Social Housing Task Force — Portland, ME
Date: 2025-09-30
Time: 18:00

SOCIAL HOUSING TASK MEMBERS
 City Councilor Kate Sykes
FORCE City Councilor Sarah Michniewicz
 Paul Styslinger
Tuesday, September 30, 2025 at 6:00 PM Bill Stauffer
 Jason Spector
Via Zoom Cat Buxton
 Wendy Cherubini
 Cullen Ryan
 Matthew Peters
 Kristin Leffler
 Jon Fetherston
 Jonathan Culley
 Tim Wells



REMOTE ACCESS INFORMATION:
The Social Housing Task Force will conduct this meeting remotely via Zoom pursuant to the Remote Meeting
Policy adopted by the Social Housing Task Force. Allow your computer to install the free Zoom app to get the
best meeting experience. If you are not able to attend live either in person or via Zoom, a recording will be
available in the Agenda Center following the meeting.

https://us02web.zoom.us/j/86569643089?pwd=RhZ8QAN0vON2uLyxS0arKsSkg87hqt.1


PUBLIC COMMENT INFORMATION:
To submit written public comment on an agenda item, email socialhousingtaskforce@portlandmaine.gov.
Submissions must be received by 12:00 pm the day before the Social Housing Task Force meeting to guarantee
their inclusion in the agenda packet. All submissions must include the commenter's name and legal address. To
help ensure your comment is submitted for the correct item, please include the name of the agenda item (see
below).


AGENDA:

 Greater Portland Council of Governments Presentation: Regional Housing
1.
 Development Context

 i. GPCOG Regional Housing Trends Slides
2. City of Portland Staff Presentation: Portland Housing Development Context

 i. Housing Approvals and Completions
 ii. Housing Resources and Subsidized Housing Development
 iii. 2024 Portland Housing Report
3. Task Force Members Questions and Discussions




 1

SOCIAL HOUSING TASK MEMBERS
 City Councilor Kate Sykes
FORCE City Councilor Sarah Michniewicz
 Paul Styslinger
Tuesday, September 30, 2025 at 6:00 PM Bill Stauffer
 Jason Spector
Via Zoom Cat Buxton
 Wendy Cherubini
 Cullen Ryan
 Matthew Peters
 Kristin Leffler
 Jon Fetherston
 Jonathan Culley
 Tim Wells



REMOTE ACCESS INFORMATION:
The Social Housing Task Force will conduct this meeting remotely via Zoom pursuant to the Remote Meeting
Policy adopted by the Social Housing Task Force. Allow your computer to install the free Zoom app to get the
best meeting experience. If you are not able to attend live either in person or via Zoom, a recording will be
available in the Agenda Center following the meeting.

https://us02web.zoom.us/j/86569643089?pwd=RhZ8QAN0vON2uLyxS0arKsSkg87hqt.1


PUBLIC COMMENT INFORMATION:
To submit written public comment on an agenda item, email socialhousingtaskforce@portlandmaine.gov.
Submissions must be received by 12:00 pm the day before the Social Housing Task Force meeting to guarantee
their inclusion in the agenda packet. All submissions must include the commenter's name and legal address. To
help ensure your comment is submitted for the correct item, please include the name of the agenda item (see
below).


AGENDA:

 Greater Portland Council of Governments Presentation: Regional Housing
1.
 Development Context

 i. GPCOG Regional Housing Trends Slides
2. City of Portland Staff Presentation: Portland Housing Development Context

 i. Housing Approvals and Completions
 ii. Housing Resources and Subsidized Housing Development
 iii. 2024 Portland Housing Report
3. Task Force Members Questions and Discussions




 1

 Page 1
Regional Housing
Trends
Portland Social Housing
Task Force
9/30/25




 Page 2
How Much Housing Do We Need?




 • Maine:
 Needs 84,300 new homes
 by 2030
 • Cumberland County:
 Needs 18,830 new homes
 by 2030

 2023 2024




 Page 3
How Do We Measure Progress?

 Census Building GPCOG
 Decennial Census Permit Survey Collected Data

• Most official and comprehensive • Collected every year • More accurate and complete
 count of housing units • Not all communities self-report • Asked about affordable vs. market
• Only happens every 10 years (data estimated for those that don’t) rate
 • Doesn’t include all housing types • Time intensive
 (ex., publicly owned housing, some • Not all communities report
 ADU’s, mobile homes)
 • Not all permits result in completed
 • Not all permits result in completed housing units
 housing units




 Page 4
Cumberland County Building Permits
 1992
 2,000 1909 1944
 Annual Target = 1,920 permits

 1624
 1547
 1,500 1385




 Total Building Permits
 1,000
 Great Recession
 691
 643
 575 585
 529
 500




 0

 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024


 Source: Census SOCDS Building Permit Database



 Page 5
Annual Building Permits by Community
 2020 2021 2022 2023 2024

 1,200
 1,110


 1,000




Total Building Permits
 800


 600


 400 363



 205
 200 152
 182




 -
 Cape Cumberland Falmouth Freeport Gorham Portland Scarborough South Westbrook Yarmouth
 Elizabeth Portland

 Source: Locally reported to GPCOG



 Page 6
Net Building Permits [2020-2024 TOTAL]

 Market Rate Affordable
 2,012
 2,000

 507


 1,500




 Total Building Permits
 1,319

 209

 1,000
 842

 655 200 1,505

 224 1,110
 500 383
 337 341
 642
 194
 93 120 431
 2
 91
 0
 Cape Yarmouth Cumberland Falmouth Gorham Freeport Westbrook South Scarborough Portland
 Elizabeth Portland

 Source: Locally reported to GPCOG




 Page 7
Net Building Permits Per Capita [2020-2024 TOTAL]

 Building Permits per 1,000 Residents (2020-2024) Population
 70,000
 60 58




 Building Permits per 1,000 Residents
 60,000
 50
 44 50,000


 2023 Population
 40
 40,000
 31 32
 29
 30 27
 30,000
 23
 20
 20 20,000
 13
 10
 10 10,000


 0 -
 Cape Yarmouth Gorham Cumberland Falmouth Portland South Westbrook Freeport Scarborough
 Elizabeth Portland

 Source: Locally reported to GPCOG Building permits per capita shows the number of permits issued per 1,000 residents by dividing
 total permits from 2020–2024 by the 2023 population estimate and multiplying by 1,000.




 Page 8
 Total People / Jobs



 0
 20,000 40,000 60,000 80,000


 Portland

 South Portland

 Scarborough

 Brunswick 77,600

 Westbrook

 Windham
 Portland’s 1950 Population

 Gorham

 Falmouth

 Standish

 Cape Elizabeth

 Yarmouth

 Freeport
 Jobs
 Cumberland
Page 9
 Gray
 People
 New Gloucester

 Bridgton

 Harpswell

 Raymond

 North Yarmouth

 Naples

 Casco

 Harrison
 Portland’s Role in the Region [PEOPLE + JOBS]




 Sebago

 Pownal

 Baldwin

 Chebeague Is.
 Source: 2023 ACS 5-year estimate (people) / 2022 Census LODES Version 8.0 (Jobs)




 Long Island

 Frye Is.
Portland’s Role in the Region [HOUSING UNITS]

 Portland Cumberland County Portland's Percent of County

 160,000 151,519 35%
 149,452




 Portland’s % of Cumberland County’s Housing Units
 138,657
 140,000 30%
 122,601
 30%
 120,000
 25%




 Total Housing Units
 26%
 100,000 94,513 24% 24% 24%
 20%
 80,000
 15%
 60,000

 35,957
 10%
 40,000 33,836 35,747
 31,858
 28,145

 20,000 5%


 0 0%
 1990 2000 2010 2020 2023


 Source: Decennial Census / 2023 ACS 5-year estimate




 Page 10
 • As a region, we’re currently not on track to meet
 statewide housing goals.
 • Building permits peaked in 2021-2022, then
 dropped in 2023 and 2024.
 • Portland is growing again and is a key driver of
 Key housing and affordable housing.

Takeaways • But Portland’s share of regional housing is
 shrinking, so there’s room to play an even
 bigger role.




 Page 11
https://www.greatmaineneighborhoods.org/housing-dashboard




 Page 12
Thank You!



Rick Harbison
Senior Planner, GPCOG
rharbison@gpcog.org




 Page 13
Social Housing Task Force
 Housing Approvals & Completions
 09.30.2025




 Page 14
Units Approved by Year
(2010-2025)




 Page 15
Units Completed by Year
(2010-2025)




 Page 16
AFFORDABILITY OF UNITS COMPLETED
(2010-2024)
 Completed Units by Affordability Level (2010-2024) Completed Units by Affordability (2010-2024)

 800
 40% AMI
 1% 50% AMI
 13% 60% AMI 700
 5%
 215
 600

 80% AMI
 75
 1% 500 170
 100% AMI
 1%
 120% AMI 400
 66
 2% 111
 68
 300
 535
 488
 200
 64 412
 358 1
 38 298 321
 25
 37 140
 100
 166 184 168
 15 124 125
 81
 30 52
 Market-rate 0
 77% 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024

 Market-rate Affordable
 Page 17
 2024 in Housing
 Approved Completed
 464 units 582 units
 Rental Rental


 85% 74%
 Affordable Market-Rate


 74%
 58%
  Multi-Family Multi-Family


 85%
 88%
New Construction New Construction


 58% 96%
 Page 18
HOUSING PRODUCTION (2017-projected)
7,000

 5,810
 2021-2030 Housing Production Goals Report
6,000
 5,417

 5,024
5,000 4,631
 +4,463 units 4,238

 3,845
4,000
 3,452

 2,870

 2017-2027
3,000
 Portland’s Plan
 2,120
 +2,557 units 1,935
2,000
 1,503
 1,137
 987
1,000 563


 0
 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030
 Units produced Cumulative total number of units produced
 Page 19
UNITS COMPLETED
(2010-2024)
 Rental and Ownership Units
 • Most units are rentals
 • Rental units are more likely to be located on the peninsula

 Affordability
 • About a quarter of all units are affordable


 Bedroom Mix & Project Size
 • A significant majority of units are smaller
 • Larger, multi-family projects comprise the significant majority of completed units

 Historic Districts
 • Historic districts overperform in housing creation, including affordable housing creation
 • In 2024, the highest number of units completed were in historic districts
 • In 2024, the majority of units completed were in historic districts

 Accessory Dwelling Units (ADUs)
 • Almost all ADUs are off-peninsula and involve the reuse of an existing structure
 Page 20
INCLUSIONARY ZONING APPROVALS
(2024)




 25 IZ completed projects breakdown
 • 14 created units
 • 8 paid fee-in-lieu
 • 3 created units/paid fee-in-lieu


 Page 21
CURRENT + ONGOING INITIATIVES
 Maine Housing Opportunity Program (HOP) Grants




 Housing data dashboard ADU promotion Inclusionary zoning study




 HOTELS




 AFFORDABILITY
 EMPLOYEES GAP


 LINKAGE FEE


Revised Land Use Code
 HOMES


 Hotel inclusionary zoning policy Developers 101


 Page 22
Questions




 Page 23
Revenue Sources
● HOME Program- Federal funding
● Jill C. Duson Housing Trust Fund - Local funding
● Tax Increment Financing (TIF)- Local program




 Page 24
Revenue
HOME Funding: FY 2024-2025
 ● Portland- $514,873
 ● Cumberland County- $325,050
 ● Decrease in funding



Jill C. Duson Housing Trust Fund: 2024
 ● $993,573 in fees
 ● $4,880,126 in General Fund Allocation



 Page 25
Appropriations
HOME Funding: FY 2024-2025
 ● $294,489 for 186 Woodford Street



Jill C. Duson Housing Trust Fund: 2024
 ● $492,000 for 202 Woodford Street
 ● $155,511 for 186 Woodford Street
 ● $650,000 for 70 East Oxford
 ● $1,080,000 for 337 Cumberland Avenue




 Page 26
Inclusionary Zoning- Revenue
 Allocated during Planning Board review
● $577,066 approved fee-in-lieu payment for workforce housing units
● $1,304,376 approved fee-in-lieu payments for hotels


 Collected at the time the certificate of occupancy is issued
● $728,887 Fee-in-lieu payments received in for workforce housing
● $334,852 Fee-in-lieu payments received for hotels




 Page 27
Affordable Housing Tax Increment Financing (TIF)
● Flexible financing tool to assist affordable housing development.
● Uses taxes on future gains in real estate value to assist affordable housing
 development projects.


 2024 Approved Affordable Housing TIFs
● 70 East Oxford
● 186 Woodford Street
● 202 Woodford Street
● 42 Atlantic Street


 Page 28
Subsidized Housing Development
202 Woodford Street




Community Housing of Maine (CHOM) will partially demolish and rebuild/renovate the existing Woodfords Congregational
Church Parish House into 46 units of studio and one-bedroom apartments for seniors earning up to 60% of the area median
income. 10% of the units would be set aside for individuals residing in a Portland shelter. This project was made possible
by $492,000 in Housing Trust funding and an AHTIF.



 Page 29
Subsidized Housing Development
186 Woodford Street

 Community Housing of Maine (CHOM)
 will build a new four-story, 51 unit
 building with studio and one-bedroom
 apartments affordable for households
 earning up to 60% of the area median
 income. 10% of the units would be set
 aside for individual residing in a Portland
 shelter.
 This project was made possible by
 $294,489 in HOME funding, $155,511 in
 Housing Trust funds, and an AHTIF.



 Page 30
Subsidized Housing Development
70 East Oxford Street Portland Housing Authority will
 develop a new six-story building with
 50 affordable and 5 market rate
 apartments. 33 unit would be
 affordable at up to 50% AMI and 17
 units would be affordable at up to
 60% AMI. 10% of the units would be
 set aside for individual residing in a
 Portland shelter. There will be a
 combination of studio, one, two and
 three-bedroom apartments.

 This project was made possible with
 a $650,000 Housing Trust fund
 subsidy, and an AHTIF.

 Page 31
Subsidized Housing Development
337 Cumberland Avenue Youth and Family Outreach will construct a
 six story, 60 unit building with affordable
 and market rate apartments. 29 apartments
 would be affordable at up to 50% AMI, 19
 apartments would be affordable up to 60%
 AMI, and 12 apartments would be market
 rate. There would be a mix of studio, one,
 two and three-bedroom units. 10% of the
 units would be set aside for individual
 residing in a Portland shelter. The first floor
 would be dedicated to child care services.
 This project was made possible with
 $1,080,000 in Housing Trust funds, and an
 AHTIF subsidy.

 Page 32
Workforce Housing Development
Market Rate Development that includes workforce housing units
● 509 Forest Avenue (Rumery Lofts)- 10 of the 38 apartments will be
 affordable at 80% of the area median income (AMI). Lease up is expected in
 June of this year
● 482 Congress Street- 10 of 39 apartments will be affordable at 80% of the
 area median income.
● 985 Forest Avenue- 5 out of 21 apartments will be affordable at 80 AMI.


 All three properties represent renovation projects


 Page 33
Income and Rental Data
● The U.S Department of Housing and Urban Development (HUD) computes
  income limits for Portland based on local Area Median Income (AMI).

● Portland applies HUD’s income limits to determine and monitor household
  eligibility with the City’s inclusionary zoning and affordable housing programs.
 Income Limits Rent Limits




 Page 34
Monitoring
 Annual requirement conducted by the Housing and Community Development
 Department.

● Workforce Housing- 145 units
● HOME- 146 units
● Housing Trust Fund- 779 units
● Tax Increment Financing-1,437 units




 Page 35
2024 HOUSING REPORT




 May 2025
 Page 36
The 2024 Housing Report has been prepared by the Departments of Housing & Economic
Development and Planning & Urban Development for the City Council’s Housing & Economic
Development Committee. This report is designed to give an overview of housing development
activity, funding sources, and projects benefitting from funding subsidies in the 2024 calendar year.




 2


 Page 37
1. 2024 HOUSING DEVELOPMENT
A. RESIDENTIAL APPROVALS

In 2024, a total of 64 residential projects were approved in the City of Portland, representing 464 dwelling
units. 13 of these projects, with 393 units, were reviewed by the Planning Board, and the remaining 51 projects
were approved administratively.

 Rental/Ownership. Of the 464 total units approved in
 2024, the majority (396, or 85%) are anticipated to be
 rental units, while the remaining units (68, or 15%) are
 anticipated as owner-occupied. A significant number of
 85% rental units were approved at 186 Woodford Street near
 Woodford’s Corner, as well as in two projects on the
 of approved units are
 peninsula at 331 Cumberland Avenue and 70 East Oxford
 rentals
 Street (AKA 9 Boyd Street). The largest shares of
 anticipated ownership units were approved at 246
 Eastern Promenade, within the Stroudwater Preserve
 subdivision, and in two separate 9-unit condominium
 projects at 64 Pine Street and 19 West Street.



Affordability. The majority (268, or 58%) of the approved units for 2024 are proposed to be deed-restricted
affordable housing for households earning at or below 80% Area Median Income (AMI) (Figure 1). All of
these units are proposed as rental units and are located in buildings of 10 or more units. 25 of these units
are proposed remain affordable to households earning at or below 80% of AMI, 69 are proposed to remain
affordable at 60% AMI, and 174 are proposed to be affordable at 50% AMI.

 Figure 1: Units Approved by Affordability (2024)




 38%
 42%

 15% 5%




 3


 Page 38
 Figure 2: Units Approved by Project Size (2024) Project & Unit Size. Most of units approved in 2024
 250 (408, or 88%) are proposed within buildings containing
 five or more units, with many of these buildings
 200 significantly larger than five units. In fact, projects
 proposing 30 or more units account for 72% of all
 150 approved units in 2024 (Figure 2). All ownership-unit
Units projects were smaller in scale, each proposing fewer
 100 than 15 units. In contrast, the vast majority (351, or 89%)
 of rental units are proposed in buildings with 15 or more
 50 units. In terms of unit size, one-bedroom units made up
 the largest share of approvals in 2024 (38%), followed by
 0 two-bedroom units at (34%).
 1-4 5-9 10-19 20-39 40+
 Number of Dwelling Units in Project In smaller approved projects within buildings of 1-4 units
 in size, units tended to be larger, primarily comprised of
 Figure 3: Units Approved (2024) two, three, or four bedrooms (47, or 84%). In larger
 approved projects of five or more total units in size,
 smaller one- and two-bedroom units predominated.

 Location. A significant number of approved units in
 2024 (280, or 60%), were located on the peninsula,
 concentrated near Congress Street. This includes the
 majority of both ownership and rental units. One
 notable exception to this pattern is the City’s largest
 approval in 2024 at 186 Woodford Street, located near
 Woodford’s Corner (Figure 3). Additionally, 130, or 28%
 of all approved units in 2024 were located in historic
 districts. Nearly all approved units (453, or 98%) are
 located within ¼ mile of a fixed-transit route, including
 all projects proposing the creation of 5 or more units.

 Type of Construction. More than half of the approved
 units in 2024 (253, or 55%) are proposed as new
 construction, while the remaining 45% of approved units
 involve the adaptive reuse of an existing structure
 through renovation or addition. New construction rates
 are fairly consistent across project sizes, with 57% of
 smaller projects (1-4 units) and 54% of larger projects (5
 or more units) involving new construction. A significant
 55% majority (74%) of affordable units are proposed as new
 of approved units are construction, while 57% of market-rate units involve the
 proposed to be created reuse of existing structures. Additionally, 88% of
 through new construction ownership units are new construction, whereas 55% of
 rental units are expected to be created through reuse.


 4


 Page 39
 Figure 4: Units Approved (2024)

 464 units approved
 58% (268) deed-restricted affordable
 85% (396) rentals
 88% in buildings of 5 or more units




186 Woodford Street
84 affordable units of new
construction and reuse of the
Woodfords Congregational Church




 70 East Oxford Street
 55 affordable units of
 new construction




 Legend

 1-4 Units 331 Cumberland Avenue
 60 affordable units of new
 5 or More Units construction
 Transit Line


 5


 Page 40
  6


Page 41
B. RESIDENTIAL CERTIFICATES OF OCCUPANCY
In 2024, 71 residential projects were completed, resulting in
the creation of 582 units. 11 of these projects, representing
90% of units (522) were reviewed by the Planning Board. The
remaining 10% of projects (56) created 60 units and were
reviewed administratively.
 74%
Rental/Ownership. Of the 582 total units completed in 2024,
the majority (431, or 74%) are anticipated as rental units. of completed units are rentals
Notable larger projects completed in 2024 with rental units
include 200 Federal Street, 91 Winter Street, 63 Front Street,
and 73 Winter Street. Larger projects with ownership units
include 387 Commercial Street, 65 McAuley Way (Building 2),
the Stroudwater Preserve Subdivision, and 39 Winter Street.

Affordability. The majority of units completed in 2024 (413, or 71%) are market-rate (Figure 5). The 169
affordable units completed in 2024 are all rental units and are located in developments of 20 or more units.
Of the 169 affordable units, 27 are restricted to households earning at or below 100% of AMI, 50 are
affordable at 60% AMI, 90 at 50% AMI, and 2 units at 40% AMI.


 Figure 5: Units Completed by Affordability (2024)




 15%


 71%
 9%


 5% <1%
 40% AMI




 7


 Page 42
Project & Unit Size. A significant number of Figure 6: Units Completed by Project Size (2024)
completed units (495, or 85%) are located within
 500
projects containing five or more units, with projects
 450
of 30 or more units accounting for 80% of all
 400
completed units. The majority of completed
 350
ownership units (92, or 61%) are in larger multi-unit
 300
developments such as (387 Commercial Street and
65 McAuley Way). A much larger share (403, or 91%) Units 250
 200
of completed rental units are in projects of 30 or
 150
more units. In terms of unit size, the highest
 100
proportion of completed units were one-bedroom
 50
units (47%), followed by studios at (22%). Units in
smaller projects are generally larger, with 79% 0
 1-4 5-9 10-19 20-39 40+
consisting of one, two, or three bedrooms. Units in
 Number of Dwelling Units in Project
projects with 5 or more units typically follow
different size trends, with a greater proportion of
smaller are smaller units, with 92% comprised of Figure 7: Units Completed (2024)
studio, one, or two-bedroom units.

Location. The majority of completed units (462, or
80%), both rental and ownership, were located on
the peninsula in the Downtown and West End
neighborhoods. There were also larger projects
completed off-peninsula in the East Deering (45
Front Street) & Deering Center (65 McAuley Way)
neighborhoods (Figure 7). 372, or 64% of all
completed units in 2024, were located in historic
districts, representing the highest number of total
units created in historic districts in the last fourteen
years. Nearly all completed units (561, or 96%) are
located within ¼ mile of a fixed-transit route,
including all projects proposing the creation of 5 or
more units.

Type of Construction. Almost all units completed in
2024 (561, or 96%) were created through new
construction, while the remaining 4% involved the
reuse of an existing structure through renovation or
addition. All projects that created 5 or more units, as
well as all affordable housing projects, were
 96%
completed through new construction. of completed units
 were created through
 new construction




 8


 Page 43
 Figure 8: Units Completed (2024)

 582 units completed
 29% (169) deed-restricted affordable
 74% (431) rentals
 85% in buildings of 5 or more units




73 & 91 Winter Street 200 Federal Street
95 affordable rental units 236 market-rate and 27
 affordable units




 Legend

 1-4 Units
 387 Commercial Street
 5 or More Units 64 market-rate ownership units

 Transit Line



 9


 Page 44
  10


Page 45
2. HOUSING DEVELOPMENT TRENDS
A. TOTAL PRODUCTION
4,383 approved housing units have been created in the City of Portland between 2010-2024. Over the past 14
years, housing production has shown an upward trend. In keeping with this trajectory, 2024 recorded the
second-highest level of housing production since 2010, with 582 dwelling units completed (Figure 10).
Guided by the premise that “all who work in Portland should have the option of living in Portland,” the City’s
2017 comprehensive plan, Portland’s Plan 2030, established a goal of 2,557 new housing units over the ten-
year period from 2017-2027, or an average of 256 new units per year. As of the end of 2023, housing
production has exceeded that target (Figure 9) and if the current pace continues, Portland is projected to
surpass its comprehensive plan goal by more than 2,000 units by 2027.
In September of 2024, the State of Maine published Statewide and Regional Housing Production Goals for
the period 2021-2030, including specific goals for each of the state’s sixteen counties. Cumberland County
has the highest goal in the state at 18,830 new housing units, reflecting both historic underproduction and
projected future demand. The state has not set municipal goals. However, if, at a minimum, Portland
maintains its current share of the county’s total housing stock (23.7%), the city could be expected to account
for 23.7% of the county-wide goal, or 4,463 units. Since 2021, 1,948 new housing units have been created in
Portland, representing just under 44% of this target. If current trends continue, the city is projected to deliver
approximately 4,307 units by 2030, or 96.5% of its proportional share of the county-wide goal. The City will
continue to monitor total production in light of the statewide goals.

Figure 9: Housing Production by Certificates of Occupancy Issued (2017-projected)
 7,000

 2021-2030 Housing Production Goals Report 5,810
 6,000
 5,417
 +4,463 units 5,024
 5,000 4,631
 4,238
 3,845
 4,000
 3,452
 2,870
 3,000
 2017-2027 Portland’s Plan
 2,120
 +2,557 units 1,935
 2,000
 1,503
 1,137
 987
 1,000 563


 0
 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030
 Units produced Cumulative total number of units produced



 11


 Page 46
Figure 10: Units Completed by Year (2024)
800
 700
600
 500
400 750
 300 563 582
 200 424 432
 366
 100 248
 30 192 166 162 150 185
 15 118
 0
 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024



B. RENTAL/HOMEOWNERSHIP
The majority of units completed in the last fourteen years (68%) have been rental units. In 2024, the
proportion of rental units was higher than the 14-year average, at 76%. Four of the past five years have seen
the number of completed rental units exceed ownership units, aligning with regional and national increases
in larger rental housing production during the COVID-19 pandemic 1 (Figure 11). Years with higher ownership
totals can be attributed to larger multifamily condominium projects (Table 3).

 Figure 11: Completed Units by Ownership (2010-2024)
 81
 800
 700
 89 138
 600
 500 303 172
 61
 400
 70 669
 300
 38 91 111
 74 474 89 444
 200 59
 6 305 260
 100 8 7 24 154 178
 75 88 121 74
 59 61
 0
 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
 Rental Ownership

The significant majority (95%) of ownership units completed from 2010-2024 are market rate, with only 63
ownership units created for households earning less than 120% AMI. This lack of affordable homeownership
production can largely be attributed to a heavy reliance on Low-Income Housing Tax Credits (LIHTC), which
are designed for affordable rental projects.



1
 Joint Center for Housing Studies of Harvard University. America’s Rental Housing 2024. 25 Jan. 2024.
 12


 Page 47
 Table 3: Larger Multi-family Ownership Projects by Year of Completion
 Year of Total Ownership Portion of All Ownership
 Completion Address Units Affordability Units Completed in Year
 2014 40 Hancock Street 40 Market Rate 44%
 802 Ocean Avenue 150 Market Rate
 101 York & 25 High Streets 63 Market Rate
 2018 88%
 62 India Street 27 Market Rate
 169 Newbury Street 26 Market Rate
 20 Thames Street 27 Market Rate
 2019 20 @ 120% AMI 56%
 60 Parris Street 23
 3 Market Rate
 75 Chestnut Street 54 Market Rate
 2022 12 @ 120% AMI 69%
 104 Grant Street 23
 11 Market Rate


C. AFFORDABILITY
Since 2010, 23% of the completed units within the Figure 12: Completed Units by Affordability Level
city qualify as affordable, with rents or purchase (2010-2024)
prices limited to households earning below 120%
of the area median income (AMI) (Figure 12). The 40% AMI 50% AMI
proportion of deed-restricted affordable housing 1% 60% AMI
 13%
 5%
units completed in 2024 was slightly higher, at
29%. And in 2024, the percentage of affordable 80% AMI
units approved was significantly higher, at 58%. 1%

Of the affordable units created since 2010, the
 100% AMI
majority (81%) have been designated for 1%
households earning less than 80% of AMI. In 2024,
again, the proportion was slightly higher, with 84%
of completed affordable units in 2024 designated 120% AMI
 2%
for households earning less than 80% of AMI.

A significant majority (76%) of completed
affordable units between 2010-2024 are located
on the peninsula. 2024 saw a decrease from this
trend, however, with only 67% of completed
affordable units located on-peninsula. Recent Market-rate
approval data suggests this shift is continuing, with 77%
several significant affordable housing projects
approved off-peninsula between 2022-2024.




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D. BEDROOM MIX & PROJECT SIZE
When looking at bedroom mix (Figure 13), data Figure 13: Completed Units by Bedroom Mix
from the last 14 years shows that a large (2010-2024)
percentage of completed units (85%) are small in
size (studios to two-bedroom units). While the 5-bedroom
 0% 6-bedroom
size distribution of units completed in 2024 held 4-bedroom
 0%
with this trend, there were slightly more studios 2%
and less two-bedroom units than in previous
 3-bedroom Studio
years. 13% 16%
In terms of project size, 86% of units completed
in 2024 are from a relatively small number of
 2-bedroom
large projects (Figure 14). From 2010-2024,
 22%
average project size has increased significantly 1-bedroom
from 2,034 square feet to 11,448 square feet, 47%
reflecting the overall increase in larger, multi-
family development projects. This trend is
accompanied by a decrease in average square
footage per unit (1,988 to 1,799 square feet),
which aligns with the pattern of smaller unit sizes
with multi-family developments.

E. LOCATION

Over the past 14 years, the neighborhoods of Figure 14: Units Completed by Project Size
Bayside, Downtown, Munjoy Hill, and the West (2010-2024)
End have seen the highest levels of new housing 3,000
construction (Figure 15). From 2010 to 2024, the
majority of completed ownership units (59%) 2,500
and rental units (79%) have been located on the
 2,000
peninsula, where larger multi-family
developments are far more prevalent and zoning Units 1,500
has historically been more permissive. A
substantial majority—92%—of all completed 1,000
units during this period were built within ¼ mile 500
of a fixed-transit route. This pattern continued in
2024, with large-scale multi-family developments 0
primarily completed in Downtown and the West 1-4 5-9 10-19 20-39 40+
End. Number of Dwelling Units in Project




 14


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 Figure 15: Completed Housing Units (2010-2024)




Legend

 1-4 Units (19% of all Completed Units)

 5 or More Units (81% of all Completed Units)

 Transit Line

 15


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 F. HISTORIC DISTRICTS
 In 2023, the City published Trends in
 Portland’s Historic Districts, an
 assessment of demographic and
 development trends in and outside of
 historic districts from 1990-2021. The
 study generally found that, despite lower
 levels of new construction, historic
 districts have experienced similar
 increases in density as areas outside of
 historic districts through a mix of
 additions and repurposing of structures
 for higher residential density. Although
  Figure 16: 73 & 91 Winter Street only 4% of the city’s land area lies within
 historic districts, historic districts contain
25% of the city’s total housing units 2, and since 2010, the ratio of housing units completed within districts
(35%) suggests that these areas generally outperform other parts of the city in terms of housing production.
This holds for affordable housing as well, with 36% of completed affordable units located within historic
districts from 2010-2024. In 2024, development in historic districts was especially strong, with more units
completed than in any year since 2010. These projects accounted for 71% of all housing units completed
citywide, marking a high point both in absolute numbers and as a share of total development.
Figure 17: Completed Units in Historic Districts (2010-2024)
 800
 700
 600 262

 500
 400 263
 58 372
 40 152
 300
 200 57
 100 34 27 41
 54
 100 1 59
 3
 0
 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
 Rest of City Historic Districts

G. ACCESSORY DWELLING UNITS (ADUs)
Since 2010, 88 ADUs have been approved and 53 ADUs have received certificates of occupancy in the city.
The vast majority of completed ADUs (96%) are located on the mainland off-peninsula. Most ADUs
completed between 2010-2024 (89%) involve the reuse of an existing structure (e.g., an internal conversion
or an addition to an existing structure).



2
 City of Portland Assessment Records (as of February 28, 2025)
 16


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The City’s ADU policy has evolved significantly over the past decade, with major changes introduced in 2020
to allow up to two ADUs on any legal residential property. Although the total number of ADUs approved
annually remains relatively modest, ADU approvals have roughly tripled since this new ADU framework was
implemented, from an average of less than three per year before 2020 to 18 in 2023 and 16 in 2024. In 2024,
there was a noticeable shift away from ADUs created through the reuse of existing structures, with only 64%
involving reuse, reflecting a growing preference for new, freestanding ADUs. This trend is also evident in 2024
approvals, which included a higher number of new detached units than in previous years.

Figure 18: Approved and Completed ADUs by Year (2010-2024)
 2024: ReCode Phase 2 allows
 20
 more flexibility for ADUs
 18
 16
 14
 2020: ReCode Phase 1 allows
  12 up to 2 ADUs
 10 2015: ADUs expanded as 18
 permitted uses 16
  8
 14
  6
 10 11
  4 8 7
 6
  2 4 4 5 5
 3 3 3 2 3 3 3 2
 2 2
  0 1 1 1 1 1 1 1 0
 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024

 Approved Completed

H. INCLUSIONARY ZONING

The City’s inclusionary zoning (IZ) policy requires
 Table 4: Inclusionary Zoning Over Time
that all residential projects of 10 or more dwelling
units either create affordable units or pay an in- IZ Before and After Citizen Referendum
lieu fee to the Jill C. Duson Housing Trust Fund.
This policy represents an attempt to leverage the Year % of Fee-in-Lieu Affordability Level
 Affordable (Adjusted (% of AMI)
private market to create affordable housing.
 Units Annually)
After the Green New Deal citizen referendum Required Rental Ownership
passed in 2020, changes were made to the
inclusionary zoning policy (Table 4). The 2015 10% $100,000 100% 120%
percentage of affordable units required increased
from 10% to 25%. The referendum also resulted 2020 25% $150,000 80% 80%

in deeper levels of affordability for IZ units,
changing affordability levels for rentals from 100% AMI to 80% AMI and ownership units from 120% to 80%.

Of the 13 residential projects approved by the Planning Board in 2024, the majority of projects either fell
below the 10-unit threshold or were exempt due to the use of subsidies for affordable housing. Four projects
triggered compliance with IZ requirements. Two of these projects, 509 Forest Avenue and 482 Congress
Street, involved the adaptive reuse of existing buildings. Another, 246 Eastern Promenade, was proposed as
 17


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new construction. The fourth project, 985 Forest Avenue, was subject to IZ requirements due to an
enforcement action related to unpermitted dwelling units. The property owner was issued a notice of
violation and, in order to legalize the 18 existing units, was required to comply with the IZ ordinance. Of these
four inclusionary zoning projects, three proposed to provide some or all required IZ units on-site, while one,
246 Eastern Promenade, opted to pay an in-lieu fee totaling $577,067 (Table 5).

 Table 5: Planning Board Approvals and IZ Applicability (2024)
 Units Affordable Number of IZ IZ On-
 Address
 Approved Units Approved required IZ units Applicability site/fee
 186 Woodford Street 84 84 0 Exempt
 331 Cumberland Ave. 60 48 0 Exempt
 70 East Oxford Street 55 50 0 Exempt
 156 High Street 31 31 0 Exempt
 42 Atlantic Street 30 30 0 Exempt
 19 West Street 9 0 0 N/A
 64 Pine Street 9 0 0 N/A
 90 Atlantic Street 6 0 0 N/A
 56 Cumberland Avenue 5 0 0 N/A
 509 Forest Avenue 38 10 10 25% On-site
 482 Congress Street 35 10 10 25% On-site
 985 Forest Avenue 18 5 5 25% On-site
 $577,067
 246 Eastern Promenade 13 0 0 25%
 fee-in-lieu
 Total 393 268


Since the creation of the City’s IZ policy in 2015, 47 projects have been subject to the City’s IZ ordinance. As
of the end of 2024, 25 of these projects have been issued certificates of occupancy (Figure 19). 145 IZ units
have been created and a total of $3,467,237 has been paid into the City’s Housing Trust Fund. Of the 25
completed projects required to provide IZ units, 14 have created units and 8 have met the requirement
through a fee in-lieu, and three have met the requirement through providing units & paying a fee-in-lieu.

Figure 19: IZ and Non-IZ Units Completed by Year of Approval (2016-2024)
 1,000 97

 800

 600
 29
 400 5 844
 1
 3 9
 200 454
 299 354 0 1
 241 247 0 18
 0 87 67
 2016 2017 2018 2019 2020 2021 2022 2023 2024

 Non-IZ Units IZ Units



 18


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3. HOUSING-SUPPORTIVE LAND USE POLICY
The City’s guiding policy documents place a strong value on housing creation, diversity, and affordability.
These concepts are a centerpiece of Portland’s Plan 2030, and have been Council priorities for many years.
The housing component of Portland’s Plan states that the city must “recognize that [its] vitality rests on the
availability of diverse, secure housing options for existing residents, new arrivals, and all stages of life” (p. 47).

In keeping with Portland’s Plan, the City of Portland has worked for decades to revise land use policy with the
goal of both retaining existing housing supply and encouraging the production of housing of a wide range of
types and sizes. The City’s land use code has long included a housing replacement ordinance, for instance,
which requires any development proposals that remove housing to replace those units or contribute to the
City’s Housing Trust Fund. In the past decade the City has modified base zoning (changing permitted uses,
increasing density, height, and minimizing setbacks), simplified provisions for ADUs, and removed commonly
perceived barriers to housing production, like parking requirements.

Simultaneously, the City’s land use code has been used to implement affordable housing goals. Since the
mid-2000s, the code has included dimensional bonuses for affordable and workforce housing. Affordable
housing applications have been eligible for a reduction in fees and priority review since the mid-2000s. In
2015 the City adopted inclusionary zoning, which requires that projects of 10 or more dwelling units provide
a share of workforce housing or contribute financially to the City’s Housing Trust Fund. A second inclusionary
zoning policy was adopted in 2019 for hotel projects.

A. RECODE PHASE II
In late 2024, the City Council adopted the second phase of ReCode Portland, a two-phase initiative to rewrite
the City’s entire land use code with the aim of aligning it directly with the goals of Portland’s Plan. Housing
was a major focus of ReCode, and ultimately, the revised code adopted by the City Council expands
opportunities for residential growth across the city. In historically low-density residential zones, particularly
off-peninsula, the code creates opportunities for new, mid-density housing in the form of three- and four-
family buildings, with more flexibility in terms of dimensional standards. The revised code also creates
targeted opportunities for much more housing in mixed-use zones and along public transit routes, with
increases in permitted heights and eliminating density requirements.

The new code introduces parking maximums, simplifies affordable housing and inclusionary zoning
requirements, eliminates barriers to ADU production, and streamlines the site plan review process for small
and mid-density housing projects, as well as changes to residential use. While land use policy is far from the
only factor affecting housing construction in the City of Portland, the revised land use code creates significant
opportunities, and moving forward, the City’s housing data collection and reporting efforts put it in a strong
position for monitoring the ways in which the market begins to respond.

B. CURRENT AND ONGOING INITIATIVES
In addition to the transformative changes adopted through ReCode Phase II, work continues with several
current and ongoing initiatives focused on housing-supportive policy, including:



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Housing Dashboard. In 2023 the City developed an interactive online housing dashboard that visualizes
housing trends from 2010 onward. The dashboard is updated quarterly using information from City building
permit and site plan records. The dashboard shows approved and completed units, including data on
affordability, ownership, and location. Continuing forward, the dashboard will supplement the annual housing
report, providing current information on key metrics to members of the public, elected officials, and City
staff throughout the year.

State of Maine’s Housing Opportunity Program (HOP) Grant - Housing Policy Study. In 2025, the Planning
& Urban Development Department was awarded a $50,000 grant through the State of Maine’s Housing
Opportunity Program. The funding will support a comprehensive evaluation of existing housing policies, with
a particular focus on Portland’s inclusionary zoning ordinance. The study will analyze housing production
trends, regulatory factors that may be influencing those trends, and identify opportunities to strengthen the
effectiveness of the City’s housing policies within the context of the local market.

State of Maine’s Housing Opportunity Program (HOP) Grant - ADU Educational Materials. In 2025, GPCOG,
in partnership with the Planning & Urban Development Department, was awarded a grant to develop
educational materials—including a website and video—on how to build accessory dwelling units (ADUs) in
the City of Portland. These educational efforts aim to explain the regulatory process, dispel common
misconceptions about regulatory barriers, and provide a central resource where people can learn more about
creating ADUs on their properties.

Hotel Inclusionary Zoning Ordinance. In 2019, the City adopted a hotel inclusionary zoning ordinance,
requiring hotel projects and hotel expansions with 10 or more rooms to either provide low-income housing
units or contribute a fee-in-lieu to the City’s Housing Trust Fund. City staff are currently analyzing and
preparing recommendations for the Planning Board and City Council—based on feedback from the Housing
& Economic Development Committee—to consider potential modifications and increases to the fee-in-lieu
paid by hotel developments in support of affordable housing creation.

Developers 101 Document & Forum. To promote transparency and help both current and prospective
applicants better understand the development review process—including site plan and subdivision
applications, as well as Planning Board reviews—the City is developing new materials that will clearly outline
application requirements, review timelines, legal obligations, neighborhood engagement expectations, and
case studies of best practices. These resources aim to support a review process that is clear, consistent, and
predictable and aim to dispel common misconceptions about process and regulatory barriers.




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4. HOUSING PROGRAMS
A. FEDERAL REVENUE SOURCES
HOME. HOME is one of the primary federal tools that HOME FUNDS AT A GLANCE
states and local governments have for the production 1,558 HOME housing units created and
and preservation of affordable rental and owner- subsidized since 2000
occupied housing for low-income to extremely low- $11.5 million HOME funding allocation since
income families, including mixed-income housing and 2000
housing for the homeless. It is an anchor of the 85% Percentage of HOME units that
nation’s affordable housing finance system and can are affordable to households
be an important factor for community revitalization. earning up to 60% AMI
For many states and local governments, HOME is the
only reliable stream of affordable housing development funds available. HOME funds are awarded annually
from the U.S. Department of Housing and Urban Development (HUD) as grants to participating jurisdictions
such as the City of Portland.

Portland has been a participating jurisdiction in the HUD HOME Program since its inception in 1992. Prior to
2009, Portland received an annual allocation of HUD HOME funds but other communities of Cumberland
County did not. The creation of the Portland/Cumberland County HUD HOME Consortium in 2009 brought
additional funding for affordable housing activities into the region.

 Figure 20: HOME Funding by Fiscal Year (2012-2025)


 2024-2025 $325,050 $514,873

 2023-2024 $401,411 $635,826

 2022-2023 $414,352 $656,325

 2021-2022 $383,780 $607,899

 2020-2021 $407,611 $645,647

 2019-2020 $395,008 $625,685

 2018-2019 $445,712 $705,998

 2017-2018 $319,219 $505,637

 2016-2017 $322,232 $510,410

 2015-2016 $347,236 $473,597

 2014-2015 $369,837 $543,341

 2013-2014 $350,937 $515,216

 2012-2013 $365,313 $533,230

 Cumberland County Portland


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Table 6: Portland HOME Funding by Project by Appropriation Year (2014-2024)
 Total Low-/ Moderate- HOME
 Project Address/Name Project Type Year Units Income Units Funding
 Thomas Heights New Construction 2014 18 18 $522,448
 Bayside Anchor New Construction 2015 45 45 $500,000
  Rosa True Apartments Rehabilitation 2015 10 10 $149,500
 548 St. John Street Rehabilitation 2016 4 4 $75,000
 Motherhouse Rehabilitation 2017 88 66 $627,223
 178 Kennebec Street New Construction 2018 51 40 $370,000
 63 Front Street New Construction 2018 45 45 $204,070
 37 Front Street New Construction 2018 60 60 $306,104
 Deering Place Rehab/New Construction 2018 75 45 $500,000
 58 Boyd Street New Construction 2018 55 44 $200,000
 155 Danforth New Construction 2019 30 30 $299,999
 83 Middle Street New Construction 2019 45 45 $449,066
 577 Washington Avenue Rehabilitation 2020 100 100 $400,000
 91 Winter Street New Construction 2021 52 52 $200,000
 73 Winter Street New Construction 2021 43 43 $400,000
 Riverton Park Rehab/New Construction 2023 182 182 $589,897
  186 Woodford Street New Construction 2024 51 51 $294,489
 Total 954 871 $6,087,796


Cumberland County HOME Consortium. CUMBERLAND COUNTY HOME CONSORTIUM
Portland and Cumberland County have formed a AT A GLANCE
HOME Consortium to receive an annual allocation
of HOME Investment Partnership funds through $3.5 million Total investment (2009-2024)
HUD. The HOME funds are used for the creation 640 Housing units under construction,
of affordable housing development throughout rehabilitated, and/or created from
Cumberland County, but outside of Portland. 2009-2024
 614 Low and moderate-income units
 $5,540 Average contribution per unit




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 Table 7: Cumberland County HOME Consortium Funding by Project (Inception-2023)
 Low-/
 Moderate-
 Total Income HOME
 Owner/Project Name Community Project Type Year Units Units Funding
 Oak Leaf 2 Freeport New Construction 2011 25 25 $ 118,994
 Sandy Creek Bridgton Rehabilitation 2013 20 20 $ 125,000
 Steeple Square Westbrook Rehabilitation 2014 73 73 $ 173,650
 Bartlett Woods Yarmouth New Construction 2015 28 28 $ 162,236
 Blackstone
 Falmouth Rehabilitation 2016 39 39 $ 123,125
 Apartments
 Larrabee
  Commons/Dr. Berry Westbrook New Construction 2017 38 38 $ 220,000
 Apartments
  Riverview Terrace &
 Westbrook Rehabilitation 2017 83 83 $ 240,000
 Larrabee Woods
 Larrabee
 Heights/Harnois Westbrook New Construction 2018 61 61 $ 100,000
 Apartments
 West End Phase I South Portland New Construction 2018 64 50 $ 246,046
 West End Phase II South Portland New Construction 2019 52 40 $ 423,225
 16 Hancock Street Gray New Construction 2020 26 26 $ 199,000
 15 Harrison Road Bridgton New Construction 2020 48 48 $ 150,000
 Village Crossing Scarborough New Construction 2021 31 31 $ 400,000
  Betsy Ross Crossing South Portland New Construction 2023 52 52 $ 864,906
 County Totals 640 614 $3,546,182


B. LOCAL REVENUE SOURCES

Jill C. Duson Housing Trust Fund. The Jill C. 2024 JILL C. DUSON HOUSING TRUST FUND
Duson Housing Trust Fund was established to
promote, retain, and create an adequate supply of $6,056,387 Total deposited in 2024
housing, particularly affordable housing, for very
 $2,377,511 Total allocated for spending in
low, low, and median-income households. The
 2024
Housing Trust Fund is an important source of
funding towards the creation of housing that is
not eligible for funding from other funding sources such as HOME or the Low Income Housing Tax Credit
program (LIHTC), the creation of housing for “missing middle” households, and creating other types of
housing such as cooperative housing.




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Table 8: Jill C. Duson Housing Trust Fund Contributions (Inception-2024)
 Year Source Type Amount
 2002/03 Maine Medical Center Housing Replacement $315,580
 2002 Sportsman's Grill Housing Replacement $40,000
 2009 Berlin City Auto Housing Replacement $116,000
 2010 Stop 'n' Shop Housing Replacement $289,250
 2012 Rockbridge/Eastland Park Housing Replacement $42,500
 2012 Riverwalk/Ocean Gateway Housing Replacement $250,000
 2012 118 Congress LLC Easement Fee $3,500
 2017 91 & 97 Belfort Street Sale of Tax-Acquired Property $86,424
 2017 116 Upper A Street Sale of Tax-Acquired Property $78,527
 2017 443 Congress Street Inclusionary Zoning $280,000
 2018 62 India Street Inclusionary Zoning $276,500
 2018 Short Term Rental fees Short-Term Rental Fees $33,139
 2018 0 Thames Street sale Sale of City-Owned Property $1,000,000
 2019 20 Thames Street Inclusionary Zoning $270,000
 2019 20 Thames Street Easement Fee $7,500
 2019 17 Sumac Street) Sale of Tax-Acquired Property $79,618
 2019 Short Term Rental fees Short-Term Rental Fees $176,118
 2019 Short Term Rental penalty fee Penalty Fee $15,200
 2020 Short Term Rental penalty fee Penalty Fee $7,700
 2019 56 Hampshire Street Easement Fee $12,123
 2019 121 Middle Street Hotel Inclusionary Zoning $41,866
 2020 99 Capisic Street Sale of Tax-Acquired Property $163,169
 2020 Short Term Rental fees Short-Term Rental Fees $122,965
 2020 22 Bramhall Street Easement Fee $3,799
 2020 50 Monument Square Inclusionary Zoning $222,789
 2020 121 Middle Street Hotel Inclusionary Zoning $30,448
 2020 Council Order 89 20/21 Appropriation $500,000
 202156 Hampshire Inclusionary Zoning $198,928
 202140 Free Street Inclusionary Zoning $10,609
 20211 Center Street Hotel Inclusionary Zoning $513,810
 2021Short Term Rental Fees Short Term Rental Fees $109,681
 2021Newell Street Sale of Tax-Acquired Property $900
 202110 Hammond Street Inclusionary Zoning $169,744
 202122 Hope Avenue Inclusionary Zoning $150,000
 2022 5 India Street Inclusionary Zoning $261,086
 2022 18 Luther Street Loan Repayment $36,000
 2022 Short Term Rental fees Short-Term Rental Fees $79,460
 2022 City Manager Appropriation Appropriation $250,000
 2022  Newell Street Sale of Tax-Acquired Property $8,100
 2022  Stroudwater Development Inclusionary Zoning $16,234
 2022 75 Chestnut Street Inclusionary Zoning $587,444

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Table 8: Jill C. Duson Housing Trust Fund Contributions (Inception-2024) (continued)
 Year Source Type Amount
 2022 754 Congress Street Hotel Inclusionary Zoning $182,688
 2023 Short Term Rental fees Short-Term Rental Fees $129,378
 2023 218 Washington Avenue Inclusionary Zoning $461,250
 2024 178 Middle Street Hotel Inclusionary Zoning $86,602
 2024 387 Commercial Street Inclusionary Zoning $707,130
 2024 Short Term Rental fees Short-Term Rental Fees $112,522
 2024 54 York Street Hotel Inclusionary Zoning $65,562
 2024 126 North Street Inclusionary Zoning $21,757
 2024 General Fund Allocation General Fund Allocation $4,880,126
 Previous Interest Earned Interest $51,556
 Total Deposits $13,555,281


Table 9: Use of the Jill C. Duson Housing Trust Fund (Inception-2024)
Year Expenditure Amount
2011 Avesta Oak Street Lofts -$380,585
2014 Housing First Pre-Development Request for Proposal -$75,000
2015 65 Hanover & 52 Alder Streets Feasibility Study -$9,250
2017 65 Munjoy Street -$175,000
2019 60 Parris Down Payment Assistance -$24,000
2019 977 Brighton Avenue -$300,000
2020 Affordable Rental Housing Incentive -$1,000
2021 18 Luther Street -$36,000
2022 200 Valley Street -$442,386
2022 37 Front Street -$499,500
2023 155 Danforth Street -$135,000
2023 37 Front Street -$55,500
2023 83 Middle Street -$136,734
2023 63 Front Street -$333,000
2023 200 Valley Street -$49,154
2023 Riverton Park (Allocated- Not Yet Spent) -$910,103
2023 Dougherty Condos (Allocated- Not Yet Spent) -$1,500,000
2024 155 Danforth Street -$15,000
2024 45 Dougherty Court -$1,175,885
2024 45 Dougherty Court -$24,115
2024 63 Front Street -$37,000
2024 202 Woodford Street (Allocated- Not Yet Spent) -$492,000
2024 186 Woodford Street (Allocated- Not Yet Spent) -$155,511
2024 70 East Oxford Street (COMB Block) (Allocated- Not Yet Spent) -$650,000
2024 337 Cumberland Avenue (Allocated- Not Yet Spent) -$1,080,000
Total Spent or Allocated -$8,691,723




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Inclusionary Zoning Fee-In-Lieu. In October 2015,
 2024 INCLUSIONARY ZONING FEES IN-LIEU
the City Council approved amendments to the City's
zoning ordinance to mandate inclusionary zoning of $577,066 Approved fee-in-lieu payment for
ten percent of the units as workforce units within all workforce housing units
residential development projects of ten or more $1,304,376 Approved fee-in-lieu payments
units. With the adoption of the Green New Deal, for hotel
twenty-five percent of the units in a qualifying $728,887 Fee-in-lieu payments received in
project are now set-aside as workforce units. The for workforce housing
Green New Deal applied to all residential $334,852 Fee-in-lieu payments received for
development projects that had not received hotels
workshop review by the Planning Board as of
December 6, 2020.

As an alternative to providing workforce housing units, developers of residential housing that triggers
inclusionary zoning may pay fee-in lieu for some or all of the workforce units not created on-site. The 2024
fee was $177,559 per unit.

In 2019, the City proposed and established a hotel inclusionary zoning ordinance. The requirement applies
to hotel projects with 10 or more rooms and any hotel expansions of 10 or more rooms within any five-year
period. To meet the requirement, hotel projects can provide one unit of low-income housing for rent within
the city for every 28 hotel rooms. The other alternative is for a hotel project to pay a linkage fee (fee-in-lieu).
The 2024 hotel fee-in-lieu was $4,692 per guest room.

The workforce housing fee-in-lieu payments are paid and deposited into the Jill C. Duson Housing Trust Fund
when the certificate of occupancy is issued, which typically occurs at the time tenants or homeowners move
into a building. Hotel fee-in-lieu payments are also paid and deposited when the certificate of occupancy is
issued.

The Planning Board approves the fee-in-lieu payments, which may occur months or years prior to the actual
payment deposit. The time from approval to deposit is an expected delay. For that reason, approved fees
are not included in the Housing Trust balance until the fee is actually received.


Table 10: Inclusionary Zoning Fee-in-lieu Approved by the Planning Board (2024)
 Address Status Units Type IZ Units Fee-in-lieu
 246 Eastern Promenade Approved 13 Ownership - $577,066


Table 11: Hotel Inclusionary Zoning Fee-in-lieu Approved by the Planning Board (2024)
 Address Status Rooms Type IZ Units Fee-in-lieu
 1060 Westbrook Street Approved 119 Hotel - $558,348
 245 Commercial Street Approved 52 Hotel - $243,984
 465 Congress Street Approved 92 Hotel - $431,664
 215 Commercial Street Approved 15 Hotel - $70,380
 Total $1,304,376




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Table 12: Inclusionary Zoning Fee-in-Lieu Payments Received (Inception-2024)
 Address Year Paid Units Type IZ Units Fee-in-lieu
 443 Congress Street 2017 28 Rental - $280,000
 62 India Street 2018 29 Ownership - $276,500
 20 Thames Street 2019 27 Ownership - $270,000
 50 Monument Square 2020 21 Rental - $222,789
 40 Free Street 2021 51 Rental 5 $10,609
 56 Hampshire Street 2021 29 Rental 1 $198,928
 10 Hammond Street 2021 16 Ownership - $169,744
 22 Hope Avenue Subdivision 2021 16 Ownership - $150,000
 5 India Street 2022 24 Rental - $261,086
 1700 Westbrook Street (Phase 2) 2022 41 Ownership 4 $16,234
 75 Chestnut Street 2022 54 Ownership - $587,444
 218-220 Washington Avenue 2023 45 Ownership - $461,250
 387 Commercial Street 2024 64 Ownership - $707,130
 126 North Street 2024 6 Rental 1 $21,757
 Total $3,633,471

Table 13: Hotel Inclusionary Zoning Fee-in-Lieu Payments Received (Inception-2024)
 Address Year Paid Rooms Fee-in-lieu
 121 Middle Street (2nd and 3rd floors) 2019 & 2020 19 $72,314
 1 Center Street (Canopy by Hilton) 2021 135 $513,810
 178-184 Middle Street (Docent’s Collection) 2024 19 $86,602
 754 Congress Street (Longfellow Hotel) 2024 48 $182,688
 54 York Street (The Weldon Hotel) 2024 14 $65,562
 Total $920,976

C. AFFORDABLE HOUSING TAX INCREMENT FINANCING (TIF)

The Affordable Housing Tax Increment Financing (AHTIF) Program offers municipalities a flexible financing
tool to assist affordable housing projects and support related infrastructure and facilities by designating a
specific area as an affordable housing development district and adopting an affordable housing development
program for the district. AHTIF enables communities to use a percentage of the new property taxes
generated from the affordable housing district to help make the housing affordable and to pay for related
costs.

Communities using AHTIF also avoid the decreases in state revenue-sharing and state education subsidy and
increases in county taxes that otherwise would occur with increased property values from the AHTIF district.
Maine law requires municipalities to apply to MaineHousing for review of the district and development
program approved by the municipality to ensure compliance with the conditions set out in the AHTIF statute.
Municipalities may designate up to two percent of their land in an AHTIF district. Per State statue, rental
units must be maintained as affordable for a minimum of 30 years and homeownership units must remain
affordable for a minimum of 10 years. The City’s local TIF Policy requires that the affordability requirements
remain in place for the full term of the Affordable Housing Tax Increment Financing district.



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 Figure 21: Affordable Housing Tax Increment Finance Districts in Portland




186 Woodford Street
51 affordable apartments 70 East Oxford Street
 55 apartments (50 affordable)
202 Woodford Street
46 age-restricted affordable
apartments




 Legend
 42 Atlantic Street
 2024 Affordable Housing TIFs
 30 affordable apartments
 Pre-2024 Affordable Housing TIFs




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5. 2024 SUBSIDIZED HOUSING DEVELOPMENT
Table 14: Subsidized Housing Development in Portland (2000-2024 by year of subsidy approval)
 Owner/Project Year Units HOME HDF CDBG HTF TIF NSP
 Unity Village/Bayside 2000 33 $86,500 $0 $363,863 $0 $0 $0
 Island View Apartments 2001 70 $71,015 $192,639 $136,346 $0 $0 $0
 St. Dominic's 2002 12 $0 $436,500 $0 $0 $0 $0
 Brannigan House 2002 10 $93,000 $0 $0 $0 $0 $0
 Wellesley Estates 2002 45 $0 $256,000 $0 $0 $0 $0
 Logan Place 2003 30 $435,000 $0 $0 $0 $0 $0
 Yale Court 2002 30 $150,000 $200,000 $0 $0 $0 $0
 Peninsula Community I 2003 12 $300,000 $0 $0 $0 $0 $0
 Peninsula Community II 2004 16 $307,700 $0 $0 $0 $0 $0
 IRIS Park Apartments 2004 30 $0 $250,000 $0 $0 $0 $0
 Fay Garman House 2004 12 $150,000 $0 $0 $0 $0 $0
 Peninsula Community III 2005 10 $200,000 $0 $0 $0 $0 $0
 Walker Terrace 2004 40 $382,000 $220,000 $0 $0 $0 $0
 Fore River 2006 20 $388,474 $0 $0 $0 $0 $0
 Valley Apartments 2006 24 $320,000 $0 $0 $0 $0 $0
 Pearl Place I Apartments 2007 60 $427,000 $0 $0 $0 $615,502 $0
 Bayside East 2007 20 $250,000 $0 $0 $0 $0 $0
 53 Danforth Street 2008 43 $325,000 $0 $0 $0 $0 $0
 Florence House 2008 25 $240,000 $0 $0 $0 $0 $0
 Oak Street Lofts 2011 37 $0 $0 $0 $380,585 $0 $0
 Pearl Place II Apartments 2011 54 $400,000 $0 $0 $0 $0 $0
 Elm Terrace 2011 38 $403,795 $0 $0 $0 $0 $0
 409 Cumberland Avenue 2013 57 $500,000 $0 $0 $0 $759,392 $0
 Adams School 2013 16 $0 $0 $0 $0 $0 $1,710,000
 Thomas Heights 2014 18 $522,448 $0 $0 $0 $207,116 $0
 Bayside Anchor 2015 45 $500,000 $0 $0 $0 $0 $0
 17 Carleton Street 2015 37 $0 $0 $0 $0 $726,000 $0
 Rosa True School 2015 10 $149,500 $0 $0 $0 $0 $0
 548 St. John Street 2016 4 $75,000 $0 $0 $0 $0 $0
 Motherhouse 2017 88 $627,223 $0 $0 $0 $0 $0
 65 Munjoy Street 2017 8 $0 $0 $0 $175,000 $0 $0
 58 Boyd Street 2018 55 $200,000 $0 $30,000 $0 $2,144,566 $0
 977 Brighton Avenue 2018 40 $0 $0 $0 $300,000 $1,954,486 $0
 Deering Place 2018 75 $500,000 $0 $0 $0 $4,185,757 $0
 37 Front Street 2018 60 $306,104 $0 $250,000 $555,000 $6,056,916 $0
 63 Front Street 2018 45 $204,070 $0 $0 $370,000 $0 $0
 178 Kennebec Street 2018 51 $370,000 $0 $0 $0 $2,889,164 $0
 83 Middle Street 2019 45 $499,066 $0 $200,000 $136,734 $1,559,287 $0
 66 State Street 2019 38 $0 $0 $0 $0 $2,672,169 $0
 155 Danforth Street 2019 30 $299,999 $0 $0 $150,000 $0 $0
 18 Luther Street 2019 2 $0 $0 $0 $36,000 $0 $0
 200 Valley Avenue 2020 60 $0 $0 $0 $491,540 $4,092,269 $0
 577 Washington Avenue 2020 100 $400,000 $0 $184,150 $0 $3,809,991 $0
 104 Grant Street 2020 23 $0 $0 $0 $0 $2,749,457 $0
 73 Winter Street 2021 43 $400,000 $0 $0 $0 $1,337,426 $0
 91 Winter Street 2021 52 $200,000 $0 $0 $0 $1,473,978 $0
 45 Dougherty Court 2022 63 $0 $0 $0 $1,200,000 $2,329,683 $0
 25 Casco Street 2023 54 $0 $0 $0 $0 $2,836,087 $0
 Riverton Park 2023 182 $589,897 $0 $0 $910,103 $3,459,750 $0
 Lambert Woods North 2023 72 $0 $0 $0 $0 $3,705,106 $0
 Dougherty Commons 2023 20 $0 $0 $0 $1,500,000 $0 $0
 70 East Oxford Street 2024 55 $0 $0 $0 $650,000 $3,149,733 $0
 202 Woodford Street 2024 46 $0 $0 $0 $492,000 $2,214,620 $0
 186 Woodford Street 2024 51 $294,489 $0 $0 $155,511 $2,307,595 $0
 337 Cumberland Avenue 2024 60 $0 $0 $0 $1,080,000 $2,868,063 $0
 42 Atlantic Street 2024 30 $0 $0 $0 $0 $1,372,473 $0
 Total 2,306 $11,567,280 $1,555,139 $1,164,359 $8,582,473 $61,476,585 $1,710,000
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XX




 202 Woodford Street
 Community Housing of Maine (CHOM) will partially demolish and rebuild/renovate the existing
 Woodfords Congregational Church Parish House into 46 units of studio and one-bedroom
 apartments for seniors. 18 of the units will be affordable for households earning up to 60% AMI while
 the remaining 28 units are affordable for households earning up to 50% AMI. 10% of the units will
 be set aside for individuals residing in a Portland shelter. The new apartments will be fully electric,
 and utilize no fossil fuels. Amenities include a laundry room. See Table 16 for affordability rates at
 50% and 60% of the area median income (AMI).

 Image Source: CWS Architecture




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186 Woodford Street
Community Housing of Maine (CHOM) will build a new four-story, elevator-assisted building with 51
affordable studio and one-bedroom apartments for households earning up to 60% of the area
median income (AMI) in the current Woodfords Congregational Church parking lot. 10% of the units
will be set aside for individuals residing in a Portland shelter. The new apartments would be fully
electric, and utilize no fossil fuels. Amenities include three laundry rooms and a lounge. See Table 16
for affordability rates at 60% of the area median income (AMI).

Image Source: Community Housing of Maine




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70 East Oxford Street will be a new six-story building with 50 affordable and 5 market rate
apartments. 33 of the units will be affordable to households earning up to 50% AMI, and 17 of the
units will be affordable to households earning up to 60% AMI. 20% of units will be available for
persons residing in a Portland shelter. The building will offer five (5) studio, fifteen (15) one-bedroom,
sixteen (16) two-bedroom, and nineteen (19) three-bedroom apartments. See Table 16 for
affordability rates at 60% and 50% of the area median income (AMI).

Image Source: Ryan Senatore Architecture




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337 Cumberland Avenue will be a six story, 60-unit building with affordable and market rate
apartments. 29 apartments will be affordable for households earning up to 50% AMI, 19 apartments
will be affordable for households earning up to 60% AMI, and 12 apartments will be at market rate.
The four upper floors will be comprised of 4 studio apartments, 24 one-bedroom apartments,
22 two-bedroom apartments, and 10 three-bedroom apartments. The first floor will be dedicated
to childcare services. Amenities include laundry facilities, storage related to biking and other human
powered uses, a community room, fitness area, lobby, trash room, a community meeting area, and a
site office. See Table 16 for affordability rates at 60% and 50% of the area median income (AMI).

Image Source: Youth and Family Outreach




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6. 2024 WORKFORCE HOUSING DEVELOPMENT




  509 Forest Avenue (Rumery Lofts) is currently under construction with an anticipated lease-up
  date of June 2025. This three story renovation project will provide 38 new apartments including 10
  workforce housing units on the second and third floors with first floor commercial space. 3 studio,
  1 one-bedroom, and 6 two-bedroom units will be available for households and individuals earning up
  to 80% of the area median income (AMI). See Table 16 for affordability rates at 80% of the area
  median income (AMI).

  Image Source: Invivid Architecture




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482 Congress Street will renovate office space on the second through fifth floors into 39
apartments including 10 workforce housing units. Of the 14 one-bedroom and 25 two-bedroom units,
10 one-bedroom units would be available for households earning up to 80% of the area median
income. See Table 16 for affordability rates at 80% of the area median income (AMI).

Image Source: Zillow




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977 Forest: 8 Units




 997 Forest: 13 units




 985 Forest Avenue received Planning Board approval to legalize 18 existing residential units, located
 within five condominiums, into compliance with current building and life safety code requirements,
 and land use regulations. After renovation, 997 Forest Avenue will contain 13 apartments, and 977
 Forest will contain 8 apartments totaling 17 one-bedroom, 3 two-bedroom, and 1 three-bedroom
 units. Five of the units will be deed restricted to remain affordable for households earning up to
 80% of the area median income (AMI). See Table 16 for affordability rates at 80% of the area median
 income (AMI).

 Image Source: Google Street View




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7. INCOME AND RENTAL DATA
A. 2025 INCOME & RENT LIMITS HUD AFFORDABILITY AT A GLANCE
The U.S Department of Housing and Urban
Development (HUD) computes income limits for HUD describes households in the 30% AMI
Portland based on local Area Median Income (AMI) bracket as extremely low-income
(Table 16). Portland applies HUD’s income limits to households
determine and monitor household eligibility with
the City’s inclusionary zoning and affordable 80% AMI households are described as low-
housing programs. income households

 HUD measure of housing affordability is
Table 17 presents the maximum rent limits (which
 spending 30% or less of gross monthly
includes rent plus utilities) broken down by
 income towards housing expense
household size and area median income levels.

 Table 15: 2025 Income Limits - Portland HUD Metro Fair Market Rent Area
 Household Size
 AMI Studio 1 2 3 4 5
 30% $23,400 $27,300 $31,200 $35,100 $38,950 $42,100
 50% $38,950 $45,450 $51,950 $58,450 $64,900 $70,100
 60% $46,750 $54,500 $62,350 $70,150 $77,900 $84,150
 80% $62,350 $72,700 $83,100 $93,500 $103,850 $112,200
 100% $77,900 $90,900 $103,850 $116,850 $129,800 $140,200
 120% $93,450 $109,050 $124,600 $140,200 $155,750 $168,250

 Table 16: 2025 Maximum Rent Limits – Portland HUD Metro Fair Market Rent Area
 Bedroom Count
 AMI Studio 1 2 3 4 5
 30% $585 $682 $780 $877 $973 $1,052
 50% $973 $1,136 $1,298 $1,461 $1,622 $1,752
 60% $1,168 $1,362 $1,558 $1,753 $1,947 $2,103
 80% $1,558 $1,817 $2,077 $2,337 $2,596 $2,805
 100% $1,947 $2,272 $2,596 $2,921 $3,245 $3,505




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8. MONITORING
Monitoring is an ongoing responsibility of the City to ensure compliance with program regulations, applicable
federal and local statutes, grant requirements, and terms and conditions of grant awards. Monitoring
requirements vary based on the type of housing (workforce housing versus affordable housing), and the type
of funding in the project.

A. WORKFORCE HOUSING

Since adoption in October 2015, inclusionary zoning has required the creation of workforce units (rental or
ownership) or a fee-in-lieu payment for projects with ten or more dwelling units. Monitoring of inclusionary
zoning commences during the review of certificates of occupancy. Projects that provide workforce units
establish a workforce housing agreement with the City requiring workforce units and unit features be
comparable to market-rate units. The agreement is then filed as part of the property deed. Projects that
choose to provide a fee-in-lieu pay the annually adjusted inclusionary zoning fee (per unit or partial unit) into
the Jill C. Duson Housing Trust Fund at time of issuance of a certificate of occupancy. As of 2024, a total of
145 workforce units have been created and are being monitored by the City.

For rental housing, staff works with property managers to set maximum rent and income limits (provided
annually by the US Department of Housing and Urban Development (HUD) guidelines based on bedroom
size). Before a tenant may lease a workforce unit, or renew their lease, they must be income-qualified by the
City of Portland. Income qualification requires the completion of the Income Verification Form, forwarding
two recent pay stubs (or similar documents), and a copy of the lease agreement. After receipt of these
documents, staff reviews and confirms if the tenant(s) income qualifies and confirm the amount of the
monthly rent within the lease.

For workforce homeownership projects, staff works with the developer to determine the maximum sale price
of each workforce unit. The maximum sale price calculation consists of the mortgage payment, less real
estate taxes, less mortgage insurance, less condo fees, less homeowner's insurance, less utilities. During the
resale of a unit, staff recalculates the maximum sale price for the seller. As with rental units, each household
is income-qualified to ensure compliance with income guidelines.

B. HOME
Affordable housing projects that receive HOME funding are required to be monitored by the City to ensure
compliance with regulations established by the U.S. Department of Housing and Urban Development (HUD).
Monitoring includes confirming the number and type of HOME-assisted units, confirming units are leased to
households at or below the HOME income limits for their household size, ensuring the rents plus tenant-paid
utilities do not exceed rent limits, ensuring utility costs are accurate, and ensuring exceptions are only allowed
when households also receive project-based vouchers. Additionally, the City has a memorandum of
agreement with MaineHousing, to provide annual on-site property inspections, which is another HOME
program requirement. The total number of households requiring annual HOME monitoring has grown from
two households in 2000 to 146 households in 2024.




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C. HOUSING TRUST FUND AND AFFORDABLE HOUSING TAX INCREMENT FINANCING UNITS
Though not as extensive as the monitoring required for HOME units, affordable housing projects that receive
Housing Trust Funds and/or Affordable Housing Tax Increment Financing (TIF) are also required to be
monitored by the City to ensure compliance with income and rent limits. Compliance for rental units includes
ensuring units are leased to households at or below set income limits for their household size, and ensuring
the rents plus tenant-paid utilities do not exceed rent limits. For homeownership units, potential homebuyers
are also required to establish income eligibility.

From 2011 to 2024, 16 residential housing projects were approved for a subsidy from the Housing Trust Fund
equaling a total of 779 households requiring annual monitoring to ensure units are occupied by households
that earn at or below the agreed-upon area median income, and the maximum sale price or rent is restricted
in a similar manner. From 2007 to 2024, 25 residential housing projects with 1,437 households received
Affordable Housing Tax Increment Financing (AHTIF). At least 33% of the units in these projects are required
to be monitored annually to ensure units are occupied by households that earn at or below the agreed-upon
area median income and the rent is similarly restricted. To compete for limited 9% federal Low Income
Housing Tax Credit (LIHTC) subsidy funding, developers are more frequently requesting AHTIFs to ensure
success in the scoring process within their subsidy funding requests.




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