Affordable Housing Progress Update — Report to the Legislature (February 2025)
- Issuer
- Congressional materials
- Document type
- Annual Report
Summary
The 2025 Affordable Housing Progress Update is a report to the Legislature dated February 2025 from Washington's Affordable Housing Advisory Board (AHAB), prepared with the Washington State Department of Commerce and BERK Consulting under RCW 43.185B.040. It measures progress toward five housing goals, from production and market affordability to housing insecurity and racial disparities, using data through 2024. The report states that housing permits declined in 2023 and 2024 and that the state faces a gap of more than 230,000 affordable units for renter households earning less than 50% of the area median income. It also summarizes the 2024 legislative session, including $183.6 million in added capital funding, and presents AHAB's 2025 legislative agenda. An appendix lists board membership as of December 2024.
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Cite this document
“Affordable Housing Progress Update — Report to the Legislature (February 2025).”
Original at app.leg.wa.gov. Archived at Pandemic Darlings, https://pandemicdarlings.com/source-documents/2025-ahab-2025-annual-progress-report-final-dd6579b0-0a0c-4ce7-8b24-93f7ec0/
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2025
Affordable Housing Progress
Update
Pursuant to RCW 43.185B.040
February 2025
Report to the Legislature
AFFORDABLE HOUSING
ADVISORY BOARD Director Joe Nguyễn
v3.5.1
Acknowledgments
Washington State Department of Commerce
Tedd Kelleher, Interim Assistant Director
Housing Division
Augustine Sughrua, Housing Policy Senior
Coordinator
Housing Division
BERK Consulting
Kevin Ramsey, PhD, Associate Principal
Josh Linden, Senior Associate
Affordable Housing Advisory Board
Michone Preston, Chair
1011 Plum St. SE
P.O. Box 42525
Olympia, WA 98504-2525
www.commerce.wa.gov
For people with disabilities, this report is available on
request in other formats. To submit a request, please
call 7-1-1 and ask to be connected to 360-725-4000.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 2
Table of contents
Executive summary .........................................................................................................................................4
Introduction ....................................................................................................................................................6
Housing affordability progress indicators .......................................................................................................7
2024 legislative session housing highlights ..................................................................................................25
AHAB's 2025 legislative agenda ....................................................................................................................28
Conclusion ....................................................................................................................................................30
Appendix A: AHAB Board Members...............................................................................................................31
2025 AFFORDABLE HOUSING PROGRESS UPDATE 3
Executive summary
Overview
The Affordable Housing Advisory Board (AHAB) is a 25-member board with 22 members appointed by the
governor. Its role is to “address the state’s need for housing that is affordable to all economic segments and
populations," and it serves as Washington State Department of Commerce’s (Commerce) principal advisory
body on housing and housing-related issues. RCW 43.185B.040 requires AHAB to "submit an annual progress
report to the legislature, detailing the extent to which the state's affordable housing needs were met during the
preceding year and recommendations for meeting those needs." This report constitutes the 2025 update and
covers data available through 2024. No update was completed in 2024; instead, the 2023-2028 Housing
Advisory Plan was submitted in its place.
Key findings
This annual report presents an assessment of progress over the past year. It includes the latest data for
progress indicators to support five goals:
1. Increase housing production and supply:
Total housing production: Annual housing unit permits declined in 2023 and 2024, likely due to rising
construction costs and interest rates. The state is not on pace to meet projected housing needs, with
production rates falling short of targets for both market-rate and affordable units.
Multifamily housing units: Permits for multifamily housing have declined significantly since a 2022 peak,
worsening the shortage for households earning 0-80% of the area median income.
Accessory Dwelling Units (ADUs): Permitting for ADUs has slightly increased since 2023 but at a slower
rate compared to the significant yearly increases seen since 2020. Further growth is expected due to
legislative changes, including Chapter 334, Laws of 2023 (HB 1337), which encourages ADU
development by prohibiting restrictive development regulations, such as minimum lot size requirements,
and requires cities and counties to allow at least two ADUs per residential lot in all urban growth areas.
2. Improve housing affordability:
Homeownership: Affordability for median-income households has declined sharply since 2020 due to
rising home prices and interest rates. However, the rate of affordability decline slowed in 2023 and 2024.
Rental market: Median-income renters maintain stable affordability, but households earning 70% or less
of the area median income still face significant challenges in affording average rental costs.
Low-cost housing affordability for low-income renters: The affordability gap for the lowest-income
renters has widened significantly, as rents for the lowest-cost units have risen far faster than incomes.
3. Increase the supply of affordable housing:
Subsidized Housing: Washington faces a gap of more than 230,000 affordable units for renter
households earning less than 50% of the area median income. The state needs 21,805 new units
annually through 2044 but averaged only 7,000 from 2016 to 2023—far below the goal. Please note: The
2025 AFFORDABLE HOUSING PROGRESS UPDATE 4
data to measure progress toward this goal in 2024 is unavailable for this year's report. We anticipate
this data will be available for annual measurement beginning in the 2026 report.
Middle Housing: Production of moderate-density housing (e.g., duplexes, triplexes) meets less than one-
third of the annual need for households earning 80-120% of the area median income, highlighting the
need for greater support for "missing middle" housing.
4. Reduce rates of housing insecurity:
Housing insecurity and homelessness: Rates of people experiencing homelessness and housing
instability remain at high levels, with trends of unstably housed persons increasing slightly.
Cost-burdened households: Rates of households experiencing cost burden remained relatively stable
from 2022 to 2023, the most recent data available.
5. Reduce racial disparities in housing affordability:
Racial disparities: Racial and ethnic disparities in homeownership rates have shown little change, with
an 18-point gap in ownership between white and non-Hispanic households and households of color.
While the gap between white and non-Hispanic households and Black households remains larger at 35
percentage points, this disparity was slightly narrowed between 2022 and 2023.
2024 Legislative session housing highlights
The 2024 legislative session introduced state initiatives to address Washington’s housing crisis through
increased funding, regulatory updates and equity-focused reforms.
Policy
Legislative changes in 2024 focused on reducing barriers to affordable housing and improving equity. These
included streamlining land-use regulations to promote co-living and middle housing, introducing tax
exemptions and incentives to encourage affordable housing development, and requiring the inclusion of
individuals with housing insecurity and homelessness experience in housing-related advisory groups.
Funding
The 2024 supplemental budget provided additional investments in housing:
Capital budget: $183.6 million in additional funding, bringing the total for the 2023-2025 biennium to
$651.5 million in new funding for affordable housing.
Operating budget: $70.7 million in additional funding, bringing the 2023-2025 biennium total to $1.37
billion.
Affordable Housing Advisory Board legislative agenda
AHAB’s 2025 legislative agenda focuses on stabilizing rental markets, sustaining funding for homeless
services, increasing affordable housing investments, and addressing systemic barriers to housing
development. The board is committed to leading initiatives that ensure housing stability and opportunity for all
Washington residents. The full legislative agenda for the board is included in this report.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 5
Introduction
About this report
Housing affordability is an urgent challenge in Washington. The governor and Legislature have taken
significant actions in recent years to address the state's housing shortage and support the production of
affordable housing units. However, housing development is complex, and it will take time to see the full impact
of these actions.
This annual report is organized into three sections:
1. Housing affordability progress indicators: This section expands upon the work completed in the 2023-
2028 Housing Advisory Plan, which outlined four key goals for improving housing affordability in
Washington. To improve clarity, this report refines the previous goal of "supporting housing affordability" by
dividing it into two distinct objectives: one focused on market-rate housing and the other on increasing the
supply of affordable housing. As a result, this report measures progress toward five goals:
• Goal 1: Increase housing production and housing diversity
• Goal 2: Support market-rate housing affordability
• Goal 3: Increase the supply of affordable housing
• Goal 4: Reduce housing insecurity
• Goal 5: Reduce housing disparities
2. 2024 Legislative session housing highlights: This section summarizes legislative actions from the 2024
supplemental session that affect housing supply and affordability.
3. 2025 AHAB legislative agenda: This section outlines the Affordable Housing Advisory Board’s 2025
Legislative Agenda, developed in compliance with RCW 43.185B.030(4). It includes the board's legislative
recommendations.
This report aims to provide a comprehensive review of the latest data on housing affordability in Washington
and serve as a resource for stakeholders working to improve housing stability for all Washingtonians.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 6
Housing affordability progress indicators
AHAB's 2023-2028 Housing Advisory Plan defined housing goals and a series of indicators for measuring
progress toward achieving those goals. This report measures progress statewide based on a similar set of
indicators. This section includes a discussion of each progress indicator related to the goal and a presentation
of annual data.
Overview dashboard
Exhibit 1 presents a dashboard summarizing the direction of change for each of the indicators. It shows
whether conditions are improving (upward arrow) or worsening (downward arrow) compared to previous
years. Most of these indicators represent short-term trends, comparing progress in the latest year for which
data is available (typically 2024 or 2023) to the previous year. Two of the indicators represent longer-term
trends. A discussion of each progress indicator, including background information and findings, follows.
Exhibit 1. Washington housing progress indicator dashboard
Latest Year
Goal Indicator Trend
for Data
Total housing units permitted 2024
Increase Housing Multifamily housing units permitted 2024
Production &
Housing Diversity Annual middle housing units permitted 2024
Annual ADUs permitted 2024
Housing Affordability Index 2024
Support Market
Housing Renter Affordability Index → 2024
Affordability
Affordability of the lowest-cost rentals for the bottom 20% of income earners 2023
Increase Supply of Annual subsidized affordable housing production x 2023
Affordable Housing Affordable and available units per renter household with income 50% of MFI or below 2021
People experiencing homelessness per capita → 2024
Reduce Housing
Insecurity
Unstably housed persons per capita 2024
Percentage of households experiencing housing cost-burden → 2023
Reduce Housing Racial and ethnic disparities in housing cost burden 2021
Disparities Racial and ethnic disparities in homeownership rate → 2022
Insufficient data to measure
Short-term trend Long-term trend x trend
Note: Insufficient data is available for this report to measure "Annual subsidized affordable housing production." Commerce anticipates the ability to
measure this starting in calendar year 2025.
Source: BERK, 2024. See the discussion of individual indicators below for data sources.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 7
Goal 1: Increase market housing production and housing diversity
As described in the 2023-2028 Housing Advisory Plan, a primary driver of Washington's housing affordability
crisis is a housing shortage. When demand exceeds supply, competition for available units pushes up rents
and market-rate housing prices. We use four indicators to measure how well new housing production in
Washington is keeping pace with projected housing needs. Details about each indicator follow.
Progress indicators
Total housing units permitted: In 2024, the number of permitted units decreased
from the 8-year average and below the projected housing needs.
Background
Before a new home is built, it must be permitted by the local jurisdiction. As such, housing permits are a
leading indicator of housing production. If there is a downturn in permit activity, that typically means there will
be a downturn in production in the following years. The time between permitting and completion varies by
housing type. Single-family homes can often be built in less than a year, while large apartment buildings can
take multiple years to build. Note that not every permitted unit eventually gets built, and Washington loses
many older homes to demolition each year. Because of this, annual housing permits need to exceed the
average annual units needed to keep pace with demand.
This indicator is based on data from the Washington State Office of Financial Management (OFM), which
tracks the total number of new units permitted each year in all jurisdictions statewide.
Findings
Exhibit 2 shows the level of permitting over the past eight years and compares it to the average annual number
of units needed to keep pace with Washington's projected statewide housing needs (the last bar, shown in
orange). Permitting has been trending downward in 2023 and 2024. This is likely related to the sharp increase
in interest rates that occurred in mid-2022.1 Higher interest rates increase home mortgage costs and,
therefore, can reduce demand for new home purchases. These rates also impact developer borrowing costs.
Additionally, construction costs have increased significantly since 2020. The combined impacts of increased
borrowing and construction costs have made it more difficult for developers to move forward with housing
projects.
1 OFM annual data on housing units permitted do not conform to calendar years. Rather they reflect permits issued from April 2 of the
previous year up to April 1 of the current year. So, the 2023 column represents permits issued between April 2, 2022, and April 1, 2023.
And the spike in 2022 represents a period that preceded the interest rate hikes in mid-2022.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 8
Exhibit 2. Annual housing units permitted compared to average annual net new
housing needed
70,000
58,428
60,000
52,216
Total Housing Units Permitted
51,630
48,597 49,747 49,735 49,976
50,000 45,189
41,929 42,429
40,000
30,000
20,000
10,000
0
2016 2017 2018 2019 2020 2021 2022 2023 2024 Average
Annual
Need
Source: OFM, 2024; BERK, 2024.
Multifamily housing units permitted: The number of multifamily housing units
permitted in 2024 was 14% lower than in 2023 and below the projected annual
need.
Background
The most cost-efficient way to provide new permanent housing is typically in multifamily buildings. Affordable
housing developers generally build low-rise or mid-rise apartment buildings. Increasing the supply of market-
rate multifamily housing also helps to reduce competition for rental housing and meet the needs of many low-
and moderate-income households.
This indicator is based on data from OFM that includes all housing units permitted in buildings with five or
more units. These would typically include both large and small apartment or condominium buildings. In some
cases, townhomes can be in structures with five to eight or more units. These permits include both market-rate
and new affordable housing.
Given that a significant share of new market-rate multifamily housing will be affordable only to moderate-
income or above households, Washington needs a rate of multifamily housing production that exceeds the 0-
80% area median income need shown in the last orange column in the chart above and needs to support more
subsidized affordable housing development to meet these low-income housing needs.
In many areas of the state, the units in new market-rate apartment and condominium buildings are not typically
affordable below 80% of the area median income, and none of them are likely affordable below 50% area
median income. Townhomes are typically affordable to households with moderate incomes (80-120% area
median income) or higher.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 9
Findings
Exhibit 3 shows that the rate of multifamily housing permitting has declined significantly since its peak in
2022. In addition, the data shows that the rate of permitting has dipped well below the average annual need for
new units affordable to households with incomes 0-80% of the area median income, which is shown in the last
column, in orange, for comparison.
The downward trend in 2023 and 2024 is likely related to the sharp increase in interest rates that occurred in
mid-2022. As discussed above, these rates impact developers' borrowing costs, and the combined impacts of
increased borrowing and construction costs have made it much more difficult for developers to move forward
with housing projects than a few years ago.
Exhibit 3. Annual multifamily housing units permitted compared to the average
annual need for 0-80% area median income housing
35,000 32,704
Total Multifamily Housing Units Permitted
29,140
30,000
27,069
25,549 25,219
24,262 24,802
25,000 23,990
19,847 19,804
20,000
15,000
10,000
5,000
0
2016 2017 2018 2019 2020 2021 2022 2023 2024 Average
Annual
Need (0-
80% AMI)
Source: OFM, 2024; BERK, 2024.
Annual middle housing units permitted: The middle housing units permitted in
2024 were less than one-third of the projected need for moderate-income housing
units.
Background
"Middle housing” encompasses a variety of moderate-density housing types, such as townhomes, duplexes,
triplexes, or fourplexes. These housing types are also known as “the missing middle” because they fall
somewhere between low-density detached single-family homes and higher-density multifamily buildings with
apartments or condominiums. These housing types have the potential to provide housing that meets the
needs of moderate-income households (80-120% area median income).
2025 AFFORDABLE HOUSING PROGRESS UPDATE 10
This indicator is calculated using OFM data, which provides an annual estimate of permitted housing in two-to-
four-unit structures, such as duplexes, triplexes, fourplexes, and many townhomes. This data is not a perfect
proxy for all middle housing production, as it leaves out some small townhomes and low-rise buildings with
five to eight units. However, it is the best proxy available with current data.
Findings
Exhibit 4 presents annual middle housing units permitted compared to the average annual net new housing
needed for moderate-income households. It shows a slow and steady decline in units permitted since a peak in
2021. The current production rate is less than a third of the average annual statewide need for moderate-
income housing (80-120% area median income). However, new accessory dwelling units (ADU), apartments, or
condominiums could meet some of these needs, which are not counted as part of this middle housing
summary.
Exhibit 4. Annual middle housing units permitted compared to the average annual
need for 80-120% area median income (AMI) housing
8,000
Total Middle Housing Units Permitted
6,841
7,000
6,000
5,000
4,000
3,428
3,048 3,192
3,000 2,741 2,583
2,411 2,292 2,278
2,219
2,000
1,000
0
2016 2017 2018 2019 2020 2021 2022 2023 2024 Average
Annual Need
(80-120%)
Source: OFM, 2024; BERK, 2024.
Annual ADUs permitted: The rate of growth in ADU permitting has slowed since
its significant surge beginning in 2020.
Background
Exhibit 4An ADU is a separate self-contained housing unit on the same lot as a primary residence. ADUs can be
attached to the main structure or detached. This type of housing has the potential to provide additional lower-
cost housing options within established residential neighborhoods while minimally impacting the
neighborhood's character. In 2023, Chapter 334, Laws of 2023 (HB 1337) made changes to the Growth
Management Act that require jurisdictions to allow two ADUs per lot within urban growth areas (UGA) by six
2025 AFFORDABLE HOUSING PROGRESS UPDATE 11
months after the next periodic comprehensive plan update due date. The bill also streamlines the permitting
process and prohibits restrictive development regulations, such as minimum lot size requirements, excessive
setbacks, and unnecessary barriers to ADU construction. This indicator is based on data from the Washington
State Office of Financial Management.
Findings
Exhibit 5 presents annual ADUs permitted across all jurisdictions in Washington. It shows a sharp increase
starting in 2021, which is now slowing. A significant share of this increased permitting occurred in Seattle,
which changed its ADU regulations in 2019 to allow for up to three units per lot (a primary home plus two
ADUs) and reduced other barriers to development. However, many other jurisdictions have also made changes
to encourage ADUs and have seen an uptick in permitting. The changes in Seattle are largely consistent with
what will soon be required in all cities and UGAs due to Chapter 334, Laws of 2023 (HB 1337), which is
expected to spur new ADU growth.
Exhibit 5. Annual accessory dwelling units permitted
2,500
2,174
2,112
2,000
Permitted ADUs
1,607
1,500
1,255
1,000
660
525 513 509
500
324 337
282
0
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Source: OFM, 2024; BERK, 2024.
Goal 2: Support market housing affordability
These progress indicators track the affordability of homes over time. For these indicators, a home is
considered affordable if the household is paying less than 30% of its income in housing costs. Housing costs
include rent and utilities for renters, monthly mortgage payments, property taxes, homeowner's insurance, and
utilities for homeowners. Both incomes and housing costs can vary significantly across different areas of the
state. While statewide indicators help track broad trends, they do not reflect local conditions and challenges.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 12
Progress indicators
Housing Affordability Index: There has been a decline in homeownership
affordability since 2018.
Background
About two-thirds of all households in Washington own their homes, and this rate has increased slightly since
2016.2 However, in many areas of Washington, home prices have increased faster than incomes. When this
occurs, homeownership becomes further out of reach for many households. Washington Center for Real
Estate Research (WCRER) created a Housing Affordability Index (HAI) that measures the affordability of a
median-value home to the median-income household with enough assets to afford a typical down payment
and 30-year mortgage. This data makes it possible to track progress toward (or away from) greater
homeownership affordability statewide.
An HAI value of 100 indicates that a median-income homebuyer has just enough income to afford a median-
priced home. A value of higher than 100 indicates the homebuyer has more than enough income to afford the
home. A value of less than 100 indicates that the homebuyer has less than the income needed. For example,
an HAI value of 70 indicates that a median-income household has only 70% of the income necessary to afford
a median-priced house. The "first-time buyer HAI" is similar, but it measures the affordability of a home that
costs 85% of the median price to a household with 70% of the median income and a reduced down payment.
Findings
shows a continued decline in the HAI for median-value homes in recent years. The current HAI stands at 61,
indicating that a median-income household has only 61% of the income needed to afford a median-priced
home. The situation is even more challenging for renters, with an HAI of 43, meaning they have just 43% of the
required income to transition to homeownership. The median HAI and the first-time buyer HAI experienced a
4% decline from 2023 to 2024. shows a continued decline in the HAI for median-value homes in recent years.
The current HAI stands at 61, indicating that a median-income household has only 61% of the income needed
to afford a median-priced home. The situation is even more challenging for renters, with an HAI of 43, meaning
they have just 43% of the required income to transition to homeownership. The median HAI and the first-time
buyer HAI experienced a 4% decline from 2023 to 2024.
2 Source: Census American Community Survey 1-year estimates, 2016 & 2022.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 13
Exhibit 6: Housing Affordability Index
140
122 120
Homeownership Affordability Index
119 Median HAI
120
109 109
105 First-time Buyer HAI
103
100 95
85 86 85
78 77
80 73 75
67 67
63 61
60
48
45 43
40
20
0
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Source: UW Center for Real Estate Research, 2024; BERK, 2024.
Renter Affordability Index: Renter affordability has remained relatively stable
since 2014 for moderate-income households.
Background
A healthy housing market provides a mix of both ownership and rental housing opportunities. Rental housing
can provide an entry point to the housing market for households that cannot afford homeownership or are not
ready or interested in taking on the responsibilities and risks of homeownership. However, when rents
increase, lower-income households can be locked out of the housing market or forced to move further away
from jobs and opportunities. Renter households have little control over rent increases after moving in, making
them vulnerable to economic displacement and housing insecurity.
This indicator evaluates the affordability of rents and how they are changing over time. It is based on WCRER’s
Renter Affordability Index (RAI), which measures the affordability of the average rent to a median-income
household, as shown in Exhibit 6. Similar to the HAI described above, a Median RAI value of 100 indicates that
the household has just enough income to afford an average-cost rental. A value of higher than 100 indicates
the household has more than enough income to afford the home. A value of less than 100 indicates that the
household has less than the amount of income needed. The Low-Income RAI line shows the same analysis
based on a 70% area median income household.
Findings
This data shows that rental affordability has remained relatively stable over the past decade. While rents have
increased, they haven't increased compared to median incomes. In 2024, a median income household has
nearly 1.4 times the income needed to afford an average rental, while a 70% area median income household
has just shy of the income needed to afford an average rental.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 14
This data shows that rental affordability has remained fairly stable over the past decade. While rents have
increased, they haven't increased compared to median incomes. In 2024, a median income household has
nearly 1.4 times the income needed to afford an average rental, while a 70% area median income household
has just shy of the income needed to afford an average rental.
Exhibit 6. Renter Affordability Index
160
139 137 138
135
140 131 130 131 130 131 130
127
Renter Affordability Index
120
97 95 96 97
100 92 91 92 91 92 91 89
80
60
Median RAI
40
Low-income RAI
20
0
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Source: UW Center for Real Estate Research, 2024; BERK, 2024.
Affordability of the lowest-cost rentals for the bottom 20% of income earners:
Rents for the lowest-cost units have risen significantly faster than incomes for
Washington’s lowest-income households
Background
While the Renter Affordability Index tracks the affordability of median-priced rentals for households earning
70% or 100% of Area Median Income (AMI), it does not reflect affordability trends for the lowest-income
renters. To better understand housing affordability for low-income households, the Affordability of the Lowest-
Cost Rentals for the Bottom 20% of Income Earners indicator compares the incomes of the lowest-earning
20% of households to the cost of renting the cheapest 25% of available units. This analysis provides insight
into whether the most affordable rental options remain accessible to the state’s lowest-income residents.
The American Community Survey (ACS) data tracks income and housing costs over time. For these
households, even the lowest-cost rental units often require a disproportionate share of their income, leading to
higher housing instability and an increased risk of homelessness.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 15
Findings
Exhibit 8 shows that from 2010 to 2019, the percentage of income spent on rent by the lowest-income renters
remained high but stable as rent and income grew at similar rates. However, beginning in 2020, cost burdens
began increasing sharply, as rents for the lowest-cost units rose significantly faster than incomes, creating a
widening affordability gap. By 2023, the share of income spent on rent had climbed from 54% to 64%, marking
a 10-percentage-point increase in just four years. This trend has left low-income renters increasingly burdened,
with fewer affordable options and greater financial strain.
Exhibit 8. Affordability of the lowest-cost rentals for the bottom 20% of income
earners
$25,000 70%
65%
63%
60%
56% 56% 56% 55% 60%
55% 55% 54%
$20,000
50%
$15,000
40%
30%
$10,000
20%
$5,000
10%
$- 0%
2010 2015 2016 2017 2018 2019 2020 2021 2022 2023
Lowest qunitle annual income Lowest quartile annual rent Percentage of income
Source: Census American Community Survey, 1-Year Estimates (2010 - 2023)
Goal 3: Increase the supply of affordable housing
To meet statewide needs for housing affordable at 50% of area median income or below, Washington will need
to annually produce an average of 21,805 units that are affordable to those earning less than 50% of area
median income or below through the year 2044. The following indicators track the number of units produced
with public subsidies and the current supply of units available to those with 50% area median income or below.
Progress indicators
Annual subsidized affordable housing production: Washington needs an
additional 230,000 available subsidized housing unit gap to meet the 2023 need.
Please note: As of late 2024, annual subsidized affordable housing production data is unavailable. However, the
Washington Center for Real Estate Research (WCRER) anticipates being able to provide annual estimates of net
new affordable housing supply starting in 2025. This data was compiled in the summer of 2023 and is the most
2025 AFFORDABLE HOUSING PROGRESS UPDATE 16
recent data available. Future AHAB annual reports will include these estimates as a proxy for affordable housing
production to measure progress in meeting affordable housing needs statewide over time.
Background
While market-based housing development is an important part of Washington's housing system, the
economics of housing construction make it impossible to build new housing that is affordable to most low-
income households without significant subsidies. Therefore, the state needs to take action to support the
production of income-restricted affordable housing production through public subsidies.
The Washington Center for Real Estate Research (WCRER) prepared an inventory of subsidized affordable
housing in each county across Washington. These are income-qualified units produced with the support of
public or private subsidies. This inventory includes housing funded through federal, state, and local housing
programs and affordable housing produced through local multifamily tax exemption (MFTE) programs. This
inventory spans from permanent affordable housing for households with incomes less than 30% of the area
median income up to subsidized ownership units for households with incomes at 100% AMI. Complete data
about the specific income levels these units serve is not available.
Findings
WCRER estimates that there were 155,158 units statewide with some kind of affordability requirement. Exhibit
9 presents the total subsidized affordable housing inventory in Washington compared to the number of renter
households with incomes 0-50% AMI. Due to the limitations of this inventory, this gap is actually much larger,
as not all of those units are affordable at 50% of AMI.
Exhibit 9. Subsidized affordable housing inventory compared to need
Total 0-50% AMI Renter Households (2021)
-232,977
Total Subsidized Rental Units (2023)
unit gap
0 100,000 200,000 300,000 400,000
Source: UW Center for Real Estate Research, 2023; HUD CHAS (based on Census ACS 2017-2021 5-year est.), 2021; BERK, 2024.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 17
Affordable and available units per renter household with income 50% of area
median income or below: There is a significant gap in the number of available,
affordable housing units compared to the number of low-income households.
Background
The affordable housing supply in most communities is a combination of subsidized housing provided to
income-qualified households and naturally occurring affordable housing (NOAH). NOAH units are currently
rented at a rate lower than typical in the local market. These NOAH units may be in older buildings or less
desirable neighborhoods and can be rented to households at any lower income level. The term down-renting
refers to moderate- or higher-income households that rent NOAH units that would otherwise be affordable to
lower-income households. When this occurs, it effectively removes the unit from the housing supply potentially
affordable to a lower-income household.
Findings
This indicator, shown in Exhibit 10, evaluates whether the effective supply of affordable rental housing
(subsidized and NOAH combined) is keeping pace with demand. More specifically, it estimates the number of
rental units that are affordable to and occupied by a household with an income of 0-50% of the area median
income per 100 renter households at this same income level. This value is calculated for 2016 and 2021, the
latest year for which data is available.3 The same comparison is also presented for households with incomes
in the 0-30% area median income range.
The results show that the supply of affordable and available units for 0-50% area median income households
has declined significantly compared to demand. This could be due to an increase in households at this income
level, a decrease in affordable and available housing units, or a combination of the two. Conversely, the supply
of 0-30% area median income households increased slightly compared to demand during the same period.
This may indicate that the production of new income-restricted affordable housing during this period was just
slightly faster than the increase in the number of households at this income level.
Exhibit 10. Affordable and available rental units per 100 renter households
100
Affordable & Available Units
80
60
56
46 0-30% of AMI
per 100 Households
40 30 0-50% of AMI
28
20
0
2016 2021
Source: HUD CHAS (based on Census ACS 2012-2016 & 2017-2021 5-year est.); BERK, 2024.
3 When interpreting this indicator, keep in mind it is based on ACS 5-year estimates. Data for 2021 reflects surveys collected between
2017 and 2021. Likewise, data for 2016 reflects surveys collected between 2012 and 2016.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 18
Goal 4: Reduce housing insecurity
This section focuses on efforts to prevent housing instability and homelessness in Washington. The indicators
provide insights into how economic conditions and policy interventions impact housing stability for vulnerable
populations.
Progress indicators
Cost-burdened households: Between 2021 and 2023, the percentage of households
experiencing cost burden increased from 34% to 36% statewide.
Background
The affordability of housing depends on two factors: 1) The cost of the housing and 2) the income of the
household. The U.S. Department of Housing and Urban Development (HUD) considers a household cost-
burdened if it spends more than 30% of its income on housing costs, including utilities. Cost-burdened
households have less income remaining for other necessities like food, transportation, education, and health
care. Cost burden is used as an indicator of potential housing insecurity.
Findings
Starting in 2020, the cost burden rates have increased slightly each year. This may be partly due to the sharp
decline in affordability for homeownership during this period. Exhibit 1 presents data on housing cost burden
from 2010 to 2023. Households are broken down into three groups. Not cost-burdened households spend less
than 30% of their income on housing. Moderately cost-burdened households spend between 30% and 50% of
their income on housing. Severely cost-burdened households spend over 50% of their income on housing.
Exhibit 11. Percentage of households experiencing housing cost burden*
3,500,000
3,000,000
2,500,000
Households
Not cost-burdened
65% 64%
2,000,000 66% 66%
66% 66% 67%
59% 60% 61% 62% 63% 65% 66%
1,500,000 Moderately cost-
burdened
1,000,000
22% 22% 18% 18% 18% Severely cost-
21% 20% 19% 19% 18% 18% 18% 18% 18%
burdened
500,000
19% 18% 18% 18% 17% 16% 16% 16% 16% 15% 16% 17% 17% 17%
0
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Source: Census American Community Survey, 1-Year Estimates (2010 - 2023); BERK, 2024.
* May not equal 100 due to rounding.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 19
Rates of homelessness: People experiencing homelessness and housing
instability remain at high levels, showing little change.
Background
The most direct measure of housing insecurity is the number of people who are homeless. Department of
Social and Health Services (DSHS) Research and Data Analysis (RDA) unit publishes biannual Snapshot of
Homelessness in Washington (Snapshot) data. The report presents estimates of the homeless and unstably
housed population based on linked data from multiple databases used for administering public benefits and
associated claims.4
Findings
Error! Reference source not found.2 presents Snapshot data as a per capita rate for 2016 through 2024. It
shows a mixed picture of housing insecurity. Homelessness per 1,000 residents climbed from 17 in 2016 to 20
in 2023. The rate then dipped very slightly in 2024 to 19.6. Unstably housed people have increased for the past
four years, with a high in 2024 of 5.2 people unstably housed per 1,000 residents.
Exhibit 72. Homeless and unstably housed people per 1,000 residents
25
20.0 19.6
20 18.8 19.1 19.1
18.5 18.5
Count per 1,000 residents
18.0
17.3
15
Homeless People
Unstably Housed
10
6.9
6.1
5.4 5.0 5.0 5.2
4.3 4.3 4.7
5
0
2016 2017 2018 2019 2020 2021 2022 2023 2024
Sources: WA Department of Social and Health Services, 2024; OFM, 2024; BERK, 2024.
4
Administrative data include applications for social services from people who were unsheltered or living in emergency shelter. A more detailed
description of the Snapshot report is available on the Commerce website.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 20
Goal 5: Reduce housing disparities
This section examines racial and ethnic disparities in housing outcomes across Washington. It evaluates
indicators such as cost burden and homeownership rates to understand inequities and progress toward
equitable housing opportunities for all communities. The data underscores the importance of targeted
interventions to address systemic barriers and close the housing gap for underserved populations.
Progress indicators
Racial and ethnic disparities in housing cost burden: The rate of cost burden
decreased faster among households of color, resulting in a decrease in disparity
between the two groups
Background
This indicator uses data about the cost burden of households by the race or ethnicity of the householder5 to
measure whether there are racial and ethnic disparities in the percentage of households that experience cost
burden. Disparities are measured as the gap between the percentage of white, non-Hispanic households that
experience cost burden and the percentage of all households of color6 that experience cost burden. To
measure progress over time, we compare conditions in 2016 to conditions in 20217 to see if disparities are
growing or shrinking. This is a long-term trend and is the most recent data available.
Findings
The results are shown in Exhibit 3. During this period, the percentage of households experiencing cost burden
decreased for both white households and households of color. However, the cost burden rate decreased faster
among households of color, resulting in a decrease in disparity between the two groups: from 8.3 percentage
points down to 7.0.
There is significant variation in cost burden among different racial and ethnic groups. Exhibit 4 presents cost
burden by race and ethnicity for the year 2021. Black households had the highest rate of cost burden at 48%,
compared to only 30% of Asian households and 29% of white, non-Hispanic households.
5 The Census designates the race or ethnicity of a household is based on the race or ethnicity of the householder, which is typically the
person in whose name the housing unit is owned or rented.
6 In this report, households of color are defined as households with householders that do not identify as white, non-Hispanic.
7 When interpreting this indicator, keep in mind it is based on ACS 5-year estimates. In other words, data for 2021 reflects surveys
collected between 2017 and 2021. Likewise, data for 2016 reflects surveys collected between 2012 and 2016.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 21
Exhibit 13. Racial and ethnic disparities in housing cost burden
45% 8.3%
% of households that are cost-burdened
point gap 7.0%
40%
point gap
35%
30%
25%
20%
15%
10%
5%
0%
2016 2021
White alone, non-Hispanic households All households of color
Source: HUD CHAS (based on Census ACS 2012-2016 & 2017-2021 5-year est.); BERK, 2024.
Exhibit 14. Housing cost burden by race and ethnicity, 2021
American Indian or Alaska Native alone, non-Hispanic 17% 15% 68%
Asian alone, non-Hispanic 14% 16% 70%
Black alone, non-Hispanic 25% 23% 52%
Hispanic, any race 17% 21% 63%
Pacific Islander alone, non-Hispanic 15% 21% 64%
Other (including multiple races), non-Hispanic 18% 18% 64%
White alone, non-Hispanic 13% 16% 71%
All households of color 17% 19% 64%
0% 20% 40% 60% 80% 100%
Severely cost-burdened Moderately cost-burdened Not cost-burdened
Source: HUD CHAS (based on Census ACS 2012-2016 & 2017-2021 5-year est.); BERK, 2024.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 22
Racial and ethnic disparities in homeownership rate: Homeownership has
increased faster for householders of color, resulting in a shrinking disparity
Background
Homeownership offers opportunities for more stable and predictable housing costs and wealth generation if
the home appreciates in value. However, access to homeownership has historically been unevenly distributed,
particularly due to racist government policies and real estate practices. As a result, many Black, American
Indian/Alaska Native and People of Color households were denied opportunities for homeownership and the
ability to generate wealth through home equity that can be passed on to future generations. Moreover, there
continue to be significant barriers to increased homeownership for historically marginalized communities.
Households of color tend to have disproportionally lower incomes, lower credit scores, and higher debt-to-
income ratios, all of which are linked to systemic and structural racism. Furthermore, many historically
marginalized communities experience discrimination and predatory practices through the mortgage lending,
appraisal, and selling processes.
Findings
Exhibit 85 compares the homeownership rate among white householders to the rate among householders of
color. It shows the rate increasing for both groups between 2015 and 2023. However, the homeownership rate
has increased faster for householders of color, resulting in a shrinking disparity between the two groups. In
2015, the gap was 21 percentage points, compared to 18 in 2023. Homeownership for households of color
now exceeds 50%. Exhibit 16 breaks down this data further, showing the distribution of renters and
homeowners by race, highlighting persistent disparities in homeownership rates across different racial groups.
Exhibit 85. Homeownership rate for white households and households of color
80%
70%
60%
Homwownership Rate
-21
-17 -17 -18
point -18
-20 -20 -20
50% gap -21
40%
30%
20%
10%
0%
2015 2016 2017 2018 2019 2020 2021 2022 2023
White alone households, non-Hispanic All households of color
Source: Census American Community Survey, 1-Year Estimates (2010 - 2023); BERK, 2024.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 23
Exhibit 96. Homeownership rate by race and ethnicity
American Indian or Alaska Native alone, non-Hispanic 51% 49%
Asian alone, non-Hispanic 63% 37%
Black alone, non-Hispanic 34% 66%
Hispanic or Latino, any race 47% 53%
Pacific Islander alone, non-Hispanic 32% 68%
Other alone, non-Hispanic 47% 53%
Two or more, non-Hispanic 54% 46%
White alone, non-Hispanic 69% 31%
All households of color 51% 49%
0% 20% 40% 60% 80% 100%
Owner Households Renter Households
Source: Census American Community Survey, 1-Year Estimates 2023; BERK, 2024.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 24
2024 legislative session housing highlights
Budgets
Capital budget$183.6 million increase over the 2023 budget for a total
budget of $651.5 million (new funding) for the 23-25 biennium
• Additional $127.5 million for the Housing Trust Fund, including:
• $31.5M for direct appropriation projects
• $20M for rapid capital housing (tiny homes an allowable use)
• $20M for homeownership
• $19M for housing for people with intellectual or developmental disabilities
• $17M for affordable housing (competitive)
• $10M for acquiring and preserving mobile and manufactured home communities
• $5M for capital improvements to mobile and manufactured home communities
• $5M for multifamily affordable housing trust fund portfolio projects’ urgent repair grants
• $55M for Multifamily Building Energy Efficiency Grants
• Additional $1.1M for shelter and housing for homeless youth and young adults (biennium funding is
now $15.6M)
Operating budget: $70.7 million increase over the 2023 budget for a total
budget of $1.37 billion for the 23-25 biennium
• $59M increase for homeless programs, including $25M to cover a portion of the local document recording
fee shortfall jurisdictions are experiencing and $34M for local homeless housing programs and services.
These investments are critical to prevent cuts in these homeless programs across the state.
• $3.75M increase for the Landlord Mitigation Program
• $1.5M for Washington State Housing Finance Commission to implement the covenant homeownership
program created in 43.181RCW, and $500K for a strategic plan to identify ways to enable these first-time
homebuyers to afford a home purchase
• $3M increase to the Foreclosure Fairness Program
• $1M for the Office of Homeless Youth to provide grants for place-based health zone models benefiting
youth and their families
• $550,000 for the Office of Homeless Youth to design a direct cash transfer pilot program for youth and
young adults experiencing homelessness or housing instability
• $300K for Black Homeownership Assistance programs
• $250K to provide technical assistance and resident support in manufactured home communities following
a notice of sale
• $250K for a study to identify and analyze funding structures to preserve manufactured home communities
as nonprofit or cooperative-run affordable housing projects
• $250,000 for a study to evaluate alternative methods to calculate median household incomes
• $250,000 for OFM to develop recommendations for a study to create a new Department of Housing
• $80K increase for the Community Behavioral Health Rent Assistance (CBRA) program
2025 AFFORDABLE HOUSING PROGRESS UPDATE 25
Key legislation
Affordable housing funding and incentives:
• Chapter 59, Laws of 2024, Affordable Housing on Public Lands: Creates a leasehold excise tax exemption
when public lands are used for affordable housing.
• Chapter 332, Laws of 2024, Conversion of Commercial Buildings to Affordable Housing - Tax Incentives:
Allows cities to establish retail sales and use tax deferral programs to convert underutilized commercial
property to affordable housing.
• Chapter 136, Laws of 2024, Affordable and Supportive Housing Sales and Use Taxes - Income Limit:
Modifies locally imposed affordable and supportive housing sales and use tax to allow homeownership
projects if they benefit households with incomes at or below 80% of the area median income.
Multifamily housing:
• Chapter 142, Laws of 2024, Workforce Housing Accelerator Revolving Loan Fund Program: Creates the
Workforce Housing Accelerator Revolving Loan Fund Program, which Commerce will pass through to the
Washington State Housing Finance Commission. The program is currently unfunded.
Homeownership:
• Chapter 325, Laws of 2024, Manufactured/Mobile Home Communities - Sale or Lease - Various Provisions:
Updates notification requirements for notices of opportunity to compete to purchase. The legislation also
removes restrictions for tenants who receive assistance from an outside source exceeding the maximum
amount of assistance individuals can receive under the Relocation Coordination Program.
Youth homelessness:
• Chapter 175, Laws of 2024, Behavioral Health Treat—Postinpatient Housing for Young Adults: Establishes
the Post-Inpatient Housing Program for Young Adults to provide supportive transitional housing with
behavioral health supports for persons ages 18 to 24 who are exiting inpatient behavioral health treatment.
Land use and building regulation:
• Chapter 180, Laws of 2024, Co-living housing: Requires cities and counties planning under the Growth
Management Act to allow co-living housing on any lot located within an urban growth area that allows at
least six multifamily residential units. The legislation also prohibits a city or county from imposing certain
regulations or restrictions on co-living housing.
• Chapter 152, Laws of 2024, Minimum Residential Density - Middle Housing - Various Provisions: Makes
several technical changes to middle housing requirements.
Equity:
• Chapter 283, Laws of 2024, Membership of Statutory Entities - Direct Lived Experience: By Jan. 1, 2025,
certain new multimember task forces, work groups, and advisory committees must include at least three
individuals from underrepresented populations who have lived experience with the issue the statutory
entity is tasked with examining.
Other:
• Chapter 143, Laws of 2024, 2023 Wildfires - Disaster Relief Payment Program: Establishes a disaster relief
payment program at Commerce to make disaster relief payments to property owners and local
2025 AFFORDABLE HOUSING PROGRESS UPDATE 26
governments that had certain buildings damaged or destroyed by wildfires between Aug. 1 and Oct. 1,
2023, in Spokane County.
• Chapter 74, Laws of 2024, Housing Providers - Insurance Market Study: directs the Office of the Insurance
Commissioner to study the property and liability coverages available to specified housing providers.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 27
AHAB's 2025 legislative agenda
The AHAB Legislative Agenda includes eight policy and budget recommendations that AHAB urges the
Legislature to pursue to achieve meaningful progress in affordable housing during the 2025 legislative session
and beyond. These recommendations reflect AHAB’s commitment to addressing Washington’s critical
affordable housing needs. These recommendations are not listed in order of priority.
Rental stabilization and regulatory consistency
The ability of tenants to access and retain safe, stable housing is foundational to thriving communities. This
requires predictable and reasonable rental increases for tenants and a consistent and predictable regulatory
environment for housing providers. AHAB encourages the Legislature to establish clear, fair and uniformly
enforced regulations that balance tenant protections and the operational needs of housing providers.
Insurance market stabilization
In recent years, multifamily housing providers have faced unsustainable insurance premium increases of 300-
400%. This financial strain affects both housing providers and tenants. State-level intervention is urgently
needed to stabilize the rental housing insurance market. This is a critical issue, and we urge the Legislature to
explore actions to address the root causes of these increases, promote competitive pricing, and provide relief
to those impacted.
Definition alignment and clarity
AHAB supports creating a single definition of emergency shelter and to align the definition of Permanent
Supportive Housing (PSH) to provide consistency and clarify the distinction between PSH and licensed
facilities.
Document recording fee
Commerce’s budget request includes $403 million to ensure that critically needed programs can continue at
their current funding levels. AHAB strongly supports this request and urges the Legislature to sustain
homeless and housing programs funded through the Document Recording Fee. To prevent cuts, the state must
backfill the ongoing shortfall in funding for homeless services. Up to $253 million is needed to make up a
shortfall caused by a decline in document recording revenue that funds homelessness services in every
county. The operating budget should include this amount to prevent any reduction in homelessness services.
Capital budget funding
AHAB consistently advocates for robust capital budget funding to support affordable housing investments. We
urge the Legislature to continue large-scale investments in the Housing Trust Fund and the Connecting
Housing to Infrastructure Program (CHIP).
Aging homeless population study
In alignment with AHAB’s 5-Year Advisory Plan, we request a $250,000 appropriation to fund a study on the
needs and gaps in services for the aging homeless population in Washington. This study should include
recommendations for improving current systems of care to address the needs of this growing and vulnerable
demographic.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 28
Department of Housing
The 2024 supplemental budget funded a study on creating a Washington Department of Housing. AHAB
supports further evaluation of this initiative and consideration of the recommendations resulting from the
study to determine the feasibility and benefits of establishing a dedicated housing department.
Affordable housing revenue
Washington needs more than 600,000 units of housing affordable to households earning less than 80% of the
area median income over the next 20 years. Achieving this goal will require state and local governments to
access new revenue sources for construction and infrastructure investments. AHAB encourages the
Legislature to consider dedicated funding for the Washington Housing Trust Fund and explore local
government funding options, such as revenue measures that city or county councils can approve on their own
authority, to support affordable housing initiatives.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 29
Conclusion
Housing affordability remains a significant challenge in Washington State, affecting residents across all
income levels, particularly low- and moderate-income households. While recent legislative efforts, funding
increases, and policy reforms have had impacts, data shows that substantial gaps in housing supply,
affordability and equitable access continue.
Key findings from this report show:
A shortfall in housing production, with annual permitting far below the levels required to meet current
and future demand.
Continuing affordability issues for renters and future homeowners, which rising interest rates have
exacerbated.
Racial and ethnic disparities in housing affordability and homeownership persist despite some
progress.
The full impact of policy changes won't be seen for years, including those promoting middle housing
and accessory dwelling units.
Washington urgently needs to accelerate housing production, particularly affordable housing options. The
2025 AHAB Legislative Agenda offers recommendations to address these challenges, including expanding
funding for affordable housing and stabilizing rental markets.
Through stakeholder collaboration, Washington can improve all residents' access to stable and affordable
housing. The Affordable Housing Advisory Board remains committed to working toward this goal.
2025 AFFORDABLE HOUSING PROGRESS UPDATE 30
Appendix A: AHAB Board Members
Affordable Housing Advisory Board Membership, December 2024
Position number Member name Representing
1 Amy Falcone Association of Washington Cities - West
2 Conor Hansen Residential Construction
3 Doug Ito Residential Construction
4 Jonnie Matson Special Needs
5 Norma Hernandez Association of Washington Cities Rep - East
6 Colin Morgan-Cross Non-Profit Housing Developer
7 Vijya Patel Real Estate Sales
8 Lowel Krueger Public Housing Authorities
9 John Barry Home Mortgage Lending
10 Susan Boyd Apartment Management
11 Michael Dotson AHAB Vice Chair, Home Mortgage Lending
12 Meg Martin Homeless Shelter Operator
13 Daniel Lugo Consumer Current/ Past of Low-Income Housing
14 Greg Dunfield For Profit Housing Development
15 LaDon Linde Washington Association of Counties Rep - East
16 Vacant General Public
17 Michael Jones Washington Association of Counties Rep - West
18 Michone Preston AHAB Chair
19 Mike Leybourne For Profit Rental Housing Owner
20 Ami Manning Site-based Permanent Supportive Housing and Services
21 Cynthia Dampier Unit Owner's Association
22 Jason Gauthier Interlocal Housing Collaboration
Ex-Officio Tedd Kelleher Washington State Department of Commerce
Ex-Officio Steve Walker/Lisa Vatske Washington State Housing Finance Commission
Ex-Officio Theresa Slusher Washington State Department of Social and Health Services
2025 AFFORDABLE HOUSING PROGRESS UPDATE 31
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