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:

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:

Nonhousing Community Development Priorities

The city has developed a list of long-term community development objectives, including:

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:

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.