The City of Odessa, situated in West Texas, is a community with an expanding and diversified economy. This Consolidated Plan establishes Odessa's long-range strategy and five-year investment plan for community development, housing and homeless services. It allocates federal resources from the Community Development Block Grant (CDBG) and the Home Investment Partnership program (HOME). The plan also identifies other local and federal resources that will be used to carry out the long-range strategy.
The City of Odessa's Consolidated Plan presents a strategic vision for housing and community development needs in the city. It includes a one year action plan, spending approximately $2,190,000 of Community Development Block Grant (CDBG) and HOME Investment Partnership program funds in 1995. These funds will primarily be spent on housing and neighborhood activities.
The City of Odessa has long had a citizens participation plan for the Community Development Block Grant program, which establishes procedures for encouraging citizen participation and ensuring access to meetings and information. These meetings enable low-income residents to attain technical assistance in developing proposals for funding. Citizens and citizen interest groups are familiar with the plan, making it acceptable by the city and is continuing to use this plan for the consolidated submission.
On February 27, 1995, the Community Development Office mailed approximately
130 letters to local social service agencies with a notification of the
scheduled "agency needs" meeting regarding the Consolidated Plan
process. The office also conducted three public meetings in the target area, to
meet the requirements of disseminating data for creating the Consolidated Plan
and to make necessary information available to the public. The Citizen
Participation Plan was approved by HUD on April 17, 1995, and adopted by the
City Council on May 23, 1995.
Today, the city at 32.5 square miles, with a population of 89,504, has a diversified economy supported by petroleum, medical, education, agriculture/ranching, retail, retirement and tourism. The health of the community's economic base is the key to expanding local economic opportunities, one of the goals of this Consolidated Plan.
While portions of the city have prospered, several neighborhood areas of significant need have also emerged. This plan targets those areas for improvement. The plan describes the housing, community development and economic needs of those areas concentrated in the city's CDBG target area, which comprises approximately one-third of the city.
The CDBG target area is by far more ethnically concentrated than the city as
a whole with larger minority populations (mainly Hispanic and African-American).
The median household income in the target area is considerably lower than the
median for the city as a whole, with census tracts 12,14,15,18,19, and 20
containing the lowest median household income average at $15,123, compared to
$35,200 for the city as a whole. Many low-income families are highly
concentrated in these tracts and have contributed to the growth of poverty,
single-parent families, and unemployment at a much higher ratio and increasing
the dependency on public service programs. The Hispanic population is the
fastest growing population within the city. The 1990 Census indicates that
Hispanics make up the majority of the minority population in Odessa.
The four major employers in Ector County and the City of Odessa are: Ector County Independent School District, Rexene Corporation, Medical Center Hospital, and the City of Odessa. A variety of petroleum, service, and retail industries dominate the local economy. Data obtained from the Texas Employment Commission reflects that unemployment levels for the City of Odessa are relatively high at 7.1 percent (previously 8.1 percent in fiscal year 1994).
Odessa's CDBG target area comprises one-third of the city in which all census tracts and block groups contain 51 percent or more very low- and low-income families. The plan reflects the data indicated on the 1990 Census depicting the city's total minority population at approximately 39 percent.
This plan describes Odessa's strategy for meeting the housing, homeless, and human and economic needs. Some of the services and projects proposed for funding in this plan are city-wide services available to any low-income individual regardless of their residency within the city, other facilities and services may be specific to the city's target area. The housing needs of the city are to increase affordability of housing and rehabilitation of the existing housing stock and to provide transitional housing for the homeless. Given the limited amount of HOME funds received, the city's priority is to complete the 53- unit Hendley Subdivision, then to move on and provide other additional housing units for low-income families. The city's rehabilitation programs provide rehabilitation assistance to low-income families for the improvement of existing housing units.
The City of Odessa had 40,929 year-round housing units according to the 1990 Census, 80 percent of which are occupied. Currently the Public Housing Authority (PHA) assists 1,185 families with public housing subsidies, Section 8 vouchers and certificates, and has a waiting list of approximately 659 families. Statistics provided by the PHA illustrate there is an apparent need for low-income and elderly housing. Currently, the PHA houses 120 elderly residents at Landmark, with a waiting list of 44 individuals. Another source of available housing for the elderly is at Western Crest. The vacancy rate is at a low percentage due to a waiting list.
Information from a market and inventory analysis by the city's Board of Realtors pertaining to rental and owner-occupied units depicts 6,467 units as vacant and 3,574 units available for rent outside the target area. According to the Odessa Department of Rental Vacancies, owner-occupied units are reported at a 2.9 percent vacancy rate and rental vacancies remain low at approximately 12.5 percent. The number of owner-occupied units available for sale is relatively low.
Households with incomes at or below 50 percent of the median income level have the greatest housing burden. These households are in dire need of rental assistance, affordable housing opportunities, and rehabilitation assistance. Low-income families, primarily minority households, are in need of downpayment assistance and credit counseling in efforts to become a homeowner.
There is no accurate count of homeless persons in the city; many of the homeless elect to stay in scattered locations. Current records obtained from the Salvation Army, American Red Cross, Catholic Charities, Door of Hope Mission, Servants of the Poor, and West Texas Opportunities indicate the homeless population for the City of Odessa is at an estimated 330 persons. Of this population, approximately 15 percent are families. The majority of the homeless are single males with mental and/or substance abuse related illnesses.
The Salvation Army and the Door of Hope Mission, the city's two largest service agencies homeless assistance providers, furnish sleeping accommodations for approximately 75 individuals. The City of Odessa has no transitional housing facilities available for the homeless. The PHA can assist the homeless as housing units become available by ensuring preference to homeless, disabled persons, but this is not likely due to a waiting list. The local Mental Health Authority can assist some disabled, homeless (mentally ill and retarded) individuals willing to enroll in programs at the agency. The number of people that can be helped depends upon the waiting list.
The PHA currently assists 799 families with Section 8 rental assistance certificates, 314 families with public housing, and 72 families with rental vouchers. A waiting list of approximately 659 families await assistance with either Section 8 or public housing.
Data available from the PHA's Section 8 program indicates that the majority of local landlords participating in this program are burdened by the lower fair market rent. As a result, the rental units are being placed on the open market and less units are available to low-income families.
With aging housing stock, even the most progressive of landlords are unable or unwilling to make the investment in substantial improvements necessary to keep rental housing in optimum and appealing conditions and to ensure extended service life. The attrition of aging housing stock lessens the number of available units and is reflected in dwelling units that are in substandard condition. The rehabilitation of these housing units would allow the opportunity for a decent living environment and would further preserve the existing housing stock within the city, enabling low-income families the opportunity for affordable housing. Stimulating the rehabilitation of substandard units must be a high priority for the community.
The City of Odessa's existing housing stock is aging and, in many cases, not suitable for optimum occupancy. Most of these units are located within the CDBG target areas. Houses and apartments in these areas date from prior to 1900 to 1950s with few structures of later housing construction. Age, poor to modest maintenance, lack of upkeep and improvements result in conditions that aggravate slum and blight in these neighborhoods.
At this time, the only new residential construction for low-income citizens is the Hendley Subdivision, currently near the completion of Phase I. Phase II and Phase III infrastructure is complete. The completion of the project will consist of 53 single-family units. The HOME program assists qualified buyers with downpayment and closing cost assistance.
The City of Odessa adopted ordinances on July 10, 1979, to encourage the opportunity for each citizen to obtain housing without regard to race, color, sex, religion, national origin, handicap, or familial status. There appear to be no overt barriers for the development and maintenance of affordable housing. The City of Odessa promotes fair housing to ensure that affordable units are available to all citizens. Current fair housing activities include the following: (1) administration of fair housing ordinance adopted July 10, 1979; (2) participation by the Odessa Board of Realtors; (3) notices in the local newspaper explaining who to contact in cases of discrimination; and, (4) the city's compliance with Section 3 of the Housing and Urban Development Act of 1968 and the implementing regulations at 24 CFR Part 135.
The City of Odessa plans to develop a strategy for completing an analysis of the impediments to fair housing and the production of affordable housing units. Odessa will be requesting technical assistance from the Fair Housing and Equal Opportunity (FHEO) representative at U.S. Department of Housing and Urban Development (HUD) to determine the specific areas that need to be studied. Included in the study of impediments will be city policies, current fair housing activities, and analysis of complaints and complaint resolution, and other areas required by federal regulations.
With almost 90 percent of total housing stock constructed prior to 1978, a large portion of Odessa's older housing stock presumably contains lead-based paint hazards. The City of Odessa is currently promoting the reduction of lead-based hazards through its housing rehabilitation programs and will expand its hazard reduction policies to all Community Housing Development Organization (CHDO) related activities. These activities require that structures be tested for lead-based paint. The city is currently implementing procedures using HUD guidelines referring to the Title X Housing and Community Development Act of 1992 to reduce lead-based paint hazards.
The city's highest priority in this plan is to attempt to build a thriving economic base. It is vital to create a strong network of community based organizations responsible for undertaking community and economic development projects at a significant level. This plan's strategy is designed to create a partnership involving the City of Odessa, Ector County, private industry, local chambers of commerce, and the Odessa College Incubator Center to establish a coordinating entity to "build and provide program support."
An additional priority is to increase access to job opportunities. The City of Odessa will solicit the involvement of other agencies to develop a combination of work force development activities, recruitment, and placement efforts. Another plan component will encourage residents to participate in literacy programs, adult education programs, and job training programs. Additionally, low-income residents will be encouraged to participate in post-secondary educational institutes to enhance their economic opportunities. This activity will be initiated by West Texas Adult Literacy Council, Odessa College Adult Basic Education (ABE), and Catholic Charities will expand outreach to low-income residents.
Another viable means of economic advancement for Odessa's residents is
business development through the economic opportunity strategy to assist in the
formation of new businesses owned by low-income residents. Principal activities
in this area include the city's economic development loan program, private
industries, and Odessa College Incubator Center offering low-income citizens
technical assistance and incentives for creating or expanding their business.
Due to the nature of housing needs and market conditions remaining unchanged in the community, the City of Odessa is incorporating the Comprehensive Housing Affordability Strategy (CHAS) into its Consolidated Plan. The CHAS meets Consolidated Plan requirements: (1) to analyze market conditions and projected community housing needs for a 5-year period, including disproportionate racial or ethnic needs; (2) to describe the condition of public housing units and the City's strategy for improving those units; (3) to identify and explain how the community intends to reduce barriers to affordable housing; (4) to explain the institutional structure for carrying out the housing strategy; (5) to analyze the number of low-income units that contain lead-based paint hazards; (6) to describe and mitigate impediments to fair housing choice; and, (7) to describe the community's anti-poverty strategy.
The City of Odessa's plan to implement neighborhood revitalization through housing investment within the eligible target area will be addressed in this plan. The main objectives for the city's housing strategy will be to provide: (1) a preservation of existing housing (owner-occupied); (2) new construction of single-family unit housing; and, (3) housing activities that should be aimed at revitalizing the city's target areas.
This approach coincides with staff analysis of housing and community development needs and market opportunities. Consequently, the City of Odessa is adopting this approach to undertake housing activities in the specific target areas during the next five years. To reinforce the housing investments as described, the next 5 years are aimed at: (1) expanding the availability of affordable family housing; (2) encouraging homeownership opportunities; and, (3) preserving the existing housing stock through housing rehabilitation.
The City of Odessa has no transitional housing facilities available for the homeless. The PHA can assist, as housing units are available, by ensuring preference to homeless, disabled persons. This may be difficult to achieve due to the current waiting list.
Numerous agencies expressed a shortage of emergency housing for the homeless in Odessa, and of supportive services needed, in particular, transitional housing. In efforts to address the urgent need in Odessa, this plan incorporates the homeless strategy from the CHAS.
The City of Odessa anticipates being a part of the establishment of a transitional housing facility coordinating efforts between the local emergency shelters, the substance abuse treatment facility, and the handicap service provider in order to benefit those in need of temporary housing. The primary goal is to serve individuals and families who have lost their source of income and are determined to regain their economic resources by returning to the mainstream work force of society. Temporary housing will be utilized to its fullest intent by these populations breaking the cycle of homelessness and poverty. Once these individuals have successfully gained employment and are financially stable, other individuals needing this similar type of assistance will benefit. Any effort to assist these types of facilities will require the collaboration between the City of Odessa and those agencies that typically serve these populations, such as the Salvation Army, Door of Hope Mission, Clover House (substance abuse treatment facility), A.B.L.E. Center (handicap facility), and others.
Numerous individuals residing in the City of Odessa have been identified as being infected with the HIV/AIDS virus. Services needed by this special population are housing, transportation, counseling, wellness information, case management, lab work, prescription assistance, rental and utility assistance, and peer support. Currently, resources are limited for these individuals seeking assistance. The South Plains AIDS Resource Center is vital in providing proper health care for the limited clientele population suffering from HIV/AIDS and related diseases. SPARC provides a centralized HIV clinic with prescription assistance, lab work, case management, food pantry, transportation, utility assistance, pentamidine mist treatment and wellness information at no cost to approximately 85 clients in the city. Without adequate health and family support programs, the hope for improving poor living conditions are bleak.
Priorities for economic development include: (1) potentially building local capacity through technical assistance and program financial support of local community-based organizations; (2) increasing access to job opportunities by connecting individuals with jobs through facilitation of educational and job training transitions; (3) facilitating economic development programs that create new business or expand current business in efforts of creating jobs for the low-income individuals of the city; (4) facilitating business development through establishment of revolving loan funds and technical assistance for small business entrepreneurs; and, (5) fostering the creation and growth of businesses through the use of CDBG economic development funds and potentially Section 108 loan guarantee funds.
Priorities for other community development activities include: (1) public facility improvements, i.e., parks, recreation, and youth centers; (2) infrastructure improvements i.e., street, sidewalk and sewer; and, (3) public services provision, including fair housing counseling and planning.
The city is involved in various activities that provide opportunities that aid in the elimination of poverty for the citizens of Odessa. The city's priority is to increase access to job opportunities. This will involve a combination of work force development activities, recruitment, and placement efforts. Another plan component will encourage citizens to participate in literacy programs, adult education programs, and job training programs. Additionally, residents will be encouraged to participate in post-secondary educational institutes. The activities and services provided by local organizations, such as, JobTraining Partnership Act (JTPA), West Texas Adult Literacy Council, Odessa College Adult Basic Education, the A.B.L.E. Center for Independent Living, and Permian Basin Mental Health Mental Retardation, will assist in addressing the critical needs of the community.
The city primarily relies upon federal resources, including CDBG, HOME, Section 8, and public housing, for its housing and community development needs. The city encourages joint ventures between the private and public sectors to invest in housing and economic development.
In developing the city's housing and community services plan, the Community Development Office obtained input from social service agencies about the housing needs of children, elderly persons, persons with disabilities, homeless persons, and other categories of residents. The Community Development staff also involved city staff from various departments (e.g., Public Works, Engineering, Parks and Recreation, Planning, etc.) to implement the Consolidated Plan activities. The Community Development staff took steps to identify housing and community needs of the population groups mentioned above. The steps included: (1) inviting social service agencies to testify at the public hearings on the strategic plan and Consolidated Plan process; (2) advertising scheduled meetings regarding the Consolidated Plan process in local newspapers; (3) posting flyers of scheduled meetings for project requests, within the CDBG target areas at community centers, churches, stores, etc., including public service announcements aired on the Hispanic radio station; and, (4) researching data to verify the needs addressed in the CHAS.
With the information presented by these agencies, the city discovered the
high cost and lack of housing (rental housing, housing for sale, and new housing
construction) is a serious problem facing many low-income families and
individuals in Odessa. There is an especially great need for transitional
housing and public transportation for the special population groups of the city.
The City of Odessa's total funding is $2,190,000 under the CDBG and HOME Programs. Proposed projects and activities for 1995 grant program year include housing and public facilities, such as:
Approximately 80 percent of the proposed projects in the one year action plan are designated to the CDBG target area. Funds allocated to this area are spent primarily on housing rehabilitation, new construction of affordable housing, and public improvements. In addition, significant HOME funds are allocated to Christmas in April, the non-profit Community Housing Development Organization (CHDO).
The Community Development Department of the City of Odessa is the designated agency responsible for the development and submission of the Consolidated Plan. Throughout the planning process, the City of Odessa endeavored to confer with various agencies, groups and organizations to accomplish the required goals. Agencies were consulted that provide social services, health services, housing assistance, and educational services, to name a few. In order to determine housing concerns and non-housing needs, the City of Odessa consulted with various public and private agencies. Many public improvement projects are being carried out by the city. Non-profit and public institutions will assist the city in carrying out the annual plan.
The City of Odessa's housing goals for the first year include increasing the supply of affordable housing for 25 households through owner-occupied housing rehabilitation and the new construction of 12 homes in Phase II of the Hendley Subdivision. Additionally, in efforts to eliminate slum and blight in deteriorated neighborhoods, the demolition program proposes to remove 40 unsafe residential structures.
The PHA currently assists 1,185 families with public housing subsidies. Of these, 799 families are assisted with Section 8 certificates, 72 families are assisted with Section 8 vouchers, and 314 families are assisted with public housing funds. Recently, the PHA purchased High Plains, a 400-unit apartment complex, offering unsubsidized low rents to the open market.
MAP 2 shows points of interest in Odessa with low- and moderate-income areas shaded.
MAP 3 shows areas of minority concentration with low- and moderate-income areas outlined.
MAP 4 shows unemployment data (1990) by block group, with low- and moderate- income areas outlined.
MAP 5 shows selected CDBG projects to be funded during its 1995 program year, with unemployment data shaded by block group and low- and moderate-income areas outlined.
MAP 6 depicts points of interest, low-moderate income areas, and proposed HUD funded project(s) from a street level vantage point.
Mary Dominguez
City of Odessa
PH: (915) 335-4820
