Letter and Washington Farmworker Housing Needs Assessment — Department of Commerce (April 2022)
Summary
A letter dated April 21, 2022 from the Washington State Department of Commerce to Governor Inslee and Washington State Legislators, followed by the Washington Farmworker Housing Needs Assessment, January 2022, prepared by BERK Consulting. The letter states that the report fulfills a proviso from the 2020 capital budget, which provided $200,000 for a study regarding available and needed affordable housing for farmworkers and Native Americans in Washington state. It states that the reports were delayed because of pandemic staffing issues and stakeholder engagement challenges. The letter is signed by Diane Klontz, Assistant Director. The assessment's contents list county profiles including Adams County, Benton County and Yakima County.
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“Letter and Washington Farmworker Housing Needs Assessment — Department of Commerce (April 2022).”
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STATE OF WASHINGTON
DEPARTMENT OF COMMERCE
1011 Plum Street SE PO Box 42525 Olympia, Washington 98504-2525 (360) 725-4000
www.commerce.wa.gov
April 21, 2022
Dear Governor Inslee and Washington State Legislators,
Enclosed is the farmworker housing section of the consultant reports fulfilling the proviso from
the 2020 capital budget:
$200,000 of the appropriation in this section is provided solely for the department to
contract for a study regarding both available and needed affordable housing for
farmworkers and Native Americans in Washington state. The study must include data to
inform policies related to affordable housing for farmworkers and Native Americans and
supplement the housing assessment conducted by the affordable housing advisory board
created in chapter 43.185B RCW.
As directed by state statute, Commerce contracted with Berk Consulting for the report on
farmworker housing needs. Commerce contracted with Big Water Consulting, supported by the
Urban Institute and Akana, for the report on housing needs for Native Americans.
Due to pandemic staffing issues and stakeholder engagement challenges, these reports were
delayed for final review and approval by the agency and governor’s office. This delay should not
create negative perceptions about the important and timely work conducted by the consultants to
engage and review the needs of these populations.
Despite the delay in publication, both consultants shared findings and summaries with the state
Legislature and at the 2021 Housing Washington Conference.
The agency reviewed the recommendations produced by the consultants and stakeholders, and
will consider these recommendations in future housing discussion and proposals.
Signed,
Diane Klontz
Assistant Director
Community Services and Housing Division
Department of Commerce
Washington Farmworker Housing Needs Assessment
January 2022
COMMUNITY SERVICES &
HOUSING DIVISION
Prepared by:
BERK Consulting
DRAFT // January 2022 // Washington State Department of Commerce i
Washington Farmworker Housing Needs Assessment // Contents
Acknowledgements
Many members of the farmworker community, as well as Commerce staff, participated and
contributed to the preparation of the Needs Assessment. Their participation and contributions
are appreciated.
Washington State Department of
Commerce
Community Services and Housing Division
Emily Grossman
Catholic Community Services
Gloria Velasquez Burton
Invited Stakeholders Organizations
April Clayton, Red Apple Farms Beacon Development
Jason Davidson, Department of Commerce Washington State Housing Finance
Jon Devaney, Tree Fruit Association Commission
Bre Elsey, Washington Farm Bureau Washington State Department of Commerce
Dan Fazio, Wafla Beacon Development Group
Kimberly Gierach, Department of Health Employment Security Department
Korbie Haley, Office of Rural and Farmworker Housing Washington Department of Health
Bryan Ketcham, Catholic Charities Office of Rural and Farmworker Housing
Lowel Krueger, Yakima Housing Authority Washington State Department of Agriculture
Marty Miller, Office of Rural and Farmworker Housing
Joshua Moll, Employment Security Department
Rosella Mosby, Mosby Farms
Erin Porter, Department of Health Washington Department of Commerce
CaraMia Stearns-Vance, Yakima Housing Authority 1011 Plum St. SE
Brett Valicoff, Valicoff Fruit Co. P.O. Box 42525 Olympia, WA 98504-2525
Nona White, Department of Commerce http://www.commerce.wa.gov
For people with disabilities, this report is
COFS Washington Study available on request in other formats. To
The COFS Washington study is being submit a request, please call 360-725-4000
developed by a broad coalition of researchers (TTY) 360-586-0772
and community-based organizers from
across California, Oregon, and Washington.
Washington Partners include:
Our Valley, Our Future
CIELO
Community to Community Development
CAFÉ
El Proyecto Bienstar Northwest Communities
Education Center (NCEC)/Radio KDNA
// January 2022 // Washington State Department of Commerce ii
Washington Farmworker Housing Needs Assessment // Contents
Contents
Exhibits vi
Executive Summary xiii
Overview xiii
Housing Needs and the Farmworker Housing Supply Gap xiv
Recommendations xv
Funding Recommendations xv
Housing Development Recommendations xvi
Program Recommendations xvi
Other Recommendations xvi
Project Introduction 1
Scope of the Project 1
Defining a Farmworker for this Project 1
Methods 1
Data Sources 2
Interviews 2
Washington COFS (COVID Farmworker Survey) 3
Farmworker Housing Landscape 4
Farmworker Housing Types 4
Farmworker Housing Within the Context of the Growth Management Act (GMA) 5
The Flow of Public Dollars to Farmworker Housing 6
Farmworker Housing Funders 9
Farmworker Housing Developers 10
Farmworkers and COVID-19 12
Background 12
Agricultural Work in Washington 15
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Washington Farmworker Housing Needs Assessment // Contents
History of Farmworkers in Washington 15
Statewide Trends in Farmworker Location and Industry 20
Statewide Demographic Information on Farmworkers 22
Language and Ethnicity 23
Employment Patterns 23
Income 28
Statewide Housing Inventory 31
Gap Analysis 33
County Profiles 34
Adams County 39
Benton County 51
Chelan County 65
Douglas County 77
Franklin County 89
Grant County 101
Okanogan County 113
Skagit County 124
Walla Walla County 136
Whatcom County 147
Yakima County 159
Stakeholder Engagement 173
Farmworkers 173
Housing Providers and Other Stakeholders 173
Employers 175
Summary & Recommendations 176
Housing Access and Affordability 176
Farmworker Preferences and Housing Situations 178
Challenges in Accessing Housing 178
// January 2022 // Washington State Department of Commerce iv
Washington Farmworker Housing Needs Assessment // Contents
Recommendations 179
Funding Recommendations 179
Housing Development Recommendations 182
Program Recommendations 183
Other Recommendations 183
Bibliography 185
// January 2022 // Washington State Department of Commerce v
Washington Farmworker Housing Needs Assessment // Contents
Exhibits
Exhibit 1: Clam digging near Port Townsend, 1910 15
Exhibit 2: Peeling bitterroot, 1955 16
Exhibit 3: Farmer in wheat field, Adams County 17
Exhibit 5: CWFLU founding members, 1933 18
Exhibit 6: Race of Washington Farmworkers, 1900-2000 20
Exhibit 7. Agricultural reporting areas in Washington 22
Exhibit 8: Statewide Average Annual Covered Employment, Year-Round and Migrant, 2008-
2018 25
Exhibit 9: Statewide Annual Agricultural Employment by Type, 2008-2018 26
Exhibit 10: Washington Covered Farmworker Employment by County, 2018 27
Exhibit 11: Washington H-2A Farmworker Requests by County, 2018 27
Exhibit 12: Growth Rates since 2008, H-2A Requested Workers and Covered Employment in
Washington 28
Exhibit 13: Annual Growth Rates for Annual Wages of Covered Agricultural Employment, 2013-
2017 29
Exhibit 14: Estimate of Farmworker Housing by County, 2019 32
Exhibit 15: Washington Housing to Workers Comparison by Employment Type, 2018 33
Exhibit 16: Farmworker Employment for Profiled Counties as Percent of Total County Population,
2018 34
Exhibit 17: Farmworkers Searching for Housing in Local Markets, 2018 35
Exhibit 18: Housing Affordability for Farmworkers, 2020 36
Exhibit 19: Adams County Agricultural Land and Farmworker Housing Units, 2019 41
Exhibit 19: Adams County Historical and Projected Growth Rates, 2000-2040 42
Exhibit 20: Adams County Historical and Projected Population, 2000-2040 42
Exhibit 22: Adams County Population by Age Cohort, Historical and Projected 43
Exhibit 23: Adams County Household Sizes and Rental Housing Unit Sizes 44
Exhibit 24: Adams County Household Housing Tenure, 2018 45
Exhibit 25: Adams County GDP, All Industries 46
Exhibit 26: 2018 Agricultural Employment by Type, County versus State Averages 47
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Washington Farmworker Housing Needs Assessment // Contents
Exhibit 27: Adams County Farmworker Estimates by Employment Type, 2018 47
Exhibit 28: State and Adams County Household Income Brackets 48
Exhibit 29: Total Housing Units by Type, Adams County 2018 49
Exhibit 30: Adams County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 50
Exhibit 31: Benton County Agricultural Land and Farmworker Housing Units, 2019 53
Exhibit 32: Benton County Historical and Projected Growth Rates, 2000-2040 54
Exhibit 33: Benton County Historical and Projected Population, 2000-2040 54
Exhibit 34: Benton County Population by Age Cohort, Historical and Projected 55
Exhibit 35: Benton County Household Sizes and Rental Unit Sizes 56
Exhibit 36: Benton County Housing Tenure by Household, 2018 57
Exhibit 37: Benton County GDP, All Industries 58
Exhibit 38: 2018 Agricultural Employment by Type, County versus State Averages 59
Exhibit 39: Benton County Farmworker Estimates by Employment Type, 2018 60
Exhibit 40: State and Benton County Household Income Brackets 60
Exhibit 41: Total Housing Units by Type, Benton County 2018 61
Exhibit 42: Benton County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 63
Exhibit 43: Chelan County Agricultural Land and Farmworker Housing Units 67
Exhibit 44: Chelan County Historical and Projected Growth Rates, 2000-2040 68
Exhibit 45: Chelan County Historical and Projected Population, 2000-2040 68
Exhibit 46: Chelan County Population by Age Cohort, Historical and Projected 69
Exhibit 47: Chelan County Household Sizes and Rental Housing Unit Sizes 70
Exhibit 48: Chelan County Housing Tenure by Household, 2018 71
Exhibit 49: Chelan County GDP, All Industries 72
Exhibit 50: 2018 Agricultural Employment by Type, County versus State Averages 73
Exhibit 51: Chelan County Farmworker Estimates by Employment Type, 2018 73
Exhibit 52: State and Chelan County Household Income Brackets 74
Exhibit 53: Total Housing Units by Type, Chelan County 2018 75
Exhibit 54: Chelan County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 75
// January 2022 // Washington State Department of Commerce vii
Washington Farmworker Housing Needs Assessment // Contents
Exhibit 55: Douglas County Agricultural Land and Farmworker Housing Units 80
Exhibit 56: Douglas County Historical and Projected Growth Rates, 2000-2040 81
Exhibit 57: Douglas County Historical and Projected Population, 2000-2040 81
Exhibit 58: Douglas County Population by Age Cohort, Historical and Projected 82
Exhibit 59: Douglas County Household Size and Rental Housing Unit Sizes 83
Exhibit 60: Douglas County Housing Tenure by Household, 2018 83
Exhibit 61: Douglas County GDP, All Industries 84
Exhibit 62: 2018 Agricultural Employment by Type, County versus State Averages 85
Exhibit 63: Douglas County Farmworker Estimates by Employment Type, 2018 85
Exhibit 64: State and Douglas County Household Income Brackets 86
Exhibit 65: Total Housing Units by Type, Douglas County 2018 87
Exhibit 66: Douglas County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 88
Exhibit 67: Franklin County Agricultural Land and Farmworker Housing Units, 2019 91
Exhibit 68: Franklin County Historical and Projected Growth Rates, 2000-2040 92
Exhibit 69: Franklin County Historical and Projected Population, 2000-2040 92
Exhibit 70: Franklin County Population by Age Cohort, Historical and Projected 93
Exhibit 71: Franklin County Household Size 94
Exhibit 72: Franklin County Housing Tenure by Household, 2018 95
Exhibit 73: Franklin County GDP, All Industries 96
Exhibit 74: 2018 Agricultural Employment by Type, County versus State Averages 97
Exhibit 75: Franklin County Farmworker Estimates by Employment Types, 2018 97
Exhibit 76: Franklin County and State Household Income Brackets 98
Exhibit 77: Total Housing Units by Type, Franklin County 2018 99
Exhibit 78: Franklin County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 100
Exhibit 79: Grant County Agricultural Land and Farmworker Housing Units, 2019 104
Exhibit 80: Grant County Historical and Projected Growth Rates, 2000-2040 105
Exhibit 81: Grant County Historical and Projected Population, 2000-2040 105
Exhibit 82: Grant County Population by Age Cohort, Historical and Projected 106
Exhibit 83: Grant County Household Size and Rental Housing Unit Sizes 107
// January 2022 // Washington State Department of Commerce viii
Washington Farmworker Housing Needs Assessment // Contents
Exhibit 84: Grant County Housing Tenure by Household, 2018 107
Exhibit 85: Grant County GDP, All Industries, 2001-2018 108
Exhibit 86: 2018 Agricultural Employment by Type, County versus State Averages 109
Exhibit 87: Grant County Farmworker Estimates by Employment Type, 2018 109
Exhibit 88: Grant County, Household Income Brackets 110
Exhibit 89: Total Housing Units by Type, Grant County 2018 111
Exhibit 90: Grant County, Percent Change for Farmworker Wages versus Housing Prices, 2012 to
2018 112
Exhibit 91: Okanogan County Agricultural Land and Farmworker Housing Units, 2019 115
Exhibit 92: Okanogan County Historical and Projected Growth Rates, 2000-2040 116
Exhibit 93: Okanogan County Historical and Projected Population, 2000-2040 116
Exhibit 94: Okanogan Population by Age Cohort, Historical and Projected 117
Exhibit 95: Okanogan County Household Size and Rental Unit Size, by Number of Bedrooms 118
Exhibit 96: Okanogan County Housing Tenure by Household, 2018 118
Exhibit 97: Okanogan County GDP, All Industries 119
Exhibit 98: 2018 Agricultural Employment by Type, County versus State Averages 120
Exhibit 99: Okanogan County Farmworker Estimates by Employment Type, 2018 120
Exhibit 100: State and County Household Income Brackets 121
Exhibit 101: Total Housing Units by Type, Okanogan County 2018 122
Exhibit 102: Okanogan County, Percent Change for Farmworker Wages versus Housing Prices,
2012-2018 123
Exhibit 103: Skagit County Agricultural Land and Farmworker Housing Units, 2019 126
Exhibit 104: Skagit County Historical and Projected Growth Rates, 2000-2040 127
Exhibit 105: Skagit County Historical and Projected Population, 2000-2040 127
Exhibit 106: Skagit County Population by Age Cohort, Historical and Projected 128
Exhibit 107: Skagit County Household Sizes and Rental Housing Unit Sizes 129
Exhibit 108: Skagit County Housing Tenure by Household, 2018 130
Exhibit 109: Skagit County GDP, All Industries 131
Exhibit 110: 2018 Agricultural Employment by Type, County versus State Averages 132
Exhibit 111: Skagit County Farmworker Estimates by Employment Type, 2018 132
Exhibit 112: State and County Household Income Brackets 133
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Washington Farmworker Housing Needs Assessment // Contents
Exhibit 113: Total Housing Units by Type, Skagit County 2018 134
Exhibit 114: Skagit County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 135
Exhibit 115: Walla Walla County Agricultural Land and Farmworker Housing Units, 2019 138
Exhibit 116: Walla Walla County Historical and Projected Growth Rates, 2000-2040 139
Exhibit 117: Walla Walla County Historical and Projected Population, 2000-2040 139
Exhibit 118: Walla Walla County Population by Age Cohort, Historical and Projected 140
Exhibit 119: Walla Walla Household Sizes and Rental Housing Unit Size 141
Exhibit 120: Walla Walla County Housing Tenure by Household, 2018 141
Exhibit 121: Walla Walla County GDP, All Industries, 2001-2018 142
Exhibit 122: 2018 Agricultural Employment by Type, County versus State Averages 143
Exhibit 123: Walla Walla County Farmworker Estimates, 2018 143
Exhibit 124: State and County Household Income Brackets 144
Exhibit 125: Total Housing Units by Type, Walla Walla County 2018 145
Exhibit 126: Walla Walla County, Percent Change for Farmworker Wages versus Housing Prices,
2012-2018 146
Exhibit 127: Whatcom County Agricultural Land and Farmworker Housing Units, 2019 149
Exhibit 128: Whatcom County Historical and Projected Growth Rates, 2000-2040 150
Exhibit 129: Whatcom County Historical and Projected Population, 2000-2040 150
Exhibit 130: Whatcom County Population by Age Cohort, Historical and Projected 151
Exhibit 131: Whatcom County Household Size and Rental Unit Sizes 152
Exhibit 132: Whatcom County Housing Tenure by Household, 2018 153
Exhibit 133: Whatcom County GDP, All Industries 154
Exhibit 134: 2018 Agricultural Employment by Type, County versus State Averages 155
Exhibit 135: Whatcom County Farmworker Estimates, 2018 155
Exhibit 136: Whatcom County, Household Income Brackets 156
Exhibit 137: Total Housing Units by Type, Whatcom County, 2018 157
Exhibit 138: Whatcom County, Percent Change for Farmworker Wages versus Housing Prices,
2012-2018 158
Exhibit 139: Yakima County Agricultural Land and Farmworker Housing Units, 2019 161
Exhibit 140: Yakima County Historical and Projected Growth Rates, 2000-2040 162
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Washington Farmworker Housing Needs Assessment // Contents
Exhibit 141: Yakima County Historical and Projected Population, 2000-2040 162
Exhibit 142: Yakima County Population by Age Cohort, Historical and Projected 163
Exhibit 143: Yakima County Household Size and Number of Bedrooms in Rental Housing
Units 164
Exhibit 144: Yakima County Housing Tenure by Household, 2018 165
Exhibit 145: Yakima County GDP, All Industries 166
Exhibit 146: 2018 Agricultural Employment by Type, County versus State Averages 167
Exhibit 147: Yakima County Farmworker Estimates by Employment Type, 2018 167
Exhibit 148: Yakima County, Household Income Brackets 168
Exhibit 149: Total Housing Units by Type, Yakima County 2018 169
Exhibit 150: Yakima County, Percent Change for Farmworker Wages versus Housing Prices, 2012-
2018 169
Exhibit 151: Monthly Rent as a Percentage of Average Farmworker Wages, Yakima County,
2018 170
Exhibit 152: Housing Availability Highlights 176
Exhibit 153: Housing Affordability Highlights 177
// January 2022 // Washington State Department of Commerce xi
Washington Farmworker Housing Needs Assessment
Executive Summary
Overview
Washington is home to 35,600 farm operations across 15 million acres of farmland producing
crops and food, accounting for approximately $20.1 billion in revenue. More than 300
agricultural commodities, including hops, cherries, apples, asparagus and raspberries, grant the
state a global economic presence and employ tens of thousands of people. Thus, the
Washington farmworker is a crucial link in the agricultural value chain. However, at an average
of 40-60% of HUD-area Median Family Income (MFI), the average Washington state
farmworker earns wages that often put decent, safe housing out of reach.
This report was developed for the Department of Commerce to help the Legislature understand
and address the challenges of providing decent and affordable housing for farmworkers in
Washington. This report meets the requirements related to farmworker housing in Sec. 1011 (9)
of the 2020 capital budget:
$200,000 of the appropriation in this section is provided solely for the department to contract
for a study regarding both available and needed affordable housing for farmworkers and
Native Americans in Washington state. The study must include data to inform policies related
to affordable housing for farmworkers and Native Americans and supplement the housing
assessment conducted by the affordable housing advisory board created in chapter 43.185B
RCW.
The report summarizes funding available to develop farmworker housing, reviews agricultural
work in Washington, estimates the current inventory compared with demand and makes
preliminary recommendations to meet the challenge. All report findings and recommendations
are based on publicly available employment and housing data and qualitative information
gathered through engagement with stakeholders.
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Washington Farmworker Housing Needs Assessment // Contents
Housing Needs and the Farmworker Housing Supply Gap
Current estimates indicate there are 33,016 units of publicly-funded farmworker
accommodations, compared to an estimated 102,304 total farmworkers in Washington. This
means up to an estimated 69,288 farmworkers
are competing in local housing markets for rental
or ownership housing options when those
markets provide few options.1 There is a general
housing affordability crisis and an extremely
competitive housing market for low-income
households statewide, especially in rural areas
where agricultural work is primarily located.
Farmworkers face additional disadvantages in
the private market, including limited or no English
proficiency, unfamiliarity with local housing
customs, and inability to make upfront payments, such as deposits. These dynamics can force
farmworkers to live in overcrowded or substandard rental housing.
The Washington farmworker population includes resident year-round workers, migrant workers
and H-2A visa guest workers, who have different housing preferences and experiences in the
housing market. Year-round workers often prefer to live in permanent housing with amenities
like schools and churches and work near a single farm or a range of local farms, depending on
the season. Temporary migrant workers often prefer to be close to, or even located on,
their worksites. Federal law requires employers of H-2A visa workers to provide housing for
their H-2A employees at no cost.2 However, H-2A workers represent only about 12% of all
farmworkers in Washington, so this guarantee does not apply to most of the state’s
farmworkers. Non-H-2A migrant workers are most likely to live unsheltered or in unsafe or
unhealthy housing situations because flexible, temporary housing is unavailable in the private
market.
Housing is inextricable from health, particularly for agricultural workers in the time of COVID-19.
Much temporary farmworker housing is in a congregate style, sharing sleeping quarters and
common areas, and farm work often requires physical proximity and shared surfaces. As a
result of the COVID-19 pandemic and for the first time in U.S. history, farmworkers have been
declared essential workers, permitting them to work even in areas where stay-at-home orders
are in place.3 Where policies offer some protections to farmworkers, they often do not cover
undocumented workers, who are the most vulnerable to losses of housing or employment and
adverse health conditions.
1
It is likely this estimate over counts the housing need, since publicly available data shows jobs instead of workers. See page 29 of the
full report for discussion.
2
20 CFR 655.122(d)(1)
3
Miriam Jordan, “Farmworkers, Mostly Undocumented, Become ‘Essential’ During Pandemic,” The New York Times, (April 2, 2020),
https://www.nytimes.com/2020/04/02/us/coronavirus-undocumented-immigrant-farmworkers-agriculture.html
// January 2022 // Washington State Department of Commerce xiv
Washington Farmworker Housing Needs Assessment // Contents
Recommendations
During this study, farmworkers, employers and community organizations alike highlighted the
need for improved farmworker housing access and affordability. Though federal, state and local
programs are dedicated to ensuring affordable housing for farmworkers, farmworker housing
production has not kept up with the growth in need.
Funding Recommendations
Evaluate increasing or restructuring funding for farmworker housing through the
State Housing Trust Fund (HTF). The HTF is a key resource for farmworker housing
funding. Though the level of funding for farmworker housing has remained largely consistent
since 1999, the total number of units and beds produced with those funds is lower in the last
six years than in the program’s first six years.
Establish a dedicated funding source for temporary housing. Temporary units have
higher operating costs and lower rents, which means that the private market is unlikely to
build temporary housing for migrant workers. Establishing a dedicated funding source for
temporary housing with a higher portion of funds available for maintenance and operations
can alleviate temporary workers' challenges in local housing markets.
Implement the Joint Legislative Audit and Review Committee (JLARC)
recommendation to retool the tax exemption for farmworker housing. The exemption is
not utilized to the extent it should be because its occupancy requirements differ from other
funding sources. "Agricultural employee" is also defined differently for the exemption and
other funding sources. This can limit housing providers that build farmworker housing from
combining other funding sources with the exemption.
In addition, the Department of Revenue (DOR) has a policy restricting the use of seasonal
farmworker housing developed using the exemption for other purposes at any time during
the year. This creates a situation where housing providers are forced to restrict farmworker
beneficiaries from taking non-farm work in certain seasons. Another regulation requires
facility managers to reserve 25% of beds for walk-ins, but there is no clarity about who
qualifies as a walk-in.
Advocate changes to the USDA that make it easier to combine Rural
Development (RD) funding with other sources. USDA RD funds are a key source for
funding for farmworker housing development in rural communities. However, this
funding requires strict financing and operating conditions that make it challenging to
combine funds.
Evaluate the Housing Trust Fund allocation of funding to rural versus urban
areas and consider offering support to rural communities in applying for funding. The
HTF legislation (RCW 43.185.050) establishes a statutory target of at least 30% of the
funds in any given funding cycle be awarded for the benefit of projects located in rural areas
// January 2022 // Washington State Department of Commerce xv
Washington Farmworker Housing Needs Assessment // Contents
of the state, yet this target is not consistently met. More technical assistance to rural
communities could help increase successful applications.
Housing Development Recommendations
Encourage cities to increase zoning and infrastructure investments for multi-
family housing within urban growth areas. Local regulations and discretionary processes
tied to the approval of multifamily farmworker housing may create challenges for new
development.
Remove barriers to the development of low-income rental housing. Farmworkers
seeking rental housing on the private market share major challenges with people with similar
incomes. This includes an overall shortage of affordable units for individuals earning 40-
60% MFI, and a significant shortage of rental homes, especially units large enough to
accommodate families.
Evaluate eligibility requirements for subsidized housing and/or prioritization of
subsidized housing funds. As noted above, many domestic workers, both year-round and
migratory, struggle to compete in local housing markets with low wages. Yet many
farmworkers' incomes are not low enough to qualify for prioritization on subsidized housing
waitlists.
Program Recommendations
Establish housing navigators for farmworkers. Farmworkers are more likely to be
immigrants and to speak a language other than English than the statewide population. This
can put them at a disadvantage when they try to find housing. Housing navigators can help
address these barriers by providing services customized to meet families’ needs during the
preparation and early housing search phases, including helping households know fair
housing rights.
Other Recommendations
Evaluate reforms to the H-2A guest worker program. From the farmworker perspective,
working conditions for H-2A workers are often poor or unsafe. While housing is provided and
is based on temporary housing standards, its quality varies significantly between employers.
Growers value access to a stable workforce, which the H-2A program provides, but
see significant room for improvement. The program is perceived among growers as
cumbersome, time-consuming, expensive, and inflexible.
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Washington Farmworker Housing Needs Assessment // Contents
Advocate for immigration reform. Undocumented immigrant farmworkers face many
challenges. They are often unable or unwilling to advocate for better housing or conditions
for fear of penalization for their immigration status. While state and local government
assistance has been available to farmworkers during the pandemic, undocumented workers
are ineligible for federal public benefits such as extra unemployment insurance or stimulus
checks.
// January 2022 // Washington State Department of Commerce xvii
Washington Farmworker Housing Needs Assessment
Project Introduction
Scope of the Project
This report was developed for the Department of Commerce to help the Legislature understand
and address the challenges of providing decent and affordable housing for the farmworkers in
Washington. The report summarizes funding available to develop farmworker housing, a brief
overview of agricultural work in Washington, estimates of the current need and preliminary
recommendations to meet the challenge.
Defining a Farmworker for this Project
For purposes of this study, we define a farmworker as someone whose employment is classified
as Agriculture (11 NAICS4). There are a few exceptions, such as forestry and logging (113),
fishing, hunting, and trapping (114), and support activities for forestry (1153). Employment in
these industries totals approximately 6% of statewide covered agricultural employment, or 6,000
workers. Forestry and logging employment estimates are highest in Clallam, Cowlitz and Lewis
counties. These counties are not profiled in detail in this report due to overall low agricultural
employment compared to all counties statewide. Fishing, hunting and trapping employment is
highest in King County, followed by Pacific County. This definition is aligned with the Washington
State Employment Security Department (ESD), as they are a primary source for farmworker data
in Washington.
Methods
This study approach includes industry analysis using publicly available data sources, a review of
research on the topic, interviews with stakeholders, agricultural employers and advocates familiar
with farmworker housing conditions in the state, and a survey of farmworkers. More details on
these methods are presented below.
4
North American Industry Classification System
// January 2022 // Washington State Department of Commerce 1
Washington Farmworker Housing Needs Assessment // Project Introduction
Data Sources
Beacon Development Group records for permanent and seasonal farmworker housing stock
Catholic Community Services/Catholic Housing Services of Western Washington for
information on farmworker housing stock
Employment Security Department (ESD) data was used to establish farmworker employment
numbers and wages
Department of Health (DOH) records for seasonal farmworker housing stock
Office of Rural and Farmworker Housing (ORFH) records for permanent and seasonal
farmworker housing stock
United States Department of Labor data for H-2A visa requests
Washington State Department of Commerce (Commerce) data for permanent and seasonal
farmworker housing stock
Washington State Department of Agriculture (WSDA) data for agricultural lands
Interviews
We are grateful to all interviewees for their time and insights. The following interviews were
conducted to enhance our understanding of the farmworker housing landscape in Washington:
Gloria Velasquez Burton, Catholic Community Services
Erin Porter and Kimberly Gierach, Washington Department of Health (Dec. 5, 2019)
Jason Davidson and Nona White, Department of Commerce (Jan. 6, 2020)
Joshua Moll, Employment Security Department (Jan. 8, 2020)
Marty Miller and Korbie Haley, Office of Rural and Farmworker Housing (Jan. 17, 2020)
CaraMia Stearns-Vance, Employment Security Department (Jan. 17, 2020)
Dan Fazio, Wafla (Feb. 27, 2020)
Lowel Krueger, Yakima Housing Authority (March 2, 2020)
Brett Valicoff, Valicoff Fruit Co. (March 6, 2020)
Bryan Ketcham, Catholic Charities (March 19, 2020)
// January 2022 // Washington State Department of Commerce 2
Washington Farmworker Housing Needs Assessment // Project Introduction
Bre Elsey, Washington Farm Bureau (June 11, 2020)
April Clayton, Red Apple Farms (June 22, 2020)
Jon Devaney, Tree Fruit Association (June 23, 2020)
Rosella Mosby, Mosby Farms (July 7, 2020)
Josh Koempel, Rock Island Farm (July 9, 2020)
Washington COFS (COVID Farmworker Survey)
BERK is working with the Department of Health, University of Washington researchers and
community partners on a survey of farmworkers across the state. The purpose of the survey is to
gather information that can provide clear, consistent, transparent, linguistically appropriate and
culturally intelligible statewide outreach and to farmworker communities about mitigating the
current COVID-19 pandemic in Washington. Questions around housing needs and demographics
will be especially relevant to this study.
The primary audiences for the survey include:
Farm/agricultural workers
Post-production workers (packing houses)
Migrant farmworkers
H-2A farmworkers
Shellfish harvesters (aquaculture)
Greenhouse and nursery workers
Dairy workers
Surveys were conducted over the phone in August and September 2020 by promotoras and other
trusted, locally-based farmworker community representatives. There was a quantitative survey
and in-depth interview. Both methods were conducted in Spanish, with support for other
languages as necessary. There were 217 respondents to the survey across the state. More
information on the survey is available at this link: http://covid19farmworkerstudy.org/washington-
2/
// January 2022 // Washington State Department of Commerce 3
Washington Farmworker Housing Needs Assessment // Project Introduction
Farmworker Housing Landscape
Farmworker Housing Types
Farmworker housing falls into three broad categories:
1. Permanent housing
2. Temporary housing
3. Emergency housing
Permanent Housing
Permanent housing for farmworkers includes rental units that are available year-round and
owner-occupied housing units. Most rental and owner-occupied housing units targeted for
farmworkers are developed, owned and managed by nonprofit organizations or local housing
authorities. Permanent housing units include units for individuals and families.
In addition to affordable units targeted for farmworkers, farmworkers may also live in rental or
owner-occupied housing available on the private market, particularly in areas where targeted
farmworker housing is limited. When renting or buying on the private market, farmworkers
compete against other renters and homeowners for units and face market-rate housing prices
that are generally unaffordable.
Temporary Housing
Temporary farmworker housing serves the needs of migrant workers and H-2A visa holders. It
may take the form of single-family homes, apartments, dormitories, RVs or trailers, hotel or motel
rooms, or other structures. In temporary housing, workers typically share rooms and other
facilities. Beds in temporary housing facilities may be available on a nightly, seasonal or
intermediate basis.5
Nonprofits, housing authorities, farm owners, and private market organizations operate
temporary housing facilities for farmworkers. The Department of Commerce (Commerce)
5
Washington State Farmworker Housing Trust, “2006 Farmworkers Survey,” (May 2007).
// January 2022 // Washington State Department of Commerce 4
Washington Farmworker Housing Needs Assessment // Project Introduction
indirectly provides a limited amount of temporary housing via its Rent-a-Tent program, allowing
cherry growers to rent tents to house workers at a subsidized rate. The program is restricted to
farmers housing cherry harvest workers.6 Commerce also operates a trailer program at Monitor
Park in Chelan County, which is managed by the county with operating funds from Commerce.
Traditionally, many farm operators provide temporary housing for migrant workers. However,
state regulations designed to improve conditions in temporary farmworker housing have also
increased costs for growers, leading some to stop providing housing.7 A notable exception is
housing for H-2A visa workers — farm operators are required to provide housing for these
workers.
Farmworker Housing Within the Context of the Growth
Management Act (GMA)
Under the Growth Management Act, all counties in Washington must designate and conserve
“natural resource lands of long term commercial significance.” Nonagricultural accessory uses
and activities, including new buildings, parking or supportive uses, must not be located outside
the general area already developed for buildings and residential uses and shall not otherwise
convert more than one acre of agricultural land to nonagricultural uses.8 Washington’s 29 “fully
planning counties” must also adopt a rural element in their comprehensive plan. The GMA
requires various rural densities for rural lands that are not of commercial significance, typically
one unit up to five, 10 or 20 acres, and the county comprehensive plan must define and protect
rural character.9
The GMA allows accessory dwelling units (ADUs) on rural parcels. Typically, attached ADUs are
permitted locally because they likely share driveways, wells and septic systems with the primary
residence and appear as single-family developments. Detached ADUs usually have more
regulatory requirements to guard against the impacts on rural character and service demand.
If licensed by the Department of Health (DOH), temporary/migrant farmworker housing is exempt
6
Washington State Department of Health, “Temporary Worker Housing (Migrant Farmworker),” (2020),
https://www.doh.wa.gov/LicensesPermitsandCertificates/FacilitiesNewReneworUpdate/TemporaryWorkerHousing/PermittedLandUs
e/Tents; under RCW 70.114A.110, H-2A visa workers may not be housed under the state’s cherry harvest temporary labor camp
program since the H-2A regulations require that workers must be provided housing.
7
Interview with Dan Fazio, Executive Director, Wafla, (Feb. 27, 2020).
8
RCW 36.70A.170 requires designation. RCW 36.70A.177 allows innovative zoning techniques and accessory uses to support
agricultural activities, but does not provide detail on additional residential uses. See also WAC 365-196-815
9
RCW 36.70A.070(5)
// January 2022 // Washington State Department of Commerce 5
Washington Farmworker Housing Needs Assessment // Project Introduction
from the density requirements of the GMA.10 Temporary or migrant farmworker housing, which
can be a permanent structure, must be located on a rural worksite and used for workers
employed at the site. DOH licensing authority overrides local zoning regulations for licensed,
temporary housing except for the building height, setback, and road access requirements for the
local zone.11
There are many examples across the state of permanent structures used for temporary housing.
Most permitted examples are on farms, but many counties are starting to see a shift to building
or repurposing facilities within towns to be closer to services. Some of these builds are dormitory-
style and were built under local permitting, then retrofitted for farmworker housing.
The Flow of Public Dollars to Farmworker Housing
There are two main financial sources for farmworker housing: federal and state governments.
Federal Funding
The federal government funds the production of farmworker housing through block grant
programs, competitive direct grant/loan programs and tax credits.
The programs funding permanent farmworker housing are:
The National Housing Trust Fund (HTF). Administered by the Department of Housing and
Urban Development (HUD), the national HTF provides states with block grants to fund the
production and preservation of affordable housing units. Commerce awards national HTF
funds to specific projects in Washington through a competitive application process (see the
section on state HTF funds below).12 This program only funds permanent housing, including
for farmworkers.
Farm Labor Housing Direct Loans and Grants. The Section 514/516 Farm Labor Housing
(FLH) program provides loans and grants to develop on- and off-farm housing. The U.S.
Department of Agriculture (USDA) Office of Rural Development (RD) administers this
10
RCW 70.114A.050; Washington State Department of Health, “Temporary Worker Housing (Migrant Farmworker),” (2020),
https://www.doh.wa.gov/LicensesPermitsandCertificates/FacilitiesNewReneworUpdate/TemporaryWorkerHousing/FrequentlyAsked
Questions#13
11
RCW 70.114A.050
12
National Low Income Housing Coalition, “Getting Started: First Homes Being Built with 2016 National Housing Trust Fund Awards”
(2018), https://nlihc.org/sites/default/files/NHTF_Getting-Started_2018.pdf
// January 2022 // Washington State Department of Commerce 6
Washington Farmworker Housing Needs Assessment // Project Introduction
competitive loan and grant program. Farmers, farm associations, nonprofit organizations,
state and local governments, and Tribal nations are eligible to receive these grants or low-
interest loans to fund the construction of affordable, permanent housing for farmworkers. 13
Community Development Block Grants (CDBG). Jurisdictions may use CDBG funds for a
range of programs benefitting low- and middle-income residents. While funds are not
specifically for farmworker housing, projects that support the production and operation of
housing for low-income farmworkers are eligible. Cities and counties that meet HUD’s
minimum population threshold receive CDBG entitlements directly, while the state distributes
the remaining funds to lower-population jurisdictions on a competitive basis.14 This program
only funds permanent housing, including for farmworkers.
Multi-family Housing Direct Loans. Under this competitive program administered by the
USDA, developers may receive low-interest loans to fund affordable rental housing
construction in rural areas.15 This program only funds permanent housing, including for
farmworkers.
The Low Income Housing Tax Credit (LIHTC). The LIHTC is a federal program administered
by HUD. HUD issues tax credits to states, which then can award them to developers to
incentive the production of affordable housing for low-income tenants. This program funds
only permanent housing, including for farmworkers.
State Funding
Farmworker housing projects are eligible for the following two state funding:
The state Housing Trust Fund (HTF) – funds both permanent and temporary/seasonal
farmworker housing.
The retail sales and use tax exemption on labor, services, and materials used to construct or
improve farmworker housing – can apply to the construction of permanent and
temporary/seasonal farmworker housing.
Each year, Commerce distributes state HTF, federal HTF and federal HOME dollars to qualified
13
U.S. Department of Agriculture, “Farm Labor Housing Direct Loans & Grants,” (2019), https://www.rd.usda.gov/programs-
services/farm-labor-housing-direct-loans-grants
14
Washington State Department of Commerce, “Community Development Block Grants – General Purpose Grants,” (2020),
https://www.commerce.wa.gov/serving-communities/community-development-block-grants/cdbg-general-purpose-grants/
15
U.S. Department of Agriculture, “Multi-Family Housing Direct Loans,” (2020), https://www.rd.usda.gov/programs-services/multi-
family-housing-direct-loans
// January 2022 // Washington State Department of Commerce 7
Washington Farmworker Housing Needs Assessment // Project Introduction
capital projects in Washington through a competitive funding process. Farmworkers are a priority
population for HTF-funded projects, so the Washington State Legislature sets annual funding
targets for farmworker housing projects. However, because the program is administered on a
competitive funding basis, the state’s ability to meet that target is affected by the quantity and
quality of project applications for farmworker housing projects each year. The WSHFC distributes
federal LIHTC dollars via a competitive process.16
In 2019, Commerce distributed $12 million in state and federal HTF funds to four farmworker
housing projects, supporting the construction of a combined 226 units of permanent housing.17
The LIHTC and sales and use tax exemption programs take the form of foregone revenue. They
are intended to incentivize private developers to build farmworker housing and, in the case of
LIHTC, offer income-restricted units.
Funding Trends
State funding for farmworker housing has increased over the last 30 years, though the production
of new units and beds with those funds has slowed since 2014. When the state established the
HTF in 1987, farmworker housing projects were eligible for loans and grants, but no funds were
set aside specifically for this housing type. As a result, by 1998, the state had committed only
$6.8 million to farmworker housing projects.
In 1999, former Gov. Gary Locke established the Washington State Farmworker Housing
Program, a specific program within the HTF. For the first time, the Washington State Legislature
set a goal for public funding of farmworker housing projects — $4 million per year. In its first six
years of operation, the program distributed $48.4 million in competitive grant/loan funds. It
funded the construction of facilities with 1,015 permanent housing units and 4,054 seasonal beds
for farmworkers.18
In 2009, the Farmworker Housing Program was again folded under the state HTF, though the
funding targets for farmworker housing remained in place. In its most recent six years of
operation (2014-2019), the HTF awarded $48.0 million for farmworker housing.
Though the level of funding for farmworker housing has remained consistent since 1999, the total
16
Washington State Housing Finance Commission, “Multifamily Housing,” (2018), https://www.wshfc.org/mhcf/index.htm
17
Washington State Department of Commerce, “2019 Capital Awards for Affordable Housing,” (2019),
https://deptofcommerce.app.box.com/s/9xm5sx1rrr1qw0njxo1o1srlm7vw3coa
18
Washington State Department of Community, Trade and Economic Development, “Farmworker Housing in Washington State: Safe,
Decent and Affordable,” (March 2005).
// January 2022 // Washington State Department of Commerce 8
Washington Farmworker Housing Needs Assessment // Project Introduction
number of units and beds produced with those funds is lower in the last six years than in the
program’s first six years. From 1999-2004, the program supported the production of 5,069
permanent units and seasonal beds. From 2014-2019, the HTF supported the production of 1,709
units and beds. This is likely due to two reasons:
1. A focus on permanent housing — 36% of the production in 2014-2019 was permanent
units, compared with 20% in 1999-2004
2. Rising construction costs in Washington
Funding Gaps
A major gap, particularly at the federal level, is funding for facilities that accept undocumented
farmworkers. Nationally, nearly half of farmworkers (48%) are undocumented,19 yet federal
regulations prohibit facilities funded by the Farm Labor Housing and Multi-family Housing loan
and grant programs from renting to undocumented individuals.20 In addition, programs that
support homeownership, like the federal HOME program, are less likely to support undocumented
individuals, as many lending institutions will not grant mortgages to undocumented individuals. 21
Farmworker Housing Funders
In addition to federal and state programs, several nonprofit, social enterprise, and quasi-public
organizations subsidize or support farmworker housing in Washington.22 These include:
Impact Capital. A community development financial institution that provides low-interest and
flexible lending to nonprofit and public entities producing affordable housing.
Federal Home Loan Banks. A national consortium of 11 regional banks that provide low-cost
funding to financial institutions that support the production of affordable community
housing.
Rural Community Assistance Corporation. A nonprofit organization providing low-cost
19
Farmworker Justice, “Farmworker Housing and Health in the United States: A General Introduction and Overview,” (2014).
20
Washington State Department of Community, Trade and Economic Development, “Farmworker Housing in Washington State: Safe,
Decent and Affordable,” (March 2005).
21
Deyanira Del Río. “Mortgage Lending and Foreclosures in Immigrant Communities: Expanding Fair Housing and Fair Lending
Opportunity Among Low Income and Undocumented Immigrants,” (Kirwan Institute for the Study of Race and Ethnicity, The Ohio State
University, 2010), 3-8, http://www.kirwaninstitute.osu.edu/reports/2010/02_2010_ForeclosuresandImmigrantComm_DelRio.pdf
22
Washington State Department of Community, Trade and Economic Development, “Farmworker Housing in Washington State: Safe,
Decent and Affordable,” (March 2005).
// January 2022 // Washington State Department of Commerce 9
Washington Farmworker Housing Needs Assessment // Project Introduction
financing for affordable housing projects and training and advising for rural communities.
Washington Community Reinvestment Association. A consortium of financial institutions
that provides low-interest loans to farmers and developers to establish on-farm housing.
Washington State Housing Finance Commission. A self-funded state agency that provides
tax-exempt financing and tax credits to developers and nonprofits to fund affordable housing
projects.
Farmworker Housing Developers
Most farmworker housing projects in Washington are developed by organizations that fall into
one of four categories:
Catholic charity and housing services organizations. Catholic housing services organizations
have developed more than 60% of the state-funded permanent housing units for
farmworkers since 2013. These organizations are regionally based and include Catholic
Charities Housing Services - Diocese of Yakima, Catholic Housing Services of Eastern
Washington - Diocese of Spokane, and Catholic Community Services/Catholic Housing
Services of Western Washington - Diocese of Western Washington, among others. These
organizations do not typically develop seasonal housing.23
Local housing authorities. Housing authorities are independent public corporations and may
be associated with a city, county or region. In Washington, housing authorities develop both
permanent and seasonal farmworker housing. Major developers include the Yakima Housing
Authority,24 which owns 172 farmworker housing units, and the Housing Authority of Skagit
County, which has developed 50 permanent units of farmworker housing and 112 seasonal
beds since 2013.25
Farmworker and farmer associations. Wafla (farmworkers) and the Washington Growers
League (farm operators) develop farmworker housing, primarily seasonal facilities. Since
2013, they have developed state-funded housing facilities with more than 1,000 seasonal
beds.26
23
Washington State Department of Commerce, “Capital Awards for Affordable Housing,” (2013-2019).
24
Yakima Housing Authority, “Farmworker Housing,” (2021), https://www.yakimahousing.org/services/farmworker-housing/
25
Washington State Department of Commerce, “Capital Awards for Affordable Housing,” (2013-2019).
26
Ibid.
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Washington Farmworker Housing Needs Assessment // Project Introduction
Nonprofit housing services organizations. Compared to other developer categories, these
organizations play a relatively minor role.27 However, they may develop permanently
affordable housing units available to, but not necessarily restricted to, farmworkers.
27
Ibid.
// January 2022 // Washington State Department of Commerce 11
Washington Farmworker Housing Needs Assessment // Farmworkers and COVID-19
Farmworkers and COVID-19
The COVID-19 Farmworker Study (COFS) used a phone-based quantitative survey and in-depth
interviews to bring farmworkers’ voices into the public conversation about how to respond to the
pandemic. In addition, the study brought together community-based organizations, researchers
and advocates to learn about farmworkers who have been working during the COVID-19
pandemic.
According to the study:
Thirty-six percent of workers stated that they carpooled to work. Most traveled in a regular
vehicle and 14% traveled in a van or truck. Fifty-six percent of workers who carpooled traveled
with the same people all the time. Among workers who carpooled with various people, 22%
stated that they have traveled or worked with someone who presented symptoms of COVID-
19.
Sixty-six percent of workers reported changes in hygiene in the workplace. Seventy-three
percent reported that their employers provided them with a mask. In addition, 5% reported an
inadequate number of bathrooms in proportion to the number of workers, according to WAC
296-800-23020.
Forty-nine percent of workers received at least one form of COVID-19 training, 18% received
two forms of training, and 13% received three. Training on how to use personal protective
equipment could be in the form of a presentation, pamphlet or video.
Almost all workers took precautions to protect their families when they got home from work.
Thirty-nine percent of workers indicated that lack of insurance or costs were barriers to
receiving medical care. Other barriers to receiving care were loss of wages (23%), loss of work
(20%), lack of sick leave (13%), fear of government authorities (6%), and lack of childcare (3%).
Workers indicated that daily financial challenges include food (50%), rent (46%), utilities (47%),
water (43%) and childcare (17%).
Background
Washington was the first state to experience a major outbreak of COVID-19 in early 2020. Since
// January 2022 // Washington State Department of Commerce 12
Washington Farmworker Housing Needs Assessment // Farmworkers and COVID-19
then, several Washington counties, including Okanogan28 and Yakima,29 have experienced
documented outbreaks of the coronavirus among farmworkers.
Agricultural workers, particularly seasonal workers, may be at higher risk of contracting the
disease than the general population. Farmworkers were declared essential workers during the
pandemic, permitting them to work even in areas with stay-at-home orders.30 In addition to risks
that come with simply going to work during a pandemic, the conditions of agricultural work put
farmworkers at particular risk.
Depending on the nature of the work, physical distancing while on the job may be impossible. For
example, machines used for harvesting lettuce have fixed seats that are less than six feet apart.
In addition, many workers are in enclosed work environments with insufficient ventilation (such
as meat packing/processing plants). Limited facilities in fields and orchards also impede
handwashing — workers at some farms in California have described overcrowded handwashing
stations and soap that runs out.31
Outside of work, seasonal and migrant farmworkers face unique challenges in maintaining
appropriate distance from others. According to the COFS survey, farmworkers often travel to
worksites together, sitting in close proximity in vehicles and touching the same surfaces, both of
which may increase disease spread. Migrant workers typically live in congregate housing, in
which multiple workers shared a bedroom and common spaces. For H-2A visa workers in
Washington, housing often consists of dormitory-style rooms with four workers per bedroom.
Reporting from California suggests that some farmworker housing is even more crowded — a
legal aid organization filed suit over a residence in central California where 18 to 20 workers
shared two bedrooms.32
When farmworkers become sick, the environment often does not allow for effective isolation or
adequate access to medical care. Because of the time-sensitive nature of harvests, workers feel
pressured to work through illnesses. Congregate housing makes it difficult to isolate from other
workers when ill. 33 In addition, most agricultural work occurs in rural areas, where the number of
28
Hal Bernton, “Farmworker death draws state scrutiny in Okanogan County, where COVID-19 cases are spiking,” Seattle Times, (July
25, 2020), https://www.seattletimes.com/seattle-news/health/farmworker-death-draws-state-scrutiny-in-okanogan-county-where-
covid-19-cases-are-spiking/
29
Jesse Newman, “Coronavirus Hits Nation’s Key Apple, Cherry Farms,” Wall Street Journal, (July 6, 2020),
https://www.wsj.com/articles/coronavirus-hits-nations-key-apple-cherry-farms-11594027802
30
Miriam Jordan, “Farmworkers, Mostly Undocumented, Become ‘Essential’ During Pandemic,” New York Times, (April 2, 2020),
https://www.nytimes.com/2020/04/02/us/coronavirus-undocumented-immigrant-farmworkers-agriculture.html
31
David Bacon, “America’s Farmworkers—Now ‘Essential,’ but Denied the Just-Enacted Benefits,” American Prospect, (April 1, 2020),
https://prospect.org/coronavirus/american-farmworkers-essential-but-unprotected/
32
Ibid.
33
Ibid.
// January 2022 // Washington State Department of Commerce 13
Washington Farmworker Housing Needs Assessment // Farmworkers and COVID-19
health care providers is limited. This lack of access is compounded for undocumented
agricultural workers, who are ineligible for many forms of health insurance coverage and may be
limited to receiving care in emergency rooms or community clinics.34
Economic conditions and lost income from the pandemic have exacerbated inequities. Other
reasons farmworkers report for lost work time include lack of demand in food supply chains,
hiring fewer employees to prevent virus spread, childcare issues, and fear of exposure. Food
insecurity is also a key health issue in the pandemic. While food banks and other community
resources offer relief for food insecurity, some farmworkers face barriers to utilizing these
supports. For example, the National Guard helped distribute food at food banks in some
communities, which may deter farmworkers because of the military presence.
34
California Institute for Rural Studies, “COVID-19 Farmworkers Study (COFS),” (2021), https://cirsinc.org/covid-19-farmworker-study/
// January 2022 // Washington State Department of Commerce 14
Washington Farmworker Housing Needs Assessment
Agricultural Work in Washington
History of Farmworkers in Washington
The history of agriculture in Washington is deeply entwined with the state’s histories of
colonization, land ownership, immigration, racism
Exhibit 1: Clam digging near Port Townsend, 1910
and social and economic justice. This section
provides a brief overview of farm labor and
agriculture history in Washington, emphasizing
its connection to colonization, race and social
justice.
First Peoples
Since time immemorial, the first peoples of the
Pacific Northwest fished the area’s rivers,
streams, lakes and seas; hunted game in its
forests and plains; and gathered wild plants. Fish,
particularly salmon, were also central to the diet, Source: Sam G. Morse, 1910; Washington State Library
culture and way of life for Native Americans in Photograph Collection, 2020
this area. Indigenous peoples were involved in active land management before the arrival of
Europeans; they burned prairie lands to maintain healthy prairie ecosystems and allow the camas
root to dominate, and planted crops in some areas.35
From the earliest exploration by Europeans of the area now known as Washington, owners and
operators of farms have been almost exclusively European or white, while farm laborers have
included Native Americans, immigrants from Asia, Europe, and Latin America, and whites.
35
Denise Ranney, Washington State History (Transitional Learning) (Bellingham, WA: Whatcom Community College Press).
// January 2022 // Washington State Department of Commerce 15
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
European Exploration
Farmers and Farmworkers
The earliest European arrivals were Spanish, British, and Portuguese Farmers, or operators, are
explorers who landed on the Pacific coast in the late 18th century individuals who own or manage a
Exhibit 2: Peeling bitterroot, 1955 hunting otters for the fur trade. farm. Operators hire farm workers
These Europeans established
as laborers for wages. These
arrangements are often seasonal,
settlements, forts, and trading or limited to a specific task, such as
posts in both Western and the harvest of a crop.
Eastern Washington. In 1792,
Spaniard Salvador Fidalgo arrived at Neah Bay with 83
men and orders to build a military settlement, including
the directive to enlist local Native Americans as laborers
for the installment’s farm. The settlement failed within
months, but white settlement of the region experienced a
resurgence 50 years later. 36
Source: Unknown photographer, 1955; Washington
State Library Photograph Collection, 2020
White Settlement
Among the first white American settlers in the area was
New York minister Marcus Whitman and his wife, Narcissa. They established a mission at
Waiilatpu, near present-day Walla Walla, in 1836. The Whitmans attempted to hire the local
Cayuse people as laborers to establish the mission’s farms and construct its buildings but could
not afford the wages (in the form of tobacco, gunpowder, and clothing) the Cayuse requested.
Instead, the Whitmans hired Kanakas — native Hawaiian laborers37 — and whites.38 Marcus
Whitman invested a significant amount of time in encouraging the Cayuse to adopt agricultural
practices — he believed that doing so would lead them to abandon seasonal migration and
subsequently provide him with more time to convert them to Christianity. 39
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Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Land Ownership Exhibit 3: Farmer in wheat
field, Adams County
Beginning in the mid-19 century, the federal government and
th
Washington's government — territorial, then state — passed laws
granting millions of acres of free land to white settlers and
dispossessed Native Americans of the lands they inhabited. These
included:
The 1850 Oregon Donation Land Act, which granted 320 acres of
free land to white male U.S. citizens in the Oregon Territory.40
The 1862 Homestead Act, which granted 160 acres of land to any
U.S. citizen 21 or older.
A series of treaties with Tribal nations, through which the federal
Source: A.M. Kendrick, n.d.;
government took hundreds of thousands of acres of land and Washington State Library
Native Americans were moved onto reservations.41 Photograph Collection, 2020
The result was that landowners — and subsequently farmers and
farm operators — were almost exclusively white.
19th Century Farming Operations
From the 1850s to the 1880s, the state’s major agricultural operations were concentrated in
western Washington and included timber, hops, fruits and vegetables. While most farm workers
were single white men, operators hired Native American men, women, children, and immigrant
Chinese men to assist with harvests. In 1886, the completion of the Northern Pacific Railroad
across the Cascades made large-scale crop farming feasible in Eastern Washington,
predominately winter wheat. These Eastern Washington wheat farms employed the first known
migratory farm workers in Washington — men who traveled between farms in Washington,
Oregon and Idaho for the wheat harvest.42
40
Kenneth R. Coleman, “White Man’s Territory,” (Oregon Humanities, 2018), https://www.oregonhumanities.org/rll/magazine/owe-
spring-2018/white-mans-territory-kenneth-r-coleman/
41
When the first Washington Territorial Legislature met in 1854, it carved out a single exception to the white monopoly on land
ownership — the family of George Washington Bush, a free African American who settled in the Olympia area in 1846; Denise Ranney,
Washington State History (Transitional Learning), (Bellingham, WA: Whatcom Community College Press); Tim Wright, “A History of
Treaties and Reservations on the Olympic Peninsula, 1855-1898” (Olympic Peninsula Community Museum, 2017).
42
James N. Gregory, “Towards a History of Farmworkers in Washington State,” (In Farmworkers in Washington State, Seattle Civil
Rights & Labor History Project, 2009), http://depts.washington.edu/civilr/farmwk_ch1.htm#_edn3
// January 2022 // Washington State Department of Commerce 17
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
20th Century Immigration
Exhibit 4: Cannery Workers and Farm In 1902, the U.S. Bureau of Reclamation began extensive
Laborer’s Union founding members, irrigation projects in the Okanogan, Wenatchee and
1933 Yakima valleys, enabling these regions to produce the
fruit and vegetable crops they are famous for today. The
rise of these crops in central Washington led to an
increased need for seasonal labor. By 1935, farmers in
the Yakima Valley were hiring 33,000 workers for the
harvest. In the early years of these harvests, whites and
members of the Yakama Nation made up most of the
workforce.43
Though white men made up the majority of Washington’s farm workforce until the late 20 th
century, immigrants and people of color began to join agricultural work in large numbers as early
as the 1880s. These included Chinese, Japanese and Indian immigrants. In the early 20 th century,
many Japanese families settled Bellevue, the Kent Valley, and portions of Pierce County,
establishing productive farms and selling produce in Seattle. However, the success of Japanese
farmers resulted in a racist backlash — white farmers led a two-year campaign to force Japanese
families out of farming. In 1921, the Washington State Legislature passed the Alien Land Law,
making it illegal for Japanese individuals to own or buy
Source: Seattle Civil Rights & Labor History Project,
2020
land in Washington. The farm acreage operated by
Japanese families fell by more than 50% in just two
years. 44
After Congress passed the Immigration Act of 1924, barring all immigration from the Eastern
Hemisphere to the U.S., the immigration patterns for
farm work shifted. Soon, the largest groups of Farmers and Farmworkers
immigrant farm workers were Mexicans and Filipinos, Farmers, or operators, are
individuals who own or manage a
who were exempt from the Immigration Act because
farm. Operators hire farm workers
the Philippines was a U.S. territory at the time. Because as laborers for wages. These
of their legal status, Filipino laborers were more arrangements are often seasonal,
aggressive in forming unions than previous immigrant or limited to a specific task, such as
the harvest of a crop.
groups had been. The Cannery Workers and Farm
43
Maria Quintana and Oscar Rosales Castañeda, “Asians and Latinos Enter the Fields,” (In Farmworkers in Washington State, Seattle
Civil Rights & Labor History Project, 2009), http://depts.washington.edu/civilr/farmwk_ch4.htm#_edn8
44
Maria Quintana and Oscar Rosales Castañeda, “Asians and Latinos Enter the Fields”
// January 2022 // Washington State Department of Commerce 18
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Laborer’s Union (CWFLU), formed by Filipino immigrants in 1933 in Seattle, became one of the
first American Federation of Labor (AFL) unions led by people of color. Despite violent responses
by farm operators and white workers, Filipino laborers continued to organize, participate in
strikes, and form new unions through the 1940s and 1950s.45
Facing labor shortages in World War II, the federal government authorized the Bracero Program,
which granted Mexican laborers legal authorization to work in the U.S. on a temporary contract
basis. More than 40,000 braceros were contracted to work for farms in the Pacific Northwest.
Working conditions were poor and illnesses and injuries on the job were common, so braceros
organized, authorizing a series of work stoppages throughout the 1940s. Farm operator
frustration with the organization and work stoppages eventually led to the program’s demise in
the Pacific Northwest.46
Farmworkers in the 21st Century
After the termination of the bracero program, many Mexican American, Mexican and other
Hispanic/Latino immigrants settled in the Pacific Northwest, particularly in Eastern Washington
farming communities, such as Yakima, Toppenish, Pasco and Othello.47 Throughout the second
half of the 20th century, the number of Hispanic/Latino farm workers in Washington increased
steadily. In the 1990s, Hispanic/Latino workers became the majority ethnic group among
Washington’s farmworkers for the first time.
45
Ibid.
46
Maria Quintana and Oscar Rosales Castañeda, “Asians and Latinos Enter the Fields”
47
Oscar Rosales Castañeda, “Mexican-American Struggles to Organize,” (In Farmworkers in Washington State, Seattle Civil Rights &
Labor History Project, 2009), http://depts.washington.edu/civilr/farmwk_ch5.htm
// January 2022 // Washington State Department of Commerce 19
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Exhibit 5: Race of Washington Farmworkers, 1900-2000
Source: U.S. Census Bureau, 2000; Gregory, 2009; BERK, 2020.
Since World War II, Hispanic/Latino workers centered in the Yakima Valley area led labor
organizing among farm workers in Washington. In 1986, Cesar Chavez led a march of more than
2,000 farm workers from Granger to Yakima to protest low wages and poor working conditions.
Later that year, workers formed the Washington chapter of the United Farm Workers (UFW).48
Organizing by Hispanic/Latino farmworkers has continued into the 21st century. In 2006,
organizers held a “Day without Immigrants” demonstration in Yakima that attracted more than
15,000 marchers.49 In May 2020, more than 100 fruit packers went on strike in Selah, protesting
the dangerous conditions resulting from COVID-19.50
Statewide Trends in Farmworker Location and Industry
The Washington State Employment Security Department divides Washington into six agricultural
48
Oscar Rosales Castañeda, “The Creation of the Washington State UFW in the 1980,” (In Farmworkers in Washington State, Seattle
Civil Rights & Labor History Project, 2009), http://depts.washington.edu/civilr/farmwk_ch9.htm
49
Oscar Rosales Castañeda, “The Struggle Continues,” (In Farmworkers in Washington State, Seattle Civil Rights & Labor History
Project, 2009), http://depts.washington.edu/civilr/farmwk_ch10.htm
50
Enrique Perez de la Rosa, “Are Their Apples Worth More Than Our Lives?': Yakima Valley Fruit Workers Strike,” Oregon Public
Broadcasting, (May 22, 2020), https://www.opb.org/news/article/farmworker-strike-yakima-valley-fruit/
// January 2022 // Washington State Department of Commerce 20
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
reporting areas, as shown in Exhibit 6. In 2018, more than half of the total average annual covered
employment in agriculture stemmed from two reporting areas spanning most of Central
Washington, described below. These two regions also had the highest variable (seasonal)
employment in 2018.51 Population data for the counties below are from the American Community
Survey.
South Central Area 2 is north east of the Columbia River in south-central Washington. It includes
Klickitat and Yakima counties.
Klickitat County had an estimated population of 22,107 in 2018. The county primarily
produces fruits, tree nuts and berries, as well as some cattle.
Yakima County had an estimated population of 251,446 in 2018. The county produces the
most apples, sweet cherries and pears of any county in Washington and the most hops of any
U.S. county.
North Central Area 3 is in north-central Washington, directly north of South-Central Area 2, and
borders Canada. This region includes Chelan, Douglas, Kittitas and Okanogan counties.
Chelan County had an estimated population of 77,036 in 2018. Chelan County produces fruits,
tree nuts and berries almost exclusively.
Douglas County had an estimated population of 42,907 in 2018. The county primarily
produces apples, wheat and cattle. Agriculture employs one-third of the county workforce, the
most workers of any industry sector.
Kittitas County had an estimated population of 47,364 in 2018. The region grows excellent
grass, and its major agricultural industries are hay and cattle.
Okanogan County had an estimated population of 42,132 in 2018. In 2017, agriculture –
mostly tree fruits and wheat – provided more jobs countywide than any other industry sector.
51
Gustavo Avilés, Josh Moll, Toby Paterson, and Zoe Zadworny, “2017 Agricultural Workforce Report,” (Washington State Employment
Security Department, September 2019).
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Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Exhibit 6. Agricultural reporting areas in Washington
Source: Washington State Employment Security Department, 2019
In 2017, apple orchards were the largest agricultural industry by employment, employing 25,074
covered farmworkers).52 However, farm workers do not typically work only within a single
agricultural industry or crop. Throughout 2016, more than 40% of agricultural employees worked
in a different agricultural industry than in the prior quarter, compared to less than 22% of
employees in all other sectors.53
Statewide Demographic Information on Farmworkers
According to the COVID Farmworker Survey (COFS) study:
Among Washington farmworkers, 23% of families speak English and Spanish at home, and
70% of families who speak an indigenous language also speak Spanish.
Farmworkers’ needs and preferences, as well as housing situations, vary. The COFS study
found that farmworkers live in various housing types, including homes, apartments and
52
Gustavo Avilés, Josh Moll, Toby Paterson, and Zoe Zadworny, “2017 Agricultural Workforce Report,” (Washington State Employment
Security Department, September 2019).
53
Gustavo Avilés, Daegoon Lee, Ph.D; Alex Roubinchtein, Ph.D., Zoe Zadworny,” 2016 Agricultural Workforce Report,” (Washington
State Employment Security Department, 2018).
// January 2022 // Washington State Department of Commerce 22
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
trailers.
Housing is generally considered affordable if households spend no more than 30% of their
incomes on housing.54
The COFS study found that close to 20% of farmworkers surveyed spend more than half their
monthly income on housing.
About 37% of survey respondents spend between 25-50% of their incomes on housing.
Language and Ethnicity
According to 2008 data:55
Farmworkers primarily speak Spanish, and many have limited English proficiency. In 2006,
94% of farmworkers surveyed by the Washington State Farmworker Housing Trust indicated
that they speak Spanish as a primary language at home. Only 1% of farmworkers surveyed
indicated speaking English at home, and more than three-quarters indicated they could
neither read nor write in English.
Farmworkers’ native language varies by location. For example, in Skagit County, many
farmworkers speak a first language other than Spanish, with the two primary languages being
Mixteco and Triqui, two indigenous languages from Mexico. Many farmworkers also speak
regional variations of both languages.
In 2006, nearly all farmworkers described themselves as ethnically Mexican or Central
American. Ninety-five percent of farmworkers surveyed described themselves as “Mexican” or
“Mexican American,” and the remaining 5% identified as “Indigenous Mexican” or “Central
American.”56
Employment Patterns
Seasonality is a key feature of agricultural employment. Farmworkers are often qualified as
migrant or year-round workers, depending on their residence. Migrant farmworkers travel for work
54
U.S. Department of Housing and Urban Development, “Glossary of Terms to Affordable Housing,”
https://archives.hud.gov/local/nv/goodstories/2006-04-06glos.cfm
55
Washington State Farmworker Housing Trust, “A Sustainable Bounty: Investing in our Agricultural Future,” (Washington State
Farmworker Housing Trust), 2008.
56
IBID.
// January 2022 // Washington State Department of Commerce 23
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
for at least part of the year. On the other hand, a year-round farmworker lives in the same
community and may work for different growers. For example, year-round workers typically work
for a period with one grower on cherries and may later work on apples and pears for a different
grower in a different season.
Workers who arrive with H-2A foreign worker visas comprise a third category of employees for
the statewide agricultural sector. Given labor shortages due to a shrinking and aging workforce,
immigration policy changes, the voluntary return of many Mexican people, and lower numbers of
domestic migrant workers from California and Texas, growers have increasingly turned to this
seasonal guest-worker program to augment and access a stable supply of labor.
Employment type definitions:
Year-round covered employment: Year-round (or “stable,” as used by ESD) agricultural
jobs (not workers)
Migrant covered employment: Seasonal, or “variable,” agricultural jobs (not workers)
still covered by unemployment insurance
Migrant H-2A employment: Based on number of H-2A visas requested by employers,
adjusted down to 75% reflecting requests versus actual workers who arrive. Annual
total, reported by the ESD, adjusted to monthly seasonal rates by federal Department
of Labor reporting.
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 146
The seasonality of the workforce and the number of jobs that a single worker can hold makes the
quantification of agricultural jobs very challenging. The best available source for employment
information is the Employment Security Department’s Agricultural Workforce Report. ESD
categorizes agricultural sector jobs as variable (migrant workers) and stable (workers who may
live in one area and work almost year-round). H-2A workers are not included in this dataset. ESD
maintains annual counts of H-2A visa requests in Washington but does not report further detail
on these reports.
The federal Department of Labor publishes a database of H-2A worker requests by farm location
and months of the request. This information can be used to understand what percentage of
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Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
ESD’s total H-2A visa request count is distributed across Washington’s counties throughout the
year. This count is then discounted to reflect the reality that request counts are higher than actual
H-2A workers are.
In 2018, the total covered farmworker employment was 134,848, as shown in Exhibit 7. Of this
count, year-round employment included 64,378 jobs, while the migrant employment counts range
from 7,607 in January to 73,616 in July.57
Exhibit 7: Statewide Average Annual Covered Employment, Year-Round and Migrant, 2008-2018
Sources: Employment Security Department/LMEA, 2019; U.S. Bureau of Labor Statistics, QCEW, 2019; BERK, 2020
Agricultural employment has grown from 2008 to 2018. The makeup of this workforce, however,
has changed by employment type. Year-round employment has remained relatively stable as a
proportion of the workforce, while domestic migrant employment has decreased in its share of
total farmworker employment from 56% to 46%. Foreign workers through the H-2A visa program
have increased to fill this gap. As shown in Exhibit 8, H-2A workers have increased from 2% to
57
U.S. Department of Labor, “Performance Data,” https://www.dol.gov/agencies/eta/foreign-labor/performance
// January 2022 // Washington State Department of Commerce 25
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
12% over the same period – an increase of almost 17,000 workers.
Exhibit 8: Statewide Annual Agricultural Employment by Type, 2008-2018
Sources: Employment Security Department/LMEA, 2019; U.S. Bureau of Labor Statistics, QCEW, 2019; BERK, 2020
Note: H-2A workers requested reduced by 75% to reflect trends of actual workers arrived; migrant and year-round employment
numbers based on June-July average employment estimates.
Yakima County represents nearly one-third of statewide agricultural employment, with a much
higher proportion of domestic employment than H-2A workers. See Exhibit 9 and Exhibit 10. H-2A
worker distribution varies in geography. Counties in central Washington, such as Grant, Okanogan
and Benton, rely much more heavily on H-2A workers. Qualitative input from grower interviews
suggests that this may be related to the rural nature of these counties. These rural areas require
long transportation times to access remote farmland, which makes it difficult to attract domestic
labor, so H-2A workers help fill this gap.
// January 2022 // Washington State Department of Commerce 26
Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Exhibit 9: Washington Covered Farmworker Employment by County, 2018
Note: Based on three-year average June-July average employment estimates
Sources: Employment Security Department/LMEA; U.S. Bureau of Labor Statistics, QCEW; BERK, 2020
Exhibit 10: Washington H-2A Farmworker Requests by County, 2018
Sources: Department of Labor, Foreign Labor Certification Program, 2019; BERK, 2020
The 2006 Washington State Farmworker Housing Trust survey found that more than 75% of
farmworkers were permanent Washington residents and 70% did not travel away from home for
work. Of farmworkers surveyed, nearly 60% had worked in Washington agriculture for at least five
years and 35% planned to continue to work in agriculture in Washington for at least five more
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Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
years. In addition, 1% reported working for the same employer or employers each year.58 Since
2006, there has been an increase in H-2A applications in Washington, from 42 applications in
2008 to over 260 applications in 2018 (See Exhibit 11).59
Exhibit 11: Growth Rates since 2008, H-2A Requested Workers and Covered Employment in Washington
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income
Annual agricultural wages vary dramatically by county, in part due to the nature of the farm work
that counties offer. For example, in 2017, farmworkers in north-central Washington (Chelan,
Douglas, Kittitas and Okanogan counties) earned an average of $25,711, while those in the south-
central area (Klickitat and Yakima counties) earned 20% more, on average, at $30,721. See Exhibit
6 for a map of counties by region.60
Despite this regional variation, statewide farmworker wages have grown over the past five years.
When adjusted for inflation, average annual wages for covered farmworkers increased from
$25,143 in 2012 to $28,991 in 2017.
58
Washington State Farmworker Housing Trust, “A Sustainable Bounty: Investing in our Agricultural Future,” (Washington State
Farmworker Housing Trust), 2008.
59
Washington State Employment Security Department, Employment Connections Division - Foreign Labor Certification Program.
60
Washington State Employment Security Department, Agricultural Workforce Report.
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Washington Farmworker Housing Needs Assessment // Agricultural Work in Washington
Exhibit 12: Annual Growth Rates for Annual Wages of Covered Agricultural Employment, 2013-2017
Area 2013 2014 2015 2016 2017 Overall YoY Avg.
Annual
Western 3.1% 2.1% -0.8% 0.0% 4.3% 9.0% 1.8%
South Central 2.2% 3.3% 0.8% 2.5% 7.6% 17.2% 3.2%
North Central 2.6% 1.5% 2.6% 3.6% 7.6% 19.0% 3.6%
Columbia Basin -0.7% 4.4% 1.3% 2.0% 5.3% 12.6% 2.4%
South Eastern 1.3% 5.3% 1.7% 1.9% 4.7% 15.7% 3.0%
Eastern 3.0% -2.1% -6.0% 2.1% 7.2% 3.8% 0.9%
Statewide 1.8% 3.1% 1.1% 2.3% 6.2% 15.3% 2.9%
Sources: ESD Agricultural Workforce Report, 2019; BERK, 2020
For foreign farmworkers employed through the H-2A program, the Adverse Effect Wage Rate
(AEWR), or the effective minimum wage for this population, was $13.38 per hour in 2017 in
Washington.61
Regardless of this increase, wages in the agricultural sector remain low. A few factors compound
farmworkers’ low wages. Even during peak employment, most farmworkers work less than 40
hours per week.62 Further, many migrant farmworkers have added expenses of supporting a
family at home in addition to living expenses near their work sites (Abbett, 2005, p. 7).
61
Gustavo Avilés, Josh Moll, Toby Paterson, and Zoe Zadworny, “2017 Agricultural Workforce Report,” (Washington State Employment
Security Department, September 2019).
62
Janet Abbett,” Farmworker Housing in Washington State: Safe, Decent and Affordable,” (Washington State Department of
Community, Trade and Economic Development), 2005.
// January 2022 // Washington State Department of Commerce 29
Washington Farmworker Housing Needs Assessment
Statewide Housing Inventory
In Washington, housing for agricultural workers is counted by units for year-round employment
and by beds for migrant workers, including covered employment and H-2A workers.
Year-round agricultural workers are assumed to occupy stable housing in their primary
community’s housing inventory. Certain groups in Washington provide subsidized housing
specifically for farmworkers and their families. Outside of these specified units, farmworkers
must compete in ownership and rental markets with all other residents.
Migrant farmworkers have less permanent housing needs. Often these accommodations are
single-room occupancy buildings or congregate housing/bunkhouses and may be located on the
farm or within cities or populated areas. Housing providers may be employers, nonprofits or
housing authorities. As part of the H-2A worker program, employers must provide housing for
their foreign workers, whether on-site or nearby. This means that available beds will first go to H-
2A workers, then to covered migrant and year-round employees. Temporary worker
accommodations are licensed through the state
Department of Health.
In 2019, an estimated 30,359 beds were provided for The National Agricultural Workers Survey
migrant or H-2A farmworkers and 2,657 housing units were (NAWS) is an employment-based, random
sample survey conducted by the U.S.
set aside for year-round farmworker households. Reflective
Department of Labor. Results from the
of H-2A visa geographic distribution shown in Exhibit 10,
Northwest region in 2018 suggest that
Okanogan and Grant counties have the highest number of
farmworkers typically hold more than one
seasonal beds while Yakima County has the most job, with migratory workers working more
permanent housing units. Overall, these 33,016 jobs than year-round employees.
accommodations compare to an estimated 102,304 total
Year-round workers: 1.26 jobs
farmworkers in Washington, meaning that a potential
Migratory workers: 1.95 jobs
69,288 farmworkers compete in local housing markets for
rental or ownership housing options. This estimate likely Source: https://www.dol.gov/agencies/eta/national-
agricultural-workers-survey
over-counts housing need, since it is based on an
employee-to-job ratio from national survey results. Housing
needs are further complicated because households come
in different sizes and makeups. The estimates assume that each employee represents a unique
household, but in reality a single family may include multiple farmworkers and unrelated
coworkers may choose to live together rather than individually.
// January 2022 // Washington State Department of Commerce 31
Washington Farmworker Housing Needs Assessment // Statewide Housing Inventory
Exhibit 13: Estimate of Farmworker Housing by County, 2019
Seasonal Permanent
B eds Units Projects
Total 30,359 2,657 565
Grant 7,276 462 118
O kanogan 5,132 77 93
Yakima 4,637 948 102
Chelan 2,521 146 48
Franklin 2,506 145 40
Benton 2,363 89 39
Douglas 2,308 26 44
Whatcom 1,162 84 14
Adams 1,134 84 20
Klickitat 482 20 9
Skagit 461 240 19
Walla Walla 204 59 4
King 105 0 3
Clark 35 0 1
Pacific 17 0 2
Snohomish 16 0 2
Asotin 0 0 -
Clallam 0 0 -
Columbia 0 0 -
Cowlitz 0 138 4
Ferry 0 0 -
Garfield 0 0 -
Grays 0 0 -
Grays Harbor 0 0 -
Lewis 0 139 3
Mason 0 0 -
Pierce 0 0 -
Spokane 0 0 -
Whitman 0 0 -
Sources: Washington State Housing Finance Commission, 2019; Department of Health, 2019; Office of Rural and Farmworker
Housing, 2020; BERK, 2020
// January 2022 // Washington State Department of Commerce 32
Washington Farmworker Housing Needs Assessment
Gap Analysis
Exhibit 14 estimates the quantity of stable and covered migratory farmworkers in Washington
who must locate housing in the private market. In 2019, an estimated 30,359 beds were provided
for migrant or H-2A farmworkers, and 2,657 housing units were set aside for year-round
farmworker households. Overall, these 33,016 accommodations compare to an estimated
102,304 total farmworkers in Washington, meaning that a potential 69,288 farmworkers compete
in local housing markets for rental or ownership housing options.
Our county profile summaries dive deeper into the income and housing cost ratios across the
state to assess how well private markets meet the needs of these households.
Exhibit 14: Washington Housing to Workers Comparison by Employment Type, 2018
Employment Estimated Estimated 2018 Estimated 2018 Estimated 2018
Type 2018 Jobs Workers Accommodations Gap
Stable, Covered
64,378 51,094 2,657 units 48,437
(Annual Average)
Migrant, Covered
70,470 36,139 20,851
(Jun-Jul Average) 30,359 beds for
H-2A Visa (Jun-Jul variable and H-2A Mandatory
15,071 15,071
Average) provision
Note: These numbers assume that 75% of total H-2A worker requests are fulfilled. Job to employee estimates are based on the
number of employers per worker, as found in the 2018 NAWS Survey by Northwest respondents
// January 2022 // Washington State Department of Commerce 33
Washington Farmworker Housing Needs Assessment
County Profiles
The following sections profile counties with the highest agricultural production and employment
levels in Washington (see Exhibit 15). They cover all six ESD reporting regions and vary in size,
crops produced and types of workers employed. Each profile summarizes key trends as they
relate to housing needs for the particular region.
Exhibit 15: Farmworker Employment for Profiled Counties as Percent of Total County Population, 2018
Sources: OFM, 2019; Washington State ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
// January 2022 // Washington State Department of Commerce 34
Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 16 summarizes the total number of employees left to search in local markets for year-
round and migratory housing options. Estimates for year-round covered employees begin with the
total number of covered farm jobs, adjust for 1.26 jobs per worker, and subtract the number of
farmworker-specific housing units. Migratory employment figures begin with the average number
of jobs in June and July, adjust for 1.96 jobs per worker, and then subtract seasonal housing units
beyond those provided to H-2A workers. The highest numbers of domestic farmworkers
searching locally for housing units are in Yakima and Chelan counties.
Exhibit 16: Farmworkers Searching for Housing in Local Markets, 2018
County Year-Round, Covered Migratory, Covered Rental Vacancy Rate
Employees Employees
Adams 990 712 Insufficient data
Benton 2,754 2,716 2.6%
Chelan 5,222 3,305 1.4%
Douglas 1,202 70 1.4%
Franklin 2,204 2,936 2.6%
Grant 3,889 437 Insufficient data
Okanogan 1,475 170 Insufficient data
Skagit 1,138 238 0.5%
Walla Walla 1,646 1,313 0.2%
Whatcom 960 602 0.2%
Yakima 15,425 8,620 1.4%
*Based on average monthly wages by region and countywide average rental rates for a 2-bedroom apartment. HUD considers
households cost-burdened when 30% or more of income goes toward housing.
Sources: Covered employment and wage estimates from Washington ESD, 2018. Farmworker housing counts from Washington State
Housing Finance Commission, 2019; Department of Health, 2019; and Office of Rural and Farmworker Housing, 2020.
Average rents and vacancy rates as reported by Washington Center for Real Estate Research, 2018. BERK, 2020
Rental vacancy rates are an effective metric for estimating tightness in a real estate market.
// January 2022 // Washington State Department of Commerce 35
Washington Farmworker Housing Needs Assessment // County Profiles
Nationally, rental vacancy rates have averaged 5-10% in the past 50 years.63 Lower vacancy rates
make it more challenging for workers who earn less or need specialty lease agreements to
compete for available units (such as shorter periods, which migratory workers are likely to
request). Vacancy rates are low across all counties profiled, particularly in Walla Walla, Whatcom
and Skagit. The stock of rental units is too low to calculate in Adams, Grant and Okanogan
counties.
Housing affordability is a statewide concern. From 2012-2018, housing costs increased 52% and
rents increased 57% statewide.64 These increases vary across communities, but income growth
has not kept pace with housing costs. For profiled counties, estimated wages are least
compatible with average rents in Chelan and Douglas counties. Exhibit 17 summarizes these
trends. The third column calculates the percent of the estimated farmworker income required to
rent an average apartment in the area. The higher the percentage, the lower the remaining budget
for other needs such as food, transportation or healthcare. In Chelan and Douglas counties,
farmworkers spend an estimated two-thirds of their income on housing.
Exhibit 17: Housing Affordability for Farmworkers, 2020
County Farmworker Wages as a Percent of Percent of Income Spent to Afford
HUD-area MFI Average Apartment*
Adams 57% n/a
Benton 41% 36%
Chelan 40% 66%
Douglas 40% 66%
Franklin 41% 36%
Grant 50% n/a
Okanogan 52% n/a
Skagit 44% 39%
Walla Walla 46% 34%
63
Lincoln Land Institute, “The Empty House Next Door,” (2018), https://www.lincolninst.edu/publications/policy-focus-reports/empty-
house-next-door
64
Washington Center for Real Estate Research, “Q4 Housing Reports and Spring Apartment Surveys,” (2012, 2018).
// January 2022 // Washington State Department of Commerce 36
Washington Farmworker Housing Needs Assessment // County Profiles
Whatcom 39% 42%
Yakima 58% 31%
Sources: Farmworker wage estimates from Washington ESD, 2019. HUD-area MFI as reported by Washington Housing Finance
Commission, 2020. Rental rates from Washington Center for Real Estate Research, 2020. BERK, 2020.
*Average 2-bedroom, 1-bathroom apartment
// January 2022 // Washington State Department of Commerce 37
Washington Farmworker Housing Needs Assessment
Adams County
Key Takeaways
// January 2022 // Washington State Department of Commerce 39
Washington Farmworker Housing Needs Assessment // County Profiles
Introduction
Adams County is part of the Columbia Basin reporting area, situated between Grant and Whitman
counties to the west and east, respectively, and Lincoln and Franklin counties to the north and
south. Interstate 90 and Highway 395 are two primary transportation routes through the county,
connecting many of the incorporated areas. There are 586 farms and more than 842,000 acres of
agricultural lands spanning Adams County, with irrigated crops primarily in the west.65
Adams County is Washington’s seventh most productive county for agriculture, measured by the
value of production, and is ranked 11th for year-round agricultural employment. Major crops
grown include potatoes, wheat and apples.66 Other major sectors of employment are government
services and manufacturing.67
The county has a population of 20,150, with almost half of its residents living in unincorporated
areas.68 Othello is the largest city, with more than 40% of the county population and three-
quarters of incorporated residents. The county seat and second-largest city by population is
Ritzville. Farmworker housing units are clustered in and around Othello, which is on the western
side of the county. This is likely helpful for residents that are more permanent who need to
access amenities in the town centers. However, it may result in long commutes to farming
operations on the east side of the county.
65
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021),
https://cms.agr.wa.gov/WSDAKentico/Documents/Pubs/641-WSDAAgInfographic-WEB.pdf?/641-WSDAAgInfographic-WEB
66
Washington State Department of Agriculture, 2012.
67
ESD, Average annual employment by 2-digit NAICS codes, 2018.
68
Office of Financial Management, 2019.
// January 2022 // Washington State Department of Commerce 40
Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 18: Adams County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
// January 2022 // Washington State Department of Commerce 41
Washington Farmworker Housing Needs Assessment // County Profiles
Population Summary
Adams County has a population of 20,150, a 23% increase since 2000. Medium OFM population
projections estimate continued growth patterns to 2040, as shown in Exhibit 19 and Exhibit 20.
Demographic projections for Adams County estimate a relatively stable proportion of age
cohorts, with slightly higher proportions of adults 45 and older offset by 4% fewer youth aged 0-
19. A higher proportion of the population at or above retirement age may represent higher
demand for healthcare services, mobility assistance and ADA-compliant home design features.
The primary age group for farmworkers, 20-44, is predicted to remain relatively stable as a
proportion of the population throughout this period.
Exhibit 19: Adams County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 196 234
Percentage 1.2% 1.2%
Sources: Washington Office of Financial Management, 2019; BERK, 2020
Exhibit 20: Adams County Historical and Projected Population, 2000-2040
Sources: Washington Office of Financial Management, 2019; 2017 GMA Projections, Medium Series; BERK, 2020
// January 2022 // Washington State Department of Commerce 42
Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 21: Adams County Population by Age Cohort, Historical and Projected
Sources: Washington Office of Financial Management, 2018; BERK, 2019
Household Population
The average household size in Adams County is 3.3 individuals.69 Almost 40% of Adams County
households, or 2,151 households, are renters. Survey data suggests that this rate is higher among
the farmworker population whose migratory patterns and lower annual earnings (see Exhibit 27)
are more compatible with rental housing. This may result in a mismatch of household size and
housing stock for agricultural workers who rent and live with children or extended family
members, further explored in Exhibit 22. Two- and three-bedroom units represent the majority of
rental units available in Adams County. However, 38% of households have four or more members
and may desire housing with more bedrooms. Larger multifamily units with 4+ bedrooms are
limited in the rental market (in Adams County, only 14% of rental units are this size), increasing
the likelihood of overcrowding and “bunking up” arrangements if households cannot afford to
69
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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Washington Farmworker Housing Needs Assessment // County Profiles
purchase a home.70
Exhibit 22: Adams County Household Sizes and Rental Housing Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020.
70
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 23: Adams County Household Housing Tenure, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
County Economy
In Adams County, covered farmworkers make up 15% of the labor force. Agricultural products,
however, comprise 40% of total gross domestic product (GDP). This is a large percentage
compared to other counties.
Adams County is one of two counties in ESD’s Columbia Basin Area where workers earn less
than the statewide average annual farmworker wages.
Top employers for Adams County include McCain Foods, Othello School District, Simplot
French Fries and Columbia Basin Health Association.71
71
Adams County Development Council, “Leading Industries,” (2013), https://growadamscounty.com/leading-industries/
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Exhibit 24: Adams County GDP, All Industries
Agricultural products
are 40% of Adams
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Adams County is home to an estimated 1,353 year-round and covered agricultural
jobs. This number more than triples during the peak months for migrant employment, which is
April through October. Compared to statewide averages, Adams County relies more on migrant
workers and less on year-round employment. These workers may struggle the most to secure
adequate housing during the peak months for labor.
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Exhibit 25: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington Employment Security Department, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 26: Adams County Farmworker Estimates by Employment Type, 2018
Employment Type Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Year-round 1,257 1,275 1,292 1,310 1,327 1,345 1,362 1,380 1,397 1,414 1,432 1,449
Migrant covered 347 603 808 1,427 1,852 2,808 2,285 2,294 2,338 1,644 532 110
Migrant H-2A* 208 283 291 354 599 615 465 358 255 16 0 0
Total estimated 1,812 2,161 2,391 3,091 3,778 4,768 4,112 4,032 3,990 3,074 1,964 1,559
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Adams County households have lower incomes than state averages. There is both a higher
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
farmworker households are likely to earn less than $35,000 per year without additional income
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contributed from secondary employment or other household members. This income level is also
well below the HUD-area median family income for 2018, which was $52,400.
Exhibit 27: State and Adams County Household Income Brackets
Over one third of Adams
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$29,861.
Sources: American Community Survey S1901 5-Yr Estimates, 2014- 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Adams County
at any family size. A single-person household earning the regional average for farmworkers earns
57% of MFI in Adams County, classified as low-income (50-79% MFI).
Median family income for Adams County (2018 - HUD): $52,400
Average annual income for Columbia Basin farmworkers (2018):72 $29,861
Housing Inventory
There are 7,762 housing units in Adams County. Twenty-four percent of these are classified as
“other,” including mobile homes and other special housing types, compared to a statewide
average of 8%. This high percentage may correlate to the high number of farmworkers living in
72
2018 average wages projected based on average annual growth rates over five years, as reported by ESD, 2019.
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Washington Farmworker Housing Needs Assessment // County Profiles
more temporary housing types in the county. There are less than 1,000 units of multifamily
housing available in the county. If no other households competed for these units, they would still
only cover 24% of year-round and migratory covered farmworker jobs during peak season.
Exhibit 28: Total Housing Units by Type, Adams County 2018
Sources: Washington State OFM, 2018; BERK, 2020
Given the regional average annual wages for farmworkers, housing is considered affordable at
rates of $747 per month or less. However, in recent years, housing prices in Adams County have
risen 47%, while regional farmworker incomes have increased 15%. See Exhibit 29. This trend has
intensified affordability issues for these residents.
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Exhibit 29: Adams County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
There are not enough rental housing units in Adams County for inclusion in Washington Center
for Real Estate Center’s bi-annual reporting.
Home Ownership
The median price of a home in Adams County is $190,000.73 For a farmworker household earning
annual average wages, the estimated mortgage payment on this price of a home results in a cost
burden, and the family may not be approved for a loan in the first place. A more affordable range
of ownership housing on farmworker income would be $160,000 or less, assuming the ability to
save for a $32,000 (20%) down payment. Approximately 42% of Adams County housing units are
available in this price range. However, this down payment will be out of reach for many families,
and as down payment size decreases, monthly mortgage payments increase.
73
Ibid.
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Washington Farmworker Housing Needs Assessment
Benton County
Key Takeaways
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Introduction
Benton County is part of the southeastern reporting area, wrapped on three sides by the Columbia
River and bordered by Yakima and Klickitat counties to the west. Interstate 82 and Highway 240
are the primary routes through the county, connecting many incorporated areas. There are 1,520
farms and over 479,000 acres of agricultural lands, most prevalent in the southern part of the
county.74
Benton County is Washington’s third most productive county for agriculture, measured by the
value of production, and is ranked fourth for year-round agricultural employment. The most
prevalent crops grown include potatoes, apples and grapes.75 Other major employment sectors
are government services, healthcare and social assistance, and administrative and waste
services.76 Waste services employment is largely tied to the Hanford Nuclear Site outside
Richland.
The county population is 201,800.77 Kennewick and Richland are the largest population centers,
combining to house more than 70% of the county’s population. Prosser is the county seat.
74
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021)
75
Washington State Department of Agriculture, 2012.
76
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
77
Office of Financial Management, 2019.
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Exhibit 30: Benton County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing data from Washington DOH, 2019; Washington Housing Finance Commission, 2019; Office of Rural and Farmworker
Housing, 2019; WSDA, 2019
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Population Summary
Benton County has experienced dramatic growth over the past decade, with a 42% population
increase from 2000 to 2019. Medium OFM population projections estimate continued growth,
although at a decelerated pace, to 2040, as shown in Exhibit 139 and Exhibit 140. Demographic
projections for Benton County forecast an increased proportion of older adults (65+) as the Baby
Boomer generation retires, with slightly lower proportions of all other age cohorts, except infants
and young children (4 years old and younger). A higher proportion of the population at or above
retirement age may represent greater demand for healthcare services, mobility assistance and
ADA-compliant home design features. The primary age group for farmworkers, 20-44, is predicted
to decrease slightly (2%) as a proportion of the population throughout this period.
Exhibit 31: Benton County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 3,122 2,320
Percentage 2.2% 1.1%
Sources: Washington State Office of Financial Management, 2019; BERK, 2020
Exhibit 32: Benton County Historical and Projected Population, 2000-2040
Sources: Washington State Office of Financial Management, 2019; GMA 2017 Projections, Medium Series; BERK, 2020
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Exhibit 33: Benton County Population by Age Cohort, Historical and Projected
Sources: Washington Office of Financial Management, 2018; BERK, 2020
Household Population
The average household size in Benton County is 2.7 people.78 Farmworker households are likely
to reflect the general overall trend of household sizes in Benton County. One-third (32%) of Benton
County households, or 22,461 households, are renters. Survey data suggests that this rate is
higher among the farmworker population, whose migratory patterns and lower annual earnings
(see Exhibit 39) are more compatible with rental housing. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members, further explored in Exhibit 34. Two- and three-bedroom units represent
the majority of rental units available in Benton County. One quarter (24%) of the population,
however, will desire more space to accommodate four or more household members. Larger
multifamily units with 4+ bedrooms are limited in the rental market (in Benton County, only 7% of
rental units are this size), increasing the likelihood of overcrowding and “bunking up”
78
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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arrangements if households cannot afford to purchase a home.79
Exhibit 34: Benton County Household Sizes and Rental Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
79
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 35: Benton County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
County Economy
Agriculture is smaller proportionally to Benton County’s overall economy, as many top employers
focus on energy and engineering tied to the Hanford site. Agricultural employment makes up 4%
of the labor force, and agricultural products are valued at 9% of total GDP.
Benton County is one of three counties in ESD’s south eastern area, along with Franklin and
Walla Walla counties. Farmworker earnings here are slightly above the statewide average for
annual farmworker wages in Washington.
Top employers include Pacific Northwest National Laboratory, Aecom, Kadlec Medical Center
and Bechtel National.80
80
Benton-Franklin Council of Governments, “Major Employers Report,” (2014), http://www.prosser.org/wp-
content/uploads/2014/11/BFCOG-2014-Major-Employers.pdf
Tri-City Herald, “Aecom finalizes $6-billion URS purchase,” (2014), https://www.tri-
cityherald.com/news/local/hanford/article32202939.html
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Exhibit 36: Benton County GDP, All Industries
Agricultural products
are 9% of Benton
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Benton County is home to an estimated 3,583 year-round and covered agricultural
jobs, which more than doubles during the peak months for migrant employment in March through
August. Compared to statewide averages, Benton County relies heavily on migrant employment,
particularly H-2A workers.
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Exhibit 37: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington Employment Security Department, 2019; U.S. Department of Labor, 2020; BERK, 2020
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Exhibit 38: Benton County Farmworker Estimates by Employment Type, 2018
Employment Type Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Year-round 3,515 3,528 3,541 3,554 3,566 3,578 3,590 3,601 3,612 3,624 3,635 3,646
Migrant covered 852 1,799 1,967 2,694 2,714 8,014 4,326 3,623 3,321 2,734 1,155 724
Migrant H-2A* 999 1,062 2,412 2,192 2,278 2,292 1,538 1,339 132 4 4 1
Total estimated 5,366 6,389 7,920 8,440 8,558 13,884 9,454 8,563 7,065 6,362 4,794 4,371
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Benton County household incomes largely mimic statewide trends. There is a slightly higher
percentage of households earning less than $35,000 per year and a slightly lower percentage of
households earning more than $100,000 per year. Based on ESD income and wages reporting,
farmworker households are likely to earn less than $35,000 per year without additional income
contributed from secondary employment or other household members. This income level is less
than half of the HUD-area median family income for 2018: $72,800.
Exhibit 39: State and Benton County Household Income Brackets
One quarter of Benton
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$30,133.
Sources: American Community Survey S1901 5-Yr Estimates, 2014- 2018; BERK, 2020
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Estimated wages for farmworkers are below the median family income (MFI) for Benton County,
at any family size. A household earning the regional average for farmworkers earns 41% of MFI in
Benton County, classified as very low-income (30-49% MFI) with three or more members and low-
income for a single person or 2-person household.
Median family income for Benton County (2018 - HUD): $72,800
Average annual income for south-central farmworkers (2018):81 $30,133
Housing Inventory
There are 77,512 housing units in Benton County. Sixty-six percent are single-family, which
roughly correlates with the proportion of owner-occupied units in the county. Housing
affordability is likely a significant challenge for farmworker households in this area, as average
rental rates are not affordable for farmworker wages, even for 1-bedroom units. There is a low
rental vacancy rate, 2.6% here compared to 4.3% statewide, indicating a tight and competitive
rental market. Ninety-four percent of homes for sale are also at rates unaffordable for farmworker
wages.
Exhibit 40: Total Housing Units by Type, Benton County 2018
81
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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Sources: Washington State OFM, 2018; BERK, 2020
Given the regional average annual wages for farmworkers, housing is considered affordable at
rates of $753 per month or less. However, housing prices in Benton County have risen much
faster than regional farmworker incomes in recent years, 52% for ownership and 23% for rent,
while farmworker wages have increased 19%. See
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Exhibit 41. This trend has intensified affordability issues for these residents.
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Exhibit 41: Benton County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Benton County (2018):82
$835 for 1-bedroom
$899 for 2-bedroom
The rental vacancy rate in Benton County is 2.6%
Home Ownership
The median price of a home in Benton County is $278,500.83 For a farmworker household earning
annual average wages, the estimated mortgage payment on this price of a home results in a
severe cost burden, and the family is unlikely to be approved for a loan in the first place. A more
affordable average home cost is on farmworker income is $160,000 or less, assuming the ability
to save for a $32,000 (20%) down payment. Approximately 6% of Benton County housing units
are available in this price range. This down payment will be out of reach for many families, and as
82
Washington Center for Real Estate Research, “Apartment Market Survey, Fall 2018,” (2018), http://realestate.washington.edu/wp-
content/uploads/sites/6/2019/01/2018FallApartmentMarketReport.pdf
83
Ibid.
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down payment size decreases, monthly mortgage payments increase.
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Washington Farmworker Housing Needs Assessment
Chelan County
Key Takeaways
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Introduction
Chelan County is part of the north-central state reporting area. Much of the county is public land,
including the Okanogan-Wenatchee National Forest and the Lake Chelan National Recreation
Area. Highways 2 and 97 are the primary transportation routes through the county. There are 835
farms and over 31,000 acres of agricultural lands, most prevalent in the eastern part of the
county.84
Chelan County is Washington’s 11th most productive county for agriculture, measured by the
value of production, but is ranked second for year-round agricultural employment. Major crops
grown include apples, cherries and pears.85 Other major employment sectors are government
service, healthcare and social assistance, and accommodation and food services.86
The county has a total population of 78,420. Wenatchee is the county seat and population hub,
with 44% of the total population.87 An additional 42% of the population lives in unincorporated
areas of Chelan County.
84
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021)
85
Washington State Department of Agriculture, 2012.
86
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
87
Office of Financial Management, 2019.
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Exhibit 42: Chelan County Agricultural Land and Farmworker Housing Units
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Chelan County has a population of 78,420, which represents an 18% increase since 2000.
Medium OFM population projections estimate continued, moderate growth patterns to 2040, as
shown in Exhibit 139 and Exhibit 140. Demographic projections estimate a substantial increase in
the proportion of adults over 65 as the Baby Boomer generation ages. This is offset by a
reduction in the 45-64 cohort. The primary age group for farmworkers, 20-44, is predicted to
remain relatively stable as a proportion of the population throughout this period. A higher
proportion of the population at or above retirement age may represent higher demand for
healthcare services, mobility assistance and ADA-compliant home design features.
Exhibit 43: Chelan County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 621 576
Percentage 0.9% 0.7%
Sources: Washington OFM, 2019; BERK, 2020
Exhibit 44: Chelan County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; GMA 2017 Projections, Medium Series; BERK, 2020
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Exhibit 45: Chelan County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Chelan County is 3.3 individuals.88 Farmworker households are
likely to reflect the general overall trend of household sizes in Chelan County. One-third (34%) of
Chelan County households, or 9,584 households, are renters. Survey data suggests that this rate
is higher among the farmworker population, whose migratory patterns and lower annual earnings
(see Exhibit 51) are more compatible with rental housing. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members, further explored in Exhibit 46. Two- and three-bedroom units represent
the majority of rental units available in Chelan County. However, 21% of the population may need
more space to accommodate four or more household members. Larger multifamily units with 4+
bedrooms are limited in the rental market (in Chelan County, only 7% of rental units are this size),
increasing the likelihood of overcrowding and “bunking up” arrangements if larger households
88
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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cannot afford to purchase a home.89
Exhibit 46: Chelan County Household Sizes and Rental Housing Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2019
89
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 47: Chelan County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018
County Economy
In Chelan County, covered farmworkers make up 16% of the labor force. Agricultural products,
however, comprise only 6% of total GDP. This ratio is reversed from many counties where
agricultural value will be a higher percentage of total GDP than employment as a percentage of
the labor force.
Chelan County is one of three counties in ESD’s north-central area, along with Okanogan and
Douglas Counties. This region has the lowest estimate for annual average farmworker wages
in Washington.
Top industries include agriculture, health services, local government and retail.90
90
Chelan County, “Chelan County Comprehensive Plan,” (2017), http://www.co.chelan.wa.us/files/community-
development/documents/comps_plan/2017%20Comp%20Plan/Attachment%20A%20-%202017-27%20Comprehensive%20Plan.pdf
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Exhibit 48: Chelan County GDP, All Industries
Agricultural products
are 6% of Chelan
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Chelan County has an estimated 6,764 year-round and covered agricultural jobs,
which almost triples during the peak months for migrant employment, in June through October.
Compared to statewide averages, Chelan County relies less on H-2A workers and more on
migrant, covered employment. These are the workers most likely to struggle to secure adequate
accommodations.
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Exhibit 49: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 50: Chelan County Farmworker Estimates by Employment Type, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 6,658 6,677 6,696 6,716 6,735 6,754 6,773 6,793 6,812 6,831 6,850 6,869
Migrant covered 568 1,198 2,077 1,988 2,171 7,348 12,465 7,478 5,778 3,699 994 556
Migrant H-2A* 474 661 761 1,002 764 784 708 504 98 5 0 0
Total estimated 7,700 8,536 9,534 9,706 9,670 14,886 19,946 14,775 12,688 10,535 7,844 7,425
monthly
employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: ESD, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Chelan County households have lower incomes than state averages. There is both a higher
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
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farmworker households are likely to earn less than $35,000 per year without additional income
from secondary employment or other household members. This income level is well below the
HUD-area median family income for 2018, $56,135.
Exhibit 51: State and Chelan County Household Income Brackets
Thirty percent of Chelan
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$26,625.
Sources: American Community Survey S1901 5-Yr Estimates, 2014-2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Chelan County,
at any family size. A household earning the regional average for farmworkers earns 40% of MFI in
Chelan County, 2+ person households would be classified as very low-income (30-49% MFI), and
a single person household would be low-income (50-79%MFI).
Median family income for Chelan County (2018 - HUD): $67,100
Average annual income for north central farmworkers (2018):91 $26,625
Housing Inventory
There are 38,303 housing units in Chelan County. A notably high percentage (70%) of these are
single-family, compared to the statewide average of 64%. Rental rates in Chelan County are
remarkably high, particularly when compared to average farmworker wages. Even 1-bedroom
units almost double the monthly amount considered affordable to farmworker wages. The low
rental vacancy rate (1.4% compared to the statewide rate of 4.3%) indicates high competition for
91
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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available rental units. This may contribute to the high average rental costs.
Exhibit 52: Total Housing Units by Type, Chelan County 2018
Sources: Washington OFM, 2018; BERK, 2020
In recent years, housing prices in Chelan County have risen faster than regional farmworker
incomes, rising 55% for ownership and 109% for rent, versus 23% for wages. See Exhibit 53. This
trend has intensified affordability issues for these residents. Given the regional average annual
wages for farmworkers, housing is considered affordable at rates of $666 per month or less.
Exhibit 53: Chelan County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
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Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Chelan County (2018):92
$1,143 for 1-bedroom
$1,474 for 2-bedroom
The rental vacancy rate in Chelan County is 1.4%
Home Ownership
The median price of a home in Chelan County is $343,000.93 For a farmworker household earning
annual average wages, the estimated mortgage payment on this price of a home results in a
severe cost burden. A more affordable home price on a farmworker income is $80,000 or less,
assuming the ability to save for a $16,000 (20%) down payment. Very few Chelan County housing
units are available in this price range. This down payment will be out of reach for many families,
and as down payment size decreases, monthly mortgage payments increase.
92
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
93
Ibid.
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Washington Farmworker Housing Needs Assessment
Douglas County
Key Takeaways
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Introduction
Douglas County is part of the north-central state reporting area, situated between Chelan County
to the west, Okanogan County to the north, and Grant County to the south and east. Highway 2
and State Routes 172 and 17 are the main routes through the county, connecting many of the
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Washington Farmworker Housing Needs Assessment // County Profiles
incorporated areas. There are 729 farms and more than 550,000 acres of agricultural lands
spread throughout the county, with irrigated farmland along the western perimeter. 94
Douglas County is Washington’s 12th most productive county for agriculture, measured by the
value of production, and is ranked ninth for year-round agricultural employment. Major crops
grown include apples, wheat and pears.95 Other major sectors of employment are government
services, retail trade, and accommodation and food services.96 Retail and food service highlight
Douglas County’s tourism economy.
The county has a total population of 42,820.97 Many residents are rural, as more than half (55%)
of Douglas County’s population lives in unincorporated areas. East Wenatchee is the largest city,
with 32% of the county population and almost three-quarters of incorporated residents. The
county seat is Waterville, near the western border with Chelan County.
94
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021)
95
Washington State Department of Agriculture, 2012.
96
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
97
Office of Financial Management, 2019.
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Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 54: Douglas County Agricultural Land and Farmworker Housing Units
Sources: Housing data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Douglas County has a population of 42,820, which represents a 31% increase since 2000.
Medium OFM population projections estimate similar growth patterns through 2040, as shown in
Exhibit 139 and Exhibit 140. Demographic projections estimate an increased proportion of
residents 65 and older as the Baby Boomer generation ages, while adults aged 45-64 decrease as
a proportion of the total population. The primary age group for farmworkers, 20-44, is predicted to
remain relatively stable as a proportion of the population throughout this period.
Exhibit 55: Douglas County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 538 554
Percentage 1.6% 1.3%
Sources: Washington State Office of Financial Management, 2019; BERK, 2020
Exhibit 56: Douglas County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 57: Douglas County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Douglas County is 2.7 individuals.98 Farmworker households are
likely to reflect the general overall trend of household sizes. Thirty percent of Douglas County
households, or 4,559 households, are renters. Anecdotal data from interviews suggests that this
rate may be higher among the farmworker population. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members. Two- and three-bedroom units represent the majority of rental units
available in Douglas County. However, 26% of the population has larger households. Larger
multifamily units with 4+ bedrooms are limited in the rental market (in Douglas County, only 9% of
rental units are this size), increasing the likelihood of overcrowding and “bunking up”
arrangements if households cannot afford to purchase a home.99
98
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
99
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 58: Douglas County Household Size and Rental Housing Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
Exhibit 59: Douglas County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
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County Economy
Covered agricultural employment makes up 8% of the labor force, and agricultural products
comprise 9% of total GDP.
Douglas County is one of three counties in ESD’s north-central area, along with Chelan and
Okanogan counties. Farmworker wages are the lowest of the six Washington reporting areas.
Top Douglas County employment industries include agriculture, local government, retail trade
and health services.100
Exhibit 60: Douglas County GDP, All Industries
Agricultural products
are 9% of Douglas
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Douglas County is home to an estimated 1,548 year-round and covered agricultural
jobs, which more than triples during the peak months for migrant employment, in June through
September. Compared to statewide averages, Douglas County relies less on year-round and H-2A
workers and much more upon covered migrant employment. These workers are likely to struggle
most when securing adequate housing.
100
Chelan County, “Chelan County Comprehensive Plan, 2017-2037,” (2017), http://www.co.chelan.wa.us/files/community-
development/documents/comps_plan/2017%20Comp%20Plan/Attachment%20A%20-%202017-27%20Comprehensive%20Plan.pdf.
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Exhibit 61: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 62: Douglas County Farmworker Estimates by Employment Type, 2018
Employment Type Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Year-round 1,525 1,530 1,534 1,539 1,543 1,547 1,550 1,554 1,558 1,561 1,565 1,568
Migrant covered 610 736 1,065 1,680 1,449 3,255 5,022 2,011 2,253 1,539 853 382
Migrant H-2A* 165 169 283 291 291 299 212 189 118 110 110 110
Total estimated 2,300 2,435 2,882 3,510 3,283 5,101 6,784 3,754 3,929 3,210 2,528 2,060
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: ESD, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Douglas County households have lower incomes than state averages. There is both a higher
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
farmworker households are likely to earn less than $35,000 per year without additional income
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from secondary employment or other household members. This income level is well below the
HUD-area median family income for 2018, $67,100.
Exhibit 63: State and Douglas County Household Income Brackets
One quarter of Douglas
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$26,625.
Sources: American Community Survey S1901 5-Yr Estimates, 2010 & 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Douglas County
at any family size. A household earning the regional average for farmworkers earns 40% of MFI in
Douglas County, classified as very low-income for households with three or more members (30-
49% MFI) or low-income for single or two-person households (50-79% MFI).
Median family income for Douglas County (2018 - HUD): $67,100
Average annual income for north central farmworkers (2018):101 $26,625
Housing Inventory
There are 17,211 housing units in Douglas County. A high percentage (19% compared to 8%
statewide) of these are classified as ‘other,’ including mobile homes and other special housing
types. This high percentage may correlate to the high number of farmworkers living in temporary
housing types. Average rental rates lead to a severe cost burden for farmworker wages in
101
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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Douglas County, as does the estimated mortgage for an average home.
Exhibit 64: Total Housing Units by Type, Douglas County 2018
Sources: Washington State OFM, 2018; BERK, 2020
Housing prices in Douglas County have risen much faster than regional farmworker incomes in
recent years, 56% for ownership and 109% for rent versus 23% for farmworker wages. See Exhibit
65. This trend has intensified affordability issues for these residents. Given the regional average
annual wages for farmworkers, housing is considered affordable at rates of $666 per month or
less.
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Exhibit 65: Douglas County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Douglas County (2018):102
$1,143 for 1-bedroom
$1,474 for 2-bedroom
The rental vacancy rate in Douglas County is 1.4%
Home Ownership
The median price of a home in Douglas County is $316,700.103 For a farmworker household
earning annual average wages, the estimated mortgage payment on this price of a home results
in a severe cost burden. A more affordable home price is $80,000 or less, assuming the ability to
save for a $16,000 (20%) down payment. Approximately 2% of Douglas County housing units are
available in this price range. This down payment will be out of reach for many families, and as
down payment size decreases, monthly mortgage payments increase.
102
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
103
Ibid.
// January 2022 // Washington State Department of Commerce 89
Washington Farmworker Housing Needs Assessment
Franklin County
Key Takeaways
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Introduction
Franklin County is part of the southeastern reporting area, situated with Adams County to the
north, Benton County to the west and Walla Walla County to the east. The Snake and Columbia
rivers form most of Franklin County’s southern, eastern and western borders. Highway 395 and
State Route 260 are the primary transportation routes through the county, connecting many of
the incorporated areas. There are 772 farms and more than 473,000 acres of agricultural lands
distributed throughout the county, with irrigated farmland to the west and non-irrigated land to
the east.104
Franklin County is Washington’s 12th most productive county for agriculture, measured by the
value of production, and ranked ninth for year-round agricultural employment. Major crops include
potatoes, apples and hay.105 Other major sectors of employment are government services,
manufacturing and retail trade.106
The county has a population of 94,680. Pasco is the county seat and major population hub,
housing 80% of Franklin County residents.107
104
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
105
Washington State Department of Agriculture, 2012.
106
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
107
Office of Financial Management, 2019.
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Exhibit 66: Franklin County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Franklin County’s population increased 31% from 2000 to 2019. Medium OFM population
projections estimate continued, although slightly decelerated, growth patterns to 2040, as shown
in Exhibit 139 and Exhibit 140. Demographic projections for Franklin County estimate an
increasing proportion of adults over 65 as the Boomer generation ages. This is coupled with
decreasing proportions of people aged 20-44, the primary age group for farmworkers, which is
expected to decrease from 36% to 33% of the population by 2040.
Exhibit 67: Franklin County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 2,386 3,043
Percentage 4.8% 3.2%
Sources: Washington OFM, 2019; BERK, 2020
Exhibit 68: Franklin County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 69: Franklin County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Franklin County is 3.4 people.108 Farmworker households are likely
to reflect the general overall trend of household sizes. Thirty-one percent, or 8,244 households,
are renters. Survey data suggests this rate is higher among the farmworker population, whose
migratory patterns and lower annual earnings (see Exhibit 75) are more compatible with rental
housing. Two- and three-bedroom units represent the majority of rental units available in Franklin
County. This may also result in a mismatch of household size and housing stock for agricultural
workers who rent and live with children or extended family members, further explored in Exhibit
70. However, 37% have four or more household members, potentially requiring larger multifamily
units. Units with 4+ bedrooms are limited in the rental market (in Franklin County, only 11% of
rental units are this size), increasing the likelihood of overcrowding and “bunking up”
108
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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arrangements if households cannot afford to purchase a home.109
Exhibit 70: Franklin County Household Size
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2019
109
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 71: Franklin County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
County economy
In Franklin County, covered agricultural employment makes up 8% of the labor force. Agricultural
products comprise 18% of total GDP.
Franklin County is one of three counties in ESD’s southeastern area, along with Benton and
Walla Walla counties. Farmworkers' earnings are slightly higher than the statewide average.
Top employers for Franklin County include Tyson Foods, Lourdes Health Network, Tri-Cities
Airport and the Port of Pasco.110
110
Benton-Franklin Council of Governments, “Major Employers in Benton, Franklin and Walla Walla Counties,” (2010),
http://bfcog.us/2010%20Major%20Employers.pdf
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Exhibit 72: Franklin County GDP, All Industries
Agricultural products
are 18% of Franklin
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Franklin County is home to an estimated 2,960 year-round and covered agricultural
jobs. This more than triples during the peak months for migrant employment in June through
August. Compared to statewide averages, Franklin County relies more upon migrant employment,
both covered and H-2A, and less on year-round workers.
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Exhibit 73: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 74: Franklin County Farmworker Estimates by Employment Types, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 2,956 2,958 2,960 2,961 2,962 2,962 2,961 2,961 2,960 2,960 2,959 2,958
Migrant covered 1,717 2,353 2,916 4,433 5,174 7,747 5,634 5,421 4,004 3,610 2,181 1,454
Migrant H-2A* 178 279 330 437 451 2,087 1,936 1,709 1,634 0 0 0
Total estimated 4,851 5,590 6,206 7,831 8,587 12,796 10,531 10,091 8,598 6,570 5,140 4,412
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
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Income Summary
Franklin County households have lower incomes than state averages. There is a slightly higher
percentage of households earning less than $50,000 per year (38% versus 34%) and a much
lower percentage of households earning greater than $100,000 per year (25% versus 36%). Based
on ESD income and wages reporting, farmworker households are likely to earn less than $35,000
per year without additional income contributed from secondary employment or other household
members. This income level is also well below the HUD-area median family income for 2018,
$72,800.
Exhibit 75: Franklin County and State Household Income Brackets
One quarter of Franklin
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$30,133.
Sources: American Community Survey S1901 5-Yr Estimates, 2010 & 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Franklin County
at any family size. A single household earning the regional average for farmworkers earns 41% of
MFI in Franklin County, classified as very low-income (30-49% MFI) for families of three or more
members and low-income (50-79% MFI) for singles and two-person households.
Median family income for Franklin County (2018 - HUD): $72,800
Average annual income for southeastern farmworkers (2018):111 $30,133
111
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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Housing Inventory
There are 28,476 housing units in Franklin County. The housing stock has higher proportions of
single-family and mobile homes/other housing units, resulting in a limited stock of multifamily
units (17% compared to 28% statewide). The market for rental units is competitive (vacancy rate
2.6%) and largely unaffordable on farmworker wages. An average 1-bedroom apartment results in
a cost burden for average farmworker wages, and the estimated mortgage for the average home
results in a severe cost burden. Only 6% of homes for sale would be considered affordable with
farmworker wages.
Exhibit 76: Total Housing Units by Type, Franklin County 2018
Sources: Washington OFM, 2018; BERK, 2020
Housing prices in Franklin County have risen faster than regional farmworker incomes in recent
years, 52% for ownership and 23% for rent, versus 19% for wages. See Exhibit 77. This trend has
exacerbated affordability issues, particularly for those planning to purchase a home. Given the
regional average annual wages for farmworkers, housing is considered affordable at rates of
$753 per month or less.
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Exhibit 77: Franklin County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Franklin County (2018):112
$835 for 1-bedroom
$899 for 2-bedroom
The rental vacancy rate in Franklin County is 2.6%
Home Ownership
The median price of a home in Franklin County is $278,500.113 For a farmworker household
earning annual average wages, the estimated mortgage payment on this price of a home results
in a cost burden. A more affordable median home price is on farmworker income is $160,000 or
less, assuming the ability to save for a $32,000 (20%) down payment. Approximately 6% of
Franklin County housing units are available in this price range. This down payment will be out of
reach for many families, and as down payment size decreases, monthly mortgage payments
increase.
112
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
113
Ibid.
// January 2022 // Washington State Department of Commerce 101
Washington Farmworker Housing Needs Assessment
Grant County
Key Takeaways
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Washington Farmworker Housing Needs Assessment // County Profiles
Introduction
Grant County is part of the Columbia Basin reporting area, situated in the middle of the state
between Kittitas and Adams counties to the west and east, respectively, and Douglas and Benton
counties to the north and south. There are 1,384 farms and more than 798,000 acres of
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agricultural lands throughout the county, with irrigated farmland most common in the south.114
Grant County is Washington’s second most productive county for agriculture, measured by the
value of production, and is ranked third for year-round agricultural employment. Major agricultural
commodities include apples, cattle and potatoes.115 Other major sectors of employment are
government services, manufacturing and retail trade.116
The county has a population of 98,740, with 15 cities and a large population living in
unincorporated areas (44%).117 Grant County’s largest city is Moses Lake, with 25% of the
population, and Ephrata is the county seat.
114
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
115
Washington State Department of Agriculture, 2012.
116
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
117
Office of Financial Management, 2019.
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Exhibit 78: Grant County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Grant County has a population of 98,740, which represents a 32% increase since 2000. Medium
OFM population projections estimate continued growth patterns to 2040, as shown in Exhibit 139
and Exhibit 140. Demographic projections for Grant County estimate an increase in the proportion
of adults over 65 as the Baby Boomer generation ages. This increase is offset by a decrease
across age cohorts under age 45. The primary age group for farmworkers, 20-44, is predicted to
remain relatively stable as a proportion of the population throughout this period, with a 2%
decrease by 2040.
Exhibit 79: Grant County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 1,265 1,631
Percentage 1.7% 1.7%
Sources: Washington State Office of Financial Management, 2019; BERK, 2020
Exhibit 80: Grant County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 81: Grant County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Grant County is 3.1 people.118 Farmworker households are likely to
reflect the general overall trend of household sizes. Almost 40% of Grant County households, or
11,705 households, are renters. Survey data suggests that this rate is higher among the
farmworker population. This may result in a mismatch of household size and housing stock for
agricultural workers who rent and live with children or extended family members, further explored
in Exhibit 82. Two- and three-bedroom units represent the majority of rental units available in
Grant County. However, 30% of the population has more than four household members. Larger
multifamily units with 4+ bedrooms are limited in the rental market (in Grant County, only 11% of
rental units are this size), increasing the likelihood of overcrowding and “bunking up”
arrangements if households cannot afford to purchase a home.119
118
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
119
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 82: Grant County Household Size and Rental Housing Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
Exhibit 83: Grant County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018
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County Economy
In Grant County, covered farmworkers make up 13% of the labor force. It is ranked third in the
state for year-round employees and second for migrant, covered labor. It is also second in the
state for the county’s agriculture production value, which accounts for approximately one-third of
the total GDP.
Grant County is one of two counties in ESD’s Columbia Basin area, along with Adams County,
earning less than the statewide average for annual farmworker wages.
Top employers include Moses Lake School District, Genie Industries, county government and
Samaritan Healthcare.120
Exhibit 84: Grant County GDP, All Industries, 2001-2018
Agricultural products
are 33% of Grant
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Grant County is home to an estimated 5,483 year-round and covered agricultural jobs.
This number more than doubles during the peak months for migrant employment, from June
through August. Compared to statewide averages, Grant County relies less on year-round
employment and instead much more heavily upon both H-2A and covered migrant employment.
120
Grant County Economic Development Council, “Grant County Largest Employers,” (2018),
http://www.grantedc.com/demographics/largest-employers/
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Exhibit 85: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 86: Grant County Farmworker Estimates by Employment Type, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 5,546 5,536 5,525 5,513 5,502 5,490 5,478 5,465 5,453 5,440 5,428 5,415
Migrant covered 1,378 2,368 3,168 3,506 4,172 6,614 9,066 6,592 7,135 5,084 3,213 1,734
Migrant H-2A* 1,019 2,674 3,310 3,346 3,419 3,898 3,487 3,055 761 149 0 0
Total estimated 7,943 10,578 12,003 12,365 13,093 16,002 18,031 15,112 13,349 10,673 8,641 7,149
monthly
employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: ESD, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Grant County households have lower incomes than state averages. There is both a higher
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
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farmworker households are likely to earn less than $35,000 per year without additional income
from secondary employment or other household members. This income level is below the HUD
area median family income for 2018, $59,900.
Exhibit 87: Grant County, Household Income Brackets
Thirty percent of Grant
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$29,861.
Sources: American Community Survey S1901 5-Yr Estimates, 2010 & 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Grant County, at
any family size. A household earning the regional average for farmworkers earns 50% of MFI in
Grant County, classified as very low-income for three or more person households (30-49% MFI)
and low-income for a single person and two-person households (50-79% MFI).
Median family income for Grant County (2018 - HUD): $59,900
Average annual income for Columbia Basin farmworkers (2018):121 $28,861
Housing Inventory
There are 38,335 housing units in Grant County. A high percentage (29% compared to 8%
statewide) of these are classified as ‘other,’ including mobile homes and other special housing
types. This high percentage may correlate to the high number of farmworkers living in temporary
housing types. There are not enough rental units for Grant County rental estimates to register
with research databases. Home values are high enough that the estimated mortgage for an
121
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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average home results in a cost burden on farmworker wages. Based on information from the
Washington Center for Real Estate Research, Housing Market Summary Q4 2018, 23% of homes
for sale are $160,000 or less, which is a more affordable price point.
Exhibit 88: Total Housing Units by Type, Grant County 2018
Sources: Washington OFM, 2018; BERK, 2020
In recent years, housing prices in Grant County have risen faster than regional farmworker
incomes, with home prices increasing 37%, compared to 15% for wages. See Exhibit 89. This
trend has exacerbated affordability issues. Given the regional average annual wages for
farmworkers, housing is considered affordable at rates of $747 per month or less.
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Exhibit 89: Grant County, Percent Change for Farmworker Wages versus Housing Prices, 2012 to 2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
There are not enough rental housing units in Grant County for the Washington Center for Real
Estate Research to include with its bi-annual report findings.
Home Ownership
The median price of a home in Grant County is $212,300.122 For a farmworker household earning
annual average wages, the estimated mortgage payment on this price of a home results in a cost
burden. A more affordable average home price is $160,000 or less, assuming the ability to save
for a $32,000 (20%) down payment. Approximately 23% of Grant County housing units are
available in this price range. This down payment will be out of reach for many families, and as
down payment size decreases, monthly mortgage payments increase.
122
Washington Center for Real Estate Research, Housing Market Summary Q4 2018.
// January 2022 // Washington State Department of Commerce 114
Washington Farmworker Housing Needs Assessment
Okanogan County
Key Takeaways
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Introduction
Okanogan County is part of the north-central state reporting area. It borders Canada to the north,
and much of the county's eastern portion is designated as Colville Reservation tribal land. There
are 1,192 farms and more than 105,000 acres of agricultural lands, primarily running north to
south along highway 97.123
Okanogan County is Washington’s eighth most productive county for agriculture, measured by
the value of production, and is ranked seventh for year-round agricultural employment. Major
agricultural commodities include apples, cherries and pears.124 Other major sectors of
employment are government services, retail trade, and healthcare and social assistance. 125
The county has a population of 42,730, which is largely rural – 61% live in unincorporated
areas.126 Okanogan County’s largest city is Omak, with 12% of the population, and the county seat
is Okanogan.
123
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
124
Washington State Department of Agriculture, 2012.
125
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
126
Office of Financial Management, 2019.
// January 2022 // Washington State Department of Commerce 116
Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 90: Okanogan County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Washington Farmworker Housing Needs Assessment // County Profiles
Population Summary
Okanogan County has a population of 42,730, representing an 8% increase 2000-2019, a slower
pace of growth than many other counties. Medium OFM population projections estimate
continued growth patterns to 2040, as shown in Exhibit 139 and Exhibit 140. Demographic
projections for Okanogan County estimate a substantial shift proportionally toward older adults
(65+) as Baby Boomers age. This is offset by a shrinking of the 45-64 cohort. The primary age
group for farmworkers, 20-44, is predicted to remain relatively stable as a proportion of the
population throughout this period.
Exhibit 91: Okanogan County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 167 138
Percentage 0.4% 0.3%
Sources: Washington OFM, 2019; BERK, 2020
Exhibit 92: Okanogan County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; PSRC, 2019; BERK, 2020
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Exhibit 93: Okanogan Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Okanogan County is 2.3 people.127 Farmworker households are
likely to reflect the general overall trend of household sizes. One-third (34%) of Okanogan County
households, or 5,926 households, are renters. Survey data suggests that this rate is higher among
the farmworker population (see Exhibit 27). This may result in a mismatch of household size and
housing stock for agricultural workers who rent and live with children or extended family
members, further explored in Exhibit 22. Two- and three-bedroom units represent the majority of
rental units available in Okanogan County. However, 21% of households have four or more
members. Only 10% of rentals in Okanogan County have four or more bedrooms, increasing the
likelihood of overcrowding and “bunking up” arrangements if households cannot afford to
purchase a home.128
127
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
128
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 94: Okanogan County Household Size and Rental Unit Size, by Number of Bedrooms
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
Exhibit 95: Okanogan County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
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County Economy
In Okanogan County, agricultural employment makes up 10% of the labor force. Agricultural
products comprise 22% of total GDP, making the sector central to the local economy.
Okanogan County is one of three counties in ESD’s north-central area, along with Douglas and
Chelan counties. Farmworker earnings in this region are the lowest of the six-state reporting
areas.
Top employers include Colville Confederated Tribes, Gebber Farms, Wal-Mart and Mid-Valley
Hospital & Clinic.129
Exhibit 96: Okanogan County GDP, All Industries
Agricultural products
are 22% of Okanogan
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Okanogan County is home to an estimated 1,956 year-round and covered agricultural
jobs, which more than triples during the peak months, with migrant employment in March through
August. Compared to statewide averages, Okanogan County relies heavily upon H-2A
employment. H-2A workers comprise over 40% of employment estimates for the county,
compared to 16% for the state.
129
Adams County Development Council, “Leading Industries,” (2013), https://www.growadamscounty.com/business-
resources/largest-employers/
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Exhibit 97: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 98: Okanogan County Farmworker Estimates by Employment Type, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 2,178 2,138 2,098 2,058 2,017 1,976 1,936 1,895 1,854 1,814 1,773 1,732
Migrant covered 936 1,492 1,737 2,280 2,457 3,718 5,831 4,011 4,616 3,289 1,938 1,531
Migrant H-2A* 1,844 2,002 3,513 3,565 3,632 3,705 2,003 1,842 145 105 26 0
Total estimated 4,958 5,632 7,348 7,903 8,106 9,399 9,770 7,748 6,615 5,208 3,737 3,263
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
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Income Summary
Okanogan County households have lower incomes than state averages. There is a much higher
percentage of households earning less than $50,000 per year (39% versus 22%) and a lower
percentage of households earning greater than $100,000 per year (15% versus 36%). Based on
ESD income and wages reporting, farmworker households are likely to earn less than $35,000 per
year without additional income contributed from secondary employment or other household
members. This income level is also well below the HUD-area median family income for 2018:
$51,200.
Exhibit 99: State and County Household Income Brackets
Almost 40% of
Okanogan County
households earn less
than $35,000 annually.
Many farmworker
households are likely to
be included in this
group, as the 2018
regional average annual
salary for agricultural
workers was $26,625.
Sources: American Community Survey S1901 5-Yr Estimates, 2014-2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Okanogan
County, at any family size. A household earning the regional average for farmworkers earns 52%
of MFI in Okanogan County, classified as very low-income (30-49% MFI) for three or more
members and low-income (50-79% MFI) for singles or two-person households.
Median family income for Okanogan County (2018 - HUD): $51,200
Average annual income for north central farmworkers (2018):130 $26,625
130
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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Washington Farmworker Housing Needs Assessment // County Profiles
Housing Inventory
There are 23,361 housing units in Okanogan County. A high percentage of these (24%) are
classified as ‘other,’ including mobile homes and other special housing types, compared to a
statewide average of 8%. This high percentage may correlate to the high number of farmworkers
living in temporary housing types. Rental rate reporting in Okanogan County is unreliable due to
the limited stock of multifamily units. Homeownership for average-priced houses results in a
severe cost burden with farmworker wages. Affordable ownership options represent 5% of the
home market for sale.
Exhibit 100: Total Housing Units by Type, Okanogan County 2018
Sources: Washington OFM, 2018; BERK, 2020
In recent years, housing prices in Okanogan County have risen faster than regional farmworker
incomes, with home prices rising 38% versus 23% for wages. See Exhibit 89. This trend has
exacerbated affordability issues. Given the regional average annual wages for farmworkers,
housing is considered affordable at rates of $666 per month or less.
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Exhibit 101: Okanogan County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
There are not enough rental housing units in Okanogan County for inclusion in the Washington
Center for Real Estate Research’s biannual survey.
Home Ownership
The median price of a home in Okanogan County is $213,500.131 For a farmworker household
earning annual average wages, the estimated mortgage payment on this price of a home results
in a severe cost burden. A more affordable home price point is $80,000 or less, assuming the
ability to save for a $16,000 (20%) down payment. Approximately 5% of Okanogan County
housing units are in this price range. This down payment will be out of reach for many families,
and as down payment size decreases, monthly mortgage payments increase.
131
Ibid.
// January 2022 // Washington State Department of Commerce 125
Washington Farmworker Housing Needs Assessment
Skagit County
Key Takeaways
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Introduction
Skagit County is in the western reporting area, situated between Whatcom and Snohomish
counties to the north and south. The Puget Sound coastline forms its western border, and much
of the eastern county is dedicated as public lands. Interstate 5 and Highways 9 and 20 are the
primary routes through the county, connecting many incorporated areas. There are 1,041 farms
and more than 84,000 acres of agricultural lands, most prevalent in western parts of the
county.132
Skagit County is Washington’s ninth most productive county for agriculture, measured by the
value of production, and is ranked eighth for year-round agricultural employment. Major
commodities include flowers, milk and potatoes.133 Other major sectors of employment are
government services, manufacturing and retail trade.134
The county has a population of 129,200, with 41% of its residents in unincorporated areas.135
Mount Vernon is the largest city and county seat, with 28% of the county population.
132
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
133
Washington State Department of Agriculture, 2012.
134
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
135
Office of Financial Management, 2019.
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Washington Farmworker Housing Needs Assessment // County Profiles
Exhibit 102: Skagit County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Skagit County has a population of 129,200, which is a 25% increase from 2000 to 2019. Medium
OFM population projections estimate continued growth patterns to 2040, as shown in Exhibit 103
and Exhibit 104. Demographic projections for Skagit County estimate a significant increase in the
older adult population (aged 65+) with a corresponding decrease in the primary working-age
cohorts (ages 20-64). The primary age group for farmworkers, 20-44, is predicted to decrease
from 30% to 27% as a proportion of the population throughout this period.
Exhibit 103: Skagit County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 1,380 1,693
Percentage 1.3% 1.3%
Sources: Washington OFM, 2019; BERK, 2020
Exhibit 104: Skagit County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 105: Skagit County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Skagit County is 2.6 people.136 Farmworker households are likely
to reflect the general overall trend of household sizes. Almost one-third (32%) of Skagit County
households, or 15,559 households, are renters. Survey data suggests that this rate is higher
among the farmworker population, whose migratory patterns and lower annual earnings (see
Exhibit 111) are more compatible with rental housing. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members. Two- and three-bedroom units represent the majority of rental units
available in Skagit County. However, 23% of households have more than four members. Larger
multifamily rental units with 4+ bedrooms are limited; in Skagit County, only 11% of rental units
are this size, increasing the likelihood of overcrowding and “bunking up” arrangements if
136
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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Washington Farmworker Housing Needs Assessment // County Profiles
households cannot afford to purchase a home.137
Exhibit 106: Skagit County Household Sizes and Rental Housing Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
137
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 107: Skagit County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018
County Economy
In Skagit County, covered farmworkers make up 4% of the labor force and agricultural products
comprise 3% of total GDP. This is a lower amount than many other counties, largely due to the
value of its manufacturing economy.
Skagit County is one of 13 counties in ESD’s western area, where farmworkers earn slightly
higher annual wages than the statewide average.
Top employers include Skagit Regional Health, Draper Valley Farms, Mount Vernon School
District and Skagit Horticulture LLC.138
138
Western Washington University, Center of Economic and Business Research, “Skagit County 2018 Top Employers,” (2018),
https://cbe.wwu.edu/files/2018%20Skagit%20County%20Top%20Employers.pdf
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Exhibit 108: Skagit County GDP, All Industries
Agricultural products
are 3% of Skagit
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Skagit County is home to an estimated 1,737 year-round and covered agricultural
jobs, which almost doubles during the peak months for migrant employment. Compared to
statewide averages, Skagit County applies for very few H-2A visas and employs much higher
percentages of year-round workers. These employees will need to secure housing locally.
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Exhibit 109: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 110: Skagit County Farmworker Estimates by Employment Type, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 1,720 1,723 1,726 1,730 1,733 1,736 1,738 1,741 1,744 1,747 1,750 1,753
Migrant covered 148 426 542 581 674 1,157 1,540 1,454 1,210 987 369 342
Migrant H-2A* 15 15 15 15 15 15 0 0 0 0 0 0
Total estimated 1,883 2,164 2,283 2,326 2,422 2,908 3,278 3,195 2,954 2,734 2,119 2,095
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Skagit County households have lower incomes than state averages. There is both a higher
// January 2022 // Washington State Department of Commerce 134
Washington Farmworker Housing Needs Assessment // County Profiles
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
farmworker households are likely to earn less than $35,000 per year without additional income
from secondary employment or other household members. This income level is also well below
$69,100, the HUD-area median family income for 2018.
Exhibit 111: State and County Household Income Brackets
One quarter of Skagit
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers was
$30,245.
Sources: American Community Survey S1901 5-Yr Estimates, 2010 & 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Skagit County at
any family size. A household earning the regional average for farmworkers earns 44% of MFI in
Skagit County, classified as very low-income (30-49% MFI) for households with more than three
members and low-income (50-79% MFI) for singles or 2-person households.
Median family income (2018 - HUD): $69,100
Average annual income for western area farmworkers (2018):139 $30,245
Housing Inventory
There are 53,974 housing units in Skagit County. A high percentage of these are classified as
single-family (72% compared to 64% statewide), and there are fewer multi-family units (15%
139
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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compared to 28% statewide). This limited stock of multifamily units may contribute to the low
rental vacancy rate (0.5% compared to 4.3% statewide) and relative inability to afford average
rental units. Rent for a typical one-bedroom unit results in a cost burden with farmworker wages,
increasing the challenge for farmworker families with multiple members to identify suitable
housing in the rental market. Farmworker households looking to purchase a home will also
struggle with affordability. Despite the high prevalence of single-family units in Skagit County, few
of these will be available and affordable with farmworker wages, which would be cost-burdened
with an estimated mortgage for an average home. There are few units for sale (4% of the
available stock) in an affordable price range.
Exhibit 112: Total Housing Units by Type, Skagit County 2018
Sources: Washington State OFM, 2018; BERK, 2020
In recent years, housing prices in Skagit County have risen faster than regional farmworker
incomes. Housing prices have increased 75% for ownership, while rent has increased 31%.
Wages have increased 11%. See Exhibit 113. This trend has intensified affordability issues. Given
the regional average annual wages for farmworkers, housing is considered affordable at rates of
$756 per month or less.
// January 2022 // Washington State Department of Commerce 136
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Exhibit 113: Skagit County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Skagit County (2018):140
$930 for 1-bedroom
$992 for 2-bedroom
The rental vacancy rate in Skagit County is 0.5%
Home Ownership
The median price of a home in Skagit County is $362,300.141 For a farmworker household earning
annual average wages, the estimated mortgage payment on this price of a home is a cost
burden. A more affordable home price is $160,000 or less, assuming the ability to save for a
$32,000 (20%) down payment. Approximately 4% of Skagit County housing units are available in
this price range. This down payment will be out of reach for many families, and as down payment
size decreases, monthly mortgage payments increase.
140
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
141
Ibid.
// January 2022 // Washington State Department of Commerce 137
Washington Farmworker Housing Needs Assessment
Walla Walla County
Key Takeaways
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Introduction
Walla Walla County is part of the southeastern reporting area. It is on the southern border of
Washington, bordering Oregon, with the Snake and Columbia Rivers forming the western and
northern borders and Columbia County to the east. Highway 12 and state routes 125 and 124 are
major routes through the county, connecting many incorporated areas. There are 903 farms and
more than 575,000 acres of agricultural lands covering most of the county.142
Walla Walla County is Washington’s fifth most productive county for agriculture, measured by the
value of production, and is ranked sixth for year-round agricultural employment. Major crops
grown include cattle, wheat and apples.143 Other major sectors of employment are government
services, healthcare and social assistance, and retail trade.144
The county has a total population of 62,200.145 The city of Walla Walla is the county seat and
major population hub of the county, home to 55% of the total population.
142
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
143
Washington State Department of Agriculture, 2012.
144
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
145
Office of Financial Management, 2019.
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Exhibit 114: Walla Walla County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Walla Walla County has a population of 62,200, which is a 13% increase from 2000 to 2019.
Medium OFM population projections estimate continued, though slightly decelerated, growth
patterns to 2040, as shown in Exhibit 115 and Exhibit 116. Demographic projections for Walla
Walla County estimate a relatively stable proportion of age cohorts, with a slightly lower
proportion of adults 45-64 offset by proportional increases to older adults (65+) and the 20-44
cohort, which tends to be the prime working-age for farmworkers.
Exhibit 115: Walla Walla County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 369 250
Percentage 0.7% 0.4%
Sources: Washington OFM, 2019; BERK, 2020
Exhibit 116: Walla Walla County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 117: Walla Walla County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Walla Walla County is 2.5 people.146 Farmworker households are
likely to reflect the general overall trend of household sizes. One-third (35%) of Walla Walla County
households, 7,904 households, are renters. Survey data suggests that this rate is higher among
the farmworker population, whose migratory patterns and lower annual earnings (see Exhibit 123)
are more compatible with rental housing. This may result in a mismatch of household size and
housing stock for agricultural workers who rent and live with children or extended family
members, further explored in Exhibit 118. Two- and three-bedroom units represent the majority of
rental units available in Walla Walla County.
146
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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Exhibit 118: Walla Walla Household Sizes and Rental Housing Unit Size
Sources: American Community Survey S2501 5-Yr Estimates, 2010 & 2017; BERK, 2019
Exhibit 119: Walla Walla County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018; BERK, 2020
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County Economy
In Walla Walla County, covered farmworkers make up 8% of the labor force and agricultural
products comprise 16% of total GDP.
Walla Walla County is one of two counties in ESD’s southeastern area. Workers there earn just
less than the statewide average annual farmworker wages.
Top employers for Walla Walla County include Broetje Orchards, Tyson Fresh Meats,
Washington State Penitentiary and Providence St. Mary Medical Center.147
Exhibit 120: Walla Walla County GDP, All Industries, 2001-2018
Agricultural products are
16% of Walla Walla
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Walla Walla County is home to an estimated 2,148 year-round and covered
agricultural jobs, which more than doubles during the peak months for migrant employment in
June through October. Compared to statewide averages, Walla Walla County relies less upon H-
2A workers and more on migrant, covered workers for its labor force.
147
Walla Walla Comprehensive Plan, “Walla Walla County Comprehensive Plan,” (2019), https://www.co.walla-
walla.wa.us/document_center/commdev/planning/comp%20plan/FINAL%20Walla%20Walla%20County%20Comp%20Plan%20(08051
9)%20(complete).pdf
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Exhibit 121: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 122: Walla Walla County Farmworker Estimates, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 2,115 2,121 2,127 2,133 2,139 2,145 2,151 2,157 2,163 2,169 2,176 2,182
Migrant covered 416 644 941 878 1,026 2,274 2,847 2,651 2,540 2,171 1,737 466
Migrant H-2A* 0 0 67 300 361 361 361 128 61 0 0 0
Total estimated 2,531 2,765 3,135 3,311 3,526 4,780 5,359 4,936 4,764 4,340 3,913 2,648
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: ESD, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Walla Walla County households have lower incomes than state averages, with a higher
percentage of households earning less than $50,000 per year and a lower percentage of
households earning greater than $100,000 per year. Based on ESD income and wages reporting,
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Washington Farmworker Housing Needs Assessment // County Profiles
farmworker households are likely to earn less than $35,000 per year without additional income
from secondary employment or other household members. This income level is below the
$65,700 HUD-area median family income.
Exhibit 123: State and County Household Income Brackets
Thirty-one percent of
Walla Walla County
households earn less
than $35,000 annually.
Many farmworker
households are likely to
be included in this
group, as the 2018
regional average annual
salary for agricultural
workers was $30,133.
Sources: American Community Survey S1901 5-Yr Estimates, 2014- 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Walla Walla
County at any family size. A household earning the regional average for farmworkers earns 46%
of MFI in Walla Walla County, classified as very low-income (30-49% MFI) for households with
three or more members and low-income (50-79% MFI) for single or two-person households.
Median family income for Walla Walla County (2018 - HUD): $65,700
Average annual income for southeastern farmworkers (2018):148 $30,133
Housing Inventory
There are 24,849 housing units in Walla Walla County. This includes a mix of single-family,
multifamily, and ‘other’ unit types, such as mobile homes. Given average farmworker wages in the
region, an average one-bedroom rental unit is considered affordable, while the average two-
148
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
// January 2022 // Washington State Department of Commerce 146
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bedroom unit exceeds the affordability threshold. This may result in difficulty for larger household
sizes to identify suitable rental accommodations. Vacancy rates for apartments in Walla Walla
County are low, 0.2% compared to 4.3% statewide, indicating a competitive market for rental
units. Homeownership is largely out of reach with farmworker wages — the estimated mortgage
for average-priced homes results in a severe cost burden for these households. Less than 17% of
homes for sale are priced at a range that might be affordable with farmworker wages.
Exhibit 124: Total Housing Units by Type, Walla Walla County 2018
Sources: Washington State OFM, 2018; BERK, 2020
Given the regional average annual wages for farmworkers, housing is considered affordable at
rates of $753 or less per month. However, housing prices in Walla Walla County have risen faster
than regional farmworker incomes. Average home prices are up 49%, while wages have increased
19%. See Exhibit 125. This trend has intensified affordability issues.
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Exhibit 125: Walla Walla County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Walla Walla County (2018):149
$662 for one-bedrooms
$865 for two-bedrooms
The rental vacancy rate is 0.2%
Home Ownership
The median price of a home in Walla Walla County is $248,300.150 For a farmworker household
earning average annual wages, the estimated mortgage payment on this price of a home results
in a severe cost burden. A more affordable home price on farmworker income is $160,000 or less,
assuming the ability to save for a $32,000 (20%) down payment. Approximately 17% of Walla
Walla County housing units are available in this price range.151 This down payment will be out of
reach for many families, and as down payment size decreases, monthly mortgage payments
increase.
149
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
150
Washington Center for Real Estate Research, Housing Market Summary, Q4 2018.
151
Ibid.
// January 2022 // Washington State Department of Commerce 148
Washington Farmworker Housing Needs Assessment
Whatcom County
Key Takeaways
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Introduction
Whatcom County is part of the western state reporting area. It borders Canada to the north,
Skagit County to the south and Okanogan County to the east. Much of the eastern portion of the
county is reserved as the North Cascades National Park. Interstate 5 and Highways 9, 542, 536,
and 549 are the primary routes through the county, connecting many of the incorporated areas.
There are 1,712 farms and more than 97,000 acres of agricultural lands, most prevalent across
western parts of the county.152
Whatcom County is Washington’s sixth most productive county for agriculture, measured by the
value of production, and is ranked 12th for year-round agricultural employment. Major
commodities include milk, blueberries and raspberries.153 Other major sectors of employment are
government service, healthcare and social services, and retail.154
The county population is 225,300. Bellingham is its largest population home, the county seat and
home to 40% of the population.155 There is also a large rural population, with 44% of residents
living in unincorporated areas of Whatcom County.
152
Washington State Department of Agriculture, “Washington Agriculture Snapshot,” (October 2021).
153
Washington State Department of Agriculture, 2012.
154
Washington State Employment Security Department, Average annual employment by 2-digit NAICS codes, 2018.
155
Office of Financial Management, 2019.
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Exhibit 126: Whatcom County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Whatcom County has experienced high rates of population growth over the past two decades.
Today, it is home to a population of 225,300, which is a 35% increase from 2000 to 2019. Medium
OFM population projections estimate continued, although slightly decelerated, growth patterns to
2040, as shown in Exhibit 139 and Exhibit 140. Demographic projections for Whatcom County
estimate an increased proportion of older adults (65+) as the Baby Boomer generation ages. This
is accompanied by slight proportional decreases across younger age cohorts in the county. The
primary age group for farmworkers, 20-44, is predicted to decrease by 2% as a proportion of the
population throughout this period.
Exhibit 127: Whatcom County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 3,078 2,956
Percentage 1.8% 1.3%
Sources: Washington State Office of Financial Management, 2019; BERK, 2020
Exhibit 128: Whatcom County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; BERK, 2019
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Exhibit 129: Whatcom County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Whatcom County is 2.5 people.156 Farmworker households are
likely to reflect the general overall trend of household sizes. Almost 40% of Whatcom County
households, or 32,293 households, are renters. Survey data suggests that this rate is higher
among the farmworker population, whose migratory patterns and lower annual earnings (see
Exhibit 135) are more compatible with rental housing. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members, further explored in Exhibit 130. Two- and three-bedroom units
represent the majority of rental units available in Whatcom County. However, 20% of the
population has more than four people in the household and may need larger dwellings. Larger
multifamily units with four or more bedrooms are limited in the rental market (in Whatcom
County, only 8% of rental units are this size), increasing the likelihood of overcrowding and
156
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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“bunking up” arrangements if households cannot afford to purchase a home.157
Exhibit 130: Whatcom County Household Size and Rental Unit Sizes
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
157
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 131: Whatcom County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018
County Economy
In Whatcom County, covered farmworkers make up 1% of the labor force, and agricultural
production comprises 3% of total GDP. These are smaller proportions than many counties due to
the overall population size and major institutions such as Western Washington University, which
attracts many individuals and industries to the area.
Whatcom County is one of 13 counties in ESD’s western area, where farmworker earnings are
slightly higher than the statewide annual average.
Top employers for Whatcom County include St. Joseph Hospital, Lummi Nation, Western
Washington University and Bellingham Public Schools.158
158
Western Washington University, Center of Economic and Business Research, “Whatcom County 2018 Top Employers,” (2018),
https://cbe.wwu.edu/files/2018%20Whatcom%20County%20Top%20Employers.pdf
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Exhibit 132: Whatcom County GDP, All Industries
Agricultural products
represent 3% of Whatcom
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Whatcom County is home to an estimated 1,315 year-round and covered agricultural
jobs, which more than triples during the peak months for migrant employment in June through
August. Compared to statewide averages, Whatcom County relies heavily upon migrant, covered
employment with very few H-2A workers. These workers are likely to struggle the most securing
adequate housing.
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Exhibit 133: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 134: Whatcom County Farmworker Estimates, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 1,414 1,398 1,381 1,363 1,345 1,326 1,307 1,288 1,268 1,249 1,229 1,210
Migrant covered 1,310 1,374 1,578 1,428 1,557 2,580 4,087 3,546 1,864 1,724 1,494 1,508
Migrant H-2A* 0 21 21 55 55 55 55 34 34 0 0 0
Total estimated 2,724 2,793 2,980 2,846 2,957 3,961 5,449 4,868 3,166 2,973 2,723 2,718
monthly employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Whatcom County households have lower incomes than state averages, with a higher percentage
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of households earning less than $50,000 per year and a lower percentage of households earning
greater than $100,000 per year. Based on ESD income and wages reporting, farmworker
households are likely to earn less than $35,000 per year without additional income from
secondary employment or other household members. This income level is below the HUD-area
median family income for 2018, $77,500.
Exhibit 135: Whatcom County, Household Income Brackets
Thirty percent of
Whatcom County
households earn less
than $35,000 annually.
Many farmworker
households are likely to
be included in this
group, as the 2018
regional average annual
salary for agricultural
workers was $30,245.
Sources: American Community Survey S1901 5-Yr Estimates, 2014- 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Whatcom
County, at any family size. A household earning the regional average for farmworkers earns 39%
of MFI in Yakima County, classified as very low-income (30-49% MFI) for families with two or
more members and low-income (50-79%) for singles.
Median family income for Whatcom County (2018 - HUD): $77,500
Average annual income for western area farmworkers (2018):159 $30,245
Housing Inventory
There are 97,674 housing units in Whatcom County. Affordability is a major hurdle with
farmworker wages, both for rental and ownership housing. The average one-bedroom apartment
159
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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results in a cost burden with farmworker wages. Farmworkers with larger family sizes may
struggle to secure housing of adequate size and quality. The rental vacancy rate is also low, 0.2%,
indicating a tight and competitive market for rental housing. Homeownership for an average-
priced house would result in a severe cost burden for farmworkers. About 10% of available units
are in a more affordable price range.
Exhibit 136: Total Housing Units by Type, Whatcom County, 2018
Sources: Washington OFM, 2018; BERK, 2020
In recent years, housing prices in Whatcom County have risen faster than regional farmworker
incomes. The median home price is up 55%, while rent has increased 36%. Wages have increased
11%. See Exhibit 137. This trend has exacerbated affordability issues. Given the regional average
annual wages for farmworkers, housing is considered affordable $756 or less per month. Given
the regional average annual wages for farmworkers, housing is considered affordable at rates of
$753 or less per month.
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Exhibit 137: Whatcom County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
Average rents in Whatcom County (2018):160
$939 for one-bedroom
$1,048 for two-bedroom
The rental vacancy rate is 0.2%
Home Ownership
The median price of a home in Whatcom County is $388,700.161 For a farmworker household
earning annual average wages, the estimated mortgage payment on this price of a home results
in a severe cost burden (82% of monthly income). A more affordable home price is $160,000 or
less, assuming the ability to save for a $32,000 (20%) down payment. Approximately 10% of
Whatcom County housing units are available in this price range. This down payment will be out of
reach for many families, however, and as down payment size decreases, monthly mortgage
payments increase.
160
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
161
Ibid.
// January 2022 // Washington State Department of Commerce 160
Washington Farmworker Housing Needs Assessment
Yakima County
Key Takeaways
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Introduction
Yakima County is part of the south-central state reporting area. It is very nearly in the center of
the state, bordering Skamania, Lewis and Pierce counties to the west, Kittitas County to the north,
Grant and Benton counties to the east and Klickitat County to the south. Yakima County borders
or includes federal land (Mount Rainier National Park) to the northwest and the Columbia River to
the east. The southern half of the county is Yakama Nation lands.162 There are 2,952 farms, most
prevalent in central and eastern parts of the county.163
Yakima County is Washington’s top agricultural producer and employer. Major crops grown
include apples, milk and hay. Other major sectors of employment are government services,
healthcare and social assistance, and retail trade.
The City of Yakima is the county seat and home to 37% of the county’s population.164
162
Confederated Tribes and Bands of the Yakama Nation. http://www.yakamanation.org/treaty.php
163
Washington State Department of Agriculture, 2017.
164
Office of Financial Management, 2019.
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Exhibit 138: Yakima County Agricultural Land and Farmworker Housing Units, 2019
Sources: Housing Data from Washington DOH, 2019; Washington State Housing Finance Commission, 2019; Office of Rural and
Farmworker Housing, 2019; WSDA, 2019
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Population Summary
Yakima County has a population of 255,950, which is a 15% increase since 2000. Medium OFM
population projections estimate accelerated growth patterns to 2040, as shown in Exhibit 139
and Exhibit 140. Growth projections for Yakima County estimate an increased proportion of
adults over 65 and a decreased proportion of children under the age of four over the 2020-2040
period. This relates to longer life expectancies and lower birth rates. A higher proportion of the
population at or above retirement age may represent higher demand for healthcare services,
mobility assistance and ADA-compliant home design features. The primary age group for
farmworkers, 20-44, is predicted to remain relatively stable as a proportion of the population
throughout this period.
Exhibit 139: Yakima County Historical and Projected Growth Rates, 2000-2040
Average Annual Growth 2000-2019 2019-2040 Projected
Individuals 1,756 2,459
Percentage 0.8% 1.0%
Sources: Washington State Office of Financial Management, 2019; BERK, 2020
Exhibit 140: Yakima County Historical and Projected Population, 2000-2040
Sources: Washington OFM, 2019; Yakima County Horizon 2040 Comprehensive Plan; BERK, 2019
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Exhibit 141: Yakima County Population by Age Cohort, Historical and Projected
Sources: Washington OFM, 2018; BERK, 2019
Household Population
The average household size in Yakima County is 3.0 people.165 Farmworker households are likely
to reflect the general overall trend of household sizes in Yakima County. Almost 40% of Yakima
County households, or 30,299 households, are renters. Survey data suggests that this rate is
higher among the farmworker population, whose migratory patterns and lower annual earnings
(see Exhibit 111) are more compatible with rental housing. This may result in a mismatch of
household size and housing stock for agricultural workers who rent and live with children or
extended family members, further explored in Exhibit 22. One and two-person households may
desire smaller housing types such as one- and two-bedroom apartments, representing most
rental units available in Yakima County. However, 32% of households have four or more people,
who may need larger dwellings. Larger multifamily units with more than four bedrooms are
limited in the rental market (in Yakima County, only 9% of rental units are this size), increasing the
likelihood of overcrowding and “bunking up” arrangements if households cannot afford to
165
American Community Survey, Table DP02 5-year Estimates, 2014-2018.
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purchase a home.166
Exhibit 142: Yakima County Household Size and Number of Bedrooms in Rental Housing Units
Sources: American Community Survey S2501 and S2504 5-Yr Estimates, 2014-2018; BERK, 2020
166
American Community Survey, Table S2504 5-year Estimates, 2014-2018.
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Exhibit 143: Yakima County Housing Tenure by Household, 2018
Sources: American Community Survey Table S2501 5-year Estimates, 2014-2018
County Economy
Agriculture is a major component of Yakima County’s economy. Yakima County is Washington’s
top county for agriculture, measured by the value of annual production, number of employees and
number of farms. Apples, milk and hay are three of the largest commodities farmed in the
county.167 Agriculture accounts for 20% of the county’s GDP and 17% of its labor force.168
Yakima County is one of two counties in ESD’s south-central area, with the highest estimate
for average annual farmworker wages.
Top employers include Virginia Mason Memorial Hospital, Yakima School District, Walmart,
Borton Fruit and Yakima County government.169
167
Washington State Department of Agriculture, 2012.
168
Agricultural Product Value from USDA, 2017; GDP from U.S. Bureau of Economic Analysis (BEA), 2017; Labor Force figures from
Washington ESD, 2018.
169
Yakima County Horizon 2040 Comprehensive Plan.
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Exhibit 144: Yakima County GDP, All Industries
Agricultural products
are 20% of Yakima
County’s total GDP
Sources: U.S. Bureau of Economic Analysis (BEA) SAGDP9N series, 2001-2018; BERK, 2020
Farmworker Population
As of 2018, Yakima County is home to an estimated 20,630 year-round and covered agricultural
jobs, which more than doubles during the peak months for migrant employment. Compared to
statewide averages, Yakima County relies more upon covered migrant employment rather than H-
2A workers. This is likely due to its increased agricultural production. Given the additional housing
challenges faced by migrant workers, this indicates a need for housing assistance among the
county’s agricultural labor force.
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Exhibit 145: 2018 Agricultural Employment by Type, County versus State Averages
Sources: Washington ESD, 2019; U.S. Department of Labor, 2020; BERK, 2020
Exhibit 146: Yakima County Farmworker Estimates by Employment Type, 2018
Employment Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Type
Year-round 20,318 20,374 20,431 20,488 20,545 20,602 20,658 20,715 20,772 20,829 20,886 20,943
covered
Migrant 2,858 5,910 7,700 10,654 10,519 22,282 20,593 17,932 19,032 15,527 3,496 2,434
covered
Migrant H-2A* 869 1,026 1,452 1,750 1,790 2,453 2,075 1,675 1,009 474 30 0
Total monthly 24,045 27,310 29,583 32,892 32,854 45,337 43,326 40,322 40,813 36,830 24,412 23,377
employment
*Statewide requests provided by ESD and discounted 75% to reflect actual versus requested workers; County estimates based on
Department of Labor percentages of worker requests by county
Sources: Employment Security Department, Employment Connections Division - Foreign Labor Certification Program; BERK, 2020
Income Summary
Yakima County households have lower incomes than state averages, with a higher percentage of
households earning less than $50,000 per year and a lower percentage of households earning
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greater than $100,000 per year. Based on ESD income and wages reporting, farmworker
households are likely to earn less than $35,000 per year without additional income from
secondary employment or other household members. This income level is below the HUD-area
median family income for 2018: $54,700.
Exhibit 147: Yakima County, Household Income Brackets
One third of Yakima
County households earn
less than $35,000
annually. Many
farmworker households
are likely to be included
in this group, as the
2018 regional average
annual salary for
agricultural workers is
estimated at $31,719.
Sources: American Community Survey S1901 5-Yr Estimates, 2014- 2018; BERK, 2020
Estimated wages for farmworkers are below the median family income (MFI) for Yakima County
at any family size. A single-person household earning the regional farmworker average wage
earns 58% of MFI in Yakima County and is classified as low-income (50-79% MFI).
Median family income for Yakima County (2018 - HUD): $54,700
Average annual income for south-central farmworkers (2018):170 $31,719
Housing Inventory
There are 89,815 housing units in Yakima County. Fifteen percent of these are classified as
‘other,’ including mobile homes and other special housing types, compared to a statewide
average of 8%. This high percentage may correlate to the high number of farmworkers living in
temporary housing types.
170
2018 average wages projected based on average annual growth rates over 5 years, as reported by ESD, 2019.
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Exhibit 148: Total Housing Units by Type, Yakima County 2018
Sources: Washington OFM, 2018; BERK, 2020
In recent years, housing prices in Yakima County have risen faster than regional farmworker
incomes. Median home prices have risen 47%, while rent has increased 34%. Wages have
increased 21%. See Exhibit 149. This trend has intensified affordability issues. Given the regional
average annual wages for farmworkers, housing is considered affordable at rates of $793 per
month or less.
Exhibit 149: Yakima County, Percent Change for Farmworker Wages versus Housing Prices, 2012-2018
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Sources: Washington ESD, 2020; Washington Center for Real Estate Research, 2012 & 2018; BERK, 2021
Rental Housing
There are an estimated 30,299 renter-occupied housing units in Yakima County171 and 948 units
specifically available to farmworker households. The average rent in Yakima County is $660 per
month for one-bedroom units and $830 per month for two-bedroom units.172 These units are
considered affordable for households earning $26,400 and $33,200, respectively. The rental
vacancy rate is 1.4%, indicating a lack of available rental units. This suggests that while some
rental units are affordable for farmworker wages, competition is tight. Renters who can prove
higher earnings or who are willing to sign longer-term leases may be more attractive to property
owners.
Exhibit 150: Monthly Rent as a Percentage of Average Farmworker Wages, Yakima County, 2018
Unit Size Average Monthly Rent Percentage of Average
Farmworker Monthly Wages
1-bedroom $660 25%
2-bedroom $830 31%
Sources: Washington Center for Real Estate Research, Fall 2018 Apartment Market Survey; ESD, 2019; BERK, 2020
Farmworker wages and incomes are low, but the reported rental rates for Yakima County indicate
that market-rate one-bedroom and two-bedroom apartments may be affordable for workers
earning average annual wages. Two-bedroom apartments just cross the threshold of cost burden
for these workers. Larger units that accommodate larger household sizes are likely unaffordable
for farmworker households. Competition for rental units of any size may prevent lower-earning
households or migratory workers from securing stable housing.
Home Ownership
The median price of a home in Yakima County is $227,800.173 For a farmworker household
earning annual average wages, the estimated mortgage payment on this price of a home results
in a severe cost burden. A more affordable home price is $160,000 or less, assuming the ability to
171
American Community Survey, S2501 5-Yr Estimates, 2014-2018.
172
Washington Center for Real Estate Research, Apartment Market Survey, Fall 2018.
173
Ibid.
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Washington Farmworker Housing Needs Assessment // County Profiles
pay a $32,000 (20%) down payment. About 15% of Yakima County housing units are available in
this price range. This down payment will be out of reach for many families, and as down payment
size decreases, monthly mortgage payments increase.
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Washington Farmworker Housing Needs Assessment
Stakeholder Engagement
Farmworkers
Farmworker Tribunal
BERK attended the seventh Annual Farmworker Tribunal in Olympia on Feb. 10, 2020, during
which farmworkers delivered testimony to tribunal judges in culturally appropriate ways, such as
through stories and in their preferred languages. Farmworkers described issues including
generational poverty, fear of employer retaliation, health concerns about pesticides and housing
locations, and concerns around schooling and the care of children. These issues and lived
experience intersect with housing needs and informed this study's policy recommendations and
gap analysis.
COVID-19 Farmworker Study (COFS)
COFS is a collaborative tristate research project coordinated by the California Institute for Rural
Studies (CIRS) to provide a rapid response analysis of the impact of COVID-19 on farmworker
communities along the West Coast. The Washington COFS data collection team collected
surveys of farmworkers throughout the state in the fall of 2020. Promotoras (community health
workers) surveyed farmworker participants from farmworker-serving community-based
organizations that are part of the project’s data team.
Housing Providers and Other Stakeholders174
Stakeholders from nonprofit organizations and housing authorities that build, own and operate
farmworker housing provided input on the major needs for permanent and temporary farmworker
housing. Stakeholders cited the following items as major areas of concern in farmworker
housing:
Housing affordability. Statewide housing affordability issues are affecting the ability of
174
Sources: Interview with Lowel J. Krueger, Executive Director, Yakima Housing Authority, (Feb. 27, 2020); Interview with Dan Fazio,
Executive Director, Wafla, (Feb. 27, 2020; Interview with Melony Rosen, Executive Director, Yakima Habitat for Humanity, (March 10,
2020); Interview with Bryan Ketcham, Director, Catholic Charities Housing Services, (March ,17 2020).
DRAFT // January 2022 // Washington State Department of Commerce 175
Washington Farmworker Housing Needs Assessment
farmworkers to secure rental housing. Since farmworkers tend to have lower incomes, issues
of low rental housing inventory and low vacancy rates contribute to farmworkers struggling to
find rental properties and facing higher costs when they find units.
Barriers to homeownership. More than half of farmworkers in Washington indicate that they
would like to own a home but face barriers.175 Staff at one nonprofit focused on increasing
access to homeownership highlighted the low inventory of lower-priced homes in the
Washington real estate market. Very few homes affordable to first-time buyers come onto the
market, and those that do sell quickly. Farmworkers are also more likely to be immigrants and
speak a language other than English, which can disadvantage them in the home buying
process. One stakeholder said that some factors in the home buying process in the U.S., such
as the importance of a credit score and how to build credit, might not be familiar to some
farmworkers. This compounds with language barriers to make the process more challenging.
Lack of temporary housing options. Staff at an organization that develops farmworker
housing talked about the challenges around temporary housing development. Private
developers rarely build temporary housing for migrant workers because such developments
are not a good investment — migrant workers typically earn less than year-round workers and
have less income for housing.
Poor conditions in temporary housing facilities. Several stakeholders noted concerns with
conditions in some existing temporary housing facilities. For example, they described
overcrowding, pests and fire hazards as challenges in tents, shared homes and other
makeshift congregate housing.
State and local regulations that impede the development of housing. One stakeholder shared
that current state regulations make it challenging for nonprofits to operate temporary housing
— some programs provide funding specifically for farmworker housing, but nonprofits are
challenged when some farmworkers take on non-farm work in certain seasons of the year.
Another regulation requires facility managers to reserve a certain percentage of beds for walk-
ins, but there is no agreement about who qualifies as a walk-in.
Local regulations can make developing permanent farmworker housing challenging, as well —
it is easier to construct affordable housing as multi-family units, but local jurisdictions,
particularly in rural areas, may not have zoning that allows for this construction.
175
Washington State Farmworker Housing Trust, “2006 Farmworkers Survey” (May 2007).
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Washington Farmworker Housing Needs Assessment
Employers
Employers of farmworkers described current trends in farmworker employment and housing and
the current challenges in securing adequate housing.176 Trends they described include:
Increased usage of H-2A visa workers and challenges with the program design. Changes in
immigration policy and enforcement have contributed to shortages of migrant workers.
Several employers noted an increase in the hiring of H-2A visa workers in response. Several
growers stated that they would like to hire H-2A visa workers because of the stability that
such workers provide but were unable to do so because of the higher associated costs,
including housing. Employers must provide housing to H-2A visa workers at cost, so building
and operating housing becomes part of the expense of hiring H-2A workers.
Increased costs of providing housing due to state and federal regulations. One stakeholder
cited changing state and federal standards for farmworker housing as contributing to the
decline of employer-provided housing. Though the intention was to improve housing
conditions, the H-2A regulations combined with local land use and building regulations made
it more costly for farmers to provide housing for their workers, and many stopped doing so
altogether. Several employers cited specific building regulations — such as minimum window
size and the required usage of screen doors — and Growth Management Act limitations on
the location of urban and rural development and the cost to address rural water supplies as
contributors to higher costs. In addition, because migrant workers provide labor to employers
for limited periods, housing may sit empty for most of the year.
Farmworkers traveling longer distances to go to work. One employer in Western Washington
explained that the high costs of providing on-farm housing and the lack of private market
housing near farms mean that many workers live far from where they work and travel long
distances to work, with commutes that sometimes take several hours per day. The employer
shared that they would like to provide on-site housing to attract workers and allow for a more
stable workforce, but the costs to build and maintain that housing was prohibitive.
176
Sources: Interview with April Clayton, Red Apple Farms, (June 22, 2020); Interview with Jon Devaney, Washington State Tree Fruit
Association, (June 23, 2020); Interview with Rosella Mosby, Mosby Farms, (July 7, 2020); Interview with Josh Koempel, Rock Island
Farm, (July, 9 2020); Interview with Dan Fazio, Executive Director, Wafla, (Feb. 27, 2020).
// January 2022 // Washington State Department of Commerce 177
Washington Farmworker Housing Needs Assessment
Summary & Recommendations
Housing Access and Affordability
Across the state, farmworkers struggle to access and afford housing that suits the unique needs
of their work.
Statewide, an estimated 48,500 farmworkers must seek permanent housing in the private market,
and up to 21,000 migrant farmworkers must secure temporary beds in the private market. The
largest gaps between available farmworker housing units and need are in Chelan and Yakima
counties. Between the two counties, an estimated 20,650 farmworkers seek permanent housing
and 12,000 must find temporary housing on the private market. Benton and Franklin counties also
have notably low proportions of provided housing units compared to worker counts.
Exhibit 151: Housing Availability Highlights
County Ratio of Year-round Year-round Ratio of Migratory Migratory
Workers to Farmworkers Workers to Farmworkers
Farmworker-specific Looking in the Local Farmworker-specific Looking in the Local
Housing Units Market Housing Units Market
Adams 8% 990 45% 712
Benton 3% 2,754 14% 2,716
Chelan 3% 5,222 35% 3,305
Douglas 2% 1,202 97% 70
Franklin 6% 2,204 14% 2,936
Grant 11% 3,889 89% 437
Okanogan 5% 1,475 93% 170
Skagit 17% 1,138 66% 238
Walla Walla 3% 1,646 0% 1,313
Whatcom 8% 960 65% 602
Yakima 6% 15,425 22% 8,620
Sources: Covered employment estimates from Washington ESD, 2018. Farmworker housing counts from Washington State Housing
Finance Commission, 2019; Department of Health, 2019; and Office of Rural and Farmworker Housing, 2020. BERK, 2020.
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Washington Farmworker Housing Needs Assessment
Challenges for farmworkers seeking rental housing on the private market include lack of options
due to low rental inventory, lack of units affordable to individuals earning typical farmworker
wages, and lack of rental units large enough to accommodate farmworker households.
Farmworker wages are lower than median incomes across Washington. Lack of affordable
housing for farmworkers is most acute in Chelan and Douglas counties, where a two-bedroom
apartment costs two-thirds of the average farmworker's wages. See Exhibit 152.
Exhibit 152: Housing Affordability Highlights
County Farmworker Wages as a Percentage of HUD- Percent of Income Spent to Afford Average
area MFI Apartment*
Adams 57% n/a
Benton 41% 36%
Chelan 40% 66%
Douglas 40% 66%
Franklin 41% 36%
Grant 50% n/a
Okanogan 52% n/a
Skagit 44% 39%
Walla Walla 46% 34%
Whatcom 39% 42%
Yakima 58% 31%
*Based on average monthly wages by region and countywide average rental rates for a 2-bedroom apartment. HUD considers
households cost-burdened when 30% or more of income goes toward housing.
Sources: Covered employment wage estimates from Washington ESD, 2018. HUD-area MFI estimates as provided by Washington
State Housing Finance Commission, 2020. Average rents and vacancy rates as reported by Washington Center for Real
Estate Research, 2018. BERK, 2020.
The greatest need for farmworker housing is temporary housing for non-H-2A migrant workers.
These workers need flexible, temporary housing, which is not available in the private market; thus,
they are more likely to live in unsheltered, unsafe or unhealthy housing situations.
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Washington Farmworker Housing Needs Assessment
Farmworker Preferences and Housing Situations
Farmworkers have a variety of housing preferences. Year-round workers who live in and around
agricultural areas often prefer to be in a central location and look for work on different farms.
Many of these workers have families and would prefer to be close to amenities such as schools,
churches and other employers. Temporary migrant workers often prefer a shorter commute and
housing close to their worksites. While housing conditions and preferences vary among
farmworkers, studies have shown that a significant proportion of farmworkers report problems
with their housing conditions. This reflects the tradeoffs farmworkers makers when faced with a
lack of affordable housing. According to a 2008 survey of farmworkers,177 more than one-third
(36%) cited problems with their current housing conditions. Thirty-two percent reported living in
overcrowded units, 27% reported living in units with peeling or chipping paint, 23% reported living
in units with mice, and 18% reported living in units with one or more appliances that did not work.
In 2020, many farmworkers lived far from their place of work, in areas with more affordable
housing, which resulted in long commutes.
Housing situations also vary by duration of work. There are substantial differences between the
housing situations for local and non-local, non-H-2A migrant workers, many of whom are
undocumented immigrants from Mexico and other countries. These migrant workers are more
likely to be in substandard housing than local workers or H-2A workers. Migrant workers are also
more likely to lack indoor shelter and to experience homelessness. According to a 2019 report, 6%
of farmworkers reported living outdoors, such as in a shed or car. For non-local migrant workers,
this proportion nearly tripled to 15%.
Federal law requires employers of H-2A visa workers to provide housing for their H-2A employees
at no cost.178 This includes the option to provide housing directly or to secure and pay for the use
of public housing units. However, H-2A workers represent only about 12% of all farmworkers in
Washington (see Statewide Demographic Information on Farmworkers on pages 21-22), so this
does not apply to most of the state’s farmworkers.
Challenges in Accessing Housing
Given their demographics and the nature of their work, farmworkers face unique challenges in
accessing housing:
177
Washington State Farmworker Housing Trust, “A Sustainable Bounty: Investing in our Agricultural Future,” (2008).
178
20 CFR 655.122(d)(1)
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Washington Farmworker Housing Needs Assessment
Wages for farmworkers are low. Across the state, farmworker wages range from 40-60% of
HUD-area median family income estimates. Thus, wages are a limiting factor for farmworkers
looking to access market-rate housing or become a homeowner.
Many farmworkers face barriers, including inadequate funds for deposits, discrimination and
inappropriately long leases for seasonal work. There are additional challenges in acquiring a
rental lease for the high proportion of farmworkers who are not English proficient.
Recommendations
Funding Recommendations
Evaluate increasing or restructuring funding for farmworker housing through the state
Housing Trust Fund (HTF). The HTF is a key resource for farmworker housing funding.
Though the level of funding for farmworker housing has remained largely the same since
1999, the total number of units and beds produced with those funds is lower in the last six
years than in the program’s first six years. From 1999-2004, the program supported the
production of 1,015 permanent units and 4,054 seasonal beds. From 2014-2019, the HTF
supported the production of 623 permanent units and 1,086 seasonal beds.
This reduction is likely due to:
A focus on permanent housing, which is more expensive to produce per unit than
temporary housing is per bed. Thirty-six percent of the production in 2014-2019 was
permanent units, compared with 20% in 1999-2004.
Rising construction costs, which could mean developers produce less housing stock at
the same costs.
Given the scale of the need, this report recommends evaluating additional funding allocations
to the HTF based on the best available data on housing needs.
Establish a dedicated funding source for temporary housing. Across the state, the housing
needs of migrant workers for temporary housing are high. There are also several challenges
unique to temporary housing development. For example, temporary housing has the same
operating costs as permanent housing but lower cash flow given the lack of year-round
revenue. Due to higher operating costs and lower rents that can be achieved with temporary
units, the private market is unlikely to build temporary housing for migrant workers. Shortages
// January 2022 // Washington State Department of Commerce 181
Washington Farmworker Housing Needs Assessment
in temporary housing make migrant workers more likely to live unsheltered or in unsafe or
unhealthy housing situations. Establishing a dedicated funding source for temporary housing
with a higher portion of funds for maintenance and operations can alleviate housing
challenges in local housing markets.
Implement the Joint Legislative Audit and Review Committee (JLARC) recommendation to
retool the tax exemption for farmworker housing. Many housing developers, including private
developers, nonprofits and public agencies, build housing that serves multiple populations.
For example, housing providers may build homes for agricultural workers, people with
disabilities, and large families. By offering housing for multiple types of residents, housing
providers increase their financial inflow by reducing the likelihood that units will sit vacant
because they cannot find a tenant in the target group. Community support is also typically
higher for housing developments that serve a broader range of groups than for
developments targeted specifically for lower-income or higher-need households.
The current sales tax exemption's requirements for occupancy differ from other common
housing funding sources. The exemption is not utilized to the extent it should because
occupancy requirements differ from other funding sources.179 In addition, "agricultural
employee" is defined differently for the exemption and other funding sources. This can limit
housing providers from combining multiple funding sources and using the exemption.
Aligning the definitions and occupancy requirements with other housing fund sources can
encourage the use of the exemption.
In addition, the Department of Revenue (DOR) has a policy that restricts the use of seasonal
farmworker housing developed using the exemption for other purposes at any time during
the year. Any use other than farmworker housing during the winter in the first five years
would make a property ineligible for the exemption.180 This creates a situation where housing
providers restrict farmworker beneficiaries from taking on non-farm work in certain seasons.
Another regulation requires facility managers to reserve 25% of beds for walk-ins, but there is
no clarity about who qualifies as a walk-in.
Refining these regulations to clarify requirements would give housing developers, nonprofits
and public agencies greater confidence that they can meet the funding requirements. When
179
See: Washington State Joint Legislative Audit and Review Committee, “2020 Tax Preference Performance Reviews: Farmworker
Housing,” (December 2020), https://leg.wa.gov/jlarc/taxReports/2020/farmhousing/f_final/default.html
180
Ibid.
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Washington Farmworker Housing Needs Assessment
regulations are unclear, developers may choose not to build housing, and nonprofit and
public agencies may choose not to operate housing facilities out of fear of losing funding.
Advocate changes to the USDA that make it easier to combine Rural Development (RD)
funding with other sources. USDA RD funds are a key source for funding farmworker housing
development in rural communities. However, this funding requires strict financing and
operating conditions, making it challenging to combine funds. For example, for the loan
program for constructing on-farm housing, applicants must be “unable to obtain credit from
any other source” – which may preclude projects where the developer/farm owner uses
loaned funds from a community development bank or other similar institution. Also, as noted
above, many housing providers combine funds to increase financial stability, and USDA RD
funding conditions do not align with current housing practices or development costs.
Evaluate the Housing Trust Fund allocation of funding to rural versus urban areas and
consider offering support to rural communities in applying for funding. Rural communities
have limited local funding options in rural areas than in urban areas. For example, only areas
within urban centers or unincorporated UGAs designated as residential target areas are
eligible to implement a Multi-family Tax Exemption (MFTE) program to support the
construction of affordable housing, meaning that some rural areas do not have access to this
tool.181 Rural communities also have less housing overall, so farmworkers may face
homelessness or live in overcrowded housing.
The current HTF legislation182 establishes a statutory target that at least 30% of the funds in
any given funding cycle must benefit projects in rural areas of the state. Evaluating funding
allocations to ensure this target is met ensures continued housing support for rural areas.
This could include providing a funding source for technical assistance to help rural
communities submit funding applications.
181
RCW 84.14.040
182
RCW 43.185.050
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Washington Farmworker Housing Needs Assessment
Housing Development Recommendations
Encourage cities to increase zoning and infrastructure
“Some people say
investments for multi-family housing within urban growth areas. farmworkers should be out on
Local regulations and discretionary processes tied to approval a farm somewhere. Others say
for farmworker housing may create challenges for housing you shouldn’t build a three-
story building on farmland.
development for farmworkers. This is because many Somewhere else is always the
communities lack affordable housing for low-income residents better place for farmworker
or those experiencing homelessness. Farmworkers, especially housing.”
seasonal workers, are viewed as competition for limited -Interviewee
available units. Some residents may also harbor negative
perceptions about farmworkers and farmworker communities.
Requirements for discretionary processes, such as design review for farmworker housing
development, can create long, unpredictable processes for developers and potentially create
a platform that channels negative community input. This adds costs and risks to
development. The high cost of infrastructure investments, especially connections to public
water and sewer, is another barrier to housing developments for farmworkers. Encouraging
cities to increase zoning for multifamily housing in urban areas and strategic investments in
infrastructure would support additional housing development and make it easier to build
affordable housing for farmworkers.
Remove barriers to the development of rental housing. Farmworkers seeking rental housing
on the private market share major challenges with other people with similar incomes. This
includes an overall shortage of units affordable to individuals earning 40-60% MFI and a
shortage of rental homes overall, especially units large enough to accommodate families.
Encouraging cities to identify and remove barriers to rental housing development is an
important strategy to address housing needs for farmworkers.
Evaluate eligibility requirements for subsidized housing and/or prioritization of subsidized
housing funds. Across the state, we find that farmworker wages range from 40-60% of HUD-
area MFI estimates. Many workers, both year-round and migratory, struggle to compete in
local housing markets with these wages. On the other hand, many farmworkers are ineligible
for priority for subsidized housing because the area median incomes in rural counties are low
enough that they earn more than the 30% MFI threshold for priority on the waiting list. Given
that housing supply overall is low in many communities, with vacancy rates below 5%, there is
very little market-rate housing available to households that earn between 40%-60% MFI.
// January 2022 // Washington State Department of Commerce 184
Washington Farmworker Housing Needs Assessment
Program Recommendations
Establish housing navigators for farmworkers. Farmworkers face unique barriers to finding
suitable housing. Housing navigators can help address these barriers by providing services
during the preparation and early search phases customized to meet families’ needs, including
helping households know fair housing rights and providing assistance in multiple languages.
Housing navigators can also assist with landlord-facing services, such as submitting rental
applications and communicating with landlords. They can also support families in housing
search and lease-up processes.
Other Recommendations
Evaluate reforms to the H-2A guest worker program. Overall, agricultural employment has
grown from 2008 to 2018. Year-round employment has remained relatively stable as a
proportion of the workforce, while domestic migrant employment has decreased in its share
of total farmworker employment from 56% to 46%. Foreign workers through the H-2A visa
program have increased to fill this gap. As shown in Exhibit 9, H-2A workers have increased
from 2% to 12% over the same period – a total increase of almost 17,000 workers. While the
use of the H-2A program has ballooned across the state, both growers and farmworkers
described the need for program reform. From the farmworker's perspective, working
conditions are often poor or unsafe. While housing is provided and is based on temporary
housing standards, its quality varies. Growers value the access to a stable workforce that the
H-2A program provides but see room for improvement. It is currently cumbersome, time-
consuming, expensive and inflexible in its design.
Specific ideas for reform to the application process include:
Streamline the application process. Like other visa programs, the H-2A visa program is
intended to provide employers with temporary non-U.S. workers only if an employer can
prove they were unsuccessful at hiring American workers. This requirement creates a
time-consuming labor search process to demonstrate the shortfall of domestic workers
so employers can be eligible.
Costs. Many growers referenced the need for more coordination and consistency among
agencies providing funding for farmworker housing (such as HUD, USDA, and Commerce)
to avoid being subjected to multiple inconsistent requirements. According to the American
Farm Bureau, using the H-2A program has also increased federal audits among growers,
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Washington Farmworker Housing Needs Assessment
adding challenges and costs, including time or labor to support the audit. Another reason
for added costs is lack of flexibility based on the duration of work. The program currently
defines seasonality as 10 months or fewer (except for work with livestock), but the costs
associated with the program are the same whether growers hire workers for two weeks or
nine months. Growers must also renew contracts if the growing season lengthens and
they need labor for longer than anticipated.
Advocate for immigration reform. According to anecdotal data, some farmworkers lack
authorized immigration status. Undocumented immigrant farmworkers face many
challenges. They are often unable to advocate for better housing or conditions for fear of
being penalized for their immigration status. While state and local government assistance has
been available to farmworkers during the COVID-19 pandemic, undocumented workers are
ineligible for federal public benefits such as extra unemployment insurance or stimulus
checks. Advocating for comprehensive immigration reform can address the needs of these
vulnerable farmworkers.
// January 2022 // Washington State Department of Commerce 186
Washington Farmworker Housing Needs Assessment
Bibliography
Abbett, J. (2005). Farmworker Housing in Washington State: Safe, Decent and Affordable.
Housing Division. Olympia, WA: Washington State Department of Community, Trade and
Economic Development. Retrieved from http://lib.ncfh.org/pdfs/7077.pdf
Avilés, G., Lee, Ph.D., D., Roubinchtein, Ph.D., A., & Zadworny, Z. (2018). 2016 Agricultural
Workforce Report. Workforce Information and Technology Services. Washington State
Employment Security Department. Retrieved from
https://esdorchardstorage.blob.core.windows.net/esdwa/Default/ESDWAGOV/labor-
market-info/Libraries/Industry-reports/Annual-Ag-
Report/2016%20Agricultural%20Workforce%20Report.pdf
Avilés, G., Moll, J., Paterson, T., & Zadworny, Z. (2019). 2017 Agricultural Workforce Report. Labor
Market and Economic Analysis. Washington State Employment Security Department.
Retrieved from
https://esdorchardstorage.blob.core.windows.net/esdwa/Default/ESDWAGOV/labor-
market-info/Libraries/Industry-reports/Annual-Ag-
Report/2017%20Agricultural%20Workforce%20Report.pdf
Washington State Farmworker Housing Trust. (2008). A Sustainable Bounty: Investing in our
Agricultural Future. Seattle: Washington State Farmworker Housing Trust. Retrieved from
http://lib.ncfh.org/pdfs/7482.pdf
// January 2022 // Washington State Department of Commerce 187
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