CITIZEN'S SUMMARY

Once a mix of farming and small manufacturing communities, York County is an urban region located in south central Pennsylvania. Although the population of the city of York, the county's urban center, declined between 1980 and 1990, other areas grew, becoming bedroom communities for Washington, DC; Baltimore, Maryland; and Harrisburg, Pennsylvania. As a result, York County's population increased by 8.5 percent, the fourth highest growth rate among the State's 32 counties. Despite its population growth, the county's employment opportunities and industrial tax revenues have decreased.

Action Plan

York County estimates that it will receive approximately $3.1 million in Community Development Block Grant (CDBG) program funds, $730,000 in HOME Investment Partnership (HOME) program funds, and $81,000 in Emergency Shelter Grant (ESG) program funds. The county will use the Federal funds for affordable and supportive housing and for community redevelopment.

Citizen Participation

York County has developed and used a citizen participation plan that helps the county commissioners to develop programs and to obtain citizen participation throughout the planning process. Countywide hearings were held in October and November 1994 to solicit citizen comments about community development and housing needs and to discuss the Consolidated Plan draft. Another hearing was held in December 1994 to review the proposed plan.

COMMUNITY PROFILE

Between 1980 and 1990, York's population increased by 8.5 percent, rising to 339,574. The percentage of families increased by 9.5 percent. During the previous decade, the white population rose nearly 8 percent, and the minority population jumped more than 32 percent. Despite these gains, the population remains nearly homogeneous, reflecting the German heritage of the county's first European settlers.

At the time of the 1990 census, almost 95 percent of the population was white, and 3 percent was African American. The minority proportion of the population increased to over 4 percent. Although the minority population is increasing throughout the county, most reside in the city of York. Out of the 128,666 York County households, 36,026 are very low-income (0-50 percent of median family income [MFI]); 19,299 are low-income (51-80 percent of MFI); and 12,866 are moderate-income (81-95 percent of MFI).

HOUSING AND COMMUNITY
DEVELOPMENT NEEDS

Conditions

York County has experienced the same economic and demographic changes that have affected similar communities. Shopping centers have replaced many of the small family farms and other green areas that once distinguished the region. Small industries have suffered from recent recessions, and the city of York is dotted with boarded up businesses, which were once sources of employment. The economy has shifted to low-paying service industries. Although county's unemployment rate is lower than the rest of the Eastern Rust Belt, the loss of high-paying manufacturing jobs has affected the area's general economy.

The city's loss of small industries has seriously eroded its tax base and forced the city to frequently raise residential property taxes, resulting in the county's highest tax rate. Because of these conditions, those who can afford to relocate are leaving the city for surrounding areas in the county.

In addition to the high tax rate, an influx of professionals from Maryland, has increased housing demands, pushing prices completely beyond the reach of low- and many moderate-income households.

Housing Needs

About 53 percent of all very low-income households spend more than 30 percent of their gross income for housing expenses, and 26 percent spend more than 50 percent. This group most frequently needs emergency mortgage assistance, financing or mortgage information, counseling on mortgage delinquency, and information on landlord rights. Over 25 percent of low-income households spend more than 30 percent for housing, and 3 percent spend more than 50 percent. Although the most frequent housing needs of low-income households are similar to very low-income households, low-income needs also include pre-purchase information and assistance with security deposits. Nearly 11 percent of all moderate-income households spend more than 30 percent for housing, and 2 percent spend more than 50 percent.

Market Conditions

Between 1980 and 1990, the total number of county housing units increased by 18 percent, rising to 134,761. Mobile homes were the fastest growing housing type during this period, accounting for almost 9 percent of all units. Although the overall vacancy rate in the county was about 4 percent, the rate for rental units was over 5 percent, while the rate for owner-occupied housing was about 1 percent.

According to the York County Board of Realtors, the median sale price of residential property jumped more than 40 percent in 5 years. The median price for a home had risen from $73,622 in 1988 to $104,057 in 1993. According to a 1993 analysis of local rental prices, the average rent for a two-bedroom apartment was $560 per month.

Affordable Housing Needs

Few families earning the median family income of $37,590 could afford to purchase a new home at the 1991 median price of $89,315. Very low-income households could afford only 11 percent of 1,310 vacant rental units and about 11 percent of efficiency or one-bedroom units. Low-income households could afford only 50 percent of the vacant rental units and 47 percent of efficiency or one-bedroom units. As a result, many families and households are buying more affordable manufactured homes, including mobile homes.

Homeless Needs

The 1990 census counted 178 homeless people in York County, with most of them residing in the city of York. The following needs for the homeless population have been identified:

• More shelter space for families, single men and women, single women with children, and victims of domestic violence.
• Additional emergency shelters in the Hanover area.
• Additional financial resources to expand the one-night shelter program.
• More single-room occupancy or transitional housing for women and single women with children.
• Transitional housing and accompanying support services for individuals and families who once lived in emergency shelters.
• Storage facilities for the belongings of families and individuals entering an emergency shelter.
• Services for children in shelters and child care for shelter clients.
• Increased case management services, access to and promotion of health services, additional housing assistance, and expanded in-house life skills programs for shelter clients.
• Coordination of all emergency assistance programs to avoid duplication of services.

Public and Assisted Housing Needs

York County has 1,037 public housing units and 35 Turnkey Homeownership units. An additional 31 family units are in various stages of development. All 1,072 units are in standard condition, and many are being modernized.

The City/County Housing Authority administers 1,282 rental subsidies through the Section 8 program. Of the total units, 182 are project-based certificates, while the remaining 1,100 subsidies are tenant-based certificates or vouchers. Currently, 57 subsidies are not being used, and another 358 belong to elderly households. The Housing Authority anticipates receiving 26 new vouchers. Also, a private developer was recently awarded 40 Section 8 project-based certificates under the Loan Management set-aside program administered by the U.S. Department of Housing and Urban Development (HUD).

Currently, 1,023 households appear on the Joint City/County Public Housing Authority's waiting list for public housing units, and another 2,349 appear on the waiting list for rental assistance programs, underscoring the need for additional assistance throughout the community. The average wait is 4 years for public housing, 2 to 4 years for rental assistance, and 6 months to 3 years for elderly public housing. Of those on the Section 8 waiting list, 27 percent are elderly or disabled, and 45 percent are minorities.

Barriers to Affordable Housing

The County Comprehensive Plan has identified the following impediments:

• Land zoned for housing may not be suitable in some areas because public water and sewer lines are not available or treatment capacities are inadequate. When properly zoned land with adequate water and sewer connections is available, excessive hook-up fees add to high housing costs. More suitable land should be zoned for high-density uses.
• Most zoning ordinances strictly segregate housing types. Mixed-use districts should be permitted more often because traditional high-density housing tends to generate greater visual impact and, therefore, more local resistance. Mixed-use development can lower overall costs, because it allows for more efficient infrastructure development.
• Zoning ordinances traditionally favor conventional site design rather than cluster or planned residential developments. Permitted densities are typically too low for affordable housing, while flexible design alternatives often require special exceptions or conditional uses, increasing costs and delays. Cluster development can reduce lot sizes.
• Minimum allowable lot sizes are often too large, increasing the cost of land for each home while decreasing the possibility of smaller, more affordable homes. Required lot dimensions -- such as frontage, setbacks, and side yard requirements -- can be excessive.
• Street requirements account for almost half of the improvement costs for a typical single-family detached house. Ordinances that define traditional stormwater systems, sidewalks, and landscaping requirements also increase costs.
• Many ordinances limit or prohibit accessory apartments, residential conversions, and shared housing.
• Provisions that do not treat mobile and modular homes as single-family detached dwellings and that unreasonably restrict the amount of land zoned for such uses must be revised.
• Ordinances that vary from community to community create delays because they force developers to study the ordinances for each jurisdiction. A uniform code would greatly reduce a developer's preparation time.
• Medium- and high-density housing developments encounter more legal delays, including: rezoning rulings, hearings for special exceptions or conditional uses, and additional technical studies, such as traffic impact reports.

Lead-Based Paint

At the time of the 1990 census, York County had 134,761 housing units. Of these, 82 percent were constructed before 1980, and 28 percent were constructed before 1939. Based on the National Center for Lead Safe Housing methodology, an estimated 35,848 housing units contain lead-based paint hazards. About 13,627 of these are rental units, and 22,221 are owner-occupied.

York's Bureau of Health has screened about 7,000 children for elevated blood-lead levels, and 7 percent have tested positive for lead poisoning. The county's priority is to develop and implement activities that address lead-based paint hazards. The proposed program will include education and lead abatement activities, which will be integrated into the county's Housing Assistance Program Operating Manual.

Community Development Needs

The county identified a number of community development needs and grouped them into the following categories:

• Public facility and infrastructure improvements. These improvements include: curb and sidewalk improvements, handicapped ramps, water service connections, public parks, drainage facilities, road reconstruction, sanitary sewer facilities, bridge reconstruction, and community center rehabilitation.
• Public service needs. Applications from nonprofit organizations have been filed in the following areas: medical services, a summer camp program, fair housing assistance, and a safe house for victims of domestic violence.
• Accessibility needs. The county has funded handicapped accessibility projects and will continue to add curb cuts, ramps, and bathroom modifications.
• Economic development. Anticipating continued population growth, the county will promote development within existing areas to preserve open space and farmland while promoting the efficient use of public services and facilities.

HOUSING AND COMMUNITY
DEVELOPMENT STRATEGY

Vision for Change

One of the specific objectives of the county's current CDBG program is to work with public, private, and nonprofit developers to provide affordable housing. To achieve this objective, the county will provide financial, technical, and administrative resources when appropriate and will provide affordable housing by leveraging other available resources.

Housing Priorities

The county has established specific goals that address affordable housing and rehabilitation priorities.

To address housing affordability, the county has established the following objectives:

• Expanding programs that provide rental subsidies to very low-income households and rental rehabilitation programs that provide project-based rental subsidies.
• Providing rental subsidies based on Federal rental assistance preferences.
• Coordinating current emergency, transitional, and long-term rental subsidy programs to maximize the use and effectiveness of financial resources.
• Encouraging very low-income people to use the Farmers Home Administration Section 502 Program to construct or purchase a home in rural areas.
• Providing first-time homebuyer assistance in areas that are not eligible for Farmers Home Administration programs.
• Subsidizing the rents of low-income families and individuals by providing project-based subsidies, instead of tenant-based subsidies.

To address the need for additional affordable housing, the county has established the following objectives:

• Acquiring appropriately zoned land to construct new rental units for elderly households, small families, large families, single individuals, and people with special needs.
• Assisting private, public, and nonprofit housing developers to construct new rental units and to substantially rehabilitate or convert existing structures into affordable rental units for very low-income renters.
• Maintaining current and providing additional emergency shelter facilities for single men and single women, families, and victims of domestic violence.
• Providing additional transitional housing facilities for individuals and families who are no longer homeless.
• Giving large families preference whenever providing additional affordable rental units.

To meet the need for rehabilitation of all substandard units, the county has established the following objectives:

• Rehabilitating homes and rental units occupied by very low-income people and families.
• Weatherizing current homes and rental units occupied by very low-income people, including temporary or emergency housing, transitional housing, and group homes for people with special needs.
• Encouraging homeowners living in areas eligible for Farmers Home Administration to rehabilitate their homes under the Section 504 program.

Nonhousing Community Development Priorities

The county does not set priorities by project type. It reviews applications from municipalities and nonprofit organizations to make funding decisions. In general, most of the public facility projects submitted are curb and sidewalk, storm sewer, sanitary sewer, road reconstruction, park improvements, and community center projects.

One goal is to eliminate slums and blight, to prevent blighting influences, to provide needed community facilities, and to eliminate conditions that are detrimental to the health, safety, and public welfare in county communities, principally those occupied by low- and moderate-income people. Objectives include:

• Continuing public improvements and redevelopment programs in neighborhoods and communities by upgrading housing, sanitary sewers, storm drainage, water supply, transportation, and public utility facilities.
• Upgrading or installing new public facilities in low- and moderate-income areas where conditions cause the deterioration and blight of properties or threaten public health, safety, and welfare.
• Eliminating conditions that are a serious and immediate threat to the health and welfare of the community.
• Providing community facilities, such as recreational and medical facilities, that serve the needs of low- and moderate-income people.
• Removing material and architectural barriers from public and private buildings and facilities.

Another goal is to promote economic development that provides opportunities and employment for all segments of the labor force, principally for lower income and unemployed people. Objectives include:

• Encouraging the development and implementation of an overall county economic development plan.
• Facilitating the revitalization of declining and deteriorating commercial and industrial areas.
• Promoting the implementation and coordination of small and minority business development programs.
• Assisting the coordination of job training and economic development programs.

A third goal is to provide low- and moderate-income people with new or increased levels of service that support the economic and physical redevelopment of distressed and deteriorating communities whenever no other source of funding is available. Objectives include:

• Helping local agencies to improve and coordinate social services for low- and moderate-income people, including developing community, medical, and senior centers.
• Helping local agencies to provide adequate health care, housing and shelter, ongoing community action programs, programs for the physically and mentally handicapped, and programs for those threatened with abuse, neglect, or exploitation.

Anti-poverty Strategy

To assist households with incomes below the poverty line, York County will use available resources to increase affordable housing. One strategy is to provide renters meeting Federal preferences with rental assistance using Federal Section 8 Rental certificate and voucher programs.

The county will also promote homeownership and assist first-time homebuyers, using its CDBG program, the Farmers Home Administration 502 program, the Federal Home Loan Bank Affordable Housing Program, the State Single Family Homeownership program, and the HOPE program.

The county will focus on large family, elderly, and disabled needs through a number of programs, such as: HOME, Public Housing Development, Farmers Home Administration 515 program, Federal Home Loan Bank Board Affordable Housing, Low Income Tax Housing Tax Credit, and United Way Housing Initiatives.

To eliminate substandard housing conditions, the county will address overcrowding by providing rental assistance to low-income households and by constructing new large-family rental units. The county will continue to provide expanded lower income housing opportunities outside of the city of York, cooperating with the Public Housing Authority as well as private and nonprofit developers. Activities will include constructing new units and providing additional rental assistance programs.

Housing and Community Development Resources

In addition to Federal resources, York County anticipates receiving assistance from various State programs, including: Housing and Community Development, Neighborhood Assistance, Employment and Community Conservation, Single Family Homeownership, HOMES, Homeownership Emergency Mortgage Assistance, Bridge Housing Program for the Homeless, Housing Assistance Program for the Homeless, Case Management for the Homeless, Human Resources Development Funds, and Housing Demonstration Program for the Mentally Ill.

Numerous private resources will supply funds for affordable and emergency housing, including: New Hope Ministries, Lutheran Social Services, The Salvation Army, York Union Rescue Mission, Access-York, New Life for Girls, Children's Home of York, Human Life Services, Lehman Center, Vineyard Ministries, Local Community Action Agencies, and Public Utility Weatherization Programs.

Coordination of Strategic Plan

The county will coordinate its housing and community development efforts with its 71 municipalities, the city of York, and adjoining counties in Pennsylvania and Maryland. The county will continue to participate in regional and statewide housing and community development planning.

ONE-YEAR ACTION PLAN

Description of Key Projects

Except for the City/County Housing Authority, all implementing agencies are subgrantees. The county will enter into contracts with the subgrantees implementing housing and community development activities, and the York County Planning Commission will be responsible for the plan's overall management, including monitoring and evaluation. Countywide Consolidated Plan activities include:

• Assisting low- and moderate-income people by improving housing, public facilities, and public services and by encouraging economic development.
• Assisting homeless people through nonprofit shelter providers.
• Expanding the supply of decent, safe, sanitary, and affordable housing by providing assistance to tenants and by financing rental housing projects.

Maps

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).