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HomeMy WebLinkAboutCOMP PLAN: Ch 06 - Housing CHAPTER VI HOUSING CHAPTER VI HOUSING ELEMENT INTRODUCTION~ The City's Housing Element is an important part of the overall Comprehensive Plan, as housing makes up the vast majority of land use in an urban area. Cities have taken various roles in housing, ranging from the very active role of being a housing provider and landlord to one of simply allowing the housing market to freely determine what should occur in a given area with very little regulation. The role Ashland has chosen is more toward the latter than the former, al- though certainly Ashland has not adopted an entirely laissez-faire housing policy. While Ashland does not see itself as a pro- vider or major developer of housing, its poli- cy and land development ordinances will nave an impact on land availability, develop- ment sites, and housing types which will be used to meet the City's housing needs. In addition, LCDC Goal 10 requires that: "Buildable lands for residential use shall be inventoried, 'and plans shall encourage the availa'bility of adequate numbers of housing units at price ranges and rent levels which are commensurate with the financial capabili- ties of Oregon households and allow for flex- ibility of housing location, type, and den- sity." Because of this, the City has a res- ponsibility to inventory its land and ensure that the proper amounts of land are set VI-1 aside to accommodate the various housing needs in the City, anc~ that its land develop- ment ordinances are -oroad enough to allow for variation in housing type and density. HISTORICAL TRENDS Table VI-1 sho,ws tn.at ^.si'.~land has grown from ~77~ persons in 1~0 to lg,922 in 1980. The City's housing stock has grown from 1785 in 19~0 to 6312 in 1980. The nun'~oer of per- sons per household increased steadily from 19~0 to 1960, reaching a high of al~nost 3 per- sons per household in the 1960 Census. Since that time, it has declined dramatically, dropping from 2.8g persons per household in 1970 to 2.36 in 1980. This dramatic drop in persons per household unit has a very significant impact on Ash- land. While population growth ~ill be rather moderate in the future, growth in housing units will continue to escalate, as the number of persons per household drops and levels off at about 2.3 or 2.2 persons per household. Also interesting are the own- ership patterns, which are changing in the City. Table VI-1 shows that the percent of owner-occupied housing has dropped steadily from 1950 to 1970, and the trend is expected to continue, leveling out in the 1980s at about 50%. This is because the increased cost of financing and purchasing new housing has put the goal of owning a home beyond the reach of many citizens in Ashland. Table VI-2 shows the difference in the housing mix in Ashland over the last decade. In 1970, single-family detached units ac- counted for almost 77% of all the units in VI-2 TABLE Vl-1 -- Housing and Population Data 1940-1980, U.S. Dept. of Census 1940 Persons 4,774 Housing Units 1,785 Persons/Household 2.675 % Owner-Occupied N/A *Preliminary 1980 census data 1950 1960. .1970 1980* 7,739 9,119 12,342 14,922 2,747 3,043 4,337 6,312 2.817 2.997 2.846 2.364 63.7% 66.7% 57.7% N/A Ashland. In 1980, they accounted for only 64%. Multi-family units rose from 21% to 33% in the same period. Mobile homes account for an insignificant amount of Ashland' s housing stock, from a little less than 2% in 1970 to 3% in 1980. These figures indicate that much of the growth in Ashland is in nigher-density housing types, with smaller- sized units. This corresponds to the de- crease in the number of persons per house- hold which has occurred over the last decade and the increase in non-owner-occupied housing units in the City. Housing quality in Ashland is fairly good compared to the rest of the state. Ashland, in 1975, rated 182nd in all the cities in the state in the percentage of substandard units. The City had only 233 substandard units lack- ing adequate plumbing facilities in 1975. The City also has a relatively old housing stock. Out of the 1785 housing units exist- ing in 1940, 1526 still exist today and are still used for housing. This represents a demolition rate of about .36% of the housing stock per year, about one-third lower than the national average of about 1% per year. Undoubtedly, this accounts for the large num- bers of older homes in Ashland which have become more valuable in the past decade, as an appreciation for their uniqueness in- creases. INCOME AND HOUSING The major determinant of the housing types that will be desired in the City of Ashland is the income range of existing and new occu- pants of Ashland between 1980 and the year 2000. The income groups estimated in the City for 1977 are shown in Table VI-3. This is an update of the income ranges from 1970 Census data, assuming that increases in per- sonal income in Ashland were the same as in- creases in personal income in the State of Oregon. Given this assumption, Ashland shows a profile typical of many Oregon cities. The severity of the problem resulting from the high cost of housing is shown in Figure VI-1. Several housing types have been graphed to indicate the income ranges which normally occupy such units. For rental VI-3 Figure Vl - 1 30,000- 25,000-  20,000- o0 15,000- ~ 10,000- 5ooo- s2~o Income And Affordable Housing Types 18~0.00 ~,o'oo 27_, 0~0 17,000 3O. 0..,.o0 21,000 23~'00 HOUSING TYPES TABLE Vl'2 -- Housing Mix Single-Family Multi-Family Mobile Homes Group Quarters (persons) *U.S. Dept. of Census 1970* Units %Total 3,332 76.8% 923 21.3% 81 1.9% N/A 1980'* 'Units '%Total 3,993 63.7% 2,091 33.3% 187'" 3.0% 1 ,O80 (persons) ** Portland State Center for Population Research & Census TABLE VI-3 -- Income of Households in Ashland, 1977 (estimate using :1970 census data) Income Range % of Households Less than $2000 1.2% $2000-4000 2.4% $4000-6000 5.9% $6000-8000 8.2% $8000-12,000 16.0% $12,000-15,000 13.9% $15,000-20,000 15.36% $20,000-30,000 26.8% Greater than $30,000 11.1% units, it was assumed that 25%0 of the month- ly gloss income would be applied towards rent. For purchase units, it was assumed that 28% of the monthly gross income would be used to make payments, assuming. 12% mort- gate interest rates and a 10% down-payment. The cost of the units in this case and the estimated rent levels are in 1977 dollars. As can be seen, a large proportion of Ash- land's population falls in the range of apart- ment rentals, subsidized housing and mobile homes in parks. In the very low range of income are persons who can only be helped through subsidized housing, either through subsidized mortgages or direct subsidies to the persons occupying the household. This will be an activity not carried out directly by the City, but rather one in which the City can simply support and indirectly par- ticipate in the placement of such housing units. As mobile homes in parks are not a very ef- ficient use of higher density land, and, as they have significant problems in locating in Ashland, as will be explained later, they are not expected to form a very significant portion of the lower-cost housing for the City. Therefore, the major contributor to housing for the lower income households in Ashland will be apartments that have been built expressly for the purpose of rentals, as well as some townhouse condominiums and single-family attached and detached homes held as rental properties. For persons with incomes ranging from be- tween $1f+,000 and $20,000 (in 1977 dollars), there are four options in the City for pur- chase, in addition to renting. These four options are condominium or townhouse pur- chases, used home purchases, new attached unit purchases, or mobile homes in sub- divisions. In these ranges are the majority of persons in Ashland that would be purchas- ing new homes for the first time--young fami- lies and other groups which contribute to the lower population per household figures which have been mentioned above. Unfortunately, the group able to purchase single-family detached homes is much smaller than even a decade ago. As the graph indi- cates, it is the highest cost option avail- able. Undoubtedly, persons in this category will also consider all of the other options available to persons of lower income, es- pecially condominiums, townhouses, used houses, and new attached unit purchases. While it is important to discuss housing types in Ashland, it is impossible to accurate- ly predict how the marketplace will allocate housing units. Therefore, it is necessary for the City simply to set aside amounts of land that are correctly zoned so that the housing needs of Ashland can be met. The market- place will then be the major determinant of which type of housing will be built in the various zones, within limits imposed by the City based on density, aesthetics, and neigh- borhood compatibility. ESTIMATING HOUSING DEMAND For the purposes of estimating demand for various housing categories, four general types of housing demand are assumed. These are summarized in Table VI-g. The first VI-5 TABLE Vl-4 -- Estimated Housing Demand for New Migrants Moderate Income High Income Subsidized Rental Purchases Purchases % Total 5?° 3 8?o 4 3?0 1"4% Persons 300 2400 2700 900 demand type is for households with extremely low incomes. This would be the "subsidized" housing type. As mentioned before, this housing type would not be impacted directly by the City, as we would not directly par- ticipate in the development of this housing type. However, the City could cooperate with the implementation of low-cost housing. A majority of the persons in the low-income, subsidized group are college students who have a very low income but also very limited housing needs, as they typically do not have families and often share more expensive housing forms with other students. As the College is not expected to grow significantly in enrollment, Table VI-g shows that our es- timated housing demand in Ashland for this category would be only 5% of the population increase, rather than the 9.5% of the popula- tion presently represented in Ashland. If the College enrollment were to increase sig- nificantly, this figure would have to be in- creased. The second group are those persons most like- ly to rent. Based on past trends and exist- ing income levels in the City, we estimate that 38% of the population increase expected in Ashland will be in the market for rental housing units. The third category is the broadest, that of moderate income purchase homes. These homes would be ranging in monthly payments from $250 to $630 per month (1977 dollars). This accommodates the broadest section of the City and ranges from relatively low-cost at- tached housing and condominium units to the traditional single-family home on a large lot. Approximately 14% of the increase in popula- tion will be in the market for high-income purchase. These are homes that would re- quire, with the above criteria of 10% down- payment and 12% mortgage money, greater than $630 per month payments for a home. Approximately 14% of all the new households are estimated to be in this category, called high-income purchase. Table VI-g sum- marizes the various housing demands esti- mated above. Housing Demand in Different Zones Assuming that each type of housing would be provided in several zones, an estimate must VI-6 be made of the percentage of total housing demand in each zone. We estimate the follow- ing to be the types of housing and the zones in which the housing will be provided: Subsidized or Shared Housing - Subsi- dized housing depends primarily on the type of assistance which will form the subsidy. Most subsidized housing is higher-density apartments and, therefore, the majority of this housing type would be met in the R-2, or Urban Low Residen- tial zone. Rental - Rental housing types form a large cross-section in the City. In Ash- lan. d there are single-family homes which have been built primarily for the purpose of renting. About 27% of the single- family housing stock was rental in 1970.* Assuming that this practice will continue in 'the single-family detached housing mar- ket, and in the attached, townhouse and condominium markets, then we estimate that about gO% of this demand would be met in the R-2, or Urban Low Residential zone, $0% in the townhouse zone (R-l-g), and another 30% in the R-l-5 Planned Unit Development areas, specifically by smaller, inexpensive housing units, and duplexes with the owner occupying one unit and renting the second unit. Moderate Cost Purchase - The moderate cost purchase units will also be spread across several zones. We estimate that '1970 U.S. Census. 20% of it will be met in the R-l-3, or townhouse, zone, and 80% in the single- family residential areas in the R-l-5, R-1-7.5, and R-l-lO zones. High Cost Purchase - Most of the high cost housing would involve relatively large lot sizes and correspondingly low densities. As such, we would expect that 50% of this demand would be met in the single-family residential areas and 50% in the low-density residential areas. HOUSING TYPES Various housing types each have a place in Ashland in providing for housing demand. However, it shbuld be recognized that some of these are more compatible than others with the City and with the neighborhoods in which they would locate, so that care must be exer- cised in allowing some housing types. a) Multi-family, multi-unit apartments Multi-unit apartments refer tc those units in which one individual living quarter is placed above another, also commonly referred to as fiats or garden apart- ments. These have the advantage of rela- tively low cost per unit and relatively high density without a great deal of lot coverage. Densities in this type of gar- den apartment usually range from 15-22 dwelling units per acre in Ashland. How- ever, they are most successful in the range of 15-20 dwelling units per acre. Because of this, Ashland will use the R-2, or Multi-Family Residential, zone to meets its new housing needs for this type of housing. The user and income groups in multi-family apartments would include households ranging from subsidized hous- ing up through the $15,000 to $20,000 per year income groups. b) Townhouses c) Townhouses differ from multi-unit apart- ments in that each individual living unit is~ contained in a separate structure, at- tached by common walls to other struc- trues. These units are usually grouped in clusters of four or more and are asso- ciated with higher density developments. They have the advantage of providing greater privacy and sometimes an oppor- tunity for individual ownership. Densi- ties can range from 7 to 8. dwelling units per acre up over 20 dwelling units per acre. However, as these units typically have a larger lot coverage per square foot of interior living space than multi- family, multi-unit apartments, the lower densities are preferable for townhouse de- velopments. Very attractive and desir- able homes can be built with this hous- ing type. It is used for moderate to high cost rental units, and low to moder- ate cost purchase units in Planned Unit Developments or condominium develop- ments. Mobile or manufactured homes This housing type forms an insignificant part of Ashland's housing stock at pres- ent and is expected to continue to be a small percentage in the future. Present- ly, all mobile homes are situated in VI-7 mobile home parks. In other communities around Ashland, mobile home subdivisions have grown to be increasingly popular. But mobile or manufactured housing has certain disadvantages in locating in Ash- land, limiting its usage to certain areas of the City. The disadvantages are: l) Because of the uniformity of design, they are incompatible for difficult siting or development choices, es- pecially any siting on hillsides or siting on properties which have un- usual features or are irregularly shaped. This typifies all of Ash- land south of $iskiyou Boulevard, and much of the area set aside for single-family development north of Siskiyou Boulevard. 2) They are incompatible with existing neighborhoods. While great progress has been made in making mobile homes resemble site-built housing, they possess certain design features which immediately tell the observer that they are indeed manufactured housing. The general rectangular shape, low pitched roof, and window orientations form a monotonous and undesirable appearance. Because of this and the materials used in exter- ior siding, they were almost unani- mously rejected during the citizen involvement phase of the Comprehen- sive Plan development as a major provider of new, low-cost housing in Ashland. 3) They are usually energy-inefficient. While additional insulation in newer units has increased the thermal per- VI-8 formance of mobile homes, they are still less thermally efficient than a comparable site-built house. As they are constructed mostly of kiln- dried wood and aluminium, they also have a large amount of embodied en- ergy compared to a site-built home. Some experimental solar units have been constructed, but passive design techniques cannot be successfully implemented in a lightweight struc- ture. 4) They have a limited lifespan of twen- ty years or so, and are meant to be disposed of after this fairly short time. Ashland considers it better to have housing types which make a permanent contribution to the built environment of the City, as homes t~ave in the past. However, realizing that the marketplace may demand these, even if cost-competi- tive alternatives are provided, there should be land set aside for mobile home developments at densities relatively con- sistent with their needs. The R-2 and R-1-3.5 zones are the areas which can most easily accept mobile or manufactured housing. The new lands within the Urban Growth Boundary which have these zoning desig- nations are relatively flat and have large, regularly shaped parcels avail- able. Also, these areas have little exist- ing development so that neighborhood com- patibility is not a problem. Thus, they are the most suitable location for mobile home development. d) Attached single-family homes Ashland considers the attached single- family home to be a more suitable low- cost alternative. Since they are attached by one or two walls, there are some savings over the same square footage built as detached units. They are also more energy-efficient than either mobile homes or detached' single-family housing, and can be easily adapted to passive solar applications. Therefore, attached single-family houses are one of the major components of Ashland's housing strat- egy. They should be allowed in most un- developed portions of the City as an out- right permitted use, along with single- family detached housing. e) Detached single-family homes Detached single-family homes, which in- clude the vast majority of the existing housing units in Ashland, will unfor- tunately only be available to persons of relatively high income. However, changes in development standards may al- ter this situation, as discussed below. Single-family homes will continue to be built and are encouraged in conjunction with other housing types, especially in Planned Unit Developments. Alternatives to the conventional subdivision home, such as lot-line homes, or small cottages on small lots in developments with com- mon open space, should help reduce the cost of some units. They typically work best in relatively low-density situations of less than 5 dwelling units per acre. ESTIMATING LAND NEEDS Future availability of housing in Ashland will be heavily influenced by the availabili- ty of land for development. The City should therefore ensure that there is sufficient land set aside for the development of housing. In general, there should be at least a five years' supply of land for each of the Compre- hensive Plan designations shown in Figure VI-2 vacant and available for development. Figure VI-2 shows how the City has estimated its land needs, based on the number of hous- ing units we believe will be necessary be- tween 1980 and the year 2000. The bottom line shows that approximately 5/4 acres of multi-family residential land, 83 acres of townhouse residential, 388 acres of single- family residential, and 127 acres of low-densi- ty residential land will be needed to meet the City's housing demand. DEVELOPMENT STANDARDS The City's development standards also have an impact on the provisions of housing and on the expense of each house. In the past, conventional subdivision development has re- sulted in attractive but sometimes monotonous neighborhoods. The attractiveness decreases as the .density increases. At the present time, the cost of developing land is usually too high for moderate-cost housing to be lo- cated in areas that are zoned for 7500-10,000 square feet lot size. Also, because of the changes in housing patterns and market per- ceptions, conventional subdivision regulations Vl-9 no longer can accommodate the full range of housing types and residential environments desired in the marketplace. As a result, Ashland has adopted a performance standards approach which will govern development on most new land. The performance standards approach will be used in the future to guide residential development. It emphasizes quali- ty of life, overall density, and the residen- tial environment created in each neighbor- hood, and compatibility with surrounding neighborhoods, with less emphasis on the type of housing to be built on the site, with- in the guidelines established by the City. Several different housing types may be com- patible with an existing neighborhood. Sub- division standards should continue to be used where development occurs in neighborhoods which have largely been developed under sub- division standards and for minor land parti- tioning needs. ENERGY AND HOUSING The residential sector uses more energy than any other in Ashland. The detailed analysis of this use is contained in the Energy Ele- ment of this Plan. Older houses use between 10 and 20 therqs* of energy, new homes from 6 to 8 therqs, as do older apartments. New, passive solar homes can be constructed which use from 1 to 3 therqs, and can be built for about the same cost as conventional units. This form of space heating is obviously one of the best from the City's perspective of en- ergy conservation. ~One therq (thermal requirement) is equal to one BTU per degree day per square foot. .VI-IO Figure Vl- 2 1. HOUSING TYPE 2. PERSONS 3. PERSON$/DU 4, OCCUPIED UNITS $. TOTAL UNITS {Line 4 · Vacancy Rate) 6, LAND CATEGORY 7. UNITS 8, DENSITY-DU/ACRE 9. ACRES NEEDED SUBSIDIZED 300 167 179 Estimated Land Need RENTAL 2400 1.8 1333 1425 MODERATE COST 2700 2,4 1125 1159 HIGH COST 900 2.4 375 386 750 660 1550 190 14 8 4 1.$ 54 83 388 127 LAND CATEGORY KEY MFR - Multi-Family, high density Residential (R-2 ~ R-3 zoning) SR - Suburban Residential (R-1:3.5 zoning) SFR - Single-family Residential (R-1:5, R-1:7.5, R-l:10 zoning) LDR - Low densit~ Residential (RR-.5 zoning) Residential neighborhoods can also contribute to a reduction in energy use by providing solar access and encouraging trips by bi- cycle and foot. The more functions of day- to-day life that can occur at the neighbor- hood level, the greater the savings in ener- gy. This type of development shall be en- couraged. ASSUMPTION: Ashland will continue to increase in the num- ber of housing units. Existing, older resi- dential neighborhoods will be preserved and will experience relatively few shifts in hous- ing types and styles. New housing areas will contain housing types other than single- family residential detached units, and much of the City's new housing demands will be met by single-family detached units in uncon- ventional Planned Unit Developments, attached units in Planned Unit Developments, and hous- ing in higher densities than experienced in the past, such as townhouse developments and garden apartments. Rising new home construction costs and smaller households will result in housing units with relatively small living spaces in each unit compared to past housing. GOAL: ENSURE A VARIETY OF DWELLING TYPES AND PROVIDE HOUSING OPPOR- TUNITIES FOR THE TOTAL CROSS- SECTION OF ASHLAND'S POPULATION, CONSISTENT WITH PRESERVING THE CHARACTER AND APPEARANCE OF THE CITY. VI-11 POLICIES: 1) Given the scarcity and cost of land as a limited resource, conserve land and re- duce the impact of land prices on hous- ing to the maximurn extent possible, using the following techniques: a) Use the absolute minimum street widths that will accommodate traffic adequately in order to reduce aes- thetic impacts and lot coverage by impervious surfaces. b) Allow a wide variation in site-built housing types through the use of the City' s Performance Standards Ordi- nance. The use of attached hous- ing, small lots, and common open spaces shall be used where possible to develop more moderate cost hous- ing and still retain the quality of life consistent with Ashland's charac- ter. c) Consistent with policies relating to growth form, City policy should en- courage development of vacant avail- able lots within the urban area, while providing sufficient new land to avoid an undue increase in land prices. This shall be accomplished with specific annexation policies. d) Zone lands in the single-family desig- nation consistent with the surround- ing neighborhood if the area is most- ly developed. Generally, lands south of Siskiyou Boulevard-North Main should be R-1-7.5 and R-l-10, VI-12 and lands south of the Boulevard should be R-l-5. 2) Using the following techniques, protect existing neighborhoods from incompatible development and encourage upgrading: a) Do not allow deterioration of residen- tial areas by incompatible uses and developments. ~/here such uses are planned for, clear findings of intent shall be made in advance of the area designation. Such findings shall give a clear rationale, explain- ing the relationship of. the area to housing needs, transportation, open space, and any other pertinent Plan topics. Mixed uses often create a more interesting and exciting urban environment and should be consid- ered as a development option wherev- er they will not disrupt an existing residential area. b) Prevent inconsistent and disruptive designs in residential areas through use of a limited design review con- cept, in addition to using Historic Commission review as part of the site review, conditional use permit, or variance approval process. c) Develop programs and efforts for re- habilitation and preservation of ex- isting neighborhoods, and prevent development which is incompatible and destructive. 3) Regulation of residential uses shall be designed to complement, conserve, and continue the aesthetic character of Ash- land through use of the following tech- niques: a) Slope protection and lot coverage per- formance standards shall be used to fit development to topography, gener- ally following the concept that densi- ty should decrease with an increase in slope to avoid excessive erosion and hillside cuts. This objective shall be used consistent with the de- sire to preserve land by using the smallest lot coverage possible. b) Site and design review shall be used to ensure compatible multiple-family structures. Density incentives shall be used to encourage innovative, non-standardized design in single- family areas. c) Performance standards shall be used to regulate new development in Ash- land so that a variety of housing types built for the site and imagina- tive residential environments may be used to reduce cost and improve the aesthetic character of new develop- ments and decrease the use of tradi- tional zoning and subdivision stan- dards. d) Street design and construction stan- dards shall promote energy efficien- cy, air quality, and minimal use of land. To this end, the City shall: 1) Adopt a master conceptual plan of future streets by size and use category. 2) Adopt minimum street width stan- dards which provide only what is needed for adequate traffic flow and parking. 3) Incorporate bicycle and pedes- trian traffic planning in street design. ~) Limit street slopes, requiring curvilinear streets along con- tours in steeper areas. Create and maintain administrative sys- tems that will assist in all phases of housing and neighborhood planning through use of the following techniques: a) Establish and maintain a data base system which includes measurement of: vacant land and land consump- tion; housing conditions; land use, land values, and any other pertinent information. b) Simplify and strengthen the process- ing approval mechanism so that the intent of state and local laws is ful- filled with the greatest possible thor- oughness and efficiency. c) Cooperate fully with the Jackson County Housing Authority in locating low-income units in Ashland when this can be done in low-impact, rela- tively small developments, or through funding of individual home- owner loans or rental assistance. VI-13 5) The residential sector is the major user of energy in Ashland. Consistent with other housing goals, the City shall strive to promote, encourage or require energy- efficiency design in all new residential developments. [Additional policies relating to housing are in Chapter XI - Energy.]