City Council
September 15, 2025
AGENDA REPORT
TO: Jestin D. Johnson
City Administrator
FROM:Emily Weinstein,
Director, Housing and
Community Development
SUBJECT:2024/25 Consolidated Annual
Performance & Evaluation Report
DATE:August 19, 2025
City Administrator Approval Date:
RECOMMENDATION
Staff Recommends That The City Council Conduct A Public Hearing And Upon Conclusion Receive The City Of Oakland’s Consolidated Annual Performance & Evaluation Report For Fiscal Year2024/25 Community Development Block Grant, HOME Investment Partnerships, Housing Opportunities For Persons With AIDS, And Emergency Solutions Grants To Be Submitted To The United States Department Of Housing & Urban Development
EXECUTIVE SUMMARY
This report transmits to the public and to the Oakland City Council (Council), the City of Oakland (City) Consolidated Annual Performance & Evaluation Report (CAPER) for Fiscal Year (FY) 2024/25 as required by the United States Department of Housing & Urban Development (HUD) under Title 24, Part 91, Sections 91.105 and 91.520(a) of the Code of Federal Regulations (24 C.F.R. §§ 91.105 and 91.520[a]).
In 2024, the HUD Office of Community Planning & Development (CPD) awarded the City a total amount of $14,260,551 under four formula grants as authorized by Council Resolution No. 90372 C.M.S., passed on July 16, 2024, see below in Table 1.
Table 1. HUD/CPD FY 2024/25 Grant Awards
Jestin Johnson (Sep 6, 2025 16:07:58 PDT)
Sep 6, 2025
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
HUD/CPD Grant Award
Community Development Block Grant (CDBG) $7,484,410
HOME Investment Partnerships (HOME) $2,368,547
Housing Opportunities for Persons With AIDS (HOPWA) $3,761,466 Emergency Solutions Grants (ESG) $646,128
TOTAL FY 2024/25 HUD/CPD FORMULA GRANT AWARDS$14,260,551 Consistent with the City’s FY 2020/21 – 2024/25 Consolidated Plan, which was implemented through Annual Action Plans (AAPs), CDBG, HOME, HOPWA, and ESG funds were utilized to support the following FY 2024/25 AAP priorities: to benefit low-income (80% and below area median income) Oakland residents, to invest in low-income areas of Oakland, and to assist unhoused residents, small businesses, and low-income persons living with HIV/AIDS through:
1. Affordable Housing
2. Homelessness Solutions
3. Economic Development
4. Public Services
5. Neighborhood Stabilization
6. Public Facility Improvements and Infrastructure
Approximately 6,237 households received direct benefit from CDBG-, HOME-, HOPWA-, and ESG-assisted programs and activities included in the Consolidated Plan and FY 2024/25 AAP.
The summary is below and the complete FY 2024/25 CAPER is available online for public review.
BACKGROUND / LEGISLATIVE HISTORY
Pursuant to Title 24, Part 91, Section 91.520 of the Code of Federal Regulations (24 C.F.R. §
91.520), the City is required to report annually on the progress it has made in carrying out priority goals and strategies of its Consolidated Plan, AAP, and Substantial Amendments to its Consolidated Plan and AAP. Pursuant to 24 C.F.R. § 91.105(d) and the City’s Citizen Participation Plan, the City must provide a period not less than 15 days for public review and comment prior to submitting the CAPER to HUD.
The City’s FY 2024/25 CAPER includes a description of the investment of available resources, the geographic distribution of investments, the demographic characteristics of households served, actions taken to affirmatively further fair housing, and other actions as planned and approved under the City’s FY 2020/21 – 2024/25 Consolidated Plan and FY 2024/25 AAP as amended.
The FY 2024/25 AAP allocates HUD/CPD formula grants awarded to the city under the CDBG, HOME, ESG, and HOPWA programs, as authorized by Resolution No. 90372 C.M.S. on July
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
16, 2024, and amended by Resolution No. 90737 C.M.S. on May 20, 2025.
A brief summary on the use of the four federal formula grant programs is detailed below:
Community Development Block Grant (CDBG)
CDBG represents the largest share of Oakland’s federal formula grant funds and serves as an ongoing funding source for initiatives that directly benefit low-income residents. These include affordable housing and homelessness housing production and preservation activities, as well as homelessness services and anti-displacement services, such as rental assistance targeted to prevent homelessness and housing-focused legal assistance.
CDBG also supports economic development activities administered through the City’s Economic & Workforce Development (EWD) Department as well as the Code Compliance Relocation Program (CCRP; Oakland Municipal Code 15.60) administered by HCD. CCRP supports tenants who must temporarily relocate due to unsafe or uninhabitable housing conditions. CDBG is also the primary funding source for the City’s owner-occupied Residential Lending Services, which promotes safe and stable housing while preserving neighborhood affordability.
HOME Investment Partnerships (HOME)
HOME funds expand Oakland’s affordable housing stock through capital investments in development, acquisition, and rehabilitation of affordable housing. By pairing HOME funds with local resources like the Affordable Housing Trust Fund, the City amplifies its ability to finance large-scale affordable housing projects. These developments expand housing opportunities for Oakland residents while creating jobs and customers for local businesses.
Housing Opportunities for Persons With AIDS (HOPWA)
HOPWA provides housing and supportive services to low-income individuals living with HIV/AIDS and their households across Alameda and Contra Costa counties. The City administers the annual formula HOPWA allocation on behalf of the Eligible Metropolitan Statistical Area comprising both Alameda and Contra Costa counties. The City’s Community Homelessness Services (CHS) Division in the Human Services Department funds HOPWA project sponsors directly and funds subrecipients Alameda County Department of Housing & Community Development and Contra Costa County, which serve as pass-throughs to other project sponsors. Seventy percent of the annual formula grant is allocated to serve Alameda County households and thirty percent to serve Contra Costa households, consistent with HIV/AIDS prevalence in the two counties.
Emergency Solutions Grants (ESG)
ESG targets immediate homelessness needs by funding emergency shelters, rapid re-housing programs, and essential services. ESG funds shelter operations and wraparound support, including access to job training, healthcare enrollment, and benefits application. Rapid re- housing initiatives help individuals quickly transition into permanent housing with time-limited rental subsidies and case management.
ANALYSIS AND POLICY ALTERNATIVES
The City’s FY 2024/25 CAPER evaluates and reports accomplishments and progress towards
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
six priority goals established under the Consolidated Plan and FY 2024/25 AAP:
1. Affordable Housing
2. Homelessness Solutions
3. Economic Development
4. Public Services
5. Neighborhood Stabilization
6. Public Facility Improvement & Infrastructure Improvements
FY 2024/25 activities reported under these priority goals support and advance the City’s Housing & Community Development Department (HCD)’s 2023-2027 Strategic Action Plan; the 2023-2031 Housing Element; the Permanent Access To Housing (PATH) framework foraddressing homelessness; and the Citywide priorities of housing, homelessness solutions, and economic and cultural security.
While the scopes of the Consolidated Plan and AAP include housing and community development activities carried out with both HUD and non-HUD funding sources, the focus of this report is on CDBG-, HOME-, HOPWA-, and ESG-funded activities.
CAPER highlights for FY 2024/25 are provided below. Demographic data fromCDBG-, ESG-, and HOPWA-funded activities are attached in Exhibit A. The complete FY 2024/25 CAPER is available online for public review.
FY 2024/25 CAPER Highlights
Affordable Housing – Production
The City uses its HOME funding to produce new, deeply affordable housing. During FY 2024/25, the City advanced its affordable housing goals through both the completion and ongoing development of HOME-assisted projects, with a strong emphasis on Permanent Supportive Housing (PSH) for formerly chronically unhoused residents.
Two new developments were completed and opened, delivering a total of 136 new affordable units, including 46 units dedicated to households exiting homelessness through PSH. The completed developments include:
Ancora Place – 77 total units (assisted with $2,371,571 in HOME funds) West Grand & Brush – 59 total units (assisted with $1,067,774 in CDBG funds)
Progress on production of new, deeply affordable housing using all funding sources is detailed in HCD’s Annual Housing Programs Informational Report for Fiscal Year 2024/25. For example, construction commenced on the Lake Merritt BART Transit-
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
Oriented Development (TOD) Senior Housing project (also known as Chinatown TOD), which will deliver 97 affordable units, including 44 PSH units specifically targeted for formerly unhoused seniors. This project is not currently assisted with CDBG or HOME funds. In addition, construction progressed on 395 units across five developments that began prior to the program year and are expected to be completed in subsequent years. These pipeline projects further demonstrate the City’s commitment to expanding access to quality, affordable housing throughout Oakland and includes active participation in State of California Homekey initiatives and a growing emphasis on incorporating PSH units into the City’s affordable housing development pipeline.
Affordable Housing – Preservation
During FY 2024/25, the City advanced its preservation goals and continued to support the rehabilitation and sustainability of both naturally occurring affordable rental housing and owner-occupied housing. Specifically, the City used CDBG funds to implement three key programs aimed at improving housing stability, safety, and accessibility for low-income homeowners:
1. Major Home Rehabilitation Loans
o Zero- to 3%- interest loans (up to $150,000) for emergency repairs, deferred maintenance, or correction of code violations
o 11 owner-occupied homes were rehabilitated
o $630,785 in lending
2. Accessibility and Health Hazard Remediation Grants
o Up to $15,000 for lead-based paint removal and accessibility improvements; up to $24,000 for projects with wheelchair lift installations o 7 projects were completed
o $159,374 in grants
3. Minor Home Repair Grants
o Up to $2,499 to elderly homeowners for repairs including plumbing, electrical, carpentry, grab bars, railings, water heaters, and locks o 38 projects were completed
o $156,600 in grants
Altogether, 56 owner-occupied homes benefited from rehabilitation activities during FY 2024/25, enhancing housing stability for Oakland’s most vulnerable residents.
These rehabilitation efforts support the City’s broader goal of preserving the existing affordable housing stock, protecting residents from displacement, and ensuring long- term housing quality for Oakland residents.
Protection from Displacement & Homelessness Solutions
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
Community-Based Services
CDBG
East Bay Community Law Center (EBCLC) provided fair housing legal services to 203 households
Bay Area Community Services (BACS), in collaboration with Eviction Defense Center, Black Cultural Zone, Safe Passages, The Unity Council, East Oakland Collective, Eden I&R, and EBCLC, provided targeted homelessness prevention services to 234 households through the Keep People Housed program.
East Oakland Community Project (EOCP) provided temporary shelter and supportive services to 634 individuals through Crossroads
Abode provided rapid rehousing services to 90 households through Oakland PATH Rehousing Initiative (OPRI)
Annual Community Day of Thanks provided holiday meals to approximately 3,500 individuals
HOPWA
East Bay Innovations provided supportive services to 5 households EOCP provided temporary shelter to 50 individuals, supportive services to 34 households, and placed 7 households in housing through Crossroads Eden I&R provided housing information to 423 households and case management to 190 households
Resources for Community Development provided supportive services to 13 households
Alameda County provided housing to 38 households
Contra Costa County provided housing information to 148 households, supportive services to 280 households, case management to 15 households, housing financial assistance to 97 households, and placed 15 households in permanent housing AIDS Project of the East Bay (APEB) was awarded HOPWA funds; however, as a result of Community Homelessness Services Division (CHS) monitoring, CHS staff discovered that APEB had served only one household and proceeded to terminate the contract and work with the City Attorney’s Office to demand APEB repayment of reimbursements totaling more than $98,000. No federal funds were used in the City payments to APEB.
ESG
EOCP provided temporary shelter to 383 individuals
Building Futures with Women & Children provided rapid rehousing services to 68 households with children
St. Mary’s Center provided rapid rehousing services to 37 senior households First Place for Youth provided housing navigation and placement and healthcare/mainstream benefits enrollment services to 15 transitional age youth participants
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
Code Compliance Relocation Program
During the FY25-26, a total of 181 tenants and property owners were educated on the requirements of the Code Compliance Relocation Program (CCRP; Oakland Municipal Code 15.60). CCRP outreach, education, and counseling facilitated 29 property owners in providing relocation payments directly to tenants in compliance with their obligations under the code. In cases where property owners failed to comply, the City provided relocation payments to 9 tenant households, and 9 property liens were placed against the properties of non-compliant property owners, most of whom refused to issue relocation payments due to unresolved code violations.
Of the 9 tenant households who received City-provided relocation payments:
4 were extremely low-income (0-30% area median income [AMI]) 4 were very low-income (30-50% AMI)
1 was low-income (50-80% AMI)
4 were female-headed households
Economic Development
The EWD Department’s Neighborhood Business Assistance (NBA) Program and Main Street Launch provided the following small business development services:
Business counseling, technical assistance, and/or marketing support to 245 small businesses
Loans to 15 small businesses
Assisted small businesses in creating or retaining81 jobs
FISCAL IMPACT
The CAPER is a HUD-mandated annual report on the performance and evaluation of activities carried out during FY 2024/25 funded through HUD/CPD formula grants and other resources.
Funds awarded under the FY 2024/25 HUD/CPD formula grant awards but not expended during the FY 2024/25 will expire in 2031 for CDBG and HOME, 2027 for HOPWA, and 2026 for ESG. HCD plans to spend these awards fully by their expiration dates.
PUBLIC OUTREACH / INTEREST
Per 24 C.F.R. § 91.105(d)(1) and the City’s Citizen Participation Plan, the City publishes and posts the CAPER online to provide Oakland residents a reasonable opportunity to review and
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
provide input/feedback regarding the CAPER. The CAPER is posted on the City’s website for public review and comment from September 1, 2025 to September 16, 2025.
A Public Notice of the City’s FY 2024/25 CAPER was posted in the East Bay Times, The Post, El Mundo, and Sing Tao newspaper publications, announcing the availability of the CAPER and the public review period.
Public comments submitted during the 15-day public review period and during the public hearing will be included in the FY 2024/25 CAPER submission to HUD.
COORDINATION
The FY 2024/25 CAPER is submitted in coordination with the EWD Department, Human Services Department, and the Oakland Housing Authority. This report has been reviewed by the City Attorney’s Office and by the City’s Budget Bureau.
SUSTAINABLE OPPORTUNITIES
Economic: CDBG, HOME, ESG and HOPWA formula grants support activities and services that benefit low-income residents of Oakland, unhoused residents, and other special needs populations The grants provide for affordable housing, economic opportunities, and suitable living environments; all of which contribute to sustainable economic opportunities for Oakland residents. Additionally, federally funded capital projects, such as new construction and acquisition and rehabilitation provide work opportunities for local contractors. Homeowner- occupied rehabilitation funds help homeowners avoid reverse mortgages and other high-cost financing options that could jeopardize a homeowner’s home equity and financial health.
Environmental: An environmental review process is required for all HUD-assisted projects to ensure that the proposed project does not negatively impact the surrounding environment and that the property site itself will not have an adverse environmental or health effect on end- users. Preservation activities in particular rehabilitation programs protect residents from lead- paint hazards, substandard building conditions, and often improve the energy efficient of homes.
Race & Equity: Indicators of housing instability, such as homelessness, eviction, housing quality, displacement migration patterns, etc. disproportionately impact Black Oaklanders.
The HCD Department uses the City’s racial equity impact analysis process to ensure that programs, policies, and practices drive a reduction in those disparities.
ACTION REQUESTED OF THE CITY COUNCIL
Staff Recommends That The City Council Conduct A Public Hearing And Upon Conclusion Receive The City Of Oakland’s Consolidated Annual Performance & Evaluation Report For Fiscal Year 2024/25 Community Development Block Grant, HOME Investment Partnerships, Housing Opportunities For Persons With AIDS, And Emergency Solutions Grants To Be Submitted To The United States Department Of Housing & Urban Development
CityCouncil
September 15,2025
Jestin D. Johnson, City Administrator
Subject: 2024/25 Consolidated Annual Performance & Evaluation Report Date: August 19, 2025
For questions regarding this report, please contact Hugo Ramirez, Deputy Director of Community Development, at [email protected].
Respectfully submitted,
Emily Weinstein
Director,
Department of Housing & Community
Development
Reviewed by:
Hugo Ramirez, Deputy Director
Department of Housing &
Community Development
Prepared by:
Mark Henderson
Program Coordinator
Community Development &
Engagement Unit
Attachment (1)
A. FY25-26 CAPER Exhibit A (Demographics)
Exhibit A: Demographic Data Tables
Fiscal Year 2024/25 Consolidated Annual
Performance & Evaluation Report (CAPER)
Table 1 – Race & Ethnicity of Households Served by Funding Source
RACE CDBG ESG HOPWA TOTAL
White 268 87 159 514
Black or African American 864 494 200 1,558
Asian 41 12 16 69
American Indian or Alaska Native 9 5 7 21
Native Hawaiian or Other Pacific Islander 9 13 5 27
American Indian or Alaska Native and White 7 0 2 9
Asian and White 0 0 0 0
Black or African American and White 25 0 7 32
American Indian or Alaska Native and Black or African American 21 0 7 28 Other multiple race combinations greater than one percent 140 153 23 313 Unknown/Refused 3,500* 1 151 3,652
Total 4,884 765 577 6,223
ETHNICITY CDBG ESG HOPWA TOTAL
Hispanic 223 60 97 380
Not Hispanic 1161 704 480 2,345
Unknown/Refused 3,500* 1 0 2,334
Total 4,884 765 577 5,059
* Race & ethnicity data collection is not required for program participation in CDBG-funded food distribution program
Table 2 - FY 2024/25 CAPER –Geographic Data
Agency/Program
Total Households Served by Council District
Client Goal
Total served YTD
% of Client Goal
CD District 1
CD District 2
CD District 3
CD District 4
CD District 5
CD District 6
CD District 7
Community Development Block Grant
(CDBG)
Abode 80 65 81% 3 11 12 23 9 7
Bay Area Community
Services (BACS) 199 234 118% 9 46 34 12 38 39 51
East Bay Community
Law Center (EBCLC) 168 171 102% 10 23 51 17 26 21 34
East Oakland
Community Project
(EOCP)
168 634 377% 634
Economic Workforce
Development –
Neighborhood Business
Assistance Program
100 159 159% 15 13 10 5 37 24 22
Main Street Launch 138 175 126% 35 29 50 14 23 15 9
Code Compliance
Relocation Program 20 9 45% 8 1
Residential Lending –
Access Improvement &
Lead Safe Housing Paint
Program
15 46 307% 4 4 9 3 3 12 12
Residential Lending –
Minor Home Repair 60 38 63% 2 1 5 27 6
Total 4,240 4,873 76 126 179 52 156 781 141
Emergency Solutions
Grant (ESG)
Overnight Shelter 475
Rapid Rehousing
Assistance 711
Transitional Housing 278
Homeless Encampment
Outreach & Services 12,767
Total 14,231
Housing
Opportunities for
Persons With AIDS
(HOPWA)
Housing Subsidy 0
Short Term Rental
Mortgage Utility
Assistance
121
Housing Placement 31
Total 152
Table 3 – Select FY 2024/25 Formula Grant Award Totals
Community Development Block Grant
(CDBG)
Abode $246,772
Bay Area Community Services (BACS) $604,818
East Bay Community Law Center (EBCLC) $261,476
East Oakland Community Project (EOCP) $158,244
Economic & Workforce Development Dept. – Neighborhood Business Assistance Program $310,858 Main Street Launch $300,000
Code Compliance Relocation Program $690,000
Residential Lending Services (owner-occupied rehabilitation programs) $1,000,000 Emergency Solutions
Grant (ESG)
East Oakland Community Project, Crossroads (PATH) $141,147 First Place for Youth Oakland PATH Rehousing Initiative (OPRI) $165,488 St. Mary's Center (PATH) $115,433
Building Futures with Women and Children (PATH) $175,600 Housing Opportunities for
Persons With AIDS
(HOPWA)
Alameda County – Facility-Based Operating Costs $975,000 City of Oakland HSD Community Homelessness Services- Short-Term Rent, Mortgage & Utilities, Support Services, & Tenant-Based Rental Assistance
$685,000
Contra Costa County – Short Term Rent, Mortgage & Utilities, Permanent Housing Placement, Information & Referral, Support Services
$1,084,615
East Bay Innovations – Permanent Housing Placement $42,000 East Oakland Community Project – Permanent Housing Placement, Information & Referral, Support Services
$351,250
Eden I & R – Information & Referral $215,000
Resources for Community Development – Support Services $54,400