Ending Veteran Homelessness in Tulsa, Oklahoma: Policy Analysis

Introduction

Once widely known as the "Oil Capital of the World," Tulsa is a cosmopolitan city famous for its historic art deco architecture that eschews the cow-town image characterizing many Oklahoma cities, including the state capital, Oklahoma City. With a population of just over 400,000 people, Tulsa has a sizeable veteran population, but far too many of these national heroes become homeless and remain so after their discharge from the U.S. armed forces. Although precise figures are unavailable, what is known with certainty is that many homeless veterans also suffer from substance abuse and mental health disorders that complicate their treatment by the VA and the social services agencies tasked with helping them (Smelson et al., 2022).

Against this backdrop, identifying opportunities to reduce the prevalence of homelessness among the veteran population in Tulsa represents an important and timely enterprise. The purpose of this paper is to provide a clear definition of this problem, including its full scope and likely antecedents, as well as a description of the relevant stakeholders and actors involved. In addition, the paper identifies and analyzes potential alternatives to current interventional strategies for homeless veterans. Finally, the paper concludes with evidence-based recommendations for addressing this problem and the rationale supporting them, to assist veterans in general and those living in Tulsa in particular.

According to the official definition provided by the U.S. government, homelessness occurs when people "lack a fixed, regular, and adequate nighttime residence, and if they sleep in a shelter designated for temporary living accommodations or in places not designated for human habitation" (The law and homelessness, 2022, para. 2). In reality, however, this definition fails to account for many people who are either already homeless or who could easily become homeless. An expanded definition should also consider families that "double up" in a single residence, individuals temporarily residing with family members or friends, and those whose current housing situation would become untenable if they missed a paycheck or two (The law and homelessness, 2022).

Definition of the Problem

At present, the primary causes of homelessness in the United States are, in descending order: (1) an overall lack of affordable housing, (2) unemployment, (3) poverty, and (4) low wages (Homelessness in America: Overview of Data and Causes, 2019). While precise figures are unavailable, it is estimated that between 2.5 and 3.5 million Americans are homeless at any given point in time — an estimate that may be especially low given the adverse effects of the ongoing COVID-19 pandemic and the housing crisis that emerged in recent years. Moreover, the nation's veteran population has not been immune to homelessness. Recent estimates suggest that approximately 11.3% of homeless adults in the United States are veterans, making their representation among the homeless population twice that of the general population (Homelessness in America: Overview of Data and Causes, 2019).

While veterans are eligible for the same social services provided to the general public through community-based resources, they are also eligible for social and financial services provided by the Department of Veterans Affairs (VA), the nation's largest healthcare provider. The VA emphasizes that it is committed to ending veteran homelessness using a three-fold strategy:

1. Conducting coordinated outreach to proactively seek out veterans in need of assistance;

2. Connecting homeless and at-risk veterans with housing solutions, health care, community employment services, and other required supports; and

Identification of Relevant Stakeholders and Actors

3. Collaborating with federal, state, and local agencies; employers; housing providers; faith-based and community nonprofits; and others to expand employment and affordable housing options for veterans exiting homelessness (VA Homeless Programs, 2022, para. 4).

Although the VA has a longstanding commitment to ending homelessness among the nation's veteran population (Smelson et al., 2022), the fact that homeless veterans continue to appear on the nation's streets in general, and those of Tulsa in particular, indicates that this population remains at particularly high risk. While the veterans themselves are the primary stakeholders in this problem, homeless veterans also affect numerous others, discussed further below.

The hundreds of homeless veterans who wander Tulsa's streets each day — searching for food, a cool place to rest in summer, a warm place in winter, and a safe place to sleep each night — are the primary stakeholders in this issue. Identifying the exact number of homeless veterans in Tulsa is not possible, since individuals come and go from the community, and even the most rigorous census surveys fail to locate every person. Nevertheless, the VA makes a concerted effort to count homeless veterans in Tulsa every ten years pursuant to the mandates of the U.S. Department of Housing and Urban Development (HUD), which determines how much federal funding should be allocated to assist this vulnerable population. Veterans are counted at homeless shelters in Tulsa, and outreach teams also mobilize to search for every possible veteran within the city's borders, including wooded areas, under bridges, at levees, and at gas stations where the homeless are known to congregate.

During these outreach census programs, VA staff not only count veterans — they also provide them with sleeping bags, food, and socks, which are among the most-requested items at the nation's homeless shelters (Schaeffer, 2020). The VA's outreach programs operate year-round, meaning teams know the areas where homeless veterans tend to stay intimately, and the findings of these surveys are as accurate as circumstances allow.

The most recent census conducted in January 2019 found approximately 1,200 homeless people in Tulsa — an increase from 842 in 2008. In sharp contrast to national trends showing disproportionate veteran representation among the homeless, the homeless veteran population in Tulsa actually decreased to just under 100 in January 2019, down from 145 in 2008 (Schaeffer, 2020). These promising figures, however, do not account for the serious adverse effects of the COVID-19 pandemic or the devastating impact of the housing crisis since January 2019. It is reasonable to posit that there are more homeless veterans in Tulsa today than in 2019 — perhaps far more — but even updated estimates will not be available for some time, as the most recent survey was completed in January 2022 (VA Homeless Programs, 2022).

During the nationwide census of homeless veterans in January 2020, shortly after the onset of the COVID-19 pandemic, the count stood at approximately 37,252 veterans experiencing homelessness, compared to 37,085 in January 2019 (VA Homeless Programs, 2022). While national figures remain concerning, it is clear that the VA in partnership with HUD and community leaders in Tulsa has made meaningful progress in reducing the homeless veteran population in recent years.

It is also reasonable to suggest that all Americans are tertiary stakeholders when it comes to homeless veterans. Potential military recruits observe how the country treats its veterans, and veterans themselves sacrificed greatly to serve in wartime and in peacetime, protecting the lives and wellbeing of everyone in the country. Therefore, beyond legally mandated health care for eligible veterans, a social contract exists that requires the provision of support services following discharge from active duty. More specifically, the citizens of Oklahoma in general — and those of Tulsa and its larger suburbs, including Broken Arrow, Bixby, Jenks, and several others that form the million-plus population of the Tulsa metropolitan area — are also secondary stakeholders with respect to this problem.