U.S. Department of Housing and Urban Development
Office of Community Planning and Development
Consolidated Plan Contact
CITIZEN'S SUMMARY
The city of Lebanon, Pennsylvania, is located in the southeast portion of the State and serves as
the urban center for the residents of Lebanon County.
Action Plan
The city anticipates having access to $1,240,000 in Community Development Block Grant
(CDBG) funds for the first program year of its Consolidated Plan. Some of the key projects
Lebanon hopes to accomplish in that year include homeownership assistance, housing
rehabilitation, and increased police patrols.
Citizen Participation
Copies of the Consolidated Plan were distributed to various public locations and sent to the
Lebanon Housing Authority and other agencies for their comments. A summary of the
Consolidated Plan was published October 14, 1994, in the Daily News to alert interested people
about the public comment period. The plan was placed at four locations for review -- the City
Clerk's Office, the Edward H. Arnold Library, the Senior Center of Lebanon Valley, and the
Webster Manor Community Building.
As part of the participation plan, the city held public hearings to obtain the views of interested
citizens and organizations regarding overall community development and housing needs,
development of proposed activities, and program performance review. Two public hearings were
held September 9, 1994, at the Lebanon Public Library and the City Council Meeting Room. Two
additional hearings were held October 24, 1994, at the same locations.
COMMUNITY PROFILE
The city's 1990 population was 24,800 persons, and the median family income (MFI) was about
$41,600. Despite two decades of declining population, the city expects the population to remain
stable during the next 5 years. Slightly more than 9 percent of the population is characterized as
a racial or ethnic minority; Hispanics remain the city's largest minority group, numbering 1,650 in
1990. Lebanon had 3,623 very low-income households (those earning 0-50 percent of MFI) in
1990, representing almost 35 percent of all households in the city in 1990. There were also 2,361
low-income households (those earning 51-80 percent of MFI), representing more than 22 percent
of the Lebanon household population in 1990.
HOUSING AND COMMUNITY DEVELOPMENT NEEDS
Conditions
Between 1960 and 1990, the city's population declined. The most important factor in this
downward trend is the demise of the city's once strong industrial base. Large employers such as
Bethlehem Steel left the city. The reduction of Lebanon's industrial base has not only affected the
city's population but has negatively impacted the cost and condition of the housing stock. As the
number of higher paying industrial jobs fell, younger families moved to other areas seeking
employment. Those who remained in the city were older residents.
However, the city has recently shown signs of revival. Following a devastating fire in the central
business district in 1990, the Harrisburg Area Community College has constructed an $8 million
downtown campus. The city has stimulated economic development and private investment
through its enterprise zone program and other incentives. Through these programs, the city has
reclaimed a portion of the Bethlehem Steel Facility and redeveloped the site into the Progress
Industrial Park.
Positive signs in the city's housing market can be seen, too. A local developer recently began
construction of a 63-unit townhouse development in the northern section of the city, near the
former Bethlehem Steel foundry. The city believes that these revitalization efforts are the key to
the city's future.
Housing Needs
Housing problems are defined by the U.S. Department of Housing and Urban Development
(HUD) as overcrowding, physical deficiency of the unit, or 30 percent or more of income spent on
housing costs. Among very low-income households, 1,011 renters and 475 homeowners
reported housing problems in 1990. Among low-income households, that figure was 18 percent.
Overall, renters experience a higher incidence of housing problems as a proportion of their
population than do homeowners. Large families (five or more persons) -- both renters and
homeowners -- accounted for the highest percentage of housing problems, followed by small
families and elderly households.
According to the Comprehensive Housing Affordability Strategy (CHAS) Databook, only half of 1
percent of all homeowners and 3.5 percent of renter households live in overcrowded conditions.
However, 29 percent of large-family renters are overcrowded.
Market Conditions
The 1990 census indicated that the city's total number of housing units increased by more than 2
percent from 1980, to 10,996 units. In 1990 owner-occupied housing dropped to 52 percent of
the total housing units, while renter-occupied units accounted for the remaining 48 percent. The
1990 vacancy rate for owner-occupied units was just above 1 percent, while the rate for rental
housing was about 4 percent. These vacancy rates indicate a tight housing market.
Owner-occupied units had a median value of $45,000 in 1990, a 66-percent increase from 1980.
In the third quarter of 1993, the average sales price of a home was $63,191. The median monthly
contract rent in 1990 was $266.
More than half of the city's housing stock was built before 1940. There are three factors that
appear to have an effect on the housing conditions: the age of the housing stock, the relatively
low median income of city residents who do not have the available resources to rehabilitate
substandard housing, and the out-migration of residents seeking employment opportunities or
better housing opportunities. These factors have caused a drop in housing demand. About 8
percent of the year-round housing in Lebanon is considered substandard.
Affordable Housing Needs
While only 7 of 61 vacant units available for sale are affordable to very low-income households,
all of these units are affordable to low-income households. The city's commitment to improve
rental housing stock through rehabilitation should provide more quality housing for city residents.
Many low- and moderate-income families who are already cost burdened, however, may be
unable to make the monthly payments.
Among households with incomes below 30 percent of the median, 63 percent pay at least 30
percent of their income for housing, and 35 percent pay at least half of their income for housing.
Only 11 percent of low-income households pay at least 30 percent of their income for housing.
Homeless Needs
According to the Shelter and Street Night Count conducted by the census, there were only four
homeless persons in Lebanon. However, the city does not feel this is an adequate count. Based
on the collected data, adequate shelter spaces are available to serve the city's current homeless
population. Homeless service providers indicate that the most pressing need in the community is
for affordable rental units. Services are also needed for the transitional period as people move
from shelters to affordable rental units.
There are three emergency shelter facilities in Lebanon that serve specific populations. The
Rescue Mission provides short- and long-term shelter and support services for drug- and alcohol-addicted men. At any one time, 12 to 15 of the 18 available beds are used by recovering addicts.
Agape, another shelter, has an 18-bed capacity for women and children. On an average night in
February 1993, Agape provided shelter for 13 women. Another agency, Domestic Violence
Intervention, provides emergency shelter for up to 3 days in area safe homes for families fleeing
abuse.
Two agencies provide transitional housing for city residents. Domestic Violence Intervention has
a program for women and children. Families receive the services and training that they need to
develop into healthy, self-sufficient people who do not have to be dependent on abusive
partners. Another transitional housing program, Faith Ministries, offers referrals and general
assistance.
Public and Assisted Housing Needs
The Lebanon County Housing Authority owns and operates public housing and administers the
Section 8 program in the city. There are 359 units of public housing and 227 units of Section 8
rental assistance in Lebanon. None of the public housing units are vacant and the city does not
expect to lose any public and assisted housing.
Of the Section 8 assisted housing units, 160 receive certificates, and 67 receive vouchers. None
of these units are expected to be lost. There are 106 family and 21 elderly units. The waiting list
for Section 8 assistance was 539 persons in 1993.
Barriers to Affordable Housing
There are various governmental requirements that are potential barriers to affordable housing.
The city's zoning ordinance is not generally considered to be restrictive because there are no
developable tracts of land in any of the residential zones.
After an examination, the city has found that most of its fees, charges, permits, and licenses
required for development are reasonable and not a barrier to affordable housing.
Based on tax assessment data, the city has a relatively high property tax, which could be an
impediment to affordable housing. The city's taxes are based on 100 percent of assessed
property value, compared to 50 percent of assessed property value for all other taxing districts in
the county.
Fair Housing
Lebanon has taken several steps to provide fair housing for city residents. During the last 2
years, the city has provided funding to Central Pennsylvania Legal Services for housing-related
legal services to very low-income families.
Through the Housing and Redevelopment Authority, the city has developed a comprehensive
minority outreach program. In 1993 the city initiated a first-time homebuyers program that has
generated a great deal of interest from city residents. The primary intent of this program is to
foster homeownership, especially among minority groups. Since the inception of the program,
there have been 197 inquiries about the program.
Lead-Based Paint
Because most of the homes in Lebanon are older, the probability of finding lead-based paint in
these homes is high. It is estimated that as many as 9,509 housing units could contain lead-based paint. The city estimates that 2,782 housing units occupied by low- and very low-income
people contain lead-based paint. The Maternal and Child Health Childhood Lead Poisoning
Prevention Program recently reported 15 cases of high blood-lead levels in children who reside in
Lebanon.
The goal for Lebanon is to significantly reduce or eliminate lead-based paint hazards and prevent
childhood lead poisoning. Since Lebanon is relatively new at addressing these hazards, the city
will focus on gathering additional information and undertaking strategic planning. The city will
coordinate public and private efforts to develop effective solutions to health and housing
problems resulting from lead-based paint hazards and integrate lead hazard evaluation and
reduction activities into existing housing programs. Finally, the city will promote comprehensive
public health programs to identify lead-poisoned children and offer public information and
education to alert families of the dangers of lead poisoning and ways to reduce the risks.
Other Issues
Various populations with special needs in Lebanon require supportive housing, including:
- Persons with disabilities. Supportive housing for mentally ill or developmentally disabled
persons is provided in institutional group home arrangements. The city is host to several
Community Residential Rehabilitation homes for people with mental health problems and
Community Living Arrangement homes for the mentally retarded. Waiting lists exist for both
programs.
- Persons with mental illness. Supportive housing for the mentally ill is provided through the
Lebanon County Office of Mental Health and Mental Retardation (MH/MR). There are several
housing choices in the city for mentally retarded and mentally ill clients of MH/MR. Community
living arrangements for mentally retarded people are provided by several contractors, including
New Perspectives, Jubilee Ministries, Stepping Stone, Sherwood Hall, and American House.
- Persons with drug or alcohol addictions. New Perspectives provides an alcohol rehabilitation
program for Lebanon County residents. Another form of supportive housing is provided in Oxford
Houses, which are shared, supportive housing. Since the houses are not licensed or controlled in
any manner, the exact number of facilities is unknown.
- Persons with HIV/AIDS. Wellspring has provided a home in Lebanon County for 10 to 12
persons with HIV/AIDS.
Community Development Needs
In developing the Consolidated Plan, the city has identified several public service needs. These
needs include additional police officers in low-income, high-crime areas of the city, and civil legal
services for low-income Lebanon families. Central Pennsylvania Legal Services is the only
provider of legal services for low-income city residents. With the closing of landfills throughout
the State and the resulting high cost of solid waste disposal, the city recognizes that it must
develop a solid waste recycling program. The city has identified streets not meeting current
standards, and a need for neighborhood revitalization throughout the city, especially in the
Northside neighborhood.
In past community development plans, the city recognized the disastrous economic effects of the
permanent shutdown of the Bethlehem Steel complex and other industries. The city needs to
implement marketing and promotion of this vacant site to create a more diversified employment
base and to restore this large land area to productive use. The city needs to continue programs
to assist existing businesses interested in expanding and to provide financial incentives to bring
new industry to the area.
HOUSING AND COMMUNITY
DEVELOPMENT STRATEGY
Housing Priorities
The city has identified a number of housing priorities for the next 5 years, including:
- Upgrade the existing owner-occupied housing stock. The city plans to rehabilitate 125 units,
particularly for extremely low-income residents.
- Provide opportunities for first-time low- and moderate-income homebuyers and support
services to all homeowners. The city will assist 50 families in becoming homeowners.
- Provide tenant-based rental assistance to residents who are cost-burdened. The city will
encourage the Lebanon Housing Authority to apply for additional Section 8 vouchers and
certificates. The city anticipates receiving 100 additional Section 8 certificates and vouchers.
- Assist in new construction and substantial rehabilitation for very low- and low-income people.
The city will work with the Lebanon Housing Authority and local nonprofit organizations to
complete at least one substantial housing rehabilitation project and one new construction project.
- Upgrade existing renter-occupied housing units. Lebanon will rehabilitate 25 units of rental
housing and the Lebanon Housing Authority will use Comprehensive Grant funds to rehabilitate
public housing units throughout the city.
- Maintain and encourage services that foster affordable independent living, particularly for
households that are cost-burdened.
Nonhousing Community Development Priorities
The city has developed a list of long-term community development objectives, including:
- Continuing infrastructure improvements in low-income areas.
- Completing the small industrial park west of 12th Street and Cumberland.
- Finishing the revitalization of the Bethlehem Steel complex.
- Continuing the increased police protection program in the Northside neighborhood.
- Continuing to study the possibility of a new industrial park in the Northside area.
- Meeting the increasing needs for a more efficient system of transportation and convenient
parking to support community development efforts.
- Expanding efforts in revitalizing the city's Northside area.
- Redeveloping the former Lebanon Steel Foundry in conjunction with private
developers.
Antipoverty Strategy
The city has limited resources and opportunities for reducing the number of families with incomes
below the poverty line. However, several structural barriers to poverty are addressed through
different local policies.
More direct efforts to alleviate poverty should combine case management, social services, job
training, and housing assistance. Until an official directive is received from the Federal and State
agencies responsible for certain entitlement programs, the city will try to induce local program
coordinators to confer on antipoverty strategies and develop coordination strategies.
Housing and Community Development Resources
The city will encourage local service providers to pursue all available funding for supportive
services and programs that help families and individuals achieve independent living skills, and to
provide transitional and supportive housing and programs to prevent homelessness. Nonprofit
housing developers will be encouraged to link social service agencies to development of assisted
and supportive housing.
The Lebanon Housing Authority is an entitlement authority for the HUD Comprehensive Grant
Program. Funding is made available through this program for both capital investment in housing
stock and management improvements.
The city supports the efforts of private developers and investors to improve the condition of rental
housing. Continued support will be available through the city's Renter Rehabilitation Program.
Additional support will come from Federal sources and private financial institutions.
Coordination of Strategic Plan
A number of government, nonprofit, and private entities will play a role in implementing the
Consolidated Plan. For example, nonprofit housing developers such as Habitat for Humanity, the
Rescue Mission, and Agape will continue to provide shelter for the homeless. Supportive and
transitional housing is provided by several organizations and social service agencies that offer a
bridge between the client population and housing providers.
Private agencies will also play a role in the plan's implementation. Private developers of new
housing or those who rehabilitate existing units have the ability to attract a variety of financing
that is necessary to implement the plan.
Lebanon should better coordinate among its own agencies and other government agencies. The
city's working relationship with the Lebanon County Housing and Redevelopment Authority has
resulted in a coordinated effort to address housing-related issues in the city.
ONE-YEAR ACTION PLAN
Description of Key Projects
Some of the projects planned to be implemented in the first year of the Lebanon Consolidated
Plan include:
- $100,000 for a first-time homebuyer program that may include downpayment and closing cost
assistance, soft second mortgages, and counseling to low- and moderate-income first-time
homebuyers. The city hopes to serve 10 households.
- $223,000 for a program that will help 30 low- and moderate-income homeowners rehabilitate
their homes through a combination of different types of loans and grants.
- $116,800 for street improvements.
- $120,000 to continue funding for a year-round police patrol to reduce drug activity and other
crime in low-income areas.
- $52,000 for the city to offer conditional grants to landlords for up to 50 percent of
rehabilitation costs, with a maximum of $5,000 per unit and $25,000 per building. The city hopes
to assist 10 housing units.
Locations
All housing rehabilitation activities will be undertaken on a citywide basis. Several initiatives will
take place in the city's Northside neighborhood.
Lead Agencies
The lead agency for the Consolidated Plan is the Lebanon Community Development Office.
Maps
MAP 1 depicts points of interest in the
jurisdiction.
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).
To comment on Lebanon's Consolidated Plan, please contact Kathy O'Hara, Community
Development Administrator, City of Lebanon.
400 South Eighth Street
Lebanon, Pennsylvania 17042
Phone: 717-273-6711, extension 2402
Fax: 717-228-4450
Return to Pennsylvania's Consolidated Plans.