HomeMy WebLinkAbout2022-07-26 Planning PACKET
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ASHLAND PLANNING COMMISSION
STUDY SESSIONMEETING
July26, 2022
AGENDA
https://zoom.us/j/92835663785
I.CALL TO ORDER:
7:00 PMvia Zoom
II.ANNOUNCEMENTS
III.PUBLIC FORUM
IV.DISCUSSION ITEMS
A.Ashland Housing Production Strategy Update –ECONorthwest Presentation
V.ADJOURNMENT
In compliance with the Americans with Disabilities Act, if you need special assistance to participate in this meeting, please
contact the Community Development office at 541-488-5305 (TTY phone is 1-800-735-2900). Notification 48 hours prior to the
meeting will enable the City to make reasonable arrangements to ensure accessibility to the meeting (28 CFR 35.102-35.104
ADA Title 1).
Memo
DATE:July 26, 2022
TO:AshlandPlanning Commission
FROM:Brandon Goldman, Planning Manager
RE:Ashland Housing Production StrategyUpdate
The City of Ashland isin the process ofdeveloping aHousing Production Strategy (HPS) toidentify
and prioritizea variety of strategies and actionsfor accommodating needed housingwithin our
community.This effort is supported by a grant from the State Department of Land Conservation and
Development (DLCD) with consultant services provided by ECONorthwest. At the end of this year-
long planning effort, the final Housing Production Strategy report will identify a set of specific actions
the city will undertake over an 8-year period to promote the development needed housing. Such actions
may include land use ordinance amendments, zoning changes, financial incentives, and other actions
within the City’s purview.Completion of a Housing Production Strategy, following adoption of a
Housing Capacity Analysis, is a new requirement adopted by the Oregon Legislaturethrough passage of
House Bill 2003in 2019.
Ashland’s Housing Production Strategy is the third step in comprehensive a four-step process to support
a variety of housing options.
Buildable Lands Inventory
Step 1:, an inventory of the amount of vacant and partially vacant
land within the City and Urban Growth Boundary that can accommodate new housing
development. Completed December 2019
Housing Capacity Analysis
Step 2:, a report examining projected housing needs over the next
20 years in consideration of household demographics, housing costs, and expected population
growth. Completed May 2021.
Housing Production Strategy
Step 3:,(2022-2023)
Step 4: Adoption and Implementation of the identified strategiesover an 8 year period (2023-
2031).
The final HPSreport will address the following for each strategy, based on Consultant’s evaluation,
input from staff, and feedback gathered through public outreach and engagement:
Adescriptionofthestrategy;
Identifiedhousingneedbeingfulfilled(tenureandincome)andanalysisoftheincomeand
demographicpopulationsthatwillreceivebenefitand/orburdenfromthestrategy,
includinglow-incomecommunities,communitiesofcolor,andothercommunitiesthat
havebeendiscriminatedagainst,accordingtofairhousinglaws;
Approximatemagnitudeofimpact,including(wherepossible/applicable)anestimateof
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thenumberofhousingunitsthatmaybecreated,andthetimeframeoverwhichthe
strategyisexpectedtoimpactneededhousing;
Timelineforadoptionandimplementationof the strategy;
Actionsnecessaryforthelocalgovernmentandotherstakeholderstotakeinorderto
implementthestrategy;and
Opportunities,constraints,ornegativeexternalitiesassociatedwithadoptionofthestrategy.
To begin evaluationof the variety of Actions the City could consider for inclusion in the HPS, the City
assembled an Ad-Hoc Housing Production Strategy Advisory Committee. The Planning Commission is
represented on this committee by CommissionersKerry KenCarin and Lisa Verner.This committee has
presently met toreview availablestrategies, and will provide recommendation on which strategies
should be included in the final draft of the HPS. The timeline graphic below shows where the project is
currently in the development process as well as projecting the futurepublic meetings:
Included in the packet materials for discussion at this evening’sstudy session you will find two
documents. The first document is entitled Contextualizing Housing Needs in Ashland,prepared by
ECONorthwest,whichprovidesa description of the local housing needs that the Housing Production
Strategy is intended to address,existing housing policies Ashlandhas already implemented, and key
housing market and demographic data affecting housing affordability. The second document is a July
1, 2022 Memorandum entitled Housing Strategies (Actions) for Further Discussionthat was presented to
th
the HPS Advisory Committeeon July 11. This document lists the strategies under consideration for
inclusion in the HPS,and provides a general assessment of their potential impact. As the list of
strategies to be included in the draft HPS are further limited, greater detail will be developed including
implementation stepsand an implementation timeline.
DEPT. OF COMMUNITY DEVELOPMENTTel: 541-488-5305
20 E. Main StreetFax: 541-552-2050
Ashland, Oregon 97520TTY: 800-735-2900
www.ashland.or.us
Page 3of 3
Attachments
Contextualizing Housing Needs in Ashland
Housing Strategies(Actions) for Further Discussion
Online Archiveof meetings:www.ashland.or.us/hps
DEPT. OF COMMUNITY DEVELOPMENTTel: 541-488-5305
20 E. Main StreetFax: 541-552-2050
Ashland, Oregon 97520TTY: 800-735-2900
www.ashland.or.us
DATE: March 28, 2022
TO: City of Ashland
FROM: ECONorthwest, Beth Goodman and Nicole Underwood
SUBJECT:Contextualizing Housing Needs in Ashland
The Ashland Housing Capacity Analysis (HCA) describes the housing needs of current and
future residents of Ashland based on some demographic and socioeconomic characteristics,
such as age and income. It does not provide detailed data about housing needs for other
demographic characteristics, such as race, ethnicity, people with a disability, or people
experiencing homelessness.
This memorandum provides additional information about the housing needs by income, age,
race, ethnicity, disability and for people experiencing homelessness. It uses standard sources of
information from the U.S. Census. It adds information from other sources, such as Oregon’s
Housing and Community Services Department, the United States Department of Housing and
Urban Development, Costar, and the City of Ashland.
This memorandum presents a description of the housing needs that the Housing Production
Strategy is intended to address, as well as existing policies to address Ashland’s housing needs.
Stakeholder Engagement
Since 2017, the City of Ashland has undertaken several strategic planning document updates
and policy changes which required public engagement processes and community input.
Housing Element Update – From 2017 to 2019 the City undertook an update of the
Housing Element of the Comprehensive Plan. This process included a community forum
and an online questionnaire as well as several public hearings.
5-Year Consolidated Plan – In 2020, the City updated the 5-year Consolidated Plan for
the use of Community Development Block Grant funds. This included an online
questionnaire, individual stakeholder interviews and three public hearings.
Annual Rent Burden Public Forums – Since 2018 the City has been holding annual rent
burden public forums in accordance with HB 4006.
Housing Capacity Analysis – From 2020-2021 the City worked with a consultant to
complete an updated Housing Capacity Analysis which involved a subcommittee
comprised of Ashland citizens, developers, land use professionals, and other community
stakeholders, as well as several public hearings.
Middle Housing Code Update – In 2021, the City developed new code language to
establish a middle housing code in accordance with HB2001. This process took place
between 2020-2021 and included several public hearings and a Development Round
Table meeting.
ECONorthwest | Portland | Seattle | Los Angeles | Eugene | Bend | Boise | econw.com 1
Affordable Housing Program resolution and ordinance review and update – Lastly,
the City undertook a review and update of the resolution and ordinance that governs
the City of Ashland Affordable Housing Program. This process included targeted public
meetings with homeowners and affordable and private market housing developers as
well as several public hearings before the Housing and Human Services Commission,
the Planning Commission, and the City Council.
Summary of Public Feedback Themes from Recent Community Engagement Activities (The
bulleted items below include issues regularly raised by members of the public regarding needed housing
and suggested policies and actions the City could explore to assist in the production of needed housing.)
Increase density, rezone land to ensure more multi-family zoned land/higher density
zoned land, promote infill over sprawl, but only where appropriate (not in historic
districts or next to existing single-family neighborhoods).
City Planning policies should allow for more flexibility in housing type and design.
More innovative alternative housing types should be allowed such as container houses,
tiny houses, micro cottages. Similarly, more diversity of development and household
types should be allowed, co-ops, co-housing, tiny house villages, mixed
use/commercial/residential, multi-generational households/seniors renting rooms in
their homes to students, and Single Room Occupancy/boarding house type households.
Need larger houses/units to attract families with children, but also need smaller units for
the existing population of seniors and students.
Need for more affordable housing for both rental and ownership. This is a highly
prioritized need. Cost and availability of housing are consistently identified as problem
areas and are prioritized for policy solutions/city support.
The City should support alignment with the Ashland Climate and Energy Action Plan
(CEAP) policies. Parks, outdoor recreation, and preservation of and access to natural
areas are a high priority for the Ashland community. Eco-friendly/green housing
developments, less reliance on cars, more alternative transportation friendly
developments are highly prioritized.
City should reduce parking requirements, plan for more innovative, alternative
transportation options.
Cost of public infrastructure is a barrier to development.
City processes can be a barrier to development. The City needs to provide more
information/resources to help the public learn about City incentives and processes for
housing development/ARU’s/annexations.
ECONorthwest 2
Housing Needs Addressed by the Housing Production Strategy
The housing market produces some types of housing without need for public intervention, such
as development of single-family detached housing. The HPS focuses on ensuring that housing is
produced for housing that may require public intervention, to ensure future housing
production. This section describes the housing needs that are the focus of the HPS: development
of income-restricted and middle-income affordable housing and housing to meet the special
needs of specific groups. For the most part, information about Ashland’s housing needs are
based on analysis from the Ashland’s Housing Capacity Analysis report (May 2021), as well as on
additional analysis of unmet housing needs for underserved groups (based on analysis in
Appendix A).
The Housing Production Strategy is intended develop policies and actions that address
Ashland’s housing needs. Throughout this report, we discuss housing affordability based on
Median Family Income (MFI) that are defined by the U.S. Department of Housing and Urban
Services (HUD) for Jackson County for a family of four people in 2021. The terms used to
describe housing affordability by income group are:
Extremely Low Income: Less than 30% MFI or $21,900 or less for a family of four and can
or less
afford monthly housing costs of $550
1
Very-Low Income: 30% to 50% of MFI or $21,900 to $36,600 for a family of four and can
afford monthly housing costs of $550 to $920
Low Income: 50% to 80% of MFI or $36,600 to $58,500 for a family of four and can afford
monthly housing costs of $920 to $1,460
Middle Income: 80% to 120% of MFI or $58,500 to $87,700 for a family of four and can
afford monthly housing costs of $1,460 to $2,190
High Income: 120% of MFI or more $87,700 or more for a family of four and can afford
monthly housing costs of $2,190 or more.
Financially attainable housing costs for households across the income spectrum in Jackson
County are identified in Exhibit 1. For example, a household earning median family income in
Jackson County (about $73,100 per year) can afford a monthly rent of about $1,830 or a home
2
themselves.
roughly valued between $256,000 and $292,000 without cost burdening
3
These estimates of affordable housing costs assume that the household spends no more than 30% of their gross
1
income on housing costs, a standard set by the U.S. Department of Housing and Urban Services to measure housing
affordability.
Note that Median Family Income for the region is different than Median Household Income (MHI) for Ashland (see
2
Exhibit 15). MFI is determined by HUD for each metropolitan area and non-metropolitan county. It is adjusted by
family size – in that, 100% MFI is adjusted for a family of four.
A household is considered cost burdened if they spends more than 30% of their gross income on housing costs, a
3
standard set by the U.S. Department of Housing and Urban Services to measure housing affordability.
ECONorthwest 3
In Ashland, the median home sales price for November 2021-January
Fewer than one-quarter of
2022 was $549,900. A household would need to earn $140,000 (192% of
Ashland’s households have
income sufficient to
MFI for a family of four) to afford the median sales price of a home in
afford housing sales prices
Ashland, shown in Exhibit 36 in the appendix.
in Ashland. About one-
thirds of Ashland
households are unable to
Rent costs also pose a barrier to finding affordable housing for many
afford the average asking
households. A household would need to earn about $62,000 (85% of MFI
rent in Ashland without
for a family of four) to afford average asking rent for a 2-bedroom unit cost burden.
($1,550 per month) shown in Error! Reference source not found. in the
appendix.
Many residents in Ashland have incomes low enough that they cannot afford market-rate rents.
The reason for this is that the local housing market cannot produce income-restricted,
subsidized affordable housing (housing affordable at 60% or less of MFI) at sufficient levels –
and because it cannot often produce low income/workforce housing (housing affordable at 60%
to 80% of MFI) without subsidy, many households in Ashland are cost burdened. A household
is defined as cost burdened if their housing costs exceed 30% of their gross income.
Exhibit 1. Financially Attainable Housing, by Median Family Income (MFI) for Jackson County
(Medford-Ashland MSA) ($73,100), Ashland, 2021
Source: U.S. Department of Housing and Urban Development, Jackson County, 2021. Oregon Employment Department.
ECONorthwest 4
Exhibit 2 shows that 36% of Ashland’s households had incomes less than 50% of Median Family
Income (MFI) ($36,600) and cannot afford a two-bedroom apartment at Jackson County’s Fair
Market Rent (FMR) of $1,195 in 2022.
Exhibit 2 Share of Households by Median Family Income (MFI) for Jackson County ($73,100), for a
household of four, Ashland, 2021
Source: Analysis by ECONorthwest; U.S. Department of HUD, Jackson County, 2021. U.S. Census Bureau, 2015-2019 ACS Table 19001.
The actual income thresholds vary in MFI based on household size. For example, a household of
one person with an income of 80% of MFI has an income of $40,940 compared to the income for
a household of four ($58,480) or a household of six people ($67,855). The housing needs for a
single person are also different than those of a household of four people or six people.
Throughout this document, we use the income for a household of four to illustrate housing
needs but MFI varies by household size, as does the size and other characteristics of housing
need.
ECONorthwest 5
Exhibit 3 Median Family Income and housing affordability by Household size, Jackson County
(Medford-Ashland MSA), 2021
Source: Analysis by ECONorthwest; U.S. Department of HUD, JacksonCounty, 2021.
ECONorthwest 6
The housing needs in Exhibit 4 are the basis for the policies and actions presented in Chapter 3.
Exhibit 4. Ashland’s Housing Needs that are Addressed in the HPS
Description of Need Ashland’s Housing Need
New housing to
858
The HCA projects growth of new dwelling units in Ashland between 2021
accommodate
and 2041.
population growth
Housing Need by Income
Existing households
2,044
Extremely Low Income(< 30% MFI): households (21%of households)
with income under
1,528
Very-Low Income (30-50% MFI): households (15% of households)
120% MFI
4
1,467
Low Income (50-80% MFI): households (15% of households)
1,655
Middle-income (80-120% MFI): households (17% of households)
Newhouseholds with 180
Extremely Low Income: households (21% of new households)
6
income under 120%
129
households (15% of new households)
Very-Low Income:
MFI
5
129
households (15% of new households)
Low Income:
146
Middle-income: households (17% of new households)
Housing Needs for At a minimum, Ashland has housing need for:
Extremely-Low (<
309
new households earning less than 50% of MFI
30% MFI) and Very-
3,572
Ashland also has existing households earning less than 50%
Low Income (30-50%
of MFI
MFI) Households
These households can afford rents (including basic utility costs) of not
$920
more than per month.
A household would need to earn $62,000 to afford asking rents for
a two-bedroom unit of about $1,550 (about 85% of MFI for a family
of four). These households cannot afford this rent.
Meeting the housing needs of these households will require a
combination of preserving existing income-restricted affordable
housing and development of new income-restricted affordable housing.
Development of income-restricted affordable housing typically requires
extensive subsidy, with funding from state and federal sources, in
addition to any support from the city and other partners.
The HPS does not anticipate building new units for all existing households in Ashland that have problems affording
4
housing costs. But the HPS does propose actions to stabilize the housing costs of existing lower income households
and may result in development of housing that is more affordable to these households, enabling them to stay in
Ashland. Information about lower income households and cost burden for existing households illustrates the existing
housing need in Ashland.
This assumes that future residents of Ashland have an income distribution that is the same as existing residents.
5
Given the fact that incomes have grown at a relatively slow pace over the last two decades in comparison to housing
costs (especially home sales prices) this seems like a conservative assumption about the future affordability of
housing.
The Ashland HCA document used MFI from 2020 and this document uses 2021 MFI. As a result the number of new
6
households are slightly different by MFI category in Exhibit 4 than in Exhibit 69 in the Ashland HCA. The differences
are minor and are based on growth of 858 new households, as forecast in the Ashland HCA.
ECONorthwest 7
Housing Needs for At a minimum, Ashland has housing need for:
Low Income (50-80% 129
new households earning between 50% and 80% of MFI
MFI) Households
1,467
Ashland also has existing households earning between 50%
and 80% of MFI
These households can afford rents (including basic utility costs) of
$920$1,460
between and per month.
A household would need to earn $62,000 to afford asking rents for a
two-bedroom unit of about $1,550 (about 85% of MFI for a family of
four). These households cannot afford this rent.
Meeting the housing needs of these households will require a
combination of preserving existing “naturally occurring affordable
housing” and development of new income-restricted affordable
housing in this price range. While these households can afford the
average asking rent, some households in this income range may need
rent assistance, such as a Housing Choice Voucher. Development of
new housing affordable in this price range generally requires some
subsidy or public support, such as tax exemptions, government
funding (typically federal, state, or county, with some level of local
contribution being critical) reduced systems development charges, low-
interest loans, philanthropic contributions, or other financial support.
Funding for rental housing affordable at 60% to 80% of MFI is scarce.
Homeownership opportunities for this income range will likely be
related to housing developed by nonprofit organizations, possibly with
some subsidy, such as through a community land trust.
Housing Needs for At a minimum, Ashland has housing need for:
Middle Income (80-146
new households earning between 80% and 120% of MFI
120% MFI)
1,655
Ashland also has existing households earning between 80%
Households
and 120% of MFI
These households can afford rents (including basic utility costs) of
$1,460$2,190
between to per month.
These households can afford rents higher than the asking rents for
a two-bedroom unit of about $1,550.
However, households in this range cannot afford the median home
sales price in Ashland of $549,000.
Some households with income in the higher part of this range are
likely to live in rental housing and some may be homeowners,
especially people who have owned their home for years.
Households with incomes in this income range are likely need
assistance in attaining homeownership.
Meeting the housing needs of these households will be a combination
of development of rental housing (without subsidy from local or state
government) and lower cost housing for homeownership. Some
homeownership opportunities for this income range will likely be
related to housing developed by nonprofit organizations, possible with
some subsidy, such as land banking or a community land trust.
ECONorthwest 8
Housing Need of Specific Populations
Housing Needs of POC are more likely to rent their homes and to live in multifamily housing
People of Color (POC) (except Asian) than the overall average in Ashland. POC in general are cost
burdened more frequently than the average household. However, in Ashland
the difference in cost burden rates for POC is smaller than in many of Oregon’s
communities. Part of the reason for this may be the small population of POC in
Ashland.
7
7%
About of Ashland’s population identified as non-Hispanic Black, Asian,
7%
two or more races, or another race. About of Ashland’s population
identified as Latino (any race). Meeting the housing needs of these households
will require addressing the affordability issues, discussed above, as well as
ensuring that people of color have access to housing without discrimination.
This will require increasing awareness of Fair Housing rules for property
owners and managers, tenants, City decision makers, and City staff. It will also
require careful decision making to change policies that have created barriers to
access housing by people of color.
Housing Need of Disabilities include those that are visible, such as ambulatory or vision
People with disabilities, and those that are not readily apparent, such as self-care,
Disabilities independent living, or cognitive disabilities. Other conditions may require
special accommodations, such as disabling diseases or mental health
conditions.
10%
The Census reports that about of Ashland’s population have one or more
disability, such as ambulatory, vision, hearing, cognitive, self-care, or
independent living disabilities. Meeting the housing needs of these households
will require addressing the affordability issues, discussed above, as well as
ensuring that people with disabilities have access to housing that addresses
their disability and that they have access to housing without discrimination.
This will require increasing awareness of Fair Housing rules for property
owners and managers, tenants, City decision makers, and City staff. It will also
require approaches that encourage development of housing with specialized
design standards to accommodate special needs.
Housing Need of The number of people experiencing homelessness in Ashland is not clearly
People Experiencing known. In part, this number is not known because people experiencing
Homelessness homelessness may move between neighboring cities.
831
There are approximately people experiencing homelessness in Jackson
125
students in the Ashland School District
County in 2021. In addition,
experienced homelessness. Meeting the housing needs of people experiencing
homelessness ranges from emergency assistance (including rent and utility
assistance), permanent supportive housing (including supportive housing with
services), and improved access to an affordable unit (as discussed above).
People of Color includes Black, Latino, American Indian or Alaska Native, Asian, Native Hawaiian and Pacific
7
Islanders, and people of another or multiple races. These categories were combined due to limited data availability.
ECONorthwest 9
Existing Policies to Address Ashland’s Housing Needs
This section lists existing measures that Ashland’s has implemented to support housing
development and presents preliminary draft measures (or policies or strategies) that may be
included in the HPS.
The City of Ashland has the following housing measures (or policies or strategies) currently in
place to address Ashland housing needs.
Zoning
Action/StrategyDescription
Allow Middle Housing Ashland allows Duplexes and Accessory Residential Units wherever a single-family
types (Duplexes, dwelling unit is permitted per the requirements of HB2001. Code amendments were
Cottage housing, enacted in June 2021.
Townhomes, Row
Ashland adopted cottage housing ordinance in November 2017 which allows cottage
Houses, and Tri- and
housing developments within single family zones. Following adoption Ashland has
Quad-Plexes) in low
approved a number of cottage housing developments.
density zones
Allow Middle Housing Ashland’s cottage housing ordinance allows cottage housing developments in the R-
types in medium 1-5 and R-1-7.5 zones on lots that are greater than 1.5 times the minimum lot size
density zones for the zone. Cottage Housing developments can be between 3 to 12 units
depending on lot size.
Tri- and Quad-Plexes Townhomes, Row Houses, Stacked Townhouses are permissible
in Ashland’s Medium Density zone (R-2), and Townhomes are further permitted in
the R-1-3.5 zone or other residential zones (R-1-5, R-1-7.5, R-1-10) through planned
unit developments.
Allow Stacked Stacked townhomes, condominiums, garden apartments and larger-scale
Townhouses, Garden apartments are permitted in R-2 and R-3 zones. However due to small lot sizes of
Apartments, and vacant/partially vacant properties available in these zones, larger scale apartments
larger-scale are not often achievable given existing lot sizes, height limitations, and density
Apartments in high allowances.
density zones
Allow Live-Work Live-work housing and mixed-development would be a permitted use within
housing or Mixed-use commercial zones although not specifically listed in the allowable use table for either
housing in commercial or residential zones. Home Occupations are special permitted in all
commercial zones zoning designations except for industrial (M-1).
Current Action(s): A private developer is presently working on a legislative proposal
to amend the Croman Mill Masterplan which would include live-work housing and
mixed-use development. The amended masterplan is intended to focus on providing
more flexibility in providing both residential and commercial uses than does the
existing zoning.
Allow small or “tiny” Small, or tiny, units that are built on a foundation are permitted in Ashland and have
homes been developed as ARUs. Tiny homes on wheels would have to be located in an RV
park, and there are thus limited opportunities for their placement in Ashland.
Current Action: As an emergency provision in response to the Almeda fire, RVs,
campers, and trailers can be located on residential properties in Ashland as
temporary shelter provided, they are connected to sanitation and utilities. The
declaration of emergency remains in effect, and this allowance will end upon the
declaration no longer being in effect.
ECONorthwest 10
Allow Small Planned Unit Developments in all SFR and MFR zones will allow for small lots (up to
Residential Lots zero lot line and no minimum lot size) at allowable Densities for the zone.
Additionally, cottage housing developments in SFR zones (R-1-5 & R-1-7.5) allow lots
smaller than the minimum lot size for the zone in conjunction with common open
space. Ashland’s R-1-3.5 zone has a minimum lot size of 3,500 SF.
Current Action: Middle Housing legislation (State) will allow expedited land divisions
of middle housing (Duplexes) to enable independent lots smaller than the minimum
lot sizes within the zone (July 2022)
Mandate Maximum Ashland does not have a maximum lot size or minimum density requirement in
Lot Sizes Single Family Residential zones, although market development typically maximizes
the number of units provided.
In cases where lot sizes are proposed that exceed the minimum lot size it is often in
response to physical or environmental constraints that limit the buildable portion of
a site (e.g. steep slopes, floodplains, wetlands and riparian areas)
Mandate Minimum Minimum Density requirements (80% base density) are in place in multifamily
Residential Densities residential zones (R-2 and R-3) on lots large enough to accommodate 3 or more
units.
Minimum densities and are required of any residential annexation equal to 90%
Base Density exclusive of environmentally constrained lands.
Increase Allowable Ashland recently removed the maximum residential densities within the Transit
Residential Densities Triangle Overlay area (Ashland Street, portions of Siskiyou Blvd, and Tolman Creek
Road). A form-based approach is used where limitations on height, lot coverage, and
setback requirements create the 3D envelope in which units can be developed. This
allows for many smaller units within the same space when compared to a base
density approach which can produce fewer, large apartments or condominiums.
Current Action: Draft Ordinance removing maximum residential densities in E-1, C-1
and C-1-D zones for mixed-use development has been reviewed and recommended
for approval by the Planning Commission. The City Council is expected to review the
draft ordinance in May-June 2022
Allow Clustered Ashland permits Planned Unit Developments in SFR and MFR zones which allows
Residential clustering of units and transfer of density from naturally constrained areas to the
Development developable portion of the site.
Re-designate or Rezoning land in Ashland is not a common practice. The City has implemented a
rezone land for number of master planning Efforts (Normal Neighborhood, North Mountain Plan,
housing Croman Mill District) which have identified lands to be developed as multifamily or
mixed-use development. Individual property owners have requested and received
rezoning of their properties to multifamily zones for specific development proposals.
However, there has not been an effort to examine vacant low density and
employment properties within the City Limits as candidates for a comprehensive plan
and zone change to increase the supply of multifamily zoned properties.
Current Action(s): A Draft Ordinance which would allow an increased allowance for
ground floor residential in employment zoned lands (E-1, C-1) for mixed-use
development has been reviewed and recommended for approval by the Planning
Commission. The City Council is expected to review the draft ordinance in May-June
2022.
A private developer is presently working on a legislative proposal to amend the
Croman Mill Masterplan which would include rezoning the district to allow for a
variety of housing types on lands currently zoned for commercial, employment, and
industrial uses.
Transit Triangle Implements recommendations of an infill strategy to promote more housing within
Overlay an area surrounding the bus route in the southeastern part of Ashland that circulates
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(Ordinances 3166, on Ashland St., Tolman Creek Rd., and Siskiyou Blvd. The approved Ordinance
3167,3168) creates a Zoning Overlay, known as the Transit Triangle, that allows for a reduced
amount of required commercial or employment uses from 65% to 35% of the ground
(adopted: December
floor in mixed-use buildings, a reduced parking requirement for small units,
2020)
elimination of housing density maximums, and a requirement to provide rental
housing in exchange for utilizing the optional Transit Triangle Overlay provisions.
Middle Housing Ordinance Amendments to the duplex and accessory residential unit (ARU)
Ordinance standards to meet the requirements of new state laws and administrative rules
amendments included in House Bill (HB) 2001 from the 80 Oregon Legislative Assembly, 2019
th
Regular Legislative Session. The primary changes to the land use code for duplexes
(Ordinance 3199)
are that duplexes are permitted in all residential zones including the single-family
(adopted 6/2021)
zones, are required to have two on-site parking spaces, and the approval process
requires a building permit prior to construction or conversion of an existing structure.
The primary changes to the land use code for ARUs are that ARUs do not require on-
site parking spaces and the approval process requires a building permit prior to
construction or conversion of an existing structure
Cottage Housing The Cottage Housing Ordinance adopted allows cottage housing in single family
Standards (Ordinance residential zones (R-1-5, R-1-7.5, and NN-1-5 ) and established the following
3147)provisions:
A minimum of 3, and a maximum of 12, cottages can be provided in a
(adopted 11/2017)
cottage housing development depending on lot size.
Cottages shall be no larger than 1000sq.ft., and at least 75% of the cottages
shall be less than 800sq.ft.
The parking requirements for cottage housing units was reduced to be as follows:
Units less than 800 sq. ft. - 1 space/unit; Units greater than 800 square feet and
less than 1000 square feet -1.5 spaces/unit.
Reduce Regulatory Impediments
Action/Strategy Description
Reduced Parking Ashland provides parking reductions for small units city-wide (one space per unit for
Requirements units 500 SF or less). Within the Transit Triangle Overlay parking requirements are
reduced to one space per unit for units 800 SF or less. Cottages of 800 SF or less
within approved cottage housing developments require one space per unit.
Many parking credits may be allocated to projects including:
Off-street parking credit (1 for 1) for each on-street space along the
property’s frontage;
joint use and mixed-use development credits (sharing the same space
between a commercial use and residential use when demonstrated their
time of use is not in conflict);
off-site shared parking;
transit facilities credit;
Transportation Demand Management plan implementation.
Reduce Street Width Ashland has long implemented a “Narrow Street” standard through the Street
Standards Standards and Transportation System Plan. The narrow street and interconnected
grid pattern promoted by Ashland’s Street Standards both reduces development
costs associated with new streets in subdivisions and retains developable land are
for new housing.
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Encourage Mixed use projects are permitted and encouraged in Ashland Commercial, and
multifamily Employment zoned.
residential
Current Action(s): There is currently a draft ordinance under consideration that would
development in
increase the percentage of the ground floor that could be used as residential, as well
commercial zones
as elimination of residential density caps in such mixed -use projects. Ordinance
review expected in May 2022 in consideration of an economic study being
undertaken by ECONorthwest for the Ashland Chamber of Commerce.
Remove barriers to Ashland allows Accessory Residential Units (ARU or ADU) as an accessory use to
Development of single-family homes throughout the City with only Building Permit approval. Ashland
Accessory Dwelling further provides reduced SDCs for small units of less than 500 SF.
Units (ADUs) in single-
No additional parking is required for ARUs in Ashland, and there has never been any
family zones
owner-occupied requirement for the development of an ARU within the City.
Affordable Housing Provides a clear and predicable methodology for calculating maximum rent and
Standards (Ordinance purchase prices for covered affordable housing units; incentivizing affordable
3195)housing production through removing barriers to coordination between non-profit
and for-profit housing developers; achieving a mixture of unit types commensurate
(adopted 2020)
with community housing needs; and improving administrative efficiency and
effectiveness of the affordable housing program.
Financial Incentives
Action/Strategy Description
Reduced / Waived Programs that reduce various development fees as an incentive to induce qualifying
Building Permit fee, types of development or building features. Ashland waives or defers 100% of System
Planning fees, or Development Charges including Parks, Transportation, Water, Sewer and Storm
SDCs Water SDCs for qualified affordable housing units targeted to households earning
80% AMI or less and meeting the rent or sale requirements of the Ashland Housing
Program.
Ashland waives Community Development Fees, and Engineering Services fees for
voluntarily provided affordable housing units that remain affordable for 60 years.
Affordable ownership units that leave the program after 30 years, but less than 60
years, must repay a prorated amount of SDCs, Community Development Fees, and
Engineering Services Fees that were deferred.
Scaling SDCs to Unit Cities often charge a set SDC per dwelling unit, charging the same SDCs for large
Size single-family detached units as for small single-family detached units or accessory
dwelling units.
Ashland’s SDC methodology charges 50% of the calculated per unit SDC amount for
units less than 500sq.ft., and 75% of the calculated per unit SDC amount for units
between 500 and 800sq.ft. Thus, smaller units pay proportionately less SDCs for
Transportation, Parks, and Sewer and Water compared to full size units due to their
potential for smaller household sizes and commensurate impacts. Storm Water
SDCs are based on lot coverage and thus, smaller units have lower Storm Water
Provide Density Ashland has four density bonuses, one of which is for development of affordable
Bonuses to housing at higher densities and another for energy-efficient housing.
Developers
Affordable housing projects meeting eligibility requirements (including rental
or ownership housing affordable to households at 80% or less of AMI for a
min. of 30 years) receive a density bonus of two units for each affordable
unit provided, up to a max. of a 35% increase in density.
ECONorthwest 13
The max. density bonus inclusive of other bonuses (open space,
conservation) can be 60% over the base density within the zone.
Ashland’s Cottage Housing Development ordinance effectively provides a
doubling of the allowable density in the zone for provision of the small
cottage housing units.
Ashland classifies small units, of 500 SF or less, as only 75% of a unit for the
purposes of density calculations. A greater number of small units can be developed
within existing density allowances without employing a density bonus.
SDC Deferral Establishes the terms of affordability and recapture provisions for deferred fees and
Resolution charges for qualified affordable ownership units and affordable rental units that
(Resolution 2020-24) remain in the affordable housing program for at least 30 years.
(adopted 2020)
Vertical Housing Tax A Vertical Housing Development Zone has been established for designated
Credit Commercially zoned properties within the Transit Triangle to promote the
development of mixed-use projects that incorporate multiple floors of housing.
(adopted 12/2020)
SDC Financing Ashland amended the SDC collection of charge provisions in 2019 within the
Credits Ashland Municipal Code (4.20.090). These amendments allow SDCs to be paid over
a 10-year period in semi-annual installments.
A one-year installment loan shall not be subject to an annual interest rate provided
all charges are paid prior to the City’s issuance of the Certificate of Occupancy, time
of sale, or withing one year of when the charge was imposed, whichever comes first.
For installments that exceed one year, repayment interest on the unpaid balance at
annual rate of six percent (6%) is assessed for a five-year installment loan or seven
percent (7%) for a 10-year installment loan.
Financial resources
Action/Strategy Description
CDBGAshland is a direct Community Development Block Grant (CDBG) entitlement
community and receives HUD allocations of approx. $175,000/year. The 5-year
Consolidated Plan for use of CDBG funds prioritizes capital restricted CDBG funds
toward affordable housing and shelter and 15% of the award is typically provided to
service providers benefiting extremely low-income individuals.
General Fund Grants Ashland’s Affordable Housing Trust Fund is part of the General Fund and is used to
or Loans support the development of affordable housing. The City has not issued a bond to
generate revenue for affordable housing
Transient Lodging Tax Ashland collects Transient Occupancy Taxes (TOT), and applies them toward tourism
(TLT) related activities, economic development grants, and social service grants annually
in accordance to the restricted/unrestricted use parameters.
Fees or Other Ashland has an Affordable Housing Trust Fund, and the City Council has dedicated
Dedicated Revenue Marijuana Tax revenue (up to $100,000 annually) to support the AHTF through the
annual budgeting process.
Local Improvement Ashland has utilized LIDs for specific public improvement projects within the City,
District (LID) which has enabled a group of property owners to share the cost of a project or
infrastructural improvement on a pro-rata basis, where the City contributes the
majority of the costs of public improvements.
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Reimbursement Ashland’s municipal code (13.30.0150) was amended in 2010 to enable a
District developer to request the City establish a Reimbursement District to collect public
improvement costs that exceed those attributable to service the property owned by
the applicant.
Examples of excess costs include (but are not limited to): Full-street improvements
instead of half street improvements; Off-site sidewalks; Connection of street sections
for continuity; Extension of water lines; and Extension of sewer lines
To date, no Reimbursement District has been requested or formed.
Tax Exemption and Abatement
Action/Strategy Description
Vertical Housing Tax On December 15, 2020, Ashland passed a Vertical Housing Tax Credit and
Abatement (Locally designated Commercially zoned properties within the Transit Triangle overlay area as
Enabled and an eligible Vertical Housing Development Zone.
Managed)
Land, Acquisition, Lease, and Partnerships
Action/Strategy Description
Land Trusts A land trust is typically a nonprofit organization that owns land and sells or leases the
housing on the land to income-qualified buyers.
There are 49 units within Ashland that are operated under the land Trust model.
The Ashland Community Land Trust operated in Ashland from 2000 until 2015 when the
non-profit organization formally dissolved. And transferred their 18 affordable land trusted
housing units to ACCESS Inc.
Rogue Valley Community Development Corporation developed 31 units under the land
trust model which were transferred to NeighborWorks Umpqua for administration.
Public Land Ashland has dedicated surplus City property for the development of affordable housing or
Disposition sold surplus City property and directed the proceeds into the Ashland Housing Trust Fund
to support affordable housing development.
Current Action: The City of Ashland is presently evaluating the disposition of surplus
property, as well offering the air rights above a city owned parking lot to develop needed
housing. Affordable and workforce housing providers will be extended the opportunity to
respond to any Request for Proposals or purchase/sale solicitation efforts.
Parcel Parcel assembly involves the city’s ability to purchase lands for the purpose of land
Assembly aggregation or site assembly
The City has experience acquiring property for the future development of affordable
housing, having acquired 10 acres on Clay Street in cooperation with the Housing Authority
of Jackson County. Over the last decade this property provided a location for 120 units of
affordable housing.
The City typically relies on affordable housing partners to identify property for a proposed
development and has provided financial assistance (CDBG or Affordable Housing Trust
Fund (AHTF) to assist in acquisition. Most recently the City helped purchase a parcel using
AHTF for Columbia Care to develop a 30-unit affordable housing project
ECONorthwest 15
Requirements
Action/Strategy Description
Preserving Existing Ashland has an ordinance that regulates conversion of apartments into
Housing Supply condominiums, providing for preservation of multi-family rentals and providing for
longer notice periods prior to tenant displacement and relocation assistance can be
required.
Ashland’s demolition ordinance does regulate demolitions of housing, requiring
replacement dwellings be provide as part of the demolition proposal. Further, the
demolition of a house (over 45 years old) must demonstrate it is not financially
viable to retain the structure versus replacement, thus promoting renovation as
opposed to removal.
Inclusionary ZoningAshland requires a percentage of affordable housing (25% of the base density
exclusive of unbuildable areas) as part of residential annexations, as well as for zone
changes that increase residential density by 4 units or more:
https://ashland.municipal.codes/LandUse/18.5.8.050.G
Ashland has not implemented an inclusionary zoning ordinance for residential
developments within the City Limits for proposed structures containing 20 units or
more under the State’s 2020 inclusionary zoning legislation.
Condominium An Ordinance establishing that conversion of existing rental units into for-purchase
Conversion units (Condominium Conversions) requires that half of the units in an existing
Ordinance apartment complex are to be retained as rentals upon conversion in the event any
relief from current land use requirements is requested. In the event the applicant
chooses to convert all the apartments in a complex into for purchase housing, the
ordinance establishes a requirement that 25% of the total number of units
be designated as affordable ownership housing.
Other
Action/Strategy Description
Comprehensive Plan In 2019 the City of Ashland rewrote the entirety of the Housing Element of the
Housing Element Comprehensive Plan. The Housing Element sets forth general goals and policies
(adopted 2019) which provide guidance for Ashland’s growth and development over time. The
adopted Housing Element includes Goals and Policies under four main categories:
Diversity of Housing Types
Production and Preservation of Affordable Housing
Environmental Stewardship and Sustainability
Data, Inventories, Projections and Permitting
Tenant Rights An Ordinance establishing Chapter 10.115 of the AMC which provides for Tenant
(Ordinance 2939) Rights and relocation benefits for residents facing displacement due to
condominium conversions.
ECONorthwest 16
Appendix A: Contextualizing Ashland’s Housing Needs
This appendix provides information to contextualize Ashland’s housing needs. It provides an
understanding of the issues before solutions are proposed. This appendix draws its information
and findings from other planning efforts, described in the main report. Where appropriate, this
appendix also draws on information gathered through the City of Ashland’s past engagement
efforts with housing producers and consumers, including underrepresented communities.
As a part of providing context to better understand Ashland’s housing needs, this appendix
presents information about housing in Ashland for race, ethnicity, age, disability status, and
other characteristics of the community to understand disproportionate housing impacts on
different groups.
Demographic and Socio-Economic Characteristics Affecting Ashland’s
Housing Needs
This section describes unmet housing needs for people in Ashland by age, race and ethnicity,
disability, household size and composition, and household income.
Data Used in this Analysis
Throughout this analysis data is used from multiple well-recognized and reliable data sources.
One of the key sources for housing and household data is the U.S. Census. This report primarily
uses data from two Census sources:
8
The Decennial Census, which is completed every ten years and is a survey of all
households in the U.S. The Decennial Census is considered the best available data for
information such as demographics (e.g., number of people, age distribution, or ethnic or
racial composition), household characteristics (e.g., household size and composition),
and housing occupancy characteristics. As of 2020, the Decennial Census does not collect
more detailed household information, such as income, housing costs, housing
characteristics, and other important household information.
The American Community Survey (ACS), which is completed every year and is a
sample of households in the U.S. The ACS collects detailed information about
households, including demographics (e.g., number of people, age distribution, ethnic or
racial composition, country of origin, language spoken at home, and educational
It is worth commenting on the methods used for the American Community Survey. The American Community
8
Survey (ACS) is a national survey that uses continuous measurement methods. It uses a sample of about 3.54 million
households to produce annually updated estimates for the same small areas (census tracts and block groups)
formerly surveyed via the decennial census long-form sample. It is also important to keep in mind that all ACS data
are estimates that are subject to sample variability. This variability is referred to as “sampling error” and is expressed
as a band or “margin of error” (MOE) around the estimate.
This report uses Census and ACS data because, despite the inherent methodological limits, they represent the most
thorough and accurate data available to assess housing needs. We consider these limitations in making
interpretations of the data and have strived not to draw conclusions beyond the quality of the data.
ECONorthwest 17
attainment), household characteristics (e.g., household size and composition), housing
characteristics (e.g., type of housing unit, year unit built, or number of bedrooms),
housing costs (e.g., rent, mortgage, utility, and insurance), housing value, income, and
other characteristics.
This report primarily uses data from the 2014-2018 and 2015-2019 ACS for Ashland and
Where information is available and relevant, we report information from the
comparison areas.
9
2000 and 2010 Decennial Census. Among other data points noted throughout this analysis,
10
this report also includes data from Oregon’s Housing and Community Services Department, the
United States Department of Housing and Urban Development, Costar, and other sources.
Age of People in Ashland
Population growth is the primary driver of growth in housing. Between 2000 and 2021,
Ashland’s population grew by 2,032 people (10%) with most of the growth occurring between
2010 and 2021 where Ashland’s population grew by 1,476 new residents. Between 2000 and
2021, Ashland grew at a slower rate than Jackson County.
11
Growth in Ashland’s senior population, as well as other age cohorts, will continue to shape the
city’s housing needs. Seniors account for 31% of Ashland’s existing population and Jackson
County expects to have more than 18,458 more people over 60 years old by 2040 than in 2020.
12
Growth in the number of seniors will result in demand for housing types specific to seniors,
such as small and easy-to-maintain dwellings, assisted living facilities, or age-restricted
developments. Senior households will make a variety of housing choices, including remaining
in their homes as long as they are able, downsizing to smaller single-family homes (detached
and attached) or multifamily units, moving in with family, or moving into group housing (such
as assisted living facilities or nursing homes), as their health declines.
Five-year 2020 ACS data was not available when this report was compiled.
9
The 2020 Census was completed at the end of 2020. However, extenuating circumstances brought on by the
10
COVID-19 pandemic has led to some challenges with the data. The Census Bureau is undergoing a post-enumeration
survey to understand the accuracy of the 2020 Census which was not complete as of February 2022. The 2020
Decennial Census data is more limited than usual as a result of the COVID-19 pandemic.
Certified Population Estimates July 1, 2021, prepared by the Population Research Center at Portland State
11
University.
Final Population Forecast for Jackson County, prepared by the Population Research Center at Portland State
12
University, June 20, 2017.
ECONorthwest 18
50% of Ashland’s Exhibit 5. Population Distribution by Age, Ashland, Jackson County,
residents were between and Oregon, 2014-2018
the ages of 20 and 59 Source: U.S. Census Bureau, 2014-2018 ACS, Table B01001.
years.
Ashland had a larger
share of people over the
age of 60 than the county
and state and a smaller
share of residents under
the age of 20.
About 55% of Ashland’s Exhibit 6. Population by Age and Sex, Ashland, 2015–2019
population is female and Source: U.S. Census Bureau, 2014–2018 ACS, Table B01001.
45% is male.
Females account for a
larger share of population
among each age group,
with the largest different
for people 60 years and
older.
ECONorthwest 19
Between 2000 and Exhibit 7. Population Growth by Age, Ashland, 2000, 2014–2018
2018, the population Source: U.S. Census Bureau, 2000 Decennial Census Table P012 and 2014–2018
ACS, Table B01001.
aged 60 and older grew
B01001.
the most.
In this time, those aged
60 years and older grew
by 2,909 people (from
3,509 people in 2000 to
6,499 people in 2018).
Race and Ethnicity
Understanding the race and ethnicity characteristics in Ashland is important for
13
understanding housing needs because people of color often face discrimination when looking
for housing.
About 3,000 people Exhibit 8. Population by Race/Ethnicity, Ashland, 2015-2019
identify as a race or
Source: U.S. Census Bureau, 2015-2019 ACS, Table B03002.
ethnicity other than White,
non-Hispanic in Ashland.
Nearly 1,500 people
identify as Latino.
Not shown in the exhibit
are the 18,065 people
identifying as White, non-
Hispanic in Ashland.
The U.S. Census Bureau considers race and ethnicity as two distinct concepts. Latino is an ethnicity and not a race,
13
meaning individuals who identify as Latino may be of any race.
ECONorthwest 20
Residents who identify as Exhibit 9. Population Distribution by Race and Ethnicity, Ashland,
Latino (of any race) 2015-2019
account for 7% of Source: 2015-2019 ACS, Table B03002.
Ashland’s population. The
largest racial group in
Ashland besides White,
non-Hispanic are Two or
More Races accounting
for 3% of Ashland’s
population.
Not shown in the exhibit, is
about 86% of Ashland’s
population and 81% of the
Jackson County’s
population identifying as
White, non-Hispanic.
The share of Ashland’s Exhibit 10. Change in Population by Race and Ethnicity as a Percent
households that identified of the Total Population, Ashland, 2010 and 2015–2019
as Latino (of any race)
Source: U.S. Census Bureau, 2010 Decennial Census Table P005001, 2015–2019
ACS Table B03002.
increased from 1,028
people in 2010 to 1,494
people in 2018, consistent
with regional trends.
ECONorthwest 21
People with a Disability
People with one or more disabilities have special housing needs because they may need
housing that is physically accessible, housing that meets the needs of people with cognitive
disability, or housing with specialized services.
About 10% of Ashland’s population has one or more disabilities (about 2,100 people).
Exhibit 11. Persons Living with a Disability by Type and as a Percent of Total Population, Ashland,
Jackson County, Oregon, 2014-2018
Source: U.S. Census Bureau 2014-2018 ACS, Table S1810.
ECONorthwest 22
Household Size and Composition
Housing need varies by household size and composition. The housing needs of a single-person
household are different than those of a multi-generational family. On average, Ashland’s
households are smaller than Jackson County’s and Oregon’s.
Ashland’s average Exhibit 12. Average Household Size, Ashland, Jackson County,
household size was smaller Oregon, 2014-2018
than Jackson County’s and
Source: U.S. Census Bureau, 2014-2018 ACS 5-year estimate, Table B25010.
2.06 Persons 2.41 Persons 2.51 Persons
Oregon’s.
Ashland Jackson CountyOregon
Ashland had a larger share Exhibit 13. Household Size, Ashland, Jackson County, and Oregon,
of one-person households 2014-2018
compared to the County and Source: U.S. Census Bureau, 2014-2018 ACS 5-year estimate, Table B25010.
State.
ECONorthwest 23
Ashland has a larger share Exhibit 14. Household Composition, Ashland, Jackson County, and
of households with adults Oregon, 2015-2019
only that live alone or with Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table DP02.
others (non-couples) than
Jackson County and Oregon.
About 19% of Ashland’s
households have children,
compared with 25% of
Jackson County households
and 25% of Oregon
households.
ECONorthwest 24
Household Income
Income is one of the key determinants in housing choice and households’ ability to afford
housing. Income for residents living in Ashland was slightly lower than the Jackson County
median household income and the state’s median household income.
Median household income or median earning data is available for many groups of people, as
shown in the exhibits below, but is not available by sex at the city level. Median earnings is
available by sex for the U.S. as a whole. On average, median earnings for males is $52,989,
compared with $43,215 for femails, $9,774 less than males’ incomes on average.
14
Ashland’s median Exhibit 15. Median Household Income, Ashland, Jackson County,
household income Oregon, Comparison Cities, 2015-2019
($56,315) was similar to Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B25119.
the county’s, but about
$6,500 less than the
state’s median household
income (MHI).
U.S. Census Bureau, 2019 ACS 1-year estimate, Table S2002.
14
ECONorthwest 25
45% of all households in Exhibit 16. Household Income Distribution, Ashland, Jackson
Ashland earned less than County, Oregon, 2015-2019
$50,000, compared to Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19001.
47% of Jackson County
households, and 40% of
Oregon households.
Ashland has more
households earning
$75,000+ compared to
Jackson County.
Median household income Exhibit 17. Median Household Income by Household Size, Ashland,
in Ashland tends to Jackson County, 2015-2019
increase with household
Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19019
Note: Exhibit 17 displays median household income for households in Ashland, with
size and peaks with 5-
Jackson Countyinformation providing additional context. Data for 6- and 7-person
person households.
households was not available at the City level.
ECONorthwest 26
Median household income Exhibit 18. Median Household Income by Age, Ashland, Jackson
in Ashland increases with County, 2015-2019
age and peaks with for Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19049
households 45 to 64 years
old.
Forty-four percent of Exhibit 19. Household Income Distribution for Householders Aged
households with a head of 65 Years and Older, Ashland, 2015-2019
householder aged 65 or
Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19037.
older earned less than
$50,000 per year.
ECONorthwest 27
Latino and some other Exhibit 20. Median Household Income by Race and Ethnicity forthe
race alone households had Head of Household, Ashland, 2015-2019
incomes below the City’s Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table S1901.
Note: Black/African American, American Indian/Alaska Native, Asian, and two or
median.
more races were not included for Ashland due to high margins of error. Black bars
denote the potential upper and lower bound of the estimate using the margin of
error reported by the Census.
ECONorthwest 28
Exhibit 21 to Exhibit 23 compare household income for POC households with White non-
Hispanic households to show disparities in come levels. The income levels shown in these
graphs are the same used through out this report:
Extremely Low Income: Less than 30% MFI
Very-Low Income: 30% to 50% of MFI
Low Income: 50% to 80% of MFI
Middle Income: 80% to 120% of MFI
High Income: 120% of MFI or more
Households headed by a Exhibit 21. Household Income by Income Grouping POC, White non-
person of color were more Hispanic, and All Households, Ashland, 2014-2018
likely to be low income
Source: CHAS, Table 2.
Note: POC category includes Hispanic.
than the average
household in Ashland.
About 48% of households
headed by a person of color
had an income below 80%
median family income
compared to 37% of
households with a head of
household who identifies
as White.
ECONorthwest 29
Over 50% of all renter Exhibit 22. Renter Income by Income Grouping for POC, White non-
households make below Hispanic, and All Households, Ashland, 2014-2018
80% MFI (have low, very Source: CHAS, Table 2.
Note: POC category includes Hispanic.
low, or extremely low
income).
Sixty-two percent of POC
renter households are low
income compared to 54%
of White households.
Nearly 70% of POC Exhibit 23. Comparison by Tenure and Income POC, White non-
households are renters Hispanic, and All Households, Ashland, 2014-2018
compared to 44% of White Source: CHAS, Table 2.
Note: POC category includes Hispanic.
households.
Over 40% of POC
households that rent are
low income.
ECONorthwest 30
Housing Market Conditions and Trends
An analysis of housing market conditions and trends in Ashland provides insight into the
functioning of the local housing market. The housing types used in this analysis are consistent
with needed housing types as defined in ORS 197.303:
Single-family detached includes single-family detached units, manufactured homes on
lots and in mobile home parks, and accessory dwelling units.
Single-family attached is all structures with a common wall where each dwelling unit
occupies a separate lot, such as row houses or townhouses.
Multifamily is all attached structures (e.g., duplexes, tri-plexes, quad-plexes, and
structures with five or more units) other than single-family detached units,
manufactured units, or single-family attached units. This analysis groups multifamily
units into two sub-categories: (1) duplexes, triplexes, and quadplexes and (2)
multifamily units in buildings with five or more units per structure.
Existing Housing Stock
According to the 2014-2018 American Community Survey (ACS) from the U.S. Census, Ashland
had 10,705 dwelling units, an increase of 1,634 dwelling units from 2000. Most new units built
were single-family units.
About 66% of Ashland’s Exhibit 24. Housing Mix, Ashland, Jackson County, and Oregon,
housing stock was single-2014-2018
family detached housing. Source: U.S. Census Bureau, 2014-2018 ACS Table B25024.
Ashland had a larger share
of multifamily housing than
Jackson County.
ECONorthwest 31
Exhibit 25 shows the types of dwelling units by race and ethnicity in Ashland. It shows that
households that identified as Asian Alone were most likely to live in single-family detached
housing (78%). Households that identified as Black/African American Alone or Some other Race
Alone were most likely to live in multifamily housing. Of any race, about 41% of the households
that identified as Latino lived in single-family detached housing.
Exhibit 25 includes an indication of margin of error (the “whisker” lines shown in the graph).
The number of people of color in Ashland is relatively small. Exhibit 8 shows that groups like
Black or American Indian include a small number of people living in Ashland. Exhibit 25 shows
a high margin of error in the data for these groups, with either a long “whisker” line or an
asterisk (*) to indicate that the margin of error exceeds 50% (indicating high uncertainty about
the data).
The take-away point from Exhibit 25 is that some people of color (not including Asians) are
more likely to live in multifamily housing than the Ashland average in Exhibit 24, which shows
that 14% of households live in multifamily housing.
Exhibit 25 shows that some people of color (not including Asians) are more likely to live in
multifamily housing than the Ashland average (14%). While this exhibit reflects the types of
housing these groups currently live in and/or what they can currently afford to live in, it may
not reflect their housing preferences.
Exhibit 25. Occupied Housing Structure by Race and Ethnicity, Ashland, 2014-2018
Source: U.S. Census Bureau, 2014-2018 ACS Table B25032 A-I.
Note: Margin of errors marked with an asterisk (*) indicate the value exceeds 50%.
ECONorthwest 32
Housing Tenure
Housing tenure describes whether a dwelling is owner- or renter-occupied. In the 2014-2018
period, about 54% of Ashland’s housing stock was owner occupied and 46% was renter
occupied. Ashland’s homeownership rate increased by two percentage points since 2000.
Ashland had a lower Exhibit 26. Tenure, Occupied Units, Ashland, Jackson County, and
homeownership rate than Oregon, 2014-2018
Jackson County and
Source: U.S. Census Bureau, 2014-2018 ACS 5-Year Estimates, Table B24003.
Oregon.
The majority of Exhibit 27. Housing Units by Type and Tenure, Ashland, 2014-2018
homeowners (88%) lived in Source: U.S. Census Bureau, 2014-2018 ACS Table B25032.
single-family detached
housing.
In comparison, less than
half of Ashland’s renters
(40%) lived in single-family
detached housing; over half
lived in some form of
multifamily housing (51%).
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Ashland’s homeownership Exhibit 28. Housing Tenure by Age of the Head of Household,
rate increased with the age Ashland, 2015-2019
of the household.
Source: U.S. Census Bureau, 2015-2019 ACS Table B25007.
In Ashland, about 75% of
householders sixty years of
age or older owned their
homes.
Households of color are Exhibit 29. Tenure by Raceand by Ethnicity, Ashland,2014-2018
more likely to rent their Source: U.S. Census Bureau, 2014-2018 ACS Table B25003A-I. Black bars denote
the potential upper and lower bound of the estimate using the margin of error
housing than White
reported by the Census. Margin of errors marked with an asterisk (*) indicate the
households.
value exceeds 50%.
ECONorthwest 34
Rent-Restrictedand Emergency Housing
There are 10 government-assisted housing developments in Ashland with a total of 267
dwelling units. Over three quarters of the 267 dwelling units (79%) are units with one- or two-
bedrooms. About 26 of Ashland’s rent-restricted dwelling units (10%) were larger units with
three- or four-bedrooms.
Ashland had approximately 10,705 dwelling units in the 2014-2018 period. Rent-restricted units
accounted for about 2.5% of Ashland’s total housing stock.
In addition, the following government-assisted housing developments are under development
or recently completed in Ashland:
Snowberry Brook 2, which has 60 units of affordable housing
Rogue Ridge, which has 30 units of affordable housing
These new developments increase the affordable housing in Ashland by 90 units, bringing the
total to 357 units of affordable housing in Ashland.
Exhibit 30. Government-Assisted Housing, Ashland, 2019
Source: Oregon Health and Human Services, Affordable Housing Inventory in Oregon.
ECONorthwest 35
People experiencing homelessness in Ashland have access to 198 emergency shelter beds (84 of
which are voucher/seasonal/overflow beds), 272 transitional shelter beds, and 538 permanently
supportive housing beds.
Exhibit 31. Facilities and Housing Targeted to Households Experiencing Homelessness in Ashland,
2020
Source: Ashland’s 2020-2024 Consolidated Plan.
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Manufactured Homes
Manufactured homes provide a source of affordable housing in Ashland. They provide a form
of homeownership that can be made available to low- and moderate-income households. Cities
are required to plan for manufactured homes—both on lots and in parks (ORS 197.475-492).
Ashland has five manufactured home parks within its UGB. Within these parks, there are a total
of 255 spaces (of which 21 spaces were vacant as of November 2020).
Exhibit 11. Inventory of Mobile/Manufactured Home Parks, Ashland UGB, 2020
Source: Oregon Manufactured Dwelling Park Directory.
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PeopleExperiencing Homelessness
According to HUD’s 2021 Annual Homeless Assessment Report (AHAR), across the United
States, the number of people experiencing sheltered homelessness has been decreasing since
2015, but the drop between 2020 and 2021 was steeper than in recent years. It is likely that
15
some of this decline is due to COVID-related precautions that resulted in fewer beds available
(due to the need to have more space between beds). Other factors include people being
unwilling to use shelter beds due to health risks as well as eviction moratoria and stimulus
payments which may have prevented people from needing emergency shelter.
Pandemic-related disruptions to unsheltered homelessness counts made it difficult to determine
if this population is increasing or decreasing in communities. Many communities chose not to
conduct unsheltered PIT counts due to the risk of increasing COVID-19 transmission. While the
communities that conducted unsheltered counts seem to indicate that this population did not
increase, trends on unsheltered homelessness are known for only half of communities.
The Oregon Statewide Homelessness Estimates 2021 report from the Oregon Housing and
Community Services presented two counts in their report – estimated and reported counts. The
estimated counts were developed to address concerns that data limitations imposed by the
COVID-19 pandemic resulted in an undercount.This report uses the estimated count.
16
The following exhibits provide more localized estimates of homelessness in Ashland’s region.
Jackson County’s Point-in-Exhibit 32. Number of Persons Homeless, Jackson County, Point-
Time Homeless count in-Time Count, 2015, 2019, and 2020
Source: Oregon Housing and Community Services.
increased by 31% from
633 Persons 712 Persons 831 Persons
2017 to 2021.
201720192021
The U.S. Department of Housing and Urban Development (2021). The 2021 Annual Homeless Assessment Report
15
(AHAR) to Congress. Office of Community Planning and Development.
The reported count for sheltered homelessness is what was collected/reported while the estimated count is the largest
16
sheltered count reported during 2019-2021 in Josephine County. For unsheltered, the 2021 PIT count is not available
for all counties, so the report modeled it by adding the predicted 2019-2021 change, determined through analysis of
past trends and other homelessness data, to the 2019 PIT count.
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In 2021, an estimated 831 Exhibit 33. Point-in-Time Homelessness Estimates, Ashland,
people experienced Jackson County CoC, 2017-2021
homelessness in Jackson Source: Annual Homeless Assessment Report (AHAR) data.
Note: OHCS reported two counts in 2021 – estimated and reported counts. This report uses
County, the majority of
the estimated counts.
which were unsheltered.
Oregon Housing and
Community Services
presented two counts in
2021 – estimated and
reported counts. The
estimated counts were
developed to address
concerns that data
limitations imposed by the
COVID-19 pandemic
resulted in an undercount.
This report uses the
estimated count.
About 10% of people
experiencing homelessness
in Jackson County are in
Ashland.
From the 2018-19 school Exhibit 34. Students Homeless by Living Situation, Ashland School
year to the 2019-20 school District, 2018-2019 and 2019-2020
year, student homelessness
Source: McKinney Vento, Homeless Student Data.
decreased from 135
students to 125 students, a
decrease of 10 students.
Of the 125 students in
2019-20 experiencing
homelessness, 24 were
unaccompanied.
ECONorthwest 39
Based on the Oregon’s Exhibit 35. Estimate of Future Housing Need for People
Regional Housing Capacity Experiencing Homelessness, Ashland, 2020 to 2040
Analysis, Ashland will need Source: From the Report Implementing a Regional Housing Capacity Analysis Methodology in
Oregon: Approach, Results, and Initial Recommendations by ECONorthwest, August 2020.
about 310 housing units to
310 Dwelling Units16Dwelling Units
accommodate people
experiencing homelessness
in the 2020-2040 period.
New Units Needed for People Annual Average
Experiencing Homelessness (2020-
2040)
Housing Affordability Considerations
This section describes changes in sales prices, rents, and housing affordability in Ashland and a
comparison of geographies. Both housing sale prices and rents have increased steadily in
Ashland and the greater region over the last several years.
Housing Sale Prices
Ashland’s median home Exhibit 36. Median Home Sale Price, Ashland and Comparison
sales price was higher than Cities, November 2021 – January 2022
most other Southern Oregon Source: Southern Oregon Multiple Listing Service.
submarkets.
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The median price of a home Exhibit 37. Median Sales Price, Ashland, and Comparison Cities,
in Ashland increased 33% 2018 through 2022
from $415,000 in the Source: Southern Oregon Multiple Listing Service.
November 2018 to
$550,000 in November
2021.
Increases in other
comparable cities over the
same period ranged from
$80,000 (Northwest
Medford) to $146,000
(Phoenix).
ECONorthwest 41
Rental Costs
The median gross rent in Ashland was $1,085 in the 2015-2019 period, up from $582 in 2000.
However, additional research shows that asking rents for currently available rental properties
in Ashland in December 2020 were $1,145 to $1,560 for a 2-bedroom unit and $1,595 to $1,995
for a 3-bedroom unit.
17
According to the 2015-2019 Exhibit 38. Median Gross Rent, Ashland, Jackson County, Oregon,
ACS, the median rent in and Comparison Cities, 2015-2019
Ashland was similar to the
Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B25064.
median rent in Jackson
County as a whole.
Research for the HCA about
asking rents currently
available rental properties in
Ashland in December 2020
were $1,145 to $1,560 for a
2-bedroom unit and $1,595
to $1,995 for a 3-bedroom
unit.
Housing Cost Burden
Financially attainable housing costs for households across the income spectrum in Jackson
County are identified in Exhibit 39. For example, a household earning median family income in
Jackson County (about $73,100 per year)can afford a monthly rent of about $1,830 or a home
18
roughly valued between $256,000 and $292,000 without cost burdening themselves.
In Ashland, a household would need to earn $137,000 to $157,000 (187% to 215% of MFI for a
family of four) to afford the median sales price of a home in Ashland. A household would need
to earn about $62,000 (85% of MFI for a family of four) to afford the median gross rent ($1,550).
CMP Real Estate Services, Inc., December 2020.
17
Note that Median Family Income for the region is different than Median Household Income (MHI) for Ashland (see
18
Exhibit 15). MFI is determined by HUD for each metropolitan area and non-metropolitan county. It is adjusted by
family size – in that, 100% MFI is adjusted for a family of four. MHI is a more general term. MHI includes the income
of the householder and all other individuals 15 years old and over in the household, whether they are related to the
householder or not.
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Exhibit 39. Financially Attainable Housing, by Median Family Income (MFI) for Jackson County
($73,100), Ashland, 2021
Source: U.S. Department of Housing and Urban Development, Jackson County, 2021. Oregon Employment Department.
Because the local housing market cannot produce income-restricted, subsidized affordable
housing at sufficient levels – and because it cannot often produce middle income/workforce
housing without subsidy, many households in Ashland are cost burdened (as Exhibit 40
through Exhibit 45 show). A household is defined as cost burdened if their housing costs exceed
30% of their gross income. A household that spends 50% or more of their gross income on
housing costs is said to be severely cost burdened.
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Overall, about 46% of all Exhibit 40. Housing Cost Burden, Ashland, Jackson County, Oregon
households in Ashland were and Other Comparison Cities, 2014-2018
cost burdened. Source: U.S. Census Bureau, 2014-2018 ACS Tables B25091 and B25070.
Ashland had a higher share
of cost burdened
households compared to
Jackson County and the
state.
From 2000 to the 2014-Exhibit 41. Change in Housing Cost Burden, Ashland, 2000 to
2018 period, the number of 2014- 2018
cost-burdened and severely
Source: U.S. Census Bureau, 2000 Decennial Census, Tables H069 and H094 and
2014-2018 ACS Tables B25091 and B25070.
cost-burdened households
increased slightly.
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Renters were much more Exhibit 42. Housing Cost Burden by Tenure, Ashland, 2014-2018
likely to be cost burdened Source: U.S. Census Bureau, 2014-2018 ACS Tables B25091 and B25070.
than homeowners in
Ashland.
About 63% of Ashland’s
renters were cost burdened
or severely cost burdened,
compared to 31% of
homeowners.
About 35% of Ashland’s
renters were severely cost
burdened, meaning they
paid 50% or more of their
gross income on housing
costs.
Most households earning Exhibit 43. Cost Burdened Renter Households, by Household
less than $50k are cost Income, Ashland, 2015-2019
burdened.
Source: U.S. Census Bureau, 2015-2019 ACS Table B25074.
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The difference in rates of Exhibit 44. Cost Burdened for POC, White non-Hispanic, and All
cost burden for POC is Households, Ashland, 2014-2018
smaller than in many of Source: CHAS Table 9.
Oregon’s communities. Part
of the reason for this may
be the small population of
POC in Ashland.
The difference in rates of Exhibit 45. Cost Burdened by Tenure for POC, White non-Hispanic,
cost burden for POC, both and All Households, Ashland, 2014-2018
as renters and owners, is
Source: CHAS Table 9.
smaller than in many of
Oregon’s communities.
Part of the reason for this
may be the small population
of POC in Ashland.
ECONorthwest 46
Exhibit 46 to Exhibit 47 show cost burden in Oregon for renter households for seniors, people of
color, and people with disabilities.This information is not readily available for a city with a
19
population as small as Ashland, which is why we present statewide information. These exhibits
show that these groups experience cost burden at higher rates than the overall statewide
average.
Renters 65 years of age and Exhibit 46. Cost Burdened Renter Households, for People 65 Years
older were of Age and Older, Oregon, 2018
disproportionately rent
Source: S. Census, 2018 ACS 1-year PUMS Estimates. From the Report Implementing a
Regional Housing Needs Analysis Methodology in Oregon: Approach, Results, and Initial
burdened compared to the
Recommendations by ECONorthwest, August 2020.
state average.
About 60% of renters aged
65 years and older were rent
burdened, compared with
the statewide average of
48% of renters.
From the report Implementing a Regional Housing Needs Analysis Methodology in Oregon, prepared for Oregon
19
Housing and Community Services by ECONorthwest, March 2021.
ECONorthwest 47
Renters with a disability in Exhibit 47. Cost Burdened Renter Households, for People with
Oregon were Disabilities, Oregon, 2018
disproportionately cost Source: S. Census, 2018 ACS 1-year PUMS Estimates. From the Report Implementing a
Regional Housing Needs Analysis Methodology in Oregon: Approach, Results, and Initial
burdened.
Recommendations by ECONorthwest, August 2020.
ECONorthwest 48
Key Terms in the HPS
This appendix presents applicable key terms used in Ashland’s Contextualizing Housing Needs
report. Per the Department of Land Conservation and Development, the following key terms
will be incorporated into the Definitions section of OAR 660-008 (if they are not already):
Consumers of Needed Housing: any person who inhabits or is anticipated to inhabit
Needed Housing, as described in the definition of “Needed Housing” in ORS 197.303.
Housing Production Strategy Report: the report cities must adopt within one year of
their deadline to complete an updated Housing Capacity Analysis, pursuant to OAR
660-008-0050.
Housing Production Strategy: a specific tool, action, policy, or measure a city will
implement to meet the housing needs described in an adopted Housing Capacity
Analysis. A Housing Production Strategy is one component of a Housing Production
Strategy Report.
Needed Housing: housing types determined to meet the need shown for housing within
an urban growth boundary at particular price ranges and rent levels, including (but not
limited to) renter and owner-occupied attached and detached single-family housing,
multifamily housing, and manufactured homes.
Producers of Needed Housing: developers, builders, service providers, or other persons
or entities providing materials and funding needed to build housing. Producers of
Needed Housing may include non-profit organizations or public entities.
Unmet Housing Needed: occurs when housing need determined pursuant to
subsection(3)(b) is greater than the housing capacity (i.e., buildable, residential land is
insufficient to accommodate demand for housing).
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DATE: July 1, 2022
TO: Ashland Housing Production Strategy Advisory Committee
CC: Brandon Goldman, Linda Reid
FROM: Beth Goodman and Kaitlin La Bonte
SUBJECT:Housing Strategies (Actions) for Further Discussion
Ashland is in the process of developing a Housing Production Strategy (HPS) to address the
City’s unmet housing needs. The Advisory Committee (AC) are providing input on
development of the HPS. Through this project, we have held the following Committee
meetings:
April 4 the AC met to discuss unmet housing needs in Ashland, which defined the
issues that will be addressed in the HPS.
May 16 the AC met to discuss the actions that could and should be included in the HPS
to address the unmet housing needs in Ashland.
This memorandum will provide the basis for continued discussion of the strategies at the July
11, 2022 meeting with the AC, focusing on the following questions:
Are the actions included in this memorandum the appropriate actions to address unmet
housing need in Ashland?
Are we missing any actions that should be included in the HPS?
Should we remove any of the actions from the list to include in the HPS?
Are there actions that we need to do additional research or refinement on to better fit
them to address Ashland unmet housing needs?
Beyond the July AC meeting, we will meet with the AC two more times to: (1) review a draft of
the selected strategies, and (2) review the full draft HPS.
This project discusses housing affordability. It focuses on support for housing development of
two types of affordable housing: (1) housing affordable to very low-income and extremely low-
income households and (2) housing affordable to low-income and middle-income households.
The following describes these households, based on information from the HUD and the U.S.
Census’ American Community Survey.
Very low-income and extremely low-income households are those who have an
income of 50% or less of Jackson County Median Family Income (MFI) for a household
1
of four which is an annual household income of $36,600. Development of housing
affordable to households at this income level is generally accomplished through
Median Family Income is determined by the U.S. Department of Housing and Urban Development. In 2021, Jackson
1
County’s MFI was $73,100 for a family of four.
ECONorthwest | Portland | Seattle | Los Angeles | Eugene | Bend | Boise | econw.com 1
development of government-subsidized income-restricted housing. These households
can afford monthly housing costs of $920 or less.
Low-income households are those who have income of 50% to 80% of Jackson County’s
MFI for a household of four or income between $36,600 to $58,500. The private housing
market may develop housing affordable to households in this group, especially for the
higher income households in the group. These households can afford monthly housing
costs of $920 to $1,460.
Middle-income households are those who have income of 80% to 120% of Jackson
County’s MFI for a household of four or income between $58,500to $87,700. The private
housing market may develop housing affordable to households in this group, especially
for the higher income households in the group. These households can afford monthly
housing costs of $1,460 to $2,190.
This memorandum presents additional information about the actions discussed at the April 16
meeting and begins to evaluate them for inclusion in the HPS. The memorandum is separated
into two sections:
Actions Under Consideration for Inclusion in the HPS
Preliminary evaluation of each action
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Actions Under Considerationfor Inclusion in the HPS
The following actions are under consideration for inclusion in the HPS. This section presents
some information about each action. If selected for inclusion in the HPS additional information
will be included for each action. In Action A, we show all of the information that will be
included in the HPS, with placeholders for information we will fill in later.
A.Participate in or establish a land bank.
Rationale
Land control is critical because costs make affordable housing development difficult or financially
infeasible. Land banks support low- and moderate-income affordable housing development by
reducing or eliminating land cost from development, increasing a nonprofits’ capacity to build
affordable housing
Description
Through land banking, the City can provide a pipeline of land for future development and control the
type of development that may occur on that land. The City could pursue land banking in five ways:
Designate city-owned land as surplus and contribute that land to the land bank, eventually
conveying that land to affordable housing developers for development of housing at agreed-
on level of affordability, such as housing affordable below 60% of MFI.
Purchase properties for the purpose of building affordable housing and convey that land to
affordable housing developers for development of housing at agreed-on level of affordability.
Accept land which is dedicated to the City to satisfy affordable housing requirements
associated with annexations, zone changes, or other inclusionary housing standards.
Accept properties which are either donated to the City for the express purpose of providing
for the development of affordable housing.
Provide funds to support land banking done by another organization, with the purpose of
building affordable housing in the future.
City Role
The City could have multiple roles for land banking, including:
Partner-led project with a nonprofit developer or land trust in which City contributes funds or
land to the project. City can contribute land to support the affordable housing development.
City-led affordable housing development project with city-owned land banking. City can
provide funds or land and help with parcel assembly.
The City may participate in multiple projects over time that involve different types of land banking
strategy. The City’s role may vary on different projects, such as contributing city-owned surplus land
for development, assisting with land purchase and assembly, providing funding to support land
purchase, or partnering in an affordable housing development project that includes land banking as
well as other strategies.
Partners and their Role
Partner 1. To be filled in later
Partner 2. To be filled in later
Anticipated Impacts
To be filled in later
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Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Households with incomes below
80% of MFI
Renter or Owner Moderate to Large
May include projects for households
with income below 120% of MFI
Potential Risks
To be filled in later
Implementation Steps
To be filled in later
Implementation Timeline
To be filled in later
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Funding or Revenue Implications
To be filled in later
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B. Participate in a land trust.
Rationale
Land trusts support affordable housing development by reducing or eliminating land cost from
development. Land trusts hold land in perpetuity and sell or lease the housing on the land at below-
market rate prices. Land trusts most frequently provide opportunities for homeownership that
remain affordable over the long-term.
There are currently 49 units within Ashland that are operated under the land trust model. Beginning
in 2000 the Ashland Community Land Trust developed 18 land trusted affordable housing units,
which are currently administered by ACCESS Inc. Ashland Community Land Trust has since dissolved.
Rogue Valley Community Development Corporation developed 31 units under the land trust model
which were transferred to NeighborWorks Umpqua for administration.
Description
The City may participate in a community land trust that is operated by an existing entity, often a
nonprofit organization. The City’s role in a community land trust could be as a partner, possibly
assisting the trust with land acquisition through land banking (Action A) or through providing funding
to support housing development.
A land trust is typically managed by a nonprofit organization that owns land and sells/leases the
housing on the land to income-qualified buyers. Because the land is not included in the housing price
for tenants/buyers, land trusts can achieve below-market pricing. Land trusts are most commonly
used as a method for supporting affordable home ownership goals. The City’s role would be one of
supporting and partnering with the nonprofit that runs the land trust.
City Role
Partner with and contribute funds or land to an existing non-profit land trust or participate in the
formation of a new non-profit land trust if one does not exist with sufficient capacity to serve
Ashland.
C. Host educational events with the Housing and Human Services
Commission or other organizations
Rationale
Education around housing issues is important to preventing and addressing housing discrimination,
ensuring rights are protected, and connecting residents with housing resources.
Description
The City can work with the Housing and Human Services Commission or other organizations to host
educational events. Trainings could focus on topics such as fair housing and housing discrimination,
foreclosure, eviction, tenant and landlord rights, or other information needs as they arise. Fair
Housing education events could be held for residents, property owners, property managers, realtors,
lenders and others involved with real estate transactions.
City Role
The City can work with the Housing and Human Services Commission or organizations to identify
information needs and training ideas. The City could also contract with trainers or area experts to
provide trainings and host educational events.
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D. Develop an equitable housing plan
Rationale
The City’s
2020-2024 Fair Housing Analysis of Impediments to Fair Housing Choice Update for the
City of Ashland identified impediments to fair housing such as: limited community awareness about
fair housing protections and resources, instances of discrimination in housing transactions, and a
lack of affordable housing.An equitable housing plan could address the issues identified in this
report by outlining initial steps, action plans with goals and methods to measure progress to achieve
more equitable housing and continuously examine ways to make improvements to the housing
system to achieve equity.
Description
An equitable housing plan could implement strategies from the Fair Housing Analysis of
Impediments Report, including:
Offering education and training to City Staff, Elected and Appointed Officials, and the
community.
Reviewing City policies for disparate impact and biased language.
The adoption of a tool to ensure inclusivity in decision making process regarding City grant
funding.
The action described in the third bullet above, adoption of a tool to ensure inclusivity in decision
making, could be tied to a broader City effort to adopt a Social and Environmental Equity matrix. For
2
housing, this matrix could help guide City decisions around grants, funding for housing, and other city
policies focusing on developing and preserving housing. The City could also include questions in the
matrix to help assess potential impacts from other City decisions around housing and displacement
risk.
City Role
Develop and adopt an equitable housing plan and implement projects.
E. Broaden definition of dwelling unit
Rationale
To achieve the mix of housing types needed to meet Ashland’s 20-year housing needs, the City will
need to implement policies that allow a wider variety of housing types, including smaller housing and
housing produced with innovative processes or building materials (e.g., housing from containers, tiny
homes on wheels, and other innovative housing types), as well as more mixed-use housing.
Broadening the definition of dwelling units would broaden the types of units allowed in residential
districts and would allow for greater flexibility of housing type.
Additionally, the City has heard some feedback from the public that there are barriers to alternative
housing types, as well as confusion over what is allowed and where the barriers are (e.g., where the
barrier stems from city code or state building code). Clarifying requirements for alternative building
types could help address this issue.
2
The Housing and Human Services Commission has considered developing a social and environmental equity matrix, similar to Eugene’s
triple bottom line, to help evaluate grant funding decisions. Eugene’s Triple Bottom line is a framework in that helps the City assess the
environmental, equity and economic impacts, benefits and trade-offs of decisions.
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Description
The City could broaden the definition of dwelling unit to include other types of units such as shared
housing and co-housing, single-room occupancies, distinguish between RVs (tiny homes on wheels)
and tiny homes on foundations (which are already allowed), and other dwelling units. The definition
of dwelling unit could include tiny houses, cargo container housing, 3-D printed housing, or
alternative building methods. The City could also amend the zoning code to clearly state whether
these non-traditional housing types are allowed.
Another part of the issue is State building code requirements, such as requirements for adapting
cargo containers to housing standards, which may pose barriers to alternative housing types or
increase costs for development. The City could publish information addressing frequently asked
questions about barriers to alternative building types and clarify where barriers are out of the City’s
control.
City Role
Draft amendments to the land use ordinance and work with Ashland’s Planning Commission and City
Council to adopt the revised standards and definitions.
F. Disallow SFD in High Density R-3 Zone
Rationale
Efficient use of Ashland’s residential land is key to ensuring that Ashland has adequate opportunities
to grow from 2021 to 2041 and beyond. The City’s Housing Capacity Analysis shows that Ashland
has sufficient land within the UGB to accommodate growth over the 2021-2041 period but has very
limited capacity (and nearly a deficit of land) for housing in the High-Density Residential zone.
Disallowing single-family detached housing in the High Density Residential Plan Designation (R-3
zone) would preserve this zone for higher-density housing.
Description
The City can evaluate changes to Ashland’s zoning code to disallow single-family detached housing in
the High Density Residential Plan Designation (R-3 zone). Such a change would not include very
small existing lots, where single-family detached housing is all that is buildable.
City Role
The City would amend the zoning code to remove single-family detached housing from the allowed
uses in the R-3 zone.
G. Maintain quality and support development of a new manufactured
home park
Rationale
Preserve and support development of new manufacturing housing parks because they play a
significant role in providing naturally occurring affordable housing.
Description
Preservation of manufactured home parks can be accomplished through a range of approaches,
such as resident owned cooperatives or non-profit ownership. Oregon Housing and Community
Services (OHCS) has regularly received lottery bonds or general funds from the Oregon Legislature to
preserve manufactured home parks through these approaches. Ashland could work with owners of
ECONorthwest 5
manufactured home parks, especially those where redevelopment is being considered, to identify
opportunities to preserve manufactured home parks through these approaches.
City Role
To support development of new manufactured home parks:
Allow Manufactured Housing Developments in residential zones where it is not currently
allowed such R1, CM, and NN.
Allow Manufactured Housing Developments without requiring a subdivision.
To support preservation of existing manufactured home parks:
Partner with nonprofits, the housing authority, and manufactured home park owners to
support preservation efforts. Offer financial support where possible.
Evaluate creating a MFG home park zone where no other housing types are allowed. This
zone might be applied to existing manufactured home parks to preserve existing parks.
H. Increase development capacity of MFR dwellings through changes to
the Land Use Ordinance
Rationale
Amending the Land Use Ordinance to allow for a wider range of development will help ensure there
are development opportunities for needed housing types. Zoning changes that could remove barriers
to the development of multifamily housing include increased density, increased allowable height,
and reduced parking requirements. Prior analysis shows that two to three times as many units per
acre as allowed under the current density standards can potentially fit on a typical site with limited
changes to other development standards. Higher densities are especially important for small infill
3
sites where efficiency is at a premium. Allowing more housing on a given infill site helps the City
meet its housing needs with less land.
Description
The City could evaluate several amendments to the land use ordinance:
Increasing the maximum allowed densities in the Multi-Family Residential (R-2), High Density
Residential (R-3), and parts of the Normal Neighborhood and Croman Mill District
designations.
Increasing allowed height in the R-2 and R-3 multi-family residential zones, outside of
, and up to
50 feet.
Increasing lot coverage allowances slightly in the R-2 and R-3 zones to support the other
code amendments
City Role
Draft amendments to the land use ordinance and work with Ashland’s Planning Commission and City
Council to adopt the revised standards.
ECONorthwest, Ashland Housing Strategy Implementation Plan, June 2019.
3
ECONorthwest 6
I. Implement the Multiple Unit Property Tax Exemption (MUPTE) to
support multifamily or affordable housing
Rationale
The Multiple Unit Property Tax Exemption (MUPTE) program is flexible and eligibility criteria can be
set locally, allowing the City to target the program to meet its needs. It offers an incentivize for
preservation and development of housing for low- to moderate-income households. It can offer an
incentive for mixed-income housing, providing a way to leverage private, market-rate development to
expand affordable housing.
Description
MUPTE allows cities to offer a partial property tax exemption (limited to the value of the housing, not
the land) for multifamily development that meets specific locally established criteria, such as having
an affordability agreement with a public agency. The terms of the affordability agreement can be set
by the City—there are no specific income / affordability requirements in the state statute that
enables the program.
The City could explore using MUPTE in two possible ways:
To incentivize mixed income development through inclusion of below-market units (units
affordable below 80% of MFI) in otherwise market-rate developments.
To incentivize owners of existing low-cost market rate housing to rehabilitate properties
without displacing existing tenants or escalating rents.
What does the exemption apply to? It applies to rental housing that is affordable at incomes at or
below 120 percent, often in a mixed-income multifamily building. The exemption applies only to
improvement value of the housing.
How long does it apply? The property tax exemption can be granted for up to 10 years, except that
for low-income housing, exemption can be extended for as long as the housing is subject to the
public assistance contract.
What taxing districts would participate? The property tax exemption only applies to city property taxes
(which account for about 27% of property taxes in Ashland) unless the City gets affirmative support
from at least 51% of overlapping taxing districts for the exemption to apply to their tax collections.
What are the administrative requirements?To implement the exemption, the City would take the
following steps:
Determine desired eligibility criteria (percentage of affordable or workforce housing or other
public benefits, where the program applies, etc.).
Seek agreement from taxing districts representing 51% or more of the combined levying
authority on the property to include all the taxing jurisdictions in the abatement. If the City is
unable to get agreement from other taxing districts, the abatement will only apply to the
City’s portion of property taxes.
Establish annual reporting and administration procedures.
City Role
Implement the exemption and execute on annual reporting and administration procedures.
ECONorthwest 7
J. Preserve and Improve existing low-cost, unregulated, rental housing
Rationale
Keeping low-cost unregulated housing both habitable and affordable reduces the need for
subsidized new construction. Rental housing that is affordable to low- and moderate-income
households and not subject to affordability restrictions is typically older, privately-owned housing.
This type of housing may have deferred maintenance issues due to a lack of resources to make
improvements and pay for repairs (and, in some cases, owner neglect).
Description
The City can work with property owners of low-cost unregulated rental housing to support needed
repairs without displacing tenants. This could include:
Offer low-interest loans and/or grants to property owners for repairs and major rehabilitation,
providing they do not displace residents.
Evaluate reducing regulatory requirements and permitting challenges for owners seeking to
improve older, rental housing.
Provide information/technical assistance to smaller property owners regarding state and
local resources to support weatherization and healthy housing.
Use the Multiple Unit Property Tax Exemption to support rehabilitation.
Seek funding to support removal of lead hazards. This could include:
Federal funding through the U.S. Department of Housing and Urban Development’s
o
(HUD’s) Lead Hazard Control and Healthy Home program.
Apply for grant funds through the U.S Department of Housing and Urban Development’s
o
(HUD) Office of Lead Hazard Control and Healthy Homes (OLHCHH).
City Role
The City could evaluate programs, technical assistance opportunities, regulatory changes, and other
options to support property improvements.
K. Work with partners to support development of additional permanent
supportive housing
Rationale
Permanent supportive housing is income-restricted housing that includes services with a goal of
ending chronic homelessness. This type of housing is typically built with state funding, with a
nonprofit or housing authority taking lead on such development. The City’s role is as a partner to
support its development. Working with nonprofits is key to meeting Ashland’s need for housing and
supportive services for people who need ongoing services over the long term.
Description
The City can work with partners, such as the housing authority or nonprofit developers, to support
development of housing for households with very low incomes (or no income) that includes services
necessary to help a person transition from homelessness into housing. This type of housing is
typically multifamily and often funded through state and federal sources. The city can support these
types of housing through facilitating the planning process, contributions of land (connected to the
land banking action), direct project funding support, grant assistance, reduced fees for affordable
housing (such as system development charges), funding off-site infrastructure, or other types of
resources or support development for these housing types.
ECONorthwest 8
City Role
The City would work with service providers to identify and utilize funding and development assistance
opportunities.
L. Explore the potential of Inclusionary Zoning
Rationale
Inclusionary zoning policies tie development approval to, or provide regulatory incentives for, the
provision of low- and moderate-income housing as part of a proposed development. Ashland has not
implemented an inclusionary zoning ordinance for residential developments within the City Limits for
proposed structures containing 20 units or more under the State’s inclusionary zoning legislation.
Description
Mandatory inclusionary zoning requires developers to provide a certain percentage of low-income
housing. State law allows cities and counties to adopt inclusionary zoning programs under the
following requirements:
The affordable housing requirements can only apply to multifamily housing with 20 or more
units.
Adopted requirements cannot require more than 20 percent of units be affordable.
Requirements must allow eligible developers to pay a fee-in-lieu of building affordable units
on-site.
The program must be paired with incentives (e.g., SDC or fee waivers/reductions, property
tax exemptions, or other financial incentives)
This strategy is development driven and has the potential to curtail development overall, if
developers look to other cities without these requirements. The price of low-income housing is
passed on to purchasers of market-rate housing.
City Role
Evaluate inclusionary zoning strategies and consider suitability for Ashland development context.
Draft amendments to the land use ordinance and work with Ashland’s Planning Commission and City
Council to adopt the revised standards.
M. Evaluate opportunities to improve energy efficiency and reduce
greenhouse gas emissions during housing development
Rationale
The City of Ashland adopted its Climate and Energy Action Plan (CEAP) in March of 2017 “to reduce
its emissions and improve its resilience to future impacts of climate change on its environment,
infrastructure, and people. Housing that is developed with energy-efficient processes, uses energy-
efficient materials, and operates in an energy efficient way over time can help the City meet its CEAP
goals and can lower-long term energy costs.
Description
The City can incorporate elements of the CEAP into housing developments, including increased
energy efficiency, solar access, electrical vehicle parking and charging opportunities, reduction of
fossil fuels dependency, and increased resilience to natural hazards resulting from a changing
ECONorthwest 9
climate (such as the risk of wildfire). The City could offer incentives for sustainable building
certification for new buildings or require sustainable building practices for new developments. The
City might also consider removing impediments to alternative building practices or building
materials.
City Role
The City can evaluate opportunities to incorporate elements of the CEAP into housing developments.
The City could also evaluate sustainable building practices, including certifications, to determine
whether the City should offer incentives for certification or require certification of new buildings as
sustainable.
Funding Sources
N.Establish a Construction Excise Tax
Rationale
Construction Excise Tax (CET) is one of few options to generate additional locally-controlled funding
for affordable housing. A CET is intended to provide funding to support development of affordable
housing. The funds from the CET are required by State law to be spent on developer incentives,
supporting affordable housing programs, and homeownership programs. Ashland does not collect a
Construction Excise Tax for affordable housing as allowed by SB 1533.
Description
CET is a tax assessed on construction permits issued by local cities and counties. The tax is
assessed as a percent of the value of the improvements for which a permit is sought unless the
project is exempted from the tax. The City could use CET revenue funds to support the development
or re-development of affordable housing.Affordable housing itself is typically exempt from a CET,
and as such this tax on new construction does not impact regulated affordable housing
development.
In 2016, the Oregon Legislature passed Senate Bill 1533 which permits cities to adopt a
construction excise tax (CET) on the value of new construction projects to raise funds for affordable
housing projects. CETs may be residential only, commercial only, or residential and commercial. If
the City were to adopt a CET, the tax would be up to 1% of the permit value on residential
construction and an uncapped rate on commercial and industrial construction. The allowed uses for
CET funding are defined by the state statute. The City may retain 4% of funds to cover administrative
costs. The funds remaining must be allocated as follows, if the City uses a residential CET:
50% must be used for developer incentives (e.g. fee and SDC waivers, tax abatements, etc.)
35% may be used flexibly for affordable housing programs, as defined by the jurisdiction.
15% flows to Oregon Housing and Community Services for homeowner programs.
If the City implements a CET on commercial or industrial uses, 50% of the funds must be
used for allowed developer incentives and the remaining 50% are unrestricted. The rate may
exceed 1% if levied on commercial or industrial uses.
City Role
Develop and implement the plans for using CET funds for affordable housing development.
ECONorthwest 10
O. Evaluate using Urban Renewal
Rationale
Urban renewal provides a flexible funding tool that can support many of the key strategies identified
in the Housing Production Strategy. Urban renewal funds can be used to support development of off-
site infrastructure necessary to support new housing development. In addition, urban renewal funds
could be used to support rehabilitation of existing housing in poor condition, possibly with future
requirements that it remain affordable at an income level like 80% or less of MFI.
Description
Ashland does not have an Urban Renewal District for Tax Increment Financing. Urban renewal can be
used to support to support development of affordable housing, most likely in commercial areas.
The City could use Urban Renewal to support development of infrastructure necessary to support
housing development. The City could coordinate Capital Improvements Program and Transportation
System Plan infrastructure investments in areas identified for multi-family, mixed-use and transit-
oriented housing developments.
The City will need to decide how to use the funding. The best use of funding may be in coordination
with other actions in the HPS, such as with land banking and support of development of income-
restricted housing.
City Role
Evaluate the potential to use Urban Renewal to support infrastructure and affordable housing,
including developing a set aside share of Tax Increment Financing (TIF) revenue to support
infrastructure development necessary for new housing.The City would need to develop and
implement an Urban Renewal Plan and select projects to fund through Urban Renewal.
P. Identify additional funds to support the Affordable Housing Trust Fund
Rationale
Identifying additional funding sources for Ashland’s Affordable Housing Trust Fund would support the
development of affordable housing.
Affordable housing trust funds are public sector tools used to
provide direct financial resources to the development of affordable housing for low income
households
Description
The Ashland Affordable Housing Trust Fund was formed in 2008
with the goal of encouraging the
creation of housing for homeownership or rent at a cost that will enable low and moderate income
families to afford quality housing while paying no more than thirty per cent of gross household
income on housing.To be successful in this goal a dedicated and sustainable source of revenue is
needed for the AHTF.
One option is a General Obligation (GO) Bond, which could provide a stable, dedicated revenue
source to fund infrastructure to support affordable housing, land acquisition, property acquisition,
and direct project subsidies through increased property tax rates. GO bonds are issued for a specific
dollar amount and paid for over the period of the bond through increased property taxes. Because
they are legally limited to use for capital investments and require a public vote to enact, these bonds
are typically used for major infrastructure investments (such as roadway improvements that benefit
all, or nearly all, of a city’s residents). However, GO bonds can be used for land acquisition or
affordable housing development if the city’s residents agree to fund them. Bonds cannot be used for
supportive services or for operations. GO bonds are not subject to Measure 5 and 50 rate limits.
ECONorthwest 11
They can be structured to provide revenue in increments over time, rather than in one large up-front
amount.
Other funding sources could also be considered such as the transient occupancy tax, continuing the
use of Marijuana tax funds, or providing one time contributions to the fund through sale of surplus
city property.
City Role
The City would develop a funding plan, conduct polling/engagement, develop ballot initiative,
implement projects (if successful). The City could also evaluate opportunity for use of other funding
sources.
ECONorthwest 12
Preliminary evaluation of each action
The proposed evaluation criteria, summarized below fall into five categories: impact, income-
level served, feasibility, administrative complexity, flexibility.
Income Level Served
The HPS is intended to result in development and preservation of housing affordable at all
income levels. We discuss affordability Median Family Income (MFI) that is defined by the U.S.
Department of Housing and Urban Services (HUD) for Jackson County for a family of four
people.
A household of four people earning 100% of MFI (about $73,100) could afford monthly housing
costs of $1,828. The income and affordable monthly costs vary by household size. For example,
a household of one person with an income of 100% MFI has income of $51,170 and can afford
monthly housing costs of $1,279. A household of six people at 100% of MFI has income of
$84,796 and can afford monthly housing costs of $2,120.
We define income levels based on MFI for a household of four people, as follows:
Extremely Low and Low IncomeMiddle Income High Income
Low Income
Extremely Low Income: Low Income: 50% to Middle Income: 80% to High Income: 120% of
Less than 30% MFI or 80% of MFI or $36,600 120% of MFI or MFI or more $87,700
$21,900 or less for a to $58,500 for a $58,500 to $87,700 or more for a
household of four household of four for a household of four household of four
Very-Low Income: 30%
to 50% of MFI or
$21,900 to $36,600
for a family of four
36% of Ashland 15% of Ashland 17% of Ashland 32% of Ashland
householdshouseholds households households
Can afford $920 or Can afford $920 to Can afford $1,460 to Can afford$2,190 or
less in monthly housing $1,460 in monthly $2,190 in monthly more in monthly
costs.housing costs.housing costs.housing costs.
ECONorthwest 1
Impact for Housing Development
For many of the actions described below, we give an approximate scale of impact. The purpose
of the scale of impact is to provide some context for whether the policy tool generally results
in a little or a lot of change in the housing market. The scale of impact depends on conditions
in the City, such as other the City’s other existing (or newly implemented) housing policies, the
land supply, and housing market conditions. We define the scale of impact as follows:
SmallModerate Large
Will not directly result in Could directly result in Could directly result in
development of new housing or development of new housing. development of new housing.
it may result in development of a
small amount of new housing. May not improve housing May improve housing
affordability in and of itself. affordability in and of itself.
May not improve housing
affordability in and of itself. May be necessary but not May still need to work with other
sufficient to increase housing policies to increase housing
May be necessary but not affordability. affordability.
sufficient to increase housing
affordability.
~1-3% of needed housing~3% to 5% of needed housing ~5% to 10% (or more) of
9 to 26 new dwelling units 26 to 43 new dwelling units needed housing
4
43to 90new dwelling units
Administrative Complexity
Administrative complexity for implementation considers how much staff time and resources
(financial or otherwise) are required to implement the action? Is it difficult or costly to
administer once it is in place? For funding sources, the easier it is to administer the tax or fee,
the more net revenue will be available for housing production or preservation. For other
actions, this criterion assesses the costs to establish and maintain tool implementation. We
define administrative complexity, as follows:
Low Medium High
Requires some staff time to Requires more staff time to Requires significant staff time to
develop the action and requires develop the action and requires develop the action and/or
some on-going staff time to more on-going staff time to significant on-going staff time to
implement the action. implement the action. implement the action.
May require review by the Will require review by the Will require review by the
Planning Commission. May Planning Commission. Will Planning Commission. Will
require acceptance or adoption require acceptance or adoption require acceptance or adoption
by City Council. by City Council. by City Council.
Has relatively small funding or Has relatively moderate funding Has relatively larger funding or
revenue impacts. or revenue impacts. revenue impacts.
Ashland’s Housing Capacity Analysis projects that the City will grow by 858 new dwelling units between 2021 and
4
2041.
ECONorthwest 2
Feasibility
Feasibility assesses the acceptability of the action for stakeholders. It considers expected
political acceptability for elected officials and the public at large likely to support or have
concerns about the action. If the action is dependent on the action of another organizational
entity, the action is likely to be less feasible than if the City controlled all aspects of tool
implementation. We define feasibility, as follows:
More FeasibleModerately Feasible Less Feasible
Likely to have little resistance Likely to have moderate Likely to have significant
from stakeholder groups, the resistance from stakeholder resistance from stakeholder
public at large, and/or elected groups, the public at large, groups, the public at large,
officials. and/or elected officials. and/or elected officials.
The action may require little or The action may require one-time The action may require
no coordination with another or on-going coordination with significant coordination with
organizational entity to another organizational entity to another organizational entity to
implement or use. implement or use. implement or use in an on-going
basis.
Flexibility
Flexibility assesses whether the action can be flexibly used to achieve multiple outcomes? Does
it have legal limitations or other barriers that limit its utility for achieving goals of supporting
housing development, increasing housing stability or other HPS goals? This category considers
limitations on the types of projects that can be implemented with a given action. Given
development market cycles, a funding source especially may be less useful to the City if its use
is limited to certain types of projects.
We define feasibility, as follows:
More FlexibleModerately Flexibility Less Flexible
The action can be used to The action can be used flexibly The action can be used in
achieve multiple outcomes, has for multiple outcomes but there specific situations, to achieve
few barriers on its use, or may be some barriers on its use. specific outcomes with little
supports multiple goals in the It can be used in somewhat flexibility in its use.
HPS. It can be used in many specific situations.
situations.
ECONorthwest 3
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Many of the actions and funding tools discussed in this memorandum can be used to meet
housing needs at different income levels. This section describes how groupings of actions, into
initiatives, are necessary to work together to meet Ashland housing needs.
These initiatives will be refined based on discussion at the July 11, 2022 Housing Advisory
Committee Sub-Committee meeting. The draft initiatives are:
Encourage development of low- and moderate-income affordable rental housing. This
initiative seeks to increase the housing options for unregulated rental households
earning between 60% and 120% of MFI ($43,900 to $87,700).
Increase opportunities for affordable homeownership. This initiative seeks to increase
the housing options for homeownership for households earning less 120% of MFI (less
than $87,700).
Encourage development of income-restricted affordable housing units. There are
limited options available in Ashland that are affordable to households with income of
less than 60% of MFI ($43,900). This initiative supports development of housing
affordable in this income group.
Preserve existing of low- and moderate-income affordable housing. This initiative
seeks to increase the housing options for rental households earning less than 120% of
MFI (less than $87,700).
ECONorthwest 3
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Appendix A: Existing Policies to Address AshlandHousing Needs
This appendix lists existing strategies that Ashland has implemented to support housing
development. It was included in the Contextualizing Housing Needs memorandum from March
28, 2022. It is included here as a reminder of the actions that Ashland has taken in the past to
address unmet housing needs.
The City of Ashland has the following housing measures (or policies or strategies) currently in
place to address Ashland housing needs.
Zoning
Action/Strategy Description
Allow Middle Housing Ashland allows Duplexes and Accessory Residential Units wherever a single-family
types (Duplexes, dwelling unit is permitted per the requirements of HB2001. Code amendments were
Cottage housing, enacted in June 2021.
Townhomes, Row
Ashland adopted cottage housing ordinance in November 2017 which allows cottage
Houses, and Tri- and
housing developments within single family zones. Following adoption Ashland has
Quad-Plexes) in low
approved a number of cottage housing developments.
density zones
Allow Middle Housing Ashland’s cottage housing ordinance allows cottage housing developments in the R-
types in medium 1-5 and R-1-7.5 zones on lots that are greater than 1.5 times the minimum lot size
density zones for the zone. Cottage Housing developments can be between 3 to 12 units
depending on lot size.
Tri- and Quad-Plexes Townhomes, Row Houses, Stacked Townhouses are permissible
in Ashland’s Medium Density zone (R-2), and Townhomes are further permitted in
the R-1-3.5 zone or other residential zones (R-1-5, R-1-7.5, R-1-10) through planned
unit developments.
Allow Stacked Stacked townhomes, condominiums, garden apartments and larger-scale
Townhouses, Garden apartments are permitted in R-2 and R-3 zones. However due to small lot sizes of
Apartments, and vacant/partially vacant properties available in these zones, larger scale apartments
larger-scale are not often achievable given existing lot sizes, height limitations, and density
Apartments in high allowances.
density zones
Allow Live-Work Live-work housing and mixed-development would be a permitted use within
housing or Mixed-use commercial zones although not specifically listed in the allowable use table for either
housing in commercial or residential zones. Home Occupations are special permitted in all
commercial zones zoning designations except for industrial (M-1).
Current Action(s): A private developer is presently working on a legislative proposal
to amend the Croman Mill Masterplan which would include live-work housing and
mixed-use development. The amended masterplan, as presently being developed, is
intended to focus on providing more flexibility in providing both residential and
commercial uses than does the existing zoning.
Allow small or “tiny” Small, or tiny, units that are built on a foundation are permitted in Ashland and have
homes been developed as Accessory Residential Units. Tiny homes on wheels would have to
be located in an RV park, and there are thus limited opportunities for their
placement in Ashland.
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Allow Small Planned Unit Developments in all SFR and MFR zones will allow for small lots (up to
Residential Lots zero lot line and no minimum lot size) at allowable Densities for the zone.
Additionally, cottage housing developments in SFR zones (R-1-5 & R-1-7.5) allow lots
smaller than the minimum lot size for the zone in conjunction with common open
space. Ashland’s R-1-3.5 zone has a minimum lot size of 3,500 SF.
Current Action: Middle Housing legislation (State) will allow expedited land divisions
of middle housing (Duplexes) to enable independent lots smaller than the minimum
lot sizes within the zone (July 2022)
Mandate Maximum Ashland does not have a maximum lot size or minimum density requirement in
Lot Sizes Single Family Residential zones, although market development typically maximizes
the number of units provided.
In cases where lot sizes are proposed that exceed the minimum lot size it is often in
response to physical or environmental constraints that limit the buildable portion of
a site (e.g. steep slopes, floodplains, wetlands and riparian areas)
Mandate Minimum Minimum Density requirements (80% base density) are in place in multifamily
Residential Densities residential zones (R-2 and R-3) on lots large enough to accommodate 3 or more
units.
Minimum densities and are required of any residential annexation equal to 90%
Base Density exclusive of environmentally constrained lands.
Increase Allowable Ashland recently removed the maximum residential densities within the Transit
Residential Densities Triangle Overlay area (Ashland Street, portions of Siskiyou Blvd, and Tolman Creek
Road). A form-based approach is used where limitations on height, lot coverage, and
setback requirements create the 3D envelope in which units can be developed. This
allows for many smaller units within the same space when compared to a base
density approach which can produce fewer, large apartments or condominiums.
Current Action: Draft Ordinance removing maximum residential densities in E-1, C-1
and C-1-D zones for mixed-use development has been reviewed and recommended
for approval by the Planning Commission. The City Council is expected to review
revisions to the draft ordinance this year,
Allow Clustered Ashland permits Planned Unit Developments in SFR and MFR zones which allows
Residential clustering of units and transfer of density from naturally constrained areas to the
Development developable portion of the site.
Re-designate or Rezoning land in Ashland is not a common practice. The City has implemented a
rezone land for number of master planning efforts (Normal Neighborhood, North Mountain Plan,
housing Croman Mill District) which have identified lands to be developed as multifamily or
mixed-use development. Individual property owners have requested and received
rezoning of their properties to multifamily zones for specific development proposals.
However, there has not been an effort to examine vacant low density and
employment properties within the City Limits as candidates for a comprehensive plan
and zone change to increase the supply of multifamily zoned properties.
Current Action(s):A Draft Ordinance which would allow an increased allowance for
ground floor residential in employment zoned lands (E-1, C-1) for mixed-use
development has been reviewed and recommended for approval by the Planning
Commission. The City Council is expected to review the draft ordinance this year.
A private developer is presently working on a legislative proposal to amend the
Croman Mill Masterplan which would include rezoning the district to allow for a
variety of housing types on lands currently zoned for commercial, employment, and
industrial uses.
Transit Triangle Implements recommendations of an infill strategy to promote more housing within
Overlay an area surrounding the bus route in the southeastern part of Ashland that circulates
on Ashland St., Tolman Creek Rd., and Siskiyou Blvd. The approved Ordinance
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(Ordinances 3166, creates a Zoning Overlay, known as the Transit Triangle, that allows for a reduced
3167,3168) amount of required commercial or employment uses from 65% to 35% of the ground
floor in mixed-use buildings, a reduced parking requirement for small units,
(adopted: December
elimination of housing density maximums, and a requirement to provide rental
2020)
housing in exchange for utilizing the optional Transit Triangle Overlay provisions.
Middle Housing Ordinance Amendments to the duplex and accessory residential unit (ARU)
Ordinance standards to meet the requirements of new state laws and administrative rules
amendments included in House Bill (HB) 2001 from the 80Oregon Legislative Assembly, 2019
th
Regular Legislative Session. The primary changes to the land use code for duplexes
(Ordinance 3199)
are that duplexes are permitted in all residential zones including the single-family
(adopted 6/2021)
zones, are required to have two on-site parking spaces, and the approval process
requires a building permit prior to construction or conversion of an existing structure.
The primary changes to the land use code for ARUs are that ARUs do not require on-
site parking spaces and the approval process requires a building permit prior to
construction or conversion of an existing structure
Cottage Housing The Cottage Housing Ordinance adopted allows cottage housing in single family
Standards (Ordinance residential zones (R-1-5, R-1-7.5, and NN-1-5 ) and established the following
3147)provisions:
A minimum of 3, and a maximum of 12, cottages can be provided in a
(adopted 11/2017)
cottage housing development depending on lot size.
Cottages shall be no larger than 1000sq.ft., and at least 75% of the cottages
shall be less than 800sq.ft.
The parking requirements for cottage housing units was reduced to be as follows:
Units less than 800 sq. ft. - 1 space/unit; Units greater than 800 square feet and
less than 1000 square feet -1.5 spaces/unit.
Reduce Regulatory Impediments
Action/Strategy Description
Reduced Parking Ashland provides parking reductions for small units city-wide (one space per unit for
Requirements units 500 SF or less). Within the Transit Triangle Overlay parking requirements are
reduced to one space per unit for units 800 SF or less. Cottages of 800 SF or less
within approved cottage housing developments require one space per unit.
Many parking credits may be allocated to projects including:
Off-street parking credit (1 for 1) for each on-street space along the
property’s frontage;
joint use and mixed-use development credits (sharing the same space
between a commercial use and residential use when demonstrated their
time of use is not in conflict);
off-site shared parking;
transit facilities credit;
Transportation Demand Management plan implementation.
Reduce Street Width Ashland has long implemented a “Narrow Street” standard through the Street
Standards Standards and Transportation System Plan. The narrow street and interconnected
grid pattern promoted by Ashland’s Street Standards both reduces development
costs associated with new streets in subdivisions and retains developable land are
for new housing.
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Encourage Mixed use projects are permitted and encouraged in Ashland Commercial, and
multifamily Employment zoned.
residential
Current Action(s): There is currently a draft ordinance under consideration that would
development in
increase the percentage of the ground floor that could be used as residential, as well
commercial zones
as elimination of residential density caps in such mixed -use projects. Ordinance
review expected in May 2022 in consideration of an economic study being
undertaken by ECONorthwest for the Ashland Chamber of Commerce.
Remove barriers to Ashland allows Accessory Residential Units (ARU or ADU) as an accessory use to
Development of single-family homes throughout the City with only Building Permit approval. Ashland
Accessory Dwelling further provides reduced SDCs for small units of less than 500 SF.
Units (ADUs) in single-
No additional parking is required for ARUs in Ashland, and there has never been any
family zones
owner-occupied requirement for the development of an ARU within the City.
Affordable Housing Provides a clear and predicable methodology for calculating maximum rent and
Standards (Ordinance purchase prices for covered affordable housing units; incentivizing affordable
3195)housing production through removing barriers to coordination between non-profit
and for-profit housing developers; achieving a mixture of unit types commensurate
(adopted 2020)
with community housing needs; and improving administrative efficiency and
effectiveness of the affordable housing program.
Financial Incentives
Action/Strategy Description
Reduced / Waived Programs that reduce various development fees as an incentive to induce qualifying
Building Permit fee, types of development or building features. Ashland waives or defers 100% of System
Planning fees, or Development Charges including Parks, Transportation, Water, Sewer and Storm
SDCs Water SDCs for qualified affordable housing units targeted to households earning
80% AMI or less and meeting the rent or sale requirements of the Ashland Housing
Program.
Ashland waives Community Development Fees, and Engineering Services fees for
voluntarily provided affordable housing units that remain affordable for 60 years.
Affordable ownership units that leave the program after 30 years, but less than 60
years, must repay a prorated amount of SDCs, Community Development Fees, and
Engineering Services Fees that were deferred.
Scaling SDCs to Unit Cities often charge a set SDC per dwelling unit, charging the same SDCs for large
Size single-family detached units as for small single-family detached units or accessory
dwelling units.
Ashland’s SDC methodology charges 50% of the calculated per unit SDC amount for
units less than 500sq.ft., and 75% of the calculated per unit SDC amount for units
between 500 and 800sq.ft. Thus, smaller units pay proportionately less SDCs for
Transportation, Parks, and Sewer and Water compared to full size units due to their
potential for smaller household sizes and commensurate impacts. Storm Water
SDCs are based on lot coverage and thus, smaller units have lower Storm Water
Provide Density Ashland has four density bonuses, one of which is for development of affordable
Bonuses to housing at higher densities and another for energy-efficient housing.
Developers
Affordable housing projects meeting eligibility requirements (including rental
or ownership housing affordable to households at 80% or less of AMI for a
min. of 30 years) receive a density bonus of two units for each affordable
unit provided, up to a max. of a 35% increase in density.
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The max. density bonus inclusive of other bonuses (open space,
conservation) can be 60% over the base density within the zone.
Ashland’s Cottage Housing Development ordinance effectively provides a
doubling of the allowable density in the zone for provision of the small
cottage housing units.
Ashland classifies small units, of 500 SF or less, as only 75% of a unit for the
purposes of density calculations. A greater number of small units can be developed
within existing density allowances without employing a density bonus.
SDC Deferral Establishes the terms of affordability and recapture provisions for deferred fees and
Resolution charges for qualified affordable ownership units and affordable rental units that
(Resolution 2020-24) remain in the affordable housing program for at least 30 years.
(adopted 2020)
Vertical Housing Tax A Vertical Housing Development Zone has been established for designated
Credit Commercially zoned properties within the Transit Triangle to promote the
development of mixed-use projects that incorporate multiple floors of housing.
(adopted 12/2020)
SDC Financing Ashland amended the SDC collection of charge provisions in 2019 within the
Credits Ashland Municipal Code (4.20.090). These amendments allow SDCs to be paid over
a 10-year period in semi-annual installments.
A one-year installment loan shall not be subject to an annual interest rate provided
all charges are paid prior to the City’s issuance of the Certificate of Occupancy, time
of sale, or withing one year of when the charge was imposed, whichever comes first.
For installments that exceed one year, repayment interest on the unpaid balance at
annual rate of six percent (6%) is assessed for a five-year installment loan or seven
percent (7%) for a 10-year installment loan.
Financial resources
Action/Strategy Description
CDBGAshland is a direct Community Development Block Grant (CDBG) entitlement
community and receives HUD allocations of approx. $175,000/year. The 5-year
Consolidated Plan for use of CDBG funds prioritizes capital restricted CDBG funds
toward affordable housing and shelter and 15% of the award is typically provided to
service providers benefiting extremely low-income individuals.
General Fund Grants Ashland’s Affordable Housing Trust Fund is part of the General Fund and is used to
or Loans support the development of affordable housing. The City has not issued a bond to
generate revenue for affordable housing
Transient Lodging Tax Ashland collects Transient Occupancy Taxes (TOT), and applies them toward tourism
(TLT) related activities, economic development grants, and social service grants annually
in accordance to the restricted/unrestricted use parameters.
Fees or Other Ashland has an Affordable Housing Trust Fund, and the City Council has dedicated
Dedicated Revenue Marijuana Tax revenue (up to $100,000 annually) to support the AHTF through the
annual budgeting process.
Local Improvement Ashland has utilized LIDs for specific public improvement projects within the City,
District (LID) which has enabled a group of property owners to share the cost of a project or
infrastructural improvement on a pro-rata basis, where the City contributes the
majority of the costs of public improvements.
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Reimbursement Ashland’s municipal code (13.30.0150) was amended in 2010 to enable a
District developer to request the City establish a Reimbursement District to collect public
improvement costs that exceed those attributable to service the property owned by
the applicant.
Examples of excess costs include (but are not limited to): Full-street improvements
instead of half street improvements; Off-site sidewalks; Connection of street sections
for continuity; Extension of water lines; and Extension of sewer lines
To date, no Reimbursement District has been requested or formed.
Tax Exemption and Abatement
Action/Strategy Description
Vertical Housing Tax On December 15, 2020, Ashland passed a Vertical Housing Tax Credit and
Abatement (Locally designated Commercially zoned properties within the Transit Triangle overlay area as
Enabled and an eligible Vertical Housing Development Zone.
Managed)
Affordable Housing All affordable housing projects in Ashland presently receive a tax exemption.
Tax Exemption/ Affordable ownership units are eligible a tax reduction to correlate with the City's
Reduction maximum sale price allowed under the units resale restriction covenant. The County
Assessor works with the City annually to determine the values accordingly.
Land, Acquisition, Lease, and Partnerships
Action/Strategy Description
Land Trusts A land trust is typically a nonprofit organization that owns land and sells or leases the
housing on the land to income-qualified buyers.
There are 49 units within Ashland that are operated under the land Trust model.
The Ashland Community Land Trust operated in Ashland from 2000 until 2015 when the
non-profit organization formally dissolved. And transferred their 18 affordable land trusted
housing units to ACCESS Inc.
Rogue Valley Community Development Corporation developed 31 units under the land
trust model which were transferred to NeighborWorks Umpqua for administration.
Public Land Ashland has dedicated surplus City property for the development of affordable housing or
Disposition sold surplus City property and directed the proceeds into the Ashland Housing Trust Fund
to support affordable housing development.
Current Action: The City of Ashland is presently evaluating the disposition of surplus
property, as well offering the air rights above a city owned parking lot to develop needed
housing. Affordable and workforce housing providers will be extended the opportunity to
respond to any Request for Proposals or purchase/sale solicitation efforts.
Parcel Parcel assembly involves the city’s ability to purchase lands for the purpose of land
Assembly aggregation or site assembly
The City has experience acquiring property for the future development of affordable
housing, having acquired 10 acres on Clay Street in cooperation with the Housing Authority
of Jackson County. Over the last decade this property provided a location for 120 units of
affordable housing.
The City typically relies on affordable housing partners to identify property for a proposed
development and has provided financial assistance (CDBG or Affordable Housing Trust
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Fund (AHTF) to assist in acquisition. Most recently the City helped purchase a parcel using
AHTF for Columbia Care to develop a 30-unit affordable housing project
Requirements
Action/Strategy Description
Preserving Existing Ashland has an ordinance that regulates conversion of apartments into
Housing Supply condominiums, providing for preservation of multi-family rentals and providing for
longer notice periods prior to tenant displacement and relocation assistance can be
required.
Ashland’s demolition ordinance does regulate demolitions of housing, requiring
replacement dwellings be provide as part of the demolition proposal. Further, the
demolition of a house (over 45 years old) must demonstrate it is not financially
viable to retain the structure versus replacement, thus promoting renovation as
opposed to removal.
Inclusionary ZoningAshland requires a percentage of affordable housing (25% of the base density
exclusive of unbuildable areas) as part of residential annexations, as well as for zone
changes that increase residential density by 4 units or more:
https://ashland.municipal.codes/LandUse/18.5.8.050.G
Ashland has not implemented an inclusionary zoning ordinance for residential
developments within the City Limits for proposed structures containing 20 units or
more under the State’s 2020 inclusionary zoning legislation.
Condominium An Ordinance establishing that conversion of existing rental units into for-purchase
Conversion units (Condominium Conversions) requires that half of the units in an existing
Ordinance apartment complex are to be retained as rentals upon conversion in the event any
relief from current land use requirements is requested. In the event the applicant
chooses to convert all the apartments in a complex into for purchase housing, the
ordinance establishes a requirement that 25% of the total number of units
be designated as affordable ownership housing.
Other
Action/Strategy Description
Comprehensive Plan In 2019 the City of Ashland rewrote the entirety of the Housing Element of the
Housing Element Comprehensive Plan. The Housing Element sets forth general goals and policies
(adopted 2019) which provide guidance for Ashland’s growth and development over time. The
adopted Housing Element includes Goals and Policies under four main categories:
Diversity of Housing Types
Production and Preservation of Affordable Housing
Environmental Stewardship and Sustainability
Data, Inventories, Projections and Permitting
Tenant Rights An Ordinance establishing Chapter 10.115 of the AMC which provides for Tenant
(Ordinance 2939) Rights and relocation benefits for residents facing displacement due to
condominium conversions.
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INFORMATIONAL ONLY
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