Shawnee's Consolidated Plan, hereafter referred to as the Plan, is in response to the U. S. Department of Housing and Urban Development's (HUD's) proposal to replace the current regulations for the Comprehensive Housing Affordability Strategy (CHAS) with a rule that consolidates the planning and application aspects of four HUD programs with the requirement for the CHAS. The programs are the Community Development Block Grant (CDBG), Emergency Shelter Grant (ESG), HOME Investment Partnerships (HOME), and Housing Opportunities for Persons with AIDS (HOPWA) formula program (HOPWA, ESG and HOME funds are administered by the State).
The overall goals of community development and planning program covered in this Plan are to extend and strengthen partnerships among all levels of government and the private sector, including for-profit and nonprofit organizations, to enable them to provide decent housing, establish and maintain a suitable living environment, and economic opportunities for every American, particularly for very-low-income and low-income persons. The Plan serves the following functions:
This 1995 City of Shawnee Consolidated Plan was developed by Community Development Staff as lead agency with input from organizations such as State agencies, private nonprofit organizations, local council of governments, community leaders, special task forces, and concerned citizens.
The information gathering process for the 1995 plan began in April of 1994. Data for the Plan was also gathered from social services, human services and health agencies. The 1994 CHAS Plan was utilized because it is still relevant and can be found throughout the document. To obtain public input to the Section 108 Loan, the City would be applying to
HUD for approval, public meetings were held in accessible meeting places.
The meetings were held at the following locations:
Shawnee City Commission ChambersApril 10, 1994
Urban Renewal Authority Office May 8, 1994
For the two meetings that were held, hundreds of individuals were notified through newspaper advertisements which were run in the following newspapers:
Shawnee News Star April 1. 1994
Shawnee Sun April 17, 1994
Participants included city officials, business leaders, developers, contractors, real estate professionals,, lenders and other individuals facing the unity. The overriding concerns expressed address the need for infrastructure, the high cost of construction and housing combined with the low thresholds for eligibility for Federal programs,, the need for additional incentives for contractors/developers to build affordable housing and the need to educate potential homebuyers of the reality of buying a home in today's market.
These actions are proposed to encourage participation by very-low and low income persons, particularly those living in slum and blighted areas and in areas where CDBG funds are proposed to be used. However, participation of all citizens of Shawnee is encouraged, including minorities and Non-English speaking persons, as well as persons with mobility, visual or hearing impairments.
The comment period ended after the May 1, 1995 hearing to gather public input. Written comments were accepted through 5:00 p.m. on June 1, 1995. This schedule allowed for a period of not less than 30 days to receive comment on the Plan from citizens or units of general local governments. Any amendments to the Plan will also accommodate a 30 day period for public comment as will each annual performance report which reflects progress towards meeting the priorities and strategies outlined in the Consolidated Plan.
All citizens, public agencies and other interested parties are provided an opportunity for reasonable and timely access to information and records relating to this Consolidated Plan and the use of assistance under the programs covered by the Plan during the previous five (5) years. Copies of the Consolidated Plan, previous year's CHAS, and any other relevant information may be obtained by writing City of Shawnee, Urban Renewal Authority, 228 North Broadway, Shawnee, Oklahoma, 74801 or by calling (405) 273-1938.
Any comment or views of citizens received in writing or orally at the public hearings shall be considered. A summary of the comments or views, and a summary of the comments or
views not accepted and the reasons therefore is provided in the complete document. In response to complaints received from citizens related to the Plan, the City will provide a substantive written response to every written complaint within 15 working days, where practicable.
According to the Governor's Office of Economic Development, the City's economy in recent years has benefitted from an expanding and diversifying industrial base. The traditional. economic leaders, agriculture and tourism, continue to show growth while new industries are growing, particularly shopping centers and new business. Durable goods manufacturing and private type services have evolved as additional drivers of the economy. Although population growth in Shawnee between 1980 and 1990 decreased by nearly 1% from a population of 26,506 in 1980 to 26,017 in 1990, a loss of 489 persons, the total population of Shawnee today has increased an estimated 3% from 1990.
The expansion of the above industries has had a major impact on the demand for affordable housing throughout the City.
The City and county authorities are considering a vote of the citizens on whether to increase the sales tax in order to provide infrastructure revitalization,, county road upgrades and enhanced public safety protection.
The total population of Shawnee is estimated to be 26,798 by 1995. This reflects an increase of three percent since 1990. The City has been designated an Oklahoma City Metropolitan Statistical Area (MSA). The white population accounts for 82.6 percent of the Shawnee citizens, the Native American population is 12.5 percent, the Asian/Pacific Islander population accounts for .08 percent, and the remaining 4.1 percent of the population is comprised of Blacks and others.
Although the number of Blacks and Native Americans is low in proportion to the total population at 888 and 3,243 respectively, it is significant to note that these numbers increased by 21.3 percent and 55.6 percent from 1980 to 1990. The total White population has remained relatively constant.
The 1995 estimate for the population in Shawnee is 26,798. This number is projected to increase to 27,760 by 2010. Shawnee has a large and growing very low--income population. 36.85 percent of all households in Shawnee are very low-income (less than 50% Median Family Income (MFI)), earning approximately $18,750 per year. There are 2,426 households in this category. 2,193 households earn less than 30% MFI or $11,200 per year. Shawnee's very low income population suffer a Housing Cost Burden because slightly more than 1 in 3 very low income households (less than 50% MFI) pay half of their income on housing,, and cost burdens are concentrated in the extremely impoverished population, those earning less than 30% MFI, or below $11,200 per year. There are 1,200 households earning less than $11,200 per year. There are 1,200 households earning less than $11,200 per year who pay more than 50% of their incomes on housing. The vast majority are renters.
There are almost equal as many homeowners as Poor Renters in Shawnee. Housing problems disproportionately affect the poor - almost 3 in every 4 poor households experience one or more housing problems.
Almost 65 percent of the households at or below 30 percent of median income, Low Income households, both renters and owners, indicate some sort of housing problem. Nearly two-thirds of these Extremely Low Income households pay more than 30 percent of their income toward housing. Forty-four percent pay more than half their income toward housing. In other words, of the 2,192 households for which income is at or below 30 percent of median for the area, just over 1,400 are paying more than the 30 percent industry standard and, of these, over 964 are paying more than half their Income toward housing. The numbers reflect that all households are affected regardless of whether the members are elderly, renters or owners.
For the remaining very low Income households, those for which income is between 31 and 50 percent of median income, almost 42 percent pay 30 percent or more of their income toward housing. Of these households, 12 percent pay 50 percent or more of their income toward housing. Although their housing problem are very real, by comparison, the Low-Income families of the City (those families earning between 51 and 80 percent of median income) are the Extremely Low and Very Low Income families. Overall, 18 percent of these households pay more than 30 percent of their income toward housing. In this income category, the elderly renters and the non-elderly homeowners are most cost burdened, with over 20 percent of each category paying more than the HUD standard of 30 percent of their income toward housing.
Of the moderate income households (those families earning between 81 and 95 percent of median income), 13 percent are paying 30 percent or more of their income toward housing costs. Non-elderly homeowners and elderly renters are affected the most in this income category. It is significant that the majority of the housing problems identified by most household categories can be traced to affordability problems. For example, approximately 54 percent of the elderly households indicate a housing problem and nearly all of the problems relate to affordability issues. Large Related renter households, however, have consistently identified housing problems other than cost burden related problems. It is important to note that although the Large Related renters is a small population overall, 64 percent of the population identifies housing problems. This is the highest percentage of housing problem overall. Census Data reflects that one-third of the large families who rent are overcrowded. This is several times the incidence of overcrowding in other rental or owner occupied units.
Of the 605 minority-headed renter households in the City, 34 percent have an income of 30 percent of median family income or below. This is nearly twice the percentage of overall population which falls into the same income category. For this reason, minority populations are assumed to have a more difficult time obtaining decent, safe, and affordable housing than the population in-general.
Due to the incidence of families which are cost burdened or severely cost burdened, there continues to be a need for rental assistance for very low income citizens citywide. The local Housing Authority confirm that the waiting lists for certificates and vouchers are extremely long.
As a result of the high cost of construction and the short supply of existing homes on the market in many areas in Shawnee, more and more would-be first-time homebuyers are missing the opportunity to own their own home. This is due largely to the fact that low income buyers are competing with moderate and upper income buyers for the few properties on the market. Purchase prices have increased and the need for assistance to first-time homebuyers has increased.
Related to the need for additional housing units for young first-time buyers is the need for funds to enable elderly homeowners to rehabilitate their homes to bring them into compliance with existing codes. Not only would this add to the comfort of the elderly for the remainder of their stay in their homes,, but it would improve the energy efficiency and the chances for the home to qualify when it comes time for the home to be sold. Currently, the elderly often do not have the resources to renovate on their family income nor do the first-time homebuyers at the time of purchase.
There are two major issues which have the potential for having a major impact on housing in Shawnee over the next three years. The first is the fact of the high cost of construction and the lack of construction activity in the low to moderate cost housing. Although there is a concerted effort being made to change this, the success, or lack of success, of this effort will have a significant impact on the City as a whole. The second initiative that will have major impact is the proposed increase of FHA mortgage limits. If Congress passes this proposal, more first time homebuyers will be able to access FHA insurance which will make housing more affordable City wide.
Many people in Shawnee require supportive housing to allow them to remain in their homes or in the communities in which they reside. Included in this group of people who need supportive housing are the elderly, the frail elderly, persons with alcohol or other drug addiction,, and persons diagnosed with AIM and related diseases. An assessment of needs for these populations is discussed in the following paragraphs.
In 1990, there were 2,000 elderly people (those 60 years or older) in Shawnee. Based on the 1990 Statewide Housing Needs Analysis survey, most of them (84 percent) express a preference to remain in their current home if they are able. In practice, a smaller percentage, closer to 67 percent, ultimately chose to live in their own home. The difference is also attributable to health problems and the difficulty and/or expense of arranging for needed services by those who attempt to remain in their own homes.
The Central Oklahoma Economic Development District (ODEDD) in Shawnee offers assistance to individuals with disabilities in this community. In addition to advocating better services and access to persons with disabilities,, they also directly assist clients who need help accessing program and services. A 33-unit "assisted living" complex for the elderly called a residential care home is presently being constructed in Shawnee. The complex will consist of small efficiency units to be furnished by tenants. Units will have pull strings to summon help and there will be a courtyard in the center of the complex. Pets will be allowed. A staff nurse will be on hand.
Although there is no reliable estimate of the total number of units accessible to persons with disabilities, including individuals with mobility impairments, there are over 75 such units in Federally assisted projects which are available to low income renters in Shawnee. There is,, however,, anecdotal evidence that suggests that there are still not enough such units. There is a need for additional accessible units, both for rental and for purchase, for families and individuals with disabilities who do not require supportive housing. Consideration should be given in the construction of both multifamily and single family units to proper door widths, turning radius' reinforcements for grab bars, and the ability to add ramping if necessary.
Persons with mental illnesses tend to cluster in cities where there are mental health programs. These programs include a variety of services such as outpatient therapy, psychosocial rehabilitation, medication management, and targeted case management. The community mental health centers are scattered in larger communities across the State and provide treatment, rehabilitation, and support services to persons with serious mental illnesses. Some centers have branches in smaller communities, and Shawnee has the Red Rock Medical Center.
In Fiscal Year 1994, more than 800 clients received services to some degree through the various Alcohol and Drug Abuse agencies in the City. There are a number of programs available which provide services to these individuals. Some were able to receive treatment on an out-patient basis. Others required the more intensive services offered by the Transitional Care Programs and the Custodial Care Programs which are accredited through the Department of Human Services.
In addition to these supportive housing for alcohol and other drug addicts, there are ten (10) separate Support Services and Counseling Program available in Shawnee which provide the ongoing support for recovering addicts. There are also five (5) Prevention Program available in Shawnee.
The City of Shawnee has had two reported cases of AIDS since August, 1990. Currently, Shawnee does not have a facility which provides space for long term care except medical facilities.
The City of Shawnee has many non-housing development needs. There are various activities which are eligible for Community Development Block Grant - (CDBG) funds, but cannot be funded because of the lack of available funds. These activities are being impacted by escalating costs of building materials, pipe, and labor and increased Federal regulations tied to the expenditure of these dollars.
The majority of needs fall within the category of water and wastewater which include water line replacement, distribution,, supply,, treatment, storage., waste water treatment,, and other associated appurtenances. Another category is economic development which includes the purchase of equipment and land, the purchase and renovation of commercial buildings and infrastructure construction (older sewer and water lines located within the inner-city).
Most industries wishing to develop or expand in the City experience gaps in their financial package without some sort of assistance to make the project cash flow. Because of this need for assistance, the City has found it necessary to fund one package submitted for-profit business of economic development purposes in the last year. The City applied to HUD for a Section 108 Loan and was approved in the amount of $450,000 for a start-up industry called TailEnd Pet Products. This firm expects to be in production by August 1, 1995. Because of the emphasis the City has on economic development and job creation, this continues to be a need of the City. More applications would be received if the City possesses the capacity, Federal requirement were less and the activities could be broadened.
Economic Development activity was initiated by the City with the formation of a Community Development Corporation (CDC) along with four City Banks. The CDC will construct several new homes each year for low income families or individuals. CDBG funds are planned to be used to buy down mortgages, interest rates, and help with downpayment and closing costs.
It is imperative for the City to diversify its economy. This leads to funding businesses which need creative financial packages to serve their needs. In doing so, traditional funding at the local bank is not adequate, and therefore, public funds Trust be used to assure the project will move forward and create the projected employment.
The Housing Authority of the City of Shawnee is responsible for the operation and maintaining of 443 units of public housing. Five of these units are currently utilized for tenant and maintenance services, making a total of 435 units available for occupancy by public housing families. These units are made up of 6 separate developments, and are scattered at different locations throughout the community.
Project 95-1 is made up of 100 units in the form of duplexes and houses. 74 of these units are general occupancy located in the area of 7th and Tennessee Street. The remaining 26 units of 95-1 are elderly duplexes located at Milstead Circle. Project 95-3 is 90 units of duplexes and houses, scattered throughout the city and are general occupancy units. Project 95-6 is a 50 unit, 2 story apartment complex located at 1002 I;. 7th, and is
general occupancy. Project 95-7 is 26 units of general occupancy acquisitions scattered throughout Shawnee. Project 95-2 is a 3 story building at 101 W. 10th, with 81 units of elderly housing. Project 95-5 is 96 elderly units in a 5 story building located at 1130 E. Independence. The physical condition of these 443 units is structurally sound.
The general market and inventory of the City's housing can best be described by addressing it in term of supply, demand, condition, cost, and environmental quality.
A greater portion of very low income families are residing in neighborhoods with an older housing . The percent of owner occupied units that are substandard is 30.8 percent and for renters it is 12.7 percent while the vacancy rate is 15.5 percent. The City is focused on revitalizing neighborhoods and promoting healthy, livable ties.
More than half the occupied units in the City were built before 1960. Housing needs are tremendous for housing rehabilitation because 72 percent of very low income renters and 56 percent of very low income owners require housing assistance. In addition, subject neighborhoods are deteriorating rapidly, and require rehabilitation revitalization to make any significant impact on housing. The majority of unit construction is frame type with wood siding.
Shawnee's Senior Citizen population is a significantly larger proportion of its total population than the elderly proportion at the State level. This may reflect an increased demand for housing services. There have been situations where low income housing has been built to address the elderly housing needs in the community only to find that the elderly who can afford and are willing to pay market rate are left served.
The number one consensus from the public meetings held was the lack of affordable single family homes. The shortage of housing was a recurring item. The need for infrastructure, for developable lots, for developer financing, and for contractors who are willing to build affordable housing surfaced time and time again. There was also discussion about the need to educate developers and contractors about the realities of owning a home and what to expect. The need for moderately priced housing, both for rental units for elderly and homes for families that are ready to move-up was also discussed. Shawnee's resources are small compared to the overwhelming need for Housing Assistance. The cost of addressing all housing needs in Shawnee has been estimated to be twenty million dollars. Overall, the condition of housing in Shawnee is not good, especially the inner City area or the area surrounding City Hall.
The City has been performing lead-base paint testing for CDBG and HOME projects,, and is in compliance with HUD's Secretary regarding prohibition against the use of lead-based paint, notification of hazards of lead-based paint poisoning,, notification that the property may contain lead-based paint, and the advisability and availability of blood lead level screening for children under seven years of age.
In Shawnee, it is presumed the most common source of lead exposure for those children seven years and under with identified blood levels of 20 micrograms per decaliter is a combination of ingestion of paint chips or inhalation of lead dust from recent remodeling or renovation projects in older homes. It is important to note that the presence of lead-based paint alone does not indicate the extent of exposure hazards.
There are few public policies at the City level which negatively affect land and other property, land use controls, zoning ordinances, building codes, fees and charges, growth limits, and the return on residential investment.
City of Shawnee is administering the Entitlement grants received from HUD and the HOME grant received from the State Department of Commerce. The City was successful in obtaining approval from HUD for a Section 108 Loan in the amount of $450,000 for a start-up business called TailEnd Pet Products. This firm has started operations, and is expected to hire 451 employees during the first year.
Another successful activity has been the formation of a Community Development Corporation (CDC) with the City and four (4) area banks participating in constructing new affordable homes. Nonprofit organizations involved in the provision of affordable housing include a Community Action agency which has provided affordable housing program to very low income families. Historically, they have provided weatherization and energy assistance programs. This agency is expected to access the HOME Program in an effort to expand the supply of affordable units through acquisition, rehabilitation, or new construction activities. Other public institutions involved in the provision of affordable housing include the local PHA which administers the Section 8 Rental Assistance Program in addition to owning and managing the public housing units.
The City of Shawnee mission statement is as follows:
The City is committed to the provision of a fully adequate supply of affordable, sanitary, decent, and safe housing to meet the needs of all persons in Shawnee by encouraging the investment of private capital and by stimulating the construction, rehabilitation, purchase and maintenance of residential housing through the utilization of private and public fund financing.
The Shawnee Urban Renewal Authority mission statement for the Community Development Block Grant Program (CDBG) is as follows. To be consistent with these missions and address the needs as outlined in the Housing and Community Development Needs, the City of Shawnee and the Shawnee Urban Renewal Authority has established the following strategic purposes and objectives.
Increase the supply of decent, affordable housing through the acquisition or rehabilitation of existing housing units and, where appropriate, the construction of new units;
Establish and maintain suitable living environments;
Created economic opportunities for every citizen, particularly for very low and low income persons;
Provide rental assistance to alleviate rental cost burden, including severe cost burden, experienced by low income families and individuals;
Address the unmet supportive housing needs of persons who are homeless or are threatened with homelessness;
Promote the inclusion of individuals with disabilities into the community through incentives to housing developers to target units in the community to these populations;
Increase the capacity of for-profit and nonprofit organizations and other potential developers of low income housing by offering education and technical assistance where appropriate; and
Educate potential first-time homebuyers about the realities of purchasing a home and align their expectations to what they can actually expect to afford.
It is important for the reader to note that the priorities and strategies outlined in this document are defined by the intersection of the needs and the available resources, as addressed in the Housing and Community Development Needs section, and the City's resource capacity to accomplish the priorities within the next three years. The Priority Need Levels (PNL) signify the relative priority to be given to each category of residents during the three-year strategy.
High priority that the activities to address this need will be funded during the three-year period.
Medium priority that the activities to address this need may be funded during the three-year period if funds are available.
Low priority means that the activities to address this need will not be funded during this three-year period. The City will, however, consider certifications of consistency for other entities applications for Federal assistance.
No such need means that there is no need or that the need is already substantially addressed. No certification of consistency will be considered.
PRIORITY A: Provide rehabilitation assistance to low income persons who require assistance to rehabilitate their home to bring it into standard condition. Nearly 3/4 of all Extremely low income homeowners pay more than 30 percent of their income to housing.
PRIORITY B: Provide housing opportunities to low- and moderate-income Homebuyers
PRIORITY C: Provide affordable, service enriched housing options for families and individuals in need of supportive housing. (homeless)
PRIORITY D: Provide affordable, service enriched housing options for families and individuals in need of supportive housing. (elderly)
PRIORITY E: Provide economic opportunities to very low- and low-income residents and strengthen the community.
To achieve the objectives stated within this plan, the various agencies and the private sector will continue to coordinate the allocation of resources. The City share information on projects to be funded to each agency and the for-profit lending firm on a regular basis. If a potential project proposes housing for a special needs population, a coordinated effort is attempted to resolve the difficulties.
The City's proposed projects use CDBG, HOME, Section 108 and other funds, even though it does not receive HOME funds directly. CDBG and HOME funds will be used to rehabilitate 50 single-family housing units in Pottawatomie County Census Tracts 1-6. Those tracts comprise an inner-city area within a two-mile radius of City Hall. Repaving a four-block area in Census Tract 3 will be done with $185,000 in CDBG funds. CDBG funds totaling $62,800 will be used for general program administration.
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 depicts points of interest, low-moderate income areas, and proposed HUD funded projects.
