HomeMy WebLinkAbout3265 Adopting the 2025 Economic Opportunities Analysis as a Technical Support Document to the Economic Element of the City of Ashland Comprehensive Plan ORDINANCE NO. 3265
AN ORDINANCE ADOPTING THE 2025 ECONOMIC OPPORTUNITIES ANALYSIS
AS A TECHNICAL SUPPORT DOCUMENT TO THE ECONOMIC ELEMENT OF THE
CITY OF ASHLAND COMPREHENSIVE PLAN
Annotated to show deletions and additions to the Ashland Municipal Code sections being
modified. Deletions are , and additions are bold underlined.
WHEREAS,Article 2. Section 1 of the Ashland City Charter provides:
Powers of the City. The City shall have all powers which the constitutions, statutes, and
common law of the United States and of this State expressly or impliedly grant or allow
municipalities, as fully as though this Charter specifically enumerated each of those
powers, as well as all powers not inconsistent with the foregoing; and, in addition thereto,
shall possess all powers hereinafter specifically granted. All the authority thereof shall
have perpetual succession.
WHEREAS,The City of Ashland is required under Oregon Statewide Planning Goal 9
(Economic Development) and Oregon Administrative Rule (OAR) 660-009 to provide an
adequate factual basis for employment land needs in its Comprehensive Plan.
WHEREAS, The City of Ashland's most recent Economic Opportunities Analysis (EOA)was
completed in 2007, and a technical update is necessary to reflect current economic trends,
employment projections, and land capacity over the next 20-year planning period.
WHEREAS,The City,with technical assistance funding from the Oregon Department of Land
Conservation and Development (DLCD), retained Community Attributes Inc. (CAI)to prepare
an updated Economic Opportunities Analysis. The final report, dated June 2, 2025, provides a
comprehensive analysis of Ashland's employment land supply and demand and includes findings
on demographic and economic trends, buildable lands capacity, and employment forecasts
consistent with Goal 9 and OAR 660-009.
WHEREAS, The 2025 Economic Opportunities Analysis (EOA) does not establish new
policies, zoning regulations, or land use designations. Rather, it is intended to serve as a
technical support document to inform future amendments to the Ashland Comprehensive Plan
and to support ongoing planning and policy development.
WHEREAS, The Ashland Planning Commission conducted a duly noticed public hearing on
May 27, 2025 reviewed the EOA,and recommended the City Council adopt the 2025 Economic
Opportunity Analysis a technical support document to the Comprehensive Plan and approve
Planning Action PA-L-2025-00017.
WHEREAS,The Ashland City Council conducted a public hearing on June 3, 2025 and
concluded that the 2025 Economic Opportunities Analysis is consistent with the requirements of
Statewide Planning Goal 9 and OAR 660-009 and supports the long-range economic
development objectives of the City.
ORDINANCE NO. 3265 Page 1 of 2
THE PEOPLE OF THE CITY OF ASHLAND DO ORDAIN AS FOLLOWS:
SECTION 1. The City of Ashland hereby adopts the 2025 Economic Opportunities Analysis,
prepared by Community Attributes Inc. and dated June 2, 2025, as a technical support document
to the Economic Element of the Ashland Comprehensive Plan, amending Chapter 7—Economy,
7.08 Technical Reports as follows:
The following reports are adopted by reference as part of the Economy Element of the
Ashland Comprehensive Plan:
1. City of Ashland: Economic Opportunities Analysis. (April 2007)(June 2025)
SECTION 2. The adopted EOA shall serve as the factual basis for future amendments to the
City's Comprehensive Plan and land use regulations relating to employment land needs,
economic development, and Goal 9 implementation.
SECTION 3. Severability. Each section of this ordinance, and any part thereof, is severable,
and if any part of this ordinance is held invalid by a court of competent jurisdiction, the
remainder of this ordinance shall remain in full force and effect.
SECTION 4. Codification. Provisions of this Ordinance shall be incorporated in the City Code
and the word "ordinance"may be changed to "code", "article", "section", "chapter"or another
word, and the sections of this Ordinance may be renumbered, or re-lettered,provided however
that any Whereas clauses and boilerplate provisions (i.e. Sections 3-4)need not be codified and
the City Recorder is authorized to correct any cross-references and any typographical errors.
The foregoing ordinance was first read by title only in accordance with Article X, Section
2(C) of the City Charter on the _day of J 2025, and duly
PASSED and ADOPTED this day of AAa , 2025.
PASSED by the City Council this��day of �� � , 2025.
ATTEST:
Alissa Kolodzinski, City Recorder
SIGNED and APPROVED this day of J (.�,.,1/I p , 2025.
Tonya G ham,Mayor
Revi d form:
J Piet' , City At
ORDINANCE NO. 3265 Page 2 of 2
BEFORE THE CITY COUNCIL
CITY OFASHLAND,JACKSON COUNTY,OREGON
June 17, 2025
In the matter of Planning Action PA-L-2025-00017, )
Ordinance 3265 adopting the 2025 Economic Opportunities ) FINDINGS OF FACT
Analysis as technical support document of the City of ) AND CONCLUSIONS OF
Ashland Comprehensive Plan's Economy Element ) LAW
I. PURPOSE
The purpose of Ordinance 3265 is to adopt the 2025 Economic Opportunities Analysis (EOA) as
a technical support document to the Economic Element of the Ashland Comprehensive Plan. The
EOA provides a current, data-driven assessment of Ashland's employment land supply,projected
land needs, and opportunities for economic development over the 2025-2045 planning period. It
serves as a foundational resource to inform future policy updates, zoning amendments, capital
planning, and economic development initiatives in compliance with Statewide Planning Goal 9
and related administrative rules.
II. PUBLIC HEARINGS
This action was reviewed through the City's legislative land use process.A joint study session of
the Planning Commission and City Council was held on April 29, 2024. Public engagement
included a community survey(February 2024), stakeholder interviews and focus groups (March—
April 2024), and a Southern Oregon University student forum(April 2024).A public hearing was
held before the Planning Commission on May 27, 2025. The City Council is scheduled to
conduct a public hearing for adoption on June 3, 2025. Public notices were issued in accordance
with Ashland Municipal Code(AMC) Chapter 18.5.9 and applicable state statutes.
III. SUMMARY OF AMENDMENTS
Ordinance 3265 amends the text of the Ashland Comprehensive Plan by adopting the 2025
Economic Opportunities Analysis(EOA) as a technical support document to the Economic
Element. The EOA is a data-driven analysis that establishes a factual basis to inform future
policy decisions related to employment land supply, economic development strategies, and
infrastructure planning.
Adoption of the EOA does not modify the Comprehensive Plan's existing goals or policies, nor
does it revise the Comprehensive Plan or Zoning maps. The EOA references the City's adopted
Findings of Fact and Conclusions of Law
2024 Buildable Lands Inventory(BLI) but does not itself amend or replace that inventory.
Instead, it evaluates employment land demand and supply using the adopted BLI to assess
Ashland's capacity to accommodate projected job growth over the 2025-2045 planning horizon.
This action ensures compliance with Statewide Planning Goal 9 and provides a legally sufficient
foundation for future updates to the City's Comprehensive Plan, zoning regulations, and public
facility planning efforts.
IV EVALUATION AND COUNCIL FINDINGS
The City Council finds that adoption of the 2025 Economic Opportunities Analysis (EOA)
complies with Ashland Municipal Code(AMC) 18.5.9.020, the Ashland Comprehensive Plan,
applicable Statewide Planning Goals, and relevant provisions of Oregon Administrative Rules.
While legislative amendments to the Comprehensive Plan are not subject to the same approval
criteria as quasi-judicial land use decisions, the City must demonstrate consistency with these
overarching legal and policy frameworks. Ordinance 3265 and the 2025 EOA meet these
standards by providing a comprehensive, data-informed analysis of Ashland's economic
conditions and projected employment land needs through 2045.
In accordance with OAR 660-009, which implements Statewide Planning Goal 9 (Economic
Development), the EOA includes:
•A review of national, state,regional, and local economic trends (OAR 660-009-
0015(1));
• Identification of site characteristics needed to accommodate forecasted job growth
(OAR 660-009-0015(2));
•An inventory of suitable employment lands within the Urban Growth Boundary (OAR
660-009-0015(3)); and
•An assessment of the community's economic development potential (OAR 660-009-
0015(4)).
The Council further finds that conditions have changed substantially since the adoption of the
2007 Economic Opportunities Analysis, necessitating a modernized analysis. Over the past two
decades,Ashland has experienced notable demographic shifts, including an aging population,
slower population growth than previously forecasted, increasing housing costs, and a transition
toward remote and knowledge-based employment. Broader economic events, such as the 2008
recession and the COVID-19 pandemic, have further reshaped national, state, regional and local
labor dynamics, employer needs, and the composition of Ashland's employment base.
Additionally, the City has seen measurable consumption of buildable land over the past 18 years
as commercial and industrial development has progressed within the Urban Growth Boundary.
Findings of Fact and Conclusions of Law
This reduction in available land, combined with a rising demand for infill and a growing
emphasis on climate resilience and economic equity, has changed both the supply and character
of sites suitable for future employment uses. The 2025 EOA responds to these conditions by
incorporating updated forecasts,regional labor market data, and a parcel-level assessment of land
availability and suitability. It replaces outdated assumptions with current, localized information
and ensures that future planning and economic development decisions are aligned with evolving
conditions and statutory obligations.
The EOA documents a 20-year employment land need of approximately 76 acres and identifies a
net supply of 181 buildable acres within the city, indicating an overall surplus. The analysis also
notes constraints in the availability of small, centrally located commercial parcels that are
important for certain business types.Adoption of the EOA does not establish new policy or
regulatory provisions but provides an updated factual and technical foundation for evaluating
future land use decisions consistent with local comprehensive plan goals and Statewide Planning
Goal 9. The following Statewide Planning Goal findings support this action:
Statewide Planning Goal Findings
Goal 1: Citizen Involvement
The EOA process included robust public involvement. Outreach efforts included a citywide
survey (472 respondents), focus groups, stakeholder interviews,public forums, and study
sessions and public hearings before both the Planning Commission and City Council.
Conclision: Goal I is met.
Goal 2: Land Use Planning
The EOA supports a comprehensive, coordinated land use planning process by updating the
factual basis for employment land decisions. It will inform future plan amendments and zoning
changes, consistent with Goal 2's requirements for data-driven policy making.
Conclusion: Goal 2 is met.
Goal 3:Agricultural Lands
Not applicable. The EOA does not affect agricultural lands outside the UGB.
Conclusion:Not applicable.
Goal 4: Forest Lands
Not applicable. The EOA does not affect forest lands outside the UGB.
Conclusion: Not applicable.
Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces
The EOA does not modify adopted natural resource policies.
Conclusion: Goal S is met.
Goal 6:Air,Water, and Land Resources Quality
The EOA does not affect existing policies or regulations related to resource protection.
Conclusion: Goal 6 is niet.
Findings of Fact and Conclusions of Law
Goal 7:Areas Subject to Natural Hazards
The EOA aligns with the City's acknowledged hazard mitigation planning and does not alter
protections.
Conclusion: Goal 7 is met.
Goal 8: Recreational Needs
The EOA does not modify recreational land use policies.
Conclusion: Goal 8 is met.
Goal 9: Economy
The 2025 Economic Opportunities Analysis (EOA) fulfills the requirements of Statewide
Planning Goal 9 by ensuring Ashland has an adequate supply of commercial and industrial lands
within the Urban Growth Boundary(UGB) to accommodate anticipated economic growth over a
20-year horizon. Consistent with OAR 660-009, the EOA includes an evaluation of economic
trends at multiple geographic scales, employment forecasts, an inventory of buildable
employment lands, and an analysis of land suitability based on site characteristics. It further
assesses Ashland's economic development potential based on the city's unique attributes,
industry composition, and strategic location within the Rogue Valley.
The analysis projects Ashland's private employment to increase from 8,644 jobs in 2025 to
10,045 by 2045, with the most growth expected in Leisure and Hospitality, Healthcare, and
Finance/Insurance/Real Estate(FIRE). The EOA identifies a net supply of 181 buildable acres of
employment land and a total projected demand of 76 acres,resulting in a surplus. However, the
analysis also notes limitations in specific site types, including a shortage of small, centrally
located commercial parcels suited for visibility-dependent businesses. These findings are based
on a parcel-level evaluation of site readiness, land use constraints, and market dynamics,
particularly affecting areas like the Downtown Commercial District and opportunity sites such as
the Croman Mill and Railroad District.
The EOA does not create or mandate new policies but provides a technical foundation to inform
future zoning updates, infrastructure investment decisions, and economic development
initiatives. By aligning Ashland's employment land capacity with projected demand and
documenting both surpluses and constraints, the EOA supports strategic planning consistent with
Goal 9 objectives to promote economic vitality, employment opportunity, and land use
efficiency. Its adoption as a technical support document to the Comprehensive Plan enables the
City to base future land use decisions on updated data and findings that reflect current and
forecasted economic conditions.
Conclusion: Goal 9 is ine�
Goal 10: Housing
The EOA does not directly propose changes to residential zoning or housing policy but
acknowledges the interrelationship between employment growth and housing affordability. The
City of Ashland allows mixed-use development in commercial and employment zones, enabling
Findings of Fact and Conclusions of Law
upper-story residential uses above ground-floor commercial spaces. These mixed-use provisions
help address housing needs within walkable,job-rich areas and contribute to balanced
community growth.
Conclusion: Goal 10 is met.
Goal 11: Public Facilities and Services
The EOA informs infrastructure planning by identifying areas where lack of water, sewer, or
transportation capacity may constrain employment development.Adoption of the EOA supports
coordinated planning with utility and capital improvement efforts, consistent with the City's Goal
11 framework.
Conclusion: Goal 11 is met.
Goal 12: Transportation
The EOA does not propose specific transportation changes,but it will support future updates to
Ashland's Transportation System Plan (TSP), scheduled for 2025-2026. The EOA provides a
foundation to evaluate how projected employment growth, site types, and redevelopment areas
will impact transportation demand,helping ensure consistency with the Transportation Planning
Rule(OAR 660-012).
Conclusion: Goal 12 is met.
Goal 13: Energy Conservation
The EOA does not alter energy policies but supports compact, mixed-use development that
reduces vehicle miles traveled and promotes energy efficiency.
Conclusion: Goal 13 is met.
Goal 14: Urbanization
The EOA supports efficient development within the existing UGB and identifies opportunities to
accommodate employment growth without expanding the boundary.
Conclusion: Goal 14 is met.
Goals 15-19:
Not applicable.Ashland is not located near the Willamette River, ocean, coastal shorelands,
dunes, or estuarine areas.
V. CONCLUSION
The City Council concludes that adoption of the 2025 Economic Opportunities Analysis (EOA)
is consistent with all applicable approval criteria, including the procedural and substantive
requirements of Ashland Municipal Code Chapter 18.5.9 for legislative amendments, Statewide
Planning Goal 9 (Economic Development), and the implementing provisions of Oregon
Administrative Rule (OAR) 660-009. The EOA was prepared in accordance with OAR 660-009-
0015 and includes a comprehensive review of national, state, regional, and local economic
trends; a forecast of employment growth; an inventory of buildable employment lands; and an
Findings of Fact and Conclusions of Law
assessment of Ashland's economic development potential based on site suitability and
community priorities.
The Council finds that the EOA provides a robust, data-driven evaluation of Ashland's capacity
to accommodate projected employment growth over the 2025-2045 planning period. The
document identifies both the quantitative sufficiency of employment lands and the qualitative
challenges associated with site readiness, location, and zoning limitations. In doing so, the EOA
offers valuable insights into land use patterns, infrastructure needs, and emerging market
demands within Ashland's urban growth boundary.
As a technical support document to the Comprehensive Plan's Economy Element, the EOA does
not establish new policy or regulatory actions, but rather serves as a factual basis for future
planning decisions. It will inform updates to zoning, support targeted redevelopment efforts, and
guide the coordination of infrastructure investments to promote economic opportunity and land
use efficiency.Adoption of the 2025 EOA advances Ashland's long-range planning goals by
ensuring compliance with state mandates while supporting local priorities for economic
resilience, equity, and sustainability.
Accordingly, based on the above Findings of Fact and Conclusions of Law, and based upon the
evidence in the whole record, the City Council hereby APPROVES the ADOPTION of the 2025
Economic Opportunities Analysis as reflected in the attached ordinance.
Ashland City Council Approval
Tonya Graham, Mayor Date
Signature authorized and approved by the full Council this day of June, 2025.
A es :
6
Alissa Kolodzinski, City Recorder Date
Ap ved orm:
an i a, City Attorney Date
Findings of Fact and Conclusions of Law