CITY OF TURNERCOMPREHENSIVE PLAN

Housing

SECTION 9.400 HOUSING

Local housing policies must comply with the requirements of the Statewide Planning

Goal 10which reads: “To provide for the housing needs of the citizens of the state.”

Goal 10 requires incorporated cities to complete an inventory of building residential lands to encourage the availability of adequate numbers of needed housing types in price and rent ranges commensurate with the financial capabilities of its households.

SECTION 9.410EXISTING HOUSING

Housing Table 9.400 A shows various elements of the local housing market for the City of Turner using the most recent U.S. Census data collected in the year 2000. In 2000, the City of Turner had approximately 522 dwelling units, and an average household size of 2.44 persons per household. Of the total occupied dwelling units in Turner, approximately 65 percent were owner-occupied and 35 percent were renter-occupied.

Housing Table 9.400 A

Housing Status

Turner, 2000

Population / Persons in Group Quarters / Persons
per
Household / Total Dwelling Units / Occupied
Dwelling
Units / Vacant Units / Owner-
Occupied Units / Rental Units / Owner-Occupied Units (percent) / Rental Units (percent)
1,199 / 3 / 2.44 / 522 / 491 / 31 / 319 / 172 / 65.0 / 35.0

Source: 2000 U.S. Census

Housing Units by Type

Single-family Homes

In April 2011, the primary housing type in Turner is single-family houses. There are 575, single-family units out of a total housing count of 787, or approximately 73 percent of Turners total housing. In addition to site-built homes the City allows manufactured dwellings on individual lots.

Manufactured Homes

Turner adoptedimplementing standards in the Turner Development Code for manufactured home placement on individual lots within the community and manufactured home parks are permitted as a conditional use in the R-11 multiple-family District. Manufactured home parks and manufactured home subdivisions may be permitted in any residential district if approved under the Planned Development of the Turner Code. However, there are currently no manufactured home parks within the City Limits/Urban Growth Boundary (UGB).

Multiple Family Housing

While duplex units are sometimes considered single-family structures, they are included herein with multiple-family units. (Note: According to the City’s Development Code, duplexes are not permitted in one of the single-family zone districts (R-1) and only on corner lots if approved under a conditional use process in the other (R-2).)

The majority of the non-duplex multiple-family units are owned by Turner Retirement Homes. Multiple-family housing is the primary affordable housing opportunity for young families and the elderly in Turner.

According to the 2001 Comprehensive Plan, the R-11 Multiple-family Residential District permitted densities of 15 units per acre and permits for higher densities with a Conditional Use Permit. Following a 2011 review of the City’s Plan document and noting a 2009 approval of a large subdivision within the northwesterly portion of the community calculating to approximately 8 units per acre for multiple families, the City reduced the density for multiple-family designations to 11.5 units per acre. (Note: A developer may apply for a higher density using the Planned Unit Development process.)

Turner Retirement Homes

Turner Retirement Homes provides valuable housing assistance for senior citizens and retirees Housing units are in dispersed locations on the east side of town and are well integrated into Turner neighborhoods.

Planned Developments

Planned Developments are permitted in the Turner Code that encourages application of new techniques to achieve efficiencies in land development while providing enhanced, economical, and energy efficient living environments. In February 2000 the City approved its first planned development (RMA PD Development Plan) on 15 acres in the area of Third Street and Val View Drive.

Housing Costs

Housing became less affordable in the 1999’s and was further complicated by the recession of the early 2000’s. Housing costs grew at rates nearly double incomes (1990s). The increasing cost of housing is beyond the means of many household without some form of assistance. A recognized standard of maximum shelter costs is 30 percent of household income. The cost of purchasing a new home on a moderate income is unattainable for many families.

Affordable Housing

The State of Oregon declared a Statewide Planning Goal that all communities have the responsibility of providing an adequate number of household units at price ranges and rent levels commensurate with the financial capabilities of Oregon households.

Small communities like Turner are limited in their ability to affect the housing market. It is clear that the most a community can do is not place undue burdens on the availability of land and the cost of municipal services. Maintaining administrative costs for land use decisions within reasonable limits and providing timely decisions can also encourage developers to choose a Turner location.

Housing authorities are more likely to address housing needs for special classes, such as individuals with low-incomes, those with disabilities, or persons experiencing other special needs. Small cities have a more difficult time specifically addressing these special housing needs; especially when one considers that determining the socioeconomic needs and distribution for an expanding population is a highly speculative task at best.

The City will continue to seek means of reducing housing costs within the City. Allowing reduced lots sizes, and providing efficient planning and construction alternatives including energy conservation techniques can be utilized to assist in maintaining housing within affordable limits. Among the means at a City’s disposal are Code provisions for smaller lots, the provision for multiple-family zones in the community, as well as, areas allowing manufactured home parks. It is also important that a community preserve and maintain its existing housing stock for the purposes of conserving natural resources used in home construction and for providing lower prices housing to residents of the community.

The City recognizes their existing housing stock as an extremely valuable resource. Therefore, the Cityadopted policies pertaining to the rehabilitation of existing housing and the maintenance of a wide range of housing prices in Turner. Turner wasawarded two Community Development Block Grant (CDBG) Housing Rehabilitation Program Fund projects by the State of Oregon, administered through the Oregon Housing and Community Services and Infrastructure Finance Authority Departments—the most current in 2009 (HR 907). The CDBG provides several hundred thousand dollars allowing the City to establish revolving low interest loans that are available to qualifying homeowners with low to moderate incomes. Use of loan funds provides homeowners the ability to complete eligible rehabilitation work.

There are a number of public and private housing assistance organizations that can help provide affordable housing in Turner. This assistance includes new home purchase, rent supplements, low interest loans and grants for rehabilitation as well as other programs.

The two most prominent public assistance programs are provided by the Marion County Housing Authority through the HUD Section voucher program and Rural Development (FmHA).

The City recognizes its responsibility to accommodate assisted housing in Turner. There is a strong preference for programs that assist households in obtaining housing already available to the community as opposed to targeted housing developments that concentrate on assisted housing in one area or in single developments.

The Federal Fair Housing Act of 1988 protects the right to freely choose a place to live without discrimination.

Qualified citizens of Turner should be aware of available assistance programs, and should participate in them if they choose. The City can be a source of information concerning housing availability and, in general, should assist those seeking information on housing assistance.

SECTION 9.420HOUSING TRENDS

The last 20-year housing trend provides little information that is helpful in projecting future needs. The municipal sewer system, completed in 1999, substantially increased housing opportunities providing incentive for housing production in Turner.

Residential location choice trends include:

  • Access to work.
  • Access to shopping, recreation and friends.
  • Public services.
  • Community and neighborhood characteristics.
  • Land and improvement characteristics.

Turner’s housing market is highly influenced by its location within the Salem-Keizer Metropolitan area. Economic and employment opportunities exists for those individuals who depend on the area for jobs and services while desiring to live within a smaller community for the other day-to-day activities and a residential environment.

In the early 2000s, the City of Salem and the State of Oregon collaborated to provide a regional economic development 651 acres in size—Mill Creek Corporate Center—to be constructed over 20 years. The center allows for a mixture of uses from agriculture to manufacturing and production, industrial service, warehouse and freight movement and wholesale sales. A portion of the perimeter may be developed with retail and service types of uses. Because the complex is located within 1.5 miles of the City of Turner, it is anticipated that the City may experience an influx of new residents as workers secure needed housing.

Turner’s potential growth and development depend on a combination of national and regional trends as well as local factors,the City’s attitude, responsiveness and preparedness also help guide Turner’s housing development.

SECTION 9.430PROJECTED HOUSING DEMAND & NEED

The language of Goal 10 and ORS 197.296 refers to housing needs and requires communities to provide needed housing types for households at all income levels. Goal 10’s broad definition of need covers all households.House Bill (HB2709) codified in the Statewide Land Use Planning Laws (ORS 197.296) also requires an analysis of demand for new housing. Specifically it:

  1. Refined the definition of buildable lands to include “redevelopable land.”
  2. Requires coordination of population projections with the County and State.
  3. Sets criteria for prioritizing land for UGB expansions.
  4. Sets specific requirements regarding buildable land for needed housing.

Provisions 1 through 3 apply to all jurisdictions. Provision 4 applies only to certain jurisdictions. DLCD has waived the requirements of ORS 197.296 for 50 cities in Oregon including the City of Turner. However, ORS 197.296 restated pre-existing law or administrative rules that still apply to all jurisdictions.

Demand is what households are willing to purchase in the market place. Growth in population leads to a growth in households and implies an increase in demand for housing units that is usually met primarily by the construction industry

Projected Housing Need

Although Turner received a waiver from some of the needed housing requirements of ORS 197.296 it is apparent that needed housing in addition housing demand is an issue that should be addressed.

Goal 10 does require cities to address housing need. The approach adopted by Turner is threefold:

  1. The City will not discriminate against needed housing types and programs that address the needs of its citizens.
  2. The City will provide for a variety of housing opportunities for its citizens through implementation of the Turner Land Use Development Code.
  3. The City will seek means to reduce housing cost by providing a mix of housing type and density that address the needs of its citizens.

Single-family Homes

It is recognized that single-family homes will continue to be the predominant housing type in the City of Turner although its share of the housing market is projected to be lower In 2009 the City approved a development adjacent Turner Lake that includes a subdivision with over 100 lots that allow for the construction of single-family dwellings.

Manufactured Homes

The Turner Plan assumes manufactured housing continues as a housing option for some individuals and during the planning period.

Multiple-Family Housing

There were a number of multiple-family units built in the mid-1980’s to 1990’s, primarily by the Turner Retirement Homes

Multiple-family housing in Turner in the 1990s and early 2000s waslow to medium density in nature and limited in numbers. It is assumed that some multiple-family housing will continue to take the form of two to four unit structures.However, the City in 2010 approved a subdivision on the north side of the community that includes areas designated for higher density residentialby proposing townhouses, condominiums, and apartments.

Planned Developments

The City expects and encourages more proposals for Planned Development during the planning period. Planned Developments can increase residential densities while providing enhanced living environments that can help reduce housing cost.

In 2009, the City Council approved a Comprehensive Plan and Zone District change that converted land previously designated as a Mineral Aggregated Resource (MAR) overlay to residential designations and zones. The zone change allows a variety of housing from single-family, to townhouses, to apartments. For a portion of the property,the City anticipatesthe submittal of a future request to allow a planned development with mixed uses. (Standards and procedures to allow mixed uses need to first be established by the City.)

Turner Retirement Homes

Turner Retirements Homes has limited future development plans for its land holdings. Their 75-year old mission has and continues to be serving as a Christian retirement community providing housing to formers ministers and missionaries. There are no plans at this time for the43.32 acres of vacant buildable land in the R-1 District at the end of Cedar Street.

SECTION 9.440BUILDABLE LANDS FOR RESIDENTIAL USE

The City is required to provide sufficient buildable lands to meet the projected land use needs of the City for the planning period, including buildable land for needed housing.

Existing Residential Density and Lot Size

In the past, the lack of a municipal sewer system meant that septic systems necessitated larger lots and lower density development in Turner. The minimum lot size was established as 11,000 square feetor approximately four (4) dwelling units per acre.

With the construction of the new municipal sewer system in 1999, the City implemented another single-familyresidential district (R-2) that permits a minimum lot size of 7,500 square feet, or six (6) units per acre.

Turner also has a multiple-family district (R-11) that permits up to 11.5 units per net acre and a minimal lot size of 5,000 square feet.The City permits higher densities under the conditional use procedures of the Code.

The Planned Development provisions of the Turner Land Use Code that permits increased densities and the PUD process may provide enhanced living environments that can help to reduce housing cost.

Turner requires approximately 112acres of buildable land to accommodate the additional housing needs of the community based upon the coordinated population projections to the year 2032. See Land Use Table 9.500 C.

Housing Table 9.400 B, Housing Units, shows the total number and types of housing units through part of the year 2011 (April) based upon building permit data since 2001 and the recent population estimate for the City of Turner certified by the Center for Population Research at Portland State University. In April of 2011, the City of Turner had a total of 787dwelling units, including 575 single family detached dwelling units, 142 multiple-family dwelling units (e.g. duplexes, apartments, condos, townhouses) and 70 manufactured homes.

Housing Table 9.400 B

Housing Units

Turner, 2011 (April)

Population / Total Dwelling Units / Single-Family (detached) Units / Multi-Family Units / Manufactured Homes
1,854 / 787 / 575 / 142 / 70

Source: City of Turner building permit data, 2001-2011 (April), Center for Population Research at Portland State University, 2009

Housing Table 9.400 C andHousing Figure 9.400 A,below show the types of housing units as a percentage of the total number of housing units from 1990 to 2011 (April). Since 1990, approximately 71 to 73 percent of the City’s housing stock consists of detached single-family dwellings. The City’s remaining housing stock is made up of multiple-family dwellings (18-22 percent) and manufactured homes (7 to 9 percent).

Housing Table 9.400 C

Housing Types

Turner, 2000-2011 (April)
Year / Single-Family (detached)
Units (%) / Multi-Family Units (%) / Manufactured Homes (%) / Total Dwelling Units
1990 / 73% / 19% / 8% / 461
2000 / 71% / 22% / 7% / 522
2011 / 73% / 18% / 9% / 787

Source: U.S. Census 1990, 2000, City of Turner building permit data 2001-2011 (April

Housing Figure 9.400 A – Turner Housing Mix

Source: U.S. Census 1990, 2000, City of Turner building permit data 2001-2011 (April)

Future Housing Needs

The 2032 population projection for Turner is 3,677 persons. Population projection was developed in coordination with Marion County through a process required under state law (ORS 195.036). As shown in Housing Table 9.400 D, 1,446 dwelling units are needed to accommodate this population.

Housing Table 9.400 D

Projected Housing Status

Turner, 2032

Population (projected)1 / Persons in Group Quarters / Persons per
Household2 / Total
Dwelling
Units / Occupied
Dwelling
Units / Vacant Units3
3,677 / 3 / 2.7 / 1,446 / 1,361 / 85

Source: 2009 Turner Housing and Land Needs Model (Richard Bjelland Consulting) and MWVCOG, 2011

1 The population projection has been coordinated with the projections for Marion County as required byOregon Revised Statutes 195.036.

2 Estimate based upon 2005-2009 American Community Survey (ACS) data.

3 Estimate based upon the 2000 U.S. Census vacancy rate of 5.9 percent.

Housing Table 9.400 Eshows the total number of additional dwelling units that will be needed for the period from 2012 to 2032. With 787 residential units in 2011 (April), an additional 659 new housing units are needed to accommodate the 2032 population.

Housing Table 9.400 E

Additional Dwelling Units Needed in Turner by 2032

Total Dwelling Units 2011 / Total Dwelling Units 2032 / Additional Dwelling Units Needed
787 / 1,446 / 659

Source: U.S. Census, City of Turner and MWVCOG, 2011

Housing Table 9.400 Fbelow shows the projected housing types in the City of Turner in the year 2032. In 2032, detached single-family dwellings make up approximately 71 percent of the total dwelling units, while multiple-family dwellings make up 22 percent and manufactured homes make up 7 percent of the total housing stock. The 2032 housing type projections assume the number of detached single-family dwellings will return to lower historic levels experienced in 2000 based upon future demographic trends.