Ordinance No. 21-11 CITY OF TIGARD, OREGON
TIGARD CITY COUNCIL
ORDINANCE NO. 21- I
AN ORDINANCE ADOPTING COMPREHENSIVE PLAN AMENDMENT CPA 2021-00002 TO
ADOPT THE 2021 TIGARD HOUSING NEEDS ANALYSIS AS AN ANCILLARY DOCUMENT TO
THE TIGARD COMPREHENSIVE PLAN GOAL 10: HOUSING AND TO AMEND TIGARD
COMPREHENSIVE PLAN GOAL 10:HOUSING, ai mcizet/e J
WHEREAS, Oregon Statewide Planning Goal 10 and Administrative Rule 660 Division 7 require cities to
periodically assess their housing needs;and
WHEREAS,the City of Tigard last adopted an update to its Housing Needs Analysis in 2013;and
WHEREAS,in the time since the adoption of the previous update Tigard and the region have experienced an
ongoing housing crisis;and
WHEREAS, Tigard has adopted housing policy reforms and initiatives to encourage more affordable and
diverse housing across the city;and
WHEREAS,the city seeks to understand its 20-year housing forecast need in the context of the foregoing;and
WHEREAS, the City Council desires to ensure the availability of adequate lands for development of housing;
and
WHEREAS, the city received grant monies from the Department of Land Conservation and Development to
update its Housing Needs Analysis and incorporate a Housing Market Analysis;and
WHEREAS, the 2021 Tigard Housing Needs Analysis is consistent with the provisions of Oregon Statewide
Planning Goal 10 and Administrative Rule 660 Division 7;and
WHEREAS, the city has proposed an amendment to eh Tigard Comprehensive Plan to update the Policies and
Recommended Action Measures corresponding to Statewide Planning Goal 10;and
WHEREAS, on April 19, 2021, the Tigard Planning Commission held a public hearing and recommended
approval of the proposed CPA 2021-00002 by motion with unanimous support;and
WHEREAS, on May 25, 2021, the Tigard City Council held a public hearing to consider the Planning
Commission's recommendation,hear public testimony,and apply applicable decision-making criteria;and
WHEREAS, the Tigard City Council's decision was based on the findings and conclusions found in Exhibit C
and the associated record which is incorporated herein by reference and is contained in land use file CPA 2021-
00002.
NOW,THEREFORE,THE CITY OF TIGARD ORDAINS AS FOLLOWS:
ORDINANCE No. 21-j
Page 1
SECTION 1: Tigard City Council adopts the 2021 Tigard Housing Needs Analysis (EXHIBIT A) as an
ancillary document to the Tigard Comprehensive Plan Goal 10: Housing.
SECTION 2: Tigard Comprehensive Plan Goal 10:Housing is amended to include new text and rescind
existing text as shows in EXHIBIT B.
SECTION 3: Tigard City Council adopts the findings and conclusions contained in EXHIBIT C ins
support of the Council's action and to be the legislative basis for this ordinance.
SECTION 4: This ordinance shall be effective 30 days after its passage by the council, signature by the
mayor,and posting by the city recorder.
PASSED: By Si/yfl,T/y1�J'neti... vote of all council members present after being read by number
and title only,this ‘25- day of -2914V1 2021.
J
Carol A. Krager,City Recorder
APPROVED: By Tigard City Council this a5-11‘day of 7r2. ..7 ,2021.
Jason l Snider,Mayor
Approved as to form:
City Attorney
5-26-2021
Date
ORDINANCE No.21-11
Page 2
Exhibit A
TIGARO
City of Tigard
Housing Needs Analysis &
Housing Market Analysis
May 2021
Exhibit A
Prepared for
City of Tigard
13125 SW Hall Boulevard
Tigard, OR 97223
111111
TIA[ D
With funding from the Oregon Department of
Land Conservation and Development
Consultant Team
Mosaic Community Planning, LLC
Urbsworks
Leland Consulting Group
Otak
Exhibit A
Contents
LIST OF FIGURES II
LIST OF TABLES IV
CHAPTER 1: INTRODUCTION 2
Definitions 3
Data Sources 3
CHAPTER 2: COMMUNITY INPUT 5
Housing Survey 6
Community Advisory Committee 10
CHAPTER 3: DEMOGRAPHIC TRENDS 13
Population Growth 14
Demographic Overview 18
Economic Conditions and Trends 30
CHAPTER 4: HOUSING NEEDS 37
Existing Housing Needs 38
Housing Need Projections 42
CHAPTER 5: HOUSING MARKET ANALYSIS 45
Housing Supply Overview 46
Affordable Housing 58
Developer Perspectives 68
Implementation Strategies 71
CHAPTER 6: BUILDABLE LANDS INVENTORY 78
CHAPTER 7: RESIDENTIAL LAND NEEDS ANALYSIS 87
Residential Land Analysis 88
Housing Strategies & Recommendations 92
City of Tigard 1 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS i
Exhibit A
List of Figures
Figure 1: Housing Diversity and Affordability Statements 8
Figure 2: Housing Affordability for Families and Single People 8
Figure 3: Housing Affordability for Seniors and People who Work in Tigard 8
Figure 4: What Features and Amenities are Most Important to You?Top Responses 9
Figure 5: Which Factors Make it Difficult to Find Housing in Tigard? 10
Figure 6: Population Growth, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2010-2019 15
Figure 7: Number of Households, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2006-2010 and 2014-2018 16
Figure 8: Households Growth Rate, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2006-2010 to 2014-2018 16
Figure 9: Average Household Size, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 17
Figure 10: Households by household size, City of Tigard, 2014-2018 18
Figure 11: Percent of Population by Age Group, City of Tigard, Washington County,
Portland-Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 19
Figure 12: Population by Age Group, City of Tigard, 2006-2010 and 2014-2018 20
Figure 13: Percent of Population by Race and Ethnicity, City of Tigard, Washington
County, and Portland-Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 21
Figure 14: Population by Race and Ethnicity, City of Tigard, 2006-2010 and 2014-2018 22
Figure 15: Percent of Population by Language Spoken at Home (Population 5 Years and
Over), City of Tigard, Washington County, Portland-Vancouver-Hillsboro MSA, and
state of Oregon, 2014-2018 23
Figure 16: Percent Limited English-Speaking Households, City of Tigard, Washington
County, Portland-Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 25
Figure 17: Population by Income Group, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 26
Figure 18: Median Household Income, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018 27
Figure 19: Percentages of Owner and Rental Households by Percent HUD Area Median
Family Income, City of Tigard, 2013-2017 28
Figure 20: Numbers of Owner and Rental Households by Percent of HUD Area Median
Family Income, City of Tigard, 2013-2017 29
Figure 21: Income Limits by Household Size for Selected Percentages of HUD Area
Median Family Income, Washington County, 2020 30
Figure 22: Number of Jobs by NAICS Industry Sector (All Jobs), City of Tigard, 2017 31
ii HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 23: Jobs Located in the City of Tigard by NAICS Industry Sector, 2002, 2010,
and 2017 (All Jobs) 32
Figure 24: Jobs Held by Tigard Residents by NAICS Industry Sector, 2002, 2010, and
2017 (All Jobs) 33
Figure 25: Commuting Patterns of Resident and Non-Resident Workers, City of Tigard,
2017 (All Jobs) 34
Figure 26: Distance Traveled to Work by Wage, City of Tigard Residents (for Primary
Jobs), 2017 35
Figure 27: Projected Employment, Portland Tri-County Area, 2019 and 2029 36
Figure 28: Occupied Housing Units by Structure Type, 2014-2018 53
Figure 29: Gross Rent, 2014-2018 56
Figure 30: Monthly Owner Costs for Households with a Mortgage, 2014-2018 57
Figure 31: Housing Choice Voucher Use in Tigard 59
Figure 32: LIHTC Development in Tigard 61
Figure 33: Zoning of Buildable Lands, City of Tigard 81
City of Tigard 1 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS iii
Exhibit A
List of Tables
Table 1: Survey Participant Demographics 6
Table 2: Population Growth, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2010-2019 14
Table 3: Estimated Housing Needs by Income Group in Tigard, 2017 39
Table 4: Estimated Housing Needs by Type in Tigard, 2017 40
Table 5: Estimated Housing Needs by Race and Ethnicity, 2017 41
Table 6: 2040 Household Growth Forecasts for the Tigard Planning Area 42
Table 7: Housing Units Needed Based on Growth in the Tigard Planning Area, 2020 to
2040 43
Table 8: Total Housing Units Needed by Income Category in the Tigard Planning Area,
2020 to 2040 44
Table 9: Housing Units and Household Growth from 2000 to 2014-2018 47
Table 10: Tenure by Households, 2000 and 2014-2018 47
Table 11: Homeownership Rate by Household Income, 2014-2018 48
Table 12: Vacancy Rate, 2014-2018 49
Table 13: For-Sale and Rental Vacancy Rates, 2014-2018 50
Table 14: Status of Vacant Units, 2014-2018 50
Table 15: Housing Units by Number of Bedrooms, 2014-2018 51
Table 16: Housing Units by Year Structure Built, 2014-2018 54
Table 17: Median Home Value and Monthly Owner Costs, 2014-2018 55
Table 18: Affordable Housing Development, City of Tigard, 2021 62
Table 19: Hillsboro, Beaverton/Washington County CoC 2019 Point-in-Time Homeless
Count 63
Table 20: Demographic Summary of Sheltered and Unsheltered Homeless Persons in
the Hillsboro, Beaverton/Washington County CoC 64
Table 21: Race and Ethnicity of Sheltered and Unsheltered Homeless Persons in the
Hillsboro, Beaverton/ Washington County CoC 65
Table 22: Facilities and Housing Targeted to Homeless Households 67
Table 23: Zoning and Acreage of Buildable Lands, City of Tigard 82
Table 24: Acres of Buildable Lands in which Residential Uses are Allowed, Limited, and
Prohibited, City of Tigard 83
Table 25: Housing Types Allowed by Zoning Types of Buildable Lands, City of Tigard 84
Table 26: Acres of Buildable Lands in which Residential Uses are Allowed, Limited, and
Prohibited, City of Tigard 86
iv HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Table 27: Housing Units Needed in the Tigard Planning Area, 2020 to 2040 88
Table 28: Segmentation of Needed Housing by Plan Designation, City of Tigard 89
Table 29: Net Buildable Land by Residential Designation, City of Tigard 90
Table 30: Residential Capacity Estimate on Vacant and Partially Vacant Land, City of
Tigard 91
Table 31: Comparison of Housing Need and Housing Capacity, City of Tigard 92
City of Tigard 1 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS v
Exhibit A
Chapter 1 .
Introduction
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Exhibit A
Definitions
Affordable Housing
The definition used throughout this analysis is congruent with the U.S Department of Housing
and Urban Development's definition of "affordable housing"as housing that costs no more than
30% of a household's total monthly gross income. For rental housing, the 30% amount would be
inclusive of any tenant-paid utility costs. For homeowners, the 30% amount would include the
mortgage payment, property taxes, homeowners insurance, and any homeowners' association
fees.
Data Sources
Decennial Census Data
Data collected by the Decennial Census for 2010 and 2000 is used in this Assessment (older
Census data is only used in conjunction with more recent data in order to illustrate trends). The
Decennial Census data is used by the U.S. Census Bureau to create several different datasets:
2010 and 2000 Census Summary File 1 (SF 1) - This dataset contains what is known as '100%
data," meaning that it contains the data collected from every household that participated in
the Census and is not based on a representative sample of the population. Though this
dataset is very broad in terms of coverage of the total population, it is limited in the depth
of the information collected. Basic characteristics such as age, sex, and race are collected,
but not more detailed information such as disability status, occupation, and income. The
statistics are available for a variety of geographic levels with most tables obtainable down
to the census tract or block group level.
2000 Census Summary File 3 (SF 3) - Containing sample data from approximately one in
every six U.S. households, this dataset is compiled from respondents who received the "long
form" Census survey. This comprehensive and highly detailed dataset contains information
on such topics as ancestry, level of education, occupation, commute time to work, and home
value. The SF 3 dataset was discontinued for the 2010 Census, but many of the variables
from SF 3 are included in the American Community Survey.
American Community Survey (ACS)
The American Community Survey is an ongoing statistical survey that samples a small
percentage of the U.S. population every year, thus providing communities with more current
population and housing data throughout the 10 years between censuses. This approach trades
the accuracy of the Decennial Census Data for the relative immediacy of continuously polled
data from every year. ACS data is compiled from an annual sample of approximately 3 million
addresses rather than an actual count (like the Decennial Census's SF 1 data) and therefore is
susceptible to sampling errors. This data is released in two different formats: single-year
estimates and multi-year estimates.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 3
Exhibit A
ACS Multi-Year Estimates - More current than Census 2010 data, this dataset is one of the
most frequently used. Because sampling error is reduced when estimates are collected over
a longer period of time, 5-year estimates will be more accurate (but less recent) than 1-year
estimates. The 2014-2018 ACS 5-year estimates are used most often in this HAP.
Comprehensive Housing Affordability Strategy (CHAS)
CHAS data is a special tabulation of the U.S. Census Bureau's American Community Survey
(ACS) that is largely not available through standard Census products. The special dataset
provides counts of the number of households with a variety of housing needs, in a range of
income brackets, and for different household types of particular interest to planners and policy
makers. The most recent available CHAS data is based on 2013-2017 American Community
Survey 5-year estimates.
4 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Chapter 2 :
Community In gut
Exhibit A
Tigard residents and employees have a wide range of housing needs and preferences that must
be achieved for housing planning efforts to succeed. To gather community perceptions about
housing preferences and residents' ideas for the future of Tigard, the Planning Team conducted
an online survey open to the general public and engaged a Community Advisory Committee to
provide feedback during development of the Housing Needs Analysis (HNA) and Housing
Market Analysis (HMA). Additionally, the Planning Team held a Spanish language focus group
to gather input from Spanish-speaking residents. In total, over 150 people participated. This
section summarizes feedback received from Tigard residents and employees through each of
these methods. Additional input from interviews with housing industry stakeholders is included
in the Housing Market Analysis portion of this report.
Housing Survey
A public survey, "What Makes A Great
Neighborhood," was available on the Engage Tigard I ..
website (enaaae.tiaard-or.aov/rt2) from mid- -
November through the end of December 2020. The r
25-question survey focused on participants' views ., `���
on housing, transportation, and businesses that they
would like to see in their neighborhoods. Housing 4111
survey questions were also available in
-11
Spanish. A total of 139 responses were E
received. This section shares key findings, Imo_ terra'=
with complete survey results available in =1"
an appendix to this report. -
Table 1: Survey Participant Demographics
Participants Living • 96%of survey respondents live in Tigard.
and Working in
Tigard • 40%of respondents work in Tigard.
• Participants came from all areas of Tigard. Most common neighborhoods are Bull
Mountain, Durham Road, Southview,Cook Park,Greenburg Road,and
Summerlake/Scholls.
Tenure and • 80%of respondents own their homes.
Homeownership
• 14%of respondents rent their homes.
• 5%live with friends or relatives or in another housing situation.
Age • About one-half of survey respondents (52%) are between the ages of 30 and 49.
• Seniors (over age 60) make up one-quarter of respondents (26%).
6 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Income • A variety of income groups were represented among survey participants.
• About 18%of survey takers have incomes under$50,000 and 25%have incomes
between $50,000 and $74,999.
• Higher incomes groups make up over one-half of participants: 29%between $100,000
and $149,999 and $27%over$200,000.
Race and Ethnicity • The majority of survey participants are white (82%).
• Asian and Hispanic or Latinx respondents each make up 6%of survey takers.
• Native American and Black or African American participants make up the smallest
shares (3%and 1%, respectively).
Perspectives on Housing Affordability
One survey question asked respondents to rank their level of agreement with a series of
statements about housing affordability in Tigard. Responses are displayed in Figure 1, Figure 2,
and Figure 3,
About 63% of participants say they "strongly agree" or ievv4 rat agree' that Tigard needs
greater variety of housing types and prices. About one-in-six re�Nvi k_Itnts (15%) "somewhat
disagree" or"strongly disagree" that Tigard needs more housing variety. A roughly similar share
of participants "strongly agree" or vvi agree" that housing affordability is an important
issue in Tigard (60%). However, there is more disagreement regarding this statement: 21% of
respondents "somewhat" or "strongly disagree."
Considering several different household compositions, respondents were asked to identify
whether they believe each can find housing that they can afford in Tigard. Survey takers
described single people as the group most likely to have difficulty affording housing. About 54%
of respondents "strongly disagree" or "somewhat disagree" that single people can afford
housing in Tigard, and less than one-quarter agreed. Young families are also seen by a
substantial portion of respondents as having difficulty affording homes in Tigard. About 46%
"strongly disagree" or "somewhat disagree" that young familiLai aMIL,r u to live, compared to
35% who "strongly" or "somewhat agree."
Survey takers are considerably more likely to agree that seniors and people who work in Tigard
can afford to live there. When asked if they agree or disagree that seniors can afford to live in
Tigard, responses are roughly evenly split: about 35% "somewhat" or "strongly disagree," and
30% "somewhat" or strongly agree." People working in Tigard are most likely to be seen as able
to afford housing there: 38% of survey takers "somewhat" or "strongly agree" that Tigard
employees can afford to live there, compared to 31%that "somewhat" or "strongly disagree."
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 7
Exhibit A
Figure 1: Housing Diversity and Affordability Statements
63%somewhat or strongly agree
A
Tigard needs greater variety of housing in 11111.11.11111.11
terms of housing types and prices.
60%somewhat or strongly agree
Lack of affordable housing is an Important
issue in Tigard.
(1% 20% 40% I+0% 80% 100%
Share of Survey Takers
■Strongly Disagree 1 Somewhat disagree Neither Agree nor Disagree
Somewhat Agree 1 Strongly Agree
Figure 2: Housing Affordability for Families and Single People
46%somewhat or strongly disagree
A
Young families can find housing they can afford
in Tigard.
55%somewhat or strongly disagree
A
Single people can find housing they can afford in
Tigard.
It I
0% 20% 40% 60% 80% 100%
Share of Survey Takers
Figure 3: Housing Affordability for Seniors and People who Work in Tigard
31%somewhat or strongly disagree 38%somewhat or strongly agree
People who work In Tigard can find housing they
can afford here.
. BEI
35%somewhat or strongly disagree 30%somewhat or strongly agree
Seniors can find housing they can afford in Tigard. iT1
0% 20% 40% 60% 80% 100%
Share of Survey Takers
8 HOUSING NEEDS ANALYSIS & HOUSING MARKET ANALYSIS 1 City of Tigard
Exhibit A
Perspectives on Desired Housing Types
What type of living
Survey questions also asked participants to identify situation would you prefer?
characteristics that they consider when looking for
housing. The vast majority would prefer to own their 930/0
homes (93%), which may reflect both a preference for
homeownership and a predominance of homeowners would prefer to OWn the place
among survey respondents (80% of participants already
where they live
own their homes).
In identifying housing sizes that are potentially 6)%
undersupplied in Tigard, there was little consensus would prefer to rent the place
among respondents. A roughly equivalent share of
participants (28-30%) felt that there are shortages of where they live
two-, three-, or four-bedroom units in Tigard. Smaller
housing (studios and one-bedroom units) was less likely to be identified as undersupplied
(selected by 7% and 19% of respondents, respectively). Further, about one-quarter of
respondents did not know. Note that percentages total to over 100% because respondents were
asked to select up to two responses.
In thinking about features and amenities that are important in selecting a home, the top response
was safe streets and sidewalks, identified as "extremely important" or "very important" by 86%
of survey takers. Size of the home, dedicated garage or off-street parking, and front or back
yards were all identified as "extremely" or "very important" by more than 80% of participants.
Figure 4: What Features and Amenities are Most Important to You? Top Responses
Safe streets and sidewalks
Size of home
Off-street parking
Front or back yards
Trees and natural features
Price of home
Parks, open space, or trails
Age or overall condition of home
0 20 40 60 80 100 120
Number of Survey Takers who Identified Features as"Extremely Important"or"Very Important"
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 9
Exhibit A
Finally, respondents were asked what makes it difficult to find housing in Tigard.
Overwhelmingly, the most common response was cost, identified by 55% of respondents. Not
enough for-sale housing and not enough single-story homes that are accessible for seniors and
people with disabilities were other top responses, selected by 29% and 20% of participants,
respectively.
Figure 5: Which Factors Make it Difficult to Find Housing in Tigard?
Cost is too expensive
Not enough housing for sale
Not enough single-story accessible homes
Not enough housing with desired features/amenities
Not enough small homes
Not enough housing for rent
Not enough large homes
Distance from work,school or other destinations
0 10 20 30 40 50 60 70 80
Number of Survey Takers
Community Advisory Committee
In addition to gathering perspectives from the general public, a 14-member Community Advisory
Committee also guided work on the Housing Needs Analysis/Housing Market Analysis. Five
meetings were held from October 2020 through March 2021. Discussion topics at the CAC
meetings included existing housing supply, housing affordability needs, community input
received, desired housing types and concepts, and recommendations for achieving housing
goals. Ideas shared by CAC members are summarized below.
Housing Types & Sizes
• A crucial component of residential planning should be a focus on greater variety in housing
types and sizes to serve a wider array of needs in the community. Tigard needs a housing
supply that makes it accessible to all.
• New construction leans toward larger homes, but there is a need for smaller housing as well.
Areas that develop should include a mix with middle housing options (cottage clusters,
rowhouses, accessory dwelling units, multi-plex units) and not be predominately single-
family detached homes.
10 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
• Many of these housing/architectural types are time-tested and have the ability to serve
multiple population groups over time.
• More one-story/ranch-style homes would serve aging Tigard residents or seniors who would
like to locate in the area.
• Duplexes offer good opportunities for multi-generational households to live in the same
building. They also tend to be smaller and more affordable units.
• Apartments of a variety of sizes are needed.
Housing Locations
• Considerably more apartments would be appropriate and needed downtown and in the
Tigard Triangle where there is walkability, transit opportunity, and vibrancy.
• Older neighborhoods that do not have sidewalks may be less attractive than areas with
greater walkability.
• There is a need for housing and community/civic centers to be co-located, improving
walkability and safety.
• Opportunities for multi-family housing near natural areas are good and could offer
apartment dwellers a "backyard."
• To the extent possible, each area of the city should have a variety of housing types rather
than having, for example, all low-density development in area. Variety is desired throughout
the city and throughout new development areas.
Affordability & Equity
• Improving affordability of housing should be a key goal for the city. New development
should represent a mix of prices and not be focused on luxury units.
• Apartments that are affordable to lower-income families with children and have amenities
to serve them are needed in Tigard.
• Renters are vulnerable to displacement as prices increases.
• Many young adults are 'priced out' of Tigard or continue living with their parents because
housing is too expensive.
• Survey results indicating that seniors can afford to live in Tigard is surprising. In CAC
members experience, seniors face difficulty finding an affordable place to live.
• Among households that look for larger homes are many immigrant families that rely on
communal living styles.
• Low- and moderate-income households and people of color need to be heard as part of the
planning and decision-making process.
• Homeowners Associations (HOAs) can present barriers to some types of housing
development.
• Community Land Trusts (CLTs) and cooperatives are needed to establish more permanent
affordable housing in Tigard.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 11
Exhibit A
Spanish Language Focus Group
In January, the City of Tigard and the Planning Team held a virtual focus group for Spanish
speakers. Participants were asked to discuss needs in the three key topic areas of housing,
transportation, and commercial areas, and to share ideas about what makes a neighborhood
great. Discussion themes related to housing are provided below:
• Affordable Housing
o Rent is very expensive. It is difficult to find lower cost housing.
o Sales prices are also very high. Even though people may be interested in buying a
home, the prices are prohibitive.
o There is a concern that new home construction may replace smaller, more affordable
homes with costlier housing.
• Tenant Advocacy
o Landlords/rental housing owners raise rents but do not respond to tenant needs.
o There is a need for representatives who can advocate for people having issues with
their landlord.
• Cost of Living
o Cost of living has increased, particularly in the last two years. Prices have gone up
while minimum wage remained the same.
• Walkability
o Walkability is important, particularly to grocery stores, banks, and health-care
facilities that serve low- and moderate-income households. Residents should be able
to access these by walking from home rather than having to take a bus or go out of
town.
12 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Chapter 3 :
Demographic Trends
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Exhibit A
Population Growth
The city of Tigard's population has grown rapidly in recent years. As of 2019, the city's
population was 53,450, representing an 11.1% increase from its 2010 population of 48,090 and
an average annual growth rate of 1.2% for 2010 to 2019 (see Table 2 and Figure 6). The city
added 5,360 residents over this time period,an average of about 596 residents per year. Tigard's
population grew at a slower rate (1.2%) than that of Washington County (1.6% average annual
growth rate) and the Portland-Vancouver-Hillsboro metropolitan area (2.5%), but slightly faster
than that of the state of Oregon (1.1% average annual growth rate).
Table 2: Population Growth, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2010-2019
YEAR CITY OF WASHINGTON PORTLAND OREGON
TIGARD COUNTY MSA 2040
2010 48,090 531,070 2,230,578 3,837,300
2015 49,280 570,510 2,364,954 4,013,845
2016 49,745 583,595 2,409,884 4,076,350
2017 50,985 595,860 2,454,774 4,141,100
2018 52,785 606,280 2,491,885 4,195,300
2019 53,450 613,410 2,522,223 4,236,400
Population Growth Rate
Population Growth Rate 2010- 2019 11.1% 15.5% 13.1% 10.4%
Average Annual Growth Rate 2010 - 2019 1.2% 1.6% 2.5% 1.1%
Source: Portland State University Center for Population Research, 2020
14 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 6: Population Growth, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2010-2019
4,000.000
3,540,400 Ilia
3,00 0.0 00
O• 2,500,400
go 2230.57
2,000.0 00
a
1,500.000
1,000.4-00
500.000
0 .. -
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Yaar
•Cale of Tigard i Portland MSA -xitA m,irv: 12..4.11rWry
epulllkm Rtcareh'Lea.r Aprnb }11114
Washington County E Gregor Mil Arnim!PrPulni'or'a.m.1 rib+,
The city of Tigard was home to an estimated 21,016 households from 2014-2018 according to
American Community Survey 5-year estimates, an increase of 1,972 households or 10.4% from
the 2006-2010 estimates (see Figure 7 and Figure 8). During this period, the city added
households at a faster rate than Washington County (which experienced a 10.2% increase in
households), the Portland-Vancouver-Hillsboro metropolitan area (8.8% increase), and the state
of Oregon (6.2% increase).
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 15
Exhibit A
Figure 7: Number of Households, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2006-2010 and 2014-2018
City of Tigard Washington Portland MSA Oregon
County
1,600000 1,591,838
1499,267
1.400,000
1.204,400
O
1.000.000 925.531
O
853,848
O 1304,000
C
A
500,440
z
400,000
18E,433 16,5O7
300.000 �r
19,044 21,{}f5
2010 2018 2010 2018 2010 2018 2010 2018
sir ArtErr m;.umrun,i tir ur L ti rar Lrv+r+ra 2013u.:1:411 mei:a1a.]0,.
Figure 8: Households Growth Rate, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2006-2010 to 2014-2018
r%
p 10,4% 10_2%
p 1011
a% 8.89E
I"
Q .
0
X e 7%
o 6%
Vs,
2• a%
C
L
3%
2
lr 2%
▪ 1.51CIL 0%
CEty 6r TIgard Washington Portland MSA Dtegsan
CSU rtty
Percent Growth{2010.201/3)
OAF ,ror.ArMWrtrl LOnr•uhl.au•rp
6�u 10�b 5•Saw E r4lminr,Hear MID w2 70H idle
16 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
The city of Tigard has the smallest average household size (number of persons per household)
of the four geographies, at 2.47 people per household on average, slightly lower than the state
average of 2.51. Washington County has the largest average household size of the geographies
at 2.66 people per household, on average.
Figure 9: Average Household Size, City of Tigard, Washington County, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2014-2018
2,8
2,66
2-6 2.57
247 2,51
2 2.4
0. 2.2
O
2.0
`m
E 1.8
• 16
� 1,4
1.2
1.0
0,8
06
> 0.4
0.2
Cry of Tigard Washington Portland MSA Oregon
County
Vats kwre. +^CaRamel7 name.'S-Yaae FiU�n_?074•!474
An estimated 60.6% of households in Tigard (12,742 households) are owner-occupied, while
39.4% are renter-occupied (8,274 households) (see Figure 10). About 63.6% of all households
have two people or less, and 80.2% have 3 people or less. About 19.8% of households have four
or more people, and 6.2% have five or more people. Renter-occupied households are more likely
than owner-occupied households to be one-person households (34.9%of renter households and
20.1% of owner households), while owner-occupied households are more likely to be 2-person
households (41.0% of owner households and 32.4% of renter households) and households with
four or more people (22.7% of owner households and 15.3% of renter households). Two-person
households are the most common household size for owners (5,229 owner-occupied
households), while 1-person households are most common for renters (2,889 renter-occupied
households).
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 17
Exhibit A
Figure 10: Households by household size, City of Tigard, 2014-2018
1-pers•on 2-pC54P 3-patron 4-rwson S-�}OFS6+1 6 pOF5uh 7 oF F71oF0
O
PIOLnehoid household household 1lousehoid household hou5eho[d pe+s4n
hum:Weld
5229
5.000
t 4,000
S• 3,000
O
2,562 ,2
2,562
MI ! fliI6
2.002
2.000
• 1,000
■ • G# 41 ma'kV LJ ULFl 0 GF0 4G 0 0 cc 0 ac
Hurrither Households Dao 5e.rco:American inmmunTorsdJnrR
38 111111111 5,22g S.'Wu..EtirIMscNI470G1-91:119
Demographic Overview
Age
Composition of the population by age group varies slightly throughout the region and state.
Tigard, Washington County, and the Portland-Vancouver Hillsboro metropolitan area have
slightly lower percentages of residents aged 60 and over than the state of Oregon as a whole,
and the city of Tigard has the highest proportion of residents aged 30 to 39 of the four
geographies (16.3% of all residents) (see Figure 11). An estimated 23.9% of Tigard residents are
aged 19 and under, about 42.7% are aged 20 to 49, about 33.4% are aged 50 and above. An
estimated 20.6% of Tigard residents are aged 60 and above.
18 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 11: Percent of Population by Age Group, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018
0. 100%
2
U 50%
4 SO%
• 709 '2 R•..
ro 1.1 2%
n 60% I'.• . S2+;',.
0
a. 5
O .
w 40%
0, 3U96
Pik •
• 10%;
ir
094
City of Tigard Washington Portland MSA Oregon
County
14 and under a to g ■60 to 54
E i15to19 ■40to49 65 and over
■20 to 29 50 t0 59 OMR Saari,Amsruun[ansnur of
Sp.!,5 I*EiLMi.r.a 101474'D
The composition of the city's population by age has shifted since 2010, with much of the growth
concentrated in upper age categories (see Figure 12). The city's population grew by 5.076 from
2010 to 2018, including increases in the population aged 65 and over of 2,660 (a 53.6% increase)
and in the population aged 60 to 64 of 1,233 (a 63.7% increase). The city also experienced
increases in populations aged 20 to 29 (16.3%) and 30 to 39 (19.9%), and a slight increase in the
population 14 and under (3.9%) over the time period. It experienced decreases in populations
aged 15 to 19, 40 to 49, and 50 to 59.
Similarly, residents aged 40 to 59 and 19 and under declined as a share of the city's population
over the time period, while residents aged 20 to 39 and aged 60 and above increased in shares
of the city's population.
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 19
Exhibit A
Figure 12: Population by Age Group, City of Tigard, 2006-2010 and 2014-2018
50,000
45,000
+10,000
35,000
Age Group
14 and under
:.
30,000 a 15 to 19
'9r Or 20 to 29
ID 30 to 39
O.0
25,000 ■40 to 49
■50to59
20,000 •60 to 64
• 65 and over
15,000 6369
10,000 3213
5,000 9,260 9,624
0 =
2010 2010
6x.;nut[ Aja-aL V${Ir4i) .r„I Eikiin.idi,M OE 200.ra 2G11
Race and Ethnicity
White residents make up the majority (75.7%) of Tigard's population (see Figure 13). Hispanic
residents (of any race), Asian residents, and residents of two or more races constitute the next
most common races and ethnicities, comprising 10.7%, 7.1%, and 3.8% of the city's population,
respectively. White residents make up a higher proportion of Tigard's population than that of
Washington County and the Portland-Vancouver-Hillsboro metropolitan area, while Hispanic
and Black residents comprise lower percentages of the population in Tigard than in the county,
region, and state.
20 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 13: Percent of Population by Race and Ethnicity, City of Tigard, Washington County,
and Portland-Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018
0
— 1111
�o�b
.10W
•
is s�,s
a ao•. f• 1t-a%
,15
Jn Race1 thnicEt]�
C
d
0 N'Wh}ta ons
a. 60:0 lb FFlbuamlc{LX1In0[or any race)
i4 •Aslan la
an
tp TOM Of MKrte raC9d
• 50% •Block or African Amancan alum.
I-' NatIYtt I aIidn.i Ulhor Pec.IdlahrJcr e4rrra
,4
5, c.
nthut racy along
o ■Jkm4c
orar I nW dI nislrs Neilrc Wane
z 40%
CI
2
�V
N
}
- 20%
7 1036
0%
City Qf Washington Portland Oregon
Tigard County PISA
Qirrt Sinnc. hnierkin COOn-hurvey 5iiv.y 5-1'rui E-.rinue.R 1.:O1H
Tigard's population increased by an estimated 10.8% between the 2006-2010 and 2014-2018
American Community survey five-year estimates (see Figure 14). Population growth has been
driven by increases in the numbers of white residents (an increase of 3,981 residents), Asian
residents (742), and residents of two or more races (520). The populations of residents of some
other race and American Indian and Alaska Native residents grew at the highest rates (384.6%
and 184.7%). although their shares of the city's population remain small. The populations of
Hispanic and Latino residents (of any race) and Native Hawaiian and other Pacific Islander
residents declined during the time period, both in numbers and as shares of the city's total
population.
City of Tigard 1 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 21
Exhibit A
Figure 14: Population by Race and Ethnicity, City of Tigard, 2006-2010 and 2014-2018
50,000
1,7
45.000
3.002 5,622
40.000
5.972
35,1300 Race! Ettini Mty
0 White alone
0 Hispanic ar Latino for any race)
30 000i Asann hhbAtr
Two or more races
■Black or African American alone
0 25000 O NatiYe HawaRarklOChiar Pao,islander alone
SGm4 other race al#h4
!Arno- an irtdlan and Alaska Native alone
20,000
35.1536
15,000
10.000
5.000
2010 2016
nut.$aurcr_Anrric.Community$urVl5''S-Year Eutlmck o_Xill?OId
Language
The majority of Tigard residents aged five years and over (81.5%) speak only English at home,
while smaller percentages speak Spanish (7.5%), Asian/Pacific island languages (5.9%), other
Indo-European languages (3.9%),and other languages (1.2%) (see Figure 15). Residents of Tigard
are more likely to speak languages other than English at home (18.5%) than those living in the
state of Oregon as a whole (15.3%), but less likely than residents of Washington County as a
whole, 24.8% of whom speak a language other than English at home.
22 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 15: Percent of Population by Language Spoken at Home (Population 5 Years and
Over), City of Tigard, Washington County, Portland-Vancouver-Hillsboro MSA, and state of
Oregon, 2014-2018
au.
100%
9 56 $ 6 £5.7% 4.796
7,59E 8,4%
>, 80% 115%
O 70%
ro
O.
60%
0
n.
50%
•0
c .40% •
kmkm
0. 30%
7, 20%
e 10%
! 0%
City of Tigard Washington Portland N1SA Oregon
County
Languages Spoken at Home (Population aged 5 years and over)
•English Drily
e Spanish
■Aslan and Pacific Island Languages
Other Indo-European Languages IJaka Sai.rc■. GwnmunikY Sur..y
Other Languages 5-Vtuar EsUrriztasr]D1.11-20111
An estimated 811 households in Tigard have limited English proficiency (3.9% of all households
in Tigard) (see
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 23
Exhibit A
Figure 16). An estimated 343 of these households with limited English proficiency (1.6% of all
households) speak Spanish, and an estimated 286 of the households speak Asian and Pacific
island languages (1.4% of all households). The percentage of households with limited English
proficiency in Tigard (3.9%) is higher than that of both the Portland-Vancouver-Hillsboro
metropolitan area (3.2%) and the state of Oregon (2.6%), and slightly lower than that of
Washington County (4.0%).
24 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 16: Percent Limited English-Speaking Households, City of Tigard, Portland-Vancouver-
Hillsboro MSA, and state of Oregon, 2014-2018
vt 4
0:2%,
0
0-6%
0 0.. 0.1%
0
r
> •,
0
2
uu
0%J
City of Tigard Washington Partiand MSA Oregon
County
Languages Spoken in Limited English-Speakang Households
spanksh
IN Aslan and Pacific island Languages
Other Indo-European Languages Darn 9owYe:Armatican Community Surer
Other Languages r-' Ir Estlrnoirs.2014-2010
Place of Birth
An estimated 7,188 Tigard residents (13.7% of all residents) are foreign-born. The most common
places of birth for foreign-born residents in the city are Mexico (1,596 residents), Vietnam (951),
the Philippines (448), Korea (441), Canada (259), China (excluding Hong Kong) (253), India
(246), or Iran (207).
By region, the highest percentages of foreign-born residents in the city were born in Central
America (35.4%), south eastern Asia (17.9%), eastern Asia (9.9%), and eastern Europe (7.3%).
Relative to the state of Oregon as a whole, lower percentages of foreign-born residents in the
city, county, and region, were born in Central America. Residents born in south eastern Asia,
South America, northern America, northern Europe, Northern Africa, and Oceania make up
larger percentages of the foreign-born population in Tigard than in the county, region, and state.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 25
Exhibit A
Income
Relative to households in the region and state, those in the city of Tigard and Washington
County tend to have higher incomes (see Figure 17). More than one third of households in both
Tigard (36.5%) and Washington County (37.5%) earn $100,000 or more per year, higher
proportions than in the Portland-Vancouver-Hillsboro metropolitan area (33.3%) and the state
of Oregon (26.0%). As estimated 22.5%of households in Tigard and 19.8% in Washington County
earn $35,000 or less, lower proportions than in the region (23.5%) and state (29.4%). Although
a lower proportion than in region and state, significant shares of households in the city (10.2%)
and county (9.0%) earn $20,000 or less.
Figure 17: Population by Income Group, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018
t00%
1.1 11111
• 90%
0
y 14.5%
17.7%
• 70%
z
14 6096 1399E Household Income
o 13.9% 39,999 ar Los
•510,000 To 520,000
15 50% 1B.4i�& $20,000 To 335,000
�+ III 535.000 To 549,999
�$50,Oo0 To $74,919
u 4% • . ■575.000 To 589,999
13.0% •'100,040 To$149,999
•$150,000 Or Moro
> 30% •
11,1
(15
• 20% 11.896
z 10.7%
10%
•
0% •1 i.;.
City of Washington Portland Oregon
Tigard County MSA
DAIS LauliA.American tomrn„Nty'Kwr •,'reem.2sienNetes,gP14.1d18
Because higher percentages of households in Tigard and Washington County fall in the upper
income categories, the median household incomes in these areas ($75,795 and $78,010,
respectively) are higher than those of both the Portland-Vancouver-Hillsboro metropolitan area
and the state ($70,724 and $59,393, respectively, see Figure 18).
26 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 18: Median Household Income, City of Tigard, Washington County, Portland-
Vancouver-Hillsboro MSA, and state of Oregon, 2014-2018
$80,000 X75,795 $78,010
$70,724
$70.000
$5.9,393
g $60.000
0
u
c
S50,000
0
$40.000
0
c
$30,000
$20,000
$10,000
so
City of Tigard Washington Portland MSA Oregon
M,�..,t[�� iU 4,,. County
at.cl� f-� + [� �f4C r759
Eike 5 LL .Amehton Caihmunl!Y
$53,393 $78.010 survey S-Yaw Fiurnito.P014-7016
An estimated 53.1% of all households in Tigard have incomes greater than the HUD Area Median
Family Income (HAMFI), while the other 46.9%of households have incomes below this level (see
Figure 19). Renter households in the city tend to have lower incomes than owner households,
indicating that they are more likely to experience housing cost burdens. An estimated 37.7% of
renter households have incomes at or below 50% HAMFI, and 25.0% have incomes between
50% and 80% HAMFI. In contrast,just 9.7% of owner households have incomes at or below 50%
HAMFI, and 10.7% have incomes between 50% and 80% HAMFI.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 27
Exhibit A
Figure 19: Percentages of Owner and Rental Households by Percent HUD Area Median
Family Income, City of Tigard, 2013-2017
104%
0
u so%
60%
13 5#.1%
70% 11.3u6
4
I
15 50% S.CY
• 40%
ar▪ 30% 16.4% 14.9%
8_x%
ego 20%
10 7%
E10%
41
All Households Owner Households Renter Households
Household Income
•Household Income<2 30%HAMFF
•Household income x30%to <•=50% HAMFI
I1I Heuseh41d Income >50%tO c=$0% HAMFI
•Household Income X8096 to‹'100%HAMFI o.tp Sm.....HODCwhi.t. r.Nn.NIw
•Household Income x100% HAMFI + ti.oHlrrsoennKA aru.u,za+.101,
Most households in Tigard own their homes (12,270 households, or 60.1% of all households),
while a lower proportion are renters (8,150 households, or 39.9%) (see Figure 20). Renters
outnumber owners in the lower income categories, while homeowners are more likely to fall in
the higher income categories and, in particular, to earn more than 100% HAMFI. Slightly more
than four times as many owner households as renter households earn 100% HAMFI (8,730 and
2,115 households, respectively). Renter households earning less than 30% HAMFI, between 30%
and 50% HAMFI, and between 50% and 80% HAMFI (1,445, 1,625, and 2,040 households,
respectively) outnumber owners in those categories (525, 670, and 1,315 households,
respectively).
28 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 20: Numbers of Owner and Rental Households by Percent of HUD Area Median
Family Income, City of Tigard, 2013-2017
20.000
19.000
16,000
• 14.000
O• 12,000
10.000
6.000 1.955 H.?hU
Ir
Z 6,000 3;355
4.000 Z040.
1;030
2,000 1315
All Households Owner Households Renter Households
Household Income
▪Household Income<= 30%HAM FI
■HousAhold Meow>30%to <m50% HAMFI
Household Income>50%to =90% HAMFI
•Household IncoMe>80%to<=100% RAMF1 Lai,Saar[*HUD Ca okl:IJti.faaalny
•HO1 Ehi d IncOm2>•100% HAMFI Arrorde&roiyiiraohyy 40.0.6.1 dam.341-2417
HLJD's categorizations of households by income level in the previous graphs take into
consideration differences in household size to reflect differences in living expenses by household
size. Figure 21 shows the differences in income limits by family size for households to be
classified as earning less than 30%, 50%, and 80% HAMFI in Washington County. Notably,
households with more members may earn significantly more than smaller households and still
be classified in the same income categories. For example, a family of six may earn up to $53,450
and be categorized as earning below 50% HAMFI, while a family of two would need to earn
below $36,850 to be in that category. Similarly, a one-person household with an income of
$50,000 would be considered just below 80% HAMFI, while a five-person household at that
income level would fall just above 50% HAMFI. These income categories show that households
at a wide range of income levels earn below 30% and up to 50% or 80% HAMFI.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 29
Exhibit A
Figure 21: Income Limits by Household Size for Selected Percentages of HUD Area Median
Family Income, Washington County, 2020
Household Size
1•persor► w-}vers irk 3-person 4•Per.bn 5-person 6-person 7-person e•person
$120r000
$110.000
5100,000ta
x
▪ 90,000 0 g
c0ai
n
E 5&0,000 O N w
JNIrt 8
E 570,000 2R 1
69
m kik ok620 •,rnN9 ,
jIiIIi1
$10,000
so
M R 2 2 kf! 2 2 2 ,7 2 2 2 2 to M 2 m r' kir E M R W
Percent HUD Area Median family rr4come
ELFUS ire.:-...9r..1!4'.'.aim C.w*.t......:-,. ..Miir. 'LL i. }J a-:nr..,I.ImHA tilt ip••..Cs.wily.'l'
Economic Conditions and Trends
Current Workforce and Employment Trends
An estimated 46,804 jobs are based in the city of Tigard. Jobs in the sectors of retail trade;
administration/support, waste management, and remediation; construction; finance and
insurance; professional, scientific, and technical services; and accommodation and food services
make up more than two thirds of these jobs (66.9%, or an estimated 31,323 jobs) (see Figure
22). In addition to those top sectors, the healthcare and social assistance, wholesale trade,
manufacturing, and educational services sectors each provide between 1,800 and 3,000 jobs in
the city (see Figure 22). Of the 46,804 jobs located in Tigard, an estimated 43,960 (93.9%) are
workers' primary jobs,' indicating that some individuals working in the city hold multiple jobs.
1 A primary job is the highest paying job for an individual worker for the year.The count of primary jobs is
the same as the count of workers.
30 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 22: Number of Jobs by NAICS Industry Sector (All Jobs), City of Tigard, 2017
ftatall Trade 7,653
Admin./ upporl,Waste Management,&Remedial!On 7,Ml5
Construction 4,718
Finance&rid Insurance 4,784
Professional,Scientific,and Technical Services '4.177
kecortrnadation and Poo/StruiCeS 3,0513
Health Care and OdI Assistants 7947
Wholesale Trade -Z62I
Manuraeturing 2069
Educational Services 1.€378
IrirOrrnat Rn 1.435
Other Serwlces(excl. Public Administration) 1,352
Management or Companies and Enterpnsas 1045
Real Estate and Rental and Leasing 617
Public Administration.499
Tramp-ortatian and WafohousIng 1454
Arts,Entertainment,and Recreation 395
Utilities 115
Agriculture,FOreitry,Ashlrlg and Hunting 43
Mining,Quarrying,and 011 and Gas Extraction 2
0 2,000 4,000 6,000 8.000
Number of Jobs
Data Sadicic c.P iU #,TMCi{4 7017
While jobs in retail trade made up a high proportion of all jobs in the city in 2017, the share has
been declining over time. Jobs in retail trade declined as a percentage of all jobs from 18.6% in
2002 to 16.4% in 2017. During the same period, jobs in administration and support, waste
management, and remediation; construction; and healthcare and social assistance made up
increasing proportions of jobs in the city (see Figure 23). The professional, scientific, and
technical services and management of companies and enterprises sectors also increased as
shares of the city's jobs.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 31
Exhibit A
Figure 23: Jobs Located in the City of Tigard by NAICS Industry Sector, 2002, 2010, and
2017 (All Jobs)
100%
90% 3.5% 3,6%
'. 3.6%
4.6%
20% 5.2° 44% Industry Sector
yr
8:5% If Retail Trade
5.6% r Administration,Waste Management, Perrrediation
7.99 Construct fon
70•".' 8.5% 6.3% •Finance and Insurance
6_c g r Professional,Scientific,and Technical services
145 4.896 6.6% •Accommodation and Food Services
60% 5.996 Hea�1th Care and Social Assistance
c ■
6.396 Wholesale Trade
�
■Manufacturing
8,'4% •Educational Services
a 50°6 7.51/4 Information
cy 9.2% •Other Services(exciui Eng Public Administration)
1I 3q.5Pr marmagement bf CCmpanid-s and EfternrIss
40% 10,0% A Real Estate and Rental and Leasing
10.1'96 Public Adrninlstratioh
E 61% Transportation and Warehousing
r 7.7% .Arts, Lntertainment,and Recreation
U �C}.•fi g Utilities
9.6% 12.6% 15.B% .Agriculture.Forestry,Fishing and Hunting
Mining, 0-marrying.and Oil and Gas Extraction
20%
10%
18,16% 17.5%41 16.4%
% .11
2002 2010 2017 a,t,rSaiuite Crnsu4Onr OW%2002,2010,Mid 2017
While jobs in retail trade, administration, and construction have represented the largest shares
of jobs based in Tigard. the city's residents have tended to be employed in a different set of
sectors (see Figure 24). By 2010, healthcare and social assistance and retail trade had overtaken
manufacturing as residents' top sources of employment, and the healthcare sector continued to
grow as a share of resident employment through 2017. Retail trade continues to be the second
most common employment sector for Tigard residents.
From 2002 to 2017, healthcare and social assistance; management of companies and
enterprises; accommodation and food services; and professional, scientific, and technical
services saw the greatest increases as shares of jobs held by Tigard residents (3.6, 1.6, 1.4, and
1.3 percentage point increases, respectively), while manufacturing, wholesale trade, and finance
and insurance, saw the greatest declines (2.7, 1.6, and 1.5 percentage point declines,
respectively). Other industry sectors have remained relatively constant as shares of total jobs
held by Tigard residents, each increasing or declining as shares of jobs held by residents by less
than 1 percentage point.
32 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 1 City of Tigard
Exhibit A
The differences in industry sectors of jobs located in the city and jobs held by the city's residents
indicate high levels of commuting into and out of the city by workers and residents to access
employment.
Figure 24: Jobs Held by Tigard Residents by NAICS Industry Sector, 2002, 2010, and 2017
(All Jobs)
100%
90% 3.6% .
5.696 4.0% .
80'.,. Industry Sector
,n 4 4.0% 4. Health Care and Social Assistance
O 5,8% a Retail Trade
-1 70% ■Manufacturing
6,1% .4° MI Educational Services
,8 7.096 In Accommodation and Food Services
_,, 6096 6_3 7_4%7_�
•Professional,Scientific,and Technical Services
C 7 4% •Administration,Waste Management, Remediation
cl' IN Wholesale Trade
u 6.9% 76 6
■Finance and Insurance
O. 50% 6.,..:5% Construction
7% 8.3% Management of Companies and Enterprises
y6 .9% M,Other Services(excluding Public Administration)
in 40% II Public A tministratfon
11. 9.4% ■Information
E aTranspofatfon and Warehousing
M •Arts,Entertainment,and Recreation
30% 10,1% 9.196 •ileal Estate and Rental and Leasing
I1 Fi%, Agriculture,Forestry,Fishing and Hunting
iii UtflRies
20% Mining,Ouarrying,and Oil and Gas Extraction
ii 11.0% ,7%
10%
8_9% 11,Et% 12.3%
0%
2002 2010 2017 Data sem.:eihmti.OnThe+.a,2002,2010.4Ind 201r
City of Tigard 1 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 33
Exhibit A
Commuting Patterns
While an estimated 46,804 jobs are located within the city of Tigard,just 3,788 residents both
live and work in the city (8.1% of all workers employed in Tigard and 14.0% of all workers living
in the city). An estimated 43,016 of the city's jobs (91.9% of jobs based in Tigard) are held by
workers who are employed in Tigard but live outside of the city. At the same time, an estimated
23,311 of the 27,099 jobs held by Tigard residents (86.0% of jobs held by residents) are located
outside of the city (see Figure 25).
Figure 25: Commuting Patterns of Resident and Non-Resident Workers, City of Tigard, 2017
(All Jobs)
45,000
4 4.000
35.000
30,000
0
•Employed I i Tigard but LIvIng Outside
A 25,000 43,0115 Living in Tigard but Employed 01.1W is
IN Living and Erripioy din TEgard
2 ?0,000
15,000 - 23.511
10,000
5,000
ry
V
Living In Working in
Tigard Tigard
i.vu c ruL TheMan. t
While a high proportion of working residents hold jobs based outside of the city, most workers
living in Tigard have commutes of 10 miles or less (17,729 workers or 69.7% of all workers). An
estimated 21.7% of workers living in Tigard commute 10 to 24 miles, and 8.7% commute 25 miles
or more.
Commute distances vary only slightly by workers' wage levels. Workers with lower wages are
slightly more likely than higher-wage workers to commute more than 25 miles for their jobs
34 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
(10.0% of workers with monthly wages up to $1,250, 8.9% of workers with monthly wages of
$1,251 to $3,333, and 8.2% of workers with wages $3,333 and above). Workers in different wage
categories are about equally likely to commute less than 10 miles to work (69.4% of workers
with monthly wages up to $1,250, and 69.7% of workers with monthly wages of$1,251 to $3,333
or $3,333 and above).
Figure 26: Distance Traveled to Work by Wage, City of Tigard Residents (for Primary Jobs),
2017
14,000
15.004
12,000
11,000 3,050
` 10,000
▪ 9,000
0
8,000
o 1.000
1,?'a3
.0 6,000
E
• x,040 9.1526
4,000
3,000 757 5,55'3
2,000
1,000
0
Workers with Workers with Workers with
Monthly Wage Up Monthly Wage Monthly Wage
to $1,250 $3,251 to $3,333 $3,333 and Above
Distance Traveled to Work
f Lass than 10 miles i 25 to 50 mI4ee
10 to 24 miles a Greater than SO relies Gots So,,.s.Lam„OrillinMary�a F
Employment Projections
Total non-farm employment in the Portland Tri-County region (Clackamas, Multnomah, and
Washington Counties) is projected to grow from 1,068,100 to 1,181,300 from 2019 to 2029, an
increase of 113,200 jobs. The sectors of health care and social assistance (143,600 jobs projected
in 2029), manufacturing (111,800 jobs), local government (100,200 jobs), accommodation and
food services (98,800 jobs), retail trade (97,200 jobs), and professional and technical services
(80,900 jobs) are projected to continue providing the most jobs in the region (53.5% of all jobs
in 2029 among those sectors combined).
The sectors projected to add the most jobs by 2029 include health care and social assistance
(21,400 jobs), professional and technical services (13,600 jobs), and accommodation and food
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 35
Exhibit A
services (10,300 jobs). The management of companies and enterprises, professional and
technical services, and health care and social assistance sectors are projected to have the fastest
average annual growth rates during the time period (21.3%, 20.2%, and 17.5%, respectively, from
2019 to 2029).
Finance and insurance is the only sector expected to decline slightly in number of jobs over the
time period (a projected decrease of 0.3% or a loss of 100 jobs). Federal government, retail
trade, and manufacturing are the sectors projected to add jobs at the slowest rates (1.4%, 3.9%,
and 5.6%, respectively, from 2019 to 2029).
Figure 27: Projected Employment, Portland Tri-County Area, 2019 and 2029
t.200,000
1,100,000
1.000,000 44,100
47200 Employment Sector
9O0,000 40,500 -07 Oil Health earn Ord sDelal assistance
38,90f} 5_2,7C0 4 L Manufacturing
40AR) ■Local governmentf300,000 63,3[}
413,100 •Accommodation and food services
57,00a 63,900 Retail trade
m 700,000 Professional and technlcaI services
.0
57,400 0+4,000 •Self-ernployment
Administrative and waste services
Z• 600,004 3$,100 80,900 Construction
€.130() Wholesale trade
50O,OfJQ 5v0 ••Transportation,warehousing,and utilities
■Management of companies/enterprises
ar3, #Other services
• 400,000 99,$00 •
C k ■A
Real $ insurance
OttgliteAnd
rental end Faasing
■private ediiicational services
300,000 $4600 Ica dei ■Information
•Afti,enterr PrFrolent,and recreation
•Federal government
200,000 1TC11170
105,400U Natural recouresr�arnd mining
#State government
140,000 141}0
1Z3,2Cf
0
2019 2029 br a. r,Etaialaomilt
ce.dnnd Tweiv rro Inbuil"r ProlectlenL 20114'24314.
36 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Chapter 4 :
Housing Needs
Exhibit A
This section of the HNA examines housing need from two perspectives: first, existing housing
needed by Tigard households who face one or more housing problems such as affordability or
overcrowding; and second, projected housing need over the next 20 years.
Existing Housing Needs
Housing cost and condition are key components of housing need. Housing barriers may exist in
a jurisdiction when some groups have greater difficulty accessing housing in good condition
and that they can afford. To assess affordability and other types of housing needs, the U.S.
Department of Housing and Urban Development (HUD) defines four housing problems:
1. A household is cost burdened if monthly housing costs (including mortgage payments,
property taxes, insurance, and utilities for owners and rent and utilities for renters) exceed
30% of monthly income.
2. A household is overcrowded if there is more than one person per room, not including kitchen
or bathrooms.
3. A housing unit lacks complete kitchen facilities if it lacks one or more of the following:
cooking facilities, a refrigerator, or a sink with piped water.
4. A housing unit lacks complete plumbing facilities if it lacks one or more of the following: hot
and cold piped water, a flush toilet, or a bathtub or shower.
HUD also defines four severe housing problems, including a severe cost burden (more than 50%
of monthly housing income is spent on housing costs) and severe overcrowding (more than 1.5
people per room, not including kitchens or bathrooms). Additionally, HUD also considers lack of
complete kitchen facilities (as described above) and lack of complete plumbing facilities (also
as described above) as severe housing problems.
To assess housing need. HUD receives a special tabulation of data from the U.S.Census Bureau's
American Community Survey that is largely not available through standard Census products.
This data, known as Comprehensive Housing Affordability Strategy (CHAS) data, counts the
number of households that fit certain combinations of HUD-specified criteria, such as housing
needs by race and ethnicity.
In 2017 (the most recent year for which CHAS estimates are available), Tigard's median income
was $70,120.2 The median family income (MFI) for Washington County in that year was even
higher - $74,700.3 Using median family income, the table below uses CHAS data to show the
rate of housing problems based on household income.
In Tigard, nearly three-fourths (74%) of all homeowners earning less than 30% HAMFI have one
of the above-mentioned housing problems. These figures rise to 84% for renters at this income
2 2013-2017 ACS 5-Year Estimates, Table S1903
3 HUD.gov. "FY 2017 Income Limits Summary"
38 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
level. Households earning between 31%-60% HAMFI experience similar rates of housing
problems, which affect 71% of homeowners and 88% of renters. The rate at which housing
problems occur drops significantly as incomes rise. For households earning at least the city's
median income, no more than one-third (33%) of homeowners and 28% of renters experience
housing problems. The city's Cup i ii.,el,ensive Plan notes the need for less :).y , sive ownership
units and rental units, particularly for households spending more than 30%of their gross income
on housing costs.4 Targeted housing assistance, affordable housing preservation and other
resources are necessary to alleviate housing problems faced by the city's lowest income
residents. Furthermore, pandemic-related dips in regional employment most likely will
exacerbate housing problems, particularly cost burdens, for households earning less than 100%
HAMFI.
Table 3: Estimated Housing Needs by Income Group in Tigard, 2017
OWNER HOUSEHOLDS RENTER HOUSEHOLDS TOTAL HOUSEHOLDS
HOUSEHOLD WITH TOTAL SHARE WITH TOTAL SHARE WITH TOTAL SHARE
INCOME NEEDS WITH NEEDS WITH NEEDS WITH
NEEDS NEEDS NEEDS
0-30%AMI 390 525 74% 1,220 1,450 84% 1,610 1,975 82%
31-60%AMI 720 1,015 71% 2,240 2,540 88% 2,960 3,555 83%
61-80%AMI 560 965 58% 570 1,125 51% 1,130 2,090 54%
81-100%AMI 435 1,035 42% 195 925 21% 630 1,960 32%
101-120%AMI 335 1,030 33% 195 695 28% 530 1,725 31%
120-140%AMI 105 945 11% 60 435 14% 165 1,380 12%
Note:Area median income AMI")is calculated by the U.S. Department of Housing and Urban Development
(HUD) by household size.
Data Source: 2013-2017 Comprehensive Housing Affordability Strategy data,Table 11, Retrieved from
https://www.huduser.gov/portal/datasets/cp.html
Table 4 breaks housing needs down by type, showing that, overwhelmingly, the most common
issue is affordability (i.e., paying over 30% of income for housing). About 2,175 owners and 4,155
renters in Tigard spend above this level and,of those, 880 owners and 2,070 renters spend more
than one-half of income on housing.
4 City of Tigard Comprehensive Plan, p. 10-5
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 39
Exhibit A
Table 4: Estimated Housing Needs by Type in Tigard, 2017
OWNER HOUSEHOLDS RENTER HOUSEHOLDS TOTAL HOUSEHOLDS
Householder WITH TOTAL SHARE WITH TOTAL SHARE WITH TOTAL SHARE
Race and NEEDS WITH NEEDS WITH NEEDS WITH
NEEDS NEEDS NEEDS
Ethnicity
Non-Hispanic or
Non-Latino
White 2,270 10,500 21.6% 3,150 5,955 52.9% 5,420 16,455 32.9%
Black or African 14 68 20.6% 65 85 76.5% 79 153 51.6%
American
Asian or Pacific 215 935 23.0% 245 425 57.6% 460 1,360 33.8%
Islander
Native American 0 14 0.0% 14 80 18.8% 14 94 14.9%
or Alaska Native
Other or 49 269 18.2% 280 405 69.1% 329 674 48.8%
Multiple Races
Hispanic or 175 479 36.5% 824 1,204 68.4% 999 1,683 59.4%
Latino
OWNERS RENTERS TOTAL
HOUSING NEED HOUSE- SHARE OF HOUSE- SHARE OF HOUSE- SHARE OF
HOLDS TOTAL HOLDS TOTAL HOLDS TOTAL
Cost burden 2,715 22.1% 4,155 51.0% 6,870 33.6%
Severe cost burden 880 7.2% 2,070 25.4% 2,950 14.4%
Overcrowding 45 0.4% 580 7.1% 625 3.1%
Severe overcrowding 10 0.1% 250 3.1% 260 1.3%
Lacking complete facilities 15 0.1% 325 4.0% 340 1.7%
Total households with needs 2,723 22.2% 4,578 56.1% 7,301 35.8%
Total households 12,265 100.0% 8,154 100.0% 20,419 100.0%
Note: Households with a severe cost burden are a subset of households with a cost burden. Severely
overcrowded households are a subset of overcrowded households.The number of total needs (i.e., sum of
cost burdens, overcrowding, and lack of facilities) is greater than the total number of households with needs
because some households have more than one of the housing problems.
Data Source: 2013-2017 Comprehensive Housing Affordability Strategy data, Tables 1, 3, 8, and 10, Retrieved
from https://www.huduser.gov/portal/datasets/cp.html
HUD's Comprehensive Housing Affordability Strategy data also provides information about
housing needs by householder race and ethnicity.
40 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Table 5 shows data for Tigard as of 2017 (the most recent estimates available), which reveals
disparity in prevalence of housing needs. For homeowners, about 22.2% of households have one
OWNER HOUSEHOLDS RENTER HOUSEHOLDS TOTAL HOUSEHOLDS
HOUSEHOLDER
RACE AND WITH TOTAL SHARE WITH TOTAL SHARE WITH TOTAL SHARE
ETHNICITY NEEDS WITH NEEDS WITH NEEDS WITH
NEEDS NEEDS NEEDS
Non-Hispanic or
Non-Latino
White 2,270 10,500 21.6% 3,150 5,955 52.9% 5,420 16,455 32.9%
Black or African 14 68 20.6% 65 85 76.5% 79 153 51.6%
American
Asian or Pacific 215 935 23.0% 245 425 57.6% 460 1,360 33.8%
Islander
Native American 0 14 0.0% 14 80 18.8% 14 94 14.9%
or Alaska Native
Other or 49 269 18.2% 280 405 69.1% 329 674 48.8%
Multiple Races
Hispanic or 175 479 36.5% 824 1,204 68.4% 999 1,683 59.4%
Latino
of the four housing needs (cost burdens, overcrowding, or lack of complete plumbing or kitchen
facilities). For most groups, need levels range from around 18-23%. However, Hispanic or Latino
homeowners are considerably more likely to have a housing need (175 households or 36.5% of
the total).
For rental housing, disparities are more pronounced. Overall, about one-half of renters have a
housing need (56.1%) Looking at renters by race and ethnicity, two groups have housing needs
rates similar to the city average - white households (52.9%) and Asian or Pacific Islander
households (57.6%). Three groups have elevated need levels. Most notably, 76.5% of Black or
African American renters have one or more housing needs. Hispanic or Latino renters and
renters of other or multiple races also have higher incidence of housing needs (about 68-69%).
Further, Black or African American, Hispanic or Latino, and other or multiple race households
are also significantly less likely to own their homes than white and Asian households. According
to CHAS data, homeownership rates for the former groups range from 28.5% for Hispanic or
Latino households to 44.4% for Black or African American households. In contrast, about two-
thirds of white and Asian households own their homes (63.8% and 68.8%, respectively).
Table 5: Estimated Housing Needs by Race and Ethnicity, 2017
Data Source: 2013-2017 Comprehensive Housing Affordability Strategy data, Table 1, Retrieved from
https://www.huduser.gov/portal/datasets/cp.html
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 41
Exhibit A
Data regarding housing needs by race and ethnicity exemplify the intersection between housing
affordability and equity in Tigard. Expanded affordable housing options, including opportunities
for homeownership, are needed for the city to develop as a community for all. Additionally,
information about affordable housing and homeownership options must be communicated to
all residents and barriers that impact housing access for Black, Latino, and other households of
color addressed.
Housing Need Projections
This section focuses on housing need over the next 20 years based on household growth
forecasts in the city of Tigard and adjacent areas in urban unincorporated Washington County.
While the previous data discussed needs related to affordability and other housing issues, here
we turn to the need for development of new housing units through 2040.
Projections based on growth rely on Metro's 2045 Household Forecasts, which were adjusted
by the City of Tigard to more accurately account for recently-built, permitted, or anticipated
development.
Table 24 shows household growth forecasts for the Tigard Planning Area, including for the city
and for adjacent TAZs in unincorporated Washington County. As shown, adjusted household
forecasts indicate an additional 15,032 households living in the area over the next 20 years, or
an average annual growth rate of 2.8%.
Table 6: 2040 Household Growth Forecasts for the Tigard Planning Area
UNINCORPORATED TIGARD
CITY OF TIGARD WASHINGTON PLANNING AREA
COUNTY2
Household Estimate 2020 21,617 6,077 27,694
Household Forecast 20401 28,662 13,227 41,889
New Households (2020-2040) 7,045 7,150 14,195
1. Metro forecasts growth in Tigard from 21,617 households in 2020 to 30,423 households in 2045,
for an average annual growth rate of 1.6%. Metro forecasts growth in unincorporated Washington
County TAZs from 6,077 households in 2020 to 11,206 households in 2045,for an average annual
growth rate of 3.4%. These average annual growth rates were used to forecast households in each
area in 2040.
2. Includes TAZs 1003 and 1004 (River Terrace South and West),1140 (Washington Square Regional
Center),1005,1006,1011,1026,and 1034.
Household growth in the Tigard Planning Area does not translate to demand for new housing
units by a 1:1 ratio, as the market should include some share of vacant units to allow space for
moves. Table 7 shows the number of housing units forecast to be needed in the City of Tigard
and the Tigard Planning Area through 2040, assuming a 5% vacancy rate. Within the planning
area, an estimated 14,942 new housing units would be needed based on household growth, or
an annual average of 747 units per year. This figure includes 7,416 units based on household
42 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
growth generated by the city of Tigard and 7,526 units based on household growth generated
in unincorporated Washington County TAZs.
Table 7: Housing Units Needed Based on Growth in the Tigard Planning Area, 2020 to 2040
CITY OF UNINCORPORATED TIGARD
TIGARD WASHINGTON PLANNING AREA
COUNTY3
New Households (2020-2040)1 7,045 7,150 14,195
Assumed Vacancy Rate 5% 5% 5%
Housing Units Needed Based on Growth
7,416 7,526 14,942
(2020-2040)
Average Annual Housing Units Needed 371 376 747
Based on Growth (2020-2040)
1. Uses"Adjusted Household Forecast 2040."
2. From Regional Housing Needs Analysis. National ratio of housing units to households as of
2018 data.
3. Includes TAZs 1003 and 1004 (River Terrace South and West),1140 (Washington Square
Regional Center),1005,1006,1011,1026,and 1034.
In addition to housing need generated by population/household growth, ECONorthwest's
Regional Housing Needs Analysis included two other generators of demand. The first,
"underproduction," refers to existing housing deficits due to historic underproduction relative
to the amount of housing needed to accommodate the current population. Underproduction
has the effect of increasing prices, making it more difficult for lower income groups to find
suitable housing. The second, "housing for people experiencing homelessness," indicates the
number of units needed to house people experiencing homelessness who are not (and
historically have not been) included in demand generated by population and household growth.
The Regional Housing Needs Analysis estimates potential need for 2,445 new housing units in
Tigard due to underproduction and 439 new housing units due to homelessness, based on an
allocation of estimates at the regional level. While these figures are not included in the housing
need estimates carried through the remainder of this report, they indicate that additional
housing need may exist in Tigard and the metro Portland region beyond what is indicated by
population growth alone.
As Table 8 shows allocates projected housing need in the Tigard Planning Area by household
income, according to the current income distribution in the City of Tigard.
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 43
Exhibit A
Table 8: Total Housing Units Needed by Income Category in the Tigard Planning Area, 2020
to 2040
INCOME LEVEL UNINCORPORATED TIGARD
(MFI = MEDIAN FAMILY INCOME) CITY OF TIGARD W SHINGTON PLANNING SHARE
AREA
0-30% MFI 715 726 1,441 10%
30-50% MFI 833 846 1,679 11%
50-80% MFI 1,218 1,236 2,454 16%
80-120% MEI 1,338 1,358 2,696 18%
Over 120% MFI 3,311 3,360 6,672 45%
Total 7,416 7,526 14,942 100%
Shares 50% 50% 100% --
1. Based on the current income distribution in the city of Tigard from 2013-2017 CHAS data. In the metro
Portland area, 2020 MFI was$92,100. For a family of four,30%MFI was$27,650,50%MFI was$46,050,
80%MFI was$73,700, and 120%MFI was$110,520.
2. Includes TAZs 1003 and 1004 (River Terrace South and West),1140 (Washington Square Regional Center),
1005,1006,1011,1026,and 1034.
Housing need projections indicate that about one-quarter (21%) of new housing in the Tigard
Planning Area (3,120 units) should be affordable to households with incomes at or below 50%
of the median family income (or $46,050 for a family of four). About one-in-six units should be
affordable to households with incomes from 50-80% MFI and another one-in-six to middle
income households in the 80-120% MFI band. Housing need among higher income households
(120% MFI+) makes up about 45% of projected demand. Note that some of the housing that
fulfills need for units priced under 80% MFI may include market rate properties with demand-
side subsidies, such as tenant-based rental assistance/Housing Choice Vouchers applied.
The Housing Market Analysis that follows examines residential development trends in Tigard
and the metro Portland area to segment project housing need by unit type and anticipated
densities to compare with buildable land in Tigard.
44 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Chapter 5 :
Housing Maret
Analysis
Exhibit A
The Housing Market Analysis component of this report seeks to characterize the current for-
sale and rental market in the city of Tigard and neighboring areas, with particular attention to
affordable and "missing middle" housing types.
For this project, "missing middle" housing refers to the forms of housing that exist between
detached single-family homes on typical suburban lots and apartments within apartment
buildings. These forms include cottage clusters, courtyard units, quads, rowhouses, and ADUs,
which under Tigard's development code is inclusive of duplexes and triplexes. Beginning in 2013
with their previous Housing Needs Analysis, the City of Tigard explored these housing types
through their "Housing Options" planning efforts. In 2018, the City adopted code amendments
that legalized middle housing types in all residential zones.
This component also considers the affordability of housing in Tigard, as well as the supply of
publicly subsidized affordable housing in the city. As in the Housing Needs Analysis, we define
"affordable housing" as housing in which total costs for ownership or rental do not exceed 30%
of a household's income. Of particular interest to planners are affordable housing needs for low-
and middle-income households and, most specifically, households with incomes under 80% of
the area's median.
We begin with a general overview of the city's housing supply before moving into discussion of
development trends and middle and affordable housing. In addition to nationally and locally
available data, this analysis also makes use of input collected through the public survey
(discussed in Chapter 2) and interviews with affordable and market-rate housing developers
operating in Tigard and metro Portland.
Housing Supply Overview
As of 2018, the city of Tigard has an estimated 21,754 housing units, with a total of 21,016
households. Since the year 2000, the number of households in Tigard grew by 27%, while the
number of housing units increased at a slightly slower rate of 25%. Similar growth patterns
occurred in Washington County and the Portland Metropolitan Statistical Area (MSA), where
the number of households increased by 28-29% and the number of housing units increased by
27% and 24%, respectively, since 2000. Growth in the city, county, and MSA outpaced growth
across the state.
Note that in all four geographies, the ratio of households to number of housing units falls short
of the 1.14 housing production ratio recommended in the Regional Housing Needs Analysis to
account for vacancies/turnover, second homes, and seasonal or short-term rental housing. The
market is tightest at the metro level, where there are only 1.02 housing units per household. In
the city, county, and MSA, the ratio of housing units to households fell since 2000, indicating an
underproduction of housing that often puts upward pressure on rents and sales prices.
46 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Table 9: Housing Units and Household Growth from 2000 to 2014-2018
2000-2018
2000 2014-2018
PERCENT CHANGE
TOTAL HOUSE- TOTAL HOUSE- TOTAL HOUSE-
UNITS HOLDS UNITS HOLDS UNITS HOLDS
City of Tigard 17,369 16,507 21,754 21,016 25% 27%
Washington County 178,913 169,162 226,355 216,507 27% 28%
Portland MSA* 790,876 745,531 979,612 964,554 24% 29%
State of Oregon 1,452,709 1,333,723 1,750,539 1,591,835 21% 19%
*The Portland-Vancouver-Hillsboro, OR-WA Metropolitan Statistical Area (MSA) includes Clackamas, Columbia,
Multnomah,Washington, and Yamhill Counties in Oregon and Clark and Skamania Counties in Washington.
Data Sources: 2014-2018 5-Year American Community Survey Tables B25001 and B25003; 2000 U.S. Census
SF1 Tables H001 and H004
Tenure & Homeownership
Looking at households by tenure (i.e., owners and renters), American Community Survey
estimates show that 61% of Tigard residents are homeowners and 39% are renters. This ratio is
nearly identical to those in both Washington County, the Portland MSA, and the state (see Table
10). In most geographies, tenure shares changed little since 2000. However, in Tigard, the
homeownership rate increased by about 3 percentage points as the city grew.
Table 10: Tenure by Households, 2000 and 2014-2018
2000 2014-2018
OWNER RENTER OWNER RENTER
HOUSEHOLDS HOUSEHOLDS HOUSEHOLDS HOUSEHOLDS
City of Tigard 58% 42% 61% 39%
Washington County 61% 39% 61% 39%
Portland MSA 63% 37% 62% 38%
State of Oregon 64% 36% 62% 38%
Data Sources: 2014-2018 5-Year American Community Survey Table B25003
Both for-sale and rental housing is important to provide affordable, varied options to meet the
needs of existing and new households in Tigard. While homeownership allows the opportunity
to build wealth, rental housing availability across neighborhoods ensures that a variety of
households have access to opportunity-rich areas. Homeownership trends have changed in
recent years because of significant events in the housing market and labor force. The
homeownership rate for Millennials (the generation born between 1981 and 1997) is 8 percentage
points lower than the two previous generations, controlling for age. This discrepancy can be
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 47
Exhibit A
attributed to a multitude of factors ranging from preference to urban areas, cost of education
and associated debt, changes in marriage and childbearing patterns, rising housing costs, and
the current supply of affordable houses.5
Input received through the Housing Survey conducted as part of this Housing Market Analysis
indicated a strong preference for homeownership among participants (93%would prefer to own
their homes and 80% of participants are current homeowners). However, data indicates that
homeownership levels vary considerably by race, ethnicity, and income. As Table 11 shows,
homeownership rates are directly tied to household income in Tigard and all comparison
geographies. In the city, they range from 26% for households with incomes under $25,000 to
89% for households with incomes over $150,000. Note too, that retired seniors who own their
homes outright (i.e., without a mortgage) are likely included among some of the lower income
groups.
Table 5 in Chapter 4 provides data to estimate homeownership rates by race and ethnicity. In
Tigard, about 64% of white households and 69% of Asian households own their homes,
compared to 29% of Hispanic or Latino households and 44% of Black households. Taken
together, income, race/ethnicity, and tenure data indicates the importance of affordable
homeownership programs that are inclusive and affirmatively marketed to all current and
prospective Tigard households.
Table 11: Homeownership Rate by Household Income, 2014-2018
HOMEOWNERSHIP RATE
CITY OF WASHINGTON PORTLAND STATE OF
TIGARD COUNTY MSA OREGON
Household Income
Under$25,000 26% 33% 34% 38%
$25,000 to$49,999 47% 43% 47% 52%
$50,000 to$74,999 58% 53% 58% 62%
$75,000 to$99,999 68% 63% 68% 71%
$100,000 to$149,999 79% 76% 79% 80%
$150,000 or more 89% 89% 89% 89%
Data Sources: 2014-2018 5-Year American Community Survey Table B25118
5 Choi.Jung et al. 'Millennial Homeownership:Why Is It So Low, and How Can We Increase It?"The Urban
Institute. February 2000.
https://www.urban.org/sites/default/files/publication/98729/millennial_homeownership_O.pdf
48 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Vacancy
Tigard's vacancy data indicates that despite ongoing development since 2000, housing supply
in the city has not matched demand. Overall, only 3.4% of all Tigard housing is vacant, less than
the also low 4-5% vacancy rate in Washington County and the MSA, and considerably less than
the state's 9.1% vacancy rate.
Table 12: Vacancy Rate, 2014-2018
VACANT UNITS
TOTAL HOUSING UNITS
NUMBER VACANCY RATE
City of Tigard 21,754 738 3.4%
Washington County 226,355 9,848 4.4%
Portland MSA 979,612 53,981 5.5%
State of Oregon 1,750,539 158,704 9.1%
Data Sources: 2014-2018 5-Year American Community Survey Table B25002
For buyers seeking a home for purchase, estimates indicate that the vacancy rate is 0.0%, with
only a slightly greater share of for-rent units in the city (2.8%). Because American Community
Survey data is based on a sample and not a 100% count like the decennial census, it is subject
to sampling error, which means that there may exist some vacant, available for-sale units that
were not captured in the data because their number was so low. Additionally, some units may
be available for sale yet still occupied by current owners. Even in these cases, the conclusion
can be drawn that there is a considerably limited supply of available for-sale units. Input from
Community Advisory Committee members who have recently searched for housing in Tigard
confirms this, and a Zillow search of units for sale as of February 2021 shows only about 40 units
available.
The city's vacancy rates represent a decline from 2010-2012, when the city had a surplus of
approximately 270 ownership units and 631 rental units.° At the county level, Washington
County has a similarly tight for-sale market as Tigard (0.9% vacancy) and even less rental
vacancy than the city (2.6% vacancy).
6 City of Tigard Comprehensive Plan, p. 10-6
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 49
Exhibit A
Table 13: For-Sale and Rental Vacancy Rates, 2014-2018
OWNER HOUSING UNITS RENTAL HOUSING UNITS
AVAILABLE TOTAL VACANCY AVAILABLE TOTAL VACANCY
RATE RATE
City of Tigard 0 12,742 0.0% 237 8,511 2.8%
Washington County 1,244 133,603 0.9% 2,274 86,422 2.6%
Portland MSA 6,431 583,700 1.1% 13,209 368,677 3.6%
State of Oregon 14,549 1,000,072 1.5% 23,892 629,694 3.7%
Data Sources: 2014-2018 5-Year American Community Survey Tables DP04
Table 14 provides a breakdown of vacancy types to demonstrate the circumstances under which
housing units are vacant. In Tigard, for every 100 vacant housing units, 32 are available for rent,
14 have been rented but not yet occupied, and 14 have been sold but not yet occupied. The
remaining vacant units in the city are for occasional, seasonal, or recreational use (including
second homes or short-term rentals) (17%) or are off the market for other reasons (23%) such
as foreclosure or other legal matters, the extended absence of the occupant, or disrepair.
Table 14: Status of Vacant Units, 2014-2018
STATUS OF VACANT UNITS
VACANT SEASONAL
HOUSING RENTED, SOLD,
UNITS FOR NOT FOR NOT RECREATIONAL' OTHER
RENT OCCUPIED SALE OCCUPIED OCCASIONAL
USE
City of Tigard 738 32% 14% 0% 14% 17% 23%
Washington County 9,848 23% 11% 13% 9% 11% 33%
Portland MSA 54,555 24% 6% 12% 7% 17% 33%
State of Oregon 158,704 15% 4% 9% 4% 38% 28%
Note: This table provides the breakdown of vacant units by the status or reason for vacancy. In Tigard,for
example,there are an estimated 738 vacant units, of which 17% are for seasonal, recreational, or occasional
use.
"Other" vacancies may include foreclosures, homes being prepared for rent or sale, homes being repaired,
homes being held for personal or legal reasons, homes whose occupant is on extended absence (such as on
military assignment,out of the country, or in jail), and homes that have been abandoned or condemned.
In response to Tigard's tight housing market, the City has made efforts to increase residential
units. The 2020 Portland Economic Overview, released by Oregon's Employment Department,
indicates that in 2019 Tigard had 10.4 residential building permits for every 1,000 residents - the
50 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 1 City of Tigard
Exhibit A
fourth highest permitting rate of 19 cities in the Portland metropolitan area.' Approximately 45%
of those residential building permits were for single family units.The remaining 55%of residential
building permits were for multifamily housing. More accurate development data may indicate
that more housing supply will soon become available for residents.
Despite ongoing development, Tigard housing may be subject to a "seller's market.' in which
home prices rise due to low supply. In some cases, this may mean that current Tigard
homeowners who may experience life changes,such as a change in family size, impaired physical
mobility or other circumstance, may have to make accommodations inside their current housing
units or move outside the city to find housing that they can afford that meets their needs.
Housing Size, Type, and Age
Tigard's existing housing stock offers a greater variety in the number of bedrooms per unit than
the county, MSA, and state. More than one-third of the city's housing units have three-bedrooms
(36%), while 27% have two-bedrooms, 23% have four or more bedrooms, and 14% have one-
bedroom. Washington County offers slightly fewer two-bedroom units (25%) and one-bedroom
units (12%), and the state offers fewer 4+ bedroom units (18%) than Tigard. With this variety,
Tigard has a slightly greater capacity to house smaller families and single person households.
The county, on the other hand, has a slightly greater housing stock to serve larger families.
In the future, a variety of housing sizes that meet the needs of a diverse group of households
will continue to be important in Tigard. CAC members emphasized the need for this variety,
including smaller units that serve individuals or downsizing seniors and larger homes that may
house multigenerational families.
Table 15: Housing Units by Number of Bedrooms, 2014-2018
TOTAL NUMBER OF BEDROOMS
HOUSING ONE OR FOUR OR
UNITS FEWER TWO THREE MORE
City of Tigard 21,754 14% 27% 36% 23%
Washington County 226,355 12% 25% 39% 24%
Portland MSA 979,612 14% 25% 39% 22%
State of Oregon 1,750,539 13% 27% 42% 18%
Data Sources: 2014-2018 5-Year American Community Survey Table B25041
7 State of Oregon Employment Department. (Feb 2020)"Portland Economic Overview."
https://www.qualityinfo.org/documents/10182/79531/021920+-
+Portland+Economic+Overview+PHRMA?version=1.O
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 51
Exhibit A
A key concern of this Housing Market Analysis is housing form/structure type. American
Community Survey data reports on structure type as identified by survey respondents. Most
recent data, from the 2014-2018 5-Year Survey, is provided in Figure 28 for occupied units by
tenure.
Like Tigard, 52%of housing units in both Washington County and the state of Oregon are single-
family detached homes owned by a homeowner. Overall, homeownership occurs in all other
housing types, such as townhomes, condos, and mobile homes, at rates like that of Tigard (9%
in Washington County, 10%in the state). Tigard's greatest distinction is its larger share of single-
family attached and multifamily units for rent than the state (33%city, 26%state), and its smaller
share of single-family detached units for rent than the state (6% city, 12% state).
52 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Figure 28: Occupied Housing Units by Structure Type, 2014-2018
100%
90% Mmi
80%
11,11.:1111
70%
60%
50%
40%
30%
20%
10%
0%
City of Tigard Washington County State of Oregon
■ 1-Unit Detached, Owner-Occupied a 1-Unit Detached, Renter-Occupied ■ 1-Unit Attached, Owner-Occupied
1-Unit Attached, Renter-Occupied ■ 2-4 Units, Owner-Occupied a 2-4 Units, Renter-Occupied
■5-19 Units, Owner-Occupied • 5-19 Units, Renter-Occupied ■ 20+ Units, Owner-Occupied
■ 20+ Units, Renter-Occupied ■ Mobile Homes, Owner-Occupied • Mobile Homes, Renter-Occupied
Source: 2014-2018 5-Year American Community Survey Table B25032
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 53
Exhibit A
When looking at the condition of the housing stock, the age of housing stock provides some
indication about price and condition. In Tigard, the median age of the housing stock is
approximately 36 years old,with the largest share of housing being built between 1970 and 1989
(44%). The second largest share of the city's housing was built between 1990 and 2009 (33%).
Only housing across Washington County is newer, with 42% of the county's housing units being
built between 1990 and 2009. Older housing stock tends to depreciate in quality and price over
time and can thereby serve as more affordable housing stock in markets with adequate housing
supply. Despite Tigard's slightly older housing stock, however, the city's low housing supply
most likely increases the cost of older housing over time, rather than making it less expensive.
Table 16: Housing Units by Year Structure Built, 2014-2018
TOTAL SHARE OF UNITS BY YEAR STRUCTURE BUILT MEDIAN
HOUSING YEAR
UNITS BEFORE 1950 TO 1970 TO 1990 TO SINCE 2010 STRUCTURE
1950 1969 1989 2009 BUILT
City of Tigard 21,754 3% 15% 44% 33% 5% 1984
Washington County 226,355 5% 13% 35% 42% 5% 1988
State of Oregon 1,750,539 17% 17% 30% 31% 4% 1978
Data Sources: 2014-2018 5-Year American Community Survey Table B25034 and B25035
Housing Costs
A snapshot of Tigard's housing costs in 2018 indicates that of the 12,742 homeowners in the city,
three-fourths have a mortgage on their home. The median Tigard homeowner with a mortgage
spends $1,954 per month, compared to $635 for homeowners without a mortgage. Median
owner costs are slightly lower Washington County, where homeowners with a mortgage spend
$1,902 per month. Homeowner costs are significantly lower at the state level ($1,647 per month),
highlighting the cost increases associated with Tigard's location in the Portland metropolitan
area. As shown in Table 12, homeowner costs are nearly identical in the city and county.
Homeowner costs are more likely to range between $1,500 and $2,500 in Tigard and
Washington County, and more likely to range between $1,000 to $2,000 in other parts of the
state.
Renter costs in Tigard are generally lower than homeowner costs, with 28%of all renters paying
between $1,000 and $1,249 monthly, 24% paying between $750 and $999 and 19% paying
between $1,250 and $1,499. Renter costs in the city are slightly lower than renter costs across
Washington County. In the county, slightly over one-quarter (26%) pay between $1,000 and
$1,249 in rent. However, a significant number of county residents spend between $1,500 and
$1,999 (22% of residents) or between $1,250 and $1,499 (21% of residents) on rent. Statewide,
renters spend far less on rent than in either Tigard or Washington County. 24% of renters spend
between $750 and $999 on rent across the state, followed by renters paying less than $750 and
renters paying between $1,000 and $1,250 per month (21% each).
54 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Table 17: Median Home Value and Monthly Owner Costs, 2014-2018
TOTAL WITH A MORTGAGE WITHOUT A MORTGAGE
MEDIAN
OWNER-
MEDIAN
OCCUPIED SHARE OF SHARE OF MEDIAN HOME
UNITS TOTAL MONTHLY TOTAL MONTHLY VALUE
OWNER COSTS OWNER COSTS
City of Tigard 12,742 76% $1,954 24% $635 $375,100
Washington County 132,359 74% $1,902 26% $631 $360,400
State of Oregon 985,523 66% $1,647 34% $519 $287,300
Data Sources: 2014-2018 5-Year American Community Survey Tables B25077, B25087, and B25088
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 55
Exhibit A
Figure 29: Gross Rent, 2014-2018
30% 28%
26%
25% 24% 24%
22%
21% 21% 21%
20% 19%
-aa 17%
O
°/ 15% 14%
3 i4io 13%
0
x
0
E
ea s 10% 8%
`^ 7%
6% 6% II 6%
5%
I
0%
City of Tigard Washington County State of Oregon
• Under$750 •$750 to$999 •$1,000 to$1,249 •$1,250 to$1,499 •$1,500 to $1,999 •$2,000 or more
Source: 2014-2018 5-Year American Community Survey Table B25063
56 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 30: Monthly Owner Costs for Households with a Mortgage, 2014-2018
35%
31%
30% 29% 29%
28%
25% 23%
22%
c 20% 19% 20%
t
d
0 16%
15%
13% I
12%
o
i I 12%
03
t
10%
8%
6%
5% hi
5% I
Iii
4%
4%
o
�/
City of Tigard Washington County State of Oregon
■Under$1,000 ■$1,000 to$1,499 -1$1,500 to $1,999 -$2,000 to $2,499 ■$2,500 to $2,999 ■$3,000 to $3,499 ■$3,500 or more
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 57
Exhibit A
Affordable Housing
As discussed in Chapter 4 (Housing Needs), about two-thirds of Tigard's lower income
households, or about 1,310 households with incomes under 80% of the area median, have a
housing need. The needs are almost entirely related to affordability. In addition to need
generated by current households, housing forecasts estimate need for an additional 5,574
housing units for households with incomes under 80% of the area median through 2040.
While residential zoning and other policies that encourage smaller housing types and denser
development can lead to greater variety in housing costs, stronger market intervention is
typically needed to reach affordability levels at lower income levels. Housing subsidies come in
a variety of forms, from supply-side initiatives that reduce development costs in return for some
guarantee of affordability to demand-side subsidies such as down payment assistance or rental
support that provide direct assistance to income-eligible households.
Nationally, the Low Income Housing Tax Credit (LIHTC) program is the primary source of
subsidy for development of new affordable housing. Created by the Federal Tax Reform Act of
1986, the LIHTC program makes available an indirect federal subsidy for investors in affordable
rental housing. The value of the tax credits awarded to a project may be syndicated by the
recipient to generate equity investment, offsetting a portion of the development cost. As a
condition of the LIHTC subsidy received, the resulting housing must meet certain affordability
conditions. The Internal Revenue Service allocates LIHTCs annually to each state's housing
finance agency,which then awards them on a competitive basis to project applicants within the
state.
Working through local housing authorities, the U.S. Department of Housing and Urban
Development (HUD) also provides affordable housing subsidies with its public housing program
and its Section 8/Housing Choice Voucher program. New public housing development, however,
is not a significant source of affordable housing construction. HUD entitlement grant funding
through the Community Development Block Grant (CDBG) and HOME Investment Partnerships
(HOME) programs may also be used to support affordable housing development or provide
assistance to homebuyers or renters.
State, regional, and local programs can also support affordable housing efforts. In 2018, Metro
passed a bond generating $652.8 million in affordable housing funding for metro Portland cities
and counties, including projects in Tigard. The city currently has three projects underway that
received Metro bond funds, but the majority of Metro funding allocated to Washington County
has been spent.
At the city level, initiatives to lower development costs for dedicated affordable housing include
System Development Charge (SDC) waivers and tax exemptions for affordable properties
owned by nonprofit organizations. In many cases,these exemptions can be combined with other
subsidies such as LIHTC to achieve a suitable financing structure for affordable development.
Tigard adopted a Construction Excise Tax (CET) in 2020 that will generate revenue to support
local affordable housing initiatives, and as of 2021, Tigard is now a joint entitlement city and will
receive Community Development Block Grant (CDBG) funds annually from the U.S. Department
58 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
of Housing and Urban Development. Tigard plans to prioritize affordable homeownership
programs using its CDBG funds.
The City also allocates funds from its two Tax Increment Financing (TIF) Districts - Downtown
and Tigard Triangle - toward affordable housing. The Tigard Triangle has an Equitable
Development Strategies policies that guides investment of TIF funds, which specifically
prioritizes affordable housing development.
Publicly Supported Housing Supply
Tigard has a small share of publicly supported housing available for low-income households.
Housing choice vouchers (HCVs), project-based vouchers (PBVs), Veterans Affairs Supportive
Housing (VASH), traditional public housing, and other affordable housing types in the city are
offered by the Housing Authority of Washington County (HAWC). In 2019, Tigard had 279
housing choice vouchers in use.
Figure 31: Housing Choice Voucher Use in Tigard
/111111111111111
Legend
r-�
III Car Id 4+. r lop CIO WI Tian Housing Choice Vouchers in Tigard, OR
VSs
ss-
,as
.s-.r ci 01
.1-n I- •r •
&mew ire C.nrel arum t Mktg*SWIM/ft A Pm u,E sx lkaswessi•www Doi Nit
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 59
Exhibit A
Table 18 lists affordable housing developments within the city of Tigard. Project-based vouchers
offered from agencies outside the Public Housing Authority (PHA) include Red Rock Creek
(serving disabled residents) and The Knoll (serving seniors), which is offered by the Community
Partners for Affordable Housing; and the PLUSS Apartments offered by Luke-Dorf, a community
mental health organization.
The Washington County Department of Housing Services also offers other affordable housing
options. The Colonies Apartments in Tigard offers 96 one- and two-bedroom units. Similarly, the
Bonita Villa apartments offer 96 one-, two-, and three-bedroom units. Both developments are
also located near the Tri-Met bus. The Fields, a complex containing 264 units of affordable
housing created in a partnership between the HAWC and DBG Properties, LLC, was completed
in 2020.
Furthermore, there are eight Low Income Housing Tax Credit (LIHTC) developments in the City
of Tigard. These developments contain approximately 625 low-income units. LIHTC
developments are primarily located in these census tracts where renters pay lower median rents
less than $1,250 per month. Local non-profits, such as the Community Partners for Affordable
Housing, provide LIHTC housing developments to the area.
As of 2021, one LIHTC property in Tigard - Woodspring Apartments - ended its affordability
period. The 172-unit property served low- and moderate-income seniors. Current residents now
have a 3-year period before their rent can be raised to market rates.
In 2018, the Metro bond was approved by voters and is anticipated to create 3,900 new housing
units to Clackamas, Multnomah and Washington counties designated for households earning
less than 80% AMI. Specifically, the Metro Bond Project will bring 81 units of affordable housing
to Tigard, located at SW 72nd Avenue and Baylor Street. The project proposes 33 units for
affordable housing for households earning less than 30% AMI. Another 16 units will be reserved
for project-based vouchers and VASH vouchers. The project will contain 25 one-bedroom units,
46 two-bedroom units and 10 three-bedroom units.
60 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 32: LIHTC Development in Tigard
A
Village at
Su nr�vaer W ashi rrgton
Apartments Square *
* 1 t II Greenhurg
Oaks *
The
*. Viewfinder
Knoll at Fields
Tgard * Apartments
a
Durham Park
* Apartments
Leg end
* LIHTC Developments Gross Rent by Census Tract
929.1000 LIHTC Developmeritt in Tigard, OR
City of Tigard
1001.1250
1251-1500
1501-1750 0 0.5 1 2 Miles
ll11751.2000 i I r
Source:US Census Bureau TIGERILine Shapeliles,LIHTC Database,ACS 5-Year Estimates 2014-2018 Table B25064
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 61
Exhibit A
Table 18: Affordable Housing Development, City of Tigard, 2021
YEAR NUMBER
DEVELOPMENT NAME TYPE BUILT OF
UNITS
Durham Park Apartments,16100 SW 108th Avenue Apartments 1989 221
Fields Apartments, 7790 SW Hunziker Street Apartments 2020 264
Greenburg Oaks,11855 SW 91St Avenue Apartments 2006 81
Hill Street Duplex, 9283 SW Hill Street Duplexes 1991 4
Knoll at Tigard,12291 SW Knoll Drive Apartments 2011 45
Metzger Park,10025 SW 85th Avenue Apartments 2015 (Rehabilitation) 32
Oleson Woods, 9140 SW 91St Avenue Apartments 32
Red Rock Creek Commons,11090 SW 68th Pkwy Apartments 2020 48
Sunflower Apartments I & II,11547 SW 135th Avenue Apartments 1988-89 238
The Viewfinder,SW 72nd Avenue and Baylor Street Apartments Under Construction 81
Village at Washington Square,11159 SW Hall Blvd Apartments 2002 26
Homelessness Estimates and Resources
In addition to conventional affordable housing, additional housing resources are needed in
Tigard and surrounding communities to support individuals and families experiencing
homelessness. To respond to homeless needs, HUD uses a Continuum of Care (CoC) system, in
which local communities work together with the shared goal of ending homelessness. HUD
provides funding to CoCs throughout the US, who use it to support nonprofit agencies and state
and local government efforts to reduce and prevent homelessness. The City of Tigard falls within
the Hillsboro/Beaverton/Washington County Continuum of Care (CoC), which covers all of
Washington County.
Factors Contributing to Homelessness
High housing costs are a leading cause of homelessness in Washington County. Residents
surveyed in the 2016 Point-in-Time counts most commonly cited 'couldn't afford rent' as a
reason for homelessness (27.3%of sheltered residents and 31.5%of unsheltered residents). Other
top reasons included 'drug/ alcohol at home,' 'medical problem,' and 'runaway.' Washington
8 The 2016 Point-in-Time count is the most recent count available that includes survey
information about causes of homelessness.
62 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
County's homelessness plan,9 A Road Home (2018-2025), also notes the lack of affordable
housing in the county as a primary contributor to homelessness. In particular, the gap in rental
housing affordable to households with incomes less than 50% AMI places a burden on the
homelessness system (e.g., by increasing demand for emergency rental assistance).
Similarly, the housing projections included in this plan note a need for an estimated 20,021 new
housing units in the Tigard Planning Area through 2040, including demand for 439 units needed
to house people experiencing homelessness. These projections also indicate that about one-
quarter (24%) of new housing in the Tigard Planning Area (4,960 units) should be affordable to
households with incomes at or below 50% of the median family income (or $46,050 for a family
of four), further demonstrating a need for units affordable to households with low to moderate
incomes.
Homelessness Estimates
Assessing the number of people experiencing homelessness throughout the year is difficult.
While a count of homeless individuals and families staying in shelters or transitional housing is
possible, people that are doubled up or couch surfing or staying in a car or other area not meant
as a permanent shelter are more difficult to count. CoCs throughout the country make an effort
to estimate the number of people experiencing homeless in their jurisdiction through what is
known as a Point-in-Time count. The 2019 Point-in-Time count for Washington County held on
January 23, 2019 counted 423 households with 530 people experiencing homelessness in total
(see Table 19).
Table 19: Hillsboro, Beaverton/Washington County CoC 2019 Point-in-Time Homeless Count
SHELTERED
UNSHELTERED TOTAL
EMERGENCY TRANSITIONAL
Total number of households 134 82 207 423
Total number of persons 186 112 232 530
Number of children under age 18 42 18 21 81
Number of persons age 18 to 24 13 15 9 37
Number of persons over age 24 131 79 202 412
Data Source: Hillsboro, Beaverton/Washington County Continuum of Care 2019 Point-in-Time Count
Of the 530 people experiencing homelessness counted in the Point-in-Time count, 139 people
were counted as chronically homeless (26.2% of total people experiencing homelessness). Of
9 Washington County. (2018). A Road Home: Community Plan to Prevent and End Homelessness (July
2018-June 2025). Retrieved from:
https://www.co.washington.or.us/Housing/End Homelessness/index.cfm
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 63
Exhibit A
the 139 people who were chronically homeless, 38 were sheltered in emergency shelter (27.3%),
6 were in transitional housing (4.3%), and 95 were unsheltered (68.3%).
The 2019 Point-in-Time count counted 134 people in households with at least one adult and one
child (25.3% of people experiencing homelessness), 84 veterans (15.8%), and 41 people in
unaccompanied and parenting youth households (7.7%). The 134 people in families with children
included 39 households with 73 children under the age of 18. As estimated 104 of the 134 people
in these households were sheltered, including 69 people (51.5% of people in families with
children) in emergency shelters and 35 (26.1%) in transitional housing.
Table 20: Demographic Summary of Sheltered and Unsheltered Homeless Persons in the
Hillsboro, Beaverton/Washington County CoC
SHELTERED
UNSHELTERED TOTAL
EMERGENCY TRANSITIONAL
Demographic Summary by Gender
Female 68 42 57 167
Male 114 68 170 352
Transgender 4 2 2 8
Gender Non-Conforming 0 0 3 3
Summary of Other Populations Represented
Chronically Homeless 38 6 95 139
Severely Mentally III 11 10 67 88
Chronic Substance Abuse 5 3 119 127
Veterans 9 52 23 84
HIV/AIDS 1 O 2 3
Victims of Domestic Violence 8 5 5 18
Unaccompanied Youth 13 6 11 30
Parenting Youth O 5 0 5
Children of Parenting Youth 0 6 0 6
Data Source: Hillsboro, Beaverton/Washington County Continuum of Care 2019 Point-in-Time Count
The Point-in-Time count categorized the number of sheltered and unsheltered individuals who
were homeless in Washington County by race and ethnicity (see Table 21). The count found that
402 of the 530 sheltered and unsheltered individuals were white (75.8% of total), 54 were Black
or African American (10.2%), 33 were multiple races (6.2%), and 26 were Native Hawaiian or
Pacific Islander (4.9%). Regarding ethnicity, the count found that 68 of the 530 total sheltered
64 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
and unsheltered homeless population were Hispanic/ Latino (12.8%), and 315 were non-Hispanic/
Latino (87.2%).
Note that these figures do not represent the entire homeless population over the course of a
year, but rather the number of homeless that were sheltered and unsheltered during the 2019
Point-in-Time count.
Table 21: Race and Ethnicity of Sheltered and Unsheltered Homeless Persons in the Hillsboro,
Beaverton/Washington County CoC
SHELTERED
UNSHELTERED TOTAL
EMERGENCY TRANSITIONAL
Homeless Persons by Race
White 140 81 181 402
Black or African American 16 13 25 54
Asian 1 0 0 1
American Indian or Alaska Native 2 6 6 14
Native Hawaiian or Pacific Islander 16 7 3 26
Multiple Races 11 5 17 33
Homeless Persons by Ethnicity
Non-Hispanic or Non-Latino 155 99 208 462
Hispanic or Latino 31 13 24 68
Data Source: Hillsboro, Beaverton/Washington County Continuum of Care 2019 Point-in-Time Count
Homelessness Strategy
Washington County's strategy to address homelessness is detailed in its homelessness plan. A
Road Home (2018-2025), which includes the following goals and related tasks:
• Goal 1 - Prevent people from becomina homeless through:
o Emergency rental assistance and other support for at-risk households.
o Landlord/tenant mediation and eviction prevention.
o Rental education programs.
o Homeless outreach.
o Shelter access for homeless youth, adults, and families.
o Training program in homelessness prevention for use by local hospitals and jails to
reduce the likelihood of discharge of individuals into homelessness.
• Goal 2 - Move people into housing through:
o Short-term emergency rental assistance combined with support services.
o Transitional living program expansion for homeless youth age 18 to 23.
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 65
Exhibit A
o Permanent supportive housing for homeless people with disabilities.
o Permanent affordable housing for people with extremely low incomes.
o A risk mitigation pool available to landlords to cover property damage.
o Relationships with private landlords to encourage them to house formerly homeless
people.
• Goal 3 - Link people to appropriate services and remove barriers through:
o Case management and supportive services.
o Housing and service navigators to assist with access to housing and services.
o A one-stop resource center to provide basic needs and emergency shelter.
o A recuperative care program to support people discharged from hospital.
o Expanded collaboration with the Veteran's Administration and community agencies
to increase use of VA resources by people who are homeless.
o Transportation resources/assistance.
• Goal 4 - Increase income support and economic opportunities through:
o Career coaching,job skills training, and/or employment programs.
o Assistance for single parents to access child support enforcement services.
o Improved access to SSI/SSDI benefits for people who are homeless.
o Increased income self-sufficiency for people with disabilities or who experience
barriers obtaining and retaining employment.
• Goal 5 - Expand data collection including improving data collection about people
accessing resources, analyzing impacts to improve programs and develop annual plans,
and increasing Congressional awareness of local homelessness needs.
• Goal 6 - Educate the public on homelessness by developing a public education
campaign, sharing annual reports with local governments and the public, and growing
partnerships with local private, public, nonprofit and other agencies.
The County's 2020 Homeless Assessment Report to the Board of County Commissioners10 notes
that an estimated $26.8 million was needed to implement strategies outlined in the County's
homelessness plan for FY2019/2020. However, only about $14.4 million in public and private
resources were available to serve residents in shelter and housing programs and with prevention
assistance (including $1.1 million in leveraged Medicaid reimbursement for mental health and
addictions treatment, and other health-related services).
Facilities and Housing Targeted to Homeless Households
Based on a review of emergency, transitional, and permanent supportive housing that serves
persons experiencing homelessness in Washington County, there are an estimated 111 year-
round emergency shelter beds. The county's homeless facilities also include 119 transitional
housing beds, and 725 permanent housing beds, including 495 permanent supportive housing
beds and 230 rapid rehousing beds.
10 Washington County. (2020). A Road Home: Community Plan to Prevent and End Homelessness. 2020
Homeless Assessment Report to the Board of County Commissioners. Retrieved from:
https://www.co.washington.or.us/Housing/End Homelessness/a-road-home.cfm
66 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
In Tigard, the Good Neighbor Center (GNC) is a 36-bed facility that provides housing for up to
9 families at a time for up to six weeks. GNC also provides meals, childcare and youth programs,
skill building classes, and other services to assist families. In addition to on-site beds, GNC offers
a Housing Stabilization Program that provides rental assistance to families that gradually
declines as they reach stability. In its most recent program year, GNC served 256 people in 75
families, including 135 children.
Throughout Washington County, emergency shelter beds are provided by:
• Boys and Girls Aid (SafePlace Youth Shelter)
• Community Action (Hillsboro Family Shelter)
• Domestic Violence Resource Center (Monika's House)
• Family Promise
• Good Neighbor Center (Good Neighbor Center Shelter)
• Old Town Church
• Rolling Hills Community Church (Rolling Hills Shelter)
• Sonrise Church
Transitional housing beds are provided by:
• Boys and Girls Aid (Transitional Living Program)
• Domestic Violence Resource Center (Mary Mac House)
• LifeWorks NW (Fredrick House)
• The Salvation Army (Veterans & Families Center)
• Washington County Department of Housing (Homeless To Work Program)
Permanent supportive housing in Washington County is provided by:
• Cascade AIDS Project (scattered site)
• Community Action (scattered site)
• LifeWorks NW (Tom Brewer House and scattered site)
• Luke-Dorf Inc. (Hillsboro Graduated and scattered site)
• Open Door Counseling Center (scattered site)
• Sequoia Mental Health Services Inc. (Tri-Haven and scattered site)
• Washington County Department of Housing (HUD-VASH and Housing Independence)
Residents experiencing homelessness in Washington County may access housing and related
resources through Community Connect, a coordinated entry system designed to help people
experiencing homelessness or at imminent risk of homelessness to find housing resources in
Washington County. Through the coordinated entry system, residents are scheduled to attend
a one-hour assessment to determine the housing and supportive service needs and are referred
to partner agencies based on household needs and beds available.
Table 22: Facilities and Housing Targeted to Homeless Households
EMERGENCY SHELTER BEDS
TRANSITIONAL PERMANENT
YEAR ROUND VOUCHER/ SUPPORTIVE
HOUSING BEDS
BEDS SEASONAL/ HOUSING BEDS
OVERFLOW BEDS
Total Beds 111 133 119 495
Adults and children 103 41 131
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 67
Exhibit A
Adults only 6 78 364
Children only 2 0 0
Chronically homeless 0 0 156
Veterans 0 86 238
Unaccompanied youth 5 10 0
Data Source: Hillsboro, Beaverton/Washington County Continuum of Care 2019 Point-in-Time Count
Several recent local and state-level initiatives provide funding to increase housing and
supportive services for people experiencing homelessness:
• The Metro Affordable Housing Bond Measure was approved by voters in 2018 to support
the development of affordable housing units, and its implementation plan includes a
commitment to create 100 units of permanent supportive housing."
• Voters approved the Metro Supportive Housing Services Measure in 2020 to provide
new funding for supportive housing and services to people experiencing homelessness
or at risk of homelessness. This revenue to fund these services will be generated by a 1%
tax on taxable income of more than $125,000 for an individual and $200,000 for couples
filing jointly, and a 1% tax on profits from businesses with gross receipts of more than $5
million.12
• Voters approved the Washington County Public Safety Replacement levy in 2020 to
sustain funding for victims' assistance and emergency shelter for women and children
who are victims of domestic violence.13
Combined, these funding sources provide support for several goals in the County's
homelessness plan and help to address the need for additional housing units for residents
experiencing homelessness.
Developer Perspectives
Understanding Tigard's goal of a diverse array of housing products that offer affordable options
to households of all sizes, types, and income ranges, including historically undersupplied middle
housing types, the project team conducted interviews with several Portland-area housing
11 Washington County. (2020). Affordable Housing Bond: Implementation. Retrieved from:
https://www.co.washington.or.us/Housing/AffordableHousingBond/implementation.cfm
12 Washington County. (2021). Supportive Housing Services. Retrieved from:
https://www.co.washington.or.us/Housing/SupportiveHousingServices/index.cfm
13 Washington County. (2020). Public Safety Levy. Retrieved from:
https://www.co.washington.or.us/Levies/PublicSafetyLevy/index.cfm
68 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
developers/providers to better understand barriers and opportunities for these development
types.14 Key findings from these interviews are summarized here.
Development Fees and Tax Exemptions
• For affordable housing developers, System Development Charge (SDC) waivers are
crucial in reducing development costs and making projects feasible. Tigard has taken
positive steps toward reducing development costs by waiving transportation and parks
SDCs for affordable development. However, a reduction in other development fees or
taxes, including from Washington County, would better support affordable housing.
• Market-rate developers noted that SDCs and other fees (transportation, sewer, water,
parks, etc.) should vary by housing size so that developers pay less per unit for smaller,
middle housing types than for larger, single-family detached homes.
• Tigard's Low Income Housing Tax Exemption for nonprofit affordable housing providers
is a very helpful tool as it decreases ongoing operational costs beyond the development
phase.
Land Availability
• For affordable housing developers, land availability is a major consideration. Because
affordable housing often takes several layers of financing, timing to put a project
together takes additional time compared to market-rate development. This means that
affordable developers are less able to move quickly to purchase a suitable piece of
property.
• Land bank properties, properties owned by cities or other public agencies, or properties
owned by a mission-oriented organization such as a church are appealing because they
can be held by the owner while a developer structures financing for an affordable
housing development. Free or reduced cost land also helps for affordable housing
projects.
• Affordable and market-rate developers look for properties with transit/transportation
access, walkability, and proximity to good schools, libraries, parks, and healthy grocery
options. When a site becomes available, there is typically competition for it amongst
both affordable and market-rate developers.
• For affordable housing developers, land availability was generally named as either the #1
or #2 barrier to development. Habitat for Humanity noted that they have not built in
Tigard primarily because of a lack of available land that made sense for them.
14 Market-rate developers that participated in interviews with Leland Consulting include Pacific Community
Design and Taylor Morrison Homes. Affordable housing agencies that participated in interviews with
Mosaic Community Planning include BRIDGE Housing, Proud Ground, Habitat for Humanity Portland
Region (formerly Willamette West Habitat for Humanity, including representatives from their
Homeownership and Critical Home Repair Programs), Northwest Housing Alternatives,and Craft3.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 69
Exhibit A
Zoning
• When asked what policies would encourage more affordable housing development,
affordable developers mentioned a variety of zoning policies, including a possible
citywide Inclusionary Zoning ordinance, strong affordability goals or requirements in
development areas (such as River Terrace 2.0), and incentive zoning that allows
developers the option to build additional units in exchange for keeping some share
affordable. The Tigard Triangle was mentioned as an area where the City made good use
of incentives to encourage desired development types.
• Affordable developers also noted that the supply of multifamily zoned land impacts
development as well. When land needs to be rezoned, it introduces time and risk to a
project, which can both increase costs. Not In My Backyard (NIMBY) attitudes can still
be a barrier to affordable development, particularly in opportunity-rich areas, although
less so than in the past.
Missing Middle Housing Types
• Habitat for Humanity successfully builds many of the missing middle housing types
(including duplex, triplex, four-plex, and rowhouse units) that Tigard would like to
encourage. Through partnership with Proud Ground, these units remain as long-term
affordable for-sale housing stock.
• Proud Ground has also worked successfully with Orange Splot, a developer focused on
community-oriented green building,to provide affordable homeownership opportunities
in rowhouse and cottage cluster developments.
• Missing middle housing types are less attractive to affordable rental housing developers,
particularly those that typically use LIHTC funding, because achieving rent levels
required by the LIHTC program through missing middle housing types is more difficult.
Smallest project sizes are usually in the 45-50 unit range with 3-4 story apartment
construction.
• One affordable rental housing developer expressed potential interest in missing middle
housing types but noted that there would likely be difficulty finding the right financing
to achieve rent levels at 60% of area median income.
• Market-rate developers like the idea of middle housing and reaching homebuyers at a
more affordable price point. They build housing products ranging from single-family
units at 6 units/acre to townhomes at 20 units/acre. Market-rate developers may need
to explore new development mixes differing from their traditional models to achieve
higher densities.
• Market-rate developers are working on "plex"concepts now(duplex, triplex, 4-plex, etc.)
and plan to deliver more of these housing types. A challenge to that development is
competition with older detached single-family homes, which buyers choose if prices are
similar.
• Craft3 recently began a loan program to support homeowners in construction of
Accessory Dwelling Units (ADUs). The program began in Portland and has now
expanded to Multnomah, Washington, and Clackamas counties. Interest rates vary based
on householder income. Borrowers can also develop ADUs designated as affordable
rental units using Craft3's lowest-interest rate financing through a program with
BackHome ADU,
70 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Home Repair Needs
• Considering home repair for low- and moderate-income homeowners, the biggest need
that Habitat for Humanity sees in its Critical Repair Program is for home modifications
for seniors and people with disabilities (wheelchair ramps, grab bars, non-slip flooring,
etc.). Other less common home repair needs include furnace repairs, electrical issues,
and roofing and siding repair. Specifically in Tigard, there has been moderate demand
for accessibility modifications.
• Because Habitat for Humanity uses skilled volunteer labor, home repairs that may cost
$5,000 to $10,000 including labor can be done for an average of around $2,000,
depending on cost of materials.
Barriers to Accessing Housing
• Affordable housing developers identified barriers other than cost that low- and
moderate-income households often face in obtaining affordable housing on the private
market. Responses included:
o Past rental or financial issues such as an eviction or poor credit history.
o Acceptance of Housing Choice Vouchers by landlords.
o Ability to find affordable housing somewhere with access to transportation.
o Language translation/interpretation needs.
o Application fees. People may put applications in at several properties and each
involves an application fee.
o High rental costs impede ability to save for a down payment.
o Mortgage readiness and ability to make a down payment.
o Limited for-sale housing supply means more competition for homes that are
available. Prospective buyers need a competitive offer to be attractive to sellers.
Implementation Strategies
To achieve the goal of middle housing and affordable housing development, the City of Tigard
and the project team identified a variety of strategies for implementation, outlined below.
1. Land Banking and Targeted Site Development
Land acquisition is a key step in enabling affordable housing. Even though land is a much smaller
amount of total development costs than items such as construction cost, land control plays a
big role in determining what types of development will occur. In 2019, Tigard approved tax
exemptions for land banking by nonprofit affordable housing developers, which makes it less
risky and less costly to assemble parcels for affordable housing development.
Working with a partner agency, the City should develop a land banking apparatus to hold
suitable sites for affordable housing development, including possible free or reduced cost land
for affordable housing and site specific, city-led development. Key components of this strategy
include:
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 71
Exhibit A
• Location Evaluation: An advantage of site acquisition by the City (or a land bank partner
agency) are that it can look for sites within targeted areas or with targeted
characteristics. For affordable housing, this may include parcels in mixed-use nodes or
near main street areas, transit-served locations, or flat land with little need for grading.
• Acquisition: In its 2079 Tigard Housing Strategy Implementation Plan, Tigard identified a
variety of funding available to acquire property, including Construction Excise Tax (CET)
proceeds, Tax Increment Financing (TIF) funds, Community Development Block Grants
(CDBG), or the City's general fund.
• Goal Setting: The City should undertake a goal setting process to clarify its objectives
for acquired site(s). For larger properties, a high-level concept planning study could be
completed. Outcomes of the process should include the desired housing mix by tenure
and type, affordability levels/income targets, length of affordability, and the anticipated
investment by the City and other partners.
• Developer Solicitation: Once the City's goals are defined,the City can release a developer
solicitation (e.g., request for qualifications (RFQ) or request for proposals (RFP)) to find
the most capable developer(s) to build the envisioned housing.
The City may also consider developing a partnership with an affordable housing
developer such as Habitat for Humanity that allows smaller sites to be transferred from
the City or land bank agency for middle housing development on an ongoing basis
without individual developer solicitation efforts for each property.
2. Community Land Trust Model for Homeownership
Community land trusts (CLTs) are nonprofit, community-based organizations primarily used to
ensure long-term housing affordability, usually with an emphasis on homeownership. A CLT
acquires land and maintains ownership of it, while homeowners enter into long-term renewable
leases and build equity by making payments on their homes. The CLT model lowers the cost of
homeownership by reducing or eliminating land acquisition costs (and sometimes other costs)
from the building ownership costs, and also decreases the likelihood of displacement in areas
where land values are increasing. CLTs are also able to lease land to affordable housing
developers and/or act to develop and manage affordable rental housing.
The Portland area is home to Proud Ground, one of the largest CLTs in the nation, which
operates in Clackamas, Lincoln, Multnomah, and Washington Counties, OR and Clark County,
WA. Under Proud Ground's model, residents own their homes, but Proud Ground retains
ownership of the land, ensuring long-term affordability for future homebuyers. Homes typically
enter Proud Ground's CLT in one of two ways: (1) through down payment assistance programs
used by homebuyers to purchase existing homes or (2) through partnership with developers
building new affordable units. Proud Ground frequently partners with Habitat for Humanity,
where Habitat constructs affordable for-sale units (often including middle housing types) and
Proud Ground holds them in trust.
The City of Tigard should explore options for partnership with Proud Ground, including use of
CET revenue, CDBG funds, or other affordable housing funds to:
• Provide down payment assistance to eligible prospective homebuyers;
• Provide land-banked property for development by Habitat for Humanity or another for-
sale affordable developer and subsequent inclusion in Proud Ground's CLI: and/or
72 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
• Direct funding to the organization.
3. Targeted Use of Construction Excise Tax (CET) Revenue
Senate Bill 1533, enacted in 2016, allows cities to levy a construction excise tax (CET) on new
construction projects for the purpose of funding affordable housing projections. The
Construction Excise Tax was recommended by the 2019 Tigard Housing Strategy
Implementation Plan and in January 2020, the City of Tigard adopted a CET of 1%on commercial
and residential construction. Revenue from this CET can be used to fund affordable housing
through funding developer incentives, affordable housing programs, supporting the Oregon
Housing and Community Services' (OHCS) homeowner programs, and covering administrative
costs.
In 2019,the City of Tigard estimated that it would have collected an average of about $1.9 million
in CET revenue in each of the previous two years, based on total construction costs in those
years. Based on those figures, the amount available for affordable housing programs is
estimated to be in the $750,000 to $800,000 range annually, dependent on the total amount
of construction activity.
Prospective uses of CET affordable housing funds include:
• Down payment assistance and permanent affordability through a community land trust;
• Land acquisition and land banking for affordable housing;
• Purchase of low-cost market rate units to maintain affordability;
• Gap financing for affordable housing rental units; and
• Replacement of lost System Development Charge (SDC) revenue due to SDC waivers
for affordable housing.
Additionally, the City of Tigard should consider the targeted use of CET revenue to incent
affordable housing construction in key development areas such as Washington Square Regional
Center and River Terrace 2.0. This approach could be used in combination with the targeted site
development efforts described in Strategy 1, the community land trust model described in
Strategy 2, and/or other location-based affordable housing incentives, such as those described
in Strategy 4.
4. Incentive Zoning and Inclusionary Housing
Community land use regulations determine where and how much small footprint housing can
be developed. The passage of House Bill 2001 allowed duplex and townhome development in
areas previously zoned exclusively for single-family development in Oregon cities with 10,000
or more residents. Additionally, in 2018, Tigard adopted code amendments that legalized middle
housing types in all residential zones. However, there may be additional opportunities to
encourage denser and more affordable development, such as through incentive zoning.
Incentive zoning provides a set of benefits or allowances to a developer in exchange for building
a desired development type, including affordable housing units.
The 2019 Tigard Housing Strategy Implementation Plan recommended three main types of
incentive zoning that Tigard could implement. The first, a density bonus, would permit a greater
number of total housing units than otherwise allowed in a development on the condition that
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 73
Exhibit A
affordable units are included. The second, reduced parking requirements, suggested exploring
alternative parking requirements for small-footprint housing and apartments, as well as
potentially decreasing parking requirements for affordable housing located near transit service.
A third type of incentive zoning proposed in the plan was an exemption from Tigard's mixed-
use requirement for building residential units within a commercial zone. Currently, residential
units are only permitted in commercial zones if the ground floor is maintained for commercial
zone. The plan suggests waiving this requirement for affordable housing developments.
In 2019, Tigard Municipal Code was updated to include new density and height bonuses for
qualified affordable housing within the Tigard Downtown Plan District. The density bonus allows
greater density for developments incorporating units affordable at 80% AMI.
In summer 2020, the city of Portland approved the 'Residential Infill Project" (RIP) a zoning
code update which legalized up to four housing units on nearly any residential lot, consistent
with HB 2001. An additional "deeper affordability option" increased the number of permitted
units to six if at least half are made affordable to low-income households (60% AMI for renters
and 80% AMI for owners) at regulated prices.
The City of Tigard should analyze the feasibility of incentive zoning strategies recommended in
the 2019 Tigard Housing Strategy Implementation P/an and consider adding an analysis of a
Portland RIP-type bonus for affordable units.
Additionally, the City should continue to monitor the development and efficacy of mandatory
inclusionary zoning policies in Oregon cities. Senate Bill 1533 allowed Oregon jurisdictions to
adopt mandatory inclusionary zoning programs, but, as noted in the Housing Strategy
Implementation Plan, provisions in statute are expected to limit its impact and impose
administrative hurdles, particularly for smaller communities. By tracking progress of Portland's
program and other programs adopted in the state, Tigard can assess the feasibility of a similar
policy in the future.
5. Revised System Development Charge Structure
System Development Charges (SDCs) are one-time fees paid at the time a development permit
is issued and used toward the public facilities (transportation, sewers, and parks) required to
meet growth-related needs. In July 2019, Tigard approved an ordinance that waived parks and
transportation system development charges (SDCs) for accessory dwelling units (ADUs),
thereby reducing the development cost of this type of low-cost housing. Additionally, SDCs for
housing units such as apartments, cottages, and rowhouses are lower than those for single
family homes, and fees are waived altogether for regulated affordable housing.
Other strategies to "right size" SDCs were explored in the 2019 Tigard Housing Strategy
Implementation Plan, including tying fees to dwelling size for all unit types and negotiating with
Washington County service providers to decrease certain non-city SCDs. A third strategy,
offering a deferral or low-interest financing for SDCs for desired housing types, would decrease
the upfront development costs of desired housing types.
The City of Tigard should revise its SDCs to a tiered structure based on dwelling size. Research
by Leland Consulting Group indicates that size and type of housing is strongly correlated with
74 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
price, and that smaller homes, attached townhomes, and condominiums are usually less
expensive than larger, detached single-family homes. Varying SDC rates by square footage
(while retaining existing waivers for dedicated affordable housing) should lead to greater equity
is SDC costs as a share of unit value for different types and sizes of housing.
6. Tax Abatements
Tax abatements reduce or eliminate property tax payments for a development for a designated
length of time, usually ten years or less. Property tax abatements can be offered to developers
to incent affordable housing developments, or to homebuyers to decrease ownership costs.
Tigard currently has two tax abatement policies:
Vertical Housing Development Zones (VHDZ): The City of Tigard offers a ten-year property
tax exemption for eligible properties developed within one of the city's two Vertical Housing
Development Zones. The property tax exemption applies to residential construction built above
a non-residential ground floor at the rate of 20% per floor, up to an 80% maximum. For each
floor dedicated to low-income housing, the project is eligible to receive an additional tax
exemption of 20% per floor (maximum of 80%) applied to the land tax assessment. Several
developments in Tigard have qualified for this exemption.
Nonprofit Low-Income Housing Program: This policy was adopted in 1996 and provides tax
exemptions for regulated income-restricted (at or below 60% AMI) housing owned by nonprofit
organizations and includes acquisition in addition to new construction.
The two tax abatement policies currently used in Tigard are oriented toward affordable rental
housing located within apartment buildings, but there may be opportunities to add policies that
create tax abatement opportunities for additional small-footprint for-sale housing types. The
City of Tigard should continue to make its Nonprofit Low-Income Housing Program available
citywide and explore policy options for tax abatements for desired affordable for-sale housing
types. Additionally, the City should consider adding parts of River Terrace 1.0 and 2.0 (for
example, the mixed-use/commercial nodes) as eligible Vertical Housing Development Zones.
7. Pre-Permitted Model Project
Portland's Living Smart Program (initiated in 2004) could serve as a good model to encourage
more affordable, middle housing development in Tigard. In response to concerns about the
design of small-lot infill development, Portland launched a design competition aimed at
producing a catalogue of high-quality housing designs that would be compatible with a variety
of neighborhood types and also be affordable to entry-level buyers.
The competition produced two design catalogues that are available for free download on the
city's website: Designs of Excellence, featuring 49 narrow-lot designs, and the Portland
Catalogue of Narrow House Designs. featuring 21 designs specifically suited to Portland's
neighborhoods. Of four designs chosen as People's Choice award winners, two were selected
to be developed into pre-approved and permit-ready house plans, which are available for free
and have already passed life, safety, and structural review. Living Smart homes are also eligible
for Fast Track review, a ten-day permitting process that can reduce development time and cost.
By "making the right thing easy," the City of Portland attempted to significantly reduce
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 75
Exhibit A
developer's costs during the permitting process (e.g.. land holding/financing costs. design and
professional fees, opportunity cost), and risk that their designs would not be permitted.
The Portland program created a specific competition for a specific design goal. Tigard could
use this approach to address specific design goals for infill lots citywide, in key development or
redevelopment areas, or at River Terrace. Goals should be defined by City staff, Planning
Commission,or other stakeholders. Examples of challenges that the City could set for the design
and development community include producing designs for a quadplex in River Terrace 2.0 and
producing designs for a quadplex in which at least two units are affordable to households
earning 80% AMI or less. Identifying housing types or designs for preapproval could create time
and cost savings for developing desired housing types.
8. Matchmaking, Information Sharing, and Developer Support
While several of the strategies discussed above involve the City of Tigard providing financial or
regulatory incentives to encourage affordable and middle housing construction, the City can
also work to attract desired housing through outreach to and support for affordable housing
developers. It is difficult to predict the types of action or support from the City that will be most
helpful be developers of affordable housing, because the group of affordable housing
developers is diverse—including developers who are nonprofit and for-profit, small/local and
large/nationwide, building 2 units and building 200 units—and developers' place in the
development timeline varies—from early concept creation to site plan to construction. However,
potential approaches by the City of Tigard include:
• Matchmakina: The City can connect affordable developers and homebuilders to
development opportunities by providing information about available land and funding.
The City may become aware of willing property sellers, including public agencies with
surplus land, that could be matched with affordable developers. The City should also
work to educate developers about funding or other incentives available for affordable
housing development, whether offered by the City or other parties.
• Education and Information Sharing.: The City of Tigard has taken progressive steps
toward incorporating opportunities for middle housing citywide and in anticipated
development areas. River Terrace 2.0's focus on middle housing types and affordability
will be distinctive in the region. By sharing the community's vision, related zoning, and
available incentives with the public and the development community (developers,
homebuilders, lenders, brokers, designers, and others) the City may be able to generate
interest in implementing that vision. Opportunities for information sharing could take
many forms, including websites, plan summary documents, presentations to industry
groups such as the Oregon Home Builders Association or Urban Land Institute,
presentations at conferences, and other digital and in-person forums.The City could also
conduct outreach to specific developers that have built middle and/or affordable
housing in the region to gauge interest in building in Tigard.
• Low Income Housing Tax Credit (LIHTC) Developer Outreach: As the largest producer
of affordable housing nationwide, the LIHTC program is a key potential resource for
future affordable housing development in Tigard. Credits are issued annually through the
Oregon Housing and Community Services (OHCS) Department through a competitive
Notice of Funds Availability (NOFA) process (for 9% tax credits) and year-round non-
competitive application process (for 4% tax credits). One way to understand tax credits
76 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
is that they provide equity (a source of capital) to affordable housing developers. Tax
Credits can provide on the range of between 30 and 60 or even 70 percent of total
project costs, with the higher range being for the more competitive 9% tax credits.
To attract LIHTC development, the City of Tigard should maintain and develop
connections with LIHTC developers and Oregon Housing and Community Service
(OHCS), annually review the OAR and work proactively to promote any city sites with
scoring advantages to prospective developers. For example, OHCS's 2019 OAP awards
competitive points for 9% LIHTC applications on the bases of a site's level of severe rent
burden; high walk scores; proximity to transit, high-performing elementary schools or
other opportunity criteria; location in an Opportunity Zone or OCT, and others. If the City
inventoried available parcels and which of these criteria they meet, the City could
directly, or through a real estate broker, market these sites to LIHTC developers.
• Infrastructure Assistance: Another way the City may be able to support affordable
housing development is through the construction of infrastructure or other site
development activities using CET revenue, CDBG funds, or other available funding. This
approach could be particularly helpful on difficult-to-develop sites.
9. Lending Programs for Affordable Middle Housing
The City of Tigard should explore options for expanding access to capital for affordable or
market-rate middle housing developers who are not otherwise able to access conventional
forms of financing. This may include potential partnership with Craft3 to develop a city-
supported revolving loan program or bridge loan fund for small developers using CET or other
funds.
The City may also consider opportunities to collaborate with Craft3 to encourage Tigard
households to consider building ADUs, including affordable rentals, through their recently-
created ADU Loan program. In addition to providing reduced-cost loans to lower income
households for development of ADUs. Craft3's program provides its lowest-cost loans to
households that commit to using their ADU as an affordable rental through BackHome ADU.
Under this program, homeowners work with BackHome ADU's construction and property
management partners to build and manage their rental as an affordable unit for a minimum of
8 years.
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 77
Exhibit A
Chapter 6 :
Buildable Lands
Inventory
Exhibit A
The City of Tigard's Buildable Lands Inventory includes property outside of Title 3 lands
(regionally designated water quality and flood management lands) that are:
• Fully vacant:undeveloped, privately-owned parcels, or
• Partially vacant.•developed, privately-owned parcels with 1/4 acre or more of the parcel
vacant.
Parcels with slopes of 25% or greater or that fall within the City's local wetlands inventory, CWS
vegetated corridor, or FEMA 100-year floodplain are excluded from the inventory.15 Also
excluded are public facilities and land preserved as open space or through conservation
easements.
The buildable lands inventory was developed through a spatial join of the City's most recent
buildable lands inventory and zoning data using Geographic Information Systems (GIS), a
method allowing for visualization and analysis of buildable lands by zoning category and
residential uses permitted. Following the spatial join, the buildable lands were displayed in map
form by zoning category (see Figure 33) to show the locations of buildable lands by zoning
category throughout the city. The data was exported for further analysis of acres of buildable
land by zoning category (see Table 23) and total acres of buildable land in which residential
uses are allowed, limited, restricted, and prohibited (see Table 24). Analysis of the City's zoning
code of regulations on residential uses in each zoning category (see Table 25) supported the
calculation of acres of buildable lands on which specific housing types (e.g., single detached
houses, cottage clusters, accessory dwelling units) are allowed, limited, and prohibited (see
Table 26).
Zoning of Buildable Lands
As of 2020, Tigard has an estimated 551.4 acres of buildable lands. These parcels are dispersed
throughout the city, including a cluster of larger residential parcels in west Tigard, smaller
residential parcels throughout the central portion of the city, and a cluster of primarily mixed
use and commercial parcels in northeast Tigard (see Figure 33).
Most of the city's buildable lands (511.8 acres or 76.5% of total buildable acres) are categorized
in residential zones R-1 through R-25 (see Table 23). Parcels zoned in commercial and mixed-
use zoning categories also make up a significant share of the city's buildable land (99.8 acres or
18.1% of total buildable acres), while land zoned as industrial or for parks and recreation make
up smaller shares (5.1% and 0.2% of buildable acres, respectively).
A wide array of the city's zoning categories allow for various types of residential uses. including
residential, commercial, and mixed use zoning categories (see Table 24). At least some type of
residential use is allowed on 94.2% of the city's buildable land. Residential uses are completely
15 City of Tigard. (2020). Buildable Lands Inventory. Retrieved from:
https://www.tigardmaps.com/MapGalleryPDFs/d_planning/d_buildable_lands_static/buildable_lands1117
.pdf
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 79
Exhibit A
prohibited on 5.8% of buildable land, which includes parcels zoned for Light Industrial, Industrial
Park, Parks and Recreation, and Professional Commercial.
While the majority of buildable lands allow at least some type of residential development, some
housing types are permitted more often than others (see Table 26). While single detached
houses,cottage clusters, accessory dwelling units,and courtyard units are each allowed on more
than 70% of buildable acres, apartments are allowed on 31.3% of acres and rowhouses on 55.2%.
The Residential Land Needs Analysis will compare existing buildable land in Tigard to 20-year
housing forecasts to determine the suitability of existing residential land to satisfy population
and household growth, desired housing types, and affordability through 2040.
80 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Figure 33: Zoning of Buildable Lands, City of Tigard
1 :
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= City of Tigard :-, 1 - ',
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0 0.375 0.75 1.5 2.35 3
Data Source: Tigard Open Data (City of Tigard Buildable Lands Inventory (2021),City of Tigard Zoning (2021))
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 81
Exhibit A
Table 23: Zoning and Acreage of Buildable Lands, City of Tigard
ZONING DESCRIPTION BUILDABLE PERCENT OF
ACRES BUILDABLE LAND
Residential
R-1 Residential - Low Density 2.6 0.5%
R-2 Residential - Low Density 1.0 0.2%
R-3.5 Residential - Low Density 14.9 2.7%
R-4.5 Residential - Low Density 136.7 24.8%
R-7 Residential -Medium Density 181.7 33.0%
R-12 Residential -Medium Density 62.4 11.3%
R-25 Residential -Medium-High Density 22.5 4.1%
Total Residential Acres 421.8 76.5%
Commercial
C-C Community Commercial 10.0 1.8%
C-G General Commercial 10.4 1.9%
C-P Professional Commercial 1.9 0.3%
MUC Mixed Use Commercial 2.5 0.4%
MU-CBD Mixed Use Central Business District 1.9 0.3%
MUE Mixed Use Employment 27.2 4.9%
MUE-1 Mixed Use Employment-1 8.9 1.6%
MUE-2 Mixed Use Employment-2 1.2 0.2%
MUR-1 Mixed Use Residential-1 2.2 0.4%
MUR-2 Mixed Use Residential- 2 0.3 0.0%
TMU Triangle Mixed Use 33.3 6.0%
Total Commercial/Mixed Use Acres 99.8 18.1%
Industrial
I-L Light Industrial 4.4 0.8%
I-P Industrial Park 24.0 4.4%
Total Industrial Acres 28.5 5.2%
Parks
PR Parks and Recreation 1.3 0.2%
Total Parks and Recreation Acres 1.3 0.2%
Total Acres of Buildable Land 551.4 100.0%
82 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 1 City of Tigard
Exhibit A
Table 24: Acres of Buildable Lands in which Residential Uses are Allowed, Limited, and
Prohibited, City of Tigard
ACRES PERCENT OF TOTAL
BUILDABLE LANDS
Total Acres in which Residential Uses are Allowed 519.7 94.2%
Total Acres in which Residential Uses are Prohibited 31.7 5.8%
Total Buildable Lands 551.4 100.0%
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 83
Exhibit A
Table 25: Housing Types Allowed by Zoning Types of Buildable Lands, City of Tigard
RESIDENTIAL SINGLE ACCESSORY MOBILE COURT-
COTTAGEZONING DESCRIPTION USES DETACHED DWELLING HOME APART- YARD QUADS ROW-
ALLOWED? HOUSES CLUSTERS UNITS PARKS MENTS UNITS HOUSES
Residential
Limited
R-2 Residential- Low Density Yes Yes Yes Yes No No Yes (Certain No
lot types)
Limited Limited
R-3.5 Residential- Low Density Yes Yes Yes Yes (Cond. Use) No Yes (Certain No
lot types)
Limited Limited
R-4.5 Residential- Low Density Yes Yes Yes Yes (Gond. Use) No Yes (Certain No
lot types)
Residential-Medium Limited
R-7 Density Yes Yes Yes Yes Yes No Yes Yes (Up to 5
units)
R-12 Residential-Medium Yes Yes Yes Yes Yes Yes Yes Yes Yes
Density
R-25 Residential-Medium-High Yes No No No Yes Yes No No Yes
Density
R-40 Residential- High Density Yes No No No Yes Yes No No No
Commercial
Caretaker
homes on
C-G General Commercial Restricted12 sites with No No No No No No No
allowed
uses
C-P Professional Commercial Prohibited No No No No No No No No
Preexisting Preexisting Preexistin
MUC Mixed Use Commercial Yes only No Limited only Yes No No g only
MU-CBD Mixed Use Central Yes No No No Preexisting Yes No No Yes
Business District only
84 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
RESIDENTIAL SINGLE ACCESSORY MOBILE COURT-
COTTAGEZONING DESCRIPTION USES DETACHED DWELLING HOME APART- YARD QUADS ROW-
ALLOWED? HOUSES CLUSTERS UNITS PARKS MENTS UNITS HOUSES
MUE Mixed Use Employment Yes Preexisting No No No Yes No No Preexisting
only only
Preexisting Preexisting Preexisting
MUE-1 Mixed Use Employment-1 Yes only No Limited only Yes No No only
Preexisting Preexisting Preexisting
MUE-2 Mixed Use Employment-2 Yes only No Limited only Yes No No only
MUR-1 Mixed Use Residential-1 Yes Preexi onlytinYes Limited Preexisting
ting
only Yes Yes Yes Yes
TMU Triangle Mixed Use Yes Yes Yes Yes Yes Yes Yes Yes Yes
Industrial
Caretaker
homes on
I-L Light Industrial Restricted3 sites with No No No No No No No
allowed
uses
Caretaker
homes on
I-P Industrial Park Restricted3 sites with No No No No No No No
allowed
uses
Parks
PR Parks and Recreation Prohibited No No No No No No No No
1.Allowed on or above the second story of a mixed-use development where the first story contains an allowed
commercial use.
2.A single detached house is allowed where it is located on the same site with an allowed or conditional use and is occupied exclusively by a caretaker or superintendent of the allowed
conditional use.
3.A single detached house is allowed where it is located on the same site as the allowed use and is occupied exclusively by the caretaker,or kennel owner or
operator,and family.
City of Tigard I HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 85
Exhibit A
Table 26: Acres of Buildable Lands in which Residential Uses are Allowed, Limited, and Prohibited, City of Tigard
SINGLE ACCESSORY MOBILE COURT-
DETACHED COTTAGE DWELLING HOME APART- YARD QUAD ROW-
HOUSES CLUSTERS UNITS PARKS MENTS UNITS HOUSES
Total Acres Allowed 432.6 435.1 447.7 451.5 172.4 435.1 435.1 304.3
Total Acres Allowed as
Percent of Total Buildable 78.5% 78.9% 81.2% 81,9% 31.3% 78.9% 78.9% 55.2%
Lands
Total Acres Prohibited/
Preexisting Only/ 118.8 116.3 103.7 99.9 379.0 116.3 116.3 247.1
Caretaker Homes
Total Acres Prohibited/
Preexisting Only/Caretake 21.5% 21.1% 18.8% 18.1% 68.7% 21.1% 21.1% 44.8%
Homes as Percent of Total
Buildable Lands
Total Acres Allowed 432.6 435.1 447.7 451.5 172.4 435.1 435.1 304.3
86 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Chapter 7 :
Residential Land
Needs Analysis
Exhibit A
Residential Land Analysis
Housing Need by Residential Designation
This section compares housing need in Tigard over the next 20 years with the supply of
buildable land. We begin by forecasting housing types and density levels for new housing. Table
27 below segments housing need forecasts into unit type, assuming that future housing types
will be more diverse than those that currently exist in the City of Tigard. This assumption is
grounded in input from the Community Advisory Committee, which strongly encouraged a
diversity in housing types; trends among aging Baby Boomers and Millennials toward smaller
and more diverse housing types; and the need for increased housing affordability that often
comes with smaller housing types. These assumptions also meet the state requirement that at
least 50% of new residential units be attached single-family or multifamily housing.
The forecast assumes that 45% of new residential development will be single-family detached
housing (including mobile homes), 15% will be single-family attached housing, and 40% will be
multifamily. In comparison, as of 2014-2018 estimates, 59% of Tigard's housing stock was single-
family detached (including mobile homes), 8% was single-family attached, and 33% was
multifamily.
Table 27: Housing Units Needed in the Tigard Planning Area, 2020 to 2040
SHARE OF CITY OF UNINCORPORATED TIGARD
TOTAL TIGARD WASHINGTON PLANNING
COUNTY' AREA
Total Housing Units Needed 100% 7,416 7,526 14,942
Single-family detached 45% 3,337 3,387 6,724
Single-family attached 15% 1,113 1,129 2,242
Multifamily2 40% 2,966 3,040 6,006
'Includes TAZs 1003 and 1004 (River Terrace South and West), 1140 (Washington Square Regional Center),
1005,1006,1011,1026,and 1034.
2lncludes duplex and triplex units,which City of Tigard zones as single-family housing with 1-2 attached ADUs.
To compare housing need with land availability, Table 28 segments housing need by type into
the City of Tigard's residential plan designations, including:
• Low Density Residential: Allows single-family detached homes with up to two accessory
dwelling units (limited to one detached ADU), cottage clusters, and courtyard units.
• Medium Density Residential: Allows single-family detached homes with up to two accessory
dwelling units (limited to one detached ADU), quads, mobile home parks, cottage clusters,
courtyard units, and rowhouses. Within the Medium Density Residential designation, the R-
12 zoning district allows apartments.
88 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
• Medium-High Density Residential: Allows single-family detached homes with up to two
accessory dwelling units (limited to one detached ADU), quads, mobile home parks, cottage
clusters, courtyard units, rowhouses, and apartments.
• High Density Residential: Allows mobile home parks and apartments.
• Mixed Use: Tigard's Mixed Use planning desiyi ic1iuns include Mixed Use Central Business
District, Mixed Use Commercial, Mixed Use Employment, Mixed Use Residential, and Triangle
Mixed Use (in the Tigard Triangle). In terms of new residential development, the Mixed Use
Commercial and Mixed Use Employment zones allow only apartments. The Mixed Use
Central Business District allows apartments and rowhouses. The Mixed Use Residential zone
allows cottage clusters, apartments, courtyard units, quads, and rowhouses. Finally, the
Triangle Mixed Use zone allows all housing types.
Table 28: Segmentation of Needed Housing by Plan Designation, City of Tigard
HOUSING TYPE
CITY OF TIGARD
SINGLE-FAMILY SINGLE-FAMILY MULTIFAMILY TOTAL
DETACHED ATTACHED
HOUSING UNITS
Residential Designation
Low Density 1,038 0 371 1,409
Medium Density 2,225 222 964 3,411
Medium-High Density 0 743 593 1,336
High Density 0 0 519 519
Mixed Use 74 148 519 741
Total 3,337 1,113 2,966 7,416
SHARE OF HOUSING UNITS
Residential Designation
Low Density 14% 0% 5% 19%
Medium Density 30% 3% 13% 46%
Medium-High Density 0% 10% 8% 18%
High Density 0% 0% 7% 7%
Mixed Use 1% 2% 7% 10%
Total 45% 15% 40% 100%
2lncludes duplex and triplex units,which City of Tigard zones as single-family housing with 1-2 attached
ADUs.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 89
Exhibit A
Buildable Land by Residential Designation
With the forecast of housing need by residential land designation, the analysis turns to an
assessment of the buildable land within the City of Tigard. Chapter 6 identified vacant/partially
vacant buildable land by zone in the city. The table below reflects vacant buildable land by
residential designation discounting for future streets according to Metro's methodology, which
assumes:
• Tax lots under 3/8 of an acre will require 0% set aside for future streets;
• Tax lots between 3/8 of an acre and 1 acre will require 10% set aside for future streets; and
• Tax lots greater than an acre will require 10% set aside for future streets.
Acreage shown in the table below also excludes any individual tax lots smaller than 3,000 square
feet, which would likely not be suitable for residential development given their small size.
Table 29: Net Buildable Land by Residential Designation, City of Tigard
BUILDABLE ACREAGE RIGHT-OF-WAY REDUCTION NET
BUILDABLE
<0.38 0.38-1.0 >1.0 <0.38 0.38-1.0 >1.0 ACRES
ACRES ACRES ACRES ACRES ACRES ACRES
Residential - Low Density 30.4 41.1 78.2 0.0% 10.0% 18.5% 131.2
Residential- Medium Density 29.8 19.5 190.7 0.0% 10.0% 18.5% 202.8
Residential- Medium-High Density 0.7 3.5 17.1 0.0% 10.0% 18.5% 17.8
Residential- High Density 0.0 0.0 0.0 0.0% 10.0% 18.5% 0.0
Mixed Use 7.4 12.5 57.4 0.0% 10.0% 18.5% 65.4
To determine capacity for development of new housing units, Table 30 translates buildable
acres in each zoning category to housing unit capacity based on the density of development
within each zoning category since Tigard's last Housing Needs Analysis was completed in 2013.
Data regarding past development is derived from taxlot records, including acreage and year
built, available from Metro's RLIS data. These figures include development occurring from 2014
through 2019, the last year for which data was available. For low and medium density zones, it
is assumed that future development density will be 3% greater than past development due to
the allowance of middle housing types.
90 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
Table 30: Residential Capacity Estimate on Vacant and Partially Vacant Land, City of Tigard
AVERAGE
NET BUILDABLE DDEVELPOMENT HOUSING UNIT
ACRES DENSITY SINCE 2010 CAPACITY
(UNITS/ACRE)
Residential Low Density
R-1 2.2 0.6 1
R-2" 0.9 2.1 2
R-3.5 13.1 1.8 23
R-4.5 117.2 5.2 609
Residential- Medium Density
R-7 152.7 9.7 1,481
R-12 50.1 15.8 792
Residential- Medium-High Density
R-25 17.8 39.7 706
Residential- High Density
R-40 0.0 N/A 0
Mixed Use"" 19.6 30.3 593
Total 4,206
*Development density based on minimum lot size from City of Tigard Development Code, because no R-2 taxlots were
developed over the 2014-2019 period.
"Assumes that 30%of net buildable mixed-use land will develop as residential.
Source: Metro RLIS Taxlot Records, November 2020, Retrieved from
http://rlisdiscovery.oregonmetro.gov/?resourcelD=6#
This analysis shows residential capacity for about 4,206 housing units in the City of Tigard, based
on average development densities in each zoning category over the last six years, adjusted by
3% to account for middle housing. As Table 31 shows, this capacity would accommodate about
50%of needed housing in the City of Tigard over the next 20 years, based on household growth
forecasts.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 91
Exhibit A
Table 31: Comparison of Housing Need and Housing Capacity, City of Tigard
HOUSING UNITS HOUSING UNIT DIFFERENCE
NEEDED CAPACITY
Residential- Low Density 1,409 635 (774)
Residential- Medium Density 3,411 2,272 (1,139)
Residential- Medium-High Density 1,336 706 (630)
Residential- High Density 519 0 (519)
Mixed Use 741 593 (148)
Total 7,416 4,206 (3,210)
To respond to the additional housing need, the City should consider a combination of
approaches, including annexing additional residential land and developing policies to encourage
residential development at densities above those shown in Table 30.
In 2018, the City of Tigard amended its zoning code to allow for Accessory Dwelling Units
(ADUs) in all residential zones where single-family homes are allowed. Per the City's code, a
single-family unit may have up to two ADUs provided that at least one is attached to the primary
unit, effectively allowing for duplex and triplex development in all single-family zones. The 2018
update also added Cottage Clusters, Courtyard Units, and Quad Units as allowable uses in low
density (R-3.5 and R-4.5) and medium density (R-7 and R-12) residential zones. If the City were
able to encourage denser development that made greater use of these housing types in low and
medium density residential zones, additional needed housing units could be accommodated
through 2040.
Concept planning for River Terrace 2.0 developed prototype blocks containing a mix of middle
housing types that achieved densities ranging from 16 to 24 units per acre. If Tigard were able
to achieve similar densities on buildable land in the city limits, greater shares of housing need in
the low and middle density residential designations may be met.
The next section of this chapter examines strategies for addressing housing need, including
middle and affordable housing, over the next 20 years.
Housing Strategies & Recommendations
Affordable Housing
According to 2017 estimates, about one-third of households in Tigard spend over 30% of their
income on housing. The issue is most pronounced and acute at lower incomes: three-quarters
92 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
of Tigard households with incomes under 60% of the area median income (or about $55,000
for a family of four) have trouble affording housing.
Twenty-year forecasts show a continued need for housing that is affordable to lower-income
households. Through 2040, about 24% of housing need generated in Tigard and adjacent areas
in unincorporated Washington County will be among families with income levels under 50% of
the median income (or about $46,050 for a family of 4). While market-rate middle housing is
often more affordable than single-family detached homes, it is still unlikely to be affordable for
the lowest-income groups. The majority of these households are not able to afford market-rate
units and would be eligible for affordable housing developed through government assistance or
other forms of subsidy.
Affordable housing developers interviewed for this study were generally supportive of steps
Tigard has taken to date to encourage affordable development. Development barriers they
identified included System Development Charges (SDCs) and other fees related to
development; lack of land availability and competition for land, including from for-profit
developers; and limited funding streams to support affordable housing development.
Considering housing types, rental housing developers expressed a preference for apartment
development, typically with at least 50 units, to achieve rent levels required by funding streams
including the Low Income Housing Tax Credit (LIHTC) program. For affordable homeownership,
housing types varied and included a variety of middle housing types: duplexes, triplexes, quads,
cottage housing, and rowhouses.
Strategies Tigard should explore to better encourage affordable housing development and
access include:
• Develop an Affordable Homeownership Program
Tigard should devote CDBG funding and/or Construction Excise Tax (CET) revenue to
providing down payment assistance for income-eligible first-time homebuyers. Through
partnership with an organization like Proud Ground, for-sale units purchased using this
funding would remain in the affordable housing stock in perpetuity.
• Acquire Land for Affordable Homeownership or Rental Housing Construction
When the City has opportunities to purchase vacant residential land, use CDBG, CET funding,
or other revenue streams to buy properties suitable for affordable housing construction.This
strategy could also be accomplished through establishment of a land bank through a
partnership with outside agencies or partners.
Where possible, the City should make sites available at free or reduced costs to a nonprofit
developer dedicated to affordable homeownership, such as Habitat for Humanity. This
approach has the potential to provide both affordable and missing middle housing given
that Habitat for Humanity often develops 2-4 unit structures and rowhouses.
City-owned land could also be used for affordable rental housing development, with the City
holding the property while their development partner arranges financing. Land could be sold
at a reduced rate to reduce development costs.
For larger sites, the City could develop high-level concept plans and solicit development
partners through an RFQ or RFP process, selecting the most capable developer(s) to build
the envisioned housing.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 93
Exhibit A
• Affirmative Marketing and Fair Housing Efforts
The City should ensure that affordable homeownership programs are affirmatively marketed
(either by the city or its partner agencies) to prospective residents of all races and
ethnicities. Homeownership data shows that African American and Latino householders are
considerably less likely to own their homes than white, non-Latino households. Washington
County's most recent Analysis of Impediments to Fair Housing Choice also indicated
disparities in access to home loans, with denial rates being highest for African American,
Latino, Native American, and Native Hawaiian and Pacific Islander households. Interviewees
also noted that language can be a barrier to obtaining information about housing programs
for people with limited English proficiency. The City and its partners could also consider
partnering with regional agencies and community organizations that serve African American
and Latino residents to provide information and outreach about Tigard programs.
In addition to affirmative marketing, the City of Tigard should promote fair housing rights,
including source of income protection, and related resources available to residents. For
example, the City could offer fair housing education or Q&A forums to residents and/or
landlords or provide information about fair housing rights and resources through a table at
city events. The City could also develop a webpage dedicated to fair housing with links to
agencies that provide housing discrimination complaint investigation.
• Develop a Landlord Risk Mitigation Fund
Affordable housing developers identified past evictions and poor credit history as a barrier
many low- and moderate-income households, including those exiting homelessness, face in
obtaining rental housing on the private, non-subsidized market. To assist these households
in overcoming these barriers, the City of Tigard should consider a risk mitigation fund that
insures landlords against lost rent or excessive damages beyond the security deposit, with
reimbursement limits set in advance. Some risk mitigation funds also provide incentives for
landlords that rent to individuals or families who were previously homeless. The fund could
be administered by the City or through a partner agency.
• Consider Funding ADA Accessibility Modifications
Consider providing a small pool of funding from CDBG, CET revenue, or other revenue
streams to support ADA accessibility modifications for seniors or people with disabilities.
Habitat for Humanity notes that most of their home repair requests, including from Tigard,
are for home safety and accessibility improvements (wheelchair ramps, grab bars, non-slip
flooring, etc.) and that most can be completed for relatively low costs using skilled volunteer
labor. Additional funds would allow Habitat to expand provision of modifications in Tigard.
• Continue System Development Charge (SDC) Waivers and Continue Advocacy for SDC
Waivers by Washington County
Continue to provide SDC waivers for affordable housing development and property tax
exemptions for non-profit developers in Tigard. Working with other municipalities and the
county, explore the possibility for SDC waivers by Washington County for affordable
housing development. Developers note that while Tigard's waivers are beneficial, additional
fee waivers at the county level would be helpful.
• Analyze Feasibility of Incentive Zoning Strategies
The City of Tigard should analyze the feasibility of incentive zoning strategies recommended
in the 2019 Tigard Housing Strategy Implementation P/an, including density bonuses for
affordable housing, reduced parking requirements for small-footprint housing or affordable
housing near transit, and an exemption from ground-floor commercial space requirements
94 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS I City of Tigard
Exhibit A
for affordable housing in mixed-use zones. The City should also continue to track mandatory
inclusionary zoning policies enacted by the City of Portland and other Oregon cities to
determine if this may be an approach Tigard should consider in the future.
• Consider Use of Affordable Housing Bonds
Under Oregon law, the City of Tigard can issue affordable housing bonds as a vehicle to
generate funding for housing initiatives the City is pursuing. Private Activity Bonds (PABs)
can leverage 4% Low Income Housing Tax Credits to supplement funding available for
affordable rental housing development. PABs are intended to finance private sector
activities that further a public purpose and must be repaid, thus are suitable for low-cost
loan programs but not for grants. For example, in 2019, the Housing Authority of Clackamas
County issued $34 million in PABs to fund Rosewood Terrace Apartments, a $65 million
project providing 212 units of affordable rental housing to households under 60% AMI with
a 60-year affordability period.
The City of Tigard could also issue a General Obligation Bond secured by local tax revenues,
which does not require that receiving projects generate revenue to repay the debt. Funds
could be spent on affordable housing development or renovation, including on the activities
described above. The City should consider bonds as a possible funding source to grow its
affordable housing development capacity.
• Target Use of Affordable Housing Funds in Development/Redevelopment Area
The City of Tigard should consider the targeted use of CET revenue to incentivize affordable
housing construction in key development areas such as River Terrace 2.0 and the
Washington Square Regional Center.
Targeted use of affordable housing funds should be coupled with established and well-
communicated goals for affordable housing development in these areas. Additionally, the
City should make targeted efforts to recruit developers that will achieve this vision.
• Market City Sites to Low Income Housing Tax Credit (LIHTC) Developers
The City of Tigard should build capacity to maintain and develop connections with LIHTC
developers and Oregon Housing and Community Service (OHCS), annually review the QAP,
and work proactively to promote any city sites with scoring advantages to prospective
developers. For example, OHCS's 2019 OAP awards competitive points for 9% LIHTC
applications on the bases of a site's level of severe rent burden; high walk scores; proximity
to transit, high-performing elementary schools or other opportunity criteria; location in an
Opportunity Zone or QCT, and others. If the City inventoried available parcels and which of
these criteria they meet, the City could directly, or through a real estate broker, market these
sites to LIHTC developers. This reduced the time and expense developers put into scouting
sites and communicates Tigard's commitment to bringing in LIHTC housing. This program
could be combined with the strategy of a land bank, should the City pursue that option.
Missing Middle Housing
Middle housing, including accessory dwelling units, duplexes and triplexes (zoned in Tigard as
attached ADUs), quads, cottage clusters, courtyard units, and rowhouses, are smaller, more
compact housing forms on smaller lots - and inherently more affordable than detached single-
family dwellings. The Small Housing/Middle Housing Typology analysis completed as part of
Tigard's River Terrace 2.0 Concept Plan notes that affordable housing developers may be the
first to benefit from the ability to build a wider range of housing types. Representatives from
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 95
Exhibit A
Proud Ground and Habitat for Humanity confirm this idea, noting that they frequently work with
middle housing types. However, as the Small Housing Typology report notes, it will take
additional efforts to change the for-profit housing industry's approach, which currently favors
single-family for-sale dwellings due to phasing capabilities and lesser risk factors.
Strategies Tigard should explore to better encourage middle housing development, including
affordable middle housing development, include:
• Revise System Development Charge (SDC) Structure
Tigard should revise its SDC structure to reflect different costs for different unit types and
sizes, thereby reducing charges for smaller home types. Under the revised structure, SDCs
would vary by square footage, with larger homes having higher SDCs.
• Develop a City-Supported Loan Program for Small Housing Types
Using CET funds, affordable housing bonds, or other funding, the City could fund a revolving
short-term construction or bridge loan fund for small developers building affordable or
market-rate middle housing who are not otherwise able to access more conventional forms
of financing.
• Develop a Pre-Permitted Model Project for Desired Housing Type(s)
Develop a pre-permitted model project similar to Portland's Living Smart Program. which
included a design competition for small-lot infill development. Winning designs were
developed into pre-approved, permit-ready, freely-available house plans eligible for
expedited permitting by the City of Portland. Tigard could use this approach to develop
models that address specific design goals, such as designs for a quadplex with two
affordable units. Identifying housing types or designs for preapproval could save time and
costs for developing desired housing types.
• Market Middle Housing Opportunity to Small Housing Developers
Similar to the recommendation related to outreach to LIHTC developers, Tigard should
develop relationships with affordable and market-rate developers with a history of
successful middle housing development in metro Portland. Package information about
available development assistance (SDC waivers, loan programs, etc.) and vision for middle
housing in the city, including in prime areas like River Terrace 2.0, the Washington Square
Regional Center, or the city's urban renewal districts.
• Incentivize Attached or Detached ADU Development on Existing Single-Family Home
Lots
Tigard should consider extending the SDC exemption for accessory dwelling units of 1,000
square feet or less past its sunset date or making the exemption permanent as the City of
Portland did in 2018.
Tigard should also collaborate with local nonprofits such as Craft3 to provide affordable
loans to homeowners interested in adding an ADU to existing single-family home lots.
Craft3's loan programs offer interest rates that vary by household income, with the lowest
rates for homeowners who agree to rent their ADU at an affordable rate to households with
incomes less than 80% of the area median.
96 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Comprehensive Plan Policies
The City of Tigard's Comprehensive P/an outlines goals and policies for the provision of housing.
To reflect up-to-date housing policies, needs, and conditions in the city, recommended edits are
shown below:
Goal 10.1:
Provide opportunities for a variety of housing types at a range of price levels to meet
the diverse housing needs of current and future City residents.
Policies:
1. The City shall adopt and maintain land use policies, codes, and standards that
provide opportunities to develop a variety of housing types that meet the needs,
preferences. and financial capabilities of Tigard's present and future residents.
2. The City's land use program shall be consistent with applicable state and federal
laws.
3. The City shall support housing affordability, special-needs housing, ownership
opportunities, and housing rehabilitation through programs administered by the
state, Washington County, nonprofit agencies, and Metro.
4, The City shall adopt policies and develop funding resources that support
transitioning unhoused residents into permanent housing through a full spectrum of
supportive shelter and housing options. These policies should support trauma-
informed approaches to rehousing that are most likely to result in residents' long-
term success and housing stability.
5. The City shall continue to develop, dedicate, and administer funding resources (such
as the Construction Excise Tax and others) to support affordable housing for rental
and homeownership, including new construction and preservation of existing
affordable housing.
6. The City shall adopt and maintain land use regulations that provide opportunities to
develop housing for persons with special needs. The scale, design, intensity, and
operation of these housing types shall be compatible with other land uses and
located in proximity to supporting community services and activities.
7. The City shall provide for high and medium density housing in the areas such as
town centers (Downtown), regional centers (Washington Square), the Tigard
Triangle, and along transit corridors where employment opportunities, commercial
services, transit, and other public services necessary to support higher population
densities are either present or planned for in the future.
8. The City shall provide opportunity for a mix and range of housing types and sizes in
all low- and medium-density residential areas, including single detached houses,
accessory dwelling units, quads, cottage clusters, courtyard units, and rowhouses.
9. The City shall make affirmative efforts to further fair housing and equitable access
to community resources for all residents. In doing so, the City shall comply with
federal and state housing laws, including the Fair Housing Act, as well as applicable
implementing administrative rules and regulations.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 97
Exhibit A
10. The City shall enact policies that provide for equitable housing opportunity without
discrimination or disparity based on tenure, familial status, or household
composition of the occupants of any type of housing.
11. The City shall encourage the development of mixed-income neighborhoods and
ensure opportunity for economic mobility and intergenerational wealth through
affordable homeownership programs.
12. The City shall implement findings and recommendations from the 2013 Tigard
Housing Strategics Report 2021 Tigard Housing Needs Analysis and Housing Market
Analysis and from the 2019 Affordable Housing Plan. as incorporated in the
Recommended Action M sures described in the Plan and further detailed in the
Housing Strategics Report.
Recommended Action Measures:
i. Update the City's Buildable Land Inventory regularly to monitor the rate of
development and the availability of residential land.
ii. Monitor regional and local housing trends and periodically review and update the
City's land use policies and regulations accordingly to provide the range of housing
development opportunities needed by Tigard's residents.
iii. Allow manufactured homes on individual lots subject to standards to ensure their
compatibility with single-family residential housing types.
iv. Encourage homeowners to add accessory dwelling units to their properties through
incentives such as education, fee waivers, and resource connections.
v. Increase opportunities for higher-density mixed-use development in the Downtown
Urban Renewal District, Washington Square Regional Center, Tigard Triangle, and
designated Corridors to enable residential uses to be located in close proximity to
retail, employment, and public facilities,such as transit and parks.
vi. Provide incentives to encourage the development of a range of housing choices,
including affordable housing units at transit-supportive densities near existing and
planned transit routes, and/or in proximity to major activity centers such as
employment, commercial areas, schools, and recreation areas.
vii. Provide incentives to encourage affordable middle housing development in low-and
medium-density residential areas throughout the city, including in areas of new
development and redevelopment.
viii. Lower development costs for affordable housing by subsidizing City fees and
charges, giving higher priority to housing projects close to major activity centers
and transit services and/or providing additional incentives to their development.
ix. Amend City System Development Charge (SDC) structure to allow for tiered fees
based on home size.
x. Communicate the availability of local, state, and federal affordable housing
incentives and subsidies to those involved in the housing industry.
xi. Participate with other Portland Metropolitan area jurisdictions and agencies to
address both local and regional affordable and workforce housing needs.
98 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
xii. Develop and implement strategies to encourage affordable housing in the City's
regional (Washington Square) and town centers (Downtown) and other areas
designated for mixed use and high residential densities.
xiii. Coordinate with the Washington County Housing Authority, private non-profit
housing corporations, H.U.D. and other federal, state, and regional agencies for the
provision of subsidized housing programs in Tigard.
xiv. Increase Tigard's diversity of housing types through financial incentives and
regulatory tools such as density transfer and planned development standards;
transit, and vertical oriented housing tax credits; reduced parking requirements;
height and density bonuses; voluntary inclusionary zoning, etc.
xv. Work with Metro and Washington County to determine the City's projected regional
share of affordable, workforce, and special needs housing and to develop and
implement strategies to accommodate projected local and regional needs.
xvi. Work with the Washington County Housing Authority; and non-profit corporations
to encourage preservation or replacement of affordable and special needs use
housing, including housing for seniors, housing accessible to people with disabilities,
and housing for people experiencing homelessness, when:
A. redevelopment occurs in older areas of the City;
B. single family dwellings are upgraded for sale or higher rent; or
C. apartments are converted to condominiums or to rentals that are more
expensive.
xvii. Encourage the development of affordable housing when opportunities arise to
redevelop public property and private institutional lands.
xviii. Support affordable housing development through land acquisition, development or
participation in a land bank.
xix. Provide opportunities for affordable home ownership by:
A. Adapting the City's land use program to allow for the development of a
variety of residential building types and ownership arrangements;
B. Supporting the activities of non-profit housing providers such as Habitat
for Humanity, community land trusts, and others; and
C. Supporting the efforts of Washington County Housing Authority, the
Community Housing Fund, and developers of affordable housing to utilize
a variety of public and private subsidies and incentives-;
D. Using dedicated funding streams such as CDBG, CET revenue, or other
available funding to provide homebuyer assistance, such as down
payment or closing cost assistance; and
E. Affirmatively marketing available home ownership programs to all
prospective residents, including residents with limited English proficiency.
xx. Support housing types, such as shared housing, accessory dwelling units, smaller
homes, cottage clusters, adult foster homes, and other assisted living arrangements
that allow the elderly to remain in their community as their needs change. Support
accessibility modifications to allow the elderly and people with disabilities to remain
in their homes if desired.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 99
Exhibit A
xxi. Support development of affordable rental housing through partnerships with the
Community Housing Fund and other affordable housing providers. Engage with Low
Income Housing Tax Credit developers to attract LIHTC development in Tigard.
Goal 10.2:
Maintain a high level of residential livability.
Policies:
1. The City shall adopt measures to protect and enhance the quality and integrity of
its residential neighborhoods.
2. The City shall seek to provide multi-modal transportation access from residential
neighborhoods to transit stops, commercial services, employment, and other
activity centers.
3. The City shall commit to improving and maintaining the quality of community life,
public safety, education, transportation, community design, and equitable housing
access; (a strong economy, parkc and recreation, etc.) as the bases basis for
sustaining a high-quality residential environment.
4. The City shall protect the habitability and quality of its housing stock through code
inspection services and enforcement.
5. The City shall encourage housing that supports sustainable development patterns
and climate change preparedness and mitigation 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.
6. The City shall promote innovative and well-designed housing development by
allowing flexibility in standards through application of planned developments and
community design tandards for multi family housing.
7. The City shall ensure that residential uses doncitioc are appropriately related to
locational characteristics and site conditions such as the presence of natural hazards
and natural resources, availability of public facilities and services, and existing land
use patterns.
8. The City shall require measures to mitigate the adverse impacts from non-residential
differing, or moro intorr✓o, land uses on residential living environments, such as:
A. Reduction of off-site impacts between residential zones; orderly
transitions from one residential density to another;
B. protection of existing vegetation, natural resources and provision of open
space areas; and
C. installation of landscaping and effective buffering and screening.
9. The City shall require infill development to be designed to address compatibility with
existing neighborhoods.
10. The City shall regulate home-based businesses (occupations) to prevent adverse
impacts on residential areas.
100 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit A
Recommended Action Measures:
i. Encourage future housing development on designated buildable lands in areas
where public facilities and services can be most readily provided.
ii. Engage Tigard's residents citizens in public policy decisions, programs, and projects
to improve neighborhood quality of life such as improving public safety; providing
high quality public services; enhancing mobility and easy access to activity centers;
improving community design; providing parks and open space; and promoting a
green environment. Offer translation and interpretation to ensure residents with
limited English proficiency can engage in public policy decisions, programs, and
projects.
iii. Promote Planned Development, density transfer, site and building design standards,
and other regulations to protect natural areas preserve open spaces and enhance
Tigard's residential environment.
iv. Develop standards to enhance livability for those living in housing adjacent to major
streets such as appropriate setbacks, buffering and screening, noise mitigation,
building orientation, landscaping, et-G.
v. Update and maintain the City's land use regulations. engineering standards, and
building codes to be consistent with federal and state requirements and responsive
to current conditions and anticipated development trends.
vi. Promote the maintenance of habitable housing in Tigard through Housing
Inspection and Enhanced Housing Safety programs. Gontribu e—to an Emergency
Housing Fund to osc4 t those who lose housing due to safety/riabitability-p-Fablamc,.
Develop regulatiom, : ardards,educational tools,and incentives to induce property
owners to maintain residential property and to rehabilitate or redevelop
deteriorated or marginally habitable residential properties.
vii. Encourage those who must make habitability and safety improvements to their
homes to access low interest loan and grant programs offered by the Washington
County Housing Rehabilitation Program.
viii. Develop resources or coordinate access to existing resources to assist those who
lose housing due to safety/habitability problems to obtain suitable alternative
housing.Gontribute-to an Emergency Housing Fund to acc't those who lose housing
due to safety/habitability problems.
ix. Promote the habitability and quality of existing housing stock through means such
as effective code enforcement and code violation follow-through, habitability
standards, and rental licensing and inspection. Enforce code to abate public health
and safety problems associated with the unlawful use of residential properties.
x. Establish and maintain standards to regulate non-residential accessory structures to
protect the character and quality of existing neighborhoods.
xi. Provide incentives and technical assistance to make resource-efficient (green)
technologies and materials part of new development and the remodeling or
retrofitting of existing development. Opportunities include but are not limited to:
energy conservation, water re-use, water quality enhancements, green building
materials, solar heating/cooling, and drought tolerant landscaping, ctc.
xii, Adopt and maintain clear and objective approval standards, criteria, conditions, and
review processes for needed housing per state requirements.
City of Tigard HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS 101
Exhibit A
xiii. Develop partnerships with neighboring jurisdictions on multijurisdictional code
enforcement issues.
xiv. Provide incentives to encourage information about accessible design practices in to
housing development developers to help ensure that new housing is accessible to
people with physical and mobility limitations, including aging residents.
xv. Provide informational materials and other technical assistance to housing
developers to ensure that residential development procedures and processes are as
easy to understand and navigate as possible.
xvi. Provide opportunities for city planning staff to obtain training and knowledge of
housing development issues to ensure they can continue to effectively implement
housing goals, policies, and action measures.
xvii. Provide incentives to €encourage all residential developers to incorporate housing
affordable to low- and moderate-income residents in their proposed developments.
xviii. Encourage large employers to consider implementing employer-assisted housing
programs.
102 HOUSING NEEDS ANALYSIS& HOUSING MARKET ANALYSIS City of Tigard
Exhibit B
City of Tigard
Proposed Comprehensive
Plan Amendments
(CPA2021-00002)
Tigard Comprehensive Plan
Text Amendments
City Council — May 25, 2021
Please contact Schuyler Warren, Senior Planner, at 503-718-2437 or schuvlerwPtigard-or.gov with
questions or comments about the proposed code amendments or the code adoption process.
Exhibit B
This page left intentionally blank.
Exhibit B
[note - the following sections completely replace the existing Comprehensive
Plan text starting with "Capacity for Future Housing Development"on page
10-3 and ending at Goal 10.1 on page 10-7]
Capacity for Future Housing Development
An analysis of housing needs and capacity conducted in 2021 found the capacity to build
annroximately 4.200 new housing units on buildable lands zoned for residential development
within the City. compared to an estimated need for fust over 7.400 new units in the city.
during the next 20 years. and an additional need for about 7.500 housing units in adjacent
areas of unincorporated Washington County.The analysis also found that the City's zoning
allows for the opportunity for more than 50%of new housing to be constructed as single-
family attached or multi-family housing. consistent with the Metropolitan Housing Rule.
Affordable Housing/ Special Needs Housing
Metro also addresses affordable housing in Title 7 of its Functional Plan. Title 7 includes
voluntary affordable housing production goals and other affordable housing strategies.
Tigard has undertaken a variety of voluntary actions to support and enhance opportunities
for affordable housing. At the city level, initiatives to lower development costs for dedicated
affordable housing include System Development Charge (SDC) waivers and tax exemptions
for affordable properties owned by nonprofit organizations. In many cases. these exemptions
can be combined with other subsidies such as Low-Income Housing Tax Credits (LIHTC)
to achieve a suitable financing structure for affordable development.
Tigard adopted a.Construction Excise Tax(CET)in 2020 that will generate revenue to
support local affordable housing initiatives,and as of 2021.Tigard is now a joint entitlement
city and will receive Community Development Block Grant (CDBG)funds annually from the
U.S.Department of Housing and Urban Development.The City also allocates funds from its
two Tax Increment Financing(TIF)Districts—Downtown and Tigard Triangle—toward
affordable housing.The Tigard Triangle has an Equitable Development Strategies policies
that guides investment of TIF funds.which specifically prioritizes affordable housing
development.
Among the organizations involved in low-income housing,special needs housing, and
emergency housing, are Community Partners for Affordable Housing.Luke-Dorf.the Good
Neighbor Center. and others.This Plan includes a variety of policies to further the
development of affordable and special needs housing in Tigard.The City's Development
Code also includes provisions that can act as incentives and/or create opportunities to help
meet these housing needs.
Kev Findings
The following findings are based on a Housing Needs Analysis and Housing Market
Analysis prepared for the city in 2021.Data included in the findings is based on a
combination of Census data from 2010.Five-Year American Community Survey(ACS) data
from 2014-2018. and other data sources noted below.
Exhibit B
Current Population Trends
• The 2021 Housing Needs Analysis and Housing Market Analysis provide the basis for
the findings and policy recommendations in this element of the Comprehensive Plan.
• Tigard was the fifth largest city 1Zv population in the Clackamas. Multnomah, and
Washington County area according to the 2021 population estimates by Metro. It
represents about 3%of the total population within the three primary metro counties.
• Tigard grew by 6.857 people between 2000 and 2010. or 17%. This is somewhat slower
than growth in Washington County of 19%during that period,but greater than growth in
the state of Oregon of 12%.
• From 2010 to the 2014-2018 5-Year ACS estimate. Tigard grew by 4.333 people. or 9%.
This is roughly similar to the growth rate in Washington County (10%) and the Portland-
Vancouver-Hillsboro metro area (9%). It is above the statewide growth rate of 6%.
• Tigard was home to over 52.000 people and 21.000 households as of 2014-2018 5-Year ACS
estimates. Families represent 65% of all households. This is veru similar to the metro
area figure of 64%family households, and Washington County's 68%.
• Tigard's average household size as of the 2014-2018 Five-Year ACS was 2.47 persons,
relatively unchanged from 2.49 as of the 2010 Census. This figure is slightly lower than
the average household size in Washington County(2.66) and the metro area(2.57).
• Tigard's median household income was $75.795 as of the 2014-2018 Five-Year ACS. This
figure is 7% higher than the Portland-Vancouver-Hillsboro metro area median ($70.724)
but 3%below the Washington County median($78.010).
• Median income in the city grew 28% between 2010 and the 2014-2018 estimate. Median
income growth was lower in the county (at 17%) and higher in the metro area (33%).
resulting in medians across the three geographies that were closer to one another in
2014-2018 than in 2010.
• An estimated 9% of the population in Tigard lives under the poverty level, according to
2014-2018 Five-Year ACS data. The poverty rate for Tigard households is higher than
average among females (10.5%) and those age 18 to 34 (14.7%).
Current Housing Trends and Needs
• An estimated 58% of housing units are ownership units. while an estimated 42% of
housing units are rental units. according to 2014-2018 Five-Year ACS data. Tigard's
homeownership rate is slightly lower that of Washington County (61%) and the Portland-
Vancouver-Hillsboro metro area(63%).
• As of 2014-2018 Five-Year ACS data. about 95% of ownership units are single-family
homes (detached or attached).while about 63% of rental units are in structures of 5 units
or more.
• In general,there is a need for some less expensive ownership units and rental units. This
is not uncommon as the lowest income households struggle to find housing of any type
that keeps costs at 30%of gross income.
Exhibit B
• Among Prospective ownership households. there is a solid supply of upper-mid-priced
housing. This analysis estimates the need for more for-sale housing across all income
ranges over the next 20 years. with specific emphasis on affordable homeownership
opportunities and home accessibility modifications to allow seniors to age-in-place.
• There is a general need for rental units at the lower and middle price levels. According to
U.S. Department of Housing and Urban Development 2013-2017 5-Year Comprehensive
Housing Affordability Strategy data, about three-fourths of renters with low incomes
spend more than 30% of their income on housing.An emphasis on housing affordability
would improve options for existing renters in Tigard and better housing need over the
next 20 years.
• The housing vacancy rate in Tiprd is low (3.4%). indicating a tight market where
residents may have difficulty finding available housing. This rate is lower than that of
Washington County (4.4%). the metro area (5.5%) and the state (9.1%). according to
2014-2018 Five-Year ACS estimates.
• Vacancy is very low for both homeownership and rental units in Tigard. although slightly
lower for for-sale housing. The 2014-2018 Five-Year ACS data estimated only about 237
units available for-sale or rent in Tigard.
Future Housing Demand and Land Supply
• There is a need for over 7.400 new housing units in the City of Tigard by 2040. with a
stronger emphasis on new ownership units.
• It is Projected that in coming decades a greater share of housing will be attached tunes.
including attached single family. Attached units are projected to meet nearly 55% of
future need. including single-family attached units (projected to meet 15% of future
need) and multifamily units (Projected to meet 40% of future need). These will include a
mix of rental and ownership housing
• About 40% of future need is projected to be single family detached homes. which are
expected to be Predominately ownership housing•.
• Under 1% of new needed units are Projected to be manufactured home units in
manufactured home parks. which meet the needs of some low-income households for
both ownership and rental.
• There is the capacity (as of 2021) to build approximately 4.206 new housing units on
buildable lands zoned for residential development (residential and "mixed use
residential" zones) within the City of Tigard. There is additional residential capacity in
adjacent areas in unincorporated Washington County. including River Terrace 2.0 and
the Washington Square Regional Center.
• The supply of buildable land zoned for residential use in Tigard Provides the opportunity
to develop more than 50% of new housing as single-family attached or multi-family
units,consistent with the Metropolitan Housing Rule.
• City zoning provides the opportunity to construct housing at an average overall density
of 10 units per net developable acre, consistent with reauirements of the Metropolitan
Housing Rule.
Exhibit B
• The City's Comprehensive Plan policies and Development Code Provide for the
opportunity to meet a full range of housing choices and needs. However. a number of
action measures are recommended in this Plan to enhance those opportunities.
Goal 10.1:
Provide opportunities for a variety of housing types at a range of price levels to meet the
diverse housing needs of current and future City residents.
Policies:
1. The City shall adopt and maintain land use policies, codes, and standards that provide
opportunities to develop a variety of housing types that meet the needs, preferences,
and financial capabilities of Tigard's present and future residents.
2. The City's land use program shall be consistent with applicable state and federal laws.
3. The City shall support housing affordability, special-needs housing, ownership
opportunities, and housing rehabilitation through programs administered by the state,
Washington County,nonprofit agencies,and Metro.
4. The City shall adopt policies and develop funding resources that support
transitioning unhoused residents into permanent housing through a full
spectrum of supportive shelter and housing options. These policies should
support trauma-informed approaches to rehousing that are most likely to result
in residents'long-term success and housing stability.
5. The City shall continue to develop, dedicate, and administer funding resources
(such as the Construction Excise Tax and others) to support affordable housing
for rental and homeownership. including new construction and preservation of
existing affordable housing.
6. The City shall adopt and maintain land use regulations that provide opportunities to
develop housing for persons with special needs. The scale, design, intensity, and
operation of these housing types shall be compatible with other land uses and located
in proximity to supporting community services and activities.
7. The City shall provide for high and medium density housing in the areas such as town
centers (Downtown), regional centers (Washington Square), the Tigard Triangle. and
along transit corridors where employment opportunities, commercial services, transit,
and other public services necessary to support higher population densities are either
present or planned for in the future.
8. The City shall provide opportunity for a mix and range of housing types and
sizes in all low- and medium-density residential areas, including single
detached houses, accessory dwelling units. quads. cottage clusters, courtyard
units. and rowhouses.
9. The City shall make affirmative efforts to further fair housing and equitable
access to community resources for all residents. In doing so, the City shall
comply with federal and state housing laws, including the Fair Housing Act, as well as
applicable implementing administrative rules and regulations.
Exhibit B
10. The City shall enact policies that provide for equitable housing opportunity
without discrimination or disparity based on tenure. familial status. or
household composition of the occupants of any type of housing.
11. The City shall encourage the development of mixed-income neighborhoods and
ensure opportunity for economic mobility and intergenerational wealth through
affordable homeownership programs.
12. The City shall implement findings and recommendations from the 2013 Tigard
Ilousing Stratcgic:, %.pc'-t 2021 Tigard Housing Needs Analysis and Housing
Market Analysis and from the 2019 Affordable Housing Plan. fo iAc\-13czitcd in
- ' - ---------- - -=- -. . - :- •;-: - .-• INkx cera ncer detailed in the
Strategics Rcport.
Recommended Action Measures:
i. Update the City's Buildable Land Inventory regularly to monitor the rate of
development and the availability of residential land.
ii. Monitor regional and local housing trends and periodically review and update the City's
land use policies and regulations accordingly to provide the range of housing
development opportunities needed by Tigard's residents.
iii. Allow manufactured homes on individual lots subject to standards to ensure their
compatibility with single-family residential housing types.
iv. Encourage homeowners to add accessory dwelling units to their properties
through incentives such as education.fee waivers.and resource connections.
v. Increase opportunities for higher-density mixed-use development in the Downtown
Urban Renewal District, Washington Square Regional Center, Tigard Triangle, and
designated Corridors to enable residential uses to be located in close proximity to retail,
employment,and public facilities;such as transit and parks.
vi. Provide incentives to encourage the development of a range of housing choices,
including affordable housing units at transit-supportive densities near existing and
planned transit routes, and/or in proximity to major activity centers such as
employment, commercial areas, schools,and recreation areas.
vii. Provide incentives to encourage affordable middle housing development in low-
and medium-density residential areas throughout the citw, including in areas of
new development and redevelopment.
viii. Lower development costs for affordable housing by subsidizing City fees and charges,
giving higher priority to housing projects close to major activity centers and transit
services and/or providing additional incentives to their development.
ix. Amend City System Development Charge (SDCI structure to allow for tiered
fees based on home size.
x. Communicate the availability of local, state, and federal affordable housing incentives
and subsidies to those involved in the housing industry.
xi. Participate with other Portland Metropolitan area jurisdictions and agencies to address
both local and regional affordable and workforce housing needs.
Exhibit B
xii. Develop and implement strategies to encourage affordable housing in the City's
regional (Washington Square) and town centers (Downtown) and other areas
designated for mixed use and high residential densities.
xiii. Coordinate with the Washington County Housing Authority, private non-profit
housing corporations, H.U.D. and other federal, state, and regional agencies for the
provision of subsidized housing programs in Tigard.
xiv. Increase Tigard's diversity of housing types through financial incentives and regulatory
tools such as density transfer and planned development standards; transit, and vertical
oriented housing tax credits;reduced parking requirements;height and density bonuses;
voluntary inclusionary zoning,etc.
xv. Work with Metro and Washington County to determine the City's projected regional
share of affordable, workforce, and special needs housing and to develop and
implement strategies to accommodate projected local and regional needs.
xvi. Work with the Washington County Housing Authority;and non-profit corporations to
encourage preservation or replacement of affordable and special needs use housing,
including housing for seniors. housing accessible to people with disabilities._
and housing for people experiencing homelessness.when:
A. redevelopment occurs in older areas of the City;
B. single family dwellings are upgraded for sale or higher rent;or
C. apartments are converted to condominiums or to rentals that are more
expensive.
xvii. Encourage the development of affordable housing when opportunities arise to
redevelop public property and private institutional lands.
xviii. Support affordable housing development through land acquisition, development
or participation in a land bank.
xix. Provide opportunities for affordable home ownership by:
A. Adapting the City's land use program to allow for the development of a
variety of residential building types and ownership arrangements;
B. Supporting the activities of non-profit housing providers such as Habitat
for Humanity,community land trusts,and others;aftel
C. Supporting the efforts of Washington County Housing Authority, the
Community Housing Fund, and developers of affordable housing to utilize
a variety of public and private subsidies and incentives:;
D.Using dedicated funding streams such as CDBG. CET revenue, or
other available funding to provide homebuyer assistance. such as
down payment or closing cost assistance: and
E.Affirmatively marketing available home ownership programs to all
prospective residents. including residents with limited English
proficiency.
xx. Support housing types, such as shared housing, accessory dwelling units, smaller
homes, cottage clusters, adult foster homes, and other assisted living arrangements that
allow the elderly to remain in their community as their needs change. Support
Exhibit B
accessibility modifications to allow the elderly and people with disabilities to
remain in their homes if desired.
xxi. Support development of affordable rental housing through partnerships with the
Community Housing Fund and other affordable housing providers. Engage with Low
Income Housing Tax Credit developers to attract LIHTC development in
Tigard.
Goal 10.2:
Maintain a high level of residential livability.
Policies:
1. The City shall adopt measures to protect and enhance the quality and integrity of its
residential neighborhoods.
2. The City shall seek to provide multi-modal transportation access from residential
neighborhoods to transit stops, commercial services, employment, and other activity
centers.
3. The City shall commit to improving and maintaining the quality of community life,
public safety, education, transportation, community design, and equitable housing
access; (a sten g �, r ->r may,ps.Aks and recreation, etc.) as the bases basis for sustaining
a high-quality residential environment.
4. The City shall protect the habitability and quality of its housing stock through code
inspection services and enforcement.
5. The City shall encourage housing that supports sustainable development patterns and
climate change preparedness and mitigation 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.
6. The City shall promote innovative and well-designed housing development by
allowing flexibil4 in standards through application of planned developments and
community cicoign otanclarcl-fa.\sw.l i family hou3ing.
7. The City shall ensure that residential uses dcn3itic3 are appropriately related to
locational characteristics and site conditions such as the presence of natural hazards and
natural resources, availability of public facilities and services, and existing land use
patterns.
8. The City shall require measures to mitigate the adverse impacts from non-residential
differing,or morc intense,land uses on residential living environments, such as:
A. Reduction of off-site impacts between residential zones: erderly
transitions fivxn✓ic dcnsity to another;
B. protection of existing vegetation, natural resources and provision of open
space areas;and
C. installation of landscaping and effective buffering and screening.
9. The City shall require infill development to be designed to address compatibility with
existing neighborhoods.
Exhibit B
10. The City shall regulate home-based businesses (occupations) to prevent adverse
impacts on residential areas.
Recommended Action Measures:
i. Encourage future housing development on designated buildable lands in areas where
public facilities and services can be most readily provided.
ii. Engage Tigard's residents citizen:,in public policy decisions,programs, and projects to
improve neighborhood quality of life such as improving public safety; providing high
quality public services; enhancing mobility and easy access to activity centers;improving
community design; providing parks and open space; and promoting a green
environment. Offer translation and interpretation to ensure residents with limited
English proficiency can engage in public policy decisions. programs and
proiects.
iii. Promote Planned Development, density transfer, site and building design standards,
and other regulations to protect natural areas preserve open spaces and enhance
Tigard's residential environment.
iv. Develop standards to enhance livability for those living in housing adjacent to major
streets such as appropriate setbacks, buffering and screening,noise mitigation,building
orientation,landscaping,etc.
v. Update and maintain the City's land use regulations, engineering standards, and
building codes to be consistent with federal and state requirements and responsive to
current conditions and anticipated development trends.
vi. Promote the maintenance of habitable housing in Tigard through Housing Inspection
and Enhanced Housing Safety programs. Contribu`c __ Fcy
t„ ax x tho✓ duc to safety/habitability p o 2c»G. Develop
regulations, standards, educational tools;and incentives to induce property owners
to maintain residential property and to rehabilitate or redevelop deteriorated or
marginally habitable residential properties.
vii. Encourage those who must make habitability and safety improvements to their homes
to access low interest loan and grant programs offered by the Washington County
Housing Rehabilitation Program.
viii. Develop resources or coordinate access to existing_ resources to assist those who
lose housing due to safety/habitability problems to obtain suitable alternative
housing. o tribs tc to u.:xti»:�ga�ay I o ±g te►��a t Gs��` th✓ h 1✓: h xz�ing
duc to safety/lx lit&ilry Ycoblcros.
ix. Promote the habitability and quality of existing housing stock through means such as
effective code enforcement and code violation follow-through, habitability standards,
and rental licensing and inspection. Enforce code to abate public health and safety
problems associated with the unlawful use of residential nronerties.
x. Establish and maintain standards to regulate non-residential accessory structures to
protect the character and quality of existing neighborhoods.
xi. Provide incentives and technical assistance to make resource-efficient (green)
technologies and materials part of new development and the remodeling or retrofitting
of existing development. Opportunities include but are not limited to: energy
conservation, water re-use,water quality enhancements, green building materials, solar
heating/cooling,and drought tolerant landscaping,ctc.
Exhibit B
xii. Adopt and maintain clear and objective approval standards, criteria, conditions, and
review processes for needed housing per state requirements.
xiii. Develop partnerships with neighboring jurisdictions on multijurisdictional code
enforcement issues.
xiv. Provide incentives to encourag informauo�� alp t accessible design practices in to
housing development developers to help ensure that new housing is accessible to
people with physical and mobility limitations,including aging residents.
xv. Provide informational materials and other technical assistance to housing developers to
ensure that residential development procedures and processes are as easy to understand
and navigate as possible.
xvi. Provide opportunities for city planning staff to obtain training and knowledge of
housing development issues to ensure they can continue to effectively implement
housing goals,policies,and action measures.
xvii. Provide incentives to Eencourage all residential developers to incorporate housing
affordable to low-and moderate-income residents in their proposed developments.
xviii. Encourage large employers to consider implementing employer-assisted housing
programs.
EXHIBIT C
SUPPLEMENTAL PACKET
FOR s — � �' — aoal
ei City of Tigard (DATE OF MEETING)
nt 6
TIGARD
Memorandum 9�" d a [�`
To: Honorable Mayor Jason Snider and Tigard City Council
From: Schuyler Warren, Senior Planner
Re: CPA2021-00002 Amended Findings
Date: May 24, 2021
This memo is intended to address comments received by Housing Land Advocates related to the Goal
10 findings of the Planning Commission recommendation to Council. Staff requests that Council amend
the ordinance to adopt the findings and conclusions presented in Exhibit C,with the findings related to
Goal 10 amended as shown below.
Statewide Planning Goal 10—Housing:
This goal requires cities and counties to provide adequate capacity for needed housing. OAR
Chapter 660 Divisions 7 and 8, which implement Goal 10, states that "the purpose of this
division is to ensure opportunity for the provision of adequate numbers of needed housing
units and the efficient use of land within the Metropolitan Portland (Metro) urban growth
boundary, to provide greater certainty in the development process and so to reduce housing
costs."
FINDING: The purpose of this legislative process is to update the city's Housing Needs Analysis
in accordance with statewide planning Goal 10. The Housing Needs Analysis is used to determine
the city's need for residential land to accommodate at least 20 years of future growth.
As part of this analysis, the city is required to ensure that its existing policies enable flexibility in
housing location, type, and density. Further, the city is required to provide an overall density of 10
or more units per acre and an opportunity for 50 percent of new units to be attached single family or
multifamily.The city exceeds this requirement.The housing policy reforms adopted by Council in
2018 allow for attached units in all residential zones, and provide for maximum flexibility in housing
type, size, and tenure.
Additionally, the OAR requires that if the city proposes to restrict housing supply based on tenure,it
would need to provide justification.The city not only does not propose any tenure restrictions,it has
eliminated all tenure-based language from the development code.
Comprehensive Plans are required to include a Housing Needs Analysis that includes a projection of
housing needs as well as an inventory of buildable lands.This analysis must look at a broad range of
factors related to supply and demand of housing,including housing mix and type, affordability, and
tenure, among others.
This analysis provides the basis for the city's housing policies and actions in the adopted
Comprehensive Plan.
The Housing Needs Analysis under consideration includes all of the information required under
Divisions 7 and 8, as well as ORS 197.296(3).Additionally,the document includes a Housing Market
Analysis that is intended to provide supplemental data and information beyond what is required
under state law. Taken together, this analysis provides a snapshot of the city's current and projected
housing conditions, and directly informs the polices of the Comprehensive Plan, as amended
according to the recommendations of the document.
Some key findings of the Housing Needs Analysis include:
• Roughly 59%of the city's housing stock is single detached houses.
• Housing supply for both purchase and rental is extremely constrained,with rates far lower
than in Washington County and the state as a whole.
• The median home price is $409,000,making most home unaffordable to those at or below
the area median income.
• The increase in rental rates has outpaced inflation every year since at least 2015.
• Residents surveyed as part of the analysis reported that the city needs mote housing,
including more affordable housing, as well as a greater variety of housing.
• Residents prefer housing in areas with safe streets and sidewalks.
• Land availability is a barrier to the construction of more affordable housing units.
• The city will need an additional 7,416 housing units,but has only capacity for an additional
4,206 units,leaving a shortfall of 3,210 units.
• Increased land capacity is needed to meet the city's projected growth.
Taken together with the city's Affordable Housing Plan, adopted in 2018, and the Strategic Plan,
updated in 2020, Goal 10 of the city's Comprehensive Plan provides a policy guide for the equitable
and sustainable provision of housing for the city's diverse and growing population.
This-geAl rcciul . . .• . . . • .. : • . . • . • . . . : . -• • . _ •
Girapter.-66 iolt e,yr •'_• - •-- • • -- - - . • . 1' . - • " - . . : • • .
the. - • -
ate. - . . . • . • - .• . • • - . . . . . -' - .
dmc of h.1• . . . • . . - • : . - - . . • • . . grtatct
e rLir y aca v .
FINDING: The,7purrpose of this lciJ� �c ✓is wlaxe the city's Housing Needs Analysis
l 4J\',✓vi& Ute.wi42-st-tt: 4o-panning Coal 10.
Tlii;, G.ix:.di.,ncnt i3 rcquir:,d pccioe' y uz, part of OAR 660,Diviaia i 7.The amendment adopts
- - - ' -- - -- -' - corn1 leted fo' kvr Ln Di"ri✓or 7
comparc3 cicma.id to current supply of buikkMc laniz, c y' pelicic, And
iffipleffior tin cit y i.ry i.fficicnt to newt tlx: nccdcd 20 year supe' .The I l 3uui i;Neth3
Analysis demon:A=1=3c adcgttatc hetwi ist-i .the r.✓ca
ofid ��,�7,� ,s ��,t...ad lida' for future work tc ;zpcnd h;ra✓at,e uit
and opportunity among TiKaid - -, :.- ;.. -- ..- : -
city's Compi 1Lvt.air REA citeptcr 10 ac s -.\Nc cct this updat;xi r cdpsis:
TL:,Tispersncnt of Land Conscrvation and D3w/J3p11alt,who Division 7,was
eoostiireel--th oagh Llic p ager cisa vieec xazu. . .: --. :- -- - ��a�t� rxril.mere
addressed the :r- 1, draft.The c.: dcA of dic Tigcrd Popula;i✓x caul Hou ing Rcvicw and
the amcndmcn;: &o dhc Tig-arci-Co»pir�cnsivc Plan maintains the ci#yZs ce tpliancc with Coal 10.
Hearing Date: Mav 25.2021 Time: 7:30 PM
PLANNING COMMISSION
RECOMMENDATION TO THE
CITY COUNCIL
FOR THE CITY OF TIGARD, OREGON T I GARD
SECTION I. APPLICATION SUMMARY
CASE NAME: TIGARD HOUSING NEEDS ANALYSIS UPDATE
CASE NO.: Comprehensive Plan Amendment (CPA) CPA2021-00002
PROPOSAL: To adopt the 2021 Housing Needs Analysis and Housing Market Analysis as an ancillary
document to the Tigard Comprehensive Plan; and to amend the current Tigard
Comprehensive Plan Goal 10: Housing goals,policies,and recommended action
measures.
The proposed Comprehensive Plan text amendments for the City Council's review are
included in Attachment 2 and summarized below in Section III of this report.
APPLICANT: City of Tigard
13125 SW Hall Blvd.
Tigard, OR 97223
ZONES: Citywide
LOCATION: Citywide
APPLICABLE
REVIEW
CRITERIA: Statewide Planning Goals 1 (Citizen Involvement), 2 (Land Use Planning); and 10
(Housing); Metro's Urban Growth Management Functional Plan Titles 1 and 8;
Comprehensive Plan Goals 10.1 and 10.2, and Policies 1.1.2, 2.1.1, 2.1.2, 2.1.3, 2.1.4,
2.1.19, and 2.1.25; and Tigard Development Code Chapters 18.710 and 18.790.
SECTION II. PLANNING COMMISSION RECOMMENDATION
Planning Commission recommends adoption by ordinance of the proposed updates to the Tigard Housing
Needs Analysis as a ancillary document to the Tigard Comprehensive Plan (Attachment 1) and adoption of the
proposed amendments to the Tigard Comprehensive Plan (Attachment 2) as further amended by staff and with
any alterations as determined through the public hearing process.
SECTION III. BACKGROUND INFORMATION AND PROJECT SUMMARY
HOUSING NEEDS ANALYSIS UPDATE COMPREHENSIVE PLAN AMENDMENTS CPA2021-00002
5/25/2021 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION TO THE CITY COUNCIL PAGE 1 OF 8
Project History
The City of Tigard last updated its Housing Needs Analysis and Goal 10 of its Comprehensive Plan in 2013 as
part of the periodic review requirement under state law. Since that time, the city and the region have
experienced an historic housing crisis driven by continued population growth and underproduction of housing
in the wake of the 2008 financial crisis and subsequent recession. Issues of housing equity, affordable housing,
and houselessness have grown increasingly important as the gap between housing access for higher- and lower-
income households grows wider across the region.
In response to these crises, the City of Tigard has implemented several policies and initiatives to meet its
housing goals,including housing options code reform, financial incentives, and new funding measures. The
Metro regional government has responded as well,with a region-wide affordable housing bond and a houseless
supportive services measure both receiving voter approval within the last three years.
Finally, several housing policy reforms adopted in recent years at the state level,including the landmark
HB2001,have the potential to shift the housing market toward more equitable housing opportunity.
Given the challenges in housing and the shifting regulatory landscape, the city determined that an update to its
housing needs analysis was needed.This new look at housing needs will provide needed guidance for a number
of current and planned long-range projects,including the River Terrace 2.0 Concept Plan and Community
Plan, the Washington Square Regional Center Plan update, and various code amendments to provide
The city is also seeking to expand the scope of its Housing Needs Analysis,incorporating a Housing Market
Analysis that takes a deeper look at the factors influencing housing availability and affordability,particularly
affordable housing.
The city received two grants from the Oregon Department of Land Conservation and Development to provide
for technical consultant assistance.
The 2021 Housing Needs Analysis (HNA) was developed in compliance with OAR 660 Division 10 (Statewide
Planning Goal 10: Housing) and is a technical study that compares projected demand for land for housing to
the existing supply of such land.The purpose of this HNA is to provide needed analysis and policy guidance to
the city in meeting its needs and desires to provide housing opportunity for all residents, as outlined in Chapter
10 of the Comprehensive Plan,while complying with state and Metro housing goals and requirements.
The analysis looks at population projections and demographic trends along with the amount and location of
available land. It includes a list of potential strategies to meet the city's future demand for housing based on
that analysis. The project also provides a qualitative analysis of the housing market and consumer preferences
for housing.
The city convened a Community Advisory Committee (CAC) for the project.This committee reviewed the
findings and key recommendations included in the HNA.
The tasks include examining future population projections and demographic trends to assess Tigard's housing
development potential,projecting household growth and determining short- and long term demand for
residential land. This demand is compared to an inventory of suitable residential land (supply) to assess the
sufficiency of immediate and longer-term (20-year) supply of residential land in the city.
HOUSING NEEDS ANALYSIS UPDATE COMPREHENSIVE PLAN AMENDMENTS CPA2021-00002
5/25/2021 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION TO THE CITY COUNCIL PAGE 2 OF 8
The project meets the state requirements for a Goal 10 population and housing analysis and acts as a resource
for staff, decision makers, and the public. One important task in the development of the HNA was to consider
land use planning efforts underway or already completed.
Proposal Description
Housing Needs Analysis
The Housing Needs Analysis serves as a component and ancillary document of the Tigard Comprehensive
Plan. It identifies the amount of needed residential land for the next 20 years and strategies to implement the
city's vision related to housing. It builds on a comprehensive study of the local housing market and future
trends and an in-depth review of current local, regional, state and federal housing requirements, goals and
initiatives. The strategies in the report will help to guide future decisions.
Amendments to Tigard Comprehensive Plan Chapter 10
A key outcome of the analysis is amended language in Chapter 10 of the Comprehensive Plan, which was
originally adopted in 2008 and subsequently revised in 2013. The core Chapter 10 goals as well as most of the
policies and recommended action measures remain relevant. However, a review of the policies and action
measures indicated that some were outdated or did not adequately reflect the current action areas in housing.
The narrative portion of the chapter required minor updates and the Key Findings section is proposed to be
replaced with data from the current HNA. These amendments are shown as strikethrough in Attachment 2.
Amendments to the Tigard Community Development Code
During the time that the HNA was being completed, the Department of Land Conservation and Development
was simultaneously developing the Oregon Administrative Rules related to the implementation of HB2001.
The project team preserved the option to include housing-related amendments to the Community
Development Code in the project should the timing of the state rulemaking allow such. Those rules were not
adopted by the Land Conservation and Development Commission until December of 2020. Based on that
narrow window of time in coordination with DLCD staff, city staff determined that the scale and scope of
needed amendments would exceed the capacity of the project. As a result, no amendments to the Community
Development Code are proposed at this time. A subsequent code project may be necessary to fully comply.
Summary
The primary goals in updating the city's Housing Needs Analysis, performing the Housing Market Analysis,
and amending Chapter 10 Housing of the Comprehensive Plan are threefold:
• Ensuring that the City's Comprehensive Plan remains a relevant and informative tool for decision-
makers;
• Complying with statewide planning Goal 10: Housing and the associated OAR 660 Division 8; and
Providing needed analysis and information for current and future long-range planning efforts, including the
River Terrace 2.0 Concept Plan and Community Plan, the Washington Square Regional Center update, the
Affordable Housing Plan implementation, and other relevant code projects.
Changes to City Council Draft
There were no changes from the Planning Commission draft and the proposed draft.
HOUSING NEEDS ANALYSIS UPDATE COMPREHENSIVE PLAN AMENDMENTS CPA2021-00002
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SECTION IV. APPLICABLE CRITERIA. FINDINGS AND CONCLUSIONS
STATEWIDE PLANNING GOALS AND GUIDELINES
State planning regulations require cities to adopt and amend Comprehensive Plans and land use regulations in
compliance with the state land use goals. Because the proposed Comprehensive Plan amendments have a
limited scope, only applicable statewide goals are addressed below.
Statewide Planning Goal 1—Citizen Involvement:
This goal outlines the citizen involvement requirement for adoption of Comprehensive Plans and
changes to the Comprehensive Plan and implementing documents.
FINDING: This goal has been met by complying with the Tigard Development Code notice requirements
set forth in Section 18.710.110 (Legislative Procedure). A notice was published in the Tigard Times newspaper
on April 1, 2021. Project information and documents were published to the City website prior to the public
hearings. A minimum of two public hearings will be held (one before the Planning Commission and the
second before the City Council). These hearings present an opportunity for public testimony. A minimum of
three drafts of the proposed Comprehensive Plan amendments (Proposed Draft to the Planning Commission,
and Planning Commission Recommendation to City Council) will be made available to the public for review
prior to hearings and adoption. This goal is satisfied.
Statewide Planning Goal 2—Land Use Planning:
This goal outlines the land use planning process and policy framework.
FINDING: The Department of Land Conservation and Development (DLCD) has acknowledged the city's
Comprehensive Plan as being consistent with the statewide planning goals. Changes to the city's
Comprehensive Plan must also be consistent with the statewide planning goals. The process for review of
Comprehensive Plan changes is the Post-Acknowledgment Plan Amendment (PAPA). The city submitted the
draft Housing Needs Analysis to DLCD for review through the PAPA process. DLCD staff provided
comments on the draft, and. those comments were addressed and incorporated into the final document. This
goal is satisfied.
Statewide Planning Goal 10—Housing:
This goal requires cities and counties to provide adequate capacity for needed housing. OAR Chapter
660 Division 8, which implements Goal 10, states that "the purpose of the division is to ensure
opportunity for the provision of adequate numbers of needed housing units, the efficient use of
buildable land within urban growth boundaries, and to provide greater certainty in the development
process so as to reduce housing costs."
FINDING: The purpose of this legislative process is to update the city's Housing Needs Analysis in
accordance with statewide planning Goal 10.
This amendment is required periodically as part of OAR 660, Division 7. The amendment adopts the
Housing Needs Analysis, which was completed following the rules outlined in Division 7 and compares
projected demand to current supply of buildable lands to ensure the city's policies and implementing actions
are sufficient to meet the needed 20-year supply. The Housing Needs Analysis demonstrates in detail the
city's capacity to provide adequate housing to meet the needs of the Tigard community, and provides policy
guidance for future work to expand housing equity and opportunity among Tigard residents. Updates to the
narrative and key findings sections of the city's Comprehensive Plan chapter 10 are to reflect this updated
analysis.
HOUSING NEEDS ANALYSIS UPDATE COMPREHENSIVE PLAN AMENDMENTS CPA2021-00002
5/25/2021 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION TO THE CITY COUNCIL PAGE 4 OF 8
The Department of Land Conservation and Development, who administers Division 7, was consulted
through the process and were requested to submit comments. Comments received were addressed in the
current draft. The adoption of the Tigard Population and Housing Review and the amendment to the Tigard
Comprehensive Plan maintains the city's compliance with Goal 10.
CONCLUSION: Based on the findings above and the related findings below, staff finds the proposed
map and text amendments are consistent with applicable Statewide Planning Goals.
METRO'S URBAN GROWTH MANAGEMENT FUNCTIONAL PLAN
State planning regulations require cities within the Metro service area to adopt and amend Comprehensive
Plans in compliance with Metro's Urban Growth Management Functional Plan. Because the proposed Code
Amendments have a limited scope and the text amendments address only some of the topics in Metro's Urban
Growth Management Functional Plan, only applicable Titles are addressed below.
Title 1—Housing Capacity
The Regional Framework Plan calls for a compact urban form and a "fair-share" approach to meeting
regional housing needs. It is the purpose of Title 1 to accomplish these policies by requiring each city
and county to maintain or increase its housing capacity except as provided in section 3.07.120.
FINDING: The Housing Needs Analysis includes a housing needs projection based on Metro's TAZ
allocations that include fair share distribution of housing needs regionally. In addition, the city requested
revisions to the last TAZ analysis to increase the number of projected housing units above the baseline. This
standard is met.
Title 8—Compliance Procedures
Title 8 requires that the city's Comprehensive Plan and plan amendments be consistent with the
Urban Growth Management Functional Plan.
FINDING: The Comprehensive Plan has been previously acknowledged by Metro to be in compliance with
Title 8. The only portion of the Comprehensive Plan being amended is Chapter 10 Housing. The housing
needs projection is based on Metro's own TAZ projections. The UGMFP does not include other regulatory
requirements for housing policy. Notice and a copy of the proposed Comprehensive Plan amendments were
provided to Metro.
CONCLUSION: Based on the findings above, staff finds that the proposed map and amendments are
consistent with Metro's Urban Growth Management Functional Plan.
TIGARD COMPREHENSIVE PLAN
State planning regulations require cities to adopt and amend their comprehensive plans in compliance with the
state land use goals and consistent with their adopted comprehensive plan goals and policies. Because the
Comprehensive Plan amendments have a limited scope, only applicable goals and policies are addressed below.
Comprehensive Plan Goal 1: Citizen Involvement
Policy 1.1.2: The City shall define and publicize an appropriate role for citizens in each phase of the
land use planning process.
FINDING: This policy has been met in multiple ways. The city provided a role for residents to participate
in the Community Advisory Committee,which was broadly advertised to the community. The city's consultant
team conducted multiple interviews with housing stakeholders, including affordable housing providers and
HOUSING NEEDS ANALYSIS UPDATE COMPREHENSIVE PLAN AMENDMENTS CPA2021-00002
5/25/2021 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION TO THE CITY COUNCIL PAGE 5 OF 8
developers. City staff with assistance from a community-based organization held a Spanish-language for to
discuss housing needs. Notice was provided in accordance with the requirements set forth in Tigard
Development Code Section 18.710.110 (Legislative Procedure). A notice was published in the Tigard Times
newspaper on April 1, 2021. Project information and documents were published to the City website prior to
the public hearings. A minimum of two public hearings will be held (one before the Planning Commission and
the second before the City Council) at which an opportunity for public input is provided. A minimum of two
drafts of the proposed code changes (Proposed Draft to the Planning Commission, and Planning Commission
Recommendation to City Council) will be made available to the public for review prior to hearings and
adoption.This policy is satisfied.
Comprehensive Plan Goal 2: Land Use Planning
Policy 2.1.1: The City's land use program shall establish a clear policy direction, comply with state
and regional requirements, and serve its citizens' own interests.
FINDING: The proposed Comprehensive Plan amendments comply with all state and regional requirements,
as the previous findings indicate. The proposed amendments update the Comprehensive Plan policies and
recommended action measures to be in alignment with new state laws and rules regarding housing provision.
The proposed amendments also establish a clear policy direction for the equitable provision of housing in the
city. This policy is satisfied.
Comprehensive Plan Goal 2: Land Use Planning
Policy 2.1.2: The City's land use regulations, related plans, and implementing actions shall be
consistent with and implement its Comprehensive Plan.
FINDING: As demonstrated in this staff report, the proposed amendments are consistent with the Tigard
Comprehensive Plan. This policy is satisfied.
Policy 2.1.3: The City shall coordinate the adoption, amendment, and implementation of its land use
program with other potentially affected jurisdictions and agencies.
FINDING: Copies of the proposed text amendments were sent to affected agencies and each agency was
invited to comment on the proposal. Comments submitted by affected agencies have been incorporated into
this report and the proposed amendments. This policy is satisfied.
Policy 2.1.4: The City's land use program shall promote the efficient use of land through the creation
of incentives and redevelopment programs.
FINDING: The proposed amendments include provisions that promote the efficient use of land. Several
policies provide guidance in developing and maintaining programs that will provide incentives to develop
affordable housing options and to redevelop properties to provide greater housing diversity and opportunity.
This policy is satisfied.
Policy 2.1.19: The Planning Commission may at any time recommend to the City Council that it
consider initiating legislative amendments to the Comprehensive Plan, Plan/Zoning Maps, and/or
Community Development Code.
FINDING: The recommendation of the Planning Commission regarding the proposed changes will be
brought to the City Council for consideration of adoption. This policy is satisfied through the provisions of
18.710.110 (Legislative Procedure).
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Policy 2.1.25: The City shall use the most recently adopted Metro population and employment
forecast, as allocated to Tigard, for planning purposes.
FINDING: The city used the most recent population forecasts from Metro to generate the housing needs
projection as demonstrated previously. This policy is satisfied.
CONCLUSION: Based on the findings above, staff concludes that the proposed map and text
amendments are consistent with applicable provisions of the Tigard Comprehensive
Plan.
APPLICABLE PROVISIONS OF THE TIGARD DEVELOPMENT CODE
Section 18.790: Zoning Map and Text Amendments
18.790.020 Legislative Amendments
Legislative amendments are processed through a Legislative procedure, as provided in Section
18.710.110.
FINDING: The proposed amendments are legislative in nature. Therefore, the amendments will be reviewed
under the Legislative Procedure as set forth in the chapter. This standard is met.
Section 18.710: Decision Making Procedures
18.710.110 Type IV Procedure
Notice of hearing.
1. All Legislative applications require two hearings, one before the Planning Commission and one
before the City Council.
FINDING: This procedure requires public hearings by both the Planning Commission and City Council.
These public hearings will be conducted on April 19, 2021 and May 25, 2021 respectively. This standard is met.
2. A notice of hearing will be provided as required by state law, and an affidavit of mailing will be
included in the record that identifies the mailing date and the names and addresses of the mailing
recipients.
FINDING: State law provides for specific noticing requirements for legislative changes. Notice must be
provided to the Department of Land Conservation and Development (DLCD) of a proposed Post
Acknowledgement Plan Amendment at least 35 days prior to the first hearing. Notice meeting this requirement
was provided to DLCD on March 15, 2021, 35 days prior to the first hearing. This standard is met.
CONCLUSION: Based on the findings above, staff concludes that the proposed map and text
amendments are consistent with applicable provisions of the Tigard Development
Code.
SUMMARY
CONCLUSION: As shown in the findings above, staff concludes that the proposed amendments are
consistent with the applicable Statewide Planning Goals; Metro's Urban Growth
Management Functional Plan; applicable Tigard Comprehensive Plan goals and policies,
and the applicable provisions of the City's implementing ordinances.
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SECTION V. AGENCY COMMENTS
TVF&R, METRO, ODOT, DLCD, CWS, TTSD, Tigard Water District, City of Beaverton, City of
King City, City of Lake Oswego, and Beaverton School District were notified of the proposed
Comprehensive Plan amendments.
No comments have been received from these agencies at the time of the staff report.
SECTION VI. PUBLIC COMMENTS
No public comments have been received at the time of the staff report. Public comments were received during
the Planning Commission hearing and are summarized in the minutes.
ATTACHMENTS:
Attachments:
1. Draft 2021 Housing Needs Analysis
2. Draft Comprehensive Plan Amendments
May 11. 2021
PREPARED BY: Schuyler Warren DATE
Senior Planner
11422 '`. 74.e_ Ckic'e
May 11. 2021
APPROVED BY: Tom McGuire DATE
Assistant Community Development Director
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