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

1. Introduction

The City of Tulsa is pleased to submit its 2026 - 2027 Annual Action Plan. This is the second year of the 2025 - 2029 Consolidated Plan. The Consolidated Plan is carried out through Annual Action Plans, which provide a concise summary of 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. Summarize the objectives and outcomes identified in the Plan 

The primary objective of the Annual Action 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 Annual Action Plan process identified the same overarching needs within the community as identified in the Consolidated Plan. The following nine priority needs adopted 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

The City of Tulsa continues to improve its processes and delivery of services to address the housing, community development, and economic development objectives that were identified in the 2025 - 2029 Consolidated Plan. We are currently in the second year of the plan which will end on June 30, 2027. Complete and detailed year-end reports have been written, summarizing the results of activities that have taken place during each year of the previous Consolidated Plan period, 2020 - 2024. 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 Partnerships Program (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 final year of the City’s 2020 - 2024 Consolidated Plan, the City expended approximately $7.7 million and has: 

• Served 10,479 people through public service activities
• Provided HOPWA services including STRMU, TBRA and Permanent Housing Placement to 137 persons with AIDS
• Assisted 27 persons with Homeless Prevention activities
• Provided emergency shelter to 855 people
• Assisted 358 persons with Street Outreach activities
• Created or retained 58 FTE jobs
• Rehabilitated 122 homeowner homes
• Assisted 31 first time homebuyers
• Rehabilitated 2 public facilities that will serve 2,836 low- and moderate-income citizens Demolished 18 substandard structures

4. Summary of Citizen Participation Process and Consultation Process

The goals of the City's citizen participation process relate 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;  
• To ensure that all citizens and organizations have an opportunity to participate in the evaluation of funded activities. 

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

• Needs Assessment Public Hearing – July 10, 2025
• The U.S. Department of Housing and Urban Development (HUD) Community Development Committee meeting to set Priority Needs and Goals – July 10, 2025
• HUD Community Development Committee (CDC) meetings for recommendation of awards (Appendix A) – January 29, 2026, and February 3, 2026

5. Summary of public comments

During the Needs Assessment Public Hearing, five speakers presented information to the HUD Community Development Committee. The expressed needs were as follows: 

• Designated housing and supportive services for Tulsa's most vulnerable populations including seniors and those with disabilities, especially those with developmental disabilities.
• Prioritization of support for people fleeing domestic violence. Oklahoma still ranks 2nd in the nation for domestic violence rates, with Tulsa County ranking first in Oklahoma. Domestic violence is commonly linked to homelessness, with many victims experiencing unsheltered homelessness at some point in their life.
• Legal services for individuals at risk of experiencing homelessness due to eviction, with eviction filings decreasing since 2019 since eviction court, as well as other services, were put in place.
• Small Business Revolving Loan Fund for small businesses and entrepreneurs who are located in Tulsa's under-resourced areas.
• Mental health and behavioral support for children to improve academics and lead to gainful employment.

The HUD Committee, during regular meetings held on January 29th and February 3rd, 2026, made recommendations for funding.   

The public hearing on the draft 2026 - 2027 Annual Action Plan will be held on March 12, 2026. Comments provided at the Public Hearing will be considered in the development of the final plan. 

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

No comments were disregarded during the comment period. 

7. Summary

The City of Tulsa looks forward to meeting the community's underserved needs and improving the quality of life of principally low- and moderate-income Tulsans. The second year of the 2025 - 2029 Consolidated Plan will see 16 external agencies and 2 City departments conducting 30 activities totaling $5,770,183 in grant funding, which does not include administration costs. 

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

1. Agency/entity responsible for preparing/administering the Consolidated Plan

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

Table 1 – Responsible Agencies

Narrative (optional)

Consolidated Plan Public Contact Information

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 Partnerships 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 

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. The entities that have provided input and insight into the 2026 - 2027 Annual Action Plan are listed in the following section. 

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(l))

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 
• Utilizing web-based communication tools to solicit input from citizens 
• Working with local service providers, Indian Nations Council of Governments (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 nonprofit organizations, including the City's Continuum of Care 
• Conducting meetings with HUD funded grantees 
• Meeting with funded agencies to discuss their programs, successes and challenges 
• 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 summarizes 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 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.

For more information about Path to Home, including an updated list of accomplishments and progress being made on the 33 recommendations, visit: cityoftulsa.org/pathtohome.

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 homelessness, 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 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 a minimum of 3% of the ESG funds each year to assist the HMIS lead in meeting the regulatory requirements of the 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 for and evaluate outcomes of projects and activities assisted by ESG funds, and develop funding, policies and procedures for the operation and 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, 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 jurisdiction’s 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 

Narrative (optional): 

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.  

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 are the guiding documents that facilitate the process for the determination of needs, priorities, and allocation of HUD funds.  The HUD CDC receives citizen input and makes funding recommendations (Appendix A). 

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 2026-2027 Annual Action Plan were determined through analysis of information gathered from a variety of sources and projections of anticipated goals for the First-Year Annual Action Plan. The priority needs were presented to the HUD CDC and approved along with the second-year goals on July 10, 2025, which were then presented to the Mayor and City Council for approval. The priority needs and goals were accepted by the Mayor and City Council on July 16, 2025, and included in the 2026 Request for Proposals released by Grants Administration on September 2, 2025. 

Citizen Participation Outreach

Table 4– Citizen Participation Outreach

AP-15 Expected Resources – 91.220(c)(1,2)

Introduction
Currently, the City of Tulsa receives CDBG, HOME, HOPWA, and ESG funding.  These funding sources are expected to be available over the second year of the five-year Consolidated Plan timeframe. In PY26, the City is anticipating an allocation of $3,892,316.50 in CDBG funds, $1,646,864.73 in HOME funds, $838,177 in HOPWA funds, and $305,652 in ESG funds.  It is anticipated that funding levels will be similar over the 5 years of this Consolidated Plan. These anticipated amounts are noted in the chart below. As all funding sources are subject to annual Congressional appropriations, as well as potential changes in funding distribution formulas, these figures are subject to change. Any increases or decreases in program funding will be made proportionately across the Strategic Goals.  

Anticipated Resources

Table - Expected Resources – Priority Table

Explain how federal funds will leverage those additional resources (private, state and local funds), including a description of how matching requirements will be satisfied
The federal, state, and local resources available to address the needs identified in the plan include federal formula grant funds under CDBG, ESG, HOME, and HOPWA.  The local Continuum of Care (CoC) also awards grant funds under the competitive McKinney-Vento Homeless Assistance Act.  These funds will be leveraged with the City's general funds, various state and county resources, local nonprofit resources, and private foundation grants.  

Public Services projects will concentrate efforts to address the needs of families, children, and youth in high-risk populations consistent with the identified priority needs.  Use of CDBG and ESG funds will leverage other nonprofit resources and private foundation funds to assist low-income households.  

Physical improvements will use a combination of public funds, CDBG funds, City general funds, and nonprofit and private foundation funds to enhance selected projects.  

HOME Match:  The sources of matching contributions for HOME funds will be from developers and subrecipients' nonfederal contributions, the City and its Community Housing Development Organization(s) (CHDOs). The City requires developers, subrecipients and CHDOs to match up to 25% of award. First re-use CHDO proceeds, as regulated by HOME, are used as leverage to fund HOME activities. Banked match is available if organizations are not able to generate the required match. The City has $14.7 million in available banked match as of June 30, 2025.   

Emergency Solutions Grant Match: The jurisdiction will fulfill the ESG requirement of a matching contribution equal to the grant program funds. Each organization is required to provide matching funds equal to the amount of funds awarded; this stipulation is included in the written agreement. The City of Tulsa will provide in-kind administrative funds, as necessary, to match administrative funds received. Documentation of match is required when subrecipients submit the monthly request for funds.  

If appropriate, describe publicly owned land or property located within the jurisdiction that may be used to address the needs identified in the plan
N/A

Discussion
The Expected Amount Available for the Remainder of Consolidated Plan is an estimate of the funds expected to be received during the last year of the Consolidated Plan. Estimates were calculated using the confirmed funding to be received during the first year of the Consolidated Plan plus expected program income. Funding amounts that were included in the draft plan for public comment were based on prior year funding.

Goals Summary Information

Table – Goals Summary

Goal Descriptions 

Estimate the number of extremely low-income, low-income, and moderate-income families to whom the jurisdiction will provide affordable housing as defined by HOME 91.215(b)  
Throughout the course of the PY26 Annual Action Plan, 463 families, individuals, or households will be assisted with affordable housing solutions. All funding streams will be utilized to achieve this goal.  

AP-35 Projects – 91.220(d)

Introduction
The City of Tulsa will provide activities that support one or more of the following projects during Program Year 2026.  

Projects  

Table 57 – Project Information  

Describe the reasons for allocation priorities and any obstacles to addressing underserved needs 
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. The priorities for the Second Year Annual Action Plan were determined at the Needs Assessment Public Hearing on July 10, 2025, and included in the Request for Proposals issued September 2, 2025. Agencies were asked to identify which priority their program most closely related. During the evaluation phase, all applications were screened to ensure the proposed project or activity met one of the priority needs. 

For PY26, bonus points were awarded to CDBG and HOME applications that demonstrated alignment with Housing and Homelessness Priorities developed by the Mayor's administration. These included proposed programs/projects that: (1) Preserved or increased the number of affordable housing units; (2) Reduced the number of problematic, unsafe, or unsanitary properties; or (3) Provided services or solutions to homelessness.  

Most agencies do not have necessary funds to provide all services needed by the clients and have stated in their applications that without HUD funds the project or program may not be able to fully serve the clients’ needs. 

AP-50 Geographic Distribution – 91.220(f)

Description of the geographic areas of the entitlement (including areas of low-income and minority concentration) where assistance will be directed.

The City is not establishing Geographic Priorities.

Introduction

The City will utilize CDBG, HOME, ESG and HOPWA funds to support the following affordable housing goals: 

Homelessness:

• ESG will fund rapid rehousing activities for 35 households.

Non-homeless households:

• CDBG will support the rehabilitation of 124 housing units. 
• HOME will support the construction of 9 new units, the rehabilitation of 10 housing units, TBRA will support 25 households, and Down Payment Assistance for 15 housing units.  
• ESG will support 110 households with homelessness prevention assistance. 
• Special-needs households:
• HOPWA will support 135 households/persons with TBRA and STRMU. 

Discussion

Tulsa CARES will utilize HOPWA funds to support 50 households with Tenant Based Rental Assistance (TBRA) and 65 persons Short Term Mortgage Rent Utility Assistance (STRMU). Rental assistance will be provided in the form of Homelessness Prevention to 110 persons with ESG funds managed by Restore Hope Ministry. 

The rehabilitation of owner-occupied units will be funded with both CDBG and HOME. CDBG funds will provide homeowners with up to $10,000 to carry out repairs to ensure safe and sanitary living conditions.  HOME funds will provide loans up to $45,000 for major repairs of owner-occupied housing. CDBG funds will support 124 housing units and HOME 10 housing units. 

HOME assistance will be provided to 15 low to moderate income households to purchase their first home. HOME assistance will also be awarded to Vintage Housing for the Construction of the Roma Berry Apartments, assisting 9 Low to Moderate income households.

Table 6 - One Year Goals for Affordable Housing by Support Requirement 

Table 7 - One Year Goals for Affordable Housing by Support Type 

Discussion 

The number for Special Needs is not duplicated in the other categories. Rental Assistance above includes mortgage assistance through HOPWA STRMU. Acquisition of Existing Units includes downpayment assistance to low-income homebuyers.   

Introduction 

The City will continue to support public housing projects during the Consolidated Plan. The City will help support Tulsa Housing Authority with CDBG funds toward infrastructure improvements specifically associated with the 2021 Choice Neighborhood Implementation Grant.   

Actions planned during the next year to address the needs to public housing 

Additionally, THA will receive the first-year commitment for the 2021 Choice Neighborhood Implementation Grant at Commanche Park Apartments in North Tulsa. The City has pledged $1.5 million over five years for this project. The allocation in PY26 is $309,771 to be used for infrastructure needs.   

Actions to encourage public housing residents to become more involved in management and participate in homeownership 

The Housing Authority of the City of Tulsa (THA) provides Resource Centers at its remaining public housing family community.  A computer lab is furnished on-site with updated systems and high-speed internet access which can be used for job searches and other related activities.  The resource centers are staffed by a Service Coordinator that provides intake, assessment, planning, coordination, and delivery of services that support economic development and self-sufficiency. The service coordinators identify barriers, such as transportation, childcare, and education. They offer programs that will enhance the resident’s quality of life and prepare them to enter the workforce, thereby breaking the cycle of poverty. The service coordinators also provide information to the residents to assist them with pursuing homeownership.  

Public housing residents are encouraged to enroll in the Family Self-Sufficiency (FSS) Program. This program provides community support and resources to assist families with becoming self-sufficient. The Family Self-Sufficiency Coordinator meets with the interested resident and if selected for the program, the participant establishes a set of goals such as employment or homeownership. Monthly meetings are held to assess progress and assist the participants with any barriers in reaching their stated goals. An incentive of the FSS is an escrow account; as the family's income increases, contributions are made to the escrow account on the family's behalf.  Once the family is determined "Self-Sufficient" by meeting their goals and moving out of public housing, the money in the escrow account is paid to the participant.  No conditions are imposed on the use of the money. The family is encouraged to pursue homeownership and information on Homebuyer Education Programs is provided to them.  

Residents of THA communities are actively involved in the planning and development of programs for their communities. Each community is encouraged to establish a Resident Association which meets monthly to discuss areas of concern as well as plan events and activities for their communities. Each association has a set of bylaws that outlines how the association will operate. Training involving job duties, parliamentarian procedures, communication, and financial bookkeeping is provided to all Resident Association officers.     

If the PHA is designated as troubled, describe the manner in which financial assistance will be provided or other assistance.  
The Housing Authority of the City of Tulsa is not designated as troubled.  

Discussion  
No further discussion. 

Introduction

The City of Tulsa collaborates with and engages a range of stakeholders dedicated to supporting a community-wide effort to end and prevent homelessness. City departments and leaders coordinate internal ongoing planning meetings and participate in external stakeholder meetings to ensure coordination of services and leveraging of resources. The city is an active participant in Continuum of Care (CoC) planning as a voting member on the CoC Leadership Council. CoC member organizations hold seats and participate in city led initiatives (e.g., committees, feedback sessions). The city uses ESG funding to provide vital services to those at-risk of homelessness through Homelessness Prevention activities and those experiencing literal homelessness through Emergency Shelter activities and Street Outreach. ESG funds are also used to support funding costs of the local HMIS database.   
Describe the jurisdictions one-year goals and actions for reducing and ending homelessness including

Reaching out to homeless persons (especially unsheltered persons) and assessing their individual needs

The continued refinement of the CoC's coordinated assessment and referral process will greatly facilitate the exchange of information necessary to provide the most expeditious and effective delivery of services to a homeless person or family presenting for the first time. Regular meetings of the A Way Home for Tulsa (AWH4T) Leadership Council are held to discuss issues and trends on which the homeless services provider community can focus and divert resources, as needed. A well-developed committee structure within the CoC membership ensures that problems are recognized and solved as they arise, that existing plans are followed and that full utilization of the services offered by its members is realized.

CoC governance structure is designed to include Federal, State, local and private entities serving individuals experiencing homelessness in the planning and coordination of services. The CoC lead agency, The Center for Housing Solutions, Inc. (“Housing Solutions”), facilitates multiple opportunities for coordination and planning with stakeholder groups directly and indirectly related to preventing and ending homelessness. CoC shelter and housing programs leverage community-based and entitlement services within the continuum to provide wrap-around services for individuals. The CoC is integrally involved with local VA efforts to eliminate Veteran Homelessness. The CoC and private philanthropic partnerships have leveraged public dollars to secure 1,000+ units to preserve affordable housing stock and increase supportive housing. Finally, the CoC is active in the Interagency Council on Homelessness of Oklahoma, or “ICHO”, and provides leadership in that group's attainment of its goals.

Addressing the emergency shelter and transitional housing needs of homeless persons

Providing readily available emergency shelter and basic needs to meet the immediate needs of those experiencing homelessness is a critical component of the community’s crisis response system. Nightly emergency shelter capacity exceeds 600 beds and includes specialized services for families, individuals and families fleeing domestic violence. Emergency shelter providers include Salvation Army, John 3:16 Mission, Tulsa County Social Services, Family Promise, Youth Services of Tulsa, Heroes Hope, Tulsa Day Center, Mental Health Association HCHV, and CREOKS Winter Shelter. Domestic Violence Intervention Services (DVIS) provides crisis shelter for victims of domestic violence and human trafficking. Youth Services of Tulsa (YST) operates a shelter for unaccompanied youth ages 12 through 17. Additionally, CREOKS Health Services opened an emergency winter shelter in November 2025 to additional capacity during the coldest months of the year. 2-1-1 Helpline provides 24/7 access to shelter information, and the shelter operators have policies in place to expedite referrals when capacity is exceeded at a facility. Community shelters act as the no-wrong-door entry points for funneling the homeless to those permanent housing programs that can most closely address the housing needs for those that are present. TDC, the Metal Health Association of Oklahoma, and YST operate drop-in centers to provide daytime shelter services with connection to service support. 

Stabilization of needs with connection to permanent housing is the long-term objective of shelter services. Average shelter stay is now 72 days per HUD FY 2025 data, and 78 for the "Adult Only" population. Transitional housing provides short-term, non-permanent housing options for individuals and families who may not yet have the ability to attain or sustain independent housing. Youth Services of Tulsa and Domestic Violence Intervention Services (DVIS) all offer transitional housing options within the CoC. Transitional housing has been proven to be most successful for youth aged 16 to 24 (YST) and for individuals fleeing domestic violence (DVIS).

Helping homeless persons (especially chronically homeless individuals and families, families with children, veterans and their families, and unaccompanied youth) make the transition to permanent housing and independent living, including shortening the period of time that individuals and families experience homelessness, facilitating access for homeless individuals and families to affordable housing units, and preventing individuals and families who were recently homeless from becoming homeless again.

As part of the CoC strategic plan implementation, the lead agency, Housing Solutions, will provide training open to all community providers for housing stability, fair housing, and other evidence-based interventions with the goal of increasing competency to support service delivery using best practices that empower the provider and the participant across the Tulsa CoC. The City of Tulsa is supporting permanent housing transitions and affordable housing access by providing a full-time Housing Policy Director and Housing Coordinator guided by Tulsa’s first Affordable Housing Strategy. As part of this strategy, a Housing Trust Fund is being established that will support developers to create or maintain the affordable housing stock to help individuals and families sustain housing while gaining self-sufficiency.

All CoC-funded programs utilize the Coordinated Entry System (CES) when assisting each individual or family and offer a “No Wrong Door” approach by utilizing a closed-loop referral system when individuals and families present at one of the multiple entry points. Once entered into the system, they are assessed to identify needs and are referred directly to a provider in the system unless that service does not exist. Once received, the next steps are determined. If the provider is unable to assist the referred individual/family, they are referred elsewhere, if possible. The members of the Continuum and local ESG-funded program subrecipients work together to identify which eligible persons could benefit the most from assistance with the highest priority given to relative levels of acuity and the lack of housing stability based on the common assessment.

As noted previously, the CoC aligns itself with best practices that diverts a community's focus from addressing the needs of people in emergency or transitional housing to assist people experiencing a housing crisis in quickly regaining stability through permanent housing. Preventing homelessness, reducing emergency shelter stays, and preventing recidivism are the intended outcomes of this approach.

Helping low-income individuals and families avoid becoming homeless, especially extremely low-income individuals and families and those who are: being discharged from publicly funded institutions and systems of care (such as health care facilities, mental health facilities, foster care and other youth facilities, and corrections programs and institutions); or, receiving assistance from public or private agencies that address housing, health, social services, employment, education, or youth needs.

The CoC created a 5-year strategic plan. As part of that process, a Discharge Planning subcommittee worked on creating strategies to support individuals being discharged from the criminal justice system, foster-care system, and the healthcare system. Community stakeholders that did not previously engage with the CoC provided feedback for real world solutions such as connecting individuals to resources prior to discharge and establishing a peer mentorship program to support long-term success. The 2019-2024 Strategic Plan was updated again in 2025 reflecting similar goals and updated objectives in an effort to continue making progress in these areas.

In addition, state statutes require that all publicly funded institutions, including inpatient mental health, corrections, health care, and the foster care system, have discharge planning in place. The Oklahoma Department of Human Services received a planning grant to retool the systems supporting youth aging out of foster care.

Discussion

The City of Tulsa and homelessness service providers, including Tulsa’s CoC, are committed to providing solutions and serving the needs of individuals experiencing homelessness. The Tulsa CoC lead agency, Housing Solutions, empowers the local homelessness system through the provision of free community-wide training aimed at supporting staff and leadership with the tools needed to serve the needs of our citizens. Trainings may include Housing-Focused Case Management, Motivational Interviewing, Trauma-Informed Care, and more.  

The Tulsa City and County Continuum of Care, in alignment with the Strategic Plan, expanded the CoC Written Standards with the creation of the local CoC Service Standards. The City of Tulsa adopted the CoC Service Standards to serve as the ESG Written Standards for the jurisdiction. In addition to the required elements of the ESG and CoC Written Standards, the Service Standards provides Tulsa’s homelessness service providers with a guide for delivering services across the continuum in a safe and comprehensive way.

Introduction:

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 summarizes the following:

• Housing is needed in Tulsa across the affordability spectrum
• There is no single solution or strategy that will make it possible to meet demand
• More than half of housing demand is for units at or below 100% average median income.
• 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 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.

For more information about Path to Home, including an updated list of accomplishments and progress being made on the 33 recommendations, visit cityoftulsa.org/pathtohome.

Actions it planned to remove or ameliorate the negative effects of public policies that serve as barriers to affordable housing such as land use controls, tax policies affecting land, zoning ordinances, building codes, fees and charges, growth limitations, and policies affecting the return on 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 that is free from environmental barriers. 

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. 

Discussion:
No further discussion.

Introduction:

The City will use CDBG, ESG, HOME and HOPWA funds to provide a variety of services within the City of Tulsa. The sections below address specific projects funded. A complete list of activities, by funding source, is included in Appendix A. 

Actions planned to address obstacles to meeting underserved needs 
For PY26, the City of Tulsa will provide funds to 16 external agencies and 2 City departments to conduct activities across this Annual Action Plan. By awarding a variety of agencies and multiple activities, the City is seeking to address obstacles to meeting the underserved needs of the community. 

The City of Tulsa plans to serve 9,561 people with CDBG Public Services, ESG, and HOPWA funds.  Broken down by funding source, CDBG Public Services will account for approximately 4,817 people, Emergency Solutions will account for 4,413 people, and HOPWA will serve 331 people.  

Public facility improvements will benefit 230 people and will meet the low- to moderate-income clientele national objective. The Tulsa Children’s Coalition will upgrade the HVAC at McClure ECEC by replacing worn equipment, this will assist 230 persons.

Additionally, in partnership with the Tulsa Housing Authority, the fourth year of the Choice Neighborhood Implementation for the Commanche Apartments located in the Pheonix District will continue. 

Through an economic development activity for small business loans, 35 jobs will be created, of which at least 51% will be for low to moderate income persons. CDBG funds are used to provide loans to businesses normally excluded from the economic mainstream.  

The City of Tulsa's Department of Planning and Neighborhoods (DPN) will use CDBG funds to conduct clearance and demolition activity in low to moderate-income census tracts within the City.  

Actions planned to foster and maintain affordable housing 
The City of Tulsa has awarded funding that will foster and maintain affordable housing.  One City department will conduct owner occupied housing rehabilitation projects for 134 homeowners.

HOME assistance will be provided to 15 low- to moderate-income households to purchase their first home. 

Actions planned to reduce lead-based paint hazards 
The City of Tulsa ensures that inspections for lead-based paint (LBP) hazards will occur, as required, for all funded housing activities.  Proper notifications will be provided regarding lead-based paint hazards.  All housing units constructed prior to 1978 will be tested for LBP by a certified LBP inspector or Risk Assessor. If LBP is detected, all covered renovations will follow HUDs Lead Safe Housing Rules and be performed by certified firms using certified renovators and other trained workers. 

Actions planned to reduce the number of poverty-level families 
The City identified priorities that will encompass services that assist in breaking the cycle of poverty. Of the proposals received, 29 were chosen for funding and will meet the following needs to reduce the number of poverty level-families: 

• Education programs for children and youth including early childhood education, after school programs, and transitional living programs for homeless youth 
• Mentoring, life skills, education, job training, and placement services for unemployed, underemployed, and those recently released from prison 
• Crisis services for children, adults, and special populations 
• Services to seniors, homeless individuals, and families  

Actions planned to develop institutional structure  
During Program Year 2026, the City of Tulsa plans to continue providing training and technical assistance for all grant recipients to ensure the jurisdiction has a strong delivery system. Grant-specific roundtable sessions will be scheduled as needed; these have proven invaluable in the past by keeping an open dialogue with agencies regarding project activities, best practices, and compliance requirements.  

Actions planned to enhance coordination between public and private housing and social service agencies 
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. 

Discussion:  

No further discussion.

Introduction:

Community Development Block Grant Program (CDBG)
Reference 24 CFR 91.220(l)(1)

Projects planned with all CDBG funds expected to be available during the year are identified in the Projects Table. The following identifies program income that is available for use that is included in projects to be carried out.

Other CDBG Requirements

HOME Investment Partnership Program (HOME)
Reference 24 CFR 91.220(l)(2)

1. A description of other forms of investment being used beyond those identified in Section 92.205 is as follows:
The City of Tulsa does not use any form of assistance that is not described in Section 92.205(b). 

2. A description of the guidelines that will be used for resale or recapture of HOME funds when used for homebuyer activities as required in 92.254, is as follows:
The City of Tulsa homeownership program activity uses the recapture provisions of 24 CFR 92.254(a)(4)(ii). It is believed this process is the closest to normal market approaches to financing, the easiest for borrowers to understand, enables the deed restriction requirements of the alternative option to be avoided (which we believe constitutes a barrier to private financing participation), and better enables HOME funds to be marketed in coordination with other private lending. An ongoing homeownership assistance activity has been the City's goal and is in keeping with the basic HOME program descriptions. 

A purchaser of a property may apply for and be provided with HOME assistance subject to the property and said buyer meeting HOME program eligibility criteria, a written agreement to comply with program terms and conditions, and the availability of funds. Mortgages include the "principal residence" requirement of the program during the affordability period, failure of which will constitute a default of the second mortgage.

The recapture option is a mechanism to recapture all or a portion of the direct HOME subsidy if the HOME recipient decides to sell the house within the affordability period at whatever price the market will bear. Forgiveness will be tied to the length of time the homebuyer has occupied the home in relation to the period of affordability and the net proceeds of the sale. The affordability period is based on the amount of HOME funds provided for the property and is forgiven as designated in the GRANTS ADMINISTRATION HOME policies and procedures. Calculations for the recapture include the HOME Investment, the Homebuyer Investment, and the Net Proceeds. These are defined as:

1. HOME Investment is all HOME funds contributed to the unit and any direct subsidies consisting of any financial assistance that reduces the purchase price from fair market value to an affordable price, or otherwise subsidizes the purchase; 
2. Homebuyer Investment consists of the portion of initial down payment paid by the homebuyer combined with the value of any capital improvements made with the homebuyer funds; and
3. Net Proceeds are the sales price minus closing costs and any non-HOME loan repayments. To allow low-income homebuyers to retain some net value in their property should they need to sell, the City of Tulsa recaptures HOME funds using the following steps: 

a) Reduction during affordability period. The HOME investment amount to be recaptured will be reduced on a prorated basis for the time the homeowner has owned and occupied the housing measured against the required affordability period;

b) Owner investment returned first. From the net proceeds of the sale, the homebuyer may recover their entire investment before the HOME investment is recaptured; and 

c) Shared Net Proceeds. If the net proceeds are not sufficient to recapture the full HOME investment (or a reduced amount according to the time the homeowner occupied the home), plus enable the homeowner to recover the amount of their down payment and any capital improvement investment made since purchase, the net proceeds will be divided proportionally. The formula used will be HOME Investment multiplied by Net Proceeds divided by HOME Investment plus Homeowner Investment equals HOME Recapture. 

3. A description of the guidelines for resale or recapture that ensures the affordability of units acquired with HOME funds. See 24 CFR 92.254(a)(4) are as follows:
The administration of homebuyer programs includes thoroughly informing each potential homebuyer of all the requirements under the HOME Program. This will ensure they understand what is required through the affordability period and the recapture provisions if they sell the property prior to the expiration of the affordability period. This information is included in the Homebuyer Written Agreement and explained verbally by a housing counselor. In addition, a second mortgage is executed at closing and is not released until after the affordability period has expired. Provisions in these documents include the following criteria, which are verified annually until the end of the affordability period: 

1. Principle Residence 
2. Current on Mortgage, Taxes, and Insurance 
3. Upkeep of Property (no code violations from the City of Tulsa) 
4. All organizations that administer the program for the City are required to keep an inventory of all properties that remain under the affordability period. This information is submitted to Grants Administration at the end of each program year. 

4. Plans for using HOME funds to refinance existing debt secured by multifamily housing that is rehabilitated with HOME funds along with a description of the refinancing guidelines required that will be used under 24 CFR 92.206(b), are as follows:
The City of Tulsa does not use HOME funds to refinance existing debt. 

5. If applicable to a planned HOME TBRA activity, a description of the preference for persons with special needs or disabilities. (See 24 CFR 92.209(c)(2)(i) and CFR 91.220(l)(2)(vii)).
The PY26 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.

6. If applicable to a planned HOME TBRA activity, a description of how the preference for a specific category of individuals with disabilities (e.g. persons with HIV/AIDS or chronic mental illness) will narrow the gap in benefits and the preference is needed to narrow the gap in benefits and services received by such persons. (See 24 CFR 92.209(c)(2)(ii) and 91.220(l)(2)(vii)).
N/A

7. If applicable, a description of any preference or limitation for rental housing projects. (See 24 CFR 92.253(d)(3) and CFR 91.220(l)(2)(vii)). Note: Preferences cannot be administered in a manner that limits the opportunities of persons on any basis prohibited by the laws listed under 24 CFR 5.105(a).
N/A

Emergency Solutions Grant (ESG)
Reference 91.220(l)(4)

1. Include written standards for providing ESG assistance (may include as attachment)

In accordance with 24 CFR 576.400(d) the City of Tulsa has adopted written standards for the provision of ESG assistance in collaboration with the Tulsa Continuum of Care (CoC). These written standards are included in Appendix E. 

2. If the Continuum of Care has established centralized or coordinated assessment system that meets HUD requirements, describe that centralized or coordinated assessment system.  
Tulsa’s Continuum of Care’s coordinated entry system is All Doors Open. This system is designed to provide each individual, or family, with adequate services and support to meet their housing needs, with a focus on returning them to housing as quickly as possible. The components of All Doors Open are listed below: 

1. Access and Screening 
2. Assessment 
3. Prioritization and By-Name List(s) 
4. Case Conferencing 
5. Referral 
6. Placement 

The system operates with a decentralized “no-wrong-door” system of access, so that persons in need can enter the system at multiple participating agencies in different geographic locations. The system has also added the inclusion of diversion and rapid exit as a "front door" approach to help curb system inflow. All Doors Open strives to serve all residents in need and continuously seeks partnerships with public service institutions (health departments, county clinics, human services), faith-based organizations, other institutions (hospitals and jails), and mainstream resources to serve as access points. 

At various provider access points, individuals and families experiencing a housing crisis complete a screening tool that considers the individual or family’s need for specialized services and the ability to prevent or divert the individual or family from experiencing homelessness. Should homelessness not be avoidable, a standardized common assessment tool is used to determine the individual or family’s vulnerability. The common assessment tool is integrated into the Homeless Management Information System (HMIS) and may be conducted at partner agencies including shelters, drop-in centers, transitional housing programs, outreach programs, telephonically, or wherever people who are experiencing homelessness first enter Tulsa’s coordinated entry system. 

Housing programs, including permanent supportive housing, rapid re-housing, transitional housing, and safe-haven housing fill available spaces in their programs from a By-Name-List of eligible individuals and families generated from HMIS. To ensure the most vulnerable are housed first, the By-Name-List is prioritized based on common assessment scores and length of time homeless. This coordination improves the targeting of housing resources and reduces the need for people to separately seek assistance at various partner providers. 

The HMIS system is fully compliant with HUD's requirement for victim services and does not include domestic abuse service providers.  

3. Identify the process for making sub-awards and describe how the ESG allocation available to private nonprofit organizations (including community and faith-based organizations).  
 The HUD grant selections are made through a joint process adopted by the Tulsa City Council and Mayor in which applications are accepted from nonprofit agencies serving within the corporate limits of the City of Tulsa. Through public meetings and surveys, the HUD Community Development Committee determines the needs of the community, sets the funding priorities, and reviews the community development plan. The Continuum of Care and/or member agencies present homeless needs at the Needs Assessment Public Hearing.  Applications are created based on the priority needs determined by the committee and grant guidelines. Upon review of the applications, the HUD Community Development Committee submits funding recommendations to the Mayor and City Council for approval. A member of the Continuum of Care is appointed by the Mayor to serve on the HUD Community Development Committee for the award of ESG funds as well as the other HUD funds.  

4. If the jurisdiction is unable to meet the homeless participation requirement in 24 CFR 576.405(a), the jurisdiction must specify its plan for reaching out to and consulting with homeless or formerly homeless individuals in considering policies and funding decisions regarding facilities and services funded under ESG.  

As part of the written agreement, subrecipients are required to provide for the participation of a homeless individual or formerly homeless individual in a policy-making function within the organization. This may include involvement of a homeless or formerly homeless person on the Board of Directors or similar entity that considers and sets policy or makes decisions for the organization. 

5. Describe performance standards for evaluating ESG.   
 The City of Tulsa contractually holds subrecipients responsible for meeting the accomplishments established for each grant activity in a written agreement. Each agency is also required to report program outcomes and participant demographics into HMIS and submit quarterly reports to the City. The City works closely with subrecipients and the CoC to develop program and service outcome benchmarks. The A Way Home For Tulsa (AWH4T) Service Standards are used as a guideline for ensuring the success and effectiveness of all homeless programs including ESG. These standards are included in Appendix E. The 4 goals included in the standards are the following: 

1. Stop Homelessness Before It Begins 
2. Transform the Homeless System of Care to Be More Effective, Equitable, and Person-Centered 
3. Increase Access to Housing 
4. Partner Across Tulsa to Build Solutions and Access Resource