U.S. Department of Housing and Urban Development
Office of Community Planning and Development

CITIZEN'S SUMMARY

Lawton is the county seat of Comanche County, Oklahoma. The city was founded in 1901 and is located just south of the Fort Sill Military Reservation, on Oklahoma's southwestern prairies. Lawton has a population of 80,000 and is the third largest city in the State.

Action Plan

In its Consolidated Plan, Lawton describes its housing and community development needs and priorities and a 5-year strategy for addressing these needs. For the first year of the plan, Lawton is allocating $1.2 million in Community Development Block Grant (CDBG) funds and $453,000 in HOME Investment Partnership Program (HOME) funds. This money will be used to finance 24 housing, community development, and service activities planned for Fiscal Year 1995.

Citizen Participation

Lawton has adopted the "Oklahoma Certified Cities" program. This citizen participation plan encourages lower income citizens to be involved by serving on committees that identify housing and community development needs and propose use of funds to meet those needs. Two public hearings advertised in local papers were held to obtain the views of citizens, public agencies, and other interested groups. Additionally, three public meetings held in low and moderate-income areas provided opportunities for citizen input into the planning process.

A draft plan was the subject of a public hearing on April 11, 1995. This was followed by a 30-day public comment period that ended on May 14, 1995. The final Consolidated Plan was submitted to the U.S. Department of Housing and Urban Development (HUD) on May 15.

COMMUNITY PROFILE

Lawton is the regional commercial, medical, recreational, and educational center of southwest Oklahoma in a predominantly rural and farming area. Lawton is the retail and distribution center of the area's cattle, dairy, and agricultural industries. There also are manufacturing and processing companies in Lawton.

Major employers in the Lawton metropolitan statistical area include the U.S. Army's Fort Sill, Goodyear Tire and Rubber, Comanche County Memorial Hospital, the City of Lawton, Lawton Public Schools, Cameron University, Southwestern Medical Center, and Telos, a defense firm.

The Fort Sill Field Artillery Center and School is the area's largest employer. Also on Fort Sill, the Center for Environmental Initiatives provides environmental training for students from many nations. A civil service hiring freeze and reductions in force over the past few years have reduced the number of military personnel and local civilian workers on the base. With a troop strength of about 18,830 soldiers and 7,500 civilian employees, the base generates a combined annual payroll of more than $200 million.

Median family income (MFI) for a family of four in Lawton, according to the 1990 census, was $30,800. Of the households in the city, 47 percent had annual incomes of 80 percent or less of MFI. Analysis of census data indicates the following levels of low- and moderate-income households:

Very low-income (0-50 percent of MFI) -- 30 percent.
Low-income (51-80 percent of MFI) -- 17 percent.
Moderate-income (81-95 percent of MFI) -- 8 percent.

According to the 1990 census, Lawton's population was 80,561, a slight increase from 80,054 in 1980. The major change in the population, however, is not in the total number but in the ethnic makeup. The number of whites decreased 5 percent, while the African-American population increased 22 percent during the 1980s. Most of the change is attributed to shifts in the composition of the military population over the past two decades. There has also been an increase in the number of Asian Americans and Pacific Islanders in the community, as a result of immigration from Vietnam and Cambodia during the 1970s and 1980s.

Racial or ethnic subpopulations include:

White (non-Hispanic) -- 57,019 (69 percent).
African American (non-Hispanic) -- 15,575 (19 percent).
Hispanic (any race) -- 5,104 (6 percent).
Asian American or Pacific Islander -- 2,621 (3 percent).
Native American -- 2,621 (3 percent).

HOUSING AND COMMUNITY
DEVELOPMENT NEEDS

Conditions

Lawton has enough housing for its residents without new construction. However, relatively high home prices combined with low wages in the community place homeownership beyond the reach of many residents. Rental housing, available for some of the lowest rents in the Nation, is among the highest in the State. As a result, rental housing remains unaffordable for thousands of city families without excess cost burdens.

Housing Needs

Section 8 rental assistance currently is inadequate to meet community needs and no additional certificates or vouchers are likely to become available from the Section 8 rental assistance program. Yet extremely cost-burdened renters who pay more than 50 percent of income for housing, very low- and low-income renters, and renters living in overcrowded or substandard housing still need rental assistance.

There is also a need to help low-income homeowners rehabilitate, repair, or paint their homes to prevent further deterioration. The need for emergency repair assistance, particularly for senior citizens, has increased markedly during the past three years.

Housing Market Conditions

In 1990 Lawton's housing stock consisted of 34,622 year-round units. Of these, 29,566 were occupied, 12,452 by renters and 17,114 by owners. Of the 5,056 vacant units, 2,894 were for rent and 767 were for sale.

An estimated 10 percent of Lawton's rental units are considered substandard: failing to meet HUD Section 8 Housing Quality Standards and needing more than minor repair or cosmetic repairs. About 15 percent of owner-occupied units are also considered substandard.

The median cost of residential housing in Lawton increased significantly between 1970 and 1990. In 1990 the median cost of a house, including new and previously owned houses, reached $54,500. While well below the national level of $79,100, the cost of housing in Lawton is considerably higher than Oklahoma's median cost of $48,100. Housing prices have continued to increase since 1990. The Lawton Board of Realtors estimates that the average housing price at the end of 1994 was $70,033, up approximately 22 percent from the average of $57,339 at the end of 1991.

The median rent of $299 in Lawton is the second highest in the State, but among the lowest in the country. The rent in Lawton, while still below the national median of $374 per month, is well above the State's median rent of $259 per month.

The 1990s have produced low but steady inflation. Housing prices have increased at rates above the rate of inflation, while wages have remained stagnant and real incomes have fallen. These trends are expected to continue for the next 5 years, suggesting that low-income households will have even more problems meeting housing costs in the future.

Affordable Housing Needs

Housing affordability is defined as housing expense of less than 30 percent of a household's gross income. Housing expenses higher than 30 percent indicate that a household is cost-burdened. Using that standard, there is a shortage of housing in Lawton that is affordable to lower income households. Only 2,183 units are affordable to the 5,860 extremely low-income households (earning 0-30 percent of MFI). For the 5,185 very low-income households (earning 31-50 percent of MFI), only 3,331 units are affordable. This means a shortage of 5,540 affordable units for Lawton's lowest income residents.

In contrast, there are 10,459 housing units affordable to the 2,336 moderate-income households.

Homeless Needs

A 1990 one-night enumeration of the homeless counted 69 homeless persons in Comanche County, all of them in Lawton shelters. This number included 56 adults and children in emergency shelters; 9 children in shelters for runaway, neglected, or homeless children; and 4 adult women in a shelter for abused women.

Two local homeless service providers (the C. Carter Crane Shelter and the Taliaferro Community Health Center) served 2,110 homeless persons. This figure included: 940 persons in 298 families with children, 340 youth (age 17 or younger), and 830 adults who are not in families. Of these, 100 families with 340 members remained unsheltered, as did about 100 youth and 200 individual adults. The rest were served by other emergency shelters or transitional housing.

Subpopulations of the homeless with special needs were estimated as follows:

211 (10 percent) -- Severe mental illness only.
422 (20 percent) -- Alcohol/other drug abuse only.
422 (20 percent) -- Severe mental illness and alcohol/other drug abuse.
21 (1 percent) -- Domestic violence.
21 (1 percent) -- HIV/AIDS.

Public and Assisted Housing Needs

The Lawton Housing Authority owns 319 public housing units. There are 150 elderly units and 150 general purpose units in three communities. In addition, the agency manages 19 single-family units. Two of the 319 units are used as community police substations.

The Oklahoma Housing Finance Agency (OHFA) administers the Federal Section 8 rental assistance program for Lawton and Comanche County. OHFA reports that there are 502 units of housing supported in whole or in part by Section 8 housing assistance. Lacking the funds to provide housing assistance for all eligible families, OHFA maintains a waiting list that currently consists of 733 households.

Barriers to Affordable Housing

An important barrier to the provision of affordable housing for low-income households in Lawton is the restriction on expansion of the number of units managed by the Lawton Housing Authority. In 1974 opponents to the establishment of two public housing communities in east and west Lawton conducted a successful petition drive to prevent the development of the communities and any future expansion of public housing. The petition drive resulted in the passage of a referendum to freeze the housing agency at its existing size. Since passage of the referendum, the community has had no Federal funding for the construction of new public housing.

The biggest obstacle to homeownership in Lawton, however, is the high cost of housing relative to the incomes in the area. Economic development and affordable housing programs in Lawton are essential to address these two most important long-term needs in the community.

Fair Housing

There currently is no indication of serious fair housing problems. Fair housing is monitored by the Lawton Board of Realtors for the benefit of the citizens of Lawton and the local real estate industry. The board monitors and evaluates housing issues related to both real estate sales and rental market activities.

Lead-Based Paint

While it is recognized that the average age of Lawton's housing could be an indicator of lead-based paint, there has been no evidence for substantial concern. Lawton's Housing and Community Development and Building Development Departments have agreed to establish a study group to assess the impact of lead-based paint in the community.

Other Issues

There are also housing and supportive needs for the elderly, mentally disabled, mentally ill, physically disabled, substance abusers, and victims of domestic violence. In general, the needs of each group are for affordable and accessible housing, differing somewhat in the mix of appropriate supportive services.

There is limited housing available in Lawton to meet the needs of frail elderly persons and persons with disabilities. Goodwill, Inc., maintains a waiting list of about 40 persons for such housing and updates and confirms the list semiannually. For confirmed and eligible applicants, the wait for housing is currently about 15 months.

No housing has been set aside specifically for persons with HIV/AIDS and their families. However, two new advocacy organizations for persons with HIV/AIDS are becoming established in the community, with plans to provide caseworker assistance and housing assistance to persons and families with HIV/AIDS.

Community Development Needs

Nonhousing community development needs in Lawton include:

Public facilities. Neighborhood multipurpose community centers and youth centers, replacement of playground equipment and improvements to parks and recreation facilities, and construction of public libraries.

Infrastructure. A new solid waste disposal site, flood drain improvements, ongoing maintenance and replacement of water lines and modifications to water treatment plants, street and sidewalk improvements, bike and pedestrian trails, and rehabilitation of sanitary sewer lines.

Public services. Improved youth services, substance abuse and health services, employment training and child-care services, crime awareness and community policing programs, and tenant-landlord counseling.

Economic development. Rehabilitation of commercial strips, completion of an analysis of Lawton's industrial infrastructure, and encouragement and support of microbusiness enterprises.

HOUSING AND COMMUNITY DEVELOPMENT STRATEGY

Vision for Change

Lawton's overall goal is to develop and sustain a viable community and a suitable living environment by expanding economic opportunities for all citizens. Related goals are to promote a quality of life based on harmony and cooperation and to provide leadership and opportunity for southwest Oklahoma.

Housing and Community Development Objectives and Priorities

Program development includes the following objectives:

Short-term. Complete the Oklahoma Certified Cities analysis of problems, opportunities, and issues; and update priorities. Complete the current community needs assessment, to update the 1988 needs assessment and the 1991 housing survey. Incorporate the completed Certified Cities analysis and the 1995 community needs assessment into a second-year update of the Consolidated Plan.

Midterm. Improve the viability of low- and moderate-income neighborhoods. Improve the capacity of the Great Plains Improvement Foundation, Inc., a community housing development organization, to develop affordable housing in Lawton. Link housing and supportive services to create a continuum of care for low-income and homeless families, to help them move from dependency to self-sufficiency.

Long-term. In collaboration with the Certified Cities Program, enhance development and diversification of Lawton's economic base. Increase the quantity and quality of affordable housing.

Housing Priorities

Priorities for housing include CDBG- and HOME-funded housing rehabilitation programs for lower income homeowners, assistance for low- and moderate-income first-time homebuyers with closing and downpayment costs, and provision of local tenant-based rental assistance in lieu of additional Federal Section 8 assistance.

Nonhousing Community Development Priorities

Nonhousing community development priorities for Lawton include:

Economic opportunity. The first priority in revitalizing distressed neighborhoods is to create economic opportunities for all residents.

Sustainable community development. Creation of jobs is the crucial first step. However, economic development can only be successful as a comprehensive strategy that includes physical development and human development. Neighborhoods where learning is a commitment for life can foster the skills, habits of mind, and attitudes that make work rewarding and families more nurturing.

Community-based partnerships. The road to economic opportunity and neighborhood development starts with broad participation by all segments of the neighborhood. This may include the political and governmental leadership, community groups, health and social service providers, environmental organizations, business and nonprofit entities, centers of learning, and other community organizations.

A shared strategic vision for change. A vision for change describes what residents want their community to become, a strategic map for revitalization.

Antipoverty Strategy

To address the needs of families or individuals living below the poverty level, Lawton's Housing and Community Development Department, in collaboration with local service providers, will integrate social services and housing activities for these residents. Additionally, the Certified Cities process is expected to provide the impetus for enhancing economic development and growth in the community to expand economic opportunities for all citizens.

Housing and Community Development Resources

The resources to carry out the 5-year plan include CDBG and HOME funds and assistance from a variety of Federal, State, and other sources. Lawton has identified a list of public, private, and nonprofit organizations that contribute the necessary strength to implement the Consolidated Plan.

Coordination of Strategic Plan

Community development is a dynamic ongoing process. Leadership is the critical link in the chain of success. The elected officials of Lawton, because of their responsibilities under the CDBG and HOME programs, must be proactive leaders in coordinating the activities of the involved institutions.

There is no one institution capable of solving the housing and community development problems facing the Lawton community. Rather, public- and private-sector groups and entities must act in concert to bring resources to bear on the problems of housing and community development. Institutions involved include: the city, the Chamber of Commerce, Cameron University, the Great Plains Area VoTech School, the Lawton Public Housing Authority, the Oklahoma Department of Human Services, the Lawton Urban Renewal Authority, the Great Plains Improvement Foundation, the Association of South Central Oklahoma Governments, Goodwill Industries, and the Comanche County Commissioners.

ONE-YEAR ACTION PLAN

Description of Key Projects

For the program year 1995-1996, Lawton plans to use $1.7 million in CDBG, HOME, and program income funds for 24 activities to address specific housing, community development, and human services needs.

Housing allocations include $354,223 from CDBG funds and $407,700 from HOME funds. Funded activities include:

$296,050 (CDBG) for low-interest housing rehabilitation loans for lower income homeowners.

$50,000 (CDBG) for emergency home repairs (sewers, electricity, gas, or heating system problems) for low- and moderate-income homes.

$7,500 (CDBG) for Home Improvement Program assistance to lower income persons unable to paint their homes.

$200,000 (HOME) for homeownership assistance to help low- and moderate-income households buy a home and to increase the number of affordable housing units in the community.

$139,750 (HOME) for low-interest rehabilitation loans for lower income homeowners.

$67,950 (HOME) to increase the Great Plains Improvement Foundation's ability to serve as a community housing development organization.

While the need for tenant-based rental assistance remains high, the initial funding was cut by the City Council and funds for the housing rehabilitation program were increased because the rehabilitation program has been a demonstrated success. Community development allocations include:

$37,500 for neighborhood community centers, including $25,000 to renovate and convert a school into a local center and for improvements to two other centers.

$5,350 for projects at nine parks, including expansion of handicapped facilities and/or accommodations.

$450,000 for sewer line replacement, including $250,000 for the construction of 7,000 feet of sewer line at Squaw Creek.

$54,000 for street and waterline improvements.

$2,000 for demolition of dilapidated houses beyond rehabilitation.

For economic development $50,000 is allotted to increase the North Side Chamber of Commerce's capacity to make and service small business loans.

For public service $66,662 is provided to the MedTrans Transportation System, operated by the Great Plains Improvement Foundation, which transports low- and moderate-income persons to health-care facilities.

Locations

Projects to improve infrastructure or community facilities will take place in CDBG-eligible areas. Other activities, such as rehabilitation or medical transportation, will be provided to income-eligible residents on a citywide basis.

Lead Agencies

The Lawton City Council designated the Housing and Community Development Department as the lead agency for the coordination and implementation of the Consolidated Plan.

Housing Goals

Housing activities included in this year's Action Plan are expected to result in the production of 33 new or rehabilitated housing units and repairs to 22 homes.

Maps

MAP 1 depicts points of interest in the jurisdiction.

MAP 2 depicts points of interest and low-moderate income areas.

MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.

MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.

MAP 5 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.

MAP 6 is a map, sectioned by neighborhood, which depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects.

MAP 7 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within one of the four neighborhoods indicated in MAP 6.

MAP 8 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects within another of the four neighborhoods indicated in MAP 6.

MAP 9 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded project(s) from a street level vantage point; in addition, a table provides information about the project(s).

To comment on Lawton's Consolidated Plan, please contact Tom Aplin, Federal Housing Programs Coordinator, at 405-581-3347.

Return to Oklahoma's Consolidated Plans.