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JEFFERSON COUNTY
BOARD OF COUNTY COMMISSIONERS
AGENDA REQUEST
TO: Board of County Commissioners (BoCC) and Planning Commission
Philip Morley, County Administrator
FROM: Patty Charnas, Director
Department of Community Development (DCD)
DATE: November 6, 2017
SUBJECT: Comprehensive Plan periodic update — policy feedback on selected key topics:
Housing Element (part 1 of 3)
STATEMENT OF ISSUE:
The Department of Community Development (DCD) is leading the county's periodic update of
its Comprehensive Plan. DCD believes that a series of policy conversations with the Board is
advisable on high priority topics, namely the Housing, Economic Development and Land Use
Elements of the Comprehensive Plan. This will be first in a series of policy conversations
during the County Administrator's briefing session with DCD so that the Board may suggest or
comment on emerging policy content as first drafts for public review are being prepared.
ANALYSIS/STRATEGIC GOALS/PROS and CONS:
The periodic update is mandated by state law and directs that plans be "reviewed and revised if
necessary" using administrative guidelines (commonly referred to as the "checklist") published
by the Washington Department of Commerce. During this high level policy discussions with the
Board and County Administrator, DCD lead staff will summarize public outreach results and
relevant legislative changes that have helped frame the updates to the Housing Element goals
and policies. The intent of these afternoon briefing sessions is to ensure that the Board is kept
informed and given the opportunity to provide general policy feedback at this time in the work
plan.
FISCAL IMPACT/COST-BENEFIT ANALYSIS:
There is no fiscal impact to this briefing.
RECOMMENDATION:
Receive a briefing on the comprehensive plan periodic update and hold a high-level policy
discussion on the Housing Element.
REVIEWED BY:
Date
CABS
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HOUSING ELEMENT
Jefferson County continues to
exist as a rural region that
provides ideal lands for outdoor
recreation, conservation and
resource-based jobs. While the
approximately 31,000 residents highly value this enviable "quality of life" there is an
existing and growing lack of affordable housing for many sectors of the population,
especially for the moderate, low and very -low income households. Since the last periodic
update of the Comprehensive Plan in 2004, Jefferson County has not experienced
appreciable growth in population, jobs or residential development. This is despite a
general recovery from the Great Recession and a growth in rural regions of adjacent
jurisdictions. Without question, Jefferson County is challenged by a lack of economic
opportunities and a very real shortage of affordable housing.
HOUSING ELEMENT
Preliminary Discussion DRAFT
The purpose of the Housing Element is to ensure the vitality and character of residential
neighborhoods by assessing existing and future needs for housing in Jefferson County so
that housing is available for all economic segments of the community now and in the
future. Existing residential patterns, demographic trends and projected population growth
typically provide the basis for this assessment. In light of significant and growing gaps in
rural economic development and affordable and available housing, the Housing Element
periodic update will closely align with
• Economic Development: moderately -priced housing is critical to support job creation
and expansion
• Capital Facilities/Utilities and Transportation Elements: additional housing is best
planned for where there is existing or planned utilities, transit/transportation routes
and other community levels of service
• Land Use Element: land use designations and implementing development standards are
key to supporting housing goals and policies.
This Element addresses the range of housing opportunities and in particular, the
challenges that confront Jefferson County in providing affordable housing options now and
over the 20 -year planning period. The County will work cooperatively with public and
private housing providers to create and maintain safe and attractive housing stock and
encourage the siting and development of affordable housing.
EXISTING CONDITIONS
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HOUSING ELEMENT
Preliminary Discussion DRAFT
Jefferson County's residents occupy a range of housing types including private individual
single-family residences (9,761), mobile homes and manufactured units (2,881), multi-
family complexes, including duplexes, condominiums and apartments (365). Throughout
Jefferson County, accessory dwelling units (ADUs) are allowed in all residential zones; the
exact contribution of ADUs to overall housing stock in the County is not known. Based on
the countywide planning policies adopted by Jefferson County and the City of Port
Townsend, approximately thirty-six percent of all new population growth is targeted to
occur in the City of Port Townsend, which is currently the County's single incorporated
urban growth area. The City of Port Townsend's Comprehensive Plan calls for a range of
household sizes, housing types and densities. The City possesses urban levels of planned
density and is supported by urban levels of services such as municipal wastewater
treatment.
Housing development at higher densities in the County's unincorporated areas are
possible in the Port Hadlock Urban Growth Area (UGA). Urban housing densities, however,
are stymied by a lack of municipal wastewater treatment. A sewer facility plan was
prepared in 2009 and received state review and approvals along with site design,
engineering and a financing plan. Construction of the Port Hadlock UGA wastewater
treatment project has not begun. Funding to begin the sewer system's installation is not
available. For this periodic update, consideration will be given to options that help in the
planning and development of housing in the Port Hadlock UGA while funding and
resources continue to be sought for a sewer system.
Port Townsend and Port Ludlow are presently the only two communities that have level of
service standards that would accommodate the density, services and other criteria for
locating multi -family residential housing. The Port Hadlock UGA is planning for a sewer
service area that will meet requirements for higher density housing.
Jefferson County contains a predominately -rural residential land use pattern. This pattern
allows single-family dwellings throughout a majority of Jefferson County. The Port Ludlow
Master Planned Resort, Port Hadlock UGA and Rural Village Centers of Brinnon and
Quilcene provide opportunities for greater densities and the creation of multi -family
housing units, depending on available infrastructure.
Since the last Comprehensive Plan update in 2004 and continuing for the current 20 year
planning period, population growth is expected to occur at a very modest rate (N1%
annually). There is sufficient undeveloped, under -developed and vacant land available to
accommodate future housing needs on a gross unit basis. While there is sufficient
undeveloped rural residentially -zoned land in the unincorporated county, the barriers to
adding to the county's housing stock in a way that provides affordability is constrained by
the minimum acreage for creation of new parcels (five acres), land costs, and utility
creation/installation costs and availability (legally available water supply and affordable
on-site waste water treatment). These factors are principle contributors to a well-
documented 2017 "affordable housing crisis."
In
HOUSING ELEMENT
Preliminary Discussion DRAFT
JEFFERSON COUNTY PROPOSITION NO. I
LEVY TO ESTABLISH THE HOME OPPORTUNITY FUND
TO CREATE OR PRESERVE LOW- OR VERY LOIN -INCOME HOUSING
The Jefferson County Board of Commissioners passed Resolution No. 35-17 declaring an
Emergency in Jefferson County in the availability of affordable housing for low- or very
low-income households, and referring the fallowing ballot proposition to the voters
Proposed: Establish a fund providing affordable housing for low- or very low-
income households including disabled people, veterans, seniors, and families
with children, by increasing the County's regular property tax levy up to
$0.12/$1,000 for low-income housing for a maximum rate of $1.801$1,604
assessed value collected in 2018}, and authorize a separate levy under RCW
84.52.105 of approximately 0,24/ 1,400 to generate $1,200+000 in 2018; each
levy for seven years and subject to Limitations under RC's 84.55.
Should this proposition be:
APPROVED? ...............0
REJECTED? .................0
POLICY #6
POLICY ON THE PROVISION OF AFFORDABLE HOUSING
I. For planning purposes the definition of "affordable housing" is: Those housing units
available for purchase or rent to individuals or families with a gross income between the
federally recognized poverty level and the median income for working families in Jefferson
County; and who's costs, including utilities, would not exceed 36% of gross income.
2. The provision of affordable housing is acknowledged as a general public need and will be
addressed in Jefferson County through private sector programs and projects, Local
government should not assume a direct role in the ownership or administration of public
assisted housing to meet low income needs, rather this should be left to private, non-
profit or quasi -public entities.
The housing andlor land use elements of comprehensive plans will include an assessment
of land available and the process of siting special purpose housing (such as homeless
shelters, group homes, etc.), to ensure that such housing can be accommodated.
A sufficient quantity of land will be appropriately zoned or designated to accommodate a
wide range of housing types, densities and mixtures. Multi -family housing should only be
located within UGAs or rural centers.
40%
35%
30%
25%
20%
HOUSING ELEMENT
Preliminary Discussion DRAFT
5. An affordable housing strategy will be developed as part of the housing element of the
comprehensive plan. This affordable housing strategy will examine existing regulations
and policies to identify opportunities to encourage the provision of affordable housing
mechanisms such as accessory dwelling units ("mother-in-law") or efficiency apartments,
density bonuses, mitigation fees waivers, priority permit processing and the like.
6. Each UGA shall accommodate its fair share of housing affordable to low and moderate
income households according to its percentage share of the county population and by
promoting a balanced mix of diverse housing types.
7. Undeveloped land owned by the public entities will be inventoried and those that are
appropriately located should be considered for development of low income housing.
Consideration of assembling these parcels for development by non-profit housing
organizations or private developers should be encouraged.
8. The housing element will include criteria for locating higher density residential areas near
public facilities and services, commercial services, arterial or within walking distance of
.jobs or transit.
Gross Rent as a Percent of HH Income, 2011-15
15%
10%
5%
0% 111 111
Less than 20 percent From 20.0 to 24.9
percent
U.S. State ■Jefferson County
R�
From 25.0 to 29.9 From 30.0 to 34.9 35.0 percent or
percent percent
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HOUSING ELEMENT
Preliminary Discussion DRAFT
Port Hadlock housing
Some selected statistics on Jefferson County housing, household types and housing
affordability appear below:
Table 5- 1
Housing Units by Type 2011-2015 US Census Bureau American Community Survey Selected Housing
Characteristics for Jefferson County, WA
Type of Housing
Number of Units
Percent of Total Units
Single Family
Detached
13,698
76.5%
Attached
263
1.57%
Total Single Family
12,997
77.9
Multi -Family
2 to 4 Units
566
3.2%
5 to 9 Units
233
1.3%
10 or More Units
630
3.5%
Total Multi -Family
1,429
8.0%
Mobile, Manufactured
2,247
12.5%
Boat, RV, van, etc.
1 277
1 1.5%
Total Housing Units
117,914
1100.00/0
Total occupied housing units is 13,422
Table 5- 2
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HOUSING ELEMENT
Preliminary Discussion DRAFT
Household Type and Size countywide
Persons per
Household
Percent of
Households
Percent of
Family Households
Percent of
Non -Family Households
1
32.2
N/A*
80.1%
2
45.9
65%
17.5%
3
10.7
16.9%
1.6%
4
6.8
10.9%
0.6%
5
2.6
4.2%
0.1%
6
1
1.7%
0.1%
7+
1 .8
1 1.3%
1 0.0
Total
1 100.00/0
1 100.0%
1 100.0%
Table 5- 3
Household Income and Monthly Housing Costs 2011-2015 US Census Bureau American
Community Survey Selected Housing Characteristics for Jefferson County, WA
ua.a.av �.r vti
Subject
Estimate
Occupied housing units
13;422
HOUSEHOLD INCOME IN THE PAST 12 MONTHS (IN 2015 INFLATION-ADJUSTED DOLLARS)
14.4%
Less than $5,000
3.4%
$5,000 to $9,999
3.9%
$10;000 to $14,999
6.3%
$15,000 to $19,999
6.0%
$20.000 to $24,999
4.3%
$25,000 tD $34,999
12.2%
$35..000 to $49,999
14.0%
$5D,000 to $74,999
20.9%
$75:000 to $99,999
11.7%
$100,6100 to $149,999
11.3%
$150,000 or more
5.3%
Median household income (dDilars)
49,279
MONTHLY HOUSING COSTS
Less than $300
9.9%
$3DU to $499
14.4%
$5001o$799
20.4%
$8D0 to $999
111%
$1,000 to $1,499
21.7%
$1,5001 to $1,999
10.8%
$2,000 to $2;499
3.9%
$2,500 to $2,999
2.1%
$3,000 or more
2.5%
No cash rent
3.1%
Table 5- 4 Housing Affordability Levels by Income Group
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HOUSING ELEMENT
Preliminary Discussion DRAFT
Income
Definition
Annual
Affordable
Affordable
Affordable
Group
Household
Monthly
Monthly Rent
Mortgage
Income
Housing
Payment
Cost
Extremely
Less than
Low Income
30% of
$0-14,061
$351
$0-263
$0-228
Median
Very Low
31% to 50%
$14,062-
$352-586
$273-454
$238-396
Income
of Median
23,435
Low Income
51% to 80%
$23,436-
$587-937
$470-750
$418-656
of Median
37,966
Moderate
81% to 95%
$37,967-
$938-1,113
$774-918
$687-807
Income
of Median
$44,527
Middle
96% to
$44,528-
$1,114-
Income
120% of
$947-1,195
$844-1,022
56,244
1,406
Median
Upper
Greater than
Income
121% of
$56,245
$1,406
$1,230
$1,097
Median
*Data based from 2010 Census
Notable Other Statistics regarding Jefferson County Households and Housing
Affordability
• The U.S. Housing and Urban Development department (HUD) found that for low-
income renter households (households at <_ 80% of average median income or AMI),
67% are "cost -burdened" (pay more than 30% of their total income for housing).
• Thirty-eight percent of low-income renters are "extremely cost burdened." For renter
with very -low incomes (< 50% AMI), 75% are cost -burdened and 55% are extremely
cost -burdened.
• Twenty-five percent of all low income, owner -occupied households in Jefferson County
are cost -burdened and 30% are extremely cost -burdened.
• For very -low-income households, 65% are cost -burdened and 40% are extremely
cost -burdened.
• Jefferson County has the highest median age in the State of Washington at 53.9 years,
with a negative natural increase --deaths outpacing births. Population increase is
attributed primarily to migration (2016 Population Trends, OFM). Meeting the housing
needs of an aging population will be an increasingly important issue in the next 20
years.
Assisted Housing Programs and Resources in Jefferson County
Jefferson County participates and supports area programs that provide housing assistance
to income -limited families and individuals and to other special needs groups. The
Peninsula Housing Authority, Olympic Community Action Programs and other public and
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HOUSING ELEMENT
Preliminary Discussion DRAFT
private, non-profit groups provide assistance in the form of funding, services, home
rehabilitation and/or homeownership help. Based on recent data, there are insufficient
funds and resources to serve all individuals and households that qualify for housing
assistance. There is a well-documented lack of affordable rental apartments and houses.
The lack of affordable rental units means that households that qualify for rental assistance
cannot find homes and apartments whose rent meets "fair market rates." Another
challenge to planning and developing affordable housing is the desired proximity that in
needed to services that help the County's most vulnerable populations including the low-
income elderly, disabled Veterans, disadvantaged youth, and persons with mental and/or
physical disabilities.
Y
The Annual Point in Time Count found 189 homeless in Jefferson County on January 26, 2017
Homelessness
Homelessness in Jefferson County is a very real problem not confined to any one sector of
the County's population. Homelessness occurs in a variety of ways. Some families or
individuals experience job loss, reduced household income, domestic violence, increases
in housing, living and medical costs and other displacing events. Some become suddenly
homeless and others may be chronically homeless. Homelessness includes those that are
accommodated in emergency shelters, stay temporarily with family or friends or other
transitory housing or are "unsheltered" living on the streets, in forested areas, in vehicles
or other conditions that do not provide safe shelter. Jefferson County's current regulations
do not support transitory accommodations, temporary encampments or other ways to
provide additional options for temporary housing for the homeless. This update will
include goals and policies that address a variety of means to provide shelter and
supportive services to transition the homeless and other vulnerable populations to more
permanent housing.
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HOUSING ELEMENT
Preliminary Discussion DRAFT
HOUSING
GOALS AND POLICIES
Safe, affordable housing is a fundamental need for all citizens in Jefferson County. Jefferson
County communities are strong, vibrant and healthy when there is safe and reliable housing that
meets the full range of income levels, household sizes, preferences and needs. Jefferson County
citizens' average household incomes have not kept up with increasing prevailing housing costs. The
result is a widespread lack of safe and affordable housing for many county citizens and especially
for populations with special needs.
Community feedback and public comments to date reflect a strong desire for improved housing
opportunities on a countywide basis to address affordability, homelessness and improved access to
economic opportunities.
GOAL:
HSG 1.0 Encourage and support efforts to increase housing availability for
County residents of all income groups.
POLICIES:
HSP 1.1 Identify locations where housing development can be promoted and work with
inter -jurisdictional and public-private cooperative groups to increase a broad
spectrum of housing supplies including market -rate homes, moderately -priced
homes and housing for lower income households.
HSP 1.2 Assess the progress of Countywide Planning Policy #6 to better document
successes, challenges and opportunities to inform housing programs, the
development community and housing advocacy groups
HSP 1.3 Update code and development standard that preserve existing higher densities
and improve housing development and redevelopment opportunities in county
Urban Growth Areas, Rural Village Centers, Rural Crossroads, and Master
Planned Resorts .
HSP 1.3 Provide public and private, non-profit housing assistance programs with
information on areas where moderate -to -low income housing can be
accommodated based on zoning, existing lot density, access to transit, jobs or
other support services.
HSP 1.4 Support the Peninsula Housing Authority, Habitat for Humanity, and Olympic
Community Action Programs, in their efforts to assist income -limited
households with funding for home repairs and other housing rehabilitation
assistance.
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HOUSING ELEMENT
Preliminary Discussion DRAFT
GOAL:
HSG 2.0 Promote a variety of housing choices throughout the County with
innovative land use practices, community redevelopment strategies,
development standards, design techniques, and building and
infrastructure permit requirements.
POLICIES:
HSP 2.1 Explore regulatory opportunities that help minimize costs to developing
affordable housing while ensuring that public health, safety and environmental
quality standards are not compromised.
HSP 2.2 Encourage and support greater opportunity for the development of innovative
housing types to increase the inventory of affordable housing throughout the
County. Work cooperatively with public and private housing experts on
community redevelopment strategies, residential mixed-use development,
single and multi -family attached housing, duplexes, triplexes, apartment
houses, mixed-use, senior and multi -care facilities, community housing, farm
worker housing, tiny homes, etc. Encourage development patterns such as
clustering in Rural Village Centers and Urban Growth Areas, provided adequate
infrastructure and services are in place.
HSP 2.3 Pursue demonstration and pilot projects that document the safety and
reliability of innovative technologies such as composting toilets, gray water
systems, site-specific nutrient management plans, water conservation, and
net zero energy systems that minimize housing development costs, reduce
environmental impacts and provide more affordable housing options
throughout the County.
HSP 2.4 Initiate housing development in response to the critical lack of worker housing
in the Port Hadlock urban growth area and other established rural employment
areas that allows higher residential density to be served by other than public
sewer.
HSP 2.5 Review and revise development standards and land use codes to allow for
manufactured home and RV parks as a way to increase housing supplies.
HSP 2.6 Consider development standards that would provide bonus densities in return
for providing a percentage of low or moderate -income housing units for
multi -unit residences in the future Irondale/Port Hadlock Urban Growth Area.
HSP 2.7 Reference the Transportation, Capital Facilities, Utilities, and Urban Growth
Area Elements of this Plan for public facilities planning in connection to
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planning for affordable housing development sites.
GOAL:
HOUSING ELEMENT
Preliminary Discussion DRAFT
HSG 3.0 Develop and maintain partnerships with the housing assistance
programs, and other public and private groups and agencies to
support maintenance and rehabilitation of existing housing stock and
provide new and affordable housing opportunities.
POLICIES:
HSP 3.1 Support weatherization, housing rehabilitation and energy conservation
activities and programs to ensure households are safe and well maintained for
low-income households.
HSP 3.3 Coordinate with the Peninsula Housing Authority and other groups and
agencies to identify areas most in need of rehabilitation assistance and
infrastructure improvements. To the extent possible, coordinate public
investments in capital infrastructure with rehabilitation efforts.
HSP 3.4 Reinvigorate cooperative city -county coordination regarding affordable
housing, low-income and special needs household assistance and regulatory
updates to support affordable housing development throughout Jefferson
County. Determine and fund staffing and other resources necessary to sustain
continuous coordination regarding affordable housing.
GOAL:
HSG 4.0 Pursue a transitory housing program to address homelessness and
encourage the development of housing for people with special needs
(individuals who require assistance for disabilities that may be
physical medical, social or psychological).
POLICIES:
HSP 4.1 Allow for a continuum of care for special needs populations, in UGAs and Rural
Village Centers, including emergency housing, transitional housing, assisted
living, group homes, senior housing and low-income housing.
HSP 4.2 Encourage and support the development and implementation of a transitory
accommodation permitting process that allows for single-family, small and
large indoor and outdoor transitory and safe park accommodations in
cooperation with willing public and private landowners.
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HOUSING ELEMENT
Preliminary Discussion DRAFT
HSP 4.4 Coordinate with Olympic Community Action Programs, the Peninsula Housing
Authority, nonprofit housing providers, and other public and private housing
interests to ensure that low income and special needs housing is sited in
locations that are adequately served by necessary support facilities and
infrastructure.
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