Sustainable Construction 

in Indian Country

Expanding Affordability With Modular 

Multifamily Infill Housing

Native American Youth

and Family Center 

“The housing shortage in Portland’s Native community is a 

direct result of a lack of access to culturally relevant housing 

opportunities. If the opportunities exist to move from homeless 

to housed, from renter to homeowner, we believe in our 

community’s ability to jump on board.”

 -Matt Morton, Executive Director, NAYA
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Sustainable Construction in Indian Country

2

PORTLAND

Critical Sustainable 

Technologies and Strategies

• Modular units with decreased waste

• Highly insulated and air-tight units

• Energy Star compact appliances

• Mini-split heat pumps (in studio units only)

• Infill, transit-oriented development

• Minimized conventional turf and droughtresistant plantings

• High-efficiency water fixtures

• Onsite stormwater management 

• Recycled materials in deck and landings

• Energy Star bathroom fans with automatic 

timer

Table of Contents

Summary 3

Creating Opportunities in the Housing Continuum 5

Thinking Inside the Box 6

The Modular Learning Curve 7

Supporting the Community of Residents and the

Neighborhood 8 

Superior Quality 8

Project Summary 9

Best Practices 10

Next Steps 11

How To Get Started 12

Funding

Funders Amount

Portland Housing Bureau tax 

increment financing, 2010, 2011

$922,398 

$398,749

Permanent loan 

One Pacific Coast Bank $320,000

Meyer Memorial Fund $200,000

Total $1,841,147

U.S. Department of Housing and Urban Development (HUD) awarded 

nine project-based Housing Choice vouchers.

The Oregon Housing and Community Services Predevelopment Fund and 

the Native American Youth and Family Center both made loans to the 

project, which were repaid and are not part of the final costing.

Map

Problem

The metropolitan area of Portland, Oregon, 

has experienced a population boom. This 

has increased demand and cost of rental 

and homeownership housing, creating a 

tight housing market for lower income 

minority groups, especially Native Americans. 

Locations available for new construction 

are often infill sites that demand innovative 

solutions to lower construction costs and 

create affordable housing.

Solution

The Native American Youth and Family 

Center (NAYA) designed and had built a 

modular multifamily prototype project to 

demonstrate the speed of construction, 

superior quality, affordability, and green 

qualities of modular housing.

Community Snapshot

Location: Portland metropolitan area, Oregon

Location type: Urban

Native American Population: 23,010 

(Multnomah County per 2008 American 

Community Survey)

Climate: Daytime high average of 80  ̊F in July 

and August. Average low of 36-38  ̊F 

from December to February. The greatest precipitation—nearly 7 in—falls in 

December. (Köppen classification Csb)
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Sustainable Construction in Indian Country

Summary

Kah San Chako Haws (East House in Chinook) 

is the first multistory, multifamily modular 

building in Portland. For this prototype, the 

time from design to move-in was 14 months—a 

savings of 4 months over the typical site-built 

construction. Constructed for low-income 

families and individuals with unstable housing 

situations, each of the three buildings is 

assembled from three modular units. The 

studios measure 375 square feet, the onebedroom units 675 square feet, and the twobedroom units 835 square feet. While a single 

prototype is not going to solve the problem of 

affordability or fully realize the potential of the 

modular model for producing more affordable 

housing, NAYA’s development team wanted to 

demonstrate the cost and time savings that could be achieved in affordable housing while providing a unit 

superior to and greener than most conventional, affordable housing. They have been very pleased with the 

results—as have the neighbors and the residents.

Here are some of the technologies and their effect on sustainability. 

Sustainable 

Technologies What Is It? Effect

Modular construction

Modular housing is built in a factory using 

assembly-line techniques. It is built to the 

International Building Code, the same code as 

conventional-built wood-frame construction. 

It can incorporate a range of designs 

(Modular Home Builders Association).

Housing is constructed in the factory with 

less waste of material, greater worker 

safety, and less damage from exposure to 

the elements. The emphasis on precision 

leads to high quality, energy efficiency, 

and tight construction that is less 

expensive and quicker to complete. 

Transit-oriented 

development

Transit-oriented development (TOD) is 

compact, mixed-use development located 

near transit facilities that promotes 

sustainable communities by providing people 

of all ages and incomes with improved access 

to transportation, shopping, social services, 

employment, and housing choices; decreased 

commutes and transportation costs; and 

reduced negative impacts of automobile 

travel on the environment (HUD Community 

Planning and Development).

In addition to the benefits listed in 

the definition, a study in Evanston, 

Illinois, showed decreased vacancy 

rates, increased retail sales, and stableto-increasing housing prices in the 

neighborhood of the TOD. 

Architect’s rendering of Kah San Chako Haws
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Sustainable Construction in Indian Country

Spray foam

Spray foam insulation is used in walls, 

ceilings, crawlspaces, and other parts 

of buildings. It seals heat inside during 

cold weather and does not allow water to 

penetrate inside. 

Spray foam insulation stops air and 

moisture infiltration, making homes more 

comfortable, healthy, energy efficient, and 

stable. 

High-density infill 

development

Infill development is defined as new construction on vacant or underutilized sites 

within an established neighborhood or 

district (Strategic Economics). For places with 

land shortages, this may be some of the only 

land available for development.

TOD and infill can take advantage of 

existing, underutilized infrastructure 

systems, increasing the efficiency 

and reducing the costs of providing 

municipal services to new development. 

It sometimes triggers additional 

investment need due to past deterioration 

or to increase services for increased 

population.

Mini-split heat pump

Ductless, air-source heat pumps are also 

called mini-split heat pumps. They operate on 

the same principle as traditional heat pumps, 

using electricity to move heat between 

outdoor and indoor air by compressing and 

expanding a refrigerant, although without a 

duct system.

Because they deliver heated or cooled air 

directly to the room, ductless heat pumps 

avoid efficiency loss associated with 

ductwork. According to the Department 

of Energy (DOE), duct loss can account for 

more than 30% of energy consumption 

for space conditioning. Ductless heat 

pumps were used only in the studio units. 

High-efficiency 

water fixtures

Low-flow aerators, such as those 

recommended under the Environmental 

Protection Agency’s (EPA’s) WaterSense 

program, use specialized airflow regulators to 

mix water and air to reduce water flow while 

increasing pressure. Low-flow showerheads 

also significantly reduce water flow.

Replacing old, inefficient faucets and 

aerators with WaterSense-labeled models 

can save the average family 700 gallons 

of water per year, equal to the amount of 

water needed to take 40 showers. Because 

these water savings reduce demands on 

water heaters, households also will save 

enough energy to run a hairdryer 10 

minutes a day for a year. (WaterSense is 

an EPA partnership program.)

Energy Star

ventilation fans

Energy Star appliances are independently 

certified through a program of the EPA and 

DOE. Energy Star-certified ventilation fans 

that include lighting use 70% less energy 

on average than standard models. Based on 

their fan type and airflow, they must meet 

maximum allowable sound levels (in sones), 

minimum efficacy levels (in cubic feet of 

airflow per minute per watt [cfm/W]), and 

a percentage of 0.1 in. water gauge static 

pressure rated airflow at 0.25 in. w.g. static 

pressure. 

Energy Star products save money and 

protect the environment. Energy Star

certified ventilation fans:

• Provide better efficiency and comfort 

with less noise. (Noisy fans are less 

likely to be used.)

• Feature high performance motors and 

improved blade design, providing better 

performance and longer life.

Here are some of the technologies and their effect on sustainability (continued). 
5

Sustainable Construction in Indian Country

Creating Opportunities in the Housing Continuum

The metropolitan area of Portland, Oregon, 

is home to the ninth largest Native American 

community in the United States, with 380 

tribes represented (Making the Invisible 

Visible). In 1974, parents and volunteers who 

wanted children to learn about and have 

a place to express their Native American 

identities through culture, arts, and sports 

established the Native American Youth and 

Family Center (NAYA). Although NAYA’s mission 

is to serve self-identified Native Americans, 

NAYA operates from a relational world view 

that seeks to serve the whole person by 

considering all elements in a person’s life. 

As a 501(c)3 organization, NAYA is not a tribal organization; anyone who feels comfortable within its service 

model is welcome. Executive Director Matt Morton explained, “By following this approach to serving Native 

Americans, we have actually found an approach that is more inclusive.” 

Forty years later, NAYA is a nonprofit organization with 120 full-time employees, offering a range of 

wraparound style services (including a high school). Morton said that NAYA is “seeking to move families 

through the whole housing continuum” —from shelter to rental housing to homeownership. A few years 

ago, NAYA took on the administration of 44 housing units with property management contracted out. Other 

housing services include a weatherization programs for homeowners and homebuyer education. 

Despite their efforts, Deputy Director Rey España and others realized that the rising cost of housing in the 

rapidly growing Portland area was reducing affordable opportunities. Between September 2012 and 2013, the 

average new construction sale price was $316,400 (HUD Policy Development and Research). Toward the end 

of 2013, the average rent was $829 for a one-bedroom and $952 for a two-bedroom unit. In response, NAYA 

decided to “challenge ourselves,” said Morton, by developing affordable housing. In addition to inspiring other 

developers, NAYA saw this project as a way to start playing a bigger role in expanding housing opportunities 

and serving its community. “The more control we have over property, the more we can be strategic in bringing 

in and retaining residents,” Morton said. NAYA assembled a community development team, including outside 

partners, rather than creating an internal full-service development department that would require NAYA to 

conduct development activities at a pace the organization was not yet prepared to take on. 

Project partners included Emmons Modular, Guardian Real Estate Services, modular manufacturer Blazer 

Industries, and Walsh Construction. Guardian had extensive experience in affordable housing development 

and was familiar with the ins and outs of state and city compliance and funding. The partnership built 

capacity in NAYA but worked both ways, said Morton. “We help build capacity in our partners to respond 

more effectively to the community's needs.” Earth Advantage is providing Leadership in Energy & 

Environmental Design (LEED®) certification services. The project anticipates a LEED® gold certification. 

5
Sustainable Construction in Indian Country

Thinking Inside the Box

Modular housing is a type of prefabricated 

or manufactured housing. Unlike mobile and 

manufactured homes, modular housing is built 

to International Building Code standards. 

NAYA’s modular units were constructed in a 

factory based on designs from Emmons Modular. 

Kah San Chako Haws was constructed of 

plywood, 2x4s, drywall, etc. Modular units can 

also be steel- or concrete-framed.

Almost everything that can be done on site is 

installed in the factory: walls/ceilings/floors, 

mechanical, electrical, plumbing, appliances, and 

interior finishes. Because construction takes place inside, materials are not subjected to long periods of 

environmental exposure—prime time for mold development. Other benefits include significantly reduced 

construction time, decreased construction waste, purchasing economy of scale (depending on the number 

of modules constructed at once), higher accuracy, and safer working conditions. In the factory, most 

construction takes place on ergonomic flat surfaces, with workers working at 3-ft-high tables during 

panel construction. 

Emmons Modular’s Stuart Emmons spent a lot 

of time at the factory overseeing the project and 

helping to streamline the construction process. 

He said that this design and construction process 

requires a shift in thinking for developers, 

architects, engineers, and contractors. Conventional 

onsite construction typically begins with designs 

that are about 85 to 90 percent complete and 

involves weekly meetings and numerous on-thejob adjustments (leading to change orders and 

increased budgets). Modular plans, on the other 

hand, are nearly 100 percent complete, with precise 

measurements and detailed order lists from the 

outset. The materials are cut and fit together 

like a puzzle. If units will be stacked, the units 

must be designed and fit with almost perfect precision to sit one on top of another. The design still can 

accommodate some change, but a modular design is not likely to run over budget due to change orders. 

The completed unit is loaded on a tractor trailer and moved to the site. Because of the issues related 

to moving oversized loads, most U.S. modular factories prefer to ship within a 500-mile radius of the 

manufacturing plant. 

6

Modular construction in the factory

Crane siting modules
7

Sustainable Construction in Indian Country

7

The Modular Learning Curve

As with any less common construction method, the prototype faced some procedural hurdles, although Kah 

San Chako Haws faced fewer because of the team’s research on modular construction beforehand. The state 

of Oregon was familiar with modular and inspected the units in the factory. The city of Portland, on the other 

hand, was new to a project in which 85 percent of the inspections took place in the factory. The insurance 

company and bank expressed concerns about collateralization; that is, how they would get their money back 

in the event of a problem: Who had financial responsibility for the unit when in the factory since it was not yet 

connected to the site? What if the unit fell off the truck during transportation to the Holgate Street site? In fact, 

drawing on past modular projects, the team made the case that risk was actually reduced due to reduced length 

of construction and resolved concerns. Having resolved these issues will speed the process for future modular 

affordable housing projects. 

During the 6 weeks that the units were under 

construction in the factory, the onsite team prepared 

the site: pouring the foundation and installing site 

utilities. The construction team, although experienced 

in onsite conventional construction, encountered a 

learning curve that other modular housing project 

teams have reported. Modular units do not have the 

same “tolerance” as site-built construction, which has 

greater room for improvisation when items do not fit 

exactly. Team members at the construction site doublechecked dimensions for the seismic connection plates 

(a required earthquake protection). At the factory, 

however, they discovered that the rigid insulation 

installed had locked rotating connection plates at the 

bottom of the wall and that several plates were not lined up with the site measurements. The fix took about 5 

minutes but saved about 3 days of work and a hefty change order by taking place at the factory instead of after 

delivery. 

NAYA planned the development with HUD project-based Housing Choice vouchers (also known as Section 8) 

from the Home Forward, Portland’s housing authority. España developed the tenant selection process so that 

it met Section 8 requirements. NAYA interviewed, screened, and income-validated prospective tenants, and 

España sent out acceptance letters. At this point, he learned that Home Forward wanted to conduct its own 

screening. In the end, only one of the nine selected tenants did not pass the second set of screenings but, as a 

new housing developer, NAYA was anxious to put forward its best foot with the tenants and wished that the 

process could have been coordinated more smoothly.

Inspecting the module at the factory
8

Sustainable Construction in Indian Country

Supporting the Community of Residents and the Neighborhood

Kah San Chako Haws is located in the Lents 

neighborhood of Portland, within blocks of a TriMet 

Metropolitan Area Express (MAX) rail service station 

running downtown. España first met with the Lents 

neighborhood association 2 years before the project 

was developed. Community leaders were primarily 

concerned with neighborhood disruption during 

the construction process. España also found some 

unexpected supporters, clients of NAYA who lived 

in the area. The neighborhood turned out to have a 

larger Native American population than many knew. 

When the crane—at a cost of $2000–$6,000 a 

day—eventually rolled into the location to hoist the 

modules into place, the neighbors were drawn in. The siting of the modules took 3 days. When neighbors saw 

how quick and quiet modular housing construction was, the neighborhood association told España that he was 

welcome to develop in their neighborhood whenever he liked. 

Superior Quality

España is proud that the units can combine a pared-down design—what would a person who was homeless 

or in an unstable living situation need to be independent?—with quality materials and the construction 

advantages in modular housing. A 2007 study at the Massachusetts Institute of Technology found that “A 

modular structure has a certain inherent strength superiority to a traditional site-built home due to the fact that 

each module is a self-supporting and independent structure.” These units have a Home Energy Rating System 

(HERS) Index score of 70, which indicates that the units are rated as 30 percent more energy efficient than a 

standard new home. This is all the more important because residents at Kah San Chako Haws pay their own 

utilities.

For some of the tenants, the adjustment to living in a space 

all their own has had its challenges. España said, for example, 

that some residents have not used the dishwasher—which is 

smaller than standard size—because of fear of the cost. A full, 

energy-efficient dishwasher will actually use less water and 

energy than handwashing dishes. Residents are not required to 

participate in NAYA services, but many of the residents already 

have a relationship with NAYA. España emphasizes that services 

are available, and that NAYA has a proven ability to engage 

Native American and other clients by providing wraparound 

services through a relational model. Morton agrees, “Connecting 

our community with a service is what we do best.” Further, 

he believes that it is the access to services that will make these and other housing units part of a housing 

continuum for some residents rather than a stopping point. “Houses are hollow boxes if services are not 

attached. People don't move on.” 

Interior of model two-bedroom unit

A crane hoists modules into place.
9

Sustainable Construction in Indian Country

Watershed Goals

The Pokagon Band master plan includes goals for protecting its watershed. These goals were met by using 

low impact development (LID) BMPs in their infrastructure design. According the the Environmental 

Protection Agency, “LID is an approach to land development (or re-development) that works with 

nature to manage stormwater as close to its source as possible.” LID BMPs include cluster development, 

minimization of total disturbed area, protection of natural 

flow pathways and of sensitive areas, and reduction of 

impervious surfaces.

Goal 1: Protect watershed hydrology and 

water quality 

Protecting the watershed begins with protecting the 

landscape’s existing natural features. The housing 

development is clustered within the existing geography. 

This planning strategy preserved glacial depressions that 

formed natural drainage patterns as well as sensitive 

areas. Bioswales are a natural alternative to storm sewers; they also 

infiltrate and filter water. Infiltration means that the water seeps into 

the ground.

Clustered housing design also reduces costs because roadways are 

shorter and utility infrastructure is less. In addition, fewer trees need 

to be removed and less land excavated. The area kept more rural, open 

Project Summary 

LOCATION: Portland, Oregon

DESIGN/PLAN TEAM: NAYA, Emmons Modular, Guardian Real Estate Services, Blazer Industries, 

Walsh Construction

TIMELINE: Design began in September 2011. Residents occupied units in April 2013.

PROJECT TYPE: Nine-unit multifamily buildings with studio, one- and two-bedroom units

Project Key Features

• Affordability 

• Americans with Disabilities Act-compliant

• In-unit laundry

• High-density development

• Double-pane vinyl windows

• Vinyl flooring

Key Sustainable Elements

• Modular units with decreased construction waste

• TOD

• Energy-efficient water distribution and low-flow fixtures

• Onsite stormwater management

• Recycled materials in deck and landings

• Mini-split heat pumps (in studio units only)

• Energy Star bathroom fans with automatic timer

• Energy Star smaller sized appliances

• Minimized conventional turf and drought-resistant plantings

• Highly insulated and air-tight units

• Low volatile organic compound finishes

• LEED® gold certification

2010 2011 2012 2013

First meeting with 

neighborhood held.

Public 

funding 

awarded.

Units 

constructed 

in factory 

and sited.

Residents 

moved in.

Land 

secured.

Design 

begun.

Permitting 

process 

conducted.

Units 

completed

on site.

Interior of model two-bedroom unit

Energy Star

appliances
10

Sustainable Construction in Indian Country

Best Practices

With Kah San Chako Haws, NAYA and its 

development team hope to encourage additional 

innovative thinking in affordable housing to 

increase the quantity of affordable housing. 

The 14-month design-to-move-in time was 

conservative for modular construction, but it met 

the team’s goals and shaved 4 months off site-built 

housing construction. After numerous project 

analysis meetings, however, the design team is 

confident that with an easily replicable design and 

increased use of features that reduce any onsite 

work (roof, siding, pipes in the hall) an 11-month 

timeline is within reach. Kah San Chako Haws was 

a successful prototype that proved the potential for 

reduced cost through reduced time for modular affordable housing.

Because it is constructed in a factory using precise plans, modular housing inherently impacts the environment 

less. The construction technique produces less waste, and leftover materials are often kept for use in other 

projects. The precision required to fit the units together leads to a unit with lower air penetration, saving on 

heating costs.

18

11

Kah San Chako Haws 14

Month 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18

Time

design - 5 permit - 4 construction - 8-9

permit - 3 construction - 5

design - 4 permit - 4 construction - 6

design - 3 additional revenue - 7

add revenue - 4

Conventional site-built project

Future Modular Project (potential)
11

Sustainable Construction in Indian Country

The units came in at a cost of $204,572 a unit, but the team anticipates additional cost savings for subsequent 

projects. Whereas siding is often installed in the factory, it was completed on site for this project as part of a 

workforce development effort. Installation took 2 1/2 months rather than the 2 weeks it would have taken 

with a professional onsite team. As projects scale up to 40 or more at a time, Emmons Modular’s Stuart 

Emmons said, “The lower cost will come from replication and streamlining.”

But beyond construction, design, and materials, team members believe that other parts of the housing 

development pipeline—financing and regulatory—are also ripe for streamlining. 

Next Steps

NAYA plans to continue to successfully develop housing in collaboration with a team. Its next housing project 

will feature housing for families who adopt a foster child, housing for elders, and a school serving infants 

through kindergarteners. Intergenerational activities will be a requirement. The housing will not be modular 

to fit in better with the surrounding neighborhood’s bungalow-style housing. NAYA anticipates developing 

additional modular units in the future. Other modular projects focused on affordability took off in 2013–2014 

in Los Angeles, Renton (WA), Manhattan, and Brooklyn.

For more information:

Matt Morton

Executive Director

NAYA

5135 NE Columbia Blvd.

Portland, OR 97218

503–288–8177

info@nayapdx.org
12

Sustainable Construction in Indian Country

How To Get Started

To learn more about the energy-efficiency strategies and construction techniques highlighted above, check 

out these resources.

NAYA Housing Services: 

http://nayapdx.org/services/housing/

Emmons Modular: 

www.emmonsmodular.com 

Modular Building Institute: 

http://www.modular.org/

EPA Energy Star Program: 

http://www.energystar.gov/

DOE, on selecting windows for energy efficiency: 

http://windows.lbl.gov/pub/selectingwindows/window.pdf

Affordable Housing Finance, December 2013: 

http://mydigimag.rrd.com/publication/frame.php?i=181749&p=&pn=&ver=html5

Center for Transit-Oriented Development: 

http://www.ctod.org/

Communicating the Benefits of TOD: The City of Evanston’s Transit-Oriented Redevelopment

and the Hudson Bergen Light Rail Transit System: 

http://www.ctod.org/pdfs/2006CommunicatingBenefitsTOD.pdf 

This best practice case study is one in a series that examines how Native American and Alaska Native 

communities have incorporated sustainable technologies and strategies into their housing development.

The Sustainable Construction in Indian Country initiative was created to support and increase sustainable 

construction practices in Native American communities. It is administered through the U.S. Department of 

Housing and Urban Development’s Office of Policy Development and Research in partnership with the Office of 

Native American Programs.

Produced October 2014.