HomeMy WebLinkAbout2023-02-28 Planning PACKET
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FEBRUARY 28, 2023
STUDY SESSION
AGENDA
I.CALL TO ORDER: 7:00 p.m., via Zoom.
II.ANNOUNCEMENTS
III.PUBLIC FORUM
Note: Written testimony can be submitted in advance or in person at the meeting via Zoom. If
you wish to discuss an agenda item electronically, please contact PC-
publictestimony@ashland.or.us by February 28, 2023, 10 a.m. to register to participate via
Zoom. If you are interested in watching the meeting via Zoom, please utilize the following link:
https://zoom.us/j/95684858879
IV.DISCUSSION ITEMS
A. Ashland Housing Production Strategy Update, presentation by ECONorthwest
V.OPEN DISCUSSION
VI.ADJOURNMENT
Next Meeting Date: March 14, 2023
Page 1 of 1
Total Page Number: 2
Memo
DATE: February 28, 2023
TO: Planning Commission
FROM: Brandon Goldman, Interim Community Development Director
Linda Reid, Housing Program Manager
DEPT: Community Development
RE: Housing Production Strategy Discussion and Recommendation
has adopted numerous policies over the last two decades to promote
The City of Ashland
the development of needed housing, as identified on pages 23-29 of the draft Housing
Production Strategy presented this evening. However, the existing and future housing
needs of the community still remain unmet. In 2021 the City completed an assessment of
Ashland’s housing needs (2021-2041 Housing Capacity Analysis) and identified a number
of specific steps the City could take to ensure we have adequate housing. To build on
this progress, the City applied for a grant with the Department of Land Conservation and
Development in 2021 to develop a Housing Production Strategy (HPS). With the
assistance of ECONorthwest consultants the City has examined the strategies it
presently employs to address housing needs and has identified other strategic actions
we could explore and implement over the next 8 years to better address the lack of
affordable housing for households with lower and moderate incomes. These efforts are
intended to help achieve equitable outcomes for all residents, especially vulnerable
groups such as seniors, people of color, people with disabilities, and people experiencing
homelessness.
The HPS includes actions and implementation steps to support the development of
housing, address housing affordability challenges, and encourage the preservation of
existing affordable housing. The City identified a set of actions to support new and
existing affordable development, encourage the development of more affordable and
diverse housing types, and grow partnerships with housing providers, developers, and
agencies involved in housing issues. The goal is to increase housing stability for Ashland
residents.
The Planning Commission reviewed earlier drafts of the HPS on March 22, 2022, and July
26, 2022. An ad hoc advisory group was formed specifically to assist in the preparation of
the Housing Production Strategy, and held five meetings between April 2022 and January
2023, to review the strategies identified and evaluate the priority order for undertaking
these actions. The public involvement on this project began during the
Community Development Department
51 Winburn Way Tel: 541.488.5305
Ashland, Oregon 97520 Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
Total Page Number: 3
Memo
development of the Housing Capacity Analysis and has continued over the last year in
relation to the Housing Production Strategy planning effort. The public engagement
efforts included numerous public meetings, study sessions, public surveys, and both an
in-person public open house and virtual open house. Additionally, the Housing and
Human Services Advisory Committee conducted outreach efforts by setting up a table at
Southern Oregon University and distributing questionnaires to reach populations that are
seldom engaged in housing policydevelopment. These engagement opportunities over
the last 2 years are outlined in Appendix D of the draft Housing Production Study (pages
109-116). The City established a dedicated webpage for this HPS project and past
materials, and survey results are archived on-line at www.ashland.or.us/hps.
The Housing and Human Services Advisory Committee is reviewing this final draft on
Thursday, February 23, and will provide recommendations on the proposed strategies
and timeline for implementation included in the document. This draft is the final draft of
the HPS being presented for comment prior to creating the final document to be
presented at public hearings for formal review and approval.
Overall, the HPS is an important step for the City of Ashland to address housing
affordability challenges and to provide housing stability for vulnerable groups. The
actions and implementation steps identified in the document will be crucial for the
development of affordable and diverse housing types and partnerships with housing
providers, developers, and agencies involved in housing issues. The recommendations
from the Housing and Human Services Advisory Committee, and Planning Commission,
will be important in shaping the final document to be presented at public hearings for
formal approval.
Attachment
Housing Production Strategy Dated February 2023 – Draft Report
Community Development Department
51 Winburn Way Tel: 541.488.5305
Ashland, Oregon 97520 Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
Total Page Number: 4
City of Ashland
Housing Production Strategy
Date February 2023
Prepared for: City of Ashland
DraftREPORT
KOIN Center
222 SW Columbia Street
Suite 1600
Portland, OR 97201
503-222-6060
Total Page Number: 5
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Table of Contents
EXECUTIVE SUMMARY .......................................................................................................................................... III
PHPS(HPS)...............................................................................................
URPOSE OF THE OUSING RODUCTION TRATEGY III
HHPS? ..................................................................................................
OW CAN THE SUPPORT HOUSING DEVELOPMENTIV
H?......................................................................................................................
OW DO THE ACTIONS WORK TOGETHERVI
HCS?W? ........................................................................
OW WILL THE ITY IMPLEMENT THE TRATEGYHO ARE THE PARTNERSIX
1.INTRODUCTION ............................................................................................................................................. 1
RHPS .................................................................................................... 2
EQUIREMENTS OF A OUSING RODUCTION TRATEGY
CIHPS ....................................................................... 3
ONSIDERATIONS FOR MPLEMENTING THE OUSING RODUCTION TRATEGY
BEHPS .................................................................................................................................. 5
UILDING QUITY INTO THE
SIDHPS ..................................................................................................... 6
TAKEHOLDER NVOLVEMENT IN EVELOPING THE
SR ....................................................................................................................................... 11
TRUCTURE OF THE EPORT
2.UNMET HOUSING NEED IN ASHLAND .......................................................................................................... 12
HNAHPS............................................................................. 13
OUSING EEDS DDRESSED BY THE OUSING RODUCTION TRATEGY
SEHNCBDHPS ................................. 21
TAKEHOLDER NGAGEMENT ABOUT OUSING EEDS ONDUCTED EFORE EVELOPMENT OF THE
EPAA’HN ........................................................................................... 23
XISTING OLICIES TO DDRESS SHLANDS OUSING EEDS
EEBDNH....................................................................... 30
XISTING AND XPECTED ARRIERS TO EVELOPMENT OF EEDED OUSING
3.ACTIONS TO MEET FUTURE HOUSING NEED................................................................................................ 32
SAHTWT ........................................................................................ 32
UMMARY OF THE CTIONS AND OW HEY ORK OGETHER
FA ............................................................................................................................................... 2
UNDING THE CTIONS
A .................................................................................................................................................................. 4
CTIONS
FS................................................................................................................................................... 34
UNDING OURCES
RFA .................................................................................................................. 40
ECOMMENDATIONS FOR UTURE CTIONS
4.EVALUATION: ACHIEVING FAIR AND EQUITABLE HOUSING OUTCOMES ...................................................... 41
EPSA .................................................................................................. 41
VALUATION OF THE OLICIES AND TRATEGIC CTIONS
MOHPS ........................................................................................................................ 46
ONITORING UTCOMES OF THE
APPENDIX A: CONTEXTUALIZING ASHLAND’S HOUSING NEEDS ........................................................................... 49
DS-ECAA’HN ........................................ 49
EMOGRAPHIC AND OCIOCONOMIC HARACTERISTICS FFECTING SHLANDS OUSING EEDS
HMCT............................................................................................................... 65
OUSING ARKET ONDITIONS AND RENDS
HAC .................................................................................................................. 73
OUSING FFORDABILITY ONSIDERATIONS
FOE............................................................................................................. 83
INDINGS FROM UTREACH AND NGAGEMENT
KTHPS ............................................................................................................................................. 84
EY ERMS IN THE
APPENDIX B: TRENDS IN GENTRIFICATION AND DISPLACEMENT RISK ................................................................. 85
AM ......................................................................................................................................... 86
NALYSIS ETHODOLOGY
W? .......................................................... 92
HAT NEIGHBORHOODS ARE AT MOST RISK OF GENTRIFICATION AND DISPLACEMENT
WA’? ............................................................................................ 95
HERE DO SHLANDS MOST VULNERABLE RESIDENTS LIVE
W
HO IS MOST LIKELY TO BE DISPLACED IF HOUSING MARKET CONDITIONS HOUSING MARKET CONDITIONS CONTINUE TO APPRECIATE
?.................................................................................................................................................. 96
OR STAY THE SAME
W?......................................... 99
HERE DO AREAS WITH HIGHER GENTRIFICATION RISK AND VULNERABLE POPULATIONS INTERSECT
INSHPS ...................................................................... 102
MPLICATIONS AND EXT TEPS FOR THE OUSING RODUCTION TRATEGY
APPENDIX C. HOUSING DEVELOPER INTERVIEW SUMMARIES ........................................................................... 104
PI......................................................................................................................................... 104
URPOSE OF NTERVIEWS
IS........................................................................................................................................... 104
NTERVIEW TRUCTURE
Total Page Number: 7
SIS .......................................................................................................................
TAKEHOLDER NTERVIEWS UMMARY
APPENDIX D. HPS SUMMARY OF PAST ENGAGEMENT AND COMMUNITY FEEDBACK ON HOUSING RELATED
ISSUES................................................................................................................................................................ 109
Total Page Number: 8
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Total Page Number: 9
Acknowledgements
ECONorthwest prepared this report for the City of Ashland. ECONorthwest and the City of
Ashland thank those who helped develop the Ashland Housing Production City. This project is
funded by Oregon general fund dollars through the Department of Land Conservation and
Development. The contents of this document do not necessarily reflect the views or policies of
the State of Oregon.
Housing Advisory Committee
Echo Fields, HHSAC Member Kerry KenCairn, Planning
Commissioner
Julie Gillis, Social Equity and Racial
Justice Commissioner Gil Livni, Market Housing Developer
Noah Hurley, Southern Oregon Julie Stacy, Lender
University, Assistant Director of
Rich Rohde, HHSAC Member
University Housing
Lisa Verner, Planning Commissioner
Denise James, Affordable Housing
Developer
Bob Kaplan, Climate Policy
Commissioner
City of Ashland
Brandon Goldman, Planning Manager
Linda Reid, Housing Program Manager
Department of Land Conservation and Development
Mari Valencia Aguilar, Housing Planner
ECONorthwest, consulting team
Beth Goodman, Project Director
Kaitlin La Bonte, Project Manager
MacKenzier Visser, Associate
Nicole Underwood, Associate
Justin Sherril, Technical Manager,
Keanan Gleason, Research Analyst
ECONorthwest Ashland Housing Production Strategy
Total Page Number: 10
For more information about this report, contact:
City of AshlandContact:ECONorthwest Contact:
Brandon Goldman, AICP Beth Goodman
Interim Community Development Director Project Director
City of Ashland ECONorthwest
51 Winburn Way 222 SW Columbia, Suite 1600
Ashland, Oregon 97520 Portland, OR 97201
541-552-2076 503-222-6060
brandon.goldman@ashland.or.usgoodman@econw.com
ECONorthwest Ashland Housing Production Strategy
Total Page Number: 11
Executive Summary
The City of Ashland has sponsored several housing planning efforts over the last several years
to address housing access, quality, and affordability concerns. While the City has accomplished
much to date, there is still work to be done to ensure Ashland’s existing and future housing
needs are met. Ashland developed and adopted a Housing Capacity Analysis in 2020, which
provided information about the City’s unmet housing needs. To build on their progress, the
City applied for a grant with the Department of Land Conservation and Development in 2021 to
develop a Housing Production Strategy.
Purpose of the Housing Production Strategy (HPS)
Many households in Ashland are struggling to afford housing. Ashland housing costs and rents
have risen sharply in recent years and are considerably above regional averages. About 46% of
Ashland’s households are cost burdened (i.e., paying 30% or more of their income in rent).
Ashland’s 2021-2041 Housing Capacity Analysis clearly identifies a lack of housing that is
affordable to households with lower and moderate incomes.
Some groups are particularly vulnerable to increasing housing costs and may have special
housing needs. The HPS is intended to include actions to work together to achieve equitable
outcomes for all residents of Ashland, with an emphasis on improving outcomes for
underserved communities, lower-income households, and people in state and federal protected
classes. Key groups with unmet housing need in Ashland include:
Seniors. Many seniors live on fixed incomes and cannot always afford increases in
housing costs. They may also need housing that is physically accessible and close to
services (such as nearby health care or in-home assistance).
People of color (POC). POC are more likely to rent their homes and to live in
multifamily housing (except Asian) than the overall average in Ashland. These
households may need assistance to avoid displacement and access to housing without
discrimination in locations with “high opportunity” (such as areas near jobs, transit, or
services).
People with disabilities. Across Oregon, people with one or more disabilities
experience disproportionate cost burden. Some people with disabilities may need
physically accessible housing near services (such as nearby health care or in-home
assistance).
People experiencing homelessness. People experiencing homelessness (or at risk of
homelessness) may need a range of supports from immediate assistance (including rent
support) to permanent supportive housing (including supportive housing with services)
and access to affordable units.
ECONorthwest Ashland Housing Production Strategy iii
Total Page Number: 12
How can the HPS support housing development?
This Strategy identifies and describes actions and implementation steps to support
development of housing, address housing affordability challenges, and encourage the
preservation of existing affordable housing. With this Strategy, the City identified a set of
actions to support new and existing affordable development. The actions will encourage the
development of more affordable and diverse housing types; grow partnerships with housing
providers, developers and agencies involved in housing issues; and increase housing stability
for Ashland residents.
Exhibit 1. Summary of HPS Strategies
Strategies What is it? How does the strategyhelp?
A.Evaluate participating Land banks support low- and moderate-Provides a pipeline of land for future
in or establishing a income affordable housing development development and control the type of
land bank.by reducing or eliminating land cost from development that may occur on that
development, increasing a nonprofits’ land.
capacity to build affordable housing. The
City could contribute funds or lands to
affordable housing projects or land trusts.
B.Evaluate opportunities Land trusts hold land in perpetuity and sell Supports affordable housing
to participate in a land or lease the housing on the land at below-development by holding land in
market rate prices. The City could partner perpetuity and selling or leasing the
trust.
with and contribute funds or land to an housing on the land at below-market
existing non-profit land trust or participate rate prices.
in the formation of a new non-profit land
trust if one does not exist with sufficient
capacity to serve Ashland.
C.Host educational The City can work with the Housing and Provides education around housing
events with the Human Services Advisory Committee or issues, which can help prevent and
other organizations to host educational address housing discrimination,
Housing and Human
Services Advisory events. Trainings could focus on topics ensure rights are protected, and
Committee such as fair housing and housing connect residents with housing
discrimination, foreclosure, eviction, resources.
tenant and landlord rights, trainings to
serve vulnerable populations, or other
information needs as they arise.
D.Develop an equitable An equitable housing plan could Addresses identified impediments to
housing plan implement strategies from the Fair fair housing such as: limited
Housing Analysis of Impediments Report, community awareness about fair
such as offering education and training, housing protections and resources,
reviewing City policies for disparate impact instances of discrimination in
and biased language, and adopting a tool housing transactions, and a lack of
to ensure inclusivity in decision making affordable housing.
process regarding City grant funding.
ECONorthwest Ashland Housing Production Strategy iv
Total Page Number: 13
E.Disallow SFD in High The City can evaluate changes to Preserves this zone for higher-
Density R-3 Zone Ashland’s zoning code to disallow single-density housing.
family detached housing in the High-
Density Residential Plan Designation (R-3
zone).
F.Evaluate increasing The City could evaluate increasing Encourages the development of
allowances for allowances for residential dwellings in more dense multifamily housing in
commercial and employment zones, such commercial and mixed-use zones
residential dwellings
in commercial and as removing residential density caps and
employment zones allowing an increased amount of
residential uses in ground floor
commercial spaces.
G.Maintain quality and The City could work with owners and Preserves and supports
support development nonprofit organizations to support development of new manufactured
preservation efforts. The City could also home parks, which play a significant
of a new
change the zoning code to more easily role in providing naturally occurring
manufactured home
park allow new manufactured home park affordable housing.
development.
H.Increase development The City could amend the Land Use Allows for a wider range of
capacity of MFR Ordinance to allow for a wider range of development will help ensure there
dwellings development. Zoning changes could are development opportunities for
include increased density, increased needed housing types.
allowable height, and reduced parking
requirements
I.Implement the Offers multi-unit developers that meet City-Provides a way to leverage private,
Multiple Unit Property set affordability criteria a partial property market-rate development to expand
tax exemption affordable housing.
Tax Exemption
(MUPTE) to support
multifamily or
affordable housing
J.Preserve and improve The City could evaluate programs, Supports needed repairs for low-cost
existing low-cost, technical assistance opportunities, unregulated housing without
unregulated, rental regulatory changes, and other options to displacing tenants.
housing support property improvements. The City
could provide grant funding in support of
rehabilitation, weatherization or
accessibility upgrades.
K.Work with partners to The City would work with service providers Supports development of income-
support development to identify and utilize funding and restricted housing that includes
development assistance opportunities. services with a goal of ending
of additional
chronic homelessness.
permanent supportive
housing
ECONorthwest Ashland Housing Production Strategy v
Total Page Number: 14
L.Evaluate opportunities The City can evaluate opportunities to Helps the City meet its CEAP goals
to improve energy incorporate elements of the Climate and and can lower-long term energy
Energy Action Plan CEAP into housing costs.
efficiency and reduce
GHG emissions during developments. The City could also
housing development facilitate access to energy efficiency
incentives available from the federal and
state government, particularly for
development of affordable housing.
M.Establish a Construction Excise Tax (CET) is one of few The City could use CET revenue
Construction Excise options to generate additional locally-funds to support the development or
controlled funding for affordable housing. re-development of affordable
Tax
The funds from the CET are required by housing.
State law to be spent on developer
incentives, supporting affordable housing
programs, and homeownership programs.
N.Evaluate using Urban The City will evaluate the potential to use Provides a flexible funding tool that
Renewal Urban Renewal to support infrastructure can support many of the key
and affordable housing. The City would strategies identified in the Housing
need to develop and implement an Urban Production Strategy.
Renewal Plan, establish an Urban Renewal
Agency, and select projects to fund
through Urban Renewal.
O.Identify additional The City will identify and evaluate new Identifying additional funding
funds to support the sources of funding for income-restricted sources for Ashland’s Affordable
Affordable Housing affordable housing, such as a General Housing Trust Fund would provide
Trust Fund Obligation Bond. direct financial resources to the
development of affordable housing
for low-income households.
How do the actions work together?
Delivering housing that is affordable to low-income households requires a variety of strategies
that address key housing needs in the city. The City’s strategies are intended to provide
incentives and support at various phases of a development project and help overcome obstacles
and challenges, making development more financially feasible. The strategies are intended to
reduce housing costs and ensure that rents or sales prices are more affordable by making it
more financially feasible to build and preserve affordable housing.
The City developed four initiatives that address key housing needs in the city, focusing on
outcomes of implementing the actions. The initiatives comprise a set of potential city-led
strategies, funding sources, and potential partnerships with other entities that help to achieve
an overarching goal. By bundling strategies and funding sources, the City acknowledges that
several strategies and partnerships are necessary to achieve the City’s housing goals.
ECONorthwest Ashland Housing Production Strategy vi
Total Page Number: 15
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 households earning less than 120% of MFI (less
than $87,700).
ECONorthwest Ashland Housing Production Strategy vii
Total Page Number: 16
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1.Introduction
The City of Ashland has sponsored several housing planning efforts over the last several years
to address housing access, quality, and affordability concerns. While the City has accomplished
much to date, there is still work to be done to ensure Ashland’s existing and future housing
needs are met. Ashland developed and adopted a Housing Capacity Analysis in 2020, which
provided information about the City’s unmet housing needs. To build on their progress, the
City applied for a grant with the Department of Land Conservation and Development in 2021 to
develop a Housing Production Strategy.
A Housing Production Strategy (HPS) is intended to include goals and strategic actions to work
together to achieve equitable outcomes for all residents of Ashland, with an emphasis on
improving outcomes for underserved communities, lower-income households, and people in
state and federal protected classes. An HPS considers issues of Fair Housing, which is intended
to provide access to housing choice by everyone, free from discrimination. Federal protected
classes are: race, color, national origin, religion, gender, familial status, and disability. Oregon’s
additional protected classes are: marital status, source of income, sexual orientation and gender
identity, and status as a domestic violence survivor. Under Fair Housing laws, it is illegal to
deny access to housing in based on the characteristics of people within these protected classes.
This report provides information about Ashland’s housing needs. It provides an understanding
of the issues (in Chapter 2), before solutions are proposed (in Chapter 3). This report draws its
information and findings from several documents including:
Ashland’s Housing Capacity Analysis (2021)
Comprehensive Plan and Housing Element Update (2019)
Ashland Consolidated Plan 2020-2024 (2020)
1
Affordable Housing Ordinance (2020)
Rent Burden Meetings in recent years
Missing Middle Code Update (2022)
Ashland recently completed the Ashland Housing Capacity Analysis (HCA) in 2021. Key
findings from the HCA are:
Ashland is forecast to grow by about 858 new dwelling units between 2021 to 2041. On
average, this equates to 43 new dwelling units per year.
Changes in demographic characteristics will drive need for new housing. The HCA
forecast Ashland will need more attached and multifamily housing in the future than
City of Ashland. (2020). Ashland’s 2020-2024 Consolidated Plan.
1
ECONorthwest Ashland Housing Production Strategy 1
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the current housing stock provides. The key demographic trends that will affect
Ashland’s future housing needs are the aging of the baby boomers, the household
formation of the millennials and Generation Z, and growth in Latino populations. The
implications of these trends are increased demand from older (often single person and
more likely to be female) households and increased demand for affordable housing for
families, both for ownership and rent.
Ashland has an existing deficit of housing affordable to low- and middle-income
households and is likely to have similar future deficits. Ashland’s existing deficit of
housing that is affordable for extremely-low and very-low income, low-income, and
middle-income households indicates a need for subsidized affordable housing for
renters and affordable homeownership. Without the types of solutions proposed in
Chapter 3 of this report, lack of affordability will continue to be a problem and possibly
will grow, in the future, if incomes continue to grow at a slower rate than housing costs.
Ashland has sufficient land within the urban growth boundary to support
development over the next 20 years. Ashland’s HCA shows that the City can
accommodate growth (858 dwelling units) over the next 20-years with a surplus of
capacity remaining. However, some development in Ashland’s Suburban Residential,
Normal Neighborhood, and Multifamily Residential Plan Designations will need to be
accommodated in the city’s urbanizing area.
Requirements of a Housing Production Strategy
OAR 660-008 describes the requirements of a Housing Production Strategy (HPS) in sections
660-008-0050 through 660-008-0070. This section briefly describes these requirements and
review by staff with the Department of Land Conservation and Development (DLCD).
The HPS is required to include the following information. It is noted what chapter this
information is included in, in this report:
Unmet Housing Need in Ashland (Chapter 2 and Appendix A in this report) should
provide information about the socio-economic and demographic trends of households in
Ashland, the policies the City has adopted to meet housing needs, and a summary of
engagement the City has had with stakeholders about housing needs (especially with
stakeholders in underrepresented groups).
Actions to Meet Future Housing Need (Chapter 3 in this report) identifies specific
actions, measures, and policies needed to address housing needs identified in Ashland’s
HCA report.
Achieving Fair and Equitable Housing Outcomes (Chapter 4 in this report) evaluates
the entire list of strategies to achieve equitable outcomes. The valuation considers factors
such as location of housing, Affirmatively Furthering Fair Housing, facilitating housing
choice, identifying housing options for residents experiencing homelessness, supporting
development of affordable housing, and increasing housing stability.
ECONorthwest Ashland Housing Production Strategy 2
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The City is required to submit the HPS to DLCD after its adoption by the City Council. The City
is then required to monitor progress on implementation of the HPS and progress on production
of housing related to the policies and actions in this report. Linking housing development
directly to implementation of the actions in this report may be challenging and difficult to
quantify. But City staff will be able to report changes in building activity that occur before and
after implementation of specific actions and will be able to provide qualitative feedback on
implementation of actions based on development of partnerships and discussions with
stakeholders.
Ashland will be required to submit a report to DLCD four years after the City adopts the HPS
that includes:
A summary of the actions taken by that time. For actions not adopted on the schedule in
the HPS, the city must provide an explanation of the circumstances that posed a barrier
to implementation and a plan for addressing the need identified in the strategy.
An evaluation of the efficacy of the actions that the city has implemented for meeting
the needs in the HCA and whether the actions are moving the city to achieve more fair
and equitable housing outcomes.
Implementation of the HPS will take time because each action will require further
consideration, such as additional analysis, engagement of consultants, changes to existing
standards or programs, discussions with decision makers, or public hearings. The City may be
unable or chose not to implement some of these actions because of new information that arises
from further consideration about the specifics of each action.
If the City is unable to or chooses not to implement an action within 90 days of the timeline
proposed in the HPS, the City must notify DLCD about the action(s) that the City is taking to
address this issue. The City may propose an alternative schedule for implementing the action or
may identify a different action (or actions) to meet the specific housing need addressed by this
action.
Considerations for Implementing the Housing Production
Strategy
As part of development of the HPS, it is important to understand a city’s role in housing
development. Supporting and leveraging the private market’s ability to deliver market-rate
development at the broadest possible range of price-points is critical to increase the supply of
housing more broadly, especially in light of the limited public funding available to support
income-restricted housing. In an area with a reasonably strong housing market, a city’s
influence over market-rate development is substantial, despite the number of factors that the
city does not control. The graphic in Exhibit 4 illustrates how four factors must intersect so that
development can occur, and where the City has most influence.
ECONorthwest Ashland Housing Production Strategy 3
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Cities do not control all of these factors entirely. Public policy at the local level is shaped
through state policy. Land is generally controlled by the individual landowners and
development of infrastructure necessary to make land development can be prohibitively
expensive. Market feasibility is largely affected by market forces, such as construction costs and
achievable rents. Access to capital is largely controlled by investors and banks. However, cites
can directly influence public policy (through its development code) and availability of land
(through zoning, density, planning for new land needed for housing, redevelopment,
government owned surplus land, potential urban renewal and other types of projects and
acquisitions, and infrastructure planning). Cities can also have a limited influence on market
feasibility (through policies that reduce costs like tax abatements or waiving fees).
Exhibit 4. Four Necessary Factors that Allow Development of New Market-Rate Housing
Source: ECONorthwest
These factors all suggest that the City should consider a wide range of actions. Exhibit 5 shows
the range of strategies, characterizing some strategies as more impactful and some as less
impactful. More impactful strategies are those that provide funding or direct resources to
support housing development (like land acquisition and disposition). These strategies are more
impactful because funding and resources are the greatest constraint on development of income-
ECONorthwest Ashland Housing Production Strategy 4
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restricted affordable housing (such as housing affordable to households with incomes below
80% of MFI).
While removing regulatory barriers and partnerships are shown as less impactful strategies,
they are often necessary (but not sufficient on their own) to support housing development. For
example, increasing allowable densities, on its own, result in new affordable being built. The
City needs other strategies to support development of affordable housing for people to live and
work in Ashland.
This example also underscores the fact that many of the actions presented in this chapter build
on each other. While a partnership on its own may not be sufficient to support development of
housing, it may be key when combined with other actions.
Exhibit 5. Types of Strategies to Support Housing Production
Source: ECONorthwest
Building Equity into the HPS
Equity is both an outcome and a process. As an “outcome,” equity means that race or other
markers of social identity would no longer predict one’s life outcomes (for instance in health,
socioeconomic advantages, educational access, life expectancy, etc.). Achieving that outcome
remains a challenge because our economic systems were, often unintentionally, designed and
built to maintain inequality—and they continue to do so.
To achieve equitable outcomes, equity is also a process that people undertake to better
understand, question, and disrupt historical and contemporary inequitable systems and
structures. We can use this process to create policies that are based in equal opportunity and
resources, and we can ensure that those most impacted by policies and practices are
meaningfully involved in their creation and implementation.
ECONorthwest Ashland Housing Production Strategy 5
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Equitable housing goes beyond affordability. It aims to ensure all people have housing choices
that are diverse, high quality, energy efficient, physically accessible, and reasonably priced,
with access to employment opportunities, services, and amenities. This includes reducing rates
of cost burden and increasing access to homeownership, especially for low-income households
and vulnerable groups such as seniors, workers with low pay, people with disabilities, and
communities of color. This broad definition of equitable housing includes choices for homes to
buy or rent that are reasonably priced (relative to income) and accessible across all ages,
household sizes, abilities, and incomes and are convenient to everyday needs such as schools,
childcare, food, and parks.
Exhibit 6 provides an equity framework to increase the consideration of equity in the project
process and implementation (including measuring impact). Creating equitable processes will
help ensure that diverse and underrepresented communities (including vulnerable and low-
income communities) are able to influence and inform policy and program development.
Exhibit 6. Housing Production Strategy Equity Framework
Measurement
Identify Unmet Housing
Engagement Process HPS Plan Development
2
and Analysis
Needs
Identify unmet housing Engage community Ensure that the actions Develop
needs, such as lower-members to learn about in the HPS address measurements
income cost-burdened their priorities, needs, and Ashland’ unmet housing to understand
households challenges to affordable needs the impact and
housing progress
Identify vulnerable people Identify outcomes within
toward
within the community who Build community the HPS that respond to
increasing
are at risk or who could awareness and support community needs and
equity of the
benefit from access to through the engagement promote housing stability
actions
more affordable housing process and choice, particularly
for those households
Continue engagement in
with the unmet housing
implementation of the
need.
actions within the HPS
The HPS was developed within this equity framework. The actions in the HPS are intended to
increase equitable housing outcomes as the City implements the recommendations of the HPS.
Stakeholder Involvement in Developing the HPS
A key part of developing the HPS was consulting community members to learn about their
priorities, needs, and challenges related to affordable housing. The stakeholder outreach
process for developing the HPS was collaborative and included input from the following
groups:
Engagement builds on prior engagement that the City has done on other housing and community development
2
projects, such as work on the Ashland Consolidated Plan. It also includes engagement conducted as part of the HPS
project. Implementation of the HPS will include additional engagement.
ECONorthwest Ashland Housing Production Strategy 6
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Ashland’s Housing Advisory Committee. The project included five meetings with the
Advisory Committee over the course of the project. The advisory committee consisted of
ten community members with diverse backgrounds related to housing issues in
Ashland. The committee met throughout the development of the HPS, to review the
draft list of housing actions, identify gaps in the list and potential strategies to fill in
gaps, refine the list of strategies and to provide input in the draft HPS document.
According to a survey of Advisory Committee in October 2022, the highest priority
housing actions included:
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks.
Work with partners to support development of additional permanent supportive
-
housing.
Preserve and improve existing low-cost, unregulated, rental housing.
-
The full results of the AC survey are shown in Exhibit 7 below.
Exhibit 7. Advisory Committee Housing Action Priority Survey
Discussions with Stakeholders.
Service providers for vulnerable populations, to better understand the range of
unmet housing needs for people experiencing houselessness, students, low-income
renter and homeowner households, and other special needs populations. These
ECONorthwest Ashland Housing Production Strategy 7
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discussions identified several actions to better support and coordinate with
providers. Some of the actions discussed include:
Increasing partnership opportunities, such as partnering to undertake trainings
-
to serve vulnerable populations,
Regular meetings and coordination with the City to discuss needs and
-
opportunities, and
Funding for emergency weather related shelter coordination in a model like the
-
one the City of Medford has with Access.
Local housing developers and builders The project included five interviews with
stakeholder groups, including developers, builders, planners, and architects, to
solicit feedback on potential strategies and housing development barriers in
Ashland. Key suggestions from these interviews included:
Urban Renewal has been effective in facilitating development in neighboring
-
jurisdictions and could be a useful tool in Ashland.
Land banking could allow developers to construct more workforce housing.
-
Review the code for unintended barriers to density.
-
Evaluate opportunities to streamline development review.
-
Modifications to code requirements for Cottage Housing and ADUs could make
-
these housing types more feasible.
Open house. A virtual open house was held in October 2022. The open house included a
presentation on housing needs in Ashland and shared information about the strategies
the city is considering to meet unmet housing needs. The presentation included a brief
survey for participants to share the priorities around potential housing strategies.
Planning Commission – The project included four meetings with the Planning
Commission. The meeting topics included 1) the project overview and associated
stakeholder and community engagement, 2) strategies to accommodate housing need in
Ashland, 3) reviewing the draft HPS and 4) reviewing the final HPS.
Housing and Human Services Advisory Committee. The project included two
presentations and one meeting with the Housing and Human Services Advisory
Committee (HHSAC). The HHSAC recommended prioritizing nine strategic actions for
inclusion in the Housing Production Strategy document. The HHSAC recommended
tiering those nine strategies in order of highest priority, as follows:
Tier one (highest priority) strategic actions includes:
Identify additional funds to support the Affordable Housing Trust Fund
-
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks
Participate in a land trust
-
ECONorthwest Ashland Housing Production Strategy 8
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Participate in or establish a land bank.
-
Tier two includes:
Establish a construction excise tax
-
Disallow SFD in high density R-3 zone
-
Tier three (lower priority) includes:
Evaluate using urban renewal
-
Implement the Multiple Unit Property Tax Exemption
-
Increase development capacity of MFR dwellings through changes to the Land
-
Use Ordinance
Theses strategic actions were recommended with the understanding that the HHSAC’s
priorities should not be construed as eliminating or diminishing the remaining
strategies. The motion was approved unanimously.
City Council. The project included three meetings with City Council. On the August
2022 presentation, Council provided the following feedback:
Council was supportive of:
Land banking
-
Land trust - they were very interested in long-term affordability
-
Preservation of manufactured home parks
-
Evaluating using Urban Renewal
-
Potentially using a CET
-
Council asked why there wasn't inclusion of:
Pre-approved ADU and Missing Middle Plan Sets
-
3
Universal design as a strategy for inclusion
-
4
Council discussed, and some suggested removing, inclusionary zoning
5
This strategy was included as a recommendation in the HPS but not specified as an action that would be
3
implemented in the HPS because pre-approved plan sets may be less effective in supporting these types of housing
developments because there may be substantial variation in development of Middle Housing types because each
development is likely to have unique challenges.
Accessibility language is included under the “Preserve and improve existing low-cost, unregulated, rental housing”
4
strategy. Following Council’s comment, language was also added to the “Equitable Housing Plan” strategy a
regarding promotion of Universal Design policies or goals to address equity for people with disabilities.
Inclusionary zoning was removed as a potential strategy from the HPS after discussion with City staff because of
5
the requirements in Oregon’s Inclusionary Zoning statutes that limit it to use on multifamily buildings with 20 or
more units. Ashland has had very few multifamily developments over 20 units per structure in the last decade. As a
ECONorthwest Ashland Housing Production Strategy 9
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The Housing and Human Services Advisory Committee also conducted a survey to
gauge the public’s priorities around housing issues, including gauging public opinions
about potential HPS strategies. Of the 236 responses, respondents overwhelming cited
the biggest housing barrier in Ashland was ‘there are no available rentals or properties for
sale within my price range”. Over 50 percent of respondents thought the following
strategies would make a significant positive difference in improving housing options for
residents of Ashland:
Create policy that supports the construction different types of homes and broadens
what is acceptable as a “dwelling unit:” Examples: cottages, accessory dwelling
units, duplexes, triplexes, manufactured home parks, tiny homes, 3D printed homes,
domes, repurposed cargo containers, etc.
6
Limit the number of vacation rentals as well as limiting the converting existing
housing into vacation rentals.
Require private developers to include a percentage of affordable housing units in
projects that would contain more than 20 dwelling units, referred to as “Inclusionary
zoning”.
Support using city-owned land for the construction of affordable housing.
Support and fund non-profit organizations who build new housing that people of
varied income levels can afford.
result, implementing inclusionary zoning would likely have little effect and may discourage development of
multifamily buildings with 20 or more dwelling units. .
“Broaden the types of dwelling units allowed by Ashland development code” was initially considered as a strategy
6
in this HPS. After discussion with city staff, it was removed as a strategy because it was determined that the barrier
to these alternative building types is not Ashland code but state building code requirements.
ECONorthwest Ashland Housing Production Strategy 10
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Structure of the Report
The structure of this report is organized as follows:
Chapter 2. Contextualizing Housing Need summarizes the findings about housing need
in Ashland, with a focus on housing need at varying income levels and housing needs of
specific groups of people.
Chapter 3. Actions to Meet Future Housing Need presents the proposed policies and
actions to meet the housing need described in Chapter 2.
Chapter 4. Evaluation: Achieving Fair and Equitable Housing Outcomes presents an
evaluation of the HPS through considerations of the location of housing, Fair Housing,
housing choice, and other factors.
Appendix A. Contextualizing Ashland’s Housing Needs presents the data and analysis
necessary to understand Ashland’s housing needs in more detail.
Appendix B. Trends in Gentrification and Displacement Risk presents an analysis of
trends in gentrification and displacement risk developed for Ashland as part of the HPS.
ECONorthwest Ashland Housing Production Strategy 11
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2.Unmet Housing Needin 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 chapter 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 chapter meets the HPS requirement
to further contextualize housing need, beyond what the HNA provided.
This chapter 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. It ends
with a summary of the existing and expected barriers to development of needed housing.
ECONorthwest Ashland Housing Production Strategy 12
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Housing Needs Addressed by the Housing Production Strategy
This section describes Ashland’s housing needs based on data gathered in the Ashland Housing
Needs Analysis report, household income shown in Exhibit 8 and on additional analysis of
unmet housing needs for underserved groups (based on analysis in Appendix A).
Across Oregon, developers have been able to build some types of housing without need for
public intervention, such as single unit detached housing that is affordable to people with
higher incomes. However, many low- and middle-income houses have unmet housing needs
because the market has been unable to keep up with their needs.
The HPS focuses on actions that ensure that developers can produce housing for low- and
middle-income households. Housing at this part of the income spectrum, and housing that
meets the special needs of specific groups, usually requires public intervention.
Defining Median Family Income
The Housing Production Strategy is intended to develop policies and actions that address Ashland’s
housing needs. Throughout this report, we discuss housing affordability based on Median Family
Income (MFI) that is defined by the U.S. Department of Housing and Urban Services (HUD) for
Jackson County for a household of four people. 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 household of four
Very-Low Income: 30% to 50% of MFI or $21,900 to $36,600 for a household of four
Low Income: 50% to 80% of MFI or $36,600 to $58,500 for a household of four
Middle Income: 80% to 120% of MFI or $58,500 to $87,700 for a household of four
High Income: 120% of MFI or more $87,700 or more for a household of four
ECONorthwest Ashland Housing Production Strategy 13
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Over one-third of Ashland households earn less than 50% MFI.
Exhibit 8 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 8. 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.
Median Family Income varies by household size.
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 Ashland Housing Production Strategy 14
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Exhibit 9 Median Family Income and housing affordability by Household size, Jackson County
(Medford-Ashland MSA), 2021
Source: Analysis by ECONorthwest; U.S. Department of HUD, Jackson County, 2021.
Many households in Ashland pay more than 30% of their income
for housing.
A household is defined as
cost burdened if their
Because the local housing market cannot produce income-restricted,
housing costs exceed 30%
subsidized affordable housing (housing affordable at 60% or less of MFI)
of their gross income.A
household that spends 50%
at sufficient levels – and because it cannot often produce low
or more of their gross
income/workforce housing (housing affordable at 60% to 80% of MFI)
income on housing costs is
without subsidy, many households in Ashland are cost burdened.
said to be severely cost
burdened.
Low-income households have few options for either
homeownership or rental units.
Housing costs for both rental and ownership units are much higher than
Fewer than one-quarter of
many residents can afford. Exhibit 10 shows financially attainable
Ashland’s householdshave
income sufficient to
housing costs for households across the income spectrum in Jackson
afford housing sales prices
County. For example, a household earning median family income in
in Ashland. About one-
thirds of Ashland
Jackson County (about $73,100 per year) can afford a monthly rent of
7
households are unable to
about $1,830 or a home roughly valued between $256,000 and $292,000
afford the average asking
themselves. rent in Ashland without
without cost burdening
8
cost burden.
Note that Median Family Income for the region is different than Median Household Income (MHI) for Ashland (see
7
Exhibit 27). 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 spend more than 30% of their gross income on housing costs, a
8
standard set by the U.S. Department of Housing and Urban Services to measure housing affordability.
ECONorthwest Ashland Housing Production Strategy 15
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In Ashland, a household would need to earn at least $140,000 (192% of MFI for a family of four)
to afford the median sales price of a home in Ashland, as shown in Exhibit 52. Rent costs are
9
comparatively more affordable but still pose a barrier to finding affordable housing for many
households. A household would need to earn about $62,000 (85% of MFI for a household of
four) to afford the average asking rent of an apartment ($1,550 per month).
10
Exhibit 10. 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.
With higher mortgage interest rates in 2022 and into 2023, a household may need to have higher income to afford
9
the median home sales price.
CMP Real Estate Services, Inc., December 2020.
10
ECONorthwest Ashland Housing Production Strategy 16
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Ashlandisforecast to grow by 858 new dwelling units between 2021 and 2041.
Ashland’s Housing Needs Analysis projects that the City will grow by 858 new dwelling units
between 2021 and 2041 to accommodate new population growth. These dwelling units will
need to be available at a variety of income levels. Assuming future residents of Ashland have an
income distribution that is the same as existing residents, about a third of new housing will
need to be for those with very low or extremely low incomes (below 50% MFI).
1112
Exhibit 11. Ashland’s Future Households by Income, 2021 to 2041
Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19001, U.S. Department of HUD 2021 MFI, and PSU’s Population
Forecast, 2021 to 2041 as found in Ashland’s Housing Needs Analysis.
Note: Median Family Income (MFI) is estimated for a household of 4.
Given the fact that incomes have grown at a relatively slow pace over the last two decades in comparison to
11
housing costs (especially home sales prices) this may be a conservative assumption about the future affordability of
housing.
The HPS does not anticipate building new units for all existing households in Ashland that have problems
12
affording 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.
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Housing Needs for Extremely Low Income (Less than 50% MFI) Households
Within this income range, Ashland has housing need of:
What we know about the need:
New households: 311(from 2021-2041)
Existing households: 3,572
Rents (including basic utility costs) of not more than $920 per month.
What can they afford?
A household would need to earn $62,000 to afford average multi-unit rent of $1,550
(about 85% of MFI for a household of four). Households with incomes of less than 50%
of MFI cannot afford this rent.
A combination of preserving existing income-restricted
What will it take to meet their needs?
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.
Housing Needs for Low Income (50-80% MFI) Households
Within this income range, Ashland has housing need of:
What we know about the need:
New households: 127(from 2021-2041)
Existing households: 1,462
Rents (including basic utility costs) of between $920 to $1,460 per month.
What can they afford?
A household would need to earn $62,000 to afford average multi-unit rent of $1,550
(about 85% of MFI for a household of four). These households cannot afford this rent.
Households with this income range are likely to live in rental housing predominantly.
A combination of preserving existing “naturally occurring
What will it take to meet their needs?
affordable housing” and development of new income-restricted affordable housing in this price
range. 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 Middle Income (80-120% MFI) Households
Within this income range, Ashland has housing need of:
What we know about the need:
New households: 144 (from 2021-2041)
Existing households: 1,655
Rents (including basic utility costs) of between $1,460 to $2,190 per month.
What can they afford?
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For the most part, 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.
Development of rental housing (without subsidy from
What will it take to meet their needs?
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.
Housing Needs of People of Color
: POC are more likely to rent their homes and to live in multifamily
What we know about the need
housing (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.
13
About 7% of Ashland’s population identified as non-Hispanic Black, Asian, two or more races,
or another race. About 7% of Ashland’s population identified as Latino (any race).
Addressing the affordability issues, discussed above, as well
What will it take to meet their needs?
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.
People of Color includes Black, Latino, American Indian or Alaska Native, Asian, Native Hawaiian and Pacific
13
Islanders, and people of another or multiple races. These categories were combined due to limited data availability.
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Housing Need of People with Disabilities
The Census reports that about 10% of
What we know about the need:
Disabilities include those
Ashland’s population have one or more disability, such as
that are visible, such as
ambulatory, vision, hearing, cognitive, self-care, or independent
ambulatory or vision
disabilities, and those
living disabilities.
that are not readily
apparent, such as self-
care, independent living,
Addressing the affordability
What will it take to meet their needs?
or cognitive disabilities.
issues, discussed above, as well as ensuring that people with
Other conditions may
disabilities have access to housing that addresses their disability
require special
accommodations, such as
and that they have access to housing without discrimination. This
disabling diseases or
will require increasing awareness of Fair Housing rules for
mental health conditions.
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 People Experiencing Homelessness
here are approximately 831 people experiencing homelessness in
T
What we know about the need:
Jackson County in 2021. In addition, 125 students in the Ashland School Districts experienced
homelessness. The number of people experiencing homelessness in Ashland is not clearly
known. In part, this is because people experiencing homelessness may move between
neighboring cities.
Strategies will range from emergency assistance (including
What will it take to meet their needs?
rent and utility assistance), permanent supportive housing (including supportive housing with
services), and improved access to an affordable unit (as discussed above).
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Stakeholder Engagement about Housing Needs Conducted Before
Development of the HPS
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.
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 Advisory
Committee, 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
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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.
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Existing Policies to Address Ashland’sHousing 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/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 in an RV park, and there are thus limited opportunities for their placement in
Ashland.
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
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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
(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,
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(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
amendmentsincluded 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.
Encourage Mixed use projects are permitted and encouraged in Ashland Commercial, and
multifamily Employment zoned.
residential
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development in Current Action(s):There is currently a draft ordinance under consideration that would
commercial zones increase the percentage of the ground floor that could be used as residential, as well
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.
The max. density bonus inclusive of other bonuses (open space,
conservation) can be 60% over the base density within the zone.
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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
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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 Ashland Housing Production Strategy 29
Total Page Number: 49
Existing and Expected Barriers to Development of Needed
Housing
The barriers to development of needed housing in Ashland include:
Having enough development-ready land for the next 5 years. While the Ashland HCA
shows that there is enough land within the UGB to meet housing needs over the next 20
years, land in the UGB is not necessarily development ready. Land requires the full suite
of backbone services (water, wastewater, transportation) before it is development ready.
The cost of building out infrastructure is increasing. Additionally, the annexation
process in Ashland can be a lengthy and uncertain process, which adds cost and risk to
development. Inclusionary zoning requirements for residential annexations add further
cost to greenfield development. These factors affect the short-term availability of land to
meet immediate housing needs.
Zoning limitations for higher density housing. Density, height and lot coverage
limitations in R-2 and R-3 zones are barriers to higher density residential development.
Stacked townhomes, condominiums, garden apartments and larger-scale apartments are
permitted in R-2 and R-3 zones. However, due to small lot sizes of vacant/partially
vacant properties available in these zones, larger scale apartments are not often
achievable given existing lot sizes, height limitations, and density allowances.
Additionally, the Ashland HCA shows there are only 11.7 acres of net buildable land in
the City’s R-3. These factors limit the number of units that can be built in the City’s
higher density residential zones
Land for development of regulated affordable housing. Land for development of
regulated, income-restricted affordable housing is scarce. Building income-restricted
housing (i.e., housing that is affordable at 60% or less of MFI) requires land that is
affordable, allows multi-unit development, and in an appropriate location. The locations
best suited for development of affordable income-restricted housing are areas with
access to transit, near services (both social services and other services), and near jobs (or
with easy access to jobs). Land in these locations is often higher-cost and may not
currently be zoned to allow multi-unit housing.
Funding and resources to support development of income-restricted affordable
housing. Developing income-restricted housing for households with incomes below
60% of MFI generally requires federal, state, and local subsidy so that it can cover the
costs of development and operations with restricted rents. One of the key barriers to
development of income-restricted affordable housing is identifying sufficient funding to
support its development. A city’s options for funding affordable housing development
include direct funding (i.e., monetary contributions for housing), contributions of land,
and cost reductions (e.g., tax abatements or waiving fees).
Funding and resources to support development of housing affordable to middle-
income households. Developing new housing affordable to households with incomes of
ECONorthwest Ashland Housing Production Strategy 30
Total Page Number: 50
60% to 120% of MFI is often not financially feasible without subsidy. Federal and state
funding is harder to access for building housing affordable in this income group. As a
result, supporting development of housing affordable to middle-income households
requires city intervention, such as removing zoning barriers to development of this type
of housing and ensuring that infrastructure is available to support housing
development, both of which are discussed above. In addition, cities can support
development of this type of housing through direct funding (i.e., monetary contributions
for housing), contributions of land, and cost reductions (e.g., tax abatements or waiving
fees).
Capacity of the development community to support development of needed housing.
Capacity for development of housing includes developers willing and able to develop
needed housing, nonprofits with the capacity to support development of affordable
housing, and availability of skilled construction labor to do the housing development (or
renovations). Each of these are potential barriers and can have different impacts on
development of affordable housing. Capacity in the development community can
include knowledge of navigating affordable housing financing and reporting
requirements, knowledge of development of new or innovative housing projects, and
capacity to take on new housing development. Capacity for nonprofits can be a
combination of staff capacity for executing on projects and funding to support
affordable housing projects.
Lack of existing nonprofit capacity to support affordable housing development. There
are no nonprofit organizations currently available to partner with Ashland on housing
development, such as nonprofit organizations running local land banks or land trusts.
Partnering with local nonprofits that can support the City’s broader goals around
affordability could help improve access to a variety of housing types affordable at lower
and middle incomes. A lack of nonprofit capacity to develop housing, as well as running
programs that support the City’s broader housing goals, can be a substantial barrier to
developing affordable housing.
ECONorthwest Ashland Housing Production Strategy 31
Total Page Number: 51
3.Actionsto Meet Future Housing Need
Summary of the Actions and How They Work Together
Most of the actions and funding tools discussed in this section can be used to meet housing
needs at different income levels. This section describes how groupings of strategies, into
initiatives, are necessary to work together to meet Ashland’s housing needs.
The City developed four initiatives that address key housing needs in the city. The initiatives
comprise a set of potential city-led strategies, funding sources, and potential partnerships with
other entities that help to achieve an overarching goal. By bundling strategies and funding
sources, the City acknowledges that several strategies and partnerships are necessary to achieve
the City’s housing goals.
Many of the actions and funding tools discussed in this project can be used to meet housing
needs at different income levels. This section describes how groupings of actions, into
initiatives, are work together to meet Ashland housing needs.
The 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).
Identify additional funds to support the Affordable Housing Trust Fund
Evaluate participating in or establishing a land bank.
Evaluate opportunities to participate in a land trust.
Implement the Multiple Unit Property Tax Exemption (MUPTE) to support
multifamily or affordable housing
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).
Identify additional funds to support the Affordable Housing Trust Fund
Maintain quality and support development of a new manufactured home park
Evaluate participating in or establishing a land bank.
Evaluate opportunities to participate in a land trust.
Establish a Construction Excise Tax
Encourage development of income-restricted affordable housing units. There are
limited options available in Ashland that are affordable to households with income of
ECONorthwest Ashland Housing Production Strategy 32
Total Page Number: 52
less than 60% of MFI ($43,900). This initiative supports development of housing
affordable in this income group.
Work with partners to support development of additional permanent supportive
housing
Establish a Construction Excise Tax
Evaluate using Urban Renewal
Evaluate participating in or establishing a land bank.
Evaluate opportunities to participate in a land trust.
Preserve existing of low- and moderate-income affordable housing. This initiative
seeks to increase the housing options for households earning less than 120% of MFI (less
than $87,700).
Maintain quality and support development of a new manufactured home park
Preserve and improve existing low-cost, unregulated, rental housing
Identify additional funds to support the Affordable Housing Trust Fund
ECONorthwest Ashland Housing Production Strategy 33
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Funding the Actions
One of the key limitations to implementing the actions in the HPS is the availability of funding.
Funding is needed not only to build units, preserve affordable housing, and provide access to
equitable housing, but also for staff time to implement the Plan. Identifying a set of realistic
funding sources is necessary for achieving the vision of affordable housing in Ashland.
A robust set of housing preservation and development programs requires funding sources that
are dedicated toward these activities and that are stable and flexible. In addition to existing
available funding options, the City will need to pursue new funding sources that can help fund
its programs.
Urban Renewal District. Freezes property tax accumulation in a designated Urban
Renewal District until the Urban Renewal District expires or pays off bonds.The City
could use Urban Renewal to support development of infrastructure necessary to support
housing development.
Construction Excise Tax (CET) Revenues. The allowed uses for CET funding, as defined
by state statute, include: at least 50 percent must be used for developer incentives, up to
four percent may be used to cover administrative costs, 15 percent goes to the Oregon
Housing and Community Services for homeowner programs and up to 35 percent may
be used flexibly for affordable housing programs, as defined by the jurisdiction. As part
of establishing a CET in Ashland, the City will need to develop a plan for use of CET
funds to support affordable housing development.
Affordable Housing Trust Fund (AHTF). The AHTF provides direct financial resources
to the development of affordable housing for low-income households. The HPS
describes several potential avenues the City could pursue to identify additional funding
sources for the AHTF, including a general obligation bond, construction excise tax,
transfer of development density fees, transient occupancy tax, continuing the use of
Marijuana tax funds, or providing one time contributions to the fund through bequests
or the sale of surplus city property.
ECONorthwest Ashland Housing Production Strategy 2
Total Page Number: 56
Other Funding Sources Considered
The City has a variety of other options for locally controlled funding sources that could support
affordable housing. While this project did not include a robust funding analysis component, the
project team discussed these funding sources with the Task Force.
Exhibit 13. provides an overview of which funding sources advanced to the HPS.
Exhibit 13. Funding Sources Evaluated
RecommendationRevenue Source Rationale for Inclusion/Exclusion?
for Inclusion
in the HPS as an
Action?
Yes New Urban Renewal Could provide a stable, dedicated revenue source in an
Area, if established area with limited existing infrastructure.
Yes Use of CET funding, if Provides a funding source to support developer incentives,
established affordable homeownership and affordable housing
programs.
No but staff will continue to Grants and State Funding Not included as an actionbut considered as a source of
pursue funding for other housing strategies.
Nobut the City will accept Private donations and Pursue as the City has staff capacity, without dedicated
these gifts staff this is not likely to be a substantial source of funding
Consider as a source of General Obligation BondRequires voter approval and may be difficult to pass
funding for the AHTF
No New local option levy Requires voter approval, unlikely to pass
No Increased lodging tax Only 30% increased revenue could go to housing; 70%
dedicated to tourism promotion
No Marijuana tax A portion of the proceeds from the City's portion of the State
Marijuana Tax is already a long-term revenue source to
fund the AHTF.
No Increase Systems Does not provide a source of funding for development or
Development Charges preservation of housing.
No Increased utility feeDoes not provide a source of funding for development or
preservation of housing.
No Increased building and Does not provide a source of funding for development or
planning permit fees preservation of housing.
No New business license feeMay hinder local business development
No New food and beverage The city passed this, but revenue was not allocated for
tax housing.
No New sales taxMay not be politically feasible
No New payroll/business May not be politically feasible
income tax
No New ticket tax May not be politically feasible
No New real estate transfer Not legal in Oregon
tax
No New vacant/second Untested and possibly not legal in Oregon
home tax
ECONorthwest Ashland Housing Production Strategy 3
Total Page Number: 57
Number: 58
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Work with partners to support
Affordable Housing Trust Fund
Maintain quality and support
Implement the Multiple Unit
supportive housing
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Number: 62
Page
Total
8
or gives staff official direction on implementation of
ple
action (or uses another official
logistics (such as developing materials about an existing program) to complicated coordination between multiple internal and
1
d below.
requirements is likely to
the
203
The table below presents a draft schedule for implementation of the Housing Production Strategy. The table shows each of the 10
The actions will require some level of further refinement prior to adoption, which may range from sim
o
in
policies with the actions below. Each action will go through a period of development where staff works with decision makers t
external stakeholders (such as implementation of a tax abatement). The refinement period will occur before adoption.
color
develop the specifics of the action, then potential adoption and implementation. The activities for each of these are describe
2030
This occurs when the City officially allows the strategic action to be used, represented by a tan
Implement as opportunity arises
CFEC
2029
Rules. Implementation of
n
8
This occurs when the City takes official action to adopt a
202
Going
Implement
. The table shows the expected time of adoption in the time period the table.-
7
On
202
(CFEC)
from City
direction
Get policy
6
acknowledgement that the City is going to execute on the strategic action)
Council
The City of Ashland expects to comply with the Climate Friendly and Equitable Communities
202
affect the timeline for some of the strategies in the HPS including Actions E, G, K, and M.
direction from
City Council
opportunities
Get policy
Evaluate
5
202
Ashland Housing Production Strategy
opportunities
Evaluate
4
202
December
July 1 2023
through
2023
:
or City Council direction
Implementation Schedule for Actions
14
Evaluate opportunities to participate
. Implementation Schedule
Host educational events with the
Housing and Human Services
Evaluate participating in or
:
Further refinement
establishing a land bank.
Implementation:
Actions
Advisory Committee
in a land trust.
Adoption
ion
table.
an act
orthwest
16
Exhibit
CON
B.
C.
A.
14
E
Number: 63
Page
Total
9
1
203
Implement
2030
Get policy
ImplementImplement
from City
direction
Council
2029
ImplementImplement
8
AdoptAdopt
202
Going
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-
ation Steps
mplement
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7
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AdoptAdopt
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202
I
Get policy
ImplementImplement
from City
Evaluate
direction
Develop Develop
OrdinanceOrdinance
6
approach
Council
202
ImplementImplement
Evaluate
5
programs
AdoptAdopt
202
Ashland Housing Production Strategy
Evaluate
4
approach
AdoptAdopt
202
Begin Refining
December
July 1 2023
Develop Plan
through
2023
development of a new manufactured
Implement the Multiple Unit Property
residential dwellings in commercial
increasing allowances for
Tax Exemption (MUPTE) to support
Establish a Construction Excise Tax
-
efficiency and reduce GHG
Evaluate opportunities to improve
Increase development capacity of
Develop an equitable housing plan
Evaluate using Urban Renewal or
3
low
multifamily or affordable housing
cost, unregulated, rental housing
-
Preserve and improve existing
Work with partners to support
permanent supportive housing
Disallow SFD in High Density R
Maintain quality and support
development of additional
emissions during housing
and employment zones
other financing tools
Actions
MFR dwellings
development
home park
Evaluate
orthwest
energy
Zone
CON
M.
N.
H.K.
D.G.
E.F.L.
J.
I.
E
Number: 64
Page
Total
10
1
203
2030
2029
Going
-
On
8
202
7
202
6
202
direction from
City Council
Get policy
5
202
Ashland Housing Production Strategy
Evaluate new
4
sources
202
December
July 1 2023
through
2023
Identify additional funds to support
the Affordable Housing Trust Fund
Actions
orthwest
CON
O.
E
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.
Land banking could be used as a strategy to increase housing for renters or homeownership. If used
for rental housing, land banking would likely be used for income-restricted affordable housing. If
used as a strategy to increase homeownership opportunities, then land banking would be used in
conjunction with a community land trust.
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
Lead Partner. City of Ashland Planning Division
ECONorthwest Ashland Housing Production Strategy 11
Total Page Number: 65
Partners. Nonprofit agencies, including faith-based organizations, other governmental agencies, and
representatives from the private sector.
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low-and middle-income
Up to 80% of Median Family Income Renter or Owner Low to moderate
households
Potential Risks
If public land is used for affordable housing, it cannot be used for other city functions. However, the
land would have been identified as surplus and not needed for city functions. Funds spent on
affordable housing will be unavailable for other city services. If the City does not ensure that housing
will be affordable at below 80% of MFI for the foreseeable future, the housing costs may increase,
making the housing less affordable.
Implementation Steps
Get policy direction from City Council on the role the City should take in land banking.
Inventory publicly and privately-owned properties (including properties owned by faith-based
organizations) in areas well-suited for a land bank purpose.
Partner with and contribute funds or land to an existing non-profit land bank or participate in the
formation of a new non-profit land bank if one does not exist with sufficient capacity to serve
Ashland.
Incorporate publicly owned land into a bank or acquire new land to incorporate to the land bank.
Partner with and contribute land to a community land trust that is led by an existing entity, often a
nonprofit organization.
Acquire land or maintain existing land until it can be made available to developers through a
Request for Proposals to develop as affordable housing.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Get policy direction from Council - 2026 2027; on-going On-going; as land is identified
Funding or Revenue Implications
Partnering is the most administratively efficient and cost-efficient approach to implementing this
strategy. If the City is contributing land to the land bank at low- or no-cost, then the City is forgoing
realizing the value of the land if it was sold on the open market. If the City contributes funds to a land
bank or land trust, the City will need to identify a source of funding for the contributions.
ECONorthwest Ashland Housing Production Strategy 12
Total Page Number: 66
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.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. ACCESS Inc, Neighborworks UMPQUA, other nonprofits involved in the creation of
affordable housing.
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low-and middle-income
Up to 80% of Median Family Income Renter or Owner Low to moderate
households
Potential Risks
If public land is used for affordable housing, it cannot be used for other city functions. However, the
land would have been identified as surplus and not needed for city functions. Funds spent on
affordable housing will be unavailable for other city services. If the City does not ensure that housing
will be affordable at below 80% of MFI for the foreseeable future, the housing costs may increase,
making the housing less affordable.
ECONorthwest Ashland Housing Production Strategy 13
Total Page Number: 67
Implementation Steps
Get policy direction on implementing this action from City Council.
Identify a community land trust that is interested in operating in Ashland.
Partner with and contribute land to a community land trust that is led by an existing entity,
often a nonprofit organization.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Get policy direction from Council - 2025 2026; on-going On-going; as opportunity arises
Funding or Revenue Implications
Partnering is the most administratively efficient and cost-efficient approach to implementing this
strategy. If the City is contributing land to the land trust at low- or no-cost, then the City is forgoing
realizing the value of the land if it was sold on the open market. If the City contributes funds to a land
trust, the City will need to identify a source of funding for the contributions.
ECONorthwest Ashland Housing Production Strategy 14
Total Page Number: 68
C.Host educational events with the Housing and Human Services
Advisory Committee 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 Advisory Committee 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, trainings to serve vulnerable
populations, 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 Advisory Committee or organizations to
identify information needs and training ideas.Regular meetings or coordination with the City and
partners could occur to discuss needs and opportunities. The City could also contract with trainers or
area experts to provide trainings and host educational events.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Housing and Human Services Advisory Committee, Fair Housing Council
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low-and middle-income All levels of income, primarily
households; others households with incomes of less than Renter None
involved with real estate 80% of Median Family Income (MFI).
Potential Risks
Impacts are likely to be minor or have no negative impact.
Implementation Steps
Work with partners to identify education needs and target populations.
Develop presentation materials
Identify city-led presentation calendar for each year
Work with partners to plan, advertise, and convene educational events.
Participate in city-led presentations
Work with partners to execute on outreach on topics that are not city-led, such as Fair
Housing outreach.
ECONorthwest Ashland Housing Production Strategy 15
Total Page Number: 69
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Begin in 2024 On-goingOn-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy.
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.
15
For 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, and to promote Universal Design policies and address equity for people with
disabilities.
15
The Housing and Human Services Advisory Committee 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.
ECONorthwest Ashland Housing Production Strategy 16
Total Page Number: 70
City Role
Develop and adopt an equitable housing plan and implement projects.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Housing and Human Services Advisory Committee, Fair Housing Council of Oregon, La
Clinica – Learning Well, affordable housing providers, Social Equity and Racial Justice Commission,
Rogue Valley Council of Governments Lifelong Housing Division
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low-income people,
seniors, people with
All levels of income, primarily
disabilities, People of
households with incomes of less than Renter and OwnerNone
Color, other vulnerable or
80% of Median Family Income (MFI).
historically marginalized
populations
Potential Risks
If the adoption of a Social and Environmental Equity matrix requires an additional review for certain
planning and development procedures, it could create a development barrier by adding review time.
Additionally, depending on how the Social and Environmental Equity matrix is applied, it could
potentially create additional costs. For example, if an affordable housing development received
funding from the City, and the matrix requires developments receiving city funding to include
accessibility improvements, it could add to development costs.
Implementation Steps
Work with the Housing and Human Services Advisory Committee to develop the Equitable
Housing Plan.
Work with Ashland’s Work with Ashland’s Planning Commission and City Council to adopt the
plan.
Implement actions identified in the Plan.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2024 2025On-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy. Third party consultant services may be required to prepare plan and carrying out
implementation steps (such as hosting staff trainings).
ECONorthwest Ashland Housing Production Strategy 17
Total Page Number: 71
E.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 may not include very small
existing lots, where single-family detached housing is all that is buildable. The City should also
consider compatibility in historic districts within R3 zones that are largely developed as single-family.
The changes could be written such that they do not apply to properties within a historic district.
City Role
The City would amend the zoning code to remove single-family detached housing from the allowed
uses in the R-3 zone.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. None
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
All residentsAll levels of income Owner and RenterIndirect, low
Potential Risks
Disallowing single-family detached housing in existing residential neighborhoods may cause concern
for existing residents. Additionally, residents could be concerned if this amendment has the potential
to impact historic districts.
Implementation Steps
Draft code amendment.
Work with Ashland’s Planning Commission and City Council to get public input on and adopt
the code revisions.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2027 2028On-going
ECONorthwest Ashland Housing Production Strategy 18
Total Page Number: 72
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy.
F.Evaluate increasing allowances for residential dwellings in commercial
and employment zones
Rationale
Lowering or eliminating barriers to residential development in commercial or mixed-use zones can
help encourage the development of more dense multifamily housing in these zones, helping to meet
the City’s projected housing needs.
This action is intended to increase the supply of needed housing by promoting the development of
mixed-use buildings, utilizing vacant commercial floor areas as regulated affordable rental housing,
maintaining an inventory of employment parcels to attract new business development, and
jumpstarting redevelopment in areas near public transit and daily services. The goal of this activity
would be to allow the City to be responsive to changes in the economy and housing demand by
providing more opportunities to develop housing in commercial areas.
Description
The City could evaluate increasing allowances for residential dwellings in commercial and
employment zones, such as removing residential density caps and allowing an increased amount of
residential uses in ground floor commercial spaces. Ashland City Council recently considered, but did
not approve, an ordinance that included these types of amendments.Instead, Council directed
16
City staff to evaluate this action after the next Economic Opportunities Analysis (EOA), which will
calculate the City’s employment and commercial land needs and projected employment growth. The
next Economic Opportunities Analysis is scheduled for 2024.
City Role
The City would evaluate potential amendments to commercial and employment zones that would
encourage more housing development in these zones. The City would amend the zoning code to
increase residential allowances and remove multifamily barriers in these zones.
Partners and their Role
Lead Partner. City of Ashland Planning Division
16
In 2023, Ashland City Council considered but did not approve Ordinance 3205, which presented land use code amendments to the
residential standards for mixed-use development in the Commercial (C-1) and Employment (E-1) zones. The proposed ordinance included a
series of amendments to AMC Title 18 Land Use relating to the residential standards for mixed-use development located in the
Commercial (C-1) and Employment (E-1) zones. Specifically, the proposed code amendments would increase the allowance for residential
uses from 35 to 65 percent of the ground floor in multi-story, mixed-use buildings and developments located in the C-1 and E-1 zones and
outside of the Downtown Design Standards overlay. Additionally, the development of flexible Commercial Ready Residential Space would
allow residential uses within the 35% commercially designated floor area provided an agreement is executed with the City, or deed
restriction is recorded on the property, demonstrating that the residential use will be in conformance with the Ashland Affordable Housing
Program as affordable rental housing for households earning 80% AMI or less.
ECONorthwest Ashland Housing Production Strategy 19
Total Page Number: 73
Partners. None
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
All residentsAll levels of income Owner and Renter Moderate
Potential Risks
If this action resulted in removal of requirements for commercial or retail ground floor uses in areas
intended for mixed use development; it could reduce the amount of available commercial or retail
space available to meet the city’s economic needs. Additionally, the removal of mixed-use
requirements could result in more uniformly residential development in these areas, potentially
reducing the amount of nearby services or amenities and impacting the walkability of the area.
Implementation Steps
Draft code amendment.
Work with Ashland’s Planning Commission and City Council to get public input on and adopt
the code revisions.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2025 2026 On-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy.
ECONorthwest Ashland Housing Production Strategy 20
Total Page Number: 74
G.Maintain quality and support preservation of existing manufactured
home parks and support development of new manufactured home
parks
Rationale
Preserve and support development of new manufacturing housing parks because they play a
significant role in providing naturally occurring affordable housing.
Description
Ashland has four manufactured home parks, as of November 2020, with a total of 255 spaces.
Manufactured home parks provide opportunities for affordable housing for homeowners of a type
that is not otherwise present in the housing market. Closure of manufactured home parks was
common in Oregon during the mid-2000’s and new manufactured home parks have not been
developed in Oregon cities in the last decade or more.
Oregon regulates closure of manufactured home parks (in ORS 90.645). The State requires owners
of manufactured home parks to give notice of closure or conversion of a manufactured home park.
Manufactured home park owners are required to pay households a fee (of between about $6,000
and $10,000) when closing manufactured home parks.
In the face of closure or sale of a manufactured home park, preservation of manufactured home
parks can be accomplished through a range of approaches, such as resident owned cooperatives or
non-profit ownership. Since 2007, 30 manufactured home parks have been preserved statewide. In
2019, the Legislature funded a manufactured dwelling park loan program through OHCS specifically
preserve manufactured home parks. Oregon Housing and Community Services (OHCS) works with
Community Development Financial Institutions (CDFI) to preserve manufactured home parks through
this loan fund.
Organizations that provide support for preservation of manufactured home parks includes: OHCS,
Network for Oregon Affordable Housing, Banner Bank, and CDFIs. Nonprofits like CASA of Oregon
and St. Vincent de Paul of Lane County have assisted with preservation of many of the 30
manufactured home parks. Between 2019 and September 2021, OHCS’ manufactured dwelling
17
park loan program supported preservation of a manufactured home park in Newport
Another approach is adopting a zone that allows manufactured home parks as a permitted use and
prohibits other types of single-family detached or multifamily housing. Cities such as Cornelius and
Portland have taken this approach.
18
The City can also support repair and rehabilitation of manufactured home parks as part of Action I.
Ashland could work with owners of manufactured home parks, especially those where
redevelopment is being considered, to identify opportunities to preserve manufactured home parks
through these approaches.
The City could support development of new manufactured home parks by changing zoning to allow
their development more easily, such as:
Based on information from the report Washington County’s Manufactured Housing Communities: Facts, Risks, and
17
Resource, Final Report, April 2022.
Washington County’s Manufactured Housing Communities: Facts, Risks, and Resource, Final Report, April 2022.
18
ECONorthwest Ashland Housing Production Strategy 21
Total Page Number: 75
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.
The City could also review the Land Use Ordinance for barriers to resident land ownership in
manufactured home parks. The Cottage Housing Ordinance may work for this purpose, but the City
would need to evaluate the code for any adjustments necessary to allow small lots for manufactured
homes.
Zoning changes should be carefully designed to avoid Measure 49 claims, which allow some
property owners to file a claim for compensation if regulations reduce their property value.
City Role
Working with owners and nonprofit organizations to support preservation efforts. Changing the
zoning code to more easily allow new manufactured home park development.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Oregon Housing and Community Services (OHCS), owners of manufactured home parks
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Extremely-low, very-low,
low-income households;
Households with incomes below 80% of
existing residents of Renter or Owner Low to Moderate
MFI
manufactured home
parks
Potential Risks
Impacts are likely to be minor or have no negative impact. If zoning changes were implemented in
such a way that property owners can demonstrate the land use regulations reduce the fair market
value of their property, the property owner could file a Measure 49 claim and the city could be
required to compensate the property owner based on the reduction in the fair market value of the
property resulting from the land use regulation.
Implementation Steps
To support development of new manufactured home parks:
Draft code amendment to:
Allow Manufactured Housing Developments in residential zones where it is not currently
o
allowed such R1, CM, and NN.
Allow Manufactured Housing Developments without requiring a subdivision.
o
Work with Ashland’s Planning Commission and City Council to get public input on and adopt
the code revisions.
To support preservation of existing manufactured home parks:
ECONorthwest Ashland Housing Production Strategy 22
Total Page Number: 76
Partner with nonprofits, the housing authority, and manufactured home park owners to
support preservation efforts. Offer financial support where possible.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2024 2025On-going
Funding or Revenue Implications
If no specific funding or revenue source is identified at this time, staff time and available Planning
Division tools and resources will be relied on to provide support in the form of letters of support,
research on preservation options, and acting as a convener of stakeholders. Providing monetary
resources to encourage development of new manufactured home parks or to help preserve existing
parks could result in a higher-cost strategy.
ECONorthwest Ashland Housing Production Strategy 23
Total Page Number: 77
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
19
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
stories and from 35 to at least 40 feet, and up to
50 feet.
Increasing lot coverage allowances slightly in the R-2 and R-3 zones to support the other
code amendments
Evaluating the code to identify and remove unintentional barriers to density, such as the
certain elements of the solar ordinance, parking or driveway requirements.
City Role
Draft amendments to the land use ordinance and work with Ashland’s Planning Commission and City
Council to adopt the revised standards.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Area developers and stakeholders
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
All residentsAll levels of income Owner and RenterIndirect, low
Potential Risks
Allowing greater density in existing residential neighborhoods may cause disruption and concern for
existing residents.
ECONorthwest, Ashland Housing Strategy Implementation Plan, June 2019.
19
ECONorthwest Ashland Housing Production Strategy 24
Total Page Number: 78
Implementation Steps
Review development code to identify potential amendments that could allow greater density
and remove barriers to density in the Ashland's high-density zones.
Draft code amendments.
Work with Ashland’s Planning Commission and City Council to get public input on and adopt
the revised definitions.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2027 2028On-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy.
ECONorthwest Ashland Housing Production Strategy 25
Total Page Number: 79
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 incentive 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.
City Role
Implement the exemption and execute on annual reporting and administration procedures.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Ashland Finance Department, School Districts, Jackson County and other overlapping
Taxing Districts
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Middle-income renter
60 – 80% of Median Family Income Renter Moderate
households
ECONorthwest Ashland Housing Production Strategy 26
Total Page Number: 80
Potential Risks
The City and participating taxing districts will lose property tax income for the duration of the
exemption, reducing revenue for city services and revenue for participating taxing districts.
Implementation Steps
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.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
The property tax exemption can be
2028 2029
used after adoption for as long as
the City offers the tax exemption.
Funding or Revenue Implications
MUPTE reduces general fund revenues for all overlapping taxing districts. The City of Ashland must
weigh the loss of tax revenue against value of the rent discounts offered by qualifying development.
ECONorthwest Ashland Housing Production Strategy 27
Total Page Number: 81
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.
Provide information, resources, and grants to support accessibility upgrades to allow
residents to age in place.
The City should consider funding sources available from the state and federal governments to
support rehabilitation and weatherization. For instance, the City could consider pursuing grant
funding through the Oregon Healthy Homes Program, which provides financial assistance to eligible
homeowners and landlords to repair and rehabilitate dwellings. The City could pursuing funding
20
from other programs that fund rehabilitation or weatherization, such as the federal Weatherization
Assistance Program.
City Role
The City could evaluate programs, technical assistance opportunities, regulatory changes, and other
options to support property improvements. The City could provide grant funding in support of
rehabilitation, weatherization or accessibility upgrades (e.g., through Community Development Block
Grant (CDBG) funding, the Oregon Healthy Homes Program, or other programs).
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. ACCESS, Ashland Housing Authority, Habitat for Humanity, Rebuilding Together, property
owners of low-cost, unregulated, rental housing
HB 2842 recentlydirected the Oregon Health Authority (OHA) to provide grants to third-party organizations to "provide
20
financial assistance to eligible homeowners and landlords to repair and rehabilitate dwellings to address climate and other
environmental hazards, ensure accessible homes for disabled residents, and make general repairs needed to maintain a
safe and healthy home." Rulemaking is currently underway to allow funding for this program in the fall of this 2023. Cities
and other eligible organizations can then apply for grants to fund these types of rehabilitation and repair programs.
ECONorthwest Ashland Housing Production Strategy 28
Total Page Number: 82
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low and middle-income Households with incomes below 80% of
Renter Low
renters MFI
Potential Risks
If the City does not ensure that housing will be affordable at below 80% of MFI for the foreseeable
future, the rent may increase, making the housing less affordable. Funds spent on this program
would be unavailable for other city services.
Implementation Steps
Get policy direction from City Council on implementing this action.
Develop a list of lower-cost, unregulated, rental housing, including property locations,
number of units per development, and property owner contact information.
Evaluate programs, technical assistance opportunities, regulatory changes, and other
options to support property improvements. This step can include multiple approaches, as
noted in the description of this action.
Reach out to property owners (identified in Step 1). Gauge their interest in improving the
safety, health, and stability of their property. Determine what kinds of improvements their
properties might need and what resources would be most useful to them.
Refine and implement programs, technical assistance opportunities, regulatory changes, and
other options (identified in Step 2) based on feedback from property owners.
Develop requirements for maintaining lower cost rent as a condition of receiving financial
assistance from this program.
Connect interested property owners to established programs and opportunities.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Get policy direction from Council - 2026 2027On-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy. Providing low-interest loans or grants will require a funding source to backfill program
dollars awarded/loaned. Beyond CDBG funding, no specific funding or revenue sources are identified
or secured at this time.Implementation of a Multiple Unit Property Tax Exemption program
(described in Strategy H.) would be required before MUPTE could be used to support rehabilitation.
ECONorthwest Ashland Housing Production Strategy 29
Total Page Number: 83
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.
City Role
The City would work with service providers to identify and utilize funding and development assistance
opportunities. The City could collaborate with Jackson County and neighboring jurisdictions to
develop a regional approach to this strategy.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Jackson County, Jackson County Continuum of Care, Housing Authority of Jackson County,
Columbia Care, Maslow Project, ACCESS, Rogue Community Health, Asante, Jackson Care Connect,
faith-based partners, neighboring jurisdictions
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Homeless community;
Extremely low-income to
low-income households, 0-30% of Median Family Income Renter Low
as well as underserved
communities.
Potential Risks
The largest risk is that more permanent supporting housing is not built.
Implementation Steps
The City should work with nonprofit agencies and developers in conjunction with the Continuum of
Care to identify additional resources that the City may be able to provide support for, such as
supportive housing and services to people experiencing homelessness in Ashland.
ECONorthwest Ashland Housing Production Strategy 30
Total Page Number: 84
Building more permanent supportive housing is likely to be dependent on completion of other
actions, such as use of land from a land bank (Action A), increase density allowed in multifamily
buildings (Action G), and community education about need for income-restricted housing (Action C).
In addition, funding from a potential CET (Action L) and potential Urban Renewal District (Action M)
maybe crucial to developing this housing.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
2024 On-goingOn-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be relied on to accomplish this
strategy. If the City is contributing land, then the City is forgoing realizing the value of the land if it
was sold on the open market. If the City is contributing funding directly to project or funding off-site
infrastructure, the City will need to identify sources of funding. If the City offers reduced fees for
affordable housing, the City must weigh the loss of revenue against the value offered by qualifying
development.
ECONorthwest Ashland Housing Production Strategy 31
Total Page Number: 85
L.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 household 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
climate (such as the risk of wildfire). The City could offer or facilitate energy efficiency incentives for
new buildings, whether for sale or rental.
City Role
The City can evaluate opportunities to incorporate elements of the CEAP into housing developments.
The City could also facilitate access to energy efficiency incentives available from the federal and
state government, particularly for development of affordable housing. The City could also partner
with the Conservation Division, which offers energy efficiency audits and a variety of incentives to
homeowners.
The City expects to comply with the Climate Friendly and Equitable Communities Rules. The
implementation of these rules may dovetail with and refine this strategy.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Ashland Climate Policy Commission, Ashland Conservation Division, Ashland Electric
Department, Ashland Building Division, local developers
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
All residentsAll levels of income Renter or Owner Low
Potential Risks
Impacts are likely to be minor or have no negative impact.
Implementation Steps
Evaluate opportunities and approach.
Get policy direction from City Council on implementing this action.
ECONorthwest Ashland Housing Production Strategy 32
Total Page Number: 86
Implementation steps would depend on the specific incentives or requirements identified
through the evaluation.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
Get policy direction from Council - 2029 2030On-going
Funding or Revenue Implications
Staff time and available Planning Division tools and resources will be required to evaluate
opportunities to improve energy efficiency and reduce greenhouse gas emissions during housing
development. If incentives are provided in exchange for certain green building practices or
certifications, this could require funding or reduce revenue.
ECONorthwest Ashland Housing Production Strategy 33
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Funding Sources
M.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.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partners. Local developers, Chamber of Commerce, major employers, and the Ashland business
community
ECONorthwest Ashland Housing Production Strategy 34
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Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Depends on how revenue is used, but
Depends on how revenue
most likely directed toward 0-60% of
is used, but would be for
Median Family Income, however, could
extremely low, very low,
be used to meet other income groups, Renter or Owner Moderate to high
and low-income and
such as contribution to homeownership
underserved
for households at 61-80% of Median
communities.
Family Income.
Potential Risks
Homebuyers and businesses that pay the CET will have slightly higher costs for their homes and for
commercial or industrial development. The increase in home prices will not exceed 1% because of
the CET and may be smaller if the City establishes a CET below 1%.
Implementation Steps
Evaluate potential approach. Include projections on potential revenue and what
programmatic goals could be accomplished with revenue. Include SWOT analysis for both
residential and commercial/industrial.
Engage with developers, major employers, and the business community in Ashland to
evaluate tolerance for a CET on commercial and industrial development and where there are
shared interests in supporting local housing production.
Seek direction on whether to proceed with adoption from City Council at work sessions.
Ashland City Council could impose the CET by adoption of an ordinance or resolution that
conforms to the requirements of ORS 320.192–ORS 320.195.
If directed, create a plan for the use of CET funds.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
If a CET is implemented, it may take
several years for funds to
2025 2026
accumulate to an amount that
could be used to support
development of housing.
Funding or Revenue Implications
Adopting a CET would provide funding for other strategies. Because a percentage (4%) of the
revenue can be applied to the City’s costs for administering the program, there should be minimal
additional cost for the City.
ECONorthwest Ashland Housing Production Strategy 35
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N.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, establish an Urban Renewal Agency, and select projects to fund
through Urban Renewal.
Partners and their Role
Lead Partner. Ashland Planning Division
Partners. Ashland Finance Department, Ashland Public Works Department, and property owners
within the Urban Renewal Area.
Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Low-and middle-income
All levels of income Renter or Owner Moderate
householders
Potential Risks
The City and participating taxing districts will forgo revenue increases from increasing property value
for the duration of the Urban Renewal district(s), decreasing property tax revenues in the district(s).
ECONorthwest Ashland Housing Production Strategy 36
Total Page Number: 90
Implementation Steps
As part of Urban Renewal planning for a potential new district, evaluate whether a housing
set-aside is an appropriate expenditure for the district and how much can be allocated while
balancing the need for infrastructure investments.
Should a new Urban Renewal district be deemed appropriate, proceed with creating and
adopting an Urban Renewal Plan. Establish priorities for the area, identify a project list,
consult with taxing districts, prepare a feasibility study, prepare required plan documents,
and hold adoption hearings.
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
After implementation, it would likely
be several years before there is
sufficient revenue in the Urban
Evaluate approach – 2026
2029
Renewal District to have enough
Develop plans – 2027
funds to make significant
Adopt – 2028
investment in housing.
Funding or Revenue Implications
TIF results in foregone tax revenue for the City and other overlapping taxing districts for several
decades, though it can (and should) grow the tax base in the long-term by supporting development
that would not otherwise have occurred.
ECONorthwest Ashland Housing Production Strategy 37
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O.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.
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 transfer of development density fees,
transient occupancy tax, continuing the use of Marijuana tax funds, or providing one time
contributions to the fund through bequests or the sale of surplus city property. The City does not
currently have a mechanism for accepting funding through bequests and private donations, and
would need to work with their legal and accounting departments to set this mechanism up. The City
may want to lobby the Legislature to allow for other mechanisms for funding affordable housing,
such as allowing a Real Estate Transfer Tax.
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.
Partners and their Role
Lead Partner. City of Ashland Planning Division
Partner 2. City of Ashland Finance Department, Legal Department, Ashland City Council, Ashland
residents
ECONorthwest Ashland Housing Production Strategy 38
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Anticipated Impacts
Magnitude of New
Income Housing Tenure
Populations Served
Units Produced
Extremely and very-low-Households up to 60% of the Median
Renter or Owner Moderate to High
income households Family Income
Potential Risks
Funds spent on affordable housing will be unavailable for other city services and may require
additional resources to sustain the ongoing operations of new projects. Community support for some
of these options, such as a GO bond, may be weak, resulting in no action on issuing a bond.
Implementation Steps
Identify and evaluate new sources of funding for income-restricted affordable housing.
Get policy direction from City Council on implementing this action.
Implement suitable funding sources. This step will vary by funding source (an example is
provided below).
General Obligation Bond Implementation Steps:
The City of Ashland will need to evaluate the types of projects they wish to include on the
ballot (and their costs) to determine a bond rate. The bond funds may only be used to pay for
capital costs related to construction; acquisition or rehabilitation of residential buildings for
affordable housing; other capital construction costs; predevelopment costs; and
administrative costs.
The City should vet projects with the general public to gauge acceptability. They should also
educate the public about the proposed projects’ value.
General obligation bonds are issued with long-term, fixed rates. The City of Ashland should
evaluate the type of bond it will pursue (20-year or 30-year).
measure.
General obligation bonds must be approved by a simple majority through a ballot
Implementation Timeline
Timeframe of Impact
Implementation to Commence
Timeline for Adoption
It may take several years before
there is sufficient revenue to have
Get policy direction from Council - 2025 2026
enough funds to make significant
investment in housing.
Funding or Revenue Implications
Depends on funding source implemented; it is recommended that the City consider using general
obligation bond revenue to leverage additional funds (from potential partners or grantors) to support
development of affordable housing. This action will generate new funding, likely for capital costs, but
will require additional staff time to administer the new revenue. The GO Bond funds could cover
administrative costs related to the capital costs funded by the bond.
ECONorthwest Ashland Housing Production Strategy 39
Total Page Number: 93
Recommendations for Future Actions
The following actions, while important and useful, will not be included as strategies in the HPS.
Instead, the HPS will include them as recommendations that the City may want to consider in
the future or as part of another process. The City will not have to report on progress towards
these actions.
Develop pre-approved plan sets for Middle Housing Typologies and Accessory
Dwelling Units. As a follow-up to HB 2001 implementation, the City should develop
pre-approved plans for middle housing typologies, such as cottage clusters, townhomes,
and other middle-income housing types as well as accessory dwelling units. The plans
should be highly efficient, designed for constrained lots and low-cost solutions, and
would allow for streamlined permitting. The city could consider adopting pre-approved
plans developed by other cities or working with other cities to develop pre-approved
plans. For pre-approved plan sets, the Building Department may decrease the charges
(plan check fee) by as much as 50% and decrease the approval time (possibly as short as
three days).
Consider staff capacity for implementation of the HPS. Staff has the capacity and
expertise to implement some, but not all, of the strategies included in the HPS. For
instance, the City may need to hire consultant services for grant writing, zoning
amendments, or strategies that require specific technical expertise, such as
implementation of a TIF district. The City should review the HPS to consider staff
capacity and assess where additional assistance would be needed in order to implement
the HPS. The City should also do an assessment of staff capacity on a case-by-case basis
at the beginning of each strategy
ECONorthwest Ashland Housing Production Strategy 40
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4.Evaluation: Achieving Fair and Equitable
Housing Outcomes
This chapter presents an evaluation of the goals and strategic actions for achieving fair and
equitable housing outcomes. It also includes a discussion of monitoring the outcomes of
Ashland’s HPS.
Evaluation ofthe Policiesand Strategic Actions
OAR 660-008 requires an evaluation of all the HPS for achieving the following types of
outcomes. The discussion below provides a brief evaluation of each of the expected outcomes
for the policies and actions of the HPS, with a focus on housing opportunities for federal and
This is not intended to be an exhaustive evaluation of how each action
state protected classes.
21
addresses these outcomes but a high-level overview of the HPS as a whole.
Affordable Homeownership. This criteria focuses on actions that support production of
housing affordable for homeownership and includes actions to support development of
housing affordable at less than 120% of MFI. Many of the actions in the HPS support
development of affordable housing for homeownership through supporting
development of lower-cost ownership housing, removing regulatory barriers to
development of affordable ownership housing, supporting Fair Housing, and making
capital improvements necessary to support affordable ownership housing. Some of the
actions within the HPS that support affordable homeownership include:
Existing actions and programs
Zoning amendments to allow a broader array of more affordable unit types in a
-
wider variety of zones including middle housing, live-work, tiny homes, small
lots, cottage housing, garden apartments, and higher residential density
development.
Ashland scales SDCs so that smaller units pay lower SDCs, potentially increasing
-
affordability.
Ashland provides a density bonus for development of for energy-efficient
-
housing.
Actions in the HPS
Federal protected classes are: race, color, national origin, gender, familial status, and disability. Oregon’s additional
21
protected classes are: marital status, source of income, sexual orientation, and status as a domestic violence survivor.
Under Fair Housing laws, it is illegal to deny access to housing in based on the characteristics of people within these
protected classes.
ECONorthwest Ashland Housing Production Strategy 41
Total Page Number: 95
Participate in or establish a land bank
-
Participate in a land trust
-
Disallow SFD in High Density R-3 Zone
-
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks
Increase development capacity of MFR dwellings through changes to the Land
-
Use Ordinance
Establish a Construction Excise Tax
-
Evaluate using Urban Renewal
-
Identify additional funds to support the Affordable Housing Trust Fund
-
Affordable Rental Housing. Supporting affordable rental housing includes actions to
support production of both income-restricted affordable housing (affordable to
households with incomes below 60% of MFI) and privately developed affordable
housing (affordable for households with incomes between 61% and 80% of MFI).
Actions within the HPS that support affordable rental housing development include:
Existing actions and programs
Zoning amendments to allow a broader array of more affordable unit types in a
-
wider variety of zones including middle housing, live-work, tiny homes, small
lots, cottage housing, garden apartments, and higher residential density
development.
Ashland scales SDCs so that smaller units pay lower SDCs, potentially increasing
-
affordability.
Ashland provides density bonuses for development of affordable housing at
-
higher densities and for energy-efficiency.
Affordable Housing Standards Ordinance and removal of other regulatory
-
barriers to encourage development of new smaller units and multifamily units.
Financial incentives to encourage development of affordable housing.
-
Affordable Housing Trust Fund
-
Inclusionary zoning as part of new residential annexations.
-
Actions in the HPS
Participate in or establish a land bank
-
Participate in a land trust
-
Disallow SFD in High Density R-3 Zone
-
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks
ECONorthwest Ashland Housing Production Strategy 42
Total Page Number: 96
Increase development capacity of MFR dwellings through changes to the Land
-
Use Ordinance
Implement the Multiple Unit Property Tax Exemption (MUPTE) to support
-
multifamily or affordable housing
Establish a Construction Excise Tax
-
Evaluate using Urban Renewal
-
Identify additional funds to support the Affordable Housing Trust Fund
-
Housing Stability. Increasing housing stability includes actions that increase the
stability of existing households and prevent displacement, mitigating gentrification
resulting from public investments or redevelopment. Actions within the HPS that
address housing stability include:
Existing actions and programs
Tenants Rights Ordinance
-
Ordinances to preserve existing housing supply
-
Ashland regulates conversion of rental housing to condominiums.
-
Actions in the HPS
Host educational events with the Housing and Human Services Advisory
-
Committee or other organizations.
Develop an equitable housing plan
-
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks
Preserve and improve existing low-cost, unregulated, rental housing
-
Housing Options for People Experiencing Homelessness. Increasing options for
people experiencing homelessness includes working with partners and identifying ways
to address homelessness and actions that reduce the risk of households becoming
homeless (especially for households with income below 30% of MFI). The HPS includes
the following options for people experiencing homelessness:
Existing actions and programs
Community Development Block Grant funding towards affordable housing and
-
shelter and funding to service providers benefiting extremely low-income
individuals.
Affordable Housing Trust Fund contributions to affordable housing
-
development and safety net housing.
Actions in the HPS
ECONorthwest Ashland Housing Production Strategy 43
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Work with partners to support development of additional permanent supportive
-
housing
Identify additional funds to support the Affordable Housing Trust Fund
-
Housing Choice. Increasing housing choice involves increasing access to housing for
communities of color, low-income communities, people with disabilities, and other state
and federal protected classes. Increasing housing choice also means increasing access to
existing or new housing that is located in neighborhoods with healthy and safe
environments and high-quality community amenities, schooling, and employment and
business opportunities. Actions within the HPS that increase housing choice include:
Existing actions and programs
Zoning amendments to allow middle housing, live-work, tiny homes, small lots,
-
higher residential density and clustered residential development.
Actions in the HPS
Participate in or establish a land bank
-
Participate in a land trust
-
Disallow SFD in High Density R-3 Zone
-
Maintain quality and support preservation of existing manufactured home parks
-
and support development of new manufactured home parks
Increase development capacity of MFR dwellings through changes to the Land
-
Use Ordinance
Implement the Multiple Unit Property Tax Exemption (MUPTE) to support
-
multifamily or affordable housing
Preserve and improve existing low-cost, unregulated, rental housing
-
Identify additional funds to support the Affordable Housing Trust Fund
-
Location of Housing. Diversifying the location of housing requires increasing options
for residential development that is compact, in mixed-use neighborhoods, and available
to people within state and federal protected classes. This measure is intended, in part, to
meet statewide greenhouse gas emission reduction goals. Actions within the HPS that
support development of compact, mixed-use neighborhoods include:
Existing actions and programs
Zoning amendments to allow a broader array of more affordable unit types in a
-
wider variety of zones including middle housing, live-work, tiny homes, small
lots, cottage housing, garden apartments, and higher residential density
development.
Transit Triangle Overlay allowed more housing development in this transit-
-
supportive area.
ECONorthwest Ashland Housing Production Strategy 44
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Ashland gives parking credits in areas with transit facilities.
-
Ashland established a Vertical Housing Development Zone.
-
Actionsin the HPS
Disallow SFD in High Density R-3 Zone
-
Increase development capacity of MFR dwellings through changes to the Land
-
Use Ordinance
Evaluate using Urban Renewal
-
Fair Housing. Supporting Fair Housing is accomplished by increasing access to housing
for people in state and federal protected classes, Affirmatively Furthering Fair Housing,
addressing disparities on access to housing opportunity for underserved communities,
and decreasing patterns of segregations or concentrations of poverty. Actions within the
HPS that further Fair Housing policies include:
Existing actions and programs
Education, outreach, and compliance enforcement through partnership with the
-
Fair Housing Council of Oregon,
Educational events with elected and appointed officials and for the public.
-
Past support for the Center for Non-Profit Legal Services for fair housing
-
assistance through the City's Social Service Grant fund.
Actions in the HPS
Production of affordable rental and homeownership housing, increasing housing
-
stability, identifying housing options for people experiencing homelessness, and
increasing housing choice are all part of supporting Fair Housing. These issues
are addressed above.
Host educational events with the Housing and Human Services Advisory
-
Committee or other organizations.
Develop an Equitable Housing Plan
-
Taken together, the policies and actions included in Ashland’s Housing Production Strategy are
intended to work together to achieve equitable outcomes for all residents of Ashland, with an
emphasis on improving outcomes for underserved communities, lower-income households,
and people in state and federal protected classes.
ECONorthwest Ashland Housing Production Strategy 45
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Monitoring Outcomes of the HPS
This is Ashland’s first HPS. As a result, the City is required to describe how it will measure the
implementation and progress of the HPS. This section focuses on these issues.
Ashland is required to report progress on implementation of the HPS to DLCD every four
This report must include:
years.
22
A summary of the actions taken to implement the HPS. If there are actions that the
City has not implemented on the schedule for the first four years of the HPS (i.e., actions
expected to be adopted by December 31, 2024), the City needs to provide an explanation
of the barriers to implementation and a plan for addressing the need that the action was
intended to address. That plan could include identification of other actions in the HPS
that will meet the identified need or it could include development of a new action to
meet the need.
A reflection of the efficacy of the actions the City has implemented. This reflection
should discuss the outcomes the City is observing from the actions they have
implemented to date and could include expectations for future outcomes.
A reflection of the efficacy of the actions in the context of the outcomes described
above. This section evaluates the goals and actions in the HPS for expected outcomes
such as increasing housing options for affordable homeownership, affordable rental
housing, housing stability, housing options for people experiencing homelessness,
housing choice, location of housing, and Fair Housing. The report should describe
whether the goals and actions implemented have resulted in the outcomes described
above.
In addition, Ashland is required to report about actions that will not be adopted on the schedule
presented in Exhibit 16. The City must notify DLCD that it will be unable to adopt the action
within 90 days of the end of the timeline to implement the action. This notice must identify the
actions or combinations of actions that the City will take to address the need that the action was
intended to address. This could include identification of other actions in the HPS that will meet
the identified need or it could include development of a new action to meet the need.
The City will review its progress toward the plan on an annual basis, coinciding with Council
work planning. During the review, the City will report on the implementation actions taken
over the previous year for the strategies in progress or scheduled to begin that year, along with
the housing development activity that has occurred. Every four years, these annual updates will
be combined into a report. Key questions that Council can consider in its assessment include:
Are additional actions needed to address new or changing conditions?
This report is due to DLCD no later than December 31 four years after Ashland adopts its HPS.
22
ECONorthwest Ashland Housing Production Strategy 46
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Is staff capacity sufficient to meaningfully advance the strategies?
What benefits has the City seen from its efforts to date? Are the City’s residents, and
especially its lower-income residents and communities of color, seeing a return on the
investments that the City has made?
In addition, the City can track indicators of plan progress in Exhibit 17.
Exhibit 17. Monitoring by Strategy
Annual monitoring
Strategies
Overall Monitoring
Number of affordable units developed by income range
Number of affordable projects developed
Evaluate participating in or establishing a land bank. Number of acres acquired for land banking
Number of dwelling units developed on land from land banking
Amount of fundingcontributed to land bank
Evaluate opportunities to participate in a land trust.Number of partnerships with land trusts
Number of acres contributedtoland trusts
Amount of funding contributed to land trust
Number of dwelling units developed in land trusts
Host educational events with the Housing and Human Number of events hosted
Services Advisory Committee Number of attendees at events
Demographics of attendees
Topics of events, such as affordable housing or Fair Housing
Develop an equitable housing plan
Equitable housing plan developed and adopted.
Disallow SFD in High Density R-3 Zone Ordinance developed and approved.
Comparison of newly developed housing in R-3 with historical
densities
Maintain quality and support development of a new Ordinance developed and approved.
manufactured home park Number of partnerships established to support preservation
efforts.
Amount of funding contributed to support preservation.
Changes in manufactured park ownership
Increase development capacity of MFR dwellings Ordinance developed and approved.
Comparison of newly developed multifamily housing with
historical densities
Implement the Multiple Unit Property Tax Exemption
Exemption developed and implemented
(MUPTE) to support multifamily or affordable housing
Number of inquiries about tax exemption
Number of projects (and units) granted tax exemption
Preserve and improve existing low-cost, unregulated, Amount of funding used for rehabilitation or preservation
rental housingNumber of units where funding was given for rehabilitation or
preservation
New partnerships established or expanded for preservation
Work with partners to support development of
New partnerships established or expanded
additional permanent supportive housing
Number of permanently supportive housing projects (and units)
developed
Evaluate opportunities to improve energy efficiency
Number of new ordinances or policies that encourage energy
and reduce GHG emissions during housing
efficiency
development
Number of new housing units developed under those policies.
Establish a Construction Excise TaxOrdinance adopted
Plan developed for the use of CET funds.
Use of CET funds
Number and types of units developed supported by CET;
affordability levels
Evaluate using Urban Renewal Urban Renewal Plan developed and adopted
Amount of funding investments made with urban renewal
dollars to support affordable housing
Number of all units and of affordable units built using urban
renewal dollars
ECONorthwest Ashland Housing Production Strategy 47
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Identify additional funds to support the Affordable Additional funding sources identified.
Housing Trust Fund Amount of additional funding directed to the Affordable
Housing Trust Fund.
Use of AHTF funds
Number and types of units developed supported by AHTF;
affordability levels
In addition, the City could monitor current market conditions to help the Council understand
the context in which the overall Affordable Housing Strategy is operating:
Number and type of new homes produced and total within the city over time - tenure,
size, sales price/asking rent, and unit type
Share of rent-burdened residents
Sales prices and rents for existing homes
Number, location, and expiration date of regulated affordable units with change in units
provided over time
When Ashland produces its next HPS in eight years, the City will be required to summarize the
efficacy of each action included in this HPS. The information resulting from these measures will
help Ashland to summarize the outcomes and efficacy of the actions in this HPS.
ECONorthwest Ashland Housing Production Strategy 48
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Appendix A: Contextualizing Ashland’s Housing
Needs
This chapter 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:
23
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
It is worth commenting on the methods used for the American Community Survey. The American Community
23
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 Ashland Housing Production Strategy 49
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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
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
comparison areas. Where information is available and relevant, we report information from
24
Among other data points noted throughout this analysis,
the 2000 and 2010 Decennial Census.
25
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.
26
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.
27
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
Five-year 2020 ACS data was not available when this report was compiled.
24
The 2020 Census was completed at the end of 2020. However, extenuating circumstances brought on by the
25
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
26
University.
Final Population Forecast for Jackson County, prepared by the Population Research Center at Portland State
27
University, June 20, 2017.
ECONorthwest Ashland Housing Production Strategy 50
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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.
50% of Ashland’s Exhibit 18. 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 19. 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.
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There are more females Exhibit 20. Population Distribution by Sex for
in every age group than Each Age Group, Ashland, 2015-2019
males. Source: U.S. Census Bureau, 2015-2019 ACS, Table B01001.
Between 2000 and Exhibit 21. 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).
ECONorthwest Ashland Housing Production Strategy 52
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Race and Ethnicity
Understanding the race and ethnicity characteristics in Ashland is important for
28
understanding housing needs because people of color often face discrimination when looking
for housing.
About 3,000 people Exhibit 22. Population by Race/Ethnicity, Ashland, 2015-2019
identify as a raceor
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.
Residents who identify as Exhibit 23. 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 U.S. Census Bureau considers race and ethnicity as two distinct concepts. Latino is an ethnicity and not a race,
28
meaning individuals who identify as Latino may be of any race.
ECONorthwest Ashland Housing Production Strategy 53
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The share of Ashland’s Exhibit 24. 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 Ashland Housing Production Strategy 54
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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 25. 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 Ashland Housing Production Strategy 55
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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 26. 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 27. 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 Ashland Housing Production Strategy 56
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Ashland has a larger share Exhibit 28. Household Composition, Ashland, JacksonCounty, 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 Ashland Housing Production Strategy 57
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Overcrowding
Overcrowding occurs when the relatively high cost of housing either forces a household to
double-up with another household or live in a smaller housing unit to afford food and other
basic needs. An overcrowded household is defined by the Census as one with more than one
person per room, excluding bathrooms, kitchens, hallways, and porches. Severely overcrowded
households are households with more than 1.5 persons per room. Overcrowding can indicate
that community does not have adequate supply of affordable housing, especially for larger
families.
Approximately 2.6% of all Exhibit 29. Overcrowding by Tenure, City of Ashland, 2015-2019
renter households (118
Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B25014.
households) in Ashland are
overcrowded. No owner
households are
overcrowded.
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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.
29
Ashland’s median Exhibit 30. 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.
29
ECONorthwest Ashland Housing Production Strategy 59
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45%of all households in Exhibit 31. Household Income Distribution, Ashland, JacksonCounty,
Ashland earned less than 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 32. 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 32 displays median household income for households in Ashland, with
size and peaks with 5-
Jackson County information providing additional context. Data for 6- and 7-person
person households.
households was not available at the City level.
ECONorthwest Ashland Housing Production Strategy 60
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In Ashland, households Exhibit 33. Median Household Income by Age
with a householder under Source: U.S. Census Bureau, 2015-2019 ACS 5-year estimate, Table B19049.
the age of 45 make less
than the city median
income.
Household income peaks
between ages 45 and 65
and declines after age 65.
Forty-four percent of Exhibit 34. Household Income Distribution for Householders Aged 65
households with a head of 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 Ashland Housing Production Strategy 61
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Latino and some other Exhibit 35. Median Household Income by Raceand Ethnicityforthe
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 Ashland Housing Production Strategy 62
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Exhibit 36 to Exhibit 38 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 throughout 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 36. 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 Ashland Housing Production Strategy 63
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Over 50% of all renter Exhibit 37. 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 38. 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 Ashland Housing Production Strategy 64
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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 39. 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.
Exhibit 40 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
ECONorthwest Ashland Housing Production Strategy 65
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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 40 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 22 shows that groups like
Black or American Indian include a small number of people living in Ashland. Exhibit 40 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 40 is that some people of color (not including Asians) are
more likely to live in multifamily housing than the Ashland average in Exhibit 39, which shows
that 14% of households live in multifamily housing.
Exhibit 40. 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 Ashland Housing Production Strategy 66
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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 41. 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 42. 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%).
ECONorthwest Ashland Housing Production Strategy 67
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Ashland’shomeownership Exhibit 43. 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 44. Tenure by Race and 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%.
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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 45. Government-Assisted Housing, Ashland, 2019
Source: Oregon Health and Human Services, Affordable Housing Inventory in Oregon.
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.
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Exhibit 46. Facilities and Housing Targeted to Households Experiencing Homelessness in Ashland,
2020
Source: Ashland’s 2020-2024 Consolidated Plan.
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
30
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.
31
The following exhibits provide more localized estimates of homelessness in Ashland’s region.
Jackson County’s Point-in-Exhibit 47. Number of Persons Homeless, Jackson County, Point-
Time Homeless count in-Time Count, 2015, 2019, and 2020
Source: Oregon Housing and Community Services and Annual Homeless
increased by 31% from
Assessment Report (AHAR) data.
2017 to 2021.
Note: OHCS reported two counts in 2021 – estimated and reported counts. This
report uses the estimated counts.
633 Persons 712 Persons 831 Persons
201720192021
The U.S. Department of Housing and Urban Development (2021). The 2021 Annual Homeless Assessment Report
30
(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
31
sheltered count reported during 2019-2021 in Jackson 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 48. Point-in-Time Homelessness Estimates, Ashland,
people experienced Jackson County CoC, 2017-2021
homelessness in Jackson Source: Oregon Housing and Community Services and Annual Homeless Assessment Report
(AHAR) data.
County, the majority of
Note: OHCS reported two counts in 2021 – estimated and reported counts. This report uses
which were unsheltered.
the estimated counts.
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 49. 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.
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Based on the Oregon’s Exhibit 50. 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 51. 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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Themedian price of a home Exhibit 52. 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).
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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.
32
According to the 2015-2019 Exhibit 53.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.
CMP Real Estate Services, Inc., December 2020.
32
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Housing Cost Burden
Financially attainable housing costs for households across the income spectrum in Jackson
County are identified in 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).
Exhibit 54. For example, a household earning median family income in Jackson County (about
can afford a monthly rent of about $1,830 or a home roughly valued between
$73,100 per year)
33
$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).
Note that Median Family Income for the region is different than Median Household Income (MHI) for Ashland (see
33
Exhibit 27). 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 54. 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 55
through Exhibit 60 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 55. Housing Cost Burden, Ashland, JacksonCounty, 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 56. 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 57. 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 58. 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 59. 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 60. 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.
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Exhibit 61 to Exhibit 62 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
34
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 61. 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
34
Housing and Community Services by ECONorthwest, March 2021.
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Renters with a disability in Exhibit 62. 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.
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Findings from Outreach and Engagement
The City has conducted extensive engagement on housing related issues, including targeted
outreach to students and low-income households. The full summary of recent engagement and
community feedback is included as Appendix D. Based on the comments provided, it appears
that off-campus housing in Ashland for SOU students is generally expensive and difficult to
find. Many students are struggling to afford housing and are forced to take on multiple jobs or
rely on financial aid in order to pay for rent. Some students have resorted to living in hotels or
with roommates in order to save money. There is a lack of affordable apartment options in the
area, and the high cost of rent often forces students to choose between affording housing or
transportation. Some students have also reported being evicted or scammed while searching for
housing on websites like Craigslist. Additionally, the feedback received indicates there are a
number of unhoused college students in the area who are couch surfing or living in hotels due
to the high cost of rent. It is suggested that increasing the supply of housing options in Ashland
could potentially lower prices and make housing more affordable for students. Similarly,
respondents to community questionnaires administered through an online format, through
tabling events, and at the Annual Rent Burden forum, also identified housing price as the most
pressing housing issue in Ashland.
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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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Appendix B: Trends in Gentrification and
Displacement Risk
This appendix presents an analysis of trends in gentrification and displacement risk developed
for Ashland as part of the HPS.
DATE: July 18, 2022
TO: Brandon Goldman and Linda Reid
FROM: Beth Goodman, Emmanuel Lopez, and Justin Sherrill
SUBJECT:Trends in Gentrification and Displacement Risk in Ashland
As the City of Ashland sets the stage for its Housing Production Strategy, staff are interested in
understanding current trends in gentrification and displacement risk in Ashland. The Housing
Production Strategy Project Team will use this information to inform potential actions that the
City could take to mitigate the risk that the city’s most vulnerable populations would be
displaced from their housing.
The initial, high-level results of our analysis reveal that:
Highway 99 is a dividing line when it comes to socioeconomicvulnerability. In
general, more vulnerable and gentrifying areas are to the north of the highway, and
more stable or very late-stage gentrified areas to the south.
Most Ashland residents live in neighborhoods that are not currently at risk of
gentrification. Approximately 90% of households live in tracts that are either already
gentrified or have remained demographically and economically unchanged since 2010.
Ashland has a substantial number of households that are at-risk of displacement and
vulnerable, especially in the northern parts of the city. 39% of Ashland households live
in tracts that display high rates of socioeconomically vulnerability and risk of
displacement should gentrification start occurring, such as people with less than a
Bachelor’s degree, Hispanic population, and People of Color.
In the following sections, we will examine results and trends in further detail. An overview of
the methodologies used in this analysis are within this memorandum.
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Analysis Methodology
ECONorthwest conducted this analysis by combining two parallel models that look at 1) where
the city’s most socioeconomically vulnerable populations are currently clustered and (2)
where gentrification has been most rapidly advancing within Ashland since 2010.
Within the socioeconomic model, we designed a model that identified the Southwestern
Oregon region’s most disproportionately cost-burdened demographic groups (such as
households with children present or households with people of color, or households with
people with a disability) using 2016-2020 ACS PUMS data, then compiled Census tract-level
estimates of these demographic groups.
Within the gentrification model, we used Dr. Lisa Bates’ 2018 gentrification and displacement
methodology that the Portland Bureau of Planning and Sustainability (BPS) used for the city of
Portland, which identifies areas in different stages of gentrification, from stable (low risk of
gentrification) to early-stage gentrification to late-stage gentrification. The data we used was
similar to the data Dr. Bates used but shifted over a few years for ease of accessibility, for
example: rather than using decennial census, we used American Communities Surveys for the
years of 2006-2010, 2011-2015, and 2016-2020. For housing market conditions, we utilized
Property Radar data to capture median sale prices within a census tract for the years of 2010
and 2020.
Exhibit 63. Bivariate Analysis Outline
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Socioeconomic Vulnerability Methodology
In this part of the analysis, ECONorthwest answers the question, “Who is most likely to be
displaced if housing market conditions were to further appreciate in price or stay the same?”
We began with identifying groups that are inequitably burdened by housing costs, meaning
that these groups have higher rates of cost burden compared to all households. First, we
developed a weighted vulnerability indexing analysis, based on Oregon’s 2019 Public-Use
Microdata Survey (PUMS) data at the state level to identify demographic groups that are
unequally burdened by housing costs. This means that a given group’s share of the state’s cost-
burdened households is greater than its total share of all state households. For example,
households with a Hispanic/Latino head comprise 8.6% of the state’s households, but 13.4% of
the state’s cost-burdened households – a difference of 4.8% points.
Our analysis identified six demographic groups that were most disproportionately burdened:
Households with children present
People of Color (neither White non-Hispanic, nor Hispanic/Latino people are included
in this group)
People of Hispanic/Latino origin, any race
People five years and older with limited English proficiency (LEP)
People with one or more disabilities
People 25 years and older who have an educational attainment of less than a Bachelor’s
degree
Disproportionate cost burdening varies across the state. To capture this variation,
ECONorthwest compared disproportionate cost burdening among these groups for six
geographic areas of the state and compared levels of disproportionate cost burden among the
demographic groups for Census tracts in Ashland with state and regional results.
35
The result of this analysis is identification of Census tracts with lower and higher percentages of
people in vulnerable groups. Census tracts with higher vulnerability levels would indicate
places where it is more likely that not only current, but where future housing cost burdening
and possible displacement are more likely to occur.
ECONorthwest rank-ordered vulnerable demographic groups by six geographic areas of the state. We used the
35
rank (1 through 6) as a weighting factor. Based on this rank-ordered list, we next used tract-level 2019 ACS estimates
of all six demographic groups to calculate each tract’s percentage of its region’s total number of vulnerable groups.
This share was then converted to decile ranks, and each decile rank was multiplied by the rank-ordered weighting
factor. These “scores” were then summed for each tract, with total scores ranging between 21 to 210. Lastly, this score
was then divided by the maximum possible value to compute a more intuitive percentage value, with “100%”
indicating tracts with the highest levels of all vulnerable demographic groups.
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Gentrification & Displacement Methodology
Gentrification has many definitions such as “a process of neighborhood change that includes
economic change in a historically disinvested neighborhood —by means of real estate investment and new
higher-income residents moving in – as well as demographic change – not only in terms of income level,
but also in terms of changes in the education level or racial make-up of residents.” This analysis uses
36
the methodology developed by Dr. Lisa Bates at Portland State University in tandem with the
2018 Gentrification And
City of Portland’s Bureau of Planning and Sustainability (BPS) in their “
Displacement Neighborhood Typology Assessment.”
37
The analysis identifies Census tracts in Ashland where gentrification is taking place or may take
place in the future. These tracts where place-specific ordinances and location-specific research
can serve to protect vulnerable populations and determine how much the data matches the
lived experience of residents on the ground.
The Gentrification and Displacement Risk Analysis methodology used in this analysis mirrors
closely to what BPS and Dr. Lisa Bates utilized in 2018 with an additional typology, explained
The analysis considers the following characteristics:
below.
3839
Vulnerable populations are ones with:
High rates of renting households relative to the region
Large shares of communities of color relative to the region
Large shares of adults (25 years and older) without a four-year degree relative to the
region
36 Chapple, K., & Thomas, T., and Zuk, M. (2021). Urban Displacement Project website. Berkeley, CA: Urban
Displacement Project.
** The Stable – Low Vulnerability typology was developed to show tracts that have historically not had a vulnerable
population (between 2010 and 2020) while also experiencing low amounts to no demographic change.
In previous anti-displacement in gentrification analysis, Dr. Lisa Bates of Portland State University and BPS used a
37
large sample of 168 census tracts (as of 2019 Census Tract estimates) to measure and compare statistics.
In this analysis ECONorthwest sought to maintain consistency with the previous methodology. Given that the City of
Ashland has just 9 tracts, we used regional level data to calculate the baseline statistics for each of the indicators of
gentrification and social vulnerability analysis. We compared Ashland against the regional analysis. The intention
behind this was to provide a more robust picture for what the City of Ashland should compare itself to. It would not
have been effective to compare the city of Ashland to the city of Medford or Grants Pass, but instead to compare it to
the entire region to provide a more accurate depiction of housing market conditions, socioeconomic vulnerability,
and other considerations in the analysis.
The methods used by ECONorthwest draw from the work of Dr. Lisa Bates and BPS, but used the observation
38
years of 2010, 2015, and 2020 for both Census and American Communities Surveys years.
More information about the definitions for the “Vulnerable Population”, “Demographic Change”, and “Housing
39
.
Market Condition” can all be found in the 2018 report here
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Large shares of low-income households (below 80% Median Family Income) relative
to the region
Demographic changes (over the last decade or so) require three of the following four
conditions being true or the two bolded were true:
Share of homeowners increased or decreased slower than the regional average
Share of white population increased or decreased slower than the regional average
The share of adults with a four-year degree increased faster than the regional
average
Median household income increased faster than the regional average
Housing market conditions are Census tracts with the following conditions:
Adjacent tracts:
Had low or moderate 2010 home values/rents
-
Experienced low or moderate 2010-2020 appreciation (or 2015-2020 rental
-
appreciation)
Touched the boundary of at least one tract with high 2020 values and/or high
-
2010 appreciation (or 2010-2020 rental appreciation)
Accelerating tracts:
Had low or moderate 2020 home values/rents
-
Experienced high 2010-2020 appreciation (or 2010-2020 rental appreciation)
-
Appreciated tracts:
Had low or moderate 2010 home values/rents
-
Had high 2020 home values/rents
-
Experienced high 2010-2020 appreciation
-
This analysis of change (in populations, demographics, and housing markets) over time is
completed at the regional and Census-tract levels, rather than at the household level. A basic
limitation of census and ACS data is that they cannot provide longitudinal data on individual
households between surveys (e.g., over +10 year spans of time). Whether or not low-income
families in Ashland have been displaced from other neighborhoods in that time (tracts labeled
Late: Type 1 or Dynamic) requires a much deeper level of analysis and qualitative analysis done
by either academics or the City.
Exhibit 64 shows a summary of the typologies used in this analysis. They are:
Early-Stage Gentrification. These tracts have not started to gentrify or show early signs
that they could be gentrifying.
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Susceptible. These tracts have higher shares of vulnerable populations but have not
yet experienced demographic changes. Their housing market sales and rents were
low or moderate in costs, but they are adjacent to tracts whose housing costs are
already high or are increasing rapidly.
Early: Type 1. These tracts have higher shares of vulnerable populations but have
not yet experienced demographic changes. Their housing market is still low or
moderate in cost but has experienced high appreciation since 2010.
Early: Type 2. These tracts have higher shares of vulnerable populations but have
experienced demographic changes showing the loss of vulnerable populations. Their
housing market is low or moderate in costs, but they are adjacent to tracts whose
housing costs are already high or are increasing rapidly.
Mid-Stage Gentrification.
Dynamic. These tracts are currently undergoing gentrification. They have higher
shares of vulnerable populations and have experienced demographic changes by
losing vulnerable populations. Their housing market is still low or moderate in costs
but has experienced high appreciation since 2010.
Late-Stage Gentrification. These tracts have mostly gentrified but vulnerable
populations may still reside in there. The housing market has completely shifted from
low or moderate to high housing costs.
Late: Type 1. These tracts have higher shares of vulnerable populations but have
experienced demographic changes by losing vulnerable populations proportionally.
Their housing market used to be low or moderate in 2010 but has appreciated
rapidly since, and now values are high.
Late: Type 2. These tracts no longer have high shares of vulnerable populations like
they used to in 2010. They have experienced demographic changes by losing their
once-high share of vulnerable populations. Their housing market is still low or
moderate but has experienced high appreciation since 2010.
Continued loss . These tracts no longer have high shares of vulnerable populations
like they used to in 2010 or in 2015. The share of white people is growing and/or the
share of people with a four-year degree is growing. Their housing market used to be
low or moderate in 2010 but has appreciated rapidly since, and now values are high.
Stable Low-Vulnerability Communities. These tracts are ones that have had
historically low levels of vulnerable populations relative to the region (from 2010-2020).
ECONorthwest Ashland Housing Production Strategy 91
Total Page Number: 145
Exhibit 64. Gentrification/Displacement Methodology
What neighborhoods are at most risk of gentrification and
displacement?
The most at-risk neighborhoods are in the central east areas of Ashland, while the
more stable, low-risk neighborhoods makeup the rest.
The majority of households (~90%) live in Census tracts that are stable and not showing recent
signs of gentrification, while around 10% are in susceptible areas (see Exhibit 66).
Only one tract in Ashland can be considered Susceptible (see Exhibit 65). Central Ashland
(along the junction of Highway 99 and West of the Highway 66) have a census tract that is
considered Susceptible to gentrification, meaning that it has a high share of economically
vulnerable households while also being around census tracts that have had high rates of home
sale appreciation or rent appreciation.
Exhibit 65 shows Ashland’s gentrification typology by census tract.
ECONorthwest Ashland Housing Production Strategy 92
Total Page Number: 146
Exhibit 65. Gentrification Typology by Tract
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest, Bates/BPS
About 10% in Ashland live in one tract that is classified as in the Susceptible stages of
gentrification, as shown in Exhibit 66. While this does not necessarily indicate that 10% of all
households are at risk of gentrification, it indicates that the majority of Ashland shows signs of
housing stability relative to its surrounding region. The tract in Ashland’s northwest corner
does contain a few dozen houses close to Highway 99, but the majority of this tract is within
Talent and has therefore been omitted from our summary tables.
ECONorthwest Ashland Housing Production Strategy 93
Total Page Number: 147
Exhibit 66. Total Ashland Households by Tract Gentrification Typology
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
Neighborhood-Level Observations Results
Gentrification can be quite a nuanced topic. While the data presents one story about an entire
census tract, Ashland’s neighborhoods that are in the process of being gentrified may be a much
smaller portion of that Census tract.
For Ashland, one tract falls under the definition of Susceptible. This typology is characterized
by having high levels of economic vulnerability, low rates of demographic change, and having
nearby tracts (called “adjacent” tracts) becoming more valuable (rents and/or sale prices
appreciating quickly) between 2010 and 2020. This tract is one where the City may want to focus
active monitoring to make sure that residents who are already cost-burdened are not forced to
leave due to gentrification. Given that a portion of this tract is taken up by Southern Oregon
University, this area is likely to have a high student concentration, both in dorms and student
housing, as well as other households in Ashland.
ECONorthwest Ashland Housing Production Strategy 94
Total Page Number: 148
Most tracts in and around Ashland are classified as Stable – Low Vulnerability. This typology
is characterized by low levels of economic vulnerability, little to no recent demographic change,
and a housing market that has already appreciated or has stayed relatively flat in the last 10
years.
Where do Ashland’s most vulnerable residentslive?
While the previous section provides information on how tracts in Ashland have or have not
gentrified, based in part on the Dr. Bates/BPS methodology, this does not answer the question of
which neighborhoods and demographic groups are most disproportionately burdened by
housing costs. To address this issue, ECONorthwest developed a separate model (described on
page 87) using ACS/census datasets to determine which tracts in Ashland are most acutely and
unequally burdened by housing prices – the implication being that, should trends hold, the
most burdened households today will likely be the first to be displaced tomorrow.
Tracts showing the highest levels of vulnerability are mainly clustered around
Ashland’s northern boundary.
Exhibit 67 shows the results of the Socioeconomic Vulnerability model. These “high-
vulnerbility” tracts contain the combined largest shares of the region’s most disproportionately
cost burdened demographic groups, such as people without a bachelor’s degree or higher,
people of color, and people living with one or more disabilities. Low-vulnerability tracts in
Ashland are mostly found in the south and central areas of the city. Ashland’s most vulnerable
tract is one that spans along the north side of Highway 99, but the demographic groups that
could be impacted by rising housing prices can be found across Ashland.
Exhibit 67. Overall Socioeconomic Vulnerability by Tract
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
ECONorthwest Ashland Housing Production Strategy 95
Total Page Number: 149
Who is most likely to be displaced if housing market conditions
housing market conditions continue to appreciate or stay the
same?
Some interesting trends include a noticeable clustering of all demographic groups along
Ashland’s northeastern boundary, along with a higher POC, LEP, and Hispanic household
shares in Ashland’s central east neighborhood area. Exhibit 68 shows the results of our
Socioeconomic Vulnerability analysis, broken out by each demographic group examined.
Across the state of Oregon, having less than a Bachelor’s degree was the strongest determinant
of cost-burdened households. Ashland’s largest vulnerable group is Less than a Bachelor’s
degree as well, though this group can also include relatively more financially secure elder or
retired residents.
ECONorthwest Ashland Housing Production Strategy 96
Total Page Number: 150
Exhibit 68. Vulnerable Group Concentration by Tract
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
ECONorthwest Ashland Housing Production Strategy 97
Total Page Number: 151
Exhibit 69 depicts the combined Socioeconomic Vulnerability model results in terms of number
of households that reside in tracts with intersecting gentrification typologies and socioeconomic
vulnerability groupings. For instance, we find that the most common intersection of our model
are the 5,651 people living in Stable – Low Vulnerability tracts and having an educational
attainment of less than a bachelor’s degree. These demographic groups are not mutually
exclusive, so many households would be counted in multiple groups (i.e., a POC individual
with a disability would be counted twice).
Exhibit 69. Estimated Households or Population by Vulnerability Group and Gentrification Typology
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
Most socioeconomically vulnerable residents in Ashland are in the “Less than Bachelor’s
Degree” group, which falls in line with high degrees of housing cost-burdening across the state
of Oregon. This sub-group is the most common within Ashland’s Susceptible tract, followed
40
by Hispanic and POC residents. In Ashland’s Stable – Low Vulnerability tracts, residents with
less than a Bachelor’s degree are again the most common, followed by households with children
present and people living with one or more disabilities.
This tract contains Southern Oregon University and a high concentration of college students in university housing.
40
ECONorthwest Ashland Housing Production Strategy 98
Total Page Number: 152
Where do areas with higher gentrification risk and vulnerable
populations intersect?
Highway 99is a dividing line when it comes to gentrification and vulnerability.
Ashland, along with portions of nearby Talent, contain significant amounts of the region’s most
vulnerable tracts when considering displacement risk, but only one tract in Ashland has been
classified as Susceptible to gentrification. Interestingly, our model does not show an intersection
between gentrifying and more socioeconomically vulnerable tracts in Ashland.
Exhibit 70 shows areas with higher gentrification risk and areas with higher social vulnerability.
ECONorthwest Ashland Housing Production Strategy 99
Total Page Number: 153
Exhibit 70. Composite Gentrification & Socioeconomic Vulnerability Risk, by Tract
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
Indicators of
higher
gentrification risk
include:
high shares of
low-income
households,
changing
socioeconomic
demographics
as compared
to the region
rising prices of
housing for
sales and rent
Indicators of
higher social
vulnerability
include:
higher shares
of the region’s
POC or
Hispanic
population
higher shares
of the region’s
population
without a
bachelor’s
degree or
higher
Exhibit 71 provides more context about the risk for gentrification and the level of social
vulnerability in Exhibit 70. The following describes the gentrification risk and social
vulnerability at each corner of the matrix in Exhibit 71.
Top row, left side – in blue. These areas are at risk of displacing existing populations
but the populations in these areas are generally less vulnerable as compared to the
region. This may also indicate that neighborhoods nearby are experiencing
appreciations in home sales and rents.
Top row, left side – in dark grey. These areas are the highest risk of displacement of
existing vulnerable population, such as lower-income households, people of color,
Latino households, or other vulnerable populations.
ECONorthwest Ashland Housing Production Strategy 100
Total Page Number: 154
Bottom row, left side – in light grey. These are areas with little risk of displacement and
few vulnerable populations.
Bottom row, right side – in pink. These areas have little existing risk of displacement
but are home to vulnerable populations.
Exhibit 71. Gentrification & Socioeconomic Vulnerability Risk Matrix
Most Ashlandresidents live in neighborhoods that are not currently atrisk of
gentrification
Just over half (51%) of Ashland residents live in Census tracts that combine a low gentrification
risk and a low socioeconomic vulnerability level.
Exhibit 72 shows a more simplified version of the percentage of population in Ashland in each
of the groupings shown in Exhibit 70 and Exhibit 71.
10% of Ashland households reside within a tract identified as at high risk of
gentrification (either in early or susceptible stages), but this same tract does not display
high rates of socioeconomic vulnerability according to our model.
ECONorthwest Ashland Housing Production Strategy 101
Total Page Number: 155
39% of households reside in tracts identified as at high socioeconomic risk of housing
displacement, but low risk of gentrification.
Exhibit 72. Ashland Households Within Composite Gentrification & Socioeconomic Vulnerability
Tracts
Source: ACS 2010, 2015, 2019 (5-year), RLIS, ECONorthwest
10%
39%
Implications and Next Steps for the Housing Production Strategy
This analysis shows that one central area of Ashland is in early stages of gentrification or at-risk
of gentrification. As neighborhoods that were once low-income begin to appear as appealing to
new residents, it is important to recognize that the people living in those neighborhoods may
not have the same economic opportunities as the people moving in.
For the City of Ashland to validate what is happening on the ground, it is important to consider
neighborhood characteristics and design community charettes to accurately represent what
change looks like to the residents there now. Ashland may want to take steps to further
understand potential for gentrification and potential displacement of vulnerable population,
such as conducting additional research about areas at risk for gentrification to better understand
the demographic characteristics of people who may be displaced.
ECONorthwest Ashland Housing Production Strategy 102
Total Page Number: 156
The HPS may include actions to preserve existing affordable housing, stabilize households, and
prevent future displacement and gentrification.
ECONorthwest Ashland Housing Production Strategy 103
Total Page Number: 157
Appendix C. Housing Developer Interview
Summaries
This appendix summarizes the interviews conducted as part of the Housing Production
Strategy with stakeholders in the Ashland development community.
DATE: September 12, 2022
th
TO: Brandon Goldman, Linda Reid, City of Ashland
FROM: Kaitlin La Bonte, Mackenzie Visser, ECONorthwest
SUBJECT:Summary of Developer Interviews
Purpose of Interviews
ECONorthwest collected input from stakeholders in Ashland, including developers, builders,
planners, and architects. The goal of these meetings was to collect feedback on potential
strategies and get insight into development barriers in Ashland. Five interviews were
conducted over the course of August, 2022.
Interview Structure
Interviews were conducted in a semi-structured interview style, where conversations included
the following topics and questions:
Barriers to development:
What are the biggest challenges to development in Ashland?
Are there specific barriers to housing development you’ve encountered in the
development code?
Are there specific barriers to housing development you’ve encountered in the review
process?
Initiatives proposed in the HPS, including:
Encourage development of low- and moderate-income affordable rental housing.
Increase opportunities for affordable homeownership.
Encourage development of income-restricted affordable housing units.
Preserve existing of low- and moderate-income affordable housing.
ECONorthwest Ashland Housing Production Strategy 104
Total Page Number: 158
Potential strategies, including:
Increasing development capacity of MFR dwellings through changes to the Land Use
Ordinance.
Disallowing SFD in High Density R-3 Zone.
Implementing the Multiple Unit Property Tax Exemption (MUPTE) to support
multifamily or affordable housing.
Exploring the potential of Inclusionary Zoning.
Establishing a Construction Excise Tax.
Evaluating using Urban Renewal.
Stakeholder Interviews Summary
Key feedback and themes from the stakeholder interviews are summarized in the table below:
ThemesStakeholder Feedback
Barriers to Development
Stakeholders agreed There is a shortage of available land to develop on in
that the cost of land Ashland, pushing up land prices.
in Ashland was a
The price of land is a major barrier to development in the
major driver of
City, leading to increased housing costs.
development costs.
Existing land can be difficult to build on due to slope, solar
ordinances, wetlands, and other factors.
Some administrative The pre-application waiting period can be a barrier to
processes create development. An expedited permitting process for
experienced developers could shorten the development
barriers to
process by several months.
development.
Increased communications between City departments (such
as engineering, permitting, etc.) could facilitate the
application process.
Planning Commission procedures, such as reviewing
planning decisions only once a month and delaying adoption
of findings until a second hearing, add substantial time to
review procedures.
Additional City staff could facilitate development by
expediting review times, helping developers navigate the
code, and providing other supports.
ECONorthwest Ashland Housing Production Strategy 105
Total Page Number: 159
ThemesStakeholder Feedback
Decreasing SDCs Stakeholders felt that SDCs were a barrier to providing
could incentivize affordable, workforce, and multifamily housing.
development in
Respondents believed that SDC fees and permit fees are more
Ashland.
expensive than neighboring jurisdictions, which may deter
development in Ashland.
Parking requirements
Parking minimums add to development costs.
Certain code Two stakeholders cited the Solar Ordinance as a requirement
requirements create that limits buildable area on a site.
de facto density
One stakeholder mentioned that driveway spacing
limitations.
requirements as a barrier to density.
Other limitations on density that stakeholders cited included
tree preservation requirements, stormwater retention facility
requirements, requirements for gravel barriers around
houses, and the lot coverage limitations in woodland zones.
Certain code Stakeholders cited the annexation process, the solar
requirements create ordinance, the modified flood zone, and street standard
confusing and requirements as challenges to navigating Ashland’s
unpredictable review development code.
processes.
Feedback on Initiatives
Stakeholders agreed Stakeholders generally agreed that building more affordable
that housing costs
and workforce housing is an important priority for the City.
were too high for
Stakeholders generally supported increasing density and
many Ashland
vertical development in Ashland, but recognized the
households.
difficulties associated with doing so.
Stakeholders gave Two stakeholders expressed they would like the City to use
mixed feedback on more of the zoning and urban planning tools at its disposal.
the City’s
Two stakeholders expressed that they were satisfied with the
performance.
work the City is doing, especially compared to neighboring
jurisdictions.
Feedback on Strategies
Urban Renewal Two stakeholders were engaged with Urban Renewal efforts
in other jurisdictions and reported that it was helpful in
facilitating development.
ECONorthwest Ashland Housing Production Strategy 106
Total Page Number: 160
ThemesStakeholder Feedback
Another stakeholderwas not confident that Urban Renewal
would be successful in Ashland and felt the City should
focus more on other strategies.
ADUs Under current conditions, ADUs are generally not feasible to
develop as rental units, as high development and materials
costs require higher revenues to pencil.
Requirements for separate water meters, sewer, power, and
storm systems for ADUs drive up costs.
Reducing SDCs based on size could encourage ADU
development.
Annexation Two stakeholders mentioned the Grant Terrace project and
felt it was a positive development for Ashland, though noted
the challenges involved in the annexation process.
Multiple stakeholders felt easing the annexation process
could increase the amount of buildable land in Ashland,
lowering costs.
Some stakeholders felt the City should annex additional land
to increase development, rather than increasing density.
Increasing Two stakeholders felt increasing lot coverage allowances
development capacity would support development.
of MFR dwellings
Two stakeholders doubted whether this strategy would have
through changes to
much of an impact because there is not sufficient demand for
the Land Use
higher density MF developments
Ordinance
Land banking One builder expressed interest in building more workforce
housing if they could do so feasibly and would be interested
in partnering with the City if the city had land available.
Stakeholder Recommendations
To promote housing Evaluate opportunities to streamline development review.
development
Increase Cottage Housing SF allowances to 850 feet. The 800
SF maximum limits flexibility for an amenity such as a ½
bath or powder room, and limits tenant type to single users
and not families or single adult and one child.
Allow temporary residential use of future commercial spaces
to provide affordable housing while the market adjusts.It
ECONorthwest Ashland Housing Production Strategy 107
Total Page Number: 161
ThemesStakeholder Feedback
can be difficult to get financing for commercial spaces,
limiting overall mixed-use development.
To encourage density Push for Vertical Housing Tax Credits in all R-3 and Mixed-
Use Zones, including the Downtown, by eliminating
unnecessary regulation and providing staff assistance with
the application materials;
Review the code for unintended barriers to density.
To increase Amend code to increase “lot coverage” allocations with ADU
feasibility of ADU proposals. For instance, allow an extra 15% of lot coverage
development for ARU’s less than 350 sq. ft.
Reduce or eliminate current building separation
requirements for structures on the same lot, specifically main
house and ARU units
ECONorthwest Ashland Housing Production Strategy 108
Total Page Number: 162
163
Number:
-approved plans such as other
Discussion and information regarding State requirements and changes.
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w.ashland.or.us/Agendas.asp?AMID=7738&Display=Minutes
table to learn about HB2001, and to review and discuss proposed code
ractors and developers attended a developer round
Page
five development professionals including planners, design
Total
Planning Commission recommended approval of the ordinance.
HPS Summary of Past Engagement and Community
109
the City to provide pre
cities have done. Parking concerns.
Recommendation for
Summary of Input
professionals, cont
Feedback on Housing Related issues.
-
Thirty
professionals: developers,
professionals, contractors
3 members of the public
Housing Production Strategy
1 professional planner
Planning CommissionPlanning Commission
Who participated
planners, design
35 development
Ashland
obtain comments
Middle Housing
information and
middle housing
Public input on
discussion of
on proposed
establishing
Review and
Ordinance
ORD 3199-
Appendix D.
Provide
Purpose
policiespolicies
12/22/2020
10/13/20202/23/2021 4/27/2021
Meeting
5/11/20214/21/2021
orthwest
Date
CON
(ORD 3199) (ORD 3199)
Developmen
E
Meeting Housing Housing
Meeting
Hearing
t Round
Middle Middle
Meeting
Public Public
Name
Table
164
Number:
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https://www.ashland.or.us/SIB/files/Ashland_HCA_PAC_%231_Meeting_
https://www.ashland.or.us/SIB/files/Ashland_HCA_AC_%232_Meeting_N
changes to support the development of Accessory Residential Units and
https://www.ashland.or.us/Agendas.asp?AMID=7737&Display=Minuteshttps://www.ashland.or.us/Agendas.asp?AMID=7744&Display=Minutes
Page
Supported recommendations for duplex and ARU code Changes.
Total
110
The Housing and Human Services Commission has since changed its name to the Housing and Human Services Advisory Committee.
Duplexes within Ashland.
No recommendations
Notes.pdf
19_21.pdf
otes.pdf
members, Ashland School
Planning, housing, climate
Housing Production Strategy
le
41
Housing and Human
Services Commission
Historic CommissionBoard member, and
private and affordab
housing developers
action commission
Ashland
recommendation
mmendation
Middle Housing Middle Housing
policies/actions,
discussion, and discussion, and
assumptions,
discussion of
of ORD 3199-of ORD 3199-
amendments
review and
Review of
Review, Review,
policiespolicies
code
reco
03/01/2021 04/26/2021 12/07/2020
01/11/2021
4/22/2021
5/5/2021
orthwest
CON
(ORD 3199) (ORD 3199)
41
Advisory
E
Housing Housing
Meeting Meeting
meetings
Middle Middle
Group
Public Public
HCA
165
Number:
encouraged that 400 people attended the virtual meeting and they received
https://www.ashland.or.us/SIB/files/HCA_openhouse_Survey_Results_202
She was interested
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w.ashland.or.us/Agendas.asp?AMID=7803&Display=Minuteshttps://www.ashland.or.us/Agendas.asp?AMID=7714&Display=Minutes
tps://www.ashland.or.us/Agendas.asp?AMID=7832&Display=Minutes
Commissioner Thompson shared her concern on building smaller units
Page
Chair Norton was
Total
111
not families.
in strategies for larger units that were affordable.
that seemed more suited for retirees and
Approved HCA as presented.
300 surveys.
df
10416.p
ht
394 community members
Housing Production Strategy
Planning Commission
City Council
attended
Ashland
information and
understand and
ns for the HCA
RecommendatioRecommendatio
housing needs.
ns for the HCA
assumptions,
obtain public
communities
comments to
policies, and
Review and Review and
address the
Provide
actions
er
data,
bett
05/17/2021 08/17/2021 08/03/2021 03/23/2021
4/16/2021 05/19/202007/13/2021
orthwest
-
4/1
Open House
CON
E
Capacity Capacity Capacity
Housing Analysis Housing Analysis Housing Analysis
HearingsHearings
Virtual
Public Public
166
Number:
Citizens identified which types of activities were high or low priorities for
the limited CDBG resources. Affordable housing was the highest priority
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tps://www.ashland.or.us/Agendas.asp?AMID=7715&Display=Minutes
rategic Plan for the use of CDBG
Page
year strategic Plan for the use of CDBG
https://www.ashland.or.us/SIB/files/2021_6_24_draft_minutes.pdf
Total
112
Commission discussed aging population and urban renewal.
Commission voted to accept and support the HCA.
year st
-
-
Recommended approval of 5
Approved adoption of the 5
identified.
funding.funding.
ht
134 community members
Housing Production Strategy
Planning Commission
Housing and Human Housing and Human
Services CommissionServices Commission
Joint Housing and
and DHS staff
City Council
Ashland
recommendation recommendation
priorities for the
-2024 -2024
CDBG program
discussion, and discussion, and
Recommendatio
between 2020-
ns for the HCAEvaluation of
Consolidated Consolidated
five-
Review and
period
of the 2020of the 2020
spending
over the
Review, Review,
2024
year
PlanPlan
06/24/2021
03/25/2021
3/26/20204/21/2020
3/1/2020
orthwest
-
2/1
CON
questionnair
ConsolidateConsolidateConsolidate
2024 2024 2024
priorities
E
Capacity
Housing Analysis
Hearings
HearingHearing
-d Plan d Plan
Public Public
Public
d Plan
---
202020202020
e
167
Number:
support of more goals/policies that support affordable housing, support of vernacular language (not technical) tables and references and assumptions
retention and development of rental housing. Suggested that a definition
proposed Goal 1 to encourage the
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w.ashland.or.us/Agendas.asp?AMID=7306&Display=Minutes
for universal housing/universal design, suggested wording and policy
out using
Page
Support of environmental and conservation measures, concerns and
Recommended approval of the document with some alterations:
Total
113
-
policy
universal design/accessibility/aging in place. Comments ab
-
housing
-
https://www.ashland.or.us/SIB/files/adopted
are dated and some are no longer accurate.
Recommended approval with no changes.
Suggested an additional policy under
Concerns about density and parking.
HE approved as presented.
changes to improve clarity.
all.pdf
-2017-
questionnaire
members/developers/servi
357 visits, 144 responses
ses
Housing Production Strategy
Housing and Human
Planning Commission
Services Commission
553 visits, 221 respon
20 community
City Council
ce providers
Ashland
recommendationrecommendationrecommendation
discussion, and discussion, and discussion, and
, and approval
priorities and
Feedback on
policies and
Discussion
narrative
policies, priorities
Review, Review, Review,
06/18/2019
11/15/201811/27/201806/04/2019
3/8/2017
9/2018
1/2017
orthwest
CON
Questionnai
E
Housing Housing Housing Housing Housing Housing
Element Element Element Element Element
HearingHearingHearing
Public Public Public
Forum
re
168
Number:
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https://www.ashland.or.us/Agendas.asp?Display=Agenda&AMID=8134
Page
Total
114
https://www.ashland.or.us/CCBIndex.asp?CCBID=239
continuum of housing and
human services needs of
volunteer members and
Services Commission is
Housing Production Strategy
their regular monthly
Housing and Human an Housing and Human d Human
on
Services CommissionServices Commission
meetings are public meetings where the
the community are
Services Commissicomprised of nine
Housing and Hum
discussed.
Housing an
Ashland
burden and HPS
regarding policy
the City Council
public comment
human services,
Public Forum to Public Forum to Public Forum to
recommendation
and Affordable
information to
Development
Block Grants,
housing and
and funding
Community
discuss rent discuss rent
rent
To provide
relating to
strategies strategies
discuss
burdenburden
s and
and
Thursday
12/10/202008/25/2022
9/26/2019
of the
month
orthwest
th
4
CON
commission
Rent Burden d
Rent BurdenRent Burden
Housing an
E
Monthly
Services
Regular
Human
Meeting
169
that the people she knows who have the most money to live on are dealers.
Number:
flexibility for allowing domes or other alternative housing structures in the
city, encourage more innovative/unconventional housing types that would
some staff/faculty. Policy is changing to make it harder for staff/faculty to Additional way some people raise rent money: dealing drugs. S. reported
part of their compensation. Jason noted that the only way he could afford
maintenance/repairs/materials as well as a staff shortage. These students
report running into caps in rental agreements on the number of persons
SOU workforce housing issues some employees get SOU apartments as
e. Students
students,
uggestions for what City policy could do to help: N. suggested more
s, putting higher priority on veterans, students with families.
e was around $35K annually, in addition to the campus
Page
to take this job was that it came with living quarters. Both said their
x on vacant/unoccupied houses.
Total
115
—
Housing staff are also contending with increasing costs for
SOU Family Housing is dealing with competition for space
2000/mo. Very low incom
be affordable. Adding a City fee/ta
all report a monthly income 1000-
who can share bedrooms.
supplied housing.
annual incom
get unit
S
3 students participated in
Housing Production Strategy
46 students completed
a focus group
surveys
Ashland
Fund allocations.
Obtain targeted
Housing Trust
needs
and strategic
community
regarding
feedback
priorities
housing
5/23/2022
orthwest
CON
SOU tabling
meeting to
issues and
and focus
strategies
E
housing
discuss
group
HPS
170
Number:
https://www.ashland.or.us/Page.asp?NavID=13461&pd_url=https%3A%2F
%2Fwww.opentownhall.com%2Fportals%2F89%2FIssue_12081#peak_dem
Page
Total
116
ocracy
Housing Production Strategy
236 responses
339 attendees
7 attendees
Ashland
housing needs housing needs
and strategic and strategic
community community
regarding regarding
feedback feedback
prioritiespriorities
Obtain Obtain
10/14/2022
10/19/2020
-
8/24/22
orthwest
CON
Open House
Hall online
Open City
E
Virtual
survey