Item 4 - Review of Draft Housing Element
TABLE OF CONTENTS
Section
~
Introduction of the Housing Element
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Purpose of this Element
Related Plans and Programs
Scope and Content of Housing Element
Citizen Participation
Housing Element Updates
Housing Element Goals and Policies
Housing Opportunities
Quality of Housing
Maintenance and Preservation of Housing
Related Goals and Policies
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H-7
H-7
H-8
H-9
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Housing Plan
Housing Needs
Housing Constraints
Housing Needs Summary
Housing Opportunities
Housing Programs
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Table
Table 1:
Table 2:
Table 3:
Table 4:
Table 5:
Table 6:
Table 7:
LIST OF TABLES
state Requirements for Housing Elements
Housing Policy Matrix
Residential Development Capacity by Community
Housing Overpayment
Summary of Special Needs Groups
Vacant Residential Land Inventory
Potential Net Increase in Dwelling Units
on Underdeveloped Residential Parcels
Table 8: Potential Five-Year Residential Development
Summary
Table 9: Housing Programs Table
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Purpose of
this Element
INTRODUCTION OF THE HOUSING ELEMENT
The Land Use Element is concerned with housing in
a spatial context while the Housing Element
identifies housing programs aimed at new housing
construction, and rehabilitation and conservation
of the existing affordable housing stock. This
Housing Element builds upon the land use goals and
policies which are primarily concerned with where
new housing is to be located and at what density it
will be constructed. Other concerns of the Housing
Element include the identification of strategies and
programs that focus on housing affordability,
rehabilitation of substandard housing, meeting the
existing demand for new housing, and maintaining an
adequate supply of rental housing. The Housing
Technical Report provides background information and
serves as a technical appendix for the Element.
The Encinitas Housing Element was first adopted on
March 29, 1989, as part of the City's first
comprehensive General Plan. A draft of that element
had been reviewed by the State Department of Housing
and Community Development (state HCD) as provided
by state law, and the Element as adopted was
responsi ve to HCD I S comments. Notwi thstanding,
shortly thereafter State HCD provided a lengthy and
detailed analysis of the Element as adopted which
suggested several changes, especially involving
further detailing of information. In the summer of
1989 the San Diego Association of Governments also
began the process of revising a regional housing
needs statement for the San Diego region (referred
to in this Element as the 1990 RHNS) which provides
updated regional housing share estimates for each
ci ty in the county. These share estimates are
required by State law to be included in each city's
Housing Element.
To address State HCD I S comments and suggestions, and
be able to incorporate regional share numbers into
the Element, the City Council determined in late
1989 to initiate a review of the Element. The
result is this revised Element, adopted on April 24,
1990, after public workshops on housing issues, new
State HCD review, public review, and public hearings
by the City's Planning Commission and the council.
In recent years, attention has focussed on the high
cost of housing. Younger families just entering the
housing market are finding it more difficult to
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Related Plans
and Programs
qualify for housing loans. Many of these families
are paying in excess of 30 percent of their monthly
income for housing. The high cost of housing also
places a greater strain on those households with
limited resources, especially single parent
households or senior citizens on fixed incomes.
New residential development in Encinitas has placed
an additional burden on public services and
infrastructure. New schools, roads, fire stations,
sewers, and a host of other facilities and services
will require expansion if current levels of service
are to be "maintained. Finally, there are concerns
that future residential development will further
degrade the local environment, including the
hillside areas, natural stream channels, and
wetlands. All of these areas are viewed by
residents as resources worth preserving.
The San Diego Association of Governments initiated
the preparation of a series of regional growth
forecasts in the early 1970 's, which since has
become a fundamental element of regional and local
planning. The Series 7 Forecast is the most recent
of those growth forecasts, a result of a cooperative
effort between the staff of SANDAG and each city in
the region as well as the County of San Diego. The
Series 7 Forecast illustrates the likely
distribution of 2.59 million people throughout the
region in 1995; 2.78 million in 2000; and 3.15
million by the year 2010. The Series 7 Forecast
also indicates the likely population distribution
in distinct subareas of the SANDAG region. The
subarea forecast reflects a consensus of the current
public policies in the General and Community Plans
of the region's jurisdictions. Future urban growth
and employment development, as well as the inter-
jurisdictional impacts of public policy changes, can
be observed in the future distribution of people,
employment and land use activity.
The Series 7 subarea forecasts cannot be used to
distribute "regional housing needs" among individual
ci ties, as required by state law. The regional need
figures quoted in this Element are based instead on
the 1990 Regional Housing Needs Statement, also
produced by SANDAG. But the RHNS and Series 7 have
a common statistical base in computing the projected
growth of the entire region. The City needs to be
confident, then, in the accuracy of both series 7
and the RHNS insofar as they establish planning
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scope and
Content of
the Housing
Element
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goals and obj ecti ves for the City I s Housing Element.
The City's intent with this Element is to satisfy
the need for housing, with a variety of programs
tailored for the broad variety of that need. In
carrying out those programs, the City will be one
of several local governments addressing the regional
housing problem.
The Housing Element consists of housing goals and
policies for the five communities that comprise the
Ci ty. Spec if ic housing programs that will implement
these goals and policies are identified in the
section entitled Housing Plan which follows the
Goals and Policies. Finally, the Housing Element
Technical Report contains much of the necessary
background data required for formulating these goals
and policies as well as supporting technical data
required by the state Housing and Community
Development Department.
The State Legislature recognizes the important role
of local general plans, and housing elements in
particular, in implementing Statewide housing goals
which call for the provision of decent and sound
housing for all persons. In addition, the
importance of continuing efforts toward providing
housing that is affordable to all income groups is
stressed. The major concerns of the Legislature
with regard to the preparation of housing elements
are included in the State Code which states:
.
Local governments should recognize
responsibility in contributing to
attainment of the State's housing goals;
their
the
.
Cities and counties should prepare and
implement housing elements coordinated with
State and Federal efforts in achieving the
State's housing goal;
.
Each local jurisdiction should participate in
determining the necessary efforts required to
attain the state's housing goals; and finally
Each local government should cooperate with
other local governments in addressing regional
housing needs.
.
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Citizen
Participation
(-.
Housing
Elements
Updates
\
, .
The state Department of Housing and Community
Development is also very specific regarding the
scope and content of housing elements prepared by
cities and counties. state requirements are
summarized in Table 1, and have been addressed in
the applicable sections of the Encinitas Housing
Element.
There was a considerable amount of public
participation, both direct and indirect, in the
formulation of Encinitas' housing goals, policies,
and programs. The Introduction to the General Plan
details the public participation and review of the
entire General Plan at different stages related to
the plan's initial adoption, 1987-1989. This
participation was in many forms, including a
questionnaire distributed at the various public
meetings held in the early stages of the work
program, workshops and study sessions held
throughout the program at monthly intervals, and
weekly meetings with the General Plan Ad-Hoc
committee. Finally, the public had an opportunity
to review and comment on the General Plan at
hearings held before the various Community Advisory
Boards, the Planning Commission, and the City
Council.
The update of the Housing Element in 1990 provided
further significant public input. This included two
housing workshop sessions, in October and November
of 1989, which reviewed housing issues and program
alternatives in detail. Following were Planning
commission and City Council public hearings on
revisions of the Element as proposed in 1990.
state housing law requires that cities' housing
elements be updated at least once every five years.
Further, the elements for all cities in San Diego
County must be reviewed and updated as appropriate
in 1991. This 1991 review must include an analysis
of housing activity within the Coastal Zone, as
detailed under Gov. Code Sees. 65588 and 65590. The
City will include such analysis and report in the
required 1991 review of the Housing Element. At
that time, city staff will report on data collected
from systems established in 1990, and attempt to
ascertain data from development in preceding years,
starting at July 1, 1987 (the date when the City
took over building permit activity from the County) .
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TABLE 1
STATE REQUIREMENTS FOR HOUSING ELEMENTS
.
Required Housing Element component
A. Housina Needs Assessment
1. Analysis of population trends in Encinitas
2. Analysis of employment trends in Encinitas
3. Projection and quantification in Encinitas' existing
and projected housing needs for all income groups
including the locality's share of regional housing need
4. Analysis and documentation of Encinitas' housing
characteristics including the following:
a. level of housing cost compared to ability to pay;
b. overcrowding;
c. housing stock condition.
5. An inventory of land suitable for residential development
including vacant sites and sites having redevelopment
potential and an analysis of the relationship of zoning,
pUblic facilities and services to these sites
6. Analysis of existing and potential governmental con-
straints upon the maintenance, improvement, or develop-
ment of housing for all income levels
7. Analysis of existing and potential non-governmental
(market) constraints upon maintenance, improvement or
development of housing for all income levels
8. Analysis of special housing needs: (handicapped, elderly,
large families, agricultural workers, female-headeds
households, and the homeless)
9. Analysis of opportunities for energy conservation with
respect to residential development
B. Goals. Ob;ectives. and policies
1. Identification of the city of Encinitas' community goal
relative to maintenance, improvement, and development
of housing
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TABLE 1
STATE REQUIREMENTS FOR HOUSING ELEMENTS
(Continued)
Required Housing Element Component
2. Quantified objectives and policies relative to the
maintenance, improvement, and development of housing
in Encinitas
C. Imolementation Proaram
An implementation program should do the following:
1. Identify adequate sites which will be made available
through appropriate action with required public services
and facilities to facilitate a variety of housing
types for all income levels.
2. Program to assist in the development of adequate housing
to meet the needs of low and moderate income housings
3. Identify and, when appropriate and possible, remove
governmental constraints to the maintenance, improve-
ment, and development of housing in Encinitas
4. Conserve and improve the condition of the existing
affordable housing stock in Encinitas
5. Promote anti-discriminatory housing practices
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Housing
opportunities
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HOUSING ELEMENT GOALS AND POLICIES
This section of the Housing Element contains the
goals and policies the City intends to implement to
address a number of important housing-related
issues. The following three major issue areas are
addressed by the goals and policies of the Housing
Element: ensure that a broad range of housing types
are provided to meet the needs of both existing and
future residents; ensure that housing is both sound
and safe for occupants; and ensure that the existing
housing stock is maintained and preserved. Each
issue area and the supporting goals and policies are
identified and discussed in the following section.
In addition, housing programs which implement each
goal and policy are noted in brackets after each
goal/policy statement. These are referenced by the
designator (I-a, III-b, etc.) for each program in
the "Housing Program Description" section of the
Element.
The City wants to encourage the construction of new
housing units that offer a wide range of housing
types to ensure that an adequate supply is available
to meet existing and future needs. The maintenance
of a balanced inventory of housing in terms of unit
type (e.g. single-family, multiple-family, etc.),
cost, and style will ensure that the existing
variety is maintained. Each of the five communities
have a distinct character due in large part to the
nature of their existing residential neighborhoods.
New housing constructed in the City should reflect
the character of the surrounding neighborhood in
particular and the community in general.
GOAL 1: THE CITY WILL ENCOURAGE THE PROVISION OF
A WIDE RANGE OF HOUSING BY LOCATION, TYPE OF UNIT,
AND PRICE TO MEET THE EXISTING AND FUTURE HOUSING
NEEDS IN THE REGION AND CITY. [I-a through h; II-
a through d; III-c and d; IV-a through f; V-b
through g; VI-a, c through 1; VII-c; VIII-c)
POLICY 1.1: strive to maintain a balance of housing
types in the City. [I-a through g; II-b, c, d; IV-
e, f; V-b, c, d; VI-a, e, j, k; VIII-C)
POLICY 1.2: strive to provide a wide variety of
housing types so that a range of housing needs and
tastes will be ,made available to existing and future
residents. [I-a through h; II-b, c, d; IV-e, f; V-
b, c; VI-a, e, j, k, 1; VII-e; VIII-C)
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I .
C"
Quality of
Housing
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\.,
POLICY 1.3: When existing residential units are
replaced, they should be replaced with units that
are compatible in design with the surrounding
residential neighborhood as planned by the City.
[I-a]
POLICY 1.4: Require that housing constructed
expressly for low and moderate income households
should not be concentrated in any single community
or single area of the city and that such housing
should be high quality in terms of design and
construction without sacrificing affordability. [l-
a, b, e; II-c, VI-c, d)
POLICY 1.5: If a diminishing inventory of rental
housing creates an imbalance, the City should make
every effort to preserve the existing stock of
quality rental housing by discouraging apartment
conversions to condominiums. [V-b)
POLICY 1.6: Encourage retention of all existing,
viable mobile home parks through use of a
mObilehome/trailer park overlay zone, a permanent
mobilehome park zone, and the application of
incentives. [I-d; II-c; IV-e, f; V-c)
POLICY 1. 7: The City should investigate alternative
methods of reducing the cost of housing through the
development of self-help housing programs. [VI-I]
POLICY 1.8: Coordinate with local social service
providers to address the needs of the City's
homeless population. Initiate an amendment of the
Zoning Ordinance to permit transitional
housing/emergency shelters under appropriate zones
and/or at specified locations. [II-d; VI-k; VII-
a,b]
New housing opportunities in the city must be made
available to all persons regardless of age, income,
or race. The diverse make-up of the City with its
five distinct communities will continue to attract
a wide variety of people. The City has made a
strong and firm commitment that fair housing
practices will continue in Encinitas.
GOAL 2: SOUND HOUSING WILL BE PROVIDED IN THE CITY
OF ENCINITAS FOR ALL PERSONS REGARDLESS OF AGE,
FAMILY STATUS, INCOME LEVEL, RACE, OR ETHNICITY.
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Maintenance
and
Preservation
of Housing
POLICY 2.1: Make every reasonable effort to ensure
that the provisions of the Federal and State laws
that prohibit housing discrimination on the basis
of age, sex, and race are enforced. [VI-bi VII-d)
POLICY 2.2: Support ongoing efforts of the State
and county to enforce "fair-housing" laws. [VI-b)
POLICY 2.3 :' Encourage developers to provide a
balance of housing opportunities. [I-a, b, e, hi
II-a, bi VI-a through ii VII-d)
Substandard and deteriorating housing units, in
addition to the obvious problems of blight, can
expose occupants to a wide range of hazards ranging
from electrical fire to exposure to toxic substances
used in construction. Many factors can determine
the "life expectancy" of a dwelling including
quality of workmanship, age, type of construction,
location, and numerous other factors. A major focus
of this Housing Element is to provide goals and
policies which underscore the City's commitment to
ensure that the existing housing stock in the five
communities are maintained.
GOAL 3: THE CITY WILL ENCOURAGE THE MAINTENANCE AND
PRESERVATION OF THE EXISTING HOUSING STOCK AS WELL
AS QUALITY WORKMANSHIP IN NEW HOUSING.
POLICY 3.1: Where determined to be dangerous to the
public health and safety, substandard units in the
City shall be repaired so that they will comply with
the applicable building, safety and housing codes.
When compliance through repair is not or cannot be
achieved, abatement of substandard units shall be
achieved. [V-a]
POLICY 3.2: Enforce
housing codes through
efforts. [V-a]
the building,
vigorous code
safety and
enforcement
POLICY 3.3: continue to apply and support existing
housing programs administered by the county which
provide housing assistance. These include
assistance to property owners that can demonstrate
financial need in the upgrading of their substandard
units. Aggressively pursue the application of
existing County programs for housing rehabilitation,
and investigate and apply available additional
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Related Goals
and Policies
.'
,
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funding. [III-a through di IV-a through f]
POLICY 3.4: continue to assess development fees on
new residential units adequate to pay for all
related local and regional impacts on public
facilities. [VIII-a]
POLICY 3.5: Investigate the application of new
housing assistance, construction and rehabilitation
programs which may be financed if the City
establishes a redevelopment project. [V-c, e, f,
gi VI-f through ki VlI-d, f]
POLICY 3.6: Allow for some cluster-type housing and
other innovative housing design that provides
adequate open areas around and within these
developments. [I-a]
POLICY 3.7: Coordinate the provision of open areas
in adjoining residential developments to maximize
the benefit of the open space. [I-a]
POLICY 3.8: Adapt residential development to the
terrain. [I-a]
POLICY 3.9: Encourage street planting, landscaping,
and undergrounding of utilities. [I-a]
POLICY 3.10: Encourage high standards of design,
materials, and workmanship in all construction and
developments. [I-a]
POLICY 3.11: Discourage residential development of
steep slopes, canyons, and flood plains. [I-a]
POLICY 3.12: Develop and implement design review
criteria which will also include the issue of view
blockage. [I-a]
POLICY 3.13: Cost effective energy-efficient
housing, including the use of passive systems, will
be encouraged within the City to decrease energy
use. [VIII-b]
The Land Use Element sets forth the amount and type
of residential development permitted under the
General Plan, thereby affecting housing opportunity
in Encinitas. In addition, the Land Use Element
contains policies directed at maintaining the
existing housing stock, as well as ensuring the
quality of new residential development. The
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circulation Element contains policies to min1m1ze
roadway traffic into residential neighborhoods, and
the Noise Element sets forth policies to minimize
the level of noise in neighborhoods. The Resource
Management Element establishes development standards
to minimize the impact of residential development
on sensitive resources, such as hillside areas,
ecological habitat, and scenic viewsheds. Finally,
the Public Safety Element sets forth policies to
ensure the safety of the City's housing stock
through such measures as code enforcement, and
mitigation of environmental hazard as a condition
to development. Table 2: Housing Policy Matrix
depicts General Plan elements that support the goals
of the Housing Element.
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r",
TABLE 2
HOUSING POLICY MATRIX
Resource Public
Issue Area Land Use Circulation Management Noise Safety
Housing
Opportunities X X X X
Housing
Quality X
Maintenance
and
Preservation X X X X X
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Housing Nee~s
HOUSING PLAN
This section of the Housing Element summarizes the
current and projected housing needs for the city.
The Element also estimates the number of households
that meet Federal or State criteria for special
consideration when discussing specialized needs.
In addition, certain constraints which may
discourage the construction of new housing are
described. These constraints may include a wide
range of factors that may increase the cost of new
residential development. Finally, opportunities
that will further the development of new housing are
examined.
A number of factors will influence the degree of
demand or "need" for new housing in Encinitas in
coming years. The five major "needs" categories
considered in this Element include:
o
Housing needs resulting
population growth, both in
surrounding region;
from increased
the City and the
o
Housing needs that result when households are
paying more than they can afford for housing;
Housing needs resulting from the presence of
"special needs groups" such as very large
families, female-headed households, or
households with a handicapped person; and
Housing needs of the homeless or those
households requiring temporary shelter.
Poculation Growth
o
o
Implementation of the Land Use Element of the
Encinitas General Plan will result in significant
increases in population based on residential
development permitted under the land use policy.
Under land use buildout at mid-range densities, the
General Plan would accommodate a total of
approximately 25,342 dwelling units, supporting an
estimated population of 63,862 persons. With the
mid-range density buildout, the total of 25,342
housing units represents an additional 5,381 units
(27% increase) which can be added to the City'S
existing stock. The estimated mid-range buildout
population of 63,862 persons represents an
additional 12,521 persons (24% increase) over the
City'S 1987 population.
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Table 3 indicates the mid-range capacity for each
of the five communities comprising the city.
During the 1980s, Encinitas was one of the fastest
growing cities in San Diego County. The City's 1980
population of 36,318 increased to 51,341 in 1987,
representing a 41% increase (or 15,023 persons) in
the seven year period. The majority of this
population growth is a result of new residential
development attracting additional persons into the
City. According to SANDAG, there were an estimated
19,961 housing units in Encinitas in 1987,
representing an increase of approximately 40% (or
5,728 dwelling units) since 1980.
According to SANDAG' s Series 7 Regional Growth
Forecast, the City of Encinitas is projected to grow
to a population of 65,126, with an associated
housing stock of 25,493 dwelling units; these
projections would be accommodated (within 2%) under
mid-range buildout of the Land Use Element.
Substandard units
The overall condition of the City's housing stock
is very good. Over 80% has been constructed since
1960 and thus not likely in need of substantial
rehabilitation. According to the 1980 Census, only
3% of the City's housing units lacked complete
plumbing, heating, or kitchen facilities.
A housing condition survey was conducted in October
1987, to assess the number of substandard units in
the City. Several substandard units were identified
in isolated pockets, primarily in Leucadia and Old
Encinitas. The majority of substandard units
appeared to have only intermediate defects and could
benefit from rehabilitation, with a few units so
severely dilapidated as to warrant demolition.
This Housing Element sets forth policies to
encourage the maintenance of the City I S existing
housing stock. Specific policies include:
.
Require upgrading of substandard units which
present health and safety hazards.
.
Promote vigorous enforcement of building,
safety and housing codes.
.
Support rehabilitation programs which provide
financial assistance to lower income property
owners and owners of affordable rental units.
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TABLE 3
RESIDENTIAL DEVELOPMENT CAPACITY BY COMMUNITY
Net Increase (1)
Mid-Range Mid-Range Number
Community Population Du Capacity Population of units
Cardiff 12,752 5,060 +3,254 +1,245
Leucadia/Sphere 13,805 5,478 +3,737 + 970
New Encinitas/Sphere 21,196 8,411 +5,595 +3,139
Old Encinitas/Sphere 12,002 4,763 +2,166 + 689
Olivenhain/Sphere 4.107 1.630 + 554 + 389
City 63,862 25,342 15,306 6,432
(l)Existing - 1986 SANDAG
Source:
Cotton/Beland/Associates, Inc., 1987.
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Affordabilitv
.~
state and Federal standards for housing overpayment
are based on an income-to-housing cost ratio of
thirty percent and above. Households paying greater
than this amount will have less income left over for
other necessities, such as food, clothing and health
care. It is recognized, however, that upper income
households are generally capable of paying a larger
proportion of their income for housing, and
therefore estimates of housing overpayment generally
focus on lower income groups.
Table 4 presents information on households in
Encinitas which paid greater than 30% of their
income on housing in 1980. As could be expected,
the lower the income group, the greater the
proportion of households which overpaid for housing.
Among households earning less than $10,000, 77%
overpaid for housing, whereas 48% in the $10,000-
$19,999 income category overpaid and only 15%
earning greater than $20,000 overpaid. Within the
two lowest income ranges (which encompass low and
moderate income households) , a significantly greater
proportion of renters overpaid for housing than did
owners. Renter households with annual incomes of
less than $10,000 were the most impacted in terms
of housing affordability, nearly 92% overpaying for
housing.
SANDAG develops estimates of housing need for all
jurisdictions in the San Diego region (see
discussion below). Included are estimates of need
based on affordability. The Regional Housing Needs
Statement prepared by SANDAG allocates each
jurisdiction's "fair share" of affordable housing
requirements, "fair share" referring to the number
of low and very low income households requiring
housing assistance by the jurisdiction. The 1990
Regional Housing Needs Statement established a five
year goal for Encinitas to assist 533 fair share
households wi thin this Element's period (through
1994). Based on estimates of housing need for low
income elderly and female-headed households, a
.
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TABLE 4
HOUSING OVERPAYMENT
TOTAL RENTER OWNER
# % # % # %
1728 76.7% 1,271 91. 8% 457 52.6%
1620 48.3% 1,154 54.8% 466 37.3%
875 14.7% 88 5.4% 787 18.3%
INCOME/COST
Less than $10,000,
Spent 30% or more
$10,000 - $19,999,
Spent 30% or more
$20,000 and above,
Spent 30% or more
Source:
U.S. Bureau of the Census, 1980.
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mlnlmum of 5% of assisted housing units should be
targeted for the elderly and 40% for female
households with children, for a five year goal of
27 and 213 units respectively.'
SANDAG Reaional Needs and Fairshare Estimates
Section 65583(a) of the California Government Code
requires that a City I s Housing Element contain a
determination of the city's share of the regional
housing need. section 65584 requires that the
estimate of need be prepared by the local council
of governments, based on data provided by State HCD.
SANDAG, as the San Diego region's council of
governments provides its estimates in a periodic
report titled the Regional Housing Needs Statement
(RHNS). The latest RHNS for the San Diego Region
is the 1990 RHNS.
The 1990 RHNS terms the estimated share of need the
"regional share." This is an estimate of the
"increase in the number of housing units needed"
(RHNS, Ch. 3, Sec. B). The estimated regional share
for Encinitas is 1406 for a five year period, broken
down by household income categories as follows:
Very Low Income
Lower Income
Moderate Income
Other (Upper) Income
TOTAL
323
239
295
549
1406
These income categories are the "standard" ones as
defined by HUD and accepted by State HCD. Very low
are incomes below 50% of the median income for the
region. Low are between 50% and 80% of the regional
median. Moderate are between 80% and 120%, and
other (upper) are above 120%. These four income
categories are referred to frequently in this
Element, chiefly in the discussions of housing
'AS the HAP for the San Diego region does not separately break
out the housing needs of special needs groups for the City of
Encinitas, 1980 Census data was used to estimate the number of
elderly and female headed households in need of housing assistance.
Households for whom poverty status is determined was the closes
correlation to households in need of housing assistance available
in the Census. The proportion of elderly and female-headed
households in poverty to total households in poverty was used as
an estimate of the proportion these groups comprise of total
households in need of housing assistance.
H-18
04/24/90
constraints and housing opportunities. The
conclusions of these discussions are that the city
has, within its given constraints, planned an
adequate "base" of land use to be able to satisfy
housing needs. The City's growth management system
fully exempts units affordable to low and very low
income households from the annual allocation system.
The units allowed and otherwise exempted by the
growth management system, and expected to be issued
over the next 5 years, will more than satisfy the
remaining regional share.
The limitations to realizing adequate housing
opportunities are the market constraints noted under
Housing Constraints (below) which keep affordable
opportunities from being available to low and very
low income households. This endemic problem is
recognized in the 1990 RHNS, which in addition to
the "regional share" establishes a "fair share"
determination for each city in the San Diego Region.
Different from the "regional share" estimate, the
"fair share" estimate applies to the target income-
category households of very low and low, only. It
recognizes existing (1988-89) need as well as
additional need generated over the next 5 years,
and is applicable to housing programs which provide
housing opportunities through construction,
rehabilitation, conservation, and direct household
support.
The fair-share five year goal estimated for
Encinitas is 538. This is defined by the RHNS as
a "level of effort by a local agency that would be
acceptable as reasonable progress towards meeting
its housing needs." As outlined in the Housing
Programs section (below), the City of Encinitas'
housing programs are a comprehensive approach to
providing and conserving affordable housing
opportunities through construction, rehabilitation,
and direct household support.
The 1990 RHNS is scheduled for final adoption by the
SANDAG Board in April of 1990. It is not expected
that the above regional share numbers will change.
However, any alteration will be addressed in new
analysis and adoption, as necessary, with the
required review of the City I s Housing Element in
1991.
CJ/dc/GM1-02wp5 (2/13/90/2)
H-19
12/89
Enerav
~
As residential energy costs continue to rise,
increasing utility costs reduce the affordability
of housing, thus aggravating the city I s current
shortage of affordable units. The General Plan sets
forth goals and policies which encourage the
conservation of non-renewable resources in concert
with the use of alternative energy sources to
increase energy self-sufficiency. In addition, the
City utilizes Title 24 energy standards for
residential construction to minimize energy
consumption.
Soecial Needs Grouos
(',
certain segments of the population may have a more
difficult time finding decent, affordable housing
due to special circumstances. State law mandates
that the Housing Element analyze the special housing
needs of such groups as the elderly, handicapped
persons, large families, agricultural worker
households, female headed households, and the
homeless. In addition to these groups, this section
will look at racial/ethnic groups I special needs and
the needs of an additional group called migrant day-
laborers.
Elderlv: The special needs of many elderly
households result from their lower, fixed incomes,
physical disabilities, and dependence needs. In
1980, Encinitas had 2,185 residents age 67 and
above, representing 6.0% of its total population.
The housing needs of this group can be answered
through the provision of smaller units, second units
on lots with existing homes, shared living
arrangements, congregate housing and housing
assistance' programs;. As previously noted, the
ci ty I S annual housing assistance goal for low income
elderly housing should be a minimum of 4 dwelling
units.
Handicaooed: The 1980 Census identifies 1,454
persons living in Encinitas who suffer from
disabilities which would likely affect their housing
needs. Housing opportunities for the handicapped
can be maximized through housing assistance programs
and providing design features such as widened
doorways, ramps, lowered countertops, single-level
units, and ground floor units.
(
,,-,.,
Larae Families/Unit Overcrowdina:
Large families
H-20
04/24/90
...:. .'--"~ ... ""'..,~-~.:..
are identified as a group with special housing needs
based on the limited availability of adequately
sized, affordable housing units. Large households
are often of lower income, often resulting in the
overcrowding of smaller dwelling units and in turn
accelerating unit deterioration. Approximately 8.6%
of the city's households in 1980 had five or more
members; overcrowded households comprised 1.4% of
total 1980 households.z The City's single-family
neighborhoods exhibited the highest concentration
of large families (Olivenhain, New Encinitas, and
Cardiff east of 1-5), each of these areas
characterized by 12-13 percent large family
households. Unit overcrowding in these areas is
minimal, indicating that unit sizes are generally
adequate to accommodate large families. Conversely,
inland Leucadia (east of 1-5) is characterized by
a significant proportion of large family households
(19%), combined with unit overcrowding of nearly
five percent and a housing stock of over one third
rentals. This indicates the need for larger rental
units in inland Leucadia and/or subsidies to allow
for large households to afford adequately sized
units.
Farmworkers: The special housing needs of many
agricultural workers stem from their low wages.
Their housing needs, then, are for affordable low-
cost housing, and housing tied to the agricultural/
horticultural operations which generate their
presence in the local housing market.
Farm employment in Encinitas is almost exclusively
related to horticultural operations, and
particularly the flower growing industry. In
general, employees in the City's horticultural
industry are reported to be skilled to highly
skilled, long-term workers with established roots
in the community. Most nurseries reportedly do not
hire "off the street" day laborers because of their
inexperience with perishable commodities, (e.g.
flowers, herbs) and their transient nature. The
City's flower growing operations report that they
employ a stable, year-round labor force.
The 1980 Census identified 1,116 persons in the
farming, forestry and fishing occupations,
representing 3.1% of the City's population. The
ZThe U.S. Census defines overcrowding as households with 1.01
persons per room or greater.
H-21
04/24/90
,I""'"
1990 RHNS (SANDAG) identifies 3,164 persons in this
occupation category in 1988, or approximately 6% of
the City's population, however, and a very high
11.7% of all employment in this category throughout
the San Diego Region. The RHNS produced its 1988
numbers as an extrapolation of 1980 census data for
a "census designated place" noted as Encinitas. The
boundaries of this area, however, were far different
from the City as incorporated, and such an
extrapolation would be false. For this reason, the
Housing Element uses 1980 census data for a group
of census tracts which very closely match
incorporated City limits. For this reason, the
proportion of agricultural workers indicated above
from census tracts as opposed to the RHNS figures
should be used.
c:::
The City has developed specific provisions in its
zoning ordinance to facilitate housing for its
agricultural worker population. The City's
agricultural employee housing ordinance allows for
such housing as a permitted accessory use in
conjunction with an agricultural or horticultural
operation. Such housing generally takes the form
of mobile homes located on the farm property. The
Housing Element sets forth a program to review the
current standards/limitations in this ordinance to
provide incentives for the creation of accessory
agricultural worker housing. Housing opportunities
for agricultural workers can further be expanded
through implementation of programs to provide
affordable housing opportunities.
Female-Headed Households: Female-headed households
tend to have low incomes, thus limiting housing
availability for this group. The 1980 Census
identified 1,261 female-headed households in
Encinitas, representing 8.6% of all households in
the City. Of these female households, approximately
18% were identified as earning incomes below the
poverty level, with 97% of these households
supporting children. The housing needs of female-
headed households of lower income can be addressed
through additional affordable housing programs, as
well as through the provision of affordable day care
options. As noted above, the City's final housing
assistance goal for low-income female-headed
households should be a minimum of 30 dwelling units.
Homeless: Throughout the country, homelessness has
become an increasing problem. Factors contributing
to the rise in homelessness are thought to include
,;
....
H-22
04/24/90
the general lack of housing affordable to low and
very low income persons, increases in the number of
persons whose incomes fall below the poverty level,
reductions in public subsidy to the poor, and the
de-institutionalization of the mentally ill.
The needs of the homeless are, most immediately and
obviously, for decent and sanitary shelter. This
can be in the form of emergency or transitional
facilities. More fundamentally and long-term, the
homeless need to have the economic and sociological
problems related to their homeless condition
addressed. This includes the need for adequate
employment, and can include the availability of
transportation and child care.
The number of homeless in the city is difficult to
measure precisely; however, estimates can be
provided. The Community Resource Center in
Encinitas provides services and temporary shelter
vouchers to homeless individuals and families in the
community. They report receiving approximately 500
requests in 1989 from persons seeking emergency
assistance for items such as food, shelter, clothing
and bus fare. This represents a significant
increase from prior years when emergency assistance
requests were significantly lower (332 requests in
1988, 291 in 1987, and 220 in 1986). The Center
serves approximately 125 persons annually in an
emergency shelter voucher program. Only legally
documented persons can qualify for the shelter
program, and applicants must be drug and alcohol
free. The Center reports a range of individuals
seeking temporary housing assistance, including
single mothers, families and couples. These groups
can largely be classified as "temporary homeless",
on the streets between one and six months with the
major cause of homelessness related to unemployment,
or underemployment. According to the Center, few
single men or Mexican immigrants apply for shelter,
and few "chronic" homeless have applied for
assistance. There is no other program currently in
operation, directly by the City or under agreement
with the City, which provides homeless placement.
It is unknown whether other shelter operations in
this part of the region (see the Housing Element
Technical Report) receive placement of homeless
households from the City. The "worst-case" scenario
based on tfle above, then, is that there are
approximately 375 unaddressed client contacts
annually emergency shelter assistance. The level
of service from the CRC voucher program (2-3 months
H-23
04/24/90
/---"'"
(
of housing counselling and access to services to
resolve problems causing homelessness) suggests that
it serves as a transitional shelter program as well,
so the unmet need for transitional shelter is, also,
an estimated 375.
(
The number of temporary homeless seeking assistance
from the Community Resource Center indicates a
significant need which warrants programs to
ameliorate. Programs set forth in this Element are
designed to address the housing and social service
needs of the homeless. Included are programs to
accommodate and encourage transitional housing
services. A transitional housing facility provides
shelter for specified period of time (perhaps as
long as one year) and generally includes integration
with other social services and counseling programs
to assist in the transition to self-sufficiency
through the acquisition of permanent income and
housing. The City can help address this identified
need by providing supplementary funding to the
Community Resource Center, and encouraging the
development of a transitional housing facility. In
addition, by providing programs to maintain and
expand affordable housing opportunities, the City
can help to curtail additional persons and families
from becoming homeless in the future.
Miarant Dav Laborers: Related to the issue of
agricultural worker and homeless populations within
the City are the numerous Hispanic immigrants which
seek work as day laborers in Encinitas and other
North County locales. Because of the city's
proximity to the Mexican border and location along
a major transportation route, Encinitas provides a
convenient temporary place to stop and rest and seek
work before moving on to industrial or agricultural
jobs further north. The presence of open spaces for
transient campsites and of available jobs, even day-
jobs for temporary employment, makes Encinitas
attracti ve to these workers, documented and
undocumented.
\. ...
In October, 1986, the Encinitas city Council
established an Undocumented Workers Task Force to
study this population. The Task Force was able to
obtain substantial information related to "visible"
day-workers - those who live in temporary illegal
encampments in and around the City and those who
stand on the streets waiting to be offered work (for
example, on Encinitas Boulevard and El Camino Real) .
Less visible undocumented and documented immigrants
H-24
04/24/90
;.c-. . ^~_ _--,-""-,~".__"""_.,-,-_"",,,, "__ _'. .
do exist in Encinitas who have obtained more
permanent employment and housing, allowing them to
"blend" into the community.
Some of the most salient findings of the
Undocumented Workers Task Force study, completed in
1987, are:
1. The "visible" population of day laborers is
estimated to be as many as 600 to 800
individuals during high seasons of employment,
dropping to between 200 to 400 persons during
low employment periods.
2. Based on in-person interviews, most of these
people apparently find intermittent, temporary
employment in yard work, construction/site
clean-up, landscaping and other types of day
labor. The nature of such intermittent
employment, when available, is such that
migrant day-laborers are likely unemployed more
frequently than employed; nor is labor, when
available, necessarily within the City of
Encinitas. The flower growing operations in
Encinitas were reportedly not a major source
of employment as they typically employ a more
permanent, stable workforce. While many of the
City's nurseries are believed to employ
undocumented workers, the majority of
horticultural workers have been employed. for
over 5 years.
3. Although there have been reports of occasional
nuclear family groups in transient campsites,
all of those studied by the Task force had only
male occupants. These men were typically in
their twenties and early thirties, though a few
were in their forties and fifties.
4. The transient camps varied greatly with respect
to the length of time their occupants remained
in each. camps occupied by residents from the
more northerly Mexican states were
characterized by brief resident stays - a few
weeks to a few months - and high turnover. By
contrast, another small camp reportedly had
occupants who typically remained for eight
months to a year.
In summary, the City has a significant population
of documented and undocumented migrant day laborers.
The City can not provide housing assistance for this
H-25
04/24/90
group until they gain legal status. Laborers which
do qualify for amnesty can take advantage of city
services, such as the City's new employment hiring
hall and housing assistance for lower income
household.
"....."
,
Race/Ethnicitv: Different racial or ethnic groups
can also constitute special needs groups for
housing, if their concentrations are significant
enough and if housing circumstances warrant. The
1990 RHNS from SANDAG estimates the following
percentages of racial/ethnic groups in the City of
Encinitas and in the County as a whole:
White
Black
Hispanic
Asian/other
City
81%
<01%
14%
4%
County
68%
5%
17%
9%
1980-88, pgrcentage increases
White
Black
Hispanic
Asian/Other
City
38.4%
57.4%
61.5%
93.9%
County
16%
23%
45.5%
89.5%
The Hispanic population in Encinitas is growing more
quickly than in the County and the growth rate is
high. Since this group represents a significant
proportion of the population, that rate of change
will have a noticeable impact on the make-up of the
population. These figures do not include the
migrant population.
The Asian/Other population is growing quickly in the
City and the County and will, over a longer period
of time, also become a sizable group to include in
planning for services.
The needs of racial/ethnic households based on
income can be addressed by City housing programs
based on income levels. To fulfill the goal of equal
opportunity of housing regardless of race/ethnicity,
City programs to promote equal opportunity are
included in this Element.
Summary of Special Needs
c
The preceding analysis indicates that of primary
concern in addressing the housing needs of special
H-26
04/24/90
i'-.
Housing
Constraints
(,
needs groups is the provision of affordable housing.
This Housing Element sets forth a series of policies
targeted at mairttaining and enhancing the City's
stock of, affordable units. Specific policies
include:
.
Encouraging the development of a wide variety
of housing types and price ranges to meet the
diverse needs of residents.
.
Ensuring that an adequate mix of rental housing
may be maintained by discouraging the
conversion of apartments to condominium
ownership.
.
Encouraging self-help housing programs.
Establishing a separate mobilehome park zone
for certain existing mobile home par~s and an
overlay zone for other parks to encourage their
retention.
.
Actual or potential constraints on the provision
and cost of housing affect the development of new
housing and the maintenance of existing units for
all income levels. Environmental constraints may
also limit growth. These other factors that
constrain future residential development are
discussed below.
Non-Governmental Constraints - Market Constraints
The high cost of renting or buying housing is the
primary ongoing constraint to providing adequate
housing in the City of Encini tas. High construction
costs, land costs, labor costs and market financing
all contribute to a decrease in the availability of
affordable housing. The nature of the private
housing market, itself, is a most significant
contributor to high housing costs; seemingly
unquenchable demand for housing in coastal
communities, and the quite natural aim of housing
developers to the profitability of their business,
mean that lower or no-profit housing for low and
very low income households is not likely to be
provided.
H-27
04/24/90
TABLE 5
SUMMARY OF SPECIAL NEEDS GROUPS
Needs Group
Handicapped
Elderly (65+)
Large families
(5+ members)
Agricultural Worker
Female-headed
Homeless
Migrant Day-Laborers
Number of
Households/Persons
% of Total
Households/Persons
1,454 (P)
2,185 (P)
1,223 (H)
1,116 (P)
1,261 (H)
500+(H)
800 (P)
4.0
6.0
8.6
3.1
8.6
2.4
1.5
Note: Percentages will not total 100% since each category
is mutually exclusive. A single household may appear in more
than one category. Data for handicapped, elderly, large
families, agricultural workers and female-headed households
are from the 1980 census. Data for homeless and migrant
day-laborers are 1989 base year.
Sources: Cotton/Beland/Associates
U.S. Bureau of the Census
SANDAG, Series VII
,
\... ..
H-28
04/24/90
Construction Costs: According to the Construction
Industry Research Board (CIRB), throughout
California the single largest cost associated with
building a new house is the cost of building
materials, comprising between 40 to 50 percent of
the sales price of a new home. statewide
construction costs rose over 30 percent between 1980
and 1988, with the rising cost of energy a
signif icant contributor. Construction costs for
wood frame, single-family construction of average
to good quality range from $40 to $55 per square
foot, custom homes and units with extra amenities
running somewhat higher. Costs for wood frame,
multi-family construction average around $42 per
square foot, exclusive of parking.
A reduction in per-unit square footage, amenities
and quality of building materials (above a minimum
acceptability for health, safety, and adequate
performance) could result in lower sales prices.
Additionally, pre-fabricated, factory built housing
(such as mobilehomes) may provide for lower priced
housing by reducing construction and labor costs.
An additional factor related to construction costs
is the number of units built at the same time. As
the number of units developed increases,
construction costs over the entire development are
generally reduced based on economics of scale.
However, there is a limit to the amount of raw land
available of large enough size to realize these
advantages. Density bonuses may be of use in
increasing the potential for economies of scale.
Programs aimed at reducing housing construction
costs are included in this Housing Element,
including provisions for mobilehomes and pre-
fabricated structures, density bonuses, and various
programs to subsidize construction costs.
Land: Land costs appear to be the most significant
contributor to housing costs in Encinitas. Land
costs include the costs of raw land and site
improvements. The limited supply of developable
vacant land in Encinitas and the market demand for
coastal-area housing have accounted for a steady
increase in raw land costs. Representati ve land
sales in 1989 indicate costs for non-ocean-view lots
ranging from $16-18 per square foot to $25-30 per
square foot. Due to unique factors of location and
the current anomalies of the market, some land for
single-family homes may command a higher per-square-.
foot price than other land for multifamily use.
H-29
04/24/90
/~..
This seems to illustrate the depth of demand for
high-end, near-beach property.
As Encinitas becomes built out/ the supply of
developable land will become more scarce and the
price may be driven upward further. Marginal lands
which are opened up to development will require
greater site improvements to render them
developable, factoring into the price of land.
Density increases are often thought of as a
mechanism to lower per-unit land costs; however /
such increases can have the effect of raising the
market price of land. There are also too many
anomalies affecting the market to be able to
conclude that lower costs/ or certainly costs
affordable to target households, would result from
higher density designations. In addition, a host
of environmental and "carrying-capacity" factors
weigh against using density increases as a primary
tool to mitigate land costs. These factors,
including flood hazards, steeply sloping lands and
poor accessibility are documented in the Land Use,
Circulation, Resource Management and Public Safety
elements of the City's General Plan. These are also
documented by SANDAG and other regional studies
which, for example, show that the regional and sub-
regional circulation systems cannot afford to carry
further development allowance increases. Regional
air quality is another limiting factor. For these
reasons/ density bonuses, rather than zoning
changes, are the preferred vehicle for reducing land
costs in Encinitas based on density alone. Density
bonuses have the added advantage of directly being
tied to the provision of affordable housing. Land
costs can be addressed in additional ways as well.
Allowance for accessory apartments, State Coastal
Housing requirements, and land subsidiary are among
these.
c,
Labor Costs: Labor is the third most expensive
component in building a house, constituting an
estimated 17 percent of the cost of building a
single-family dwelling (eIRB). The cost of union
labor in the construction trades has risen steadily
since April 1974. The cost of non-union labor,
however, has not experienced such significant
increases. Because of increased construction
activity, the demand for skilled labor has increased
so drastically that an increasing number of non-
union employees are being hired in addition to
unionized employees, thereby lessening labor costs.
Labor costs can further be reduced by "self-help"
H-30
04/24/90
~""-""""
housing programs which
construction techniques to
building their own homes.
Financinq: while interest rates have fallen more
than 10 percent from their near 20 percent high in
the early 1980s, they still have a significant
impact on housing costs which is felt by renters,
purchasers and developers. The combination of 9 to
12 percent interest rates on home mortgages and down
payments of 10 to 20 percent excludes many
individuals from home ownership. According to
information compiled by the San Diego Union
newspaper, the median sales price for single-family
resale home in Encinitas in July 1989 was $267,500.
A $240,750 mortgage amortized over 30 years at an
interest rate of 10% would result in monthly house
payments of $2,112. This level of payment
eliminates Encinitas I very low, low and moderate
income households from the for-sale housing market.
Condominiums do, however, offer an alternative, more
affordable home ownership opportunity for many of
the City's households.
train individuals in
allow them to assists in
Interest rates are determined by national policies
and economic conditions, and there is little that
local governments can do to affect these rates.
Jur isdictions can, however, offer interest rate
write-downs and other subsidies to extend home
purchase opportunities to lower income households.
In addition, government insured loan programs may
be available to redu~ mortgage down payment
requirements.
Based on evidence of construction activity
throughout the City, residential financing is
generally available in Encinitas and interest rates
do not vary significantly from surrounding areas.
There is no evidence of any mortgage deficient areas
for new construction or rehabilitation loans.
other Market Constraints: Another market constraint
can be simply the availability of housing, as
reflected in rental vacancy rates. An especially
low rate would reflect a high demand versus a lack
of supply, and could warrant program efforts to
address the imbalance.
The rental vacancy rate in Encinitas is 3.9% as of
1989 (1990 RHNS, SANDAG). That is close to the
average of the region and indicates there is
movement within the rental market, that supply is
,-
(
H-31
04/24/90
available to meet new and changing demands. It is
likely that the vacancy rate for lower priced units
is a lower percentage. Programs in this Element to
address lower income housing needs are aimed at
increasing the availability of lower cost housing
opportunities.
Non-Governmental
Constraints
Constraints
Environmental
Portions of Encinitas are exposed to a variety of
environmental hazards and resources which constrain
development. These constraints include flooding,
landslides and seismic hazards, and areas with
natural and cultural resources. The Land Use
Element has defined a Special Studies Overlay
designation that recognizes the need for additional
development standards in these environmentally
constrained areas before future development may
proceed.
There is a definite relationship between
environmental constraints and possible, safe or
desirable development potential. While some degree
of additional impact upon and from the environment
is inevitable from any new growth, there needs to
be balance between housing and development
environmental constraints and needs. In Encinitas
those areas planned for higher density are less
subject to environmental limits and hazards. (See
discussion above under Housing Constraints,
Potential Constraint, Method of Calculating
Density. )
Floodina: The Public Safety Element identifies
those areas in the City that are subject to periodic
flooding based on Flood Insurance Rate Maps prepared
for the area. The maps indicate that there is a
potential for flooding from Encinitas Creek, and
along a number of smaller streams in the Planning
Area. Much of the coastal area is subject to high
waves from offshore storms and/or unusually high
tides. General Plan policies require specific
mitigation measures for development within these
flood-prone areas.
Hillside/Slope: The hillside topography in portions
of the Planning Area contain slopes that may be too
steep to safely accommodate development; these areas
of slopes constraint are mapped in Figure 1: Land
Use Suitability Map located in the Land Use Element.
The potential for slope failure is often complicated
I ,
'-...'
H-32
04/24/90
/
by improper hillside grading, over watering of
hillside lots, and ground shaking from earthquakes.
Allowable development densities in hillside areas
will be based on topography, findings of soils and
geotechnical studies, and the application of
specific hillside development standards.
seismic Hazard: Like the entire Southern California
region, the' City of Encinitas is located within an
area of high seismic activity. Two known active
. faults - the San Jacinto and Elsinore fault zones -
lie within a fifty mile radius to the City. While
no known faults lie within the city's boundaries,
a number of smaller fault traces have been
identified, and are indicated in the Public Safety
Element.
Cultural/Natural Resources: In addition to
flooding, seismic hazard, and hillside constraints
to development, areas of significant ecological
habitat and historic/archaeologic resources are
present in the Planning Area. Development standards
will necessarily be more stringent in these
sensitive .areas to minimize potential adverse
impacts to the City's natural and cultural
resources.
Governmental Constraints
The intent of local government regulation is to
protect public health and safety and ensure a decent
quality of life for the community. However, such
regulations may add to the cost of new housing.
State law requires that the Housing Element address
and, where appropriate and legally possible, remove
governmental constraints to the maintenance,
improvement and development of housing. The
following analyzes the potential and actual
governmental constraints upon the maintenance,
improvement, or development of housing for all
income levels, including land use controls, building
codes and their enforcement, site improvements, fees
and other exactions required of developers, and
local processing and permit procedures.
Land Use Controls: Potential Constraint. Densitv -
The Land Use Element of the General Plan provides
for a variety of residential densities dispersed
throughout the City. Much of the community can be
characterized as residential and rural residential,
with some agricultural uses. Much of the remaining
vacant land to be developed consists of
.
\..
H-33
04/24/90
environmentally constrained land, with topographic,
drainage, and other limitations, as identified in
the PUblic Safety and Resource Management elements.
As a result of the desire to maintain a largely
single family residential community, the desire to
preserve agricultural uses and the need to comply
with environmental regulations, a majority of the
City has been designated single family residential,
Rural Residential (RR) to Residential Single Family
11 (RS-11).
Notwithstanding this, the Land Use Element provides
for an adequate number, and mix of densities, of new
residential units. As noted in more detail in the
discussion of the City's residential land use
inventory, the total number of new dwellings planned
allows the City's "regional share" of new units
identified in the 1990 Regional Housing Needs
Statement (SANDAG) to be satisfied. In addition,
approximately 24% of the City's new residential
development potential (approximately 1300 of 5380
new dwellings) fall within the mUlti-family
residential categories, zones R-11 through R-25.
This includes approximately 599 new units on vacant
land, and 739 new units to result from "recycling"
or infill. Together with other measures such as
allowance for accessory or "second" units, this land
use plan is expected to yield an adequate potential
of new dwellings. Rather than density, the "market"
constraints of land costs, construction costs,
finance costs, etc. appear to be responsible for the
lack of affordable housing in the City (see
discussion under "Nongovernmental Constraints").
Thus, density allowance under the plan is not
concluded to be a significant constraint to housing.
Note, however, that density bonus allowances will
remain available as a housing program.
i
'- .'
Potential Constraint. Growth Manaqement qoals and
Policies - The Land Use Element contain growth
management goals and policies which include an
annual proportional allocation of residential
building permits based on the total number of
dwelling units in the City at build-out. The annual
allocation limit is not an arbitrary figure, but is
based on the total development potential of the City
as planned in the Land Use Element. Each year's
allocation is calculated at the beginning of the
year. The total residential potential of the plan
is maintained over the plan I s 25-year term, and thus
is not constrained over the long run. Based on the
city's experience with the allocation in 1989, the
H-34
04/24/90
allocation is expected to result in an average of
200 new units being permitted each year, or about
1000 dwelling units over the next 5 year period of
the Housing Element. This is in step with the
City's "regional share" of 843 moderate and upper-
income units over the next five year term, as
establ ished in the 1990 RHNS. Further, Land Use
Element Policy 4.4 exempts low and very low income
units from the growth management allocation. Thus,
the growth management allocation is not a constraint
to the number of dwellings within the five year term
of this Housing Element.
Dwellings affordable to low and very low income
households are the target income-range households
under the 1990 RHNS. Thus, affordable dwelling
units are not in the position of competing with
market rate development for a potentially limited
pool of permits to be issued in any given year.
Growth management policies (3.7 and 3.8) require
that any amendments to the Land Use Map to increase
densities must be approved by an affirmative vote
of the majority of those voting at an election.
This requirement, imposing both additional time and
land holding costs for a density increase, would be
a constraint if density increases were necessary for
the City to reach its objectives for housing. As
noted above, however, the City's development
potential as now planned is expected to satisfy the
number of dwellings needed and the rate they are
needed to satisfy the city's "regional share."
Therefore, this requirement is determined not to be
a significant constraint.
The administrative and implementation provisions of
the Growth Management Policy are being developed as
of the date of this Housing Element revision. As
part of that process, City staff is analyzing the
draft administrative and implementation provisions
to ensure that no new constraints to housing are
created, or impediments to the housing exemptions
are made, whether purposely or accidentally.
Specifically, the city will develop rules and/or
guidelines to establish the procedures by which
housing units committed as affordable housing will
be exempt from the annual housing allocation.
I
\
Potential Constraint. Method of Calculatina Densitv
Other policies within the Land Use Element that
may be perceived as a potential constraint to
affordable housing development include the method
H-35
04/24/90
/~'."""-,
of calculating density (Policy 8.3). This policy
requires that certain constrained lands be excluded
from net lot area. The net lot area is then
utilized to calculate the project density. The
density for properties containing slopes is
calculated based on 0-25% slope - 100% density, 25-
40% - 50% density, and 40%+ - no density allowance.
Density allowance is further limited to the mid-
point of the land use category range, unless
findings can be made that the proposed project
excels in design excellence and/or provides
extraordinary community benefit.
This policy, along with other Plan polices, are
designed to address those environmentally sensitive
lands remaining for development. It is important
to understand that these various environmental
limits to density are already anticipated in the
projected development potential of the city. The
number of dwellings expected to be yielded under the
Plan (p. LU-49) is not a theoret~cal maximum, but
is based on mid-range and the various constraints
noted. As discussed above, this projected
development potential is not a significant
constraint on housing. Further, those areas planned
under the higher-density categories (Residential,
8 through 11 and above) are in locations largely
unaffected by the topographic and other
environmental constraints; see mapping in the
Resource Management, Public Safety and Land Use
elements. The assumptions made for in-fill
development discussed under the land use inventory
discussion are also not theoretical maximums, but
conservative estimates based on realistic in-fill
development potential. With the above, the required
method of calculating density is not concluded to
be a housing constraint.
Zonina Code - The Zoning Code is the principal tool
used by jurisdictions to implement land use policy.
The Zoning Code consists of two elements: (1) a map
which delineates the boundaries of districts in
which like-uses developed at like standards are to
be permitted, and (2) text which explains the
purpose of the zoning districts, lists permitted
uses and standards for development. The Zoning Code
must be consistent with the General Plan. As such,
the Code includes standards to implement mid-range
density, slope density, and the findings for
exceeding mid-range as discussed above. The
development standards for residential development
do not represent severe limitations to development,
'-
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r'.
however, some of the standards are unique and
requJ.re some review and discussion to determine
whether or not the standards present a constraint
to housing.
Potential Constraint. Buildina Heiaht Height
limits for residential buildings in the city are 22
feet or two stories for buildings on land with
slopes of less than 10%. Buildings proposed for
lots with slopes in excess of 10% are restricted to
a building height of 12 feet above grade as measured
from the property line located at the uphill side
of the lot. Those residential buildings on lots
with a slope less than 10% are limited to 22 feet
measured adjacent to the building. In addition, the
Zoning Code requires that the building height be
measured from the lowest of finished or natural
grade. The purpose of the height standard is to
help preserve views and to ensure that the mass and
bulk of the building is compatible with the
neighborhood. The purpose of the method of
measuring height is to minimize the amount of
grading activity and the building up of pads to help
minimize impacts to the topography and adjacent
views. Some architectural elements may project up
to 4 feet above the height limit. Further
projection is permitted up to the maximum permitted
within the General Plan (30 ft. or 2 stories),
however, the projection must be reviewed and
approved by the Community Advisory Board. This
results in approximately a 2 month process for
review and approval by the Community Advisory
Boards. This length of processing is not considered
to be excessive or an abnormal constraint to
housing.
The building envelope resulting from this height
limit, combined with other physical standards such
as setbacks, results in sufficient area to realize
the density of dwellings as planned for individual
lots. That is, the height limit does not prevent
planned density from being achieved. certain lots
in the City may be impacted by physical limitations,
such as legal lot size below the standard for a
zone. For such properties, the opportunity for a
variance approval exits to grant relief from height,
setback or either standards. Thus, the residential
height limit under zoning is not concluded to be a
significant housing constraint.
Potential Constraint. Parkina Standards - Adequate
off-street parking must be available to avoid street
\.
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04/24/90
overcrowding and assure street functionality. The
city's current parking standard for single-family
dwellings is two off-street parking spaces per unit.
This is a very common standard among localities, and
is justified based on statistics and studies from
SANDAG indicating continuing increases in the number
of automobiles per household, even as household
sizes have declined.
The current parking requirement for multiple unit
dwellings is 2 parking spaces for the first bedroom
of each dwelling unit and one parking space for each
bedroom after the first. For a three bedroom
apartment four parking stalls would be required.
This standard is more restrictive than parking
standards imposed by other cities within the San
Diego County area. The purpose for this standard
is to insure that adequate guest and occupant
parking is provided, to ensure that ample parking
is provided off of the street maintaining the
streets free from parking, and with the
understanding that many individuals share apartments
causing greater parking demands. parking
availability and streets freed from overloaded on-
street demand are also necessary to address Coastal
Zone policies to maintain coastal access. still,
this standard as the most stringent in the region
may be a constraint on multi-family housing.
with the initial adoption of the Zoning Code on
March 29, 1989, the mUlti-family parking standard
was identified as an issue to be addressed and
considered in further detail. This consideration
is included as a housing program in this Element.
This consideration will include assessment of the
parking standard as a housing constraints. Note
that consideration of the current parking
requirement for "second" or accessory dwellings is
also included as a program.
/
'--..
Potential Constraint. Prohibition of Attached Units
The City's "rural" density and lower density
residential zones, as well as the RS-11 zone, are
single-family residential zones. As such, even with
a PRD subdivision approach, these zones prohibit
attached units. The intent of this regulation is
to maintain the single family residential character
that currently exists within the community.
Attached units are allowed, of course, within the
City's multifamily zones, R-11 and higher. The
limit on attached units under single-family zoning
is not perceived as a constraint, in that the City's
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r~"
adopted General Plan and associated land uses do
otherwise provide for a variety of housing types.
Through this established Plan the City'S regional
need can .be met within the mUlti-family zones,
allowing attached units and through infill and
recycling of the existing residential uses.
Buildina Codes and Enforcement: The City of
Encinitas I 'construction codes are based upon the
State Uniform Building, Plumbing, Mechanical,
Electrical and Housing Codes and are considered to
be the minimum necessary to protect the pUblic's
health, safety and welfare. The City has similarly
adopted the Uniform Fire Code. An additional
standard has been adopted and is enforced by the
Fire District requiring that all new residential
dwellings be constructed with an installed sprinkler
system. This is to protect the pUblic's health,
safety and welfare and is not considered an
unnecessary constraint to housing.
c:
Fees and Imorovements: various fees and assessments
are charged by the City to cover the costs of
processing permits and providing services and
facilities, such as utilities, schools and
infrastructure. Almost all of these fees are
assessed through a pro rata share system, based on
the magnitude of a project's impact or on the extent
of the benefit which will be derived.
.
A survey was conducted by the Construction Industry
Federation (CIF) for the San Diego area comparing
the 1988 planning and development impact fees of
cities in the San Diego area. The following
highlights some of the fees charged by other
communities in comparison with the City of
Encinitas.
1.
Parcel Map. Encinitas,
communities range from $100
$3500 (City of San Diego).
$700. Other
(Oceanside) up to
2. Design Review. Encinitas, $500. Other
communities range from $40 (El Cajon) to $800
(County of San Diego) .
3. Conditional Use Permit. Encinitas, $1700.
Other communities range from $50 (El Cajon) to
$2800 (City of San Diego).
4.
Environmental initial study. Encinitas, $400.
Other communities range from $50 (El cajon) to
!
\...
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,""''''''"
$1300 (City of San Diego).
Tentative map.
communities range
(Lemon Grove) .
The planning processing fees charged by the city of
Encinitas are utilized to cover the cost of
processing the project. The City has a cost
recovery program requiring deposits for projects.
After the project has completed its process, any
remaining balance is refunded to the applicant. As
a result, the applicant pays only for the actual
cost of the City processing his/her application.
Based on the survey conducted by ClF and the City's
requirement to cover actual costs, the fees are not
considered to be an excessive constraint to housing.
Note, however, that certain fees could be waived,
reduced or underwritten for the provision of
affordable housing under some of the housing
programs outlined in this element.
5.
Encinitas. $2000. Other
from $300 (El Cajon) to $3315
Development impact fees were also summarized in the
1988 Regional Development Fee Survey conducted by
ClF. Some of the impact fees are highlighted below:
r',
,.
" '
1.
Traffic mitigation fees. Encinitas requires
$900 per unit. Other communities range from
$530 (Carlsbad) to $2,101 (Chula Vista).
2. Parklands. Encinitas requires $2,321 max. per
dwelling. Other communities range from $145
(Lemon Grove) to $1910 (Poway).
Fees have been set at a level necessary to cover the
costs to the City and to make appropriate
contributions to the community, in order to assure
that basic support facilities and services are
provided to residential development. These fees
can contribute, nonetheless, to the cost of housing,
and may constrain the development of lower priced
units. Certain fees could be waived or reduced for
the provision of low and moderate income housing.
The housing programs outlined in this element
provide for fees being reduced, development
requirements waived and/or the processing expedited
for affordable housing projects.
(c'
Potential Constraint. lmorovements: While a
significant proportion of the City's analyzed
residential development potential is "in-fill"
activity in existing neighborhoods, where much of
H-40
04/24/90
"...,
the infrastructure is already present, a majority
of development is on vacant lands where most of the
infrastructure will have to be newly provided.
streets, curb, gutter, sidewalk, utility lines,
storm drains, and similar facilities are normally
provided by developers as housing is built. Thus,
these are costs potentially adding to the asked sale
or rental price of housing. Residential development
cannot function without the support of these
facilities, however. Some of this infrastructure
is under the City's regulation (street, drainage,
and sidewalk improvements; storm drainage; sewer
lines) while other is regulated by independent
utility districts (water, gas and electric lines).
Unlike most cities, Encinitas does not impose
standardized infrastructure requirements. Adopted
policies in other elements of this Plan call for
street and sidewalk improvement standards adequate
to serve and protect public safety, but tailored to
specific community and neighborhood design needs.
This is expected to result in requirements less
stringent and less costly than the normal type of
city-wide engineering requirements imposed by most
municipalities, therefore, reduced cost impacts on
housing should result. The city's Public Works
Department is crafting "tailored" improvement
standards and bringing these forward for
consideration in 1990, and they are expected to be
in place by 1991.The improvements and exactions
required for residential development are limited to
those improvements needed to allow the development
based on the impact that is associated with the
anticipated development. Improvements may include
streets, drainage, utilities and the like.
Exactions may include dedication of right-of-way to
allow for any adequate road to facilitate the
project. Although such improvements and exactions
can contribute to the cost of housing, they are not
considered excessive in relationship to other
communities within the Southern California area.
In addition, they provide infrastructure vital to
the safe operation of the city and support of new
residential development. It is not recommended that
dedications or exactions be reduced or eliminated.
However, some of the housing programs outlined in
this element provide for such infrastructure costs
to be subsided or underwritten for affordable
opportunities.
Local processina and
evaluation and review
Permit
process
Procedures:
required by
The
city
I
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04/24/90
r'
Housing Needs
Summary
!
\...
procedures can contribute incrementally to the cost
of housing in that holding costs incurred by
developers during the process can be ultimately
manifested in the unit selling price. The potential
for costs due to this factor is not comparable to
the market constraints discussed above. The review
process in Encinitas is governed by three different
levels of decision-making bodies: City Council,
Planning Commission, and Community Advisory Board
(CAB). Five CAB's have been established
representing the five different communities in the
City - and serve as the first tier of development
review. Average processing time for a residential
project subject only to CAB review is between two
to three months, with an added two months for
projects also subject to Planning Commission
approval. Due to the fluctuating workload and heavy
project activity within some of the CAB areas, a two
to three month waiting period may occur before a CAB
hearing can be held on an application. This review
period is comparable to other Southern California
cities and does not appear to be a significant
constraint to housing (Note that affordable units
for target low and very low income households are
exempt from the growth management allocation
process, as discussed above). Many discretionary
project reviews in Encinitas, such as tentative
parcel maps and design review for some single family
units and small multi-family projects (duplex to
fourplex), which are in many jurisdictions processed
administratively by staff, are required to undergo
review by the CAB in the City of Encinitas.
Housing goals and policies and housing needs are
presented in detail in previous sections of this
Element. Identified housing needs are outlined
again immediately below, and are designated by
letter for purposes of reference in the Housing
Programs Table (Table 9).
A. Satisfy housing needs generated from new
population growth. (Ref. 1990 RHNS). [I-a]
B. Address substandard units. (Localized,
isolated pockets in Leucadia, Old Encinitas.
Conditions for large majority of these warrant
rehabilitation as opposed to demolition). [11-
c; III-c, d; IV-a, b, c, d, e; V-a, c, e, f]
C.
Satisfy housing needs based on affordability.
(Upper-income households have their needs met
by the private housing market. Moderate-income
H-42
04/24/90
households will need some assistance of
governmental programs. The significant unmet
need is for lower and very low-income
households. Target "fair share" numbers from
draft RHNS focus on lower and very low). [I-a,
b, c, d, e, hi II-di III-a, bi IV-bi V-b
through 9i VI-a, c through li VlI-c, f.
D. Address elderly special needs. (Needs stem
from lower fixed incomes, physical disabilities
and limits. While elderly households comprise
approximately 6% of all City households, that
proportion which has unmet needs due to income
restrictions is relatively low). [I-b, f, 9i
IV-c)
('
> :....
E. Address handicapped special needs. (Units must
be accessible, functional to the handicapped.
Handicapped comprise approximately 4% of all
City households, but proportion with unmet
needs due to significant income restrictions
is lower.) [I-f, 9i IV-Ci VIII-C)
Address large families special needs. (Need
stems from limited income of some large
families combined with a lack of affordable
larger dwelling units. Overcrowded households
comprise approximately 1.4% of all City
households. Analysis indicates a clustering
of overcrowded household in the east Leucadia
community.) [II-b)
F.
G. Address agricultural workers special needs.
(Need stems from low wages, temporary nature
of employment, and the often migratory pattern
of available employment. [I-Ci VI-ji VII-a,
b, d)
H. Address special needs of female-headed/single-
parent households. (Needs stem from low wages,
need for child care.) [VI-bi VlI-b, d, e)
I. Address special needs of the homeless.
(Special needs are for emergency and
transitional temporary shelter, and other
social support services such as transportation,
employment, food aid, child care services,
mental and medical care. In Encinitas, the
homeless are characterized by both immigrant
families and individuals, and by American-born
individuals and families of white and other
races/ethnicities. The numbers of client
(,
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04/24/90
/"-''>
contacts for service to address
in 1989 was approximately 500.
VII-a, b, d, e]
homelessness
[II-d; VI-k;
J. Address housing needs based on race/ethnicity.
(Affirmative-action programs warranted to avoid
intended or unintended discrimination, based
on race or ethnicity.) [VI-C; VlI-d]
K. Address housing needs stemming from significant
non-governmental constraints.
1. Land price (High land prices are standard
in the coastal market. This limits the
affordability of new construction and
existing units upon sale as well.)
Implemented by [I-b, c, h; V-b, d; VI-c,
d, e, f]
2. Construction costs (Construction costs
have stabilized out over the last several
years, but still comprise a significant
proportion of housing costs.) Implemented
by I-c, d, e; II-a, c; III-c, d; IV-a, c,
d, e; V-c, e, f, g; VI-g, j, k, 1]
3 .
Financing costs (Mortgage and construction
loan rates and costs continue to be high.
These limit the ability of households and
builders to obtain purchase/construction
financing and the ability of households
to afford rehabilitation financing. [IV-
a through f; V-e, f; VI-a, h; i, j, k]
/"
L. Address housing needs stemming from significant
governmental constraints. (Discussion of areas
of potential constraint discloses few actual
significant constraints. E.g., the City's land
use plan and zoning accommodate the draft RHNS
"regional share" of new development; the growth
management plan is consistent with identified
rates of new growth requirement; low and very-
low income housing is exempt from the housing
allocation in the growth management policies.
City fees are moderate and time for project
processing is average in this region. All City
development standards are consistent and
compatible with planned zone density levels,
except the multifamily residential and
accessory unit parking ratios, which are
identified for re-examination.) [II-a, b, d;
VI-g]
i
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Housing
opportunities
("
This section evaluates the potential development of
additional dwelling units which could occur under
the Encinitas General Plan on vacant and
underutilized land within the 1989 incorporated area
of the City. The City does not anticipate any
significant annexation or development on lands
currently outside City limits within the five year
time-frame of this Housing Element. As planned
under the Land Use Plan, public services and
facilities adequate to serve this additional
development potential are either already available,
or scheduled/required to be provided as development
occurs, provided in part by development impact fees
adopted by the City. The City has determined that
there will be no shortfall or constraint foreseen
in the provision of public services and facilities
if development proceeds in accordance with the Land
Use Element of the adopted General Plan.
Vacant Sites
Table 6 provides a breakdown of the number and type
of additional dwelling units which could be
constructed on vacant lands in the 1989 incorporated
area of the City under the General Plan. with
approximately 2,434 vacant acres planned for
residential development, significant additional
growth will still occur in the city. However, due
to the presence of substantial environmental
constraints (including flooding problems, excessive
slopes, soil limitations, and sensitive ecological
resources) and other planning and infrastructure
limitations (including limited circulation capacity
and remoteness) much of this land has been planned
for lower density development. The Land Use Element
has applied a Special Studies Overlay to constrained
lands where additional development standards are
required to minimize hazards to a future
development, and to preserve significant resources.
The Resource Management and Public Safety elements
further detail environmental constraints.
Figures 1 through 5 depict the location of vacant
residential acreage in the city by community area.
As these maps illustrate, the majority of the City's
vacant land is located in the inland, non-coastal
portions of Encinitas.
H-45
04/24/90
TABLE 6
/-' VACANT RESIDENTIAL LAND INVENTORY
% of
Mid-Range Total
General Plan Net Dwelling Dwelling Projected
Desianation Acreaae units units PODulationlal
Rural 915 300 8.4% 756
Rural Res. 1 534 400 11. 2% 1,008
Rural Res. 2 356 534 14.9% 1,345
Residential 3 465 1,663 32.5% 2,930
Residential 5 60 242 6.8% 610
Residential 8 52 335 9.4% 844
Residential 11 40 382 10.7% 962
Residential 15 3 35 1. 0% 98
Residential 25 9 184 5.1% 463
Total 2,434 3,575 100% 9,006
Source: Cotton/Beland/Associates, 1989.
(a) Based on 2010 estimate of 2.52 persons per unit (final series
7 Regional Growth Forecasts, SANDAG).
NOTE: This table has been revised in 1989 to reflect a more
detailed analysis of the City'S vacant land inventory.
This table deals only with vacant land development
potential within current (1989) incorporated boundaries.
Additional development potential (approximately 1000
dwellings) is expected through build-out from areas
within the City's designated sphere of influence, but
this is not expected within the 5-year term of this
Element (through 1995).
,
,,--
H-46
04/24/90
,
'.\
\
'.
i
I
i
~
-f
.-..
~
VACANT RESIDENTIAL LArW
II
>0....... ,.. ..
. . . . . . . . . . . . . . .
...............,.
......"........
.......,........
............,...
.........."....
. ..............
.,,, ."......
f<'I;/"!T: I
...",...........
",.,....
Residential 0.00 - 2.00 du/ac
Residential 2.01 - 5.00 du/ac
Residential 5.01 - 8.00 du/ac
~ Residenlial 8.01 - 11.00 du/ac
~..~ Res,dontial 11.01 - 15.00 du/ac
~ Residenllal 15.01 - 25.00 du/ac
UNDERDEVELOPED RESIDENTIAL LAND
I I Resident,al 8.01 - 11.00 du/ac
f~/\}{\r}/I Residential 11.01 - t 5.00 jdU/aC
r~},~~'~ Residential 15.01 - 25.00 du/ac
Figure 1
Potential Residential
Development
Leucadia
r;.... II.. : I
1..nClnltas :1
. General Plan :J
H-47
"-
'-
\1
I
,
I
VACANT RES1DE.NlIAL L,.\NlJ
t, ':: Residential 0.00 - 2.00 du/~i~-
I i Residential 2.01 - 5.00 du/ae
!<::)~~i'H:., 1 Residential 5.01 - 8.00 du/ac
~ Residential 8.01 - t 1.00 du/ae
~~ Residential 11.01 - 15.00 du/ae
~ Resident,al 15.01 - 25.00 du/ae
UNDERDEVELOPED RESIDENTIAL LAND
i Residential 8.0 t - 11.00 du/ae
l':':':':'<~<< /1 Residential 11.01 - 15.00 du/ae
_J Residential 15.01 - 25.00 du/ae
Figure 2
Potential Residential
Development
New Encinitas
r:ncinitas
General Plan
H-48
r
(
(
.a
\
,
\.
I
~
L
V ACANT RESIDENTIAL LAND
Residential 0.00 . 2.00 du/ac
Residential 2.01 - 5.00 du/ac
Residential S.O 1 - 8.00 du/ac
Residential 8.01 - 11.00 du/ac
Residential 11.01 - 15.00 du/ac
Residential 1 S.O 1 - 25.00 du/ac
.UNDERDEVE.LOPED RESIDENTIAL LAND
I I
1...............1
. . . . . . . . . . . . . . . .
. ............"
. . . . . . .. .......
................
................
................
.. .............
. . . . . . . . . . . . . . . .
tJ~
\
Figure 3
Residential 8.01 - 11.00 du/ac
Residential 11.01 - 15.00 du/ac
Residential 15.01 - 25.00 du/ac
Potential Residential
Development
Old Encinitas
r:':ncinitas
General Plan
H-49
r
(
(
"
~
,
VACANT RESIDENTIAL lAND
i..
I
!
. i
Residenllal 0.00 - 2.00 dulac
ResodenlJal 2.01 - 5.00 du/ae
Residenlial 5.01 - 8.00 du/ae
~ Residential 8.01 - 11.00 du/ac
~ Residential 11.01 - 15.00 du/ae
~ Residenlial 15.01 - 25,00 du/ae
UNDERDEVELOPED RESIDENTIAL LAND
I I ResidentIal 8.01 - 11.00 du/ae
f}(:i:))}rril Residential' t.Ol . 15.00 dulse
_ Resident,al 15.01' 25.00 du/ae
Figure 4
Potential Residential
Development
Cardiff-by-the-Sea
r:ncinitas
Ge,neral Plan
H-50
I -
o
c;
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f,):::. :....
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............,.'. . ;';':-:"'"
: ",' . . :' , .. :"" "':':. .,
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~ /;;:%~::;i::;'( ~ '() ::;;.,: ?)i?r! ,};::" :
: ...,.!"",): r-
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. I
: ,
1.-___
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---------1 i---l
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~
VACANT RESIDE NTI!,' '~"L'
~!
I
I
I
I
I.
f
Resldenlldl 0.00 . :.00 dulae
Residential 2.01 - 5.00 du/ae
:~);'):r~~'~:;,'~ Residential 5.01 - 8.00 du/ae
~ Resident.al 8.01 . 11.00 du/ae
_ Resodenl,al 11.01 - 15.00 du/ac
~ Residential 15.01.25.00 dulae
UNDERDEVELOPED RESIDENTIAL LAND
I I
1.............../
...... ..............
.........................
........ .
.............,.............
_Ii
Resodenl.al 8.01 - 11.00 du/ac
Residential 11.01 - 15.00 dulae
Resident,,1 15.01 - 25.00 du/ac
Figure 5
Potential Residential
Development
Olivenhain
r:ncinitas
General Plan
H-51
~,.--..
The City's vacant residential acreage will support
3,575 dwelling units, ranging from one unit on a
two-acre estate to 25 dwelling units per acre.
Single-family housing will comprise the majority of
these units, reflective of environmental constraints
as well as poor accessibility to many of the city's
vacant acreage. Approximately 17 percent of these
potential dwelling units are in the Residential 11,
15, and 25 land use categories, generally
corresponding to multi-family development types.
Underdevelooed Sites
In addition to development on vacant lands, there
is the potential for new residential development on
sites which are currently developed at densities
significantly lower than those permitted under the
General Plan and zoning.
f"
).
In the City's coastal areas, many of the areas
designated for densities of 11, 15 and 25 units per
acre are currently developed with single-family and
lower density multi-family uses. Recycling of these
lower density uses occurs when the intensity of use
allowed more than offsets the costs of acquiring the
improved site, demolishing the existing units, and
constructing new higher density units. For the past
several years, lower density residential uses in the
coastal areas of Leucadia and Old Encinitas, and in
the Win Homes neighborhood in Cardiff have begun to
recycle to higher densities, indicating that
permitted densities are high enough to warrant
intensification.
Figures 1 through 5 identify areas in the City
planned for multi-family development which are
currently developed at less than half the permitted
residential density. As these figures illustrate,
the majority of underdeveloped residential parcels
are located in the coastal areas of Encinitas,
onsistent with where recycling activity has been
ccurring in the City. Table 7 calculates the net
ncrease in dwelling units which could occur through
he recycling of these sites. An estimated 745
dditional dwelling units could be developed,
redominately in the Residential 11 and Residential
15 land use categories.
In order to estimate the net increase in residential
development attributed to recycling which could be
expected over the five year period of the Housing
Element, the rate of recycling activity experienced
f
\.
H-52
04/24/90
,1"""'-.,
in the City since incorporation (July 1987-November
1989) can be projected forward to the next five
years. According to the City's building permit
records, a net increase in 96 dwelling units have
been developed through recycling over 29 months,
translating to an estimated 198 multi-family
dwelling units which could reasonably be expected
to develop over the coming five years. Assuming
these 198 dwelling units are distributed according
to the total recycling potential in each of the
City's three mUlti-family categories, the following
distribution could be expected (net increase, 1990-
1995):
Residential
Residential
Residential
8.01 - 11.0
11. 01 - 15.0
15.01 - 25
Dwellina units
107
73
~
198
c
Through this recycling, adequate sites are provided
to enable the City to meet its needs for multi-
family housing development. In terms of housing
affordability, these 198 units of multi-family
housing are a significant contribution to stock of
housing which, combined with City incentives,
inclusionary provisions, and state Coastal
requirements, can be priced within lower income
groups' range of affordability.
Note that over the build-out period of the Land Use
Element, the 745 dwellings resulting from infill on
mUlti-family zoned land, plus 601 units from
development on vacant mUlti-family lands, will yield
a total of 1,346 units. This is approximately 30%
of the projected total build-out of 4,320 dwellings
in existing city limits, and 25% of the projected
5,381 units including the City's sphere areas.
These compare to approximately 27% of the City's
1987 housing stock being multi-family units (see
Housing Element Technical Report).
Accessorv Aoartments
~~
Intensification of development in existing
residential areas could also occur through the
addition of second units on single family lots.
Second units, or accessory apartments as they are
commonly known, are dwelling units constructed on
the same parcel on which the primary single-family
unit is located, providing independent living
quarters which the homeowner may rent out or provide
H-53
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(,...~.
,
TABLE 7
POTENTIAL NET INCREASE IN DWELLING UNITS
ON UNDERDEVELOPED RESIDENTIAL PARCELS
Permitted Density
Res Res Res
Existing Density 8-11 11-15 15-25 Total
Residential 0.25-0.50 2 - - 2
Residential 0.51-1. 00 6 - 29 35
Residential 1. 01-2.00 32 40 17 89
Residential 2.01-3.00 36 8 44
Residential 3.01-5.00 326 32 358
Residential 5.01-8.00 195 8 203
Residential 8.01-11.00 14 14
402 275 68 745
Source:
Cotton/Beland/Associates, 1989.
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for a family member or other person(s). Second
units provide a cost effective means of serving
additional development through use of existing
infrastructure, and can provide affordable housing
for low and moderate income small households.
Second units also have the additional benefit of
allowing many older persons to remain in their homes
by providing additional income and security.
The City of Encinitas has adopted an ordinance to
facilitate and regulate the development of accessory
apartments as a means of providing affordable rental
housing for seniors, the handicapped and family
members; occupancy limited to these households. The
Ci ty' s ordinance permi ts the development of
accessory apartments up to 640 square feet in size
subject to a minor use permit. The Housing Element
sets forth a program to review the existing parking
requirements for accessory apartments to ensure that
minimum offstreet parking need is met but does not
become excessive. Note that second units may be
created accessory to any single-family dwelling,
irrespective of site zoning.
The City's records indicate approximately 20 second
units have been constructed in Encinitas in the last
five years. Using this date to estimate the level
of future second unit construction suggests that
approximately 20 new units could be expected over
the five year period of the Housing Element.
Farm Em~lovee Housinq
In addition to accessory apartments, housing for
agricultural workers is also accommodated in the
City. The City's farm employee housing ordinance
allows for such housing as a permitted accessory use
in conjunction with an agricultural or horticultural
operation. Such housing generally takes the form
of mobile homes located on the farm property.
Farm employee housing provides an affordable housing
option for the city's agricultural workers and their
families. According to the City's records,
approximately 35 agricultural worker accessory
housing units have been added to the City's housing
stock over the past five years. Apply this same
rate of growth to the five year period of the
Housing Element suggests than an additional 35
agricultural worker units could be anticipated over
the next five years.
'.
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r
In response to the significant need for agricultural
worker housing in Encinitas, the Housing Element
sets forth a program for assisting in the creation
of additional agricultural worker units. An
additional 35 units are projected to be developed
under this program, resulting in a total of 70 units
of farm employee housing being created over the next
five years.
Residential Develooment Potential Comoared with
Reaional Share Needs
As indicated in the Housing Element's Summary of
Housing Needs, the Regional Housing Needs Statement
(RHNS) prepared by SANDAG has identified a future
housing need for Encinitas of 1,406 units, (563 for
lower income households and 843 for moderate and
upper income households) to be developed over the
next five years. Combining the expected residential
development on vacant and underutilized lands, and
that expected in the form of accessory apartments
and agricultural worker housing, an estimated 1,090
units will be developed in the City over the next
five years (refer to Table 8). In addition to these
units, the City will provide incentives for the
creation of approximately 320 newly-developed
affordable dwellings, plus the creation of
additional affordable opportunities affordable to
lower income households, through implementation of
Housing Element programs (e.g. inclusionary
requirements, dens i ty bonus, congregate care
incentives, etc.). Review of Tables 6 and 7
indicate the City has adequate land zoned at
appropriate densities to accommodate its share of
lower income housing needs. Housing units
affordable to very low and low income households,
and in addition agricultural worker housing and
accessory units, are exempt from the City's growth
management annual building permit allocation system.
Table 8 presents a summary of
dwelling units expected (net
development activity within the
period.
numbers of new
increase) from
next five year
H-56
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r",
TABLE 8
POTENTIAL FIVE YEAR RESIDENTIAL DEVELOPMENT SUMMARY
Vacant Farm
Land Use Land Underutilized Accessory Employee
Category (Expected 5-Yr. Growth) Land Apartments Housing
Rural 67
Rural Res. 1 90
Rural Res. 2 119 20 70
Residential 3 261 units in units
Residential 5 55 single
Residential 8 75 family
Residential 11 86 107 zones
Residential 15 8 73
Residential 25 41 18
Total 802 198 20 70
Source: Cotton/Beland/Associates, 1988.
Expected five-year growth on vacant lands, based on City's growth
management system and historic development activity. Expected
five-year growth on underutilized land, based on city historic
activity and analysis of reasonable in-fill potential. In addition
to these, the housing programs in this Element work towards
achieving housing opportunities affordable to low and very low
income households which will also be added to the City's housing
stock. The city's growth management system exempts units
affordable to low and very low income households from the annual
housing allocation. The total production of housing opportunities
over 5 years is expected to be 1410.
H-57
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Environmental Amenities
/-' ".
The City of Encinitas offers a wide range of
amenities that attracted many of its existing
residents and will continue to attract substantial
numbers of new residents in the coming years. The
most significant natural attractions in Encinitas
are its beaches, a.nd the open space they offer.
Associated with the community's coastal setting is
a warm Mediterranean climate and clean air. A
rolling hillside topography and bluffs both inland
and along the coast offer spectacular panoramic
views and further serve to attract growth to the
city.
Local EmDlovment Market
The San Diego region serves as a major center of
employment in the west coast. SANDAG's Series 7
Regional Growth Forecast projects significant growth
in the region's employment pase, an estimated
556,000 new jobs being added by the year 2010,
representing an increase of 61%. Within the
Encinitas Planning Area, nearly 16,000 new jobs are
projected through 2010, reflecting a 54% increase.
Such expanded opportunities for employment will
continue to attract new residents to Encinitas.
Communitv Resources
A discussion of housing opportunities and resources
would be incomplete without recognition of existing
community resources which provide housing services.
Private, citizen-based efforts can be an important
component in the myriad of thjngs done to try and
satisfy housing needs.
Two existing private, non-profit agencies already
supply social services in Encinitas related to
housing needs. The Community Resource center, based
in Encinitas, provides temporary shelter placement
and vouchers for homeless households (see discussion
above under housing needs, special needs households,
homeless) . The CRC also provides other social
services which can help homeless or needy households
solve their underlying problems which create a
housing need (i.e., clothing and food assistance).
Lifeline, based in Vista, provides a placement
service for seniors' shared housing. Lifeline
operates throughout the North County, including
within Encinitas. The validity of both of these
community-based agencies are recognized in the
\,
H-58
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t/'--'..
housing programs set forth in this Element.
There may be many other ways that community
resources can be applied to resolve direct and
indirect housing needs. The City will remain open
to such non-profit and grass-roots resources, and
support their application.
Housing
Programs
This section outlines the City's housing programs
over the next 5 year period. Programs are linked
with goals and policies and identified housing needs
which they address. For appropriate programs,
quantified objectives over the next five year term
(into 1995) are stated. Programs are also linked
with potential funding sources, and those agencies
or City officials responsible for implementation.
Housina Obiectives
The objectives for the City's housing programs are
both qualitative and quantitative. Quantitative
objectives, where applicable, are identified for
each program both under "Housing Program
Description" and in comprehensive Housing Programs
Table. Quantitative objectives are related to the
overall quantitative targets identified for the City
and the region in the 1990 Regional Housing Needs
statement (RHNS) produced by the San Diego regional
council of governments, SANDAG.
("
The 1990 RHNS identifies a "regional share" for
Encini tas, which consti tutes a new housing
production need over the next 5 years. (The
regional share projections by SANDAG satisfy the
requirements of Calif. Gov. Code Sees. 65583 and
65584 for identification of the City's share of the
regional housing need.) Encinitas' regional share
is a total of 1406 dwelling units. The regional
share is further broken down in the RHNS into five
year targets for different income categories, as
follows: very low income, 323 dwellings; low
income, 239 dwellings; moderate income, 295
dwellings; and upper income 549 dwellings. The
income categories here are as defined by HUD. The
City will maintain an annually adjusted table
showing the breakdown of income limits by category.
Market-rate development is expected to satisfy the
City's regional share needs for the higher income
categories. (Note, however, that several housing
programs outlined below are available to augment
needed moderate-income housing production.) The
H-59
04/24/90
city's growth management system will not constrain
moderate and upper income housing below needs, and
housing for the target low and very low income
categories is not subject to the growth management
limit. While the city and its planning places no
constraint to meeting housing production needs,
nonetheless as noted above under Housing
Constraints, the private market is not expected to
substantially satisfy the need for lower and very
low income housing.
This, in fact, is a major overall thrust of the 1990
RHNS. Unmet housing needs, both existing and newly
generated over the next 5 years, are expected to be
concentrated in the low and very low income
categories. For this reason, the RHNS emphasizes
housing assistance applied at these income levels.
The RHNS identifies five year housing "targets" for
assisted housing for all San Diego jurisdictions.
The target- identified for Encinitas is 538. This
means that SANDAG has determined that the various
housing programs applied by the City should strive
to provide this number of assisted housing
opportunities over the next 5 years, through 1994.
Assisted housing opportunities include all means of
housing assistance, not just new construction but
programs creating opportunities in the existing
housing stock and programs directly assisting
households as well.
Housina Proaram Fundina Sources
State housing law recognizes the various realistic
limitations which keep housing needs from being met.
These include the limitations of private market-
driven housing development, environmental
limitations on land use / and a lack of adequate
federal and state funding for housing assistance
programs.
Housing program funding is a key factor for many of
the programs outlined below. The City must be
realistic in setting numerical objectives for
programs which require funding. Unfortunately,
those funding sources which appear to have the most
potential for City programs are not under the City's
control, are intermittent, and may be distributed
based on competition between localities. The
housing fund set-aside from a potential City
redevelopment project, if the project is
successfully established in 1990, is not projected
to be a significant amount until 1995 or 1996, at
c.,
H-60
04/24/90
or beyond the end of this five year housing plan.
Thus, the program objectives set below are subject
to available funding, and are set at a realistic
level bas~d on expectations of non-guaranteed
funding.
Following is a brief discussion of special program
funding sources. These are designated by letters
(A, B, etc.) for identification in the Housing
Programs Table. This is not intended as an
exclusive listing of funding; other sources, as they
may become available, will be pursued by the City
to apply to appropriate programs.
A. City General Fund - Can be applied at City's
discretion to any program. Amount of funds
available which are not already obligated to
other City services and operations will be
limi ted.
B. Redevelopment Agency Funding - Largely the 20%
housing set-aside, but can also include other
redevelopment project proceeds, e.g. for
administrative housing program costs. Can be
applied to a wide variety of housing programs
at City I s. discretion. If a redevelopment
project is adopted in 1990, housing funds would
begin to be available in 1991. Housing funds
available over the 40-year lifetime of the
project are significant, estimated $39 million.
However, the accumulated total of redevelopment
housing funds estimated to be available through
1994 is approximately $200,000.
C. City COBG Funds - Annual allocation expected
to be approximately $200,000, depending on
continuation of this federal program. Funds
cannot be spent directly by the City on new
housing construction, and proportion which may
be spent for administrative purposes is
limited. While COBG funds may, and
traditionally have, been spent on eligible
capital improvement projects that indirectly
assist lower income housing, Council policy can
specify that COBG funds are to be ear-marked
for direct housing 'programs.
O. Urban County COBG Operational Funds - As long
as the City is a "non-entitlement city" under
COBG, the City's participation under the
County I s "Urban county" COBG program should
continue. This affiliation provides a
H-61
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i
E.
F.
G.
',.
percentage of funding for County HCD I S
operation of a variety of programs available
to apply within the City.
County Housing Authority Operational Funds -
The County Housing Authority applies for and
receives funding for the variety of programs
it operates. These are exclusive to these
Housing Authority programs.
City Housing In-Lieu Fees - Fees may be paid
to the City in lieu of the direct provision of
affordable units, under the City's inclusionary
housing ordinance, and under state Coastal Zone
housing requirements. These fees would go into
an exclusive fund to be spent directly on
creating new affordable housing opportunities.
Such in-lieu fees usually are required to be
spent within a limited time frame, e.g., three
years.
Special Federal/State Project Funding - The
Federal and State governments provide funds for
a variety of specified programs. Some are on
a continuing basis, e.g., federal funds for
section 8 certificates or housing vouchers,
provided by HUD to local housing authorities.
Some are limited, one-time grants for specific
purposes. Examples of the latter are State
Propositions 77 and 84, which through sale of
State bonds will generate one-time funds which
can be applied to owner-occupied or rental
rehabilitation (Proposition 77), or for new
construction, emergency shelters, or limited
rehabilitation (Proposition 84).
H.
Lending Institution Housing Funds - Private
lending institutions in California have created
various funds ear-marked for affordable
housing. These include SAMCO, (Savings
Association Mortgage Co.), a savings and loan
institutional fundi'ceRC (California Community
Reinvestment Corp.) a bank fundi and a fund
created through FIRREA, the federal savings
and loan "bail-out" program. The money
available through these funds is required to
be spent in a way to lower the finance costs
of housing production or rehabilitation) and
therefore increase affordability. It cannot
be spent for administration or for support
services related to housing. Money will also
be allocated only on a project-by-project
H-62
04/24/90
basis, and therefore cannot be guaranteed for
programs.
I. Urban County Housing Development Fund. This
is a multi-purpose fund set up by HCD from its
funding sources including CDBG. Monies in this
fund are used for a variety of projects,
relating to the development of new housing
units, or substantial rehabilitation or
conversion of existing structures to create new
affordable housing units. Funds are used as
grants, loans directly from HCD, or subsidies
to private lending institutions to reduce the
rate of conventional loans. Under the federal
rules for CDBG, money cannot be spent directly
as construction costs for new construction.
But the money is used in ways to reduce the
development costs of new construction, so that
resulting dwellings can be guaranteed
affordable to target households. (E.g., land
costs are reduced through outright land
purchase or subsidy; financing costs are
reduced; infrastructure costs are reduced by
paying for utility and street improvements;
etc.). As a CDBG program, target households
are lower and very low income. (As with the
above HCD programs funded through CDBG, this
program's availability to apply in Encinitas
will end if the City becomes an entitlement
city. However, the City can establish its own
housing development fund, funded by whatever
sources the City finds available. The City can
administer this fund program itself, or
contract with HCD to administer it. In any
case, even as a non-entitlement city, the City
may decide to devote City funding to this
program in order to increase its application
within City limits.)
Housinq Proqram Description
The following describes each of a full range of
housing programs to be implemented by the City of
Encinitas. Programs are categorized by descriptive
classes, including existing and proposed zoning code
measures, County HCD programs, CDBG-related
programs, existing and proposed new programs to
maintain housing affordability, existing and
proposed programs to create new housing
opportunities, direct household support programs,
and administrative and other measures. The
following listing also letter-designates each
,
\..."J
H-63
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I"'";'
program (I -a, b, c, etc.) for reference in the
Housing Programs Table. The Housing Programs Table
discloses the City I S commitment to each program over
the next five year period, 1990 through 1994. For
each program with a quantified objective, this five
year objective is also stated below, following the
program description.
j
\
The programs outlined below and set forth in Table
9 are designed to comprehensively address the City's
identif ied housing needs. When implemented
successfully, they are expected to achieve this
goal. Future analyses and updates to check the
City I S progress in implementing the Element will
focus on the success in applying these programs.
Failure to adequately address identified needs may
require adjustments, changes, or additions to
programs. These may include, but are not limited
to, investigation of the usefulness of selected
density increases to meet housing needs, subject to
economic and environmental factors, and the public
health and safety. These kinds of alternatives, if
warranted, will have to be analyzed for their
practicality, success in addressing housing needs,
and likelihood to produce other impacts or effects
which may be adverse. Not all of the programs
listed in Table 9 are expected to be implemented
within the 5-year timeframe, 1990-1995. Program
III-d is uncertain due to a federal stop on
provision of funding. Programs V-g and VI-f, g, h
and i are uncertain due to other funding
limitations. As a result, these programs are not
included in the quantative 5-year objectives, and
their implementation is not required to meet 5-year
goals. They are listed as "optional programs, in
case opportunities for funding and administration
arise; they can then be applied to augment other 5-
year programs.
I. Zoning Code - Existing provisions
There is a direct relationship between housing
goals and land use planning. The Land Use
Element of this General Plan and its
implementing zoning regulations is the City's
single mo.st important "housing program", in
providing for the number, and range of type,
of housing units needed. Discussion under the
Housing Needs, Housing Constraints and Housing
Opportunities sections of the Housing Element
establish the relationship between identified
housing needs, and the ability to meet those
.;
(
'-.
H-64
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r'\
needs through the City I S land use planning.
The following existing provisions of the City's
Zoning Code (as adopted March 29, 1989) are
designed to insure that the City achieves its
housing objectives as a result of zoning
implementation. Note that some of the City's
zoning provisions are identified as simply
needing to be maintained, while for others, the
Element recommends modification or "fine
tuning" through Zone Code amendment.
a.
Overall Land Use Plan Implementation.
Continue to apply zones through the Zoning
Code and Zone Map to correspond to the
Land Use Element's residential
designations, to implement the basic range
of residential housing types, the
densities, and the overall number of
housing units planned. These include the
single family residential categories, the
multifamily categories (R-11 through R-25
zones), and the specialty category of
Mobile Home Park (MHP). Based on historic
development activity in Encinitas, the
five year goal of this program is for the
creation of 1,000 additional dwelling
units.
C"
b. Accessory Apartments. Known also as
"second units" and "granny flats".
Continue to apply zoning code provisions
which provide for allowance of accessory
apartments under zoning, consistent with
provisions of state law. Maintain and
implement existing program. Review current
parking requirement for accessory
apartments to insure that minimum
offstreet parking need is met but does not
become excessive. Review the allowed
occupancy of accessory apartments
(currently limited to elderly, family
members and the handicapped). Also review
for consideration of allowing the
development of accessory apartments
simultaneously with the development of
principal single-family dwellings.
Consistent with the level of second unit
development in previous years, the five
year goal for this program is for the
creation of 20 second units.
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04/24/90
c. Agricultural Worker Housing. Continue to
provide for allowance of agricultural
worker housing accessory to agricultural/
horticultural land uses under zoning.
Review development standards/limitations
now in effect for agricultural worker
housing to avoid disincentives, and for
flexibility in the type of structure
allowed as accessory agricultural worker
housing. The goal for this program is for
the addition of 35 agricultural worker
units to the housing stock.
d. Mobilehome/Trailer Parks. Continue to
provide zoning provisions which allow
development of new mobilehome/trailer
parks, and which recognize and allow
expansion of existing parks. Maintain the
exclusive mobilehome park zone (MHP) where
appropriate; continue to provide for parks
as an option under other zones. The five
year Housing Element goal through the
application of the MHP Zone is for the
conservation of 230 mobilehome units.
e. Manufactured Housing. continue to allow
placement of mObilehome/ manufactured
housing units or single-family dwellings
as per state law.
f. Community Care Facilities. Continue to
allow for development of community care,
congregate care, or residential care
facilities under zoning to meet special
housing needs of elderly who need ability
assistance and the handicapped. Review
code allowance to consider expansion of
zones/locations where such development may
be appropriate. The five year goal is for
the creation of 150 congregate care units
for the elderly and/or handicapped based
on identified need.
g. Small-Scale Care Facilities. Continue to
provide for residential care facilities
for six or fewer clients under residential
"zone" as specified by State law.
h. Density Bonuses. Continue to provide
zoning code provisions to allow density
bonuses in return for guarantees of
affordable dwelling units in new
H-66
04/24/90
{
II.
r
\...
construction as provided by state law.
Review code to insure consistency with
requirements of new state law, AB 1863.,
1989 statutes. Pursuant to State law, if
a developer allocates at least 20% of the
units in a housing project to lower income
households, 10% of the units for very low
income households, or at least 50%
available to "qualifying residents" (e.g.
elderly, agricultural workers), the city
must grant a density bonus of 25% and one
other regulatory concession. Developers
granted a density bonus enter into an
Affordable Housing Agreement with the City
to ensure the continued affordability of
the units. The City's five year target
for affordable units developed. through the
density bonus program is 50 units.
Zoning Code - New provisions
In addition to provisions already incorporated
into the City's 1989 zoning regulations, there
are other measures which may be added to the
Code related to housing needs and concerns, as
follows:
a. Multifamily Offstreet Parking
Requirements. Review the City's offstreet
parking requirements for multifamily
development, to assure the minimum
offstreet need is satisfied, but the
City's requirements are not excessive.
Staff shall review these provisions and
make specific recommendations to the
Planning commission and City Council
regarding possible changes. Changes must
be considered at public hearing prior to
adoption.
b. Family-sized Multifamily Housing. Review
Zoning Code development standards to
identify and remove disincentives for the
development of multifamily dwellings large
enough to accommodate large families.
E.g., examine development standards based
on number of bedrooms per unit. Staff
shall review these provisions and make
specific recommendations to the Planning
Commission and City Council regarding
possible changes. Changes must be
considered at public hearing prior to
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f--:.-......
c.
d.
(".
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adoption.
Mobilehome/Trailer Park Overlay Zone.
Address establishing a mobilehome/trailer
park overlay zone to facilitate the
conservation of mobilehome and trailer
units in the City. Different from the
exclusive MHP zone already in Code, this
overlay would recognize existing
mobilehome/trailer parks under other zone
designations, designate a legal conforming
status, and provide the basis for other
programs which act as incentives for park
rehabilitation and maintenance. staff
shall make specific recommendations to the
Planning Commission and City Council.
These proposals must be considered at
public hearing prior to adoption. The
five year goal for this program is the
conservation of 520 affordable
mobilehome/trailer units.
Emergency/Transitional Shelters. Address
amending the Zoning Code to assure the
allowance of emergency shelters and
transitional housing as a permitted land
uses. City staff shall prepare amendments
to the Zoning Code for consideration by
the Planning commission and City Council.
These must be considered at public hearing
prior to adoption.
III. County Housing Authority Programs
The City currently has an agreement with the
County which authorizes the County Housing
Authority to operate within City limits for a
variety of housing programs. In essence, for
these programs, the County Housing Authority
is the City's housing authority. The advantage
to the County in this arrangement is being able
to include the City's population and area as
part of the Housing Authority's total service
base in competing for federal program funding.
The advantage to the city is having housing
programs already on-line and available to apply
within City limits. These programs will remain
available to apply within City limits,
depending on federal program funding, as long
as the City continues its agreement with the
County. The Ci ty will maintain this
affiliation for the five year term of this
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/
Plan, insofar as this is under the City's
control, and for the purpose of continuing
these programs.
As a recently incorporated City, Encinitas is
still gaining experience in the implementation
of housing programs, and has not taken full
advantage of those programs offered by the
County. In order to expand the city's
involvement in housing programs, the Housing
Element calls for the creation of a "Housing
Coordinator" position (refer to program IXa).
with the Housing Coordinator to pursue City
involvement in County Housing Authority, HCD
and other programs, the City I S goal is to
achieve enhanced participation in the following
programs:
a. Section 8 Existing Housing pa~ents
Program. Applies to very low ~ncome
households only. Qualifying households
receive certificates, denoting their
participation in the program. These
households find their own housing in the
private housing market; landlords must be
willing to enter into a contract with the
Housing Authority which limits total rent
for the unit involved to a "fair market
rent" level established by HUD for this
region. The Section 8 household pays no
more than 30% of its income for rent; HUD
pays the landlord the difference between
this 30% and the "fair market rent". The
Housing Authority provides all local
administration, including qualification
of the household, and qualification and
inspection of the rental units. All
funding is from the federal government;
the City has no direct or indirect
expenses. The "twelve-month equivalent"
of 13 households in Encinitas were
assisted by this program in 1989. The
five year goal of this program, combined
with the housing voucher program, is for
assistance to an additional 200 new
households beyond the number of households
already being assisted.
b. Housing Voucher Program. Very low income
households only. Almost exactly like the
Section 8 program above, except that rents
charged by landlords may exceed HUD' s
i
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"fair market rate rent levels.
Participating households pay 30% of their
income, plus any increment of rent above
the HUD "fair market rent". HUD pays the
landlord the difference between the
household's 30% of income and the "fair
market rent". All funding is from the
federal government; all local
administration by County Housing
Authority; no City expenses or
administration. The "twelve-month
equivalent" of 29 households in Encinitas
were assisted by this program in 1989.
The five year goal of this program,
combined with the section 8 Program, is
for assistance to an additional 200 new
households beyond the l'\umber of households
already being assisted.
c. Section 17 Rental Rehabilitation program.
This program encourages the rehabilitation
of existing rental dwelling units. Grants
are given for property owners to upgrade
existing substandard buildings. Rents for
upgraded units are only limited to be no
higher than HUD's "fair market rent" for
that type and number of bedroom unit;
rents are not otherwise limited, and thus
are not necessarily guaranteed to be
"affordable" to very low, low, or moderate
income households. Grants are limited to
be no more than an average of $5,000 per
unit, and. no more than 50% of the
project's total rehabilitation costs. All
funding is federal, through HUD; County
Housing Authority provides all
administration. No costs to City. While
this program has not been utilized in
Encini tas, the City's Housing Programs
coordinator will pursue funding for the
City, with the five year goal of achieving
50 rehabilitated units.
d. Section 8 Moderate Housing Rehabilitation
Program. "Moderate" here refers to the
degree of structural rehabilitation
provided to a building, and not moderate
rent or income levels. The program is
targeted to help very low income
households. Rehabilitation of substandard
rental units is encouraged, not by
providing grants or financing for
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rehabilitation, but instead by
,'" guaranteeing section 8 rent payments to
owners who rehabilitate units and then
rent them to section 8 households.
Funding is all federal, through HUD;
County Housing Authority provides all
administration. No City costs. While
Federal funds for this program are not
currently available, the City's Housing
Coordinator will pursue funding as it
becomes available.
IV. CDBG-Related Programs Through County HCD
There are a number of programs which are
available to apply in the City through the
City's participation in the federal CDBG
program as a non-entitlement City. The County
Department of Housing and Community Development
(HCD) administers all of these under its "Urban
county" CDBG program. By participating as a
non-entitlement City, Encinitas also
participates financially in the provision of
all these programs', which are available to City
residents and property owners. These programs
remain active and available to apply in the
City as long as the city is one of the non-
enti tlement cities involved in the "Urban
County" program. Should Encinitas become an
entitlement city in the future, this
arrangement will end; however, Encinitas may
enter into an agreement with County HCD to
continue to operate any or all of these
programs, funded by whatever source of City
funds the City may choose. (This could include
City general funds, specific allocation of City
CDBG monies, redevelopment housing funds, in-
lieu housing fees which may be collected by the
City, etc.) As funded directly by the city,
these programs are applied exclusively within
City limits. Even as a non-entitlement City,
the City can choose to augment the funding now
applied to any or all of the below programs to
increase their application within City limits.
a. Residential Rehabilitation Program.
Provides rehabilitation loans directly
from HCD to qualified target households
who are owner-occupants of existing units
which are in need of physical
rehabilitation. As a CDBG program, these
are 0% loans, with payment deferred until
c
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the owner-occupied unit is sold to a new
party; upon sale, the outstanding
principal is paid through the sale. (In
essence, then, these are "grants" repaid
upon sale out of the proceeds of the
sale.) Also as. a CDBG program, this
program is offered to lower and very low
income households, only. Loans are
currently limited to $20,000 each. This
program operates to maintain the existing
stock of affordable owner-occupied
housing, and enables target households to
remain in affordable housing without
detrimental financial impact to them. The
City's goal is for the rehabilitation of
50 units under this program over the next
five years.
b. Interest Subsidy program. Loans from
private lending institutions to qualified
target households are subsidized by HCD
to reduce loan rates and make the loans
more affordable. Rates are typically
reduced from current-market 11%, to 7% or
5%. HCD pays the lending institution the
difference. Loans can be used for
residential rehabilitation, affordable
home purchase, or other CDBG-qualified
housing purpose. The city's five year
goal is for the issuance of ten housing
loans at subsidized interest rates.
c. Elderly/Handicapped Grant Program. HCD
provides outright grants, currently
limited to $1,500 per household, to
qualified elderly (62+ years for at least
one household member) or handicapped
household of owner-occupied dwellings.
As a non-entitlement CDBG program,
currently limited to lower and very low
income households. Grants are for housing
rehabilitation purposes. Thus, this
program acts to preserve existing
affordable housing stock and enables
target households to achieve safe and
sanitary housing with no financial impact
to them. The Housing Element sets forth
a goal of 10 grants over the next five
years.
d. Weatherization Program. HCD provides
outright grants, currently limited to
,
'"
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(
e.
$1,000 per household, to qualified target
households of owner-occupied units.
Grants must be used for weatherization,
~.g., roof work, window/door seals, etc.
As a non-entitlement CDBG program,
currently limited to lower and very low
income households. 'program acts to
preserve existing affordable housing stock
and enables target households to achieve
affordable safe and sanitary housing with
no f inane ia 1 impacts. The Hous ing Element
goal is for the issuance of ten
weatherization grants.
MObilehome/Deferred Loan Program. Very
similar to the Residential Rehabilitation
program. As currently run, 0% deferred-
payment loans are made to qualified
households of owner-occupied mobilehome
units for rehabilitation. Currently
limited to $5,000 maximum per household.
As a CDBG program, currently limited to
very low income households only. Program
acts to preserve existing stock of
affordable owner-occupied mobilehome and
trailer units, and enables target
households to achieve affordable safe and
sanitary housing with no financial impact.
Based on the significant number of
mobilehome units in need of
rehabilitation, the goal for this program
is for the issuance of 50 loans over the
next five years.
f.
Mobilehome Occupant Assistance Program.
HCD provides, as currently operated, 5%
deferred-payment loans, maximum $19,000
each, to qualified households who are
tenants in existing rental mobilehome
parks. Loans are used to allow the
households to buy mobilehome or trailer
units in mobilehome parks and the park
spaces on which the units sit. This
program is applied in conjunction with the
conversion of a space-rental mobilehome
or trailer park over to a park
sUbdivision, condominium park, or other
form of owner-occupant park ownership.
This program acts to preserve the stock
of existing affordable mobilehome/trailer
park housing, and enables target
households to have assured housing through
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ownership. The City will facilitate the
use of this program through advertising
its availability to park tenants, and by
co-signing loans for park conversions.
v. Programs to Maintain Existing Affordable
Housing Arrangements
It is as important to maintain existing
affordable situations as it is to create new
housing opportunities. Loss of existing
affordable situations will only exacerbate
existing unmet housing needs. The maintenance
of housing in terms of minimum safety and
sanitary conditions is also important. Such
programs can have the added advantage of
upgrading existing city neighborhoods if
targeted at specific areas. The following
programs are aimed at maintaining the
affordability and livability of the city's
housing stock. Note that several of the
following programs involve grants or subsidized
loans, e.g., for housing rehabilitation.
Grants will normally come directly from the
City or Redevelopment Agency, through a City-
established Housing Authority or under
contractual arrangement with the County Housing
Authority. Loans can also come directly from
the City /Redevelopment Agency. But subsidized,
below-market loans can also be arranged through
private lending institutions. The City/Agency
subsidizes loans by paying the bank the
difference between market and the lowered rate,
and/or by guaranteeing the payment of the
loan. Loan interest rate can be reduced to as
little as 0%, depending on the affordability
gained.
a. Code Enforcement. Establish and maintain
a city-wide program of dwelling unit
inspection and enforcement of minimum
health and safety standards. Coordinate
the city's code enforcement efforts with
rehabilitation assistance to qualifying
households.
b. Condominium Conversions. Address
establishing regulations in the City's
Subdivision Ordinance to limit the number
of conversions of rental dwellings to
condominium or other individual-ownership
status, based on the availability of
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adequate remaining rental stock. City
staff will prepare specific draft
regulations and submit these for Planning
Commission and City Council consideration.
c. Mobilehome/Trailer Park Housing.
Establish incentives to owners of existing
mobilehome/trailer parks to encourage the
parks to remain as housing, and to be
provided as affordable housing. Note the
Urban County CDBG - operated programs
under County HCD, above: expand their
application in Encinitas, add additional
funding for application exclusively in
City limits as funding sources may be
available. Consider additional/parallel
Ci ty / Redevelopment Agency, programs as
well. City staff will prepare a
comprehensive program and present this to
city Council for authorization. Program
elements may include, but are not limited
to, the following: Provide grants,
subsidized and/or deferred-payment loans
for park rehabilitation; provide grants,
subsidized and/or deferred-payment loans
for the rehabilitation of individual
mobilehome/ trailer units in need of
rehabilitation. Provide these incentives
and subsidies in return for units being
guaranteed affordable and/or accessible
to target households for a minimum time
period. The five year goal of this
program is for the conservation of 520
mobilehome/trailer units.
d.
("
j
"
Coastal Zone Housing Requirements.
Establish and maintain a program to
enforce the housing requirements of
California Government Code sections 65590-
65590.1. This includes requirements for
maintenance, or replacement of existing
affordable housing thus meeting the goal
of housing conservation. since over two-
thirds of the City's land area, and an
even greater proportion of existing and
planned housing units, are in the Coastal
Zone, the City will also consider the
advantages of requiring these coastal
regulations City-wide. Staff will prepare
a proposal for Council consideration.
This consideration and completion of the
administration systems are scheduled to
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,
,
e.
,
\,
be completed in 1990.
Owner-Occupied Residential Rehabilitation
Program. This program consists of
providing grants and/or subsidized,
deferred-payment loans to qualified target
household owner-occupants for the purpose
of needed unit rehabilitation. In return,
units are guaranteed to remain affordable
upon resale for a minimum time period,
and/or the grant/loan amount may be
required to be repaid upon out of sale
proceeds. To implement this program City
staff will prepare proposed regulations
and procedures, and submit those to City
Council and/or the Redevelopment Agency
for consideration to adopt.
Implementation depends on available
funding sources. The five year goal for
this program is to provide rehabilitation
assistance to 20 owner-occupied
households.
f. Rental Residential Rehabilitation Program.
This program consists of providing grants
and/or subsidized, deferred-payment loans
to the owners of rental units in need of
rehabilitation, in return for the
guarantee that the units will be rented
at an affordable rate for a minimum time
period. Floor area expansions to
accommodate large households can also be
involved. To implement this program City
staff will prepare proposed regulations
and procedures, and submit those to City
Council and/or the Redevelopment Agency
for consideration to adopt.
Implementation depends on available
funding sources. The five year goal for
this program is to provide rehabilitation
assistance to 20 rental dwelling units.
g. Assessment District Subsidies. This is
an "optional" program, in that it is not
relied upon within the 5-year time frame
of this Element to achieve the quantative
regional share objectives established for
Encinitas. No quantitative objective is
established for this program. However,
should program funding become available
and the City can determine it has the
resources to administer, this program may
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("""
VI.
(
,
,
\./
be applied within this 5-year cycle.
Under this program, neighborhoods in need
of new or upgraded infrastructure form an
assessment district to raise the funds to
finance the improvements. The city 1
redevelopment agency then pays part or all
of the assessment for low and moderate
income households. Can be tied to
guarantees of unit affordability for a
specified term, or requirement to pay back
the subsidy upon sale if not affordable.
This program can be focused on
neighborhoods of significant proportions
of existing affordable housing. To
implement this program City staff will
prepare proposed regulations and
procedures, and submit those to city
Council andlor the Redevelopment Agency
for consideration to adopt.
Implementation depends on available
funding sources, and the propriety and
feasibility of forming individual
assessment districts.
Programs to Create New Housing Opportunities
The City will satisfy its housing objectives
through a variety of means, including new
construction (also referred in this Element as
"development") , housing rehabilitation
("improvement"), and conservation
("maintenance"). A significant proportion of
housing needs will be satisfied through new
housing construction and the creation of new
opportunities which have not previously existed
within the present stock of housing. As with
housing maintenance programs above, a
combination of grants, and subsidized loans are
part of several of the programs below.
a.
New Condominium unit Rental Allowance.
Developers of multifamily housing projects
may have difficulty securing financing for
construction because of requirements by
lending institutions that the units be
marketed as owner-occupancy condominium
units. Recognizing this, Government Code
Section 66452.5 provides that new
multifamily projects approved under
subdivision maps as condominium projects
can be made available for 10 years as
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rental projects, thereby assuring an at-
least temporary addition to the City's
rental housing stock. This provision may
be applied to multifamily projects under
subdivision maps in the city. The City
. shall promote the availability of this
provision to prospective developers.
b. Equal Opportunity Housing Marketing. As
a condition of approval of any new housing
development, the City requires that the
units be marketed and sold according to
procedures to promote equal housing
opportunities based on race, ethnicity,
sex, religious affiliation, or marital
status.
c.
1"
/
,
"
Inclusionary Housing Requirements. The
City now has in force an ordinance
requiring that subdivisions of 10 or more
units provide at least one unit set aside
for low income households. An in-lieu fee
can be paid to the City as an option.
This existing inclusionary regulation
needs to be clarified in several respects,
e.g., that the affordability of a set-
aside unit needs to be assured. The value
of the in-lieu fee also needs to be
established. At the same time, an
amendment of the inclusionary requirements
should be initiated to consider the
following: Expand the inclusionary
requirement to apply to all housing
developments, not just subdivisions.
Allow developers to guarantee to the City
off-site units, not just units in the
subject project, as an alternative to in-
lieu fees. Expand the inclusionary
requirement to all residential projects,
not just those of 10 or more units, and
provide that projects of fewer than a
whole unit inclusionary requirement pay
a proportional share of the in-lieu fee.
Note that institution of these
inclusionary provisions would
automatically fulfill Coastal Zone Housing
provisions for new construction (see
below) . City staff will prepare a
detailed proposal for these changes to the
inclusionary program and present them to
Planning Commission and City Council for
approval. The five year goal for this
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t""
"
d.
(
program is to provide 100 unit's
affordable to lower income households (10%
of expected total construction).
Coastal Zone Housing Requirements. Per
California Government Code Section 65590,
all new housing construction within the
Coastal Zone is subject to findings and
requirements that affordable new units be
included. The City will establish and
maintain a program to implement those
regulations, thereby helping to achieve
the goal of new affordable housing
developments; this program will overlap
wi th and be implemented by the City's
inclusionary housing requirements. Since
these provisions of State law are
mandatory, City staff has already begun
(1989-1990) to set up and operate
administrati ve systems. Since the Coastal
Zone incorporates over two-thirds of the
City's area, and a greater proportion of
the City's existing and planned housing
units, the city will also consider the
advantages of establishing those
provisions City-wide. Staff will prepare
a proposal for Council consideration.
This consideration and completion for
administrative systems is scheduled for
completion in 1990.
e. Specific Plans Mixed Use Development. The
Land Use Element provides that the Old
Encinitas, Cardiff Commercial Area and 101
Corridor (Leucadia) specific plans may
include provisions for mixed use
development in commercial districts.
Mixed use development means inclusion of
residential units along with development
of principal commercial uses. Mixed use
residential provisions may include
requirements or incentives to be
affordable. Adoption of such provisions
should result in the development of new,
affordable housing units, but their
adoption and the details of their
institution must be worked out in the
process of crafting and adopting these
area specific plans. The Old Encinitas
and Highway 101 specific plans are now
scheduled for development through 1991.
Adoption is subject to considerable public
.
'-..j
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f.
(
,
input, and public hearings before Planning
Commission and City Council. The five
year goal is for the creation of 10 new
units affordable to very low and low
income households.
Land Cost Write-Down Program. This is an
"optional" program, in that it is not
relied upon within the 5-year time frame
of this Element to achieve the quantative
regional share objectives established for
Encinitas. No quantitative objective is
established for this program. However,
should program funding become available
and the City can determine it has the
resources to administer, this program may
be applied within this 5-year cycle. This
program involves the City or Redevelopment
Agency purchasing land outright, or
purchasing partial land interests. Land
acquired outright is sold or leased for
development subject to a requirement that
units developed be affordable and/or
suitable for special needs households
(guaranteed through deed restrictions to
which the City is a party). Land is sold
or leased by the City/Redevelopment Agency
at a lower-than-market price to subsidize
the affordability of units. Partial land
interests in land otherwise owned by
development interests is another way of
underwriting affordable units. To
implement, City staff will analyze the
feasibility and cost effectiveness of this
program, and present results to the city
Council and/or Redevelopment Agency for
adoption.
g. This is an "optional" program, in that it
is not relied upon within the 5-year time
frame of this Element to achieve the
quantative regional share objectives
established for Encinitas. No
quantitative objective is established for
this program. However, should program
funding become available and the City can
determine it has the resources to
administer, this program may be applied
within this 5-year cycle. Subsidizing
Off-site Improvement Costs. Private
developers under this program receive
ci ty /Redevelopment Agency subsidization
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tOO
h.
c;
of off-site improvement costs (e.g.,
street improvements, drainage
improvements, utility extensions or
undergrounding). In return a proportion
of project units are guaranteed affordable
via deed restrictions. To implement, city
staff will analyze the feasibility and
cost-effectiveness of the program,
including identifying available funding
sources, and present results to the City
council and/or Redevelopment Agency for
adoption.
This is an "optional" program, in that it
is not relied upon within the 5-year time
frame of this Element to achieve the
quantative regional share objectives
established for Encinitas. No
quantitative objective is established for
this program. However, should program
funding become available and the City can
determine it has the resources to
administer, this program may be applied
within this 5-year cycle. Second Trust
Deeds for First-Time Buyers. The City/
Redevelopment Agency will provide second
trust deeds on behalf of qualified first-
time home buyers to underwrite the
affordability of units they buy. Interest
rates are reduced (to as low as 0%) and
payment is deferred, to be repaid upon
resale of the dwelling or subject to a
balloon repayment after a specified time.
To implement, City staff will analyze the
feasibility and cost-effectiveness of the
program, including identifying available
funding sources, and present results to
the City Council and/or Redevelopment
Agency for adoption.
i.
This is an "optional" program, in that it
is not relied upon within the 5-year time
frame of this Element to achieve the
quantative regional share objectives
established for Encinitas. No
quantitative objective is established for
this program. However, should program
funding become available and the City can
determine it has the resources to
administer, this program may be applied
wi thin this 5-year cycle. First-Time
Buyer Property Rehabilitation. The City/
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Redevelopment Agency will purchase and
upgrade owner-occupied units in need of
rehabilitation. Rehabilitated units are
sold to. qualified income-restricted
households at affordable prices; special-
needs households can also be targeted.
The affordable sales-price maximum is
passed on upon resale or the subsidy
difference can be repaid, through deed
restrictions. To implement, City staff
will analyze the feasibility and cost-
effectiveness of the program, including
identifying available funding sources, and
present results to the city council and/or
Redevelopment Agency for adoption.
j. .Agricultural Worker Housing Development
Assistance. Incentives under this program
will be offered to encourage provision of
accessory agricultural worker housing by
agriculture/greenhouse operations.
Incentives may include but are not limited
to grants or subsidized loans to farm
owners to provide agricultural worker
housing. The City/Redevelopment Agency
may also purchase and lend safe and
sanitary agricultural worker housing
trailer units. To implement, City staff
will analyze the feasibility and cost-
effectiveness of the program, including
identifying available funding sources, and
present results to the City Council and/or
Redevelopment Agency for adoption.
Through this additional assistance, the
five year goal is to realize 35
agricultural worker units.
k. Transitional Housing/Emergency Shelter
Development Assistance. Emergency shelter
simply provides for the immediate, basic
shel ter needs of the homeless.
Transitional Housing is designed more to
be transitional to more permanent housing
for homeless individuals and families,
once they have had an opportunity to solve
their employment, transportation, child
care, and other problems related to
homelessness. Transitional housing and
emergency shelter facilities should
specifically be limited in terms of the
length of time they are available to
individual households (e.g., 90 days) to
"
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,
\,.
1.
make room for other homeless households.
The most successful shelter facilities are
also places where other needed help, e.g.,
employment and transportation services,
are also made available. Transitional
housing and emergency shelters under this
program can be available to any homeless
household, or may be targeted to specific
need categories - single-parent homeless
households, "battered wife" homeless
families, homeless minors, or families as
opposed to adult individuals, based on
greatest identified need. The City/
Redevelopment Agency under this program
will sponsor or assist emergency shelter
and transitional housing facilities,
inside City limits or outside within a
reasonable proximity. Consideration will
also be given to encouraging or supporting
facilities by provision of siting
opportunities to operator agencies,
grants, or low-cost loans. Placement
assistance for homeless households found
within City limits may also be provided.
This program will also recognize the
existing services provided by the
Community Resource Center, a private non-
profit service agency based in Encinitas.
The CRe presently provides vouchers to
homeless households for temporary shelter
and provides services to solve the
problems causing their homelessness. A
contractual agreement with CRC and
financial support for this service will
be considered as a program alternative.
city staff will develop the details of
this program and present to City Council
and/or the Redevelopment Agency for
adoption.
Self-Help Housing Program. The City under
this program will provide administrative
and support services for low/moderate
income self-help builders. Services
typically include training and supervision
of builders, loan packaging and
counseling, self-help housing workshops,
and possible office costs. Mortgage
assistance funding may accompany this
program to help qualified households
achieve affordable housing. This program
might be organized to be provided through
H-83
04/24/90
a regionally-based agency, e.g., County
Housing Authority under contract to the
city. Self-help housing may also be used
for affordable existing unit
rehabilitation and provides limited
employability training services. city
staff will develop the details of this
program and present to City council and/or
the Redevelopment Agency for adoption.
The five year goal is to realize self help
assistance to 10 households.
VII. Direct Household Support and Services
Housing needs will be partially addressed
through support services .and subsidies to
target households. Direct support to target
households includes programs now operated under
agreement with County HCO, includin~ Section
8 housing certificate and Housing Voucher
programs. The following are additionally
offered, and will continue to be offered as
long as necessary and practical.
a.
city Jobs Center. Maintain the existing
city jobs center to help put heads of
homeless households in touch with
employment opportunities. Employment
income is commonly one of the greatest
needs of the homeless. The existing job
center is now established in temporary
facilities on El camino Real. The
objective of this program is to continue
to offer this service.
.,-',
f -.
b. Centralized Social Services
Referral/Outreach. In addition to job
referral, the City jobs center can be
established as a comprehensive center for
referral to other available support
services for homeless households. These
may include transportation services, child
care, etc. from a variety of social
service agencies in the County. Under
this program, City staff will investigate
the feasibility of providing expanded
services and present this to City Council
for consideration of adoption.
c. Seniors Shared Housing Referral. This
program provides a clearinghouse to place
limited-income seniors in need of
....
H-84
04/24/90
/...-...
d.
affordable housing in touch with other
seniors in owner-occupied units who wish
to share housing costs. Both households
-are thus assisted with housing costs.
Lifeline, a non-profit social service
agency located in Vista, operates a senior
shared housing service for North County
residents. While seniors in Encinitas
have utilized this program, more active
marketing could significantly enhance
usage of the program. The city will adopt
a formal position of support for Lifeline,
and maintain communication through the
office of the City Housing Programs
Coordinator. Funding to Lifeline will be
provided as available to support this
program. The City's goal is to achieve
30 roommate matches annually through
placement of informational brochures at
City Hall and senior centers in the
community.
Affirmative Housing Information Outreach
Program. To supplement County HCD' s
Affirmative Fair Housing program. The
County 'program provides a broad spectrum
of housing information and housing rights
promotion, including general information
and rights pamphlets, information on
specific Urban County programs, and
landlord/ tenant outreach and mediation.
It also includes participation in the San
Diego Regional Fair Housing Task Force.
As a participant in the Urban County CDBG
program, the City has these services
available. The City will promote the use
of these services to city residents and
developers, and supplement the County
program with direct information from the
city Housing Program Coordinator's office
on current housing programs and financing
availability; counseling on low cost home
rehabilitation and maintenance;
residential energy conservation
techniques; tenant's rights; and tenant-
landlord mediation.
e.
Child Care Programs. Affordable and
available child care services are
important for single-parent households and
households with two income-earners which
may be of limited income. The City can
H-85
04/24/90
r'
f.
('
...
encourage day care facilities by several
means, including but not limited to:
requiring their inclusion in publicly
subsidized housing projects with a stated
proportion of families; offer incentives
to private developers to include day care
facilities in both residential and
commercial projects; and contract with a
resource and referral service to inform
parents in Encinitas about child care
facilities in the community. Under this
program City staff will investigate the
feasibility and funding availability to
support child care programs, and present
recommendations to City Council for
consideration of adoption.
City-Funded Housing Vouchers. The
City /Redevelopment Agency can fund its own
housing voucher program to qualified
target limited-income households. This
program would directly subsidize the
housing costs of limited-income
households. Under this program the City
staff will investigate the feasibility of
a voucher program, identify alternatives,
and identify available funding sources.
This program will recognize and consider
supporting the existing services provided
by the Community Resource Center, a
private non-profit service agency based
in Encinitas, to the extent that the CRC
can operate a voucher program for
permanent residency. It will also
consider a contractual arrangement with
the County Housing Authority. Final
recommendations will be presented to City
Council and/or the Redevelopment Agency
for consideration of adoption. The five
year goal is for the provision of 50 city
funded housing vouchers.
VIII. Other Housing Programs Implementation
a. Housing Development Fees. These
development fees pay for needed
infrastructure improvements to assure the
safety and viability of residential
neighborhoods, achieving housing goals and
policies. This program will maintain the
impact fee system to assure adequate
support facilities for housing. Related
H-86
04/24/90
to program I-h above, density bonuses, the
City may identify the reduction or waiver
of certain fees in return for guarantees
of affordable housing. This will be
identified in conjunction with
implementation of program I-h.
b. Housing Energy Conservation. The city
applies residential energy conservation
requirements of Title 24 to all new
construction. Subdivision map findings
through the State Subdivision Map Act
apply to the consideration of all
subdivisions. Finally, the City's Growth
Management Program may establish merit
for energy conservation as an
encouragement for project building permit
release. This program consists of
maintaining the Title 24 and Map Act
provisions, and finalizing the growth
management meri~ system in 1990.
c. Handicapped Housing Requirements. The
City applies the requirements of State
Title 24 to all new housing development.
Changes in Title 24 effective January 1,
1990 assure not just accessibility, but
functional i ty for handicapped as well, and
better address the provision of
handicapped units. This program consists
of maintaining Title 24 requirements.
IX. Housing Programs Administration
a. City Housing Program Administration. As
a recently incorporated City, Encinitas
is still gaining experience in the
implementation of its housing programs.
Many available programs, such as those
offered through the County Housing
Authority and HCD, have not been taken
full advantage of. In addition,
significant new program commitments,
including all programs identified in the
Housing Element, will require more
extensive administration. The devotion
of adequate management toward housing
program administration will to be a key
element for the success of City housing
programs. This program consists of
identifying clearly all of the
responsibilities of a "Housing Programs
H-87
04/24/90
/
Coordinator," and either assigning
existing staff to these responsibilities
and/or hiring additional staff for these
purposes. This is to be accomplished in
the first year of the Element, 1990.
Housina Proarams Table
Table 9, the Housing Programs Table, provides a
complete summary of the City's comprehensive housing
program over the five year term of the Housing
Element, 1990-1995. Expected funding sources and
responsible implementing offices of the City are
identified. The five year goal for each program is
identified, whether it be qualitative (e.g. "adopt
regulations as needed") or quantitative (e.g.,
"de~elopment of 100 housing opportunities affordable
to low/very low income households"). The schedule
of implementation for each program is noted (e.g.,
years 2-5 of the five year term of the Element).
Additionally, the housing pOlicy(ies) and
objective(s) which each program serves to implement
are noted, referenced by the policy objective
numbers designated earlier in the Element. At the
end of the Table, a summary total is provided for
the quantitative goals for housing construction
(development), housing rehabilitation (improvement),
and housing conservation (maintenance) over the five
year term of the Housing Element. Thus, the Housing
Programs Table provides a complete, at-a-glance
reference for the City of Encinitas' five year
comprehensive housing program.
H-88
04/24/90
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, 19 q D
)
INTRODUCTION
C. COMMuNITY GOALS AND OBJECTIVES
The Escondido City Council has fully supported the need to solicit widespread com-
munity input on the goals that should direct the community's future. Two Council-ap-
pointed General Plan Committees were charged to listen to and interpret community
opinions about matters pertinent to the General Plan. A series of five community work-
shops were held in late spring and summer of 1987 to discuss citywide and neighbor-
hood issues, community assets, liabilities, and land-use options. The culmination of
these meetings resulted in a set of community goals and objectives which would pro-
vide a framework for establishing policies, standards, and guidelines for future growth
in the City's Planning Area and provide certainty in the General Plan's implementation.
These goals and objectives were refined through the Growth Management Oversight
Committee process in 1989 and subsequently adopted as pan of this General Plan.
GOAL 1: Plan For Quality, Managed Growth
Objectives:
a. Establish a growth management system which develops facilities and services
plans both communitywide and for specific neighborhoods based upon identi-
fied quality of life standards.
b. ,Adopt policies encouraging compatible in-fill development which will improve
existing neighborhoods.
c. Allow new development to occur only when facilities and services plans are
adopted for the area for which the development is proposed.
d. Improve coordination with the county and surrounding cities regarding planning
for areas beyond the city limits to address regional issues and to protect the
goals and objectives of the General Plan.
GOAL 2: Improve Circulation And Safety For Vehicles And Pedestrians
Objectives:
a. Establish feasible levels of service for intersections and street segments which
will be incorporated into facilities plans.
b. Enhance carrying capacity of existing streets and intersections in the urbanized
core through transportation management systems, support for public transporta-
tion and carpooling, and coordination of improvements through the overall capi-
tal improvement program and neighborhood facilities plans.
c. Develop a circulation impact model which will determine the impacts of devel-
opment and implement mitigation measures to ensure consistency with facilities
plans.
d. Improve bicycle and pedestrian safety through the installation or improvement
of sidewalks, a trail system in coordination with the Open-Space Element, and
intersection controls.
e. Support the restoration of school bus service and other means of improving stu-
dent safety.
1-9
INTRODUCTION
f Participate in regional transponation effons including but not limited to park-
and-ride facilities, Transponation System Management effons, and public
transit.
GOAL 3: Preserve And Enhance Existing Neighborhoods
Objectives:
a. Establish objective guidelines for controlling density increases in existing resi-
dential neighborhoods.
b. Limit the conversion of predominantly residential neighborhoods to nonresiden-
tial uses, and require effective buffers and mitigation measures through
Conditional Use Permits when appropriate nonresidential uses are proposed.
c. Establish land-use designations which reflect the character of existing neighbor-
hoods.
d. Adopt and implement area plans to preserve and/or improve existing neighbor-
hoods.
e. Continue propeny maintenance programs through public information and code
enforcement.
GOAL 4: Provide A Range or Housing Opportunities For All Income Groups
Objectives:
a. Establish and maintain a cUITCnt housing needs assessment through the Housing
Element.
b. -Adopt land-use designations which will allow for housing opponunities for all
income levels.
c. Establish strategies for low- and moderate-income housing opponunities, in-
cluding neighborhood area plans, senior housing, and specialized housing needs.
d. Continue suppon for housing rehabilitation.
e. Promote well-planned and well-designed affordable housing.
f Suppon the continued operation of mobile home parks and develop strategies
for mobile home resident ownership.
GOAL 5: Encourage a Diverse Economic Base to Provide Jobs and Services for
Escondida residents
Objectives:
a. Suppon the rehabilitation or recycling of declining commercial and industrial
areas.
/-10
INTRODUCTION
b. . Continue to evaluate economic development strategies, including commercial,
industrial, office and tourist-oriented land uses.
c. Revise industrial zoning classifications and development standards to restrict
encroachment of commercial or residential uses in industrial areas and to restrict
the expansion of existing undesirable industrial uses especially along the 1-15
and Highway 78 conidors.
d. Promote Escondido's role as the cultural, financial, medical, governmental,
commercial, and transponation center of Inland North County.
GOAL 6: Create a Viable Urban Downtown
Objectives:
a. Create a distinct identity for the downtown by encouraging activities that tradi-
tionally locate in a pedestrian-oriented downtown area, including offices, restau-
rants, and specialty retail shops.
b. bnplement the Downtown Revitalization Plan through the adoption of a Specific
Plan.
c. Promote residential development in specified areas within the Downtown
Specific Plan to enhance revitalization effon.
d. Identify compatible uses in the Downtown Specific Plan which will attract a
high daytime and nighttime population to the area.
GOAL 7: Create an Aesthetically Pleasing and Culturally Diverse Community
Objectives:
a. Adopt design guidelines and development standards to be the basis for design
review of architectural, landscaping, signage and other visual impacts of devel-
opment projects.
b. Establish landscaping guidelines for all areas of the city.
c. Preserve significant historic and cultural features through ordinances and incen-
tive programs.
d. Preserve natural resources such as creeks, steep slopes and ridge lines as visual
amenities.
e. Develop a system of open-space conidors and trails throughout the city.
t: Develop a strong community identity through urban design standards, down-
town revitalization, cultural activities, visual gateways to the city.
/-11
INTRODUCTION
GOAL 8: Preserve Escondido's Natural and Scenic Resources
Objectives:
a. Establish policies to preserve visually prominent vegetation, including existing
street trees and mature ornamental trees in existing neighborhoods.
b. Support environmental protection policies in this General Plan to protect or ade-
quately replace sensitive habitat areas such as wetlands and oak woodlands, in-
cluding coordination with state and federal agencies having jurisdiction over
such areas.
c. Maintain a ruraI residential and open-space environment around the perimeter of
Escondido to serve as a buffer from urbanizing surrounding areas.
d. Establish criteria for measuring the impacts of development on air quality and
participate in effons to attain state and federal air quality standards through ap-
propriate mitigation measures.
e. Establish density and development standards designed to protect existing
terrain, steep slopes, floodways, habitat areas, and ridge lines, and to minimize
visual impacts.
f. Develop and implement communitywide resource conservation programs.
GOAL 9: Support Agriculture While Planning for Possible Land Transition to
Urban Uses
Objectives:
a. Maintain large-lot residential land uses with appropriate zoning designations in
agriculturaI areas that are compatible with preserving agricultural productivity.
b. Buffer agriculture from more intensive urban uses with intermediate land uses
which are mutually compatible.
GOAL 10: Provide Continued Community and Social Services for a
High Quality of Life
Objectives:
a. Adopt basic quality of life standard to guide the development of community-
wide and neighborhood facilities plans.
b. Continue to suppon public and privately operated community services programs
to serve the entire community.
c. Provide incentives for development to provide facilities which exceed minimum
standards and correct existing deficiencies.
d. Continue strong suppon of recreational programs for all age groups and empha-
size the development of neighborhood and "pocket" parks especially in existing
neighborhoods.
1-12
INTRODUCTION
GOAL 11: Provide a Safe and Healthy Environment for all Escondido Residents
Objectives:
a. Establish service levels for police and fire protection which will be maintained
with new development without adversely affecting service levels for existing
developments.
b. Continue coordination with county and state officials to deal with issues involv-
ing toxic materials and adopt ordinances to implement the County Hazardous
Waste Management Plan or equivalent.
c. Establish grading drainage and erosion control standards which control surface
runoff associated with new development while preserving natural resources.
d. Participate in local and regional programs to meet state and federal air and water
quality standards.
GOAL 12: Provide Certainty in Implementing the General Plan
Objectives:
a. Observe the stringent and consistent objective criteria located in the
Implementation Chapter which must be satisfied before the General Plan can be
amended. '
b. Revise zoning, grading, and subdivision ordinances and adopt other ordinances
including the requirement of facilities plans which will implement the goals and
objectives of the General Plan.
c. Adopt performance criteria within appropriate ordinances to ensure land-use
compatibility, environmental protection, and improvement of neighborhoods
identified in the Land Use Element of the General Plan.
1-13
J
LAND USE
E. HOUSING
The Housing Element is a component of the General Plan which assesses the housing
needs of all economic segments of the City. In addition, the Housing Element defines
the goals and policies which will guide the City's approach to resolving those needs and
recommends a set of programs which would implement policies over the next five
years.
State law requires that all cities adopt a housing element and describes in detail the
necessary contents of the housing element. This Housing Element responds to those
requirements, but it also responds to the special characteristics of the City's housing
environment. This element was prepared in 1990 by revising and updating the
previously adopted Housing Element. The revisions incorporate the most current data
and information that are readily available; an evaluation of the Housing Element
adopted in 1985, an assessment of the current and potential housing actions, and an
. assessment of resources of the private sector and all levels of the public sector.
CONTENTS
The Housing Element consists of four sections and supportive appendices. The first
section summarizes the requirements that a housing element must meet. Those
requirements are a composite of State StatUtes and pertinent case law. The first section
also describes the information sources used to prepare the element and the need to
insure consistency with the City's General Plan.
The second section provides an assessment of the City's housing needs through a
market analysis and an identification of the special and regional housing needs,
constraints (governmental and nongovernmental) to affordable housing, an inventory of
sites suitable for residential development, and needs for energy conservation. The
needs assessment quantifies the problems of housing, especially the need to address
housing affordability.
SUMMARY OF NEEDS ASSESSMENT
Total Population: (1189) ..........................................................................................99.006
Median Age: (1987) ....................................................................................................33.4
Average Household Size: (1986) ................................................................................ 2.55
Median Income: (1988)...........................................................................................27,460
Total Housing Units: (1989) ...................................................................................40,817
OwnerlRenter Ratio: (1989 estimate) ........................................................................1.4:1
Number Housing Units Built:
1970-1979 ........................................................................................................... 13.315
1980-1989 ........................................................................................................... 12,772
Regional Housing Needs Statement
1990-1995............................................................................................................. 6,705
The third section consists of two pans: (1) the evaluation of the prior Housing Element
and the progress made by its proposed housing programs. and (2) the identification of
housing goals and policies. The evaluation assesses previously proposed programs and
uses the results of this assessment to propose the recommended programs. The housing
goals are identified in Section 3:
1/-79
,
LAND USE
1. To expand the stock of affordable housing while preserving the health, safety, and
welfare of residents and maintaining the fiscal stability of the City.
2. Accommodate the regional share of housing for all income groups and the fair share
for lower-income households that require assistance. '
3. Maintain the existing housing stock as a source of low and moderate cost housing
and as a conservation measure.
4. Ensure a proper balance of rental and ownership housing units.
5. Pennit residential growth only within limits which allow the concurrent provision
of services and facilities, including schools, parks, fire and police protection, and
street improvements.
6. Encourage a compact. efficient urban fonn which conserves land and other natural
and environmental resources and which respects natural topographic and drainage
characteristics.
7. Seek ways to eliminate all fonns of discrimination based on race, ethnic
background, religion, sex, familial status, handicap, age, sexual orientation, or
source of income in obtaining housing.
The remaining part of Section 3 organizes the recommended housing policies into four
subsets: construction, rehabilitation, conservation, and administration.
The last section presents the housing programs that respond to the needs and implement
the goals and policies. They are organized into a fannat that identifies the action to be
undenaken, the anticipated impact, the responsible agency, financing, and schedule.
SUMMARY
The Housing Element identifies needs, establishes goals and policies, and recommends
actions to address those needs from 1990 to 1995. Although statutory requirements
shape the contents of the element, the special setting and capabilities of the City of
Escondido fonn the basis for all components of the Housing Element.
PROGRAM SUMMARY
Continuing Programs
Construction:
. Project Development
. Mortgage Revenue Bonds
. First Time Home Buyers
. Emergency Shelter Program (ESP-VI I)
Rehabilitation:
. Housing Rehabilitation - Owner Occupied
. Housing Rehabilitation - Renter Occupied
11-80
LAND USE
Conservation:
. Transitional Housing/Project Development
. Rental Subsidy
. Relocation Assistance/Cost Recovery .
· Mobile Home Park Conversion
· Mobile Home Rent Review
Administration:
· Fair Housing
. Code Revisions: Nonconforming Use Ordinance
. Senior Housing Ordinance Enforcement
. Housing Infonnaticin and Referral
. Housing Element Update
. Land Use Policies
. Congregate Care
. LandIordITenant Assistance
New Programs
Construction:
. Inc1usionary Zoning
. Mortgage Credit Certificates .
. Section 202 Development
. InfillNew Construction
. City Owned Sites
. Density Bonus
Rehabilitation:
. Recycling Existing Structures
. Neighborhood Focus Program
Conservation:
. Existing Subsidized Housing Development Assistance
Administration:
. Regional Planning and Cooperation
. Non-profit Corporation Support
. Ordinance Review
.1. Overview
Each city in the State of California must have an approved General Plan to guide its
development. Housing is one of the state's required elements of the General Plan.
The Housing Element is an important planning guide to local jurisdictions: it
identifies the housing needs of the city arid recommends ways to meet these needs
while balancing community objectives and resources.
The state law requires that housing elements be revised as appropriate but not less
than every five years. The City submitted the previous Housing Element to the
State in 1984. The California Department of Housing and Community
Development (RCD) reviewed that document and provided comments so that the
City could consider revisions which would bring the draft into compliance with the
state law. Those minor changes were made and Council approved the previous
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Housing Element hi 1985. This document makes the necessary updates to the 1985
element.
The 1990 Housing Element consists of four chapters: Introduction, Needs
Assessment, Goals and Evaluation, and Programs. The Needs Assessment contains
a thorough analysis of the impottant aspects of the housing market in Escondido.
This revision updates the .information base and expands the analysis to respond to
all state required items. The Goals and Evaluation Chapter was also revised based
upon an evaluation of the progress of the City in meeting past housing goals and an,
update of housing goals where necessary. The final chapter, Programs, includes
more information about activities in each program, responsible agencies, and
implementation.
2. State Law
The preparation of the Housing Element is guided by state law, Chapter 10.6 of the
Government Code. The law governing the contents of housing elements is among
the most detailed of all elements of the General Plan. According to Section 65583
of the Government Code, "The Housing Element shall consist of an identification
and analysis of existing and projected housing needs and a statement of goals,
policies, quantified objectives, and scheduled programs for the preservation,
improvement, and development of housing and shall make adequate provision for
the existing and projected needs of all economic segments of the community."
The assessment of housing needs must include seven areas of analysis: existing and
projected housing needs for all income levels (including the city's share of regional
housing), demographic and housing characterishcs, identification, demographic and
housing characteristics, identification of sites for residential development,
governmental and nongovernmental constraints, specia) housing needs, and energy
conservation.
The second major component of a housing element that the law requires is "a
statement of the community's goals, quantified objectives, and policies relative to
the maintenance, improvement and development of housing" (Section 65583[b]).
The law recognizes that the needs will likely exceed the resources and city's ability
to meet the needs. The city must, however, "establish the maximum number of
housing units that cali be constructed, rehabilitated, and conserved over a five year
time frame" (Section 65883[b]).
The final component that must be included in a housing element is "a program
which sets fonh a five year schedule of actions ... to implement the policies and
achieve the goals and objectives of the housing element" (Section 65583[c]). This
program must do several things: Identify potential housing sites "for all income
levels, including rental housing, factory-built housing, mobile homes, emergency
and transitional housing;" assist the housing needs of low and moderate income
people; address governmental constraints that impact housing; conserve and
improve existing affordable housing; and promote equal opponunities for housing.
3. Article 34
In 1950, the voters of California added Article 34 to the State Constitution which
requires that low rent housing projects "developed, constructed, or acquired'in any
manner" by any state public agency receive voter approval. Application of the
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Article 34 referendum requirement is conditioned upon the existence of a particular
actor ("any state public body"), a particular action ("develop, construct, or
acquire''), and a particular object ("low rent housing project for persons of low
income"). All three conditions must be met for a development to be subject to the
referendum requirements; if anyone of the conditions is not met, no referendum is
required.. . . .
In 1976, the Legislature enacted the Public Housing Election Implementation Law
(Health and Safety Code Sections 37000-37002, Stats. 1976, Chap. 1339, Section
3). This statute states in relevant pan:
"Section 37000. The Legislature finds and declares that Article 34 of the State
Constitution was approved by the voters for the purpose of providing a mechanism
for expressing community concern regarding the development, acquisition, or
construction of federally subsidized conventional public housing project. Such
developments typically were different from and inconsistent with housing
developments provided by the private sector. Such differences included
architecture, design, and locational standards as well as the level of amenities
provided. Such developments were occupied entirely by persons of low income,
and usually were not subject to ad valorem propeny taxes."
"The Legislature finds and declares that new forms of housing assistance can
provide housing for persons of low income in a manner consistent with :and
supportive of optimum community improvement. Such forms of housing assistance
may allow for mixed income occupancy in developments representative of, and
competitive with, similar market rate developments provided by the private sector.
Such mixed income developments are frequently comparable to market rate projects
in terms of architecture, design, and locational standards as well as the level of
amenities provided, and may be subject to ad valorem propeny taxes."
"Recognizing that new forms of housing assistance provide new approaches for
housing persons of low income, it is the intent of the Legislature in enacting Section
37001 to clarify ambiguities relating to the scope of the applicability of Article 34
which now exist. Therefore, and pursuant to Section 2 of Article 34, this pan is
enacted in order to facilitate the operation of Article 34 and is consistent with the
provisions of that article."
"The terms 'state public body' and 'persons of low income' used in this pan have
the same meaning as in Article 34."
"Section 37001. The term 'low-rent housing project' as defined in Section 1 of
Article 34 of the State Constitution, does not apply to any development composed
of urban or ruraI dwellings, apartments, or other living accommodations, which
meets either of the following criteria:
(a)(I) The development is privately owned housing, received no ad valorem
propeny tax exemption not fully reimbursed to all taxing entities; and (2) not more
than 49 percent of the dwellings, apartments, or other living accommodations of
such development may be occupied by persons of low income; or
(b) The development is privately owned housing, is not exempt from ad valorem
taxation by reason of any public ownership, and is not financed with direct long-
term public lending.....
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4. Case Law
Decisions by U.S. and State couns have provided specific interpretations of the
laws related to housing. The importance of the housing element has been reinforced
by the couns, especially in California where landmark decisions have been made.
Associated Home Builders Etc., Inc. v. City of Livemwre (1976) established the
.need to deal with housing in the regional context; BueIUJ Vista Garden Apartment
Association v. City of San Diego Planning Department (1985) asserted that a city's
housing element must be in substantial compliance with the state law; and Pardee
Construction Company v. City of Camarillo (1984) reaffinned the court's
recognition and protection of citizens power of initiative in cases where initiatives .
are reviewed for consistency with elements (housing) of the General Plan.
Although many cases could be cited, the purpose of this section is not to provide a
legal overview of housing case law, but to emphasize the imponance of the housing
element in potential litigation. This point will become increasingly imponant as the
couns review legal actions brought against cities. The relationship of the housing
element to other elements of the General Plan (especially land use) and
development/growth control measures will come under close scrutiny by the couns.
It is important thaf this context is maintained in the housing element. .
S. Sources of Information
The 1990 Housing Element is based upon the most current infonnation that was
available at the time of preparation. The most detailed and accurate data base is the
1980 Census. However, it has become obsolete; every effort has been made to find
more current data. The following sources are used: 1980 Census from the U.S.
Department of Commerce, Bureau of Census; 1990-95 Regional Housing Needs
Statement from the Regional Housing Needs from the San Diego Association of
Governments (SANDAG); 1980-89 housing and population estimates from
California Department of Finance; 1987 and 1988 Housing Vacancy Rates from the
Federal Home Loan Bapk Board; 1989 Quarterly Reports from the Center for Real
Estate and Urban Economics, University of California, Berkeley; 1989 Real Estate
Information Board of Realtors; 1989 Rental Surveys; 1986-89 Employment from
State Employment Development Department; ani:l1989 Pennitting Fees Study from
the San Diego County Building Industry Association.
6. General Plan Consistency
The housing element must be consistent with the rest of the General Plan. Housing
must be viewed in a context that includes more than adequate shelter. The housing
unit includes direct and indirect services as an integral part of the structure.
External factors affect the adequacy of housing, including the quality of public
services, aesthetics and visual characteristics, and proximity to related land uses.
For example, one's house includes the use of the school, park, library, police, fire
and other services associated with that unit at a particular location.
The 1990 Housing Element was prepared as an integral part of the General Plan and
reviewed for consistency with its component elements:
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. Land Use (especially residential)
. Community Facilities and Services
. Community Protection and Safety
. Community Open Space and Conservation
. Growth Management
. General Plan Implementation
7. Citizen Participation
The imponance of the Housing Element requires an opponunity for participation of
citizens of all economic ranges. "The local government shall make a diligent effon
to achieve public participation of all economic segments of the community ... ..
(Section 65583[c]). All Planning Commission and City Council meetings were
public hearings, which followed the City's procedures for notice and outreach to the
community. In addition, the General Plan revision process included over 60 public
meetings by the Citizens' Task Force and the Growth Management Oversight
Committee.
The following steps were followed to develop and adopt the Revised Housing
Element:
I. Citizens' Task Force
ll. Growth Management Oversight Committee
m. Housing Advisory Commission
IV. Joint City Council and Planning Commission Study Session
V. Public Hearings Before Planning Commission and City Council
VI. State Housing and Community Development Review and Comment
Vll. Planning Commission Recommendation
vm. City Council Approval
8. Needs Assessment Summary
This chapter provides a comprehensive analysis of the City's housing needs. It
includes several subsections. The City profile identifies the context for the
assessment as well as the rest of the housing element. A market analysis
summarizes the supply and demand characteristics of the City. Additional analysis
includes the identification of regional housing needs including low income, a
discussion of the needs of special housing groups; an analysis of constraints, both
governmental and non-governmental, to the improvement, maintenance, and
development of housing; an inventory of land suitable for residential development;
and a discussion of energy conservation opponunities for residential development.
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9. City Profile
The City's profile consists of the special characteristics and factors that provide the
setting for the housing element. Escondido is located in the North Central portion
of San Diego County. Its natural setting, Mediterranean climate and roIling hills
provide a unique and attractive living environment. This setting has a substantial
impact on the employment characteristics as well as the City's economic base.
These conditions attract growth which in turn create a competitive residential atmo-
sphere.
The City has three general areas of development: the historic town center area, the
more recently developed surrounding areas, and the developing rural areas. Each of
these areas contain housing sub-marlcets which reflect their own unique attributes.
Escondido has experienced intense residential development since 1970. It is crucial
that public services expand to meet the needs of the increasing population. These
services include sewers, streets, police, fire, schools, and recreation. It is also im-
ponant to locate housing to be accessible to other functions such as employment,
services, shopping, and transponation.
10. Market Analysis
The market, analysis portion of the housing element examines the population and
housing characteristics whichiarg'ely detennine the housing needs of the commu-
nity. Such an an81ysis includes a discussion of the traditional indicators of supply
and demand including those mandated by state law.
The development trends that shape the market reveal substantial growth and devel-
opment. Since 1960, the City has grown by almost 82,623 people. Southern
California, and especially San Diego County, is experiencing large increases in
population and housing. The population in Escondido has increased sixfold over
the past thiny years and experienced an annual rate of population growth of 17.4
percenL The housing stock has expanded to meet the demand that this growth has
generated.
a. Demand Analysis
(1) Existing Population
The population of the City was 64,355 in 1980. Based on recent
estimates, the population of the City grew to 99,007 by January 1, 1989.
Thus, the City's population increased by 34,652 people from 1980 to
1989, an increase of 54 percent. San Diego County's population increased
by 30 percent during the same time. The City's population as a ponion of
the County's population, grew from 3.5 percent in 1980 to 4.3 percent in
1989 as a result of a growth rate more than double of the County's rate.
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,.~.,,,,.,.,,,,,
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LAND USE
Table I
Population Characteristics. Growth
Escondido and San Diego County
1980-1989
Year
1980
1988
1989
1980-1989*
1980-19890
Escondida
64,35
93,305
99,00
34,651
54%
San Diego County
1,861,846
2,327,697
2,328,300
466,454
25%
Escondida
as a Percent
San Diego County
3.5%
4.0%
4.3%
7.4%
*Total Increase
oPercentage Increase
SOlU'ce: California Departmelll of Finance Population & Housing Estimates
(l980-1989J. J_ry 1 of each yeor.
(2) RacelEthnicity
Race/ethnicity of the population is important to an analysis of housing
needs and conditions for several reasons. The cultural influences of races
are often reflective of preferences for housing type, location of housing,
associated services, and household composition. For example, the concept
of "extended family" can have implications on the definitions of over-
crowding and housing conditions. The racial and ethnic composition of a
community's population should also be more carefully examined at the
neighborhood level.
Escondido's population includes several races and groups of Spanish ori-
gin, and is predominantly Caucasian. The 1980 Census provides the most
recent ethnic group breakdown.
Immigration of Asian and Pacific Islanders and other potential changes
since 1980 are not reflected in these statistics; however, based upon input
from the school enrollment figures, field checks and Sourcepoint current
estimates, the racial and ethnic composition does not appear to have sub-
stantiallychanged from 1980. The percentage of the City's population of
Hispanic origin has increased from 15 percent in 1980 to 19 percent in
1988; Asian/Other 3 percent in 1980 to 5 percent in 1988; the Black popu-
lation has remained stable.
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LAND USE
_ Table 2
Population Characteristics -Race and Ethnicity
City ofEscondido and Region
1980
r'--'",
~j
Race/Ethniciry
Hispanic
White
Black
Asian/Other
TOTAL
Total
9,378
52,804
263
1,910
64,355
Percentage
15.0%
82.0%
0.0%
3.0%
100.0%
Escondido as
Percent of
Region
0.5%
2.8%
0.0%
0.1%
Source: SANDAG 1980-88 Comparison of EIhnU:ity by City.
Table 3 '
Population Characteristics - Race and Ethnicity
City of Escondido and Region
1988
RacelEthniciry
Hispanic
White
Black
Asian/Other
TOTAL
Total
17 ,286
70,526
418
5,005
93,235
Percentage
19.0%
76.0%
0.0%
5.0%
100.0%
Escondido as
Percent of
Region
0.7%
3.0%
0.0%
0.2%
Source: SANDAG 1980-88 Comparison of EIhnU:ity by City.
(3) Special Ne~s
Introduction
Special housing needs include those households who warrant additional
discussion because they have unique requirements or conditions related to
housing. These special households are identified in the state law: "Such
as those of the handicapped, elderly, large households, families with fe-
male heads of households, and families and persons in need of emergency
shelter" (Government Code Sec. 65583). In addition, this section also dis-
cusses military, students, and farmworkers. This section is intended espe-
cially to identify the segments within the City that will impact the
competition for affordable housing. The demand is imponant because
they often "compete" for the same type of housing. The lack of affordable
housing for each of these groups is compounded by the relatively lower
incomes associated with the special needs. The previous analysis
identified the tight housing market conditions for all housing, especially
for lower income housing units.
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LAND USE
(a) Handicapped
The housing needs of the handicapped are difficult to measure. The
census infonnation is limited to data On work and transportation dis-
abilities. Moreover, the definition of handicapped/disabled varies
from one service agency to another.
The Department of Health and Human Services estimates that 10
percent of the total population in the United States is handicapped.
Applying these national figures to the figure of approximately
99,006 persons residing in Esc.ondido results in an estimate of 9,901
handicapped persons in the City.
The data available from the census for handicapped-related items
include responses to two disability questions. This information was
updated in the 1989 Housing Assistanc~ Plan for the City and it
identified 11,679 disabled people. These figures are imponant to
housing needs because the disabled have special design requirements
and are less likely to be able to afford housing without assistance.
In Escondido, the elderly comprise 67 A percent of the total disabled
from public transportation. The balance of 32.6 percent were small
family and large family.
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LAND USE
"")
Table 4
Work/I'ransportation Disability
City of Escondido
1988
Work Disability
1A. With work disability
1. In labor force
2. Not in labor force
a. Prevented from working
b. Not prevented from working
lB. No work disability
TOTAL
8,449
3,304
5,145
3,996
1,131
84,855
93,304
Transportation Disability
2A. Age 16-64 .
With a public transponation disability
No public. transportation disability
2B. Age 65+
With a public transportation disability
No public transportation disability
1,566
91,740
3,230
20,422
Disabled
Work disability
Transponation disability, age 65+
TOTAL
8,449
+3,230
11,679
SOUTc~: 1988-91 Housing Assistant Plan. City of Escondido
· It was flSSU1Md thai positive r~spons~s 10 t~ two disability qUl!stions would be considerably
ov~rlap~d. To avoid double-counting. t~ 1 .566 ~rsons of ag~ 16-64 with a rransportadon
disability wu~ omilt~dfrom t~ tow/.
(b) Elderly
Many elderly households need smaller "efficiency" units to make in-
dependent living possible. Elderly persons, often on limited in-
comes, have difficulty finding affordable housing. Where elderly
persons can live with other family members or can afford to maintain
their own home, their housing needs can be met. Many single
elderly persons need some form of housing assistance. In Escondido
an estimated 10,471 persons or 16.3 percent of Escondido's total
population, were over the age of 65 in 1980; 28 percent of these per-
sons lived in family households, 25 percent as householder or
spouse, 2.2 percent of the elderly persons lived in group quaners;
11.4 percent of the elderly persons lived in one-person households.
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LAND USE
'j
Applying the City's 1980 percentage (16.3 percent) of elderly per-
sons to the City's current population would result in an estimate of
5,600 elderly individuals. The 1980 census identified more than
358,000 individuals over the age of 55 in the San Diego County.
This older segment of the population is growing rapidly. The groups
of persons age 65 to 74 years grew at 61.0 percent, while persons 75
years and older grew by 63.9 percent.
Table 5
. Percent of Elderly Households (65+)
City of Escondido
1970 and 1980
Year
1970
1980
Elderly 65+
5,723
10,471
% of Total
Population
15.5%
16.3%
Source: 1970 and 1980 Census
Although the current estimates are less detailed than the census, the
California Department of Finance estimates that 21 percent of the
County's population will be 55 years or older by the year 2000, and
32 percent by 2010. Since 1970, the number of elderly residents (65
years of age or older) has increased, but the share of the total popu-
lation represented by elderly persons has declined as other younger
age groups have increased at a greater rate. Escondido's Housing
Assistance Plan (1988-1991) identified a total 3,308 Lower Income
elderly persons, age 62 and older that could benefit from rental sub-
sidies. This number represents 32 percent of the lower income popu-
lation who "overpay" for housing.
(c) Large Households
Large households are defined generally as those households with
five or more persons. Large households generate a need for units
with more than 3 bedrooms. This housing is more expensive and,
due to the higher expenses associated with larger households, less
affordable for low and moderate income households. The City had
2,451 such households in 1980, or 9.9 percent of the City's
households. Almost half of large households (4 percent) were
renters. Using the 1980 percentage of large households and applying
it to the City's current (1989) households. would result in an estimate
of 3,906 large households.
(d) Single Parent Households
Single individuals with dependent children represent another impor-
tant group with special housing needs. Information concerning
direct income for single-parent households with children is
unavailable.
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'1
!
The housing needs of single parent households have increased in re-
cent years. The single employed parent typically desires minimal
maintenance housing which is near employment, schools, shopping,
day care, and recreational areas. The housing needs of this group
generate special concern because the single parent household tends
to have a lower income and a higher need for social services.
However, the poverty status of female-headed families is ilIusl;1'lltive
of the needs of this special group. Therefore, the proportion of sin-
gle-parent households with children fonns a significant portion of
lower-income households in "need." Although no direct measure-
ment of this need has been provided, the census infonnation provides
an indication of the magnitude of spch needs.
The most significant portion of this group is the female headed
household. The 1980 Census identified 1,592 female headed house-
holds with children accounting for 6.4 percent of the City's house-
holds. Applying this percentage to estimate the City's current num-
ber would result in approximately 2,525 female-headed households.
Further, women tend to earn lower wages, which impacts the need
for affordable housing.
(e) Military
The military population's influence on the demand for housing takes
two fonns; (a) the existing service households trying to find housing;
and (b) the fonner (either retirement or non-retirement separations)
service household trying to find housing. The most recent statistics
from the Navy Housing Referral Office, estimate that county-wide
approximately 40,000 military families are eligible for housing and
only 6,439 government owned family housing units are available.
The major concentrations of military population center around Camp
Pendleton, Miramar Naval Air Station, and other Navy stations in the
Central and South Bay areas of the cities of San Diego, Coronado,
national City, ChuIa Vista, and Imperial Beach. The existing mili-
tary family housing is scattered around the region, but several com-
munities have substantial portions of their housing stock comprised
of military family housing.
(f) Student Housing Need
Student Housing is considered as a factor that affects housing avail-
ability. Although students may produce only an individual tempo-
rary housing need, the impact upon housing demand and post-study
residence is critical in the immediate university areas. San Diego
State University, the largest university in the region, has an enroll-
ment of 35,309 students, but only provides housing for 2,489 stu-
dents on campus. The University of San Diego houses approxi-
mately 2,000 students on campus for a student enrollment of 5,300.
The University of California at> San Diego provides on campus hous-
ing for 4,700 students for a student enrollment of 16,187. Other
smaller universities and junior colleges in the county create similar
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LAND USE
housing problems. However, the location of a new university, San
Marcos State, may have an impact on housing in the future, due to its
location of a few miles west of Escondido.
The same market forces that impact the lower housing population
will influence student housing. The high cost of hosing, condo-
minium conversions,- and student restrictions make it difficult for
students to fmd affordable housing. This influence is extended be-
yond graduation and has a dettimental impact upon the region's
economy. The .recent graduates provide a specialized pool of skilled
labor that is vital to the region; however, the lack of affordable
housing often leads to their departure from the region.
(g) Homeless
The needs of the homeless have received substantial attention in the
past few years. The exact amount of homeless is difficult to estimate
because they are highly mobile, do not have residences, and are often
reluctant to volunteer information. However, based on observations
by local officials and interviews with local service providers, the
City estimates that at least 300 homeless are located in the City and
that the total could be as high as 500. The City's cunent commit-
mentto shelters and transitional housing is adequate to meet the
needs of the homeless. The City has transitional housing at two
leased sites (St. Clare's and Escondido Youth Encounter),
emergency shelters for women and children at four sites (St. Clare's
and Escondido Youth Encounter) and men at one site (operated by
Nonh County Interfaith). In addition, the City is receiving
Emergency Shelter Program Funds to continue these efforts as well
as scheduling additional transitional housing as part of its revised
Housing Element (programs 1.4 and 3.1). This commitment will
continue the City's leadership in San Diego County as a provider of
homeless assistance. The City has also included a program for the
identification of sites for the homeless as part of programs 1.4 and
1.9.
The City of Escondido sponsors/co-sponsors several homeless assis-
tance programs that provide shelter, food, clothing, medical and psy-
chological assistance.
Transitional Housing Operated By:
. North County Housing Foundation (under constnlction)
. St. Clare's Homes, Inc.
. Escondido Youth Encounter (proposed)
Emergency Shelter for Women and Children Operated By:
. Sister Clare's Homes, Inc.
. Escondido Youth Encounter
Emergency Shelter for Single Men
. Rosevale Multi-Service Center (Shelter and nutritional center;
operated by North County Interfaith)
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LAND USE
.........-_..........
Emergency shelters/transitional housing are allowed as a conditionall
use throughout residential zones. Facilities such as these are con-
structed as group quaners and are generally constructed in the urban-
ized area where facilities and services are adequate (see Table 23A).
Existing service agencies indicate that a growing need exists for Iim-
ited-timn shelterfaciIities for individuals and families with no avail-
able shelter due to the following constraints: limited fixed income,
unemployment, recent'eviction, mental problems, family violence or
difficulty adapting to a new culture. The target group of approxi-
mately 5,000, consists of men, women and children of all ages
(Regional Homeless Task Force). Several organizations within the
City and County provide assistance to the homeless on a temporary
or emergency basis.
(h) Farmworkers
The housing needs of the farmworkers are also difficult to quantify.
The 1980 Census provided indirect measurements of the extent of
farmworkers. The undocumented immigrant and migrant worker
form a substantial pan of the farmworker population. . The ability to
gather information about the farmworker is limited because they are
so mobile and reluctant to participate in any survey. . The 1980
Census provided a few indicators of the potential farmworker popu-
lation.
Farmworkers are defined as those households whose wage earners
make their living through seasonal agricultural work and who move
with the seasons to different farming areas or communities.
Pennanent residents who work in agriculture doing similar work, but
who live in Escondido the entire year, are included in the City'ses-
timates of households needing assistance due to affordability. The
1980 census revealed that. approximately 897 individuals were em-
ployed in the agriculture, forestry, fisheries and mining industries.
While these indicators do not directly measure farmworker popula-
tion (nor the housing needs of farmworkers), they do suggest that the'
farmworker has a need for housing. Based on SANDAG calcula-
tions, there were approximately 1,181 agricultural workers in 1988.
In addition to a growth in. flower and foliage production; fruit pro-
duction has experienced a rapid expansion in San Diego County over
the past decade.
Moreover, the work force involved was so largely undocumented
prior to employer sanctions taking effect (December 1, 1988) that ten
year-old census numbers are not reliable indicators to gauge farm-
working housing needs. For example. Dunn and Bradstreet data has
estimated that at least 1,000 agricultural employees are in Encinitas.
(Since the lowest estimate size range was used for this purpose, the
actual number is likely to be significantly higher.) A significant por-
tion of the information and discussion of farmworker needs is based
on comments and data provided by the California Rural Legal
Assistance.
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LAND USE
The City of Escondido recognizes the needs of farmworkers and al-
lows housing to be partially provided through provisions in the zon-
ing ordinance. The City is one of a few which allows, as a permitted
use in agricultural and estate residential zones, living quarters for
persons employed on the premises in conjunction with authorized
agricultural uses.
(4) Households Existing
In 1980, the City had 25,046 households, with a household population
measured at 63,507. By 1989, the number of households grew to 39,459,
an increase of 58 percent. Household population grew to 97,598, repre-
senting an increase of 54 percenL During the same time period, the re-
gion's households and household population increased by 31 percent.
Another region wide trend of the baby boom generation includes the pass-
ing of its prime child-bearing years. Births are anticipated to peak in the
latter part of this decade to the highest level, since the early 1960's.
Table 6
Existing Households
City of Escondido and Region
1980 and 1989
1980
Households
25,046
Escondida as
Percent of
Region
3.7
1989
Households
39,459
Escondida as
Percent of
Region
4.5
Source; 1980 Census DIId JtJ1IUQry 1, 1989 Housing and Population Esrimales
Projected Households
By 1995, Escondido is projected to have 42,265 households and a house-
hold population of 104,112. From 1989 to 1995, this growth represents a
household increase of 7 percent and a household population increase of 7
percent. During the same time period, the region's households is projected
to increase by 9 percent, and household population has been estimated to
grow by 6.3 percenL
(5) Household Size
Like age distribution, household size is an imponant market characteristic.
Housing demand is shaped by the composition of its household sizes. The
small household (1-2 persons per household) traditionally prefers units
with 0-2 bedrooms while family household (3-4 persons per household)
prefer units with 3-4 bedrooms, and large households (5 or more persons
per household) prefer units with 4 or more bedrooms.
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LAND USE
Table 7
Population Characteristics. Household Size
Escondido
1980
/--.......
J
Household Composition
One Person
Two + Persons:
Married Couple
Male, No Wife
Female, No Husband
Non-Family
Mean Household Size: 2.54
Source: 1980 U.s. CellSUS of Populalion and Housing.
Number
6,131
Percent
14,323
671
2,432
1,489
24.5%
57.2%
2.7%
9.7%
5.9%
As the regional and national trends for smaller average household size im-
pact the City, the household size composition will gravitate to the two and
three persons per household group. Due to declining binh rate, the aver-
age number of persons per household is anticipated to continue its decline.
In 1986, the average household size was 2.55 and is estimated to decrease
to 2.4 in 2010.
(6) Age of Population
Age distribution is an imponant market characteristic, because housing
demand within that market is influenced by the housing preferences of
these age groups. Demand for housing that responds to the young adult
population (20-34 year olds) traditionally takes the fonn of aparnnents,
low to moderate cost condominiums, and smaller single-family units; the
35 to 65 year old group generates demand for moderate to high cost
aparnnents and condominiums and larger single-family units; the 65 years
and older age group generates demand for low to moderate cost
aparnnents and condominiums, group quarters, and mobile homes. Many
seniors also live in older larger houses that was the family's home.
/1-96
LAND USE
Table 8
Population Characteristics. Age Distribution
Escondido
1980
Age
3 and 4 years
16 years and over
18 years and over
21 years and over
60 years and over
62 years and over
TOTAL
Median Age
Total Median Age
Male
932
23,347
22,311
20,562
5,482
4,984
30,851
29.1
30.8
Female
872
26,352
25,331
23,472
7,868
7,233
33,504
32.8
Source: 1980 U.s. Census of PopuJalion and Housing.
The City's population is projected to age in accordance with regional and
national trends. Estimates by SANDAG for the age distribution of the
City support those projections: the median age has increased from 30.8
years in 1980 to 33.4 years in 1987; the age group distributions are esti-
mated to have changed for 0-19 year olds from 30 percent of the popula-
tion in 1980 to 29 percent of the population in 1987; for 20-44 year olds
from 36 percent in 1980 to 39 percent in 1987; for 45-74 year olds from 27
percent in 1980 to 26 percent in 1987; and for 75 years and older group
from 7.1 percent in 1980 to 6.6 percent in 1987.
1I-97
LAND USE
Table 9
Age Distribution
. City of Escondido
1980 and 1987
..... ~,...,
i
Age Group
0-4
5-9
10-14
15-19
20-24
25-34
35-44
45-59
60-74
75+
TOTAL
Percent of Population
. 1980
7.6%
6.8%
6.9%
8.0%
10.0%
16.5%
9.9%
13.1%
13.1%
7.1%
100.0%
Percent of Population
1987
7.4%
7.1%
6.9%
7.2%
7.5%
17.9%
13.1%
13.8%
12.4%
6.6%
100.0%
Sowce: ]980 Census Sumnuuy Repon and lire NtJlioMl Decisions Syslem.
(1) Income
Income characteristics of the population are imponant market indicators
because they influence the range of housing prices in the community and
the ability of the population to afford housing. The population of the City
has historically had a median income below the median income of the
county population. In 1980, the City's median household income was 12
percent below the county's.
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LAND USE
Table 10
Population Characteristics - Income Distribution
City of Escondido
1980 and 1988
Household Income
Less than $10,000
$10,000 - $14,999
$15,000 - $24,999
$25,000 - $34,999
$35,000 - $49,999
$50,000+
TOTAL
1980
Number Percent
7,935 31.6%
4,387 17.6%
6,887 27.5%
3,499 14.0%
1,635 6.5%
733 2.9%
25,076 100.0%
1988
Number Percent
4,153 11.0%
3,995 11.0%
8,756 23.0%
7,294 20.0%
6,908 18.0%
6,291 17.0%
37,397 100.0%
Source: 1980 U.s. Ce1lSUS Populalion & Housing (IncofMforyear 1979), and SANDAG-
Estimates of 1988 Household IncofM. -
The distribution by four income groups (very low, low, moderate, and
others) can be analyzed using the following income categories as defined
by the U.S. Housing and Urban Development for San Diego County in
1990. These figures are based on a median family income of $37,900.
. Very low income families are defined as those families whose annual
income equals from 0 to 50 percent of the median income (from $0 to
$18,950 in 1990). (Adjustable for family size)
. Low income families are defined as those whose annual income equals
from 50 to 80 percent of the median income (from $18,950 to $30,320
in 1990). (Adjustable for family size)
. Moderate income families are defined as those families whose annual
income equals from 80 to 120 percent of the median income of (from
$30,320 to $45,480 in 1990). (Adjustable for family size)
. Others are defined as those families whose annual income exceeds 120
percent of the median income of (over $45,481 in 1990).
A recent SANDAG repon identified the number of households (region
wide) that would fall into the four income categories from 1988-91. The
number of households falling into the very low, moderate, and all others
were determined using SANDAG's income forecasting model. This
model was developed by SANDAG for the purpose of providing a method
for projecting the distributions of households by income levels for the re-
gion.
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~-"
",
Table 11 I
,
Number of Households by Income Group
San Diego Region
1988-1991
Very Low Low Moderate Median ' Total
Income Income . Income Others Income Households
1988 $0-$17,249 $17;250- $27,500-
$27,599 $41,399 $41,400+
Number of
Households 178,338 157,818 156,746 353,262 34,500 846,164
1989 $0-$17,160 $17,161- $27,458- $41,187+
$27,457 $41,186
Number of
Households 184,951 160,512 158,949 362,822 34,322 867,234
1990 $0-$17,249 $17,250- $27,600- $41,400+
$27,599 $41,399
Number of
Households 191,533 163,056 161,011 372,185 34,500 887,785
1991 $0-$17,249 $17,250- $27,600- $41,400+
$27,599 $41,399
Number of
Households 198,157 165,536 163,007 381,505 34,500 908,205
Source: SANDAG Report: Evaluation of the Housing Marketfor wry low, lower, 0IId moderate income
households in San Diego CoWlly.
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LAND USE
(8) Employment
Employment characteristics are imponant to housing market analysis
because employment is directly related to income and ability to af-
ford housing. In addition, the relationship between the location of
housing and the location of employment has an impact upon ttans-
ponatiQn systems. Escondido is north of the major employment
centers in San Diego County and to a lesser extent, east of other ar-
eas in northern San Diego County. Thus, substantial commuting oc-
curs between these employment sites and housing areas in the City
as the higher wages attract employees willing to incur the costs of
commuting. However, a need for lower wage labor for the commer-
cial and service centers of the City continue to increase. Thus, local
affordable housing is a necessity.
According to the 1980 Census, the Civilian Labor Force in the City
estimated to be 26,928 persons with an unemployment rate of 7.3
percent. Approximately 17 percent of the City's civilian labor force
worked in the City in 1980.
/1-101
LAND USE.
/"",
}
Table 12
Employment Characteristics
City of Escondido
1988
Percent of
Industry Employment City's Employment
Agriculture, Forestry, 2.5%
Fishing, Mining 1,190
Construction 6,796 14.0%
Non-Durable Manufacturing 1,561 3.2%
Durable Manufacturing 2.686 5.5%
Transportation, Communi-
cation, and Utilities 820 1.7%
Wholesale Trade 1,757 3.6%
. Retail Trade 14,414 29.8%
Finance. Insurance and
Real Estate 2,947 6.1%
Services 12,061 24.9%
Government 4,170 8.6%
TOTAL 48,402 100.0%
SOUTce: SANDAG -1988 Regional Employmen/1nven/ory
Thus, trade (33.4), Services (24.9), and Government (8.6) accounted for
66.9 percent of the total employment of the residents. Since the positions
nonnalIy associated with these categories are relatively lower paying than
positions associated with manufacturing and construction, the relatively
lower income levels of households in Escondido in comparison to the bal-
ance of San Diego County resulted. The low percent of agriculture em-
ployment (2.5 percent in 1988 adds suppon to the discussions of the farm
workers needs (see Special Needs).
More recent information from the California Employment Development
Department estimates that the San Diego County annual average rate of
growth in employment was 4. I percent from 1980 to 1985.
San Diego County employment is estimated to have increased from
840,407 in 1980 to 1.163,156 in 1988 with the largest relative increases
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LAND USE
occuning in finance, insurance, and real estate (71.5 percent), construc-
tion, (68.5 percent), finance services (64.4 percent), and wholesale trade
(61.7 percent). These employment opponunities will continue to generate
a need for housing that responds to households throughout all income
ranges.
b. Supply
(1) Existing Housing
The supply characteristics are the other component of the Housing Market
Analysis. Demand is people oriented; supply is unit oriented. The total
supply of housing for the City was estimated to be 40,817 units in 1989.
The housing is predominantly single family (50.2 percent in 1989) at a de-
creasing rate (55.3 percent in 1980). The figures in Table 13 reveal sev-
eral other significant supply characteristics. The housing stock grew by
50.3 percent, or 5.6 percent per year, (13,664 units) from 1980 to 1989
while the population increased by 54 percent. Of this growth in supply,
5,943 units were single family. Although 8,420 multi-family units were
added to the City's housing from 1980 to 1989, they only rose from 31.2
percent of the housing stock in 1980 to 41.4 percent in 1989.
Table 13
Total Housing
City of Escondido
1980-1989
Single Two to Five or Mobile Total Vacant Total
Year Family Four Units More Units Homes Occupied Units Units
1980 14,537 1,303 7,161 3,264 25,046 2,107 27,153
1981 14,870 2,276 7,353 3,296 25,630 2,165 27,795
1982 15,438 2,316 7,601 3,278 27,150 1,483 28,633
1983 15,776 2,325 7,624 3,224 27,427 1,522 28,949
1984 16,126 2,347 7,733 3,297 28,043 1,460 29,503
1985 16,573 2,421 7,969 3,329 28,723 1,569 30,292
1986 17,193 2,471 9,637 3,379 30,749 1,931 32,680
1987 18,221 2,512 11,996 3,426 33,924 2,231 36,924
1988 19,248 2,547 13,715 3,432 37,403 1,539 38,942
1989 20,480 2,615 14,269 3,453 39,458 1,359 40,817
Source: California Department ofFiNJna. Population Research Unitl98D-1989 Estimates. San Diego
COIUlIy Building Report.
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LAND USE
The housing supply in the City has increased at a faster rate than housing
supply in San Diego County. The City's housing stock comprised 3.6 per-
cent of the County's housing stock in 1980 and 4.4 percent in 1989.
In early 1988, SANDAG was requested to assist the City of Escondido in
the design, conduct and analysis of a mobile home needs survey. The re-
sults of the survey were used in policy formation and resource .allocation
relative to City's mobile home programs. Based on the mobile home sur-
vey, 23.2 perCent of respondent households could possibly qualify for
housing assistance. The California State Department of Finance and
SANDAG have estimated that there were 2,983 occupied mobile homes
(in nonresident owned parks) in the City of Escondido. Applying that 23.2
percent estimate of mobile home households in need of housing assistance
would suggest that roughly 700 mobile home households in Escondido
could require assistance. Of all mobile home households that meet the
criteria established by H.U.D. for households requiring assistance, 14.2
percent of all mobile home households are in the very-low income cate-
gory, while 7.7 percent fall in the low income category.
(2) Projected Housing
By 1995, 'Escondido will have an estimated 42,265 housing units.
Regionwide, growth in multiple family units will average approximately
2.2 percent per year to the year 2000, exceeding the increase of 1.7 percent
per year in single family units. The increase in housing units in cenain ar-
eas will be more pronounced than in other areas within the region. During
the forecast period 1980-2000. the cities of Carlsbad, Escondido,
Oceanside, Poway, San Diego, San Marcos, and Santee will have the
largest percentage increase in housing units.
(3) Housing Costs
Although the term "Housing Needs" includes such components as total
unit number and types, age and condition, vacancy rates and overcrowd-
ing, the most overwhelming problem facing Escondido is the c~st of
housing. Of course. this problem is shared throughout the San Diego
County housing market. The factors contributing to the rapid acceleration
of propeny values and housing costs are numerous and is discussed in
greater detail in the housing constraints section.
The 1989 prices of resale homes in Escondido averaged $71,000 to
$600,000 for a single family home. The Chamber of Commerce has esti-
mated the annual median price of new homes from 1985 to 1989 for San
Diego County: $118,500 in 1985; $123,500 in 1986; $133,300 in 1987;
$152,500 in 1988; and $164,000 in 1989. The California Association of
Realtors Survey in December. 1988 showed the median price of housing
for San Diego County to be $147.788.
The 1980 U.S. Census documented the costs of existing rental housing in
the City of Escondido. Table 14 shows the amount of money paid by rents
in both multi-family and single family units. as reponed in the 1980 U.S.
Census. The median rent paid for all types and sizes of rental housing was
$272 in 1980.
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LAND USE
Rents have escalated since 1980. Although the detailed infonnation con-
tained in the census has not been updated, John Burnham & Company
conducted a study of the Escondido area in 1989. Table 15 reflects the
Rental Rates of various unit types and the relationship between unit age
and rents.
Contract Rent ($)
less than 50
50-99
100-119
120-139
140-149
150-159 .
160-169
170-199
200-249
~0-299
300-399
400-499
500 or more
no cash rent
SOUTC~: 1980 C~nsus
Table 14
Rental Costs
City of EScondido
1980
Households
27
182
134
235
156
190
236
898
1941
3360
2787
713
118
160
Total Households: 11,137
Median Rent: $272
//-105
LAND USE
~1
Table 15
Rental Profile
City of Escondido
1989
Age
0-3 years 4-10 years
Units* Mean Rent
Studios $445 $434
1BRl1BA $554 $517
1BRl1BAIDen 0 $535
2BRl1BA $625 $565
2BRl1.5BA $675 $515
2BRI2BA $661 $616
3BRI2BR $819 $702
Mean Vacancy Rates 4.6% 9.2%
*Project size included all units except senior projects.
SOlU'ce: JOM B~ham & COmp(llly: Escondido ApaT/1Itelll SauJy
11 + years
$389
$481
$531
$543
$606
$598
$680
7.5%
Using the standard that lower income households should spend no more
than 25-30 percent of their income for housing and allowing $75 per
month for gas and electric, the two-bedroom units would be affordable to
households making more than $35,000 per year. Based on the 1989 me-
dian household income of $30,583, two-bedroom units would be unafford-
able to many households. -
(4) Tenure
Of the City's 25,046 occupied housing units in 1980, slightly over half of
the units (54.6 percent) were owner occupied units and condominiums.
Ownership rates are imponant because they are directly related to housing
types and turnover rates. The increasing costs of single family ownership
suggest that the rate of ownership will decrease.
Although Table 16 reveals that more single-family dwellings have been
constructed than other types of housing; multifamily housing projects have
greatly increased due to the increasing costs of single-family ownersl)ip
preventing many renters from purchasing homes. Single-family homes are
more likely to be owner-occupied. however, again, the rapid escalation of
housing costs would suggest that the rate of ownership will decrease.
I1-106
LAND USE
Table 16
Tenure
City of Escondido
Occupied Housing Units
1980
Tenure
Owner
Renter
Total
1980
Number
13,669
11,377
25,046
Percent
54.6
45.4
1988
Number
18,141
20,628
38,769
Percent
46.8
53.2
Source: 1980 U.S. CellSlU Populalion aNI. Housing.
1988 Housing Assistance Plan.
(5) Condition
A number of housing units in Escondido are beginning to show a need for
rehabilitation. The scope of rehabilitation needed ranges from minor to
substantial. Where it is not fmancially feasible to rehabilitate the. units, re-
p1acement housing may be required.
The vast majority of these substandard units are in the urbanized core of
the City. However, other areas of the City include pockets of substandard
and or deterioratillg housing stock. Although some of the units considered
as substandard in 1980 have been relulbilitated, many are in the same, or a
worse condition. The substandards units are broken down in the following
table:
Table 17
Substandard Units
City of Escondido
. 1988
Owner occupied substandard units
Renter occupied substandard units
Total occupied substandards units
Total occupied units: 38,769
Source: 1988-91 Housing Assistance Plan. City of Escondido
472
1,361
1,833
Currently, the City has five areas that have been identified as blighted ar-
eas identified as the:
Central Area-A. This area contains several land locked parcels. Some
parcels are vacant and are situated near railroad tracks, flood control chan-
nel, and Washington Avenue.
//-107
LAND USE
/~"'\.
I
Eastern Area-B. Along the commercial corridor, parcels are
constrained by access, visibility or locational value for potential activities
allowed under local zoning and land use laws. Several moderately sized
vacant parcels located nonh of Valley Parkway and east of Hickory Street,
exist with limited alley access and no street visibility. Between the
various cul-de-sacs b~ginning at Fig Street and extending over to Ash
Street, a number of moderately sized and vacant landlocked areas exist.
Residential parcels found at the eastern end of Pennsylvania Avenue are
constrained by graded embankments and steep slopes. In addition, one-
half acre landlocked multifamily residential parcels located along Midway
Drive remain vacant.
Northern Area-C. A number of vacant parcels to the west of Centre
City Parkway are constrained by sloping topographic conditions, access
requirements or horizontal controls to allow location of utilities, or street
improvements. Several lots along Lincoln Avenue and west of Centre
City Parkway exist below street grade and without vertical controls allow-
ing proper drainage of such sites.
Western Area-D. Parcels existing south of 9th Avenue have been laid
out below street grade with very little vertical control to enable proper
drainage of sites. In addition, several parcels legally exist in this location
which do not have access from a public street.
Southern Area-E. Within this area, along Cranston Drive, all
subdivided parcels exist without proper vertical controls to prevent surface
drainage and potential inundation problems from impacting adjoining
properties before reaching public roadways with stonn drain facilities. In
addition, landlocked residential parcels exist adjacent to medium density
developments and remain vacant or underutilized with agriculture and
livestock activities.
In summary, these identified areas contain parcels constrai,ned by topogra-
phy, contours, or surrounding physical factors that create a blight on sur-
rounding p':<!perties and diminish the development potential.
Parcels adjacent to the.Escondido Creek channel may be subject to pond-
ing or flooding. Throughout other portions of the Planning Area where
existing stonn di'ainimprovements are limited to open ditches, natural
watercourses, and sheet flow of surface water, a potential exists for
isolated cases of ponding or flooding. Blight created by lots subject to
flooding is limited to isolated parcels in areas with unimproved stann
drain improvements and subgrade sites within the service area of the
existing fully improved stonn drain system.
(6) Age of Housing Stock
Although the 1980 Census did not include statistics on housing condition
based upon observations, it did include statistics that correlate very closely
with substandard housing. The three factors most commonly used to de-
tennine housing conditions are age of housing, overcrowding, and lack of
plumbing facilities. Like most cities in Southern California, the majority
II-lOB
LAND USE
of housing stock in Escondido has been recently constructed. Table 18
shows that approximately 34 percent of the housing stock is more than
twenty years old. This would indicate a growing need for housing reha-
bilitationat varying levels in order to maintain the existing housing stock.
Table 18
Year Housing Built
City of Escondido
1940 and 1989
Year Built
Number
Percent
Average
Before 1940 1,015 2.6
1940-1949 971 2.5 108
1950-1959 3,710 9.4 412
1960-1969 7,671 19.4 852
1970-1979 13,315 33.7 1,479
1980-1989 12,772 32.4 1,419
Total Housing Stock: 1980-1989: 39,454
SOII1'ce: 1980 U.S. CellSlU Population & Housing
1989 CaI. Dept. of Filumce Esdmtues
1980. 1988. 1989 San Diego A1uIuDl Building Repon
The age of housing in the City is an imponant characteristic of supply be-
cause it is an indicator of the condition of the City's housing. Many fed-
eral and state programs use age of housing among others to determine
housing needs and the availability of funds for housing and/or community
development. For those purposes, the most significant measure of the age
of housing is the number of units built before 1940. Regionwide, 7.0 per-
cent of the total housing stock was constructed prior to 1940. In
Escondido, less than 3 percent of the housing stock was built before 1940.
Table 18 also shows that more than half of the units have been built since
1970.
c. Supply/Demand Indicators
(1) Overcrowding
Overcrowding is a measurement of the number of people in a house. It
can serve as a waming sign that a community does not have an adequate
supply of affordable housing and/or housing units for large families. The
combination of low wages and high housing costs have forced many low
income households to live in an extended family environment or double
up.
/1-109
LAND USE
/"
The term "overcrowded" is applied to units with more than 1.01 persons
per room per unit. According to 1980 Census data, Escondido had 1,174
"overcrowded units" (owners 348, renters 826) accounting for 4.7 percent
of the City's total occupied housing units. Applying this percentage to the
City's current number of occupied housing units, it can be estimated that
the City has approximately 1,855 overcrowded units (owners 557, renters
1,298).
Table 19
Persons Per Occupied Housing Unit
City of Escondido
1980
P ercelll Percent
of City's of
Occupied Occupied
Total Housing Total Housing
Housing Units Units Units Units Units
Occupied Housing Units 25,046 670,094
1 Person per Unit 6,131 24.5 159,080 23.7
2 Persons per Unit 9;1.79 37.0 231,213 34.5
3 Persons per Unit 3,979' 15.9 112,288. 16.8
4 Persons. per Unit 3;1.06 .12.8 92;374 13.8
5 Persons per Unit 1,438 5.7 43,323 6.5
6 Persons or
More per Unit 1,013 4.0 31,798 4.7
Overcrowded Housing Units
(1.01 + Persons Per Unit) 1,174 4.7 37,054 5.5
Source: 1980 Census Summary Report
Escondida
as Percent
of Region
3.7
0.9
1.2
0.6
0.5
0.2
0.2
0.2
The nonnal definition of overcrowded is applied to units with more than
1.01 persons per room per unit. For the City, 1,174 units were
"overcrowded," only 4.7 percent of all occupied housing units. Thus,
overcrowding was not at a significant level in the City in 1980. However,
since 1980 a significant influx of people to this area may have contributed
to an increase in overcrowding condition. This was evidenced recently by
code enforcement inspections perfonned by the City's Building
Department. In one instance, sixty-seven individuals, comprising ten
households, were residing in units designed to house thirty-eight individ-
uals (six households). These units were in such unsanitary condition that
they were immediately condemned. The City's Building Department offi-
cials repon that cases such as these are not isolated incidents. These living
conditions clearly suggest that a need for additional affordable housing
and rehabilitation of the existing housing stock exists.
/1-110
LAND USE
(2) Affordability
The dynamics of demand and supply can be indicated by measuring the
portion of a household's income that is spent for housing. This measure-
ment is often expressed in terms of overpayers, households paying an ex-
cessive amount of income for housing. This indicator is an imponant
measurement of local housing market conditions because it not only re-
flects the affordability of housing in the community but it is also a stan-
dard that federal and state agencies use to determine the extent and level of
housing and community development assistance that should be allocated
to the household and the community.
The standard measurement of housing affordabilityused by many agencies
is that very low income households should $pend no more than 25 percent
of their income for housing (with a low income, no more than 30 percent).
Of the City's total households in 1980,7;800 (38 percent) paid more than
30 percent of their income for housing costs. All of these households had
incomes less than 80 percent of the median income for San Diego COunty.
Table$ 20 and 21 illustrate a breakdown of lower income households (very
low and low) in Escondido paying over 25 percent to 30 percent or more
of their income for housing.
Table 20 illustrates the number of households who are owners or renters
and who have househpld incomes of less than 80 pen:entof the median in-
come. The numbers in Table 20 were obtained from the 1980 census ac-
cording to the number of hou$eholds that fell into the four income cate-
gorle$. Table 21 reflects the number of lower income households by
household type (elderly, small family, and large family) requiring rental
subsidies. The estimated figures in Table 21 were contained in
Escondido's 1988 Housing Assistance Plan.
II-lll
LAND USE
(1
Table 20
Very Low and Low Income Overpayers
City of Escondido
1980
Total
Very Low Low
5,137 3,729
Owners
Very Low Low
1,178 1,085
Renters
Very Low Low
3,959 2,644
SOlD'ce: 1980 Cenms
Table 21
Lower Income Households
Requiring Rental Subsidies
City of Escondido
1988
Elderly
Small Family
Large Family
Total
Very Low Income
2,176
3,742
446
6,364
Other Low Income
944
2,003
188
3,135
Total
3,120
5,745
634
9,499
SOlD'ce:
1988-91 Housing Assistance Plan. City of Escondido
Although the most thorough base for affordability data is the 1980 Census,
more recent information has been compiled by the California Association
of Realtors that provides another indicator of affordability. Their survey
in fall of 1988 indicated that 26 percent of qualified households in the San
Diego area could afford to purchase the median priced single family home.
(3) Vacancy
The condition of the housing stock in the City is a result of a composite of
the factors discussed in the previous pages: recent construction, little
overcrowding, adequate facilities and high owner ratios. The balance be-
tween supply and demand in the City's housing market is another indicator
of the market dynamics. One of the characteristics that is most often used
to measure this balance is vacancy rates. High vacancy rates usually indi-
cate low demand and/or high supply conditions in the housing market.
Conversely, low vacancy rates usually indicate high demand and/or low
supply conditions in the housing market. However, vacancy rates are not
the sole indicator of market conditions. They must be viewed in the con-
text of all the characteristics of the local and regional market. Several
sources exist that monitor vacancy rates; California Depanmem of
Finance, Census Bureau, Park Weaver Realty, and the Federal Home Loan
Bank (FHLB) of San Francisco. The vacancy rates determined by the U.S.
Census Bureau, and the California Department of Finance are census
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LAND USE
driven and, therefore, generally report higher vacancy rates. The Federal
Home Loan Bank (FHLB) of San Francisco conducts annual vacancy sur-
veys of the cities in the region. This information is gathered by zip code.
According to FHLB, the City's overall vacancy rate was 3.7 percent; for
single family, this rate was 2.0 percent and 6.4 percent for multiple family
units in the City in 1988. The California Department of Finance estimated
Escondido's .1988 vacancy to be 4.0 percent, registering slightly higher
than FHLB.
Vacancy rates which indicated "market balance" (a condition where rates
indicate an acceptable level of vacancy: remodeling, seasonal variations
and turnovers) are generally accepted to be from 3.0 percent for single
family and 5.0 percent for multifamily. The vacancy rates in the City do
have housing market implications:
(a) The value and rent of all housing may increase during the time of the
Housing Element in response to the market conditions.
(b) The supply of affordable units is scarce. The multifamily housing
may decrease during the time of Housing Element in response to
accelerating costs of housing. However, implementation programs
in this element: the Centre City Residential Area Plan, the
significant supply of existing multi-family and mobile home units,
the substantial amount of multi-family land use designations, and the
continued development capability in the Tier I area will enhance the
supply of affordable units through implementation of the General
Plan.
(4) Constraints
This section of the Housing Element includes a discussion of the con-
straints upon the maintenance, improvement or development of housing
for all income levels. The constraints are discussed in two contexts:
(a) Governmental: Including land use controls, building codes and their
enforcement, site improvements, fees and other exactions required of
developers and local processing and permit procedures.
(b) Nongovernmental: Including the availability of financing, price of
land, and the cost of construction.
1) Governmental Constraints
a) Land Use Controls
The land use policies of the City have a direct impact upon
the provision of affordable housing. This General Plan des-
ignates substantial areas of land for residential development.
The Zoning Ordinance permits a wide variety of residential
uses, including mobile homes, and encourages senior and af-
fordable housing. The City complies with all state and fed-
eral requirements for environmental review, which is pan of
development costs mandated by law.
/l-1l3
LAND USE
/.....'"
,
I
b) Building Code
The City adopted and enforces the Uniform Building Code
which ensures that all housing units are built to specified
standards. The code is substantially determined by the.
International Conference of Building Officials and the State
of California. The City adopted the code with few adminis-
trative amendments. The City does set standards more de-
manding than the code in some cases. These standards do not
significantly increase construction costs.
c) Processing, Development Fees, and Site Improvements
Escondido has been a rapidly developing community. In the
past, some projects have been constructed before adequate
public services were available, and which are not compatible
with the City's increased standards. The City has developed
review processes which evaluate projects for their impacts on
public services as well as design quality. This process tends
tointema1ize real site improvement costs of development.
Planning processing costs have been covered in pan by appli-
cant fees. For the past several years, less than a third of ac-
tual costs have been recovered in processing fees. The City
is reviewing these costs to align the fees as allowed by state
law.
ImpaCt fees for Escondido are higher than other San Diego
County cities in some areas and will continue to increase
once facilities standards are adopted with the General Plan
and with Subarea Facilities Plans for some Escondido neigh-
borhoods. Howevc;r, many other jurisdictions in the County
will experience greater impact fee increases in the near fu-
ture. Escondido has made significant expansion to sewer,
water and traffic systems in recent years requiring larger im-
pact fees. Many other jurisdictions are facing thresholds
which will result in similar expansion of facilities and in-
creased fees.
For example, Escondido's secondary treatment of sewage ef-
fluent meets state and federal standards. The City of San
Diego Clean Water project will affect systems serving several
county jurisdictions resulting in large fee increases to comply
with standards which Escondido now meets.
In any event, impact fees will not exceed the actual impact of
development as required by state law in the absence of ap-
proved development agreements.
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LAND USE
The City has imposed an Interim Development Ordinance
which prohibits the acceptance of new applications, however,
it is expected that the moratorium will be lifted after the
adoption of the General Plan (after March 1990). The pr0-
cessing periods for development projects may vary, although
nonnaIly an apartment development (plot plan) would require
,approximately 24 weeks.
Apartment Development (plot plan) Permit Procedures
1. Environmental Review
2. Plot Plan - Staff Review
3. Design and Review Committee
4. Resubmit for Final Check
5. Permit Issued
2) Nongovernmental Constraints
Nongovernmental constraints to affordable housing consist of
three major factors: land costs, construction costs, and financing.
The City has a limited ability to influence these factors. Land
costs are impacted by the number of adequate sites that are made
,available. The City has designated large amounts of land for
residential uses. Regional demand and costs have a greater im-
pact on land costs. Construction and financing costs are also de-
termined at the regional, state, and national levels by a variety of
private and public actions. which are not controlled by the City.
a) Land Costs
Residential land prices contribute significantly to the cost of
new housing. Raw land and improvements costs comprise
approximately 24 percent of the total development costs of a
residential dwelling. Land prices in Escondido have risen
significantly in recent years. In South Escondido, an im-
proved 1 1/2 acre residential lot sold for $175,000 in 1989.
However, it should be noted that land costs in Escondido are
generally less when compared to land costs in many other ar-
eas of San Diego County. Funhennore, raw land values must
be considered in relation to costs rising from the provision of
adequate facilities and services.
1I-1l5
LAND USE
b) Construction Costs
Basic construction costs for residential developments have
.increased rapidly. Construction costs together with land
prices have pushed up the cost of housing greatly, milking
. home ownership imattainable for many households. A
suryey by the San Diego Construction Industry Federation
found that for a typical three-bedroom, two-bath, 1,715-
square-foot single-family home with a 400-square-foot
garage and a 240-square-foot patio priced at $179,500,
development fees in San Diego County ranged from $3,000 -
$24,000.
,.....-.....,
!I
c) Financing Costs
The cost of borrowing money for the planning and construc-
tion of a development is a major component of the selling
price of a home. In fact, financing is the largest component
of housing costs when both construction and long-term fi-
nancing are considered. Many buyers and renters are not
fully aware of financing costs as a component of housing
costs. More familiar to potential buyers are the financing
costs associated with a home mortgage. In an analysis of sur-
rounding areas, it"was found that there was some similarity in .
financing rates, as well as the availability of financing to un-
derserved income groups; The City as also included pro-
grams for flfSt time home buyers and a loan program for re-
habilitation. In addition,the City is also co-sponsoring a
"fair" for first time homebuyers in cooperation with local
lenders and the Board of Realtors.
During the past, home mongage financing had received a
considerable amount of attention due to the dramatic rise in
interest rates. In 1978, residential mongages were readily
available at rates below 10 percent. By 1981, interest rates
sky rocketed to 17 percent. By 1982, interest rates declined
. to 14 percent. In 1988 they were below 12 percent. Most
housing analysts expect home mongages to remain in the 10
to 15 percent range during the next several years.
Interest rates, as well as the types of loans, become an impor-
tant ingredient in determining the affordability of for sale
housing. As interest rates rise. significant ponions of house-
holds no longer qualify for housing.
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L
LAND USE
According to lending expens at the California Association of
Realtors, a buyer making a 10 percent down payment of
$15,000 on a $150,000 home with a fixed-rate loan at the
current rate of 10 percent would have to earn about $56,296
annually. Monthly payments including principal, interest,
taxes and insurance would total about $1,407. However, if a
buyer. wanted an adjustable-rate loan with an introductory
rate of 8.3 percent, they would have to em:n about $47,658
annually to qualify for the loan. Initial monthly payments
would be $1,191 and would rise as soon as the loan rate
adjusts upward in six or twelve months.
A buyer making a 20 percent down payment of $30,000 on a
$150,000 home, with a fixed-rate loan at the current rate of
10 percent would have to earn abOut $50,897. Monthly pay-
ments would be $1,270. If a buyer wanted an adjustable-rate
loan with an introductory rate of 8.3 percent, an income of
$43,130 would be required and the initial monthly payment
would be $1,078.
The federal government has recently introduced the final ver-
sion of its insured reverse-mortgage program for cash-short
senior homeowners. The reverse-mortgage program will be
administered by the Federal Housing Administration. Private
and public lenders making reverse mortgages to senior bor-
rowers will be provided with government-backed insurance.
The program is tailored to meet the needs of senior home-
owners who usually own their home debt-free, but find that
their cash resources have nearly been depleted. Reverse
mortgages require the lender to send money to the borrower,
which can serve as regular income supplements or as a line-
of-credit. Reverse mortgage borrowing is secured by home
real estate, an" as periodic payments from lender to borrower
continues, it creates a debt of principal and interest that
eventually must be repaid.
/1-117
LAND USE
/""t
,
Table 22
Development Fee Survey
Regional Housing Need Statement
Nonh County Area
1988
PLANNING FEES Carlsbad Escondida Oceanside- San Marcos Vista
General Plan $765 $600 $4,700 $500-1,000 $1,310
Amendment
Tentative Parcel $400 $420 $100+ $300 $536
Map 10/lot
Final Parcel Map $400 $300/Sheet $400+ $100 N/A
+$20/lot $35/1ot
Planned Development $255 $600 N/A $200 $140
Rezone $655 $600 $1,100- $500-1,000 $700
$2,200
Site Plan Review N/A $175 N/A $20 $572
Design Review N/A $420 N/A $200 N/A
(permit Stage)
Conditional Use $402 N/A $600 $350 $700
Permit
ENVIRONMENTAL
Initial Study $175 $230 $500 $500 $185
FUll EIR $700 105% of $3,400 115% of 110% of
bid +$910 bid +$100 bid +$915
SUBDMSION Applicalionfee/depositfor a 10 acre project
(50 parcels/units - $750,000 total improvement value -
200,000 cubic yards grading)
Tentative Map $765 $845 $2,500 $2,100 $780
Final Map $325 $300/ $2,150 $650 $392
sheet
+$1,000
(continued onfollowing page)
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LAND USE
Table 22
(Continued)
IMPACT FEES Carlsbad Escondido Oceanside San Marcos Vista
Public Facilities 3.5% of $1,136 P/du $503 P/du 2% of building $142 P/unit;
building $.59 P/sq. pennit valua- $938 acre -
pennit ft. non- tion, housing, commercial
valuation residential non-residen- $502 acre -
tial industrial
TRAFFIC MITIGATION
Listed as total fee
per SFD-divide
by 10 to get per ADT.
$600-Area 1 $1,930 $1,570 N/A $1,200
670-Area 2
530-B&T
Area
SEWER & WATER
Sewer $1,250-2,400 $3,960 $1,565 $2,400 $1,700
Water $1,590-2,961 $2,228 $1,095 $225
PARKLANDS $786-Areas $1,731 $956 N/A $1,230
1-3
983-Area 4
$.40/sq. ft.
industrial
DRAINAGE
Fee levels range widely
because drainage facility
needs vary by location.
Average Fees up to Average $46,000 P/acre Nine drainage
fee $2,363 $8,636 P/ fee $4,190 lOO-year flood basins with
Gross Acre, plain only fees ranging
depending from $1,511
on location to $3,725
P/acre
Key: f: Fee
d: Deposit
nla: Not Applicable
.Pbd: Provided By District
ADT: Average Daily Trip
EDU: Equivalent Dwelling Unit
MFD: Multiple-Family Dwelling
SFD: Single-Family Dwelling
Source: Construction Industry Federation -1988 Regional Development Fee Survey.
//-119
LAND USE
(5) Site Inventory
Introduction
/--",
)
The City has conducted an inventory of sites (Table 23A) available for
residential development and that inventory indicates that the City can
acconunodate its new construction need for all income levels.
Vacant land for new housing is expected to be available throughout the
City. While much of this land is expected to be available in the rural,
undeveloped, sizeable tracts ofIand are still available throughout the City.
Sites with a full range of zoning densities are available. A significant
number of large parcels are substantially underutilized. Table 23
summarizes vacant and developable land.
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LAND USE
Table 23A
Land Use Inventory
City of Escondido
1989
Zoning! Availability of Dwelling
Permitted Number of Density Range Services & Facilities Unit
Housing Type Acres (Units/Acre) (e.g ..1 nfrastructure) Capacity
Single family 8,()()():t acre . 1 du/20 acres up . Infill areas have 2,500 to
develoPll-ble to 5.5 du/acre adequate services and 4,000 du's
facilities available.
Outlying areas would
require extensions to
serve new developments.
Multiple 234:t acres 12 du/acre All services and facil- 2,800 to
family and developable 24 du/acre ities are adequate and 5,616 du's
rental available since multi-
family zoning is within
urbanized core.
Mobilehomes, Allowed as a The zoning code Infill areas have ade- Varies
mfd. housing, conditional allows mobile- quate service and
mobilehome use through- homes and manu- facilities available.
parks out residen- factured housing Outlying areas would
tial zones to occur on require extensions to
parcels alone serve new developments.
throughout the
single-family
zone.
Emergency Allowed as a Such facilities Such facilities are Varies
shelter or conditional are constructed typically constructed
transitional use through- as group quarters. in the urbanized area
housing out the resi- where facilities and
dential zones services are adequate.
(continued on following page)
JI-121
LAND USE
Table 23A
(Continued)
Zoning/ Availability of Dwelling
Permitted Number of Density Range Services & Facilities Unit
Housing Type Acres . (Units/Acre) (e.g.,lnfrastrw:mre) Capacity
Sites with 35:1: acres 10 du/acre up Adequate services and 350 to
residential to 30 du/acre if facilities are available 1,000 du's
redevelopment parcels are con- within the redevelopment
potential solidated area.
Currently Commercial! --------..- Adequate service and ------
nonresiden- industrial facilities generally
tial 515:1: acres exist and are available.
developable
(page 47)
Other --..---- --------..- --------------------- ------
Total 8,784:1: acres Varies Infill areas have 5,650 to
adequate service and 10,616 du's
facilities available.
Outlying areas would
require extension to
serve new developments.
11-122
LAND USE
Table 238
Vacant, Developed and Developable Land
City of Escondido
1989
Acres
1986 1995
Total Developed Acreage 8,396 11,536
Residential 5,759 8,664
Nonresidential 2,328 2,563
Vacant Acreage 12,991 9,851
Developable Acreage 9,280 6,150
Low density single family 3,813 3,163
.
Single family 4,718 2,615
Multiple family 234 90
Mixed use 13 1
Commercial 145 5
Industrial 357 276
Source: SANDAG Series-7 RegioNJI Growth ForecQStI986-2010.
11-123
LAND USE
(6) Energy Conservation
Title 24, Building Energy Standards for Residential Development,
establishes energy budgets or maximum energy use levels. The maximum
energy use levels are established for three types of residential buildings
and sixteen climate zones. The City of Escondido is in the Inland Valley
Climatic Zone. The standards of Title 24 supersede local regulations.
State requirements mandate Title 24 requirements through implementation
by local jurisdictions. Builders have the option of meeting the Title 24
requirements through two different approaches, the perfonnance and the
prescriptive approaches.
Performance Approach: The performance approach provides the builder
with the greatest flexibility in that the builder determines which mix of
design and equipment technologies will be used in meeting the specified
energy budget. The builder, however, must be able to demonstrate,
through the application of State approved calculation methods. that the
proposed building will consume no more energy than the energy budget
allows.
/J
Prescriptive Approach: The prescriptive approach will probably be the
most common, because it does not require computerized calculations. The
prescriptive approach involves the use of one of five packages of energy-
efficient measures that meet the energy budget. .
(7) Sites for Homeless Facilities
The most recent legislation goveming Housing Element law mandates
municipalities to address the special housing needs of the homeless within
the boundaries of their jurisdiction. The homeless are defined as
individuals that lack a fixed and adequate nighttime residence. The
primary residences of the homeless are:
(a) Publicly or privately operated emergency shelter.
(b) In the street, park, abandoned building, automobile, or in any other
public or private place not intended to be used as regular sleeping
accommodations for humans.
(c) In temporary makeshift arrangements in the accommodations of
others.
The City of Escondido sponsors/cosponsors several homeless assistance
programs that provide shelter, food, clothing, medical and psychological
assistance.
/1-124
LAND USE
Transitional Housing Operated By:
. North County Housing Foundation (under construction)
. St. Clare's Homes, Inc.
· Escondido Youth Encounter
Emergency Shelter for Women and Children Operated By:
. Sister Clare's Homes, Inc.
. Escondido Youth Encounter
Emergency Shelter for Single Men (Operated by North County Interfaith)
. Rosevale Multi-Service Center
(Shelter and nutritional center)
11. Regional Share
According to the state law, local governments' housing needs assessments must
include their share of the projected needs for housing in the region. The San Diego
Association of Governments (SANDAG) has identified Escondido's share of
regional housing needs. The figures are contained in Regional Housing Needs
Statement which were adopted in 1990. The total units needed are 10,058 from
January 1, 1989 to July 1, 1996, of which 6,705 units would be needed for the five
year period of the element
1189 7191
to 7196 to 7196
Very Low Income Households (23.0%) 2,313 1,542
Low Income Households (17.0%) 1,710 1,140
Moderate Income Households (21.0%) 2,112 1,408
Other Income Households (39.0%) 3,923 2,615
Total 10,058 6,705
/1-125
LAND USE
/' ~""
'\
~
Table 24
Regional Share by Jurisdiction
San Diego Region
1991-1995
Regional Share 5-Year
Regional
Very Low Low Moderate All Other Share
Carlsbad 472 707 654 1,311 3,144
Chula Vista 268 403 372 746 1,789
Coronado 49 73 68 135 325
Del Mar 24 37 34 68 163
El Cajon 155 232 214 429 1,030
Encinitas 106 159 147 293 705
Escondido 1542 1140 1408 2,615 6,705
Imperial Beach 16 25 23 45 109
La Mesa 106 159 147 293 705
Lemon Grove 57 85 79 158 379
National City 81 122 113 226 542
Oceanside 561 841 778 1,560 3,740
Poway 187 281 259 520 1,247
San Diego 3,293 4,939 4,566 9,154 21,953
San Marcos 276 415 383 768 1,843
Santee 146 220 203 407 976
Solana Beach 33 49 45 90 217
Vista 293 439 406 813 1,951
Unincorporated 1,553 2,329 2,153 4,317 10,353
Source: SANDAG's 1989 Regional Housing Needs SIDlemenl
12. Special Conversion
The City has initiated a program to prepare for potential conversion of low income
rental units. Program 3.6 identifies a schedule that calls for an evaluation of
funding strategies and adoption of a program by the Spring of 1991. Projects that
have potential for conversion are identified below:
Name of Project
Escondido Apt.
Escondido Park Apt.
Mission Terrace
Number of Units
92
164
122
Type
All family
All family
All family
/1-126
LAND USE
13. Goals and Evaluation Summary
This chapter consists of two sections: (1) an evaluation of the progress and effec-
tiveness of the previous Housing Element, and (2) an identification of the goals,
objectives, policies, and the revised Housing Element. The evaluation is based on
three criteria in the State requirements and as defined by the State Department of
Housing and Community Development (HCD). The State uses these criteria and
definitions as the basis for assessing compliance with State Law.
. Effectiveness: A comparison of the actual results of the previous Housing
Element with respect to its goals, policies, and programs is conducted.
. Progress: An analysis of the significant differences between the projected activ-
ities of the previous element and the accomplishments to date is provided.
. Appropriateness: A description of how the goals, policies, and programs of the
revised element incorporate the results of this evaluation is also presented (from
State HCD: "Local Evaluations of Housing Element Upon Update" 12-6-85).
This section also identifies the maximum number of units that can feasibly be con-
structed. conserved, and rehabiliwed. These figures are presented in the context of
the local needs assessment, the regional needs statement, and the goals and pro-
grams of this element.
The second section of this chapter presents the goals and policies for the revised
Housing Element. Thus, the City's Housing Element moves from an identification
of the needs and condition of housing to general statements of purpose (goals) to
more specific identification of the direction and emphasis of the Housing Element
(policies) to actual means by which these goals and policies can be implemented
(Chapter 4--Programs).
The strategy concept identifies the goals and policies that will guide the commu-
nity's housing programs and activities. This section sets direction and translates
needs and constraints into specific actions for four program subsets: construction,
rehabilitation, conservation, and administration.
a. Evaluation
An impottant component of this revised Housing Element is the evaluation of
the previous Housing Element. It is important to detennine if the needs have
changed, if the goals and policies are still important, and if the programs have
been effective. These questions were systematically considered as part of the
revisions to the previous Housing Element. This analysis is summarized in the
following paragraphs but, more important, is reflected throughout the revised
Housing Element.
(1) Effectiveness
The goals and objectives in the 1985 Housing Element were appropriate to
a community such as Escondido, which had a growing housing stock in
relatively good condition and a base of affordable housing. The goals fo-
1/-127
LAND USE
\
cused on maintaining the positive housing opponunities. The City rec- J
ommended an active and diverse housing program in the 1985 Element.
The community still has a ,good range of housing opponunities.
Escondido is fonunate to have maintained a large portion of its affordable
stock. . Private groups are serving the special needs of seniors and home-
less people. This assessment found the 1985 goals and policies to be sub-
stantially effective,andthe:y form the basis for therevised Housing
Element.
(2) Progress
Introduction
This section of the Housing Element describes the City's progress in
meeting the goals and policies of the 1985 to 1990 Housing Element. The
results of this analysis are imponant to this element because they were
used to revise and update proposed programs for 1991 to 1996.
The analysis of progress fOCuses upon two components: progress during
the past five years of all programs and progress during the past five years
of programs for lower-income households that need assistance ("Fair
Share"). '
Overall Progress
The following material summarizes the progress made by the City in
meeting the goals and objectives of the 1985 to 1990 Housing Element
and in the performance of various programs.
Program 1: Homeless Assistance
Action:
. St. Clare's Homes, Inc.
. Escondido Youth Encounter
. Nonh County Interfaith
The City provided a number of programs for the homeless.
These actions included transitional housing, emergency
shelters, and .suppon services. The following table de-
scribes the range of activities.
//-128
LAND USE
Table 2S
HomeltSS Assistance Programs
City of Escondido
1989
Programs
Funding Level
$200,000 (Set-aside Funds)
(15 beds)
$130,000 (83/84 CDBG)
Plus Private Sources
(45 beds)
$190,000 (83/84 CDBG)
$43,000 (86/87 CDBG)
Fund plus other funds
matched by the State.
(30 beds)
$700,000 (CDBG)
$35,000 (McKinney)
(10 beds)
$6,000 (88/89 CDBG)
(Matched by CarIsbad
and Oceanside)
1. Transitionalllousing
St Clare's Homes, Inc.
2. Emergency Shelter for Women and Children
Sister Clare's Homes, Inc.
Escondido Youth Encounter
(Hidden Valley House)
3. Emergency Shelter for Single Men
North COunty Interfaith Council, Inc.
4. Support Services for Homeless
Source: Escondido Homeless Report
Impact: ($1,304,000 and 100 beds)
For homeless and continuing support for emergency shel-
ters and support services.
Program 2: Housing Rehabilitation
Action: Housing Rehabilitation. From 1980 to June 1989, the City
of Escondido contracted with the San Diego County
Housing Authority for conducting a residential rehabilita-
tion program. This program included rehabilitation funds
for single-family homes and mobile homes. In addition,
through an agreement with County Housing Authority, the
City participates in the Rental Rehabilitation program.
Community Development Block Grant funds were used
over the years for the residential rehabilitation program.
Since June 1989, Escondido has administered the rehabili-
tation programs. The owner-occupied programs use tax in-
crement set-asides instead of Community Development
Block Grant funds. The City operates two rental rehabili-
1/-129
LAND USE
~
tation programs: one funded by HUD and the other with I
set-asides.
Impact:
Priority is given to repairs of health and safety standards
(electrical, wiring, plumbing, foundation work, etc.) and
then maintenance: Roofing, exterior paint, and lastly to
general propeny improvements.
The following loans and grants were available in
Escondido:
a. ElderlylHandicapped Grant. The homeowner must
be either age 62 or older or handicapped. Up to $3,500
can be given with no payback requirement for those
who meet the above criteria and the income limits for
their family size. This program was completed in June
1989. (55 units including mobile homes and single-
family homes)
b. Mobilehome Deferred Loan. $3,500 ($4,500 starting
June 1989) for the repair of mobile homes whose own-
ers earn 50 percent or less than the median income fig-
ures for the County of San Diego. There is no interest
. on this loan. The total amount borrowed must be repaid
when the propeny changes hands: (10 units)
c. Single-Family Deferred Loan. There is no interest on
this loan. The total amount borrowed must be repaid
when the propeny changes hands. Homeowners resid-
ing in all areas may borrow up to $15,000 ($20,000
starting June 1989). (37 units)
Program 3: Mobile Home Outreach Program
Action: In the fall of 1987, the Housing Division began operating a
mobile home outreach program for residents and/or owners.
The program acts as a central clearinghouse for residents
and owners. The staff directs complaints and/or inquiries
to the proper depanment or agency to handle the issue.
These referrals include public, private, and nonprofit agen-
cies.
A citizen's initiative instituting rent control in mobile home
parks was approved by the voters in June 1988. Rents were
rolled back to 1986 levels, and any increases must first be
approved by the City Council sitting as the Rent Review
Board. The Community Services Division staffs both the
Mobile Home Outreach program and the Mobile Home
Rent Review process.
The Housing and Human Services Division recently con-
tracted with SANDAG to conduct a mobile home needs
survey. The results assisted the City in reviewing mobile
11-130
LAND USE
home low-income resident needs. In 1989 the information
and referral information available in the Department will be
increased and be placed on the compliter terminal system.
Impact: Staff suppon and information for more effective support of
mobile home needs (very low and low).
Program 4: Affirmative Housing
Section 104(b)(2), of the Housing and Community
Development Act of 1974, as amended, requires that recipi-
ents of CDBG grants administer such grants in conformity
with the Federal Fair Housing law and that they affuma-
tively further fair housing. The CDBG grantee must
demonstrate substantive and affirmative (pro-active) activi-
ties which the grantee supports financially, either by direct
or indirect costs. The supported activities have to be seri-
ous efforts at preventing, reducing, or eliminating the
denial of housing to families and individuals simply
because of their race, color, or other unlawful criteria.
The City of Escondido's Affmnative Fair Housing Program
goal is to affirmatively further fair housing through specific
educational, outreach, and monitoring activities. The spe-
cific objectives of the plan are as follows:
. To focus the public's attention on the issue of fair
housing and the individual's rights under the law.
. To assist in the implementation and monitoring of the
HUDIBIA Marketing Plan.
. To publicize the City's Depanment of Community
Services function to city residents as a clearinghouse for
information and technical assistance regarding fair hous-
ing complaints and concerns.
. To assist in the education of realtors and builders on fair
housing legislation.
. To provide accurate information to owners and managers
of residential rental propeny or fair housing laws.
. To monitor the effectiveness of the City Fair Housing
Plan on an annual basis.
In addition, HUD requires the City to take a more pro-ac-
tive role in Fair Housing activities, including consumer ed-
ucation. A Fair Housing video was produced in Spring
1988 and is shown on a regular basis on cable television. A
"hot line" number similar to the Mobile Home Outreach
Program number is advenised with the Community
Services Division referring calls to the appropriate agency.
//-131
LAND USE
,~ " "
The City and local Board of Realtors cosponsored a Fair
Housing poster contest for all school children grades three
through eight. The winning poster was used for the Fair
Housing brochure produced by the City in both Spanish and
English translations. The City has distributed the brochures
to the Board of Realtors and to local nonprofit agencies.
Impact: More effective affirmative housing actions.
Program 5: Housing Information and Referral
Action: City staff is currently providing information and referral in
various housing programs and by responding to other in-
quiries directed to the Housing Division. Information refer-
ral inquiries help staff get a better handle on the specific
needs in the City to funher refine programs and suggest
new ones.
Impact: Better use and dissemination of information about housing
programs (all income groups, especially very low and low).
Program 6: Rental Assistance
Action:
The City of Escondido currently contracts with the San
Diego County Housing Authority for two feder8Ily funded
programs: Section 8 Existing Housing Assistance payments
and the Housing Voucher Program. A total of 665 units in
Escondido are leased to low-income households. Of these
665 units: 47 percent are rented to seniors; 40 percent are
rented to small families; and 13 percent are rented to large
families (See Table 26).
Affordable hOUSIng for 665 very-low and low-income
households.
Impact:
11-132
LAND USE
~ '.
Table 26
Current Rental Assistance Programs-
City of Escondido
1988
SECTION 8 EXISTING HOUSING ASSISTANCE PAYMENTS PROGRAM
Elderly Small Family Large Family Total
228 171 60 459
HOUSING VOUCHER DEMONSTRATION PROGRAM
Elderly Small Family Large Family Total
22 36 11 69
HOUSING VOUCHER PROGRAM
Elderly Small Family Large Family Total
39 40 10 89
RENTAL REHABn..rr A TION PROGRAM
(Includes Certificates and Vouchers in Suppon of Program)
Elderly Small Family Large Family Total
21 22 5 48
TOTALS
Elderly Small Family Large Family Total
310 269 86 665
- These programs are currently operated for the City of Escondido by the San Diego County
Housing Authority. The information reflected above is as of August 15, 1988.
Source: Escondida Report On Current Lower Cost Re1llal Projects
//-133
LAND USE
Program 7: Housing Project Development
Action: The City financially assisted a 132-unit aparnnent project
for the elderly and handicapped under the FHA 221 (0)(3)
Program. This project, Windsor Gardens, is located. near
the int~ction of Ninth Avenue and West Valley Parkway
and was completed in the fall of 1977. It is owned by a
nonprofit Escondido seniors' housing corporation and oc-
cupies ,a five-acre site leased from the City of Escondido
for a nominal annual fee. To assist in the completion of the
multifamily project, the City of Escondido completed the
necessary off-site street and drainage improvements and
granted variances and exemptions from the normally re-
quired propeny development standards.
Impact: Continued occupancy for 132 very-low-income and low-in-
come households.
Program 8: Mobile Home Conversion Assistance
Action: The City of Escondidohas previously developed a policy to
assist mobile home residents to purchase the mobile home
parks in which they reside. This program has been made
available to one park, Rancho Escondido. Approximately
$500,000 was loaned to low-income and moderate-income
residents.
Residents were determined to be eligible under the same
criteria as applied by the State of California Deparnnent of
Housing and Community Development. Additional policy
guidelines included:
a. No displacement of park residents.
b. No acquisition of a mobile home park as part of the as-
sistance program.
Impact: Continued occupancy for 44 mobile home households
($500,000).
Program 9: Senior Housing
Action: The CilV enacted an ordinance that stimulated the construc-
tion of housing for seniors. This program enabled the sup-
ply of affordable housing to be expanded for seniors.
Impact: Senior housing (17 projects with 1,923 units).
Program 10: Convalescent Facilities
Action:
The City used its conditional use permit process to facilitate
construction of convalescent facilities. This program ben-
/1-134
LAND USE
Impacts: .
efited those elderly disabled residents who were not
capable of residing in independent units.
495 units with 680 beds in three projects.
Program 11: Mobile Home Rent Review Ordinance
Action:
Impacts:
The City passed by initiative an ordinance that requires re-
view of rents in mobile home parks. The Rent Review
Board considers such requests with the objective of main-
taining the affordability of such units.
More stabilized mobile home rents (very low and low).
Program 12: First-Time Home Buyers
Action:
Impacts:
Established an assistance program for f1J'St-time home buy-
ers in 1989. The program was initiated as the result of a
development agreement that provides a revolving fund
from the difference between sales price and mortgage
amounts in a second deed of trust.
SS units of affordable housing (moderate income).
Program 13: Mortgage Revenue Bonds
Action:
Impacts:
The City continued the established Mortgage Revenue
Bond (1984). This program was enacted before the new
criteria and tax law revisions occurred. It provided new
housing incentive for five projects (Morning View Terrace,
Casa Escondido, Terrace Gardens, Heritage Park and La
Villas Del None).
239 potentia!" affordable units for low- and moderate-in-
come households.
Fair Share Progress
SANDAG annually produces a report that assesses the region's perfor-
mance in providing housing assistance to lower income households includ-
ing the City of Escondido. The repon helps jurisdictions monitor the im-
plementation of their Housing Elements and Housing Assistance Plans
(HAPs). SANDAG's Regional Housing Plan and the Regional Housing
Needs Statement recommend that Escondido and all other jurisdictions as-
sume their share of housing needs. The fair share concept included in the
Housing Needs Statement was developed to assist the City to respond to
State and Federal housing requirements and to insure an equitable distri-
bution of responsibility for low income housing throughout the region.
The fair share is calculated for the City by factoring the City's existing and
projected share of the region's housing, income, population, and employ-
ment.
//-135
LAND USE
The attached tables identify the number of additional lower income hOuSe-~j
holds that have received housing assistance in the City and the other
jurisdictions in response to the Housing Needs Statement. This informa-
tion is based upon responses from the housing staffs of the respective
jurisdictions, assisted housing information from local and federal repons
(especially the U.S. HUD Local Area Office in Los Angeles), i1nd previous
SANDAG Assis.ted Housing Performance Repons (1979-1986).lt is im-
portant to note the need figures in the following tables represent the .
"good faith" effort (2.5 percent of the need per year) and not the abso- .
lute need which is substantially larger.
The report does not measure the housing needs or performance for moder-
ate and upper income households (more than $27,600 for a family of four
in 1988) nor the rehabilitation of existing units for these households.
These issues are imponant components of the City's Housing Element, but
fair share progress considers only assistance that produces additional
housing for lower income households. .
Assisted housing has been provided in Escondido through programs pro-
viding guaranteed subsidies which provide affordable rents (less than 30
percent of household income) and lower income occupancy regardless of
the household income level. Programs with guaranteed subsidies ensure
that households earning less than 80 percent of the median spend less than
30 percent of income for rent. From 1980- I 987 approximately 263 units
have been assisted by guaranteed subsidies.
The County Housing Authority has provided assisted housing in the City
of Escondido. A total of 357 units; 165 (elderly) and 192 (family) are
available to low income households through the Section 8 existing and
rental voucher programs.
Since 1985.283 additional units have been identified as providing poten-
tial subsidies (those that offer units affordable to some lower-income
households, but do not guarantee lower-income occupancy or do not guar-
antee affordable rent levels at all household incomes). Included in these
figures are five multifamily projects constructed in Escondido since 1985.
The following projects were financed by local bonds and contain a number
of units specifically reserved for low-income households.
Project Name
. La Villas Del None (Retirement Project)
. Morning View Terrace Apts.
. Casa Escondido
. Terrace Garden Apts.
. Heritage Park Apts.
TOTAL
Targeted Units
23
65
66
45
40
239
The remaining units come from a mobile home conversion program
providing 44 units for elderly households.
/1-136
G.I
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LAND USE
/'.',
Table 28
Housing Needs Performance
Assisted by Local Programs
(Little/No Federal or State Assistance)
San Diego Region
1980-1988
1 2 3 4
Housing
Housing Housing Housing Needs
Needs Needs Needs Provided
Provided Provided Provided Total
To 1980 1980-1985 1986 and 1987 1980-1988
Carlsbad* 0 137 0 137
Chula Vista 0 313 244 557
Coronado 0 0 0 0
Del Mar* 0 0 0 0
EI Cajon 0 0 0 0
Encinitas* 0 12 0 12
Escondido 0 275 407 682
Imperial Beach* 0 43 0 43
La Mesa 0 20 20 40
Lemon Grove* 0 34 0 34
National City 0 0 0 0
Oceanside 0 51 400 451
Poway* 0 0 0 0
San Diego 0 694 1,820 2,514
San Marcos* 0 188 0 188
Santee* 0 0 0 0
Solana Beach* 0 0 32 32
Vista * 0 335 0 335
Unincorporated* 0 1,028 297 1,325
Urban County* 0 (1,777) (329) (2,106)
REGION TOTAL 0 .3,130 3,220 6,350
* Communities participating in the Urban County Community Development Block Grant
Program; "Urban County" totals are not included in "Region Total" to avoid double
counting.
1I-138
LAND USE
(3) Appropriateness
The goals and policies of the Housing Element were organized into
concise goal and policy directives. As a result, the seven goals were
recommended for continuation. Secondly, the policies were
systematically reviewed and revised. Finally, the discussion of programs
was made a separate chapter and also organized into four subsets
(construction, rehabilitation, conservation, and administration).
b. Growth Management Controls
As pan of the evaluation of the Housing Element, the potential impact of any
Growth Management Controls that may become effective should be assessed.
The State HCD has developed a series of questions designed to evaluate the
impacts of growth management measures. Since the City does not have a
growth management measure, the questions were revised to discuss growth
management controls within the General Plan and the potential for ballot
measures related to growth management. The following discussion summarizes
that evaluation.
Table 29
Growth Management Controls
City of Escondido
1989
1. Are the actions based upon actual and clearly defined environmental or public facility con-
straints?
RESPONSE: Evaluations of the City infrastructure, community facilities and service needs
indicate that rapid growth in recent years has outpaced the provision of such facilities. In ad-
dition, new development is encroaching into environmentally sensitive areas with highly vis-
ible terrain, ridgelines, habitat areas and cultural resources sites. Finally, the cumulative im-
pacts of growth have ovenaxed regional transponation systems, air quality, solid waste man-
agement, sewer capacities and water availability. .
2. Do the actions set the locality's new construction maxims above its new construction need.
including the jurisdiction's share of the region' s housing need?
RESPONSE: Escondido has generally provided more housing opponunities in relation to
land use designations creating housing needs than other jurisdictions in the region. In addi-
tion, housing costs in Escondido have been significantly more affordable than other jurisdic-
tions. The new growth management policies are vital in providing adequate facilities and
services to the large housing stock added to the City in recent years and for new develop-
ment. Without such facilities and services. the provision of housing is incomplete.
3. Is the locality taking all reasonable and available steps to relieve the constraints that make
growth limitation necessary?
(continues on following page)
Il-I39
LAND USE
/ "
,
Table 29 continued
RESPONSE: The Growth Management Element requires strategic planning by the public
and private sector to provide for adequate housing opportunities including necessary facilities
and services to ensure a reasonable quality of life standard. The formulation of this system
has involved detailed studies of service level standards, economic analysis, environmental
documentation and fiscal analysis. In addition, the process has been incorporated into a
comprehensive general plan revision which will result in the implementation of community-
wide goals and. objectives including' quality housing for all residents.
4. Does the City provide adequate incentives'to encourage the development of housing afford-
able to low and moderate income households, consistent with the locality's share of the re-
gion's housing needs for all income levels?
RESPONSE: The City has consistently provided incentives for housing opponunities for. all
income levels. Within the past few years, numerous developments, have been constructed
using a variety of land use techniques including specific plans, planned developments, senior
housing with density bonuses, congregate care facilities, transitional housing, residential care
facilities, day care homes and centers and several standard subdivisions and multifamily pr0-
jects.
In addition, the City has an active Housing Division under the auspices of the COnml!1nity
Development Coinmission (redevelopment agency) with policy recommendations from the
Housing Advisory Commission. The Housing Division has implemented and will continue
to implement a variety of housing programs for all residents through the use of
redevelopment funds, Community Development Block Grants and other specialized local
programs.
The General Plan policies include implementation measures for meeting the City's housing
needs as stated in the Housing Element. Funhermore, the Land Use Element requires the
adoption of area plans including substantial areas for new low and moderate income house- .
holds.
5. Does the City control industrial and commercial development that may increase the need for
housing?
RESPONSE: The proposed Land Use Element maintains the existing inventory of industrial
and commercial land with the exception of two locations for neighborhood serving commer-
cial designations with a total of approximately 27 acres. Compared to other jurisdictions in
the region, Escondido has substantially more area designated for residential land use in rela-
tion to the amount of industrial and commercial designations.
6. Are the controls conditioned to be removed upon removal of the justifying constraints?
RESPONSE: The implementation of the growth management system will establish detailed
financing mechanisms for both new development and public programs which will provide a
clear path for new development. In addition, the system will allow for infiU development
which includes many areas for affordable housing without the need for extensive facilities
plans.
Source: City of Escondidc--Slaff Response
//-140
LAND USE
Based on the methodology used by the State Department of Housing and
Community Development (HCD) and SANDAG, the City's share of housing
units that need to be added for Escondido from January 1, 1989 to July 1, 1996
would be 10,058 unitS and for the five-year period of Housing Element (July 1,
1991 to July 1, 1996) would be 6,705 units.
The City had a number of Signed. Development AgreementS phased for
construction from 1989-1994. During this time frame, it is anticipated that
3,263 new units will be available. Miscellaneous infill was roughly estimated to
be 3,000 units for a five-year time frame. The proposed specific plans could
potentially generate 369 units during a five-year time period.
The figures resulting from development agreements, alternatives, proposed
specific plans, and miscellaneous infill indicate that the total housing unit needs
will be met. The distribution of those units by income category will need to be
funher assessed. However, the analysis concluded that the provisions for higher
density should provide a greater opponunity for affordable housing.
c. Maximum Feasible Units
Based upon the needs assessment, the regional housing needs, the evaluation of
the previous Housing Element, and current and projected planning and
development, the following numbers are estimates of the maximum feasible
units that could be achieved during the next five years.
Construction:
Rehabilitation:
Conservation:
7,840 (Growth Management Scenario)
981 (Housing Assistance Plan)
846 (Fair Share)
Construction units were estimated by projecting the number of units to be built
for the five year period of the element. The 7,840 units exceed the City's
regional share for five years (6,705 units). The rehabilitated units were
estimated by projecting the number of units which could be rehabilitated with
available and projected programs through reprogramming and additional funds
over the next five years based upon the Housing Assistance Plan and CDBG
funding levels. Conserved units were estimated by projecting the number of
units that could be conserved from an affordability aspect as the recommended
five year goal for "Fair Share" (number of lower income households to need .
assistance). A substantial portion of the existing housing stock will be
conserved due to the low rates of substandardness and "newness" of the housing
stock and are not included in these figures. Thus, conservation is defined in
terms of conserving affordability.
14. Strategy Concept
a. Introduction
The strategy concept identifies the City's housing goals and polices. The
overall strategy is to present a balanced and diverse array of policies that cover
four overall areas of concern: construction, rehabilitation, conservation, and
administration.
11-141
LAND USE
b. Goals
~)
Goals are long range general guidance for the City's Housing Plan. The Goals
Section discusses the State goals and the City's goals.
(1) State Goals
The State legislature set the context for housing goals when it stated its
findings as pan of the State's housing laws:
(a) The availability of housing is of vital statewide importance,. and the
early attainment of decent housing and a suitable living environment
for every California family is a priority of the highest order.
(b) The early attainment of this goal requires the cooperative
panicipation of government and the private sector in an effon to
expand housing opponunities and accommodate the housing needs
of Californians of all economic levels.
(c) The provision of housing affordable to low and moderate-income
households requires the cooperation of all levels of government.
(d) Local and state governments have a responsibility to use the powers
vested in them to facilitate the improvement and development of
housing to make adequate provision for the housing needs of all
economic segments of the community.
(e) The Legislature recognizes that carrying out this responsibility, each
local government also has the responsibility to consider economic,
environmental, and fiscal factors and community goals set fonh in
the general plan and to cooperate with other local governments and
the state in addressing regional housing needs." (Section 65580)
(I) City Housing Goals
The City of Escondido established the following goals as pan of its
previous Housing Element. They were reviewed and canied forward to
the revised Housing Element.
(a) To expand the stock of affordable housing while preserving the
health, safety, and welfare of residents, and maintaining the fiscal
stability of the City.
(b) Accommodate the regional share of housing for all income groups
and the fair share for lower income households that require
assistance.
(c) Maintain the existing housing stock as a source of low and moderate
cost housing and as a conservation measure.
(d) Ensure a proper balance of rental and ownership housing units.
/1-142
LAND USE
(e) Permit residential growth only within limits which allow the
concurrent provision of services and facilities, including schools,
parlcs, fire and police protection, and street improvements.
(f) Encourage a compact, efficient urban fonn which conserves land and
other natural and environmental resources, and which respects
naturaItopographic and drainage characteristics.
(g) Seek ways to eliminate all fonns of discrimination based on race,
ethnic background, religion. sex, familial status, handicap, age,
sexual orientation, or source of income in obtaining housing.
Many of the programs described in the goals section are dependent upon
HUD funding. If federal funding is reduced, goals will need to be
modified. Escondido will implement the following policies to preserve or
expand the availability of housing for lower income persons and to
minimize displacement
(a) Escondido will not use CDBa funds to demolish any housing units
which are currently being occupied by lower income households.
(b) Escondido will explore the possibility of issuing multifamily
mortgage revenue bonds and other tax exempt mortgage revenue
programs that may be available from time to time to assist and
expand the availability of housing for lower-income households. At
least 20 percent of the tax exempt financed units will not exceed 30
percent of the tenant's gross income. This program has been
successfully used in the past. However, new tax laws make it more
difficult to utilize the program.
(c) Density bonus projects will continue to be considered, and either the
density bonus will be approved or equivalent financial incentives
will be offered, as required under State law.
(d) Escondido had a senior density bonus ordinance. Over 2,000 units
were approved, greatly exceeding the number of units Escondido
hoPed to provide under this policy. The use of the senior density
bonus ordinance has been rescinded because an adequate number of
senior density bonus units are currently available. However, the
monitoring provisions will remain in effect.
(e) It is anticipated that Escondido's recently approved mobilehome
parle rent control ordinance will help keep space rents affordable.
(f) Escondido will consider using City-owned property and residences
for lower-income housing.
The City will also undertake the following actions to implement its five
year fair share goals.
(a) The City realisticall y anticipates that Section 8 certificates and/or
Section 8 vouchers will become available during the next five years.
11-143
LAND USE
/,
(b) The City will work with nonprofit organizations interested in I
applying for Section 202 funds (75 units). The City is a fust priority
section 202 designee.
(c) The City anticipates that 50 single-family homes and 110
mobilehomes will be rehabilitated over the next five years.
(d) The City will continue to utilize the 20 percent redevelopment set
aside funds to construct, acquire, preserve, or rehabilitate lower-
income housing units.
(e) The City will continue to apply for Rental Rehabilitation Grant
program funds. It is anticipated that up to 100 units will be
rehabilitated over the next five years.
c. Policies
In order to translate goals, which are general and long term, into more specific
guidance, a series of policies were reviewed and revised based on the previous
element.
(1) Current Housing Policies
Current housing priorities for the City were established in the previous
Housing Element. These priorities include:
(a) Insure affordability of housing for low and moderate income
households. Specifically seek adequate supply of rentals, especially
those allowing children. Encourage lower cost ownership housing
through provision of "no frills" housing, planned developments,
mobile and modular housing, and promotion of alternative
mongages.
(b) Insure provision of housing for low to moderate income elderly
households. Federal and State subsidies, and local nonprofit
corporation' activity in conjunction with City assistance in the form
of provision of improvements and waiving development fees are
possible programs to meet this need.
(c) Encourage assistance to low income households, primarily in the
form offederal rent subsidies and State subsidies as available, and in
the form of redevelopment funds designed to provide low income
housing opponunities.
(d) Provide rehabilitation assistance for low and moderate income
households where major private redevelopment is not anticipated.
(e) Encourage an open housing market fully available to all regardless of
race, ethnicity, religion, sex, familial status, handicap, age, sexual
orientation or source of income.
J/-144
,
LAND USE
. ~
.
IS. Programs Summary
This Chapter describes the programs which the City will implement during the time
frame of the Housing Element. The programs are designed to implement the
policies which were identified previously in Goals and Evaluation. Each program
identifies the specific actions which will carry out that policy. In addition,
anticipated impacts (illcIuding income groups and number of households/units),
responsible agency, f~ancing, and schedule are presented.
The following programs address a range of housing needs and represent a
commitment by the City to address those needs in a responsible manner. The
programs are designed to build upon one another: no single program should be
perceived as the panacea for all the City's needs.
The most effective approach will require the creative use of a combination of
programs. For example, density bonuses by themselves may not be enough of an
inducement to the developer to provide affordable housing. However, density
bonuses combined with reduced land costs or other incentives will produce
affordable housing in an economic manner for the developer.
Housing Program Proposaisl Assumptions
The proposals prepared for this report were based on thefollowing assumptions:
. All means of providing affordable housing in Escondido should be explored,
including partnerships with local, private, and nonprofit sectors.
. The housing programs, wherever possible, would complement additional effons
of other City department (Le., if the Building Department Code Enforcement
Program found it advantageous to access Housing Division Rehab resources to
improve dwelling units).
. The Housing Division should take advantage of any federal, state, or private
foundations' technical assistance or money when these programs complement or
funher local housing program policies and goals.
. Housing programs within the Housing Division should remain somewhat
flexible-enough so that they can respond to evolving needs. Therefore, all of
the "eggs" should not be placed in one particular basket (Le., new construction
versus housing vouchers).
. Whenever possible, newly proposed programs should be coordinated with
ongoing housing programs.
. Proper administrative implementation is not evaluated on cost effectiveness
alone but on responsiveness. experience. accountability and local visibility.
//-145
LAND USE
,
!
a. Construction Programs
Program 1.1: Project Development: (Continuing Program)
Action: . This program will create an increased supply of low-cost units
for low-income households. Project Development Fund would
be made available for loans to increase the supply of low-cost
rental units. A portion of the fund would be made available for
grants. The Project Development Fund could be used for a wide
variety of uses, including but not limited to:
. technical assistance, design and finance services and
consultation, and administrative costs for eligible non-profits;
. mongage subsidies for new construction or rehabilitation of
eligible multifamily units;
. construction fmancing for new units;
. acquisition of rental easements in existing or proposed pro-
jects; .
. acquisition of housing units for the preservation of units; and
. administrative costs for housing assistance groups or organi-
zations when such a loan or grant will substantially increase
the recipient's access to housing funds elsewhere.
Detennination of categories of highest need for proposed project
will be detennined by the CDC. The potential categories could
include small families, seniors, and special needs groups.
Anticipated
Impact:
Increased supply of rental units for very-low-income and low-in-
come residents. (100 units)
Responsible
Agency:
Community Development Commission/Housing Division
Financing:
Schedule:
Tax-increment set-aside
(1) RFQ Small Family 1989
(2) Select Projects; 1990
(3) Acquisition, Construction or Preservation;
Smail Family 1992
1/-146
LAND USE
Program 1.2:
Action:
Anticipated
Impacts:
Responsible
Agency:
Fmancing:
Schedule:
Program 1.3:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 1.4:
Action:
Mortgage Revenue Bonds (Continuing Program)
The City will continue to provide its credit support for the
issuance of revenue bonds for the purpose of developing
affordable housing. Even though additional requirements and
restrictions have been instituted at the State and federal level, the
MRB can still encourage aff6rdablerental housing.
Construction of affordable rental for low-income households.
City Manager's Office and Community Development
Commission
Private developer/mongage.bond firms
Continuation of a program enacted in 1984.
First. Time Home Buyers (Continuing Program)
The City established and assistance program for first-time home
buyers in 1989. The program consists of financing and fee assis-
tance to qualified households for purposes of homeowners hip.
When units sell for the first time, the City captures the difference
between the sales price and mongages amount in a second deed
of trust (25% as part of developer agreement). The assistance
would come from a revolving fund that would be reimbursed
upon subsequent resale of the units (plus a rate of interest
equivalent to the unit's rate of appreciation). The program was
initiated in 1989 with an agreement (Foote Development) and
will be expanded during this element's time frame.
Increased homeowners hip opportunities for moderate income
households (200 units).
Planning, Community Development Commission, and City
Anomey
Revolving fund established by development participation
(1) Established development agreement 1989 (55 homes)
(2) Establish program criteria 1990
(3) Establish revolving fund 1990
(4) Provide assistance 1992-1995
Emergency Shelter Program (Continuing Program)
Funds to be used for rehabilitation or acquisition of shelters,
equipment, and administrative costs related to the grant. Funds
cannot be used for operations costs, maintenance and utilities
/1-147
LAND USE
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 1.5:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 1.6:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
,/''',
costs and costs related to client services (including vouchers, 'I
onetime rent, and other direct and indirect client services).
Construction of homeless shelter
Community Services
ESP funds.
(1) ESP Application 1989
(2) Administration of grant 1990
Inclusionary Zoning (New Program)
If established, the City would enact an incIusionary zoning pro-
gram that would require provisions for affordable housing as pan
of any residential development that reaches defined thresholds.
This program would include provisions for percentage set-asides,
in lieu of fees, thresholds, and targeted clientele.
Substantial inclease in the supply of low- and moderate- income
housing. (300 units)
Community Development Commission & Planning
Developer supponed; general fund for staff suppon
(1) Approval, review, and consideration, Conceptual Plan 1991
(2) Specific Ordinance 1992
(3) Enactment 1993
(4) Construction of "included units" beginning in 1995
Mortgage Credit Certificates (lIJew Program)
This program would involve the cooperation of the City and local
and regional real estate concerns in a parttlership to provide af-
fordable housing to home buyers. By providing mongage certifi-
cates that would provide beneficial financial arrangements, home
ownership opponunities would be increased.
Additional home ownership opponunities for moderate income
households.
Community Development Commission
Mongage and real estate funding sources; general fund for staff
suppon
11-148
.
,. ~ "
Schedule:.
Program 1.7:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 8:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
LAND USE
(1) Research Procedures 1991
(2) Establish Program 1991
(3) Issue MCC's 1992
Section 202. Development (New Program)
Thi.s program provides staff support to local & regional non-
profit corporations (NPC) who would be potential applicants for
the development of HUD assisted housing under Section 202 of
the BCOA (new construction and rental assistance for elderly
and handicapped households). The NPC would apply and BUD
determines funding but the City could enhance success by
providing such incentives as zoning, land write downs, social
services, and infrastructure improvements.
75 units for elderIy/handicapped households
Community Development Commission & Planning
Section 202ISection 8/COBO & General Fund for staff support
(1) Identify inducements Fall 1990
(2) Market NPC Winter 1991
(3) Assist in applications to HUD June 1991
(4) Applicants selected by BUD October 1991
(5) Construction Fall 19921Spring 1993
In.fill New Construction (New Program)
The City would' support construction of new housing for home
ownership and rental units on in-fill sites. This effort would in-
elude the coordination of land use regulations, and area plans,
public land opportunities, CDBO inducements, and MRB as an
in-fill package.
New housing opportunities for homeownership and rental for
Iow- and moderate-income households (60 units). .
City staff team: Lead: Community Development Commission,
City Manager's Office, Community Services, Planning and City
Attorney.
CDBO, MRB, in-kind City-owned propeny, and tax increment
set aside.
(I) Establish City Staff Team 1990
(2) Evaluation Program Packages 1991
(3) Establish Program 1992
(4) Construction 1994
11-149
LAND USE
Program 1.9:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 1.10:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
b. Rehabilitation
Program 2.1:
Action:
City-Owned Sites (New Program)
,.-"
)
The City has completed an inventory of City-owned properties.
These parcels would be assessed for their potential develop-
mentlredeveIopment for residential use. The objective is to use
City-ownership as a potential inducement for development of
more affordable housing.
Sites for affordable housing, especially low and moderate (3
sites).
Planning & Community Development & Engineering
To be determined Oost opponunity costs)
(1) Inventory Conducted 1989
. (2) Evaluation of Parcels 1990
(3) Selection ofParcel(s) 1991
(4) RFPforHousing 1993
(5) Consll'U~on 1995
Density Bonus (New Program)
The City would provide a bonus in the fonn of a density increase
of 25 percent above the land use designation or other financial
incentives or waivers of equal value if the proposed project
provides units for affordable housing. The program would
respond to the requirements of the State Law (AB 25 I 1).
Additional housing opponunities for low- and moderate- income
households.
Planning
Continued general fund for staff suppon
(1) Staff explore options under state law (1990-199 I)
(2) Council enact ordinance (1991-1992)
(3) Density bonus/incentives offered 1992
Housing-Rehabilitation-Owner-Occupied
(Continuing Program)
Since 1980, the City of Escondido has conrracted with the San
Diego County Housing Authority for the residential
rehabilitation program. Community Development Block Grant
/1-150
LAND USE
Anticipated
Impact:
Responsible
Ag~cy:
Financing:
Schedule:
Program 2.2:
Action:
Anticipated
Impact:
(CDBG) funds have been used over the years for the residential
rehabilitation program. The rehabilitation program will now be
funded from the tax increment set-aside funds.
Rehabilitation of units for very-low-income and low-income
households (160 units).
Community Development Commission/Housing Division
Tax-increment set-aside.
Continuation of program initiated in 1980 but with tax increment
funds in 1990.
Housing Rehabilitation: Renter Occupied
(Continuing Program)
The City of Escondido contracted with the County Housing
Authority through June 1989 to provide rehabilitation services
for the Rental Rehabilitation Program. The Rental Rehabilitation
Program is a federal grant program with specific requirements.
This program is now administered by the City.
The Rental Rehabilitation Program is made available to eligible
project owners. The project owners are responsible for obtaining
that ponion of the project financing not financed by Rental
Rehabilitation Funds. The City provides up to fifty percent of
the cost of rehabilitation from the Rental Rehabilitation Grant.
Deferred, zero interest loans, forgiven after ten years will be pro-
vided to project owners by the City for up to fifty percent of the
cost of rehabilitation.
The City will begin a local rental rehabilitation program that pro-
vides an alternative to the federal rental rehabilitation program.
The landlord would have the choice of using either program to
improve rental propeny. The local program may not require a
private match by the landlord.
However, in order to be consistent with State Redevelopment
Law, the landlord would have to agree to a continual occupancy
of low-/moderate-income tenants for 15 years. Rent to be paid
by the low-income tenants should not exceed 30 percent of their
income. The rental rehabilitation funds would be deferred loans,
due and payable at the time of change of title. In future years,
the local rental rehabilitation program may be targeted for a
neighborhood focus program.
Increase rental rehabilitation for very-low-income and low-
income households (143 units)
11-151
LAND USE
Responsible
Agency:
Financing:
Schedule:
Program 2.3:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule: .
Program 2.4:
Action:
Anticipated
Impacts:
"
~~
Community Development Commission
HUD and tax-increment set-aside.
Continuation of a program initiated before 1980 but expanded
with tax increment fmancing in 1990
Recycling Existing Structures (New Program)
The City would initiate a program to recycle deteriorated, older
structures .for affordable housing opportunities. This program
would be based upon the results of the CUy's evaluation of a
series of options which could include moderate rehabilitation, de-
velopment of Single Room Occupancy (SRO's), acquisition-re-
habilitation-resale, and special Planned Unit Development (PUO)
approach. Potential target area with land use area plans are being
considered for South Escondido Boulevard and East Valley
Parkway.
Additional affordable housing opponunitiesfor very-low-income
and low-income households. (20 Units)
Planning & COmmunity Development Commission
Public (CDBG/State SRO-Prop 84)
(tax-increment financing-private participation)
(1) Feasibility Study 1991
(2) Prepare Land Use Area Plans and Implementation
Strategy 1992
(3) RFP 1993
(4) Construction 1994-1996
Focus on Neighborhoods Program (New Program)
The City of Escondido has available, through various local and
state funds, the ability to target these funds in a coordinated man-
ner to one geographic area of the City. The City would study a
plan that would target neighborhoods for this program.
Resources that could be used to identify a selected neighborhood
could include pro-active code enforcement, housing
rehabilitation-both owner and renter occupied-and use of
CDBG funds for either capital improvements (i.e., sidewalks)
and/or child care facilities. In addition, land use policies or
ordinances could be reviewed to explore means of providing
community revitalization. This neighborhood project could be a
source of feedback to City Council for funher expansion of
programs into other neighborhoods.
The concentration of City resources to one neighborhood and the
opponunity for significant community impact both in physical
//-152
LAND USE
Responsible
Agency:
Financing:
Schedule:
Co Conservation
Program 3.1:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 3.2:
Action:
improvement and improvement in quality of life for neighbor-
hood residents. (Low- and moderate-income categories)
City StaffTeam:
Community Services (Lead), Planning, City Manager,
and Community Development Commission
Tax-increment set-aside/CDBGlGeneral FundlCIP
. (1) Concept established in 1990
(2) If feasible, target neighborhoods identified in 1990
(3) Programs initiated in 1991-1995
Transitional Housing/Project Development
(Continuing Program)
Transitional housing would provide shelter for households for up
to six montPs for a nominal cost to the tenant.
Households who have the opponunity to live in transitional hous-
ing would also receive additional social services. The projects
would be operated by a local nonprofit social service agencies
who have experiences in working with low-income households.
Priority in selecting a transitional housing program will be given
to a combination of best sites plus the agency who can best meet
the criteria listed above. Households who are displaced by a
code enforcement action shall be given first consideration.
Assistance to homeless households (48 beds/units) (very-low
and low categories)
Community Services & Community Development .
Tax-increment set-aside fund.
Continuation of a program initiated in 1989
Construction Completed: 1992
Rental Subsidy (Continuing Program)
Provide households with affordable rents (less than 30 percent of
household income and lower-income occupancy regardless of the
household income level. Programs with guaranteed subsidies en-
sure that households earning less than 80 percent of the median
would spend less than 30 percent of income for rent. These re-
sources come from the U.S. Department of Housing & Urban
//-153
LAND USE
"
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 3.3:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Development (HUD) through the County Housing Authority as }
vouchers and certificates (Section 8).
Rental Assistance for very-low-income and low-income house-
holds. .
Community Development Commission
County Housing Authority
Section 8 (HUD)Nouchers (HUD)
Continuation of a program initiated in 1976
Relocation A&<iistance/Cost Recovery
(Continuing Program)
Any low-income tenant within the city limits of Escondido who
is displaced by code enforcement action is eligible for relocation
assistance. The fund has an allocation of $200,000 which will be
replenished by expenses colIected under the Cost Recovery
Ordinance. These costs will be recovered from the property.
owners for costs incurred as a result of relocating tenants due to
code enforcement action.
Eligible costs for tenants include: cleaning and security deposits,
first month's rent, storage units and moving costs. To reduce
administration costs, the city may guarantee a security deposit or
first month's rent to landlords instead of drawing funds directly
out of the account.
The level of assistance is detennined by the displaces category:
Maximum of $2,000 for a family of eight or more
Maximum of $ I ,500 for a household of six
Maximum of $800 for a household of four
Fund provides relocation assistance for up to approximately 125
low-income families displaced by code enforcement action.
Community Development CommissionlHousing Division, City
Attorney, and Building
Tax-increment set aside, $200,000; Propeny Owners
Continuation of program initiated in 1989
Il-154
LAND USE
Program 3.4:
Action:
Anticipated
ImpactS:
Responsible
Agency:
Financing:
Schedule:
Program 3.5:
Action:
Anticipated
Impacts:
Responsible
Agency:
Financing:
Schedule:
Program 3.6:
Action:
Anticipated
Impacts:
Mobile Home Park Conversion (Continuing Program)
The City has adopted a procedure by ordinance to assist
occupants involved in conversion of mobile home parks. The
assistance consists of loans to low- and moderate- income
residents to purchase the mobile home parks in which they
reside.
Continued Mobile Home ownership opportunities for very-low-
income and low-income residents.
Community Development Commission, Planning Department
Continued General Fund for staff support; tax-increment set
aside and state funds for tenant loans.
Continuation of current program enacted in 1986.
Mobile Home Rent Review (Continuing Program)
The City passed by initiative an ordinance to review proposed in-
creases in rents in mobile home parks. The Rent Review Board
considers such requests with the objective of maintaining afford-
ability of such units.
Stabilized rents for mobile home residents (very-low and low in-
come)
Rent Review Board, and Community SeIVices Department
Continued General Fund for staff support and fees
Continuation of current program enacted in 1988
Existing Subsidized Housing Development
Assistance (New Program)
The City would explore means to continue housing affordability
for low-income households that would be impacted by the con-
version of existing subsidized projects to conventional housing.
These steps could include: (1) relocation assistance if necessary,
(2) priority listing for City assisted projects. (3) mortgage assis-
tance of existing project owner and (4) City acquisition and
resale with restrictions.
Continued affordability of three Section 236 project totaling 376
units (very-low and low income)
1/-155
LAND USE
.,
Community Development Commission/Housing Division
Tax-increment set~aside/potential state and federal
. (1) Identify options Spring 1990
(2) Evaluate alternatives Winter 1990
(3) Adoptactions Spring 1991
(4) Continue program 1993-1996
d. Administrative. Programs
Responsible
Agency:
Financing:
Schedule:
Program 4.1:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.2:
Action:
Anticipated
Impact:
Responsible
Agency:
/......-.,
I
Fair Housing (Continuing Program)
The City of Escondido has an existing Fair Housing Plan staff.
North County Interfaith Council and Heartland Human Relations
Association are involved in additional Fair Housing programs to
educate propeny .owners and managers in the area of Fair
Housing, and are making themselves available to answer calls
and assist people concerned with fair housing issues.
Continuing enforcement of Fair Housing Plan which will prevent
discrimination in housing .
Community Services Department
CDBG
Continuation of cUITent program established in 1988.
Code Revisions: Nonconforming Use Ordinance
(Continuing Program)
An amendment to the City's Nonconforming Use Ordinance,
Article 1084, permits alteration and improvement of residences
used for low-income housing without limitation as to the cost of
such alteration or improvement Previously, alterations and
improvements could not exceed the amount equal to the assessed
value of the building being repaired without causing the
residence to lose its nonconforming use status, thereby becoming
an illegal structure. The owners wishing to take advantage of
this amendment should be required to record a use restriction
against the propeny, requiring that it be used for low-income use
for state period (10 or 15 years).
Continued occupancy of low-income units.
Planning Depanment, City Attorney, and Building Depanment
1/-156
.
LAND USE
Financing:
Schedule:
Program 4.3:
Action:
Anticipated
Impact:
Responsible
Staff:
Financing:
Schedule:
Division:
Program 4.4:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.5:
Action:
Private (owners of residences used for low-income housing)
Continuing program adopted in 1989
Senior Housing Ordinance Enforcement
(Continuing Program)
The City has passed an ordinance in 1982 which encouraged the
construction of senior housing. In 1989, the Housing
Commission requested an analysis of the conditions and
restrictions of the Ordinance to determine if the conditions in the
Ordinance are being met.
Continuing availability of senior housing (1,923 Units).
Planning Department, Community Development
Commission/Housing Division, and City Attorney.
Private sector though ordinance requirements
(1) Revisions for enforcement provisions: 1990
(2) Transfer of monitoring function to the Community
Development Commission/Housing
1990
Housing Information and Referral (Continuing
Program)
The City will continue to update "Blue Book" which identifies
the City's housing programs and provides an opportunity to
. market those programs. These updates will benefit the targeted
clientele.
More effective and targeted housing programs (especially very-
low-income and low-income households).
Community Development Commission/Housing Division
Tax increment set-aside
(1) Continuation of ongoing program initiated in 1988
(2) "Blue Book" distributed in 1989
(3) Annual updates as necessary 1990-1996
Housing Element Update (Continuing Program as
necessary)
This Housing Element shall be revised and updated so that a new
element would be approved by July 1, 1996 to incorporate new
1I-157
LAND USE
"
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.6:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.8:
Action:
Anticipated
Impact:
Responsible
Agency:
/'~
data and to evaluate and update the implementation efforts. Two I
important data. sources will provide an opportunity for such
assessments: (1) 1990 Census and (2) SANDAG's Regional
Housing Needs Statement (1996-2001).
Continuing current housing element (all income categories)
Planning and Community D~velopment Commission! Housing
Division
General fund for staff
Census: Mid-1991
Regional Housing Needs Statement: Mid-1994
Land-Use Policies (Continuing Program)
Staff recommends to continue that the City's land use policies,
including the General Plan Housing Element and the Growth
Management Plan,coordination between the public and private
sectors to meet housing goals. The Housing Advisory
Commission (HAC) will review revisions to land use policies to
ensure Housing Element goals are being considered.
Better coordination and consistency of plan elements. (all
income categories)
Planning Department and Community Development
Continued general fund for planning staff support and tax-
increment set-aside for CDC s~f support
Ongoing
LandlordlTenantAssistance (Continuing Program)
City staff will continue to develop a joint work program with
local agencies and organizations. A landlord/tenant assistance
program will be funher developed.
Establishment of landlord/tenant assistance program which will
assist in resolving landlord/tenant disagreements (very-low-
income and low-income renters).
Community Services
I1-158
LAND USE
Financing:
Schedule:
Program 4.9:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.9:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.10:
Action:
Anticipated
CDBG
(1) Research and Design 1991
(2) Policy Review and Approval 1992
(3) Operational 1993
Congregate Care (Continuing Program)
The City, staff will continue to use the Conditional Use Pennit to
process requests for congregate care facilities through the
Conditional Use Pennit (CUP) process. This action will provide
the opportunity to construct new facilities as the market
demands.
Continued development of congregate care facilities (seniorS, all
income categories)
Planning
General fund continued suppon.
Ongoing
Regional Planning and Cooperation (New Program)
The Housing Advisory Commission (HAC) recognizes the need
to share housing information and ideas with other jurisdictions in
the county, especially those located in Nonh County. The HAC
will contact other cities within the region to explore common
housing issues and possible solutions.
More efficient and cost-effective housing programs (All income
categories)
Housing Advisory Commission
Continued tax-increment set-aside fund for staff suppon
Initiate in 1990.
Non-Profit Corporation Support (New Program)
The City would propose developing/supponing the ability of
NPC to panicipate in various housing programs which would be
most effectively addressed by NPC or in programs which are
available only to NPC's.
11-159
LAND USE
Impact:
Responsible
Agency:
Financing:
Schedule:
Program 4.11:
Action:
Anticipated
Impact:
Responsible
Agency:
Financing:
Schedule:
More effective NPC's and more housing assistance for very-low-
income and low-income households.
~
!I
Community Development Commission/Housing Division
Tax-increment set-aside for staff suppon.
(1) Review approaches 1990
(2) Develop strategy 1990
(3) Initiate program 1991
Ordinance Review (New Program)
The City staff would review various housing and housing related
ordinances for impacts on housing element. (ESP low- and
moderate-income housing). These actions could include pro-
cessing and impact fees, historic preservation, accessory units
and senior housing.
Removal of governmental constraints (very-low-income and low-
income units)
Planning and Community Development CommissionlHousing
Division
General fund and tax-increment set-aside for staff suppon.
(1) Establish priorities 1990
(2) Review/revise ordinances as necessary 1991-1996
//-160
.' . ,Q
c
(
'"--
,: '
"
CITY OF SANTEE
HOUSING ELEMENT
Draft Housing Element
February 1990
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CITY OF SANTEE
HOUSING ELEMENT
Draft Housing Element
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February, 1990
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Prepared by:
Cotton/Beland/Associates, Inc.
1028 North Lake Avenue, Suite 107
Pasadena, California 91104
#542
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TABLE OF CONTENTS
Section PaQe
1.0 INTRODUCTION
1.1 State Policy and Authorization 1-1
1.2 Organization of Housing Element 1-2
1.3 Relationship of the Housing Element to 1-2
Other General Plan Elements
1.4 Public Participation 1-5
2.0 SUMMARY OF HOUSING NEEDS, CONSTRAINTS AND
OPPORTUNITIES
2.1 Summary of Housing Needs 2-1
2.2 Housing Constraints 2-6
2.3 Housing Opportunities 2-10
3.0 HOUSING ELEMENT GOALS AND POLICIES
3.1 Housing Opportunities 3-1
C' 3.2 Accessibility of Housing 3-3
3.3 Maintenance and Preservation of Housing 3-3
4.0 IMPLEMENTATION/HOUSING PROGRAMS
4.1 Introduct i.on and Background 4-1
4.2 Evaluation of Accomplishments 4-2
Under 1984 Housing Element
4.3 Redevelopment Set-Aside Fund 4-4
4.4 Housing Programs 4-6
ATTACHMENT
A. State Housing Element Requirements
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Table
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FiQure
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LIST OF TABLES
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Projected Population Growth
Population Trends: Santee and Surrounding Areas
Housing Unit Potential on Vacant Potential
Developable Land - 1989
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2-3
2-17
4-22
Housing Program Summary
LIST OF FIGURES
Neighborhood Revitalization Areas
Vacant Land Designated for Potential Residential
Development - 1989
Santee Redevelopment Area
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1.0 INTRODUCTION
The City of Santee is a newly incorporated, suburban community located in
central San Diego County approximately 18 miles east of downtown San
Diego. The City was incorporated in 1980 and established its
Redevelopment Agency two years later. Santee recently became an
entitlement city (1988), allowing for discretion of expenditure of CDBG
funds. The City's first Housing Element was adopted in August, 1984, and
the City has begun to set the groundwork for implementation of Santee's
initial housing program.
This Housing Element is intended to direct residential development and
preservation in a way that coincides with the overall economic and social
values of the community. The residential character of a city is largely
dependent on the type and quality of its dwelling units, their location,
and such factors as maintenance and neighborhood amenities. The Housing
Element is an official municipal response to a growing awareness of the
need to provide housin9 for all economic segments of the community, as
well as legal requirements that housing policy be made a part of the
planning process. As such, the Element establishes policies that will
guide City officials in daily decision making and sets forth an action
program designed to enable the City to realize its housing 90als.
1.1 State Policy and Authorization
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The California State Legislature has identified the attainment of a decent
home and a satisfying environment for every Californian as the State's
major housing goal. Recognizing that local planning programs playa
significant role in the pursuit of this goal, and to assure that local
planning effectively implements statewide housing policy, the Legislature
has mandated that all cities and counties include a housing element as
part of their adopted local general plans. Section 65302(c) of the
Government Code sets forth the specific components to be contained in a
community's housing element. Attachment A summarizes these State
requirements and identifies the applicable sections in the Santee Housing
Element and Technical Data Report where these requirements are addressed.
Article 10.6 was added to the Government Code in 1980 and incorporates
into law the Housing Element Guidelines promulgated by the California
Department of Housing and Community Development (HCD). The original
Housing Element Guidelines were adopted on June 17, 1971, and revised
guidelines were adopted on November 17, 1977.
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The Government Code specifies the intent of the Legislature to insure that
counties and cities actively participate in attaining the state housing
goal, and sets forth specific components to be contained in a housing
element. These include the identification and analysis of existing and
projected housing needs, resources and constraints; a statement of goals,
policies, quantified objectives, and scheduled programs for the
preservation, improvement and development of housing; identification of
adequate sites for housing; and adequate provision for the existing and
projected needs of all economic segments of the community.
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1.2 Organization of the Housing Element
The Housing Element Guidelines require elements to include two basic
components:
1. An evaluation of the housing problem and an analysis of housing needs,
indicating the capacity of the existing housing supply to provide all
economic segments of the community with decent housing.
2. A housing program, consisting of two parts:
a. A comprehensive problem solving strategy establishing local
housing goals, policies, and priorities aimed at alleviating unmet
need and remedying the housing problem; and
b. A course of action which includes a specific description of the
actions the locality is undertaking and intends to undertake to
effectuate these 90als, policies, and priorities.
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The Santee Housing Element delineates the City's housing needs and sets
forth a program of action in accordance with State law. This first
section of the Element defines the intent of the Housing Element,
describes its relationship to State directives and other General Plan
elements, and includes a description of the public participation and
intergovernmental coordination utilized in its preparation. Section 2.0
of the Housing Element provides an overview of the present and projected
housing needs of the City's households as defined by the Housing Element
Technical Data Report, which serves as an appendix to the Element. This
section also provides an analysis of potential constraints to meeting the
City's identified housing needs and an evaluation of opportunities that
will further the development of new housing. Section 3.0 of the Housing
Element sets forth the goals and policies to address Santee's identified
housing needs. Finally, Section 4.0 establishes a comprehensive program
strategy to implement the City's housing goals.
1.3 Relationship of the Housing Element to Other General Plan Elements
The California Government Code requires that General Plans contain an
integrated, internally consistent set of policies. When one element of
the General Plan is revised, and especially when new policies and
priorities are proposed, the other elements must be reviewed to ensure
that internal consistency is maintained. This section examines the
relationship of the Housing Element and its policies to the other elements
of Santee's General Plan.
Community Development: Land Use, Circulation, Recreation and Trails
Elements
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The Housing Element is most affected by development policies contained in
the Land Use Element, which establishes the pattern, type, intensity, and
distribution of land uses throughout the City. In designating the total
acreage and density of residential development, the Land Use Element
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places an upper limit on the number and types of housing units constructed
in the City. The acreage designated for industrial, commercial, and
office professional uses creates employment opportunities, which in turn
affects the demand for housing in Santee.
The Circulation Element sets forth policies and programs for the provlslon
of transportation facilities that safely and efficiently move people and
goods. In conjunction with the Land Use Element, the Circulation Element
seeks to reduce the potential impacts of the circulation system
(accessibility, noise, traffic safety concerns, etc.) on residential
areas. Single-family homes are generally located along residential
collectors and local streets, while multi-family units have been located
along major streets to provide a desirable level of service with increased
traffic volumes. On- and off-site improvements add to the cost of housing
but are necessary for housing development. The Circulation Element also
attempts to create a satisfying living environment for residents of Santee
by providing a convenient public transportation system and a network of
bikeways and equestrian trails outlined in the Trails Element.
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The Recreation Element establishes various standards and criteria for the
passive and active recreational facilities necessary to adequately serve
the community. The policies which have been developed for this element
are aimed at enhancing and continuing the high quality park and
recreational amenities of Santee. These policies, however, affect both
the amount of land available for housing by designating permanent park
land areas, and the cost of housing by requiring land dedication or
development fees for the acquisition and maintenance of parks and
recreational facilities.
Resource Management: Conservation and Open Space Elements
The Conservation and Open Space Elements have identified distinct areas
within Santee that support significant natural resources. They establish
policies and implementation measures for controlling the impacts of
development on the natural environment within these areas. These elements
have also defined areas to be maintained in their natural state for
resource preservation and open space purposes. Like the programs
established in the Recreation Element, the policies of the Conservation
and Open Space Elements affect housing availability and cost by reducing
the amount of land available and.by requiring land dedication or payment
of park-in-lieu fees.
Public Health and Safety: Noise, Seismic Safety, and Public Safety
Elements
These elements assess natural and man-induced hazards that affect public
health and welfare, and establish appropriate policies and implementation
measures that restrict the intensity and pattern of residential
development in certain areas of the City.
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The Noise Element contains policies aimed at reducing the impacts of urban
noise (traffic, aircraft, commercial/industrial, and community activity)"
on residents and workers in the City. Special construction methods to
reduce noise impacts create a more satisfying living environment, but also
add to the cost of housing.
The Seismic Safety Element identifies areas of potential geotechnical
and/or seismic risk. The policies of this element are designed to reduce
loss of life, injuries, damage to property, and economic and social
dislocation in Santee. Implementation measures call for special design
considerations during the Project Review process for developments in areas
of potentially high seismic risk. Among the requirements include a
geological reconnaissance, geological investigation, soil investigation,
and seismic study. All of these actions add to the cost of housin9;
however, they are required if the City is to provide an acceptable level
of public safety.
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The Public Safety Element aims to reduce loss of life, injuries, and
property damage resulting from natural and human-caused public safety
hazards. The Public Safety Element, in conjunction with the Seismic
Safety Element, addresses the full scope of potential hazards facing
Santee. The element is designed to identify where private and public
decisions in development need to be responsive to potentially hazardous
conditions such as flooding, dam inundation, fire, toxic wastes, traffic,
and crime. It further serves to inform residents, private firms, and
public agencies of Santee's policies regarding the type of land uses
permitted, how and where to build public facilities, and what types of
services should be provided. The objectives of the element may add to the
cost of housing, but are required in order to provide a safer living
environment.
Community Design: Scenic Highways and Community Design Element
The Scenic Highways and Community Design Elements provide development
controls in the form of design 9uidelines for streetscapes, visual
corridors, and areas of significant aesthetic quality or sensitivity.
The policies and implementation measures were determined after
identification of design resources and establishment of community design
goals and objectives. Implementation measures include landscaping
programs, unique site planning, signing controls, rehabilitation of older
units, and architectural review. While these programs reduce the visual
pollution of the built environment and enhance residential living
conditions with aesthetic amenities, the cost to the City and private
developers to implement the program are eventually reflected in increased
housing costs.
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1.4 Public Participation
Section 65583(c)(5) of the Government Code states that "The local
government shall make diligent effort to achieve public participation of
all economic segments of the community in the development of the housing
element, and the program shall describe this effort."
In an effort to achieve part of this standard, the City of Santee had a
survey of mobile home park residents conducted in May, 1989. The survey
assessed the housing tenure, housin9 conditions, and demographic
background of Santee's mobile home park residents. The survey has aided
City administrators in planning for the future needs of these residents,
and the results have been incorporated into the goals and policies of this
Housing Element.
Aside from the survey, public participation is also provided in the form
of public hearings. Following the preparation of the Draft Housing
Element and its review by City staff, the Planning Commission conducts
public hearings on the Element. Subsequent to Planning Commission action
and recommendations to City Council, further public hearings will be held
at the City Council level. Once the public hearing and related review are
completed, the City Council may formally adopt the Element.
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The City currently contributes CDBG funding to the Heartland
Relations Association for fair housing counseling services.
has been funded by the City for several years.
The City of Santee intends to continue to cooperate with the San Diego
County Fair Housing Council and San Diego County Housing Authority in
promoting equal housing opportunity for all economic segments of the
community.
Human
This program
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2.0 SUMMARY OF HOUSING NEEDS, CONSTRAINTS, AND OPPORTUNITIES
As part of this Housing Element, a separate Technical Data Report was
prepared which documents the population, socio-economic, and housing
characteristics of the City of Santee. This background report helped to
define the City's current and projected housing need, and to provide
direction in the development of goals, policies, and programs to address
these needs in the Housing Element. The Housing Element Technical Data
Report is included in the General Plan Appendices.
This section of the Housing Element summarizes the findings of housing
need from the Technical Data Report. In addition, certain constraints
which may discourage the construction of new housing are evaluated, as
well as opportunities that will further the development of housing in the
community.
2.1 Summary of Housing Needs
A number of factors will influence
housing in Santee in coming years.
considered in this Element include:
the degree of demand or "need" for new
The four. major "needs" categories
Housing needs resulting from increased population growth, both in
the City and the surrounding region;
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- Housing needs resulting from the deterioration or demolition of
existing units;
Housing needs that result when households are paying more than they
can afford for housing;
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- Housing needs resulting from the presence of "special needs groups"
such as the elderly, large families, female-headed households,
households with a handicapped person, and the homeless.
For a more detailed discussion of these needs categories, refer to the
Housing Element Technical Data Report.
2.1.1 Population Growth
The 1988 population of the City of Santee was nearly 52,000 persons,
making it the tenth largest city in San Diego County. During the I980s,
its average annual 9rowth rate was 3 percent, slightly lower than that
experienced by the County. (It should be noted that Santee's annual
growth rate was slightly higher prior to 1985 - 3.2 percent, and dropped
to an average of 2.7 percent from 1985 to 1988.) The City's projected
growth rate from 1980 to 2000 is shown in Table I. The population trends
from 1980 - 1988 for Santee and surrounding areas are shown in Table 2.
The City's population growth rate is indicative of the fact that Santee is
an urbanizing community with land available for residential development.
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TABLE 1
CITY OF SANTEE
PROJECTED POPULATION GROWTH: 19BO-2000
CHANGE 1980-2000
1980 NO . %
Total Population (a)41,796 51,873
In Households 41,115 51,087
In Grou uarters 681 786
Source: (a)Total 1980 population based
breakdown by households and
in 1980 Census.
(b)Dept. of Finance, Controlled Population Estimates for 1/1/88.
(c)SANDAG Series 7 Regional Growth Forecast: 1986-2010, July
1988.
70,000
( 60,000
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- 50,000
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40,000
30,000
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57,185 63,295 21,499
56,547 63,581 22,466
638 714 33
on Santee 1984 Housing Element;
9roUP quarters based on proportions
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54.6
4.8
1980
1988
1995
2000
Year
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TABLE 2
POPULATION TRENDS: SANTEE AND SURROUNDING AREAS
1980-88
JURISDICTION (a)I980 (c)1988 % INCREASE
Santee (b)41,796 51,873 +24.1%
E1 Cajon 73,892 84,623 +14.5%
La Mesa 50,308 52,334 + 4.0%
Poway 33,178 41,306 +24.5%
San Diego (City) 875,538 1,058,702 +21.0%
San Diego SMSA 1,861,846 2,327,684 +25.0%
Source:
(a)U.S. Dept. of Commerce, Bureau of the Census, 1980 Census
Report.
(b) Santee Housing Element, 1984.
(c) Department of Finance, Controlled Population Estimates,
1/1/88.
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2,327,700
1,8161,800
120,000
100,000
~ 1980
. 1988
; 80,000
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40,000
20,000
SanDiego
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Growth projections through the year 2000 indicate substantive increases in
Santee's population, although the annual growth rate is projected to slow
to 1.8 percent. As discussed under Housing Opportunities, much of the
City's future growth will be accommodated through the development of
vacant land, a large proportion of which will occur in the currently
undeveloped Fanita Ranch area located in the northern portion of the City.
Construction of SR 52 through the City will also encourage residential
development as access to the City is improved.
2.1.2 Substandard Units
The accepted standard for housing rehabilitation needs is after 30 years.
In 1988, approximately 16 percent of Santee's housing stock was over 30
years old. However, in ten years, more than one-third (6,000 dwelling
units) of the City's housing will be over 30 years of age, indicating the
need for continued housing maintenance to prevent widespread housing
deterioration.
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A December 1988 windshield survey of targeted nei9hborhoods revealed that
the majority of the City's housing stock is in 900d condition. However,
with such a large proportion of the City's housing stock nearing 30 years
of age, continued maintenance of this older housing will be essential to
prevent widespread housing deterioration. The City's 1988-1991 Housing
Assistance Plan identifies a total of 1,522 substandard dwelling units in
Santee, 1,236 of which are suitable for rehabilitation and the remaining
286 which should be replaced. Residential units which currently exhibit
structural deterioration are predominately concentrated in the southern
portion of the City along Prospect Avenue and its side streets. This
area is encompassed within the City's Neighborhood Revitalization Areas
(see Fi9ure 1) which have been targeted for rehabilitation funds.
Rehabilitation improvements will continue to be encouraged in this area
by offering low interest rehabilitation loans for both single and
multi-family housing. In addition, industrial zoning in some of these
areas will encourage the demolition of substandard units or conversion to
commercial buildings.
The Housing Element sets forth policies and programs to encourage the
maintenance of the City's housing stock. These policies aim to:
- Encourage the maintenance of the existing housing stock to prevent
unit deterioration;
- Encourage the rehabilitation of substandard and deteriorating
housing;
- Promote the removal and replacement of substandard units which
cannot be rehabilitated or which are located in non-reidential
zones.
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,CCITtiW (Q)[F
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GENERAL
PLAN
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II~f.~1 survey sub-areas
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~eighborhood Revitalization Areas
400 acre.
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Source: City of Santee
.Pr~pered by: Collon/Beland/Assoclates, Inc.
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2.1.3 Affordability
In 1980, State and Federal standards for housing overpayment were based on
an income-to-housing ratio of 25 percent and above.(a) Households paying
greater than this amount will have less income left over for other
necessities, such as food, clothing, and health care. It is recognized,
however, that upper income households are generally capable of paying a
larger proportion of their income for housing, and therefore estimates of
housing overpayment generally focus on lower income groups.
The 1980 Census Report identifies households paying greater than 25
percent of income for housing. As could be expected, the lower the income
group, the greater the proportion of households overpaying for housing.
Among households earning less than $10,000, 88 percent overpaid for
housing, whereas 72 percent in the $10,000-$14,999 income category
overpaid. Among those in the $15,000-$19,999 category, 61 percent
overpaid, while only 25 percent earning greater than $20,000 overpaid.
In total, an estimated 42 percent of Santee's households in 1980 were
overpaying for housing.
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The distinction between renter and owner housing overpayment is important
because while homeowners may overextend themselves financially to afford
the option of home purchase, the owner always maintains the option of
selling the home. Renters, on the other hand, are limited to the rental
market, and are generally required to pay the rent established in that
market. According to the 19BO Census Report, of the 1,693 households with
incomes less than $10,000, 1,205 were renter households and only 488 were
owner households. This discrepancy is largely reflective of the tendency
of renter households to have lower incomes than owner households. The
fact that rental rates in Santee are higher than the surrounding region
also contributes to this high level of housing overpayment among lower
income renter households.
The 1989 Santee Mobile Home Park Survey provides current information on the
affordabi1ity of the City's mobile home parks. Very Low and Low Income
mobile home residents were identified as potentially in need of housing
assistance if they paid greater than 30 percent of their income on rent,
the Federal standard for housing overpayment. The results of the survey
indicate that 23.5 percent of all respondent households, and 31.6 percent
of respondent senior households, are overpaying for housing and could
potentially qualify for housing assistance. While these statistics
indicate that mobile home rents are priced above the level of
affordabi1ity for approximately one-quarter of the parks' lower income
income residents, this rate of housing overpayment amongst lower income
households is far less than that among renters of the City's apartment and
single-family housing. With a 1989 median monthly rental rate of $322,
(a) Since 1980, HUD has changed its standards of housing overpayment to 30
percent or more of household income.
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Santee's mobile homes provide a much lower cost rental option than both
apartments and single-family homes. In addition, the vast majority of the
City's mobile home residents (76 percent) own their own coaches outright
and do not have mortgage payments.
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2.1.4 Special Needs Groups
Certain segments of the population may have a more difficult time finding
decent, affordable housing due to special circumstances. In Santee, these
"special needs" households include the elderly, handicapped persons, large
families, female-headed households, farmworkers, military households, and
the homeless.
Elderly: The special needs of many elderly households result from their
lower, fixed incomes, physical disabilities, and dependence needs. In
1980, 7.5 percent of Santee's population was age 65 and above. Applying
this percentage to the City's 1988 population translates to an estimated
4,341 elderly residents. The fact that nearly half of the City's
residents are between 25-64 indicates a growing elderly population as
these residents age as a cohort.
The City's 1988 Housing Assistance Plan (HAP) identifies 380 elderly
households in need of rental assistance. Escalating housing costs,
particularly in the rental market, adversely impact housing affordability
for fixed-income elderly residents. The housing needs of the elderly can
be addressed through the provision of smaller units, second units on lots
with existing homes, shared living arrangements, congregate housing, and
housing assistance programs.
According to the Santee Mobile Home Survey completed in June, 1989,
approximately two-thirds of the City's mobile home park residents are 62
years of age or older. The special needs of these elderly residents are
related to the ongoing maintenance of their mobile homes and rising space
rents. A copy of this survey is included in the Housing Element Technical
Data Report.
~andicaDDed: Physical handicaps can hinder access to housing units of
normal design as well as limit the ability to earn adequate income.
Santee's preliminary Housing Assistance Plan identifies 232 households
with one or more handicapped individuals, representing approximately 1.3
percent of the City's total households in 1988. Of these 232 households,
53.5 percent were small family households, 21 percent were comprised of
elderly households, 13 percent were classified as large families, and 12.5
percent were single persons.
Housing opportunities for the handicapped can be maximized through housing
assistance programs, single-level units, ground floor units, and units
which incorporate design features such as widened doorways, access ramps,
and lowered countertops. The Housing Element sets forth policies to
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implement State standards for the provlslon of handicapped accessible
units in new development, and in addition, to encourage housing which is
provided for the handicapped to be located in close proximity to public
transportation and services. The Fair Housing Act of 1988 requires
owners/landlords of rental housing to permit reasonable modifications to
be made to the unit to improve handicapped accessibility at the expense of
the tenant.
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Female-Headed Households: Female-headed households tend to have low
incomes, thus limiting housing availability for this group. In 1980, 20.5
percent of all households were headed by a woman in Santee, 32 percent of
which earned incomes below the poverty level. Applying this percentage to
the City's 1988 housing stock translates to an estimated 3,598
female-headed households, nearly one-fifth of which have dependent
children under 18 years of age. Providing housing opportunities for
female-headed households relates both to affordability and child care
services. The Housing Element sets forth policy to encourage the
development of childcare facilities coincident with new housing
development, and to consider the use of incentives such as density bonus,
reduced development fees and/or financial assistance.
Farmwor~ers: The special housing needs of many farmworkers stem from
their low wages and the insecure nature of their employment. According to
the 1980 Census, 1.1 percent of residents in the Santee CDP were employed
in farming, forestry, or fishing. Applying this proportion to 1988
population figures translates to an estimated 272 Santee residents
employed in agricultural-related fields. The demand for housing generated
by farmworkers in the City is thus estimated to be extremely low.
Nonetheless, housing opportunities for farmworkers can be enhanced by
expanding the City's affordable housing stock.
Military: Military households are also considered a group with special
housing needs because of their lower incomes and uncertain length of
residency. The U.S. Government has conducted a survey of all military
households by zip code as of September 1988. Accordin9 to this survey,
2,897 military households (5.7%) exist within the zip code that includes
Santee (92071). This figure includes all branches of the military,
retired, and dependents of military personnel. By comparison, the 1986
Series 7 report indicates that 12.6 percent of all employed persons in an
Diego County and 9.4 percent of those in the City of San Diego work in
branches of the military. Housing opportunities for this special needs
group can be enhanced by increasing the City's affordable housing stock.
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Homeless: Throughout the country, homelessness has become an increasing
problem. Factors contributing to the rise in homeless include lack of
housing affordable to low and moderate income persons, increases in the
number of persons whose incomes fall below the poverty level, reductions
in public subsidy to the poor, and the de-institutionalization of the
mentally ill. According to the San Diego County Sheriff's Department,
approximately 30 homeless individuals reside in Santee. The City's
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homeless consist primarily of persons under the age of 18, and individuals
in their early 20s and 30s, The majority of these people are white
males; very few families are represented. An additional fifteen persons
live in automobiles, continually relocating from parking lot to parking
lot in the Santee area.
The Heartland Human Relations Association (HHRA) of the East County,
located in the City of La Mesa, is a privately-owned agency that provides
counseling services, shelter, employment referrals, and emergency food
to the homeless in the area. Between Januiiry through March of 1989,
the HHRA provided aid to 156 homeless persons. The number of persons
seeking aid from the agency has increased significantly within the last
five years. Although the HHRA does not provide shelter, it does refer
persons seeking shelter to several homeless shelters, most of which are
located in downtown San Diego. They also refer some to the East County
Emergency Shelter in El Cajon, and to local churches that operate on a
revolving shelter system.
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The City of Santee currently contributes CDBG funding to HHRA for fair
housing counseling services. This program has been funded by the City for
several years, with funds previously coming from the General Fund. In
addition to contributions to the HHRA, the City also provides funding
assistance to the Santee Food Bank. In 1989, the Food Bank received
$8,000 in GRS funds from the City.
The Housing Element calls for the City to coordinate with local social
service providers to address the needs of the City's homeless population.
In addition, the element sets forth policies for the provision of
transitional housing in residential zones close to services, subject to
the granting of a Conditional Use Permit (CUP). Emergency shelters may
also be permitted in commercial and industrial zones, subject to a CUP.
Conditions for the CUP shall be standardized and objective, and no more
restrictive than those for similar uses. If a local organization has
identified a proposed shelter site which is otherwise satisfactory but
requires rezoning, the City will consider initiating the rezoning
depending on the compatibility with surrounding areas, and will also
consider waiving the processing fees associated with the rezonin9.
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2.2 Housing Constraints
Actual or potential constraints on the provlslon and cost of housing
affect the development of new housing and the maintenance of existing
units for all income levels. Market, governmental, infrastructural, and
environmental constraints to housing development in Santee are discussed
below.
2.2.1 Market Constraints
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The high cost of renting or buying adequate housing is the primary ongoing
constraint to providing adequate housing in the City of Santee. High
construction costs, labor costs, land costs, and market financing
constraints are all contributing to increases in the availability of
affordable housing.
Construction Costs: The sin91e largest cost associated with building
a new house is the cost of building material, comprising between 40 to 50
percent of the sales price of a home. Overall construction costs rose over
30 percent between 1980 and 1988, with the rising cost of energy a
significant contributor. Construction costs for wood frame, single-family
construction of average to good quality range from $40-$55 per square
foot, with custom homes and units with extra amenities running somewhat
higher. Costs for wood frame, multi-family construction average around
$42 per square foot, exclusive of parkin9. City subsidies to on- and
off-site improvement costs may assist in the provision of affordable
housing units.
Land: Land costs include the cost of raw land, site improvements, and all
costs associated with obtaining government approvals. The price of land
as a percentage of new home costs has risen steadily since 1970,
increasing state-wide from 21 percent to 27.B percent in 1980. The
shrinking supply of available land in the Southern California region has
accounted for steady increase in raw land costs. Marginal lands, such as
those in Santee's hillside areas which are open to development, will
require greater site improvements to render them developable, factoring
into the price of land.
Higher density zoning could reduce the cost per unit of land, but land
zoned for higher densities generates more costs in providing community
services such as schools, parks and roadways, and commands a higher market
price. For this reason, density bonuses rather than zone changes may be
the preferred vehicle for reducing land costs. The Housing Element
identifies the use of land assemblage and write-down as an incentive for
the provision of affordable units.
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Labor Costs: Labor is the third most expensive component in building a
house, constituting an estimated 17 percent of the cost of building a
sin9le-family dwelling. The cost of union labor in the construction
trades has increased steadily since April 1974. The cost of non-union
labor, however, has not experienced such significant increases. Because
of increased construction activity, the demand for skilled labor has
increased so drastically that an increasing number of non-union employees
are being hired in addition to unionized employees, thereby lessening
labor costs.
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Financing: Although the 6 percent drop interest rates since the early
1980s has been significant, it should be noted that most conventional
financing is now variable rate. The ability of lendin9 institutions to
raise rates to adjust to inflation will cause many existing households to
overextend themselves financially, as well as returning to a situation
where high financing costs substantially constrain the housing market.
Interest rates are determined by national policies and economic condition,
and local governments can do very little to affect these rates.
Jurisdictions can, however, offer interest rate write-downs to extend home
purchase opportunities to lower income households. The Housing Element
sets forth policies that encourage the use of favorable home purchase
techniques, such as shared equity and limited equity cooperatives, as
might become available through institutions and public and private
agencies. In addition, incentives are provided for the conversion of
existing mobilehome parks to resident ownership.
Profit, Marketing, and Overhead: Rising marketing and overhead costs have
contributed to the rising costs of housing. Inflation has spurred much of
the increase in marketing and overhead. Intense competition among
developers has necessitated more advertising, more glamorous model homes,
and more expensive marketing strategies to attract buyers.
2.2.2 Governmental Constraints
Housing affordability is affected by factors in both the private and
public sectors. Actions by the City can have an impact on the price and
availability of housin9 in the City. Land use controls, site improvement
requirements, building codes, fees and other local programs intended to
improve the overall quality of housing may serve as a constraint to
housing development.
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Land Use Controls: As indicated in the following section, Housing
Opportunities, an estimated 3,009 to 11,821 new residential dwelling
units could be developed on vacant lands in Santee under the General Plan.
SANDAG has estimated a housing need of 2,920 units in the city from
January 1989 through July 1996. The Plan thus provides for a residential
development capacity which is more than adequate to serve projected
future housing demand. The Land Use Plan cannot therefore be interpreted
as a constraint to the provision of affordable housing, particularly
since 1,953 to 3,390 units are designated for multi-family use up to 22
dwelling units per 9ross acre, and can more readily be priced to meet the
needs of lower income households.
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Building Codes and Enforcement: The City of Santee's building code is
based upon the State Uniform Administrative Code and is considered to be
the minimum necessary to protect the public's health, safety, and welfare.
The City's recently amended Fire Code requiring sprinklering on
new residential construction is expected to add an additional $1.00 to
$1.50 per square foot to the cost of development. This requirement will
minimize the loss of life resulting from residential fires.
In terms of the existing houSin9 stock, substandard housin9 conditions in
the City are abated primarily through code compliance. Identification
of code violations are primarily based on citizen complaints. Property
owners are advised by the City of available rehabilitation programs to
assist in the correction of code violations.
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Fees ,and Improvements: Various fees and assessments are charged by the
City to cover the costs of processin9 permits and providing services and
facilities, such as utilities, schools, and infrastructure. Almost all
of these fees are assessed through a pro rata share system, based on the
magnitude of a project's impact or on the extent of the benefit which will
be derived. Table 35 in the Technical Data Report lists Santee's
residential fees; the City's fees are comparable with other Southern
'California jurisdictions. These fees, however, contribute to the cost of
housing and may constrain the development of lower priced housing units.
The City currently provides for reduced processing fees for mobilehome
subdivisions. Certain residential development fees may be reviewed to
determine if waiver or subsidy by the City may be beneficial for the
provision of lower income and senior citizen housing. A fee
reimbursement program for affordable housing could be financed by the
City's redevelopment set-aside fund.
Local Processing and Permit Procedures: The evaluation and review process
required by City procedures contributes to the cost of housing in that
holding costs incurred by developers are ultimately manifested in the
unit's selling price. Residential projects in Santee generally receive
concurrent processing, thereby shortening review time and minimizing
related holding costs.
2.2.3 Infrastructure Constraints and Freeway Development
Deficiencies existing in infrastructure and public services may constrain
the development of lower priced units. In addition, development of new
freeway corridors can result in the displacement of existing households
located in the freeway ri9ht-of-way.
Water and Sewer Utilities: The Padre Dam Municipal Water District
provides both water and sewer services to Santee, with supplemental
services provided by the Mt. Helix Water District to portions of the City.
At present, the District indicates adequate capacity is available to meet
the City's projected water and sewer needs. The District is currently
reviewing several programs to expand the District's sewer capacity to meet
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the City's future needs. The District is limited in its ability to
provide water service to some development in hillside areas. As the
City continues to urbanize, many areas will require the extension of water
and sewer service mains and the construction of water tanks at non-
serviceable elevations to facilitate future growth. To ensure that all
new housing development and redevelopment in Santee will have adequate
infrastructural facilities, the Housing Element calls for the monitoring
of the amount and geographic location of development so that City services
and facilities can accommodate that growth.
Education: Increases in the number of families with school-aged children
have resulted in overcrowding in some schools in Santee. The Santee
School District anticipates reaching maximum capacity within the next two
to three years, at which time the District will apply for State funding
for the construction of additional school facilities. State school
funding is limited, however, and developer fees levied by the District on
new construction cover only a fraction of the cost of the educational
needs generated by new development. A significant factor in the magnitude
of future school overcrowding in Santee will be the phasing of development
in Fanita Ranch.
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It should be noted, however, that a second high school in the Santee area
(West Hills High School) is under construction outside City limits on its
western boundary. Currently the school site is within San Diego City
limits, but the City of Santee has pre-zoned the area and initiated
annexation proceedings. The school is part of the Grossmont Union High
School District.
Police: Police protection is provided by the San Diego County Sheriff's
Department under contract with the City. A contract for law enforcement
services can be written for any level of service desired by the City. As
residential growth generates increases in Santee's population, additional
police officers and patrol units will be necessitated. Assuming the
City's capability to finance additional police services, adequate police
protection will be available to serve future development in Santee.
Freeways: The California Department of Transportation (CalTrans) is
planning to construct two freeways (State Routes 52 and 125) through the
City of Santee, both of which will displace housing located in the freeway
rights-of-way. Within the five year timeframe of this Housing Element, SR
52 will be built as far as Mast Boulevard, potentially reaching the
connection to SR 125 at Fanita Avenue. However, it will not be built to
SR 67 within the timeframe of the Housing Element. Several homes are
projected to be displaced from the acquisition of the freeway
rights-of-way for construction of the freeway. Althou9h the exact route
of SR 125 has not been finalized, the Fortuna/Prospect alignment for SR 52
was adopted under the CalTrans Final EIS for SR 52 in July, 1989.
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The projected number of units which would be displaced as a result of SR
52 totals 690 dwellings, including 280 mobile homes from four parks. This
accounts for approximately 4 percent of the City's dwelling units and 13
percent of its mobile homes. Federal relocation assistance is required
for displaced persons under the Federal Uniform Relocation Assistance and
Real Properties Acquisition Policies Act. Eligible displacees would
receive moving expenses and supplemental payments to compensate for
increased home costs, increased interest costs, and other expenses.
Construction of replacement housing could also be required if comparable
replacement housing is not available.
CalTrans also has the Mobile Home Relocation Assistance Program which
provides specific relocation advisory assistance, moving payments, and
supplementary payments for owners and tenants of mobile home parks. If
possible, relocation will be into existing parks. If necessary, however,
expansion of an existing park or a new park will be built. Mobile home
residents require special assistance because of the limited number of
available spaces in existing mobile home parks and the unique atmosphere
that mobile home parks provide to their predominantly elderly residents.
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2.3 Housing Opportunities
This section evaluates the potential residential development which could
occur under the Santee General Plan.
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2.3.1 Vacant Sites
Figure 2 illustrates vacant land potentially suitable for residential
development in Santee.
Table 3 provides a breakdown of the number and type of additional
residential dwellings which could be constructed in Santee under the
General Plan. Due to the uncertainty of residential densities in the
Fanita Ranch area since a Specific Plan has not yet been adopted for this
area, the residential development potential in this area represents that
specified in the City's Land Use Element. The actual number and type of
units permitted in Fanita Ranch will be defined in a Specific Plan.
Table 3 identifies 4,280 acres of vacant land in Santee planned for
residential densities varying from estate housing on minimum one acre
parcels to higher densities of up to 22 dwelling units per gross acre.
The residential density ranges for each land 'use category are intended as
an expression of the extreme limits of densities which are reasonable and
desirable for areas within the City. For each residential density range
indicated, with the exception of Hillside Limited Residential, the lowest
end of the density range could be expected to be approved on any given
project. Approval of a density higher than the minimum of the range is a
discretionary action and is a function of a combination of a series of
criteria which are specified in the City's Land Use Element. The
potential number of dwelling units in the HL, R-1, R-2 and Fanita Ranch
Specific Plan area may be affected by the City's Hillside Overlay District
which further restricts density if the property has an average natural
slope greater than 10 percent.
Land in the highest density category of 14 to 22 dwelling units per gross
acre is located primarily in the central portion of the City. The City
has identified the Town Center area as the location for hi9her density
residential development, including senior housing.
The City also permits in its Office Professional zone the development of
senior housing with a density range of 14 to 22 dwelling units per gross
acre. Currently close to 15 acres of Office Professional land is vacant
and has the potential to develop residentially.
2.3.2 local Employment Market
L.
The San Diego region serves as a major center of employment on the West
Coast. SANDAG's Series 7 Regional Growth Forecast projects significant
growth in the region's employment base, an estimated 556,000 new jobs
to be added by the year 2010 representing an increase of 61 percent.
Within Santee, approximately 10,000 new jobs are projected through 2010,
representing nearly a 100 percent increase over 1986 employment. Such
expanded opportunities for employment will continue to attract new
residents to Santee.
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GENERAL
PLAN
Fanita Ranch
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jiWif vacant land
.'k"'.,.,.,.,.,., Town Center and
Fanita Ranch boundary
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lacant Land Designated {or
Potential Residential Development
iource:,.Clty of Santee
)repared by: Cotton/Beland I Associates. Inc.
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100 .u..
1989
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1000 m.t....
('. TABLE 3
HOUSING UNIT POTENTIAL ON VACANT POTENTIAL DEVELOPABLE LAND - 1989
General Plan Desi nation Acrea e
HL-Hillside Limited
Residential (0-1 du/gr.ac.) 650 o - 650 o - 1,820
R-1 - Low Density
Residential (1- 2 du/gr. ac. ) 718 718 - 1,436 2,010 - 4,021
R-2 - Low-Medium Density
Residential (2-5 du/ac.9r.) 169(c) 338 - 845 946 - 2,366
R-7 - Medium Density
Residenti al (7-14 du/gr.ac.) 107 749 - 1,498 2,097 - 4,194
R-14 - Medium-High Density
Residential (14-22 du/gr.ac.) 86(d) 1,204 - 1,892 3,380 - 5,298
Specific Plante) 2,550 o - 5,500 o - 15,400
Tota 1 4,280 3,009 - 11,821 8,433 - 33,099
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(a) Does not account for Hillside Overlay requirements for the HL, R-l and
R-2 zones which reduce allowable densities up to 75 percent of the
base density in areas with an average slope of 10 percent or greater.
(b) Assumes 2.8 persons/household.
(c) Includes 17 acres of land currently occupied by radio towers. As land
surroundin9 this parcel develops, it is anticipated this use will be
discontinued.
(d) Includes 14.8 acres vacant land designated Office Professional which
permits senior housing at 14-22 dwelling units per gross acre. The
City currently has two senior housing proposals on this acreage. This
category also includes 19 acres of land currently occupied by radio
towers. The City has been informed that the radio station on this site
intends to move.
(e) The total acreage of the Fanita Ranch Specific Plan Area is 2,550.
The amount to be designated residential is unknown. The estimated
residential buildout in the Fanita Ranch Specific Plan Area, as
identified in the Land Use Element as of July, 1989, is 5,500. The
actual number of residential units which will eventually be approved
for the Ranch is also unknown at this time.
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3.0 HOUSING ELEMENT GOALS AND POLICIES
This section of the Housin9 Element contains the 90als and policies the
City intends to implement that address a number of important housing-
related issues. Four major issue areas are addressed by the goals and
policies of the Housing Element: (1) Ensure that a broad range of housing
types are provided to meet the needs of both existing and future
residents; (2) increase the supply of sound, affordable housing through
the rehabilitation of substandard housing units; (3) maintain the supply
of sound, affordable housing through the conservation of existing sound
housing stock; and (4) promote equal opportunity of housing choice for all
residents. Each issue area and the supporting goals and policies are
identified and discussed in the following section.
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3.1 Housing Opportunities
The City encourages the construction of new housing units that offer a
wide range of housing types to ensure that an adequate supply is available
to meet existing and future needs. The maintenance of a balanced
inventory of housing in terms of unit type (e.g. single-family,
multiple-family, etc.), cost, and style will ensure that the existing
variety is maintained. Areas of the City have a distinct character due in
large part to the density and housing type of their existing residential
neighborhoods. New housing constructed in the City should reflect the
character and density of the surrounding neighborhood in particular and
the City in general.
GOAL 1: Encourage the provision of a wide range of housing by location,
type of unit,. and price to meet the existing and future needs of
Santee residents.
Policy 1.1 Provide a variety of residential development opportunities
in the City, ranging in density from very low density estate
homes to medium-high density development, as designated on
the Land Use Map.
Policy 1.2 Encourage both the private and public sectors to produce or
assist in the production of housing, with particular
emphasis on housing affordable to lower income households,
as well as the needs of the handicapped, the elderly, large
families, and female-headed households. Utilize
redevelopment set-aside funds to facilitate the provision of
affordable units.
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Policy 1.3 Respond to State-mandated requirements for the development
of low and moderate income housing by allowing developers a
25 percent density bonus or other financial incentive for
providing at least 25 percent of the units in a project for
low and moderate income residents. Provide rental
assistance vouchers, as available, for some or all of the
affordable units provided.
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Require that housing constructed expressly for low and
moderate income households not be concentrated in any single
area of Santee.
Policy 1.5 Encourage and activate the development of housing for the
elderly through use of incentives such as density bonus,
project-based rental assistance, provision of
infrastructure, land or interest rate write-downs and fee
waivers.
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Policy 1.6 Re-evaluate the City's current density incentives in the
Zoning Ordinance for low/moderate senior units and revise to
reflect realistic increases that could be granted, similar
to that currently provided by State law.
Policy 1.7 Actively market the shared housing pr09ram sponsored by the
East County Council on Aging as an option for seniors to
share existing housing in the community.
Policy 1.8 Encourage the development of residential units which are
accessible to handicapped persons or are adaptable for
conversion to residential use by handicapped persons.
Policy 1.9 Encourage development of new housing units designated for
the elderly and disabled persons to be in close proximity to
public transportation and community services.
Policy 1.10 Encourage the development of child care facilities coincident
with new housing development, and consider the use of
incentives such as density bonus, reduced development fees
and/or financial assistance.
Policy 1.11 Coordinate with local social service providers to address
the needs of the City's homeless population. Amend the
Zoning Ordinance to permit the development of transitional
housing in the City's multi-family residential zones in
locations close to services, subject to Conditional Use
Permit. Amend the Zoning Ordinance to permit emergency
shelters in commercial and industrial zones, subject to a
CUP. Conditions for the CUP shall be no more restrictive
than those for similar uses.
Policy 1.12 Facilitate timely building permit and development plan
processing for residential construction.
Policy 1.13 Encourage the use of favorable home purchasing techniques,
such as municipal mortgage loans, shared equity and limited
equity cooperatives, as might become available through
public and private agencies and institutions.
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Policy 1.14 Encourage the use of energy conservation devices such as low
flush toilets and weatherization improvements, along with
passive design concepts which make use of the natural
climate, to increase energy efficiency and reduce housing
costs.
Policy 1.15 Ensure that all new housing development and redevelopment in
Santee is properly phased in amount and geographic location
so that City services and facilities can accommodate that
growth.
Policy 1.16 Encourage the development of new mobile home park
subdivisions through density bonus incentives and/or
reduction or waiver of development fees.
3.2 Accessibility of Housing
Housing opportunities in the City must be made available to all persons
regardless of age, income, or race. The diverse make-up of the San Diego
region will continue to attract a wide variety of people. The City has
made a strong and firm commitment that fair housing practices will
continue in Santee.
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GOAL 2: Promote equal opportunity for all residents to reside in the
housing of their choice.
Policy 2.1 Prohibit discrimination in the sale or rental of housing
with regard to race, ethnic background, religion, handicap,
income, sex, age and household composition.
Policy 2.2 Continue active support and participation with the Heartland
Human Relations Association to further spatial
deconcentration and fair housing opportunities.
3.3 Maintenance and Preservation of Housing
Substandard and deteriorating housing units, in addition to the obvious
problems of blight, can expose occupants to hazards ranging from
electrical fire to exposure to toxic substances used in construction.
Many factors can determine the "1 ife expectancy" of a dwell ing including
quality of workmanship, age, type of construction, and location. A major
focus of this Housing Element is to provide goals and policies which
underscore the City's commitment to ensure that substandard housing units
are rehabilitated and that units which are currently sound are adequately
maintained.
GOAL 3: Increase the supply of sound housin9 at prices affordable by all
segments of the community through the rehabilitation of
substandard housing units.
Policy 3.1 Advocate the rehabilitation of substandard residential
properties by homeowners and landlords.
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Policy 3.2 Continue existin9 residential rehabilitation pr09rams which
provide financial and technical assistance to lower income
property owners to enable correction of housing deficiencies
which could not otherwise be undertaken, and consider
expanding these programs through use of the Redevelopment
Set-Aside Fund.
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Pol icy 3.3 Focus rehabil itation assistance in the City's Neighborhood
Revitalization Areas in order to create substantive
neighborhood improvement and stimulate additional unassisted
improvement efforts.
Policy 3.4 Continue to utilize the City's code enforcement program to
bring substandard units into compliance with City codes and
to improve overall housing quality and conditions in Santee.
Policy 3.5 Mitigate the displacement impacts occurring as a result of
residential demolition throu9h unit replacement or
relocation of tenants.
GOAL 4: Maintain the supply of sound, affordable housing in Santee
through the conservation of the currently sound housing stock.
Policy 4.1 Encourage the retention of existing single-family
residential neighborhoods which are economically and
physically sound, and monitor the effect of growth and
change.
Policy 4.2 Encourage the retention of existing, viable mobile home
parks which are economically and physically sound.
Policy 4.3 Promote increased awareness among property owners and
residents of the importance of property maintenance to
long-term housing quality.
Policy 4.4 Encourage vi90rous enforcement of existing building, safety,
and housing codes to promote property maintenance.
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4.0 IMPLEMENTATION/HOUSING PROGRAM
4.1 Introduction and Background
The Housing Element describes the housing needs of the City's current and
projected population, as well as the specific needs resulting from the
deterioration of older units, lack of affordable housing for lower income
groups, and special needs for certain segments of the City's population.
The goals and policies contained in the Housing Element address the
City's identified housing needs. These goals and policies are
implemented through a series of housing programs that are funded and
administered through a variety of local, regional, State and Federal
agencies.
Actions included in these housing programs must address five specific
areas, as enumerated below:
. Conserving and improving the condition of the existing stock of
affordable housing.
. Providing adequate sites to achieve a variety and diversity of
housing.
. Assisting in the development of affordable housing.
. Removing governmental constraints if necessary.
. Promoting equal housing opportunity.
Santee's housing program for addressing unmet housing needs is described
in Section 4.4 of this chapter according to the foregoing categories. The
overall program strategy developed incorporates what has been learned from
the prior Housing Element (Section 4.2) and embodies a major new source of
program funding--Redevelopment Set-Aside (Section 4.3). Programs are also
reflective of Santee's recent stgtus as an entitlement City with discretion
over expenditure of CDBG funds.( )
(a) As a recent entitlement City in the Community Development Block Grant
(CDBG) Program, the City of Santee is now responsible for
administering its own CDBG-funded housing programs. The CDBG programs
identified in this element reflect the City's initial first-year
commitment of CDBG funding. The City has indicated it intends to
establish new programmin9 of CDBG funds to address the stated goals
and policies of this Housing Element. Several new programs
have been proposed in the Housing Element to address Santee's housing
needs which could benefit from CDBG funding in the future.
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4.2 Evaluation of Accomplishments Under 1984 Housing Element
State Housing Element law requires communities to assess the achievements
under adopted housing programs as part of the five year update to their
housing elements. The City of Santee's first Housing Element was adopted
August 15, 1984. As part of this Housing Element, the results of this
assessment have been quantified where possible (e.g., rehabilitation
results) but are qualitative where necessary (e.g., mitigation of
governmental constraints). These results are then compared with what was
projected or planned in the earlier element. Where significant shortfalls
exist between what was planned and what was actually achieved, the reasons
for such differences are discussed.
The Santee 1984 Housing Element sets forth a series of quantified
objectives which specify numerical targets for housing assistance to be
achieved over the mid-1984 to mid-1989 time period of the Housing Element.
The following section examines the actual progress made towards achieving
these housing objectives. The results of this anal~sis has been utilized
to refine and augment the City's existing housing programs to develop an
overall strategy to adequately address the community's identified housing
needs. This strategy is presented in Section 4.4 (Housing Programs) of
this Housing Element.
Objective 1.0: To improve at least 15% of the housing units
need of fix-up/paint-up repairs and/or minor rehabilitation.
estimated need is 659 housing units.)
which are in
(The
Accomplishment: The San Diego County Housing Authority, pursuant to its
agreement with the City, issued 165 weatherization 9rants and 163 grants
for the elderly/disabled for housing rehabilitation. The primary reason
for the shortfall in meeting the identified minor rehabilitation needs
was that the County was handling Santee's CDBG rehabilitation programs up
to 1988 with limited staffing, funding and community outreach. Santee
now operates its own CDBG programs with staff dedicated to this function.
CDBG rehabilitation loans permit general property and minor rehabilitation
improvements after sustandard conditions are corrected. The Housing
Element sets forth a 5-year rehabilitation goal for 200 owner and 100
renter units.
Objective 2.0: To improve at least 15% of the housing units which are in
need of major rehabilitation. (The estimated need is 167 housing units).
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Accomplishment: Under the auspices of the County, CDBG rehabilitation
loans have been offered to low and moderate income homeowners. During the
1984-1989 period, a combination of deferred payment and interest subsidy
loans were granted to 107 mobilehome and eight single family units for
needed rehabilitation improvements. Now that Santee has become an
entitlement city and operates its own CDBG program, the City's
rehabilitation efforts will be more aggressive. The City has hired a
full-time staff person to oversee its CDBG programs and has established
a 5-year rehabilitation goal of assistance to 200 owner and 100 renter
units.
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Objective 3.0: To aid at least 15%
who have housing assistance needs.
estimated to be 666).
of the lower income renter households
(The number of needy households is
Accomplishment: As of May 1989, the City of Santee had a total of 155
Section 8 housing vouchers and certificates under lease. As the limited
availability of Federal rent subsidies prevents the City from meeting its
rental assistance goals, the Housin9 Element recommends the use of
redevelopment set-aside funds to augment available rent subsidies. While
no additional affordable housing projects have been developed in the City
since 1984, a senior housing project, with a portion of the units set
aside for low and moderate income seniors under the City's density bonus
program, has been proposed. Redevelopment monies will be used to provide
incentives (such as land writedowns) for affordable unit construction.
Objective
household
estimated
4.0: To assist at least 40%
to obtain ownership housing.
to be 121).
of the moderate income renter
(The number of needs households is
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Accomplishment: Since adoption of the 1984 Housin9 Element, the City has
not yet 'provided any assistance in this area. A major new fundin9
source, redevelopment set-aside, is permitted to be used for assistance
to moderate income households. The Housing Elenment sets forth a new
redevelopment funded program to provide down payment assistance to
renter households. In addition, by expanding incentives for the creation
of mobilehome subdivisions, additional renter households may be afforded
the option of home purchase.
Objective 5.0: To assist resident homeowners to reduce housing expenses
(to the extent possible).
Accomplishment: The City co-sponsored a MPAP application which resulted
in $793,800 in fundin9 for the resident conversion of Highlands Mobile
Home Estates. In additon, the City has recently initiated a program to
provide 50 monthly rental vouchers to lower income senior mobilehome
residents.
Objective 6.0: To produce new housing consistent with projected housing
needs to the maximum extent possible.
Accomplishment: The City of Santee developed a comprehensive Zoning
Ordinance in July 1985 to implement the City's General Plan. The Zoning
Ordinance contains a density bonus provision as an incentive for the
development of low/moderate and senior housing. In addition, a recent
amendment to the ordinance provides for density and fee reduction
incentives for the development of mobile home park subdivisions. These
provisions have been established in an attempt to provide housing to meet
the needs of those groups not adequately provided for in the market.
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4.3 Redevelopment Set-Aside FunL
Legislative Background
State Redevelopment Law provides the mechanism whereby cities and counties
within the state can, through adoption of an ordinance, establish a
redevelopment agency. The Agency's primary purpose is to provide the
legal and financial mechanism necessary to address blighting conditions in
the community through the formation of a redevelopment project area(s). Of
the various means permitted under State Law for financing redevelopment
implementation, the most useful of these provisions is tax increment
financing. This technique allows the assessed property valuation within
the Redevelopment Project Area to be frozen at its current assessed level
when the redevelopment plan is adopted. As the property in the project
area is improved or resold, the tax increment revenue generated from
valuation increases above the frozen value is redistributed to the
redevelopment agency to finance Redevelopment Project costs.
In general, many early redevelopment projects focused primarily upon
demolition of blighted residential buildings and development of new
non-residential uses or upper income residential projects. While these
types of projects worked to eliminate blighting conditions, they did
little or nothing to aid the mostly low and moderate income residents of
the housing that was demolished, in addition to having a negative impact
on a community's supply of affordable housing. To address the problems
that arose with regard to the effect of redevelopment on low and moderate
income housing, the state legislature enacted a series of changes to
Community Redevelopment Law which require redevelopment agencies to
undertake activities which will assist in the production of low and
moderate income housing.
The legislative requirements regarding low and moderate income housing
generally fall into three basic categories: I) expenditure of 20% of the
tax increment revenue to increase and improve the supply of low and
moderate income housing in a community; 2) requirements that redevelopment
agencies replace low and moderate income housing which is destroyed as a
result of a redevelopment project; and 3) requirements that a portion of
all housing constructed in a redevelopment project area be affordable to
low and moderate income persons and families. The requirement for
redevelopment agencies to set aside 20% of a project's tax increment for
low and moderate income housing can provide a significant source of
funding for implementation of a community's housin9 programs.
Santee
In 1982, the Santee Redevelopment Agency began its efforts to reverse the
economic decline of the City's most blighted commercial and residential
neighborhoods. The Santee Redevelopment Project Area and Subareas were
formed in 1982, with 20% of the tax increment generated in these areas set
aside in a low and moderate income housing fund. (Figure 3 delineates the
Santee Redevelopment Area.) The Santee Redevelopment Agency has indicated
that approximately $2.2 million dollars is currently available for
expenditure from the Red~velopment Set-Aside Fund.
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GENERAL
PLAN
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Santee Redevelopment Area
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Source: City of Sentee
.Prepared by: Cotton/Beland/Associates, Inc.
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In 1988, AR 4566 mandated that redevelopment agencies with "excess
surplus" la) monies in their housing set aside funds must either spend
these funds within five years or else transfer them to another local
housing authority for expenditure. State law sets forth a variety of
options for localities to expend their housing funds, including the
followin9:
- Land Disposition and Write-Downs
- Site Improvements
- Loans
- Issuance of Bonds
- Land and Building Acquisition by Agencies
- Direct Housing Construction
- Housing Rehabilitation Programs
- Rent Subsidies
- Predevelopment Funds
- Administrative Costs for Non-Profit Housing Corporations
The City of Santee is in the process of developing an overall strategy for
expenditure of its redevelopment set-aside fund. As the fund is not
restricted to assisting only lower income households (as are many of the
City's other funding sources), the City may be interested in targeting a
portion of it towards increasing homeownership opportunities for moderate
income households. A significant portion of the fund may be utilized to
provide relocation assistance to households which are displaced as a
result of the construction of the SR 67 interchange at Hartley Road on the
eastern end of the City. Other proposals include land write downs for
senior/affordable rental projects, augmenting funding to existing rental
assistance and housing rehabilitation programs, development fee
reductions, conservation of existing subsidized housing, and shared equity
arrangements. Based on the City's preliminary strategy for expenditure of
its set-aside fund, several of the Housing Element's programs have
identified the redevelopment set-aside fund as a potential source of
program funding, as outlined in Table 4 of this Housing Element.
(a) Excess surplus is defined as any unexpended and unencumbered balance
in an agency's Low and Moderate Income Housing Fund that exceeds the
greater of five hundred thousand dollars or the aggregate amount
deposited into the Fund pursuant to Community Redevelopment Law
(Health and Safety Code Sections 33334.2 and 33334.6) during the
agency's preceding five fiscal years.
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4.4 Housing Programs
Santee's overall housing program strategy for addressing its unmet housing
needs has been defined according to the following issue areas:
. Conserving and improving the condition of the existing stock of
affordable housing.
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. Providing adequate sites to achieve a variety and diversity of
housing.
. Assisting in the development of affordable housing.
. Removing governmental constraints if necessary.
. Promoting equal housing opportunity.
Housing programs include: programs which were set forth in the previous
1984 Housing Element; programs which the City has undertaken since
adoption of the prior Housing Element; and new programs which have been
added to address an unmet housing need. This section provides a
description of each housing program, any previous program accomplishments,
and future program goals. The Housing Program Summary at the end of this
section (Table 4) summarizes the future 5-year goals of each program,
along with identifying the program funding source, responsible agency, and
time frame for implementation. Program goals have been developed
consistent with the City's Housing Assistance Plan.
4.4.1 Conserving and Improving Existing Affordable Housing
The State of California has made housing preservation and conservation a
high statewide priority. While most of Santee's housing stock is in good
condition, a large proportion of the City's housing is nearing 30 years of
age, indicating the need for continued maintenance to prevent widespread
housing deterioration. A windshield survey of housing conditions in the
City, conducted in December 1988, identified some concentrated areas of
housing deterioration primarily in the southern portion of the City along
Prospect Avenue and its side streets; this area is encompassed within the
City's Neighborhood Revitalization Areas (refer to Figure 1) which have
been targeted for rehabilitation funds.
Title 25 of the California Administrative Code
Chapter 2 of Title 25 is the Mobilehome Parks Act. Article 10 deals with
the maintenance, use and occupancy requirements of mobilehome parks. The
purpose of this article is to implement, interpret and make specific the
requirements of the Health and Safety Code as it pertains to mobilehome
parks. The quality of mobile homes in Santee as well as the abatement of
substandard conditions are regulated by Chapter 2 of Title 25.
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Among the conditions regulated by Chapter 2 are the following:
. Electrical, gas and plumbing equipment.
. Accumulation of refuse, garbage, rubbish or debris.
. Building and park lighting.
. Driveways and access to driveways.
. Substandard building (defined in Section 1640 of Article 10 as
having inadequate sanitation; structural hazards; nuisances;
inadequate wiring, plumbing and mechanical equipment; faulty
weather protection, etc.).
The provisions of Article 10 are implemented on an ongoing basis in
Santee. The enforcement agency is the State Department of Housing and
Community Development. The City also contracts with the San Diego County
Health Department to enforce State Housing Law pertaining to sanitation,
ventilation, use or occupancy of apartments, dwellings and hotels. The
Health Department also issues occupancy permits for apartments and hotels
and makes periodic inspections.
Uniform Administrative Code
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Substandard housing conditions in the City are abated primarily by
enforcement of the Zoning Ordinance and Uniform Administrative Code. The
Uniform Administrative Code requirements relate principally to substandard
structural conditions. These conditions are described in the "unsafe
buildings" section of the Code. Implementation of these provisions of the
Code for purposes of assuring housing quality are accomplished on an
ongoing basis.
Condominium Conversion ReQulations
The City's existing multi-family rental housin9 stock represents a source
of affordable housing to many community residents. The conversion of
these rental units into condominium ownership would result in the
displacement of existing tenants. In order to minimize condominium
conversion activity, the City's Subdivision Ordinance (Section 81.402)
sets forth strict development and use standards for the conversion of
apartments to condominiums.
Among the standards for conversion are the following:
. 8ring the development into conformance with current Zoning
Ordinance requirements for new development, and with all current
State and County laws and regulations for new building
construction.
. Provide an individual gas and/or electric metering system for each
living unit.
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Provide trash enclosures to screen trash storage areas. These
areas shall be enclosed with a solid masonry wall or solid wooden
fences. This wall or fence shall be a minimum of six feet high.
Tentative maps for an apartment-to-condominium conversion also must be
accompanied by an application for a Conditional Use Permit and meet all
the applicable processing requirements and findings as set forth for a
conditional use permit in the City's Zoning Ordinance. Implementation of
these regulations occurs on a case-by-case basis. In addition, the right
of first purchase is offered to existin9 tenants in all condominium
conversions, pursuant to State Law.
Mobile Home Conversion ReQulations
Conversion regulations for mobile homes are contained in both Section
B1.402 of the City Subdivision Ordinance and Section I7.22.030D of the
Zoning Ordinance. The City Zoning Ordinance, through the Mobile Home Park
Overlay District, regulates the rezoning of existing mobile home parks.
Rezoning applications for property containing an existing mobile home park
and zoned for such use must satisfy several requirements and standards.
No application for a change of use of a mobile home park shall be approved
unless the City Council can make the following findings:
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. At the time the change of use is to be carried out, there will
exist sufficient comparable mobilehome space vacancies within the
City of Santee or other reasonable comparable locations to
accommodate mobilehomes displaced by the change of use.
. That the age, type, size, and style of mobilehomes to be displaced
as a result of the change of use will be able to be relocated into
other mobilehome parks within the City of Santee or other
reasonable comparable locations.
. If the mobilehome park is to be changed to another residential use,
the mobilehome owners to be displaced shall be provided the right
of first refusal to purchase, lease, rent or otherwise obtain
residency in the replacement units. Relocation in replacement
dwelling units shall not result in a displacement of unreasonable
length for those mobilehome owners electing to relocate in these
replacement units.
. The proposed change of use shall be consistent with the General
Plan of the City of Santee and/or any valid specific plan for the
mobilehome park site.
. Any mobilehome owners displaced as a result of the change of use
shall be compensated by the applicant for all relocation costs as
specified in Section 17.22.030 D.2.m of the Santee Zoning
Ordinance.
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These provisions assure that mobilehome park occupants are afforded some
protection if an existing facility is to be rezoned for another use. In
this way, a segment of Santee's existing affordable housing stock is
protected.
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Conservation of Existing Subsidized Housing
A community's existing affordable housing stock is a valuable resource
which should be conserved. There are three Federally-assisted apartment
housing developments in Santee, totaling over 472 units of rental housing
affordable to lower income households. These projects were approved and
constructed prior to the City's incorporation. Woodglen Vista is a
188-unit, Section 8 New Construction project developed in 1978 and
financed by the California Housing Finance Agency (CHFA). Rammton Arms
and Carlton Country Club Villas were both constructed under the HUD
Section 236 program in the early 1970s and contain 154 and 130 family
dwelling units respectively. These three apartment complexes constitute
nearly 10 percent of Santee's multi-family housing stock, representing a
significant source of affordable housing for the community. However,
according to a 1989 inventory prepared for the California Housing"
Partnership Corporation, both Rammton Arms and Carlton Country Club Villas
are eligible to convert from Federally subsidized affordable housing to
market rate rents within the next four years. While the mortgage runs for
40 years on these projects, project owners are eligible to prepay the loan
and deregulate rents after 20 years, allowing for potential loan
prepayment in December 1991 for Rammton Arms and in July 1993 for Carlton
Country Club Villas. The forty year loan on Woodglen Vista could be
prepaid in the year 1998.
In order to address this potential loss in the City's affordable housing
stock, the City will consider allocation of redevelopment set-aside funds
or other available funding sources to enable continued rental subsidy to
some or all of these units. Local non-profit corporations will be
contacted to solicit their interest in potentially taking ownership of
these projects. The City will also inventory and gather information to
establish an early warning system for publicly assisted housing projects
which have the potential to convert to market rate. A recently enacted
State General Obligation Bond program, Proposition 84, could potentially
serve as a source of funds for unit acquisition/rehabilitation. The City
recently applied for funding under this program.
All future projects in the City which receive public assistance
(including density bonus units) shall have affordable housing convenants
filed with the land to ensure the long-term affordability of the units.
Residential Rehabilitation
Through the Community Development Block Grant (CDBG) program, HUD provides
grants and loans to local governments for funding a wide range of
community development activities. The City of Santee became an
entitlement City in 1988 which allows the City to administer its own
programs usin9 COBG funding. The City is in the initial stages of running
its own COBG programs and is currently using a portion of its COBG monies
to fund the following single-family rehabilitation loan programs:
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Deferred Loan: This loan program offers zero interest rate loans to lower
income homeowners for needed rehabilitation improvements. The total loan
amount must be repaid when the property changes hands. Sin9le-family
homeowners may borrow up to $IB,OOO, and mobilehome owners may borrow up
to $4,000.
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Interest Subsidy Loan: This loan program offers 5% interest rate loans
for single-family home rehabilitation with repayment arranged by the
financial institution involved. Loans are made for 100% of the total cost
of home improvements up to a maximum of $18,000, with the owner
maintaining a minimum of 20% equity in the property. Mobilehome units do
not qualify for loans under this program.
The deferred loan and interest subsidy pr09rams have been successful under
the auspices of the County, with 107 mobilehome and eight single-family
units rehabilitated in Santee during the five year period of the Housing
Element (July 1984 to July 1989). Their success can be expected to
continue under the City's operation. A future assistance goal of 200
units for the 1989-1994 period has been established.
In addition to these single-family rehabilitation programs, the City
should in the future consider a program for multi-family rehabilitation.
While the City's multi-family housing is primarily new construction and in
excellent condition, there are a few older apartment complexes in Santee
in apparent need of rehabilitation. In addition, as the multi-family
housing stock begins to age, the City will need to offer some form of
multi-family rehabilitation assistance to prevent the deterioration of
this housing stock. Santee could apply for Federal Rental Rehabilitation
funds to be used for the rehabilitation of apartment buildings occupied by
lower income tenants. The City could utilize these funds for multi-family
housing rehabilitation as warranted in the future. A future five-year
assistance goal of 100 units has been established.
Uniform Housing Code
As discussed under the Housing Element program Title 25 of the
Administrative Code, the City currently contracts with the County Health
Department to enforce State Housing Law pertaining to sanitation,
ventilation, use or occupancy of apartment complexes, single-family homes,
and hotels. The Uniform Housing Code, if adopted, would expand the scope
of substandard conditions which could be regulated by the City through the
County Health Department. Chapter 10 of this Code defines the conditions
constituting substandard buildings. These include the followin9:
. Inadequate sanitation
. Structural hazards
. Nuisances
. Hazardous wiring
. Hazardous plumbing
. Hazardous mechanical equipment
. Faulty weather protection
. Fire hazards
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. Faulty materials of construction
. Hazardous or unsanitary premises
. Inadequate maintenance
. Inadequate exits
. Inadequate fire protection
. Improper occupancy
The provisions of the Uniform Housin9 Code relate only to existin9
dwellings and do not affect new construction. Adoption of the Code by
Santee would enable the City to cause the correction of a larger range of
substandard housing conditions, and to achieve abatement throu9h
established procedures.
4.4.2 Provision of Adequate Housing Sites
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A key element in satisfying the housing needs of all segments of the
community is the provision of adequate sites for housin9 of all types,
sizes and prices. This is an important function in both zoning and
General Plan land use designations. As a City with substantial vacant
acreage available for future residential development ranging from Very Low
to Medium-High densities, Santee offers the potential for a variety of
housing types.
Land Use Element/Zoning Ordinance
Planning and regulatory actions to achieve adequate housing sites offering
a range of housing types and styles include the Land Use Element of the
General Plan and the Zoning Ordinance. The City's permitted density
ranges are computed on basis of gross rather than net acreage, thus
creating a higher yield of housing per net acre. The Zonin9 Ordinance
contains density bonus as incentive for low/moderate income housing and
senior housing, and is discussed in detail in Section 4.4.3.
Site Suitability Criteria
Low and moderate income housing development should be located on sites
which are not only physically adequate but also suitable for such
development. These aims can be facilitated by having a set of "site
suitability criteria" by which to judge the merits of potential project
sites. These criteria will provide a yardstick for the City to identify
and evaluate potential sites for low and moderate cost housing. The City
has established siting criteria for senior housing proposals requesting a
density bonus. Criteria for affordable housing could be similarly
implemented through the City's Zoning Ordinance.
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In establishing its own criteria, the City should consider those already
set forth by other jurisdictions, including the State and Federal
governments. One example of such criteria is the "Site Ranking and
Environmental Evaluation" checklist of the California Housing Finance
Agency (CHFA). That checklist provides a system for grading the
suitability of sites with regard to the following:
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. Services available to the Site (e.g., public transportation,
essential shopping facilities, educational facilities, etc.)
. Neighborhood Characteristics (e.g., adjacent land uses,
environmental considerations, noise levels, etc.).
. Physical Aspects of the Site (e.g., topography, off-site
improvements, etc.).
The individual grades are combined into a composite "score" which enables
identifying the best site for the proposed publicly assisted housing.
These detailed CHFA criteria, along with others which are generally
employed will be considered by the City for incorporation into the Zoning
Ordinance. The City's intent in adopting and implementing the criteria is
not to be more restrictive than other levels of government.
4.4.3 Assist in the Development of Affordable Housing
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New construction is a major source of housing for prospective homeowners
and renters but generally requires public sector support for the
creation of units affordable to lower income households. While for-sale
housing costs are somewhat lower in Santee than in the surrounding re9ion,
thereby extending homeownership opportunities to many moderate income
households, the City's rental costs are higher than the surrounding
region. Compounding the need for affordable rental housing in the City is
the displacement of lower income tenants from multi-family housing to be
displaced to accommodate the SR 67 freeway interchange. Additional
displacement will result from construction of SR 52 and SR 125 through
Santee although CalTrans maintains responsibility for mitigation. The
following programs attempt to address the overall need for affordable
housing in Santee.
Section 8 Rental Assistance Payments/ Housing Vouchers
The Section 8 rental assistance program extends rental subsidies to low
income families and elderly which spend more than 30 percent of their
income on rent. The subsidy represents the difference between the excess
of 30 percent of the monthly income and the actual rent. The voucher
program is similar to the Section 8 Program, although participants receive
housing "vouchers" rather than certificates. Vouchers permit tenants to
locate their own housing. Unlike in the certificate program, participants
are permitted to rent units beyond the federally determined fair market
rent in an area, provided the tenant pays the extra rent increment. The
Reagan administration had proposed converting the Section 8 certificate
program to a voucher system, which is expected to be implemented under the
current Bush administration HUD Secretary.
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The City of Santee contracts with the San Diego County Department of
Housing and Community Development, which acts as the Public Housing
Authority for the City, to administer the Section 8 Certificate/Voucher
Program. As of May 15, 1989, Santee had secured a total allocation of
112 vouchers and certificates. Based on a goal of meeting 10 percent of
Santee's rental subsidy needs, the City's Housing Assistance Plan
identifies a rental assistance 90al of an additional 200 units annually.
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The 1989 Santee Mobile Home Survey identifies the rental assistance needs
of the City's mobile home residents. Very Low and Low Income mobile home
residents were identified as potentially in need of housing assistance if
they paid greater than 30 percent of their income on rent, the Federal
standard for housing overpayment. The results of the survey indicate that
23.5 percent of all respondent households could qualify for rental
assistance. Applying this proportion to the City's total 2,210 mobile
home stock could indicate a potential rental assistance need for 520
mobile home households.
It is impossible to know how many additional housing vouchers the City
will actually receive from HUD. A portion of the City's redevelopment
set-aside fund could be used to augment the number of rental subsidies
available. As Federal housing rent vouchers are not permitted to be used
with mobile homes, and rental rates charged at mobile home parks usually
exceed the fair market limit for Section 8 Rent Certificates, the City's
lower income mobile home park residents could particularly benefit from a
City-financed rental assistance program. The City's redevelopment
set-aside fund could be utilized to augment the number of rental
assistance vouchers offered to Santee's lower income households.
Density Bonus ProQram
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The City of Santee has adopted a density bonus program as an incentive to
developers to provide low income housing, senior citizen housing, or both
in order to provide a balance of housing opportunities in the City.
Chapter 17.26 of the City's Zoning Ordinance sets forth the specific
provisions of Santee's density bonus program, which can be summarized as
follows:
Low/Moderate Income HousinQ: Pursuant to State law, if a developer
allocates at least 25 percent of the units in a housing project to low or
moderate income households, the City will consider granting a density
bonus of 25 percent to the project site's existing maximum allowable
density or in lieu of granting a density bonus, the City may grant an
incentive of equivalent financial va"lue which may include, but not be
limited to, direct financial assistance to the developer, such as land
write-downs, on and off site public improvements, fee waivers, or
relaxation of development standards. The City may also provide
incentives in the form of financial incentives to the resident, such as
through rental and mortgage assistance payments. In order to ensure the
long term affordability of these units to low and moderate income
households, the developer may be required to enter into a Development
Agreement with the City.
To serve as an additional incentive for affordable housing development,
rental assistance vouchers could be offered in concert with density bonus
incentives for some or all of the affordable units. Such "project-based"
rental housing assistance could be financed with the City's redevelopment
set-aside monies. Other potential redevelopment-financed incentives the
City could utilize to encourage use of the density bonus program include
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the prOV1Slon of infrastructure, land or interest rate write-downs and the
reduction of fees and/or standards. In order to ensure the quality of
lower income units provided, redevelopment set-aside funds could also be
used to finance added project amenities, such as additional landscaping
and architectural treatment.
Senior Citizen Housinq: Pursuant to State law, if a developer allocates
at least 50 percent of the units in a housing project to the elderly, the
City will consider granting a density bonus of 25 percent to the project
site's existing maximum allowable density. Or, in lieu of granting a
density bonus, the City may grant an incentive of equivalent financial
value, such as those identified in the prior section on Low/Moderate
income housing.
The City currently offers a reduction in on-site parking (.7 spaces per
unit, including guest parkin9) for senior housing developments pursuant to
certain conditions. In terms of housing which is affordable to low and
moderate income seniors, the City of Santee offers the following
additional density bonus incentives:
% of Affordable Units
in Senior HousinQ Project
Maximum Density Bonus
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10
15
20
25
25%
40%
50%
60%
70%
In the process of trying to implement these density incentives for
affordable senior units, the City has recognized the need to evaluate
various site-specific factors to determine an appropriate density
increase. Factors considered by the City include land uses surrounding
the proposed project site, the availability of infrastructure, site
topography, and the site's proximity to commercial services. This Housing
Element has established a policy which calls for re-evaluation of the
City's current density incentives for low/moderate senior housing to more
closely reflect actual density increases to be granted a developer. At
this writing, a senior project is proposed under the density bonus
provision.
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The need for senior housing can be expected to increase in Santee based on
the loss of several mobile home parks in the City resulting from future
freeway corridors which will traverse the City. It will therefore be
particularly important for the City to encourage and facilitate the
development of housing which is affordable to senior citizens. CalTrans
will be responsible for providing relocation assistance for displaced
residents from the construction of SR 52 and SR 125. The City-sponsored
incentives discussed under Low/Moderate Income Housing - project-based
rental assistance, provision of infrastructure, land or interest rate
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write-downs, and reduction of fees and/or standards - could also be
utilized to encourage the construction of senior housing affordable to low
and moderate income households. In addition, the City may also wish to
consider coordinating with a non-profit group to sponsor a senior housing
project.
Mobile Home Subdivisions: In order to offer incentives for the
development of new mobile home park subdivisions, the City will consider
increasing the project density by either granting up to a 25 percent
density bonus to the project site's existing density category in the HL,
R-I, R7 and RI4 zones and up to a 60 percent bonus in the R-2 zone, or
granting a request for a change in density range (per the City's General
Plan), or both depending upon the quality, size, nature and scope of the
project. As further incentive for the development of new mobile home
parks, the City is currently processing an amendment to the Mobile Home
Park Overlay District to provide for a density increase of up to 60
percent. Fee reduction incentives are also offered to mobile home
developments.
Non-Profit Construction
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A non-profit housing corporation works to develop, conserve and promote
affordable housing, either owner or renter-occupied. Particularly in
relation to senior citizen housing (such as HUD Section 202 projects), the
non-profit is often a local religious organization interested in
developing affordable housing. The non-profit is often involved with what
is called "assisted housing", where some type of government assistance
(such as Section 8) is provided to the individual household to keep rents
affordable. Housing corporations can work with assisted housing in
several ways.
1. The non-profit may assemble a development package and sell it to a
profit-motivated developer. The package usually consists of a site,
project design, the necessary permits, and, in some cases, preliminary
financing commitments. The advantage of this method is that the
non-profit can get low- and moderate-income housing built while ending
its involvement early in the process and 90ing on to other projects.
The disadvantage is that the non-profit may lose control over the
development at the time of sale. However, the non-profit could
negotiate to retain some control over the project in the contractual
agreement between it and the developer.
2. The non-profit may participate in a joint venture with a
profit-motivated developer. ThoU9h it usually performs the same
functions as in the first method, the non-profit can retain more
control over the development and gain hands-on development experience
while benefiting from the financial resources of the for-profit
developer. In this option, however, the non-profit has a longer
involvement and will have to negotiate the rights and responsibilities
of the two partners.
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3. In the third approach, the non-profit is the developer. In this case,
the group must employ staff with necessary expertise 0\' rely heavily
on consultants. In return, the group has total control over the
development. this option requires more risk, money, time, effort, and
capability on the part of the non-profit.
A non-profit corporation can help meet the goals for additional
housing by implementing or assisting with the implementation of
programs described in this element. Of particular applicability in
Santee is the need for a non-profit to sponsor a senior housing
project in the City. The City should coordinate with local non-profit
groups, such as Interface Housing and Volunteers of America, to
facilitate the development and improvement of both senior citizen and
low cost housing in Santee.
Land Assemblage and Write-Down
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The City can utilize both CDBG and redevelopment set-aside monies to
write down the cost of land for the development of senior citizen and/or
affordable housing. The intent of this program is to reduce land cost to
the point that it becomes economically. feasible for a private (usually
not-for-profit) developer to build units which are affordable to
low/moderate income families. As part of the land write-down program, the
City may also assist in acquiring and assembling property and in
subsidizing on-site and off-site improvement costs.
Home Sharing
Many seniors who would prefer to live independently resort to
institutionalized living arrangements because of security problems,
loneliness, or an inability to live entirely independently. The City of
Santee currently contributes a portion of its COBG funds towards a shared
housing program which assists seniors in locating roommates to share
existing housing in the community. The program is administered by the
East County Council on Aging from its El Cajon office. Services offered
include information and referral, outreach, client counseling, placement
and follow-up.
The shared housing program has been successful in providing an alternative
option to Santee's elderly residents which allows them to remain in their
homes. The program provided 29 female and 9 male roommate matches in
Santee in 1988 alone. The majority of these seniors are very low income,
with the additional rental income assisting the homeowner in meeting
housing expenses, and the relatively low rental cost assisting the
roommate by providing a source of affordable housing. The East County
Council on Aging requests that rents charged not exceed $250 per month,
and indicates that housing is sometimes provided free of charge in
exchange for assistance with housework, etc. In Santee, roommate matches
have been made for mobilehomes as well as single-family homes.
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The Council indicates that many seniors are interested in finding
roommates to share their homes, but there traditionally have been fewer
individuals seeking housing in an existing home. The Council on Aging
will continue to conduct educational outreach, includin9 public service
announcements, distribution of brochures, and public speaking
engagements, in attempts to increase the number of seniors they are able
to assist through roommate matches. The City of Santee has allocated
$7,700 towards the program for Fiscal Year 1989-1990 and anticipates
continued funding of the program in the future.
Reverse Mortgage Program
The most substantial asset of most elderly homeowners is their home, which
usually increases significantly in value with inflation. And while owning
a home may provide a rich asset base with the onslaught of retirement and
a fixed income, many elderly homeowners quickly become income poor. Home
maintenance repairs multiply as the home ages, and the rising costs in
home utilities, insurance, taxes, and maintenance often get deferred
altogether, creating an unsafe and often depressing living environment for
the senior.
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An alternative option for elderly homeowners is to draw needed income
from the accumulated equity in their homes through a reverse mortgage. A
reverse mortgage is a deferred payment loan or a series of such loans for
which a home is pledged as security. Qualification for the loan is based
primarily on property value rather than on income, allowing the elderly
homeowner on a fixed income to receive a loan for which he or she would
not otherwise qualify. Most reverse mortgage programs permit homeowners
to borrow up to 80 percent of the assessed value of their property,
receive needed principal of up to 25 percent of the loan, and then receive
monthly annuity payments for the life of the loan.
The San Francisco Development Fund offers free training to California
communitits interested in organizing a reverse mortgage program for
seniors. The City could work with an existing social service group such
as the East County Council on Aging in establishing a reverse mortgage
program for seniors. Rather than making the loans themselves, the
City/social service group's role could be to facilitate the initiation of
reverse mortgage loans through the following steps. First, the
City/social service group would need to provide educational and counseling
services to seniors interested in pursuing a reverse mortgage. Second,
the City/social service group would need to work with local lending
institutions which currently provide these loans to gain a thorough
understanding of the application process. The City/social service group
could then work with the seniors to complete the loan applications and
assist in providing any other necessary information to the bank. Contacts
which may be helpful in setting up a reverse mortgage program include the
City of Orange, which has been operating its mortgage program for over a
year, and Security Pacific National Bank in Downey, which has begun
offering reverse mortgage loans.
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Mobile Home Park Assistance Program (MPAP)
This program, offered by the State Department of Housing and Community
Development, provides financial and technical assistance to mobilehome
park residents who wish to purchase their mobilehome parks and convert the
parks to resident ownership. Loans are made to low-income mobilehome park
residents or to or9anizations formed by park residents to own and/or
operate their mobilehome parks, thereby allowing residents to control
their housing costs. Loans are limited to 50 percent of the purchase
price plus the conversion costs of the mobilehome park and are awarded by
the State on a competitive basis. Applications must be made by mobilehome
park residents who must form a resident organization and a local public
entity as co-applicants. Santee has already successfully co-sponsored one
MPAP application for a local park. The City could further facilitate the
use of this program by advertising its availability to mobilehome park
residents and by continuing to serve as co-applicant for resident
organizations applying to the State for funding. The City's Zoning
Ordinance, through the Mobile Home Park Overlay District, currently
provides for a 50 percent reduction in project application fees as an
incentive for the conversion of existing rental parks to resident-owned
parks.
Shared EQuity Program
Equity sharing allows lower income households to purchase a home by
sharing the costs of home ownership with a sponsor such as a local Housing
Authority. The sponsor and the buyer would together provide the
downp1yment and purchase costs to buy a house. When the house is sold,
the equity earned through appreciation is split between the occupant and
the sponsor according to an agreement made prior to purchase.
The design of a shared equity program depends on the co-investors, the
source of funds, and community needs. A program can be as simple as a
partnership where the occupant and sponsor purchase the home together and
share the proceeds upon sale of the property in the same ratio as purchase
costs were shared.
This program serves as a financing tool to 'provide homeownership
opportunities to low and moderate income households. It could be targeted
towards low and moderate income homeowners to be displaced as a result of
future freeway development in Santee. While shared equity financing does
occur in the private market, purchase terms are often not in the best
interest of the occupant. It is therefore recommended that the City work
with the Housing Authority or a non-profit housing group to offer shared
equity as an homeownership option to low and moderate income households.
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Limited Equity Cooperatives
Limited equity cooperatives provide a means of homeownership to people who
could not otherwise afford to buy housing. A housin9 cooperative is owned
by a corporation made up of the cooperative's residents. Members do not
own the individual units in which they live, but rather they own a share
in the corporation and thereby have the exclusive right to occupy a
specific unit. In a limited equity cooperative, the amount for which a
share may be sold is limited to ensure the long term affordability of the
unit. Affordability is protected because the corporate entity holds a
blanket mortgage where vacated units are not refinanced and resold,
thereby protecting them from price inflation. The City can encourage the
formation of limited equity cooperatives by providing technical assistance
to groups trying to organize a co-op.
4.4.4 Remove Governmental Constraints
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Under present law, the Santee Housing Program must include the following:
Address and, where appropriate and legally possible, remove
governmental constraints to the maintenance, improvement, and
development of housing.
Zoning Ordinance
The City of Santee developed a comprehensive Zoning Ordinance in July 1985
to implement the City's General Plan. The following regulations in the
Ordinance have an effect on the conservation and development of affordable
housing in Santee:
. Condominium conversion regulations (Subdivision Ordinance).
. Conversion regulations for mobile home parks.
. Land use standards and development standards.
. Density and other incentives for affordable housing.
. Provisions for specific plan re9ulations.
. Density and fee reduction incentives for mobile home park
subdivisions.
While many of these regulations have a positive effect on affordable
housin9, some regulations do add to the cost of development. However, the
City's standards cannot be considered excessive in comparison with many
communities and are considered to be the minimum necessary to ensure a
certain level of quality development in the City.
Efficient Processing
The Department of Planning and Community ,Development has a streamlined
review process. Residential projects in Santee generally receive
concurrent processing, thereby shortening review time and minimizing
related holding costs.
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Development Fees
Development fees have been set at a level necessary to cover the costs to
the City and to make appropriate contributions to the community. However,
th~se fees contribute to the cost of housing, and may constrain the
development of low priced units. Certain City fees could be reviewed to
determine if waiver or subsidy by the City may be beneficial for the
provision of lower income rental, low/moderate income ownership, and
senior citizen housing. The City currently provides for reduced
processing fees for mobile home developments. In addition, the City does
not charge a development review fee for single-family residential
development. A fee reimbursement program for affordable housing could be
financed by the City's redevelopment set-aside fund.
4.4.5 Equal Housing Opportunity
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In order to make adequate provision for the housing needs of all economic
segments of the community, the housing program must include actions that
accomplish the following:
Promote housing opportunities for all persons regardless of race,
rel igion, sex, family size, marital status, ancestry, national origin,
color, age or physical disability.
More generally, this program component entails ways and means to promote
equal housing opportunity.
Equal Housing Opportunity Services
Through Community Development Block Grant funding, the City has been
providing tenant/landlord counseling and related housing services to
community residents for the past few years. These services are furnished
by the Heartland Human Relations Association. This organization provides
similar services in Lemon Grove, El Cajon and La Mesa. Among the service
components are the following:
. Affirmative Marketing.
. Fair Housing.
. Tenant-Landlord Counseling.
o Workshops and Public Information.
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.(-.. TABLE 4
HOUSING PROGRAM SUMMARY
5-Yr. Goal
Housing Program (# Units Funding Responsible
Prooram Obiective to be Ass 1 sted) Source Aaency Time Frame
l. Conservina & Imorovina
Existlna Affordable
Housina
a. TItle 25 of CalIf. Ensure adequate Not App llcab le Hone State of Ongoing
Admin. Code maintenance of the Necessary CalIfornia
CIty's mobllehome
parks.
b. Uniform Bring substandard Not App 1 icab le Department Dept. of Ongoing
Administrative units into Budget Planning &
Code compliance with Conm. Dev..
code. Co. Health
Dept.
c. Condominium Minimize the Not App 1 Icab le None Dept. of Ong01ng
Conversion conversion of afford- Necessary Planning &
( Regulations able rental housing Comn. Dev..
into condominium Pub lIe Works
ownership. Dept.
d. Mob lle Home Conserve the City's Not App llcab Ie None Dept. of Ongoing
Conversion existing mobIle home Necessary Planning &
Regulations parks. Provide Cornn. Dev..
compensation to CIty
displaced residents Manager's
if parks are converted OffIce
to other uses.
e. Conservation
of ExistIng
Subsidized
Housing
Provide for the
continued
affardabi11tyof
the City's low
and moderate
income hOUSing
stock.
f. Residential
Rehabi 1 itat ion
Maintain quality
of housing in
estab 1 i shed
neighborhoods,
particularly for
very low and
low income
households.
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Unknown,
dependent on
status of
mortgage
prepayment
Redevelopment
Set-Aside as
Necessary
City
Manager's
Office
As Requested
Assistance to
200 owner units,
100 renter
units.
CDBG,
Redevelopment
Set-Aside
City
Manager's
Office
Ongoing
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HOUSING PROGRAM SUMMARY
(continued)
S-Yr. Goal
Housing Program (' Units Funding Responsible
Prooram Ob1ective to be Assisted) Source Aoencv Time Frame
g. Adopt Uniform Expand the Not Applicable Department Dept. of Two Years
Housing Code scope of Budget Planning &
substandard Conm. Dev.
housing
conditions
regulated by
the City.
2. Provision of
Adeauate Housina
illll
a. Land Use Elementl Provide a range of Not Applicable None Dept. of Ongoing
Zoning Ordinance residential develop- Necessary Planning &
ment opportunities Conm. Dev.
through appropriate
( land use and
zoning designations.
b. Site Suitability Establish specific Incorporation Department Dept. of Two Years
Criteria criteria to of criteria Budget Planning &
evaluate potential into Zoning Conm. Oev.
project sites Ordinance
for affordable
housing.
3. Assist in
Oevelooment of
Affordable Housino
a. Section 8 Assistance Extend renta 1 Continued HUO.Section City Ongoing
Payments/Housing subsidies to low subsidy to B Cert. and Manager's
Vouchers and moderate 130 househo 1 ds, Housing Office
income families with subsidy to Vouchers;
and elderly. an add it lona 1 Redevelopment
200 units over Set-Aside
the S~year
period
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(" TABLE 4
,
HOUSING PROGRAM SUMMARY
(continued)
5-Yr. Goal
Housing Program (I Units Funding Responsible
PrOQram Obiectlve to be Assisted) Source Aoencv Time Frame
b. Density Bonus Encourage 40-80 affordable Redevelopment Oept. of As requester;
Program/Other development of units Set-Aside Planning &
Equ lvalent housing for Conm. Dev..
Incentives sentors and low City Manager's
income households Office
through provision
of density bonus/
other equivalent
incentives. Prov ide
rental assistance
vouchers for
affordable units.
c. Land Assemblage Assemble property 75 units HUO-COBG; City Ongoing
and Write-Down and extend wrtte- Redevelopment Manager's
down grants to Set-Aside Office
non-profit
( developers to
increase supply of
affordable housing
stock..
d. Home Sharing Assist seniors in 40 Roonmate HUO-COBG City Manager's Ongoing
locat 10g roornnates Matches per Office/East
to share existing Year County Council
housing. on Aging
e. Reverse Coordinate with Work towards None City Manager's As Requested
Mortgage social service estab 1 i shnent Necessary Office/East
Program groups and lending of a Reverse County Council
institutions to Mortgage on Aging
establish a reverse Program
mortgage program and
provide educational
outreach to seniors.
f. Mobi le Home Park Provide financial Unknown, Department City As requested
Assistance Program and technical dependent Budgets Manager's
assistance to on interest Office,
faci 1 itate the Oept. of
conversion of Planning &
mobi le home parks Comn. Dev.
to resident
ownership.
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(' TABLE 4
, HOUSING PROGRAM SUMMARY
(continued)
5-Yr. Goal
Housing Program (' Units Funding Responsible
Proaram Obiecti....e to be Assisted) Source Aaenev Time Frame
g. Shared Equity Provide homeowner- 10 Households Redevelopment City As Requesbrl
Program/Down payment ship opportunities Set-Aside Manager's
Ass btance to low and moderate Office
income households
through creation of
equity partnerships.
h. Limited Equity Encourage coopera- Unknown. None City As Requested
Cooperatives tive homeownershlp dependent Necessary Manager's
for lower income on interest Office
households by
providing technical
ass btance to
groups trying to
organize a co-op.
C~ 4. Remove
Governmental
Constraints
a. Zoning Ordinance Ensure City Not Applicable None Oept. of Ongoing
standards are not Necessary Planning &
excessive and do Conm. Dev.
not unnecessarily
constra in
affordable housing.
b. Effie ient Provide concur~ Not App 11cab 1e None Dept. of OngOing
Processing rent processing Necessary Planning &
for residential Conm. Oev.
projects to
shorten review time
and minimize related
holding costs.
c. Development Fees Provide reduced Adopt an Genera 1 Dept. of One Year
development fees ard i nance Fund, Planning &
for affordable and estab 1 ish i ng Redevelopment Conm. Dev.,
senior citizen modified Set-Aside City
housing. development fees Manager's
Office
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Housing
proaram
5. Ecual Housina
OODortunitv
a. Equal Housing
Opportunity
Serv ices
Program
Ob1ective
Affinn a
positive action
posture which
wi 11 assure
unrestricted
access to housing.
TABLE 4
HOUSING PROGRAM SUMMARY
(continued)
5-Yr. Goal
(I Units
to be Assisted)
Funding
Source
Provide tenantl HUO-COBG
landlord
counseling and
related housing
services.
Total units to be constructed: 3,009 - 11,B21 tota1/125 - 145 assisted
Total units to be rehabilitated: 300 units
Responsible'
Aaeney
Time Frame
City Manager's
Off ice/Heart-
land Human
Relations
Association
Ongoing
Total units to be conserved: 330 (Section B). 200 (Senior Roommate Hatching)
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ATTACHNENT A
STATE HOUSING ELEMENT REQUIREMENTS
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STATE HOUSING ELEMENT REQUIREMENTS
REOUIRED HOUSING ELEMENT COMPONENT
REFERENCE
A. Housing Needs Assessment
I. Analysis of population trends in
Santee in relation to regional trends
Data Report
Section 2.1
2. Analysis of employment trends in
Santee in relation to regional trends
3. Projection and quantification of
Santee's existing and projected
housing needs for all income groups
Data Report
Chapter 5.0
Data Report
Section 4.5
4. Analysis and documentation of Sant~e/s
housing characteristics including the
following:
a. level of housing cost compared to
ability to pay;
Data Report
Section 3.4
b. overcrowding;
Data Report
Section 3.2
c'
c. housing stock condition.
Data Report
Section 4.3
5. An inventory of land suitable
for residential development including
vacant sites and sites havin9
redevelopment potential and an
analysis of the relationship of
zoning, public facilities and
services to these sites
Housing Element
Section 2.3
6. Analysis of existing and potential
governmental constraints upon the
maintenance, improvement, or develop-
ment of housing for all income levels
7. Analysis of existing and potential
nongovernmental and market
constraints upon maintenance, improve-
ment, or development of housing for
all income 1 eve 1 s
Housing Element
Section 2.2
Housing Element
Section 2.2
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STATE HOUSING ELEMENT REQUIREt':ENTS (cont i nued)
REnUIRED HOUSING ELEMENT COMPONENT
REFERENCE
8. Analysis of special housing needs:
handicapped, elderly, large families,
and female-headed households
Housing Element
Section 2.1
9. Analysis concerning the needs of
homeless individuals and families in
Santee
Housing Element
Section 2.1
10. Analysis of opportunities for energy
conservation with respect to
residential development
B. Goals and Policies
Data Report
Section 4.6
1. Identification of Santee's
community goals relative to maintenance,
improvement, and development of housing
Housing Element
Section 3.1,
3.2, 3.3
c
2. Quantified objectives and policies relative
to the maintenance, improvement, and
development of housing in Huntington Beach
C. Imolementation Proaram
An implementation program should do the
following:
Housing Element
Section 3.1,
3.2, 3.3
I. Identify adequate sites which will be
made available throu9h appropriate action
with required public services and facilities
for a variety of housing types for all
income levels
Housing Element
Section 4.4
2. Program to assist in the development of
adequate housing to meet the needs of
low- and moderate-income households
Housing Element
Section 4.4
3. Identify and, when appropri ate and
possible, remove governmental constraints
to the maintenance, improvement, and
development of housin9 in Glendale
Housing Element
Section 4.4
4. Conserve and improve the condition of
the existing affordable housing stock
in Glendale
Housing Element
Section 4.4
5. Promote housing opportunities for all
persons regardless of race, religion, sex,
marital status, ancestry, national origin
or color
Housing Element
Section 4.4
A-2