Housing and Homelessness Strategy and Implementation Toolkit

City of Thornton
2025-2029 Consolidated Plan and
the 2025 Annual Action Plan
Executive Summary
ES-05 Executive Summary - 24 CFR 91.200(c), 91.220(b)
1. Introduction
The City of Thornton, Colorado, receives an annual entitlement allocation of Community Development
Block Grant (CDBG) program funds from the U.S. Department of Housing and Urban Development
(HUD). The federal CDBG Program provides annual grants on a formula basis to entitlement cities and
urban counties to help develop viable communities by providing safe, decent, and affordable housing;
suitable living environments; and expanding economic opportunities, primarily for low- and moderate-
income (LMI) residents.
To receive these funds, the City is required by HUD to complete a Consolidated Plan every five years
with the first year Annual Action Plan (AAP) included. as required by HUD. This Consolidated Plan and
AAP serves as a planning document meeting the federal government statutory requirements in 24 CFR
91.200-91.230, for preparing a Consolidated Plan and guiding the use of CDBG funding based on
applications to HUD. The first year of the Consolidated Plan, Program Year (PY) 2025 AAP, and
subsequent AAPs, are subsets of the Strategic Plan addressing the overall goals of the plan for each
program year of the five-year Consolidated Plan. PY 2025 begins on October 1, 2025, and ends on
September 30, 2026.
Housing affordability and availability remains the most significant issues for LMI households in Thornton.
After the severe housing price increases over the previous few years, the housing market in Thornton is
now experiencing reduced housing price increases. Data from the Colorado Association of REALTORS
indicates that from January 2024 to January 2025, the median sales price of single-family homes
increased only slightly from $520,000 to $522,500 in Adams County - an increase of 0.5%. Thornton
reported a higher 3% increase from $530,000 to $546,000 in the same timeframe, according to Redfin.
However, county-wide Townhouses and Condos experienced a pronounced increase from $365,000 to
$390,000 or 6.8% in the same period. Thornton's median sales for townhomes outpaced the county and
jumped from $390,000 in January 2024 to $424,000 in February 2025, an 8.7% increase.
Average Rent costs (all sizes combined) have also been affected this past year, with current rents in
Thornton According to Zillow, the current median market rent for all bedrooms and all property types in
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Thornton is $2,708. The month-over-month change is - $107 (July 2024 to August 2024) . In contrast,
before the pandemic, rent costs averaged just under $1,600 (Source: Yardi Matrix). For perspective, a
single person earning minimum wage brings home approximately $31,000, which is $2,583 a month
(Source: 2025 PAY CALC Order). Fortunately, rent increases have stabilized in the past year but remain
very high. Due to these circumstances, the City identified the development and preservation of
affordable housing as high-priority needs, especially for LMI residents.
Adams County HOME Consortium
The City is a member of the Adams County HOME Consortium and receives HOME Investment
Partnerships funds through the HOME Consortium (HOME). The HOME program is the largest federal
block grant to state and local governments designed exclusively to create affordable housing for LMI
households. The grant funds a wide range of activities including building, buying, and/or rehabilitating
affordable housing for rent or homeownership, or providing direct rental assistance. Through an
Intergovernmental Agreement (IGA), the City receives HOME Program funding on an annual basis. These
funds are not programmed in the city's AAPs, as the City is not a direct recipient of HOME funds from
HUD. As the direct recipient, Adams County is in charge of programming the Consortium's HOME funds.
The City has completed an abbreviated ConPlan. As a member of the Adams County HOME Consortium,
the County's ConPlan completes the remaining information - Needs Assessment and Market Analysis
which includes Thornton.
2. Summary of the objectives and outcomes identified in the Plan Needs Assessment
Overview
The City has developed its strategic plan based on an analysis of the data presented in the Needs
Assessment, the Market Analysis of the Consolidated Plan, and the community participation and
stakeholder consultation process. Through these efforts, the City has identified four (4) priority needs
and associated goals to address these needs. Over the 5-Year plan period, the City will work to
accomplish the following outcomes, which are listed by Priority Needs.
Priority Need: Affordable Housing
Goal - 1A Affordable Housing Development and Rehabilitation
Provide single-family, owner-occupied housing rehabilitation activities to help preserve the housing
stock of LMI households through home repairs, weatherization programs, accessibility and safety
improvements, energy and water efficiency improvements, code compliance, and exterior painting of
the homes. This goal also includes assisting with the public facility needs for new affordable housing
construction or rehabilitation as permitted by CDBG and HOME regulations.
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Priority Need: Public Services
Goal - 2A Provide Services for LMI & Homeless residents
Provide public services to support and improve the quality of life for LMI individuals and the
homeless. Homeless needs will be addressed through Thornton's Homeless Outreach Team (HOT) and
other supportive non-profit services which provide life-saving supplies, resource navigation, and limited
case management to people experiencing homelessness in Thornton. Other identified priority LMI
needs for public services include crime victim assistance, in-home assistance, homelessness prevention,
nutrition and food access, health services, mental health services, employment, and educational
support.
Priority Need: Public Facilities & Infrastructure
Goal - 3A Expand/Improve Public Facilities & Infrastructure
The City desires to expand and enhance public facilities and infrastructure in low- and moderate-income
(LMI) areas. Improvements may include American Disabilities Act (ADA) accessibility upgrades, sidewalk
and connectivity enhancements, safety measures, parks and recreation facilities, public safety buildings,
stormwater and drainage systems, roads, and streetlights. Additionally, the City will support public
facility improvements that enable the development of new affordable housing, in accordance with CDBG
and HOME regulations
Priority Need: Effective Program Management
Goal - 4A Effective Program Management
Effective program management will include general administration of HUD grant programs, monitoring
subrecipients, and keeping strict grant-based accounting. Comprehensive planning requirements will
include the development of the next four years of AAPs, an evaluation of the performance of the
programs through annual reports, program planning activities, needed studies and assessments, fair
housing and equal opportunity promotion, and meeting citizen participation requirements.
3. Evaluation of past performance
The City is building upon previous experience and success in utilizing HUD funding for housing
rehabilitation, public services, and public facility and infrastructure improvements. In addition to the
five-year Consolidated Plan and the Annual Action Plans, the City must complete a Consolidated Annual
Performance and Evaluation Report (CAPER) to maintain compliance with each grant received. To date,
the City of Thornton has successfully completed all regulatory reporting requirements and has
effectively reported on the accomplishments of previous Annual Action Plans for the planned
expenditures.
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During the previous 2020-2024 Consolidated Plan, the City enacted its goal to support affordable
housing by funding the Help for Homes program, the Code Compliance Assistance Program (CodeCAP),
and other critical home rehabilitation services for LMI households. Additionally, the City funded public
facility and infrastructure improvements, including the McAllister Park design project, Fire Department
equipment, ADA sidewalk designs and construction, water detention areas, and improvements to Loma
Linda Park, which provided new playground equipment, ADA-compliant pathways, and other upgrades.
These projects directly benefited residents in LMI neighborhoods by improving accessibility,
neighborhood safety, and public spaces.
In PY 2020, LMI services were supported through partnerships with nonprofit organizations and other
City departments to provide essential services to domestic violence survivors and homelessness
prevention. In 2021, the HOT was established with CDBG funds. Each year since, the city's public service
funds were 100% allocated to HOT. HOT expanded its efforts in direct outreach, limited case
management, and support services and essential supply delivery to individuals experiencing
homelessness.
In 2020, the City incorporated the CDBG-CV funding through the CARES Act and quickly allocated the
$977,876 to 15 different public service programs. These subrecipients assisted LMI residents with
emergency rental, mortgage, and utility assistance programs, mental health programs, domestic
violence victim support, food and meal deliveries, senior support, drug and alcohol treatment during the
COVID-19 pandemic. Approximately 5,500 LMI residents were directly assisted by these extra funds.
CAPER REPORTING
The CAPER evaluates progress toward both the five-year and one-year goals established for HUD
entitlement grants, including CDBG. The City's performance is reviewed and summarized annually in the
CAPER report. A summary of accomplishments organized by priority for PY 2023, is reported from the
most recent CAPER is below.
Housing:
The City of Thornton addressed affordable housing needs during Program Year 2023. The Help for
Homes (H4H) program provided free home repairs to 11 LMI households, ensuring critical safety and
accessibility improvements. The Code Compliance Assistance Program (CodeCAP), launched in August
2023, served 26 households, addressing property code compliance issues to alleviate unsafe living
conditions and serious fines and fees from the city. Additionally, the Paint-A-Thon (PAT) program
assisted 10 households by providing exterior home painting services for seniors and residents with
disabilities. Roof-top solar installation was also provided to 4 LMI homes through the GRID Alternatives
program. These programs collectively contributed to the rehabilitation of 51 owner-occupied homes
during PY 2023, achieving 75% of the annual goal. The city fell short of its program year target of 68
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homes primarily due to over estimating the number of H4H projects that could be completed per
month, the slow down and eventual withdrawal of GRID Alternatives as a subrecipient, and the time
needed to reallocate GRID's CDBG funding to H4H.
Public Facilities and Improvements:
The City invested CDBG funds to improve public facilities and infrastructure in LMI neighborhoods. The
McAllister Park Design project progressed through engineering and community engagement phases,
benefiting an estimated 5,525 residents. The Loma Linda Park Improvement project was completed,
providing ADA-compliant sidewalks, new playground equipment, and accessibility enhancements for
715 residents. Additionally, the Sidewalk Improvement project at 100th Ave & Riverdale Rd completed
its engineering and design stage and in 2025 has progressed to the contractor procurement stage. This
project provides tremendously safer pedestrian access for 6,100 residents. In total, public facility and
infrastructure projects benefited 12,444 residents, exceeding the annual goal by 1,011.71%. With 65,362
residents assisted to date, the City has already exceeded its five-year goal in this category.
Public Services:
The City allocated CDBG funds to support public service programs that assist vulnerable residents.
Thornton's Homeless Outreach Team provided case management, hygiene supplies, and referrals to
individuals experiencing homelessness. Additionally, the City supported specialized programs such as
subsistence payments and homelessness prevention, with a total of 1,302 individuals benefiting from
public service initiatives. These programs exceeded the annual goal of 500 individuals served, reaching
260.4% of the target. Thornton is on track to exceed its five-year public service goals by continuing to
collaborate with nonprofit partners and expand outreach efforts.
Homelessness:
The City of Thornton strengthened its efforts to address homelessness through targeted initiatives and
expanded outreach. The HOT engaged with 762 unique (new) individuals, providing 6,922 direct
referrals for housing, shelter, food, and other critical services. The Severe Weather Activation Program
(SWAP) provided hotel vouchers to 550 individuals during extreme weather conditions. The city opened
the Margaret Carpenter Recreation Center to provide a warm location for the unhoused to escape the
elements overnight. These were open during the evening and overnight hours. The Community Reach
Center opened a 10-bed youth shelter for 12 - 17-year-olds needing emergency shelter. Additional
services include medical, therapy, case management and family reunification. HOT's homelessness
prevention services reached 565 individuals, surpassing the annual target by 226%. The City remains on
track to meet its five-year homelessness assistance goals through continued investments in outreach,
emergency services, and housing stabilization efforts.
CARES Act Accomplishments:
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CDBG-CV funds were used to address the continued negative impacts of the COVID-19 pandemic.
Almost Home, Inc. provided emergency rent, mortgage, and utility assistance to six households with
CDBG-CV funding. In total, the City expended $938,217 in CDBG-CV funds, leaving a remaining balance
of $39,659 (4%), which will be utilized in Program Year 2024 for urgent homelessness prevention and
housing stability due to COVID-19.
The City of Thornton is committed to achieving its five-year housing and community development goals.
Through strategic partnerships, efficient resource allocation, and ongoing investments in public services,
staff, and infrastructure, the City continues to support its most vulnerable residents and foster long-
term community resilience.
4. Summary of citizen participation process and consultation process
The City has adopted its HUD approved Citizen Participation Plan (CPP) as per 24 CFR 91.105, which sets
forth the City's policies and procedures for citizen participation in the Consolidated Plan and 2025 AAP.
The CPP provides guidance for public notices for the various stages of Consolidated Plan development,
public hearings, and the public review of the proposed plans and reports. The public input meetings for
the 2024 Housing Needs Assessment (HNA) are also mentioned because they covered the housing and
community development needs and goals discussed in the Consolidated Plan. Details of the City's
outreach efforts are provided below:
ALL WARDS COMMUNITY MEETING: On August 8, 2024, the city hosted a Community Meeting. As part
of the event CDBG staff hosted a voting game whereby participants identified their perceived
community needs, especially those related to housing, for the Housing Needs Assessment.
CITY RESIDENT SURVEY: A total of 89 residents responded to the Community Survey. Results of the
survey are summarized in the PR-15 and the Citizen Participation Attachment.
CITY STAKEHOLDER SURVEY: A total of 29 City stakeholders responded to the Stakeholder Survey.
Results of the survey are summarized in the PR-15 and the Citizen Participation Attachment.
HNA PUBLIC INPUT MEETINGS: Three Public Input Meetings were held on July 30, 2024, August 7, 2024,
and November 18, 2024, respectively, to discuss community needs, especially those related to housing,
for the 2024 HNA. They were held at the Parks, Recreation & Community Programs Department -
Community Connections Division at 9471 Dorothy Blvd., Thornton, CO, 80229, noticed, signed and
promoted in English and Spanish. Four residents attended the July PIM, two stakeholders attended the
August PIM, and four residents attended the November PIM for a total of 10 attendees. None of the
attendees needed the available Spanish interpreter.
GROUP STAKEHOLDER MEETINGS: During the month September 2024, CDBG staff conducted group
stakeholder meetings on the topics of Homelessness Prevention, Seniors, Trama Victims, Health &
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Nutrition, and Residents with Disabilities. Twenty individuals attended in total representing 13 non-
profit and faith-based organizations.
CITY OF THORNTON STAFF INTERVIEWS: Twenty staff members were interviewed during the months of
July and August of 2024. The department and division leaders in Parks, Recreation, and Community
Programing, Infrastructure, Community Development, Fire, Police, Homeless Outreach Team, Building,
Active Adult Center, Planning, Victim Advocates, Long Range Planning, Code Compliance, and Economic
Development were interviewed using the same set of questions.
PUBLIC INPUT MEETING: A Public Input Meeting was held on May 1, 2025, at the Parks, Recreation &
Community Programs Department - Community Connections Division at 9471 Dorothy Blvd., Thornton,
CO, 80229. This meeting was not attended by any residents.
PUBLIC HEARING: A public hearing was held on July 22, 2025, at 7:00 PM, during the City Council
meeting in the Council Chambers, 9500 Civic Center Drive, Thornton, CO 80229. City Council meetings
could also be viewed online at https://www.thorntonco.gov/government/city-council/Pages/council-
meetings.aspx. Guidance on audience participation is provided at the link above.
Summary of Citizen Participation Process and consultation process continued
PUBLIC COMMENT PERIOD: The City held a public comment period from June 13, 2025 to July 14, 2025,
at Community Connections and on the city website at www.gocot.net/cdbg. Written comments could
be returned to the address above or emailed to cdbg@ThorntonCO.gov.
Details of citizen participation outreach for the Consolidated Plan and PY 2025 AAP are also located in
the PR-15 and attachments.
5. Summary of public comments
All Wards Community Meeting. Fourteen participants ranked the community's chief housing problems
as (1) the shortage of accessible homes for seniors and people with disabilities, (2) escalating land and
construction costs, and (3) limited housing diversity. They favored three corresponding solutions:
expanding down-payment assistance programs, encouraging a broader mix of unit sizes and price
points, and pursuing grant or foundation funding for new affordable developments.
HNA PUBLIC INPUT MEETINGS: Residents described "shady" landlords, HOA boards, and mobile-home
operators that raise fees without infrastructure upgrades or accountability. They also noted how difficult
it is to locate reliable information on affordable vacancies and asked the City to host a real-time
database, especially for seniors. Aging in place, inadequate transit for non-drivers, a lack of housing
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types such as tiny homes, and high land prices were cited as critical obstacles; participants urged greater
public engagement to address the current housing and homelessness crises.
CITY RESIDENT SURVEY: A total of 89 residents completed the community survey. Feedback included
concerns about the high housing costs, including high property taxes, and the need for additional
affordable housing options. Housing needs include increased supply of single-family homes and senior
housing.
CITY STAKEHOLDER SURVEY: A total of 29 City stakeholders completed the Stakeholder Survey.
Feedback included the importance of safe, decent, affordable housing, homeless support, and housing
for special needs groups such as seniors. Housing affordability and availability were consistently cited as
the most important concerns.
FOCUS GROUP STAKEHOLDER MEETINGS: Discussions on homelessness prevention highlighted that
rising taxes, rents, and utilities are pushing many-particularly seniors-into housing instability, while
some landlords continue to discriminate by income. Senior advocates pointed to isolation,
transportation gaps, and minor-repair needs, recommending home-sharing, cottage-style villages, and
dedicated service navigators. Service providers working with trauma victims called for trauma-informed
property management, pet-friendly policies, and additional case managers. Disability advocates
underscored the near-absence of accessible, affordable units and asked for a centralized vacancy
registry and quicker safety-net responses. Family- and youth-oriented groups stressed the burden of
high entry costs and documentation hurdles, proposing realtor-supported education teams,
multigenerational housing models, and expanded job training.
CITY OF THORNTON STAFF INTERVIEWS: Internal interviews reinforced these themes, citing rapid cost
inflation, cumbersome development processes, and a severe shortage of senior and assisted-living units
as primary barriers. Staff suggested land banking, vertical or mixed-use construction, creation of shelters
and transitional housing, accessory dwelling units, down-payment assistance, stronger incentives for
affordable developments, and better inter-departmental coordination to address the City's widening
housing gaps.
PUBLIC INPUT MEETING: No attendees
PUBLIC COMMENT PERIOD: There were no comments made the comment period.
PUBLIC HEARING: There were no comments made at the public hearing.
All comments and views were accepted at the public hearing and public comment period review
process. A summary of outreach efforts is in the PR-15 Participation.
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6. Summary of comments or views not accepted and the reasons for not accepting them
All comments or views were accepted at the public hearing and public comment period.
7. Summary
The City is committed to providing a meaningful way for residents to communicate their needs. The
Community Connections Division serves as the primary resource for residents seeking housing, human
services, and community development assistance. Additionally, the Thornton Assistance Funds (TAF)
Advisory Board annually provides recommendations on approximately $300,000 in City grant allocations
for nonprofit organizations that assist residents in the areas of housing, food, health, and human
services. The City engages with local stakeholders, service providers, and community members to help
guide program priorities and funding decisions.
City staff regularly conduct public meetings, Ward meetings, outreach events, and consultations to
provide residents and stakeholders with an avenue to communicate with City officials regarding
community needs. The City will continue to update residents on the progress of HUD-funded programs
and seek public input to ensure funding decisions align with community priorities.
The Consolidated Plan is comprised of several sections, including an assessment of the current housing
and community development needs of the area, information on the citizen participation process, a
Strategic Plan, and the 2025 AAP. The Strategic Plan is an essential component of the Consolidated Plan,
outlining the objectives and outcomes necessary to meet the identified needs. The 2025 AAP is the first
of five annual action plans the city will develop, which will detail how federal resources will be allocated
each year to achieve the objectives identified in the Consolidated Plan. Additionally, each AAP will be
evaluated to see the City's performance in meeting the Consolidated Plan's objectives. At the end of
each program year, the City will complete a Consolidated Annual Performance and Evaluation Review
(CAPER).
Not only are the priority needs in the City identified through the needs assessment and market analysis,
but the City also determines these needs through a citizen participation process, which includes
engagement with community nonprofit organizations and with members of the community. As a
member of the Adams County HOME Consortium, additional analysis on Comprehensive Housing
Affordability Strategy (CHAS) data, Public Housing Authority (PHA) needs, and homelessness trends can
be found in the Adams County HOME Consortium Consolidated Plan.
Primary data sources for the Consolidated Plan include 2008-2012 & 2018-2022 American Community
Survey (ACS) 5-Year Estimates, Longitudinal Employer-Household Dynamics (LEHD), the Bureau of Labor
Statistics (BLS), HUD Low/Mod Income Summary Data and local data sources. Data for map analysis
came from the 2018-2022 ACS.
Executive Order Compliance
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Thornton agrees that its compliance in all respects with all applicable Federal anti-discrimination laws is
material to the U.S. Government's payment decisions for purposes of section 3729(b)(4) of title 31,
United States Code.
Thornton will not operate any programs that violate any applicable Federal anti-discrimination laws,
including Title VI of the Civil Rights Act of 1964.
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