--
Adopted
Comprehensive Plan
Housing Policy
PORTLAND B'U'REAU OF PLANNING
January 1999
Portland City Council
Vera Katz, Mayor
Jim Francesconi. Commissioner
Charlie Hales, Commissioner
Erik Sten. Commissioner
Dan Saltzman. Commissioner
Gretchen Miller Kafoury~ Commissioner (through 12/31/98)
Portland Planning Commission
Steve Abel. President
Richard Michaelson. Vice President
Sarah ffitch
Amanda Fritz
Rick Holt
Marcy McInelly
Steven Naito
Ruth Scott
Paul Schuback
The Bureau of Planning is committed to providing
equal access to information and hearings. If you
.need special accommodation. please TIY 823-6868.
Cover Drawing: Brent C. Denhart, Jerome A. Unterreiner, 1994 City Life Housing Design
Competition, Portland Chapter. AlA.
.., .
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Adopted
Contprehensive Plan Housing Policy
Goal 4 of the City's Comprehensive Plan
Adopted on December 16, 1998
By Portland City Councll
Ordinance No. 172954
Strategies Accepted by
Resolution No. 35748
Bureau of Planning
January 1999
Portland Development
Commission
Martin Brantley, Chair
Doug Blomgren
Carl Talton
Noell Webb
James Atkinson
ACKNOWLEDGEMENTS
Housing and
Community
Development
Commission
Peg Malloy, Co-Chair
Mike Silver, Co-Chair
Sam Galbreath
Janice Frater
Diane Meisenhelter
Mike Peterson
Willie Brown
Neal Beroz
Micky Ryan
Terry Fitch
Judy Higgins
Bertha Ferran
Phil Mackel
Roberto Berry
Paul Dagle
Housing Authority
Board
Howard Shapiro, Chair
Shar Giard
Bob Naito
Tom Remly
Hector Ariceaga
Claudiette Lavert
Morgan Dickerson
Julie Sterling
Jim Kelly
Housing Policy Update Steering Committee
Commissioner Gretchen Miller Kafoury, Chair
David C. Knowles, Director, Bureau of Planning
Steve Rudman, Director, Bureau of Housing and Community Development
Baruti Artharee, Director of Housing, Portland Development Commission
Denny West, Executive Director. Housing Authority of Portland
Rick Michaelson, Planning Commission
Doug Blomgren, Portland Development Commission
Neal Beroz, Housing and Community Development Commission
Howard Shapiro, Housing Authority Board
Project Staff
Cathey Briggs, Project Manager
Mike Saba, Bureau of Planning
Wendy Cherubini, Bureau of Housing and
Community Development
Margaret Bax, Portland Development
Commission
Helen Barney. Housing Authority of Portland
Technical Advisory Committee
Michael Harrison, Bureau of Planning
Greg Carlson, Bureau of Buildings
Martha McClennan, Bureau of Housing and
Community Development
Jeanne Harrison, Transportation Planning
Marge HIe, Housing Authority of Portland
Randy Webster, Finance and Administration
David Too~, Energy Office
Thanks also to additional staff from the Bureaus of Planning, Housing and
Community Development, Buildings, Environmental Services, and Police, as
well as staff from the Office of Neighborhood Involvement, the Portland
Development Commission, and Portland Public Schools who provided technical
assistance.
COMMUNITY VALUES
(From Future Focus, Adopted by City Council, 10/91)
We the citizens ofPortland set forth in these values our hopes and aspirations for the
future ofour community. We affirm the worth and dignity ofeach person and the right
ofeach person to grow andprosper. We recognize the special excellence ofour
environment and Quality oflife and the responsibility ofeach member ofthe community
to preselVe and enhance it. We believe our community flourishes through vigorous
economic, educationa~ social, and cultural initiative. We support a global perspective
andpartnerships beyond our boundaries. These values are the foundation oflife in our
community for this and future generations.
Economic Vitality
We value a strong, varied, adaptive, and globally-
based economy that is compatible with the
community's environmental values. We value an
economy that creates community wealth and
supports public and private facilities and services.
We value an economy that prOVides employment
and economic choices for individuals and families.
Creative Freedom
We value a creative climate that encourages
innovation, development of creative capabilities,
and a free and stimulating exchange of ideas.
Diversity
We value an open and friendly community that is
free from bigotry and intimidation. We value a
community that welcomes and respects the
indiViduality, unique talents, and contributions of all
people regardless of age, race, gender, ethnicity,
sexual orientation, religion, physical or mental"
ability, or financial means.
Personal Well-Being
We value the right of all Portland citizens to
physical, mental, and emotional well-being,
including adequate food, clothing, housing,
transportation, health care, and security of person
and property.
Quality Urban Environment
We value the beauty and accessibility of our natural
surroundings. We embrace a commitment to
preserve and enhance the quality of our air, water,
land, open space, wildlife, and wildlife habitat. We
value an urban environment enhanced by parks,
natural areas, and recreational opportunities that
are accessible to all citizens.
Good Government
We value open, honest government that is
responsive to its citizens. We value strong, creative
leadership by elected officials and priva~ citizens
willing to empower and work with the entire
community to shape Portland's future. We value
cooperative approaches to problems that extend
beyond Portland's boundaries.
Cultural Vitality
We value the social, economic, and creative
contributions made to our quality of life by diverse
and accessible public arts, cultural activities, and
community events.
Balanced Development
We value Portland's physical development and
renewal while recognizing that future growth
should maintain commitment to human scale, our
architectural heritage, resource conservation, the
enVironment, and neighborhoods. We value
planned growth which prOVides for efficient,
adequate infrastructure and public services.
Education
We value quality education that enables all
residents to reach their full potential as indiViduals,
workers, and citizens. We also value social,
economic, and civic contributions of strong,
Integrated systems of education.
sense of Community
We value a city of healthy, vigorous neighborhoods
where residents participate in community life and
feel a sense of belonging and involvement.
TABLE OF CONTENTS
Section Page
I. Introduction 1
II. Adopted Housing Goal, 7
Policies and Objectives
III. Policies, Objectives and 28
Strategies
Housing Supply Policies 31
4.1: Housing Availability
4.2: Housing Potential
4.3: Sustainable Housing
Development
Housing Safety And Quality 45
Policies
4.4: Housing Safety
4.5: Housing Conservation
4.6: Housing Quality
Housing Opportunity Policies 55
4.7: Balanced Communities
4.8: Regional Housing
4.9: Fair Housing
4.10: Housing Diversity
Housing Aff'orc1ability Policies 75
4.11: Housing Affordabllity
4.12: Housing Continuum
4.13: Humble Housing
4.14: Neighborhood Stability
4.15: Regulatory Costs and Fees
Appendix:
Ordinance No. 172954 99
Resolution No. 35748 101
Housing Data Book 105
Glossary of Housing Terms 127
I. INTRODUCTION
ADOPTED COMPREHENSIVE PLAN HOUSING
POLICIES AND OBJECTIVES
Housing is more than physical shelter. The residential environment
consists ofnot only the dwelling unit but the site and setting,
neighbors and community, municipality and public services,
habitability and accessibility, rights and responsibilities, costs and
benefits. Yet housing is even more than the residential environment,
for it is only in relation to those who inhabit and use it that housing
has meaning and significance - not only physical and economic,
but emotional,. symbolic, and expressive. We occupy our houses,
and} for better and for worse, they become our homes.
Michael Stone, Shelter Poverty
SUMMARY:
On December 16, 1998, City Council amended the City's Comprehensive Plan
Housing Policy by replacing the housing goal and policies adopted in 1978 with
a new goal and 15 new policies and related objectives. The new goal, policies,
and objectives are included as Section II of this report.
City Council's action was the culmination of the first comprehensive review of
the City's Housing policy since it was adopted in 1978 and later incorporated
into the 1980 Comprehensive Plan. The goals and policies of the city's
Comprehensive Plan provide the context for land use planning within Portland,
guidance for major capital projects and other funding decisions, and the policy
direction for the city's housing assistance programs. Where major development
decisions are being proposed, state law requires consistency with the
Comprehensive Plan. Comprehensive Plan amendments and urban renewal
districts must be consistent with the Comprehensive Plan.
The city's Comprehensive Plan housing goal, policies, and objectives are
implemented through the Comprehensive Plan Map, through building and
zoning code regulations, and through public and private sector programs.
OBJECTIVES OF CITYWIDE HOUSING POLICY REVIEW
The objective of this review was to ensure that the housing goal, and its policies
and objectives, reflect the new policy direction that has emerged from adopted
community and neighborhood plans, the Region 2040 Growth Concept and
Urban Growth Management Functional Plan, the State Transportation Planning
Page 1 Comprehensive Plan Housing Policy 1/15/99
Rule, and from plans such as the Comprehensive Housing Affordability Strategy
(CHAS), and its successor, the Consolidated Plan that focus on low and
moderate-income housing in the city.
No zoning code changes, zoning map, or Comprehensive Plan Map
amendments were adopted as part of this process because, for the most part,
the adopted policies and objectives reflect existing regulations and programs.
The city's Housing Policy guides a variety of city activities. These activities
include enforcement, education, technical assistance and training; loans or
grants of federal or local funds, and property tax abatements. The city
develops new housing programs or strategies in response to concerns identified
through area or community plans, urban renewal plans, or citywide housing
plans. Section III identifies the linkage between the housing policies and
objectives, and the strategies, both existing and potential. As such, this
linkage provides the foundation for monitoring, evaluation, and feedback on
policy implementation.
Resource allocation and prioritization of housing needs is done more frequently
than Comprehensive Plan policy updates. The Consolidated Plan process
identifies citywide housing needs and recommends prioritization and allocation
of locally controlled federal funds by income level and housing activity.
Community, neighborhood, and area plans focus on area-specific housing
needs. The PDe 5-Year Business Plan identifies housing priorities and
activities within the context of the housing policy to guide the allocation of tax
increment and other funds. Guidelines are developed and updated by citizen
input through the city's biennial budget process. The actual allocation of
public resources is done by City Council.
Planning Process
The Comprehensive Plan Housing Policy review was an interdepartmental effort
led by the Bureaus of Planning and Housing and Community Development, the
Portland Development Commission, and the Housing Authority of Portland.
Each of the respective boards and commissions: the Planning Commission, the
Housing Authority Board, the Portland Development Commission, and the
Housing and Community Development Commission, designated a citizen
representative to serve on a steering committee, chaired by Commissioner
Gretchen Miller Kafoury.
The planning process included the following steps:
1. Stakeholder Interviews: Beginning in November 1997, project staff
interviewed over 50 people to identify housing policy issues, conflicts,
and gaps.
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2. Problem Statement and Review: In January 1998, a Draft Problem
Statement was issued that summarized the key issues and perceived
policy conflicts. The draft was circulated to over 500 interested persons
and organizations for comment. This review produced about 30 written
comments that added new insights and questioned some assumptions.
In addition project staff met with interested organizations to talk both
about the project and about the issues identified.
3. Community Workshops: Four community workshops were held in April
and May, 1998, to identify the most significant issues the housing policy
should address. Discussion questions were developed around specific
demographic trends and their impacts on housing. People who were
unable to attend the workshops were encouraged to submit written
responses. Background material prepared for the workshops included a
these reports: Household) Housing, and Affordability Data; and Planning
Context, a summary of key plans and policies that will frame the C~ty's
housing policy. This material, as well as the Problem Statement~ is
included in the Background Report to the Comprehensive Plan Housing
Policy (November 1998).
4. Public Discussion Draft: The Public Discussion Draft was available for
review and comment for 30 days, from July 31, 1998 through August 31,
1998. Two hundred fifty copies of the document were distributed to
individuals and organizations. Open forums on the draft were held on
August 18 and 20. A focus group was also held with housing developers.
Written comments were received from eighteen individuals and
organizations.
5. Report and Recommendation: On August 31 notice of the public hearing
and the reportts availability was sent to approximately 700 individuals
and organizations. The Report and Recommendation to the Planning
Commission was issued on September 14. On October 5, 1998, ajoint
hearing on the Recommendation was held by the Planning Commission
in conjunction with the Housing and Community Development
Commission (HCDC), the Housing Authority Board (HAP)t and the
Portland Development Commission (PDC). Six individuals and
organizations gave written or oral testimony. The HCDC, the PDC, and
the HAP Board considered the recommended housing policy at each of
their regularly scheduled meetings. HCDC, HAP, and PDC voted in favor
of the recommendation contained in the September 14 report, and
forwarded that advice to the Planning Commission.
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The Planning Commission held two work sessions to discuss the
recommended housing policy. On November 10, the Planning
Commission voted to adopt the recommended policy with amendments.
A Report from the Planning Commission to City Council was issued on
November 25, 1998. On December 10, City Council held a public
hearing on the recommended amendment and on December 16, they
voted to adopt the policy as recommended by the Planning Commission.
How to Use This Document
This report is formatted to illustrate for the reader how policies and objectives
have been and can be linked with actions designed to implement them.
Policies are grouped around four general sets of issues: Housing Supply
(Policies 4.1 through 4.3); Housing Safety and Quality (Policies 4.4 through
4.6); Housing Opportunity (Policies 4.7 through 4.10); and Housing
Mfordability (Policies 4.11 through 4.15).
Section II contains the adopted Goa14, including its policies and objectives.
The following describes the difference among the three categories of policy.
Goal: This is the broadest expression of the community>s housing vision.
Policy: The policy is a broad statement that sets a preferred direction in
response to a particular set of issues.
Objective: The objective provides further detail on the direction that is
necessary to support the related policy. It is usually more narrowly defined
than a policy.
Please note that only the goal, policies and objectives were adopted as
amendments to the Comprehensive Plan. Commentary and strategies
were not adopted by ordinance, but were accepted by Council resolution.
Section III expands on the adopted policies and objectives by restating and
linking them to existing and potential strategies. City Council accepted Section
III by resolution. Their acceptance of it does not imply continued funding of
existing strategies, nor does it imply that City Council endorsed potential
strategies, only that it is reasonable to consider them in the future.
Strategy: Key strategies are identified as either existing or potential. The
existing strategies reflect actual zoning and building code regulations, existing
ordinances, or city housing programs. The potential strategies are included to
give some ideas about alternative or additional methods of implementing policy.
Page 4 Comprehensive Plan Housing Policy 1/15/99
Acceptance of the strategies by resolution does not commit the City to
authorize funds for their implementation. The City Council weighs
competing needs, public objectives, and resource availability on a
biennial basis.
The potential implementers are: Bureau of Planning (BOP); Bureau of Housing
and Community Development (BHCD); Portland Development Commission
(PDC); Housing Authority of Portland (HAP); Bureau of Buildings (BOB); Office
of Neighborhood Involvement (ONI); Office of Transportation (PDOT); Office of
Government Relations (GA), Energy Office, Auditors Office, Office of Finance
and Administration (OFA). The list is not intended to be fully inclusive since it
does not include other private or public agencies, or specific neighborhood
organizations.
Commentary: The comments on the facing page provide supporting data or
rationale for the policies and objective.s.
Links: At the end of each group of policies there is a reference to related
Comprehensive Plan goals and policies. The references are included in this
document to reinforce the concept that this housing policy inter-relates and
complements other city goals and policies.
Relevant Housing Programs: At the end of each group of policies there is a list
of related housing programs that implement the policies and objectives. Like
the strategies, the housing programs themselves are not adopted as part of this
process since their future funding depends on resource availability. They are
included in this document to demonstrate the potential link between policy and
programs.
Page 5 Comprehensive Plan Housing Policy 1/15/99
SECTION II:
Adopted Housing Goal, Policies and Objectives
Page 7 Comprehensive Plan Housing Policy 1/15/99
Commentary
The housing goal reflects the intent of both Statewide Housing Goal 10 and the Metropolitan Housing
Rule. The state requires local jurisdictions to provide for adequate and diverse housing based on an
analysis of the needs, financial capabilities, and preferences of citizens for housing commensurate with
their ability to pay for it. The goal also reflects Portland's position as the largest market wR:hin the region.
A shift in emphasis during the 20 years since the City's housing policy was first adopted is the growing
recognition that the housing market is regional. It is also dynamic and often in a state of flux as market
pressures change and influence other submarkets, the boundaries of which may not coincide with political
or jurisdictional boundaries.
The words "Vitality" and "community" are used intentionally in this goal statement to affirm the City's and
citizens' values, as reflected in Portland Future Focus: Strategic Plan, adopted in 1991, that future growth
must enhance the City's vitality as well as its sense of community.
NOTE: Due to a series of court decisions, the goals, policies and objectives of the Comprehensive Plan
must be identified as mandatory, balancing, or aspirational, and further identified as applicable to City
adopted legislative plans, or quasi-judicial land use cases. The Planning Bureau is engaged in a
Comprehensive Plan Improvement Project to categorize all policies and objectives to comply with these
legal requirements. The Planning Bureau will be presenting a draft categorization of the entire
Comprehensive Plan to Planning Commission in 1999.
The goal, policies and objectives were adopted on an interim basis as "balancing." They will be re-
evaluated along with other Comprehensive Plan policies and objectives as part of the Comprehensive Plan
Improvement Project.
• Balancing Policies must be considered by carefully weighing and balancing with other policies.
Decisions are made based on the cumulative weight of policy language and direction. Most of the
provisions of the Comprehensive Plan are considered balancing. The balancing of policies is more
than a numerical tally; it requires a careful analysis of the appropriateness and applicability of policies
to the specific circumstances under consideration.
Policies and objectives 4.1 through 4.3 focus on housing production and the adaptation of, or
investment in, existing housing. These policies and objectives frame the City's response to the following
questions: Are there enough housing units to meet household needs? Is the supply ofhousing keeping
pace with increases in the number ofhouseholds? Is there enough land allocated for residential or
mixed-use development to accommodate different types ofhousing? Will housing available in the future
match the mix ofhouseholds in the community?
• Policy 4.1 Housing Availability, and its objectives reflect the different roles the city plays in
ensuring housing availability through both production and preservation. The Comprehensive Plan
Map and zoning code regulations are significant tools to ensure housing availability. Some objectives
refer to other actions the city takes to ensure availability.
• Policy 4.2 Maintain Housing Potential, and its objectives are more commonly referred to as the
city's "no-net loss housing policy." This policy was adopted in 1990 based on recommendations of
the City's Periodic Review Housing Density Task Force. At that time the city was out of compliance
with the Metropolitan Housing Rule that reqUired the city to ensure that vacant and buildable land
have the capacity of 10 units per acre.
• Policy 4.3 Sustainable Housing, and its objectives reflect the city's Sustainable City Principles,
growth management concepts, and transportation planning rules.
Page 8 Comprehensive Plan Housing Policy 1/15/99
Goal:
4 Enhance Portland's vitality as a community at the center of the region's
housing market by providing housing of different types, tenures, density,
sizes, costs, and locations that accommodate the needs, preferences, and
financial capabilities of current and future households.
POLICIES AND OBJECTIVES - HOUSING SUPPLY
4.1: Housing Availability: Ensure that an adequate supply of housing is available
to meet the needs, preferences, and financial capabilities of Portland's
households now and in the future.
Objectives:
A. Designate sufficient buildable land for residential development to
accommodate Portland's share of regional household growth to reduce
the need for urban growth boundary expansions.
DO' Develop new relationships and mechanisms that increase private
investment in, and production of, housing.
C.. Consider -the cumulative impact of regulations on the ability of housing
developers to meet current and future housing demand.
D. Encourage the efficient use of existing housing.
E. Encourage the efficient use of infrastructure by focusing well-designed
new and redeveloped housing on vacant, infill, or under-developed land.
F.. Encourage housing design that supports the conselVation,
enhancement, and continued vitality of areas of the city with special
scenic, historic, architectural or cultural value.
G. Facilitate the redevelopment of surface parking lots zoned for residential
and mixed-uses to accommodate housing and mixed-use development.
H. Create alternatives to the demolition, without replacement, of
structurally sound housing on residentially zoned property.
I. Reduce nonregulatory barriers to the development of vacant residentially
zoned sites.
J. Limit residential development in areas designated as industrial
sanctuaries.
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4.2: Maintain Housing Potential: Retain housing potential by requiring no net loss
of land reserved for, or committed to, residential, or mixed-use. When
considering requests for amendments to the Comprehensive Plan map, require
that any loss of potential housing units be replaced.
Objectives:
A. Allow the replacement of housing potential to be accomplished by such
means as: 1) rezoning (and redesignating) existing commercial,
employment, or industrial land to residential; 2) rezoning (and
redesignating) lower density residential land to higher density residential
land; and 3) rezoning to the CM zone; or 4) building residential units on
the site or in a commercial or employment zone if there is a long term
guarantee that housing will remain on the site.
B. Allow for the mitigation of the loss of potential housing units with a
housing pool credit system.
4.3: Sustainable Housing: Encourage housing that supports sustainable
development patterns by promoting the efficient use of land, conservation of
natural resources, easy access to public transit and other efficient modes of
transportation, easy access to services and parks, resource efficient design and
construction, and the use of renewable energy resources.
Objectives:
A. Place new residential developments at locations that increase potential
ridership on the regional transit system and support the Central City as
the region's employment and cultural center.
B. Establish development patterns that combine residential with other
compatible uses in mixed-use areas such as the Central City, Gateway
Regional Center, Station Communities t Town Centers, Main Streets, and
Corridors.
c. Encourage the development of housing at transit-supportive densities
near transit streets, especially where parks or schools are present, to
ensure that the benefits of the public~s investment in those facilities are
available to as many households as possible.
D. Foster flexibility in the division of land and the siting of buildings and
other improvements to reduce new development's impacts on
environmentally sensitive areas.
E. Use resource efficient technologies and materials in housing
construction that increase the useful life of new and existing housing.
Page 11 Comprehensive Plan Housing Policy 1/15/99
commentary
Policies and objectives 4.4 through 4.6 emphasize the safety and qualityof the housing provided.
Broadly stated, these policies and objectives frame the City's response to the following questions: Is the
existing housing in adequate physical condition? Are units falling into disrepair? Are they at risk of
abandonment or removal from use? Do housing conditions enhance the neighborhood environment?
Policy 4.4, Housing safety, and its objectiVes focus on building and maintaining housing for long-term
safety.
Policy 4.5, Housing Conservation, and its objectives reflect the value existing housing contributes to
the city, and the importance of maintaining it as an asset.
Policy 4.5, Housing Quality, and its objectives focus on improving the quality and livability of housing
to improve conditions for residents and neighborhoods.
Page 12 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - SAFETY AND QUALITY
4.4: Housing Safety: Ensure a safe and healthy built environment and assist in the
preservation of sound existing housing and the improvement of neighborhoods.
Objectives:
A. Ensure safe housing for Portland's citizens of all income levels.
B. Encourage the return of abandoned housing to useful and safe
occupancy.
c. Ensure the safety of the general public by requiring owners to repair
substandard housing or as a last resort, demolish dangerous housing.
4.5: Housing Conservation: Restore, rehabilitatet and conserve existing sound
housing as one method of maintaining housing as a physical asset that
contributes to an area's desired character.
Objectives:
A. Require owners, investors t and occupants, to be responsible for
maintenance of the housing stock.
B. Encourage the adaptive reuse of existing buildings for residential use.
4.6: Housing Quality: Encourage the development of housing that exceeds
minimum construction standards.
Objectives:
A. Promote housing that provides air quality, access to sunlight, and is well
protected from noise and weather.
B. Ensure that ownerst managers, and residents of rental property improve
the safety, durabilityt and livability of rental housing.
C. Protect housing from excessive off-site impacts including pollution,
noise, vibration, odors, and glare.
D. Limit conflicts between existing business areas and housing caused by
traffic and parking, noise, and signage.
Page 13 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policies and objectives 4.7 through 4.10 focus on the goal of expanded householdopportunity.
These policies also focus on issues of disinvestment in neighborhoods that result in fewer housing
opportunities, as well as economic and racial segregation. Broadly stated these policies should frame the
city's response to questions such as: Are housing opportunities available ror protected classes throughout
the city and the region? Are households that are in a protected class at a disadvantage relative to others
due to discrimination? Are some neighborhoods inaccessible to some segments ofthe population
because ofinadequate transportation, lack ofselVi~ lack ofinformation etc. ? Do neighborhoods have a
mix ofhousing types and income levels that can support schools, neighborhood commercial districts, and
community livability? Do low-income households have access to housing that will enhance family stab/1ity
andpromote economic opportunities so they can be economically self-sufficient?
Policy 4.7, Balanced Communities, and its objectives reflect the desires of most residents for
communities with economic diversity; a mix of housing types and tenures; and ability to support public
schools and neighborhood commercial facilities.
Policy 4.8, Regional Housing Opportunities, and its objectives recognize that the City of Portland is
part of a regional housing market and that the action or inaction of local jurisdictions has regional
impacts.
Policy 4.9, Fair Housing, and its objectives reflect fundamental community values that all people must
have equal access to housing free from discrimination.
Policy 4.10, Housing Diversity, and its objectives focus on creating diverse neighborhoods with a
variety of housing types and tenures so that people have choices about where to live throughout the city.
Page 14 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - HOUSING OPPORTUNITY
4. 7: Balanced Communities: Strive for livable mixed-income neighborhoods
throughout Portland that collectively reflect the diversity of housing types,
tenures (rental and ownership) and income levels of the region.
Objectives:
A. Achieve a distribution of household incomes similar to the distribution of
household incomes found citywide, in the Central City, Gateway Regional
Center, in town centers, and in large redevelopment projects.
B. Maintain income diversity within neighborhoods by 1) allowing a mix of housing
types and tenures, including houses, houses on smaller lots, small houses,
duplexes, attached housing, accessory dwelling units, multi-dwelling housing,
and mixed-use developments; and 2) ensure that income diversity is maintained
over the long-term.
c. Promote the development of mixed-income housing that may include a mix of
housing types.
D. Encourage housing opportunities for extremely low and very lOW-income
households (below 500/0 MFI) in all neighborhoods to avoid their concentration in
anyone area.
E. Actively encourage the dispersal of housing with on-site social services
throughout the city.
F. Support public and private actions that improve the physical and social
environment of areas that have experienced disinvestment in housing, that have
a concentration of low-income households, or that lack infrastructure.
G. Encourage the development and preservation of housing that serves a range of
household income levels at locations near public transit and employment
opportunities.
H. Improve the balance in the city's population by attracting a proportionate share
of the region's families with children in order to encourage stabilized
neighborhoods and a vital public school system.
I. Expand homeownership opportunities for existing residents in neighborhoods
with homeownership rates lower than the regional average.
J. Expand multi-dwelling and rental housing opportunities in neighborhoods with
homeownership rates higher than the regional average.
K. As neighborhoods evolve, discourage the involuntary displacement of low-income
residents from their community. while expanding housing opportunities to
create more balanced communities.
Page 15 Comprehensive Plan Housing Policy 1/15/99
4.8: Regional Housing Opportunities: Ensure opportunities for economic and
racial integration throughout the region by advocating for the development of a
range of housing options affordable to all income levels throughout the region.
Objectives:
A. Advocate for the development of a regional 4'fair share" strategy for
meeting the housing needs of low, moderate, and higher-income
households and people in protected classes in cities and counties
throughout the region.
B. Support regulations and incentives that encourage the production and
preservation of housing that is affordable at all income levels throughout
the region.
c. Work with Metro and other jurisdictions to secure greater regional
participation in addressing the housing needs of people who are
homeless, low-income or members of protected classes.
4.9: Fair Housing: Ensure freedom of choice in housing type, tenure, and
neighborhood for all, regardless of race t color, age, gender, familial status,
sexual orientation, religion, national origin, source of income or disability.
Objectives:
A. Support programs that increase opportunities for minorities, low-income
people, and people in protected classes to gain access to housing
throughout the region.
B. Prohibit discrimination in selling, renting, leasing, or subleasing
residential real estate on the basis of an individual's race t color, age if
over 18, gender, marital status, familial status, sexual orientation,
religion, national origin, source of income, or disability.
C. Reduce barriers to the siting of housing for the elderly or people with
disabilities at residential locations throughout the city that have access
to needed social services and transit while recognizing that different
populations have different needs.
D. Ensure the development of housing accessible to people with physical
limitations t and the adaptation of existing homes to improve accessibility
for people with disabilities.
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4.10: Housing Diversity: Promote creation of a range of housing types, prices, and
rents to 1) create culturally and economically diverse neighborhoods; and 2)
allow those whose housing needs change to fmd housing that meets their
needs within their existing community.
Objectives:
A. Keep Portland inviting to households with children by ensuring through
public and private action the availability of housing that meets their
needs throughout the city.
B. Support homeownership opportunities in new multi-dwelling housing by
encouraging the creation of condominiums, cooperatives, mutual
housing associations, and limited equity cooperatives.
c. Accommodate a variety of housing types that are attractive and
affordable to potential homebuyers at all income levels.
D. Encourage the production of a range of housing types for the elderly and
people with disabilities, including but not limited to independent living,
assisted living, and skilled nursing care facilities.
E. Support opportunities for renter households by providing a range of
housing types, sizes, and rent levels throughout the city.
F. Increase the school population in Portland, preventing widespread
school closures, and the consequent underutilization of public facilities.
Page 19 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policies and objectives 4.11 through 4.15 address housing affordabilityfor the entire income
distribution. Housing affordability policies are interdependent with policies 4.1 through 4.10. Housing
affordability is dependent in particular on maintaining an adequate housing supply. These policies are
intended to provide gUidance for housing program development; help define the roles of the public and
private sectors, both non-profit and for·profit; and provide a framework for coordination. Many of these
policies are aspirational since they reflect an ideal situation, a long-term vision, or require additional
funding to fully implement.
Broadly stated, these policies and objectives should frame the City's response to the following questions:
Can households at all income levels choose housing they can afford to live in? Arejurisdictions and
housing providers planning and coordinating housing to meet the needs ofall income levels? What are
the impacts ofCity-imposed regulations and fees on the cost or availability ofhousing?
Policy 4.11, Housing Affordabilitv, and its objectives focus on the promotion and development of
housing that is affordable to people across a range of income levels.
Policy 4.12, Housing Continuum, and its objectives, reflect the need to plan and provide opportunity
for housing from emergency shelter to permanent housing, for renters and owners, and for people at
different income levels or at different stages in the housing market.
Policy 4.13, Humble Housing, and its objectives, recognize that smaller housing is an option that can
promote affordability and reduced resource consumption, as well as respond to changing household size.
Policy 4.14, Neighborhood Stability, and its objectives focus on the many aspects of housing that can
affect neighborhood stability: diversity, affordability, housing security and tenure, and gentrification and
displacement.
Policy 4.15, Regulatory Costs and Fees, and its objectives focus on the relationship of city regulations
and fees on housing cost and affordability.
Page 20 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - HOUSING AFFORDABILITY;
4.11: Housing Affordability: Promote the development and preservation of quality
housing that is affordable across the full spectrum of household incomes.
Objectives:
A. Include strategies and actions that encourage the provision of housing
affordable to all income levels in neighborhood, and community plans,
and other area plans that pertain to housing.
B. Ensure the availability of housing that meets the needs of all Portland
households.
C. Encourage the development and use of housing construction
technologies that streamline the housing construction process, reduce
development costs and environmental impacts, and produce sound and
durable housing.
D. Promote conservation programs and energy-efficient practices and
programs that reduce housing operating costs for energy, sewer, and
water usage.
E. Work in partnership with the Housing Authority of Portland to preserve
its portfolio of federally assisted housing at rents levels affordable to
extremely and very low-income households.
F. Pursue adequate financial resources to develop, maintain and preserve
housing and housing assistance programs for households whose needs
are not met by the housing market.
G. Narrow the gap between housing costs and income.
Page 21 Comprehensive Plan Housing Policy 1/15/99
4.12: Housing Continuum: Ensure that a range ofhollsing from temporary shelters,
to transitional~and to permanent housing for renters and owners is available~
with appropriate supportive services for those who need them.
Objectives:
A. Plan and coordinate the provision of housing opportunities for
households-whose needs are not met by the private for-profit market.
B. Promote the preservation and development of a sufficient supply of
transitional and permanent housing affordable to extremely low-income
individuals and households with children in order to reduce or prevent
homelessness.
C. Provide opportunities throughout the city for emergency shelters and
transitional housing for people who are homeless.
D. Stimulate production of a variety of housing types that are affordable
and responsive to the needs of very low, low, I+loderate, and middle-
income households.
E. Expand opportunities for first-time homebuyers.
4.13: Humble Housing: Ensure that there are opportunities for development of small
homes with basic amenities to ensure housing opportunities for low-income
households, members of protected classes, households with children, and
households supportive of reduced resource consumption.
Objectives:
A. Ensure that regulations facilitate the option of development of small
homes.
B. Reduce barriers to the development and finance of small homes.
Page 23 Comprehensive Plan Housing Policy 1/15/99
4.14: Neighborhood Stability: Stabilize neighborhoods by promoting: 1) a variety of
homeownership and rental housing options; 2) security of housing tenure; and
3) opportunities for community interaction.
Objectives:
A. Promote and maintain homeownership options within neighborhoods.
B. Promote housing opportunities that build a sense of community, civic
involvement and neighborhood pride.
c. Protect, preserve, and restore the City's single-room occupancy (SRO)
and low-income housing.
D. Encourage the retention of existing rental housing at rent levels
affordable to area residents.
E. Increase opportunities for construction, acquisition, or preservation of
housing affordable to area residents in locations where rising property
values and gentrification contribute to their involuntary displacement.
F. Require the property owner to assist in the relocation of low-income
residents whenever multi-dwelling buildings are converted to
condominiums.
G. Promote good neighbor relationships between housing developers and
their neighbors.
H. Enable people who are elderly to remain in their own neighborhoods as
their needs change by supporting shared housing, accessory dwellings,
smaller homes, adult foster homes, and other assisted residential living
arrangements.
I. Allow the city's housing to be adapted to enable households to remain in
the same home or neighborhood through all their different life cycles.
J. Preserve existing mobile home parks.
K. Enhance the quality of the design of new infill residential development.
Page 25 Comprehensive Plan Housing Policy 1/15/99
4.15: Regulatory Costs and Fees: Consider the impact of regulations and fees in
the balance between housing affordability and other objectives such as
environmental quality, urban design, maintenance of neighborhood character,
and protection of public health, safety, and welfare.
Objectives:
A. Improve housing affordability by imposing the lowest permit fee, or
system development charge necessary to recover cost of city services
delivered in a cost effective manner.
B. Achieve greater predictability in project decision timelines, outcomes,
and costs.
C. Allow reduced parking requirements for housing where the parking
demand is reduced and impacts are minimal.
Page 27 Comprehensive Plan Housing Policy 1/15/99
SECTION III. POLICIES, OBJECTIVES AND STRATEGIES
The policies and objectives of the Comprehensive Plan are broad statements that
reflect the City's vision and values. The city implements its housing policy through
the Comprehensive Plan Map, through building and zoning code regulations, and
through public and private programs. Public comment identified a perceived
"disconnect" between city housing policy and city programs. In this section policies
and objectives are linked to strategies, both existing and potential, to show how the
broad vision is turned into action. The Commentary and the strategies were Dot
adopted as part of the Comprehensive Plan.
Periodic evaluation and update to strategies are needed to keep the city's Housing
Policy a living document. Section III is a starting point because it brings policy,
strategies, and programs together into one document. Strategies must change with
housing market conditions, people's housing needs, and resource availability and
constraints. New strategies must be developed to respond to new problems,
challenges and opportunities. The identification of existing strategies is illustrative
rather than exhaustive. Most of the existing strategies are currently implemented in
zoning code regulations or existing housing programs. Some potential strategies are
also identified for further study.
City Council accepted these strategies by resolution as representative of the linkage
between policies and objectives, and strategies. The inclusion of strategies in this
document, either existing or potential does not commit the City to adopt them
or commit funds for their implementation. The explicit linkage of strategies to
policies provides a basis for future evaluation and feedback on the policies.
Because public comment raised questions about potential conflicts between
policies when it comes to setting priorities for implementation, the Planning
Commission formulated a statement about how they understood the policies
and objectives would be used to guide decision making and implementation.
The Planning Commission provided this preamble to City Council along with
their recommendation on the policy.
"The recommended goal represents the broadest statement of the
community's vision to provide housing opportunities and choice for all
its residents of various income levels, now and in the future. The fIfteen
policies are organized around four sets of housing issues - housing
supply and availability; housing safety and quality; housing opportunity;
and housing affordability. Each policy is a broad statement that sets a
preferred direction in response to a particular set of issues. Even
though each policy articulates or defmes a more focused vision, each is
inter-related, and in combination, all support the overall goal.
Page 28 Comprehensive Plan Housing Policy 1/15/99
Under each policy is a set of objectives that provides more detail on the
direction necessary to support the related policy. The objectives will
guide the development of strategies during the life of this policy
document. Not every objective is relevant, plausible, or desirable in
every circumstance. There may be conflicts within the housing policies
and objectives, particularly when they are applied to a smaller subarea
within the larger city. To cite an example, the housing policy supports
the expansion of both homeownership opportunities and rental housing
opportunities. It is conceivable that both policies could be achieved at
the citywide level if the overall supply of housing were increased
accordingly. When these same policy objectives are applied to a smaller
geographic area they must be weighed carefully against the
circumstances of the particular area, the local housing market, and
economic conditions. In these cases certain policy objectives will have
priority over others.
Most of the provisions of the comprehensive plan are considered
"balancing/' that is~ decisions must be made based on the cumulative
weight of policy language and direction. Decision-makers - Hearings
Officers, Planning Commissioners~and City Council- are often required
to weigh and balance policies and objectives in order to make decisions
to implement strategies. The balancing of policies is more than a
numerical tally. Decisions must be made based on a careful analysis of
the appropriateness and applicability of policies to the specific
circumstances and facts under consideration.
In order to implement the recommended housing policies and objectives,
the city needs to maintain an array of tools beyond the traditional tools
of zoning and the comprehensive plan map. Other tools include
planning regulations, design guidelines, financial incentives, and
community-based or area specific planning efforts.
The proposed goal, policies, and objectives provide a long-term policy
framework for the entire city and for all income levels. Citywide and
area specific implementation plans provide the fine-tuning needed to
prioritize and apply broad policies and objectives to specific areas, and to
specific income groups.
The Planning Commission is a policy body, and as such has a limited
role in implementation. The Planning Commission does expect that
implementing agencies will consider the prioritization and application of
the housing policies and objectives when they develop and implement
strategies. It is our hope that in combination~ city housing strategies
support the overall goal of housing choice for all residents, over time. t)
Page 29 Comprehensive Plan Housing Policy 1/15/99
Commentary
The City's Role in the Provision of Housing. The city provides regulatory protections to residents
through land use regulation, environmental protections, and protection of tenants and consumers. As a
regulator the city has a major impact on housing and must ensure that its regulations are clear and
provide certainty to housing developers and consumers. They should not be so restrictive as to make
housing development economically unfeasible to meet the needs of low and middle-income people. At
the same time they must ensure the public interest is served. The city has other roles: as coordinator, as
service and infrastructure provider, and as a lender or grantor of funds. The city also stimulates housing
production and rehabilitation through property tax abatements and non-cash tools. In its roles as planner
and regulator, the city influences the location and amount of housing supplied by allocating land for
residential uses, and by adopting development regulations and standards. In its role as coordinator and
provider of public services, the city influences both the cost and timeline for development by providing
infrastructure (roads, sewers, water and services). The city is not a direct provider of housing in that it
does not build or own housing, although the Housing Authority of Portland, a public non-profit agency
chartered by the city, does.
The terms \~privatemarket" and "private sector" are used throughout this document. Over the past 50
years governmental programs, such as federal mortgage insurance programs, and publicly subsidized
freeway and infrastructure programs, have been instrumental in allowing the "private market" to operate,
so some suggest that the distinction between a public and a private market is artificial. For purposes of
this document we will continue to make the distinction, but try to be more precise about distinctions
between private for-profit and non-profit developers. For-profit developers are not tax exempt - their
goal is to profitably develop housing that responds to market preferences. Non-profit developers are tax
exempt organizations with a mission to prOVide housing for the most vulnerable sections of the housing
market that the for-profit sector cannot profitably serve: the low to extremely low-income households,
and some elderly and people with special needs. The public sector includes all levels of government as
well as the Housing Authority of Portland, a public non-profit developer. The public sector has a special
responsibility to meet the housing needs of those whom the private for-profit sector cannot serve.
Policy 4.1: This policy reflects requirements of Goal 10 of the Statewide Planning Goals and Guidelines
for local jurisdiction to ensure broad housing availability. In 1978 the City adopted the current objective
(4.3, J.) of setting annual goals for production, between 2000 and 2500 units. The rate of housing
production has varied, with average production of 1700 units per year for the last 8 years. Some new
demand is met by existing vacant housing and some by doubling up or shared housing. Extended periods
of low vacancy rates without adequate production increases housing prices for both new and existing
housing.
A. This objective reflects the vision of the city's strategic plan, Portland Future Focus that called for
maintenance of a compact urban form to ensure the city's (and region's) future livability and economic
vitality. Future Focus called for the city to accommodate a minimum of 20 percent of expected regional
growth, exclusive of Clark County. This objective is consistent with the Region 2040 Growth Conceptand
the Urban Growth Management Fundional Plan, which states: "as a matter of regional policy, each city
and county must contribute- its fair share to increasing the development capacity of land within the UGB."
The region is expected to grow an average of 1.6 percent per year through 2015.
B. This objective is intended to prOVide clear signals that, while housing production is a private, rather
than a public sector responSibility, market conditions and affordability needs require pUblic sector
intervention or public/private partnerships. Objective B prOVides support for public intervention in the
event that market conditions do not stimulate housing production consistent with local plans within a
reasonable time period. That objective also recognizes that local government's ability to ensure broad
availability for very low- income households has been jeopardized by federal cutbacks and retargeting of
federal funds to housing programs that serve higher income households.
Page 30 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - HOUSING SUPPLY
Policy 4.1: Housing Availability: Ensure that an adequate supply of housing
is available to meet the needs, preferences) and financial capabilities of
Portland's households now and in the future.
Objectives:
A. Designate sufficient buildable land for residential development to
accommodate Portland's share of regional household growth to reduce
the need for urban growth boundary expansions.
Existing Strategy 4.1 (A): (BOP)
1. Review and update the City's Comprehensive Plan map through the Periodic Review
process.
2. Periodically assess housing needs and market preferences through a range of
techniques including surveys, workshops, data analysis.
3. Develop a strategy to accommodate a minimum of 20 percent of projected regional
growth.
4. Adopt 800/0 minimum density requirements in residential zones in Title 33, Planning
and Zoning Code, and Title 34, Land Division Code, in compliance with requirements
of the Urban Growth Management Functional Plan.
B. Develop new relationships and mechanisms that increase private
investment in, and production of, housing.
Existing Strategy 4.1 (B):
1. Provide clear and accurate information to housing developers regarding development
regulations and processes. (BOP/PDC)
2. Evaluate the effect of regulations on the private sector's ability to implement them.
(BOP/PDC)
3. Develop public/private partnerships necessary to facilitate development to meet
public objectives. (PDC/BHCD)
Potential Strategy:
4. Develop coordinated strategies, which are periodically evaluated and updated, to: a)
Attract developer interest and investment in projects consistent with policy and plans;
b) Attract private investment in segments ofthe housing market the City wishes to
encourage; c) Develop greater City and State financial resources available to provide
incentives to finance critical projects. (BOPjPDCjBHCD/HAP)
5. Periodically evaluate private lender participation in providing capital to the
development ofaffordable housing. (BHCDjHCDCjOFA)
Page 31 Comprehensive Plan Housing Policy 1/15/99
Commentary
c. Objective C is intended to address the publiC sector's responsibility to coordinate its efforts with the
private sector (for-profit and non-profit) to maximize and leverage resources and production.
D. This objective recognizes that the maintenance of an adequate housing supply is a function of.bQtb
new production and retention of existing housing. The creation of new housing units through the internal
conversion of existing housing allows the efficient and economical use of the existing housing stock and
infrastructure. According to the 1996American Community Survey, 65 percent of the city's housing stock
is single dwelling, and about 45 percent of Portland's housing stock contain three or more bedrooms.
Internal conversion, and the addition of accessory dwelling units are methods to increase housing supply
in existing neighborhoods in a manner that is less intense, less expensive, and more likely to respect the
scale and character of an established area. For example, the average cost of converting interior space to
an accessory dwelling is estimated to be about one~third the cost of constructing a comparable new unit.
E. This objective is consistent with Goal 11, Public Facilities, Policy 11.4, Capital Efficiency, which calls for
maximum use of existing public facilities and services through the development of vacant land within
presently developed areas. It is also supported by the findings ofGrowing Better: A Report to the
Planning Commission on Phase I of the Livable City Project (BOP, 1993) that compatibility of new infill
development with the desired scale, use, and design of the area is essential. Many adopted community
and neighborhood plans call for compatible intill development. The city's challenge is to balance the
desire for quality design through regulations and gUidelines with the desire for a more streamlined and
cost effective development process. Housing design is a critical component of neighborhood livability.
Some workshop participants thought quality of design was more important than compatibility of design.
Goal 12: Urban Design, includes a number of policies that complement those in the housing policy,
specifically Enhancing Variety (12.5), Preserve Neighborhoods (12.6) and Design Quality (12.7), that
address some of the design concerns raised.
F. In addition to developing base zone design gUidelines that will apply citywide the City designates areas
of particular historic or design significance. This objective supports developing and implementing historic
design standards that gUide development in these areas.
G. In certain areas, surface parking lots are incompatible with the goal of creating a high-density,
pedestrian-oriented environment. In these areas redevelopment should meet multiple objectives such as
housing, parking, and neighborhood retail. This objective is supported by findings in the Central City
Transportation Management Plan and the Downtown Community Association Residential Plan. In its
Report and Recommendations for Allocating Housing Tax Increment Funds for Urban Renewal Districts
(1998), the Portland Development Commission recommended a coordinated strategy for better use of
surface parking lots in the Central City. In addition the Metro 2040 Growth Conceptcalls for more
compact development as a means to encourage more efficient use of land, promote non-auto trips and
protect air quality. The federally mandated air quality plan relies upon reducing vehicle trips per capita
and redUcing the related need for parking spaces. Public comment identified concerns that policies that
support transit-oriented, mixed~use development are based on assumptions that new models of
development will change people's behavior. Regional traffic models indicate that without changes in
behavior there will be increased traffic congestion and pollution. Public policy at all levels - from federal
to local, support the coordination of transportation and land use. By creating opportunities for mixed-use
and transit oriented developments the city is also creating opportunities for those wishing to change
aspects of their behavior.
Page 32 Comprehensive Plan Housing Policy 1/15/99
c. Consider the cumulative impact of regulations on the ability of housing
developers to meet current and future housing demand.
Existing Strategy 4.1 (C):
1. Ensure input by all types housing investors, developers, builders, and users of
housing prior to adoption of new regulations. (BOP/BOB)
Potential Strategy:
2. Monitor and evaluate the cumulative impact ofregulations (zoning and building codes),
and required infrastructure on the ability of the market to meet housing demand at
different price levels. (BOPjBOBj
D. Encourage the efficient use of existing housing.
Existing Strategy 4.1 (D):
1. Currently implemented by Title 33, Planning and Zoning Code, regulations. (e.g.
33.203, Accessory Home Occupations; 33.205, Accessory Dwelling Units; 33.212
Bed and Breakfast Facilities; 33.405, Alternative Design Density Zone; and 33.445
Historic Resource Protection Overlay Zone, Albina Community Plan District). (BOP)
Potential Strategy:
2. Review City Housing Assistance Programs to ensure compatibility a/programs with
policy. (BOPjPDC/BHCD)
E. Encourage the efficient use of infrastructure by focusing well-designed
new and redeveloped housing on vacant, infill, or under-developed land.
Existing Strategy 4.1 (E):
1. Currently implemented by Title 33, Planning and Zoning Code, regulations, (e.g.
Alternative Development options in Single Dwelling zones; 33.405. Alternative Design
Density Overlay Zone; and 33.420, Design Overlay Zone).
2. Develop Base Zone Design regulations. (BOP)
F. Encourage housing design that supports the conservation, enhancement,
and continued vitality of areas of the city with special scenic, historic,
architectural or cultural value.
Existing Strategy 4.1 (F~:
Currently implemented by regulation, Title 33, Planning and Zoning Code (Historic
Resource Protection Overlay Zone, 33.445 and Design Overlay Zone, 33.420). tBOP)
G. Facilitate the redevelopment of surface parking lots zoned for residential
and mixed-uses to accommodate housing and mixed-use development.
Existing Strategy 4.1 (G.):
Identify barriers and develop strategies to encourage development of surface parking
lots in the Central City into residential or mixed-use projects. (PDC)
Page 33 Comprehensive Plan Housing Policy 1/15/99
Commentary
H. This provides the policy foundation for the aty's demolition delay requirement (section 24.55.200),
which requires advance notice of demolition of housing to allow time for interested parties to acquire or
move the structure proposed for demolition. The regulation applies to residential structures on sites with
a residential Comprehensive Plan map designation. Demolition delay does not apply if a building permit
has been issued to replace the existing housing; demolition ordered for public hazard; or for historic
resources that are subject to other requirements.
I. This objective will vary in importance depending on economic cycles and market conditions. It
provides support for public action to stimulate the market or to prevent \\slum and blight." Nonregulatory
barriers to residential or mixed-use development can include small parcels that are not economically
feasible for development, lack of infrastructure for development, or lack of private financing. In these
instances, the City may choose to initiate public action to stimulate development. Under-utilized land can
have a chilling effect on local market conditions by reducing property owners' and investors' willingness to
invest in an area. This objective does not mean that the city should reduce barriers to development that
serve other public purposes (e.g. land bank for parks or open space).
l. This objective is consistent with Goal 2, Urban Development, Policy 2.14, Industrial sanctuary, which
encourages the preservation of the city's industrial land that generates new income for the region,
employment opportunities, and export and consumer goods. The purpose of limiting residential
development in these areas is to reduce potential conflicts between industrial and residential uses.
Page 34 Comprehensive Plan Housing Policy 1/15/99
H. Create alternatives to the demolition, without replacement, of
structurally sound housing on residentially zoned property.
Existing Strategy 4.1 (H):
1. Enforce the City's demolition delay requirement (Section 24.55.200) which requires
advance notice to allow time for interested parties to acquire or move housing while
recognizing a property ownerts right -to develop or redevelop property. (BOB/BOP)
2. Encourage agreements that result in replacement or other means of preservation of
existing housing. (PDC/BHCD)
I. Reduce nonregulatory barriers to the development of vacant residentially
zoned sites.
ExistiDg Strategy 4.1 (I):
1. Assist in land assembly to create developable parcels. (PDC)
2. Acquire land for future development or to demonstrate new models. (PDC)
3. Coordinate infrastructure plans to support development. (PDC/Development
Bureaus)
4. Assist in development of public/private master plans or implementation strategies.
(PDC/BOP)
5. Assist with environmental remediation of "brownfield sites." (PDC)
J. Limit residential development in areas designated as industrial
sanctuaries.
Existing Strategy 4.1 (J): Currently implemented by regulation, Title 33, Planning and
Zoning Code. (BOP)
Page 35 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.2: This poliCYJ which was incorporated into the Comprehensive Plan in 1990 by Ordinance No.
163608 as Policy 4.8, is intended to maintain zoned residential capacity, while providing a way to allow
the expansion of small businesses that provide jobs or needed services in the neighborhood. It was
developed based on the recommendation of the Periodic Review Housing Density Task Force to ensure
that the city was in compliance with the Metropolitan Housing Rule that requires the city to maintain a
housing capacity of 10 units per net buildable acre of vacant land.
B. The Bureau of Planning maintains the housing pool credit system.
Some concerns have been raised that residential development on commercially zoned land reduces
commercial development potential that may be a critical component of an area revitalization strategy.
Residential development is an allowed use in all commercial and employment zones. In general,
residential development in these zones is limited by economic feasibility and market appraisals. Concerns
have been raised that subsidized housing development on NE Martin Luther King Jr. Boulevard has
reduced the area's commercial viability. In the Albina Community Plan, the corridor was designated for a
mixture of uses to increase fleXibility for all types of desired development. Many sites were zoned to
allow the market to determine the use pattern. Zones were used that allowed a range of commercial or
light industrial activity or housing. The Albina Community, and Martin Luther King Jr. Boulevard have
many available sites zoned to accommodate business development as the market responds to increased
demand. poe is re-evaluating its strategies for this target area through its 5·Year Business Plan.
Page 36 Comprehensive Plan Housing Policy 1/15/99
Policy 4.2: Maintain Housing Potential: Retain housing potential by
requiring no net loss of land reserved for, or committed to, residential, or
mixed-use. When considering requests for amendments to the Comprehensive
Plan map, require that any loss of potential housing units be replaced.
Objectives:
A. Allow the replacement of housing potential to be accomplished by such
means as:
1) rezoning (and redesignating) existing commercial, employment, or
industrial land to residential;
2) rezoning (and redesignating) lower density residential land to
higher density residential land; and
3) rezoning to the eM zone; or
4) building residential units on the site or in a commercial or
employment zone if there is a long term guarantee that housing
will remain on the site.
B. Allow for mitigation of the loss of potential housing units with a housing
pool credit system.
Existing Strategy 4.2 (A and B):
1. Currently implemented in Title 33, Planning and Zoning Code (33.810.050 and
33.810.060), regulations. ~BOP)
Potential Strategy::
2. As part ofPortland's next Periodic Review, evaluate actual housing production data by
zone (residential, commercial, and employment categories) to determine effectiveness
ofpolicy in ensuring compliance with the Metropolitan Housing Rule and Urban Growth
Management FUnctional Plan. (BOP)
Page 37 Comprehensive Plan Housing Policy 1/15/99
commentary
Policy 4.3: This policy incorporates the concept of "sustainability" that City Council adopted under the
following goal: The City ofPortland will promote a sustainable future that meets today's needs without
compromising the ability offuture generations to meet their needs. City Council also adopted
Sustainable City Pnnciples that call for linking land use andsustainable principles. Policy 4.3 reflects the
following sustainable city principle: Use resources efficiently and reduce demand for natural resources,
like energy, land, and water, rather than expanding supply.
A. This objective, which recognizes the significance of the health of the central City to the City's ability to
sustain itself over the long term, is supported by findings of the adopted Central City Plan and the Central
City Transportation Management Plan. Both plans incorporate the goal of developing at least 15,000 new
units of housing to take advantage of existing infrastructure to provide the option for liVing within a
compact Central City neighborhood, and to support the state's largest employment base. The River
District and North Macadam are two large parcels with potential to accommodate a share of the targeted
units. The University and Goose Hollow Districts also include goals for increased residential development.
The Central City Plan area includes a number of urban renewal districts. Each renewal district has an
adopted plan with multiple objectives, including housing.
B. This objective complies with the Region 2040 Growth Concept design types as a focus for mixed-use
developments. Metro describes the design types as follows:
• Central City -- Downtown Portland is the Central City which selVes as the major employment and
cultural center for the metropolitan area;
• Regional Centers--Nine regional centers will become the focus ofcompact development and
redevelopment with high quality transit service and multimodalstreet networks. (Gateway is the only
designated regional center in Portland);
• Station Communities--These are nodes ofdevelopment centered approximately one-halfmile
around a light rail or high capacity transit station and feature a high qualitypedestrian environment;
• Town Centers--Local retail andservices will be proVided in town centers with compad development
and transit service (Lents, Hollywood/Sandy, West Portland Park, Hillsdale, and St. Johns);
• Main Streets--Neighborhoods will be served by main streets with locally oriented retail andservice
developments served by transit; and
• Corridors--Along good quality transit lines, corridors feature a high quality pedestrian environment,
convenient access to transit, andsomewhat higher than current densities.
This objective is also supported by findings from the city's Livable City Project that resulted in similar
growth principles: Central CityJ Transit Stations, Main Streets, and Neighborhood Infill.
c. This objective is consistent with Goal!!, Public Facilities, Objective 11.4, capital Efficiency, because it
encourages the use of existing public facilities and services. Locating higher density multi-dwelling
housing near schools, parks, and transit service supports households with children by increasing
convenience for working parents and by reducing commuting time and expense. The public involvement
process for the Livable City Project identified adequate open spaces as supportive of new development.
Page 38 Comprehensive Plan Housing Policy 1/15/99
Policy 4.3: Sustainable Housing: Encourage housing that supports
sustainable development patterns by promoting the efficient use of land,
conservation of natural resources, easy access to public transit and other
efficient modes of transportation, easy access to services and parks, resource
efficient design and construction, and the use of renewable energy resources.
Objectives:
A. Place.new residential developments at locations that increase potential
ridership on the regional transit system and support the Central City as
the region's employment and cultural center.
Existing Strategy 4.3 (A):
1. Promote the construction of at least 15,000 new housing units in the Central City by
the year 2010. (PDC/BOP)
2. Form public-private partnerships to plan, coordinate and implement development.
(PDC)
Potential Strategy:
3. Design and adopt a process to authorize public investment in infrastructure to support
housing guided by principles ofsound financial management and analysis; an open
public process)' and thorough evaluation ofprojects/proposals against City Council
goals and City Policies. (Inter-Bureau)
B. Establish development patterns that combine residential with other
compatible uses in mixed-use areas such as the Central City, Gateway
Regional Center, Station Communities, Town Centers, Main Streets, and
Corridors.
c. Encourage the development of housing at transit-supportive densities
near transit streets, especially where parks or schools are present, to
ensure that the benefits of the public's investment in those facilities are
available to as many households as possible.
Existing Strategies 4.3 (B and C):
1. Implement through area or legislative plans. (BOP)
2. Review City housing incentive programs (property tax exemption and housing
fmance) to ensure compatibility of programs with policy. (PDC/BOP/HCDC)
Page 39 Comprehensive Plan Housing Policy 1/15/99
commentary
D. This objective reflects the need to protect the city's environmentar resources while allowing property
owners site development flexibility. This objective provides support for cluster housing, planned unit
developments, and environmental overlay zones to protect designated wetlands, forests, rivers and
streams, and unstable slopes.
E. Recycled materials and resource efficient technologies are becoming increasingly significant in the
housing industry. This objective lends support to keeping abreast of technological change, ensuring that
the city supports and encourages new cost-effective construction practices.
. Page 40 Comprehensive Plan Housing Policy 1/15/99
D. Foster flexibility in the division of land and the siting of buildings, and
other improvements to reduce new development's impacts on
environmentally sensitive areas.
Existing Strategy 4.3 (D): (BOP)
1. Currently implemented by regulation, Title 33 1 Planning and Zoning Code (33.216
Cluster Housing, 33.430 Environmental Zone), and Title 34, Land Division Code.
2. Continue to provide alternative options through on- or off-site transfer of
development rights, or other flexible development opportunities.
E. Use resource efficient technologies and materials in housing construction
that increase the useful life of new and existing housing.
Potential Strategy 4.3 (E):
1. Explore feasibility ofadapting City housing programs for consistency with adopted
Sustainable City Principles. (PDC)
2. Promote housing construction with recycled materials (plastic timber, aluminum studs,
etc. (BES)
3. Develop incentives to encourage reuse and recycling ofresources (e.g. capturing
stormwater for irrigation, laundry, cooling water, etc. consistent with City Greenscan
initiative, and creative design solutions such as roofgardens for stormwater
management. (BES)
Page 41 Comprehensive Plan Housing Policy 1/15/99
commentary
UNKS: Housing is one of the twelve goals that contribute to the city's Comprehensive Plan. The key
related goals include citizen participation, urban development, neighborhoods, transportation, economic
development, energy, public facilities, and urban design. It is difficult to disassociate issues of housing
from other issues such as public safety, transportation, cultural and recreational facilities, quality schools,
and good jobs. In combination, all of these issues affect neighborhood livability and household choice
about where to live. Participants at community workshops expressed the desire that the city's housing
policy address issues broader than housing. In fact, the city's Comprehensive Plan does address most of
these through the twelve goal areas that complement each other to support the prevailing city goal of
livability.
The intent of including the "Links" is to identify those Comprehensive Plan goals and policies that directly
relate to policies 4.1 through 4.3.
Relevant Housing Programs: The city funds a number of housing programs that implement the
policies and objectives included in 4.1 through 4.3. Existing programs will be reviewed to ensure
consistency with adopted policy and objectives. Adoption of the Comprehensive Plan does not, however,
result in the direct funding of housing programs, which are considered in light of City Council's budget
priorities and funding cycles.
Page 42 Comprehensive Plan Housing Policy 1/15/99
LINKS: This list refers to goals and policies in the City's Comprehensive Plan
that complement the proposed policies and objectives 4.1 through 4.3.
Goal 2: Urban Development:
Policy 2.1: Population Growth
Policy 2.9: Residential Neighborhoods
Policy 2.10: Downtown Portland
Policy 2.11: Commercial Centers
Policy 2.12: Transit Corridors
Policy 2.14: Industrial Sanctuaries
Policy 2.17: Transit Stations and Transit Centers
Policy 2.18: Transit Supportive Density
Policy 2.19: Inf1.11 and Redevelopment
Policy 2.20: Utilization of Vacant Land
Policy 2.21: Existing Housing Stock
Policy 2.22: Mixed Use
Goa13: Neighborhoods
Policy 3.4: Historic Preservation
Goal 5: Economic Development
Policy 5.1: Urban Development and Revitalization
Goal 6: Transportation
Policy 6.9: Transit-Oriented Development
Goal 7: Energy
Policy 7.3: Energy Efficiency in Residential Buildings
Policy 7.4: Energy Efficiency through Land Use Regulations
Goal 8: Environment
Goal 9: Citizen Involvement
Goal 11: Public Facilities
Policy 11.4: Capital Efficiency
Goal 12: Urban Design
Policy 12.6: Preserve Neighborhoods
Policy 12.7: Design Quality
••••••
Relevant City Housing Programs:
Property Tax Exemption Programs:
• For Residential Rehabilitation and New Construction of Single-Unit Housing in Distressed
Areas
• For New Multi-Unit Construction
• For Transit-Supportive Residential and Mixed-Use Development
Housing Finance Programs:
• Housing Development Finance
• Credit Enhancement
• Bond Allocation
Demolition Delay: (Title 24.55.200)
Page 43 Comprehensive Plan Housing Policy 1/15/99
commentary
The City's Role in Ensuring the safety and Quality of Housing: In 1897, the city recognized its
responsibility to ensure the safety of its citizens by adopting a building code that established minimum
standards for materials and techniques used in new construction. In 1919, the City adopted its first
housing code. For over 100 years the City has regulated and enforced health, safety and welfare
standards to ensure that citizens have safe, sanitary, and structurally sound housing. In recent years the
City has taken on new roles - that of educator, trainer, advocate and, sometimes funder, in order to
respond to new environmental and technological challenges.
Policy 4.4: The city assumes the responsibility for enforcement of a variety of State statutes when it
chooses to administer its own construction code program. State law governs the bUilding, mechanical,
plumbing, and electrical codes; subsurface sewage disposal; mobile homes and mobile home parks; and
recreational vehicle parks. This policy recognizes the contribution that enforcement of building and safety
standards makes to improve neighborhood conditions by extending the useful life of housing. The older
the city's housing, the more important it is to enforce building and safety codes. Once housing is about
25 years old, it begins to need more costly upkeep and structural improvements. Since 70 percent of the
city's housing was built before 1969, we can expect that there will be an increasing need for housing
maintenance.
A. The city ensures housing safety regardless of household income, but recognizes that the burden of
home repair may fall more heavily on low-income households, especially elderly and low-income
homeowners and residents of older single-room occupancy bUildings in the Central City. In general, the
housing code is a complaint driven process. The city also supports targeted inspections and financial
assistance programs to assist low-income owners and residents to bring housing up to code. As the city's
housing ages, there may be a need for a more systematic method of reviewing housing conditions, and
GIS technology may prOVide a cost-effective way to analyze housing conditions citywide. This objective
also recognizes that environmental hazard from building materials, paints, appliances, etc. create new
challenges for the city to address. Competitive federal and state grant programs may be available to
respond to these issues.
B. Economic downturns can lead to housing abandonment and tax -foreclosure. Under current robust
market conditions, the city no longer maintains the vacant and abandoned building list, which at one
point in the late 1980s contained over 2000 properties. Even though this objective may not appear
relevant to teday's housing market, it is important to articulate and retain this objective in recognition
that the economy is cyclical. The city and county developed programs to encourage the return of
abandoned housing to occupancy, primarily through the County's Affordable Housing Development
Program that transfers some vacant properties to nonprofit organizations for rehabilitation.
Page 44 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - SAFETY AND QUALITY
Policy 4.4: Housing Safety: Ensure a safe and healthy built environment and
assist in the preservation of sound existing housing and the improvement of
neighborhoods.
Objectives:
A.. Ensure safe housing for Portland's citizens of all income levels.
1. Existing Strategy 4.4 (A):
2. Administer a construction code program and enforce State statutes that pertain to
building, mechanical, plumbing, and electrical code; subsurface sewage disposal,
mobile homes and mobile home parks, and recreational vehicle parks. - (BOB)
3. Do systematic residential inspection of rental properties in target areas or for ltat_
risk" multi~dwellinghousing for early intervention. (BOB)
4. Collaborate with neighborhood response teams and others to ensure coordinated
and comprehensive response to housing or nuisance issues. (Police/BOB)
5. Provide grants and low-interest loan programs to ensure safe housing on a targeted
or citywide basis as funding allows. (BHCD)
6. Support programs that address and mitigate health hazards in housing caused by
harmful building materials such as asbestos, carbon monoxide from improperly
installed and vented appliances, and industrial pollutants. (BOB/Energy Office)
7. Administer the Lead Hazard Control Program to mitigate the risk of lead poisoning
due to existing lead in the housing stock. Support future legislative agendas
regarding comprehensive regional lead issues. (BHCD/PDCl
B. Enforce the Property Maintenance Code to discourage health and safety risks
involved with overcrowding. (BOB)
Potential Strategy:
9. Develop a strategy to systematically inspect substandard housing that violates the
minimum requirements ofTitle 29, Property Maintenance Code. (BOBjBHCD)
B. Encourage the return of abandoned housing to useful and safe
occupancy_
Existing Strategy 4.4 (B):
1. Encourage the transfer of abandoned tax-foreclosed properties, consistent with
Multnomah County transfer policies, to nonprofit organizations for rehabilitation or
redevelopment. (BHCD)
Potential Strategy:
2. Develop procedure for the transfer ofabandoned properties with excessive city liens to
nonprofit corporations. (AuditorjBOB)
Page 45 Comprehensive Plan Housing Policy 1/15/99
Commentary
c. Ensuring public safety requires that the city have adequate enforcement tools. The city can cite
bUilding owners and levy fines for code violations. After due process the city can also order demolition or
initiate receivership of properties exhibiting long-standing code violations. Since its inception the
receivership program has been effective in encouraging property owners to rehabilitate unsafe housing.
Page 46 Comprehensive Plan Housing Policy 1/15/99
co. Ensure the safety of the general public by requiring owners to repair
substandard housing or as a last resort, demolish dangerous housing.
Existing Strategy 4.4 (C): (BOB)
1. Enforce the "dangerous" buildings code by requiring owners of bUildings that meet
certain ~dangerous"criteria to either repair or demolish the building.
2. Continue to administer the receivership program that implements the Oregon
Housing Receivership Act (DRS 105.420) when necessary to abate chronic violations
of City codes and transfer the property to one of the following receivers: Housing
Authority of Portland, a city bureau, an urban renewal agency, or a private nonprofit
corporation.
Page 47 Comprehensive Plan Housing Policy 1/15/99
commentary
Policy 4.5: This policy recognizes that the maintenance of existing housing contributes to desired
neighborhood character and livability. The city's housing is a significant asset that must be maintained.
The policy reflects the concern for conservation that is reflected in many adopted community and
neighborhood plans. This policy also recognizes that not all housing can or should be preserved. In
some cases, the cost of maintenance and preservation is prohibitive. In some areas, the desired
neighborhood character calls for a mixture of uses or more intense development to support other public
objectives and local plans.
A. This objective supports investment in housing as a significant physical asset, and sends a clear signal
that it is the property owner (or investor), rather the public sector, who has primary responsibility to
maintain existing stock. The significance of the objective reflects changing economic conditions. With the
increase in housing values experienced over the last few years, there has been significant private
investment in housing maintenance and rehabilitation. Public comment raised concern that enforcement
of the city's housing code on older structures would result in higher prices and rents and displacement of
low-income households. The city's housing code does require that housing be kept in a safe, sound, and
sanitary condition. The code does not require costly upgrades since the property needs to be maintained
according to the construction code in effect at the time of the original construction. If the property has
not been maintained, the State of Oregon bUilding code will require that all repairs requiring permits be
done in accordance with Uniform Building Code. If property owners apply for permits to do upgrades
they are required to update according to the current code. Tenant rights organizations have asked the
city to enforce the housing maintenance code Vigorously in order to keep housing safe, and have sought
protection from eviction for reporting housing code violations.
'B. Some bUildings outlive the use that they were intended for, but can remain as assets to the
community because they contribute to an area/s scale, desired character, or sense of history. This
objective recognizes the challenges that can be encountered in extending the life of such buildings and
supports strategies to facilitate conversion to new uses when appropriate. The Belmont Dairy is a good
example of a building that had outlived its usefulness as a dairy plant, and had stood vacant for many
years. It had other qualities that made it a candidate for what turned out to be a good example of
adaptive reuse as a mixed-use development with ground floor retail, and mixed-income housing. The
reuse reinforced a sense of place while supporting public objectives for transit-supportive housing and
mixed-use development.
Page 48 Comprehensive Plan Housing Policy 1/15/99
Policy 4.5: Housing Conservation: Restore, rehabilitate, and conserve
existing sound housing as one method of maintaining housing as a physical
asset that contributes to an area's desired character.
Objectives:
A. Require owners, investors, and occupants, to be responsible for
maintenance of the housing stock.
Existing Strategy 4.5 (A):
1. Enforce the Housing Maintenance Code to ensure early intervention. (BOB)
2. Develop partnerships with private sector to ensure that private financing is available
for rehabilitation and restoration throughout the City. (PDC/FaDDle Mae)
3. Continue to fill the financial gap not met by the private sector for low and very low-
income households through grants or loans (tied to affordability covenants for rental
housing). (PDC)
4. Support programs that provide education and technical assistance on maintenance
and repair techniques. (BHCD/BOB)
5. Support community-based self-help and volunteer efforts. (BHCD)
6. Evaluate and monitor compliance by private lenders with Community Reinvestment
Act (eRA) requirements to ensure access to capital for low-income areas. (BHCD)
7. Develop tools to increase asset management capabilities of non-profit housing
owners. (BHCD/PDC~
B. Encourage the adaptive reuse of existing buildings for residential use.
Existing Strategy 4.5 (B):
Advocate for revisions to technical codes (statewide), or adopt administrative procedures
or interpretations if possible to make adaptive reuses economically feasible. (BOB)
Page 49 Comprehensive Plan Housing Policy 1/15/99
commentary
Policy 4.6: The City enforces housing safety regulation that set minimum standards of structural
soundness. This policy supports programs that enhance the quality of housing to improve livability for
residents and neighbors. The Bureau of Buildings is charged with administering and enforcing technical
building codes, which are usually adopted statewide. In recent years the Bureau of Buildings, the Energy
Office, the Bureau of Environmental Services, and the Police Bureau have taken on a larger role in the
area of education, training, and coordination of programs that improve housing conditions beyond
minimum standards.
A. This objective supports programs that improve, for the most part, interior housing conditions.
Implementation of this objective is not through enforcement of an existing code, but by education and
incentives or support for model demonstration projects. The city often forms partnerships with other
public agencies and the private sector to do this. One of the issues of improving housing quality is the
incremental up-front cost for value-added improvements versus the savings accrued over the "life-cycle"
of the structure.
B. Improved rental housing conditions benefit many parties: the residents of safe housing; their
neighbors, and the owners in the form of extended economic life. Promoting responsible rental
ownership, management and residency enhances the lives of residents and the neighborhood
environment.
c. The Bureau of Buildings is responsible for enforcing the regulations that implement this objective.
D. Zoning code regulations by their nature are intended to reduce conflicts between uses. Land uses are
categorized according to average or characteristic impacts from noise, traffic, parking, _odor, etc. The city
has also adopted regulations that deal with landscape buffers and traffic/driveway access. Some
individual uses do generate more noise, traffic, odor, etc. than average. In those cases the city has
established other means to help mitigate the problem. The city has also adopted nuisance ordinances for
both residential and business properties, and has adopted a noise ordinance. The Neighborhood
Mediation and the District Coalition or Neighborhood Association also function as mediators and problem
solvers in situations that have broad or significant impacts.
Page 50 Comprehensive Plan Housing Policy 1/15/99
Policy 4.6: Housing Quality: Encourage the development of housing that
exceeds minimum construction standards.
Objectives:
A. Promote housing that provides air quality, access to sunlight, and is well
protected from noise and weather.
Existing Strategy 4.6 (A):
1. Currently implemented by Title 33, Planning and Zoning Code (33.120.265, Amenity
Bonus), regulations that provide a density bonus for sound insulation, energy-
efficient buildings, and solar water heating.
2. Support programs that provide education, incentives, or examples of quality
housing. (BOB/Energy Office)
B. Ensure that owners, managers, and residents of rental property Improve
the safety, durability, and livability of rental housing.
Existing Strategy 4.6 (B):
1. Currently implemented by Title 33, Planning and Zoning Code (33.120.265, Amenity
Bonus), regulations that provides a density bonus for outdoor recreations facilities,
larger than required outdoor recreation space, children's play areas, crime
prevention features, and interior storage areas. (BOP)
2. Encourage project designs that reduce the opportunity for crime. (Police/BOP)
3. Support education and training programs that increase awareness of landlord and
tenant rights and responsibilities. (BOB/BHeD)
Potential Strategy:
4. Encourage developers to provide enOOnced security features (door bracing, strike
plates. etc.) as outlined in Appendix COOpter 10 ofthe Oregon Structural Specialty
Code. (PolicejBOBjPDC)
5. Use enhanced security features as appropriate in City-assisted multi-dwelling housing
developments and collect data on cost/benefit. (PDC)
6. Explore feasibility ofadopting COOpier 41 for citywide use. (PolicejBOBjPDC)
c. Protect housing from excessive off-site impacts including pollution, noise,
vibration, odors, and glare.
Existing Strategy 4.6 tel: Currently implemented by Title 33, Planning and Zoning
Code (33.262, Off-Site Impacts), regulations, and enforced by BOB. (BOP/BOB)
D. Limit conflicts between existing business areas and housing caused by
traffic and parking, noise, and signage.
Existing Strategy 4.6 (Dt: The base zones and other regulations of Title 33, Planning
and Zoning Code, take into account characteristic impacts of uses and provide buffering
and transitions between uses. (BOP)
Page 51 Comprehensive Plan Housing Policy 1/15/99
Commentary
LINKS: Housing is one of the twelve goals that contribute to the city's Comprehensive Plan. The key
related goals include citizen participation, urban development, neighborhoods, transportation, economic
development, energy, public facilities, and urban design. It is difficult to disassociate issues of housing
from other issues such as public safety, transportation, cultural and recreational facilities, quality schools,
and good jobs. In combination, all of these issues affect neighborhood livability and our choice about
where to live. Participants at community workshops expressed the desire that the City's housing policy
address issues broader than housing. In fact the city's Comprehensive Plan does address most of these
through the twelve goal areas that complement each other to support the prevailing City goal of livability.
The intent of including the "Links" is to identify those Comprehensive Plan goals and policies that directly
relate to policies 4.4 through 4.6.
Relevant Housing Programs: The city funds a number of housing programs that implement the
policies and objectives included in 4.4 through 4.6. Existing programs will be reviewed to ensure
consistency with adopted policy and objectives. Adoption of the Comprehensive Plan does not, however,
result in the direct funding of housing programs which are considered in light of City Council's budget
priorities and funding cycles.
Page 52 Comprehensive Plan Housing Policy 1/15/99
LINKS: This list identifies goals and policies in the city's Comprehensive Plan
that are related to the proposed policies and objectives 4.4 through 4.6.
Goal 3: Neighborhoods
Policy 3.1: Physical Conditions
Goal 7: Energy
Policy 7.3: Energy Efficiency in Residential Buildings
Goal 9: Citizen Involvement
••••••
RELEVANT CITY HOUSING PROGRAMS:
Property Tax Exemption Programs:
• For Low-Income Housing Held by Charitable Non-Profit Organization
• For Residential Rehabilitation and New Construction of Single-Unit Housing in Distressed
Areas
Housing Finance Programs:
• Housing Development Finance
Homeowner Programs
• Neighborhood Housing Preservation
Building Safety and Quality Programs
• Code Compliance
• Combination Inspections
• Neighborhood Inspections
1. Basic Housing Code Enforcement
2. Basic Dangerous Building
3. Nuisance and Illegal Dumps
4. At-Risk Multi Family Inspection
• Receivership Program
• Mini Housing Rehabilitation Programs
• Lead Hazard Control Program
• Landlord and Tenant Education Program
• Multnomah County Affordable Housing Development Program (tax-foreclosed transfer
program administered by Multnomah County)
Page 53 Comprehensive Plan Housing Policy 1/15/99
commentary
The City's Role in Ensuring Housing Opportunity. The city plays numerous roles in ensuring
housing opportunity. In the area of regional housing opportunities and fair housing, the city acts as an
advocate for enforcement of federal and state laws, and an active participant in the creation of regional
policies and programs. The city promotes housing opportunities and neighborhood livability through
political leadership and its use of regulatory and funding tools to support opportunity for all citizens.
Policy 4.7: This policy reflects the desire of most residents for \\batanced" communities with enough
diversity of incomes to support viable commercial areas. Ideally a "balanced" community would be an
inclusivej rather than an exclusivej communityj offering a range of housing types attractive to a range of
households: corporate CEOs and executives, families with children, singles, elderly households, and
couples. The range of housing options would include housing affordable to people of different income
levels, and people in protected classes. A "balanced" community would also offer both rental and
ownership options in both single dwelling detached, attached and multi-dwelling housing. Integration of
low-income households throughout the city, rather than concentration in just a few neighborhoods is an
important part of this policy. Over time the income mix in the city would be similar to the region as
regional growth management strategies are implemented with a regional transportation system, and an
eqUitable access to job opportunities. This policy relates to Policy 4.8, Regional Housing Opportunities,
and its Objective A that calls for a regional "fair share" strategy. Both policies are supported by the
research of Myron Orfield, David Rusk, and Anthony Downs, who call for using regional growth
management tools to reduce the economic disparities between central cities and the balance of the
metropolitan area. The success of regional growth management depends on a strong and vital central
city with all the functions that entails.
A. This objective reflects the policy that served as a foundation for the River District Housing
Implementation Strategy. More and more neighborhoods or stakeholder groups are coming up with their
own definition of "balanced." Rather than that approach, which could leave the lowest income group out
entirely this objective proVides a standard against which to measure development. Objective A focuses on
areas of greater potential development rather than on all existing and built up neighborhoods, because of
the greater likelihood that the objective could be achieved over time with increased development.
B. In her classic work, The Death andLife ofGreatAmerican Qti~ Jane Jacobs wrote about the Vitality
and livability generated by the diversity inherent in her Greenwich Village neighborhood. She wrote about
the importance of creating "seams" of neighborhoods - places where diversity is most likely to happen,
and places that knit neighborhoods together. Mixed-use design areas are potentially "seams" to knit
together largely residential areas to foster such diversity. A diversity of housing types is necessary to
foster income diversity. Maintaining income diversity over the long-term is a challenge because
neighborhoods go through cycles of revitalization, equilibrium, and sometimes disinvestment. Each cycle
brings a different challenge. Neighborhood revitalization may attract residents from outside the area, .
often of higher income levels. Disinvestment on the other hand can lead to an exodus of residents from
what they perceive as a declining neighborhood. The city has encouraged community-based strategies
for revitalization. In the Albina Community Plan and Outer Southeast Plan, for example, specific polities
and objectives encouraged non-profit and CDC ownership of housing as part of a long-term strategy to
accomplish revitalization while maintaining long-term affordability for existing residents. The overall
objective in both efforts was to reduce the displacement that would result from the successful
revitalization of the area. In 1997 over 3,100 rental housing units received property tax abatements
under the Charitable Non-Profit property tax exemption program. The units, which serve households
with incomes below 60 percent MA, are predominately located in north, northeast, and inner and outer
Southeast Portland. In 1985-1986, the first year that the program was available, 432 units received tax
abatements. The increase in the number of units eligible for the abatement is a measure of the support
the city has given non-profit housing developers to revitalize and stabilize neighborhoods.
Page 54 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - HOUSING OPPORTUNITY
Policy 4. 7: Balanced Communities: Strive for livable mixed-income
neighborhoods throughout Portland that collectively reflect the diversity of
housing types, tenures (rental and ownership) and income levels of the region.
Objectives:
A. Achieve a distribution of household incomes similar to the distribution of
household incomes found citywide, in the Central City, Gateway Regional
Center, in town centers, and in large redevelopment projects.
Existing Strategy 4.7 (A~:
1. Develop area plans and implementation strategies that take into account housing
needs of citywide-income distribution. (BOP/PDC/BHCD)
2. Ensure that area-specific implementation plans include strategies to achieve that
income mix. (BOP/PDC/BHCD)
3. Administer tax abatement programs (Central City, distressed area) to encourage
housing production for low, moderate and market rate housing.
4. Coordinate the delivery of non-housing programs (e.g. park, transportation,
infrastructure, public safety, school improvement) that improve neighborhood
conditions to make area attractive for market rate housing development
Potential Strategy:
5. Explore preservation and replacement strategies similar to River District Housing
Implementation Strategy in other areas. (PDC/BHCD)
6. Develop strategies to encourage private investment in housing the City wishes to
encourage to achieve a balance. (PDC?BHCD)
7. Evaluate tax. abatement programs periodically to detennine ifa balance ofhousehold
incomes is produced. (BOP)
B. Maintain income diversity within neighborhoods by 1) allowing a mix of
housing types and tenures, including houses, houses on smaller lots, small
houses, duplexes, attached housing, accessory dwelling units, multi-dwelling
housing, and mixed-use developments; and 2) ensure that income diversity is
maintained over the long-term.
Existing Strategy 4.7 (B):
1. Implement through legislative and area plans. (BOP)
2. Support non-profit ownership of housing to ensure long-term affordability for a
portion of area's housing inventory. (BHCD)
Potential Strategy:
3. Explore feasibility ofoffering incentives for development ofaccessory dwelling units.
(BHCD/BOP)
Page 55 Comprehensive Plan Housing Policy 1/15/99
Commentary
c. There is increasing public support at the federal and local level for mixed-income housing since it can
provide economic diversity within a particular development or within a neighborhood. Encouraging
mixed-income housing through incentives or regulations is one strategy to reduce concentrations of low-
income households in anyone area of the city. The Urban Growth Management Functional Plan may
require cities to consider incentive-based inclusionary zoning to encourage the production of housing
affordable to low and moderate income households. The city has included incentives for mixed-income
housing in the Housing Investment Fund program, and in the Transit-Supportive Residential or Mixed-Use
Development tax abatement program.
D. The concentration of low-income households in anyone area can discourage investment in
neighborhood commercial services and facilities, and can adversely affect school enrollment and quality.
Quality jobs are often lacking in such areas, resutting in fewer economic opportunities for low-income
households. Low~income households who have opportunities to locate in higher income areas may benefit
from expanding social networks that lead to better jobs and opportunities. This objective is supported by
recommendations from the Task Force on Strategies for Fair Housing and is implemented by the city's
Subsidized Housing and Shelter Policy. The Subsidized Housing and Shelter Policy limits direct City
funding for housing in census tract block groups that are identified as "impact areas." An "impact area"
is defined as census tract block groups where more than 50 percent of the households are below 50
percent of area median income, or where more than 20 percent of the existing housing units are
identified as "public and assisted." In the identified impact areas mixed-income housing is encouraged.
Some public comment indicated that the draft policy to discourage concentration the of very low-income
households by providing opportunities throughout the city was not sufficient and that the city also needed
policies, strategies and programs to support the creation of middle and upper-income housing in
neighborhoods that are disproportionately low-income. Policies 4.7, Balanced Communities and 4.10,
Housing Diversity, support economic diversity and mixed·income communities. In terms of strategies and
programs the city has administered property tax abatement programs to stimulate housing production for
specific geographic areas. Within the Central City area the New Multiple Unit Housing Program has
prOVided property tax abatements to over 2,543 units of housing since its inception, much of it for middle-
income households. The city also authorizes property tax abatements in designated distressed areas for
single-unit housing that is priced up to 120 percent of the median sales price in the city. Over 674 units
of housing, mostly in inner northeast and outer southeast Portland, have received 10-year property tax
abatements through this program. Tax increment funds have also been used to finance middle-income
housing in urban renewal areas. Non-housing funds are used to support parks, transportation
improvements, public safety programs, and other amenities that enhance neighborhoocllivability and
encourage the private sector to invest in middle and upper income housing.
Page 56 Comprehensive Plan Housing Policy 1/15/99
c. Promote the development of mixed-income housing that may include a
mix of housing types.
Existing Strategy 4.7 (C): (SOP)
1. Currently implemented by Title 33, Planning and Zoning Code (Elderly and Disabled
High Density Housing; Central City Housing Bonus FAR, Duplexes and Attached
Houses on Comers, Transitional Sites; Multi-dwelling Amenity Bonus, Historic
Preservation Incentive), regulations.
2. Provide incentives for mixed-income housing developments through funding
mechanisms and tax abatement programs (HIF, Transit-Supportive and Mixed-Use
Development) .
Potential Strategy:
3. Explore option ofadding a density bonusfor mixed-income housing developments.
4. Ensure compliance with potential Metro provisions for regional inclusionary housing
program.
5. Develop other strategies to encourage mixed-income (e.g. inclusion ofsmaller units
among mix in multi-dwelling projects.)
D. Encourage housing opportunities for extremely low and very low-income
households (below 50% MFI) in all neighborhoods to avoid their
concentration in anyone area.
Existing Strategy 4.7 (D): (SHCD/PDC)
1. Enforce the city's Subsidized Housing and Shelter Location Policy.
2. Provide information and technical assistance to developers regarding the City's
housing policy, the demographics of the city, and target area or impact area
designations that are based on housing conditions, or concentrations of low-income
people.
Potential Strategy:
3. Allocate city-controlled housing subsidy resources in a manner toot increases
opportunities for low-income households to locate throughout the city.
4. Review city housing programs to 1) identify and remove barners that discourage
mixed-income development; 2) identify new mecOOnisms to encourage or require
mixed-income housing developments (or communities). (HeDe)
5. Encourage developers and funders to develop and locate housing for extremely low
and very low-income people and housing with supportive seroices throughout the city
and the Portland metropolitan area.
6. Explore feasibility ofdeveloping regulatory incentives such as a density bonus for
development ofmixed-income housing. (BOP)
Page 57 Comprehensive Plan Housing Policy 1/15/99
Commentary
E. This objective supports both mixed-income communities and widespread availability of housing with
on-site social services. This objectrve must be weighed with Policy 4.9 Fair Housing, Objective C, which
recognizes that some populations are better served by access to particular social services and public
transit, so dispersal may not be a realistic option in all cases.
F. The city prOVides special assistance to geographic target areas. These areas are called by a variety
of names: target areas, urban renewal districts, distressed areas, enterprise communities, and through a
variety of programs they become eligible for specialized assistance. This objective supports City
intervention to improve housing conditions in these areas. Some reviewers of the discussion draft were
critical of the citYs neighborhood revitalization strategies because the city often does not acknowledge
the potential for gentrification and displacement of existing residents. The city's neighborhood housing
revitalization strategies have focused on support for non-profit and community development corporations
to acquire rehabilitate and build housing affordable to very low to low-income households. Non-profit
developers of rental housing own and manage housing to ensure long-term affordability. In target areas
the city also provide grants and low-interest loans to very low to moderate-income homeowners for
housing rehabilitation. Recent first-time homebuyers programs supported with city-controlled funds have
reqUired subsidy retention so that home ownership opportunities remain available for low-income
households over the long-term.
G. The city's property tax exemption program for Transit Oriented Residential and Mixed-Use
Development encourages housing that serves households at a range of income levels near transit
stations. Tri-Met encourages a mix of market and below-market rate housing built near transit to
encourage ridership among those who might not otherwise choose to use public transit. Many
households that can afford to pay market rate rents or prices for housing own more than one car.
Housing options near transit may allow these households to give up one of their cars.
Access to public transit and employment is particularly critical for low and moderate-income households
who are often dependent on public transit to get to and from their work. Locating low-income housing
near transit and employment supports balanced communities in two ways: potentially decreasing the
share of household income spent on transportation, freeing more discretionary income for food, clothing,
medical care, and recreation; and incre~sing a family's income potential.
Page 58 Comprehensive Plan Housing Policy 1/15/99
E. Actively encourage the dispersal of housing with on-site social services
throughout the city.
Existing Strategy 4.7 (E):
1. Provide information and technical assistance to state and county social service
funders and other providers. (BRCD/BCDC)
Potential Strategy:
2. Support city-county process to develop social service siting policies. (Council)
F. Support public and private actions that improve the physical and social
environment of areas that have experienced disinvestment in housing,
that have a concentration of low-income households, or that lack
infrastructure.
Existing Strategy 4.7 (F): (BOP/BHCD/PDC)
1. Designate "distressed areas" for eligibility for tax abatement for single-dwelling
housing produ.ction and rehabilitation (BOP)
2. Designate "urban renewal areas" and develop plans to eliminate slum and blight.
(PDC/Counci1~
3. Provide an integrated menu of services in target areas. (PDC/BHCD)
4. Support "asset-based" neighborhood assessments as the criteria for targeting
community-organizing assistance to eligible low-income areas. (BRCD)
5. Support non-profit ownership and management of rental housing to ensure long-
term affordability and to reduce displacement. tBHCD)
6. Support fust-time homebuyer programs. (BHCD/PDC)
Potential Strategy:
7. Coordinate geographic targeting to ensure maximum leverage oftools and resources,
and to avoid confusion and overlap. (BHCDjBOPjPDCj
8. Develop a monitoring and evaluation plan for performance and completion.
(BHCDjPDC/BOPj.
G. Encourage the development and preservation of housing that serves a
range of household income levels at locations near public transit and
employment opportunities.
Existing Strategy 4.7 (G):
1. Periodically evaluate existing tax abatement and incentive programs to determine
the income level actually setved and the level of affordability. (BOP/PDC/RCDC)
2. Administer Transit-Oriented Abatement program and Housing Investment Fund to
encourage innovative housing (mixed-income, transit-oriented) and housing
affordable to households below 60 percent area median income). (PDC/BOP)
Page 59 Comprehensive Plan Housing Policy 1/15/99
Commentary
H. Attracting a proportionate share of households with children is essential to maintaining a vital public
school system that in turn contributes to neighborhood stability and livability. This objective carries
forward the concept of maintaining families in the city, one of the foundation policies of the city's 1978
Housing Policy.
I,J. The Planning Commission added these two objectives to reflect the policy intent to expand housing
opportunities necessary to create balanced communities. The objectives reference a regional benchmark
as a method of analyzing balance. These objectives are intended to reflect a long-term or gradual
transition in the mix of housing opportunities available in a particular area.
K. This objective focuses on issues of involuntary displacement. Even though the city cannot regulate all
of the market factors that lead to displacement, the Planning Commission's intent is to encourage the
evolution of neighborhoods to achieve a balance through the introduction of new housing opportunities
rather than the involuntary displacement of people from their communities caused by a decreasing stock
of affordable housing.
Page 60 Comprehensive Plan Housing Policy 1/15/99
H. Improve the balance in the city's population by attracting a proportionate
share of the region's families with children in order to encourage
stabilized neighborhoods and a vital public school system.
Existing Strategy 4.7 (H): City-School Liaison coordinate city policies and programs
with public school programs.
I. Expand homeownership opportunities for existing residents in
neighborhoods with homeownership rates lower than the regional
average.
Potential Strategy 4.7 (1): Review City housing programs and private lending
programs for geographic eligibility criteria to determine if gaps or barriers exist.
(PDC/BHCD)
J. Expand multi-dwelling and rental housing opportunities in
neighborhoods with homeownership rates higher than the regional
average.
I Potential Strategy 4.7 (J): Implement through legislative and area plans. (BOP)
K. As neighborhoods evolve, discourage the involuntary displacement of
low-income residents from their community, while expanding housing
opportunities to create more balanced communities.
Existing Strategy 4.7IK): Support non-profit, and community-based ownership of a
share of the existing rental housing to reduce displacement. (BReD)
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commentary
Policy 4.8: This policy recognizes that the City of Portland operates within a regional housing market
and that housing opportunities for different income groups must be available throughout the region to
promote a balanced region.
A. The Metro Council is an elected regional government. The adopted Regional Urban Growth Goal and
Objectives (RUGGOs) sets the framework for regional cooperation and planning for housing. RUGGO 17
requires that Metro adopt a "fair sharell strategy for meeting the housing needs of the urban population in
cities and counties based on a subregional analysis. A "fair share" strategy will include:
1. a diverse range of housing types available within cities and counties inside the UGBj
2. specific goals for low and moderate rate housing to ensure that sufficient and affordable
housing is available to households of all income levels that live or have a member working in
each jurisdiction j .
3. housing densities and costs supportive of adopted public policy for the development of the
regional transportation system and designated centers and corridors; and
4. a balance of jobs and housing within the region and subregions.
Racial and other special needs, integration, while not an expressed objective of Metro, is more likely to
happen if housing opportunities are available in balance with job opportunities. Metro's Affordable
Housing Technical Advisory Committee is charged with developing a program to achieve the Metro goals.
B. Because the housing market is regional, housing policies, regulations, or incentives in one jurisdiction
may be ineffective if not applied consistently throughout the region. This objective prOVides support for
implementation of tools such as inclusionary zoning, or replacement housing strategies on a regional basis
to ensure a level playing field among jurisdictions. The City Council adopted a resolution supporting
inclusionary zoning as an important regional tool to ensure housing availability for low and moderate-
income households throughout the region. Public comment was divided on whether Portland should take
the lead in the region by considering inclusionary zoning independent of other jurisdictions. Some felt
that Portland has to consider impacts on a regional basis, while others felt Portland should lead by
example. To date, City Council has expressed support for strong regulatory tools to encourage affordable
housing at a regional level.
c. This objective is supported by findings contained in the Central City Plan, Future Focus, and
Recommendations from the Task Force on Strategies for Fair Housing. It suggests going further than
planning, by actually crafting regional solutions to housing needs, particularly for low-income or special
needs housing. Other regions have adopted some form of regional resource sharing to meet regional
needs.
Page 62 Comprehensive Plan Housing Policy 1/15/99
Policy 4.8: Regional Housing Opportunities: Ensure opportunities for
economic and racial integration throughout the region by advocating for the
development of a range of housing options affordable to all income levels
throughout the region.
Objectives:
A. Advocate for the development of a regional "fair share" strategy for
meeting the housing needs of low, moderate, and higher-income
households and people in protected classes in cities and counties
throughout the region.
B. Support regulations and incentives that encourage the production and
preservation of housing that is affordable at all income levels throughout
the region.
Existing Strategy 4.8 (A and B):
1. Provide technical support to Metr0 1s Affordable Housing Technical Advisory
Committee. (BOP)
2. Participate in development and implementation of new regional strategies. (BOP)
3. Advocate for adoption of regionally consistent regulations and incentives that have
been proven effective through local implementation. (BOP)
4. Pursue regional models of permanent affordability and retention/recapture of public
subsidy in homeownership programs. (BHeD/RCDC)
5. Evaluate impacts of proposed regulatory tools such as replacement ordinance. and
inclusionary zoning in regional context. (BOP)
Potential Strategy:
6. Develop strategies that support residential mobility for low-income households (e.g.
portability ofSection 8 certificates, technical assistance for non-profit developers
outside the City ofPortland).
c. Work with Metro and other jurisdictions to secure greater regional
participation in addressing the housing needs of people who are
homeless, low-income or members of protected classes.
Potential Strategy 4.8 (e): Explorefeasibility ofdeveloping regional revenue options to
support housing and services for populations whose needs cross jurisdictional boundaries.
(BHCDjOFA)
Page 63 Comprehensive Plan Housing Policy 1/15/99
commentary
Policy 4.9: This policy reflects fundamental community values. Fair housing and equal access to
housing for all citizens is a key regional issue, particularly as economic and job growth has been
suburbanized. Welfare reform with its focus on job attainment makes it even more important that
historically disadvantaged populations have choices about where they live and work.
A. Equal access to housing is closely related to greater opportunities in education and employment.
According to the Fair Housing Plan: Analysis ofImpediments and Strategies to Address Them, adopted by
the Multnomah County Consortium: a single jurisdiction cannot effectively address impediments to fair
housing nor the issue ofjobs/housing balance because of the existence ofa regional housing market and
a regional labor market Section 8 certificates and vouchers issued by the Housing Authority of Portland
can be used in other cities and counties in the region. The U.S. Department of Housing and Urban
Development is encouraging more portability of section 8 certificates and vouchers across the
jurisdictional lines, both city and state, to encourage mobility and opportunity for low-income households.
B. This objective reflects the city's Civil Rights Ordinance (No. 164709). The State Attorney General's
Office enforces the ordinance on behalf of the City. The ordinance exempts Section 8 certificate
recipients from protection based on "source of income," because the Section 8 program was developed as
a voluntary program. In the past two years the turnback rate from recipients who were unable to locate
a landlord who would accept the certificate within the 120-day period has ranged from 23 to 30 percent.
Some rental classified ads also contain the statement "no section 8." Refusal to rent to a Section 8
holder may be based on a generalized discriminatory attitude toward a particular class, or to
administrative requirements of the program. The ordinance does require landlords to send a written
explanation to the City Attorneys Office when they reject a section 8 voucher or certificate holder. The
Housing Authority of Portland meets with a Landlord Advisory Committee to identify administrative
barriers to Section 8 acceptance.
Page 64 Comprehensive Plan Housing Policy 1/15/99
Policy 4.9: Fair Housing: Ensure freedom of choice in housing type, tenure,
and neighborhood for all, regardless of race, color, age, gender, familial status,
sexual orientation, religion, national origin, source of income or disability.
Objectives:
A. Support programs that increase opportunities for minorities, low-income
people, and people in protected classes to gain access to housing
throughout the region.
Existing Strategy 4.9 (A):
1. Periodically review and update progress in implementation of strategies in the Fair
Housing Plan: Analysis ofImpediments and Strategies to Address Them, adopted by
the Multnomah County Consortium (Portland, Gresham, and unincorporated
county). (BRCD/RCDC)
2. Advocate for regional fair housing strategies. (BCDC)
Potential Strategy:
3. Develop residential «mobility» strategies (e.g. promote Section 8 portability, consider
technical assistance to non-profits and CDCs outside the city).
B. Prohibit discrimination in selling, renting, leasing, or subleasing
residential real.estate on the basis of an individual's race, color, age if
over 18, gender, marital status, familial status, sexual orientation,
religion, national origin, source of income, or disability.
Existing Strategy 4.9 (B):
1. Enforce fair housing laws and the City's Civil Rights Ordinance. (City Attorney)
2. Provide fair housing education and outreach to landlords and tenants about rights
and responsibilities (Landlord-Tenant Law). (BRCD)
3. Develop strategies to reduce barriers to the acceptance of Section 8 certificates and
vouchers by private landlords throughout the region. (HAP)
4. Enforce Civil Rights Ordinance requirement for written statement containing the
reason that a private landlord refuses to contract with the Housing Authority for a
Section 8 voucher. (City Attorney)
Page 65 Comprehensive Plan Housing Policy 1/15/99
commentary
c. This objective reflects recommendations from the Task Force on Strategies for Fair Housing for
community integration, rather than concentration, of housing for people with special needs. Allowing
opportunities throughout the city for housing for the elderly and people with disabilities provides more
choice for those households, and reduces pressure to concentrate in anyone area. The Fair Housing
Amendments Act of 1988 was adopted by Congress to reduce zoning barriers or other special
requirements that have historically limited housing opportunities for people with disabilities.
D. With the increase in elderly and disabled households living in the community, there is more demand
for physically accessible housing. Also, since the majority of Portland's existing housing stock is older, it
predates current standards, accessibility adaptations such as wheelchair ramps may become increasingly
necessary.
Page 66 Comprehensive Plan Housing Policy 1/15/99
c. Reduce barriers to the siting of housing for the elderly or people with
disabilities at residential locations throughout the city that have access
to needed social services and transit while recognizing that different
populations have different needs.
Existing Strategy 4.9 (C): (BHCD/BOP/ONI/Multnomah Countyt
1. Develop and support process to encourage communication, accountability 1 and if
necessary, mediation and problem solving among neighborhood and business
associations, and special needs providers and their clients.
2. Support increased funding for public and private agencies to develop special needs
housing fully integrated throughout the community.
3. Encourage and assist in a comprehensive community education program to better
inform all citizens regarding the social and economic benefits of providing
neighborhood based housing and services for people with special housing needs.
4. Encourage broad-based planning (e.g. neighborhood and business associations,
providers, local and state government representatives 1 providers, and consumers of
social services and supported housing) and consensus building regarding siting
issues through a community involvement process.
D. Ensure the development of housing accessible to people with physical
limitations) and the adaptation of existing homes to improve accessibility
for people with disabilities.
Existing Strategy 4.9 (D):
1. Ensure that accessibility needs are taken into account when design guidelines are
developed. (BOP)
2. Support programs that provide physical adaptation of homes to improve
accessibility. (BHCD)
3. Enforce the Oregon Structural Specialty Code that requires all buildings (except
townhouses) of 4 or more units to be designed to federal accessibility standards.
(BOB)
Page 67 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.10: This policy acknowledges the importance of a variety of housing types that support diverse
neighborhoods and allow households to stay in their neighborhoods as their needs change. One of the
most consistent values expressed at community workshops was people's attachment to "place." This is
conveyed as a desire to stay where family or social networks are established.
A. The Portland Public SChool District projects that school enrollment will remain stable at 56,000
students over the next 20 years. Portland's eXisting housing stock is over 60 percent single dwelling, and
much of that has three or more bedrooms, it is sUitable for accommodating households with children.
Much of this housing is located in older established neighborhoods with infrastructure to support the
housing (e.g. schools, parks, shopping and services). As new areas are developed, appropriate
infrastructure must also be considered to support a range of household types. In 1996, 16 percent of
Portland's households were married couples with children, while an additional 7.4 percent were female-
headed households with children. The balance of households consists of single individuals, couples, or
households that increasingly live together by choice or by economic necessity. This range of household
types within the city suggests a need for diverse housing since there is no "one size fits all" solution for
today's families. While most households with children may prefer a single dwelling detached house with a
yard, not all families with children can afford to own or rent a detached house. Multi-dwelling options
must be available to accommodate lower income households with children. Implementation of this
objective must work in tandem with other city goals and policies that ensure public safety, support quality
education, and prOVide cultural and recreational opportunities to ensure that Portland provides a high
quality of life for traditional and non-traditional households alike.
B. This objective supports homeownership alternatives in Region 2040 mixed-use design types. There is
a strong sentiment to support homeownership throughout the city. In mixed-use and higher density
residential developments this will require alternative forms of homeownership. Currently condominiums
make up only three percent of Portland's housing. With a median sales price of $102,500 in 1997, most
condominiums prOVide a more affordable ownership option for low to moderate-income households than
detached houses. Public comment indicated concerns that support for condominium ownership conflicts
with policies to discourage displacement of low-income households by condominium conversion. This
objective speaks to homeownership opportunities in new multi-dwelling housing. There is also a
proposed strategy to develop tools to assist low-income households purchase condominiums.
Page 68 Comprehensive Plan Housing Policy 1/15/99
Policy 4.10: Housing Diversity: Promote creation of a range of housing types,
prices, and rents to 1) create culturally and economically diverse
neighborhoods; and 2) allow those whose housing needs change to find
housing that meets their needs within their existing community.
Objectives:
A. Keep Portland inviting to households with children by ensuring through
public and private action the availability of housing that meets their
needs throughout the city.
Existing Strategy 4.10 (AJ:
1. Coordinate legislative and area plans with school districts' plans. (BOP)
2. Provide a set-aside of housing funds as needed to stimulate the development of
housing for very low-income households with children. (BHCD/PDC)
3. Support amenities and public services that keep neighborhoods attractive (safety,
recreation) and support efforts by school districts to improve school quality) (City
Counen/Mayor's Liaison/BOPJ
4. Currently implemented by regulation, Title 33, Planning and Zoning Code, Amenity
Bonus, which provides a density bonus for three bedroom or larger units suitable for
households with children, and for children's play areas on site. (BOP)
Potential Strategy:
5. Consider impacts on public schools in design and evaluation ofCity housing programs
(e.g. tailor homebuyer programs to boost enrollment in school enrollment area).
(BOP/BHCDjPDCj
6. Identify gaps in private sector production ofhousing appropriate for households with
children and develop strategies to address these gaps. (BHCDjPDC)
B. Support homeownership opportunities in new multi-dwelling housing by
encouraging the creation of condominiums, cooperatives, mutual
housing associations, and limited equity cooperatives.
Existing Strategy 4.10 (B):
1. Encourage the private sector (for-profit and non-profit) to develop products to
encourage new forms of homeownership in multi-dwelling housing. (PDC)
2. Review city homeownership and property tax exemption programs to ensure
compatibility with multi-dwelling models. (BOP/PDCJ
3. Encourage development of ownership options in mixed-use design areas such as
Central City, Gateway Regional Center, Station Communities, Town Centers, and in
other mixed-use design type areas. (BOP/PDC)
Potential Strategy:
4. Work with lenders to develop financial tools to assist low-income households become
owners ofunits converted to condominiums. (BHCDfPDC)
Page 69 Comprehensive Plan Housing Policy 1/15/99
Commentary
c. The city's homeownership rate is about 56 percent, higher than the nation's average of 49 percent for
central cities. At 39 percent the rate of homeownership among minorities is significantly less than that of
the city as a whole. The city's homeownership rate dipped in the 80s and early 90s, but has returned to
the 1970 rate. Homeownership provides benefits to owners in the form of tax advantages and a vehicle
for saving, and to communities in terms of neighborhood investment. The predominant ownership model
in Portland is single dwelling detached and attached housing. The market for condominiums is on the rise
with more demand generated by \\empty~nesters." Recent changes in assessing capital gains tax liability
is expected to shift some demand from single dwelling to multi-dwelling ownership. In addition to
condominiums, there are owner-occupancy options for duplexes and triplexes, cooperatives, land trusts,
and co-housing which may provide viable homeownership opportunities for all income groups. Some
neighborhoods (e.g. Buckman, Kerns, Eliot, Northwest, and Downtown) have a high proportion of multi-
dwelling housing. Introducing more altemative and affordable ownership models in these areas may
address community objectives for more balance between owner and renter occupancy. Condominium
conversions occur in gentrifying areas when property values and rent levels increase. Conversion can
lead to displacement of low-income households. Displacement must be mitigated by notice, relocation
payments, and development of programs to assist low-income tenants become owners, either as
individuals or as part of a tenant cooperative.
D. Within the next 10·25 years we will see a dramatic increase in the number of elderly households as
baby boomers age. According to the American Community Survey in 1996 about 38 percent of Portland's
population was between the ages of 35 and 64. According to Metro's Housing Needs Analysis, by the
year 2015 the share of elderly (65 years and older) will rise to 14.9 percent from the 1990 rate of 11.9
percent. Institutional reform and public policy have shifted to support more community-based housing
rather than institutional settings for both elderly and disabled people. This objective supports a range of
housing options for elderly and disabled households. Since 1982 the city has allowed additional housing
density for elderly and disabled housing. For the purposes of Chapter 33.229, Elderly and Disabled
Housing, a disabled person is a person who has a condition ofphysical or mental disability which
substantially limits one ormore major life adivities as stated in section 504 ofthe Federal Rehabilitation
Ad of1973andstate law. The additional density has made such housing more affordable to develop and
has allowed more households to be served. This objective supports existing regulations.
E. For at least the past 40 years from 40 to 50 percent of Portland's households have been renters. In
1996 the American Community Survey indicated that about 44 percent of households rented their homes.
Rental is a form of tenure; it represents how a household secures housing. Rental housing is not a
housing type, although most multi-dwelling housing in Portland is rented rather than owner-occupied. On
average renter households occupy about 10 percent of the city's detached and attached housing. Public
comment on the housing policy raised concerns about a perceived bias against rental households even
though they make up almost half the households in the city. Since some households prefer renting to
owning, and many households are unable to afford homeownership, this objective reiterates support for a
range of choices for renter households throughout the city.
Page 70 Comprehensive Plan Housing Policy 1/15/99
c. Accommodate a variety of housing types that are attractive and
affordable to potential homebuyers at all income levels.
Existing Strategy 4.10 (e):
1. Periodically assess market preference and ownership rates for different types of
housing (e.g. detached, attached, lofts, multi-dwelling condominiums, duplex and
triplexes, manufactured housing). (BOP)
2. Promote homeownership programs (public and private) that reduce barriers to
homeownership for low and moderate-income households. (BHCD/PDC)
3. Develop affirmative marketing strategies to ensure that minority households have
access to homeownership (PDC/BHCD)
D. Encourage the production of a range of housing types for the elderly and
people with disabilities, including but not limited to independent living,
assisted living, and skilled nursing care facilities.
Existing Strategy 4.10 (D): Currently implemented by Title 33, Planning and Zoning
Code (33.229, Elderly and Disabled High Density Housing), regulations. (BOP)
E. Support opportunities for renter households by providing a range of
housing types, sizes, and rent levels throughout the city.
Existing Strategy 4.10 (E): Currently implemented by Comprehensive Plan map
designations for multi-dwelling residential zones throughout the city. (BOP)
F. Increase the public school population in Portland, preventing widespread
school closures, and the consequent underutilization of public facilities.
Potential Strategy 4.10 (F): Encourage City Council and City-School Liaison to review
the City School Policy adopted 1979.
Page 71 Comprehensive Plan Housing Policy 1/15/99
Commentary
LINKS: Housing is one of the twelve goals that contribute to the city's Comprehensive Plan.
The key related goals include citizen participation, urban development, neighborhoods,
transportation, economic development, energy, public facilities, and urban design. It is difficult
to disassociate issues of housing from other issues such as public safety, transportation,
cultural and recreational facilities, quality schools, and good jobs. In combination, all of these
issues affect neighborhood livability and our choice about where to live. Participants at
community workshops expressed the desire that the city's housing policy address issues
broader than housing. In fact, the city's Comprehensive Plan does address most of these
through the twelve goal areas that complement each other to support the prevailing City goal of
livability.
The intent of including the "Links" is to identify those Comprehensive Plan goals and policies
that directly relate to Policies 4.7 through 4.10.
Relevant Housing Programs; The city funds a Dumber of housing programs that implement
the policies and objectives included in 4.7 through 4.10. Existing programs will be reviewed to
ensure consistency with adopted policy and objectives. Adoption of the Comprehensive Plan
does not, however, result in the direct funding of housing programs which are considered in
light of City Council's budget priorities and flinding cycles.
Page 72 Comprehensive Plan Housing Policy 1/15/99
LINKS: This is a list of goals and policies in the City's Comprehensive Plan
that complements the proposed policies and objectives 4.7 through 4.10.
Goa12: Urban Development
Policy 2.2: Urban Diversity
Policy 2.15: Living Closer To Work
Goa13: Neighborhoods
Policy 3.3: Neighborhood Diversity
Goal 5: Economic Development
Goal 9: Citizen Involvement
Goal Ill: Public Facilities) School Goal & Policies
••••••••
RELEVANT CITY HOUSING PROGRAMS:
Property Tax Exemption Programs:
• For Residential Rehabilitation and New Single Unit Construction in Distressed Areas
• For New Multi Unit Construction
• For Transit-Supportive Residential and Mixed-Use Development
• For Low-Income Housing Held by Charitable Non-Profit Organizations
Housing Finance Programs:
• Housing Development Finance
• Credit Enhancement
• Bond Allocation
Home-Owner and Home Buyer Programs.;.
• Neighborhood Housing Preservation Program
• First -Time Home Buyers
Fee Waivers:
• Transportation and Parks SDC
• Development Fee
• Building Code Enforcement
Fair Housing Education and Enforcement (Contracted Programs)
• Portland Housing Center
• Fair Housing Council of Oregon
• Multnomah County Legal Aid Service
• State of Oregon Civil Rights Division
Page 73 Comprehensive Plan Housing Policy 1/15/99
commentary
The City's Role in Ensuring Affordable Housing. In its role as regulator the city affects overall
housing affordability to the extent that land use regulations and the development process influence the
cost of housing. When the private for-profit sector does not produce or provide housing that is affordable
to lower-income households the city's role is to ensure through planning, regulation, coordination,
funding, and advocacy that housing is available and affordable across the income spectrum. All levels of
government - federal, state, and local - have a role to play in addressing housing market gaps.
Policy 4.11: The accepted definition of "affordable housing" is the cost of housing (rent or mortgage
plus utilities) for which a household pays no more than 30 percent of its income. Home prices in Portland
have increased on average ten percent per year for the past eight years, driving housing prices out of the
reach of many households. According to the 1990 Census 60 percent of households earning less than 30
percent of median income paid over 50 percent of their income for housing. (See p. 105 for Federal
Income Guidelines, and p. 107 for Glossary of Terms). Housing affordability is a concern across the
income spectrum because a bottJeneck in one rung of the housing ladder has wider impacts. When
households cannot move into homeownership, or cannot move to larger (or smaller) housing to meet
their needs because of a lack of choice, or because of high housing costs, that housing they currently
occupy remains unavailable to other households. This policy supports actions to prOVide housing that is
affordable to all households who wish to live in the city.
A. The city updates the Comprehensive Plan map through community and area plans. Since housing
affordability for all income levels is a contributing factor to overall city livability this objective reinforces
the importance of including affordability goals and strategies in plans.
B. Different strategies are needed to ensure housing affordability for different income levels. To meet
this objective the public and private sectors must develop strategies and define their respective roles.
For example, the Housing Authority of Portland has identified its role and niche as follows: \\ The Housing
Authority ofPort/and (HAP) owns and operates housing that serves people below 80 percent ofmedian.
income. HAP~ first priority is to preserve housing that serves the poorest Portlanders and those with
special needs. In order to assure its continued ability to seNe this priori~ HAP will develop housing for
households with incomes to 80% ofMR when such housing meets HAP~ long term financial interest, and
complements rather than competes with activities ofother nonprofit or for-profit developers. II
Page 74 Comprehensive Plan Housing Policy 1/15/99
POLICIES AND OBJECTIVES - HOUSING AFFO~ABILITY~
Policy 4. 11: Housing Affordability: Promote the development and
preservation of quality housing that is affordable across the full spectrum of
household incomes.
Objectives:
A. Include strategies and actions that encourage the provision of housing
affordable to all income levels in neighborhood and community plans,
and other area plans that pertain to housing.
IExisting Strategy 4.11 (A): Implement through legislative and area plans. (BOP)
B. Ensure the availability of housing that meets the needs of all Portland
households.
Existing Strategy 4.11 ~B): (BOP/PDC/BHCD)
1. Participate with Metro and other jurisdictions in establishment of regional fair share
targets.
2. Administer housing finance programs that provide grants and loans for housing
development. '
3. Develop subsidy guidelines consistent with Consolidated Plan Principle III that
states "there should be a direct relationship between the amount of public subsidy
and the number of units affordable for a minimum of 60 years."
4. Administer property tax abatement programs that encourage housing production
and rehabilitation by area (distressed, central city, transit-oriented) or for
households below 60 percent MFI.
Potential Strategy:
5. Develop strategies to ensure sufficient housing available for households at each
income niche along the housing spectrnm.
6. Collaborate with other public and private sector entities to define respective roles, and
to develop the menu oftools necessary to encourage housing development for each
income target.
7. Develop public and private financing strategies to ensure that affordability targets for
all income groups are met and maintained over time.
Page 75 Comprehensive Plan Housing Policy 1/15/99
Commentary
c. This objective acknowledges that changes in technology often outpace the regulatory environment
that governs building codes. This objective supports necessary changes of statewide codes. It also
supports adaptation and interpretation of administrative procedures or regulations over which the City
has local control.
D. Housing affordability can be enhanced by reduced operating costs. New construction and
rehabilitation practices can reduce ongoing energy consumption. With the deregulation of public utilities
there is some concern that utility companies will not prOVide assistance to help consumers reduce their
costs. The City is concerned about protecting the City's consumers and will seek opportunities to
continue weatherization and energy savings programs. Water and sewer bills are expected to increase 30
percent by the time the Combined sewer Overflow program is complete.
Page 76 Comprehensive Plan Housing Policy 1/15/99
c. Encourage the development and use of housing construction
technologies that streamline the housing construction process, reduce
development costs and environmental impacts, and produce sound and
durable housing.
Existing Strategy 4.11 (C): Monitor improvements to building technologies and
advocate if necessary for modifications to technical codes to facilitate development.
tBOB/IGA)
D. Promote conservation programs and energy-efficient practices and
programs that reduce housing operating costs for energy, sewer and
water usage.
Existing Strategy 4.11 (D):
1. Ensure compliance with residential energy codes in new constructiont home
remodeling and home renovation. (BOB)
2. Promote home weatherization t energy efficient appliances and the use of renewable
energy resources through education and local and regional energy programs. (Energy
Office)
3. Support "public purpose" funding from gas, oil and electricity users to develop
consumer-oriented programs for energy efficiency, low-income weatherization and bill
paying assistance. tEnergy Office)
4. Support self-help and volunteer efforts to educate consumers about conservation
and energy efficient practices. (Energy Office/BHeD)
Potential Strategy:
5. Encourage cost effective weatherization when homes are sold. (Energy Office)
6. Designate cost effective weatherization as a «minor code improvement, .Il eligible for
fUnding under City housing repair and renovation programs. (BHCDjPDC)
7. Develop strategy to ensure long-term energy efficiency ofhousing financed with public
fUnds. (BHCDjPDC)
Page 77 Comprehensive Plan Housing Policy 1/15/99
Commentary
E: Over SO years ago the city recognized that there were housing needs that the private market could
not meet. To respond to the compelling need, the City Council created the Housing Authority of Portland
as a public nonprofit municipal corporation to "provide safe, decent and affordable housing to low-income
people./I The Housing Authority of Portland (HAP), though created by the city, has received the bulk of its
financial support for development and operations from the federal government. Now the federal
government is deregulating public housing authorities so that they can choose to serve higher income
populations. This objective provides gUidance to the Housing Authority on local preferences (i.e., priority
access to housing). It also provides policy guidance to the city in the event that federal subsidies are
reduced and local operating subsidies are reqUired. On average, the 8000 households in HAP's public
housing and Section 8 programs have incomes of about $625 per month. Some 60 percent of these
households are families with children. The Housing Authority has been able to serve these very low-
income households because they have received an operating subsidy from the federal government.
Those subsidies may be declining significantly and public housing authorities are under pressure to
establish local preferences to serve higher income households. Since Portland is already experiencing a
critical shortage of housing affordable to very low-income households, it is important to support the
Housing Authority in its mission of serving very low-income households as well as maintaining its fiscal
stability.
F. Historically the federal and state governments have taken more responsibility than local governments
for prOViding resources to serve the lowest income households that the private market does not serve.
Local governments often lack the resources to meet the housing needs of very poor people. Pressure to
cut federal budgets and reduce the federal deficit has resulted in cutbacks in federal programs such as
public housing that has historically been targeted to households below 50% MA. This objective
recognizes that the city does not have adequate resources to meet housing needs of very low-income
households without assistance from higher levels of government so continued advocacy for resources is
necessary.
G. Housing affordability is measured by the relationship of housing costs to income. The Portland Metro
area has recently been ranked as one of the least affordable housing markets in the country. This
ranking has less to do with the absolute cost of housing here, than it does with the fact that average
income in the Portland Metro area has lagged behind housing price increases. Reducing housing costs is
one avenue to increase housing affordability, while increasing household income is another. This
objective prOVides policy support for developing programs to increase household income by providing
opportunities for work, or by encouraging housing near employment. A "family wage" job is defined by
Metro as "a permanent job with an annual income greater than or equal to the average annual covered
wage in the region./I In 1996 a family wage" was estimated to be $14.59 per hour, $2530 per month.
Minimum wage workers currently earn $6 per hour, which places them below the federal poverty level.
Full-time minimum wage workers earn 36 percent of area median income and are categorized as very low
income by federal income categories. At that level their income is too low to achieve housing
affordability, even in most low-income housing built with federal tax credits. At the same time, most
minimum wage earners cannot access public housing because of the demands on that program. service
sector workers, who represent a growing share of the regional economy, earn on average about 560/0 of
median family income. The federal Low Income Housing Tax Credit Program has stimulated multi-
dwelling housing 'production for households at this level.
Page 78 Comprehensive Plan Housing Policy 1/15/99
E. Work in partnership with the Housing Authority of Portland to preserve
its portfolio of federally assisted housing at rents levels affordable to
extremely and very low-income households.
Existing Strategy 4.11 (E):
1. Continue to reduce the operations and maintenance cost of existing public housing
and Section 8 programs. (HAP)
2. Acquire and develop rental housing affordable to households up to 80 percent of MFI
to generate subsidy to maintain housing affordable to households below 30 percent
of MFI. (HAP)
3. Ensure that homeownership programs for scattered site housing retains
affordability over time. (HAP)
4. Advocate with Congress for continued operating subsidies to support public housing
for extremely low-income households. (GR)
F. Pursue adequate financial resources to develop, maintain and preserve
housing and housing assistance programs for households whose needs
are not met by the housing market.
Existing Strategy 4.11 (F):
1. Advocate for federal and state legislation, programs, and funding to support housing
assistance programs. (GA)
2. Encourage the state, Metro, and local governments to develop stable funding
sources to support housing assistance programs. (BHCD/PDC/BOP)
G. Narrow the gap between housing costs and income.
Existing Strategy 4.11 (G): ~PDC)
1. Encourage the retention and recruitment of "living wage" jobs to increase people's
ability to pay for housing.
2. Encourage employers to develop programs to assist employees to purchase and
finance housing near their work site, or convenient to public transit.
3. Provide incentives (e.g. tax abatement) to support mixed-income housing near
transit and employment to reduce household transportation costs.
4. Develop strategies to ensure that affordable and convenient worker housing is
available or is developed in conjunction with public redevelopment or funding of
large new employment centers or projects.
5. Support efforts to increase self-sufficiency and earnings of public housing and
Section 8 recipients through Moving to Work Initiatives. (HAP)
6. Support "living wages" for City contractors (Living Wage Ordinance). (CouncU)
Page 79 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.12: The concept of a housing continuum (with or without services) that ranges from emergency
shelter through transitional housing to permanent housing, either rental or homeownership, has been the
foundation of much of the recent housing planning for low-income households (CHA5, Consolidated Plan/
Shelter Reconfiguration).
A. The 1991 CHAS recommended countywide interjurisdidional planning and delivery systems through
the establishment of the Housing and Community Development Commission to provide policy advice on
resource allocation and other strategies to Portland, Gresham, and Multnomah County. In addition, the
Housing Authority of Portland was expanded to a countywide agency. Most federal entitlement programs
require that jurisdictions coordinate their planning. For example, the City of Portland is the lead city for a
six-county consortium for planning for Housing Opportunities for People with Aids. Most other programs
such as the Emergency Shelter Grant Program, the HOME Program, and the Supportive Housing for the
Homeless require planning and coordination that cross jurisdictional boundaries. This objective supports
these interjurisdictional efforts.
B. This objective was developed through the Strategies for Fair Housing, and has been implemented by
regulation. Multnomah County administers certification standards for operation and client oversight.
c. The federal government requires cities and counties that receive federal funds to develop a
"Continuum of care for the Homeless" as part of the Consolidated Plan for Funding. The
PortiandjMultnomah County Consortium updates this plan annually based on an assessment of needs and
strategies.
Page 80 Comprehensive Plan Housing Policy 1/15/99
Policy 4.12: Housing Continuum: Ensure that a range of housing from
temporary shelters, to transitional, and to permanent housing for renters and
owners is available, with appropriate supportive services for those who need
them.
Objectives:
A. Plan and coordinate the provisions of housing opportunities for
households whose needs are not met by the private for-profit market.
Existing Strategy 4.12 (A):
1. Support countywide housing planning and policy coordination function of the
Housing and Community Development Commission. (BBCD)
2. Support countywide operation of the Housing Authority of Portland. (CouDcil)
3. Work in partnership with other jurisdictions in the County and region to planJ
coordinate and fund housing opportunities that transcend jurisdictional boundaries.
(BeDC)
4. Implement principles, priorities, and strategies identified in the Consolidated Plan.
(BHCD/PDC)
5. Coordinate with Multnomah County, the State of Oregon, and other providers for
housing development with the provision of supportive services (childcare, drug and
alcohol treatment, skilled nursing care, etc). (BHCD/HAP)
B. Promote the preservation and development of a sufficient supply of
transitional and permanent housing affordable to extremely low-income
individuals and households with children in order to reduce or prevent
homelessness.
Existing Strategy 4.12 tB):
1. Assess the need for homeless facilities and services in the annual update of the
Consolidated Plan by monitoring occupancy and the demand. (BHCDjHCDC)
2. Implement strategies identified in annual update of the Continuum ofCare for the
Homeless included in the Portland/Multnomah County Consortium's Consolidated
Plan. (BRCD/BeDC)
3. Collaborate with religious institutions to provide short-term or emergency shelter.
(BRCD)
4. Collaborate with Multnomah County to develop financing strategies to ensure
resources are available to maintain existing housing and services as well as develop
new housing and programs for people who are homeless. (BHCD/PDC)
C. Provide opportunities throughout the city for emergency shelters and
transitional housing for people who are homeless.
Existing Strategy 4.12 (C):
1. Currently implemented by Title 33, Planning and Zoning Code (Emergency Shelters,
33.285; Religious Institutions, 33.920.470) I regulations. (BOP)
Page 81 Comprehensive Plan Housing Policy 1/15/99
commentary
D. In its role as regulator the city affects affordability by allowing diverse housing types that make more
efficient use of a finite supply of land. In general, the private for-profit sector is more likely to address
the needs of middle and high-income households without public assistance. Public action may be
necessary to stimulate higher-end housing production in areas such as the Central City where
development costs are high or there are other perceived risk factors. In those areas, the City may have a
role in reducing risk. Housing for extremely low and very low-income households generally requires a
combination of subsidies to make it affordable. Extremety low-income renters are generally the most
vulnerable population, although in recent years affordability has become an issue for moderate and
middle-income households as well.
E. Bottlenecks in the housing continuum have ripple effects up and down the housing ladder. While the
city's homeownership rate of 56 percent is higher than the average for central cities, minorities and low-
income households have lower homeownership rates. Lack of a downpayment, and poor credit history
can be barriers to homeownership. Public and private actions may be necessary to prOVide opportunities
for first-time homebuyers. Extended periods of low mortgage interest rates have increased affordability
for many homebuyers, despite the increase in housing costs. The high homeownership rate overall can
be attributed in part to strong partnerships between the public and private sector.
Public comment raised concerns that a city policy to encourage homeownership programs has an adverse
impact on low-income renter households, and that the city does not acknowledge that impact. The city
supports expansion of renter opportunities as well as opportunities for first-time homebuyers. Private
lenders have developed new products and services to make homeownership affordable to low and
moderate income households.
Page 82 Comprehensive Plan Housing Policy 1/15/99
D. Stimulate production of a variety of housing types that are affordable and
responsive to the needs of extremely low, very low, low, moderate, and
middle income households.
1. Existing Strategy 4.12 (D):
2. Implement through legislative and area plans by ensuring opportunities for small
homes on small lots, clustered and attached housing, zero-lot line, duplexes, and
multi-dwelling housing. (BOP)
3. Encourage public/private partnerships to develop affordable housing prototypes.
(PDC/BOP)
4. Develop strategies for use of surplus public land for housing that serves a range of
income levels. (BOP/BHCD/PDC)
5. Administer property tax abatement programs that encourage production. tPDCl
6. Provide operational support and technical assistance to non-profits and CDC who
develop, own, and manage property for households not served by the for-profit
sector. (BHeD)
7. Develop housing strategies in urban renewal areas (where housing is appropriate)
for use of tax increment financing. (PDC)
E. Expand opportunities for first-time homebuyers.
Existing Strategy 4.12 (E):
1. Support homeownership education and counseling programs. (BHCD)
2. Develop partnership with the private sector to reduce barriers to homeownership
(e.g. credit, downpayment). (PDC/BHCD)
Potential Strategy:
3. Explore options for implementing Community Land Trusts and other shared-equity
homeowner models. (BHCD/PDCj
4. Explore feasibility ofpubliclprivate partnership to offer a «location-efficient" mortgage.
(pDCjBHCD/pDOTj
Page 83 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.13: Not only have housing prices increased rapidly over the past few years so has the average
size of newly constructed single dwelling units. Average house size increased 64 percent from 1945 to
1995 in the Portland metropolitan area despite the fact that household size is t~ending downward. This
policy supports the market niche that may prefer a smaller house with fewer amenities (one bath, no
bonus room, a carport or parking pad rather than garage). This policy does not suggest that all housing
should be small with few amenities, rather that the city should not erect barriers to their production when
a market response is evident. There is a small but growing movement of people committed to concepts
of sustainability and reduced resource consumption. Public comment identified concerns about a
potential conflict between this polic.y, which focuses on basic amenities, and the Amenity Bonus provision
of Title 33, the Planning and Zoning Code. This policy is not intended to discourage improved quality of
housing; it does convey the concept that housing size does not equate to housing quality.
A. This objective supports reduction of regulatory barriers to small Jots with small homes. It is important
to note that "small homes" need not be limited to singles and couples. Families with children may be
interested in options that reduce the cost of a house by eliminating a double-car garage in favor of an
additional bedroom; or elimination of a master suite in favor of two smaller bedrooms.
B. This objective speaks to development and financial barriers to small homes. For example, some
financial institutions require minimum mortgages, or may have different underwriting standards for small
homes with few amenities. Some developments include covenants that require homes to be of a
minimum size to ensure similar housing values in an area. This type of restriction can encourage
"overbuilding" housing beyond a household's needs or preferences.
Page 84 Comprehensive Plan Housing Policy 1/15/99
Policy 4.13: Humble Housing: Ensure that there are opportunities for
development of small homes with basic amenities to ensure housing
opportunities for low-income households, members of protected classes,
households with children, and households supportive of reduced resource
consumption.
A. Ensure that regulations facilitate the option of development of small
homes.
Existing Strategy 4.13 (A):
1. Currently implemented by Title 33, Planning and Zoning Code, (33.405) Alternative
Design Density Overlay Zone, Albina Community Plan District regulations (e.g
reduced parking requirements). (BOP)
Potential Strategy:
2. Explore feasibility ofsetting a maximum house size in some residential zones. (BOP)
B. Reduce barriers to the development and finance of small homes.
Potential Strategy 4.13 (B):
1. Encourage financial institutions, underwriters of loans and mortgages, and state
housing agencies to identify and eliminate barriers in the real estate finance process
thnt inhibit the development ofmodest homes. (PDC)
2. Provide information to the development community on needs and preferences ofsmall
households andlor low-income households. (BOP/PDC)
3. Discourage developersjrom stipulating minimum housing sizes in subdivision
covenant, codes, and restrictions. (BOP)
Page 85 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.14: The best measure of neighborhood stability is the "turnover" rate which is dependent on
many factors: homeownership rates, housing prices, housing diversity, quality of schools, perceptions of
safety, and residents' sense of community or belonging. Age and lifestyle also affect turnover rates and
stability. Older residents, whether renters or owners, move less often than do young singles, whether
renters or owners. Low-income elderly homeowners tend to have the lowest turnover rate. Low-income
renters have high turnover rates if they are subject to frequent rent increases. Higher-income renters -
may move more frequently as they establish careers or new households form. Middle-aged homeowners
in management or executive positions tend to move fairly frequently so some higher income
neighborhoods can experience fairly high turnover rates. This policy does not suggest there is just one
method to support stability, rather that different options must be available to support people's ability to
make choices to stay in an area.
A. Homeownership contributes to neighborhood stability in many ways, particularly in areas where
people engage in civic and neighborhood improvement activities. It also contributes to household
stability since homeowners tend to have more control over their housing costs than do renters.
B. This objective reflects physical design as well as the less tangible qualities of a good neighborhood.
Gated communities discourage connections to the broader community and reduce opportunities for civic
interaction. In contrast, some housing opportunities are developed to consciously support resident
interaction by including shared facilities or common open space.
c. In 1978 the city adopted the Downtown Housing Policy. Among the recommendations was one to
maintain the stock of SRO (single-room occupancy) housing at the level that existed in April 1978. At the
time there were 5183 units of housing serving low-income households in downtown Portland. In 1998
there are just over 4000 units of SRO housing despite significant efforts to preserve and replace housing
lost to redevelopment. One strategy developed during the Central City Plan process, which also called for
maintenance of the existing SRO housing, was a "transfer of density" option. A number of strategies are
suggested that call for re-examining the goals of the Downtown Housing Policy. This may involve
expanding the boundary; establishing some inclusionary housing requirements in the central City area; or
revising the goal to reflect the current stock. Some advocates have suggested that the City should
preserve existing SRO housing, but should not build new SRO units. Instead SROs that are lost to
demolition or conversion should be replaced with studio units.
Page 86 Comprehensive Plan Housing Policy 1/15/99
Policy 4. 14: Neighborhood Stability: Stabilize neighborhoods by promoting:
1) a variety of homeownership and rental housing options; 2) security of
housing tenure; and 3) opportunities for community interaction.
Objective:
A. Promote and maintain homeownership options within neighborhoods.
Existing Strategy 4.14 (A): (BHCD/PDC)
1. Strengthen partnerships with lenders, realtors, and community organizations to
ensure that homebuyer options are available to serve different market niches (e.g.
downpayment assistance, credit counseling, etc.)
2. Support programs that assist homeowners to maintain their homes.
3. Support community land trusts and other homeownership models that retain
affordability.
4. Support programs that educate homeowners about eviction prevention, and provide
them information to protect them from fraudulent or deceptive mortgage or equity
loan offerings.
B. Promote housing opportunities that build a sense of community, civic
involvement and neighborhood pride.
Existing Strategy 4.14 (B):
1. Prohibit gated streets and communities. (PDOT/BOP~
2. Encourage co-housing, community land trusts, mutual housing associations, and
tenant-owned and management housing. (BOP/PDC/BHCD)
c. Protect, preserve, and restore the City's single-room occupancy (SRO)
and low-income housing.
Existing Strategy 4.14 (C):
1. Regulatory incentive to preserve SROs is included in Title 33, Planning and Zoning
Code, (33.510.200 E, SRO housing transfer of floor area). (BOP)
2. Maintain at-risk housing inspection and repair programs for SROs. (BHCD/BOB)
3. Maintain commitment to replace SRO housing lost to redevelopment (Hamilton II)
(PDC/HAP)
4. Coordinate strategies with periodic update and implementation of PDC Five-Year
Plan. (PDC)
Potential Strategy:
5. Develop a strategy to preserve the existing stock (4021 units) ofdowntown's low-
income housing units threatened by demolition, conversion or redevelopment (PDC)
6. Re-examine the Downtown Housing Policy's goal ofmaintaining 5183 low-income units
in the downtown (the number toot existed in 1978) in light ofcurrent level and market
conditions, e.g. expandfrom downtown to Central City; replace SRO with studio or
larger unit; set targets for replacement in mixed-income developments. (PDCjBHCD)
Page 87 Comprehensive Plan Housing Policy 1/15/99
Commentary
D. As areas experience housing price appreciation and gentrification there are concerns about
displacement of existing residents! particularly very low-income residents who have a difficult time
locating equivalent housing. Existing housing is generally more affordable than new construction. Since
private for profit owners and investors have little incentive to maintain rents at a level below market
demand! a proactive way to preserve housing at affordable rents is to support acquisition by nonprofit
organizations, or community ownership. Providing renters the security of tenure in their housing by
ensuring long-term affordability is essential to individual and household stability.
One current threat to neighborhood stability is the potential turnover of close to 2400 units of privately
owned housing that have expiring Section 8 certificates. If the owners choose not to renew their federal
contracts rents at some locations could rise to market levels that are unaffordable to the existing
residents. The residents are likely to be long-term residents of a neighborhood! who if unable to pay
market rents, would be forced to move out of the neighborhood. Based on the documented history of
relocation in downtown from 1986 to present! 48 percent of the residents displaced were elderly; 20
percent were disabled, and over 34 percent of existing residents had lived in the downtown community
for over 15 years. The preservation of "expiring use" properties was originally identified as a priority
strategy for the city in the Comprehensive Housing Affordability Strategy (CHAS, 1991). City Council will
be considering a number of strategy options to preserve housing for residents in similar circumstances.
Some public comment indicated that in some cases allowing rent levels to increase to market levels may
be an appropriate strategy to bring economic diversity to an area. Other comments focused on the
vulnerability of the population at risk of displacement and the lack of other affordable housing options.
E. The City supports neighborhood reVitalization strategies to improve neighborhood conditions. Private
market forces and public intervention strategies can result in increased investment in an area and
increased property values. While this generally has positive outcomes that meet resident and City
objectives, increased housing values often results in displacement of low-income households. Low-
income homeowners may face higher property tax bills and renters may experience rental increases
beyond their ability to pay. This objective tries to balance two competing goals - that of improving
neighborhoods by encouraging investment and that of ensuring that existing residents benefit from the
improvements. Over the past 8 years the city has prOVided operating support and technical assistance to
non-profits and CDes to develop, rehabilitate housing as part of a neighborhood revitalization strategy.
Rental housing owned by non-profits prOVides permanent affordability in neighborhoods experiencing
gentrification. There are currently over 3000 units of housing under non-profit ownership or management
for households below 60 percent MR. More recently the city has adopted mechanisms to recapture and
retain affordability in first-time homebuyer programs to ensure continuing affordability.
F. Conversion of low-cost multi-dwelling units to condominium ownership can create hardships for low-
income households. The rate of condominium conversion is correlated to rapid housing price
appreciation. Condominium conversion can result in displacement and relocation of existing renters,
unless they are able to buy their unit. In response to the problems created by a significant number of
condominium conversions in 1979 and 1980 (over 1000) the city adopted a Condominium Conversion
Ordinance (No. 157039) that requires developers to prOVide 120 day notice of conversion, as well as the
payment of relocation expenses to tenants who are within HUD section 8 income levels. A recent report
and evaluation of condominium conversion recommended that the ordinance be codified in city code to
ensure enforcement.
While the city encourages condominium ownership as an appropriate and often affordable option for
many households, this objective reflects policy support for reducing the hardship caused to low-income
residents who are displaced by conversion. The development of financial tools to assist low-income
renters who wish to buy their unit if converted would be one way to achieve multiple objectives.
Page 88 Comprehensive Plan Housing Policy 1/15/99
D. Encourage the retention of existing rental housing at rent levels
affordable to area residents.
Existing Strategy 4.14 (D): (BHCD/PDC)
1. Support acquisition by nonprofits, community land trusts, tenants, or tenant
organizations} of existing affordable housing susceptible to redevelopment, thereby
protecting housing from upward pressure on prices and rents.
2. Develop mechanism to designate affordable units in projects receiving direct City-
controlled financial assistance designed to create or preserve rental housing
affordable at or below 80 percent of MFI for a of minimum 60-years (in process).
3. Support land trusts, cooperatives, co-housing, and mutual housing associations
that provide permanent housing affordability.
4. Promote long-term leases and/or rental agreements in existing rental housing units
owned by private non-profit or for-profit organizations that receive city subsidies.
5. Develop and implement a strategy to preserve privately owned and federally
subsidized project-based Section 8 housing.
E. Increase opportunities for construction, acquisition, or preservation of
housing affordable to area residents in locations where rising property
values and gentrification contribute to their involuntary displacement.
Existing Strategy 4.14 (E): (PDC/BOP/BHCD)
1. Support nonprofit and CDC acquisition and ownership of a share of the single and
multi-dwelling housing stock to ensure permanent affordability.
2. Ensure that City-funded homebuyer programs have provisions to retain affordability
or recapture subsidy on resale.
3. Develop strategies to support mixed-income housing to ensure low-income
households have access to permanent affordable housing within a mixed-income
community.
F. Require the property owner to assist in the relocation of low-income
residents whenever multi-dwelling buildings are converted to
condominiums.
Existing Strategy 4.14 (F):
1. Codify and enforce the provisions of the City's Condominium Conversion Ordinance
for property owners to give advance notice of conversion and pay relocation for
tenants at HUD Section 8 income limits. (BOB/BOP)
Potential Strategy):
2. Develop financial tools to assist low-income households become owners ofunits
converted to condominiums. (BHCDjPDC)
Page 89 Comprehensive Plan Housing Policy 1/15/99
Commentary
G. The development of new housing often creates concerns about neighborhood stability and livability.
Siting concerns are not limited to housing for low-income people or people with special needs, although
housing for those populations tend to generate the most concern. Higher density housing and different
models of housing also create concerns. The city has supported good neighbor relationships, sometimes
formalized in good neighbor agreements, as ways to build neighborhood relationships and contribute to
long-term stability.
H. According to the 1990 Census there were over 100,000 noninstitutionalized elderly living in Multnomah
County, of which 36 percent were estimated to need some sort of service. Some elderly indiViduals need
limited assistance to allow them to stay in their own homes. Others need more structured care such as
that provided in adult foster homes. Assisted living facilities and nursing homes are other common
options. With the aging of the people born between 1946 and 1964 (the baby boomers) there will likely
be new options developed that we may not anticipate today.
I. Over 60 percent of the city's housing is single dwelling. Close to 45 percent of the housing stock
consists of three or more bedrooms. At the same time, over 70 percent of the city's households consist
of one or two persons. In comparison in 1970 just over 60 percent of households were 1 and 2 person.
The trend over the past 30 years has been toward smaller households. In Portland, household size has
declined somewhat from 2.7 in 1970 to 2.15 in 1996. There are indications that there is a sloWing in the
decline of household size. Nationally the divorce rate is dropping.
Oregon and Portland are becoming more culturally diverse. There has been significant in-migration to the
Portland area in the last ten years by Russian, Hispanic, and Southeast Asian families who tend to have
larger families and to live with extended family. There is also evidence that more people are sharing
housing for economic reasons. Adult children are staying home with their parents longer and often
elderly parents are moving in with grown children for economic or care-related reasons.
J. Mobile homes and parks are primarily located in East Portland. They are an important source of
affordable housing for households below the median income. In the Outer Southeast Plan a policy was
adopted to preserve existing parks by retaining residential zoning or changing zoning from commercial to
residential to reduce redevelopment pressure. New mobile home parks are allowed in R2 and R3 zones.
It is important to distinguish mobile homes from manufactured housing. Mobile homes are not
constructed in accordance with federal manufactured housing construction and safety standards
established in 1976. Manufactured housing is allowed consistent with development standards in all zones
that allow single-dwelling housing.
K. Quality design has been identified as a key factor that contributes to the acceptance of new infill
residential development in established neighborhoods.
Page 90 Comprehensive Plan Housing Policy 1/15/99
G. Promote good neighbor relationships between housing developers and
their neighbors.
Existing Strategy 4.14 (G): Provide technical assistance to neighborhoods and housing
providers to facilitate good neighbor agreements when requested.
H. Enable people who are elderly to remain in their own neighborhoods as
their needs change by supporting shared housing, accessory dwellings,
smaller homes, adult foster homes, and other assisted residential living
arrangements.
Existing Strategy 4.14 (H):
1. Currently implemented by regulation, Title 33. Planning and Zoning Code. (BOP)
2. Consider needs of elderly in legislative and area plans. tBOP)
3. Review zoning code periodically to ensure that new fonn of elderly housing can be
sited as a permitted use in the appropriate zones. (BOP)
4. Support County's property tax deferral program for low-income elderly homeowners.
I. Allow the city's housing to be adapted to enable households to remain in
the same home or neighborhood through all their different life cycles.
Existing Strategy 4.14 (I): tBOP)
1. Implement through legislative and area plans.
2. Consider when developing design guidelines.
3. Currently implemented by regulation. Title 33, Planning and Zoning Code, through
provisions for home day care, accessory dwelling units, bed and breakfast, and
home occupation.
4. Support "shared housing" programs that match homeowners with tenants. (BHCD)
S. Support programs that provide physical adaptation of homes to improve
accessibility. (BHeDI PDC)
6. Ensure that accessibility needs are considered in the development of design
standards for housing.
J. Preserve existing mobile home parks.
Existing Strategy 4.14 (J):
1. Consider rezoning mobile home parks in commercial zones to residential zones that
allow mobile home parks (currently R2 and R3). (BOP)
2. Provide technical assistance to take advantage of existing state programs. tPDC)
K. Enhance the quality of the design of new infill residential development.
Existing Strategy 4.14 (K): (BOP)
1. Include design requirements in Title 33, Planning and Zoning Code.
2. Distribute voluntary design guidelines.
3. Requiring design review at key locations.
Page 91 Comprehensive Plan Housing Policy 1/15/99
Commentary
Policy 4.15: Housing affordability is influenced in part by regional and local land use policies,
development regulations, permit processes and development fees. Policies, regulations and regulatory
processes should be designed to maintain overall housing affordabilitv, while meeting other goals such as
maintaining desired neighborhood character and preserving the environment. This policy reflects the
need to balance regulations and development fees by factoring housing affordability with other public
objectives.
A. This objective is intended to balance the price of necessary city services with the costs of providing
them. It also recognizes that the city must seek ways to ensure that it is providing services in a cost-
effective manner. The city waives zoning and bUilding fees and Parks and Transportation SDCs in certain
circumstances. A review of that process is underway.
B. This objective supports more certainty in the development process, while also providing a mechanism
for flexibility. The Bureau of Planning has implemented this by establishing a two-track system
development review where appropriate.
c. City and regional policies encourage lower off-street parking requirements for residential development
as a way to use land more efficiently, to encourage alternative transportation modes, and to reduce
development costs. The cost of structured parking has been identified as a significant deterrent to the
development of higher density housing. The Office of Transportation (PDOT) has noted increasing
problems related to on street parking due to increased congestion. Requests for parking adjustments
based on low-income housing tenancy are increasing, but there is no clear policy on which to base
approval. PDOT has recommended that mitigation measures be in place, e.g. agreements between
tenants and management not to own a car while liVing in the unit; monthly or annual transit passes
prOVided to all tenants; shared vehicle arrangements; shared bikes and facilities; pedestrian amenities to
access transit; and location efficient mortgages. (Location-efficient mortgages are a relatively new
concept being developed in Seattle, Chicago, and San Francisco to encourage homeownership among low
and moderate-income households who live in higher density areas with access to transit. The mortgage"
product uses a higher loan to value ratio and long term debt ratio than normal based on the assumption
that transportation expenses are a smaller share of household expenses.)
Page 92 Comprehensive Plan Housing Policy 1/15/99
Policy 4.15: Regulatory Costs and Fees: Consider the impact of regulations
and fees in the balance between housing affordability and other objectives such
as environmental quality, urban design, maintenance of neighborhood
character, and protection of public health, safety, and welfare.
Objectives:
A. Improve housing affordability by imposing the lowest permit fee, or
system development charge necessary to recover cost of city services
delivered in a cost-effective manner.
Existing Strategy 4.15 (A):
1. Waive system development charges (SDCs) for rental housing developed by non-
profit organizations or HAP that is affordable to households at or below 60% MFI, or
owner occupied housing affordable at 1000/0 MFI. (PDOT,Parks)
2. Provide housing pool credit system for for-profit developers who provide open space.
(Parks)
3. Waive development pennit fees for housing developed by non-profit, non-
governmental organization, providing homeownership at 800/0 or less MFI, or renal
housing with at least 51 010 units targeted to 60°/0 or less
MFI.(PDC/BOB/BOPIBHCD)
4. Evaluate current SDC waiver policy for improvements and modification.
(Commissioner Sten's Office)
B. Achieve greater predictability in project decision timelines, outcomes,
and costs.
Existing Strategy 4.15 (B): (BOP/BOB)
1. Identify and implement innovative ways to reduce the per unit cost of new
regulations.
2. Identify and implement procedures that reduce the time and cost of the permitting
process.
3. Adopt clear and objective development standards that may be met as an alternative
to discretionary land use review procedures when policy issues are not involved.
Potential Strategy:
4. Develop pennitting process incentives for housing being developed to serve people at
or below 80 percent ofarea median income (per Urban Growth Management Functional
Plan)
C. Allow reduced parking requirements for housing where the parking
demand is reduced and impacts are minimal.
Existing Strategy 4.15 (C)~
1. Support transportation demand management programs (e.g. car sharing, transit
passes for tenants, shared bikes and facilities, pedestrian amenities to access
transit). (PDOT)
2. Establish maximum parking requirements consistent with Region 2040 mixed-use
design requirements through area or legislative plan. (BOP)
Page 93 Comprehensive Plan Housing Policy 1/15/99
Commentary
LlNKS: Housing is one of the twelve goals that contribute to the city's COmprehensive Plan. The key
related goals include citizen participation, urban development, neighborhoods, transportation, economic
development, energy, public facilities, and urban design. It is difficult to disassociate issues of housing
from other issues such as public safety, transportation, cultural and recreational facilities, quality schools,
and good jobs. In combination, all of these issues affect neighborhood livability and household choice
about where to live. Participants at community workshops expressed the desire that the City's housing
policy address issues broader than housing. In fact the City's Comprehensive Plan does address most of
these through the twelve goal areas that complement each other to support the prevailing City goal of
livability.
The intent of including the "links" is to identify those Comprehensive Plan goals and policies that directly
relate to Policies 4.11 through 4.15.
Relevant Housing Programs: The City funds a number of housing programs that implement the
policies and objectives included in 4.11 through 4.15. Existing programs will be reviewed to ensure
consistency with adopted policy and objectives. Adoption of the Comprehensive Plan does not, however,
result in the direct funding of housing programs which are considered in light of City Council's budget
priorities and funding cycles.
Page 94 Comprehensive Plan Honsing Policy 1/15/99
LINKS: This list includes goals and policies in the city's Comprehensive Plan
that complements proposed policies and objectives 4.11 through 4.15.
Goal 5: Economic Development
Goal 9: Citizen Involvement
-Goal 11: Public Facilities
Policy 11.5: Cost Equitability
Goal 12: Urban Design
Policy 12.6 Preserve Neighborhoods
Policy 12.7 Design Quality
RELATED CITY HOUSING PROGRAMS:
Property Tax Exemption Programs:
• For New Multi-Unit Construction
• For Transit-Supportive Residential and Mixed-Use Development
• For Low-Income Housing Held by Charitable Non-Profit Organizations
• For Residential Rehabilitation and New Construction of Single Unit Housing in Distressed
Areas
Housing Finance Programs:
• Housing Development Finance
• Credit Enhancement
• Bond Allocation
• Equity Gap Investment (nonprofit)
• Predevelopment Loan (nonprofit)
Home-Owner and Home Buyer Programs.,;.
• Neighborhood Housing Preservation Program
• First -Time Home Buyers
Fee Waivers:
• Transportation SDC
• Development Fee
• Building Code Enforcement
Housing Authority of Portland:
• Section 8 Program
• Rent Assistance Program
• Low Rent Public Housing
• Special Needs Housing
• Affordable Housing Development
• Self-Sufficiency Program
• Moving To Work
• Scattered Site Homeownership
Energy Saving Programs
• Block-by-Block Weatherization
• Multi-dwelling Weatherization
• Community Energy Project
Page 95 Comprehensive Plan Housing Policy 1/15/99
Appendix
Page
Ordinance No. 172954 99
Resolution No. 35748 101
Housing Data Book 105
Glossary of Terms 127
Page 97 Comprehensive Plan Housing Policy 1/15/99
Ordinance No. 172954
Amend Goal 4, Housing, of the Comprehensive Plan, by replacing Policies 4.1 through 4.9 and
with Policies 4.1 through 4.15. (Ordinance; amend 150580) 163608) 163530)
The City of Portland Ordains:
Section 1. The Council finds:
1. In 1978 the City adopted a Housing Policy (Ordinance 145472) to direct all housing-
related actions in the City. The housing policy contained six elements: Fair Housing,
New Housing Production, Housing Choice and Neighborhood Stability, Lower Income
Assisted Housing) Existing Housing Maintenance, and Existing Housing Major
Rehabilitation.
2. In 1980 the City incorporated the Housing Policy as Goal 4 of the City's Comprehensive
Plan (Ordinance 150580).
3. In 1990 the City amended the Comprehensive Plan to add Policies 4.8, Maintain Housing
Potential (Ordinance 163608), and 4.9 Vacant and Abandoned Housing and Community
Revitalization (Ordinance 163608).
4. In October 1997 the City Council authorized the Citywide Housing Policy Update project
to review and update Goal 4 to ensure that it reflects the new policy direction that has
emerged from adopted commWlity and neighborhood plans, the Region 2040 Growth
concept and Urban Growth Management Functional Plan, the State Transportation
Planning Rule, and from plans such as the Comprehensive Housing Affordability
Strategy, and its successor, the Consolidated Plan.
5. In December 1997 Commissioner Gretchen Miller Kafoury established a Housing Policy
Steering Committee to guide the process for the review and update of the Housing Policy.
6. On November 10, 1998, the Planning Commission recommended to City Council
adoption of the Comprehensive Plan Housing Policy by replacing the current Goal 4 with
the new Goal 4 attached as Exhibit A of this Ordinance.
7. The amendments are the result of a collaborative process involving the Housing
Authority Board) the Portland Development Commission, and the Housing and
CommWlity Development Commission, which provided advice to the Planning
Commission on the recommended policy language contained in the recommended Goal
4.
Page 99 Comprehensive Plan Housing Policy 1/15/99
NOW, THEREFORE, the Council directs:
a. Amend Ordinance No. 150580, which adopted Portland's comprehensive Plan, by
deleting the current housing goal, policy and objectives (Goal 4), and replacing them
with a new Goal 4 Housing, with its associated policies and objectives as listed in
Exhibit" A" .
b. Incorporate the findings and commentary included in Exhibit "B", as further fmdings
supporting the enactment of this ordinance and the replacement of the Comprehensive
Plan's Housing Goal with a new goal, policies and objectives.
Passed by the Council,
December 16,1998
Commissioner Gretchen Miller Kafoury
Cathey Briggs
December 2, 1998
BARBARA CLARK
Auditor of the City of Portland
By
Deputy
Page 100 Comprehensive Plan Housing Policy 1/15/99
•RESOLUTION No. 35748
Accept Section III (Policies, Objectives and Strategies) of the Comprehensive Plan Housing
Policy Report to City Council from the Planning Commission and accept the Preliminary
Recommendations from the Housing Policy Steering Committee on Housing System
Improvements. (Resolution).
WHEREAS, the Housing Policy Steering Committee, including citizen representatives from the
Planning Commission, Portland Development Commission, Housing Authority Board,
and the Housing and Community Development Commission, ted an interdepartmental
effort by the Bureaus of Planning and Housing and Community Development, the
Housing Authority of Portland, and the Portland Development Commission to review and
update the City's Comprehensive Plan Housing policy;
WHEREAS, the Housing Policy Problem Statement identified the need for a document that
summarizes the city's housing policy and links it to city housing strategies;
WHEREAS, additional public comment generated by the Housing Policy Update project
identified the need for the city to increase the efficiency, effectiveness, and accountability
of the city's housing delivery system;
WHEREAS, the housing policy itself is adopted by ordinance as a part of the Comprehensive
Plan, the identified strategies and programs referenced in Section III of the
Comprehensive Plan Housing Policy Report and Recommendation to City Council from
Planning Commission are not part of the Comprehensive Plan;
WHEREAS, the housing policy is intended to provide guid~ce over the long term, the Draft
Problem Statement identified the need to monitor, evaluate, and periodically update city
strategies in response to changing market conditions;
WHEREAS, the identification of strategies and programs, either existing or potential, does not
obligate the City to commit funds for their implementation;
WHEREAS, the Planning Commission has provided to City Council advice on how conflicts
within the policies and objectives should be resolved (Exhibit D);
WHEREAS, the Planning Commission advises that in order to implement the housing policy the
City needs to maintain an array of tools beyond the traditional tools of zoning and the
Comprehensive Plan Map;
WHEREAS, the adopted Housing Policy provides a long-tenn policy framework for the entire
city and for all income levels, the Planning Commission advises that citywide and area
specific plans provide the fine-tuning needed to prioritize and apply broad policies and
objectives to specific areas and to specific income groups;
Page 101 Comprehensive Plan Housing Policy 1/15/99
WHEREAS, the Planning Commission is a policy body, and as such has a limited role in
implementation, it expects implementing agencies to consider the prioritization and
application of housing policies and objectives when they develop and implement
strategies;
WHEREAS, the Housing and Community Development Commission voted to support the
recommended housing policy, and expressed concern about the prioritization ofpolicies
to guide decision-making for implementation, and expressed interest in participating in
further steps with other community partners to develop and evaluate strategies for
implementation;
WHEREAS, the Housing Authority Board voted to support the recommended Housing Policy
and, adopted a resolution urging City Council to provide a schedule for consideration of
strategies to carryout the Policy, assign administrative responsibility for policy
implementation, coordination, and analysis; and develop periodic updates as the market
and other factors change;
WHEREAS, the Portland Development Commission adopted a resolution to support the
proposed housing policy and as an implementer of city housing policy has participated in
the development of existing and potential strategies;
WHEREAS, the City Council will adopt the Recommended Housing Policy as part of the City of
Portland Comprehensive Plan;
WHEREAS, the Housing Policy Steering Committee developed preliminary recommendations
intended to improve housing policy implementation and resource development, through
increased housing system coordination, accountability, and citizen involvement;
NOW, THEREFORE, BE IT RESOLVED that City Council accepts Section III of the
Comprehensive Plan Housing Policy Report to City Council as representative of the linkage of
housing strategies to housing policies, attached as Exhibit "C" to Ordinance 172954;
BE IT FURTHER RESOLVED that City Council accepts the Preliminary Recommendations·
from the Housing Policy Steering Committee on Housing System Improvements,
attached as Exhibit" E" to this resolution.
BE IT FURTHER RESOLVED that the City Council authorizes and directs the Housing Policy
Steering Committee to finalize its recommendations to City Council to increase the
effectiveness, efficiency) and accountability of the City in implementing, monitoring, and
evaluating its housing policy.
BE IT FURTHER RESOLVED that City Council authorizes the Housing Policy Steering
Committee to continue its interdepartmental and inter-agency effort to improve housing
coordination as follows:
Page 102 Comprehensive Plan Housing Policy 1/15/99
a. Expand its membership to include representatives from the Bureau of Buildings,
and the Office of Finance and Administration;
b. By March 1, 1999, develop a final recommendation on housing system
improvements to City Council that includes a detailed implementation plan and
budget;
c. Develop a Housing Action Plan that recommends to City Council 2~year
priorities, key strategies, and goals tied to the 1999/2000 budget;
BE IT FURTHER RESOLVED that the City Council supports the Mayor's designation of a City
Commissioner with functional responsibility for Housing to replace Commissioner Kafoury as
Chair of the Housing Policy Steering Committee.
Adopted by the Council,
December 10, 1998
Commissioner Gretchen Miller
Kafoury
Cathey Briggs; 12/2/98
Page 103
BARBARA CLARK
Auditor of the City of Portland
By Deputy
Comprehensive Plan Housing Policy 1/15/99
COMPREHENSIVE PLAN
HOUSING POLICY UPDATE:
HOUSEHOLD, HOUSING, AND
AFFORDABILITY DATA
REVISED NOVEMBER, 1998
Compiled by Mike Saba, Portland Planning Bureau
Assisted by Peter Mye, Student Intern, Portland State University
Send questions or comments to:
Portland Planning Bureau
1120 SW 5th Avenue, Room 1002
Portland, OR 97204
823-7838
or
msaba@ci.portland.or.us
Page 105 Comprehensive Plan Housing Policy 1/15/99
BACKGROUND DATA FOR THE COMPREHENSIVE PLAN
HOUSING POLICY UPDATE 1998
The following tables were compiled as an aid for discussion during the four commtm.ity
workshops on the Housing Policy Update project. Workshop participants were invited to review
this information before, during, or after the workshops and suggest other useful data that would
inform community dialogue as the Housing Policy was revised to reflect current and projected
conditions.
This document is divided into three Sections:
Section I, Characterisdcs of City's Households. These tables provide a brief demographic
description of City households (the demand) through the last few decades. Characteristics
selected are those which may influence the housing market in the coming years.
Section II, Characteristics of the City's Housing Stock. These tables describe some aspects of
the City's housing stock (the supply) including size, age, and price.
Section III, Indicators of Housing Affordability. These tables relate the demand to the supply
in order to offer some idea of the current affordability of the City's housing stock as well as some
national comparisons.
SECTION I: CHARACTERISTICS OF THE CITY'S HOUSEHOLDS
Table 1
City Share of Metropolitan Population
1940 305,394
1950 373,628
1960 372,675
1970 382,619
1980 365,051
1990 437,319
1996 445,319
501,275
704,829
821,897
1,007,130
1,242,594
1,412,344
N.A.
610/0
530/0
45%
38%
29%
310/0
N.A.
*Multnomah, Washington, Clackamas, and Clark (WA) Counties
Source: U.S. Census and American Community Survey, 1996 which carries the following disclaimer:
lIData are based on a sample and are subject to sampling variability."
Page 107 Comprehensive Plan Housing Policy 1/15/99
Table 2
Avera e Household Size in Portland
1960 2.70
1970 2.56
1980 2.25
1990 2.35
1996* 2.15
Source: 1990 Census Data Information obtained from the January
1993 Office of Neighborhood Associations & Center for Urban Studies
(Portland State University) publication entitled Portland Neighborhood
Information Profiles.
·Calculated from the American Community Survey which carries
the following disclaimer: "Data are based on a sample and are subject
to sampling variability. It
Table 3
Household Size Distribution by Percent in Each Size Group
1 42,815 56,298 65,363 71,866
(29.6%) (35.60/0) (34.9) (36.7%)
2 47,485 53,052 61 ,833 66,470
(32.8%) (33.50/0) (330/0) (33.7%)
3 20,430 21,695 26,502 26,402
(14.1 01'0) (13.70/0) (14.2%) (13.4%)
4 15,632 15,371 19,987 19,502
(10.80/0) (9.7%) (10.70/0) (9.90/0)
5 9,422 6,838 8,199 7,845
(6.50/0) (4.30/0) (4.40/0) (4%)
6+ 9,127 4,977 3,140 5,002
(6.20/0) (3.2°t'o) (1.7%) (2.5%)
Source: U.s. Census
*The 1996 data are from the American Community Survey which carries the following disclaimer: .. Data
are based on a sample and are subject to sampling variability."
Page 108 Comprehensive Plan Housing Policy 1/15/99
31,564
(16%)
33,526
(17.90/0)
29,093
(18.30/0)
Married couple
with children under
18
Table 4
Selected Household Type Distribution By Percent
.J ". ,.~
Female head with
children under 18**
Non-family
household
7,118
(4.90/0)
N/A 69,518
(43.8°1<»
11,592
(6.20/0)
82,270
(43.90/0)
14,558
(7.4%)
93,551
(47.50/0)
Source: U.S. Census
*The 1996 data are from the American Community Survey which carries the following disclaimer: Ij Data
are based on a sample and are sUbject to sampling variability."
**Persons in female headed households are the most likely demographic group to be chronically poor
according to the summary findings contained in Poverty In Multnomah County: A Descriptive Report (July,
1996) noted at the end of these tables.
Table 5
Age Distribution of the Population by Percent, 1960 to 1990
Less Than 5
years
5-19 years
20-34 Years
35-64 years
65 years and
Over
8.70/0
23.6%
15.50/0
38.00/0
14.20/0
7.0%
18.6%
31.4%
28.2%
15.3%
15.2%
28.70/0
34.7%
6.40/0
17.70/0
24.00/0
38.30/0
13.6%
Source: U.S. Census
"The 1996 data are from the American Community Survey which carries the following disclaimer: "Data
are based on a sample and are subject to sampling variability."
Page 109 Comprehensive Plan Housing Policy 1/15/99
Table 6
Ethnic Composition by Percent of City Population
White
Black
Native American,
Eskimo, and Aleut
Asian and Pacific
Islander
Other Race
Hispanic
(Any Race)
92.20/0
5.60/0
N.A.**
N.A.**
2.2%
N.A.**
85.3%
7.5%
1.40/0
2.10/0
85.40/0
1.30/0
1.0%)
84.50/0
6.8%
1.2%
1.4%
Source: U.S. Census
"'Except as noted, the 1996 data are from the American Community Survey which carries
the folloWing disclaimer: UData are based on a sample and are subject to sampling variability."
·*Different ethnic categories were used during this Census period.
Table 7
Median Household Income (Not Adjusted for Inflation)
PortlandNancouver $18,739 $31,259 66.8%)
PMSA
City of Portland 14,526 25,592 76.20/0
Multnomah County 161078 261298 63.60/0
Washin ton County 21,572 35 1554 65.8Dk}
Clackamas County 21,177 35,419 67.2%
Clark County 18,959 31,800 67.7%
Yamhill County 16,874 28,303 67.7%
Columbia County 18,562 29,507 59.00/0
Source: U.S. Department of Commerce. Bureau of the Census; Metropolitan Service District
Page 110 Comprehensive Plan Housing Policy 1/15/99
Table 8
1996 Household Income Distribution
" .
.-'
Less than $5,000 8,564 4.350/0 4.35%
$5,000 to $9,999 18,085 9.18°k 13.52%
$10,000 to $12,499 9,491 4.820/0 18.34%
$12,500 to $14,999 7,689 3.900/0 22.24°k
$15000 to 17499 8,761 4.450/0 26.68°k
$17,500 to $19,999 7,926 4.02% 30.71 ok
$20,000 to $22,499 9,768 4.96% 35.66 0/0
$22,500 to $24,999 8,485 4.31 0/0 39.97%
$25,000 to $27,499 7,821 3.97% 43.93%
$27,500 to $29,999 6,734 3.42% 47.35%
*$30,000 to $32,499 8,758 4.44% 51.80ok
$32,500 to $34,999 6,286 3.19% 54.98%
$35,000 to $37,499 6,810 3.46% 58.44%
$37,500 to $39,999 5,861 2.970/0 61.410/0
$40,000 to $42,499 6,519 3.31% 64.720/0
$42,500 to $44,999 5,384 2.73%) 67.450/0
$45,000 to $47,499 5,556 2.82%) 70.270/0
$47,500 to $49,999 4,388 2.23% 72.50%
$50,000 to $54,999 9,349 4.740/0 77.24%
$55,000 to $59,999 6,546 3.32% 80.560/0
60,000 to $74,999 14,701 7.46% 88.02%
$75,000 to $99,999 12,100 6.140/0 94.16%
$100,000 to $124,999 5,114 2.590/0 96.76%
$125,000 to $149,999 2,328 1.18% 97.94%
$150,000 or more 4,063 2.060/0 100.000/0
Source: 1996 American Community Survey
-Median Income= $31,396
Page III Comprehensive Plan Housing Policy 1/15/99
Table 9
Owner and Renter Occupancy, 1960 to 1990
Owner
Occupants
Renters
Total Occupied
Units
Vacant Units
(Available and
Unavailable)
83,121
(62%)
51,630
(38%)
134,571
8,184
81,781
(560/0)
63,130
(44%)
144,911
6,948
84,358
(53%»
73,873
(47%»
158,231
8,949
106,190
(53%)
93,014
(47%»
199,204
11,616
107,584
(55%)
89,503
(45%)
197,097
8,998
Total Units 142,935 151,869 167,180 210,820 206,095
Source: 1990 Census Data Information obtained from the January 1993 Office of Neighborhood
Associations (City of Portland) & Center for Urban Studies (Portland State University) publication entitled
Portland Neighborhood Information Profiles.
*Except as noted, the 1996 data are from the American Community Survey which carries the following
disclaimer: "Data are based on a sample and are subject to sampling variability."
Table 10
Homeownership Rate:
Portland And Selected Cities
Phoenix
Minneapolis-St.
Paul
60.8 (1)
54.8 (2)
52.1 (2)
64.5 (1)
46.2 (2)
28.6 (9)
Portland 53.7 (3) 50.5 (3) 39.5 (4)
Sacramento 53.3 (4) 44.6 (6) 46.4 (1)
Salt Lake City 53.2 (5) 48.6 (4) 35.9 (8)
Las Vegas 52.3 (6) 42.6 (7) 37.0 (6)
San Diego 49.4 (7) 35.7 (8) 38.5 (5)
Seattle 49.2 (8) 46.7 (5) 39.8 (3)
San Francisco 35.6 (9) 34.2 (9) 36.8 (7)
1990 Census, from Prototype Analysis ofHousing Availability, Affordability, Adequacy, andAccessibility,
Urban Land Institute, July 1994
Page 112 Comprehensive Plan Housing Policy 1/15/99
Table 11
October Enrollment History for
Portland School District No.1
==~
1960 - 61**
1970 - 71**
79,097
74,949
1980 - 81**
1990 - 91**
1997**
56,567***
58,205***
60,079***
·Includes Kindergarten through Grade 12.
··These numbers do not represent the portion of Portland residents who attend schools within the David
Douglas and Centennial School Districts. The David Douglas School District falls within the City
boundaries. The Centennial School District serves Gresham and unincorporated parts of the county.
Nevertheless, a large percentage of the school population comes from Portland. Since April 1, 1996 the
Centennial School District has broken down the enrollment according to the residency status of the
student. This breakdown is not updated yearly. Apparently the fluctuation is not strong enough to warrant
yearly updates.
***Includes students from the Parkrose School District after East County annexations.
SECTION II: CHARACTERISTICS OF THE CITY'S HOUSING STOCK
Table 12
Distribution Of Housing Stock By Number Of Units In Structure
'"
1 101,506 106,844 127,633 133,660
(66.9%) (63.70/0) (64.3%) (64.9%)
2 7,742 7,374 9,001 8,575
(5.1 %) (4.4%) (4.50/0) (4.20/0)
3-4 6,552 8,157 9,510 11,120
(4.3°J'o) (4.90/0) (4.8%) (5.4%)
5-49 25,901 31,596 37,482 35,542
(17.1 %) (18.8%) (18.90/0) (17.30/0)
50+ 10,123 13,444 11,665 15,299
(6.7%) (8%) (5.90/0) (7.4%)
Mobile Home & N.A. 461 1,547 1,557
Trailer (.30/0) (.8°J'o) (.8°J'o)
Boat, RV, Van, N.A. N.A. 1,481 332
etc. (.8%) (.2%)
Total 151,839 167,874.999 198,318 206,083.998
Source: U.S. Census
* the single unit includes detached and attached single family structures as well as mobile or trailer.
** the single unit includes only detached and attached single family structures.
Page 113 Comprehensive Plan Housing Policy 1/15/99
Table 13
Distribution Of Housing Stock By Number Of Bedrooms
In Structure
No Bedrooms
1
2
3
4
5+
Total
11,443
(6.8°t'o)
33,970
(20.2%)
57,813
(34.4%)
41,885
(250/0)
17,925
(10.70/0)
4,840
(2.90/0)
169,855
10,938
(5.5%)
35,161
(17.7%)
65,306
(33%)
58,032
(29.30/0)
23,070
(11.6°1'0)
5,812
(2.9%)
198,319
11,167
(5.4°t'o)
36,745
(17.8%)
67,631
(32.80/0)
59,831
(29%)
24,364
(11.8%)
6,347
(3.10/0)
Source: U.S. Census
*Except as noted, the 1996 data are from the American Community Survey which
carries the following disclaimer: "Data are based on a sample and are subject to
sampling variability."
Table 14
Age Of Housing Stock
1990 or later 6,275 (3.00/0)
1980-1989 12,531 (6.10/0)
1970-1979 23,474 (11.4%)
1960-1969 23,232 (11.30/0)
1950-1959 32,078 (15.6°1'0)
1940-1949 28,570 (13.8%)
1939 or earlier 79,925 (38.8°t'o)
*1996 data are from the American Community Survey which carries the following
disclaimer: II Data are based on a sample and are subject to sampling variability."
Page 114 Comprehensive Plan Housing Policy 1/15/99
Table 15
Average House Size Portland Tri-County Area
1950 1,492 8.3%)
1955 1,487 -0.30/0
1960 1,614 8.50/0
1965 1,747 8.20/0
1970 1,891 8.20/0
1975 1,841 -2.60/0
1980 1,780 -3.30/0
1985 1,937 8.8%
1990 2,237 15.5%
1995 2,263 1.2%
1945 - 1995 64.2%
Source: Affordable Housing Cost Study, Housing Development Center, September, 1997 (Data from
Metro Data Resource Center)
Table 16
Acreage in City by General Comprehensive Plan Designation
Institutional Campus
Farm and Forest
Single Dwelling (Attached or detached allowed on
lots ranging from 2 acres to 2000 sq. ft.)
Multi-Dwelling (Ranging from 14.5 to 125 units per
acre)
Commercial
Industrial and Employment
Open Space
216 (0.20/0)
2,649 (2.9°,fo)
34,941 (38.6°,10)
8,963 (9.9%)
6,073 (6.7%)
21,908 (24.20/0)
15,826 (17.5%)
Source: Planning Bureau GIS
·Most of these categories allow mixed-use development with the exception of the Farm and Forest and
IndustriaJ Sanctuary Designations.
The City is in the process of calculating the capacity for new residential units under existing
Comprehensive Plan Map designations in order to comply with Metro's recently adopted
Functional Plan. In the draft Urhan Growth Management Functional Plan Compliance
Evaluation (August 1998), the City estimates that it could accommodate approximately 68,200
new units through new construction, redevelopment, and accessory units on vacant and buildable
land.
Page 115 Comprehensive Plan Housing Policy 1/15/99
Table 17
Building Permit Activity in Portland
(Residential New Construction)
1990 729 594 1,323
1991 673 299 972
1992 820 333 1,153
1993 829 355 1,184
1994 979 219 1,198
1995* 1,242 894 2,136
1996* 1,206 1,601 2,807
1997* 11238 2,035 3,273
Source: Real Estate Report for Metropolitan Portland, Oregon
1TrFrom Portland Bureau of Buildings
Table 18
Condominium Conversion and Construction in Multnomah County*
1971-1978** 380 1,051 1,431
1979 552 559 1,111
1980 381 523 904
1981 288 271 559
1982 54 169 223
1983 16 144 160
1984 0 75 75
1985 26 450 476
1986 0 58 58
1987 0 94 94
1988 ° 7 7
1989 0 6 6
1990 159 90 249
1991 11 9 20
1992 8 26 34
1993 75 145 220
1994 153 177 330
1995 210 14 224
1996 113 148 261
*As registered with the State Real Estate Agency (not necessarily completed or sold)
**Within City of Portland
Note: According to the 1996 American Community Survey, approximately 3,815 or 3.5 percent
of occupied housing units in Portland are condominiums.
Page 116 Comprehensive Plan Housing Policy 1/15/99
Table 19
Median Price of New Single
Family Homes In the Portland Metro Area
1970 $23,000
1975 $44,000
1980 $62,900
1985 $61,500
1990 $79,700
1995 $128,000
1997 $150,000*
Source: Real Estate Report, except where noted
"Source: Market Action, Realtors Multiple Listing Service
Table 20
RMLS Sales Trends
Detached Housing And Townhouse/Condominium Sales
Portland Metropolitan Area Residential Subregions
(2nd Quarter 1996 And 2nd Quarter 1997)
Residentjal Detached-Housing Sales
Close-in Eastside $119,970 $134,259 11.9°k
North Portland $94,287 $104,623 11.00/0
Northeast $129,399 $145,445 12.40/0
Portland
Southeast $119,790 $135,042 12.7°k
Portland
West Portland $213,900 $244,100 14.1%
(All Single Family)
Residential Attached-Housing Sales
Close-in Eastside
North Portland
Northeast
Portland
Southeast
Portland
$108,291
$87,888
$121,448
$102,761
$116,798
$90,800
$125,500
$118,200
7.90/0
3.30/0
3.30/0
15.0%
Source: Adapted from RMLS and Hobson Johnson & Associates
Page 117 Comprehensive Plan Housing Policy 1/15/99
Table 21
Metro Area House Prices: 1991-1996 (1989 Dollars)
Total U.S
Portland
Denver
Phoenix
Seattle
Houston
West Region
San Francisco
San Diego
Sacramento
Los Angeles
1989
1996
1983
1979
1990
1979
1990
1990
1990
1991
1990
92,509
107,342
109,492
100,974
124,759
109,456
132,444
246,008
173,809
131,458
187,850
88,623
79,704
81,463
77,405
123,276
66,760
129,573
231,501
166,495
131,458
177,951
88,395
83,746
84,173
77,405
123,041
-67,265
127,180
223,102
160,210
124,817
170,265
87,785
87,669
88,407
76,896
121,792
66,760
123,640
212,107
150,611
117,001
156,289
88,166
94,504
96,790
78,422
122,410
65,307
121,534
202,334
141,584
108,595
140,101
89,004
100,982
101,363
81,559
122,417
63,791
121,534
197,753
137,127
103,804
132,182
90,376
107,342
104,327
84,187
123,119
63,665
122,013
193,935
133,128
99,938
127,407
2.0
34.7
28.1
8.8
-0.1
-4.6
-5.8
-16.2
-20.0
-24.0
-28.4
Source: House Prices are the 1990 median sales price of existing single-family homes determined by
the National Association of Realtors, indexed by the Conventional Mortgage Home Price Index and the
Weighted Repeat Sales Index by Freddie Mac, and deflated by the Bureau of Labor Statistics Consumer
Price Index (CPI-UX) for All Items.
Page 118 Comprehensive Plan Housing Policy 1/15/99
Table 22
House Sales Price Distribution of New Single Family Construction:
1995-1996 Portland Metro Area
$74,999
$89,999
$109,999
$124,999
$174,999
$199,999
$224,999
$249,999
$274,999
$299,999
$349,999
$350,000 or more
2
31
105
273
958
811
626
397
240
147
127
95
130
0.1%
0.8%
2.7%
6.90/0
24.3%
10.10/0
6.10/0
3.70/0
3.2%
2.4%
Median Sales Price $168,556*
Source: Metro Housing Needs Analysis
*The median sales price of $168,556 is for newly constructed single-family houses only and not existing
houses. The median sales price of existing houses and new houses is $144,000.
Page 119 Comprehensive Plan Housing Policy 1/15/99
SECTION III: INDICATORS OF HOUSING AFFORDABILITY
Table 23
What Is Affordable To Whom?
$1 0,41 ONear $6.26/Hour $260/Month $14,880/ $7.15/Hour $372/Month
Year
CtwdcaJe \NOI'ker\Nith t\M) years experience \Nho
works 32 hours per'Neek.
Head preschool teacherwith five years experience
\Mth three dlik:trenwho need dliki care.
$17,350Near $8.34/Hour $434/Month $24,800/ $11.92/Hour $620/Month
Year
Landscape maintenance \NOI'ker \Nith three years
experienre.
$27,760Near $13.35/Hour $694/Month
En1ry level human resource administrative
~ntforsoftware high tech COf1l&1Ywith
three dlildren.
$13.17/Hour
$39.680/ and $992/Month
Year $16.00/Hour
Full-time accounting assistant for local coIJege Twowage earners: FuI-tine accountant in pulp
and 1berCOI1l>8ny and haIf--tirre English As
Seoond Larguage instrudorat bcal COfllllunity
school with t\No dlildren.
~~.
$34.700IYear $16.68/Hour $86S/Month
Full-time second yearoomputersoftware engineerat
high tech software COI1l>8ny
$13.00/Hour
$49,600/ and $1,24D/Month
Year $1 D.B5/Hour
Two wage eamers: Fu&-time machinist for awatk-
in~manufacturing <:XJn1PCIny and full-tine
manager ofadry cleanerbusiress with t\M)
chi~ren.
Source: Terry Duffy, ROSE CDC Notes:
1. Affordability defined as a maximum expenditure of 30% gross income for housing costs (including utilities).
2. Fair market rent in the Portland Metropolitan area for a one bedroom apartment is $504; for a two bedroom
I apartment is $621; for a three bedroom apartment IS $864; and a four bedroom apartment is $938 as of October
1997.
3. The median area family income as annually determined by HUD for a family of four persons is $49,600 as of
January 1998.
Page 120 Comprehensive Plan Housing Policy 1/15/99
Table 24
Relative Housing Affordability Key West Coast Markets
First Quarter 1997
San Jose
San Francisco
Orange County
Oakland/East
Bay
Seattle
San Diego
Sacramento
Los Angeles
Salt Lake City
Portland
Las Vegas
Riverside
United States
Average
$70,200
$64,400
$60,100
$55,100
$48,600
$48,400
$47,800
$47,700
$46,300
$46,100
$44,800
$43,500
$260,000
$288,000
$194,000
$199,000
$159,000
$165,000
$134,000
$158,000
$147,000
$147,000
$121,000
$110,000
$120,000
39.4%
23.0%
60.60/0
46.90/0
65.3%
50.20/0
49.10/0
30.80/0
72.10/0
73.2%
66.5%
9.70/0
4.70/0
3.20/0
3.90/0
1.20/0
-0.7%
0.0%
7.3%
1/ The Affordability Share is the percentage of homes sold that were affordable to households earning the
median income at the prevailing mortgage interest rate.
Source: National Association of Home Builders and Hobson Johnson & Associates
Page 121 Comprehensive Plan Housing Policy 1/15/99
Table 25
Relative Rates Of Change: Wages, Housing Prices, And Rents
1984-1994
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
$334.60
343.28 2.6%
352.19 2.6%
363.22 3.1%
377.62 4.0%
390.20 3.3%
410.02 5.0%
429.86 4.8%
452.25 5.2%
463.32 2.4%
477.00 2.9%
Rate of Change from
1984 to 1994
42.5%
$71,300 $311
70,600 -1.0% 331 6.40/0
72,300 2.4% 349 5.40/0
73,300 1.4% 395 13.2%)
76,200 4.0%) 425 7.6%
85,000 11.6% 456 7.3%
96,000 12.9%) 489 7.20/0
111,300* 15.9D/o 520 6.30/0
116,300 4.5% 523 0.60/0
123,400 6.1 DJ'o 539 3.0%
134,200 8.8% 563 4.40/0
145,700 10.6% 591 4.7%)
158,900 9.1% 617 4.4%
Rate of Change from Rate of Change from
1984 to 1994 1984 to 1994
88.2% 81.00/0
*8 months of data (conversion to RMLS)
Source: Oregon Employment Division, Real Estate Report, McGregor Millette and Associates, Inc.
1 The average annual nominal wage rate for all industries in Oregon (including supervisory wages, tips,
bonuses, profit-sharing, commissions, and other lump sum payments). The Metro area average wage is
typically higher than the overall state average. However, for this time period, the difference is assumed
to be constant so that the rate of change represents the metro rate of change.
2 Average annual sales price and market rent for housing in Multnomah, Clackamas, and Washington
Counties.
Page 122 Comprehensive Plan Housing Policy 1/15/99
Table 26
Rental Units Affordable to Low-Income Households
Low-Income Renters in Portland
0- 30% MFI 10,418 19,580
o- 50% MFI 46,495 35,208
o- 80% MFI 86,499 55,362
Source: 1993 CHAS Community Profile/Needs Assessment (1990 Census)
*Indicates "affordability gap" for this population.
Table 27
Owner Units Affordable to Low-Income Households
Low-Income Owners in Portland
-9,162*
11,287
31 ,137
0- 30% MFI 4,296 7,293
0- 500/0 MFI 28,576 16,090
0- 80% MFI 67,439 33,277
Source: 1993 CHAS Community Profile/Needs Assessment (1990 Census)
*Indicates "affordability gap" for this population.
Table 28
Cost Burden for Low-Income Renter and Owner Households
-2,997*
12,486
34,162
Number at 0 to 30% 19,580 7,293
Median Family Income
0/0 Cost Burden> 300/0 770/0 80%
% Cost Burden> 500/0 600/0 49%
Number at 31 to 50%> 15,628 8,797
Median Family Income
%> Cost Burden> 300/0 760/0 45%
% Cost Burden> 500/0 19% 140/0
Number at 51 to 80%) 20,154 17,187
Median Family Income
% Cost Burden> 300/0 290/0 290/0
% Cost Burden> 500/0 20/0 40/0
Source: 1993 CHAS based on 1990 Census
Page 123 Comprehensive Plan Housing Policy 1/15/99
Table 29
Estimates of Subsidized Dwelling Units by Region
~~~t2~~~]~1m~~I~~~t~[::~~~f:~'j:l~1~rj~~~1~I:r~:{~:1
Portland 22,000* 9.89°1<> 49,200 13.9% 12.30/0
(1990)
Kansas City 25,400 12.60/0 18,400 4.6% 7.2%
(1990)
Seattlel 33,900 8.9% 24,400 3.7% 5.7%
Tacoma (1991)
Phoenix (1989) 23,500 8.40/0 15,400 3.0% 4.9%
San Franciscol 70,300 10.70/0 19,500 2.5% 6.20/0
Oakland
(1993)
Houston 61,500 11.3% 35,600 4.90A) 7.701<>
(1991)
Atlanta (1991) 46,100 11.90/0 27,600 4.0%) 6.8°1<>
L.A. I Long 160,100 11.00/0 72,700 5.00/0 7.80/0
Beach (1989)
San Jose 17,400 8.00/0 10.100 3.2°1<> 5.1%
(1993)
San Diego 33,100 8.3% 21,100 4.4°1<> 6.2%
(1991)
Salt Lake City 13,100 11.0% 18,500 7.40/0 8.60/0
(1992)
*Of these, approximately 2400 units are subsidized by Federal programs whose affordability requirements
may soon expire.
Source: Metro Housing Needs Analysis, Final Draft, December 18, 1997, U.S. Bureau of Census &HUD.
American Housing Survey. (various regions & years)
Metro's Housing Needs Analysis notes that" additional data by the [American Housing] Survey
notes that Portland subsidizes the largest share of total housing stock when compared to other
cities in the west and selected cities elsewhere in the United States. In Portland, 13.9% of owner
mortgages are subsidized and 9.8% of rental stock are subsidized. The high percentage of
sub~idizedmortgages is due in part to the Veteran Home Loan programs--not a means-tested
subsidy. II
For the above and the following tables, the definition of "subsidized" or "assistedll housing is
rental housing that has restrictions imposed due to publicly funded housing assistance from local,
state, or federal programs.
Page 124 Comprehensive Plan Housing Policy 1/15/99
Table 30
Publicly Assisted Affordable Rental Housing by Jurisdiction
Portland Metropolitan Area, January 1,1998
Clackamas County
Clackamas
Gladstone
Lake Oswego
Milwaukie
Oregon City
Wilsonville
Unincorporated
Clackamas County
Washin ton County
Beaverton
Cornelius
Durham
Forest Grove
Hillsboro
Sherwood
Tigard
Tualatin
Unincorporated
Washington County
Multnomah County
Fairview
Gresham
Troutdale
Portland
Unincorporated
Multnomah County
1,932
294
11
60
384
599
336
248
4,450
624
35
210
308
598
134
873
100
1.568
14,962
525
1,194
205
12.951
87
1.4%
0.1%
0.3%)
1.8%>
2.80/0
1.60/0
1.20/0
20.80/0
2.9%
1.0%
1.4%
2.8%
0.6%
4.10/0
0.50/0
7.3%
70.10/0
2.50/0
5.60/0
1.0%
0.40/0
Three County Total 21,344
Source: Marge lIle, Housing Authority of Portland
100.0°j(,
Page 125 Comprehensive Plan Housing Policy 1/15/99
In addition to the above tables, the following findings are noted from Poverty in Multnomah
County: A Descriptive Report, July 8, 1996, (Department of Community and Family Services):
• County-wide, the highest number of people in poverty are living in the Outer East, followed
by Southeast, Northeast, and North.
• People in female-headed families are over-represented among the poor and homeless
populations of the county.
• African-Americans, Hispanics, and Native Americans are over-represented among the poor
and homeless in the county.
• Fourteen percent of all children in the county are poor, and children constitute at least 29% of
those who are homeless in the county.
• Real wages (adjusted for inflation) have stagnated, and neither minimum wage jobs alone nor
income assistance benefits pull people out of poverty.
• Unemployment is higher for people of color than for the county as a whole, as are dropout
rates.
• Low-income people are faced not only with rents that have outpaced inflation, but with low
vacancy rates as well.
• About half of those who request emergency food assistance in the county are members of
families, 40% are people with disabilities, and one-third are working poor.
Page 126 Comprehensive Plan Housing Policy 1/15/99
Glossary of Housing Terms:
(For updates to definitions specific to zoning and land use refer to Title 33,
Planning and Zoning Code)
This glossary provides definitions for specialized terms used to discuss housing
policy and programs.
Assisted Rental Housing: Rental housing is defined as "assisted" if it has
received some type of subsidy from a public source, i.e. the federal, state, local
government. Subsidies include grants, tax credits, lower rates of interest,
bonds, tax abatement, etc. This inventory includes only housing in which
subsidies are tied to the project. It does not include housing in which the
tenant may receive a subsidy, such as Section 8 rental assistance.
Affordability: Affordability describes a relationship between household income,
housing costs, and an established standard of affordability. The standard of
affordability used by HUD and most government housing programs is that
housing costs including utilities do not exceed 300/0 of household income. The
term "Affordable housing" is used primarily to refer to rental housing targeted
for households with incomes below 80 percent of median income.
Below-Market Rate
Assisted Housing: Housing where subsidies are provided in order to achieve
below-market rents in order to make housing affordable to a targeted income
group (usually below 80% MFI). Subsidies can be directed at reducing
development costs or operating costs, or both.
CDBG (Community Development Block Grant): The CDBG program was
created in 1974 by combining a number of categorical federal grants used by
urban counties and cities to revitalize neighborhoods and assist low- and
moderate-income residents. CDBG funds can be used for a wide variety of
purposes including housing rehabilitation, home ownership assistance,
economic development, social services and physical improvements such as
streets, sewers and parks. The funds must benefit low- and moderate-income
persons (below 80 percent MFI) or geographic areas (as identified by census data
or neighborhood surveys), or eliminate slums and blight or meet an urgent
need.
Community Development Corporation (CDC): A community development
corporation is a non-profit organization that develops, owns, and manages
housing in a geographically defined area. CDCs often emerge from community
Page 127 Comprehensive Plan Housing Policy 1/15/99
and neighborhood-based activism to improve housing and neighborhood
conditions for low-income households and neighborhoods.
Community Land Trust tCLT): A CLT is a private non-profit organization
created to acquire and hold land for the benefit of a community and provide
secure affordable access to land and housing for community residents. A CLT
acquires parcels of land, held in perpetuity, primarily for conveyance under
long-term ground leases, and transfers ownership of any structural
improvements located on such leased parcels to the lessees, and retains a
preemptive option to purchase any such structural improvement at a price
determined by formula that is designed to ensure that the improvement
remains affordable to low and moderate income families in perpetuity.
Comprehensive Housing Affordability Strategy (CRAS): A joint strategy of
the city of Portland and Multnomah County for providing a variety of different
housing choices for a range of income levels, especially low income.
Comprehensive Plan: The current adopted Comprehensive Plan of the city of
Portland. A comprehensive plan is a generalized, coordinated land use map
and policy statement of the governing body of a local government that
interrelates all functional and natural systems and activities relating to the use
of lands, including but not limited to sewer and water systems, transportation
systems, educational facilities, recreational facilities, and natural resources
and air and water quality management programs. The term "comprehensive"
means all-inclusive, both in terms of the geographic area covered and
functional and natural activities and systems occurring in the area covered by
the plan. The term "general nature" means a summary of policies and
proposals in broad categories and does not necessarily indicate specific
locations of any area, activity or use. A plan is "coordinated" when the needs of
all levels of governments, semi-public and private agencies and the citizens of
Oregon have been considered and accommodated as much as possible. The
term "land" includes water, both surface and subsurface, and the air. Source:
Oregon Revised Statutes (ORS) 197.015 (5);
The Comprehensive Plan of the city of Portland, was adopted in 1980 and is
continuously updated. It includes District Plans and Neighborhood Plans. The
city's Zoning Code is a major implementation tool of the Comprehensive Plan,
but it is not a part of the plan.
• District (Community) Plans - Multi-neighborhood plans that encompass a
large area and address land use and related issues in a single planning and
implementation study.
• Neighborhood Plans - Individual neighborhood plans that seek to preserve
and reinforce stability and diversity and improve the city's residential
quality and economic vitality.
Page 128 Comprehensive Plan Housing Policy 1/15/99
• Area Plans (e.g. Sub-area Studies) - May be undertaken in
industrial/commercial areas in response to development activity.
Comprehensive Plan Land Use Designation Map: The Comprehensive Plan
Map designates the zoning for the entire city of Portland. These designations
set forth zoning that complies with the needs for future development in
Portland. Zoning and Comprehensive Plan Map designations are the same on
most properties. When there is a difference, the Comprehensive Plan Map
designation is of a greater intensity or higher density. In these situations an
applicant may seek a zone change in compliance with the Comprehensive Plan
Map. The request is approved if services to the site are adequate to support the
more intensive use.
Condominium: Arrangement under which tenants in a multi-dwelling
structure or multiunit dwellings hold full title to their own units and joint
ownership in the common grounds.
Consolidated Plan: The Consolidated Plan replaced the CHAS as the planning
document required by the U.s. Department of Housing and Urban
Development for all cities and counties entitled to receive CDBG, HOME, ESG,
and HOPWA block grants. The Consolidated Plan is a 5-year plan with annual
updates and performance reports.
Cooperative: Ownership form in which a single property is divided into
several portions, with each user owning stock in a corporation that owns the
property.
Cost burden is the relationship between the household's gross housing costs
(rent and utilities) and its gross income. When housing costs exceed 30
percent of the household's income, the cost burden is substantial. When the
housing costs exceed 50 percent of the household's income, the cost burden is
severe.
Density: The average number of persons, households, or dwellings per acre of
land.
Design Guidelines: A set of design criteria for development that apply within a
Design "d" overlay zone. The guidelines are adopted public statements of
intent and are used to evaluate the design acceptability of a project. There are
design guideline documents developed to address the special design
characteristics of different areas of the city. Examples: Central City Design
Fundamentals and Albina Community Plan Design Guidelines.
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Displacement: Household is forced to move from its residence by conditions
which affect the dwelling or its immediate surroundings and which: 1) are
beyond the household's reasonable ability to control or prevent; occur despite
the household's having met all previously-imposed conditions of occupancy;
and 3) make continued occupancy by that household impossible, hazardous or
unaffordable; 4) occurs as a result of neighborhood investment or upgrading,
through higher rents, conversion to condos, eviction for renovation in creases
in property taxes; 5) results in a neighborhood with tenants or owner-
occupants of higher socioeconomic status, as measured by income, educational
attainment, or occupation than before.
Distressed Area: A residential area of the city that the Planning Commission
designates for special assistance programs (e.g. limited property tax exemption)
by virtue of the deterioration or the housing stock.
DOWDzoning: A change from the current zoning classification of land to
reduce the intensity or density of development permitted. The opposite is
upzonIng.
Equity: The "after-value," or if not documented, the "as is" value of the
property less all indebtedness secured by the property.
Fair Housing Laws: This includes the Fair Housing Act (Title 8, Civil Rights Act
of 1964); Fair Housing Amendments Act of 1988 (added disability and familial
status), and Americans with Disability Act, and state and local laws that
provide for fair housing.
Fair Market Rent (FMR). Annually HUD establishes FMRs for various
bedroom sizes for states and metropolitan areas. FMRs are set at the fortieth
percentile of rents on units occupied by recent movers. The FMR is based on
gross rent (rent plus utilities).
Gentrification: A term that represents the "filtering up" of housing from
lower-income to higher income households. Nationally the term has been
associated with the rehabilitation of older, inner city neighborhoods.
Geographical Information System (GIS): An information system that is
designed to work with data referenced by specific location or geographic
coordinates. It is a database system with specific capabilities for spatially
referenced data. GIS provides specific information to planners in map form.
Gross rent: Household's total housing costs including rent and utilities.
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Handicapped: The Fair Housing Act Amendment of 1988 defines "with respect
to a person, a physical or mental impairment which substantially limits one or
more major life activities; a record of such an impairment; or being regarded as
having such impairment. The act further defines terms used in this definition.
Historic District: An area containing a number of lots, blocks and buildings
that has special historical, architectural or cultural significance as part of the
heritage of the city. In Portland, these districts are identified by the Historical
Landmarks Commission.
HOME: The HOME program was created in 1990 as part of the
Cranston-Gonzales Affordable Housing Act to expand the supply of housing
affordable to low-income households. It is a much smaller program than CnBG
and can only be used for eligible activities that include new construction,
rehabilitation, home ownership assistance, assistance to community housing
development organizations. Funds must benefit households at or below 80
percent MFI and rental housing assistance must primarily benefit households at
or below 60 percent MFI.
Household: One or more persons related by blood, marriage) legal adoption or
guardianship, plus not more than 5 additional persons, who live together in
one dwelling unit; or one or more handicapped persons as defined in the Fair
Housing Amendments Act of 1988, plus not more than 5 additional persons,
who live together in one dwelling unit. (Title 33 Planning and Zoning Code) The
federal definition of household for the CnBG program is "all persons who
occupy a housing unit. The occupants may be a single-family, one person
living alone, two or more families living together, or any other group of related
or unrelated persons who share living arrangements.
Housing and Community Development Commission (RCDC): A 15 person
citizen commission appointed by the Cities of Portland and Gresham, and
Multnomah County, to serve in an advisory capacity to elected officials on
housing and community development issues. The HCDC monitors the
development and performance of the Consolidated Plan for federal entitlement
funds (CDBG, HOME, etc.)
Housing Authority of Portland (HAP): the City of Portland established The
Housing Authority in 1941. HAP owns and manages the Low Rent Public
Housing Program, Section 8 Voucher and Certificate Programs, and an
Affordable Housing Development Program. A 9-person board of citizens
appointed by Portland City Council governs it. The Housing Authority of
Portland serves all of Multnomah County.
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Housing Capacity (Theoretical): The theoretical housing capacity of an area
reflects the number of housing units which could be built given some economic
and non-site specific constraints. These constraints include:
• A market factor: the need for choices in the land market, and
• An underbuild factor: an allowance for fewer units being developed on each
site than is allowed by code.
This number does not predict the number of housing units that can or will be
built. It is for comparison between different development patterns only. It does
not take into account site-specific constraints, such as lot configuration,
existing improvement values and environmental constraints.
Housing Investment Fund (HIF): The first time the City of Portland allocated
general funds for housing was in 1995 ($6 million). In 1996 Portland allocated
$24.6 'million to create the Housing Investment Fund (HIF). Council added an
additional $3.4 million in 1997. The HIF is used in conjunction with the city's
HOME and CDBG housing resources, as well as the LIHTC, state funds, and
bonds.
Housing Opportunities for Persons with AIDS (HOPWA): The HOPWA
program is an entitlement administered by the City of Portland for a 6-county
area. The target population is persons with HIV/ AIDS whose incomes are at or
below 50 percent MFI. HOPWA can fund supportive services, but locally funds
are used primarily for housing development and rental assistance.
Housing Tenure: Describes how people secure their housing, through rental,
or ownership.
Housing Unit
Affordability: Compares housing cost to local area HUD Area Median Family
Income (HAMFI). For rental units, gross rent is compared to 30 percent of area
median income categories to determine affordability. Owner units are
affordable if the unit's value is less than 2.5 times the household income
threshold for the area. (e.g. affordable to low income owner would be 2.5 times
800/0 HAMFI).
HUD: The Department of Housing and Urban Development is the federal entity
that administers a variety of federal housing and community development
programs.
Impact Area: A census tract block group in which 500/0 of the households are
categorized as very low income (below 500/0 MFI) or 20% or more of the housing
units are categorized as public and assisted. The City's Subsidized Housing
and Shelter Location Policy is applied to "impact areas."
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Income Categories: Most federal, state, and local government housing
programs target resources to different income levels. The definitions are not
always consistent, even within the own federal agency. These definitions are
intended to be standard definitions for use in City Housing Programs.
• Extremely Low-Income: Household income from 0 to 300/0 HUD Area
Median Family Income (HAMFI).
• Very Low-Income: Household income from 31 to 50% ofHAMFI.
• Low-Income: Household income from 51 to 60% of HAMFI.
• Moderate-Income: Household income between 61 and 800/0 of HAMFI
• Middle-Income: Household income is between 81 to 150% HAMFI.
• Upper (or High)-Income: Household income is over 150% of area median
Inclusionary Zoning: Mandatory requirement for developers to provide
something to serve the community, usually a requirement that a certain
portion of the housing units must be affordable to low or moderate income
households. Incentive-based inclusionary zoning is not mandatory and
provides a density bonus, or some other financial incentive in return for a
designated public benefit.
Incentive: Any benefit (economic, regulatory, policy, etc.) that influences or
encourages a desired action or behavior.
Industrial Sanctuary: The industrial sanctuary designation is intended for
areas where city policy is to reserve land for existing and future industrial
development. A full range of industrial uses are permitted and encouraged.
Non-industrial uses are limited to prevent land use conflicts and to preserve
land for industry. The corresponding zones are General Industrial 1 (IG 1),
General Industrial 2 (IG2), and Heavy Industrial (IH).
In,.1I1: Infill development is the construction on scattered vacant lots in
developed neighborhoods as opposed to building on large parcels of vacant land
in relatively undeveloped areas.
Infrastructure: The utilities and basic services, such as roads and sewers,
essential for the development, operation and growth of a city.
Intensity: The type or level of such things as traffic, pedestrian activity,
number and height of structures or noise generated by a land use. The more
activity, the greater the intensity of use.
Land Use: The way in which land is used. Land use is generally described in
terms of such things as the size of the lot, the size and location of the structure
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on the lot and the activities that take place within the structure. Activities not
directly associated with land, such as housing construction, population
growth, traffic flow and job development are influenced by the way land is
used.
Land Use Inventory: A record that describes how a site is used. Land use is
generally described in terms of such things as the size of the lot, the size and
location of the structure on the lot, and the activities that take place within the
structure.
Legislative Action: Establishment of laws, regulations, or procedures that
have a broad applicability. City Council adopts legislation for the City of
Portland. State and federal legislation is adopted through state and federal
bodies.
Light Rail Line: A public rail transit line that usually operates at grade level
and that provides high capacity, regional level transit service.
Market Housing: Housing produced by the private sector with no direct or
indirect public subsidies and no restrictions on price or rent. (Homeowner may
still have indirect subsidy if he / she claims mortgage interest or property tax
deductions) .
Market Rate Assisted Housing: Housing that requires development or
operating subsidies in order to achieve a rent or price at the prevailing market
price. May not have rent or resale restriction if project meets other public
objectives.
Market Rent: Rent that could be obtained by renting a property on the open
market (no restrictions or limitations other than what individuals are willing to
pay.)
Median Family Income (MFI). Each year HUD establishes the median family
income for states and metropolitan areas. As of January 1, 1998, the median
income for a family of four in the Portland metropolitan area was $49,600. The
MFI is adjusted for household size. Publicly funded rental housing programs
usually are targeted to a specific income level.
Metropolitan Service District (METRO): A directly-elected regional
government, the first of its kind in the nation, responsible for metropolitan
aspects of land use planning and other regional services.
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Mixed-Income housing: Housing targeted to serve different income groups.
There is not one generally accepted fonnula for mixed income housing.
Examples of some program requirements in the Portland area:
• at least 20 percent of the units must be affordable to households below 60%
MFI
• at least 50 percent of the units must be affordable to households below 50%
MFI.
The rents for the balance of the units not designated for a particular income
level are allowed to fluctuate according to the market.
Mixed-Use: The combination on a site of residential uses with commercial or
industrial uses.
Nonconforming Residential Density:
A residential use that is an allowed use in the zone and that was constructed
at a lawful density, but which subsequently, due to a change in the zone or
zoning regulations, now has greater density than is allowed in the zone.
Non-Profit: A private organization that is legally established as tax exempt
under federal and/or state law because they serve a public purpose.
Overlay ZOnes: Overlay zones are a special "supplementary" restriction on the
use of land beyond the requirements in the underlying zone. A parcel of land
may have more than one overlay zone.
Pedestrian-Oriented Development: Development that is designed with an
emphasis primarily on the street sidewalk and on pedestrian access to the site
and building, rather than on auto access and parking areas. The building is
generally placed close to the street and the main entrance is oriented to the
street sidewalk. There are generally windows or display cases along building
facades that face the street. Typically, buildings cover a large portion of the
site. Although parking areas may be provided, they are generally limited in size
and they are not emphasized by the design of the site.
Portland City Council: The City Council is composed of the Mayor and four
Commissioners. This body is responsible for adopting Portland's
Comprehensive Plan after a series of public hearings.
Portland City Planning Commission (PDC): The Planning Commission is
composed of nine citizen members appointed by the Mayor and approved by
City Council. The Commission's role is advisory to the City Council.
Primary Metropolitan Statistical Area (PMSA):
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A United States Census Bureau term describing a geographic area consisting of
one or more cities of 50,000 population or more and the contiguous counties
which are economically and socially integrated with the county containing the
central city. Portland is the central city for the PMSA consisting of Multnomah,
Washington, Yamhill, Columbia and Clackamas counties in Oregon and Clark
County in Washington.
Protected Class: An individual's membership in a protected class cannot
serve as the basis for denying that person's effort to rent, purchase, or
otherwise obtain or continue to reside in housing. Federal protected classes
include race, religion, gender, national origin, familial status, disability, and
color. State protected classes include all of the above with the addition of
marital status. Within the City of Portland the following are also protected
classes: age over 18, source of income, and sexual orientation.
Public and assisted housing usually is defined as rental housing subsidized
through various federal, state, or local programs for households with incomes
less than 80 percent MFI. Programs may target specific income levels, e.g. less
than 50 percent MFI. The subsidy may be for acquisition, development,
rehabilitation or other assistance that makes the housing affordable. Local
jurisdictions also may indirectly subsidize projects by granting fee waivers and
tax abatements. Programs restrict tenant income, rent levels, typically require
periods of affordability, and may impose resale conditions.
Public and assisted rental housing subsidies are project-based. Housing units
are not considered assisted rental housing which are:
• Occupied by tenants who receive tenant-based rental assistance (such as
through the Section 8 program, e.g. certificate or vouchers);
• Adultfoster care, group homes, nursing homes, treatment/aGilities, etc., which
receive operating funds from a public source. However, if the facility received
public assistance as defined above, i.e. for acquisition, development,
rehabilitation or other assistance which makes the housing affordable for
households below 80 percent MFI, it is considered assisted housing.
• Rental housing for income groups above 80 percent ofmedian that receives a
direct or indirect public subsidy.
Quasi-Judicial Action: The application of discretionary standards to a specific
property in a land use reviev~r.
Region 2040 Growth Concept: A concept that establishes a general policy
direction for managing growth in the metropolitan region through the year
2040. It states the preferred form of the regional growth and development,
including where and how much the urban growth boundary (UGB) should be
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expanded, what densities should characterize different areas, how to protect
open spaces and natural resources> and how to maintain air and water quality.
The growth concept was adopted by the METRO Council in December 1994 and
will serve as a guide for developing the 2040 Framework Plan.
Region 2040 Framework Plan: This plan is mandated by the voter-approved
1992 METRO Charter. Its focus is to develop strategies for implementing the
Region 2040 Growth Concept. METRO Council adopted the Framework Plan in
December 1997.
Region 2040 Growth Concept Design Types: A common set of regional
"design types" used to describe the Region 2040 Growth Concept and illustrate
it in the form of a map.
• Centers: Concentrations of employment and housing that provide access to
a variety of goods and services, creating an intense business and social
climate. The growth concept recognizes three types of centers,
distinguished by size and accessibility.
• Central City: The downtown and adjacent portions of Portland that serve as
a major business, employment, social, and cultural hub for the metropolitan
region. It is the center for the local, regional, state, and federal
governments, financial institutions, commerce, the center of arts and
culture, and visitors to the region.
• Regional Centers: Nine regional centers will become the focus of compact
development and redevelopment with high quality transit service and
multimodal street networks. (Gateway is the only regional center in
Portland).
• Town Centers: Serving tens of thousands of people, these are areas of mixed
residential and commercial use with transit service. They provide local
shopping and employment opportunities within a local market area and will
be designed to provide local retail and services..
• Station Communities: Nodes of housing and employment development
centered around a light rail or high capacity, transit station that feature a
high quality pedestrian environment. They provide for the highest density
other than that found in the regional centers. The station community
encompasses an area approximately one half mile from a station stop.
• Main Streets: Neighborhood shopping areas along a main street or at an
intersection, sometimes having a unique character that draws people from
outside the area.
• Corridors: Key transportation routes for people as well as goods. Corridors
are not as dense as main streets and are located along good transit lines.
Corridors may be laid out in a linear or circular pattern. Each provides an
opportunity for densities that are somewhat higher than today and features
a high quality pedestrian environment and convenient access to transit.
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Neighborhoods: Residential neighborhoods are a key component of the Region
2040 Growth Concept and fall into two basic categories.
• Inner Neighborhoods: Areas in Portland and other older suburbs that are
primarily residential, close to employment and shopping areas, and have
small lot sizes of about 5,720 square feet and higher population densities
than outer neighborhoods.
• Outer Neighborhoods: Areas in the outlying suburbs such as Forest Grove,
and Sherwood, that are primarily residential, farther from employment and
shopping areas, and have larger lot sizes of about 7,560 square feet and
lower population densities than inner neighborhoods.
Employment Areas: Areas set aside for industrial activities and other
supporting uses as well as mixed use employment and residential areas with
convenient transportation access.
Region 2040 Urban Growth Management Functional Plan: The Urban
Growth Management Functional Plan establishes specific actions local
governments must take to adhere to regional growth management policies. The
functional plan is the first regional planning tool that has behind it the force of
law. The METRO Council adopted the Urban Growth Management Functional
Plan by Ordinance 96-647C on November 21, 1996. Local governments will
have until February of 1999 to implement the requirements of the functional
plan.
Regional Transportation Plan (RTP): The Portland metropolitan area 20-year
transportation framework plan, developed by regional consensus and managed
by METRO.
Residential Home: A residence for five or fewer physically or mentally disabled
persons, and for staff persons. The residence may provide residential care
alone, or in conjunction with training or treatment. This definition includes
the State definition of Residential Home.
Residential Structure Types
• Accessory Dwelling Unit. A second dwelling unit created on lot with a
house, attached house, or manufactured home. The second unit is created
auxiliary to, and is always smaller than the house, attached house, or
manufactured home.
• Attached Duplex. A duplex, located on its own lot, that shares one or
more common or abutting walls with one other duplex (for a total of 4
dwelling units). The common or abutting wall must be shared for at least
50 percent of the length of the side of the dwelling.
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• Attached House. A dwelling unit, located on its own lot, that shares one
or more common or abutting walls with one or more dwelling units. The
common or abutting wall must be shared for at least 50 percent of the
length of the side of the dwelling. An attached house does not share
common floor/ceilings with other dwelling units. An attached house is also
called a rowhouse or a common-wall house.
• Duplex. A structure that contains two primary dwelling units on one lot.
The units may share common walls or common floor/ceilings.
• Dwelling Unit. A building, or a portion of a building, that has independent
living facilities including provisions for sleeping, cooking, and sanitation,
and that is designed for residential occupancy by a group of people.
Buildings with more than one set of cooking facilities are considered to
contain multiple dwelling units unless the additional cooking facilities are
clearly accessory, such as an outdoor grill.
• Group Living Structure. A structure that contains sleeping areas and at
least one set of cooking and sanitary facilities that is used as a residence for
Group Living uses.
• House. A detached dwelling unit located on its own lot.
• Houseboat Moorage. A facility that provides moorings for houseboats.
• Mobile Home. A dwelling unit constructed off of the site and which is not
constructed to the standards of the uniform building code. Mobile homes
include residential trailers and manufactured homes.
- Manufactured Home. A manufactured home is a mobile home
constructed in accordance with federal manufactured housing
construction and safety standards (HUD code) in effect after June 15,
1976.
- Residential Trailer. A mobile home that was not constructed in
accordance with federal manufactured housing construction and safety
standards (HUD code), in effect after June 15, 1976. This definition
includes the State definitions of residential trailers and mobile houses,
as stated in Oregon Revised Statutes (DRS) 446.
• Multi-Dwelling Development. A grouping of individual structures where
each structure contains 1 or more dwelling units. The land underneath the
structures is not divided into separate lots. A multi-dwelling development
project may include an existing single-dwelling detached building with 1 or
more new detached structures located to the rear or the side of the existing
house. It might also include a duplex in front with either 1 or more single-
dwelling houses behind or 1 or more duplex units or multi-dwelling
structures behind. The key characteristic of this housing type is that there
is no requirement for the structures on the sites to be attached.
• Multi-Dwelling Structure. A structure that contains three or more
dwelling units that share common walls or floor/ceilings with one or more
units. The land underneath the structure is not divided into separate
lots. Multi-dwelling includes structures commonly called garden
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apartments, apartments) and condominiums. (Title 33 Planning and
Zoning Code definition). In commercial financing there is a distinction
between residential and commercial housing, with commercial housing
defined as 5+units.
• Single Room Occupancy Housing fSRO).. A structure that provides living
units that have separate sleeping areas and some combination of shared
bath or toilet facilities. The structure mayor may not have separate or
shared cooking facilities for the residents. SRO includes structures
commonly called residential hotels and rooming houses.
Restricted Residential Unit: A housing unit in a PDC funded project which is
restricted as to affordability and rent limitations for a specified time period
according to a written affordability agreement.
Statewide Planning Goals and Regulations: The goals constitute the
framework for a statewide program of land use planning. There are Statewide
Policies on land use, resource management, economic development, and citizen
involvement. There are 19 goals: Goal 1: Citizen Involvement; Goal 2: Land Use
Planning; Goal 3: Agricultural Land, Goal; 4: Forest Land; Goal 5: Open
Spaces, Scenic and Historic Areas, and Natural Resources; Goa16: Air, Water
and Land Resources Quality; Goal 7: Areas Subject to Natural Disasters and
Hazards; Goal 8: Recreational Needs; Goal 9: Economic Development; Goal 10:
Housing; Goal 11: Public Facilities and Services; Goal 12: Transportation; Goal
13: Energy Conservation; Goal 14: Urbanization; Goal 15: Willamette River
Greenway; Goal 16: Estuarine Resources; Goal 17: Coastal Shorelands; Goal
18: Beaches and Dunes; and Goal 19: Ocean Resources.
Subsidized Housing: This term is usually used to refer to publicly-assisted
rental housing that is targeted to households with incomes below 80% MFI.
Other income groups receive direct or indirect public subsidies for housing, so
a more accurate definition would include all housing, regardless of resident
income) where the unit or the tenant receives a direct or indirect public
subsidy that reduces their housing cost or tax liability. The largest subsidy for
housing is given to homeowners in the form of tax deductions for mortgage
interest and property taxes. One half of the tax subsidy goes to homeowners
with incomes over $100,000 annually. Only 7% of homeowners with incomes
between $20,000 and 30,000 claim these deductions.
Target Areas: Geographic areas designated for special city assistance to
achieve specific public objectives. PDC identifies target areas through its 5-
Year Plan. BHCD identifies target areas through a competitive process that
focuses on community organizing and community assets in CDBG eligible
areas.
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Tax Exempt Bonds: Tax exempt bond financing is authorized by the federal
government through the Internal Revenue Code, with a cap placed on the
amount of tax-exempt bond financing for each state. The purpose is to create
sufficient financial incentives for private investors to produce rental housing for
low-income persons. The bonds are issued by a governmental agency (PDC,
HAP) and sold to private investors. The investors receive, tax-exempt income
from the bonds, and the developer receives the bond proceeds at an interest
rate that is below the taxable market rate. The proceeds are used to finance
development and the developer agrees to reserve either
• 20 percent of the units for persons at 50 percent afthe area median
income or less, or
• 40 percent of the units for persons at 60 percent of the median income
or less.
Tax Increment Financing: Urban renewal taxes are the taxes raised by the
increase or "increment" in total property values in the urban renewal areas
from the time the urban renewal area is first established. Urban renewal taxes
must be used to repay debt (bonds, notes, contracts) that is issued to carry out
the urban renewal plan.
Transit Center: A location where a number of transit lines converge for the
purpose of transferring from one line to another or for accessing a number of
potential lines. Transit centers may include park-and-ride facilities.
Transit-Oriented Development (TOD): A mix of residential, retail, and office
uses and a supporting network of roads, bikeways and walkways focused on a
major transit stop and designed to support a high level of transit use. The key
features of transit-oriented development include:
• A mixed-use center at the transit stop, oriented principally to transit riders
and pedestrian and bicycle travel from the surrounding area;
• High-density residential development proximate to the transit stop sufficient
to support transit operation and neighborhood commercial uses within the
TOO;
• A network of roads, bikeways and walkways to support high levels of
pedestrian access within the TOD and high levels of transit use;
• A lower demand for parking than auto-oriented land uses.
Transportation Demand Management: Actions designed to change travel
behavior in order to reduce single-occupant vehicles t improve performance of
transportation facilities, and reduce the need for additional road capacity.
Methods may include t but are not limited to, the use of alternative modes,
ridesharing and vanpool programs, parking management, and trip-reduction
ordinances.
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Transportation Planning Rule (TPR): The TPR is a state administrative rule
that requires all jurisdictions in Oregon to reduce the amount of vehicle miles
traveled by 20% over the next 30 years.
Transit Street: Under the TPR, any street that has public transit service with
peak hour headways of 20 minutes or less is a transit street.
Upzoning: A change from the current zoning classification of land to increase
the intensity or density of development permitted. The opposite is downzoning.
Urban Growth Boundary (UGB): A line that delineates the future development
of the urban area. Within the boundary) all the facilities and services
necessary for urban development will be provided; outside the boundary,
service extensions will be restricted and development restricted in intensity.
Statewide Planning Goal 14 requires all incorporated cities in Oregon establish
such urban growth boundaries.
Urban Renewal District (URD): The City Council approves URDs along with a
plan that sets goals and describes projects designed to foster the economic
health of that district. The overall goal is to leverage public funds to stimulate
private sector investment. Urban renewal authorizes tax increment financing
to pay for redevelopment projects.
Zoning: In general, the demarcation of a city by ordinance into zones and the
establishment of regulations to govern the use of the land and the location,
bulk, height, shape, use and coverage of structures within each zone.
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