ES-05 Executive Summary - 24 CFR 91.200(c), 91.220(b)

1. Introduction

The City of Tulsa is pleased to submit its 2025-2029 Consolidated Plan and 2025 Program Year Annual Action Plan. The Consolidated Plan is designed to help states and local jurisdictions assess their affordable housing and community development needs and market conditions, and to make data-driven, place-based investment decisions. The consolidated planning process serves as the framework for a community-wide dialogue to identify housing and community development priorities that align and focus funding from the U.S. Department of Housing and Urban Development (HUD) Office of Community Planning and Development formula block grant programs: Community Development Block Grant (CDBG) Program, HOME Investment Partnerships (HOME) Program, Emergency Solutions Grant (ESG) Program, and Housing Opportunities for Persons With AIDS (HOPWA) Program. The Consolidated Plan is a five-year strategic plan carried out through Annual Action Plans, which provide a concise summary of the actions, activities, and the specific federal and non-federal resources that will be used each year to address the priority needs and specific goals identified in the Consolidated Plan.

2. Summary of the objectives and outcomes identified in the Plan Needs Assessment

The primary objective of the Consolidated Plan is to improve the quality of life of principally low- and moderate-income Tulsans, by creating suitable living environments, improving the availability of affordable housing and enhancing economic opportunities. The Needs Assessment process identified a number of overarching needs within the community. These formed the basis for the following adopted in the Consolidated Plan, which are:

1. Affordable Housing Units
2. Housing Assistance
3. Homelessness Services
4. Neighborhood Investments
5. Assistance for People Experiencing and Fleeing Domestic Violence
6. Mental Health Treatment
7. Assistance for those with Disabilities
8. Services for Low Income Households to Meet Basic Needs
9. Job Creation & Employment Opportunities

These priority needs were considered in the development of the goals set forth in this Plan.  The City’s goals for the 2025-2029 Consolidated Plan are as follows:

• Acquisition and New Construction of Affordable Housing
• Housing Rehabilitation
• Rental Housing Subsidies
• Homelessness Services
• Housing and Service for People with HIV/AIDS
• Services for Special Populations
• Services for Low Income Populations
• Public Infrastructure and Facilities
• Clearance and Demolition
• Small Business Loans
• Employment Opportunities

3. Evaluation of past performance

Each year, the City continues to improve its processes and delivery of services to address the housing, community development and economic development objectives that were identified in the 2020-2024 Consolidated Plan. Four years of that plan are complete and detailed year-end reports have been written, summarizing the result of activities that have taken place during each year. Copies of these reports can be found at https://www.cityoftulsa.org/government/departments/finance/grants/plans-and-reports/

Utilizing Community Development Block Grant (CDBG), HOME Investment Partnership (HOME), Emergency Solutions Grant (ESG), and Housing Opportunities for Persons with AIDS (HOPWA) funds, the City of Tulsa has promoted Decent Housing, Suitable Living Environments, and Economic Opportunities.  During the last 4 years, the City achieved the accomplishments:

4. Summary of citizen participation process and consultation process

The goals of the City's citizen participation process as it relates to the Consolidated Plan and Annual Action Plans are:   

• To increase the involvement of low-income persons, residents of public housing, minority populations, non-English speaking persons and persons with special needs;   

• To clarify roles and responsibilities to enable a variety of organizations to participate cooperatively in meeting the goals and objectives identified by the community; and   

• To ensure that all citizens and organizations have an opportunity to participate in the evaluation of funded activities.   

During the development of this Consolidated Plan and First Year Annual Action Plan, citizens were provided the following opportunities to participate in the process:     

• Needs Assessment public hearing – July 11, 2024   

• Community meetings - August 19- 22, 2024  

• Online and paper surveys- August 6, 2024- August 30, 2024  

• HUD Community Development Committee meeting to set priority needs and goals –September 12, 2024   

• HUD Community Development Committee meetings for recommendation of awards – February 4 and 6, 2025.

• Consolidated Plan and First Year Annual Action Plan comment period – March 3, 2025, through April 2, 2025.

• Consolidated Plan and First Year Annual Action Plan public hearing – March 13, 2025

5. Summary of public comments

During the needs assessment public hearing speakers expressed the need for services and emergency shelter for victims of domestic violence and sexual assault, services to address hygiene poverty, housing for individuals with disabilities, new construction of single-family homes, affordable rental housing development, and homebuyer downpayment assistance targeted to households earning at or below 50% of the Area Median Income (AMI). Written comments from two agencies were also submitted. The comments submitted addressed the need for programs and facilities serving children under age five, services for victims of domestic violence. 

During other public meetings held in the four quadrants of the City, residents addressed many of the same needs as mentioned above. Those in attendance also expressed the need for better transportation services and improved infrastructure, to include public parks, streets, and sidewalk improvements, housing rehabilitation, and affordable housing development. Regarding public service needs, the top priorities identified at these meetings via a written prioritization activity were programs that address mental health, substance abuse, domestic violence, individuals with disabilities, and Fair Housing education.  

During a meeting of the Housing and Urban Development (HUD) Community Development Committee on September 12, 2024 recommendations were made for establishing the priority needs and goals set forth in this Plan, and Committee approved the recommendations.  One comment was received requesting that the City prioritize Economic Development for job creation and retention for LMI individuals as well as loans, grants, and technical assistance to businesses that create long-term, positive, sustainable impacts in Tulsa’s underdeveloped areas.

During the public hearing on the draft Consolidated Plan and 2025-2026 Annual Action Plan, TBD

Upon completion of the public comment periods and public hearings, TBD

6. Summary of comments or views not accepted and the reasons for not accepting them

TBD

7. Summary

TBD

PR-05 Lead & Responsible Agencies 24 CFR 91.200(b)

1. Describe agency/entity responsible for preparing the Consolidated Plan and those responsible for administration of each grant program and funding source

The following are the agencies/entities responsible for preparing the Consolidated Plan and those responsible for administration of each grant program and funding source.

Table 1 – Responsible Agencies

Narrative

The City of Tulsa Finance Department Grants Administration is the lead entity responsible for preparing the Consolidated Plan and for the administration of the Community Development Block Grant (CDBG), the HOME Investment Partnership Program (HOME), Housing Opportunities for Persons With AIDS (HOPWA) and the Emergency Solutions Grant (ESG).

Consolidated Plan Public Contact Information

Questions or comments regarding the plan should be addressed to:

Rhys Williams, Grants manager

City of Tulsa, Grants Administration

175 E 2nd Street, Suite 1560

Tulsa, OK 74103-3208

GrantsAdmin@cityoftulsa.org

PR-10 Consultation – 91.100, 91.110, 91.200(b), 91.300(b), 91.215(I) and 91.315(I)

1. Introduction

The City of Tulsa Grants Administration is committed to working with local agencies and service providers to create solutions to best address the needs of the community. This Consolidated Plan and First Year Action Plan is the result of months of collaboration between multiple organizations, agencies and local stakeholders. The entities that have provided input and insight into the final plan are listed in the following sections.

Provide a concise summary of the jurisdiction’s activities to enhance coordination between public and assisted housing providers and private and governmental health, mental health and service agencies (91.215(I)).

Tulsa benefits from a strong and cohesive coalition of local government officials, service providers, lenders, and volunteers.  These various groups coordinate effectively to avoid duplication of services and facilitate a delivery system that meets the needs of Tulsa's various populations.

The City continues a targeted public outreach effort to educate and engage the public in the annual planning and funding opportunities process.  Activities include:

• Posting and advertising all public meetings with adequate advance notice to citizens to maximize participation;
• Ensuring all public meetings and other forms of communication are accessible to people with disabilities and non-English speaking persons;
• Holding public meetings in different areas of the City;
• Utilizing web-based communication tools to solicit input from citizens;
• Working with local service providers, INCOG, the Housing Authority of the City of Tulsa, local lenders, and others to leverage public and private resources;
• Coordinating resources and services for affordable and supportive housing, in conjunction with local service providers, housing officials, lending institutions, developers, and non-profit organizations, including the City's Continuum of Care;
• Conducting roundtable sessions for HOME and CDBG grantees;
• Meeting with funded agencies to discuss their programs, successes and challenges; and
• Providing on-going citizen participation opportunities in HUD Community Development Committee meetings.

In March 2023, Tulsa’s first independent study of Tulsa’s housing crisis, conducted by Development Strategies and Homebase, was published and prepared for Housing Solutions and was supported by the City of Tulsa.

This study summarized the following:

1. Housing is needed in Tulsa across the affordability spectrum
2. There is no single solution or strategy that will make it possible to meet demand
3. More than half of housing demand is for units at or below 100% average median income.
4. Meeting demand will not solve all of Tulsa’s housing challenges.

The total 10-year demand broken down by affordability in areas that HUD funding could help address is as follows:

• Extremely Low Income (<30% AMI or <$20,000)- 2,160 units
• Very Low Income (30% AMI to 50% AMI or $20,000 to $30,000)- 1,790 units
• Low Income (50% to 80$ AMI or $33,000 to $54,000)- 2,290 units

An Affordable Housing Trust Fund, established in February 2021, aligns with the City’s Affordable Housing Strategy to create an economically thriving, inclusive community with quality housing opportunities for all residents.

As of April 9, 2024, the Mayor/Council Housing, Homelessness, and Mental Health (3H) Task Force has released its Path to Home recommendations, which include four goals and 33 actions to address community needs, where Housing Production and Preservation is the first goal.

In November 2024, $75 million in Improve Our Tulsa (IOT) sales tax revenue was earmarked to be spent in the following ways to support the 3H Task Force recommendations:

• Housing Grant Fund, $25 million:
  Leverage other programs, such as the Low-Income Housing Tax Credit (LIHTC) to increase the supply of affordable housing for households at or below the 60% area median income.

• Housing Investment Fund, $7 million
  Deploy revolving funds to increase the supply of affordable housing for households earning up to 120% of the area median income.
• Housing Acquisition Fund, $10 million
  Acquire strategic sites across the city to produce housing units.
• Housing Infrastructure, $25 million
  Invest in strategic areas where increase in capacity could enable more housing development with focus on projects that will utilize existing public infrastructure.
• Housing Preservation & Rehabilitation, $5 million  
  Preserve housing by investing in rehabilitation of vacant and abandoned housing units.
• Administrative Costs, $350,000
  Ensure the program’s funds have proper administrative oversight.
• Outcome Evaluation, $150,000
  Establish metrics and evaluate the outcomes of the different programs in terms of number of units produced, leverage, and affordability.
• Bond Issuance & Interest Costs, $2.5 million  
  Advance funding to get projects committed financing.

IOT3 revenue for Housing Initiatives funds does not start until January 2026. 

Describe coordination with the Continuum of Care and efforts to address the needs of homeless persons (particularly chronically homeless individuals and families, families with children, veterans, and unaccompanied youth) and persons at risk of homelessness

The City of Tulsa and the Tulsa City/County Continuum of Care (CoC) have made great strides in the development of a more inclusive coordination and consultation process. Although it is still a work in progress, the focus remains to collaborate on all aspects of the Emergency Solutions Grant process including planning, funding, implementing and evaluating homeless assistance and prevention programs at the local level. The HUD Community Development Committee’s responsibilities include the following duties which play an important role in fulfilling the City’s collaboration with the CoC.

• Receiving public input of needs
• Receiving input from the CoC regarding homeless needs, priorities, goals, outcomes, and evaluation measures
• Consulting with the CoC regarding allocation of funds, developing performance standards, and evaluating outcomes of ESG assisted projects

The Homeless Management Information System (HMIS) lead agency, Center for Housing Solutions, and the HMIS administrator participate in the A Way Home for Tulsa (Tulsa CoC) governance council meetings bringing forward HMIS data standards, policies and performance reports for review and approval. The administrator provides access to licenses, hands-on training and technical support to all of the ESG subrecipients and submits performance reports to the City of Tulsa for the ESG programs. Based on an agreement between the City of Tulsa and the HMIS lead the City of Tulsa allocates 3% of the ESG funds each year to assist the HMIS lead in meeting the regulatory requirements with regard to data collection and mandatory reporting.

Describe consultation with the Continuum(s) of Care that serves the jurisdiction's area in determining how to allocate ESG funds, develop performance standards and evaluate outcomes, and develop funding, policies and procedures for the administration of HMIS

A member of the CoC sits on the HUD Community Development Committee and provides expertise during the allocation process. To ensure compliance with the HEARTH Act changes, Grants Administration (GA) continues to work closely with the City’s Continuum of Care and Emergency Solutions grant recipients serving the homeless and attends monthly COC meetings.

2. Describe Agencies, groups, organizations and others who participated in the process and describe the jurisdictions consultations with housing, social service agencies and other entities

Table 2 – Agencies, groups, organizations who participated

Identify any Agency Types not consulted and provide rationale for not consulting

All consultation categories required by HUD were addressed, and the City ensured additional outreach to thoroughly explore community needs.  No agency was intentionally excluded from consultation.

Other local/regional/state/federal planning efforts considered when preparing the Plan

Table 3 – Other local / regional / federal planning efforts

Describe cooperation and coordination with other public entities, including the State and any adjacent units of general local government, in the implementation of the Consolidated Plan (91.215(l))

The City of Tulsa consulted with both Tulsa County and the Indian Nations Council of Government (INCOG). A member of INCOG sits on the HUD Community Development Committee and was involved during the development of the goals and the allocation process. 

The Tulsa Housing Authority also provided consultation and data related to public housing units, vouchers, and its public housing conversion efforts. THA provided feedback on the kinds of collaboration that would be helpful between the THA and the City.

The City of Tulsa also consulted a variety of State of Oklahoma studies and resources including the State’s Analysis of Impediments.

Narrative (optional):

PR-15 Citizen Participation – 91.105, 91.115, 91.200(c) and 91.300(c)

1. Summary of citizen participation process/Efforts made to broaden citizen participation

Summarize citizen participation process and how it impacted goal setting

The Citizen Participation Plan and Title 12 §800 of City of Tulsa Municipal Code is the guiding documents that facilitate the process for the determination of needs, priorities, and allocation of HUD funds.  The HUD Community Development Committee (CDC) receives citizen input and makes funding recommendations. 

The CDC solicits public input regarding the long-term and short-term needs of the community to develop funding priorities.  This committee consists of the following members who all have voting privileges:  the 9 City Councilors and Mayor who shall serve ex-officio; 5 residents of the City of Tulsa, designated by the City Council, 3 of whom shall reside within a low to moderate income census tract, with no more than one representative from each Council district; 1 representative from the Indian Nations Council of Governments (INCOG); 1 representative from a financial institution;  1 representative from the Continuum of Care; 1 representative with grant allocation experience; and  1 representative from the City of Tulsa Planning Department. The Mayor shall designate the representatives from a financial institution, the Continuum of Care, and the individual with grant allocation experience.   

The priority needs for the City of Tulsa’s 2025-2029 Consolidated Plan were determined through analysis of information gathered from a variety of sources. From July through September 2024, numerous focus groups, one-on-one interviews, public meetings, and survey instruments were used to get input from organizations and the public. A Needs Assessment Public Hearing was conducted on July 11, 2024, to solicit comments on the needs and goals for the 5-year plan. The potential uses of funds and priority needs were presented to the public at a series of meetings and focus groups throughout the City in August. There, citizens and community stakeholders were given the chance to prioritize the needs they believed should be addressed in the plan. One such meeting included consultation with the Tulsa City Council’s 3H Task Force, whose mission is to address homelessness at the intersection of housing and mental health. In addition to this, two online surveys were conducted allowing citizens and stakeholders an additional method of ranking the potential needs.

Based on the data presented and comments received, a list of priorities and goals was developed by the City’s Grants Administration staff and presented to the HUD CDC, which was approved on September 12, 2024. These priorities and goals were then presented to the Mayor and City Council for approval and were accepted and included in the 2025 Request for Proposals released by Grants Administration.

Citizen Participation Outreach

Table 4 – Citizen Participation Outreach

NA-05 Overview

Needs Assessment Overview

In this section, the City’s various demographic and economic indicators are described and analyzed to provide the foundation for establishing priority needs and determining grant management strategies.

A key goal of the Needs Assessment section is to identify the nature and prevalence of housing problems experienced by the City’s residents. Per HUD’s definition, there are 4 housing problems that are assessed:

• Cost-Burden, which is defined as households who spend 30% or more of their income on housing costs
• Lack of Complete Plumbing
• Lack of Complete Kitchen Facilities
• Overcrowding

In addition to the demographics analyzed, this section also looks at factors that impact or are impacted by the housing market. The City’s public housing, needs of those facing homelessness, and non-homeless special needs are also discussed. Finally, non-housing development needs like social services, infrastructure, and community amenities are also analyzed to assist in determining where resources should be allocated.

Whenever possible, each of these issues is juxtaposed with economic and demographic indicators to determine if certain groups carry a disproportionate burden. Understanding the magnitude and prevalence of these issues in the City of Tulsa is crucial to set evidence-based priorities for entitlement programs. 

Data Note: Many fields in this document are populated automatically by the IDIS system. In order to provide the most accurate and up-to-date analysis, additional data sources are often used.  

NA-10 Housing Needs Assessment - 24 CFR 91.205 (a,b,c)

Summary of Housing Needs

The population growth of the City of Tulsa has remained relatively stable since 2009, with a growth of less than 5,000 people between 2009 and 2020, representing a 1% growth. Map I.1 shows that the population was denser in the central areas of the city, especially in the Southern and Eastern tracts. Map I.2 shows that the central areas of the city saw the largest declines in people, and the outer tracts saw some population increases. Increasing rent prices and general affordability challenges in the city have likely added to many people seeking out housing on the outer edges of the city.

MAP I.1

MAP I.2

Table 5 - Housing Needs Assessment Demographics

The number of households in the city saw a decline of –1% between 2009 and 2020 – there were 163,360 households by 2020. This likely means that the household size has increased, as the number of households has decreased. Households with incomes at or below 80% AMI comprise of around 49% of the total household number – there were 26,085 households between 0-30% AMI (16%), 24,270 households between >30-50% AMI (14.7%), and 29,765 households between >50-80% AMI (18.2%). Households with incomes over 80% AMI account for 50% of the households in Tulsa.

The median income increased by 17% between 2009 and 2020. However, with the tremendous increase in rent and living costs, this increase has likely not kept up with these demands. Map I.3 shows the distribution of median household income in the City of Tulsa. Most of the tracts in the central and northern areas have a noticeably lower median household income, often under $50,000. Tracts in the south, on the other hand, tend to have a disproportionately high median household income that is over $80,000 in many tracts. When income is concentrated in certain areas it can lead to concentrated areas of poverty, which become of particular concern if income and geography are closely related to race or ethnicity in the community. 

2018-2022 Census data estimates that 18.17% of the city’s population was living below the poverty level – this is reflected by the data showing that housing cost burden is the biggest housing problem. Map I.4 illustrates that the areas with the highest rates of poverty are also the areas that have lowest median incomes. Most census tracts in the north areas of the city have poverty rates of over 20%. This data may suggest that there are not enough affordable housing options to allow LMI individuals to live in Tulsa. 

MAP I.3

MAP I.4

Number of Households Table

Table 6 - Total Households Table

Housing Needs Summary Tables

1. Housing Problems (Households with one of the listed needs)

Table 7 – Housing Problems Table

2. Housing Problems 2 (Households with one or more Severe Housing Problems: Lacks kitchen or complete plumbing, severe overcrowding, severe cost burden)

Table 8 – Housing Problems 2

3. Cost Burden > 30%

Table 9 – Cost Burden > 30%

4. Cost Burden > 50%

Table 10 – Cost Burden > 50%

5. Crowding (More than one person per room)

Table 11 – Crowding Information – 1/2

Table 12 – Crowding Information – 2/2

Describe the number and type of single person households in need of housing assistance.

According to HUD 2018-2022 Census data, 35.61% of all households in the City of Tulsa were single-person households, or 60,460 households. Renters are more likely than homeowners to live in single-person households. Map I.5 shows that single person households are spread evenly throughout the city, with the northern tracts seeing a larger density, as well as the central southern region. Elderly residents living in single-person households and on fixed incomes may need housing assistance.

MAP I.5

Estimate the number and type of families in need of housing assistance who are disabled or victims of domestic violence, dating violence, sexual assault and stalking.

Persons with Disabilities 

2018-2022 Census data reports that 14.33% of the population of the City of Tulsa is living with a disability. Map I.6 shows the distribution of those living with a disability. 2022 ACS data shows that 28.3% of the city’s population aged 65-74 years and 51% of those aged 75 years or older are living with a disability. Ambulatory disabilities are the highest disability types for both age ranges. Independent living difficulties (because of a physical, mental, or emotional problem, having difficulty doing errands alone such as visiting a doctor’s office or shopping) are also noted as a high disability type – especially for those aged 75 or older. There is a need for more housing assistance for those living with disabilities, especially the elderly population.

MAP I.6

Victims of Domestic Violence, Dating Violence, Sexual Assault, and Stalking 

According to the FBI’s 2019 Uniform Crime Report, there were 341 reported rapes in Tulsa. Rape is consistently under reported, and it is very likely there are significantly more families that need housing support due to this crime. There are currently 2 domestic violence and abuse shelters in Tulsa, with one offering hotline and one offering emergency shelter. In 2023, Domestic Violence Intervention Services in Tulsa assisted a large number of survivors:

• Answered 4,037 calls to the helpline
• Provided 3,836 survivors with court advocacy and protective orders
• Served 406 survivors of rape and sexual assault with hospital advocacy during their SANE exams
• Provided 824 survivors and children with advocacy
• Had 1,699 conversations on their text line
• Housed 464 survivors and children in their emergency shelter
• Had 3,058 check-ins to their 2-star childcare centers
• Presented 5,544 adults and teens with education and outreach
• Led 272 offenders through their abusive partner intervention

Across Oklahoma, 40% of women and 38% of men experience intimate partner physical violence, intimate partner rape, and/or intimate partner stalking in their lifetimes. Additionally, among Oklahoma public high school students, 1 in 14 have experienced recent physical dating violence and 1 in 15 have recently experienced sexual dating violence. As of 2023, Oklahoma has the highest rates of domestic violence for both women and men.

What are the most common housing problems?

Housing cost burden is the most common housing problem in the City of Tulsa. Resources spent on housing become unavailable for transportation, health care, childcare, and education. All these factors reinforce each other creating an economic situation that is difficult to exit. High housing costs reduce the availability of reliable transportation which prevents access to new economic opportunities which then makes it difficult to earn enough money to cover housing expenses. A housing unit is considered cost-burdened when between 30 and 50 percent of its income goes toward housing costs, and severely cost-burdened when housing costs consume more than 50 percent of a household’s income as shown in Tables 8 and 9 above.  Table 7 shows that 22,815 households are cost-burdened, and 1,9905 households are severely cost burdened as of the 2016-2020 CHAS data. Maps I.7-I.10 highlight the density of cost-burdened and severely cost-burdened homeowner and renter households based on 2018 -2022 ACS data.

MAP I.7

MAP I.8

MAP I.9

MAP I.10

Are any populations/household types more affected than others by these problems?

Renter and owner households between 0-50% AMI are most affected by cost-burdening. Table 9 shows that out of the 43,533 combined owner and renter households that were cost-burdened, 34,760 were in income categories between 0-50% AMI (79.8%). Table 10 shows that out of the 15,099 combined owner and renter households that were severely cost-burdened, 12,490 were in income categories between 0-50% AMI (82.7%). Housing problems are concentrated in low-income neighborhoods, which have high levels of minority concentration.

Describe the characteristics and needs of Low-income individuals and families with children (especially extremely low-income) who are currently housed but are at imminent risk of either residing in shelters or becoming unsheltered 91.205(c)/91.305(c)). Also discuss the needs of formerly homeless families and individuals who are receiving rapid re-housing assistance and are nearing the termination of that assistance

Increasing Risks of Homelessness

Low-income, cost-burdened residents are most at risk of becoming unsheltered. Consultation revealed that first time homelessness is on the rise and those who work are often at risk of homelessness because wages are not keeping up with the cost of housing and other basic needs.  Homelessness prevention programs that assist at-risk renters before they reach an unresolvable impasse with their landlords need sufficient funding and the necessary level of promotion so that at-risk renters know how and when to take advantage of them. Housing Solutions Tulsa reported that its landlord tenant resources provide education, mitigation, and relation services to thousands of people a year as the number of evictions steadily rises. In the past year, over 7,000 people have been served by the program.

Rapid Rehousing

Families that approach the end of their Rapid Re-Housing (RRH) assistance will have received required monthly ongoing case management support services of the type that will prepare them to seek and maintain housing on their own.  Such services include the development of a housing stabilization and eviction prevention plan which includes budgeting, seeking and retaining employment, household management, and family roles and responsibilities, as well as access to legal counseling and education on available community resources. This type of support will remain an ongoing need for these individuals and families especially when the financial support received through RRH assistance programs end. There is a provision for continued referrals to community support services after RRH assistance ends, but it cannot be comprehensively measured as to outcomes without additional resources.

If a jurisdiction provides estimates of the at-risk population(s), it should also include a description of the operational definition of the at-risk group and the methodology used to generate the estimates:

No at-risk populations data available. 

Specify particular housing characteristics that have been linked with instability and an increased risk of homelessness

Extremely low-income households with a severe housing cost burden are more likely to lose their homes in the event of loss of employment, health issues, or other unexpected expenses.   Unemployment and increasingly underemployment and wages that have not kept up with rising housing costs have been among the primary reasons for families losing their homes.  Cost burden is by far the most common housing problem and threatens housing stability. 

Discussion

Access to decent affordable housing remains to be an issue within Tulsa. Many residents are cost-burdened, which puts a financial strain on the households.

NA-15 Disproportionately Greater Need: Housing Problems – 91.205 (b)(2)

Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to the needs of that category of need as a whole.

Introduction

A disproportionately greater housing need exists when the members of racial or ethnic group at a given income level experience housing problems at a greater rate (10% points or more) than the income level as a whole.  The following tables analyze housing problems experienced by different racial and ethnic groups across income ranges.     

0%-30% of Area Median Income

Table 13 - Disproportionally Greater Need 0 - 30% AMI

*The four housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per room, 4.Cost Burden greater than 30%

30%-50% of Area Median Income

Table 14 - Disproportionally Greater Need 30 - 50% AMI

*The four housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per room, 4. Cost Burden greater than 30%

50%-80% of Area Median Income

Table 15 - Disproportionally Greater Need 50 - 80% AMI

*The four housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per room, 4. Cost Burden greater than 30%

80%-100% of Area Median Income

Table 16 - Disproportionally Greater Need 80 - 100% AMI

*The four housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per room, 4. Cost Burden greater than 30%

Discussion

Approximately 74.4% of households with 0-30% AMI experience one or more housing problems. 26.4% of households in this income category that experience one or more housing problems are Black or African American. The table below shows that in 2020, only 14.89% of Tulsa’s population was Black, which highlights the disproportionate impact these residents experience. About 73% of all Black / African American households in this income group disproportionately experience a housing problem (s). 82.4% of all Hispanic residents in this income category experience one or more housing problems and are also disproportionately impacted.

Approximately 71.2% of households with 31-50% AMI experience one or more housing problems.  About 73% of all Black / African American residents, 76.5% of Asian residents, 68.3% of American Indian/Alaska Native residents, 82.6% of Pacific Islander residents, and 75.4% of Hispanic residents in this income category experience housing problem (s).

NA-20 Disproportionately Greater Need: Severe Housing Problems – 91.205 (b)(2)

Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to the needs of that category of need as a whole.

Introduction

This section compares the existence of housing problems amongst racial groups against that of the jurisdiction as a whole in an effort to determine if any group(s) share a disproportionate burden of the area’s housing problems. For this purpose, HUD guidelines deem a disproportionately greater need exists when persons of a particular racial or ethnic group experiences housing problems at a rate of at least 10 percentage points higher than the jurisdiction as a whole.

0%-30% of Area Median Income

Table 17 – Severe Housing Problems 0 - 30% AMI

*The four severe housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per room, 4. Cost Burden over 50%

30%-50% of Area Median Income

Table 18 – Severe Housing Problems 30 - 50% AMI

*The four severe housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per room, 4. Cost Burden over 50%

50%-80% of Area Median Income

Table 19 – Severe Housing Problems 50 - 80% AMI

*The four severe housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per room, 4. Cost Burden over 50%

80%-100% of Area Median Income

Table 20 – Severe Housing Problems 80 - 100% AMI

*The four severe housing problems are:

1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per room, 4. Cost Burden over 50%

Discussion

Approximately 62% of households with 0-30% AMI experience severe housing problems. About 59.5% of all Black / African American residents, 70% of Asian residents, 60% of American Indian/Alaska Native residents, 100% of Pacific Islander residents, and 70.9% of Hispanic residents in this income category experience severe housing problem (s).

Approximately 31.4% of households with 31-50% AMI experience severe housing problems.  About 33% of all Black / African American residents, 51.3% of Asian residents, 31.3% of American Indian/Alaska Native residents, 17.4% of Pacific Islander residents, and 31.9% of Hispanic residents in this income category experience severe housing problem (s).

NA-25 Disproportionately Greater Need: Housing Cost Burdens – 91.205 (b)(2)

Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to the needs of that category of need as a whole.

Introduction:

HUD defines a disproportionately greater need - housing cost burden when the members of a racial or ethnic group at a given income level experience a housing cost burdens at a greater rate (10% or more) than the income level as a whole. Households who pay more than 30% of their income for housing are considered cost burdened. Households paying more than 50% of their income are considered severely cost burdened. 

Housing Cost Burden

Table 21 – Greater Need: Housing Cost Burdens AMI

Discussion:

Housing cost burden is a significant problem in the City of Tulsa. According to the CHAS data, there are over 150,000 households that are cost burdened, over half of which pay 50% or more of their income to housing cost. Approximately 16.0% of all households in the City pay between 30% and 50% of their income to household costs. 14.4% of the City’s households pay 50% or more of their income to housing costs, but no racial or ethnic groups are disproportionately affected. 

NA-30 Disproportionately Greater Need: Discussion – 91.205(b)(2)

Are there any Income categories in which a racial or ethnic group has disproportionately greater need than the needs of that income category as a whole?

Housing Problems

30% HAMFI or less

Residents of Tulsa who earn 30% HAMFI or less are considered extremely low income. Housing problems for this demographic are extremely common. Citywide, approximately 74.81% of all extremely low-income households have at least one housing problem, the most common being cost burden. There are no racial/ethnic groups that have a disproportionately high rate of housing problems in this group.

30-50%

A household that earns between 30% and 50% HAMFI is classified as very low income. Housing problems are slightly less common for this group with 70% with a problem. There are no racial/ethnic groups that have a disproportionately high rate of housing problems. 

50-80%

Housing problems are significantly less common in households that earn between 50% and 80% HAMFI. Citywide, nearly 38% of households in this group have a housing problem. There is one racial group that is disproportionately affected by housing problems. Over 51% of Asian low-income households have a housing problem, however this population is relatively small. There are only 670 Asian households in the City, making up approximately 2% of the income group.

80-100%

Only 19.26% of households who earn 80% to 100% HAMFI have a housing problem. There are no racial/ethnic groups that are disproportionately affected by housing problems for this income group.

Conclusion

As a household’s income increases the housing problem rate decreases, particularly when a household earns more than 50% or more HAMFI. According to CHAS data, there is one income group with a race that is disproportionately affected by housing problems, but the population is relatively small. 

Severe Housing Problems

30% HAMFI or less

Residents who earn 30% HAMFI or less are considered extremely low income. Severe housing problems for this demographic are common. Citywide, approximately 62.22% of all extremely low-income households have at least one severe housing problem, the most common being cost burden. There are no racial/ethnic groups that have a disproportionately high rate of housing problems in this group.

30-50%

For this category 29.7% of the population have a severe housing problem. Asian households face severe housing problems at a disproportionate rate of 43.48%. This population is relatively small, with approximately 460 Asian households in this income group. 

50-80%

Only 10.3% of households in this group have a severe housing problem. Asian households have severe housing problems at a disproportionately high rate of 23.7%. This population is relatively small, with approximately 675 Asian households in this income group. 

80-100%

Approximately 6.47% of the households in this group have a severe housing problem. There are no racial/ethnic groups that are disproportionately affected by housing problems for this income group.

Conclusion

As a household’s income increases the severe housing problem rate decreases. There are a couple of instances where Asian households appear to have a disproportionately high rate of severe housing problems, but overall, there are relatively few households. 

Cost Burden

Housing cost burden is a significant problem in Tulsa. There are nearly 100,000 households that are cost burdened, nearly half of which pay 50% or more of their income to housing cost. Approximately 16.6% of all households pay between 30% and 50% of their income to household costs. Only one racial group appears to have a disproportionately high-cost burden, 26.9% of Pacific Islander households are cost burdened. However, there are only 35 households estimated to fall in this group, a very small population. Nearly 15% of the City’s households pay 50% or more of their income to housing costs, but no racial/ethnic groups are disproportionately affected. 

If they have needs not identified above, what are those needs?

No additional needs have been identified. 

Are any of those racial or ethnic groups located in specific areas or neighborhoods in your community?

Race and ethnicity are often linked to economic opportunities and the area of a City where people live. This issue is discussed in detail in Section MA-5

NA-35 Public Housing – 91.205(b)

Introduction

In September 1967 when the Housing Authority of the City of Tulsa (THA) was created, the need for safe, decent and sanitary housing was tremendous. Families were living in substandard conditions without electricity, gas or running water. At that time, almost 20% of the housing available in the City was substandard in some way.

When THA opened its first Public Housing Community, Seminole Hills, there was waiting list of 2,200 applications for the 150 units available. By the time Comanche Park and Apache Manor were completed, the waiting list had grown to 3,700 applications.  The early demographics of THA showed that 60% of the residents were minors and that single women headed 65% of the households.

The next decade would be the most significant for THA in terms of growth.  By 1979, THA had constructed or purchased 2,424 units of public housing.  The initial Housing Assistance Program (HAP) had reached its 900-unit maximum, and the new Section 8 Certificate program had grown to 1,200 units.

Subsidized housing continued to change and grow during the 1980’s. Construction on East Central Village, Murdock Villa and Inhofe Plaza was completed. The Moderate Rehabilitation and Section 8 Voucher Program had been introduced and by the mid-80’s, the HAP program had been phased out.  By 1989, THA was providing housing for almost 20,000 of Tulsa’s citizens and community attention began to focus on the need for social, educational and employment programs in public housing.

This community focus resulted in the development of structured self-sufficiency programs in both Section 8 and Public Housing.  In 1990 THA opened what would become the first of 13 Resource Centers for residents at Apache Manor. The Section 8 Family Self-Sufficiency Program was introduced in 1991, and by 1992 THA had officially created a Resident Services Program, with the purpose of addressing various needs of families in Public Housing.  Funding through the Department of Housing and Urban Development (HUD) enabled THA to create a Security Department to rid THA communities of drugs and criminal activity.  A Self-Sufficiency Program for residents of public housing was introduced and a Homeownership Program was developed.

As THA’s third decade came to an end, THA had grown and evolved into a professional housing agency that is responsive to resident needs and was developing highly creative and innovative solutions to address those needs. THA currently has 240 public housing units and 7,179 Housing Choice Vouchers. THA has converted 10 of it’s public housing properties through the Rental Assistance Demonstration (RAD) program. THA has preserved or is in the process of preserving six of it’s public housing properties.  Through RAD, THA was able to invest over $230 million into those six properties through 4% Low Income Housing Tax Credits and tax-exempt bonds and other financing tools, which preserve them for the next twenty years.  THA has also applied for Section 18 for two public housing properties as part of two Choice Neighborhood projects and completed demolition at both sites. Riverview Park was demolished in 2020, and the residents were moved offsite via Housing Choice Vouchers across the City. River West replaced Riverview and a Section 8 property (Brightwaters). River West is a six phase, 435-unit, multi-income property. Envision Comanche Planning Process began in 2018, and a Choice Neighborhood Award was received in 2022.  Demolition at Comanche Park was completed in 2023.  All residents at Comanche Park were via Housing Choice Voucher across the City. 36N (name picked by the community) will consist of over 500 newly constructed units, ensures one-for-one replacement of occupied subsidized units, allows for increase in affordable units, and establishes true market rate rental units.  The first phase of 36N, Phoenix at 36N began construction in summer of 2024. 

Table 22 below includes up-to-date information provided by THA on total units in use. Tables 23 through 26 include information on resident characteristics that was obtained from the PIH Information Center. As a result, small discrepancies will be noted in the totals across the tables as the PIC data is not as recent. 

 Totals in Use

Table 22 - Public Housing by Program Type

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition            

Characteristics of Residents

Table 24 – Characteristics of Public Housing Residents by Program Type

 Race of Residents

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Table 25 – Race of Public Housing Residents by Program Type

Ethnicity of Residents

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Table 26 – Ethnicity of Public Housing Residents by Program Type

Section 504 Needs Assessment: Describe the needs of public housing tenants and applicants on the waiting list for accessible units:

THA maintains waiting lists for both the Public Housing, Rental Assistance Demonstration (RAD), Project Based Voucher (PBV) and Housing Choice Voucher (HCV) programs. Since 2017, THA switched to site-based waiting lists for each property and separated the HCV waitlist. On average each property has a waiting list of 1000-4000 applicants. Currently, the HCV waiting list is closed and has been since September 18,2024; applicants are being selected from the list to replace families as they terminate from the program.  The HCV waitlist is at 10,315.

The majority of the applicants on both lists are households with 2 or more members, which results in a need for safe, affordable multi-bedroom units.  THA also owns and manages Murdock Villa Apartments, a Section 8 Project-based site.  It was built for the disabled and is totally accessible.

Most immediate needs of residents of Public Housing and Housing Choice voucher holders

The most immediate needs of residents in public housing and HCV program holders are affordable housing options and higher income levels that will help them become self-sustainable. As seen in the assessment of extremely low-income households (households with 30% AMI or less), the lower the income, the less affordable housing becomes and the more likely a household will experience housing cost burden.  

With almost 61 elderly and 103 disabled public housing residents, additional access to accessible affordable housing units is a major need among public housing residents. Other immediate needs of families on both programs include transportation, GEDs, employment training, daycare and daycare assistance, and jobs.

How do these needs compare to the housing needs of the population at large

Most of the needs of the residents in these programs are the same as the general population.  However, due to extremely low-income, their needs seem to be overwhelming with families in the HCV program having an average annual income of $12,124 and families living in Public Housing having an average annual income of $9,748, making everyday living a challenge.  Most families lack transportation to find jobs and attend school or to get to the grocery store or to seek medical attention. Families that must relocate to different units on the HCV program often find it hard to come up with security and utility deposits.

The barrier of finding accessible units for the disabled is also similar to those in the general population, with the primary difference being their income. 

Discussion

The City of Tulsa Housing Authority continues to be one of the main providers of affordable housing to Tulsa’s low-income populations, assisting nearly 20,000 individuals (7,200 households) who are predominately low-income households.

With almost 1,300 elderly and 2,945 disabled public housing and housing choice voucher residents, additional access to accessible affordable housing units is a major need among all residents.  

Source: HUD Public and Indian Housing Information Center

NA-40 Homeless Needs Assessment – 91.205(c)

Introduction:

Homelessness continues to be a challenge in Tulsa as the number of people entering the homeless response system increases without the ability of service providers to scale up to meet the rising need. Housing Solutions Tulsa reports that more than 1,000 people are waiting for permanent housing and another 1,800 people are looking for 12-24 months of assistance.  On average, people spend about 200 days on a wait list before getting referrals, which results in worsening of their circumstances as the compounding factors of homelessness build, including physical and mental health concerns, impacts on employment, and the intensification of resources needed to transition out of homelessness.

The cause of any single person’s homelessness often lies, not in a single factor, but at the convergence of many events and conditions. From one perspective, homelessness is an economic problem caused by unemployment, lack of affordable housing options, or poverty. From another perspective, homelessness is a health issue because many homeless persons struggle with mental illness, physical disabilities, HIV/AIDS, substance abuse, or a combination of those health factors. A third perspective is to view homelessness as a social problem with factors such as domestic violence, educational attainment, and race lying at the root. In reality, homelessness can be caused by all of these issues, and they are often interrelated. Due to this complexity, addressing homelessness requires a collaborative and community-based approach.

The Stewart B. McKinney Homeless Assistance Act defines the “homeless” or “homeless individual” or “homeless person” as an individual who lacks a fixed, regular, and adequate night-time residence; and who has a primary night-time residence that is:

• A supervised publicly or privately-operated shelter designed to provide temporary living accommodations (including welfare hotels, congregate shelters, and transitional housing for the mentally ill);
• An institution that provides a temporary residence for individuals intended to be institutionalized; or
• A public or private place not designed for, or ordinarily used as, a regular sleeping accommodation for human beings

Table 25 - Homeless Needs Assessment

If data is not available for the categories "number of persons becoming and exiting homelessness each year," and "number of days that persons experience homelessness," describe these categories for each homeless population type (including chronically homeless individuals and families, families with children, veterans and their families, and unaccompanied youth):

Nature and Extent of Homelessness: (Optional)

Estimate the number and type of families in need of housing assistance for families with children and the families of veterans.

Families with children: Per the 2023 Point-in-Time count data available for the Continuum, Tulsa had 91 unique households in need of housing assistance. 

Families of Veterans: There are approximately 92 veterans experiencing homelessness on a single night in Tulsa, according to the most recent Point-In-Time Count. Of those, 1 household included adults with children. Most veterans (53) were sheltered. 

Describe the Nature and Extent of Homelessness by Racial and Ethnic Group.

Approximately 52% of those considered homeless in Tulsa identify themselves as being White. Those who identify themselves as Black or African American totals 24%. The percentage of the homeless that identify themselves as American Indian or Alaska Native is 14%. A total of 11% who are homeless identify as Hispanic. 

Note: The table above does not allow for including Multiple Races as a race. The Continuum of Care reports that 64 individuals identify as Multiple Races. 

Describe the Nature and Extent of Unsheltered and Sheltered Homelessness.

The Point in Time count summary for January 26, 2023, indicated that 438 (39%) of the 1,133 persons surveyed were unsheltered. Of those sheltered, 489 were located in emergency shelters, and 206 were in transitional housing or safe haven. Of the total sheltered and unsheltered, 148 were children under the age of 18.

Discussion:

Homelessness in Tulsa has shown an increase of nearly 17% over the past 5 years (2019- 2024) including an increase in unsheltered homelessness of 80%. In addition, the number of individuals utilizing emergency shelters increased. Although our community has seen a decrease in chronic homelessness this year, showcasing the impact of dedicated intervention programs, the inflow of first-time homeless (73% in 2024) has made it difficult to decrease the number experiencing homelessness. Affordable housing is the biggest barrier to achieving stability.

NA-45 Non-Homeless Special Needs Assessment - 91.205 (b,d)

Introduction:

There are 4 primary groups with non-homeless special needs in the jurisdiction. They are the elderly and frail elderly, those with HIV/AIDS and their families, those with alcohol and/or drug addiction, and the mentally or physically disabled. This section will explain who they are, what their needs are, and how the City is accommodating or should accommodate these needs.

Many people with special needs also have low incomes. For some people, supportive housing – housing with supportive services – is needed as they are unable to undertake the activities of daily living (ADL) without assistance.   Supportive housing is defined as living units that provide a range of services needed for the resident to achieve personal goals. Various subpopulations with special needs require supportive housing. The needs of these subpopulations are described below. 

It should be noted that data showing the cumulative cases of AIDS reported, area incidence of AIDS, and rate per population, collected in Table 29, were not available upon request from the Oklahoma State Department of Health and/or the local HOPWA provider. This data was also not publicly available from the U.S. Centers for Disease Control and Prevention (CDC).

HOPWA

Table 29 – HOPWA Data

HIV Housing Need (HOPWA Grantees Only)

Table 30 – HIV Housing Need

Describe the characteristics of special needs populations in your community:

Seniors: Seniors are considered a special needs group because of their typically limited incomes, mobility limitations, and need for health care and other supportive services. As prices throughout the community inflate, the elderly population generally cannot increase their income to match.

According to the most recent Census, there are approximately 61,984 residents over the age of 65 in the city, making up about 15% of the population. Approximately 10,332 residents aged 65-74 have a disability, or 28.3%, and approximately 12,440 residents over the age of 75 have a disability, or 51%.  Approximately 11.5% of those aged 65 or older in Tulsa live below the poverty line.

HIV/AIDS: See discussion below.

Substance Abuse:  Gathering accurate data about alcohol and drug addiction within a community is difficult. Addiction often goes unrecognized because people don’t seek help due to fear of criminal charges and/or the social stigma associated with addiction and other medical issues. Often only when someone overdoses, gets arrested, or seeks treatment are they counted in statistics. There were 913 overdose deaths in Tulsa County between 2018-2022.

In the 2023 Oklahoma Drug Threat Assessment some data is provided about the prevalence of alcohol and drug addiction. Tulsa County identified methamphetamine as the top drug threat in the area, with fentanyl being a rising concern in the state. Heroin use has been on the rise in Oklahoma and Tulsa County was 1 of 4 counties responsible for almost 70% of heroin cases submitted by law enforcement.

Disability: 2018-2022 Census data reports that 14.33% of the population of the City of Tulsa is living with a disability. 2022 ACS data shows that 28.3% of the city’s population aged 65-74 years and 51% of those aged 75 years or older are living with a disability. Ambulatory disabilities are the highest disability types for both age ranges. Independent living difficulties (because of a physical, mental, or emotional problem, having difficulty doing errands alone such as visiting a doctor’s office or shopping) are also noted as a high disability type – especially for those aged 75 or older. There is a need for more housing assistance for those living with disabilities, especially the elderly population.

What are the housing and supportive service needs of these populations and how are these needs determined?  

Elderly: Providing secure, safe, affordable, and stable housing for the elderly is vitally important for this population. There are many factors that contribute to a healthy environment for the elderly including, but not limited to, access to health care, shopping, and social networks. A robust public transportation network is incredibly beneficial to assist the elderly in remaining active and independent. Additionally, elderly residents’ homes may need modifications to assist with any disabilities that may develop as a result of aging.

HIV/AIDS: See discussion below.

Alcohol and Drug Addiction: Individuals with substance abuse problems need a strong network in order to stay healthy and sober. Their housing needs include sober living environments, support for employment, access to health facilities, and easy access to family and friend networks. Additionally, detoxification facilities are necessary when addiction is first recognized.

Disability: Individuals with disabilities encompass a wide range of skill levels and abilities. Therefore, they have many of the same issues as the general population with the added needs that are unique to their capabilities. Individuals with disabilities usually have a fixed income and have limited housing options. The individuals who have more independent skills tend to utilize subsidized housing options. Individuals requiring more support find residences in the public welfare funded community homes either in shared settings or privately owned personal care settings. Many individuals continue to reside with parents and families throughout adulthood. Regardless of the housing situation, a common thread is the need for continuous support services dependent of the level of capabilities. 

Discuss the size and characteristics of the population with HIV/AIDS and their families within the Eligible Metropolitan Statistical Area:  

Similar to National trends, the population of people living with HIV/AIDS in Tulsa is steadily aging as advances in treatments are helping the afflicted live longer. This increase in age naturally comes along with an increase in the number of individuals living with other disabilities. Because people with HIV/AIDS are no longer qualifying for disability benefits based on the presence of an HIV diagnosis alone, many within this population have lower incomes because, while they may be too sick to work, they are not sick enough to receive SSI or SSDI. Thus, older individuals with HIV/AIDS are having to return to the workforce after being out for many years.

If the PJ will establish a preference for a HOME TBRA activity for persons with a specific category of disabilities (e.g., persons with HIV/AIDS or chronic mental illness), describe their unmet need for housing and services needed to narrow the gap in benefits and services received by such persons. (See 24 CFR 92.209(c)(2) (ii))

The PY25 TBRA Activity will contain a preference for households in which at least one household member was formerly incarcerated and/or the household is experiencing literal homelessness or is at imminent risk of homelessness. For this program, formerly incarcerated is defined as 1) persons exiting the corrections system, with a preference for persons currently exiting and at risk of homelessness due to a lack of stable housing; 2) individuals currently experiencing homelessness who were formerly incarcerated. For this program, literal homelessness and/or at-risk of homelessness is defined using HUD definitions outlined in 24 CFR.

Discussion: N/A

NA-50 Non-Housing Community Development Needs – 91.215 (f)

Describe the jurisdiction’s need for Public Facilities:

Through the online surveys, interviews and community focus groups conducted during the citizen participation process for this Consolidated Plan, participants indicated that community facilities projects are needed, particularly ones that support youth and people with disabilities. Youth are especially in need of enrichment opportunities by addressing an aging park system and providing programs in low to moderate income areas. People with disabilities need more accessibility enhancements to allow access to public amenities.

How were these needs determined?

These needs were determined through the online surveys, interviews and community focus groups conducted during the citizen participation process.

Describe the jurisdiction’s need for Public Improvements:

Interviews with key stakeholders and residents during the Citizen Participation process for this Consolidated Plan included a discussion of infrastructure improvements.  Participants identified street and road improvements as important as they improve accessibility of residents as well as public safety, but a focus on public transportation infrastructure was identified, particularly to expand upon advancements already made.

How were these needs determined?

Public Improvements needs were determined through demographic analysis, consultation with the public and key stakeholders, and through reviewing programs previously completed by the City. Additional information can be found in the Citizen Participation section of this document.

Describe the jurisdiction’s need for Public Services:

Through community outreach during focus groups and in targeted stakeholder interviews a variety of social services needs were identified, including crisis services for people fleeing domestic violence, children, employment training and placement services, food security, services for seniors and the homeless, shelter operations and services, housing counseling, and transportation services.

How were these needs determined?

Public Services needs were determined through demographic analysis, consultation with the public and key stakeholders, and through reviewing programs previously completed by the City. Additional information can be found in the Citizen Participation section of this document.

MA-10 Number of Housing Units – 91.210(a)&(b)(2)

Introduction

All residential properties by number of units

Table 31 – Residential Properties by Unit Number

Residential Properties by Number of Units

The table above breaks down the City’s housing stock by the number of units in each structure and by structure type. Traditional single-family, detached homes are most prominent, accounting for 62% of all housing units. The City also has a fair number of units in the “Missing Middle” demographic. The “Missing Middle” are property types that are rarely found in rural areas but, when present, provide affordable housing and increased density. For the purposes of this section the “Missing Middle” is defined as buildings with 2-19 units, which makes up 23% of the housing stock in Tulsa. Large multi-family developments (20 or more units) account for 10% of all housing units in the City. Finally, 2% of housing units are classified as mobile home, boat, RV, van, etc. 

Multifamily Development Distribution

The City of Tulsa has a moderate number of multifamily developments, but it is important to verify that these units are available throughout the City. The maps below display the distribution of small, medium, and large multifamily developments in the jurisdiction. Small multifamily developments are building with 3-19 units, medium multifamily developments have 20-49 units, and large multifamily developments are buildings with 50+ units.

 Small multifamily developments, the “Missing Middle”, are generally more available in the south and eastern parts of the City. There is one tract in the northwest with a relatively large number of units (40% or more) but that is an exception; most tracts in the northwest have less than 10% of the units in this category. 

MAP II.1

 Medium Multifamily Developments

Medium multifamily developments are much less common than small multifamily developments. There are only a few areas with a relatively high number of units in this housing type (6% or more) while most of the City has fewer than 3%. Again, the northwest part of the City stands out as having even fewer units in this category than most of Tulsa. 

MAP II.2

Large Multifamily Developments

Large multifamily developments, much like medium multifamily developments, are relatively rare when compared to small multifamily developments. However, the location of large multifamily buildings is more concentrated than medium buildings. Large buildings are primarily in the southwest part of the City. 

MAP II.3

Unit Size by Tenure

Table 32 – Unit Size by Tenure

Describe the number and targeting (income level/type of family served) of units assisted with federal, state, and local programs.

No less than 40% of all new admissions to the Public Housing and Section 8 project-based programs must be extremely low income and no less than 75 % of new admissions to the HCV must be extremely low income during the housing agency’s fiscal year. 

A more thorough analysis of publicly supported housing program recipients is conducted in MA-25, Public and Assisted Housing.

Provide an assessment of units expected to be lost from the affordable housing inventory for any reason, such as expiration of Section 8 contracts.

According to the National Housing Preservation Database, approximately 1,752 affordable housing units are set to expire in the next 5 years. Of these, 780 are covered by a subsidy that can be renewed leaving a certain loss of 972 units.

Does the availability of housing units meet the needs of the population?

A study by Housing Solutions Tulsa and Homebase found that the availability of housing does not meet the needs of the City. A projected 12,900 units of all types and price points are needed over the next 10 years to meet demand and support equitable growth. Current, pent-up demand accounts for approximately 4,000 of these units. Further, the city has a significant need for affordable housing, especially for those with 0-50% AMI, as noted in the cost burden analysis in the Needs Assessment. The Needs Assessment shows that cost burden is the most common housing problem in Tulsa. All residents need more affordable housing but there is a particular lack of small homes for homeowners and large homes for renters. Furthermore, there is a need for more units that can easily access public transportation and can address the needs of seniors and residents with disabilities. 

Describe the need for specific types of housing:

The City continues to have extensive needs for affordable housing for lower income households in general.  However, seniors, disabled, the homeless, and those at imminent risk of becoming homeless have limited housing options in the city, and those options have dwindled in recent years due to rising rent prices. Transitional and supportive housing are needed to help the formerly homeless and at-risk households re-establish independent living in mainstream society.  Affordable senior housing is needed to allow residents to age in place. 

With respect to housing for special needs populations, the study by Housing Solutions Tulsa and Homebase found that 2,730 units are needed and can be divided into the following categories:

• 130 transitional housing (TH)
• 1,400 rapid rehousing (RRH)4 units, and
• 1,200 permanent supportive housing (PSH)5 units

Additionally, its estimated that 870 additional shelter beds are needed.

Discussion

MA-05 Overview

Housing Market Analysis Overview:

This section provides an overview of the housing market in the City of Tulsa.

MA-15 Housing Market Analysis: Cost of Housing - 91.210(a)

Introduction

The median home value in the City of Tulsa saw a 16% increase between 2009-2020. The homeowner cost burden shown in Map II.4 and Map II.5 below reflects the increased cost of housing. Homeowner cost burden is spread throughout the city, with higher concentrations seen in the central areas and the southwestern areas. Renter cost burden is high throughout the city, with few areas being less than 25%. Renter cost burden is high in the northern areas of the city, especially the northwest. The northwestern areas of the city see renter cost burdens of over 35%. 

MAP II.4

MAP II.5

The average contract rent has also increased in the City of Tulsa. There was a 14% increase in the median contract rent prices between 2009 and 2012 – this number has only continued to increase. 2018-2022 census data indicates that the median contract rent was $958. According to Table 35, there are over twice as many rental units that are affordable to someone making 80% HAMFI when compared to a household with 50% HAMFI. Owner occupied units have a similar pattern with significantly fewer units that are affordable to very low income- households. 

Cost of Housing

Table 33 – Cost of Housing

Table 34 - Rent Paid

Housing Affordability

Table 35 – Housing Affordability

Monthly Rent

Table 36 – Monthly Rent

Is there sufficient housing for households at all income levels?
Table 6 shows that there were 26,085 total households earning less than 30% AMI in the city and Table 35 shows that there were only 6,325 available affordable housing units for those at that income level. Most households at that income level were small family households, followed by households with children 6 years or younger present, and elderly households. There were 24,270 total households earning 31- 50% AMI in the city, with only 37,315 affordable units available (for combined renter and owner households). The demand of affordable housing units, especially for those with incomes between 0-50% AMI, does not meet the demand. This especially affects small family households and elderly households.  

How is affordability of housing likely to change considering changes to home values and/or rents?
It is unlikely that the housing market will shift to increase the number of affordable owner-occupied or renter-occupied units. Rental units do not typically see prices decrease even when the housing market crashes. In Tulsa, there is plenty of housing, but it does not match the needs of the community. As affordable housing contracts expire and prices inflate, it is likely that fewer and fewer homes will be affordable in the City.  

How do HOME rents / Fair Market Rent compare to Area Median Rent? How might this impact your strategy to produce or preserve affordable housing?
The Tulsa Median Rent is $678 (according to Table 33), which is between efficiency and 1-bedroom units for the FMR and HOME rents. However, the location of a property greatly impacts affordability.

It's important to consider the income levels of the target population and the overall housing market conditions when developing a strategy for producing or preserving affordable housing. This might involve exploring alternative funding sources, such as tax credits or grants, to support the development or preservation of affordable housing units at lower rent levels.  

Discussion

MA-20 Housing Market Analysis: Condition of Housing – 91.210(a)

Introduction

The tables and maps in this section provide details on the condition of housing units throughout the City by looking at factors such as age, vacancy, and the prevalence of housing problems. 

As defined by HUD, the 4 housing problems are:

1) a home which lacks complete or adequate kitchen facilities
 2) a home which lacks complete or adequate plumbing facilities
 3) a home which is overcrowded (having more than one person per room)
 4) a household that is cost burdened (paying 30% or more of their income towards housing costs)

Renter-occupied units are much more likely to have at least one housing problem than owner-occupied units. This is primarily due to cost burden. The age of housing units does not vary significantly by housing tenure. 

Describe the jurisdiction's definition of "standard condition" and "substandard condition but suitable for rehabilitation":

Although the City does not have a written definition for “standard condition” or “substandard condition but suitable for rehabilitation”, all housing units are required to meet the minimum property maintenance standards outlined in Title 55 of the City’s Code of Ordinances and are subject to Nuisances ordinance outlined in Title 24. The City of Tulsa Code of Ordinances can be located at https://library.municode.com

Condition of Units

Table 37 - Condition of Units

Year Unit Built

Table 38 – Year Unit Built

Risk of Lead-Based Paint Hazard

Table 39 – Risk of Lead-Based Paint

Vacant Units

Table 40 - Vacant Units

Need for Owner and Rental Rehabilitation

Table 37 details the number of owner and renter households by number of housing problems identified in the 2016-2020 ACS estimates.42, 19 Overall, renters are about twice as likely to have a housing problem than homeowners – 42% of renter households experience a housing condition and only 19% of homeowner households experience a housing condition. Relatively few units have more than one selected condition but there are still over 2,500 households with multiple housing problems. 

 Deteriorating housing can depress neighboring property values, discourage reinvestment and eventually impact the quality of life in a neighborhood. 

The year a house is built is heavily correlated with whether it is in substandard condition. Older homes are more likely to need regular maintenance in order to provide a safe and secure living environment to residents. When looking at the age of a home an important factor is whether it was built before 1978. Prior to 1978 lead-based paint was used in many homes and the presence of that paint can cause significant health problems for residents, particularly for children, the elderly, and those with compromised immune systems. Table 38 illustrates that about 63% of the City’s renter-occupied housing stock was constructed prior to 1980 and 70% of owner-occupied housing stock was built before 1980. Map II.6 shows that the City of Tulsa has a large population of homes built before 1980. In the central and northwestern tracts, there are areas in which over 80% of the homes were built prior to 1980.

Seniors or those on a fixed or limited income oftentimes cannot afford to maintain their home or to make necessary safety accommodations. As costs of materials for new builds continue to rise, rehabilitation assistance for low-income families and those on fixed incomes such as seniors and those with disabilities will be an important tool in allowing them to maintain their housing and lessen the risks of homelessness.

MAP II.6

Estimated Number of Housing Units Occupied by Low- or Moderate-Income Families with LBP Hazards

Housing units built prior to 1980 may contain lead-based paint in portions of the home (window and door frames, walls, ceilings, etc.) or throughout the entire home. Housing units built before 1980 have a risk of lead-based paint hazards and should be tested in accordance with HUD standards. Map II.6 (above) shows the prevalence of homes built before 1980 in the City of Tulsa. According to Table 39, there were 107,900 housing units in the City of Tulsa that were built prior to 1980 and are therefore at-risk of lead-based paint hazards. 70% of all owner-occupied units and 62% of all renter-occupied units fall into this category. There were 12,013 housing units built before 1980 with children present. These risks increase as the housing units age and if the rehabilitation needs are not met. Testing for lead-based paint and the repair, if needed, is another added cost for home rehabilitation.   

Discussion: N/A

MA-25 Public and Assisted Housing – 91.210(b)

Introduction

The Housing Authority of the City of Tulsa assists more than 14,000 individuals or 7,200 families. The following provides an overview on the public housing services currently provided.  THA currently has 240 public housing units and 7,179 Housing Choice Vouchers. 

Map II.7 shows the distribution of households who received Housing Choice Vouchers in 2023.

MAP II.7

Totals Number of Units

*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition

Table 41 – Total Number of Units by Program Type

Describe the supply of public housing developments:

Describe the number and physical condition of public housing units in the jurisdiction, including those that are participating in an approved Public Housing Agency Plan:

Tulsa Housing Authority owns and manages 2 Public Housing communities (1 family site and 1 high-rise for senior citizens). The following is a summary of the sites;

Hewgley Terrace was built in 1970. It is an 8-story high-rise building. This building was designed specifically for the elderly and disabled, just east of downtown Tulsa.

South Haven Manor was built in 1970 with 90 units of duplexes and small single-family homes.  The site has a resource center and laundry facilities.

Public Housing Condition

Table 42 - Public Housing Condition

Describe the restoration and revitalization needs of public housing units in the jurisdiction:

HUD provides physical inspection scores for PHA developments across the country. The physical condition scoring process is based on 3 elements within the property, which are: 

1. Inspectable areas: site, building exterior, building system, common areas and dwelling units;
   2. Inspectable items: walls, kitchens, bathrooms and other things to be inspected in the inspectable area; and 
2. Observed deficiencies. 

A score of 55 or below means that the property is in poor condition, and properties in excellent condition have a score of 90 and over.  One of the developments was rated excellent, and none were in poor condition. 

THA’s Public Housing program receives approximately $3,000,000 annually from the Capital Fund Grant Program. These funds are used to replace roofing, siding, mechanical equipment, security cameras, and numerous other projects. THA is in the planning process for converting both sites through the RAD program and will use the Capital Grant Funds to complete the required repairs during both conversions.

Describe the public housing agency's strategy for improving the living environment of low- and moderate-income families residing in public housing:

The Tulsa Housing Authority is committed to providing safe and affordable housing for its residents. In an ongoing effort, THA is in the process of converting its final two properties through the RAD program. This will allow additional capital to be invested in the properties that are not available under HUD’s public housing regulations.

THA has resource centers at all of its family sites; these centers are staffed by service coordinators that provide tutoring, computer classes, job skills and resume’ classes.  All of the adult classes are aimed at self-sufficiency. The Service Coordinators also work diligently with the resident council at each site.  Most members of the resident councils are also members of the Tenant Advisory Board (TAB), which meets to discuss residents’ concerns and to have input in THA’s Agency Plan and Capital Fund Program planning. 

THA’s portfolio-wide conversion to RAD Project-Based Voucher (PBV) subsidy will guarantee long-term affordability and fiscal stability for existing THA residents. The final 2 public housing properties will go through the RAD program over the next two years. A total of 2,202 total units will be preserved under long-term PBV Housing Assistance Payment (HAP) contracts by end of 2026.  They will have 20-year contracts with automatic 20-year extensions.

Some conversions will be transactional only in scope, while others will involve demolition and remodeling. 

Discussion:

The City of Tulsa Housing Authority continues to be one of the main providers of affordable housing to Tulsa’s low-income populations, providing assistance to nearly 14,000 individuals or 5,040 families from predominately low-income households. With almost 1,300 elderly and 3,600 disabled public housing and housing choice voucher residents, additional access to accessible affordable housing units is a major need among THA’s residents.  

Source: THA 2023 Annual Report

MA-30 Homeless Facilities and Services – 91.210(c)

Introduction

Facilities and Housing Targeted to Homeless Households

Table 43 - Facilities and Housing Targeted to Homeless Households

Describe mainstream services, such as health, mental health, and employment services to the extent those services are use to complement services targeted to homeless persons

One of the goals of the CoC is to transform the system of care to be more effective, equitable, and person-centered. A strategy employed to meet this goal is to provide services, such as health, mental health, and employment services to reduce barriers to housing. Some of the ways in which the CoC has made progress toward these goals and strategies include co-locating services to reduce barriers to access, coordinating services across systems of care, and improving access and transportation to employment, services, and education resources. Additionally, the CoC membership includes representatives from these services sectors that participate in community-wide planning and collaboration with mainstream benefit providers.

1. Health - The State of Oklahoma voted to expand Medicaid under the Affordable Care Act (ACA) on June 30, 2020, and SoonerCare benefits for eligible adults went into effect as of June 1, 2021. As a result, A Way Home for Tulsa has expanded their efforts, through partnerships with medical providers and insurance providers like Aetna Better Health of Oklahoma, to increase Medicaid access for those experiencing homelessness. One such partnership exists with Morton Comprehensive Health Services (MCHS), a Federally Qualified Health Care (FQHC) and Homeless Services Clinic. MCHS provides Navigator assistance, free preventative and chronic primary medical/ dental care, health care management for adults and children, discounted prescription drugs, and free transportation to and from all heath care appointments. The VA provides a large medical facility that serves the Tulsa area's homeless veterans with a full range of medical services. Additionally, the medical program at Tulsa CARES offers HIV specialty care via in-person office visits and telehealth options.
2. Mental Health - The CoC’s strategic plan goal to increase access to Medicaid for those experiencing homelessness also helps to increase this population’s access to mental health services. Additionally, the CoC has worked to change discharge policies to ensure safe exit from institutions and systems of care and to create processes to improve service connections before and after discharge. For example, individuals experiencing homelessness have benefitted from coordinated discharge plans between hospitals and homeless outreach, City Lights hotel, and Hotel to Housing, as well as coordinated transportation between hospital discharge planners and outreach teams. For individuals with qualifying disabilities, supportive housing options are available through multiple providers, as well as SSI/SSDI Outreach, Access, and Recovery (SOAR) services to increase access to Social Security disability benefits. Mental Health Association OK (MHAOK), Family and Children’s Services (F&CS), and Counseling and Recovery Services of OK provide a wide range of mental health services, some coupled with housing within the Continuum. MHAOK employs Recovery Support Specialists who provide peer support services to residents of MHAOK’s supportive housing programs in conjunction with the Veterans Administration (Case Management and Health and Mental Health Care) and F&CS' Community Outreach Psychiatric Emergency Services (COPES) team. Other programs offered through F&CS are the Homeless Outreach Team (in shelters or on the streets), Offender Screening (offering treatment alternatives to incarceration), Library Outreach and the Crisis Care Center for emergency psychiatric needs of adults. Further, F&CS and MCHS partner under a regional Substance Abuse and Mental Health Service Administration grant to form the largest community mental health center in NE Oklahoma. Collaboration between MHAOK and Youth Services of Tulsa (YST) supports housing for 18- to 24-year-olds with CoC-funded permanent housing units. The VA’s Grant and Per Diem (GPD) Program supports 29 transitional housing beds with treatment services and 13 units for veterans with mental health diagnoses.
3. Employment – All individuals participating in the homeless system of care are assessed for income supports, including mainstream benefits, by staff designated to assist with applying for benefits. Mainstream community-wide services available to the homeless include job search assistance, job preparedness and training and employment initiatives. One such program administered by Catholic Charities of Eastern Oklahoma is a 12-week paid culinary training program that offers case management support and job placement assistance upon graduation. Additional assistance is available for homeless veterans through the Veterans' Workforce Investment Program and the TulsaWORKS program at Goodwill Industries. The CoC has also partnered with the Center for Employment Opportunities to work with unsheltered residents who have recently returned home from incarceration to connect with a job.

List and describe services and facilities that meet the needs of homeless persons, particularly chronically homeless individuals and families, families with children, veterans and their families, and unaccompanied youth. If the services and facilities are listed on screen SP-40 Institutional Delivery Structure or screen MA-35 Special Needs Facilities and Services, describe how these facilities and services specifically address the needs of these populations.

The following is a list of agencies, and the services provided, or facilities available, to the homeless population:

• GRAND Mental Health provides crisis services, community services such as outpatient therapy and case management, addiction recovery services, and specialty services, to include housing support services. Housing support services are designed to address various challenges related to housing instability, homelessness, and housing affordability and to help individuals and families achieve stable, safe, and affordable housing situations.
• City Lights Foundation provides street outreach services to connect individuals living in unsheltered situations with social supports, a weekly feeding event under a bridge in the downtown area and serve as an access point for the coordinated entry system. Many of those they serve are chronically homeless.
• Oklahoma Veterans United provides rapid rehousing and support services for veteran families.
• Domestic Violence and Intervention Services provides services, emergency shelter and transitional housing for survivors of domestic violence. Their on-site shelter and transitional housing units are located in a gated facility and includes trauma-informed services, childcare, a pet kennel, and a rapid rehousing program.
• Family & Children’s Services has multiple programs targeted to individuals experiencing homelessness.
• Projects for Assistance in Transition from Homelessness (PATH), a federal grant program provides intensive case management services to homeless clients with severe mental illness.
• The Coordinated Outreach team, led by Tulsa Housing Solutions, provides a whole range of wraparound services on the street – from basic needs to emotional support to mental health treatment.
• John 3:16 Mission and the Tulsa County Shelter provide emergency shelter and transitional housing for individuals.
• Mental Health Association Oklahoma (MHAOK) provides permanent supportive housing, safe havens, transitional housing and homeless outreach services. In addition, a Mobile Medical Intervention Team provides medical services on the street for unsheltered individuals and families.
• Salvation Army Center of Hope provides emergency shelter, permanent supportive housing and transitional housing assistance to families and individuals.
• Tulsa Day Center for the Homeless (TDCH) provides individuals emergency shelter, permanent supportive housing, rapid rehousing, nurse’s clinic, homelessness prevention, and a place to shower and wash clothes.
• Volunteers of America provides permanent supportive housing and payee services.
• Youth Services of Tulsa provides street outreach and a drop-in center to shower and wash clothes for unsheltered youth. They also provide emergency shelter, transitional housing and services to youth experiencing homelessness.
• Iron Gate Ministries serves meals daily and provides groceries to individuals experiencing homelessness or unstable housing.
• Morton Comprehensive Health Services provides free transportation and health care including medical, dental and vision care.
• Legal Aid Services of Oklahoma provides legal services at the Tulsa Day Center and at Tulsa County family housing court for individuals faced with eviction. Services include disability, social security, expungement and assistance to obtain identification.
• Family Promise of Tulsa County provides emergency shelter to families experiencing homelessness.
• The Spring provides shelter and services to those who have experienced domestic violence, sexual violence, and human trafficking and are searching for safety, advocacy, and restoration.
• Counseling & Recovery Services provides transitional housing to people receiving treatment for mental health issues. Residents receive education on developing a budget, housekeeping, personal hygiene, medication and illness management, and personal safety.
• Lindsey House Tulsa provides transitional housing to women with children who are experiencing situational homelessness. In addition, women participate in a series of curriculum focused on financial literacy, workplace proficiency and life skills.
• Surayya Anne Foundation operates a transitional housing program and offers rent and utility assistance to clients in the Tulsa area.
• Tulsa Housing Authority operates the HUD-Veterans Affairs Supportive Housing (HUD-VASH) program, which combines Housing Choice Voucher rental assistance for homeless Veterans with case management and clinical services provided by the Department of Veterans Affairs (VA).
• Actionsteps Counseling Inc. provides a 24-month outpatient substance abuse treatment program. Sober living housing is available.
• Be Heard Movement operates a mobile drop-in center where homeless people can get free showers, clothes, and haircuts.
• Black Queer Tulsa operates the BQT Drop-In House, which offers low barrier and affirming supportive services for youth who are homeless or at-risk in Tulsa County. They connect clients to CoC housing services, provide case management, and access to basic necessities.
• CREOKS Behavioral Health provides outpatient behavioral health services in their clinics, in-home, and through school-based programs to facilitate recovery.
• Downtown Tulsa Partnership launched a pilot Outreach Program in June 2023 through a grant from Ascension St. John. An Outreach Coordinator works directly with those experiencing unsheltered homelessness in Downtown Tulsa.
• Restore Hope Ministries provides rent assistance for individuals and families, distributes food, and addresses emotional and spiritual needs through daily Chapel Services, volunteer prayer counselors, and chaplain support.
• Still She Rises is a defense office dedicated to the representation of indigent mothers in both the criminal and civil legal systems. Social workers and legal advocates support clients by connecting them to public benefits and services.
• The Merchant helps individuals experiencing homeless with obtaining vital documents such as picture ID's, birth certificates, and social security cards. Staff provide case management and connection to benefits. They also provide clothing, meals, laundry, showers, a safe place to rest, and spiritual counseling.
• Tulsa County operates a non-congregate temporary shelter for individuals, couples, and families experiencing homelessness.
• Tulsa Dream Center provides after-school tutoring, healthcare for the uninsured, and equitable opportunities for underserved groups, to include individuals experiencing homelessness.
• Tulsa Higher Education Consortium implements a rapid rehousing program for youth pursuing higher education while experiencing homelessness or housing instability.
• Tulsa Area United Way’s 211 Eastern Oklahoma (211EOK) connects individuals to services, including food, housing, and utility assistance; physical and mental health resources; veteran, childcare, and family services; employment assistance; and links to crisis interventions.
• Center for Housing Solutions, Inc. provides outreach and housing navigation services to individuals, youth, and families with a serious mental illness (SMI), serious emotional disturbance (SED), or co-occurring disorder (COD) who are experiencing homelessness or are at imminent risk of homelessness.

MA-35 Special Needs Facilities and Services – 91.210(d)

Introduction

There are 4 primary groups with non-homeless special needs in the jurisdiction. They are the elderly and frail elderly, those with HIV/AIDS and their families, those with alcohol and/or drug addiction, and the mentally or physically disabled. This section will explain who they are, what their needs are, and how the jurisdiction is accommodating (or should accommodate) those needs.

HOPWA Assistance Baseline Table

Table 44– HOPWA Assistance Baseline

Including the elderly, frail elderly, persons with disabilities (mental, physical, developmental), persons with alcohol or other drug addictions, persons with HIV/AIDS and their families, public housing residents and any other categories the jurisdiction may specify, and describe their supportive housing needs

Elderly: The supportive housing needs for this population can vary widely depending on the health and fitness of the individuals. In general, with aging disabilities and other health issues become more common. Because of this, supportive housing must include access to health professionals and housing modifications to assist the resident. It is important to help residents stay independent and in their own homes for as long as possible.

HIV/AIDS: Medical and social support is important for residents living with HIV/AIDS. While there have been great advances in the medical treatment of HIV/AIDS, it is still important to provide specialized support. Family and friends must be accessible and medical facilities should be nearby.

Alcohol and/or Drug Addiction: Individuals dealing with addiction often require housing options that will provide a safe, sober place for recovery. A strong network is necessary to maximize the chance they will stay healthy and sober. It is important that these persons have access to health services, support groups, employment assistance, and access to family and friends. Additionally, detoxification facilities are necessary when addiction is first recognized.

Mental and Physical Disabilities: Individuals with disabilities encompass a wide range of skill levels and abilities. Therefore, they have many of the same issues as the general population with the added needs that are unique to their situation. Often times, individuals with disabilities have a fixed income and limited housing options. Individuals with more independent skills can utilize subsidized housing but individuals that need more support or specialized housing have fewer options. Many individuals continue to reside with parents and families throughout adulthood, which can put additional financial burden on the family. Regardless of the housing situation, a common thread is the need for continuous support services dependent on the level of capabilities.

Describe programs for ensuring that persons returning from mental and physical health institutions receive appropriate supportive housing

The Oklahoma Health Care Authority (OHCA) has state responsibility for discharge planning compliance with state funded health care institutions.  Oklahoma Department of Mental Health and Substance Abuse (ODMHSAS) is the entity responsible for oversight of discharge plans. ODMHSAS' statutes for inpatient services require written discharge plans that must include housing, income maintenance and social support as well as specific provisions for ongoing community based mental health or substance abuse treatment needs. State funded nursing homes, hospitals and intermediate care facilities are mandated by law to locate the least restrictive housing and services for people who are discharged.

Based on feedback from Tulsa CARES housing care coordinator and the housing program director, Tenant Based Rental Assistance (TBRA) is a critical need for persons with HIV/AIDS and their families.  It is difficult to locate affordable, safe housing options in the Tulsa area that are close in proximity to client’s medical care and grocery shopping needs.  Due to frequent medical appointments that often require lifestyle management, it is important that they live near their health care provider and have access to healthy foods and physical activity opportunities.  Some clients are also in need of deposit assistance which would allow them to relocate to a more ideal location. In addition, Tulsa CARES also recommends that the HIV positive population be a priority population for homeless shelters assisting with rental units.

Specify the activities that the jurisdiction plans to undertake during the next year to address the housing and supportive services needs identified in accordance with 91.215(e) with respect to persons who are not homeless but have other special needs. Link to one-year goals. 91.315(e)

The City will fund activities that assist special needs populations that are not homeless but that are still vulnerable.  Activities that may be undertaken include crisis services for children, adults, and special populations, educational programs for children and youth, employment training and placement services, food security, services for seniors and the homeless, shelter operations and services, housing counseling, and transportation services. The City will serve over 15,000 vulnerable and special needs individuals people with services over the course of this plan.  See the first year annual action plan for examples.

For entitlement/consortia grantees: Specify the activities that the jurisdiction plans to undertake during the next year to address the housing and supportive services needs identified in accordance with 91.215(e) with respect to persons who are not homeless but have other special needs. Link to one-year goals. (91.220(2))

N/A

MA-40 Barriers to Affordable Housing – 91.210(e)

Negative Effects of Public Policies on Affordable Housing and Residential Investment

Public policies are meant to address the overall needs of citizens in the City.  Yet, there are times where they may have a negative effect on certain aspects of the community, specifically affordable housing and residential investment.  Affordable housing and public and private residential investments are key components in furthering fair housing in any community.  The primary tool communities have for identifying contributing factors for these barriers to housing is an assessment of fair housing and fair housing choice. 

In 2024, the City began an update to the previous 2020 assessment.  Initial analysis from the 2024 update has found:

• A limited supply of affordable housing and extensive cost burden, especially for extremely low- and very low- income renters, causing those renters to face significant affordability “gaps”.
• Wages are not keeping pace with increases in housing and other basic costs of living further straining the cost burden of housing.
• Fair housing education is lacking and must be better understood by community residents and property owners.
• People with disabilities and seniors continue to experience challenges in housing accessibility.

The City plans corresponding actions designed to strengthen the supply of affordable housing and narrow the affordability “gaps.”  Elements of those actions appear within this Consolidated Plan and beyond.  Additionally, the City anticipates a review of public policies that may impede the development of affordable housing and to improve the understanding of their consequences. 

MA-45 Non-Housing Community Development Assets – 91.215 (f)

Introduction

There are many factors within a community that can impact housing supply and demand. The economic development of the community can play a major role in what type of home a household needs and what they can afford. The presence, or lack thereof, of specific industries can also decrease or increase the residents in a community. Throughout this section a variety of economic indicators will be described and analyzed. This will include business activity, labor force participation, travel time, education, and veterans. 

Economic Development Market Analysis

In the City of Tulsa there are approximately 215,261 jobs but fewer than 138,000 workers. Many commuters that come from outside the City to work. This reduces unemployment rates, but it is likely that residents would rather work and live in the same City. Workers who commute out of the City reduce their spending within the City and can reduce the tax base. Additionally, commuting can have a negative impact on an individual’s health and well-being. 

The largest job sector disconnect is Education and Health Care Services. There are over 49,000 jobs in the City in that sector but fewer than 28,000 workers. There are no job sectors in the city with more workers than jobs.

Business Activity

Table 45 - Business Activity

Labor Force

Table 46 - Labor Force

Table 47 – Occupations by Sector

Travel Time

Table 48 - Travel Time

Education:

Educational Attainment by Employment Status (Population 16 and Older)

Table 49 - Educational Attainment by Employment Status

Educational Attainment by Age

Table 50 - Educational Attainment by Age

Educational Attainment – Median Earnings in the Past 12 Months

Table 51 – Median Earnings in the Past 12 Months

Based on the Business Activity table above, what are the major employment sectors within your jurisdiction?

The largest employment sector in the City of Tulsa is the education and health care services sector, which accounts for 20% of jobs and 27,642 workers employed. Retail trade holds 12% of jobs and Art, Entertainment and Accommodations holds 11% of jobs.

Describe the workforce and infrastructure needs of the business community:

According to 2023 BLS data, the unemployment rate in Tulsa was 3.2%, however, stakeholders indicated that while jobs are available wages are not sufficient to meet the cost of living in the City, especially in relation to housing costs.

Map II.8 shows the percentage of residents aged 16 years or older who are unemployed. The overall rate is much higher, over 8%, in the northwest tracts of the City. This is also the area with high rates of poverty and lower housing prices.  The largest job sector disconnect is Education and Health Care Services. There are over 49,000 jobs in the City in that sector but less than 28,000 workers.  There is an opportunity to train and attract workers to bridge the gap in Education and Health Care Services.

MAP II.8

Describe any major changes that may have an economic impact, such as planned local or regional public or private sector investments or initiatives that have affected or may affect job and business growth opportunities during the planning period. Describe any needs for workforce development, business support or infrastructure these changes may create.

Research by the Indian Nations Council of Government (INCOG) to update the INCOG Economic Development District (INCOG EDD) five-year comprehensive economic development strategy, found that “while the Tulsa region possesses a reasonably strong economy with steady population, GRP, and labor force growth, impacts from the COVID-19 pandemic highlight the strategic emphasis needed on fostering regional resiliency. Though the regional economy has experienced decline in three of its largest industry sectors – energy, industrial machinery, and metalworking – the aerospace, advanced materials, and software/IT sectors each saw double-digit growth; showing promise for up-and-coming sectors that the region is making big bets on.”

How do the skills and education of the current workforce correspond to employment opportunities in the jurisdiction?

While Tulsa has large numbers of citizens educated to a Bachelor’s degree level or above, the Educational Attainment by Age table above shows that 6,725 (17.4%) of 18-24 year olds lack a high school diploma or GED equivalent. These workers are in danger of being left behind in a market where job growth requires skilled, educated professionals. Additionally, there are 18,705 residents over the age of 24 that lack a high school diploma or GED equivalent. 

Describe any current workforce training initiatives, including those supported by Workforce Investment Boards, community colleges and other organizations. Describe how these efforts will support the jurisdiction's Consolidated Plan.

Does your jurisdiction participate in a Comprehensive Economic Development Strategy (CEDS)?

Yes

If so, what economic development initiatives are you undertaking that may be coordinated with the Consolidated Plan? If not, describe other local/regional plans or initiatives that impact economic growth.

The Indian Nations Council of Governments (INCOG) is the regional planning agency for this area of Oklahoma. INCOG administers the Economic Development Administration (EDA) approved CEDS for the area which covers the City of Tulsa. The CEDS serves as a description of the current Tulsa area economic and workforce development status, in order to identify opportunities, and employ local, state and federal funds to meet current and emerging regional economic growth needs. 

In 2023 INCOG updated the CEDS. The updated involves “strengthening availability and access to relevant workforce training opportunities, increasing equitable access to small business and entrepreneurship resources, and removing barriers to workforce participation, such as affordable housing, childcare and transportation options.” The goals in this plan align with the CEDS strategic initiatives.  The City has established goes for addressing affordable housing, loans to small businesses, workforce development, and basic needs through social services.

Discussion: N/A

MA-50 Needs and Market Analysis Discussion

Are there areas where households with multiple housing problems are concentrated? (include a definition of "concentration")

HUD identifies 4 specific data points that constitute "housing problems": cost burden, overcrowding, lack of complete plumbing facilities, and lack of complete kitchen facilities. An area has a concentration of multiple housing problems when a census tract has 2 or more housing problems that are disproportionately high. A housing problem is disproportionately high if the percentage of households that have that problem at a rate of 10% or greater than the Citywide rate. 

The rate of housing problems in Tulsa is:

• Lacking Complete Plumbing Facilities: 2.29%
• Lacking Complete Kitchen Facilities: 3.32%
• Overcrowding: 3.2%
• Cost Burden: 32.9%

A census tract has a concentration if the lack of complete plumbing facilities is 12.29% or greater, the lack of kitchen facilities is 13.32% or greater, overcrowding is 13.2% or greater, or Cost Burden is 42.9% or greater.

Are there any areas in the jurisdiction where racial or ethnic minorities or low-income families are concentrated? (include a definition of "concentration")

For the purposes of this question, a concentration is defined as any census tract or grouping of census tracts where the minority population is 10% or more over the city-wide average or the Median Household Income is 80% or less than the city-wide MHI. The demographics for Tulsa are:

• Black, non-Hispanic: 15.14%
• Hispanic: 15.81%
• Median Household Income: $44,577

A census tract has a concentration if the Black population is 25.14% or larger; and the Hispanic population is 25.81% or larger; or the Median Household Income is $35,901 or less. Maps are included at the end of this section showing areas of concentration. 

What are the characteristics of the market in these areas/neighborhoods?

Black Households: In the northwestern part of the City there are many census tracts with a concentration of Black households. These tracts also have a low median income.

Hispanic Households: Hispanic residents are concentrated in several tracts through the northeast part of the City. These tracts tend to have a weaker market with lower median household income. 

Low Income Households: Low income households are primarily located in the northern part of the City. The northwest, in particular, has a high concentration of LMI households.

Are there any community assets in these areas/neighborhoods?

Despite the numerous economic and housing problems present within these areas, they all still have significant community assets such as public parks, community centers, educational institutions, health facilities, and community organizations. During the last Consolidated Plan, both local tax dollars and HUD funds have been spent in these areas to improve infrastructure facilities through sidewalk repair and installation and the removal of hazardous structures and graffiti. In 2018, $1.5 million CDBG funds were awarded to Tulsa Economic Development Corporation to add a grocery store to their Shoppes on Peoria development, which was completed using CDBG funds in 2013.

The City of Tulsa has several large capital projects planned and/or under construction in the Greenwood and Crutchfield areas which historically have been economically challenged and underserved. The City broke ground on the headquarters for United States of America Bicycle Motocross (USA BMX) on November 15, 2019. The $18.6 million project will take approximately a year and half to compete and when finished will host several annual national competitions bringing needed foot traffic and activity. The site will also have several parcels set aside for future mixed-use development which will provide additional economic development opportunities for this challenged area. Additionally, the City recently authorized the extension of capital improvement sales tax that will provide $6.0 million dollars for the rehabilitation of the Greenwood Cultural Center which supports the local community thru economic development efforts and provides meeting space and programming that supports small businesses in the area.

Are there other strategic opportunities in any of these areas?

In March 2023, Tulsa’s first independent study of Tulsa’s housing crisis, conducted by Development Strategies and Homebase, was published and prepared for Housing Solutions and was supported by the City of Tulsa.

This study summarized the following:

1. Housing is needed in Tulsa across the affordability spectrum
2. There is no single solution or strategy that will make it possible to meet demand
3. More than half of housing demand is for units at or below 100% average median income.
4. Meeting demand will not solve all of Tulsa’s housing challenges.

The total 10-year demand broken down by affordability in areas that HUD funding could help address is as follows:

• Extremely Low Income (<30% AMI or <$20,000)- 2,160 units
• Very Low Income (30% AMI to 50% AMI or $20,000 to $30,000)- 1,790 units
• Low Income (50% to 80$ AMI or $33,000 to $54,000)- 2,290 units

An Affordable Housing Trust Fund, established in February 2021, aligns with the City’s Affordable Housing Strategy to create an economically thriving, inclusive community with quality housing opportunities for all residents.

As of April 9, 2024, the Mayor/Council Housing, Homelessness, and Mental Health (3H) Task Force has released its Path to Home recommendations, which include four goals and 33 actions to address community needs, where Housing Production and Preservation is the first goal.

In November 2024, $75 million in Improve Our Tulsa (IOT) sales tax revenue was earmarked to be spent in the following ways to support the 3H Task Force recommendations:

• Housing Grant Fund, $25 million:
  Leverage other programs, such as the Low-Income Housing Tax Credit (LIHTC) to increase the supply of affordable housing for households at or below the 60% area median income.

• Housing Investment Fund, $7 million
  Deploy revolving funds to increase the supply of affordable housing for households earning up to 120% of the area median income.
• Housing Acquisition Fund, $10 million
  Acquire strategic sites across the city to produce housing units.
• Housing Infrastructure, $25 million
  Invest in strategic areas where increase in capacity could enable more housing development with focus on projects that will utilize existing public infrastructure.
• Housing Preservation & Rehabilitation, $5 million  
  Preserve housing by investing in rehabilitation of vacant and abandoned housing units.
• Administrative Costs, $350,000
  Ensure the program’s funds have proper administrative oversight.
• Outcome Evaluation, $150,000
  Establish metrics and evaluate the outcomes of the different programs in terms of number of units produced, leverage, and affordability.
• Bond Issuance & Interest Costs, $2.5 million  
  Advance funding to get projects committed financing.

IOT3 revenue for Housing Initiatives funds does not start until January 2026. 

MA-60 Broadband Needs of Housing Occupied by Low- and Moderate-Income Households - 91.210(a)(4), 91.310(a)(2)

Describe the need for broadband wiring and connections for households, including low- and moderate-income households and neighborhoods.

Internet is an essential communications and information platform that allows users to take advantage of the increased interconnectedness of business, education, commerce, and day to day utility. Reliable access to the internet is becoming a necessity to thrive in the modern economic environment. Communities that lack broadband access struggle to keep pace with the country. Locations without broadband access impedes its population’s ability to take advantage of the educational and entrepreneurial opportunities available online. This is particularly problematic for LMI areas where economic opportunities are already often lacking. Studies suggest a strong correlation between increased high-speed internet access and increased education and employment opportunities, especially in small cities and rural areas.

Tulsa does not have significant gaps in broadband coverage. Most of the City has multiple options of internet providers which includes LMI areas. The average Tulsa household has 4 options for broadband-quality Internet service; however, an estimated 27,000 locals still don't have access to more than one provider and may have to rely on low-grade wireless.

The following map shows broadband access throughout the City. Broadband access is defined as advertised internet speeds of 768 kilobits per second or higher. FCC data shows 2 major infrastructure options within Tulsa: cable and DSL. 

See map below on Broadband Access.

Describe the need for increased competition by having more than one broadband Internet service provider serve the jurisdiction.

Once broadband access has been obtained, it is important to ensure there is competition among service providers. Any resource that has a de facto monopoly on an area may not be incentivized to provide standard and consistent services. Tulsa has a total of 11 Internet providers offering residential service. Cox Communications and AT&T are the strongest providers in Tulsa as far as coverage. The average Tulsa household has 4 options for broadband-quality Internet service. These providers frequently overlap around the City. 

• Cox Communications (Cable)
• AT&T Internet (DSL and Fiber)
• EarthLink (DSL and Fiber)
• Atlas Broadband (Fixed Wireless)
• The Junction Internet (Fixed Wireless)
• AirLink Internet Services (Fixed Wireless)
• Windstream (DSL and Fiber)
• BTC Broadband (Fiber and DSL)
• Suddenlink Communications (Cable)
• Viasat Internet (formerly Exede)(Satellite)         
• HughesNet (Satellite)

The following map shows the number of broadband service providers by census tract. Most of the City has at least 2 options of high speed internet with competitive providers, though there are several tracts with lower populations that only have access to one provider.

See map below on Highspeed Internet Providers.

Broadband Access

Highspeed Internet Providers

MA-65 Hazard Mitigation - 91.210(a)(5), 91.310(a)(3)

Describe the jurisdiction’s increased natural hazard risks associated with climate change.

Tulsa has historically been prone to various natural hazard events including tornadoes, flooding, extreme heat, drought, and others. The potential impacts of climate change—including an increase in prolonged periods of excessively high temperatures, more heavy precipitation, more severe droughts—are often most significant for vulnerable communities. The City is not located near the coast, but it is still impacted by secondary effects. By the middle of the century the average summer temperature is expected to rise 4 degrees. This rise in temperature could lead to altered weather and precipitation patterns, a rise in severe storms, an increased risk of catastrophic floods, increased electricity costs, and ruined crops. Additionally, any increase in the ocean levels or increased storm activity will lead to people moving from the coast. An increase of people could come into the City which would drive up housing costs, reduce the availability of jobs, and tax resources.

Describe the vulnerability to these risks of housing occupied by low- and moderate-income households based on an analysis of data, findings, and methods.

Low- and moderate-income residents are at particular risk due to having less available resources to combat the impacts of natural disasters. A dramatic rise in electricity or housing costs could put them at imminent risk of homelessness or living in substandard conditions. Residents in rural communities will have less access to public support in case of emergencies and will have fewer resources to repair or prevent damage to their homes. 

The City of Tulsa strives to inform and prepare the general public for multi-hazard mitigation. There are online venues (including city website and Tulsa Area Emergency Management Agency Facebook page) that disseminate numerous informational guidebooks, videos, and emergency resources to build disaster resiliency in the community. 

Tulsa has several public and private organizations that work to address any issues that come from natural disasters. The following organizations help with disaster mitigation and management in various ways. Disaster risks associated with climate change are discussed in MA-20.

Tulsa Area Emergency Management Agency (TAEMA): County-led entity coordinates the preparation, response, recovery and mitigation of major emergencies and disasters. TAEMA also coordinates the public and private physical and human resources to respond to these events.

Oklahoma Voluntary Organizations Active in Disaster (VOAD): This association of organizations aims to mitigate the impact of disasters, promote cooperation, communication, coordination and collaboration; and find more effective delivery of services to communities affected by disaster. Partners include 21^st Century Santa, Adventist Community Services, American Red Cross, Billy Graham Evangelistic Association Rapid Response Team, Catholic Charities Archdiocese of OKC, Catholic Charities Diocese of Tulsa, Church World Service, Community Food Bank of Eastern OK, Convoy of Hope, Disaster Resilience Network, Episcopal Diocese of OK, Feed the Children, Federal Emergency Management Agency, Four Square Disaster Relief, Goodwill Industries of Central OK, Habitat for Humanity of Central OK, Habitat for Humanity International, Heartline 2-1-1, Infant Crisis Services, International Orthodox Christian Charities, Local Area Resilience Cooperative of Central OK, Legal Aid Services of OK, Mental Health Association of OK, Mercy Chef's Emergency Food Service, Minuteman Disaster Response, OK AmeriCorps, OK Conference of Churches, OK Emergency Management, OK Department of Mental Health & Substance Abuse Services, OK Durable Medical Equipment Reuse Program, OK Emergency Response Team, OK Indian Legal Services, Mennonite Disaster Service, Southern Baptist Convention Disaster Relief, OK State Department of Health, OK United Methodist Church Disaster Response, Operation BBQ Relief, Regional Food Bank of OK, Recovering Oklahomans After Disaster, Society of St Vincent de Paul Disaster Services, Stress Response Team, The Church of Jesus Christ of Latter-Day Saints, The Salvation Army and TrustUnited Way of Central OK.

SP-05 Overview

Strategic Plan Overview

The attached map shows the distribution of low and moderate income census tracts, the breadth of service delivery needed to meet the needs of Tulsa’s most vulnerable residents. After consulting with the public, subrecipients, stakeholders and other local entities and organizations, it was clear that the rising cost of housing is a significant concern following by the ability to meet basic needs.  The goals in this Plan have been developed to meet those specific needs. The City’s goals for the 2025-2029 Consolidated Plan follow:

1. Acquisition and New Construction of Affordable Housing
2. Housing Rehabilitation
3. Rental Housing Subsidies
4. Homelessness Services
5. Housing and Services for People with HIV/AIDS
6. Services for Special Populations
7. Services for Low Income Populations
8. Public Infrastructure and Facilities
9. Clearance and Demolition
10. Small Business Loans
11. Employment Opportunities

SP-10 Geographic Priorities – 91.215 (a)(1)

Geographic Area

The City is not establishing Geographic Priorities.

Table 48 - Geographic Priority Areas

General Allocation Priorities

SP-25 Priority Needs - 91.215(a)(2)

Priority Needs

Table 49 – Priority Needs Summary