GAP Report for 4/27/26
URGENT
- 0 Items
PROBLEMATIC
- Buncombe County is advancing major decisions that impact displacement without clear analysis or a coordinated policy response (updated)
- Appeal deadline for property tax reappraisals is too early (updated)
QUESTIONABLE
- The 50 Coxe Avenue affordable housing development should do more to prevent displacement (new)
POSITIVE
- 0 Items
Summary of the Report
This week’s GAP Report focuses on one new item: the proposed redevelopment of 50 Coxe Avenue, where Buncombe County is seeking rezoning approval from the City of Asheville to build more than 200 units of affordable housing downtown. This project represents a major public investment and a meaningful opportunity to expand housing supply in a high-cost, transit-accessible area. We support moving this project forward.
At the same time, this is a critical turning point, a moment where the City can strengthen the project to better prevent displacement. Projects like this move through a series of decision points where key questions can either be raised or missed—and this is one of those moments. Homelessness is an affordability issue. As homelessness continues to rise in our region, and as data shows that the lowest-income households are most at risk of displacement from stable housing, City Council has a responsibility to ask whether this project is structured to help meet that need. As currently proposed, only a limited share of units will be affordable at the deepest levels, affordability may be time-limited, and there is no clear commitment to pairing units with vouchers or supportive housing. This decision presents an immediate opportunity for the City to invest in both long-term affordability and in stemming the tide of homelessness.
This GAP report also provides updates on two County issues, including the need for a postponed deadline for property appraisal appeals, which is still pending.
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Templates and Links to More Information
Take action with us:
Here are all active email templates:
- Email the Asheville City Council about pushing for more displacement protections in the 50 Coxe Avenue development
- Email the Buncombe County Commission about the need to postpone the property appraisal appeal deadline
Resources:
Click here to read our full proposed anti-displacement policy proposal.
The 50 Coxe Avenue affordable housing development should do more to prevent displacement
QUESTIONABLE
Summary: Buncombe County is seeking rezoning approval to build over 200 units of affordable housing at 50 Coxe Avenue. While this is a major opportunity to expand housing supply, the proposal does not clearly address how it will serve the lowest-income households most at risk of displacement, and affordability is time-limited. City Council should use this decision point to secure deeper affordability, long-term protections, and stronger alignment with displacement prevention goals.
The Facts: The City of Asheville is considering Buncombe County’s conditional zoning request to allow the redevelopment of 50 Coxe Avenue into a 7-story, mixed-use building with approximately 203 affordable housing units and ground-floor retail. The site is currently owned by Buncombe County and used for administrative offices and surface parking.
- The project will add a significant number of income-restricted units in a high-cost, transit-accessible downtown location.
- The development is expected to include a range of affordability levels, primarily serving households at or below 60–80% AMI. The most recent estimates of how many units will be available at different levels of affordability were presented to Buncombe County last year and are as follows:
- 20% AMI (8 units, 3% of total)
- 30% AMI (36 units, 17% of total)
- 50% AMI (11 units, 5% of total)
- 60% AMI (110 units, 53% of total)
- 80% AMI (41 units, 20% of total)
- The project requires zoning modifications, including a significant reduction in tree canopy requirements (from 10% to 1.2%).
You can read the staff report here and see the presentation slides here. You can see the presentation the County planning department and UNC Development Finance Initiative (DFI) made last year that outlines the different levels of affordability here.
Our Assessment: This project represents a meaningful public investment in affordable housing and makes productive use of publicly owned land. Adding over 200 units in a transit-accessible downtown location is a significant step forward, and the inclusion of units at 60–80% AMI will benefit many working households.
However, the project as currently proposed is unlikely to meaningfully reduce displacement. Only about 20% of units (44 total) are expected to be affordable to extremely low-income households (≤30% AMI), who face the greatest risk of housing instability, displacement, and homelessness. The proposal also does not clearly commit to pairing units with housing vouchers or supportive services, which are often necessary to reach those households. In addition, there is no clear mechanism to prioritize access for local residents or those at risk of displacement.
Finally, affordability in projects funded through the Low-Income Housing Tax Credit (LIHTC) program is typically limited to a defined compliance period (often around 30 years), after which units may convert to market-rate housing. While 30 years may sound long, it means affordability has an expiration date. Across the country, cities are already losing affordable housing as these periods expire. In a high-cost market like Asheville, once these units convert to market rate, they are extremely difficult to replace—meaning today’s investment may not result in lasting affordability.
Taken together, these gaps mean that while the project adds supply, it may have only a limited impact on the underlying drivers of displacement in Asheville.
Our Proposal: City Council should use this rezoning decision as a critical intervention point to strengthen the project’s anti-displacement impact.
Specifically, Council should request that a greater share of units be designated affordable to households at or below 30% AMI, in alignment with data showing that the lowest-income households face the greatest risk of displacement and homelessness. The City should also commit to pairing units with housing vouchers or supportive housing programs, in coordination with the Continuum of Care, to ensure access for those with the greatest need.
In addition, the City should also explore ways to ensure that these units are accessible to households most at risk of displacement. This could include prioritizing people who are living in transitional housing or are at high risk of displacement, setting aside units for residents using housing vouchers or who are currently homeless, and working with local partners to connect units to those most in need to available housing. These approaches are widely used by housing authorities and cities across the country, and could easily be adopted in Asheville. Federal housing guidelines allow local preferences for households experiencing homelessness or displacement, and many communities pair affordable housing with housing vouchers and supportive services to ensure that units are accessible to those with the greatest need. While Asheville already uses some of these approaches through its Continuum of Care system, they are not yet consistently applied to new affordable housing developments like this one.
More broadly, this decision highlights the importance of applying an anti-displacement lens to major housing investments. As the City works to develop a formal analysis tool, projects like this present immediate opportunities to begin implementing those principles in practice.
Things to do: We invite you to use our email template to ask City Council to strengthen the anti-displacement impact of the 50 Coxe Avenue project before approving rezoning.
Email Template: You can send an email to the Asheville City Council by filling out the form below. Our email tool will send an individually addressed email to the recipients, and enable us to track how many emails were sent overall in the campaign. If you prefer to write your own email, you can copy and paste (and adapt) our template text – please cc: or bcc: info@gapavl.org on your individualized email, so we can better track how many emails were sent
To: AshevilleNCCouncil@ashevillenc.gov
CC: or BCC: info@gapavl.org
Subject: Strengthening anti-displacement outcomes at 50 Coxe Avenue
Dear Mayor and City Council Members,
I’m writing in support of the proposed affordable housing development at 50 Coxe Avenue and to encourage you, as you consider approval of this project, to take concrete steps to strengthen its impact for those most at risk of displacement.
This is an important opportunity to add housing in a high-cost area, and I support moving the project forward. At the same time, I urge you to use this decision point to ensure that the project more effectively serves very low-income households and helps address rising homelessness in our community.
Specifically, I encourage you to:
- Increase the share of units affordable to households at or below 30% AMI
- Ensure that some units are paired with housing vouchers or supportive housing programs
- Prioritize access for households most at risk of displacement, including those already living in or displaced from Asheville (many of whom continue to work in the city)
- Strengthen the long-term affordability of the project beyond standard time limits
These are practical steps that would help ensure this public investment delivers meaningful and lasting benefits for the community.
Thank you for your leadership and for taking this opportunity to strengthen this project’s impact.
Sincerely,
[Your Name]
REPORT BACK STATUS
Unresolved
Report Back
Coming Soon!
Buncombe County is advancing major decisions that impact displacement without clear analysis or a coordinated policy response
PROBLEMATIC
Summary (Updated 4/27/26): At a recent Buncombe County Commission meeting, several agenda items with clear implications for displacement—including housing investment, regulatory changes, and homelessness response—moved forward without meaningful discussion of displacement impacts. A review of the meeting transcript shows no substantive consideration of how these decisions might affect residents at risk of displacement, even as public comment raised concerns about ongoing displacement pressures in the community. We are closing out this call to action, but will continue to identify opportunities for Buncombe County to address displacement issues.
Buncombe County is taking action on a unified fire district, major bond investments, and floodplain regulations—all of which carry significant displacement risks. While County staff have acknowledged the importance of these issues, the County has not provided clear, public analysis or mitigation strategies. We continue to urge the County to commit to developing a comprehensive anti-displacement policy.
The Facts: At its April 21st meeting, the Buncombe County Commission considered several major items with direct implications for displacement:
- Unified Fire District (Public Hearing): The County is proposing to consolidate fire service tax districts into a single, countywide district, redistributing tax burdens across communities.
- GO Bonds (Affordable Housing and Open Space): The County is authorizing up to $36.5 million in bonds, with funding split between affordable housing and open space/conservation projects.
- Flood Damage Prevention Ordinance (Public Hearing): The County is considering updates to floodplain regulations, which can affect rebuilding rights, property values, and long-term residency.
You can review the full agenda and supporting documents here.
After meeting with GAPavl, County staff shared that our concerns have been circulated internally, that the County relies on its Comprehensive and Strategic Plans and internal equity procedures to assess impact, and that they see value in the need to address displacement. You can read their full response below.
Our Assessment: The County is making decisions that directly affect cost burdens, land use, and housing stability—without a consistent, transparent framework for understanding or preventing displacement.
- The unified fire district will shift tax burdens, with some communities, such as Swannanoa, likely to see increases. For households already facing rising property values, even modest tax increases can create financial pressure that contributes to displacement, particularly in more vulnerable areas.
- The bond package includes needed housing investment, but also funds open space, farmland preservation, and greenway projects that can increase surrounding property values without protections in place. Without safeguards, these kinds of investments can unintentionally accelerate rising rents and home prices in nearby communities, putting additional strain on existing residents.
- The flood ordinance may restrict rebuilding or increase costs in vulnerable areas, particularly in the wake of Hurricane Helene. In practice, these changes can make it harder or more expensive for current residents to remain in place after a disaster, increasing the risk of permanent displacement.
It’s important to emphasize that we aren’t flagging these policies as “problematic”—in each case, there are reasons to think each of them could lead to positive results. Rather, we have serious concerns that because the County is not offering a transparent anti-displacement analysis of the impact of these policies, there’s no way of knowing whether some of their impact won’t be unintentionally destructive, especially to more vulnerable residents.
County staff have pointed to existing plans and internal processes as evidence that these kinds of impacts are being considered. However, there is no clear, public evidence of that analysis being applied to the decisions currently before the Commission. Specifically:
- No displacement impact analysis has been presented for these agenda items
- No public documentation of tax or equity impacts for the unified fire district has been identified, despite references to such analysis
- No mitigation strategies have been proposed for communities likely to face increased costs
- No commitment has been made to develop a comprehensive anti-displacement policy
Without this level of transparency and consistency, neither the public nor decision-makers can fully understand who is affected—or how. This is not just a question of whether the County is doing this work internally, but whether it is doing so in a way that is visible, accountable, and capable of informing better decisions.
The Ask: We invited you to use our email template to urge the County Manager and Commissioners to commit to developing a comprehensive anti-displacement policy.
REPORT BACK STATUS
Unsatisfactory
Report Back
Total GAP Supporter Actions Taken: 11
Recipients and Responses:
Buncombe County Commission
- County Commission Chair Amanda Edwards: No response
- County Commissioner Al Whitesides: No response
- County Commissioner Drew Ball: No response
- County Commissioner Jennifer Horton: No response
- County Commissioner Martin Moore: No response
- County Commissioner Parker Sloane: No response
- County Commissioner Terri Wells: No response
Email from Dr. Noreal Armstrong, Access and Human Affairs Director for Buncombe County
Since we met on March 30th, the points and concerns you mentioned have been shared with others. We are assessing work that has been done, work we are doing, and work we aim to do.
Our 2043 Comprehensive Plan, 2030 Strategic Plan, and many other plans share our six focus areas and steps we have in place to consider impact in our decision making. Additionally, Commissioners had recent discussions on similar topics to those raised in your email during discussion of homeowner grant during the budget workshop. A specific discussion was how we better utilize that program to have a greater impact.
We see value in what you are championing. We engage community for feedback, we have procedures in place (GEC, EOA,& embedded access and equitable measures) to assess impact and we actively work to improve where and how we can. You mentioned attending your meetings to hear concerns and ideas being discussed amongst community members, we are willing to attend on an ad hoc basis. Please send any additional information about the meetings.
I have linked the plans mentioned above and information about the fire district project including the report below.
Comprehensive Plan Implementation – PublicInput
https://www.buncombenc.gov/1095/Fire-Services
All the best,
Dr. No
Appeal deadline for property tax reappraisals is too early
PROBLEMATIC
Summary (Updated 4/27/26): Recent discussions at the County level have not yet resulted in changes to the property tax appeal deadline. This issue remains especially important as rising property values continue to place pressure on homeowners, particularly those with fixed or limited incomes. Ensuring a fair and accessible appeals process is a key component of preventing displacement and promoting housing stability. If you haven’t yet taken action on this item, we encourage you to do so using our template below.
Updated 4/20/26: Two weeks ago, we urged the County to extend the deadline for property tax appeals to give residents more time to respond to rising assessments. The County has not responded to this request. As property values increase, tight deadlines can place additional strain on homeowners—particularly those with fewer resources—highlighting the need for a broader, proactive approach to preventing displacement.
Buncombe County has set a May 5 deadline for homeowners to file formal appeals of their 2026 property reappraisals. Given the unusually large valuation increases and the likelihood of a high volume of appeals, this deadline does not give residents sufficient time to review their assessments, gather evidence, and prepare filings. We recommend that the County extend the appeal deadline to May 20, which would provide homeowners additional time while still allowing adequate time for the Board of Equalization and Review to complete its work before tax-rate adoption.
The Facts: Buncombe County mailed new property reappraisal notices in February 2026 as part of its countywide revaluation. Property owners who disagree with their new assessed value can first pursue an informal review with the Assessor’s Office. If they remain dissatisfied, they may file a formal appeal to the Board of Equalization and Review (BER), an independent body that hears valuation disputes and can adjust assessed values.
The County has set May 5, 2026 as the deadline to file formal appeals to the Board of Equalization and Review. After that date, the Board will begin hearing appeals, with the expectation that decisions will be made in time for the County to finalize its tax base prior to adoption of the FY2027 budget and tax rate in June. Property owners who disagree with the Board’s decision may then appeal further to the North Carolina Property Tax Commission.
Residents can read more about the appeals process and get started with filing one here.
Our Assessment: This year’s reappraisal resulted in significant increases in assessed values for many properties across Buncombe County. When valuation changes are large, it is reasonable to expect a higher-than-normal number of appeals. Preparing a meaningful appeal takes time: property owners must review comparable sales data, gather documentation, and often seek assistance. A May 5 deadline provides a relatively short window, particularly for homeowners with fewer resources or those navigating the process for the first time.
Other North Carolina counties provide more time. For example, Orange County allows formal appeals from early April through June 30, when its Board of Equalization and Review adjourns. Forsyth County has similarly accepted formal appeals through June 30 in recent reappraisal cycles. These examples show that counties can allow later deadlines by keeping their Boards open longer and still complete their tax-rate and budget processes.
We are concerned that Buncombe County’s earlier deadline may discourage valid appeals and disproportionately affect residents with fewer resources, including seniors and long-time homeowners facing large increases. Extending the deadline to May 20 would better align Buncombe with other counties with large populations, give homeowners additional time to prepare, and still leave sufficient time for the Board of Equalization and Review to conduct hearings before the tax rate is set. This modest adjustment would improve fairness and accessibility without disrupting the County’s budget timeline.
Things to do: We invite you to join us in asking the Buncombe County Commission to extend the deadline for property reappraisal appeals. You can use our email template below. There is also a sign-on letter that you can endorse on behalf of an organization here.
Email Template: You can send an email to the Buncombe County Commissioners by filling out the form below. Our email tool will send an individually addressed email to the recipients, and enable us to track how many emails were sent overall in the campaign. If you prefer to write your own email, you can copy and paste (and adapt) our template text – please cc: or bcc: info@gapavl.org on your individualized email, so we can better track how many emails were sent.
To: alfred.whitesides@buncombecounty.org, amanda.edwards@buncombecounty.org, drew.ball@buncombecounty.org, jennifer.horton@buncombecounty.org, martin.moore@buncombecounty.org, parker.sloan@buncombecounty.org, terri.wells@buncombecounty.org
CC: or BCC: info@gapavl.org
Subject: Please extend property tax appeal deadline
I am writing to ask that Buncombe County extend the deadline for filing formal appeals of the 2026 property reappraisal.
The current May 5 deadline does not provide sufficient time for homeowners to review their new assessments and prepare a meaningful appeal—especially given the significant valuation increases many residents have experienced. Preparing an appeal requires gathering comparable sales and reviewing property data, which can be difficult to complete in a short timeframe. Older and less-resourced neighbors, the most at-risk of displacement, are likely to need assistance with the process, which also takes time to secure.
Other North Carolina counties allow more time. For example, Orange County accepts appeals through late June, and Forsyth County has accepted formal appeals through June 30 in recent reappraisal cycles. These counties still complete their budget and tax-rate processes. Extending Buncombe County’s deadline would align with practices already used elsewhere in the state.
Extending the deadline to May 20 would give property owners additional time while still allowing the Board of Equalization and Review adequate time to hear appeals before the tax rate is adopted. This modest adjustment would improve fairness and accessibility, particularly for homeowners who may be navigating the appeals process for the first time.
Thank you for your consideration.
Sincerely,
[Your Name]
REPORT BACK STATUS
Unresolved
Report Back
Total GAP Supporter Actions Taken: 32
Recipients and Responses:
Buncombe County Commission
- County Commission Chair Amanda Edwards: No response
- County Commissioner Al Whitesides: No response
- County Commissioner Drew Ball: No response
- County Commissioner Jennifer Horton: No response
- County Commissioner Martin Moore: No response
- County Commissioner Parker Sloane: No response
- County Commissioner Terri Wells: No response
PREVIOUS REPORTS
GAP Report for 4/20/26
0 Items Buncombe County is advancing major decisions that impact displacement without clear analysis or a coordinated policy response (new) Appeal deadline for property tax reappraisals is too early (updated) 0 Items 0 Items Buncombe County still not taking action on...
GAP Report for 4/13/26
0 Items 0 Items Appeal deadline for property tax reappraisals is too early Buncombe County needs to adopt an anti-displacement policy 0 Items Help Expand Government Accountability in Asheville We’ve had some of our most significant successes lately, with the...
GAP Report for 4/6/26
0 Items 0 Items Appeal deadline for property tax reappraisals is too early (new) Buncombe County needs to adopt an anti-displacement policy 0 Items New Item: Buncombe County’s May 5 deadline for filing formal appeals of the recent property tax reappraisals is too...
GAP Report for 3/30/26
0 Items Community needs a seat at the table as Asheville considers Performing Arts Center on The Block (resolved for now) Asheville needs to adopt an anti-displacement policy (updated) Buncombe County needs to adopt an anti-displacement policy 0 Items Updated Item:...
GAP Report for 3/23/26
Community needs a seat at the table as Asheville considers Performing Arts Center on The Block (resolved) 0 Items Major county decisions are being made without an anti-displacement policy (report back) Asheville needs anti-displacement guardrails in next year’s budget...