Demolition of Hazardous Structures 445,000 Public Improvements (Community Facilities) 445,800 Administration 565,200
While resources are targeted to revitalization areas, housing development funds are not restricted to any one neighborhood. Assistance is provided where a need exists. This ensures that both low income neighborhoods benefit from assistance and low income households have a housing choice. Census Tracts in which specific activities are to occur, however, are the following: 213, 212, 203, and 214.
Rehab 79 d.u.s New construction 20 " Transitional 2 "
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.
TABLE (without associated map) provides information about the project(s).
